EPA902-R-98-002
STUDY
Phase III Actions
for Hypoxia
Management
July
1998
A Partnership
to Restore and Protect
the Sound
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] Mill!
. Jiil'i 111
LONG
ISLAND
SOUND
STUDY
A FurtntrsMf U ReHart onrf Protect The Sound
ESTUARY OF NATIONAL SIGNIFICANCE
The Long Island Sound Study (LISS) is a partnership involving federal, state,
interstate, and local agencies, universities, environmental groups, industry, and
the public in a program to protect and restore the health of Long Island Sound.
The LISS began in 1985 under the sponsorship of the U.S. Environmental Pro-
tection Agency (EPA) and the states of New York and Connecticut. At the
request of the states of Connecticut and New York, EPA designated Long Island
Sound an Estuary of National Significance in 1988 and convened a Manage-
ment Conference. In 1994, the LISS Management Conference issued a Com-
prehensive Conservation and Management Plan (CCMP) to improve the health
of the Long Island Sound, while ensuring compatible human uses. In Septem-
ber 1996, the Governors of New York and Connecticut and the EPA signed a
Long Island Sound Agreement, reaffirming their commitment to the restoration
effort.
PRIORITY AREAS OF CONCERN
The LISS has identified seven issues meriting special attention: (1) low oxygen
conditions (hypoxia), (2) toxic contamination, (3) pathogen contamination, (4)
floatable debris, (5) the impact of these water quality problems and habitat
degradation and loss on the health of living resources, (6) public involvement
and education, and (7) land use.
The LISS has focused its efforts and resources on the most pressing problem,
the low oxygen levels affecting substantial areas of western Long Island Sound
in late summer, and has identified overenrichment of nitrogen as the primary
cause. Management has been proceeding in phases. In 1990, the EPA and the
states of New York and Connecticut agreed to cap nitrogen loadings as Phase I.
The 1994 CCMP contained commitments to begin to reduce the load of nitro-
gen to the Sound as Phase II. The EPA and the states of New York and Con-
necticut also committed to develop Nitrogen Reduction Targets for Long Island
Sound to guide Phase HI implementation.
PURPOSE OF THIS REPORT
On February 5, 1998, after a year of public review, comment and revision, the
Policy Committee for the LISS adopted the Phase in Actions for Hypoxia Man-
agement, including nitrogen reduction targets. This report updates the Phase III
agreement, succeeding the August 1997 Proposal for Phase III Actions for
Hypoxia Management (EPA 840-R-97-001). While most of the technical back-
ground in the 1997 report remains unchanged, it is repeated here in the interest
of completeness. The most significant changes are contained in the strategy and
schedule, which were negotiated and revised based on public comments
received during the past year. Yet, those changes do not compromise or greatly
alter the intent and liming of the original proposal, which enjoyed broad public
support throughput the comment period. Questions about the Phase HI strategy
or the LISS may be directed to the EPA Long Island Sound Office at the fol-
lowing addresses:
EPA Long Island Sound Office
Marine Sciences Research Center
SUNY @ Stony Brook
Stony Brook, NY 11794-5000
EPA Long Island Sound Office
Stamford Government Center
888 Washington Blvd.
Stamford, CT 06904-2152
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A MATTER OF HYPOXIA 1
UNDERSTANDING HYPOXIA 3
Conditions 3
Causes -3
MANAGING HYPOXIA: A PROGRESS REPORT 5
Sources -5
Reductions 6
PHASE HI FRAMEWORK 9
Oxygen Benchmarks - .9
Cost-Effectiveness 9
Allocating Responsibility 11
PHASE III ACTIONS 13
Strategies 13
Timing 14
Cost 14
Financing 14
Effluent Trading 15
Enforcement > 15
Evaluating Progress 16
BENEFITS OF THE PHASE III NITROGEN REDUCTION TARGETS 17
Ecosystem Health 17
Human Use Benefits , 17
SUGGESTED READING 22
APPENDIX: 23
Phase III Actions for Hypoxia Management
Adopted by the LISS Policy Committee 23
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.... .«. ..
rom mid-July through Septem-
her, Long Island Sound and
many of its aquatic inhabi-
tants suffer from a condition
called hypoxiaa technical term for
low levels of oxygen in the water. During
this period, oxygen levels in the bottom
waters of Long Island Sound fall well
below normal, to levels inadequate to
support healthy populations of aquatic
life.
But hypoxia is a symptom of a larger
problem, the over fertilization of the
Sound with nutrients, primarily nitrogen.
While nitrogen is a necessary nutrient in a
productive ecosystema building block
for plant and animal tissuetoo much
nitrogen fuels the excessive growth of
planktonic algae. The dense algae blooms
cloud the water and shade the bottom.
When the algae die and settle to the bot-
tom of the Sound, they are decayed by
bacteria, a process that uses up available
oxygen. Like people and other air-breath-
ing creatures, aquatic organisms need
oxygen to breathe. Oxygen in short sup-
ply impairs the feeding, growth, and
reproduction of the Sound's aquatic life.
In extreme conditions, some organisms
may suffocate and die, while others flee
the hypoxic zones. The dense blooms also
prevent enough light from reaching shal-
low water bottoms to support the growth
of submerged aquatic vegetation, an
important habitat for shellfish and juve-
nile fish. As a result, nitrogenin
excessimpairs the function and health
of Long Island Sound (Figure 1).
*tl.
EFFECTS OF EXCESS NITROGEN
Aquatic
Plant
Growth
Inhibited
Fish, Shellfish and Other
Organisms Stressed
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LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
To address the problem, the Long
Island Sound Study (LISS) has been
proceeding with a phased approach to
nitrogen reduction, allowing the pro-
gram to move forward in stages as
more information is obtained to sup-
port more aggressive steps.
The LISS's first formal action to
address the hypoxia problem took
place in 1990 with the release of its
Status Report and Interim Actions for
Hypoxia Management. The report
announced a freeze on point and non-
point nitrogen loadings to the Sound
in key geographic areas at 1990 levels
a move intended to prevent the
hypoxia problem from getting worse.
This constitutes what is now known as
Phase I of the LISS hypoxia manage-
ment program.
Phase n, which was adopted in 1994
upon release of the Long Island Sound
Comprehensive Conservation and
Management Plan, initiated actions to
begin to improve oxygen levels in the
Sound. This phase is being actively
implemented in Connecticut and New
York and will begin to reverse a 300
year trend of-ever-increasing nitrogen
loads to the Sound. Phase II reduc-
tions, while significant, will not
restore the health of Long Island
Sound. Therefore, the LISS made a
commitment to identify a third phase
of nitrogen controls to guide long-
term management.
On February 7, 1997, the LISS re-
leased a proposal for Phase III Actions
for Hypoxia Management, including
nitrogen reduction targets for 11
"management zones" that comprise
the Connecticut and New York portion
of the Long Island Sound watershed.
The LISS prepared an earlier version
of this report to present the proposal at
a series of public meetings that were
held in Connecticut and New York.
Modifications were made to the pro-
posal in response to public comment
and the U.S. Environmental Protec-
tion Agency and the states of Con-
necticut and New York adopted the
plan on February 5, 1998, fulfilling a
stated commitment of the Long Island
Sound Comprehensive Conservation
and Management Plan.
In addition to identifying the nitrogen
reduction targets, this report explains
the framework within which the tar-
gets were established, discusses the
benefits associated with achieving the
targets, and recommends specific
nitrogen control actions that need to
be undertaken to help meet the targets.
e
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CONDITIONS
While hypoxia in the Sound is not a new
occurrence, a comparison of recent data
with that collected since the 1950s sug-
gests that it has become more severe and
more common. Monitoring of Long
Island Sound conducted since 1986 has
recorded hypoxia occurrences each year.
Natural variations from year to year in
weather and other physical factors have
affected the size of the impacted area, the
length of time each event has lasted, and
how low oxygen concentrations have
fallen. Generally, hypoxia occurrences
have spanned a period of 40 to 80 days
from July through September (Figure 2).
In 1989, about 40 percent of the Sound's
bottom (more than 500 square miles)
experienced unhealthy levels of oxygen
during the late summer. As recently as
1994, 25 percent of the Sound was
affected.
CAUSES
In order to understand the relationship
between natural variations in weather
and human-induced pollutant loadings,
the LISS developed mathematical mod-
els of Long Island Sound. The computer
modeling effort was designed to answer
some fundamental questions:
* What causes low oxygen condi-
tions?
* How much of the problem is caused
by natural factors versus human
influences?
.* ...
"
*» What can be done to manage the
problem? How effective will differ-
ent controls be?
*» How much will it cost to correct the
problem?
* How long will it take to see
improvements? :
The modeling, combined with field mon-
itoring and laboratory studies, provided a
level of detail to support some clear con-
clusions about hypoxia in the Sound, its
causes, and its solutions. In addition, the
models allowed the LISS to simulate
water quality conditions as they were in
the past, as they are today, and as they
could be in the future under alternative
nitrogen control scenarios.
,
DURATION AND TIMING OF HYPOXIA
1987-1990 University of Connecticut
1991-1997 CTDEP Bureau of Water Management
1987 -
1988
1989
1990 -
E.
1991
1992
1993 -
1994 -
1995 t-^
1996 £T
1997
E
Jan Feb Mar April May June July Aug Sept Oct Nov Dec
IBI33S111 Hypoxic Period |
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LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
THE LONG ISLAND SOUND MODELS
The LISS has relied heavily on computer modeling of the Sound to sort
out the complex interaction between natural conditions and human
Influences in causing hypoxia. Two models, a water quality model that
approximates the biological and chemical processes of the Sound and a
hydrodynamk model that describes physical processes, have been devel-
oped, An Intensive field program in Long Island Sound to collect data for
the computer models was undertaken from April 1988 to September
1989. These data were used to calibrate and verify the models to ensure
that they reproduce the important features of the Sound.
The water quality model, called L1S 2,0, provided needed insight into the
causes of hypoxia and was the basis for actions to begin to reduce nitro-
gen discharges to the Sound. However, because it simulates the move-
ment of the Sound's waters in only two dimensions (east-west and sur-
face to bottom) and In a simplified manner, the LIS 2.0 model did not
provide the best technical foundation for identifying the total level of
reduction in nitrogen loads that should be attained or the most cost-
effective means to achieve targeted reductions.
The hydrodynamic model, developed by the National Oceanic and
Atmospheric Administration and completed in July, 1993, uses tide and
current measurements to simulate the water's circulation in three
dimensions (east-west, north-south, surface to bottom). It was coupled
to the water quality model, to create LIS 3.0. The LIS 3.0 model provides
an advanced too! to relate sources of nitrogen from specific geographic
areas to the hypoxia problem in the western Sound. Because the impact
of the nitrogen load from different management zones can be deter-
mined using LIS 3.0, the LiSS can assign priorities for management to
ensure that the most the cost-effective options are pursued.
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The most oxygen that can be dis-
solved in Long Island Sound at
summer water temperatures is
about 7.5 milligrams per liter
(mg/1) of water. This is known as
the saturation level.
Oxygen concentrations greater
than 5.0 mg/1 provide healthy
conditions for aquatic life. Con-
centrations between 5.0 mg/1 and
3.5 mg/1 are generally healthy,
except for the most sensitive
species. When concentrations fall
below 3.5 mg/1, conditions be-
come unhealthy. The most severe
effects occur if concentrations
fall below 2.0 mg/1, even for short
periods of time.
The growth of algal blooms in
Long Island Sound is dependent
upon the availability of nutrients.
These blooms end when the pool
of nitrogen available for contin-
ued growth is depleted.
In pre-colonial days, natural,
healthy biological activity
brought oxygen levels below sat-
uration due to the natural Ipad-
ings of organic material and
nitrbgen, but oxygen levels prob-
ably fell below 5 mg/1 only in
limited areas and for short peri-
ods of time.
Under today's higher nutrient and
organic material loading condi-
tions, minimum oxygen levels
average approximately 1.5 mg/1.
These levels are associated with
severe hypoxia.
By substantially reducing nitro-
gen loadings to the Sound, the
minimum oxygen levels in.the
bottom waters during late sum-
mer can be increased to an aver-
age of about 3.5 mg/1, thereby
significantly reducing the proba-
bility and frequency of severe
hypoxia and reducing the area
affected by hypoxia.
Increases in nitrogen delivered to
the Sound could significantly
worsen the hypoxia problem,
causing larger areas to have lower
oxygen levels for longer periods
of tirne. The probability of events
like the summer of 1987, when
anoxia (no oxygen) became a
reality in the Sound, offshore of
Hempstead Harbor, would also
increase.
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MANAGING
HYPOXIA:
A PROGRESS
SOURCES
To improve the health of Long Island
Sound, the estimated 99,900 tons of
nitrogen that enters the ecosystem each
year must be reduced. Of that amount,
approximately 41,400 tons are from nat-
ural sources and not easily reduced by
management activity. The remaining
58,500 tons of nitrogen are associated
with human activities and have the
potential to be reduced through manage-
ment. (Figure 3).
In some cases, human activities outside of
the area can affect the amount of nitrogen
entering Long Island Sound. For exam-
ple, 10,700 tons of nitrogen per year enter
the Sound through its boundaries the
East River in the west and The Race in
the east. The tributaries flowing into Con-
necticut bring 2,300 tons of nitrogen per
year from activities north of the state line.
Deposition of nitrogen from the atmos-
phere from rain and dryfall is another sig-
nificant source, contributing 6,500 tons of
nitrogen per year, 3,700 tons of which fall
directly onto the Sound and 2,800 tons
onto the watershed. Of the 39,000 tons of
nitrogen per year resulting from human
activity in the Sound's drainage basin,
point source discharges, primarily sewage
treatment plants, contribute 37,000 tons
of nitrogen and nonpoint source dis-
charges, such as agricultural and stormwa-
ter runoff, contribute 2,000 tons of nitro-
gen. These loading estimates have been
revised based on updated information
since the 1994 Comprehensive Conserva-
tion and Management Plan was published.
.
Is *
SOURCES OF NITROGEN
Human-Caused Load
58,500 tons/yr :
63.2% 18.3% 4.8% 3.4%
6.3% I 3.8%
Natural Load
41,400 tons/yr
55.3% 26.3%
14.0%
4.3%
'2,800
In-Basin, Human-Caused Load
45,500 tons/yr
81.3% 8.1% 4.4%
6.2%
|fc^H Point
| ] Nonpoint
| | Tributary Import
|^| Indirect Atmosphere
HI Direct Atmosphere
I | Boundary
MANAGEMENT ZONES
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LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
BIOLOGICAL NUTRIENT REMOVAL
Conventional primary and secondary sewage treatment plants remove
only small amounts of nitrogen and phosphorus from the wastewater.
Biological nutrient removal (BSSIR) removes much greater amounts of
nitrogen and phosphorus using natural breakdown processes. Relatively
minor modifications (retrofitting) can be made to the equipment or
operation of the Sewage treatment plant to achieve nutrient removal,
but only if the plant has excess capacity. Full BNR often requires recon-
struction of the treatment plant at a high cost.
In BNR, biological organisms are used to remove the nitrogen from the
wastewater. The bask principal is to have alternating anaerobic (no or
little oxygen) and aerobic (oxygenated) zones or tanks within the treat-
ment process. In the aerobic zones, nitrification occurs while in the
anaerobic zones, denltrlfication occurs.
Nitrification is a process in which bacteria convert ammonia and organic
nitrogen to nitrate. In sewage treatment plants, ammonia and organic
nitrogen come from human wastes and dead plant and animal matter.
The nitrifying bacteria are cultured for use at the plants to convert
amrrtonia to nitrite and nitrate. Nitrification occurs naturally in ecosys-
tems such as streams and salt marshes and plays an important role in the
cycling of nitrogen through the earth's environment. In sewage treat-
ment plants and In nature, nitrification requires the presence of nitrify-
ing bacteria and high concentrations of dissolved oxygen, also referred
to as "oxk* or "aerobic" conditions.
In the denitrifkatlon process, another type of bacteria extract oxygen
from nitrates, causing harmless nitrogen gas to be released into the
atmosphere. Like nitrification, denitrification also occurs naturally in
salt marshes and other ecosystems but under low oxygen conditions, or
"anoxlc" conditions, in the presence of denitrifying bacteria, nitrates,
and organic carbon.
The two processes are linked through the recycling of the wastewater
in the anoxk and oxic zones of the tanks. Typically, bacteria and nitrates
generated in the nitrification stage are cycled along with sewage from
the secondary settling tanks to the anoxic denitrification zone to fuel
the denitrification process just described.
Eleven watershed management zones,
based on natural drainage basin and
political boundaries, have been estab-
lished to foster identification of nitro-
gen sources and comprehensive water-
shed planning (Figure 4).
REDUCTIONS
Since 1990, activities have been
underway in New York and Connecti-
cut to manage nitrogen from sources
within the New York and Connecticut
portions of the drainage basin, starting
O
with adoption of the Phase I "freeze"
on loadings. The sewage treatment
plants under the freeze are identified in
Figure 5. In 1992, as a consequence of
ending ocean disposal of sewage
sludge from New York City, and the
resulting need to treat some of the
sludge at New York City sewage treat-
ment plants discharging to the East
River, the nitrogen load increased by
4,500 tons per year.
For Phase II, the LISS made a com-
mitment in 1994 to reduce nitrogen
discharges to the Sound from peak
loadings by approximately 7,550 tons
per year/This phase consists of incor-
porating a variety of low-cost nitrogen
removal technologies at selected
sewage treatment plants, which are
identified in Figure 6. The states have
moved aggressively to implement
nitrogen control activities, using inno-
vative strategies and seeking the coop-
eration of local governments.
In Connecticut, the goal was to
achieve a reduction of 850 tons per
year in nitrogen loads. The state of
Connecticut has awarded more than
$15 million through its State Clean
Water Fund to 11 southwestern
sewage treatment plants to test and
demonstrate the efficiency of up-
grades for nitrogen treatment. In addi-
tion, the first plant in the state
designed to denitrify has been con-
structed in Seymour. As of December
1997, the load of nitrogen from plants
in the Phase TI agreement has been
reduced by almost 900 tons per year,
exceeding the Phase II goal.
The state of New York revised the per-
mits issued to sewage treatment
plants, with the consent of local
authorities, to establish nitrogen limits
at 1990 levels. The permits include an
aggregate load for facilities within
Management Zones 7-11 (New York
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LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
SEWAGE TREATMENT PLANTS SUBJECT TO PHASE I FREEZE
T* Sewage
treatment
plants dis-
charging into
Long Island
Sound or its
tributaries
T Sewage treat-
ment plants
subject to "No
Net Increase
of Nitrogen"
under Phase I
of the LISS
Nitrogen
Reduction
Strategy
SEWAGE TREATMENT PLANTS SUBJECT TO PHASE II REDUCTIONS
. _._r..,
^Sewage
treatment
plants dis-
charging into
Long Island
Sound or its
tributaries
if Sewage treat-
ment plants
participating
in Retrofit
Activities
under Phase II
of the LISS
Nitrogen
Reduction
Strategy
f-
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LONG ISJ.ANJ3SOUND STUDY PHASE III ACTIONS FOR HYPOXIA
ENT
City, Westchester County, and Long
Island). The New York goal was to
reduce nitrogen loadings by 6,700
tons per year from peak loadings from
actions to be completed by 2006. The
goal of these actions was to compen-
sate for the increased load due to
sludge treatment and reduce loadings
back below 1990 levels. As of 1997,
one sewage treatment plant in Westch-
ester County and four in New York
City have implemented nitrogen
removal technologies. New York City
is required to implement additional
nitrogen removal technologies at the
upper East River sewage treatment
plants. As of December 1997, the load
of nitrogen from sewage treatment
plants in New York had decreased by
3,000 tons per year from peak load-
ings. In addition, New York City has
entered into a consent order to provide
nitrogen removal at the reconstructed
Newtown Creek facility, scheduled
for completion in 2007.
In addition, both states have:
* Developed materials and con-
ducted training for treatment
plant personnel on nitrogen
removal technologies and proce-
dures.
" Required sewage treatment plants
to identify in their plans how they
will remove nitrogen, if required
to do so.
- Required nutrient monitoring at
sewage treatment plants to
improve understanding of nitro-
gen sources and treatment plant
capability.
Increased the share of nonpoint
source pollution control funds
targeted to projects that reduce
nitrogen loads to the Sound.
Formulated Coastal Nonpoint
Pollution Control Programs to
address coastal nonpoint sources
of nitrogen.
Undertaken demonstration pro-
jects that address a variety of
nonpoint source control issues
and technologies (e.g., urban
runoff treatment by artificial
pond/wetland systems, parking
lot runoff treatment, septic sys-
tem technologies to treat and
remove nitrogen, controlling
runoff from agricultural land and
from marinas).
RioltZ
CHANGES IN HUMAN-CAUSED NITROGEN LOADS
Total Load
1990
1992
1995
1996
1997
©
As of December 31, 1997,
nitrogen loadings to the
Sound from point and non-
point sources within the
New York and Connecticut
portions of the watershed
have been reduced as a result
of these activities by 3,900
tons per year from peak
loadings (Figure 7). The
small increase in the 1997
load compared to 1996 was
due to reconstruction activi-
ties in Connecticut that tem-
porarily disrupted nitrogen
removal and an increase
from the upper East River
facilities in New York.
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*
..
m
hile steps taken in Phases I and II
Wwill help to reduce the extent of
hypoxia, additional nitrogen
reduction is needed to restore
the health of Long Island Sound.
Phase III sets the course by setting spe-
cific nitrogen reduction targets for each
of the 11 management zones around the
Sound. An array of environmental and
economic considerations were taken into
account throughout the process. This
chapter describes the processstep by
step.
OXYGEN BENCHMARKS
The water quality standard for oxygen in
Long Island Sound is 6 mg/1 in Connecti-
cut and 5 mg/1 in New York. Modeling
indicates that even if maximum nitrogen
reduction technologies were imple-
mented, the water quality standards for
oxygen would not be achieved through-
out the summer in all areas of the Sound.
To help establish priorities for action, the
LISS has identified oxygen conditions
that will minimize adverse impacts on
living resources of the Sound.
Two major research efforts have pro-
vided much of the information on how
low oxygen conditions affect living
resources in the Sound. The first of these
was a study conducted by the EPA's
Office of Research and Development.
Species of fish and crustaceans (e.g.,
crab, shrimp, lobster) known to reside in
the bottom waters of Long Island Sound
were exposed to low levels of oxygen in
the laboratory. The effect of different
concentration of oxygen on growth and
survival was measured. Life stages
known to be sensitive to low oxygen lev-
els, such as the eggs and juveniles, were
emphasized in the tests. In the second
study, the Connecticut Department of
Environmental Protection (CTDEP) col-
lected bottom-dwelling fish and inverte-
brates and compared the quantity of
organisms and number of species with
the levels of oxygen in the water.
Both studies corroborated that severe
effects occurred whenever levels of oxy-
gen fell below 2.0 mg/1. The field sur-
veys noted large reductions in the num-
ber and types of aquatic life present. The
lab experiments recorded reductions in
growth and increases in mortality. In both
studies, effects became significant when
oxygen levels fell below 3.5 mg/1, though
some effects occurred at levels between
3.5-5.0 mg/1.
As a result, the LISS has determined that
unhealthy conditions occur whenever
oxygen levels fall below 2.0 mg/1 at any-
time or remain below 3.5 mg/1 over a
24-hour period. Most adverse impacts
can be prevented if oxygen levels exceed
these conditions, and they have been
used as benchmarks to assess the relative
benefits of alternative management
strategies for improving the health of
Long Island Sound.
I:
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LONG I SLA, NID S oUN D STUDY PHASE III A cT i p N s F oR HYPo xj A MAN AGE ME N T,,,,
COST-EFFECTIVENESS
How do we maximize progress in
improving water quality within the
framework of existing technology and
financial capability? The answer lies
somewhere between where we are
now (Phase II) and what is achievable
if all currently available technologies
were employed. LISS managers
looked at a range of nitrogen reduc-
tion options for the three major
sources of nitrogen in the watershed,
sewage treatment plants, industrial
facilities, and nonpoint source runoff,
to answer that question
*» SEWAGE TREATMENT PLANTS: As
nitrogen removal requirements
become more stringent, the cost
of controls tends to increase. To
identify a cost-effective level of
treatment, LISS managers arrayed
the possible nitrogen reduction
options for all 70 sewage treat-
ment plants in the
11 management zones and calcu-
lated the average oxygen
improvement in the Sound per
dollar spent. Improvements at
sewage treatment plants that had
better than average cost-effective-
ness at improving oxygen condi-
tions in the Sound were identified.
These actions, in total, could
achieve a 62 percent reduction in
loads, or 122,044 pounds/day.
INDUSTRIAL FACILITIES: A limited
number of industrial facilities
directly contribute nitrogen to the
Sound; all are located in Con-
necticut and contribute an esti-
mated 6,717 pounds per day of
nitrogen to the Sound. Because
inforrnation on the cost of reduc-
ing ; nitrogen from industrial
sources was not readily available,
the, se, facilities were not included
in the cost analyses used for
sewage treatment plants. Instead,
the cost-effective level of treat-
ment identified for sewage treat-
ment plants, 62 percent, was
applied to the industrial sources,
resulting in a 4,165 pounds per
day reduction for industrial facili-
ties. This represents an aggressive
but cost-effective level of nitro-
gen control for these sources.
OXYGEN IMPROVEMENT VERSUS COST FOR
SEWAGE TREATMENT PLANTS
'' ; I . ,:
II I
To find out how critical areas of the Sound would respond to specific manage-
ment options, data on oxygen improvement versus cost were plotted on curves;
for three key areas in the Sound: western Narrows, offshore of New Haven, and
offshore of Stony Brook. Figure 8 on page 12 shows the curve for the western^
Narrows. Each point on the curve represents a specific nitrogen reduction
approach at a specific plant at an associated cost. The point at which the curve
begins to level out represents the "knee" of each jcurve, the area where we
begin to experience much less oxygen improvement for that region per dollar
spent. This point separates those options that yield better than average cost-
effectiveness from those with below average cost-effectiveness. This analysis
was repeated for two other hot spots in the Sound. Actions with better than
average cost-effectiveness in improving oxygen conditions in any one of the
three locations were identified and the cost of the actions tallied. Based on the
curves for the three response regions, environmental improvement can be max
imized and costs minimized with nitrogen reductions of 62 percent reduction
from sewage treatment plants (122,044 pounds/day) at a cost of around the
$650 million. ;
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LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
ESTIMATING POTENTIAL REDUCTIONS IN NONPOINT SOURCE RUNOFF
Current information on land cover in the watershed and the cost and effectiveness of
best management practices (BMPs) to control nitrogen from that land cover was
assessed. To determine a loading reduction level, BMP effectiveness was multiplied by
the percent of land on which the BMPs are applied. For example, estimates suggest
that BMPs reduce nitrogen runoff, on average, by 20 percent. If BMPs were applied
to over 50 percent of the land, the level of nitrogen reduction would be 10 percent
from the total nitrogen load from urban and agricultural sources. A maximum level
of management (100% coverage) would be unrealistic. Thus, a 50 percent BMP appli-
cation scenario, reflective of an aggressive nonpoint source program, was used to cal-
culate the Soundwide nonpoint source reduction target. This resulted in a 10 percent
reduction in nonpoint source nitrogen runoff.
* NONPOINT SOURCES: Decisions on
controls of nonpoint source runoff
must be made in the broader context
of watershed management, since
control measures will also help
reduce suspended solids, toxic cont-
aminants, pathogens, and floatable
debris. The LISS recommends that
aggressive controls of nonpoint
source pollution be implemented for
both existing and new development,
through both habitat protection and
restoration activities, and structural
and nonstructural best management
practices. This effort could result in
a 10 percent reduction in the non-
point source load from sources
within the New York and Connecti-
cut portions of the watershed, or
2,604 pounds per day.
Adding the potential nitrogen reductions
from cost-effective controls on sewage
treatment plants, industrial sources, and
nonpoint runoff sources results in a total
reduction of 128,813 pounds per day
(23,500 tons per year). The next step is to
allocate responsibility for achieving these
reductions among the 11 management
zones fairly.
ALLOCATING RESPONSIBILITY
The cost curve analysis provided an
option for allocating nitrogen reductions
among the sewage treatment plants.
Sewage treatment plant upgrades with
greater than average cost-effectiveness
would be implemented while upgrades
with below average cost-effectiveness
would not be implemented. However, the
LISS decided that relying on the cost
curve analysis alone would: not be a fair
or even feasible approach and would not
provide the best solution to allocating
nitrogen reduction.
There are several reasons for this conclu-
sion. Most importantly, the cost estimates
were general and not uniform in their
development. More accurate cost esti-
mates must await detailed facilities plan-
ning based upon a clear definition of the
nitrogen discharge limits that will have to
be met. In addition, local concerns and
considerations such as the need to pur-
chase land for expansion and to distin-
guish between costs for nitrogen removal
versus ongoing maintenance, expansions
for growth, and secondary upgrade needs
(which were not included in the cost esti-
mates) were not addressed evenly in the
cost analysis.
Cost considerations aside, it is necessary
for all sewage treatment plants to share
the burden of nitrogen removal. All
sewage treatment plants contribute nitro-
gen to Long Island Sound, albeit with
__
s -,
4
j
1
-------
LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
different effect. All jurisdictions will
benefit from improved water quality.
Therefore, it is reasonable to expect
all contributors to the problem to con-
tribute to the solution.
For those reasons, LISS has assigned
each management zone equal respon-
sibility to reduce its share of the nitro-
gen load. To achieve a similar level of
oxygen improvement from reductions
allocated to each zone by the same
percentage, the load reduction target
was adjusted slightly to 23,800 tons
per year from the original 23,500 tons
per year. The total human-derived
load coming from sewage treatment
plants, industrial point sources, and
nonpoint sources, including atmos-
pheric depositions within the water-
shed, is 40,650 tons per year. There-
fore, the Soundwide nitrogen target is
a 58.5 percent reduction in the human-
derived load from point and nonpoint
sources hi the watershed.
Billet
OXYGEN IMPROVEMENT vs CAPITAL COST
OF SEWAGE TREATMENT PLANT UPGRADES
Effect of Nitrogen Reductions in
Western Long Island Sound
500
1,000 1,500
Capital Cost (millions)
2,000
2,500
-------
Phase III actions will minimize
adverse impacts of hypoxia
caused by human activities in
a cost-effective manner, while
ensuring that new information is gath-
ered to refine and improve management
over the long term. Using the framework
described in the previous chapter, the
LJSS set a 58.5 percent reduction target
for the enriched load of nitrogen from
sources within the New York and Con-
necticut portions of the watershed. The
specific Phase III Actions for Hypoxia
Management are provided as an appen-
dix to this report.
STRATEGIES
Attaining the nitrogen reduction targets
will require aggressive control of point
sources, such as sewage treatment plants
and industrial sources, and nonpoint
sources, such as on-site sewage systems
and runoff from roads, parking lots, and
construction sites. To achieve the reduc-
tion targets, the states, working with
local governments, will select the mix of
point and nonpoint source controls to be
implemented in each management zone.
Recognizing that each watershed is dif-
ferent, the plan provides the states and
municipalities considerable flexibility in
determining how nitrogen reduction
actions are carried out within each zone.
By August 2000, the states will take the
following actions:
* Develop watershed plans for each
management zone that will set the
course for achieving the targets as
scheduled.
* Consistent with those plans, incor-
porate limits on the amount of nitro-
gen that can be discharged from
sewage treatment plants and indus-
trial sources into discharge permits.
* Conduct comprehensive nonpoint
source management and habitat
restoration activities.
Because the total nitrogen load entering
the Sound from human sources is domi-
nated by point source discharges, the
plan emphasizes technologies that can be
applied to sewage treatment facilities and
industrial discharges.
In order to achieve significant reductions
in the nonpoint source nitrogen load,
home owners, farmers, businesses,
municipalities, and the states will need to
reduce current inputs of nitrogen to the
.watershed and restore and preserve the
nitrogen removal capabilities of existing
natural systems. These reductions can
be achieved using a number of
approachesresource-based land use
decisions at the local level, watershed-
wide use of appropriate structural and
nonstructural best management practices
(e.g., stormwater detention ponds, artifi-
cial wetlands, streetsweeping, cleaning
catch basins), habitat protection and
restoration, and pollution prevention
J *;* ' -'-'!
fe'*:*:ii
-------
LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
ft1;,"'" llllllllllinilftMll
management practices. All approaches
will require a concerted education and
outreach effort.
TIMING
The planning, financing, and con-
struction of upgrades to sewage treat-
ment plants necessary to achieve the
58.5 percent reduction target will
require sustained effort and commit-
ment over a long period of time.
Therefore, the LISS recommends
phasing-in the necessary reductions
over 15 years:
40 percent hi 5 years,
75 percent in 10 years, and
100 percent in 15 years.
COST
The Comprehensive Conservation
and Management Plan identified that
the cost of achieving maximum nitro-
gen removal from all point sources
would range from $6 to $8 billion
($5.1 to $6.4 billion in New York state
and from $900 million to $1.7 billion
in Connecticut). Because of the suc-
cessful demonstration of full scale
nitrogen removal technologies at
sewage treatment plants undertaken as
part of Phase n, the estimated costs of
capital improvements at sewage treat-
ment plants have decreased. The esti-
mated cost of achieving maximum
nitrogen removal levels at the 70 treat-
ment plants in New York and Con-
necticut is now about $2.5 billion
Because of the cost-effective ap-
proach described in the previous chap-
ter, the LISS nitrogen reduction strat-
egy would not require all treatment
plants to meet limit-of-technology
reductions. As a result, the incremen-
tal capital cost of achieving the Phase
HI point source controls was esti-
mated to be $300 million for New
York state and $350 million for Con-
necticut. These cost estimates have
been questioned and will be revised as
more detailed facility planning and
design is performed. However, they
show clearly that the potential cost of
achieving our goals can be much less
than originally estimated.
Nonpoint source controls will be
implemented as part of broader water-
shed and habitat protection efforts.
The cost of controlling nonpoint
sources is more difficult to estimate
than the cost of point source controls.
Rather than one type of technology
applied to a similar source, a variety
of strategies can be applied to control
a variety of nonpoint sources of nitro-
gen. As a result, the costs of achieving
nonpoint nitrogen reductions will be
addressed in the zone-by-zone plans
developed by the states.
i :
FINANCING
As recommended in the Comprehen-
sive Conservation and Management
Plan, the main source of funding for
these wastewater treatment facility
improvements will be the State
Revolving Fund programs. The EPA,
through the federal Clean Water Act,
provides financing to support State
Revolving Fund loan programs.
Connecticut uses the capitalization
grant from EPA to leverage with state
bond funds to provide grants and low
interest loans, at 2 percent interest
over 20 years, to finance improve-
ments at municipal facilities. Con-
necticut provides about $50 million
per year in state bonding to supple-
ment the $15 million per year pro-
vided under the Clean Water Act. At
this capitalization rate, Connecticut
should be able to meet municipal
financing needs to implement Phase
III nitrogen reductions. During fiscal
-------
LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
year 1997, CTDEP awarded $250 million
from their Clean Water Fund to finance
projects of benefit to Long Island Sound,
including major sewage treatment plant
upgrades in Norwalk and Waterbury.
New York state established its State
Revolving Fund in the custody of the
Environmental Facilities Corporation.
This public corporation benefits local
governments in New York state by offer-
ing below-market interest rate loans to
municipalities to finance wastewater
improvements. Currently, the interest rate
is set at up to one-half of the market rate
to be repaid in 20 years. Lower rates of
interest, including zero interest loans, are
available for communities that can
demonstrate an inability to pay the stan-
dard subsidized rate. Another major
source of funding in New York state is
the $1.75 billion Clean Water/Clean Air
Bond Act approved by voters in Novem-
ber 1996. The Bond Act targeted $200
million for Long Island Sound that will
be available for sewage treatment
upgrades, habitat restoration, nonpoint
source control, and pollution prevention.
The possible funding sources for non-
point source controls reflect the diversity
of both the sources and the control
options. Grant funding through federal
and state water quality management, nat-
ural resources management, and coastal
zone management programs is available
for nonpoint source activities. The State
Revolving Fund loan program is also
available to fund stormwater manage-
ment and habitat restoration projects but
has not been used to a great extent for
these types of activities due to the magni-
tude of existing point source funding
needs in Connecticut and New York.
EFFLUENT TRADING
To provide further flexibility and incen-
tives for maximizing the timeliness and
cost-effectiveness of nitrogen reduction
actions, the LISS is investigating the fea-
sibility of allowing effluent trading. Trad-
ing, if employed as part of the nitrogen
reduction effort, may be an innovative
way to use market forces to more effi-
ciently meet water quality goals. The
LISS is developing a trading proposal
and will convene a public forum for fed-
eral, state, and local water quality offi-
cials, together with public and private
interests, to evaluate its potential.
ENFORCEMENT
The provisions of the federal Clean Water
Act provide a vehicle for ensuring that
nitrogen reduction targets are legally
enforceable. Section 303(d) of the Act
requires the identification of,a Total Max-
imum Daily Load for pollutants that will
result in the attainment of water quality
standards. Once a Total Maximum Daily
Load has been established, the act calls
for reductions to be allocated to sources
so that the load target is met.
New York and Connecticut and EPA will
use their authorities to provide an
enforceable foundation for achieving the
nitrogen reduction targets. By August,
1998 the states will propose a Total Max-
imum Daily Load designed to meet state
oxygen standards. The current Long
Island Sound standards were developed
with limited data on how low oxygen lev-
els affect aquatic life in Long Island
Sound. EPA is currently developing
regional marine oxygen criteria that will
provide a more scientifically valid basis
for the development of oxygen standards.
Based on this information, the states may,
in the future, modify their oxygen stan-
dards.
While LISS managers predict significant
improvement in water quality as the
nitrogen reduction targets are imple-
mented, the attainment of current water
quality standards at all times and in all
areas is not expected. For this reason, the
t
t
-------
LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
LISS will continue to assess what
other kinds of actions will be needed
to bring the Sound into full compli-
ance with water quality standards.
These actions may include control of
nitrogen and carbon sources outside
of the Long Island Sound basin (e.g.,
tributary import from point and non-
point sources north of Connecticut,
atmospheric deposition, boundary
import from point and nonpoint
sources affecting New York Harbor
and The Race). Alternatives to nitro-
gen reduction, such as aeration, will
need to be considered as a possible
means to achieve water quality stan-
dards in remaining areas.
EVALUATING PROGRESS
The LISS will track, monitor, and
report on progress in meeting the
nitrogen reduction targets annually. In
addition, a formal review of the goals
and objectives of the program will be
performed every 5 years, coinciding
with the progress checkpoints for
nitrogen reduction. The review will
consider:
* Progress and cost of implementa-
tion, including a reevaluation of
the knee-of-the-curve analysis
used to establish the Phase III
nitrogen reduction targets,
^ Improvements in technology,
including the results of quality
controlled pilot projects,
w The regional dissolved oxygen
criteria to be published for com-
ment,
*» Water quality standards,
* Refined information on the
ecosystem response to nitrogen
reductions,
* The results of peer reviewed
modeling, and
+<* Research on the impacts of
hypoxia to living resources and
their habitats.
Each of these factors will be consid-
ered in a balanced manner in the
reevaluation process. As a result of the
review, the LISS may recommend
improvements that could result in
changes in how the overall program
will be implemented.
-------
BENEFITS
OF THE
.
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E
ECOSYSTEM HEALTH
Phase HI will yield significant ecological
and environmental benefits. The maxi-
mum area of the Sound that is unhealthy
for marine life will be reduced by an esti-
mated 75 percent (Figures 9 and 10). The
period during which unhealthy condi-
tions exist in the Sound is predicted to be
reduced by 85 percent, from more than
50 days to 6.5 days.
By limiting the area and duration of
unhealthy conditions, overall biological ef-
fects will be greatly reduced Soundwide.
In the western Narrows:
* Death rates of larvae of marine life
sensitive to hypoxia will be reduced
by 67 percent;
* Adverse impacts on fish abundance
will be reduced by 97 percent;
* Adverse impacts on scup (porgy)
abundance will be reduced by 61
percent and on winter flounder
abundance by 99 percent. Effects on
lobster abundance will be elimi-
nated.
In the waters off of New Haven,
Connecticut:
+~ Mortality of sensitive larvae will be
reduced by 65 percent;
*~ Adverse impacts on fish abundance
will be eliminated.
:.....: '.....
In the waters off of Stony Brook, New
York:
^» Larval mortality will be reduced by
an estimated 84 percent;
* Adverse impacts on fish abundance
will be eliminated.
While the model analysis was intended
to analyze the open waters of the Sound,
improvements are expected in harbors,
embayments, and near shore waters as
well. These waterways are flushed with
water from the Sound as a result of tidal
action. As the quality of water from the
Sound improves, we can expect
improvement in the harbors, embay-
ments, and near shore waters as well.
Improved visibility of waters will also
expand the amount of shallow water area
conducive to the growth of submerged
aquatic vegetation, an important habitat
that has diminished in range from histor-
ical levels.
HUMAN USE BENEFITS
Research commissioned in 1990 by the
LISS estimated that more than $5 billion
are generated annually in the regional
economy from boating, commercial and
sport fishing, swimming, and beachgo-
ing. Actions that result in improved oxy-
gen levels in the Sound, besides increas-
ing habitat that is healthy for aquatic life,
will also benefit people who live around
and use the Sound. Other expected
t . - ~~
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-------
LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
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benefits from improved water quality
resulting from nitrogen reduction in
the Sound would include:
** BOATERS: By reducing nitrogen
loadings to the !>ound, afgal
blooms will be reduced or pre-
vented. By reducing or prevent-
ing algal blooms, the clarity and
aesthetics of the water will be
improved, increasing enjoyment
for boaters.
* SWIMMERS: Swimmers will notice
better water clarity, as a result of
less severe algal growth. Less
nitrogen will also bring growth of
seaweed back into balance.
* ANGLERS: Because finfish
actively avoid unhealthy waters
with low oxygen levels, the Phase
HI nitrogen reductions will bene-
fit anglers by increasing the area
of the Sound in which fish are
likely to be found.
* SCUBA DIVERS AND SNORKELERS:
Scuba divers and snorkelers will
benefit from improved visibility
underwater as a result of reduced
algal blooms, as well as the pres-
ence of more abundant and
healthier marine life.
* BIRDWATCHERS AND SIGHTSEERS:
Although birds and wildlife that
use the shore area are not directly
affected by oxygen levels, many
of them feed on marine life, such
as small fish, shellfish (e.g., mus-
sels), and crustaceans (e.g.,
crabs). By improving the health
of the waters of the Sound, birds
and wildlife will have a greater
supply of food, and will be more
likely to use the shoreline areas.
Therefore, birdwatchers and
sightseers will benefit from Phase
HI nitrogen reductions because
shorebirds, waterfowl, and
wildlife will be more abundant
along the shoreline.
COMMERCIAL FISHING AND SHELL-
FISHING: The healthier the condi-
tion of the Sound, the more fish
and shellfish will prosper, which
means that more of them will be
available for harvest by people.
The value of commercial fishing
in Long Island Sound during 1990
was more than $148 million.
TOURISM: Visiting the beach, fish-
ing and diving charters, sightsee-
ing trips, and other leisure pas-
times contribute to the local
ecoriomy, both directly to the
tourism industry and to other
businesses that support the tourist
trade (e.g., restaurants, gas sta-
tions, sporting goods stores).
REAL ESTATE: Studies have shown
that the value of properties used
for recreation (e.g., seasonal cot-
tages) drop in value in response
to decreasing water quality. It is
likely that improved water qual-
ity in the Sound will increase
property values along the shore.
-------
LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
.fi'"--jsfl'£*«,4'!
;Fj.fiUBE,SL
EXISTING OXYGEN CONDITIONS
Healthy
Marginally Protective
Unhealthy
Hydro QfM, Inc
PROJECTED PHASE 111 OXYGEN CONDITIONS
Healthy
Marginally Protective
Unhealthy
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-------
*_
he following list represents selected reports available from the
Long Island Sound Office that provide additional information.
1. Altobello, M.A. 1992. The Economic Importance of Long Island Sound's Water Quality Depen-
dent Activities. University of Connecticut.
2. CTDEP. 1995. A study of Marine Recreational Fisheries in Connecticut. Federal Aid to Sport
Fish Restoration. F54R Final Report.
3. Howell, P., D. Simpson. 1994. Abundance of Marine Resources in Relation to Dissolved Oxygen
in Long Island Sound. Estuaries. 17:394-402.
4. HydroQual. 1991. Water Quality Modeling Analysis of Hypoxia in Long Island Sound. Prepared
for the Management Committee of the Long Island Sound Study and the New England Interstate
Water Pollution Control Commission. Job #NENG0012.
5. HydroQual. 1996. Water Quality Modeling Analysis of Hypoxia in Long Island Sound Using
LIS 3.0. Prepared for the Management Committee of the Long Island Sound Study and the New
England Interstate Water Pollution Control Commission. Job #NENG0035.
6. HydroQual. 1997. Evaluation of Nutrient Management Scenarios Using LIS 3.0. Prepared for
the Management Committee of the Long Island Sound Study and the New England Interstate
Water Pollution Control Commission. Job #NENG0035.
7. Long Island Sound Study. 1990. Status Report and Interim Actions for Hypoxia Management. 40
pp. U.S. Environmental Protection Agency.
8. Long Island Sound Study. 1994. Comprehensive Conservation and Management Plan. 168 pp.
U.S. Environmental Protection Agency, LIS Office, Stamford Connecticut.
9. Long Island Sound Study. 1997. Framework for Developing the Proposed Phase HI Nitrogen
Reduction Targets. 19 pp. U.S. Environmental Protection Agency, LIS Office, Stamford Con-
necticut.
10. Miller, D.C., S.L. Poucher, L. Coiro, S. Rego, W. Munns. 1995. Effects of hypoxia on Growth
and Aurvival of Crustaceans and Fishes of Long Island Sound. In: Proceedings of the Long
Island Sound Research Conference: Is the Sound Getting Better or Worse? New York Sea Grant
Institute. NYSGI-W-94-001
11. Parker, C.A., and J.E. Reilly. 1991. Oxygen Depletion in Long Island Sound: A Historical Per-
spective. Estuaries. Volume 14, No. 3.
12. U.S. EPA. 1996. Draft Framework for Watershed-Based Trading. U.S. Environmental Protection
Agency, Office of Water. Washington, DC
-------
LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
ADOPTED BY THE LISS POLICY COMMITTEE
February 5, 1998
PHASE III NITROGEN REDUCTION TARGETS
Based upon currently available estimates of treatment performance and costs of nitro-
gen reduction technologies, a "knee-of-the-curve1" analysis was performed to determine
appropriate levels of nitrogen reduction to alleviate hypoxia in the Sound. As a result of
this analysis, USEPA, NYSDEC, and CTDEP recommend:
1. A 58.5 percent2 reduction in the total enriched load1 of nitrogen to Long Island
Sound from point and nonpoint sources within the New York and Connecticut por-
tion of the watershed within 15 years3.
2. Each of the eleven watershed-based management zones established by the LISS
be allocated a 58.5 percent reduction.
3. To administer and enforce the nitrogen reduction targets consistent with the Clean
Water Act, the LISS will develop a Total Maximum Daily Load/Wasteload Alloca-
tion/Load Allocation necessary to meet standards for dissolved oxygen in Long
Island Sound.
A. CTDEP and NYSDEC will work with EPA to develop, by July 1998, a TMDL
necessary to meet the dissolved oxygen standards. NYSDEC and CTDEP will
propose the TMDL in August 1998 and submit the TMDL, as appropriate, to
EPA by December 1998 for approval. EPA will develop the TMDL if it is dis-
approved, as required by the CWA.
The TMDL will include point and nonpoint source controls in the New York
and Connecticut portion of the watershed to meet the 58.5 percent reduc-
tion target.
The TMDL will also include future actions and schedules beyond the 15-
year Phase HI plan for achieving water quality standards, such as the con-
trol of carbon and nitrogen from outside of the LISS management area,
including point and nonpoint sources north of Connecticut in New England,
atmospheric deposition, point and nonpoint sources affecting import from
New York Harbor and The Race, and other alternatives, such as aeration
and load relocation.
The TMDL will include a provision for periodic review every five years and
revision as appropriate.
B. CTDEP and NYSDEC will develop zone-by-zone plans (WLA/LA) by August
1999 to achieve the nitrogen reduction target, highlighting a mix of quantifiable
1. As defined in the January 1997 LISS's Framework for Developing the Proposed Phase III Nitrogen Reduction
Targets.
2. From pre-nitrogen management conditions, defined as the 1990 baseline plus centrate from the cessation of ocean
dumping.
3. From August 1999, the date by which the states will develop zone-by-aone plans to achieve the target.
-------
LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
point and nonpoint source controls to be implemented in each management
zone.
C. CTDEP and NYSDEC will propose modifications to NPDES permits for point
source discharges by August 2000.
incorporating nitrogen loading limits to achieve the point source compo-
nent of the five-year load reduction target, and
requiring that plans and implementation schedules be developed to achieve
the point source component of the nitrogen reduction targets within 15
years.
D. August 2000, CTDEP and NYSDEC will commit to the quantifiable actions
necessary to achieve the nonpoint source reduction component of the five-year
load reduction target.
E. Any new permits issued within this interim period must specifically address A-
C, above.
F. The states will report on progress on the nitrogen reduction targets as part of the
annual Management Conference reporting requirements.
4. 15-year, phased, enforceable schedule, commencing after completion of zone by
zone plans, be established to assure steady progress in achieving the nitrogen
reduction targets
40 percent progress toward the 58.5 percent target reduction within five years
75 percent progress toward the 58.5 percent target reduction within ten years
100 percent progress toward the 58.5 percent target reduction within 15 years
5. Five years after adoption of the nitrogen reduction targets and every five years
thereafter, the LISS will formally evaluate the nitrogen reduction targets, consid-
ering the:
progress and cost of implementation, including a reevaluation of the knee-of-
the-curve analysis used to establish the Phase III nitrogen reduction targets,
improvements in technology, including the results of quality controlled pilot
projects,
the regional dissolved oxygen criteria to be published for comment,
water quality standards,
refined information on the ecosystem response to nitrogen reductions,
the results of peer reviewed modeling, and
research on the impacts of hypoxia to living resources and their habitats.
Each of these factors will be considered in a balanced manner in the reevaluation
process.
A. During each five year period, the LISS, through the advice of the TAG and
CAC, will encourage continued monitoring, modeling, and research necessary
to provide critical information to support the reevaluation of the nitrogen reduc-
tion targets.
B. EPA will complete a report on deriving regional protection limits for dissolved
oxygen.
C. The states will review and revise their water quality standard for dissolved
oxygen.
es
-------
LONG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
D. The LISS will reevaluate the nitrogen reduction targets. The states will con-
firm point source loading limits for ten and 15 years in future permit revi-
sions and commit to the actions necessary to achieve the necessary ten and
15 year nonpoint source nitrogen reductions.
E. The states will review and revise, as appropriate, the TMDL and submit it
to EPA for approval.
I
6. By June 1998, the LISS will investigate the feasibility, cost, benefits, and
drawbacks of establishing a program to allow nitrogen trading within and
among zones in administering the Phase IH reductions, beyond the current
bubble concept already in use in New York. However, under no circumstances
can trading occur if the 1990 aggregate cap has not been met within a manage-
ment zone.
-------
LO__NG ISLAND SOUND STUDY PHASE III ACTIONS FOR HYPOXIA MANAGEMENT
^TIMELINE ._..,_. --._--_. -_: .... ;,.,..-.;1V_.;L;.-;-~
» February 1998 Policy Committee adopts the Phase III Nitrogen Reduction Targets.
June 1998 LISS to report on the feasibility, cost, benefits, and drawbacks of establishing
a program to allow nitrogen trading within and among zones in administering
the Phase HI reductions, beyond the current bubble Concept already in use in
New York.
J uly 1998 States and EPA develop TMDL necessary to meet Nitrogen Reduction Targets.
August 1998 States propose the TMDL.
December 1998 States submit TMDL to EPA for approval.
August 1999
August 2000
February 2003
August 2003
August 2004
February 2008
August 2008
August 2009
CTDEP and NYSDEC wiU develop zone-by-zone plans (WLA/LA) to achieve
the nitrogen reduction target, highlighting a mix of quantifiable point and non-
point source controls to be implemented in each management zone. Fifteen
year implementation schedule begins. i
CTDEP and NYSDEC wiU propose modifications to NPDES permits for point
source discharges, incorporating nitrogen loading limits to achieve the point
source component of the five-year load reduction target, and requiring that
plans and implementation schedules be developed to achieve the point source
component of the nitrogen reduction targets within 15 years.
CTDEP and NYSDEC will commit to the quantifiable actions necessary to
achieve the nonpoint source reduction component of the five-year load reduc-
tion target.
LISS formally evaluates the nitrogen reduction targets considering the progress
and cost of implementation, including a reevaluation of the knee-of-the-curve
analysis used to establish the Phase HE nitrogen reduction targets, improve-
ments in technology, including the results of quality controlled pilot projects,
the regional dissolved oxygen criteria to be published for comment, water qual-
ity standards, refined information on the ecosystem response to nitrogen reduc-
tions, the results of peer reviewed modeling, and research on the impacts of
hypoxia to living resources and their habitats. j
CTDEP and NYSDEC review and revise the TMDL', as appropriate.
CTDEP and NYSDEC will propose modifications to NPDES permits for point
source discharges incorporating nitrogen loading limits to achieve the point
source component of the 10-year load reduction target.
LISS formally performs second reevaluation of the nitrogen reduction targets.
CTDEP and NYSDEC review and revise the TMDL, as appropriate.
CTDEP and NYSDEC will propose modifications to1 NPDES permits for point
source discharges incorporating nitrogen loading limits to achieve the point
source component of the 15-year load reduction target.
August 2014 Nitrogen Reduction Targets achieved.
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