United States	Office of Water	October 1988
Environr
Agency
*>EPA Environmental Protection Washington, DC 20460
Lake
Conservation
Handbook
North American
Lake Management Society

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Written by Lynne Kolze, U.S. Environmental Protection Agency
Design and artwork by Patricia Perry
Typesetting and production by Lura Taggart, JT&A, Inc.
Produced for the U.S. Environmental Protection Agency by
North American Lake Management Society
P.O. Box 217
Merrifield, Virginia 22116
Phone: (202)466-8550

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Introduction
cross the country, in communities large and small, fishermen,
homeowners, farmers and businessmen are working together in
pursuit of a common goal. With ingenuity and persistence they
are achieving significant results and making a lasting contribu-
tion to their community. Their objective? To restore and protect an essential,
yet threatened natural resource —our nation's lakes.
Our lakes, long a source of pride and enjoyment in communities nation-
wide, are currently being threatened by man's activities. At one time un-
spoiled, our lakes are currently filling with sediment from farm fields and
construction sites. As a result, soil particles suspended in the water column
prevent light from penetrating to the lake bottom. In turn, the growth of
aquatic plants and the ability of sight feeders, such as bass, to locate food is in-
hibited.
In other lakes, nutrients in the form of fertilizers and septic tank seepage
are entering the water with rainfall runoff and groundwater movement,
stimulating the growth of nuisance weeds and algae. As weeds and algae die
and decay, they deplete the oxygen upon which other aquatic life depend.
These lakes, which once supported a diversity of fish and wildlife, rapidly
deteriorate. Consequently, the number of people who visit these lakes to boat,
fish and swim decreases significantly.
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What, if anything can be done to reverse this trend? How is it done?
Where do you begin?
Fortunately, a great deal can be done to manage your lake so that its uses
are maximized and its beauty is maintained. Local leadership will be the key to
achieving the long-range goal of clean water. However, to ensure that the
project is a success, community support and participation will be necessary.
How can you gain the support needed to restore, manage and protect your
lake, now and in the years to come?
An essential first step of any lake restoration, management or protection
project is to develop a comprehensive information and education (I&E)
program for the community. A well planned I&E program can often mean the
difference between the success of a lake project or its failure, and between a
community that cooperates and one that is indifferent. Typically, the most suc-
cessful I&E programs are those that originate at the local level. For this
reason, your community should assume a leadership role in developing a
program that will reflect the needs of your particular lake.
The development of information and educational materials is critical to the
success of your lake restoration project since they serve to:
•	INFORM citizens about the lake, why it is polluted, and what can be
done to restore and protect it.
•	CREATE AN AWARENESS of the way in which individual activities
can affect the lake's water quality.
•	MOTIVATE citizens to become actively involved.
•	MODIFY INDIVIDUAL BEHAVIORS that can have a negative
impact upon the lake.
•	COMMUNICATE GOALS AND OBJECTIVES to the public.
The information and education programs should begin early on, while you
and others are defining your lake's problems and identifying methods for solv-
ing them. What does an I&E program consist of? Where should you begin?
Chances are, a group of concerned citizens has already organized in
response to a recognized problem in your lake. This booklet should help you
direct the efforts of your group.
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Getting Started
estoring your lake to its natural beauty is not a task for one or
several concerned citizens. It will require the enthusiasm and col-
lective efforts of citizens living near the lake, as well as those who
travel to the lake to fish, boat or swim in its waters. The greatest challenge will
be to bring these people together and to motivate them to action.
An essential first step in developing a comprehensive I&E program is to
convene an advisory committee. This committee should be comprised of dedi-
cated individuals from the community; they might include educators, scien-
tists, homeowners, recreationists, planners, local officials, etc. These
individuals will be instrumental in defining program objectives, setting realis-
tic objectives and developing and implementing your program.
Development of a comprehensive I&E program is likely to require careful
planning and coordination throughout. As the committee works through the
planning, development and implementation stages, management and negotia-
tion skills will become important.
Early in the process, the committee should assess each member's level of
commitment to the project and what they can contribute in time and ability. It
is important to determine these facts before any firm commitments have been
made.
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Consider:
•	person-hours available
•	skill mix of committee members
•	special expertise of committee members
•	committee members' visibility or sphere of influence in the
community
With this information, the ability of the committee to plan and manage the
program will be significantly enhanced. Once your committee is underway, the
next step should be to gather the background information needed to define
your lake's problems and to set realistic objectives for making the community
aware of the issues.
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Gather Information
o manage an effective public information and education program,
v ), I your committee will need to develop thorough knowledge of the
lake and its watershed. As you conduct the research, you should
concentrate on the interrelationship between the lake and the activities that
take place within its watershed. The research might include:
•	historical and present uses of the lake
•	local discharge permits for municipal and industrial plants
•	local zoning ordinances
•	land use plans
•	surface cover around the lake (i.e., grassed corridors, pavement, etc.)
•	existing lake management strategies
•	recent water quality data
•	drainage patterns and hydrology
•	lake ecology
•	known or perceived sources of pollution
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Much of this information has already been gathered by a variety of or-
ganizations and agencies at the local, State and Federal levels. The agencies
that may help you to get started include:
•	Regional Planning Commissions
•	Soil Conservation Service
•	Agricultural Conservation and Stabilization Service
•	State Natural Resource, Conservation or Water Quality Agencies
•	Local historical societies
•	County Zoning Administrators
•	County Clerks
•	Recorder of Deeds
•	Local experts and technicians
•	Community colleges and libraries
•	State lake associations
•	U.S. Environmental Protection Agency
The more information you are able to gather, the stronger your framework
for planning and decisionmaking will be. Without a firm understanding of the
issues, it will be difficult to focus your energy in the proper direction. In addi-
tion, limited knowledge of the problems may cause your committee to lose its
credibility with the public. Most importantly, the opportunity to educate, to in-
form and to make a difference in your community may be lost.
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Define Your Goals and
Develop a Workplan
ost public outreach campaigns are managed as a series of stages,
with short-term goals and objectives set for each. A workplan,
which lays the foundation for achieving these goals, is often
developed to help focus activity and to ensure that objectives are
met.
Development of short- and long-term goals makes I&E programs more
manageable and prevents such activities as making speeches and writing
newsletters and pamphlets from becoming the primary focus of your program.
As each minor hurdle is overcome, the committee will move closer to achiev-
ing its long-term goals. As you develop these goals for your program, be realis-
tic and do not expect that results will come quickly.
The workplan is an important tool to help you focus your efforts and con-
tinually evaluate progress. It should set a course for your program by ranking
activities and ensuring that goals are achieved in a timely manner. The
workplan might include:
•	a list of expected activities and events;
•	a schedule of implementation; and
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• the names of specific individuals who will be responsible for
managing each activity.
When the workplan is completed, solicit comments from committee mem-
bers and volunteers who will be directly involved in implementing the
workplan. When a consensus has been reached, finalize the plan and proceed.
As you do so, the workplan should be followed closely; however, it may be
necessary to update or revise the plan as goals change or as your particular
situation dictates.
When the I&E program is underway, you should continue to evaluate
whether or not the committee is achieving its objectives. If it is not, it may be
necessary to revise the objectives, or perhaps to re-evaluate the techniques
you are using to get the message out, the message itself, your audience, or the
media you have selected for that audience. In any case, flexibility and persist-
ence will be important if you are to succeed in eventually having the effect you
intend.
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Contact Agencies That
Can Help You
o you feel overwhelmed or confused about how and where to
begin? There a number of organizations that can help you. Often-
times you need not look beyond your own community to find much
of the help you will need. Local educators, technical experts or
retired professionals with public speaking, writing, fundraising or manage-
ment experience may offer the mix of skills that you need to develop and dis-
seminate your I&E materials.
A number of agencies and organizations at the local, state and national
level are also equipped to assist you with your questions. To avoid duplication
of effort and wasting precious resources, determine if what you need has al-
ready been developed by someone else, or, if you need to develop additional
materials specifically to suit the needs of your community, you may wish to
contact any of the following agencies to get information or assistance:
IN YOUR COUNTY:
•	Soil Conservation Service
•	Extension Service
•	Regional Planning Commission
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•	Community colleges
•	Local libraries
•	League of Women Voters
IN YOUR STATE:
•	State Conservation, Natural Resources or Water Quality Agency
•	State Fish and Wildlife Service
•	State Extension Service
•	State Universities
•	State lake associations
AT THE NATIONAL LEVEL:
•	Corps of Engineers
•	U.S. Environmental Protection Agency
•	U.S. Geological Survey
•	U.S. Forest Service
•	National Park Service
•	Bureau of Land Management
•	Living Lakes, Inc.
•	North American Lake Management Society
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Explore Funding Options
nee your workplan has been completed, your next step will be to es-
timate what you will need to get the job done. What will it cost?
Will it fit within your budget? The funds you will need to imple-
ment your public outreach program can often be raised from a number of
sources. In the past, lake associations and community groups have devised a
variety of methods for raising the money they need by sponsoring such ac-
tivities as:
•	fishing derbies
•	lake festivals
•	dances
•	bake sales
•	flea markets
•	raffles
•	soliciting individual contributions
•	collecting contributions from local businesses and industry
•	taxes
•	grants from foundations and governments
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Funding can usually be located if you are determined and enthusiastic
about your cause; however, it is a good idea to begin your campaign early
while research and planning activities are underway.
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Know Your Audience
he secret to any successful information campaign is to know and
understand the audience. Never assume that your audience is
uniform or predictable. Before you develop your program, find out
as much as you can about who your listeners are so that your message is ap-
propriately adapted to their characteristics, attitudes and values.
Characterizing your listeners will allow you to better select the media with
which to reach them most effectively. For example, if your audience is a small
group of shoreline homeowners, you may choose to use a more personal ap-
proach such as personal visits, telephone calls or letters to get your message
across. A large and diverse group, however, may best be reached using
television, radio or newspapers.
Consider the following questions as you analyze your audience:
•	What kind of people does the audience consist of? Men? women?
farmers? homeowners? property owners? business people?
•	What is the age range of the group? What will be the most effective
means of reaching them?
•	How much does the audience know about the topic?
•	Are the listeners likely to be hostile or friendly?
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•	How will each group be affected by the lake restoration project?
Will they perceive it in a negative or positive way?
•	What are their particular needs and concerns in relation to the
project?
A number of controversial issues may arise as you move forward with your
lake project; however, it is important not to shy away from what may be politi-
cally or emotionally sensitive. Whenever possible, surface potential areas of
controversy early and be prepared to address them upfront. It is often possible
to defuse a potentially volatile situation by knowing the probable reaction of
your audience before something becomes an issue.
If you do not know much about your audience or their probably reaction to
your project, contact several of the members and ask them to describe the
background, interests and concerns of fellow members. Remember, it is im-
portant to evaluate each of the audiences to which you wish to get your mes-
sage. This will greatly increase the likelihood that you will achieve the results
that you want.
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Developing and Implementing
Your Information and
Education Program
s you may have noticed, thorough preparation is essential before
the actual development and implementation of your program
can occur. As you begin to develop the materials you need, con-
sider the following guidelines:
1. Evaluate Your Message
As you prepare to develop pamphlets, news releases, brochures or
slide presentations, stop and think carefully about the nature of your
message. The way you phrase or present your message is often as im-
portant as its content. Therefore, think of your message in terms of:
•	Level of complexity — Is the issue too complicated? simple?
technical?
•	Degree of controversy — Will the message alienate or divide your
audience? Will it offend specific groups and create greater
disputes?
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•	Timeliness — Over what length of time will your issue be
important? Is the problem urgent or is it of lower priority than
the other issues?
•	General Appeal — Does the message fit your audience? Will it
be appropriate to their attitudes, beliefs and concerns?
•	Emotional Impact — Might the message anger, infuriate or
alienate your audience? Can it be modified to evoke support,
good will or involvement?
•	Tone — Is the tone of the message positive, negative or passive?
•	Clarity — Is the message clear, concise and effective?
•	Accuracy — Do you have all the facts? Have you doublechecked
the facts that you have to make sure they are correct?
Hints:
As you develop your public information campaign, do remember to:
•	Be calm, patient and thorough
•	Use facts, not emotions
•	Know and understand all the issues
•	Be sensitive to the needs of your neighbors and community
•	Consider different perspectives
•	Be flexible and open to change
•	Expect a few failures before you succeed
Do not:
•	Expect change overnight
•	Assume anything about your audience
•	Shy away from difficult issues
•	Give up until you have gotten your message across
2. Developing Your Programs
You should now begin to think about the structure and content of
your message. Most likely you will have more than one issue that you
want your audience to understand; therefore, a number of separate
programs may need to be developed. Any number of educational
programs can be initiated depending on the problems in your lake
and watershed. You may wish to focus special attention on educating
and informing specific groups that will be directly affected by res-
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toration and management activities, such as farmers, homeowners or
recreationists. Examples of educational programs related to the res-
toration and management of your lake may include:
•	Lake Ecology
•	Interrelationship and Protection of Natural Resources
•	Lake Restoration, Management and Protection Techniques
•	Community Programs to Protect the Lake
•	Residential Management for Preventing Water Quality
Degradation
•	Rural Land Management
•	Regulations That Can Protect Your Lake
•	Training Programs for Citizen Participation
3. Getting the Message Out
A number of mechanisms exist for getting the message to your
audience. Many of them are free or available at relatively low cost.
Make the most of all opportunities to increase awareness and stimu-
late interest. Think carefully about which media best suit your mes-
sage and audience. For example, suppose you want to educate local
high school students about lake ecology. Would a slide presentation,
lecture or field trip be the most effective way to make a lasting im-
pression? In some cases a combination of media may be necessary.
You should continue to experiment and be patient as you go. Several
false starts may be necessary before the proper medium is dis-
covered.
As you match your message with the appropriate media, review your
budget and consider the following options:
The Media
•	Press releases or magazine articles
•	Radio and television talk shows
•	Local celebrity television appearances
•	Television news programs
•	Public service announcements
•	Professional and educational newsletters
•	Printed materials — pamphlets, brochures
•	Public notices
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•	Billboards
•	Paid advertisements
Community Events
•	Lake festivals
•	County fairs
•	Lake beautification events
•	Boat races
•	Parades
•	Fishing derbies
Awards for Participation and Involvement
•	Conservation awards for youths
•	Public servant awards
•	Model implementation awards
•	Participation awards
•	Sponsorship awards
Meetings
•	Public meetings
•	Conferences
•	Symposia
•	Workshops
•	Local club meetings
*
Adapted from page 7 of Getting the Word Out: A Handbook for Planning a
Public Information Campaign, University of Wisconsin Extension, 1980.
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Evaluate the Success of Your
Program and Communicate
the Results
s the final step in your I&E program, assess your committee's
successes, failures and disappointments. What lessons have you
learned? Were your goals unrealistic? Did you expect results
sooner than was probably reasonable? If you could do it over
again, what changes, if any, would you make? What would be your new ap-
proach? Information such as this could be extremely valuable to other com-
munities who are interested in undertaking a similar project. You might want
to consider participating in a state or regional workshop designed to help lake
associations manage their lakes. You might even plan a similar workshop for
neighboring communities that share your concerns.
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For further information on lake management contact the
North American Lake Management Society
P.O. Box 217
Merrifield, VA 22116
(202) 466-8550
For lake management contacts in your state, contact your U.S.
EPA Clean Lakes Regional Coordinator, listed below.
REGION I	REGION VI
Warren Howard	Doug Holy
John F. Kennedy Federal Bldg.	1445 Ross Avenue
Boston, MA 02203	Suite 1200
(617) 565-3541	Dallas, TX 75202
REGION II
Terry Faber
26 Federal Plaza
New York, NY 10278
(212) 264-8708
(214) 655-7140
REGION III
Randy Waite
REGION VII
Lynn Kring
726 Minnesota Ave.
Kansas City, KS 66101
(913) 236-2817
841 Chestnut St.
Philadelphia, PA 19107
(215) 597-3425
REGION VIII
Tom Braidech
999 18th St.
REGION IV
Leonard Nowak
345 Courtland St. NE
Atlanta, GA 30365
(404) 347-2126
Suite 500
Denver, CO 80202
(303) 293-1572
REGION IX
Wendell Smith
215 Fremont St.
REGION V
Don Roberts
230 S. Dearborn
Chicago, IL 60604
(312) 886-1765
San Francisco, CA 94105
(415) 974-0828
REGION X
Sally Marquis
1200 Sixth Ave.
Seattle, WA 98101
(206) 442-2116
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