EPA 842-S-94-001
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For further information about helping to restore and protect Long Island Sound, contact:
U.S. Environmental Protection Agency
Long Island Sound Office
^^ CZ CX£\ Stamford Government Center
/^ 888 Washington Boulevard
Stamford, Connecticut 06904-2152
New York State Department of Environmental Conservation
Division of Marine Resources
Building 40-SUNY
Stony Brook, New York 11790-2356
Connecticut Department of Environmental Protection
Office of Long Island Sound Programs
79 Elm Street
Hartford, Connecticut 06106-5127
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icut
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Contents
The Race
Orient
Introduction 1
rtypo^ia 11
ishffo^ic Substances 23
Qatfiogens 33
Island
andJMffiMt Management 43
r^f.*\ «£\P^
$ Use and''Development 49
Supporting Inytementation 55
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Life in a Long Island Sound
Marsh
&SgrV^:Vrfs&.--rs ^rap*
Ife-: .T.ruhiu*%«3
Smooth
Cordgrass
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artist: Paul J, Fusco CTDEP
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'Lstuary of RationalSignificance
h e Long Island Sound Study
Management Conference involves
federal, state, interstate, and local
agencies, universities, environ-
mental groups, industry, and the public. The Long
Island Sound Study began in 1985 when Congress
appropriated funds for the U.S. Environmental
Protection Agency and the states of Connecticut and
New York to research, monitor, and assess the water
quality of Long Island Sound. With the Clean Water Act
Amendments in 1987, Section 320 of the Act officially
established a National Estuary Program. At the request of the states of
Connecticut and New York, Long Island Sound
was officially designated an Estuary of National
Significance under this new program, and a
Management Conference for the Long Island
Sound Study was convened in March of 1988.
(purpose of the Long I stand Sound
Study
The Management Conference was
charged with developing a Comprehensive
Conservation and Management Plan for pro-
„ tecting and improving the health of Long Island
Sound while ensuring compatible human uses
within the Sound ecosystem. The plan charac-
jj terizes the priority problems affecting Long
Island Sound and identifies specific commit-
^ ments and recommendations for actions to
improve water quality, protect habitat and
living resources, educate and involve the pub-
Jic, improve the long-term understanding of
how to manage the Sound, monitor progress, and
~ redirect management efforts. Wherever possi-
J ble, the plan contains agency commitments to take
actions addressing these issues. This summary
document highlights the major elements of the
plan.
Tidal wetlands restoration at Great
Harbor Marsh in Gullford,
Connecticut, began in 1951.
top: the marsh in 1974.
bottom: the marsh in 1989.
(photo: CTDEP)
Wlielk Shell Illustrarion by Allen Carroll used throughout this book
iphoto: SoundWotersj
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Priority Ureas of Concern
The Management Conference has identified six problems that merit spe-
cial attention: (1) low dissolved oxygen (hypoxia), (2) toxic contamination, (3)
pathogen contamination, (4) floatable debris, (5) the impact of these water
quality problems, and habitat degradation and loss, on the health of living
resources, and (6) land use and development resulting in habitat loss and
degradation of water quality. The Management Conference has focused its
efforts and resources on the most pressing problem among these, low dissolved
oxygen, which affects a substantial portion of Long Island Sound in late sum-
mer, but has addressed all priority problems.
Connections to Long Island Sound
Long Island Sound is a national treasure, to be prized for its beauty,
abundant and diverse resources, and recre-
ational and commercial opportunities. For
many, it is a source of inspiration and
renewal. For others, it is the basis of eco-
nomic survival. In spite of differing per-
spectives, people share a conviction that
Long Island Sound (the Sound) is worthy
of preservation, restoration, and protec-
tion. Perhaps we can never bring the
Sound back to the condition it was when
the explorer Giovanni Verrazano arrived
in the 16th century. However, with a
clearly articulated vision for the Sound as
a guide, we can make a difference.
Distilled from the input of National
Audubon Society-sponsored citizen hear-
ings in 1990, and clearly stated in its pub-
lication, Listen to the Sound:
Jhe Sound Is not only beautiful but
supports commercial and
recreational fishing.
(photo; B. deViKeneuva)
"The vision . . . for the Sound is of
waters that are clean, clear, safe to swim in, and charged with life. It is a
vision of waters nourished and protected by extensive coastal wetlands, by
publicly accessible, litter-free beaches and preserves, and of undeveloped
islands. It is a vision of abundant and diverse wildlife, of flourishing commer-
cial fisheries, of harbors accessible to the boating public, and of a regional
consciousness and a way of life that protects and sustains the ecosystem."
The Long Island Sound Study is a reflection of the fact that people care
about the Sound. Countless hours have been spent by concerned citizens,
environmental managers, government officials, and research scientists; a
r-a
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seemingly endless series of committee meetings have taken place; and millions
of dollars have been spent on understanding the Sound's problems — all in the
interest of restoring the Sound.
What is Long IstandSound?
Long Island Sound is an estuary, a place where salt water from the ocean
mixes with fresh water from rivers and the land. Bounded by Connecticut and
Westchester County, New York, on the
north and by Long Island on the south,
it is approximately 110 miles long (east
to west) and about 21 miles across at
its widest point, with mid-Sound
depths between 60 and 120 feet.
Like other estuaries, Long Island
Sound abounds in fish, shellfish, and
waterfowl. It provides feeding, breed-
ing, nesting, and nursery areas for
diverse animal and plant life. But
Long Island Sound is unique in other
ways. Unlike other estuaries, Long
Island Sound does not have one con-
nection with the sea: it has two.
Rather than having a major source of
fresh water at its head, flowing into a
bay that empties into the ocean, Long
Island Sound is open at both ends,
through The Race to the east and
through the East River and New York
Harbor to the west. Most of its fresh
water comes from a series of
south-flowing rivers, including the
Connecticut, the Housatonic, and the
Thames, whose drainages reach as far
north as Canada. The Sound's 16,000
square mile drainage basin also
includes portions of New York City
and Westchester, Nassau, and Suffolk
counties in New York state.
The Sound combines this multi-
ple inflow/outflow system with a high-
ly convoluted shoreline and a complex bottom topography. Taken together,
they produce unique and complex patterns of tides and currents.
For many, the Sound is a source of
Inspiration.
(photo: SoundWaters]
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tiow is the Sound Us&dand What is its Vatue?
The ability of the Sound to support
oommercto/ and recreational uses
depends on natural habitats and
good water quality. Learning about
protecting 1he Sound's ecosystem
starts early. Tnsse youngsters are
getting a lesson about salt marshes.
Ipnoto: SouncftVatesj
The Sound is unique in the degree to which it provides recreational and
commercial value to the region. It lies in the midst of the most densely popu-
lated region of the United States. More than 8
million people live in the Long Island Sound
watershed and millions more flock yearly to the
Sound for recreation. Research commissioned
by the Long Island Sound Study estimated that
about $5 billion is generated annually in the
regional economy from boating, commercial
and sport fishing, swimming, and beachgoing.
The ability of the Sound to support these uses
is dependent on the quality of its waters, living
resources, and habitats. The regional economy
also benefits from many other valuable uses of
the Sound, such as cargo shipping, ferry trans-
portation, and power generation. With the uses
it serves and the recreational opportunities it
provides, Long Island Sound is among the most
important estuaries in the nation.
While Long Island Sound is a demonstra-
ble economic resource, there are other values
that are less quantifiable. Natural habitats and
good water quality contribute to shoreline resi-
dential property values. On another level, the
Sound has attributes, aesthetic and otherwise,
that can inspire a special bond between people
and the water. While it is difficult to assign a
price tag to such things, Long Island Sound's
intrinsic value as a natural resource is worth
protecting and preserving for future genera-
tions.
The current value and quality of the
Sound are partly the result of the investments in
water pollution control programs made in the two decades since the passage of
the Clean Water Act. These programs have led to measurable improvements in
pollution control and water quality, in spite of ever-increasing numbers of peo-
ple and activities on the Sound and within its watershed. Obvious sources of
pollution are now regulated and controlled through permit programs, tidal wet-
lands are protected, and major efforts in the states of Connecticut and New
f "
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York to build sewage treatment plants and control industrial discharges have
helped to restore degraded waters. More recently, with programs focusing on
the ecosystem as a whole, the approach has become more comprehensive to
include increased efforts in stormwater and nonpoint source pollution control.
These efforts have taken place because of increased awareness and con-
cern among citizens and the responsiveness of public officials. Without the
substantial investment akeady made in environmental protection, the value of
the Sound would be far less than it is today.
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* Beaches suffer periodic closures and many of the Sound's prime shell-
fish beds have been closed for years due to indications of pathogen con-
tamination. People can become sick by swimming in contaminated
waters or by eating raw or partially cooked shellfish harvested from con-
taminated waters.
*!» Trash and litter mar the Sound's waters and beaches and can pose a
hazard to living resources and to navigation.
For some, these impairments affect the enjoyment of the Sound; for oth-
ers, their livelihood.
Causes of the TroB ferns
Always considered a desirable place to live and recreate, the area around
Long Island Sound experienced a major population influx after World War II.
Residential, commercial, and recreational development increased pollution,
altered land surfaces, reduced open spaces, and restricted access to the Sound.'
The use of the Sound as a place to dispose of human and other wastes
increased dramatically. The "paving over" of the land increased runoff and
reduced the filtration and processing functions of natural landscapes. Habitat
destruction and alteration throughout the watershed harmed native wildlife
populations and reduced the breeding grounds and nursery areas for a variety
of species.
Though slowed considerably due to better management, pollution and
habitat loss continue to be problems in Long Island Sound.
* Over a billion gallons of treated effluent, which contains
oxygen-demanding material and the nutrient nitrogen, are discharged
each day from sewage treatment plants to the Sound. The nitrogen over-
fertilizes the Sound, fueling the growth of marine plants. When the
plants die, they sink to the bottom and decay, using up oxygen in the
process. Other sources of nitrogen include runoff from overfertilized
lawns and gardens and atmospheric deposition from vehicle and power
plant emissions.
•*• Toxic chemical substances produced through human activity have
found their way into the Sound and persist in elevated levels in some bot-
tom sediments. In the past, much of this material came from industrial
sources, but rigorous compliance with pollution control programs has
reduced this source substantially. Continuing sources today include
urban runoff, sewage treatment plants, vehicle exhaust emissions, house-
hold chemicals, and pesticides. These contaminants affect the health of
plants and animals and human consumption of species that concentrate
these substances can pose significant health risks.
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**» Pathogens, disease-causing microscopic bacteria and viruses, enter the
Sound's waters through inadequately treated human sewage and domes-
tic and wild animal wastes. Some of the primary sources of pathogens
are older sewer systems that have combined stormwater and sanitary sys-
tems that overflow during rainfalls (called combined sewer overflows),
sewage treatment plant malfunctions, illegal connections to storm sew-
ers, and vessel sewage discharges.
**• Floatable debris comes from people carelessly disposing of their trash,
transforming it into litter that enters the Sound through runoff, stormwa-
ter discharges, and combined sewer overflows.
In summary, Long Island Sound is stressed by people generating wastes
that flow into the estuary and by land uses and practices altering the Sound's
natural habitats. These actions degrade the Sound's water quality, disrupt its
ecosystem, and impair the uses upon which people depend.
'What if 9{o fiction is Tal^en?
Without aggressive and sustained action, the water quality of the Sound
will deteriorate, overshadowing,recent improvements. If action is not taken to
further reduce and control the discharge of pollutants and to restore and main-
tain habitats, continued growth and development around the Sound will result
in even lower oxygen levels, beach and shellfish area closings will increase,
and populations of fish and wildlife will decline.
People will turn away from the Sound as a source of livelihood and
recreation. The regional economy will shrink as people find other places to
fop: The LISS plan Is based on scl-
entito and field research. Here a
researcher monitors the Sound's
water clarity.
(USS photo)
bottom: The Sound's recreational
fishery, which annually attracts mil-
lions of anglers. Is a large con-
tributer to the local economy.
(photo: A. Slowka)
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*.. thcytan
caffs for a
sustainedand
cooperative
effort among the
states of
Connecticut and
ybrfa the
and other
federal agenciesf
(ocalgovern-
mentSj and the
-private sector
boat, to fish, and to swim. Perhaps the most vivid and dire consequence of no
action will be the degradation of the entire ecosystem. Long Island Sound will
not realize its full value to the region without concerted and committed action.
Ifa&fan
In 1985, Congress directed the U.S. Environmental Protection Agency
(EPA), in cooperation with the states of Connecticut and New York, to sponsor
the Long Island Sound Study. A Management Conference, involving federal,
state, interstate, and local agencies, universities, environmental groups, indus-
try, and the public was established. The Management Conference identified
and investigated the Sound's most significant problems and produced a draft
management plan in January 1993. Public meetings were held to solicit com-
ments on the draft, many of which were incorporated into the final version of
the plan.
The plan describes ongoing programs and lists commitments and recom-
mendations for actions that specifically address the Sound's priority problems.
Its implementation will have a range of benefits. Degradation of the Sound
will be halted. Many of the Sound's uses, impaired and impeded over time,
will be recovered. Beach closings will be reduced, shellfish harvest acreage
will expand, and there will be more life-sustaining oxygen and fewer fish kills.
Habitats will be reclaimed and restored. Diverse and healthy plant and animal
life, including endangered species, will be supported. The various water quali-
ty-dependent uses, so important to the regional economy, will achieve some
level of long-term security as an improved Long Island Sound invites visitors
to return often.
To achieve this vision, the plan calls for a sustained and cooperative
effort among the states c?f Connecticut and New York, the EPA and other feder-
al agencies, local governments, and the private sector. But the fate of the
Sound d^pefflS^ofpafore;;than-;just> the commitments of government agencies
desire of the people of the
First, citizens can
•.
good start is to learn more
:ds to be done about them"
congerns directly 'to elected officials and gov-
e can join marine user and citizen's groups to
generate — many small changes will add
md>fegiilated Miiti^Slfrdepends- on the wi
§:,n.
*, V
artist: Paul J. Fusco CTDEP
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The following sections summarize the management plan for Long Island
Sound Each priority problem identified by the Management Conference is
characterized and specific commitments and recommendations for actions are
highlighted. The last section details the coordination, involvement and educa-
tion, and funding needed to support successful implementation of the plan.
(a)
Quebec
LONG ISLAND SOUND DRAINAGE BASINS
. 1 Pawcatuck River - 297 sq. mi.
i 2 Southeast Coast-149 sq. mi.
\ 3Thames River-1478sq. mi.
I 4 Connecticut River-11,263 sq. mi.
\ 5 South Central Coast-482 sq. mi.
: 6HousatonicRiver-1946sq.mi.
i 7 Soujtiwest Coast - 355 sq. mi. (includes Westchester County)
\8N9AYorkCity-66sq.mi.
19 Lang Island - 210 sq. mi.
/'
U " .•'•-'•.'
^v.
:\
(X
1 LONG ISLAND
\ SOUND STUDY
AREA
Mops of (a) major drainage basins
and tributaries of Long Island
Sound; (b) the study area; and (c)
basins within Long Island Sound.
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Of'
uring the summers of 1987-1993,
from half to two-thirds of the
Sound's bottom waters experi-
enced dissolved oxygen levels
below 5 milligrams of oxygen per liter of water
(mg/1). Levels of dissolved oxygen of 5 mg/1 and
higher are generally accepted as being protective of
the Sound's estuarine life. In 1989, a particularly
bad summer, more than 500 square miles (40 percent)
the Sound's bottom waters had dissolved oxygen lev-
els less than 3 mg/1. During most of these years, dissolved
' oxygen in a portion of the Sound (up to 50 square miles) fell below 1 mg/1
and in 1987 anoxia, the absence of any oxygen, was recorded in a portion of
Tthe Western Narrows.
These low levels of dissolved oxygen cause significant, adverse eco-
logical effects in the bottom water habitats of the Sound. To date, research
, shows that the most severe effects (such as mortality) occur when dissolved
oxygen levels fall below 1.5 mg/1 at any time and below 3.5 mg/1 in the
short-term (i.e., 4 days), but that there are probably mild effects of hypoxia
when dissolved oxygen levels fall below 5 mg/1. The levels regularly
observed in the Sound during late summer:
**» Reduce the abundance and diversity of adult finfish;
<» Reduce the growth rate of newly settled lobsters and perhaps juvenile
winter flounder;
•«» Can kill species that cannot move
or move slowly, such as lobsters
caught in pots and starfish, and
early life stages of species such as
bay anchovy, menhaden, cunner,
tautog, and sea robin;
«*» May reduce the resistance to dis-
ease of lobsters and other species;
and
«»• Diminish the habitat value of
Long Island Sound.
Areas of Long Island Sound with
minimum bottom water dissolved
ox/gen levels below 5 mg/1 during
the summer of 1991.
Long Island Sound
Areas ol Low Dissolved Oxygen
1991
fish kill In the Mlanus River, Connecticut, summer of 1988. (photo: R.
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Ike. Cause of the, ^ProBfem
Excessive discharges of nitrogen, a nutrient, are the primary cause of
hypoxia. Nitrogen fuels the growth of planktonic algae. The algae die, settle
to the bottom of the Sound and decay, using up oxygen in the process.
Natural stratification of the Sound's waters occurs during the summer
when warmer, fresher water "floats" on the top of cooler, saltier water that is
more dense. This natural stratification forms a density difference between the
two layers called a pycnocline. This prevents mixing of surface and bottom
waters.
Oxygen from the atmosphere and photosynthesis keep the surface layer
well oxygenated, but the oxygen cannot pass through the pycnocline into the
bottom layer very easily. Decaying algae and other organic material in the sed-
iment and animal respiration in the bottom layer use up oxygen faster than it is
replenished. Hypoxia develops and usually persists as long as the stratification
lasts (usually one to two months in late summer).
But hypoxia in Long Island Sound is too complex to fully understand
using direct observations alone. Natural variations in weather and other physi-
cal factors affect the extent and severity of hypoxia. The Management
Conference has constructed mathematical models in order to understand the
relationship among natural variations, human-caused pollutant loadings to the
Sound, and dissolved oxygen levels in the Sound. Work has been completed
on LIS 2.0, a two-dimensional water quality model that provides the technical
basis for the hypoxia management actions described in the plan. In 1994, the
Management Conference will complete work on LIS 3.0, a three-dimensional
water quality model that will better define the area impacted by hypoxia. LIS
3.0 will be used as a tool to implement the plan and establish a detailed,
cost-effective management program to reduce hypoxia.
LIS 2.0 provides a level of detail that allows the Management
Conference to draw some clear conclusions about hypoxia in the Sound, its
causes, and its solutions. Using LIS 2.0, the Management Conference has sim-
ulated water quality conditions as they were in the past, as they are today, and
as they would be in the future under alternative nitrogen control scenarios.
The model provided a cost-effective way of understanding the Sound and
hypoxia.
+> The most oxygen that can be dissolved in Long Island Sound at sum-
mer water temperatures is about 7.5 mg/1. This is known as the satura-
tion level.
**» In precolonial days, natural, healthy biological activity brought dis-
solved oxygen levels below saturation due to the natural loadings of
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organic material and nitrogen, but oxygen levels probably were not
below 5 mg/1.
•*• Under today's nutrient and organic material loading conditions, mini-
mum dissolved oxygen levels average approximately 1.5 mg/1. These
levels are associated with severe hypoxia and have been documented in
the field.
•*• By substantially reducing nitrogen loadings to the Sound from sources
within its drainage basin, the minimum dissolved oxygen levels in the
bottom waters during late summer can be increased to an average of
about 3.5 mg/1, thereby significantly reducing the probability and fre-
quency of severe hypoxia and reducing the area affected by hypoxia.
Understanding the components of the load of nitrogen entering the Sound
is fundamental to understanding the plan:
•*• In 1990, defined as a baseline year by the Management Conference,
the total nitrogen load was 90,800 tons per year.
«:» By 1992, the total nitrogen load had increased to 93,600 tons per year;
this increase was anticipated and was a consequence of terminating
ocean disposal of sewage sludge from New York City and the need to
treat some of the sludge at facilities within the basin, reintroducing nitro-
gen to the wastestream.
•*• Of the 93,600 tons per year, approximately 39,900 tons are from nat-
ural sources and not subject to reductions by management activity.
*• The remaining 53,700 tons of nitrogen per year are associated with
human activities and have the potential to be reduced through manage-
ment actions.
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; efforts to reduce the substantial
western load will come under the auspices of the New York-New Jersey Harbor
Estuary Program.
2 200 tons of nitrogen annually enter the Sound from direct atmospheric deposi-
tion; the Management Conference estimates that this load will be reduced to
1,540 tons of nitrogen per year by implementation of the 1990 Clean Air Act
amendments.
The remaining 40,800 tons of nitrogen per year are a result of human activity
coming from point and nonpoint source discharges in the Sound's drainage basin
and are the subject of the plan. Point source discharges, primarily sewage treat-
ment plants, result in 32,400 tons of nitrogen each year and nonpoint source dis-
charges, such as agricultural and stormwater runoff, result in 8,400 tons of nitro-
gen each year.
(Ifie. Ttan to Sofoe the.
The goal of the hypoxia management plan is to eliminate adverse impacts
of hypoxia resulting from human activities.
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Achievement of this goal will require very large investments of capital, a
long-term commitment, and the assistance of the New York-New Jersey
Harbor Estuary Program. Therefore, the Management Conference has estab-
lished interim targets for dissolved oxygen and has outlined a phased approach
to achieving them, using what is known now to support early phases and com-
mitting to take additional steps as increased understanding of the environment
will dictate in the future.
Interim Dissolved Oxygen Targets
Using scientific information on the relationship between oxygen levels
and ecological effects, the Management Conference has established interim
target levels for oxygen that, if achieved, would minimize the adverse impacts
of hypoxia. In summary, the interim dissolved oxygen targets for the bottom
waters of the Sound are to:
*• Maintain existing dissolved oxygen levels in waters that currently
meet state standards;
•*• Increase dissolved oxygen levels to meet standards in those areas
below the state standards but above 3.5 mg/1; and,
«> Increase short-term average dissolved oxygen levels to 3.5 mg/1 in
those areas currently below 3.5 mg/1, ensuring that dissolved oxygen
never goes below 1.5 mg/1 at any time.
There are also interim targets for the surface waters of the Sound.
Phased Approach
charge^ withm|^S^^diS^|raiilage basin.
«t»-Phase I, as announceidin December of 1990, froze nitrogen loadings to
'Sound in-en^afareas at 1990 levels to prevent hypoxia from wors-
, includes significant, low-cost nitrogen
^g1?1 the, process of reducing the severity and extent of
amd^,^
•*• Phase IH will present nitrogen reduction targets to meet the interim
targets for dissolved oxygen, which will prevent most known lethal and
sublethal effects of hypoxia on the Sound's estuarine life. Phase HI also
wiU lay out the approach for meeting the nitrogen load reduction targets.
artist: Paul J. Fusco CTDEP
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Phase I - The Nitrogen Loading Freeze
Phase I was announced in December 1990. It called for a freeze on point
and nonpoint nitrogen loadings to the Sound in critical areas at 1990 levels. It
committed the states and local governments to specific actions to stop a
300-year trend of ever-increasing amounts of nitrogen entering the Sound.
The states have moved aggressively to implement the freeze, seeking the
full cooperation of local governments.
* Connecticut reacted quickly to obtain $15 million in state funds to
ensure that the nitrogen freeze was implemented. Consent orders are in
place to cap the nitrogen loads at the 15 affected facilities.
•*• In New York City, the New York State Department of
Environmental Conservation (NYSDEC) and the city
have reached Ml agreement on sewage treatment permit
limits, freezing total nitrogen loadings at 1990 levels.
The permits will be finalized shortly.
* In Westchester County, the NYSDEC has issued final
permits to the four existing sewage treatment plants,
freezing their aggregate load at the 1990 level. This was
done with the full agreement of the county.
<» On Long Island, the
NYSDEC has proposed
individual permits that
freeze the loads from indi-
vidual discharges at 1990
levels; in response, the
dischargers have proposed
establishment of an aggre-
gate limit. This proposal
is currently under review
by the NYSDEC.
Phase I agreements to con-
trol nonpoint sources centered
around three categories:
<• Use of existing non-
point source and stormwa-
ter management programs
to focus on nitrogen con-
trol with the objective of
freezing the loads.
top: Researchers testing water quality.
(photo: A. Glowka)
bottom: Three levels of priority for
managing nonpoint sources of nitro-
gen. Within level 1, the highest pri-
ority subbaslns are shaded and
include all of the portions of
Westchester, Suffolk, and Nassau
counties and New York City that lie
within the Sound's drainage area
and the densely populated portions
ofFairfield and New Haven counties.
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top: Geographic zones for man-
aging total nitrogen loads.
bottom: Phased plan to reduce
the annual toocf of human-caused
polnr and nonpolnt source dis-
charges In the Sound's drainage
basin.
Zone-Name
Coinage Area
(acres x 1000)
Zone-Name
t -Thames
2 - Connecticut
3 - Qutnnlpiae
4 -Hounionlc
5 -Saugituck
6 -Nowalfc
1044.2
7211.6
327.9
1242.9
133.4
153.9
7 -Wcstchester.
8 - Bronx/Queens
9 -Manhattan/Queens
10 - Nassau
11-Suffolk
12 - Long Island Sound
69.4
55.6
42.0
55.8
107.2
832.0
PHASED PLAN TO REDUCE POINT AND NONPOINT SOURCE
DISHARGES IN THE SOUND'S DRAINAGE BASIN
* Assessing tributary loads to Long Island Sound to begin planning for
their control.
* Assigning priorities for management to coastal subbasins where nitro-
gen loads were estimated to be the highest.
Phase II - Low Cost Nitrogen Reductions
Phase II includes firm commitments to reduce the
annual, human-caused nitrogen load of 40,800 tons from
in-basin sources by approximately 7,600 tons (or 18.6 per-
cent). This includes complete compensation for the 2,800
tons per year increase associated with the end of ocean
dumping and a 4,800 tons per year reduction from the 1990
freeze baseline.
•:» New York state will reduce its aggregate annual nitro-
gen load from 11 sewage treatment plants in New York
by 25 percent (approximately 6,700 tons) at a total capi-
tal cost of $103.1 million. Five of the actions will be
achieved by the end of 1995; four will be achieved by
the end of 1996. The load reduction associated with cen-
trate treatment is to be achieved by the year 2000. The
target date for achieving the load reductions associated
with the upgrade of the Newtown Creek water pollution
control plant in the East River is currently being negoti-
ated by the New York City Department of Environmental
Protection (NYCDEP), the
NYSDEC, and the EPA.
Funding for these actions is
available through the State
Revolving Fund.
**» Connecticut will reduce its
aggregate annual nitrogen load
from the 15 affected treatment
plants by 25 percent (approxi-
mately 900 tons) by 1995.
Funding is in place for the
$18.1 million expenditure with
$14 million available as 100
percent grants and the balance
as State Revolving Fund loans.
Drainage Area
(acres x 1000)
1990
1992
Phase I
Year/Phase
Phase II Phase
-------
A Phase H activities for nonpoint nitrogen control will continue totake
advantage of existing programs by focusing additional attention on nitro-
gen in priority coastal sub-basins. The states of Connecticut and
New York are formulating their Coastal Nonpoint Pollution Control pro-
grams to address coastal nitrogen sources.
The benefits of Phase H nitrogen reductions, as forecast by the US 2.0
model, will be substantial. Summertime minimum dissolved oxygen concen-
trations in the bottom waters of the western Sound will be raised on average
from 1.5 mg/1 to about 2.4 mg/1. The amount of estuarine habitat presently
degraded will be reduced by about 10 percent. The area most severely affected
by hypoxia will shrink by more than 30 percent.
However, these reductions alone will clearly not meet the interim dis-
solved oxygen targets nor achieve the goal for dissolved oxygen. Therefore,
an additional level of nitrogen reduction will be necessary.
Phase III - Nitrogen Reduction Targets to Eliminate Severe Hypoxia
LIS 2.0 was used to begin to estimate nitrogen reductions required to
meet the interim dissolved oxygen targets. Of the 40,800 tons per year total,
in-basin, human-caused nitrogen load, required reductions are expected to
range from 17,000 to 24,000 tons per year (or 42 percent to 59 percent).
Achievement of these reductions would require the implementation of the mid-
to high-level management scenarios as described in the Management
Conference's 1990 Status Report and Interim Actions for Hypoxia
Management. Preliminary cost estimates of these two levels of control for
point sources are from $5.1 to $6.4 billion for New York state and from $900
million to $1.7 billion for Connecticut.
Cost estimates for the necessary level of control of nonpoint sources
have not been developed but are expected to be substantial.
The benefit of achieving the interim targets would be the elimination of
severe hypoxia. Most lethal and sublethal effects of hypoxia would be pre-
vented and most of the severely impacted habitat area would be restored.
However, in order to proceed with such a costly enterprise in a way that
obtains the greatest environmental benefits for each dollar spent, approximate
Soundwide reductions must be translated into discharge- or zone-specific load
reduction targets.
* Using the LIS 3.0 model, the Management Conference will identify
the most beneficial and cost-effective nitrogen load reduction targets for
geographic management zones established around the Sound .
* The states and local governments will then be given the opportunity to
propose the most cost-effective mix of point and nonpoint source reduc-
-------
tion actions to achieve these nitrogen load reduction targets within each
zone.
Students monitoring water quality
areas.
(photo: I. StupokofQ
The third phase of the plan, therefore, is to:
«» Complete work on LIS 3.0 by June 1994.
* Establish LIS 3.0-based dissolved oxygen targets, and nitrogen load
reduction targets by zone, by December 1994.
* Encourage and support the development of innovative, cost-effective
technologies to reduce point and nonpoint sources of nitrogen.
* Complete in 1995-1997 the zone-by-zone plans to achieve the load
reduction targets.
* Establish a firm timetable for achieving the load reduction targets by
zone within 20 years with progress measured in five year increments;
this timetable can only be met if the State Revolving Funds are adequate-
ly capitalized.
* Continue long-term implementation to ensure steady increases in dis-
solved oxygen and reductions in the area impacted by hypoxia.
The Management Conference has already allocated funds to complete
work on LIS 3.0. Resources and staff from existing programs will be used to
establish LIS 3.0-based dissolved oxygen targets and nitrogen load reduction
targets. The development of zone-by-zone plans to achieve the nitrogen reduc-
tion targets has already been initiated, with over $1 million committed. To
complete all the zone-by-zone plans by 1997, the Management Conference
estimates that $700,000 per year for three years will be needed.
Qoitig Beyond the. Interim ^Dissolved Oxygen Targets
Full attainment of the goal of eliminating the adverse impacts of hypoxia
from human activities (not just eliminating severe hypoxia) will require addi-
tional actions beyond the scope of the Long Island Sound Study. The New
York-New Jersey Harbor Estuary Program is currently considering the need for
nitrogen control on a systemwide basis; nitrogen control in the Harbor could
reduce the export of nitrogen and increase the export of oxygen from the
Harbor to the Sound. Additionally, New York City has initiated studies to
evaluate the efficacy of relocating discharges from the upper and lower East
River, thereby reducing these inputs of nitrogen to Long Island Sound.
-------
The Management Conference recommends a long-term program of mon-
itoring and modeling to assess progress in meeting the nitrogen reduction and
dissolved oxygen targets, and to assess the ecosystem's response. This pro-
gram is essential to ensuring that the management actions that are implemented
are benefiting the Sound as expected.
A key element of the program is the use of the LIS 3.0 model. The
Management Conference recommends that LIS 3.0 be periodically recalibrated
to reflect the changing conditions of the Sound, and be used to explain these
changing conditions. Furthermore, the Management Conference recommends
that LIS 3.0 be used to evaluate proposals to modify the management plan, as
necessary.
A comprehensive hypoxia monitoring and modeling program has been
proposed, building upon elements of existing programs, primarily those of the
Connecticut Department of Environmental Protection (CTDEP), the NYCDEP,
and the Interstate Sanitation Commission. Full implementation of the monitor-
ing program would require additional funding of $300,000 per year.
Recalibration of LIS 3.0 would cost approximately $300,000.
Costs and funding
The Management Conference recommends increased funding of the
Connecticut and New York State Revolving Fund programs. Based on the pre-
liminary estimates, if the high-level of nitrogen control were selected, the
Connecticut State Revolving Fund would need an infusion of $70 million per
year in federal Clean Water Act funds and $47 million per year in state funds
over 20 years to meet all statewide wastewater control needs, including Long
Island Sound nitrogen control needs. The New York State Revolving Fund
would need an infusion of $623 million per year in federal Clean Water Act
funds and $128 million per year in state funds over 20 years to meet statewide
needs, including Long Island Sound nitrogen control needs.
The Management Conference also recommends that the Congress autho-
rize a total of $50 million under Section 119(d) of the Clean Water Act. This
section of the Clean Water Act, created by the Long Island Sound
Improvement Act of 1990, authorizes grants for projects that will help imple-
ment the plan. Appropriations could be spread over a period of five years.
The Management Conference would use the $50 million to fund a Long Island
Sound Challenge Grant program. A significant portion of appropriated funds
would be used to ensure that the Phase HI nitrogen control efforts get off to a
-------
fast start with full local government cooperation. The portion of these funds
allocated for nitrogen control would be used to fund cost-effective point and
nonpoint source control actions not involving major capital improvements.
Innovative projects would be encouraged.
And finally, the Management Conference recommends that Congress
fully fund the nonpoint source control programs under Section 319 of the
Clean Water Act and Section 6217 of the Coastal Zone Act Reauthorization
Amendments to support additional nonpoint source management activities.
artist: Paul J. Fusco CTDEP
-------
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Substances
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x>xic substances include both natu-
rally occurring and man-made sub-
stances that can cause adverse
ecosystem or human health risks
J .
when exceeding certain concentrations. The
Management Conference has reviewed all available
data on the levels of toxic substances in the water,
biota, and sediments of Long Island Sound. These levels
were compared to applicable standards, criteria, and guide-
lines to provide an indication of environmental problems.
Overall, the quality of Long Island Sound's waters is good with respect
'' to toxic substances. The only documented case of levels exceeding either
^state's water quality standards in the open waters of Long Island Sound is for
'mercury in the East River. However, data on organic toxic substances (such
fas polychlorinated biphenyls [PCBs]) were too sparse to allow the
! Management Conference to draw any conclusions about contamination.
; While few tests of water column toxicity have been conducted, indications of
borne aquatic life impairments have been observed in the upper East River
Analysis of fish and shellfish tissue data indicates that very few conta-
Imination problems exist that could affect the health of seafood consumers.
iThe only documented substances of concern are PCBs, most of which were
jidischarged into the environment before the complete ban on their manufac-
{ture and severe restrictions on their use. PCB action levels (the minimum
^concentrations of chemicals in food that may cause the Food and Drug
lAdrninistration to take enforcement action) are exceeded in the flesh of
^striped bass, bluefish, eels, and the hepatopancreas (more commonly known
|as the tomalley) of lobsters and crabs. The states of Connecticut and New
-York have issued consumption advisories for those species. Because PCBs
[are globally distributed and most fish and forage species migrate widely, it is
shot clear if the problem observed in Long Island Sound is caused by local
^sources.
There are also some concerns about contaminant levels in waterfowl
^tissues. New York state has issued an advisory on consumption of mer-
Igansers and some other waterfowl. The relationship between waterfowl con-
tamination and Long Island Sound management needs is unclear because of
||he diversity of habitats and wide migration patterns of waterfowl.
|Connecticut has funded research into contamination of the greater scaup (photo:
-------
(a diving duck) that may provide additional insight into this type of problem
and management needs for Long Island Sound.
Surveys of mussels and oysters, while spatially limited in scope, have
identified a few areas where the concentrations of heavy metals and organic
compounds in tissues are elevated relative to cleaner sites. These include the
urban harbors of Bridgeport, Mamaroneck, and Hempstead, the lower
'Housatonic River near Devon, and the area around Throgs Neck. While the
levels of contamination may affect the health of those species, there are no
human health risk/consumption advisories as a result of toxic substances in
these organisms.
Sublethal toxic effects on the pathology and reproductive success of
organisms have been measured at some locations as well, specifically in floun-
der in New Haven Harbor and clams in Bridgeport and Norwalk Harbors. .
In contrast to the generally low concentrations of toxic substances in the
water, toxic contamination problems persist in the sediments of some areas of
the Sound. This may be due, in large part, to historical discharges that
occurred prior to implementation of state and federal Clean Water Act require-
ments. Despite the great strides in reducing the load of toxic substances to the
Sound, field studies have not documented decreases in the amount of toxic
substances in sediments in contaminated areas over time. The database since
1972, for example, does not identify general trends in sediment concentrations
of heavy metals. This is probably a function of the slow sedimentation rate in
the Sound combined with mixing of the sediments by burrowing organisms.
More time is needed for the benefits of source reductions to be observed in the
sediments because of these physical and biological attributes of the Sound.
While most of the Sound's sediments do not exhibit contamination levels
of concern, problems have been documented in some areas of the western
Sound and in several, mostly urbanized, harbors, rivers, and'embayments. In
these areas, preliminary data indicate that elevated levels of metals in the sedi-
ment could be affecting benthic organisms. Sediments with elevated levels of
metals and organic compounds are found in portions of Black Rock Harbor,
Bridgeport Harbor, Stamford Harbor, the Quinnipiac River and New Haven
Harbor, the Housatonic River, the Five Mile River, the West River, Glen Cove
Creek, and the Hutchinson River. Sediments from sites in western Long Island
Sound and in urban harbors have also elicited toxic responses in tests using
sensitive species.
Overall, the Management Conference has concluded that problems due to
toxic contaminants occur in limited areas and are primarily associated with
sediment contaminant levels. However, additional data on toxic substances in
water, biota, and sediments are essential to a full characterization of the nature
and extent of the toxic substance problems in the Sound.
-------
As discussed above, the sediment contamination problems that persist
today may be due, in large part, to historical discharges of toxic contaminants.
Active industrial and municipal sources of toxic substances still exist but have
been greatly reduced. This is the result of the emphasis placed on toxic conta-
minant control in existing regulatory discharge permitting programs over the
last 25 years. Currently, no single source category of toxic substances appears
to be the primary determinant of conditions in the Sound. The results of the
National Coastal Pollutant Discharge Inventory for the Sound, compiled by the
National Oceanic and Atmospheric Administration for the Management
Conference, indicate the following relative source contributions of some toxic
substances to the Sound:
»:» The largest sources of heavy metals are the major rivers that flow into
the Sound (Connecticut, Housatonic, Quinnipiac, and Thames), which
dominate the total load because of their large discharge volumes. Some
of the load originates from natural sources and ambient concentrations of
most pollutants do not exceed state criteria for surface waters.
* Sewage treatment plants in Connecticut and New York are the second
largest source of toxic substances and are dominated by the New York
City plants.
* Urban runoff, combined sewer overflows, and stormwater discharges
are the third most significant source of toxic substances. They are
Field research plays an /mportonf
part in remedial planning,
(photos: I. Stupatoff)
-------
"^Permitprograms
and enforcement
activity... are
responsiBkfor
greatly reducing
to7(ic substance
(bacfs over the
past 25years."
potentiaUy significant sources of some toxic substances, such as lead,
PCBs, and polynuclear aromatic hydrocarbons, and may locally affect
Long Island Sound's waters and biota.
•*• Atmospheric deposition may also contribute substantial amounts of
some metals, such as copper, lead, and zinc, as well as organic com-
pounds, but additional evaluation is warranted.
•*• Relatively minor sources of toxic substances, which may affect limited
areas, include: industrial discharges (most notably along the Quinnipiac
and Naugatuck Rivers), power plants, old landfills, chemical and oil
spills, and boating operations.
Ilk (Plan to Sotve the. TroBiem
To protect and restore Long Island Sound from the adverse effects of
toxic substances, the Management Conference recommends actions in four key
areas:
<» Continue and, where appropriate, enhance existing regulatory and pol-
lution prevention programs to reduce toxic substance inputs to Long
Island Sound;
•*• Further evaluate sediments where toxic contamination problems exist
to determine the feasibility of remediation;
•* Improve communication to the public of any legitimate health risks
from consumption of seafood species from the Sound; and
<* Coordinate and strengthen monitoring activities for toxic substances to
improve understanding and management of toxic contamination problems.
Existing Regulatory and Pollution Prevention Programs
Permit programs and enforcement activity for both direct and indirect
discharges, including toxicity testing of those discharges, are responsible for
greatly reducing toxic substance loads over the past 25 years. The
Management Conference's priority management recommendation for toxic
substances is to continue these successful activities, all of which are funded
under current programs.
**» The states of Connecticut and New York are reviewing municipal and
industrial discharge permits to surface waters to reduce the allowable
concentrations of toxic pollutants from the previous, permitted values.
This includes municipal discharges and, therefore, affects pretreated
industrial discharges as well. The net result will be a substantial reduc-
tion in the discharge of toxic materials over the next few years to meet
adopted criteria for toxic substances in the states' waters.
-------
»»» The Management Conference recommends continued support for
existing pollution prevention site visit programs targeting industrial dis-
chargers to Long Island Sound and its tributaries. The Connecticut
Technical Assistance Program solicits requests from manufacturing facil-
ities for voluntary pollution prevention audits and has conducted more
than 40 audits in the past two years. The NYSDEC, as a part of its com-
pliance inspection program, performs multimedia pollution prevention
field assessments at sites where permitted activities are taking place.
Other programs that are designed to prevent pollution, reduce pollutant
loads, or clean up existing problems and spills must also be supported as part
of a comprehensive program to manage toxic contamination in Long Island
Sound.
Planned activities under the auspices of the New York-New Jersey
Harbor Estuary Program that will enhance toxic substance management in
Long Island Sound are:
•*• Develop Total Maximum Daily Loads, Waste Load Allocations for
point sources, and Load Allocations for nonpoint sources to ensure that
water quality standards for mercury are met in the Harbor, the East River,
and western Long Island Sound. The Waste Load Allocations and Load
Allocations will be completed in 1994. Initially, permits will limit point
source discharges of mercury to existing effluent limits.
»*» Continue work to fully account for nonpoint sources of mercury, since
the work to date has revealed the presence of a major, unidentified non-
point source of mercury. This additional work is described under
Monitoring. (Page 28)
Sediment Contamination
»»» The Management Conference will review the data on sediment conta-
mination on a site-by-site basis. State and federal experts will evaluate
the problem at each site and recommend additional assessments needed
to fully characterize the problem, ascertain the need for and feasibility of
remediation, and prepare a remediation plan.
<• Additional assessments should be conducted and site plans addressing
_ the feasibility, technical approach, cost, and value of conducting sedi-
ment remediation projects should be developed for Black Rock Harbor
and Glen Cove Creek, where data may be sufficient to construct case
study analyses. The cost of conducting characterization and feasibility
studies is approximately $250,000 per harbor. This translates to
$500,000 per year to address the problem at a rate of two harbors per
year. Recently, the City of Glen Cove was awarded $250,000 from the
-------
New York State Legislature to evaluate the contamination of Glen Cove
Creek. Funds for additional evaluations are presently not available.
*> The Management Conference will evaluate the research and manage-
ment programs and activities in the Great Lakes and New York-New
Jersey Harbor as part of developing an approach to remediate sediments.
This will ensure cost-effective transfer of appropriate technology to Long
Island Sound contamination problems.
Risk Communication
«*» The states of Connecticut and New York will improve the coordina-
tion of health risk assessment and advisory recommendations. This will
help minimize confusion about the safety of Long Island Sound fish,
shellfish, and waterfowl, thus minimizing human exposure to contami-
nated species.
Monitoring
The Management Conference recommends that a comprehensive, coordi-
nated monitoring program be implemented to fully evaluate toxic contamina-
tion problems and their causes and trends in the Sound. Elements of the pro-
gram include:
Contamination damages the health of the Sound's IMng resources. Programs to prevent pollution or to clean up
existing problems are part of a comprehensive program to manage toxic contaminants. The reduction In pesticide
levels has helped osprey populations In the Sound. •
(pnotos: Connecticut Sea Grant«? Michael J. Vitti 1991 ]
-------
•*• The National Oceanic and Atmospheric Administration's Mussel
Watch and Benthic Surveillance components of their Status and Trends
Program.
<» The EPA's Environmental Monitoring and Assessment Program,
which has stations throughout Long Island Sound, and its Regional
Environmental Monitoring and Assessment Program (R-EMAP), which
is focusing on sediment contamination in western Long Island Sound as
part of a regionwide program. The incremental cost to include Long
Island Sound in the R-EMAP program was $200,000.
* Incorporation of the results of the National Oceanic and Atmospheric
Administration's urban harbor sediment assessment, identifying the need
for further assessment.
«*» Implementation of a comprehensive monitoring program for toxic
substances in edible fish and shellfish to ensure compliance with the
newly proposed Food and Drug Administration's fish safety initiative.
The cost of implementing this recommendation is $300,000 per year.
•*• Implementing the recommendations of the Management Conference
Monitoring Workshop to improve monitoring of toxic substances. The
cost of implementing the recommendations is $15,000 per year.
In addition to these general monitoring recommendations, the New
York-New Jersey Harbor Estuary Program has drafted a scope of work to
develop comprehensive, systemwide models of PCBs, mercury, and other toxic
pollutants. The Management Conference endorses these activities that will
benefit Long Island Sound. Specific actions include:
«*» The U.S. Army Corps of Engineers has agreed to develop a work plan
and budget to complete these models.
•*• The Corps and the other New York-New Jersey Harbor Estuary
Program Management Conference participants have agreed to seek the
funding necessary to complete these models.
»:» The systemwide models for PCBs and mercury would provide the
technical foundation for comprehensive efforts to eliminate contamina-
tion problems in the Sound-Harbor-Bight system.
Benefits
The benefits of implementing the plan will be significant.
•> Preventing toxic substances from entering the Sound by continuing
successful regulatory and pollution prevention programs is the most
effective method of preventing future degradation and, in many
-------
instances, may be the most economical means of managing toxic
substances.
*J» Reducing toxic substance loads and remediating sediments will be
beneficial not only to organisms that live on or in the sediments, but also
to organisms that feed on them.
•J» These actions will significantly improve and expand habitat for shell-
fish, finfish, and other estuarine life.
*J» Risk to seafood consumers will be further reduced.
•»> An improved toxic substance monitoring base will allow faster
response to emerging problems and a greater ability to plan remediation
activities.
Costs and Funding
Successful implementation of the plan is contingent^
the EPA receiving, at a minimum, level funding for existing
ed with toxic substance controls, monitoring, and assessing
approximately $500,000 per year is needed to iderrirfy ^
contaminated sediments in selected urban harbors at
year. Site-specific remediation cost estimates
harbor-specific analyses. New funding of^SJJg'C
improve monitoring of toxic substances.
states and
sociat-
ding of
diate
artist: Paul J. Fusco CTDEP
-------
Canoeing In the Guilford sa/tmarsh, GuMord, Connecticut.
(photo: Connecticut Sea Grant © MtenaelJ. Vlttl 1991)
f\
-------
aiB^^
™ t ~"™™^
-------
yuman exposure to pathogens can cause
illness, most often gastroenteritis, but
also potentially more serious diseases
^ ,such as salmqnellosis and hepatitis A.
Exposure to pathogens can occur either by direct con-
tact with, or ingestion of, contaminated waters by
bathers or by eating raw or partially cooked shellfish
harvested from contaminated waters. Indications of
pathogen contamination have resulted in closed beaches and
shellfishing areas, hurting the economy of the region and damag-
ing public perception of the quality of the Sound and its resources.
I • •
L Pathogen contamination causes a number of beach closures around the
SrSound each summer.
* From 1986 to 1990, the Management Conference identified 10 beach-
es that were chronically closed (defined as closed for at least three days
per year for at least three of the five years) to swimmers due to pathogen
contamination. The chronically closed beaches, in order of severity,
were Scudder Park, Gold Star Battalion, the Mamaroneck area,
. Huntington Beach Community, the Hempstead Harbor area, Centerport
Yacht Club, Fleets Cove, and Mamaroneck Beach Cabana and Yacht
Club in New York and the beaches in the Norwalk and Milford areas of
Connecticut.
«> Almost all closures occurred at beaches in embayments, rather than
directly on the Sound, because of proximity to sources and reduced
flushing.
Many productive shellfish beds are closed due to pathogen contamination.
•*• In New York, of the 66,000 acres of productive shellfish beds, 73 per-
cent were either completely closed to shellfishing or subject to signifi-
cant harvest limitations in 1990. Despite these restrictions, the propor-
tion of Long Island Sound hard clams relative to the total harvest from
all New York waters has gone from 4 percent in 1972 to 36 percent in
1991. This is due to increased shellfish production in the Sound and
reduced hard clam harvests in the southern bays of Long Island (i.e.,
Great South Bay, Moriches Bay, etc.). Most of the hard clams were har-
' vested from the townships of Huntington and Oyster Bay.
•*• In Connecticut, of the 52,500 acres of productive shellfish beds, 35
percent were either completely closed to shellfishing or subject to signifi-
cant harvest limitations in 1990. Approximately 85 to 90 percent of the
Sewage treatment plants remove
pathogens from wastewater efflu-
ent before it enters Long Is/and
Sound.
(photo; Connecticut Sea Grant © Michael J. Vitti
1991)
\
-------
harvest of Connecticut oysters and clams from approved waters was orig-
inally relayed or transplanted from restricted and prohibited areas by the
shellfish industry. This creates additional costs to the industry.
Ik, Cause, of the TroBkm
Pathogens in Long Island Sound originate from untreated or inadequately
treated human sewage and wild and domestic animal wastes. They enter the
Sound from point and nonpoint discharges.
On an annual average basis, the estimated percent of fecal coliforms (an
indicator of pathogen contamination) discharged into Long Island Sound from
different sources are:
«»» 51.6 percent from rivers, which includes upstream point (e.g., sewage
treatment plants) and nonpoint sources (e.g., failing septic systems);
«»» 47.3 percent from urban runoff, which includes combined sewer over-
flows; and
«** 1.1 percent from sewage treatment plants and industrial sources dis-
charging directly to the Sound.
However, short-term discharges that are small on an average annual
basis, such as discharges from vessels, can be significant sources in localized
areas.
In New York state, rainfall causing combined sewer overflows and
stormwater runoff was the primary cause of beach closures during the 1986 to
1990 review period. In Connecticut during that period, sewage treatment plant
malfunctions were the primary cause of beach closures.
In both Connecticut and New York, the primary cause of shellfish bed
closures varied from harbor to harbor but appeared to be primarily caused by
nonpoint source pollution, especially from stormwater runoff. In harbors
where detailed case studies were conducted, stormwater runoff, failing septic
systems, and boats and marinas appeared to contribute to pathogen-related clo-
sures. Sewage treatment malfunctions may also have been significant on a
local basis. Some of these closures are administrative or precautionary clo-
sures, while others are based on ambient data.
-------
I sewer overflows, nonpoint source runoff, sewage treatment plant malfunctions,
• and vessel discharges. Those and other sources of pathogens should be identi-
• fied by conducting site-specific surveys leading to better control of local
• sources of pathogens.
• Combined Sewer Overflows
| *»» New York City has begun to implement a combined sewer overflow
abatement program to control the discharge of pathogens at a cost of $1.5
billion with enforceable completion dates for various aspects of the pro-
gram during the period of 2001 to 2006.
»> Connecticut will implement its long-term combined sewer overflow
abatement program to manage combined sewer areas that affect Long
Island Sound. The cities of Norwalk, Jewett City, Derby, Norwich, and
Shelton have combined stormwater and sanitary systems that will be cor-
rected by the year 2000 at a cost of approximately $27 million.
Bridgeport and New Haven have large systems that will be corrected in
phases. The first phases are underway with remaining phases scheduled
over the next 20 years at costs of $91 million and $125 million, respec-
tively.
Nonpoint Source Runoff
*** New York and Connecticut are implementing general statewide
stormwater permit programs to manage stormwater from industrial and
construction activities, in accordance with the EPA's national program
regulations. These permits regulate construction activity at sites greater
than five acres and from 11 industrial categories.
*J» New York state has initiated a pilot program using enforceable instru-
ments (e.g., permits or consent agreements) to control and manage
stormwater that causes closures of bathing beaches and shellfish beds.
This pilot program has been funded at a cost of $100,000. Based on the
program's effectiveness, more widespread implementation will be con-
sidered.
**» Connecticut and New York commit to using their statewide nonpoint
source programs and to developing coastal nonpoint pollution control
programs to control pathogen discharges to Long Island Sound.
Successful implementation of these programs is contingent upon fully
funding the nonpoint source control programs under Section 319 of the
Clean Water Act and Section 6217 of the Coastal Zone Act
Reauthorization Amendments.
-------
Sewage Treatment Plant Malfunctions
**» The EPA and the states of Connecticut and New York agree to take
immediate enforcement seeking corrective actions and penalties in cases
where sewage treatment plant malfunctions result in closures of bathing
beaches or shellfish beds.
»t» Connecticut and New York commit to taking timely enforcement to
eliminate dry weather overflows, eliminate illegal hookups to storm sew-
ers, and to control wet weather overflows from sewers caused by exces-
sive infiltration and inflow, especially in areas near bathing beaches and
shellfish growing waters.
Vessel Discharges
<» The states of Connecticut and New York will identify specific embay-
ments warranting protection from vessel sewage discharge beyond the
protection offered through the federal marine sanitation device standards
and, to the extent feasible, will designate these embayments as no dis-
charge areas after the EPA has determined that there are adequate
pumpout and treatment facilities.
*t» New York state has identified Huntington and Lloyd Harbors as areas
requiring additional protection and the EPA has issued an official public
notice of its tentative determination that adequate pumpout or treatment
facilities exist in the areas. Assuming a final affirmative determination,
the NYSDEC will designate Huntington and Lloyd Harbors as the first
no discharge areas in Long Island Sound.
«*» New York and Connecticut have received $1 million and $120,000
respectively in Clean Vessel Act grants to install vessel sewage pumpout
facilities in Long Island Sound and other coastal waters. Both states will
apply for additional funds in fiscal years 1995-1997 to meet the need for
pumpout facilities in harbors and embayments identified as potential no
discharge areas.
Site-specific Surveys
«t» The states of Connecticut and New York will continue to perform bac-
terial surveys of harbors and embayments to identify contaminated shell-
fish areas and potential sources of pathogens. The states will continue to
use seasonal or conditional certification of shellfish harvest areas and
will act to open or close shellfish beds or bathing beaches, as may be
warranted by water quality conditions.
«{»The Management Conference recommends that each state perform sur-
veys to assess the impacts of point and nonpoint sources of pathogens
and to identify management options. Management actions should be
-------
identified based on viability of the resource and feasibility and
cost-effectiveness of management. New funding of $300,000 per year is
needed to implement this recommendation at the rate of two harbors per
state per year.
Benefits
With reductions in the major sources of pathogens that cause water quali-
ty or health-related problems in the Sound, existing shellfish beds and bathing
beaches will be further protected and, where feasible, impaired bathing beach-
es and shellfish beds will be opened. This will help ensure protection of public
health while minimizing negative effects on the regional economy caused by
bathing beach and shellfish bed closures.
Costs and Funding
Successful implementation of this plan is contingent upon the states
receiving, at a minimum, level funding for existing programs associated with
pathogen assessment and control.
Two significant program enhancements have already been funded. A
$100,000 pilot program was initiated in New York to use enforceable instru-
ments to control and manage stormwater. Connecticut and New York have
received $120,000 and $1 million, respectively, in Clean Vessel Act grants to
install vessel sewage pumpout facilities in Long Island Sound and other coastal
waters.
New funding of $150,000 per year per state is needed to implement sur-
veys for sources of pathogens and develop site-specific management actions.
The cost of implementing long-term combined sewer overflow abate-
ment programs is estimated to cost $243 million in Connecticut and $1.5 bil-
lion in New York. Adequate capitalization of the State Revolving Fund pro-
gram in each state is required to fund these efforts.
Reductions in major sources of
pathogens will strengthen the shell-
fishing Industry.
(photo: Tallmadge Bros.)
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"Ultimately,
the, most effec-
tive, strategy is
to combat the
root cause of
the -problem,
—littering and
improper
disposal."
»t» New York Harbor and tributaries to the Sound; and
»> Shoreline visitors and boaters.
Ifie. Tfan to Solve, the.
-------
estimated to cost $500 per coordinated event or $5,000 per year for ten
events.
«t» As part of the National Beach Cleanup Program, annual cleanups of
Long Island Sound shorelines have taken place since 1988. Each autumn
volunteers physically pick up trash from shorelines adjacent to the
Sound. As presently constituted, this program costs $10,000 per state per
year to coordinate and support volunteer efforts. The Management
Conference recommends that this program be enhanced to include a sec-
ond beach cleanup in the spring, prior to the beach season, at an addition-
al cost of $10,000 per state per year.
Costs and Funding
Successful implementation of this plan is predominantly contingent upon
the states and the EPA receiving, at a minimum, level funding for existing pro-
grams associated with managing combined sewer overflow and stormwater
discharges and for public education. In order to abate combined sewer over-
flows, underground infrastructure systems must be modified. The redesign and
restructuring of these systems are major public works projects. The costs of
such activities are accounted for in the Pathogens section of this summary.
New funding of approximately $12,500 per state per year is needed to enhance
existing education and cleanup programs.
Storm drain stencilling Is an effec-
tive way to educate people that
nothing but rainwater should go
down stormdrains,
(pl-oto: S. Fallen)
-------
Living Resources and
at Management
I'&w
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4
fie coastal environs of Long Island
Sound represent a unique and highly
productive ecosystem with a diverse
array of living resources, ranging from
microscopic plants and animals that drift with the cur-
rents to seaweeds and economically important finfish,
shellfish, and crustaceans. In addition, many other
types of wildlife, such as birds, sea turtles, and marine
mammals, spend all or part of their lives in the Sound, on
its shores, or in its watershed.
These living resources are important to people.
Commercial and recreational fishing in Long Island Sound
^contributed more than $1.2 billion to the regional economy in 1990.
^Moreover, the opportunity to observe and appreciate the Sound's plants and
\ animals is in itself an enjoyment of the Sound for millions of the region's
^residents and visitors.
While there are still abundant living resources in the Sound and in its
^watershed, there is little doubt that their overall abundance and diversity
; Jiave been diminished by indifferent human uses of Long Island Sound and
its resources.
flfie Cause, of tfie (Problem
A principal human cause of harm to the Sound's living resources is
water pollution. The Management Conference has identified hypoxia as the
major water quality problem in Long Island Sound. The effects of hypoxia
: and the other priority water quality problems on living resources have been
addressed in previous sections of this summary.
There are two more negative human influences on living resources —
| destruction and degradation of habitat and overharvesting from fishing and
_ hunting.
»** Approximately 25 percent to 35 percent of the Sound's tidal wetlands
have been destroyed during the last century by filling, dredging, and
development. These wetlands are critical breeding areas and help filter
pollutants from land runoff, including nutrients. This trend was halted in
the 1970s after wetland protection laws were passed.
»t» While tidal wetland loss has been checked by the adoption of wetland
regulatory programs, significant wetland areas are degraded as a result of
past human disturbance and modification. Additional wetlands are
Coastal marshes like this one In
eastern Connecticut contribute to
the natural beauty of the shores of
Long Island Sound and form an
essential part of the Sound's
ecosystem,
(photo: Connecticut Sea Grant © Michael J. Vitti
1991)
-------
becoming degraded by ongoing activities, as evidenced by the rapid
spread of common reed into brackish and fresh tidal wetlands.
<» Dams built on Connecticut rivers and streams have restricted the
upstream movement of migrating fish, such as alewives, smelt, blueback
herring, shad, and salmon.
«*» Overall in the Sound there has been a significant decrease in the quan-
tity and distribution of submerged aquatic vegetation. This is believed to
be linked to nutrient
enrichment.
Cormoran/s as well as other
waterfowl, depend on a healthy
coastal habitat.
**» Non-native
species introduced
into Long Island
Sound and popula-
tions of certain
native species that
have grown too
large have caused
damage by preying
upon or competing
with sensitive species
such as beach nest-
ing birds.
•J» Species such as
winter flounder, lob-
ster, bluefish, dia-
mondback terrapins, and many others have been harvested to the point where it
is essential to manage fishing and hunting activities.
(ihe Turn to Solve the Problem.
The states of Connecticut and New York and the federal government
have long managed and protected the coastal lands and aquatic habitats of the
Sound's living resources, and have implemented management programs to
protect living resources from overharvesting. The Management Conference
recognizes the need to maintain these ongoing conservation programs and to
make priority improvements. Critical ongoing programs include:
*> State and federal regulatory programs that protect tidal wetlands and
other productive habitats, such as intertidal sand and mud flats and sub-
merged aquatic vegetation;
**» Habitat restoration and enhancement activities;
-------
*> Fisheries management, including population monitoring, and species
regulation and restoration; and
**» Wildlife management, including population monitoring and programs
to protect and restore populations of endangered and threatened coastal
plants and animals.
The Management Conference recognizes the importance of these pro-
grams in meeting its goals for the living resources of Long Island Sound, and
urges the states and federal agencies to maintain them. The Management
Conference recommends the following enhancements to ongoing habitat
management programs:
«t» A Soundwide
system of reserves,
consisting of the
most significant
and essential habi-
tats, should be
established. This
should include des-
ignation of existing
reserves and the
acquisition of fee
title or easement of
additional habitats
as they are needed
to complete the
reserve system.
Acquisition of identified priority sites would cost an estimated $30 mil-
lion. The states of Connecticut and New York need to develop or
enhance and fully fund long-term land conservation funds for acquisi-
tions and as a match for the federal Land and Water Conservation Fund.
In New York state, the Environmental Protection Fund enacted in 1993
can meet that need, provided that additional revenues are dedicated to the
fund, and the Open Space Conservation Plan associated with the fund
can guide acquisition activities. The Management Conference advocates
a major revitalization of the federal Land and Water Conservation Fund,
including enhancement of grants to states and acquisition of federal
refuges. Local land trusts also need to be developed or enhanced to sup-
plement a Soundwide reserve system.
Preservation of essential habitats is
Intrinsic to long-term protection of
the Sound.
**» Existing state and federal programs to restore and enhance tidal wet-
lands and other habitats need to be enhanced. Intermodal Surface
s-^ft
$
iTW
-
-------
Transportation Efficiency Act funds and Long Island Sound Challenge
Grant funds, among others, should be used for this purpose. Each state's
fish and wildlife and coastal management programs need to develop a
coordinated strategy to inventory and prioritize habitat restoration and
enhancement needs, and to cooperatively implement restoration pro-
grams using all available state and federal resources. Development of a
strategy will require $700,000 per year in additional funding. The esti-
mated cost of implementing habitat restoration and enhancement projects
is $1.7 million.
+»» Existing state
and federal pro-
grams to manage
and restore popu-
lations of har-
vestable and
endangered and
threatened
species need to
be enhanced.
Related manage-
ment activities
might include
shellfish projects
such as oyster
cultch placement
and shellfish seed
stocking, artifi-
cial reef develop-
ment in New
York state, and
reestablishing
migratory finfish
passage in
Connecticut.
Enhancement of
species management programs will require $1.76 million per year of
additional funding. Implementation of projects benefitting species will
cost approximately $1.4 million. Funding from sources such as the Sport
Fish Restoration Act (The Dingell-Johnson and Wallop-Breaux Acts), the
1993 federal Atlantic Coast Interjurisdictional Fisheries Act, the
Pittman-Robertson Aid in Wildlife Restoration Act, the Endangered
-------
Species Act, and the Marine Mammal Protection Act should be used for
these activities.
Benefits
Implementing these actions along with the actions to improve water qual-
ity discussed in the preceding sections should enhance prospects for a healthy
ecosystem with balanced and diverse populations of indigenous plants and ani-
mals, improved abundance and distribution of harvested species, and edible
species suitable for unrestricted human consumption.
Costs and
Funding
Successful imple-
mentation of the plan is
predominantly contin-
gent upon the states and
federal agencies receiv-
ing, at a minimum, level
funding for existing pro-
grams associated with
living resources and
habitat management.
New funding of approxi-
mately $2.46 million per
year is needed for living
resources and habitat
management program
enhancements and $33.1
million is needed for liv-
ing resources and habitat
project implementation.
The Management
Conference recommends
that $10 million of the
recommended $50 mil-
lion Long Island Sound
Challenge Grant Program (as introduced in the Hypoxia section) be used for
habitat acquisition and to initiate habitat restoration actions.
(photo: SoundWoters)
-------
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-------
eople have often preferred to live near
coastline to use and enjoy its abun-
dant resources, and the areas surrounding
Long Island Sound are no exception. As
a result of the cumulative effects of human activity, the
natural values of the Sound have been diminished. In
many parts of the Sound's watershed, intensive develop-
ment has significantly altered the land and degraded the
quality of waters flowing through it. Other areas are threat-
ened by continuing development. Because the Sound is the
-'sink" for a 16,000 square mile watershed, its water quality is closely tied to
phe ways in which the land is used and developed. Urban and suburban devel-
ppment has also resulted in the loss of natural habitats and has limited public
hiccess to the coast.
Tfie Cause, of the Trobkm
Water quality protection has often been neglected in land use policies,
especially management of cumulative or downstream impacts of land use that
difficult to predict. As population and development have increased, the
Jocal land use planning and regulatory processes have fostered uses that, how-
ever sensible from a provincial or individual perspective, have cumulatively
^degraded the Sound. Even where environmental impacts have been identified,
ngineered solutions have, in some cases, generated secondary water quality
problems. For example, to replicate natural drainage efficiencies in urbanized
eas, storm drain systems have been designed to discharge runoff as quickly
; possible. As a result, contaminants in stormwater are rapidly discharged to
tie Sound and its upstream waters.
Ignorance of the value of natural habitats resulted in their despoliation,
ter contributing to environmental problems. While existing habitat man-
^agement and regulatory programs have substantially improved protection and
restoration of tidal and freshwater wetlands, some natural habitats are still vul-
inerable to development. Also, despite a significant increase in the number of
public access areas, additional areas are needed. In return for paying for
Expensive improvements to the Sound, the public is deserving of a more acces-
|sible coastline for recreational purposes.
A clear connection between past, present, and future land uses and the
^ lealth of Long Island Sound has been established. Accordingly, the plan to
;improve the Sound must address not only the consequences of existing devel-
Hcw we use the land surrounding
the Sound will effect water qualify.
(photo: NY Dept. of State)
-------
: R.
-------
Five areas were identified as critical to enhancing land planning and use
to improve water quality, habitat protection, and public access throughout
watershed. Recommendations were developed in each area.
* The impacts from existing development are significant, particularly in
urbanized areas, and must be reduced to improve coastal water quality.
These areas should be targeted for nonpoint source management, includ-
ing public education, infrastructure upgrades, spill prevention and
response, and flood and erosion control. Also, abandoned or underuti-
lized sites should be a high priority for remediation and reuse.
»*» The impacts from new development are also significant and must be
minimized to prevent further degradation of water quality. Progressive
planning and management should ensure the application of best manage-
ment practices, protect wetlands, minimize land disturbances, improve
access, and maintain appropriate water-dependent uses.
**» To improve land use decision making that incorporates effective water
quality and habitat protection, better information, training, and technical
assistance must be available. Training, technical assistance, and financ-
ing should be made available to local governments, as well as education
for the public, professionals, and trade organizations. This will help
develop consistent land use and natural resource information and man-
agement practices in the region.
**» Conservation of natural resources and open space is vital to the
long-term protection of Long Island Sound. Open space preservation
and conservation practices must be aggressively pursued. This might be
accomplished through a watershed-based planning approach that inte-
grates protection of surface waters with programs and plans that guide
growth and development.
»*» Public access is essential to public use and enjoyment of Long Island
Sound, especially since improvements to water quality involve public
costs. Public access improvements should be aggressively pursued
throughout the watershed using a combination of traditional techniques,
such as fee-simple acquisition, and innovative techniques, such as trans-
fer of development rights and tax credits.
*&$ Steps
Water quality and resource-based planning and management measures
must be put into place throughout the watershed in a consistent and coordinat-
ed manner. Through the Management Conference, efforts will continue.
Specific actions and potential means to fund them will be identified, built upon
the general recommendations presented above.
access
improvements
shoutdbe
aggressively
pursued
throughout the
watershed..."
-------
The New York State Department of State has recently prepared a Long
Island Sound Coastal Management Plan that sets out specific recommendations
for guiding land use and development, ensuring public access to the shore, and
protecting important habitats. The plan is consistent with the Long Island
Sound Study plan and should be adopted by New York state.
Connecticut's Coastal Management Program, adopted in 1980, contains
many of the same provisions that are in the New York plan, including manda-
tory requirements for public access at waterfront parcels. Implemented at the
local level as a mandatory component of planning and zoning reviews, the
Connecticut program has afforded fragile coastal natural resources greater pro-
tection from development and has-added in excess of ten miles of public access
since 1980. The Connecticut program should be maintained at current levels.
Land use and development as it affects Long Island Sound is an unfin-
ished agenda. Significant additional effort is required to determine the most
appropriate means to effect change as well as to provide the funds needed to
implement even the general recommendations presented in the plan.
Additional analysis, new initiatives, and their costs must be underwritten by
the federal government, the states of Connecticut and New York, local govern-
ments, and the private sector.
Mystic Seaport, now a historic
restoration, has maintained Its
character through ihe years.
; Courtesy of Mystic Seoport Museum)
-------
crtorm of O/of Mysf/c Village draws millions of tourists from around the world.
(photo: Connecticut Sea Grant © Michael J. Vittl 1991)
<&
ffito
* *1 i» » f
t
-------
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Wv
I
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are
he previous sections have discussed
the nature and extent of the priority
problems affecting the health of the
Long Island Sound ecosystem.
Commitments by federal, state, and local govern-
ments that begin to resolve these problems have
been presented along with recommendations to
guide future actions.
As a key component of plan development, the
Management Conference was also directed to identify the
means by which its implementation would be coordinated.
The Management Conference has identified three areas that
critical to implementing the plan:
* The Management Conference must be continued to maintain and
improve communication and coordination among different units of gov-
ernment, research and educational institutions, and concerned groups and
individuals.
* Public education about Long Island Sound must continue along with
mechanisms to involve the public in continuing management efforts.
* Adequate funding for the new and expanded efforts must be available
and funding for existing programs that have been successful must be
continued.
Continuing
-------
photo; SoundWbtes
With adoption of the plan, the role of the Management Conference will
shift from plan development to program implementation. Specifically, contin-
uation of the Management Conference will provide a management framework
to:
•J» Track, monitor, and report on program implementation;
«> Incorporate new information to enhance implementation of actions;
»:» Develop additional commitments from participating agencies;
«t» Seek and advocate adequate funding; and
»> Continue public involvement.
These efforts will be summarized in a report every two years. The report
will identify progress in implementing the plan, as well as any delays or obsta-
cles to implementation; describe water quality conditions in the Sound and the
effectiveness of management efforts to improve them; and recommend the
redirection of efforts to meet the goals of the program. The Management
Conference will continue to prepare fact sheets, articles, and newsletters to
report on different aspects of the program.
As part of the Long Island Sound Improvement Act, the EPA established
a Long Island Sound Office. To serve the bi-state community, the office has
two facilities, one located in Stamford, Connecticut and the other in Stony
Brook, New York. The basic activities of the Long Island Sound Office are to:
* Provide administrative support to the Management Conference and
coordinate the EPA with other federal agency involvement in Long
Island Sound issues;
* Support state program coordination and involvement in the
Management Conference; and
* Maintain public education and involvement efforts with an added
focus on local government involvement.
The cost associated with this base level of effort for the Management
Conference is approximately $475,000 per year, of which $175,000 is for
maintaining the Long Island Sound Office and providing support to the
Management Conference, $150,000 is for state program coordination of imple-
mentation, and $150,000 is for public involvement and education. Funding is
available for these programs in fiscal year 1994 but will be required in future
years.
The Management Conference recommends that part of the funding be
provided through Section 320 of the Clean Water Act. These funds can be
-------
used for activities such as monitoring and reporting on plan implementation.
The Management Conference further recommends that additional funding be
provided through the Long Island Sound Improvement Act. These,funds can
be used for all the activities cited above and any additional activities that
would be instrumental in enhancing implementation of the plan.
Section 320 of the Clean Water Act requires a non-federal match of 25
percent on all funds and the Long Island Sound Improvement Act requires a
non-federal match of 50 percent. The states of Connecticut and New York
should, at a minimum, ensure the availability of matching funds for all avail-
able federal grants.
Involvement and'Education
Public involvement and education are essential to restoring and protect-
ing Long Island Sound and will be fundamental to the successful implementa-
tion of virtually every part of the plan. Public involvement and education also
help the public understand, appreciate, and enjoy the Sound's resources and
the benefits derived from them. An informed and educated public can help
develop a united and organized constituency to galvanize support for the
cleanup and protection of the Sound and its resources.
The goal of public involvement and education is to promote an under-
standing and appreciation of the Sound as a regional ecosystem and a national
treasure and to provide feedback to the Management Conference on future
direction.
Six objectives have been developed to accomplish this goal. They are to:
<» Build community awareness and appreciation of the Sound;
*»» Promote understanding of the Sound;
«*» Promote individual involvement and management of Long Island
Sound by supporting hands-on activities to clean up and restore the
Sound;
**» Increase communication and cooperation between the public and the
many groups involved with Long Island Sound protection, including the
Management Conference;
«J» Develop educational opportunities at all age levels; and
«*» Secure funding for all public involvement activities proposed as part
of the plan.
Highlights of the actions for achieving the public involvement and edu-
cation goal include:
-------
+J» The Management Conference Public Involvement and Education
Program and the state public outreach programs will be continued.
Collectively, these programs will provide consistency of information
going to the public and ensure that the public receives current informa-
tion on the implementation of the Management Conference actions and
recommendations.
»t» The EPA and the states of Connecticut and New York will provide
information to municipalities regarding the importance of Long Island
Sound protection and restoration. Special attention will be given to
coastal municipalities with briefings by state officials to explain how
implementation of the plan will affect their cities or towns and to foster
cooperation and partnership. Briefings will also be held for specific user
groups, local officials, and elected representatives.
*** The Citizens Advisory Committee will continue to provide guidance
to the Management and Policy Committees and to serve as a link
between the public and the Management Conference.
«** The Management Conference will continue to encourage public partic-
ipation in activities relating to the cleanup and protection of the Sound
and provide support for activities including storm drain stenciling, beach
grass planting, and beach cleanups.
*t» The Management Conference will establish a public outreach work
group to guide the implementation of the public involvement and educa-
tion strategy. The work group will work closely with, and serve to com-
plement, the ongoing public outreach and education efforts of the
Citizens Advisory Committee. The group will also be charged with
determining funding sources for implementing the strategy, consulting
with staff on tactics, working to provide coordination of public outreach
efforts from both an internal and external basis, and assessing program
effectiveness.
*** The states of Connecticut and New York will continue to work with
appropriate school districts in their states to develop Long Island Sound
education materials and outreach programs for primary and secondary
schools. These resources also will be made available for integration into
other environmental education programs.
«t» The Management Conference will seek to create a public involvement
and education (PIE) fund that could be supported by a variety of funding
sources. Potential federal appropriations through the. Long Island Sound
Improvement Act could be used to create an endowment fund. The PIE
fund would be administered by the Management Conference. A PIE
-------
fund, and interest generated from its endowment, would provide support
for both non-governmental and governmental organizations for projects
fulfilling the recommendations for education and involvement.
Since current state and private Long Island Sound public education pro-
grams are underfunded, the Management Conference recommends that addi-
tional state and private funding sources be directed toward meeting the needs
of existing programs before being sought for a PIE fund.
The activities necessary to achieve the involvement and education goal
would be undertaken by the states, the EPA, Sea Grant programs, and numer-
ous other groups. In Connecticut, the budget for ongoing Long Island Sound
related public outreach programs is approximately $100,000 annually. In addi-
tion, Connecticut's High School Long Island Sound Research Grant Program
provides $30,000 yearly to fund educational research programs on the Sound
and, during calendar year 1993, the Long Island Sound License Plate Program
spent $250,000 from the Long Island Sound Fund on education projects. The
EPA Long Island Sound Office budget for public education and involvement is
$150,000, discussed earlier as part of the base level of effort required for the
Management Conference.
Approximately $450,000 would be needed to fund the priority enhance-
ments to current involvement and education programs and recommendations
for new programs as stated in the plan. This includes support of enhanced
Management Conference and state public outreach programs that will now
focus on implementation of the management plan ($200,000 per year); the
development and facilitation of public participation in Long Island Sound
cleanup and monitoring activities ($100,000 per year); and the integration of
Long Island Sound educational materials and curriculum into the New York
state and Connecticut school systems ages K-12 ($150,000 per year).
Furthermore, the Management Conference also recommends that seed money
be made available for the establishment of a PIE fund.
Support of public involvement and education is the best long-term
investment that can be made to guarantee the successful restoration and protec-
tion of Long Island Sound. Public support for the Sound is crucial to the con-
tinuation and funding of Long Island Sound improvement programs and a
sense of public responsibility, or stewardship, will lead to lifestyle changes that
must occur to ensure a healthy Sound for future generations.
Summary ofTCan Costs and funding
The costs of cleanup efforts are significant. They include the costs of
continuing existing programs, the costs of enhancing these programs, and the
costs of project implementation such as upgrading sewage treatment plants or
initiating practices to control nonpoint sources of pollution.
(pfoto: Nowalk Seaport Association)
-------
Funding to cover these costs must be provided by the federal, state, and
local governments and by the private sector, in partnership, with each paying
its fair share. The prospects for achieving the Management Conference's goals
and objectives, and the pace with which progress is made, will be directly
related to the availability of adequate funding.
Existing Program Funding
The plan includes numerous commitments on the part of the NYSDEC,
the CTDEP, the EPA, local governments, and other federal, state, and local
agencies to continue the implementation of ongoing programs. At a minimum,
these commitments require that existing program activities continue to be
funded at existing levels by the states of Connecticut and New York and from
federal grants. These funds that support statewide programs are the base upon
which Long Island Sound protection efforts must build.
As presented in Table 1A of the Appendix, the total statewide appropria-
tion in New York state for water quality protection, natural resource manage-
ment, and coastal zone management is $39.8 million. Federal grants to New
York state for these activities provide an additional $29.4 million statewide.
As shown in Table IB of the Appendix, the total statewide appropriation in
Connecticut for water quality protection, natural resource management, and
coastal zone management is $8.7 million. Federal grants to Connecticut for
these activities provide an additional $6.5 million statewide.
Enhanced Program Funding
The plan also includes commitments and recommendations for actions
requiring additional program resources. The commitments are actions for
which enhanced program resources have already been made available or for
which there are firm obligations. The recommendations are actions that
require additional funding that is not currently available. As summarized in
Table 2 of the Appendix, the total cost of the plan's priority commitments is
$3.25 million. The total cost of the plan's priority recommendations is $5.99
million per year. The total costs of implementing all of the Management
Conference's commitments and recommendations are presented in the full
plan.
Project Implementation Funding
The project implementation costs associated with the plan are large and
are dominated by the potential cost of upgrading sewage treatment plants to
remove nitrogen, the cost of remediating combined sewer overflows, and the
cost of property acquisition (Table 3 of the Appendix). The capital costs of
Phase II nitrogen reduction actions are $103.1 million in New York state and
$18.1 million in Connecticut. The potential long-term costs are much higher.
Based on preliminary estimates, the costs of the additional nitrogen control for
-------
point sources ranges from $5.1 to $6.4 billion in New York state and from
$900 million to $1.7 billion in Connecticut. These costs would be in addition
to the $243 million in Connecticut and $1.5 billion in New York state needed
to implement the currently planned combined sewer overflow abatement pro-
grams critical to reducing pathogens and floatable debris in the Sound.
Using these cost estimates, the total capital need for the wastewater pro-
gram in New York state for the next 20 years has been estimated to be $25 bil-
lion; this includes $7 billion for the needs within the Long Island Sound
drainage basin. The total capital need for the wastewater program in
Connecticut for the next 20 years has been estimated to be $3.5 billion, almost
all of which is for needs within the Long Island Sound drainage basin.
The two states have concluded that the existing State Revolving Funds
are the preferred vehicles for funding major capital projects for wastewater
programs; substantial funds have already been obligated to the programs for
project implementation (Table 4 of the Appendix). Based on the preliminary,
high-cost hypoxia management scenario in this plan, the Connecticut State
Revolving Fund needs an infusion of $70 million per year in federal funds and
$47 million per year in state funds over 20 years to meet statewide needs,
including Long Island Sound nutrient control needs. The New York State
Revolving Fund needs an infusion of $623 million per year in federal funds
and $128 million per year in state funds over 20 years to meet statewide needs,
including Long Island Sound nutrient control needs.
Cost estimates for the necessary level of control for nonpoint sources of
nitrogen have not been developed but are expected to be substantial.
Significant project implementation costs are also associated with the
habitat-related commitments and recommendations. The total project costs for
restoring habitat, creating reserves, and improving species management are
$1.7 million, $30 million, and $1.4 million, respectively.
Sources of Funding
A number of funding sources must be targeted to help meet the need for
enhanced program and project implementation funding.
To fund project implementation, the Management Conference recom-
mends that the Clean Water Act be reauthorized and that grants to the states to
help capitalize their State Revolving Fund programs be continued. Following
reauthorization of the Act, the Management Conference will formulate a
detailed financial plan, consistent with authorized federal funding levels, to
meet the total cost for plan implementation. The financial plan will include a
specific focus on the ability of local governments to pay for required improve-
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(photo;
ments. The states are committed to providing technical assistance to local gov-
ernments in complying with the plan.
To ensure that implementation of the management plan gets off to a good
start, the Management Conference recommends that the Congress appropriate
$50 million to fund a Long Island Sound Challenge Grant program.
*:» A significant portion of the funds would be used for point and non-
point source nitrogen control actions that do not involve major capital
improvements.
Funds would be obligated for use within the individual nitrogen management zones in
proportion to the load reduction targets.
The entities responsible for achieving the nitrogen load reduction targets would submit
applications for the funds to the states. The states would obligate funds for the most
cost-effective projects.
«:» The remaining portion of the funds would be used to support actions
in other areas, such as habitat restoration and acquisition, stormwater
abatement, and public access. Of this remaining portion, $10 million
would be allocated to habitat restoration and acquisition.
«> Funds would be awarded on a competitive basis, with eligibility limit-
ed to projects that support implementation of the plan and go beyond the
current legal or regulatory obligations of the recipients.
To support program enhancements, the Management Conference recom-
mends funding under the Long Island Sound Improvement Act, the targeting
of other available federal Clean Water Act and Coastal Zone Management Act
program funds, and the targeting of available state and local funds.
While the primary focus of the Management Conference has been on
programs and projects resulting from the Clean Water Act, there are other leg-
islative initiatives and programs that affect the quality of Long Island Sound.
This is particularly true for programs to protect living resources and habitat.
Continued support for and improvements in these programs will have direct
benefits for the Sound. Programs that acquire land or easements include the
Land and Water Conservation Fund, New York State's Environmental
Protection Fund, and Section 318 of the Coastal Zone Management Act; pro-
grams that restore habitat include the federal Intermodal Surface
Transportation and Efficiency Act; and programs that manage species include
the Sport Fish Restoration Act (the Dingell-Johnson and Wallop-Breaux Acts),
the 1993 federal Atlantic Coast Interjurisdictional Fisheries Act, the
Pittman-Robertson Aid in Wildlife Restoration Act, the Endangered Species
Act, and the Marine Mammal Protection Act.
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artist: J.H. Torrance Dowries
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Table 1A. Existing Program Funding Statewide1 in
New York (in millions of dollars)
Program Element
Water Quality Management
Natural Resources Management
Coastal Zone Management
TOTAL
State
8.72
28.97
2.12
39.81
Federal
12.20
14.63
2.55
29.38
1 These funds are for programs statewide. Long Island Sound is one of 17 drainage basins in
New York State encompassing less than one percent of the area and approximately 23
percent of the population of the state.
Table 1B. Existing Program Funding Statewide1 in Connecticut (in millions of dollars)
Program Element
Water Quality Management
Permitting and enforcement
Water quality planning, standards, and monitoring
Nonpoint source management
LIS monitoring
Natural Resources Management
Coastal structures, dredging permits
Aquaculture
Coastal zone management
Coastal fish and wildlife management
LIS research
Tidal wetlands restoration
Coves and embayments restoration
LIS education and outreach
TOTAL
State
Federal
1.82
0.80
1.00
0.052
0.50
0.45
1.00
0.25
1.37
0.60
0.50
0.383
8.72
1.76
0.59
1.42
0.29
0.00
0.00
1.00
0.65
0.00
0.80
0.00
0.00
6.51
1 Almost all of the state is included in the Long Island Sound drainage basin.
2 Does not include $500,000 capital investment in research vessel and depreciation.
3 Includes $250,000 from the Long Island Sound License Plate Fund.
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Table 2. Priority Enhancements to Existing Program Funding (in dollars)
Program Element
Hypoxia
Complete LIS 3.0
Establish N-reduction targets
Develop zone-by-zone plans
Monitoring/Modeling
Toxic Substances
Monitoring
Sediment remediation assessment
Pathogens
Enforceable instruments
Vessel discharges
Site-specific surveys
Monitoring
Floatable Debris
Clean Streets/Clean Beaches
Enhance beach cleanups
Storm drain stenciling
Living Resources and Habitat
Habitat restoration strategy
Species management
Monitoring
Management Conference
Coordination of Management Conference
by the LIS Office
State coordination of implementation
Public involvement and education
Data Management and Reporting
Education
Outreach on plan implementation
Public involvement in cleanup and
monitoring
Integration of curriculum
TOTAL
Commitments
One Time
Funded by the LISS
Existing Program
Redirection
1,000,000
—
Recommendations
Annual
—
—
700,0001
400,0002
200,000
250,000
100,000
1,120,000
—
—
100,000
—
—
—
—
—
175,000
150,000
150,000
—
315,000
500,000
—
—
300,000
10,000
—
20,000
5,000
700,000
1,760,000
150,000
175,000
150,000
150,000
200,000
—
—
—
3,245,000
200,000
100,000
150,000
5,985,000
1 To develop zone-by-zone plans over three years.
2 Includes the annualized cost of recalibrating the LIS 3.0 model for new conditions every
in rs6 ys3rs.
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Tabl* a Project Implementation Funding Estimates (in millions of dollars)
Program Element
Hypoxia
Phase II: point sources
Phase II: nonpoint sources
Phase III: point sources
Phase III: nonpoint sources
Toxic Substances
Pathogens and Floatable Debris
Stormwater/nonpoint sources
Combined sewer overflows
Living Resources and Habitat
Restoration
Reserves
Species Management
New York
103.10
N/E1
5,100.00-
6,400.00
N/E1
N/E2
N/E1
1,500.00
0.95
16.00
0.40
Connecticut
18.10
N/E1
900.00-
1,700.00
N/E1
N/E2
N/E1
243.00
0.75
14.00
1.00
Total
121.20
N/E1
6,000.00-
8,100.00
N/E1
N/E2
N/E1
1,743.00
1.70
30.00
1.40
1 Not Estimated-The potential costs of implementing stormwater and nonpoint source
control actions will depend on the site-specific assessments of conditions and the
applicability of management controls.
a Not Estimated— The cost of remediating sediments would be developed as part of the
proposed harbor-specific characterization and feasibility studies.
Table 4. Average Annual Obligations to the State Revolving fund Program for
Wastewater Treatment Statewide in New York and Connecticut (in millions of dollars)
Program Element
Total
Wastewater Treatment
Combined Sewer Overflows
New York
State
35.00
Federal
173.00
—
Connecticut
State
60.69
53.10
7.59
Federal
18.53
15.94
2.59
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LONG
ISLAND
SOUND
STUDY
Back Cover Art—Brenda C. Bull
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The U.S. Environmental Protection Agency
Long Island Sound Office
Stamford Government Center
888 Washington Boulevard
Stamford, Connecticut 06904-2152
EPA 842-S-94-001
s-xEPA
\
8CB
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