INTERIM OUTPUT EVALUATION HANDBOOK
FOR
SECTION 208 AREAWIDE WASTE TREATMENT MANAGEMENT PLANNING
Environmental Protection Agency
Washington, D. C. 20460
June 1975-
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2. EXISTING AND PROJECTED AREA CHARACTERISTICS
A. Population
Determination of projected populations under the 208
planning process is the first step in guiding the develop-
ment of 201 facilities plans for municipal wastewater treat-
ment facilities. In general, population projections are
related to employment projections, which stem from projec-
tions of local industrial and commercial activity. Projec-
tions of economic and employment figures are not specifical-
ly required as interim outputs. However, in most cases,
economic and employment data must be analyzed when popula-
tion projections are made or reviewed.
The interim output population growth projections are
a basis for estimating future waste loads and flows (see
Section 4); population projections are also a major input to
service area delineations (see Section 3). Such projections
should be consistent with those used for local and regional
planning, air quality maintenance, water supply, transporta-
tion, solid waste management, and public investment. The
projections must also reflect growth constraints imposed on
the area by air quality management plans or other objectives
or policies.
Population and employment projections should be con-
sistent with existing and projected land-use patterns in the
208 area. All projections should cover the next 20 years
in 5-year increments.
The State planning agency should provide the 208 agen-
cies with statewide population projections and coordinate
disaggregation of these projections for 208 areas. The
State may use the OBERS Series-E projections* or some other
projections of employment and population. Generally, the
Series-E statewide projection is a good ceiling, since it
considers population changes both from changes in fertility
and from migration. If the State uses a different projec-
tion, it should inform the 208 agency of its assumptions;
for example, the net birth rate and migration figures it
used. Series-E projections are available for 173 national
economic areas; the 20 water resources regions and 205 sub-
areas of the Water Resources Council; the States; and 253
SMSA's.
U.S. Water Resources Council. 1972 OBERS Projections;
Economic Activity j_n_ the U.S.; Based On_ Series £ Popula-
tion, vol. I-VII. Washington, D.C. 1974. GPO, stock no,
voT7 I, 5245-0013, ,$3.05; vol.11, 524500014, $2.50; vol.
Ill, 5245-00015, $3.10; vol. IV, 5245-00016, $1.90; vol.
V, 5245-00017, $2.75; vol. VI, 5245-00018, $2.50; vol.
VII, 5245-00019, $2.75.
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Whenever possible, the 208 agency should use employ-
ment or population projections already in use by other local
agencies. Ideally, all local pianners--air quality, trans-
portation, solid waste, water supply, and so onwould work
'from the same set of projections, which also would have a
strong correlation to disaggregated statewide projections.
In some cases, the 208 agency may disagree with popu-
lation projections provided by the State or in use by other
local planning agencies. In some States, the State may take
a very active role in coordinating projections to be used by
208 agencies, thus minimizing disagreements. But in other
States, the agencies may have flexibility in selecting the
projections. When the 208 agency has some flexibility in
this area, it should select projections which have the sup-
port of its advisory committees and local political units;
which are reasonable and can be defended on technical
grounds; and which, to the extent feasible, are compatible
with other projections used or prepared locally.
Finally, the 208 agencies should use caution in extrap-
olating historical employment and population trends to make
population projections. Since many parts of the country are
experiencing abrupt changes in population growth and distrib-
ution, historical trends may not be useful for projecting
future needs. Recent economic and social factors, for
example, the rapidly declining birth rate and the high un-
employment rate, should be consi-dered in projections of
local activity.
Minimum Reporting Requirements
As a minimum, the 208 agency's interim outputs report
should include the following information with respect to
population forecasts:
1) a precise, recent estimate of the existing
population in the 208 area; and, if the
projections are based on a different start-
ing year and population, a comparison of
this recent estimate to the projected 1975
population for the area
2) an explanation of the methodology used to
arrive at population projections for the
next 20 years, including a discussion of
how the projections consider State and
local projections
3) a table showing the estimated population in
the 208 area for the next 20 years in five-
year increments.
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POPULATION AND EMPLOYMENT PROJECTIONS
Introduction
The following is a summary of a technical report on
employment and population forecasts for the 208 areawide
management planning area.* The principal results and
statistical tables are shown below.
The forecasts are the same as those projections already
in use by several other local planning units including the
COG.** The projections are slightly lower than the OBERS
Series-E projections adjusted for the 208 area boundary.
The employment and population forecasts have been pre-
pared in conjunction with the Land Use Study summarized
elsewhere in this report. These projections reflect both
private and public investments, incentives, and constraints.
They are not inevitable since alternative pubMc policies
and other factors could change the rate of population growth
over the coming years.
Methodology
The 208 agency first obtained employment and popula-
tion estimates and projections for the relevant counties ai
SMSA from the State. The State uses the OBERS Series-E pr<
jections for the State, counties, and SMSA's. With the
assistance of the Department of Environmental Conservation
*208 agency, Draft Technical Report on Employment and
Population Forecasts, date
** NOTE: In the examples presented in this handbook, the
208 staff must be distinguished from the COG.
References to COG indicate previous or on-going
activities performed by COG independently of the
208 effort. For these examples, the 208 planning
group could either be a unit of the COG or an in-
dependent agency.
continued ..
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EXAMPLE -
these figures were adjusted to the boundaries of the 208
area.
Next, the agency obtained the COG's economic, employ-
ment, and population forecasts. The COG has done extensive
forecasting for several years, and is responsible for air
quality and transportation planning. The COG builds its
population forecasts by forecasting economic and commercial
activity in the area, taking into account the national and
local economy, then making a projection of the number of
employees who will live in the COG area in the future. A
ratio of the employed work force to the total population is
then used to forecast total population in the COG jurisdic-
tions. For 1980, this ratio is based on recent data for
the COG area. Ratios in later years have been adjusted so
that they approach OBERS Series-E projected ratios for this
SMSA.
The COG's forecast was slightly lower than the disag-
gregated Series-E figures, but the 208 agency decided to
use the COG forecast since it included more detailed consid-
eration of local factors.
The 208 agency then considered population projections
for the non-COG county (Green County) included in the 208
area. Green County had made some population forecasts,
which the 208 agency found to be much higher than Series-E.
Although the County said-the projections were realistic
based on anticipated suburban construction there, the 208
agency, after consulting the technical advisory committee,
agreed that Green County was not likely to experience such
rapid growth due to its distance from employment centers,
the stabilizing employment rate in the 208 area, and the
severe drop in housing construction which has occurred in
the last three years. Therefore, the 208 agency used State
disaggregated Series-E projections for Green County.
Concurrently, the agency correlated the employment and
population projections with the land-use projections which
appear elsewhere in this report. The land-use projections
are compatible, and are the same ones in use by the COG.
With respect to employment, the findings of the 208
agency are:
continued
8
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EXAMPLE -
The job base will grow from 191,500 in 1974 to
242,600 in 1985 and to 302,700 in the year 2000.
The forecast implies that the area will continue
to outperform the nation in terms of expected
employment growth.
The future rate of employment growth will, how-
ever, be slower than the area experienced during
the 1960's, but about equal to that experienced
in the early 1970's.
Nonmanufacturing employment will grow faster
than manufacturing employment. As a result, the
manufacturing sector's share of total employment
will decline from 28 percent in 1974 to 27 per-
cent in 1985 and 26 percent in the year 2000.
Within the manufacturing sectors, slower growth
is expected in the government, trade, and con-
struction industries in response to slower popu-
lation and employment growth in other sectors of
the economy.
The tables below summarize past and future area popu-
lation and employment:
continued
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SUMMARY OF PAST AND PROJECTED COUNTY
EMPLOYMENT AND POPULATION
Employment
Actual/Estimated
1960
1970
1974
Projected
1985
2000
Average Annual Growth
1960-1970
1970-1974
1974-1985
1985-2000
Manufacturing
46
54
54
66
79
1
,900
,400
,000
,700
,800
750
-100
,150
870
Nonmanufacturinq
1
1
1
85
23
37
75
222
3
3
3
3
,700
,300
,500
,900
,900
,760
,550
,490
,130
1
1
1
Total Populati
32
77
91
242
302
4
3
4
4
,600
,700
,500
,600
,700
,510
,450
,640
,000
307
385
395
493
610
7
2
8
7
,450
,850
,300
,200
,200
,840
,350
,900
,800
AVERAGE ANNUAL EMPLOYMENT GROWTH
DURABLE GOODS INDUSTRIES. 1960-2000
Employees Added Yearly
Primary Metals
Fabricated Metals
Machinery
Transportation
Other Durables
Total Durable Goods
1960-1970
20
20
_
180
-20
1970-1974
50
-25
25
-575
175
1974-1985
55
75
80
355
55
1985-2000
60
95
120
40
45
200
-350
620
360
AVERAGE ANNUAL EMPLOYMENT GROWTH
NONDURABLE GOODS INDUSTRIES, 1960-2
Nondurable Goods
Food Products
Texti les
Apparel
P r i n t i n g / P u b 1 i s h i
Chemi cal s
Rubber/Plastics
Leather
Other Nondurable
Total Nondurable
1960-1970
-40
-90
ng 20
680
-50
30
Goods 550
1970-1974
-50
-75
50
350
25
-100
50
250
1974-1985
35
45
350
65
35
530
000
1985-2000
80
40
280
80
30
510
10-
continued
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JD^V/llVlJt'JLfJC,
AVERAGE ANNUAL EMPLOYMENT GROWTH,
NONMANUFACTURING INDUSTRIES,
1960-2000
Employees Added Yearly
Industry
Contract Con
Transportati
nication &
Trade
1960-1970 1970-1974 1974-1985 1985-2000
struct ion 310
on, Commu-
Utilities 40
1 ,220
375
125
1 ,000
355 255
120 105
980 925
Finance, Insurance &
Real Estate
Services
Government
Other I/
Total Nonman
I/ Incl
280
830
1 ,000
80
ufacturing 3,760
udes agriculture,
425
1 ,175 1 ,
425
25
3,550 3,
mining, self -em pi
480 460
175 1,070
300 200
80 115
490 3,130
oyed and
domestics.
1974
1980
1985
1990
1995
2000
I/ U.S. Depa
estimates
AREA POPULATION
Resident Job
Hoi ders
(000)
167.8
194.4
217.0
238.0
257.8
274.6
rtment of Commerce
, March 1975.
PROJECTIONS, 1974-2000
Employment
Population
Rate
42.4%
43.3%
44.0%
44.5%
45.0%
45.0%
and State Planni
Estimated
Population
(000)
395,300 I/
448,900
493,200
534,800
572,900
610,200
ng Office, provisional
11
continued .
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COMPARISON OF POPULATION PROJECTIONS. 1974-2000
1974
1975
1980
1985
1990
1995
2000
(actual)
State Planning
Office
395,300
424,200
467,800
503,600
543,600
594,100
649,800
208 Agency
305,300
I/
448,900
493,200
534,800
572,900
610,200
Average Annual Change
Actual
1950-1960
1960-1970
1970-1974
State
8,860
7,840
2,350
Projected
1974-1980
1980-1985
1984-1990
1990-1995
1995-2000
State
12,080
7,160
9,000
10,100
11,140
208 Agency
7,480
8,860
8,320
7,620
7,460
No projection rendered.
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2. EXISTING AND PROJECTED AREA CHARACTERISTICS
B. Land Use
Background
Since water quality is one of a series of economic,
social, and environmental objectives which local governments
consider when making land use decisions, the 208 planning
agency must be aware of on-going land use planning and imple-
mentation efforts. The 208 planning agency must work closely
with agencies responsible for land use planning and implemen-
tation programs to ensure that plans are compatible and that
the implementation of land use plans and programs does not
have an adverse impact on carrying out the 208 plan.
The primary intent of the land use interim output is to
insure that the 208 agency has started to assess and incor-
porate related local and regional land use planning efforts
early on in their 208 process. A detailed consideration of
land use is important for two reasons: (1) land use plans
can serve as bases from which point and non-point source
controls can be developed and evaluated; and (2) possible
changes in future development patterns and controls can be
explored as a means of reducing investment in point and non-
point source control.
Throughout the process of incorporating land use con-
siderations into the 208 plan, primary reliance should be
placed on utilizing existing land use plans, projections,
and controls, although it will be necessary in some cases to
identify necessary revisions responsive to water quality ob-
jectives. Since it is unlikely that the 208 planning agency
will have the authority to enact or implement changes in
land use plans or controls, it is essential that the plan-
ning agency work closely with those government agencies pos-
sessing legal authority for land use planning and control.
It is also possible that some jurisdictions within the
208 area will not have land use plans, projections, and/or
controls. In this case, the 208 agency should work with the
appropriate jurisdictions to gather enough information about
the area so that current and future development patterns,
densities, and policies can be identified.
13
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Inte rim
An initial step for incorporating land use considera-
tions into the 208 planning process should be the assembly
and evaluation of a land use inventory and projection.
Special emphasis should be given to those geographic areas
within the 208 region affecting or affected by water quality.
The land use projection must be consistent with the population
and employment projections presented in Section 2. A. As dis-
cussed above, projections should be based on existing local and
regional land use plans to the extent practicable, although
existing land use plans may have to be revised for consistency
throughout the 208 area.
The inventory and projection should be divided into five-
year increments and include industrial, commercial, residen-
tial (by dwelling unit density), agricultural, s i 1 vi cul tural ,
recreational and other land uses from which pollution may be
generated. The projections do not have to be as detailed for
the fifteenth and twentieth year of the planning period. This
initial projection should be used in the initial development
of point and non-point source subplans. During refinement of
these subplans, appropriate revisions related to water quality
management could be recommended which would alter these initial
land use projections.
Land use scales and 1 evel s-of-detai 1 incorporated in the
208 process can vary depending on the type of geographic area
and wasteloads, the origin, of the wasteloads, and the avail-
able local and regional land use plans. However, it is strong-
ly recommended that consistent scales and classification sys-
tems be used if the 208 Agency has to assemble several local
land use plans or develop a land use projection for a portion
of the 208 area to complement an existing plan. Whatever
scales and levels of detail are finally selected, they should
be sufficient so that the location, volume, and nature of
wastewater flows can be adequately identified to locate, size,
and time treatment and major interceptor systems. Any speci-
fic land use and development regulations which affect assump-
tions made for wastewater and land use impact data should be
documented. In addition, the origin of the wastewater sources,
their location and geographic distribution should be of a
level of detail which accurately relates the origin of flows
to projected land uses,
14
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In addition to the land uses affecting wastewater
flows, an inventory and/or projection of other factors may
be necessary depending on specific conditions and problems
in the 208 area. Those factors which may be of importance
in 208 areas are listed below.
Topography and soil conditions of the 208
area;
Bodies of water and related lands that
would be beneficially or adversely affected
by a change in water quality;
Water supply, treatment, and distribution
systems;
Existing waste treatment and collection
systems, including interim facilities and
major urban storm drainage facilities;
Solid waste disposal sites;
Areas presently served by septic tanks and
the suitability of other undeveloped areas
for septic tanks at specified densities;
Environmentally sensitive areas:
Aquifers and aquifer recharge areas
Marshland and wetlands
Flood plains
Forests and woodlands
Erodable and/or poorly drained soils
Steep slopes
Shorelands
15
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It is important that land use plans be compatible with
flood hazards and any local or State programs for flood-
plain management. Lack of such compatible land use and con-
trol measures could jeopardize a community's eligibility for
participation in the Nation-al Flood Insurance Program and
the Flood Disaster Protection Act of 1973. Further, such
non-participation could preclude Federal assistance for pub-
licly owned waste treatment works after July 1, 1975.
Land use planning aspects of the 208 program must be
coordinated with applicable HUD Comprehensive Planning
Assistance Programs (701). It is important that available
701 plan(s), in particular their land use elements, and the
208 plan be consistent. Moreover, in preparing these plans,
the planning agencies must not duplicate effort. Therefore,
it is necessary that the planning agencies in those areas
where both 208 and 701 plans are being prepared identify in
their work plans how they will integrate 208 and 701 plan-
ning. The 208-701 relationship is discussed more completely
in the EPA program guidance memorandum on "Integrating 208
Planning and 701 Comprehensive Planning (AM-9) and the Inter-
agency Agreement between HUD and EPA; these documents are
attached in Appendix C.
Mjjijmum Reporting Requirements
EPA is not requesting that a complete set of detailed
land use maps be presented. Rather, the 208 Agency should
concisely summarize the land use planning activities occur-
ring in the area relevant to the 208 process and the Agency's
progress in assemblying and evaluating these activities. As
a starting point, a list of land use plans, policies, reports,
etc., reviewed by the 208 Agency should be presented. It is
not necessary in the interim output report to comment on each
item reviewed; only those land use plans/activities to be in-
corporated in the 208 process need to be discussed. The
report should clearly indicate and briefly describe which
land use inventory and projection has been used by the 208
Agency to develop the service area and waste load projection
interim outputs; i.e., the existing regional land use plan, a
compilation of local plans, an existing plan modified in cer-
tain areas by the 208 staff, etc. The 208 Agency should also
indicate how and why this projection was selected.
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EXAMPLE
Land Use Plans, Policies, Reports Reviewed by the 208 Agency
Alpha County
1. Comprehensive Plan for Alpha County, 1967, Alpha County
Planning Commission
2. Revised Master Plan for the Lee District: Amendment to
Comprehensive Plan, 1971, Alpha County
3. "Interim Growth Policies," adopted May 17, 1973, Alpha
County Board of Supervisors
4. Industrial Land Needs Survey, 1974, Alpha County Plan-
ning Commission
Green County
1. Green County Land Use Plan, 1973, Green County Office
of Comprehensive Planning
Council of Governments
1. Regional Land Use Policy Plan, 1969, COG.
2. "Area Growth Policy Studies", 1974, ABC Consultants
for COG
17 continued
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EXAMPLE
Status of Land Use Activities
Introduction
In order to incorporate water quality considerations
into the land use plans and controls of our area, the 208
staff has been reviewing and evaluating available land use
plans. A reconnaissance survey of county planning offices
and the regional COG was completed at the beginning of the
208 program to determine the status and content of these
land use planning efforts. 208 Technical Advisory Commit-
tees on land use, critical environmental areas, and economic
growth have been organized and now meet on a bi-monthly
schedule. Based on the reconnaissance survey, TAC reviews,
input from the 208 Policy Board and local governments, and
public participation, the 208 Agency has decided to use the
ongoing COG regional planning efforts as the major land use
input into the 208 process. COG land use planning was se-
lected as their efforts have been concerned with integrating
local planning into a regional plan. While disagreeing on
some details, the local governments basically support the
plans and projections of COG. Finally, COG's plans and pro-
jections are generally of sufficient detail to be useful in
208 Planning.
For these interim outputs, the 208 staff has assembled
the land use projections developed by the COG for the pur-
poses of determining the service area and waste load impli-
cations of the COG's land use plan. The 208 staff has
worked with the COG to update certain information and to
expand the geographic coverage of the COG's plan to include
Green County (this non-COG county is in the 208 area.)
While assembling these land use projections, the 208 staff
has been concerned with understanding and evaluating the
critical assumptions (growth rates, residential densities,
sensitive environmental areas, etc.), implicit in the
COG's land use projections. More detailed evaluation of
the non-point source implications of these land use projec-
tions is proceeding at this time.
continued
18
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EXAMPLE
COG Land Use Activities Reviewed by 208 Staff
The COG has developed a land use planning system incor-
porating the following features:
1. Inventory of natural and physical resources.
Existing land use data from localities has
been categorized in six broad groupings:
forests, agriculture, low-density residential,
other urban, and "special" (lakes, shopping
centers, highway interchanges, etc.) The land
use data was recorded by 64-hectare grid cells
(approximately 160 acres) using the state
Planning and Land Use grid system developed by
the Office of State Planning.
2. Residential Allocation Model .*
A computer model has been designed to allocate
residential growth once the location of employ-
ment centers has been determined. Environment-
ally sensitive areas, areas with soils unsuited
to urban development, and other "undevelopable"
areas can be withheld from the allocation pro-
cess. The model is relatively simple to operate,
and inputs can be obtained from census data and
other data which are relatively easy to obtain.
The input data from census publications has been
assembled. In addition, data on employment by
workplace has been obtained for the urban areas.
3. Economi c Data
In 1971, the Council of Governments produced a
report entitled Economic Indicators. In part,
the report was a compilation of statistics show-
ing historic trends in personal income, retail
sales, manufacturing payroll, farm production,
NOTE ON EXAMPLE: This is merely an illustration of a land
use planning technique employed by this example COG. It is
not required that 208 agencies develop such a residential
allocation computer model. In the absence of local or re-
gional land use planning, simplifying assumptions and manual
procedures could be used to project densities and spatial
locations based on population and economic projections.
continued
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EXAMPLE
and other economic indicators. Since the report
was published before the 1970 decennial census
data was available, and since many of the data
sets presented in the report are important indi-
cators of trends in the economic mix of the area,
the COG staff has updated selected indicators.
4. Area growth policies study
The Institute of Policy Sciences and Public
Affairs of the University, under its contract
with the Council of Governments, has produced
several working memoranda. These memoranda deal
with a variety of subjects related to growth
policies and water quality. Examples are: the
effect of land use on water quality in an urban
environment, constitutional issues raised by
growth regulations; new approaches to land
development controls, economic considerations in
developing urban growth policies, and a compen-
dium of State laws and local ordinances related
to development.
Based on the planning system outlined above, the COG
has been updating their original regional land use plan com-
pleted in 1969. The 1969 regional land use plan was basic-
ally a trend projection based on mid-1960's data and local
land use plans. In order to test the effects of various
possible regional growth policies, the COG staff initially
developed several different alternatives:
continuation of recent (1970-74) trends
"Compact" development alternative
"New Centers" development alternative
"Corridor" development alternative
These alternatives received an initial screening based
on fiscal impacts, capital improvement requirements, social
acceptability, general environmental impacts, and political
feasibility. The results of the initial review were dis-
cussed with the COG Board and local governments. COG then
20 continued
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EXAMPLE
adopted a series of policy statements which support a revised
land use plan with the following basic features:
Accommodate the recent COG employment and
population projections
* Continue recent trends in "in-filling"
vacant lands in the core area
Concentrate remaining growth around several
"new centers" (some new towns, some center-
ing on existing small communities)
* Protect environmentally sensitive areas.
Based on these COG policy statements, the COG staff
developed a revised regional land use plan which is now being
reviewed by the various local governments. This revised plan
is basically a combination of the recent trends, "compact"
and "new centers" alternatives; this plan has resulted in
some modifications to the 1969 plan. At this point in the
review process, local comments are fundamentally favorable
with only minor revisions expected to the COG staff proposal.
208 Agency Land Use Activities
The 208 staff has reviewed the ongoing COG land use
planning placing primary emphasis on clarifying certain in-
formation in the COG land use plan in order to use this infor-
mation as the initial basis for our water quality management
analyses. At this stage, we have been concentrating on devel-
oping the waste loading and service area implications of the
COG plan. Our summary comments on the COG plan follow:*
Population and employment projections. As dis-
cussed in the previous section, the 208 staff
projections are based on COG projections.
Since the COG projections were used in revising
the regional land use plan, no conflict should
result.
Our complete analysis of these land use issues are contained
in: 208 Technical Memorandum No. 3: Land Use Analysis for
the 208 Area. October, 1975.
21 continued
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Employment ratios and population densities.
These figures were derived from recent COG
studies and local input. The 208 reviews
of this data did not indicate any inconsist-
encies. We are using these factors in our
waste load projections and service area de-
1i neations.
Level of aggregation/detail of the plan.
The residentialland use informatTon dis-
played in the COG plan is of sufficient
detail to be used in service area delinea-
tion and waste load projections. As the
industrial and commercial land use informa-
tion was too generalized, the 208 staff has
worked with COG to determine more specific-
ally the type and location of business
activities in order to generate waste loads.
We have also begun to link projected agri-
cultural and open space/parkland land uses
to related soil and topographic conditions
in the Willow Run drainage shed for non-
point source analysis. Willow Lake is ex-
periencing eutrophication problems which
are believed to result from non-point
sources.
Geographic Coverage. Green County, which
is in the 208 area, is not included in the
COG land use plan. The 208 staff worked
with the county planning department in re-
vising their land use plan to assure consist-
ency in scale, notation, and data bases be-
tween the Green County and regional land use
plans. The 208 staff has assembled the re-
gional and Green County plans into a composite
land use plan for the 208 area at a scale of
1" = 2000'. This was the scale of the exist-
ing regional plan. It was particularly easy to
assemble the Green County projections at this
scale using U.S.G.S. tooographic maps for
Green County as the base maps. These maps are
too large for inclusion in this report but are
available for review at the 208 offices. A
22 continued
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EXAMPLE -r
small scale summary "sketch" map is attached
to this report for general reference.
Critical Environmental Areas. As discussed
above, the COG allocation model is designed
to exclude critical areas from the land use
projection procedure. We have reviewed the
criteria for exclusion and find them generally
acceptable; these criteria concentrate on
wetlands, floodplains, and steep slopes. The
208 staff is developing some revisions to these
criteria concerning stream valleys which are
intended to lessen the water quality impacts of
non-point runoff. These revisions will be
recommended when the final 208 plan is presented.
Finally, we restate that we have used existing regional
and local (Green County) land use planning as an initial
basis for our development of service area delineations and
waste load projections. We emphasize that these land use
plans are being used for interim outputs. The structural,
fiscal, and environmental (including non-point sources)
impacts of these existing plans will continue to be defined
more precisely and compared withimpacts that would result
from other land use patterns and controls. Based on this
analysis, we will make final recommendations on possible
modifications to land uses and controls as they affect water
quality.
23
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3. SERVICE AREA DELINEATION
An interim output resulting from the population,
economic, and land use projections discussed in Section 2,
is the delineation of proposed service areas for municipal
waste treatment facilities. This corresponds to the first
step in 201 facilities planning. The specific relationship
of areawide and facilities planning in designated areas is
explained in Program Guidance Memorandum AM-1 ; see Appendix
A. In general, a treatment service area includes the sewer-
ed areas tributary to an integrated waste treatment system
plus those additional portions of watersheds likely to be
connected over the planning period.
The delineations should outline, on at least a prelim-
inary basis, geographic areas sufficient to permit cost-
effectiveness analyses of alternatives, including waste
treatment methods and ultimate disposal options for sludge
and treated effluents. Also, each of the areas should be of
sufficient size to consider cost savings, management advan-
tages, or environmental gains resulting from regionalization.
Given these concepts, service areas for waste treatment sys-
tems and ultimate sludge disposal or utilization are not
necessarily the same. For example, sludge from two (or more)
separate treatment service areas could be land-filled or
used as a soi1-conditioner at a common site; in this case,
the sludge disposal service area would include the separate
treatment service areas.
In smaller SMSAs (less than 100,000) or those with few
political entitied or public bodies having jurisdiction over
sewer disposal, the service areas should encompass either
the entire SMSA or the core city plus contiguous urban places
In larger urban areas, single facilities plan coverage
of the entire area may be unattainable or inappropriate for
institutional, geographic, or other reasons. Where several
separate facilities planning efforts are necessary in a 208
area, the service areas should still encompass contiguous
waste treatment systems when these conditions occur: 1) such
systems m?y require major new or expanded treatment plants,
sludge disposal or effluent disposal facilities; and, 2)
system interconnection or joint facilities would be feasible
alternatives.
24
-------
Recognizing the considerations discussed above, service
area boundaries for non urban areas should encompass the
entire community including those areas subject to future
urban development. Where cost savings or other advantages
might result from waste treatment system interconnection
joint effluent or sludge disposal facilities, or collective
management for two or more nearby communities, the service
area should ancompass the community group. If a community is
isolated sufficiently to preclude regionalization, the service
area should be confined to that community.
For 208 Agency use, the delineated service areas should
be outlined on maps to the same scale as those used in the
projected population and land-use presentation in previous
section. It is important to note that these service areas
are interim outputs and subject to change with the continued
analysis of the 208 area.
Minimum Reporting Requirements
In addition to describing the service areas selected (a
small-scale map would be helpful), the 208 Agency should
summarize the analysis and rationale which supports their
various delineations. The relationship of this analyses and
delineations to ongoing or proposed 201 facilities planning
in the 208 area should also be presented including any recom-
mendations concerning facilities planning. This discussion
would describe any coordination that has occurred between
the 208 effort and 201 facilities planning on service areas
and related issues.
24a
-------
De 1 i neat. 1 on of Service Areas
EXAMPLE
The 208 staff has completed a preliminary study to .
determine the potential service areas within the 208 area.
Since there is ongoing facilities planning in the Red
Valley area, the 208 study reviewed this work for consistency
with the interim 208 outputs on land use and population pro-
jections. At this time, there is no other 201 facilities
planning in the 208 area.
At present in the 208 area, there are three existing
treatment facility service areas: Willow Run, Monroe, and
Red Valley. These service areas basically conform to the
three major drainage basins in the 208 area. Based on waste
load projections and waste load allocation review, all three
facilities will be required to upgrade their treatment levels
with respect to BOD and ammonia removal. The 208 staff has
concentrated on defining service areas that will permit a
realistic cost-effectiveness analysis of upgrading and expan-
sion alternatives for municipal treatment and sludge disposal.
The projected population, economic development and land
use (see previous interim outputs) established the basic
growth patterns for the area. Analysis of these patterns by
the 208 staff indicated moderate future expansion of both the
Willow Run and Monroe treatment facilities on the basis of
projected waste loads. Analysis of projections for Red Valley
indicated a much smaller growth in domestic waste loads which
would require only a moderate expansion and upgrading of this
facility; the projections being used in the Red Valley 201
planning effort are consistent with the 208 interim outputs
and analysis.
The 208 staff has investigated the possibility of region-
alization by interconnecting separate service areas into a
combined service area in order to achieve economies of scale.
Interconnections between all drainage basins are technically
feasible. Given their relative proximity and local topography,
connecting the Willow Run and Monroe treatment plants by a
gravity-flow interceptor is both technically and economically
attractive. Given the topography and distances involved,
connecting the Red Valley service area with either of the
other two areas is technically feasible but economically un-
attractive. These conclusions are based on a preliminary
cost-effectiveness analysis; selected summary results are pre-
sented below. (This initial C/E analysis was based on exist-
ing preliminary engineering studies performed by consultants
for the local sewer districts and -data from the Red Valley
25 continued,..
-------
EXAMPLE
201 planning effort. The 208 staff updated and standardized
the basic cost data and utilized C/E methodologies presented
in various EPA facilities planning regulations and guidelines).
As the equivalent annual cost figures indicate, it is
economically preferable to interconnect the Monroe and Willow
Run Facilities. The Willow Run plant would be upgraded and
expanded to accommodate future growth in both sheds while the
Monroe facility would continue to serve its existing population
at an upgraded treatment level.
Another alternative that was investigated was the inter-
connection of all three service areas. However, the projected
capital and operating costs of interceptors, force mains, and
pumping stations between Red Valley and the other service
areas resulted in much higher equivalent annual costs than the
two alternatives presented above.
Regionalization of the Willow Run and Monroe facilities
has been proposed previously in a consultant's study and found
acceptable to the affected Municipalities. In fact, such a
project was mentioned in the designation proposal as a major
reason for the 208 study. Public hearings have been held on
thi s proposal.
The conclusion of this study is that interconnecting the
Willow Run and Monroe service areas is technically and econ-
omically feasible. Also, based on our waste load allocation
review, such an upgraded regional part would be consistent with
our revised allocations. Therefore, the 208 staff recommends
that these two sheds be combined into one service area for the
purposes of detailed cost-effectiveness analysis of municipal
treatment alternatives for this area in the ongoing 208 study.
This alternative was recommended to the 208 technical advisory
committee with the proviso that further studies of land use
projections and assumptions and more detailed cost estimates
and cost-effectiveness analyses will be made .in the course of
the 208 Planning Study. For example, the exact treatment pro-
cesses to be used (i.e., BPWTT) still need to be more complete-
ly evaluated. Also, as the initial C/E analysis indicates,
the actual cost differences are relatively small; thus, the
final decision on an expanded regional plant versus expanding
the two existing facilities may depend on other factors such
as environmental and social impacts, operation, and public
acceptability. The 208 staff further recommends that the Red
Valley shed continue to be evaluated as a separate service
area under the existing 201 planning. Given the natural
conti nued .. .
26
-------
PREFACE
This is the fourth in a series of handbooks designed
to provide local planning agencies with additional assist-
ance in the Section 208 Areawide Waste Treatment Management
planning and implementation program. Designation, Work
Plan and Cost Analysis handbooks have already been publish-
ed. Plan Evaluation and Plan Implementation handbooks will
be published in the near future.
These handbooks are designed as a supplement to the
208 Regulations, Guidelines, and Policy Statements published
as program guidance (AM memoranda) by the Water Planning
Division. The handbooks repeat or reference the regulations
guidelines and policies; and provide realistic examples of
typical local agency responses.
The interim outputs discussed in this handbook and
their relationship to facilities planning are covered by EPA
program guidance memoranda (AM 1 and 2) which are included
in Appendices A and B. Because of its direct relationship
to the land use interim outputs, the EPA program guidance
memorandum on integrating 208 and HUD 701 planning (AM-9) is
included as Appendix C. Other EPA reference documents for
the 208 areawide management program include:
40 CFR, Part 126 Areawide Waste Treatment
Management Planning Areas and Responsible
Planning Agencies
40 CFR, Part 35, Subpart F -- Interim
Grant Regulations for Areawide Waste Treat-
ment Management Planning Agencies (May 1974)
Draft Guidelines for Areawide Waste Treat-
ment Management Planning (May 1974)
Area and Agency Designation Handbook for
Section 208 Areawide Waste Treatment Manage-
ment Planning (January 1975)
Work Plan Handbook for Section 208 Areawide
Waste Treatment Management Planning (February
1975)
-------
Cost Analysis Handbook for Section 208
Areawide Waste Treatment Management
Planning for Federal Assistance Appli-
cations (May 1975)
Draft Guidance for Facilities Planning
(October 1974)
Guidelines for Preparation of Water
Quality Management Plans (September 1974)
This handbook was prepared by Michael L. Frankel,
Centaur Management Consultants, Inc., with contributions
from Professor Gene Willeke of the Georgia Institute of
Technology and the direction and support of James W. Meek
and the Areawide Management Branch and James Lund and the
Planning Assistance Branch. ., .
Mark A. Pisano
Director, Water Planning Division
Washington, D. C.
11
-------
TABLE OF CONTENTS
Page
PREFACE i
TABLE OF CONTENTS iii
1. INTRODUCTION 1
2. EXISTING AND PROJECTED AREA CHARACTERISTICS 5
A. Population 5
B. Land Use 13
3. SERVICE AREA DELINEATION 24
4. WASTE LOAD PROJECTION 30
5. WASTE LOAD ALLOCATION REVIEW 35
6. PUBLIC PARTICIPATION 42
APPENDICES
A. Areawide Planning Interim Outputs for Use in
Facilities Planning (March 21, 1975) -- AM-2
B. Relationship of Areawide and Facilities Plan-
ning in Designated Areas (March 21, 1975) --
AM-1
C. Integrating 208 Planning and 701--Comprehensive
Planning (May 2, 1975) -- AM-9
iii
-------
NOTE
This document is not a replacement to the Act, the Regula-
tions, the Guidelines or the EPA Policy Statements published
by the Water Planning Division. It is a supplement to these
documents, showing typical examples of local responses to the
208 program. Any clarifications and specific conditions ap-
plicable to a local area should be discussed with the EPA
Regional 208 Coordinator
IV
-------
1. INTRODUCTION
This handbook deals with interim outputs expected
within the first 9 months of the two-year 208 Areawide
Waste Treatment Management Planning program. It is the
intent of EPA to seek a specific set of minimum interim
outputs, many of which will guide municipal waste treatment
facilities planning. These interim outputs related specifi'
cally to municipal waste treatment facility planning are:
Service area delineation for municipal waste-
water treatment systems throughout the desig-
nated area.
Existing and projected population and land
use for the twenty year planning period.
* Projected waste loads and flows generated for
each service area corresponding to the exist-
ing and projected population and land use.
' Revision (if any) of the waste load allocations.
The publication of these required interim outputs does
not preclude a local planning agency from changing the sub-
stance of these outputs at a later point in the planning
process as a result of more detailed analyses. However,
the interim outputs should be well thought out in order to
get on with the 208 program, especially the guidance of and
coordination with Section 201 (Step 1) facilities plans.
In addition to the specific interim outputs dealing
with municipal treatment facilities and wasteloads and
allocations, several other outputs are listed at the end of
this section. These are discussed in a general list and
depend on the conditions and problems of the local area as
well as on the prior data collection and analyses available
to the local planning agency (e.g., state basin plans).
The development of other interim outputs by the 208 Agency
is encouraged where appropriate.
The national aim of the 208 program is to promote the
implementation of areawide waste treatment management.
Through Section 208 of the Federal Water Pollution Control
-------
Act Amendments of 1972, local areas are provided a unique
opportunity to plan and manage a comprehensive pollution
control program for municipal and industrial wastewater,
storm and combined sewer runoff, non-point source pollut-
ants, and land use as it relates to water quality. Through
a locally controlled planning agency, an area can select a
cost-effective and institutionally feasible plan directed
to meet the 1983 goals for "swimmable and fishable" waters,
where attainable. The function of the 208 planning process
is to refine this goal for the specific conditions of the
208 area. The plans should focus on an integrated approach
for identifying and controlling the most serious water pol-
lution problems initially and, over time, resolving the
remaining problems, where feasible. Particular emphasis
should be placed upon non-structural approaches to pollution
control (fiscal policy, land management, best management
practices, institutional arrangements) rather than tradition-
al structural measures normally requiring large investments.
Although it has a national aim, the 208 program must be
administered through EPA Regional Offices to accommodate the
wide variations in problems, alternative solutions and insti-
tutional settings. Therefore, it is difficult to provide
uniform national standards for the evaluation of local 208
program outputs, including interim outputs. This handbook
is not to be construed as a uniform standard. It is merely
an explanation, with examples, of the types of interim out-
puts to be developed in the first 9 months of the two-year
planning effort.
The initial 208 areawide waste treatment management
planning process is only two years in length. At the end of
two years, elements of the plan must be implemented while
continuing planning takes place. The exceedingly short time
for planning and initiating the implementation requires close
coordination and review between the local planning agency,
the State and EPA. One element of this revjew is in the form
of an interim output evaluation based primarily on those out-
puts which directly affect municipal waste treatment facili-
ties.- The guidance for these outputs, along with examples of
what they might look like, are discussed in Sections 2
through 5 of this handbook.
A list of suggested and required 208 planning outputs
that could have resulted from the successful completion of
the first nine months might include:
-------
Required Interim Outputs
Population and economic projections
Land-use projections
Delineation of service areas
Waste load and flow projections
* Revisions (if any) of waste load
allocations (Wherever feasible,
these revisions should be con-.
ducted jointly with the State as
part of its ongoing revisions to
Water Quality Standards.)
Suggested Interim Outputs (illustrative examples)
Identification of alternative land-use
controls
* Relationships between land-use and
water quality
* Identification of all major non-point
sources problems
Identification of management and regu-
latory alternatives
* Inventory and selection of wastewater
flow reduction techniques.
Identification of alternative financial
arrangements for plan implementation
In addition to required and suggested interim outputs,
other activities will have been completed or will be
well enough along to be reviewed by EPA. For example,
such on-going activities would include:
* Establishment and operation of various
advisory committees
* Public participation
-------
The review of these activities will take place
through regular milestone reports and other forms
of coordination between the local planning agency,
the State, and the EPA Regional Office.
Section 6 of this handbook illustrates an example of pro-
gress that has been made in achieving public involvement in
the planning process. This is not a required interim out-
put as specified in the EPA policy memorandum; however, it
is sufficiently important early in the planning process to
highlight in this handbook.
-------
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-------
characteristics and projected development patterns in the
Red Valley service area, a major issue still to be resolved
concerns the feasibility of land treatment for this shed's
municipal wastes. The 208 staff has discussed this issue
with the consultant for the 201 facilities planning effort;
this alternative will be investigated in detail in the 201
plan. Finally, for the purposes of sludge management and
disposal the entire 208 area will be considered a service
area particularly with respect to the selection of ultimate
disposal sites. This site selection process is being coor-
dinated with the Red Valley 201 planning effort through the
208 techhical advisory committee structure.
The recommended service areas are delineated on the
previously referenced land use maps on file at the 208
staff offices; a small scale summary map is appended to
this report for reference.
29
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4. WASTE LOAD PROJECTIONS
Waste load projections are made to assess the nature
and quantity of flows and pollutants generated from pro-
jected future activities in the various service areas.
This information is required to assist in the delineation
of service areas and the design of municipal treatment sys-
tems.
A thorough understanding of the existing conditions
will aid the projections. The waste flows, constituent
concentrations, and types of treatment for the major
municipal facilities should be considered as they might
affect the projections. Existing receiving water simula-
tion models may be useful in confirming data for present
waste loadings. It is possible that model verification
problems could be caused by inaccurate waste load informa-
tion.
From the existing conditions, waste loadings can be
projected based on population, economic, and land use pro-
jections and on waste load generation factors for units of
population, density, or activity. The waste load projections
must be related to the population, economic, and land use
projection interim outputs for the 208 area.
Overflows and waste loads during storm periods should
be considered for drainage areas tributary to combined
sewer systems. This would permit forecasting overflow and
waste load increases resulting from future changes in the
nature of the drainage area. Also, the effects of selected
flow and waste reduction measures, including sewer system
rehabilitation to correct infiltration/inflow, and sewer
maintenance/management programs, should be reflected in the
flow forecasts to permit subsequent calculation of potential
waste treatment system cost savings.
The estimated changes in flow and waste loads from
industries to be served by the municipal system must re-
flect application of pretreatment requirements for existing
and new industries, plus any expected industrial-process
changes affecting wastewater. Industrial wastewater flow
forecasts should includ.e both industries currently connect-
ed to the municipal system and industries that can be rea-
sonably expected to join the municipal system in the future.
30
-------
Projections should be made at five year increments for
future residential, commercial, and industrial activities.
In addition to wastewater projections, projections of sludge
quantities and qualities that may be expected to be produced
in each service area should be considered. The primary emphasis
for this interim output is to provide the necessary information
for facilities planning, particularly, service area delineation
and cost-effectiveness analysis. However, if available,
new information concerning projections of non-point sources
and major separate industrial facilities should be included
if relevant to the waste load allocation review interim out-
put.
Minimum Reporting Requirements
Wasteload projections at five year increments for
residential, commercial, and industrial activities for each
service area should be presented in a summary table, along
with a brief description of the projection methodology.
Any significant features or impacts of the projections
should be noted including anticipated sludge disposal prob-
lems. The relationship of the projections to ongoing or
proposed 201 facilities planning in the 208 area should be
discussed including any coordination that has occurred be-
tween 208 and 201 and any recommendations concerning facil-
ities planning.
31
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EXAMPLE
Waste Load Projections
The 208 Agency has developed a set of waste load
projections in five-year increments from 1975 through 1995.
These projections are based on the population, economic,
and land use forecasts presented earlier in this report.
Basically, appropriate conversion factors which translated
residential densities, and commercial and industrial land
uses into waste loads were applied. Population and economic
growth rates were also used as the necessary timing factors.
In the case of Red Valley, waste load projections were coor-
dinated with the ongoing 201 facilities planning effort as
discussed below. More complete documentation is available
in a technical report* which describes the analysis of pres-
ent waste loads and projection techniques. Assumptions are
given as well as the specific conversion factors used for
calculating residential, commercial, and industrial loadings
Significant Points
Estimates of the sludge production from all
three facilities emphasize the need for a
regional approach to sludge management.
Existing landfill sites for both the Willow
Run and Monroe facilities will only be able
to accept the projected digested sludge
from these facilities for another 4-5 years.
Our review of current performance character-
istics of the Monroe plant shows widely vary-
ing performance caused largely by industrial
discharges of toxic substances in a batch
mode. Our analysis indicates that the appli-
cation of industrial pretreatment requirements
will alleviate this problem.
208 Agency "Working Paper #5 - Waste Load Projections"
February, 1976.
continued ...
-------
EXAMPLE
A portion of the Red Valley service area contains
a deteriorating combined sewer system. In addi-
tion, documented infiltration problems in this
area make flow projections difficult and in need
of more detailed analysis. In addition, because
of the number of options under review by the "on-
going 201 facilities planning study to deal with
the combined sewer problem, it is difficult to
project the future characteristics of flows in
this service area. The State prohibits any new
hookups to the combined portion of the system.
Based on our discussions with the 201 consultants,
we have selected the flow projections summarized
in the above table. These projections are for
average dry weather flow and assume the correction
of existing infiltration problems along a few key
lines. These flows were selected primarily for
the purposes of preliminary cost-effectiveness
evaluation of regionalization schemes discussed
earlier. As the service area analysis indicated
that it was not economical to connect the Red
Valley Plant with the other area facilities for
dry weather flows, we concluded that such inter-
connection for wet -weather flows was even less
feasible. The detailed analysis of future flows
and alternatives for solving the combined sewer
problem will be accomplished under the ongoing
201 planning.
Rapid new development around Long Lake has been
studied in terms of potential phosphorus and
sediment loadings to the reservoir. We are at-
tempting to construct a yearly material balance
around the reservoir. Eutrophication is a ser-
ious concern and measures which could decrease
future loadings or minimize the effect of future
development are being investigated further. For
instance, proposed zoning changes could result in
a significant increase in the quantity of storm
runoff. Our preliminary recommendation is that
zoning changes be made contingent on effective
control measures which reduce erosion during new
construction and preserve runoff characteristics.
continued ...
33
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JLr^V.
PROJECTED FLOWS TO MUNICIPAL FACILITI
GENERATED WITHIN SERVICE AREAS
(MGD -- Average)
WILLOW RUN
Residential
Commercial
Industrial
Total
1974
19.7
3,4
23.1
1980
22.0
4.0
26.0
PLANT
1985
23.4
4.3
27.7
1990
25.2
4.8
30.0
r\jyju
ES
1995
26.7
5.4
32.1
MONROE PLANT
Residential
Commerci al
Industrial
Total
RED VALL
Residential
Commercial
Industrial
1974
7.5
.5
1.5
9.5 '
EY PLANT
1974
6.0
.4
.6
198^
8.5
.7
2.J8
12.0
(Dry
1980
6.2
.5
.7
1985
9.3
1.0
_3?_2
13.5
Weather
1 985
6.5
.6
.8
19_90
10.8
1.4
_!!
16.0
Flows)
1990
6.8
.6
.8
1995
11.2
1.6
ill
17.1
1995
6.9
.7
.9
Total
7.0
7.4
7.9
8.2
8.5
34
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5. WASTE LOAD ALLOCATION REVIEW
Areawide waste treatment management planning stems
from the broader basin planning conducted by state govern-
ments under Section 303(e) of the Act. A major element of
303(e) planning which guides 208 planning is the classifi-
cation of stream segments and the subsequent allocation of
waste loads. The two types of segment classifications are;
"Water Quality Segements" (WQ) segements
where it is known that water quality does not
meet applicable water quality standards and
which is not expected to meet water quality
standards even after the application of the
effluent limitations required by Section 301
(b)(l)(A) and 301(b)(l)(B) of the Act.
"Effluent Limitation Segments" (EL) seg-
ments where water quality is meeting and will
continue to meet applicable water quality
standards or where there is adequate demon-
stration that water quality will meet appli-
cable water quality standards after the appli-
cation of the effluent limitations required by
Section 301(b)(l)(A) and 301(b)(l)(B) of the
Act.
The segment classifications are based on water quality
data, water quality standards, inventory of discharges, and
existing and projected population, economic and land use
characteristics. These types of information may be
included in an analysis relating source loads to water
quality. If, after applying point source treatment to
existing and projected sources as stringent as the
effluent limitations required by Section*301(b)(1 ) of the
Act, the segment still does not meet water quality standards^
then the segment is classified as water quality limited.
Otherwise, it is classified as effluent limited.
The existing waste load allocations or segment classi-
fications may need to be changed in some instances. Much of
the initial emphasis of the 303(e) basin planning was on
point sources. Under Section 208, the more detailed analysis
of projected future activity and closer look at non-point
sources may change some of the origional classifications and
allocations.
35
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The basin plan should include a total maximum daily
load for each pollutant that may be discharged to a segment
and still allow the water quality standards to be met.
Each individual discharge should be assigned an effluent
limitation which appears on the permit for that point source.
The type of analysis required to determine the effluent
limitations depends on the complexity of the water quality
problem, the number of discharges, implications of the re-
sults in terms of potential investment, and the type of
receiving water. The 208 planning specifically deals with
urban-industrial areas which have complex water quality
problems and thus a review of the analyses is desirable.
The initial basin planning effort dealt primarily with
point sources and problems likely to occur during low flow-
high temperature periods. The 208 planning should addition-
ally account for possible complications from non-point
sources and high flow periods. All analyses should be
carefully tailored to the time and space scales of the water
quality problem. Waste load allocations must be reasonable
in the sense that the specified limitations can be complied
with by the use of available technology. Safety factors
may be included based on the assumptions of the analysis and
the risks associated with a water quality standards viola-
tion.
Minimum Reporting Requirements
The minimum requirement for the interim outputs is a
review of the completed 303(e) basin plans within the 208
area. Some of the examples which follow go beyond this
minimum. The planning agencies are encouraged to use this
report as a means of documenting all progress with water
quality analysis and source controls.
36
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EXAMPLE
Adjustment to Waste Load Allocations
Review of the basin plans relevant to the 208 area
has been completed. Close coordination has been maintain-
ed with the State throughout this effort. Adjustments to
the waste load allocations were made in the two water
quality limited segments. The State has approved these
changes and is making efforts to alter the affected permits.
One effluent limited stream segment was analyzed by the 208
Agency to determine if it had been correctly classified. In
addition, our progress with non-point source and storm water
problems is reported. The following is a summary of pro-
gress to date:
Modifications to the Flat Rock segment analysis were
deemed necessary because of a refinement in waste
load projections and the anticipated regionalization.
The population, industrial and commercial growth
anticipated in the Willow Run and Monroe service
areas required a reevaluation of the original analy-
sis. Consideration has been qiven to the water
quality aspects during consideration of the proposed
regionalization. The existing State model was used to
relate point sources to resulting water quality. The
model was calibrated and then verified with two sets of
independent data. The seven day duration and ten year
recurrence summer low flow was chosen as the design
condition. For the 1980 projections, effluent
limitations which correspond to secondary treatment
for municipalities and best practicable treatment
(BPT) for industries were used. The simulated re-
ceiving water response indicated a standards viola-
tion for dissolved oxygen. Different treatments
for municipalities and industries were then consid-
ered. Based upon economic and fairness criteria,
the most reasonable solution is to assume that in-
dustries should discharge at the BPT levels while
municipalities go beyond the minimum secondary
requirement and institute ammonia removal.
conti nued
37
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FLAT ROCK SEGMENT
Regionalized Willow Run - Monroe Service Area
1980 Flow BOD AMMONIA
SOURCE (MGD) (Ibs/day) (Ibs/day)
MUN. - Willow Run 28.5 3,550 473
IND. - Fall River, Inc. 7 -- 1,743
IND. - Smith Processing 5 1,250 622
TOTAL MAX. DAILY LOAD 4,800 2,838
D.O. STANDARD - 5 p.p.m.
These limitations will allow a reasonable assurance
that the dissolved oxygen standard will be satisfied
based on the 1980 projections. Standards for other
constituents in the segment will not be violated and
the legislated minimum effluent limitations will be
applied. Near 1980 the industrial sources will be
implementing best available levels of treatment.
The resulting decrease in waste input to the segment
will compensate for the additional municipal dis-
charges projected through 1995 and our analysis in-
dicates that all water quality standards should be
met through that date.
The waste load allocations for the Big Sioux River,
which include the Red Valley facility, have been re-
calculated as a result of recent monitoring informa-
tion. Data from previous surveys indicate some high
instream concentrations which could not be explained
by the point source information which was available.
The state stream model was used and the loading
necessary to complete the material balance was
added to the simulation as a distributed source.
The loading was suspect as there was no reasonable
physical explanation which could account for the
implied non-point sources during periods of low
flow. The allocations were held up due to a lack
of credibility. Recent data indicate that inac-
curate point source information was the cause of
the problem. The simulation model is now considered
continued ..
38
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EXAMPLE
to be sufficiently calibrated and verified to
produce defensible allocations. The secondary
treatment and BPT limitations were input to the
simulation of a summer low flow design condition
Violations in the stream standards for ammonia,
free cyanide and phenol resulted. Based on the
1980 projected flows, the dissolved oxygen stand-
ard will be satisfied. Alternative effluent
limitations were tested as inputs. The most
reasonable allocations consist of additional am-
monia and BOD removal for Red Valley and alloca-
tions above BPT, but less than BAT, for the
industries.
BIG SIOUX SEGMENT
Red Valley Service Area - 1980 Projections
STREAM STANDARDS
AMMONIA 1.5 ppm
FREE CYANIDE IQ ppb
PHENOL i ppb
FREE
BOD NH, CN PHENOL
SOURCE f
IND. - Iron Works 434 7 i
IND. - West Foundary --- 472 8 i
IND. - Newcome, Inc. 1,500 300
MUN. - Red Valley 1 ,000 130 ^ ---
TOTAL MAX. DAILY LOAD
IN LBS/DAY 2,500 1,336 15 2
Additional assimilative capacity will be provided
as the industrial sources apply best available
treatment by 1982. Model simulations show that
sufficient capacity will exist to absorb the pro-
jected dry weather loadings from Red Valley
through 1995.
continued
39
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EXAMPLE
Depressed oxygen conditions were recently dis-
covered in Rock Creek during winter periods due
to ice cover. An analysis was performed to
determine whether the segment is indeed effluent
limited. The state stream model was calibrated
on the segment. A low flow period was chosen as
a design condition from the historical winter
flow records. Application of the industrial BPT
treatment levels will allow all water quality
standards to be met. The segment was thus cor-
rectly classified as effluent limited.
The overflows from portions of the Red
Valley Combined Sewer were a major reason for
this 208 area's designation. High coliform
counts preclude a recreational classification of
the receiving waters. The effect of proposed
zoning changes in the watershed has been investi-
gated in detail by a consultant. An existing
model was applied to the area with historical
rainfall records to study the overland runoff and
routing through the sewer system. The effect of
proposed zoning changes on runoff coefficients
and the frequency of overflows have been studied.
Work is continuing on identifying feasible methods
to keep the quantity of runoff small. There is an
ongoing investigation to locate illegal inflows
into the sewer." Several treatment, maintenance
and storage options are being considered along
with sewer separation. The segment which re-
ceives the untreated overflows is water quality
limited and our goal is to eliminate all such
overflows. This goal will be considered in
light of a thorough cost-effective analysis.
Due to a potential eutrophication problem in
Long Lake, its classification has been changed to
water quality limited. The lake is in the head-
water region and is a major water supply. At this
time the problem is not serious but an observed
accelerated trend toward nutrient enrichment and
potential future development has caused us to
study the situation as part of the continuing
planning process. Efforts have begun to con-
struct a yearly phosphorus budget around the
lake.
40 continued
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EXAMPLE
Preliminary indications are that septic fields
and agricultural runoff are the primary con-
tributors. Efforts are being made to determine
management practices which could effectively
control the yearly phosphorus loads without
requiring structural capital intensive solutions.
Contact has been made with the Soil Conservation
Service. Contracts have been awarded to determine
the legal requirements and technical effect of pos-
sible ordinances. The desirability of limiting
growth with possible zoning or fiscal policies is
under consideration. There are studies underway to
determine.feasible methods to control erosion during
new construction and methods to maintain the natural
runoff characteristics after development. The
effect of the maintenance of natural foliage along
stream banks is also under consideration. We expect
this work will lead to firm proposals in the future.
41
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6. PUBLIC PARTICIPATION
Although not specifically called out as an interim output,
public participation must be an essentiaKinaredient from the very
start of the 208 planning process. At the nine month point in
the planning process, public participation should be a well
established activity.
The Regulations, Guidelines, Designation, and Work Plan
Handbooks have each discussed specific public participation
requirements. The following is a review of public involvement
in the 208 planning process along with an example of a typical
public participation program.
Why should there be a public involvement program in 208
pianning?
It is a legal requirement of both the Water Pollution
Control Act Amendments of 1972 and the National
Environmental Policy Act.
t 208 planning is essentially a new kind of water quality
planning. It will not be readily understood by all
parties.
Many jurisdictions are likely to have implementing
authority in 208 areas. Their elected officials and
their constituencies will need both to be in accord
with the recommendations and to be assured that the results
will be beneficial to them before implementing action
can be taken.
t Some interest groups, of all persuasions (from environ-
mental and neighborhood associations to developers,
labor unions, and manufacturers) may well demaad the
right to participate if it is not freely given. Groups
presenting such demands will have an excellent chance
of being granted this request, either through EPA
or the courts.
What are the objectives of public involvement in 208
planning?
t To help the residents, private interests, and. government
officials in the 208 area understand: what 208 planning is,
how the 208 planning process works, what the present
water quality situation is and how it came to be as it
is, and what are the proposed alternatives for meeting
water quality goals.
42
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To help the 208 planning agency: understand the goals,
objectives, and priorities of the area's residents,
businesses, and government officials; understand the
water quality and related problems more fully and clearly;
and put together a set of alternatives that will meet
the water quality goals and be in accord with the
abilities and desires of area residents, businesses, and
governmental bodies.
To obtain agreement among interested and affected
parties on a desirable course of action and to get the
elements of the plan adopted by the implementing agencies
and jurisdictions.
What is the relationship between public involvement in
the 208 planning process and the formal decision-making process?
There is a distinction between reaching agreement on
the nature of the situation and the best ways to deal
with it, on the one hand, and actually making the
implementing decisions, on the other hand. Elected
officials have been given the latter responsibility.
Public involvement may make a substantial contribution
to the former.
As a practical matter, if public involvement has been
done well, the implementing decisions would likely be
in accord with the sense of agreement reached in the
public involvement activities.
t By exposure to and discussion of information prepared
by 208 planners, the public can understand the work
being done by the planners and the present water quality
situation.
t Members of the public can bring up, expose, and promote
issues, questions, information, and alternatives they
feel are needed to produce a satisfactory 208 plan.
t Segments of the public can show the 208 planners how
they are presently affected by water quality conditions
and how they would be affected by proposed alternatives.
This enables the planner to more adequately deal with
issues of effectiveness, efficiency, and equity
simultaneously during the planning process, before
formally presenting alternatives to elected officials
who have implementing responsibilities and must
ultimately make the final decisions.
43
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While the 208 plan is concerned with water quality,
the final plan may affect other community goals. It is therefore
important to establish an understanding of community goals
and plans, especially with respect to housing, economic
development, transportation, education, recreation, other
environmental goals, etc. Public participation in the planning
process is an effective way of defining the relationships among
community goals.
There is no cookbook, containing step-by-step recipes
that guarantee useful public involvement in the 208 program.
However, the following is an example of a public participa-
tion program in a major urban area.
44
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Public Participation
The following informations and actions have been developed
b'y the 208 Planning Agency to insure public involvement in the
areawide waste treatment management planning.
1. Correspondence List (Partial)
Dennis, James E.
468 Mountain Way
Morton 30318
645-9278
829-4695
(Architect, Representative of Vista
Hills Neighborhood Association)
Harris, Rufus 564-3257
Commerce Building, Suite 900
Woodville 30303
Hayes, Ronald
480 Forest Dr. , NE
Marietta 31428
Johnson, Ralph
City Hall
Conyers
Jones, Lydia
1648 Lake Drive, NW
Woodville 30305
(Executive Director, Monroe Manu-
facturers Association)
281-6419
826-3421
(Chairman, Cobb County Homebuilders
Association)
284-1100
(Mayor, Conyers)
324-5981
(Environmental Quality Chairman,
League of Women Voters
Landers, Donald 564-3246
Commerce Bldg., Suite 800
Woodville 30303 (Metro chamber of Commerce)
Lewis, Michael
R.R.I
Douglasville 30215
Marshall, Kenneth
1620 Old Orchard PI
Lithonia 30621
Matson Carl
294-6511
(Government Affairs Chairman,
Douglas County Farm Bureau)
280-1126
(President, Area Audubon
Society)
343-6219
Electrical Bldg., Rm. 318
Woodville 30303
(Executive Director, Area Labor
Council)
45
continued...
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2. Newsletter
A 4-page (11" x 17" folded once) monthly newsletter is mailed
on the 3rd Thursday of each month. Circulation: 3800 (175 outside
regi on).
First Issue: July 1975
Contents: Calendar of meetings
Theme Article - First six discussed water quality
conditions and status of improvements in the
six sub-basins. Next three outlined alterna-
tives being considered.
Contract awards to consultants for studies
Public involvement report
Agency personnel writeups (biographies)
Letters to editor
Progress reports
Edited by public involvement specialist with the 208 Agency.
3. Planning Brochure
A planning brochure is being used to facilitate communication
with the public. It is expected that 6-8 editions will be prepared
during the 2-year study period. The first was issued during the
second week of the study. It discussed the nature of 208 planning,
the schedule to be followed during the planning period^he existing
water quality situation, facilities and construction 'schedules,
water quality goals, and the studies which are to be done. The
last page was a self-identification tear-off sheet with Business
Reply imprint. Space was included for comments. The 8-page bro-
chure was multilithed. All diagrams except the study area map
were drawn and lettered freehand. (This policy is being followed
in all editions of the brochure). Subsequent editions revise obso-
lete information from earlier editions and add new material as it
becomes available. Text and supporting data were kept as brief as
possible without loss of understanding. Each edition is reviewed by
at least 3 people who have had no previous involvement in the 208
studyprior to publication.
continued...
46
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4. Briefings, Forums, and Other Public Meetings
All local government agencies invited to monthly briefing,
Tuesday at 1 p.m. in project office.
Quarterly briefing for local governments in adjoining
region, Oliver Trail Planning and Development Commission
office.
13 additional briefings held in first 6 months on request
of interested groups. 9 held in project office, 4 in
other location.
Quarterly public forum and Open House held at rotating
location in each quadrant of study area. Evening meetings,
generally Tuesday.
Workshops held on a) existing conditions and programmed
improvements, b) land disposal of wastewater and sludge,
c) non-point sources, and d) management alternatives
(scheduled for February, 1976).
Major field trip to view existing conditions, October 1975.
(Self-guided tour i tinerary -and tape cassette guide avail-
able to persons or groups wanting to retrace that tour.)
Issue Panels
Ad hoc issue definition panels were formed for each subbasin
and held an average of 3 meetings to formulate issues. The
first meeting was an orientation session. At the second
meeting, tentative issue lists were developed. In the third
(and in two cases fourth) meeting, wording was revised,
some issues were added or deleted, and a brief discussion on
why the issue was included was prepared. The panels were
then disbanded.
Example of issue: Septic tank policy
In two of the study area subbasins, there are many septic
tanks. Most of these are in old communities, though a few
new sub-divisions are installing septic tanks on large lots
(2 acres and up). Some of the older communities have never
had any noticeable problems with septic tanks whereas in the
lower part of each subbasin, rock is near the surface, the
lots are small, and septic tank problems frequently occur.
These two issue panels felt the septic tank problems had to
be corrected. They also felt,however,that if a policy of com-
plete sewering of all communities was to be adopted for both
old and new areas.it should show very strong benefits compared
continued...
-------
with costs and some way of reducing hardship on owners
of existing, well-functioning tanks.
The issue panels had from 8 to 22 members, selected on a
basis of known interest in or knowledge ofthe area. Each
set of issue panel findings was published ina newsletter
and reactions were solicited.. About 30 letters or phone
calls were received. Two more issues were added from this
correspondence.
Media Relations
208 agency has following data on media:
a. Address and phone number of all daily and weekly
newspapers. Names of news and feature editors on
file. News and feature deadlines. Territorial
coverage.
b. Address and phone number of all radio and TV stations,
News analyst, special events editor, program director.
(names) Format, audience size and characteristics,
territory.
t Monthly background briefings are held for all media, plus
special news conferences as needed.
Reporters are invited on all field trips.
Feature story, September 13, 1975, on 208 study in
Woodville Journal.
Project director appeared on radio talk show, August 14,
1975, 5-6 P.M.
Reporter for Neighbor papers has been present at all
Advisory Committee meetings. Usually get brief writeup
in papers.
Minutes of all Policy Board meetings sent to reporters
on request.
ETV station has scheduled panel discussion on 208 study,
with studio audience and TV audience, with WATS line feed-
back, on their TV Town Hall program February 10, 1976.
continued...
48
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6. Documenta^ti on
All reports emanating from study groups are considered
project records and placed in depository. Each is as-
signed a sequential number by the 208 agency. Report
with number ATL208-7-18-75-4 is the 4th report assigned
a number on July 18, 1975.
Within two days after each public involvement activity,
the public involvement specialist either:
a. Receives written summary from person or persons in
charge of and present at the activity, or
b. Interviews the person in charge and obtains informa-
tion to write summary of the pertinent information.
Not all these reports are placed in depository but are
open records at 208 agency office and will be placed in
depository upon request.
Minutes of all advisory committee meetings are prepared by
secretary of committee and adopted at next meeting. Draft
minutes are mailed to all committee members before next
meeting. Minutes are placed in depositories after approval
Photographic records. Copies of slides and prints on
field trips are catalogued and kept at 208 agency office.
About 60% of all photographs taken are included in this
file. The remainder are either poorly composed or exposed,
or duplicate photos already on file. These materials have
been useful in preparing slide presentations and exhibits.
7. List of Depositories (Partial)-
Woodville Public Library (coin operated copier, telephone)
Forsyth St.
W o o d v i 11 e
Price Gilbert Library (coin operated copier, telephone)
Williams Institute of Technology
North Gwinnett Regional Library (coin operated copier)
Snel1vi1le
Morton County Jr. College Library (copier, operated by
college personnel, telephone)
Jonesboro
continued...
49
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8. Miscellaneous Features
Six months after beginning the 208 study, an ombudsperson
was appointed. This action was taken in response to a
request from the Citizens Advisory Committee. The ombuds-
person, Mary Wilson, is former president of the League of
Women Voters. She serves without pay, but receives reim-
bursement for expenses. She investigates any complaint
forwarded to her, reports on the disposition of the case,
and seeks to resolve the problem. Five such complaints
have been received in the first four months since the
position was established. Three concerned access to
information. One of the depositories had an early policy
against removing documents from library so that copies
could be made on a copying machine in an adjacent building.
This policy was revised. In the other two cases, informa-
tion thought to be available did not exist. Two complaints
concerned membership on the Advisory Committee. All were
resolved to the satisfaction of both the complainant and
the 208 agency.
The 208 agency has provided speakers for meetings of area
organizations.
All planners received training in rapid graphic presentation
in order to communicate more effectively in workshop settings
The public involvement specialist attended a 2-week short
course in public involvement. Shortly thereafter, all
project staff participated in a one-day seminar on public
involvement led by one of the faculty members of the short
course.
The 208 agency subscribes to a clipping service for all area
newspapers.
Agency has established an incoming WATS telephone line
covering a territory about twice as large as the designated
208 area. The phone number is carried in the newsletter and
all other project brochures and news releases. During work-
ing hours, an incoming query is referred to the public in-
volvement specialist or the deputy study manager. If answer
cannot be given, the call is returned within 48 hours. If in-
coming call is a comment, it is recorded, typed up, and
passed on to appropriate member of planning team. During
non-working hours, a telephone answering device is used
to record name, telephone number^nd nature of query.
Call is returned the next day.
50
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UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
SUBJECT: Areawide Planning Interim Outputs
for Use in Facilities Planning
DATE:
MAR 241975
FROM:
Director, Water Planning Division (WH-454)
U
TO: All Regional Administrators
ATTN: Water Division Directors
PROGRAM GUIDANCE MEMDRANDUM: AM-2
PURPOSE
This memorandum sets forth policy and procedures concerning the use
of interim outputs to guide facilities planning after award of a 208
grant. These requirements are to be implemented immediately and are
expected to be made a part of the final 208 grant regulations, scheduled
for promulgation in early FY 76.
BACKGROUND
Specific interim outputs need to be empasized in the 208 planning
process to ensure that activities and decisions on the part of an
areawide agency are directed at timely inputs to other planning,
construction and regulatory programs. The areawide planning agency,
therefore, is expected to provide for the completion of interim outputs
in its work plans. These outputs will provide information to guide
facilities planning in accordance with EPA policy or relationships
between facilities planning and areawide planning, as set forth in
Program Guidance Memorandum AM-1 (and in the construction grants guidance
series as 'PG-47) . The interim outputs will also serve as the basis for
oonments by the 208 planning agency on any 201 facilities plan developed
or any application for step 1 grants within the designated area as
required in § 35.1064-1(o) of 40 CFR Part 35, Subpart F (areawide grant
regulations) and 8 35.917-7 of 40 CFR Part 35, Subpart E (construction
grant regulations).
The following interim outputs, to be completed within nine (9)
months following errant award, are necessary to promote the desired
areawide consistency and compatibility in subsequent facilities planning:
* Service area delineation for municipal wastewater
treatment systems^throughout the designated area
* Existing population and land use and projected
population and land use for the twenty (20) year planning
period
EPA Form 1320-6 (Rev. 6-72)
Appendix A
-------
Projected waste loads and flows generated for each
service area corresponding to the existing and projected
population and land use
Revision (if any) of the waste load allocations
Interim outputs need to be emphasized in the planning process to
insure that activities and decisions on the part of an areawide agency
are directed at timely inputs to other planning and construction programs.
The areawide planning agency will need to place high priority and
sufficient effort on providing these and other needed interim outputs
according to the schedule included in the approved work plan.
POLICY
The interim outputs, as specified herein, along with other
appropriate planning outputs, shall be specifically identified and
scheduled in the areawide planning agencies' work plans. Scheduled
completion dates are to be identified *s specific milestones. In cases
where such work plans have been approved previously without these
interim outputs, the work plans shall be amended to include them.
The interim outputs shall be completed within the nine (9) months
as specified, unless the EPA Regional Administrator grants time
extensions upon the recommendation of the 208 planning agency and the
State. Upon completion of the interim outputs, the 208 planning agency
shall submit them to the State for review and approval and transmittal
to the EPA Regional Administrator for concurrence as fulfilling partial
requirements of 208 planning.
In some instances, further areawide planning may reveal that the
interim outputs should be modified. Such modifications and associated
justifications should be promptly brought to the attention of the State
and affected facilities planning agencies. (This should occur in the
normal process of having close and continuing coordination between
States, areawide and facilities planning agencies). The State shall
determine the feasibility and practicality of incorporating these
modifications in the facilities planning and obtaining concurrence of
the Regional Administrator.
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UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
SUBJECT: Relationship of Areawide and Facilities Planning in
Designated Areas
DATE:
"AR 2 1 1975*
FROM: fVj, Director, Water P
vision
TO: All Regional Administrators
ATIN: Water Program Directors
PROGRAM GUIDANCE MEMORANDUM; AM-1
PURPOSE
This memorandum transmits a policy statement issued
March 11, 1975 by the Assistant Administrator for Water and
Hazardous Materials on the subject of the relationship between
facilities and areawide planning (copy attached) . The procedures
and policy expressed in the attached memo are to be implemented
immediately in all areawide planning activities. Thus, any
previous statements of the relationship between the facilities
and areawide made in the Water Quality Strategy Paper, Draft
Guidelines for Areawide Waste Treatment Management, Executive
Summary of the 208 Program and previous guidance memoranda, are
hereby superseded. These policies and procedures are expected
to be incorporated into the final 208 grant regulations scheduled
for promulgation in early FY'76.
BACKGROUND
The interim 208 grant regulations specify elements of
facilities planning that~are allowable under areawide planning
(section 35.1062 of 40 CFR) as well as the required content of
areawide plans. Because of the need to expedite ongoing and new
facilities planning in designated 208 areas prior to areawide plan
approval, compliance with the attached memo is required.
POLICY
The Regional Offices shall assure that policy stated on the
relationship between the facilities and areawide policy program
is implemented in all areawide planning.
Attachment
DIM (*..«»)
Appendix B
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UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
%«o'iv WASHINGTON. D.C. 20460
~
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200 Arcawide Planning
Areawide planning sets forth a comprehensive management program for
collection and treatment of wastes and controlling pollution from all
point and non-point sources. Control measures for abating these sources
utilize a combination of traditional structural measures together with
land-use or land management practices and regulatory programs. These
measures are implemented by areawide management agency or agencies. An
initial areawide plan is developed over a prescribed planning period and,
thereafter, updated and approved annually.
The portion of the 208 plan devoted to future construction of
publicly-owned treatment wofks should select and describee planning and
service areas and treatment systems, and provide supporting analysis for
the selection. The 208 planning requirements, therefore, overlap with
the 201 planning requirements described in points 1-4 in the previous
section.
Area Coverage
An areawide plan covers a large area with complex water quality
problems, generally an entire metropolitan area. A facilities plan
focuses on a complete system or systems of municipal treatment v;crks
extending over a geographic area large enough to consider adequately the
cost-effectiveness of alternatives. An areav/ide planning are' generally
includes more than one facilities planning area, depending on hydrologic
and geographic conditions.
Coordination and Funding
The agency's policy on relationships between 201 and 208 planning in
the same area during the period before final approval of a 208 plan is
as follows:
1. New 201 facilities plans will be started and carried out as
provided in the State priority list.
2. The scope and funding of 201 facilities planning will be suffi-
cient to collect data and conduct all analyses necessary for
expeditious completion of the 201 plan.
3. Facilities and areawide planning will be coordinated closely
to avoid unnecessary fragmentation and duplication, potential
conflicts and excessive planning costs. Data and analytical work
will be shared, but completion of 201 plans should not be dependent
on the 208 planning process.
4. Facilities plans that are completed and approved will continue
through the Step 2 and 3 stages after timely review and
comnent by the 208 planning agency.
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Interim 208 Outputs
Headquarters is issuing a separate policy statement to
require interim outputs during the 208 planning process. These interim
208 outputs v.'ould include definition of planning and service areas and
treatment levels to guide facilities planning.
After interim outputs are developed and approved by the state and
EPA for a 208 planning area, the relationship between 201 anJ 208 planning
in that area will be the same as that described under the section on
"coordination and funding" above except that:
1. New facilities planning v/il 1 be consistent with the approved
interim outputs of the 208 plan.
2. The scope and funding'of new 201 planning should not extend to
developing a justificati cr, for the .interim outputs. This justifi-
cation already will be available from the 208 planning p.-ocess.
Approved 20S Plan
The follov.'irg will be the policy after the areav/ide olan has been
completed and approved, and the agency or agencies identified to construct,
operate and maintain the municipal wastewater treatment facilities required
by the plan:
1. All facilities plans underway at the time of approval will be
completed by the agency which received the Step 1 grant. The planning
effort will continue as before approval unless the analysis in the
approved 208 plan clearly justifies a change in required treatment
levels or alternative approach on the basis of lower costs or major
changes in environmental impacts.
2. The scope and funding of new facilities planning starts will be
sufficient to supplement the data and analysis in the 208 plan to the
extent necessary to provide a complete facilities plan as required by
Section 35.917 of the Title II regulations.
3. New grants for 201 plans will be made to the management agencies
designated in the approved 208 plan. New facilities planning will be
consistent with the approved 208 plan.
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UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
SUBJECT: Integrating 208 Pie
Comprehensive Pie
FROM:
and 701
.vision (WH-454)
DATE: MAY 2 1975
TO:
All Regional Adrninistrators
ATTN: Water Division Directors
PROGRAM GUIDANCE MEMORANDUM: AM-9
PURPOSE
This memorandum sets forth policy and procedures concerning the
coordination of 208 planning and 701 comprehensive planning funded by
the Department of Housing and Urban Development. The policies and
procedures are established to ensure that designated planning agencies
indicate in their work plans how land use-related activities under
both the 701 and 208 programs will be integrated. This guidance is to
be implemented inrnediately and applies to those designated 208 agencies
seeking grant award after the effective date of the interagency agree-
ment discussed below.
BACRGROUND
The 1974 amendments to the Housing Act of 1954 require that the HUD
Comprehensive Planning Assistance Program (701) include a land use ele-
ment as a basis for continued eligibility for 701 funds after August 22,
1977. Areawide waste treatment management plans will include an analysis
of the impact that land use has on water quality. They will also include
land use and land management controls to the extent that such controls
are needed to manage both point and nonpoint sources of pollution. There
will, therefore, be a considerable overlap of planning activities in those
areas in which a 701 land use element and a 208 plan are being prepared.
In December 1974 a draft interagency agreement relating 208 and 701
planning was prepared and distributed for review and carment. Based on
the Garments received from the regions, headquarters, and public interest
groups, the agreement was redrafted. A copy of the agreement as it was
redrafted and subsequently signed is attached to this memorandum.
As established in the agreement, the land use element which is to
be prepared under the 701 program is to provide a basic land use plan,
including land use, population, and economic inventories and projections.
The 208 planning agencies are to analyze land use plans and projections
to determine modifications necessary to manage point and nonpoint sources
of pollution.
EPA Form 1320-6 (Rtv. 6-72)
Appendix C
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It is inportant that the 701 plan, in particular its land use ele-
ment, and the 208 plan be consistent. Moreover, in preparing these plans,
the planning agencies must not duplicate effort. Therefore, it is neces-
sary that the planning agencies in those areas where both 208 and 701 plans
are being prepared identify in their work plans how they will integrate 208
and 701 planning.
Below is a list of land use-related tasks which 208 agencies might
undertake. The specific tasks will vary among 208 areas depending upon the
nature of the water quality problems and existing studies. Accompanying
each task is an indication of the primary funding responsibility (EPA or
HUD) for that task:
1. Establish land use categorization system HUD
2. Prepare population, economic, and land use inventories HUD
3. Analyze land capability for water quality purposes EPA
4. Prepare population, economic, and land use projections
and plans HUD
5. Determine and display wasteloads based on projections
and plans EPA
6. Analyze land use controls for water quality impact EPA
7. Refine land use plans and controls as necessary for
water quality purposes. EPA
For many of the tasks, funding support can be provided by both agen-
cies. For example, HUD support can be provided for task 7 since refine-
ments to land use plans and controls must consider a broad spectrum of
community goals and objectives. Where a greater level of detail is neces-
sary to develop the 208 plan, EPA can support the completion of tasks 2
and 4. In such cases, inventories, projections, and plans can be prepared
at the level of detail necessary for 208 plan development and aggregated
to svpport the preparation of the 701 land use element. Funding for speci-
fic tasks, of course, must be negotiated on an individual basis with each
planning agency.
Further guidance will be provided in the future to carry out all pro-
visions of the interagency agreement. The guidance will include:
(1) performance criteria to determine consistency between 208 and 701 plans;
(2) procedures for coordinating existing 208 and 701 planning; (3) review
and comment procedures for the final plans; and (4) procedures for integrat-
ing 208 and 701 planning at the state level. This initial guidance on work
plan development has been provided prior to the remaining guidance because
of the need to incorporate the provisions of this statement into the numer-
ous grant applications to be submitted during the remainder of FY 75.
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POLICY
The Regional Offices shall assure that 208 planning agencies demon-
strate explicitly in their work plans how they will integrate the prepara-
tion of 701 land use elements with the development of the 208 plan. Fund-
ing responsibilities for specific land use-related tasks shall be based on
this guidance memorandum. In the event that it becomes necessary to consult
the HUD regional or area office to assure that the planning agencies have
successfully integrated their activities, the appropriate HUD regional
representative should be contacted (see attached list).
Attachments
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INTERAGENCY AGREEMENT
BETWEEN
THE DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT
AND
THE ENVIRONMENTAL PROTECTION AGENCY
I. PURPOSE
This Interagency Agreement has been developed 1n recognition
of the need to: (1) rationalize the planning assistance activities
of the two signatory agencies 1n accordance with the Administra-
tion's objectives; (2) encourage Interagency coordination of
planning activities within and among the state, regional, and local
levels of government; (3) secure agreement on coordination of
Implementation programs which affect the planning programs Identi-
fied below; and (4) ensure that land use planning undertaken for
water quality purposes 1s developed within the broader framework
of comprehensive planning.
II. PROGRAMS INVOLVED
The following programs are Involved:
Comprehensive Planning Assistance (701) Program of the
Housing Act of 1954, as amended
Areawlde Waste Treatment Management Planning Assistance
Program (208) of the Federal Water Pollution Control Act
Amendments of 1972
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III. PROVISIONS
1. To the extent that resources are available, the HUD 701 land use
element shall provide basic land use planning Including: (1) 'long
and short term policies with regard to where growth should and
should not take place; (2) the type, Intensity and timing of growth;
(3) studies, criteria, standards, and Implementing procedures necessary
for effectively guiding and controlling major decisions as to where
growth shall and shall not take place.
To the extent that resources are available, land use evaluation under
Section 208 shall be directed to: (1) determining the most efficient
design of treatment systems consistent with the basic land use plan;
and (2) analyzing land use-water quality relationships to determine
what modifications should be made to the basic land use plan for the
purpose of controlling or managing point and nonpolnt sources of
pollution.
2. Pursuant to provision (1) above:
A. Performance criteria will be developed relating and ensuring
consistency between the HUD land use element and the land use-
related provisions of the 208 plan. The performance criteria
will Include the land use outputs required for both programs.
B. Directives will be Issued to the HUD and EPA regional and
HUD area offices which will provide guidance with respect to
land use-related planning and evaluation activities that may
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-3-
be supported by each agency and the allowable funding levels
for such activities. The specific amount for the land use
planning and evaluation activities of each Individual grant
will be based on the allowable land use costs under each
planning program and on work program(s) developed by the
planning agency(s),
3. In those geographic areas where both a 701 land use element
and a 208 areawlde waste treatment management plan will be
developed, planning agencies will demonstrate 1n their work
programs how activities under both the 701 and 208 programs
will be coordinated so as to ensure that : (1) there 1s no
duplication of effort; (2) completed plans will be consistent;
and (3) the objectives of both programs will be achieved.
4. Promptly upon submission for approval by a grantee of an
areawlde or comprehensive plan, each signatory agency will
make available to the other a copy of the submitted plan
(or of the land use element or provisions thereof) for review
and written comment pursuant to this agreement. Written
comments, 1f any, will be submitted within 45 days. No plan
will be approved unless such opportunity "for review 1s granted
to the other agency.
5. Each signatory agency will take action Including issuance of
guidelines to assure that coordinated land use planning require-
ments will also be effected, to the extent possible, for planning
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-4-
wMch 1s already underway.
6. In designated 208 areas, EPA will encourage, wherever possible,
the designation or substantive Involvement of qualified areawlde
comprehensive planning agencies 1n the 208 areawlde waste treat-
ment management planning program.
7. All HUD and EPA assisted agencies will be actively encouraged
to use common data bases, analytic techniques, and consistent
criteria 1n their planning activities wherever appropriate.
8. Wherever the appropriate HUD and EPA field staff agree that, as
a result of planning assisted or required by one or more other
Federal agencies, an Impediment to Implementation of the HUD 701
land use element and the land use-related provisions of the 208
plan exists or 1s likely to exist, the respective offices will
Invite representatives of Interested federal, state, and areawlde
planning agencies to review the situation and whenever possible
to formulate recommendations for removing the Impediment.
9. Directives, guidelines, and performance criteria issued pursuant
to this agreement will have Joint concurrence, of both signatory
agencies prior to Issuance and will be developed 1n accordance
with Executive Orders and regulations governing both programs.
10. Joint reports on the progress of the above provisions will be
prepared 6 months and 12 months from the date of signature.
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Slgned at Washington, D.C., this
of March 1975.
24th
day
Departmentpf Housing and Urban-J^elopment EirtVlrorutental Protection Agency
BY:
Assistant Secretary for Wmmunlty
Planning and Development
Administrator of EPA
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o?
nr.AM PKVELOPKKNT
REGION
I - Boston
II - New York
III - Philadelphia
IV - Atlanta
V - Chicago
VI - Dallas
VII - Kansas City
VIII - Denver
IX - San Francisco
X - Seattle
REGIONAL
ADMINISTRATOR
Howard G. Thompson
(617) 223-1*066
S. William Green
(212) 261*-8068
Theodore R. Robb
(215) 597-2560
E. Lamar Seals
(1+01+) 526-3521
George J. Vavoulis
(312) 353-5680
Richard L. Morgan
Elmer E. Smith
(816) 37**-266l
Robert C. Rosenheim
(303) 837-i*88l
Robert H. Baida
(1*15) 556-1*752
JOECS L* Young
(206) 1*1*2-51*15
ARA FOR CPD
Frank Delvechio
(617) 223-1*327
William Davis
(212) 26U-1+138
Frank Healey
(215) 597-251*8
John T. Edmunds
(i*oU) 526-51*68
Richard A. Kaiser
(312) 353-1680
Travis Wm. Miller
(21*0 7l*9-7!*8l
Emil Huber
(816) 37l*-5ll»6
Robert J. Matusche
(303) 837-1*018
Elizabeth Tapscott
(1*15) 556-5720
Robert C. Scalia
(206) 1*1*2-1*531*
PLANNING AND
MANAGEMENT OFFICE
Sheldon Gilbert
(617) 223-1*329
Constantine Vlatos
(212) 261*-8221
Arthur Foley
(215) 597-21+95
James P. Bitting
(i*oi+) 526-3521
John W. Peters
(312) 353-
David Beker
Ellsworth Dorccky
(8l6) 37^-51^6
Emmet t Haywood
(303) 837-3207
Alan Goldforb
(!*15) 556-5721*
Robert D. Gillilan:
(206) M+2-U534
CPD/OPIIA
3/2U/75
1J.U.S. GOVERNMENT PRINTING OFFICE: 1977-241-037/6
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