EPA-625/8-77-001
208 AREAWIDE WATER QUALITY
MANAGEMENT PLANNING
CASE HISTORIES
USSJ
PRCfi
DRAFT COPY
The finished publication can be secured by writing to;
U. S. Environmental Protection Agency
Environmental Research Information Center
Cincinnati, Ohio 45268
ENVIRONMENTAL PROTECTION AGENCY • Technology Transfer
APRIL 1977
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m
h ACKNOWLEDGMENTS
00
Uiis seminar publication contains materials prepared for the
U.S. Environmental Protection Agency technology transfer program and
has been presented at technology transfer 208 seminars throughout the
United States.
The information in this technology transfer seminar publication
was prepared by Alan E. Rimer, P.E., Wiggins-Rimer and Associates,
Durham, North Carolina with the assistance of James A. Nissen, P.E.
and Roger Schecter, AIP. Assistance was provided by Dr. David
Eckftoff of the Salt Lake County 208 Project; Mr. Dory Montazemi, Dr.
Merza Meghji, and Mr. Don Niehus of the Ohio-Kentucky-Indiana Region-
al Council of Governments; Mr. Richard Simms and Dr. Jack Wood of the
Southcentral Michigan Planning Council; Frank H. Chamberlain, III and
David E. Reynolds of Triangle J Council of Governments.
CO
C>
NOTICE
The mention of trade names or commercial products in this pub-
lication is for illustration purposes, and does not constitute en-
dorsement or recommendation for use by the Environmental Protection
Agency.
US EPA . ,
quarters and Chemical LibrariQS
PA West Bldg Room 3340
Mailcode 3404T
13C Constitution Ave NW
Washington DC 20004
202-566-0556
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INTRODUCTION
With the advent of grants to areawide water quality planning agencies
under Section 208 of Public Law 92-500, many agencies have been designated to
undertake water quality planning. While many such programs are in the early
phases of the planning period, others have completed significant portions of
their studies and are implementing the planned programs. The case histories
discussed in this publication are examples of work done by certain agencies
which may be useful to other agencies just beginning their water quality
planning.
This publication presents case histories of five planning agencies which
illustrate approaches to water quality planning as noted:
• Salt Lake County 208 - The implementation of a plan to regionalize seven
treatment facilities into one centralized facility under a single man-
agement agency.
• Ohio-Kentucky-Indiana Council of Governments - Hie development of a rural
nonpoint source model to characterize rural nonpoint contributions as
they relate to major land use types.
• Southcentral Michigan Planning Council - The development of a methodology
to assess water quality conditions in lakes utilizing remote sensing
techniques.
• Triangle J Council of Governments — A comprehensive nonpoint source analy-
sis program based on instream sampling and monitoring and receiving
stream modeling to assess the nonpoint source contributions and magni-
tude of the problems specific to land use types in the study area.
While the methodologies suggested in these case studies have not been
approved by the EPA, and the publication here does not constitute such
endorsement, it is felt that the techniques outlined in these cases may be
applicable for other agencies.
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CONTENTS
Page
Introduction 1
Chapter I. Regionalization of Municipal Wastewater Treatment
Plants in Salt Lake County, Utah 1-1
Introduction 1-2
Hie Jordan River 1-4
The Jordan River Parkway 1-4
Municipal Wastewater Treatment Facilities in Salt
Lake County 1-5
Water Quality Planning for Salt Lake County 1-8
Alternative Selection 1-9
Implementation of the Proposed Regionalized Wastewater
Treatment System for the Jordan Facilities Planning Area . . . 1-12
Operation and Management of the Regional Wastewater
Treatment System 1-12
Legal and Institutional Aspects of the Special
Service District 1-15
Financing and Schedule for Implementation 1-16
Chapter II. Assessment of Rural Nonpoint Sources in the
OKI Water Qiality Management Program II-l
Overview of Area II-2
Nonpoint Source Assessment: Program 11-2
Selecting a Methodology. . 11-4
The OKI Rural Nonpoint Source Model II-4
Nonpoint Source Assessment: Results II-5
Ranges for Parameters Modeled. II-5
Establishing Criteria II-6
Identifying Magnitudes and Problem Sources II-7
Applications of Data in Developing Best Management
Practices 11-7
Testing Alternative Management Approaches. n-9
Strategy for Developing Management Practices 11-11
Implementation of Nonpoint Source Recommendations 11-13
Basis of the Implementation Approach 11-13
Chapter III. The Southcentral Michigan Planning Council
Assessment of Water Quality in Lakes III-1
Background in-1
The SMPC Approach to Assessment of Water Quality
in Lakes m-2
Refinement of Water Quality Information . . III-8
Use of the water Quality Information in Developing
Point and Nonpoint Source Control Strategies 111-10
Hi
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Page
Chapter IV. The Comprehensive Nonpoint Source Analysis
Program of Triangle J Council of Governments IV-1
Overview of Area IV-2
Nonpoint Source Assessment: Program IV-2
Water Quality Sampling and Monitoring Program IV-4
Related Nonpoint Source Studies IV-5
Nonpoint Source Assessment: Results IV-5
Determination of Loading Rates by Land Use Type IV-5
Use of Model to Predict Receiving Stream Impacts IV-7
Ccmparison of Predicted Water Quality with Water
Quality Goals IV-9
Results of Related Studies IV-11
Applications of Data in Developing Best Management
Practices IV-12
Major Nonpoint Source Problems to be Addressed
by BMP' IV-12
Identification and Applicability of BMP's for
the Region IV-12
Nonpoint Source Program and Implementation Strategy IV-14
Focus of Nonpoint Source Program IV-14
Major Actions and Implementation IV-15
iv
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Chapter I
REGIONALIZATION OF MUNICIPAL WASTEWATER
TREATMENT PLANTS IN SALT LAKE COUNTY, UTAH
As a result of organized efforts to upgrade the aquatic environment of the
surface waters in Salt Lake Valley, and to provide needed recreational facili-
ties for a rapidly growing urban area, water quality planning for Salt Lake
County has evolved in a manner unlike that in many other areas of the country.
The Jordan River receives practically all drainage from Salt Lake County and
consequently, is of critical importance to the proper development of water re-
lated recreational facilities. Inital planning for upgrading water quality in
the Jordan River began with basin plans in which point source discharges were
identified as major contributors to pollution levels in the river. The basin
plan made recommendations for regionalized wastewater treatment in Salt Lake
County and emphasized the need for a coordinated approach to implementing the
plan.
With implementation as a goal, the Salt Lake County Council of Governments
was designated an areawide water quality planning agency, and has conducted a
thorough analysis of the needs of the County and alternative approaches to re-
gionalization and implementation. The study has concluded that the seven ex-
isting municipal treatment plants in the Jordan Facilities Planning Area should
be consolidated into one regional facility to provide polished secondary treat-
ment by 1980. Polished (filtered) secondary treatment will be required to meet
the 1980 State of Utah effluent limitations and water quality standards and to
maintain a level of water quality suitable for proposed recreational activities
on the lower Jordan.
It has been proposed that the regional system be managed by a Special Ser-
vice District, or regional management agency, incorporating the existing muni-
cipalities and improvement districts for the purposes of wastewater treatment
only. Wastewater collection systems would continue to be controlled by the'
local agencies. Modifications to the Utah Special Service District Act will
facilitate the implementation of the regionalized concept in Salt Lake County,
both politically and financially. Proposed amendments to the Act, as developed
by the areawide planning agency, are now before the Utah state legislature.
Existing secondary treatment plants will be purchased by the Special Ser-
vice District initially, but will remain in operation until they can no longer
provide an acceptable level of secondary treatment economically. Hie first
phase of construction of the regional facilities will consist of major intercep-
tors connecting the existing plants, polishing units, and some initial biologi-
cal treatment capacity. Secondary effluent will be conveyed from the existing
plants to the regional plant for polishing before discharge. As the existing
plants are abandoned in the future, complete treatment will be provided at the
regional site.
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It is anticipated that in 1977, the regionalization program will move into
the design phase, or Step 2 of the federal construction grant program. The
areawide planning study has essentially completed Step 1 of this process, al-
though local agencies have obtained individual 201 grants to perform infiltra-
tion/inflow analyses. Step 2 will begin with sewer system evaluation surveys
and design of facilities. When Step 3, construction of facilities, is complete
and the regional plant is operational (scheduled for late 1980), the on-going
water quality planning program to control municipal point sources in Salt Lake
County will be completed. It is important to note that water quality planning
began with basin studies and is progressing in a logical manner toward facili-
ties design and construction. In this particular case, areawide planning played
a major role in assuring that recommendations made on the basin level were
actually carried out on the local facilities level.
INTRODUCTION
The Salt Lake County 208 area is located in northen Utah, bordering on the
south shore of the Great Salt Lake. Salt Lake County lies in a valley between
two mountain ranges, the Wasatch Mountains to the east and the Oguirrh Mountains
to the west. The county is essentially a self-contained drainage basin, with
only one major hydrologic input, the Jordan River.
As can be seen in Figure 1-1, the Jordan River flows north from Utah Lake,
through the Jordan Narrows and subsequently, through the valley portion of
Salt Lake County, prior to discharging to Farmington Bay in the Great Salt
Lake. Other major streams in Salt Lake County are those which arise in the
Wasatch Mountains and flow frcm east to west, generally traversing built-up or
urbanized areas in Salt Lake Valley before joining the Jordan River. It is in
these mountain streams, particularly to the east, that emphasis on surface
water quality has been placed in the past. However, rapid urbanization of the
flatter portions of Salt Lake County has renewed attention on the valley surface
waters, and in particular, the Jordan River.
Through the efforts of the Utah Division of Health and the Utah Water Pol-
lution Control Committee, many of the acute water pollution and public health
problems that Salt [£ke County faced in the 1950*s have been brought under con-
trol. However, due to the rapid growth in the valley and the demand for water
related recreational activities, plans for upgrading the entire aquatic environ-
ment of the Jordan River system have been developed around a concept known as
the Jordan River Parkway. These plans require a concerted effort on the part
of the State, county and local agencies to work together in creating a level of
water quality in the Jordan River which will permit the needed recreational
water uses to take place.^ Planning in this direction began with the develop-
ment of basin plans in which recommendations for wastewater treatment in Salt
Lake County were formulated. Areawide water quaUty SSminTStoS i£vT
focused on refinement and implementation of these recommendations.
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I
N-
GREAT SALT LAKE
SALT
MARSHE
SALT LAKE COUNTY
10 Miln
Figure 1-1. The Salt Lake County 208 Study Area
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THE JORDAN RIVER
The Jordan River begins at Utah Lake and meanders approximately 55 miles
northward to the Great Salt Lake. The river gradient is slight, averaging
about 5.2 feet per mile and consequently, velocities are low. River flows are
supplemented by many tributaries entering from the east and are depleted during
the summer by diversions into irrigation canals (illustrated in Figure 1-1).
During the warm summer months, dissolved oxygen levels in the Lower Jordan
River are well below the 6.0 mg/1 standard, as set by the State of Utah for
Class C waters and established as an objective for Jordan River water quality.
Characteristic dissolved oxygen levels are about 3.5 to 4.5 mg/1 in most in-
stances. In addition, high total coliform levels, on the order of 50,000 to
100,000 MPN per 100 ml are characteristic of the lower Jordan. Stream modeling
has indicated that wastewater treatment plant effluents account for at least 40
percent of the dissolved oxygen deficit and sampling programs have led to the
conclusion that a major fraction of the coliforms are attributable to these
discharges as well.
Salt Lake City does not discharge municipal wastewater effluent to the
Jordan River, but rather to the Sewage Canal, shown in Figure 1-1. This water-
course was developed over 100 years ago as a means of transporting wastewaters
to the Great Salt Lake as quickly as possible. The Sewage Canal is highly pol-
luted as a result of both municipal discharges and industries which discharge
wastes with high oil and grease contents. Because of its major use as a dis-
charge channel, the Sewage Canal is not considered a part of the Jordan River
system, but rather an independent aspect of water quality management planning
in Salt Lake County.
THE JORDAN RIVER PARKWAY
Out of the plans to upgrade the aquatic environment of the Jordan River,
grew a concept known as the Jordan River Parkway. When completed in the early
1980's, the Parkway will be a strip park running along the Jordan River and
some of its major tributaries throughout the length of Salt Lake County. Ulti-
mately, the Parkway will include recreational areas along the entire Jordan-
Provo River system.
Parkway development is under the direction of the Provo—Jordan River Parkway
Authority, established by the Utah State legislature in 1973. under existing
agreements, the cost of land acquisition and construction is being shared
equally by the State and local communities. The U.S. Army Corps of Engineers
is also participating in the project, particularly in the area of stormwater
management. The first phase of the Parkway will be developed on the lower
Jordan River in the Salt I^ke City area, due to the need for recreational
activities in that rapidly growing urban area. Primary emphasis will be on
park areas and facilities for boating, fishing, and aesthetic enjoyment.
While the Parkway project is being implemented locally, the areawide plan-
ning agency has given it full support and has worked toward its development.
Of particular importance to water quality planners has been the level of water
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quality in the lower Jordan required to meet the recreational needs of those
using the Parkway. Hie Lower Jordan is heavily impacted by municipal
wastewater treatment plant discharges, and one of the major efforts undertaken
to date in the Salt lake County water quality management program has been in
analysis of the best method available to treat municipal wastewaters to the
level required to maintain suitable water quality conditions in the lower
Jordan River for recreational purposes.
MUNICIPAL WASTEWATER TREATMENT FACILITIES IN SALT LAKE COUNTY
Within the Salt Lake County 208 area, there are three facilities planning
areas and a total of nine municipal wastewater treatment plants, as illustrated
in Figure 1-2. The Salt Lake City treatment plant discharges to the Sewage
Canal and the Magna treatment plant discharges to Kersey Creek, both of which
ultimately drain into the Great Salt Lake. The remaining seven plants
discharge directly to the Jordan River and therefore become critical to the
overall plan for meeting effluent limitations and for upgrading water quality
to meet the needs of the Jordan River Parkway.
Table 1-1 summarizes basic information on the operation of municipal treat-
ment facilities in Salt Lake County. It can be seen that virtually all munici-
pal plants are currently providing secondary treatment according to federal
guidelines. However, the Salt Lake Valley is developing extremely rapidly and
many of these plants are becoming overloaded hydraulically. Even if effective
secondary treatment can continue to be provided in the future, the increased
loadings will continue to preclude the level of water quality desired.
It has been estimated that in order to achieve a level of water quality in
the Jordan River, suitable for recreational purposes, municipal dischargers
will be required to meet a 10 mg/1 BOD and 10 mg/1 suspended solids effluent
limit by 1980. Such a requirement will mean that secondary effluents must be
"polished" using some form of tertiary filtration process to further reduce pol-
lutant loadings to the stream.^ The 10/10 effluent limitations coincide with
1980 standards established by the State of Utah prior to the development of the
1977 and 1983 federal guidelines. The Utah effluent limitations for 1977 and
1980 are summarized in Table 1-2.
For the most part, existing plants in Salt Lake County are meeting or are
close to meeting both the 1977 Utah standards and the 1977 federal effluent
guidelines for secondary treatment. On-going plant expansion in several of the
towns (planned prior to 208 designation) should assure compliance with these
requirements. These interim upgrades, however, do not include any polishing
facilities and therefore, water quality planning with regard to municipal point
sources, has concentrated on developing and implementing the most cost-effective
plan to meet the 1980 Utah standards and provide an adequate level of water
quality in the Jordan River for recreational purposes.
"'"Polished secondary treatment, in this study, refers to treatment above the
normal secondary level, but not as complete as full tertiary treatment, which
might involve chemical addition and/or nutrient removal.
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Figure 1-2. Facilities planning areas and existing municipal wastewater treatment plants in
Salt Lake County
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Table 1-1.—Summary of existing municipal treatment plant operations in Salt Lake County
Treatment Plant
Type Treatment
Design Flow Average Flow*
(mgd) (mgd)
BOD (mg/1)
Influent Effluent
SS (mg/1)
Influent Effluent
Salt Lake City
Trickling Filter
45.0
37.0
140
19
122
30
South Salt Lake
Trickling Filter
4.5
5.0
170
20
165
16
Granger-Hunter
Trickling Filter
7.3
7.3
190
29
190
21
SLC Suburban Sani-
tary District #1
Trickling Filter
16.0
15.0
150
22
160
18
3
Cottonwood
Trickling Filter
8.0
6.7
190
33
190
24
Murray
Trickling Filter
4.0
3.8
200
28
195
21
Midvale"*
Trickling Filter
3.8
5.4
174
33
175
22
Sandy"*
Activated Sludge
1.5
3.0
(data not available)
Magna
Trickling Filter
1.3
1.0
175
22
180
19
^Average flows based cm 1975 records
^BOD5 and SS concentrations indicative of highest levels (winter or summer) at each plant.
Interim upgrading procedures are being completed to meet the state and federal effluent limitations by June 30,
1977.
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Table 1-2.—State of Utah effluent limitations for municipal wastewater treatment plants
Parameter
1977
1980
BOD5 (mg/1)
25
10
Suspended Solids (mg/1)
25
10
Tbtal Coliform (MPN/100 ml)
2000
200
Fecal Coliform (MPN/100 ml)
200
20
PH
6.5-9.0
6.5-9.0
WATER QUALITY PLANNING FOR SALT LAKE COUNTY
Planning to meet the future needs for wastewater treatment in Salt Lake
County began witn the preparation of a basin plan prepared in conjunction with
the Utah State Division of Health and completed in 1975. In this study, exist-
ing water quality conditions and waste treatment facilities in Salt Lake County
were analyzed, waste load allocations developed, and recommendations for future
water quality management schemes made.
One of the major findings to come out of the basin study was the estimated
waste loads from the various categories of point and nonpoint sources in Salt
Lake County. Point sources were broken down into municipal and industrial cat-
egories, and nonpoint sources into irrigation, return flow and urban runoff cat-
egories. Irrigation return flows include rural and agricultural runoff as well
as any water originally diverted for irrigation purposes, but returned to the
stream as excess. The percentage contributions of these four discharge cate-
gories are summarized in Table 1-3.
Table 1-3 —Breakdown of waste loads imposed on the surface waters of Salt Lake County
Source
%
%
%
%
%
Category
Flow
BOD
TDS
Total N
Total P
Municipal
31
59
24
80
67
Industrial
33
15
54
5
29
Irrigation Return Flows
18
2
8
8
1
Urban Runoff
18
24
14
7
3
100
100
100
100
100
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From the data presented in Table 1-3, it can be seen that point source dis-
chargers contribute the majority of the BOD, TDS and nutrient loandings to the
surface waters of Salt Lake County. Furthermore, it can be seen that municipal
treatment plants are contributing the major portion of the overall pollutants
load. This is not to say that nonpiont source discharges are insignificant,
since they are not in many cases. However, the analyses performed in the basin
planning study indicated that the magnitude of municipal point source waste
loads in Salt Lake County warranted the major focus of areawide water quality
planning efforts.
In regard to future wastewater treatment in Salt Lake County, a number of
alternative strategies were developed in the basin study, ranging from indivi-
dual upgrading of existing plants to a series of regionalized approaches apply-
ing various treatment levels. The plan recommended in the basin study called
for two regional treatment facilities, one at Salt Lake City to serve that fa-
cilities planning area and one at Salt Lake City Suburban Sanitary District No.
1 to serve the Jordan Facilities Planning Area. Hie plants would provide pol-
ished secondary treatment by 1980 and the capability of providing full nitrifi-
cation in the future, if conditions so warrant. The basin study did not incor-
porate the Magna Facilities Planning Area into the recommendations for the
County.
As a means of developing a plan of implementation for the recommended re-
gionalization program, Salt Lake County was designated as a 208 area in July,
1975. In order that a comprehensive areawide water quality management plan be
developed, the Salt Lake County 208 Project has evaluated and analyzed the ef-
fects of all point and nonpoint sources of pollution, whether or not they af-
fected the Jordan River and its proposed recreational activities. Clearly
though, the need for the 208 program evolved from basin planning efforts, which
showed the importance of reducing the waste loads emanating from point source
discharges, and in particular, municipal treatment plants. Therefore, the
focus of the 208 work program for Salt Lake County was on developing a workable
program by which the conceptual point source recommendations in the basin study
could be applied, implemented and administered.
ALTERNATIVE SELECTION
The initial aspects of the 208 program were directed toward a reevaluation
of the cost-effectiveness of the alternatives presented in the basin study. As
part of the 208 evaluation of alternatives, municipal wastewater reuse and land
application of secondary effluents were investigated along with the various
treatment and discharge options. The results of the analyses indicated the
following conclusions concerning the most practicable form of treatment in Salt
Lake County:
• Treatment and reuse is not a viable alternative at present in Salt Lake
County, but may become so in the future. There is no current shortage of
good quality water and the costs involved with reuse make this option
economically unattractive.
• Treatment and land application is not economically competitive with treat-
ment and discharge at the treatment levels required for the planning per-
iod. Land costs are very high in the valley and the distances involved in
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transporting effluents from urban areas to suitable sites for land applica-
tion make the costs for such systems excessive.
• Treatment and discharge is the most practicable treatment scheme in all
three facilities planning areas in Salt Lake County during the planning
period. The existing plant site in Salt Lake City is suitable, but op-
timum treatment plant siting in the Jordan and Magna planning areas re-
quires further analyses.
Modeling of the Jordan River indicated that there would be little differ-
ence in water quality if each existing plant in the Jordan Planning Area was
upgraded instead of employing a regional approach. However, the cost of up-
grading the existing plants to meet 1980 effluent standards was found to be
significantly higher than going to the regional system to obtain the same level
of treatment. The three alternative treatment schemes for the Jordan River
planning area are illustrated in Figure 1-3. Cost estimates for these alterna-
tives are summarized in Table 1-4. In addition to cost, the advantages of
consolidated management and control over treatment plant operation made the
regionalized approach more attractive than the individual plant concept.
Table 1-4 — Summary of costs for wastewater treatment1 alternatives in the Jordan Facilities
Planning Area2
Equivalent Annual Cost ($ million)
Alternative 1
Local^ Total
Alternative 2
Local^ Total
Alternative 3
Local^ Total
South Salt Lake
0.49
0.91
0.27
0.73
0.27
0.73
Granger-Hunter
0.70
1.31
0.49
1.32
0.49
1.32
SLC Suburban San-
itary District #1
1.14
2.13
0.93
2.50
0.93
2.50
Cottonwood
0.78
1.46
0.54
1.45
0.54
1.45
Murray
0.42
0.78
0.22
0.58
0.22
0.58
Midvale
0.83
1.55
0.46
1.24
0.77
1.55
Sandy
0.46
4.82
0.86
9.00
0.29
3.20
0.78
8.60
0.48
3.70
0.97
9.10
^Costs shown are for polished secondary treatment
2
Does not include Salt Lake City and Magna planning areas
3Based on present worth analyses using ENR index = 2,200, an interest rate of
6 1/8 percent and a 20 year planning period.
^Based on 75 percent federal funding of new grant eligible construction
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S. SALT LAKE
SRAIMCR - HUNTER
COTTONWOOD
EL
ALT. I - UPGRADE EXISTING PLANTS
ALT. 3 - TWO REGIONAL PLANTS
LEGEND
• EXISTING TP
o TP TO BE ABANDONED
® PROPOSED REGIONAL TP
PROPOSED REGIONAL
INTERCEPTOR
ALT. 2 - ONE REGIONAL PLANT
Figure 1-3. Municipal treatment alternatives for the Jordan Facilities Planning Area
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Based on the cost figures shown in Table 1-4, Alternative 2, or the single
regional plant configuration, was found to be the most cost-effective for the
Jordan Planning Area, given comparable levels of water quality in the Jordan
River for each of the alternatives. This analysis verified and confirmed the
preliminary recommendations made in the basin study, which also called for a
single regional plant at the site of the existing SLC Suburban Sanitary Dis-
trict #1 plant to serve the Jordan Facilities Planning Area.
IMPLEMENTATION OF THE PROPOSED REGIONALIZED WASTEWATER TREATMENT
SYSTEM FOR THE JORDAN FACILITIES PLANNING AREA
Operation and Management of the Regional Wastewater Treatment System
Under Utah State law, wastewater collection and disposal services can be
provided by individual municipalities or improvement districts. These bodies
can own and operate their own facilities or contract for the services from an-
other municipality or improvement district. Of the seven plants in the Jordan
Planning Area, three (South Salt Lake, Murray and Sandy) are run by municipal-
ities and four by improvement districts. A total of 14 municipalities and im-
provement districts are served by the seven plants. With the inception of the
Jordan River Parkway and its recreational potential for Salt Lake County, the
need for coordinated control of wastewater treatment systems became apparent.
In recognition of this need, the areawide planning agency has recommended, with
State of Utah concurrence, that the regional treatment system should be owned
and operated by a "Special Service District."
The Utah Special Service District Act of 1975 gives special authorities
and responsibilities to an agency (or district) whose boundaries may overlap
existing improvement districts and municipalities. The Act was specifically
designed to provide for adequate, economical, and equitable public works and
services in rapidly growing areas. The Act provides that each municipality or
improvement district can elect whether or not it wishes to participate in the
consolidated Special Service District concept. The Salt Lake County Council of
Governments feels however, that by working with each local unit, the substan-
tial cost benefits to each will become apparent and that responsbile coopera-
tion between than can be realized without danger to individual rights or prerog-
atives. Although no formal agreements have been signed with any of the local
municipalities or districts, each has indicated an intent to participate in the
regionalization program and to work out the specific elements of the implemen-
tation plan.
The general organization structure of the proposed Special Service District is
illustrated in Figure 1-4. Its principal features are summarized below:
• The organizational structure as shown, would be adopted through resolution
of the Salt Lake County Board of Commissioners as set forth in the Act.
. An Advisory Board would have general managerial responsibility for opera-
ting tne Special Service District. The Board would be carnosL of re-
presentatives from the 14 existing districts
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Figure 1-4. Organizational structure of the proposed Special Service District
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• A general manager would have direct responsibility for operating the Spe-
cial Service District under the general direction of the Advisory Board.
• Existing districts and municipalities would continue to have the responsi-
bility for wastewater collection and for all of the related administrative
and financial functions needed to support the wastewater collection pro-
gram.
• The Special Service District would be a financially autonomous body and
would obtain bonded financing to build the needed regional treatment facil-
ities. Operating costs would be borne by the users of the facilities, ac-
cording to the amount and type of wastewater treated. This would be gov-
erned by contractual agreement between the Special Service District and
the individual collection district or municipality.
• The existing seven plants would be equitably purchased by the Special Ser-
vice District and continued in operation. When it becomes uneconomical to
continue their individual operation, they would be phased out of service.
The first phase of regional treatment plant construction will consist of
the following elements:
• Major interceptor lines connecting the existing secondary treatment plants
with the regional facilities.
• Secondary treatment capacity sufficient to treat raw wastewater from at
least two of the existing plants initially. It is envisioned that when
the regional plant comes on-line in late 1980, the existing plants at Mid-
vale and Sandy will be abandoned. The other five existing plants will con-
tinue to operate until it becomes uneconomical for them to do so or when
they can no longer provide an acceptable level of secondary treatment.
• Polishing facilities to treat all flows receiving secondary treatment
either at one of the existing plants or at the regional plant. Secondary
effluents from those existing plants remaining in operation will be
conveyed to the regional facility for polishing prior to discharge to the
Jordan River.
Initial purchase of the existing plants will eliminate any competition be-
tween the Special Service District and the local agencies and will provide for
objective decisions on when to phase these facilities out of service in the fu-
ture. Initial purchase will also equitably reimburse those districts and muni-
cipalities who have made investments in the past, and provide a future for plant
personnel in terms of advancement within the Special Service District operations
staff.
As the existing treatment plants become phased out of operation, their un-
treated wastewaters will be collected in the interceptors and conveyed to addi-
tional secondary treatment facilities at the regional plant site. This phased
construction of regional facilities will provide for maximum use of investments
made in existing plants and should be more in line with the anticipated availa-
bility of federal construction grant funds.
It has been recaitmended by the areawide planning agency that only waste-
water treatment come under the purview of the Special Service District and that
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wastewater collection systems remain in control of the local municipalities and
districts. The reasons supporting this recommendation are:
• That collection systems are often complex and a detailed knowledge of an
area's potential problems and unique characteristics is often required to
assure reliable service.
• That customers of a collection system require quick, responsive service if
problems do arise, something which can best be provided on a local basis.
Hence, the planning agency has concluded that wastewater collection systems
should be operated and maintained on the local level, totally apart from the
treatment of those wastewaters by the Special Service District.
The consolidated Special Service District concept for regionalized waste-
water treatment in Salt Lake County also has potential benefits to the area
which go beyond initial operation and management of regional wastewater treat-
ment facilities. In order that water quality problems in the County be ad-
dressed in a comprehensive manner, nonpoint sources of pollution, such as urban
and agricultural runoff, must be controlled as growth continues and the inter-
face between rural and developed land uses becomes more critical. The Special
Service District will be in a position to assist in efforts made to apply best
management practices throughout the County. Hie Special Service District may
also be able to assist in the development of adequate future water supplied for
the County and to work with adjacent regions to the south and east where much
of the surface water in Salt Lake County originates.
Legal and Institutional Aspects of the Special Service District
The Special Service District Act provides that the Special Service Dis-
trict shall be a totally separate body, distinct from each county, municipality
or improvement district within its boundaries; but that the governing authority
of the County shall supervise and control all activities of the District. The
Act further provides however, that the County may delegate the performance of
any or all such activities to an Advisory Board, which is the case with the
District being proposed for Salt Lake County. This provision in the Act has
created some problems since Salt Lake County cannot delegate to the Advisory
Board the authority to levy taxes or issue bonds payable from taxes, and there-
fore, the Special Service District will not be a totally autonomous body. Con-
sequently, seme anxiety has developed among local officials concerning the re-
lationships between the Special Service District, its Advisory Board and Gen-
eral Manager, and the Board of County Commissioners.
The planning agency, in cooperation with legal and management consultants,
has analyzed and evaluated the existing situation and developed a strategy for
better Advisory Board control of District activities through amendment to the
Act. For example, it is proposed that it be made mandatory that 1) the Advi-
sory Board become a permanent body made up of one representative from each of
the existing districts and municipalities; and 2) that the Special Service Dis-
trict be financially autonomous with no mixing of District funds with moneys
for other County activities. At the present time, these provisions are condi-
tional on the part of the county involved, and making them mandatory will ease
some of the anxiety on the part of local officials. The Utah state legislature
is expected to act on these and other amendments to the Act in early 1977 as a
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result of the areawide investigations. There has been no organized opposition
to the amendments and their approval is expected.
Financing and Schedule for Implementation
It is estimated that purchase of existing secondary treatment facilties
will amount to approximately $16.3 million and that construction of the initial
phase of the regional plant (interceptors, polishing facilities and some biolo-
gical treatment units), will cost another $50 million, with $13.5 million the
local share. The Special Service District, under the authority of Salt Lake
County, will have the power to issue general obligation bonds, revenue bonds or
a combination of the two, as might be appropriate. The bonds will be paid from
operating revenues generated from charges levied on the local municipalities
and improvement districts providing wastewaters to be treated. While not final
at this time, it is expected that charges will be made on the basis of flow for
wastewaters within a standard strength range. Surcharges would then be made
for high strength wastewaters, based on a mutually agreeable formula.
Actual purchase price for existing treatment facilities will be negotiated
with each individual owner, based on the facility's assessed value at the time
of purchase. Method of payment will also be negotiated individually to best
meet the needs of the municipality or improvement district involved, and will
tie in the form of treatment credit or cash, or derived from some other mutually
agreeable formula. Upon abandonment of the existing facilities, ownership of
all associated land, buildings and equipment will automatically revert back to
the municipality or improvement district originally holding title to them.
Current plans call for the creation of the Special Service District in
early 1977 with bond elections being held later in the year. With general
agreement from each of the municipalities and districts concerning the regional
concept, passage of a bond issue does not appear to be a problem. Upon funding,
the design of the initial phases of the regional plant can begin, with construc-
tion to start in late 1978 or early 1979. The regional facility should be op-
erational by late 1980.
1-16
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Chapter II
ASSESSMENT OF RURAL NONPOINT SOURCES IN THE
OKI WATER QUALITY MANAGEMENT PROGRAM
As a major element of its areawide water quality managment planning pro-
gram, the Ohio-Kentucky-Indiana Council of Governments (OKI) developed a meth-
odology for identifying and assessing rural nonpoint source pollution problems.
Beginning its program in July, 1974, OKI recognized that, while urban nonpoint
source problems had received considerable attention in other areas, information
concerning rural contribution and problems was almost non-existent. As a
selected course of action, OKI developed the rural runoff model for application
in the study area which is 85 percent rural.
The OKI model is based upon the Soil Conservation Services' Universal Soil
Loss Equation. Hie OKI model and the approach for assessing rural nonpoint
sources provided for each of the 226 rural watersheds, an estimate of the non-
point source loadings, an identification of problem uses within watersheds, and
a means of evaluating alternative management practices for alleviating
identified problems.
Model results indicated that gross erosion ranged from 0.02 to 32.5 tons
per acre per year under existing conditions and provided estimates of sediment,
nutrient and organic matter loads. To determine the relative magnitude of the
erosion problems, criteria were established for cropland, grassland, and wood-
land uses, based upon "allowable soil loss." Using the OKI model, watersheds
with particular problems were identified and alternatives for reducing erosion
through improved management were tested. Reductions in erosion were calculated
and public costs to implement the tested control measures were estimated.
The model results and supporting information were used to develop a rural
nonpoint source control program which keys on the effective application of
management practices in prioritized problem areas, and demonstrates the need
for an increased Agricultural Conservation Program through local Soil and Water
Conservation Districts. Strong support has resulted from the OKI program for
sediment control legislation in Ohio and Indiana and such legislation is
pending. Prior to the OKI water quality management planning efforts, supporting
documentation in regard to rural nonpoint source problems and abatement
alternatives had not been available.
The OKI model was the culmination of much original research and its devel-
opment and application cost approximately $200,000. The OKI model has proven
its effectiveness and will be utilized as a continuing planning and evaluation
tool.
II-l
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OVERVIEW OF AREA
The Oiio-Kentucky-Indiana Regional Council of Governments (OKI) was organ-
ized in 1964 and functioned as a single purpose transportation and development
planning agency. OKI broadened its responsibilities in 1973-1974 to include
all aspects of regional planning in the form of a Council of Governments. OKI
is governed by a one hundred member Board of Trustees composed of elected offi-
cials and appointed representatives. Policy is established by the Executive
Committee which is formed from members of the Board of Trustees. The continu-
ing objectives of OKI are to promote cooperation among local agencies, to con-
duct studies, perform planning services, and function as the regional project
review and comment agency.
OKI was designated by the Governors of Ohio, Kentucky, and Indiana to
undertake the areawide water quality planning effort. The water quality man-
agement process at OKI was begun in July, 1974 and is guided by the ninety
member Water Quality Advisory Committee. Serving on the Committee are elected
officials, local and State agencies, technical representatives, private citi-
zens, and representatives of citizens groups.
From the beginning, the areawide water quality planning process addressed
all aspects of water quality. With regard to nonpoint source problems, OKI
recognized that considerable attention in other areas had focused on urban non-
point source problems. By comparison, information on rural nonpoint source
pollution was found to be almost non-existant. OKI, because of the strong
rural influence in the region, undertook to develop a rural nonpoint source
methodology and model as a major input to the overall areawide water quality
planning process.
The 3,000 square mile planning area includes nine of the Council of Govern-
ments' ten counties. As shown in Figure II-l, four of these counties are in
Ohio, three in Kentucky and two in Indiana. At the center of the study area is
the urban core represented by the cities of Cincinnati, Covington and Newport.
There are over one hundred municipalities in the area and numerous special pur-
pose districts. Population of the planning area was 1.6 million in 1970 and is
projected to increase to 2.2 million by the year 2000. Employment in the re-
gion is industrially based. Hydrologically, the area is dominated by the Ohio
River and the tributary basins of the Great Miami River, Little Miami River,
Licking River, and Mill Creek. More than eighty percent of the region's popu-
lation lives on fifteen percent of the land. In contrast to the urban core,
eighty-five percent of the region is rural. The rural areas are characterized
by cropland and grazing activities, although much of the land is steep and
wooded.
NONPOINT SOURCE ASSESSMENT: PROGRAM
Because of the strong influence of rural land uses in the OKI region, par-
ticular emphasis was directed toward determining the rural contribution to non-
point source pollution problems. Urban runoff was assessed utilizing modeling
techniques developed by the Corps of Engineers in STORM. The staff of OKI was
interested in developing a model to assess the rural nonpoint source
contribution.
II-2
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H
H
OJ
i
-N-
I
River
Figure 11-1. Ohio-Kentucky-Indiana 208 Study Area
-------
Selecting a Methodology
Considerations of an OKI rural nonpoint source assessment strategy were
based on several objectives which included:
• assess the pollutant loadings from rural watersheds
• determine the relative magnitudes of point and nonpoint
sources in a stream segment
• assess the impacts of nonpoint source pollution on water quality
• select alternative management combinations to control
significant nonpoint sources from rural areas.
In selecting the desired course of action, OKI considered three general
approaches for estimating the quantity and quality of runoff from rural areas.
One approach was to use extensive sampling and monitoring to assess runoff from
watersheds. Even if the approach were carried out on selected watersheds, OKI
concluded that such a methodology had several limitations not the least of
which were time consumption and expense. Another approach considered was the
use of a "black-box" predictor to multiply acreage values for various land uses
by previously established unit runoff values to derive total loads. Limitations
of this approach were considered to be the lack of flexibility in taking into
account the numerous other factors, particular to the region, which exert an
influence on nonpoint source pollution. The third approach was considered to
overcome the limitations of the first two and this selected approach is des-
cribed in this paper.
The OKI Rural Nonpoint Source Model
To determine the nonpoint source loadings, OKI developed a rural non-
point source model which focused on the Soil Conservation Services' Universal
Soil Loss Equation (USLE). Erosion was recognized as the greatest potential
rural nonpoint source pollutant problem, not only because of the delivery of
suspended solids but because of the adsorbed nutrients and organic materials
that sediments carry to the streams. The USLE was applied to individual
watersheds to develop estimates of gross soil erosion. This estimate was then
multiplied by a sediment delivery ratio to determine the amount of solids
carried out of the watershed. Additionally, nutrients and organic loads were
established from reported chemical analyses of sediment or known nutrients
levels and enrichment ratios for soils in the region. Because the input values
for the OKI model had been developed historically for use in the USLE, litera-
ture values were readily available, and since specific physical characteristics
of the watersheds could be determined, extensive stream sampling and monitoring
were not undertaken. With this methodology, OKI could determine the average
annual loadings for certain parameters and use these as a means of estimating
water quality conditions. The types of pollutants which were considered in-
cluded sediments, nutrients (nitrogen and phosphorus), and organic matter.
The OKI region was divided into 233 watersheds, of which 226 were predomi-
nantly rural. Watersheds ranged in size from 20 to 100 square miles. As input
to the OKI model, data specific to each of the rural watersheds was gathered.
In determining the land use in each watershed, three categories were delineated
by the interpretation of LANDSAT satellite imagery: cropland, woodland, and
grassland. These categories were selected because they were easily interpreted
with satellite imagery and were the predominant land uses influencing rural
11-4
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water quality in the OKI region. Acreage data and maps were generated from
this analysis.
Data on soil associations (particularly erodibility) were gathered and a
matrix was developed for soil/land use mixes using the satellite generated map
overlays and Soil Conservation Service soil maps. A mix, such as soil with
high erodibility with a woodland land use, would not pose as great a potential
water quality problem as a cropland use on the same soil. Information concern-
ing topography, type of crops, crop rotations, and general ground cover condi-
tions for each soil type/land use mix within each watershed was also tabulated.
Additionally, information concerning the type and extent of existing conserva-
tion practices in each watershed was compiled from interviews with area Soil
and Water Conservation District personnel.
Each of these factors has its particular influence on runoff quality and
quantity from rural areas. By using the OKI model, specific characteristics of
soils, type of land use, and management conditions was combined with drainage
characteristics, rainfall data, and hydrograph information to estimate annual
loads from each of the 226 rural watersheds.
Through the OKI model, estimates of annual quantity of pollutants for the
watersheds were derived by three primary steps: computation of surface erosion;
sediment yield; and computation of pollutant loadings. Pollutant parameters
for which loadings and concentrations were calculated consisted of chemical
oxygen demand, biochemical oxygen demand, total nitrogen, and total phosphorus.
The development of the OKI rural nonpoint source model was the culmination
of considerable original research and development. Development of the model,
obtaining the input data, testing and refining the model, and generating the
output data involved approximately $200,000 of the OKI water quality planning
funds. A specific description of the OKI model computational procedures is
available in the 1975 publication, "A Method for Assessing Rural Nonpoint
Sources - Interim Report V." This publication is available from the Water
Planning Division (WH-554), EPA, Washington, D.C. 20460.
NONPOINT SOURCE ASSESSMENT: RESULTS
The OKI model and the approach for determining rural nonpoint source pol-
lution problems were developed to provide an estimate of the nonpoint source
loadings, to identify problem watersheds, and to evaluate alternative best man-
agement practices for alleviating identified problems.
Ranges for Parameters Modeled
Model results for each of the 226 rural watersheds indicated that the
estimated erosion rates ranged from 0.02 to 32.5 tons per acre per year under
existing conditions. Ranges for average annual loadings to area streams for the
parameters under consideration are shown in Table II-l. These calculated
average annual loadings were compared with reported values in the region and
the literature, and were found to be in general agreement with them.
II-5
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Table 11-1. —Ranges for average annual loadings
Parameter
Range over Watersheds
Sediment Yield
0.16 to 1.72 tons per acre
Total Nitrogen
0.96 to 10.3 lbs per acre
Total Phosphorus
0.1 to 1.22 lbs per acre
Organic Matter
1.77 to 20.68 lbs per acre
Source: OKI, Staff Working Paper, 1976.
Establishing Criteria
Since no State standards for nonpoint source parameters existed, it was
necessary to establish a basic set of criteria on which the relative magnitude
of nonpoint source problems could be based. Considerations in establishing the
criteria focused on the technical feasibility of meeting the criteria, and the
ability to implement the various control measures. After analyzing the alter-
native strategies which could be applicable in a rural setting, OKI decided
that a single criterion governing sediment was desirable. In rural areas, the
control of sediment was considered to be feasible, in terms of implementation,
because farmers could identify with economic benefits of decreasing topsoil
loss. Water quality improvements could also be realized with a reduction of
sediment yield and the associated nutrients and organic matter being carried to
streams by the sediment.
Therefore, the criterion selected was the "allowable soil loss" as esta-
blished by the Soil Conservation Service. This gross erosion rate criterion is
specific to soil type and soil/land use factors which were being used in the
OKI model. The allowable soil loss is generally defined as the maximum rate of
soil erosion that would allow a high level of crop production to be sustained
economically and indefinately. Although the criterion is based on crop produc-
tion, water quality benefits would be realized by meeting the allowable soil
loss limits. OKI was aware that farmers were more likely to implement control
measures which would improve their crop yields than to support measures solely
directed toward improved water quality.
For cropland, the allowable soil loss was established as a range from one
to five tons per acre per year gross erosion. For other land uses in rural
areas, values were determined from literature review and were established to be
one ton per acre per year for grassland and 0.5 tons per acre per year for wood-
land. With these criteria set, each watershed was analyzed, those areas not
meeting the criteria were identified, and total acres of each land use requir-
ing conservation measures were calculated. In this manner, the OKI model en-
abled potential water quality improvements to be maximized by concentrating im-
plementation efforts in identified problem watersheds.
II-6
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Identifying Magnitudes and Problem Sources
To carry the analysis of rural nonpoint source problems a step further,
relative magnitudes of pollution frcm point sources, rural nonpoint sources,
and urban nonpoint sources were compared. Such analyses provided insight into
which source represented the most significant contribution to water quality
problems. The analyses were carried out by modeling stream segments, and the
results indicated the relative importance of each source in a particular seg-
ment. Average annual loads for sediment yield, BOD5, nitrogen, and phos-
phorous were calculated and compared. An example of this output for Segment I
of the Great Miami River Basin (from the Ohio River to river mile 10) is pre-
sented in Table I1-2.
Table 11-2. — Comparison of annual loads by source — Segment 1, Great Miami River Basin
Source Annual Loads (Tons)
% of
% of
% of
% of
Sediment
Total
BOD,
Total
Nitrogen
Total
Phosphorus
Total
Nonpoint Rural
13,754
94
75.7
27
41.26
55
8.38
43
Nonpoint Urban
826
5.5
13.5
5
5.07
7
1.68
9
Industrial
42
0.3
168.4
60
17.35
23
5.00
25
Municipal
35
0.2
23.5
8
11.03
15
4.42
23
Source: Chapter VI, OKI Draft Water Quality Management Plan.
Within the urban watersheds it was determined through the use of STORM,
that nonpoint source runoff from urban areas was not as significant a water
quality problem as the industrial and municipal point sources. In rural water-
sheds, varying degrees of nonpoint source problems, related to sediment, were
identified under existing land use conditions. Figure II-2 illustrates average
annual sediment yield for the watersheds within the Great Miami River Basin as
determined by the OKI model.
APPLICATIONS OF DATA IN DEVELOPING BEST MANAGEMENT PRACTICES
Through the analysis of nonpoint source pollution problems in rural areas,
watersheds with existing problems (gross erosion in excess of the allowable
soil loss criterion) were identified. Relative contribution with regard to
soil/land use mix were determined so that potential controls to abate the non-
point source pollution could be related to the contributing source. Consequent-
ly, alternative control measures or best management practices were developed as
II-7
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— NOT TO SCALE-
LEGEND
I 10.00 -0.50
0.50 -0.75
0.75 - 1.00
1.00 - 1.50
Figure 11-2 Average annual sediment yield in tons per acre for existing conditions —
Great Miami River
-------
they related to reducing the erosion rate and soil loss under cropland, grass-
land, and woodland uses.
Testing Alternative Management Approaches
The strategy was to apply and test alternative control measures in problem
watersheds through the use of OKI's rural nonpoint source model. With control
measures in place, differences in gross erosion were calculated and relative
improvements in the nonpoint source problems were determined. The application
of the best management practices for rural uses was not undertaken to produce
site specific, detailed control measures which would be required, but rather to
exemplify the utility of best management practices and demonstate the benefits
which could be derived. Data and results were utilized to support the need for
and encourage the implementation of management practices.
For cropland areas, three alternatives were tested to demonstrate the
effectiveness of control measures in reducing erosion. These management prac-
tices were established, though not uniformly applied, in area farm operations.
For cropland areas which were identified by the OKI model as having very high
erosion rates, the tested alternative was a change in land use (i.e., change
from cropland to woodland). In crqpland area with less severe rates, manage-
ment practices included minimum tillage and improved crop rotation. Similarly,
in woodland and grassland areas with erosion problems, improved management
practices such as increased brush cover, reforestation, and better grazing
practices were tested. Depending on the degree of the problem, extent of the
particular land use, and level of treatment considered appropriate, the man-
agement practices being tested were applied in each watershed within a river
basin. The OKI model predicted the effectiveness of the management practices
in terms of the reduction in gross erosion.
An example of the application of best management practices is illustrated
in the case of the Great Miami River Basin. Applicable land treatment measures
were applied to the 49 watersheds of the Great Miami and Whitewater River
Basins based upon the acreages of the three land uses in each watershed identi-
fied as needing treatment. For those land uses needing treatment within the
Great Miami Basin, 70,400 acres were cropland, 41,700 were grassland, and
20,300 were woodland. It was estimated that within the Great Miami Basin, 61
percent of the gross erosion was from cropland, 35 percent from grassland, and
4 percent from woodland. By applying best management practices to the aggre-
gate basin, the overall reduction in gross erosion was calculated for two al-
ternatives.
Figure II-3 shows the findings of this analysis in the Great Miami and
Whitewater Basins of the Great Miami River. For the Great Miami Basin, it can
be noted that, by applying alternative 1 (woodland improvement, grassland im-
provement, and cropland practices improvement), a greater reduction in gross
erosion could be realized than with alternative 2 (changing from cropland im-
provement to minimum tillage). Under the management practices of alternative
1, gross erosion could be reduced by approximately 35 percent. It is of signi-
ficance that in the Whitewater basin, improvements in grassland management
alone would greatly reduce the gross erosion.
For those management practices which were analyzed in the Great Miami
Basin, total annual public costs were calculated. Public costs are those which
II-9
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PROPORTIONS OF RURAL LAND USES BY RIVER BASIN
® ©
LEGEND
WOODLAND [=~ GRASSLAND
llllllll
CROPLAND
501
z
o
CO
o
in 40'
CO
(A
o
K
©
30-
u.
o
20-
10-
o
OB
111
0.
0 J
I
i
ALT I
GREAT
RIVER
ALT 2
MIAMI
BASIN
I
ALT I
u y y
ALT 2
WHITEWATER
RIVER BASIN
LEGEND
¦I WOODLAND IMPROVEMENT
I 1 GRASSLAND IMPROVEMENT
MINIMUM TILLAGE ON CROPLAtV
IMPROVEMENT IN CULTURAL
PRACTICES ON CROPLAND
Figure 11-3. Reduction in annual gross erosion rate with application of
best management practices - Great Miami River
H-10
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would be borne by the federal government under the existing cost-sharing pro-
gram. As shown in Table II-3, these costs were subdivided according to manage-
ment techniques. When applied to the Great Miami Basin as a whole, the total
annual cost approaches $685,000 (Table II-4). This figure represents the cost
for the basin controls associated with the cost-sharing program of the federal
Agricultural Conservation Program. This program is administrated through the
Agricultural Stabilization and Conservation Service in the U.S. Department of
Agriculture. Direct costs to individual farmers were not calculated because of
the complexities of dealing with a variety of potential conservation practices
for a particular tract of land.
Table 11-4.— Summary of nonpoint source control costs for Great Miami River Basin
Land Use
Cropland
Woodland
Grassland
Acres Needing
Treatment
70,400
20,350
41,700
Weighted Average
Annualized Cost
$6.52/ac/yr
$1.77/ac/yr
$4 ..53/ac/yr
Total Annual
Cost
$459,000
$ 36,000
$188,900
$683,900
Source: Chapter VI, (SCI Draft Water Quality Management plan.
It should be noted that only a portion of the $685,000 is an expenditure
for the direct benefit of pollution abatement. As stated earlier, meeting the
allowable soil loss criterion is already an established agricultural objective,
so cost savings and increased crop yields vould benefit area fanners. Other
cost savings resulting from the management practices analyzed would be a re-
duction in flood damages and dredging costs associated with sediment build-up
in streams.
Strategy for Developing Management Practices
In the nonpoint source analysis undertaken for the Great Miami Basin, a
limited number of specific management alternatives were considered in the OKI
model. The approach utilized for the other river basins in the region was
similar. Hie objective of this analysis was to demonstrate the potential re-
duction of rural nonpoint sources through the application of best management
practices rather than to develop a detailed conservation plan for the basin.
OKI determined that a reduction in gross erosion could be accomplished by the
sound application of other management practices on specific tracts of land with
specific characteristics and problems.
11-11
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Table 11-3.— Rural nonpoint source control costs by management technique for
Great Miami River Basin
Management Unit Cost1 Practice Life Annualized Cost
Technique ($/acre) (years) ($/acre)
Cropland
Annual Cover 3.89 1 3.89
Sod in Rotation 24.34 3 8.11
Terraces 12.61 10 1.26
Permanent Cover 51.05 5 10.21
Weighted Average 6.52
Woodland
Livestock Exclusion 20.00 25 0.80
Woodland Improvement 20.00 10 2.00
Weighted Average 1.77
Grassland
Pasture Management 18.00 4 4.50
Pasture Planting 70.00 10 7.00
Weighted Average 4.53
^Represents average cost of practice as cost-shared by Agricultural
Stabilization and Conservation Services.
Source: Chapter VI, OKI Draft Water Quality Management Plan.
11-12
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To assist agricultural interests in implementing management practices to
reduce erosion, several more specific practices were described and assessed as
part of the water quality management plan. The range of management practices
which was developed is shown in Table II-5. Since these best management prac-
tices are basically variations of the modeled practices, costs and effective-
ness associated with them on a regional basis would be similar to those of the
modeled practices.
IMPLEMENTATION OF NONPOINT SOURCE RECOMMENDATIONS
Throughout the assessment process for rural nonpoint source pollution,
very close coordination was maintained with the various Soil and Water Conser-
vation Districts, Soil Conservation Service representatives, and agricultural
extension agents in the region. These groups assisted in supplying the re-
quired information to OKI in developing the rural nonpoint source assessment
procedure, and participated in discussion and deliberations of the significance
of the data and model results including potential measures for control.
Basis of the Implementation Approach
The focus of OKI was to address rural nonpoint source problems on an area-
wide basis, provide estimates of pollutant loadings, establish broad recommenda-
tions for control measures or best management practices to reduce erosion from
rural land, and estimate the public or federal cost to implement these control
measures.
The overriding conclusions of the OKI rural nonpoint source program was
that erosion poses significant problems, it can be controlled, and multiple
benefits could be derived from the application of best management practices to
rural land uses. Through institutional analyses, it was determined that exist-
ing groups and agencies had the capacity to implement rural nonpoint source
control practices. These organizations, however, needed background data for
prioritizing approaches to solve the problems and needed funding at a greater
level than currently existed.
Traditional rural conservation programs in the OKI planning area have
dealt with the problem through education and technical assistance. Through
these means, agricultural extension agents and district conservationists demon-
strated the effects of erosion and described various control measures. To en-
courage the application of management practices qualifying land owners can re-
ceive financial assistance through the cost-sharing program. This program is
currently administered at the local level on a first come first served basis
and the level of funding is small, ranging from $10,000 to $15,000 per county.
As a means of implementing the rural nonpoint source program, OKI is working
closely with the County Soil and Water Conservation Districts to encourage the
allocation of existing cost-sharing monies on a problem area priority basis
which includes the objectives of improved water quality. Prior to the water
quality management planning effort, no supporting data which pin-pointed pro-
blem areas and demonstrated the effectiveness of control measures for a parti-
cular basin had been available. Increased funding for cost-sharing programs on
a long-term basis is being actively encouraged through the U.S. Department of
Agriculture.
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Table 11-5. — Best management practices developed for rural nonpoinl source control
Cropland Management
Tillage Alternatives
Terraces
Diversions
Stripcropping
Contouring
Grassed Waterways
Pipe Outlets
Crop Rotations
Cover Crops
Timing Field Operations
Sod-based Rotations
Other Practices
Agricultural Chemicals
Chemical Registration
Approval of Application Methods
Applicator Licensing
Alternatives to Chemicals
Grassland Management
Grassland Planting
Grassland Management
Grazing
Woodland Management
Livestock Exclusion
Improved Management
Livestock Management
Feedlots
detention ponds
settling areas
grass filters
Pastureland
animals per land ratio
productive forage
limited access to streams
erosion control
Source: Outline for Chapter V, OKI Draft Water Quality Management Plan.
11-14
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In addition to encouraging conservation programs on a problem area prior-
ity basis, OKI realized that the cost-sharing program needed to be more than
voluntary to effectively reduce erosion. The adoption of a mandatory program
had more far-reaching impacts than just those counties in the OKI planning
area. Such programs must have a legal basis at the state level and need suffi-
cient funding to implement the program. Within the three states of the OKI
planning area, Indiana and Ohio have begun work on state-wide sediment control
legislation. Legislative action on the Ohio bill is expected in 1977 and this
bill is further along the legislative process than the Indiana bill. Both,
however, provide for greatly expanded Soil and Water Conservation District pro-
grams in terms of authority and staff funding. (3(1 is actively supporting the
legislation of both states. Position papers in conjunction with area district
conservationists have been prepared, and the OKI staff has joined with other
water quality planning areas in Ohio to strongly support passage of the bill as
a cornerstone in their efforts to implement the nonpoint source control program.
To provide assistance to individuals and organizations in carrying out the
best management practices, OKI developed within the Water Quality Management
Plan a more specific list and explanation of available management practices
which could be used. Each of the major river basins in the planning area has a
chapter of the plan devoted to that basin's characteristics, existing water
quality, assessment of pollutant loads and contribution of sources, a review of
alternatives to correct the identified water quality problems, and a recommended
plan specific to that basin.
Recently, meetings have been conducted with each of the six Soil and Water
Conservation Districts to discuss the findings of the rural nonpoint source
assessment and demonstrate the benefits of land conservation techniques. These
groups have been provided with presentation materials which they could use in
their meetings with district farmers. Similar meetings have been held with the
various 208 advisory committees concerning the recommendations of the full
Water Quality Management program and with a key organization, the OKI Regional
Conservation Council. This citizens council acts as a mechanism to coordinate
the activities of Soil and Water Conservation Districts with the various county
governments. Also, public hearings are being scheduled (beginning in March)
for the full Water Quality Managment Plan recommendations for each of the five
river basin plans being drafted.
The final Water Quality Management Plan is scheduled for completion in
July, 1977. Of prime importance in implementing the rural nonpoint source
program, as well as other water quality considerations, is the continuing
planning functions at OKI. In regard to the rural nonpoint source program,
functions of the continuing planning agency will includes
• Monitoring the implementation of rural nonpoint source program.
• Working with agencies, groups, and individuals in support of state
erosion control legislation.
• Providing technical assistance and developing best management practices
demonstration projects.
• Determining the success of management practices.
• Analyses of water quality problems which could not be adequately
addressed in the initial planning effort.
11-15
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The primary means of implementing the best management practices for rural
areas is through a strengthening of existing mechanisms. OKI has demonstrated
the utility of various broad management practices toward conserving valuable
land resources for agricultural use and improving water quality by reducing
sediment loads. An understanding of the benefits which could be derived
through best management practices has been developed with agricultural exten-
sion agents, SCS district conservationists, area Soil and Water Conservation
Districts, and the farmers they represent. The need for developing soil con-
servation plans has been well established and costs to implement management
practices have been estimated. Implementation of the rural nonpoint source
program hinges on the availability of money, particularly through the State and
federal allocations for local cost-sharing programs. Agricultural interests and
OKI staff feel they now have the data to strongly support requests for addition-
al allocations for conservation plans, and can adequately show the benefits for
water quality as well as agricultural production frcm such rural nonpoint
source control mechanisms. The OKI rural nonpoint source model will have con-
tinuing input through the program implementation period. It will be utilized
to assess the effectiveness of specific management practices and will be re-
fined as a planning and evaluation tool.
11-16
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Chapter III
THE SOUTHCENTRAL MICHIGAN PLANNING COUNCIL
ASSESSMENT OF WATER QUALITY IN LAKES
The Southcentral Michigan Planning Council (SMPC) has identified water
quality in lakes as one of the major problems to be addressed in its areawide
planning program. In addressing this problem, the SMPC saw a need to develop a
methodology for water quality assessment which could be used in working with
local lake associations and governmental units both now and on a continuing
basis. Toward this goal, a system utilizing LANDSAT 2 satellite imagery has
now been established to indicate bio-indices which reflect overall water qual-
ity conditions throughout a given lake.
The information developed by the lake assessment program does not provide
quantitative water quality data. Hie purpose of the remote sensing approach is
to identify indicators of various water quality conditions which in turn, are
being used in conjunction with soils, topographic and land use information to
delineate specific problem areas and probable causes. This tool, the end pro-
duct of the water quality assessment program, has been used to establish alter-
native strategies for best management practices (BMPs) on a local level.
As a continuing planning tool, the system will allow the SMPC to work with
local lake associations and governmental units in monitoring the progress of
programs designed to improve water quality. By using water quality conditions
identified over time in conjunction with changing land use patterns and im-
proved agricultural practices, the relative success or failure of alternative
BMP strategies can be evaluated. In this way, the beneficial impact of the
water quality management program on the region can be realized on a continuing
basis.
BACKGROUND
In 1973, the Southcentral Michigan Planning Council (SMPC) was formed as
the regional planning agency for the Counties of Barry, Branch, Calhoun, Kala-
mazoo and St. Joseph and in June, 1975 was funded to develop an areawide water
quality management plan under Section 208 of the Federal Water Pollution Con-
trol Act Amendments of 1972. Ihe region includes two major urbanized areas:
the Cities of Kalamazoo and Portage with a combined population of about
130,000; and the City of Battle Creek with a population of about 40,000. The
present overall population in the region is estimated to be approximately
500,000 persons. Land use in the region varies considerably, from downtown
urban and industrial areas to rural, agricultural and recreational areas. Over-
all, however, the region is dominated by non-urban land use categories.
Hi-1
-------
The SMPC region forms a part of the Lower Lake Michigan drainage basin and
contains portions of three major contributing river systems. These rivers are
the Thornapple, Kalamazoo, and St. Joseph. In addition to the major river
systems, there are several hundred lakes within the region, ranging in size
from several acres to several square miles. While most of these lakes are
natural or man-made parts of river systems, many are self contained with no
significant tributary flow. Figure III-l illustrates the existing land use,
the major river systems, and the predominance of lakes throughout the five
county planning area.
Over the years, a considerable amount of water quality information has
been collected on the various river systems, in order to monitor the discharge
of municipal and industrial wastewater effluents. This effort has been inten-
sified in recent years as a result of on-going 201 facilities planning studies.
Specific localized water quality data, primarily of a biological nature, has
also been collected by various institutional and private organizations on many
individual lakes in the region. However, none of the information generated has
been comprehensive enough for regional purposes, and with but a few exceptions,
has not identified any contributions from nonpoint source pollutants.
In developing the areawide planning program for the region, the SMPC saw
the need to focus on water quality problems felt to be of most importance by
the people living in the region. Two basic objectives were identified and
addressed by the planning agency. One of the basic objectives was to tie the
various on-going 201 planning studies into a comprehensive plan for point
source wastewater management. Hie other objective was to more clearly identify
water quality in the region's lakes, and to formulate plans for improving water
quality where problems were seen to exist. Water quality in lakes is consi-
dered to be the biggest unresolved water quality problem in the region. It is
in this area that the SMPC has developed a unique method for assessing water
quality in lakes and a tool with Which the impact of applying best management
practices (BMPs) on the local level can be monitored over time on an individual
lake basis.
THE SMPC APPROACH TO ASSESSMENT OF WATER QUALITY IN LAKES
The largest source of existing water quality information in the region is
maintained by the Michigan Department of Natural Resources (DNR). The State
has set up and operated a series of permanent monitoring stations which have
generated a wide ranging data base for use in overall water quality planning
efforts. These monitoring stations are predominantly located on the major
river systems. While numerous studies have been undertaken by DNR and other in-
stitutional and private agencies on specific lakes in the region, the data gen-
erated has not been comprehensive enough for areawide application. Consequent-
ly, the development of a procedure for assessing general water quality in lakes
was necessary to identify potential problem areas associated with then.
The basic problems with regard to lake water quality in the region are re-
sidential development and surface runoff. Many of the lakes having recreation-
al potential have recently had homes built around their periphery. The major-
ity of these lake developments are not included on municipal sewerage systems
and therefore, must rely on subsurface systems for wastewater treatment and dis-
posal. As a result of high groundwater levels, these disposal systems have not
III-2
-------
~ figure nr-i *
"fjaj|| i*' Jj * f ¦ j* SouthcantralttichlganPl»m»tog CoutkjII
EJJ7w!Tai
III-3
-------
been adequate in many instances and have contributed significantly to increased
nutrient loadings to seme lakes. In addition, runoff from nearby agricultural
lands and fertilized residential lawns has created increased nutrient levels in
many lakes, and stormwater runoff from newly developed and agricultural areas
around the lakes has led to increasing sediment loads as a result of land dis-
turbing activities.
Given the large number of lakes in the region and the time and financial
constraints of the SMPC water quality management program, it would have been
impossible to sample and generate laboratory data for each specific lake. It
was also felt that water quality sampling data per se, would not be of substan-
tial benefit in identifying problems and developing potential solutions. While
sampling and laboratory analysis would generate specific constituent levels at
the sampling point, it would not necessarily depict the overall condition of
water quality in various sections of the lakes unless each section was sampled.
In addition, the sampling approach would be cost prohibitive on a continuing
basis and therefore, could not be used as a continuing method of developing and
evaluating the success or failure of local best management practices utilized
to up grade water quality. It became apparent that a system was needed to as-
sess general water quality in a lake, not necessarily through the use of para-
metric data, but through the use of bio-indices which could lead to the identi-
fication of particular problem zones throughout a lake, and ultimately to the
potential causes of the problems.
lb ward this objective, the SflPC staff and their consultants worked with
the Bendix Company, Aerospace Systems Division, in developing a methodology for
identifying different aquatic biological community types using LANDSAT 2 satel-
lite imagery. Multi-spectral scanners in the satellite record reflected light
from the earth's surface at an altitude of 570 miles. Land and water features
exhibit different light reflectance characteristics and a particular feature
will exhibit a particular reflective index. Shallow water for example, has a
different reflective index than deep water or water with emergent vegetation.
Some features may have similar reflective indexes and consequently, computer
analysis of the satellite imagery is required-to separate or categorize the
particular features into the desired classifications.
Using multi-spectral analysis techniques, it was possible to interpret the
satellite imagery to delineate bodies of water and then separate various aqua-
tic classifications within them. These classifications were categorized (or
calibrated) according to known biological communities and available water qual-
ity information on specific lakes. By classifying these communities according
to their reflective index, a number of biological index categories were devel-
oped for use in defining water quality. Six biotic communities were establish-
ed as indicators of general water quality in lakes throughout the region. The
six oio-indices chosen were interpreted to be indicative of the water quality
conditions illustrated in Table III-l.
The categories noted in Table III-l are the predaminent bio-indices in the
lakes of the region as determined by computer interpretation of LANDSAT 2 data.
It is not possible to determine relative concentrations using this procedure,
and therefore, only the predominant feature is indicated by computer interpreta-
tion. interpretation of a lake is done by analysis of 1.1 acre grids to provide
a complete water quality profile over the lake area.
III-4
-------
Table 111-1Bio-indices identified using LANDSAT 2 imagery
Water Quality Category
Shallow clear water
Blue-green algae
Green algae
Emergent vegetation
Silts and sediments
Deep clear water
Explanation
Water generally considered to have a low algal,
silt and sediment content. The water may be shal-
low or appear so because of submergent vegetation
or some other factor limiting light penetration.
Water considered to have blue-green algae concen-
trations in excess of levels normally found in cold
water plankton populations. It generally is an in-
dicator of high nitrate and phosphorous levels and
warm water temperature, resulting in eutrophication
Water considered to have green algae concentrations
in excess of those normally found in cold water
plankton pupulations. It is an indicator of nutri-
ent rich wates, containing high phosphorous levels
as well as high levels of nitrates, which may be
somewhat cooler but nonetheless, subject to eutro-
phication.
Waters generally dominated by plant life covering
much of the surface. It may also indicate organic
bottoms or very shallow waters exhibiting such char-
acteristics as algal blooms.
Waters dominated by high levels of soil particles
or organic matter in suspension. Included in this
category would be suspended benthic materials,
heavy detritus, zooplankton having a large percen-
tage of debris and possibly heavy concentrations of
bacteria and other non-algal organics. It may be
indicative of heavy organic or nutrient loads where
conditions are not favorable to algal or plant
growth.
Waters not nutrient enriched beyond normal levels
for a cold water lake. The waters may be naturally
eutrophic, but do not contain heavy concentrations
of phytoplankton or zooplankton. This category is
an indicator of generally good water quality as
based on records and opinions of the Michigan De-
partment of Natural Resources.
In order that the public became involved in the lake assessment program
and become aware of its value as a continuing planning tool, the assistance of
the SMPC Water Quality Commission's Citizens Advisory Committee was solicited.
IVienty lakes of specific interest to members of the committee or of known water
quality were used for testing the validity and benefit of the procedure. Color
photographs of the computer video display unit, indicating the nature of water
III-5
-------
quality in these lakes, were prepared and distributed to the local lake associ-
ations involved. These lake associations are made up of local residents who
nave specific interest in maintaining the integrity of lakes in their area and
have detailed knowledge of water quality conditions in the lakes. The lake
associations were informed of what the photographs depicted and for what use
they were intended. They were asked to verify the information shown, based on
their knowledge and visual inspection of the lake systems. Replies were re-
ceived from the lake associations and for the most part, the water quality
information depicted on the color photographs was verified as being accurate.
Furthermore, acceptance of the program was widespread and its usefulness in
identifying potential problem areas was established.
Figure III-2 is an example of the color photographs taken of the computer
video display unit. Shown in this particular figure are Austin and West Lakes,
both of which are located in the SMPC region and serve as contrasting illustra-
tions of the information which can be derived from the water quality assessment
program. The colors in the figure indicate bodies of water, with the black
background constituting land. Each colored block, as indicated earlier, repre-
sents an area of approximately 1.1 acres. Austin Lake is the lake to the right
in the figure with West Lake shown to the left.
Austin Lake appears to be a shallow lake with areas of green and blue
algae problems, particularly in the northwest, east and southeast portions of
the lake. These areas probably indicate the presence of inadequate subsurface
disposal systems adjacent to the lake. Scattered areas of silt and sediment in-
dicate some potential problem with stormwater drainage systems discharging into
the lake. West Lake contrasts with Austin Lake in that its major water quality
problem appears to be silt and sediment. Nutrient loadings to West Lake do not
appear to be nearly as high as in Austin Lake, but stormwater runoff, from adja-
cent residential development and nearby agricultural lands, is causing signifi-
cant amounts of sediment to be washed into the lake.
As illustrated in Figure III-2, the information developed from the program
has been directed toward a qualitative comparison of lake water quality through-
out the region. The program has not attempted to provide a quantitive analysis
of the biological or chemical constituents of a specific lake water. However,
the bio-indices identified can be compared on the basis of percent area classi-
fied in each category to provide a method for ranking the significance of vari-
ous water quality problems in a given lake system. The conceptual approach of
the program has the limitation of not being able to consider the intensity of
localized problems (i.e., relative density of algal populations or relative con-
centration of silt and sediment). It is able to examine broad problems, how-
ever, and is suitable for correlation with existing land use data to aid in the
identification of potential causes of those problems. Hie result of the assess-
ment program is an overall evaluation of water quality problems in lakes with
respect to soils, topographical features and land use patterns. The information
can then be used in working with local lake associations and governmental units,
such as municipalities and townships, to develop alternative strategies for sol-
ving specific water quality problems.
The key to the development of this water quality assessment program was
public participation, both for political and financial reasons. Obviously, it
took a great deal of work on the part of the SMPC staff and consultants to syn-
thesize existing water quality data for use in calibrating and categorizing
III-6
-------
QQLQR
BLUE
LIGHT BLUE
GREEN
RED
YELLOW
DARK BLUE
legend
WATER QUALITY CATFGORV
SHALLOW, CLEAR WATER
BLUE-GREEN ALGAE
GREEN ALGAE
EMERGENT VEGETATION
SILT AND SEDIMENT
DEEP, CLEAR WATER
Figure 111-2. Example of LANDSAT generated col.or photograph for Austin and West Lakes
III-7
-------
computer interpretations of the LANDSAT 2 imagery. However, the role of the
public sector in verifying the results and accepting the program as a benefi-
cial tool, with which problems could be identified and solutions sought, was
critical in making the approach effective.
REFINEMENT OF WATER QUALITY INFORMATION
The initial remote sensing work was performed to evaluate the viability of
using satellite imagery for assessing general water quality conditions in lake
systems. The use of the categorized imagery also provided a means of obtaining
field verification of the information and promoting public participation in the
program. However, in order to make use of the information for technical pur-
poses in identifying and solving problems, it became apparent that refinement
of the satellite imagery interpretations would be needed to estimate the in-
tensity of local water quality problems. As noted earlier, the refinement anal-
ysis was not possible through the use of color photographs and was not an ini-
tial objective of the lake assessment program. The need for refinement evolved
during the initial phases of the program however, and brought a research orien-
ted element into the work effort.
Discussions with the Laboratory for Applications of Remote Sensing (IARS)
at Purdue University indicated that potential refinement of the water quality
information was a possibility. The LARS system, known as LARSYS, utilizes the
same satellite technology and a similar computer interpretation system to that
of the system at Bendix. The main difference in the way the two systems are
being used by SMPC is that LARSYS will generate the water quality information
in standard computer output form, instead of color photographs. A LARSYS
printout provides a line-column designation for each grid in a body of water,
thereby allowing surface cross-sectional analyses to be performed and the
accuracy of the information to be better determined.
An example of a LARSYS printout, showing ten water quality categories, is
shown in Figure III-3. The lakes shown are again Austin and West Lakes, shewn
in color in Figure III-2, and based on the same satellite imagery (June, 1973)
used in the Bendix interpretation. However, the LARSYS interpretation provided
ten water quality categories, within acceptable confidence limits, where initial
analyses provided only six.
Based on the LARSYS interpretation, Austin Lake shows large areas of sub-
merged vegetation throughout the west, central and south portions, and appears
to be severely eutrophic. However, the pockets of blue-green algae are isolated
and apart from tne submerged vegetation. It appears that the submerged plants
may be serving to tie up nutrients and thus limit algal growth. Isolated areas
of organic sediments, due predominantly to local drainage, can also be seen in
Austin Lake. West Lake appears to have heavy organic sediment loads as well as
a large amount of submerged plants. The problems with this lake appear to be
associated with drainage from surrounding bog-type lands which are easily dis-
turbed by development and other human activities.
While the analyses derived from the LARSYS interpretations of the June,
1973 satellite imagery are not significantly more detailed than those derived
from the Bendix interpretations, LARSYS has the additional capability of being
III-8
-------
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LEGEND
CLASS
EMERGENT VEGETATION
EMERGENT VEGETATION
& SHORE EFFECTS
MARL & LOAM SILT
GREEN ALGAE
BLUE-GREEN ALGAE
EMERGENT a SUBMERGENT
VEGETATION
PLANKTON (ZOOPLANKTON)
DETRITUS 8 ORGANIC
SEDIMENTS
SUBMERGED VEGETATION
CLEAR WATER
Figure 111-3. Example of LARSYS printout for Austin and West Lakes
-------
used in conjunction with a mobile, truck mounted spectrophotometer to increase
resolution to an area as small as an eight-inch diameter circle. This means
that by using the truck mounted unit at the same time the satellite is passing,
more detailed information within the standard 1.1 acre grids can be obtained.
This information, combined with selective sampling and laboratory analysis can
result in relative compositions and concentrations of bio-indices and a greater
number of water quality categories in future efforts.
Of major concern to the SMPC staff was the cost of providing water quality
information on the many lakes throughout the region. A comprehensive sampling
and laboratory analysis program would have cost hundreds of thousands of
dollars and would have been cost prohibitive. On the other hand, the initial
work at Bendix, to evaluate the potential for examining water quality using
satellite imagery, cost approximately $2,000 for an analysis of about 40 lakes.
The work at IAR5, in refining the computer interpretations and providing more
detailed information regarding relative compositions and concentrations, will
amount to about $22,000 for the analysis of approximately 300 lakes. It should
be emphasized that much of this cost is related to development of a system to
provide the specific information desired by SMPC. Once the system is set up,
the major costs will be in the area of computer time, which amounts to about
$250 per hour. Representative runs indicate that a printout of water quality
categories for five lakes can be accomplished in less than ten seconds of com-
puter time. This corresponds to a cost of less than one dollar per lake. While
tne cost of operating the truck mounted unit must also be included in some
cases, it can be seen that the overall approach of using satellite imagery to
analyze lake water quality in the SMPC planning area is cost-effective on a con-
tinuing basis and was a positive factor in its development.
USE OF THE WATER QUALITY INFORMATION IN DEVELOPING POINT AND
NONPOINT SOURCE CONTROL STRATEGIES
As an areawide planning tool, the remote sensing of lake water quality has
been used, in conjunction with storm runoff and stream modeling, to generate
BMPs on a sub-basin level. In a sense, areawide BMPs are being defined on a
broad conceptual basis, with actual point and nonpoint source control measures
being developed and implemented on a local basis. This type of analysis was
made possible by the nature of the water quality information generated by
IARSYS. Since the drainage areas of many of the lakes constitute major portions
of sub-basins, the information generated on water quality can be used to assess
the overall impact of stormwater runoff from those sub-basins.
The most important use of the remote sensing water quality information as
a planning tool is in the assessment of the impacts of changing land use around
the lakes. The original satellite imagery, used to develop the color photo-
graphs, was taken in June, 1973. More recent information, to be generated by
LARSYS, will be based on satellite imagery taken in July, 1976. The changes in
land use during that period are expected to indicate resulting changes in water
quality, based on the results of other on-going studies dealing with water qual-
ity in specific lake systems. These changes in land use are most prevalent
where residential development around the periphery of lakes has accelerated in
recent years. The water quality information generated to date has also been
used by facilities planning agencies in establishing the fact that water qual-
ity in the region's lakes has changed due to the increasing number of septic
III-IO
-------
tank systems in close proximity to them. Where the replacement of subsurface
disposal systems by sewerage systems may be viable in some cases, the SMPC has
shown, using the same water quality information, that sewers may not be the
answer in all cases and that there are other nonpoint sources of pollution
which could be controlled to produce viable alternative solutions.
Several specific nonpoint source pollution problems have been verified on
lakes in the region as a result of the water quality assessment program. For
example, Goquac Lake has been verified as being severely impacted by stormwater
runoff from surrounding residential development. Gull Lake has been verified
as being impacted by septic tank discharges and fertilizers from residential
lawns. Barton Lake has been verified as being impacted by the discharge of
treated municipal wastewater. Several other lake systems have been shown to be
degraded due to agricultural contributions of silt and nutrients.
By using the lake assessment program to identify current and past water
quality conditions, and correlating this information with existing and past
land use data, SMPC is able to verify problems caused by inadequate control of
land use activities. With this information, it will be possible to suggest
controls, which might for example, guide development or impose subdivision
regulations in the vicinity of lakes.
The initial areawide plan will provide model ordinances, needed sediment
control procedures and other forms of control strategies which can be adopted
and implemented locally. The SMPC will then monitor land use activities and
reassess the lakes annually to provide information either confirming the need
for the controls or proving that the controls are not effective and other
methods need to be considered. The importance of such a continuing program is
emphasized by the fact that the majority of townships surrounding lake areas do
not now control land use and/or development activities as they relate to water
quality. In some areas, the SMPC will monitor specific lake systems to deter-
mine the impact of proposed sewer systems, which are currently in the facili-
ties planning phase. If it is found that lake water quality is continuing to
be degraded after these systens have been constructed, the annual updates will
serve as evidence that other control measures, besides wastewater collection,
are needed.
Since the initial public participation in verifying the water quality in-
formation originally developed, support of the program has grown significantly.
Two existing lake boards, which were formed by the Michigan legislature, and
have the authority to regulate development and assess costs for facilities, are
actively involved in facilities planning studies and are investigating the pos-
sibilities of obtaining federal lake restoration grants using SMPC information
to document problems. At least seven other local lake associations, which do
not have the authority to legally regulate or levy assessment, are investi-
gating the possibilities of similar grants through their elected officials. In
addition, many other lake associations are actively investigating measures, one
of which might be to become a designated lake board, in order to better control
water quality related activities.
To date, no specific control strategies have been implemented as a direct
result of the water quality assessment program. The water quality assessment
program has identified general water quality problems and local water quality
priorities are now being established. As each sub-basin is evaluated in detail
in terms of land use, surface runoff and water quality, these priorities will
III-ll
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be used in establishing specific local control programs. The public has been
kept in tune with the water quality assessment, they have verified its accura-
cy, become aware of its benefit to than on a local level, and now are laying
the political groundwork for establishing some of the controls that they and
local governments will ultimately implement as a result of the program.
111-12
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Chapter IV
THE COMPREHENSIVE NONPOINT SOURCE ANALYSIS
PROGRAM OF
TRIANGLE J COUNCIL OF GOVERNMENTS
The Triangle J Council of Governments (TJCOG) initiated work on their
water quality management planning program in May, 1974. The 1,750 square mile
planning area is located in the central Piedmont section of North Carolina, and
twenty-two units of local government are participating in the water quality
management planning process. The three-city urban core contains 68 percent of
the region's population and the surrounding area is predominantly rural.
One of the major elements in TJCOG's areawide water quality management
program was an in-depth study of nonpoint source pollution in the region. The
approach used was a comprehensive pollution source analysis which was designed
to assess existing and projected water quality and analyze the source, dura-
tion, magnitude and extent of nonpoint sources specific to the planning area.
An extensive water quality sampling and monitoring program was conducted
over a twelve-month period. Automatic sampling was conducted under storm event
conditions on seven watersheds or catchments, each with a predominant land use,
to determine pollutant loading rates particular to each land use type. Larger
catchments with many land use types were also sampled. Utilizing the data
gathered in the sampling and monitoring program and the selected model, Storm
Water Management Model, pollutant loading rates for each of four predominant
land use types were determined. To assess in-stream impacts of nonpoint source
pollution, these loading rates and stream hydrographs for seventy-eight catch-
ments were input to RECEIV II, the selected receiving stream model. The models
were run under existing and projected development patterns and the modeled
parameters included BOD, suspended solids, total Kjeldahl nitrogen, and phos-
phorus.
The results of the model runs were compared to staff developed preliminary
1983 water quality goals for particular pollutants. Specific nonpoint source
pollution problems were documented for suspended solids, phosphorus, dissolved
oxygen, and lead. The nonpoint source management program was developed to re-
duce these pollutant levels through immediate control measures for suspended
solids and longer range measures such as proposed state-wide legislation for a
comprehensive stormwater management act.
The cost for developing and carrying out this extensive sampling, monitor-
ing, and modeling effort was approximately $400,000. In addition to establish-
ing an extensive nonpoint source data base, stormwater runoff and receiving
stream models were developed and calibrated specifically to the planning area.
The models are now operational and serving as a continuing planning and evalua-
tion tool of TJCOG. The experiences gained and conclusions drawn from this
comprehensive nonpoint source assessment approach have provided significant
input to the TJCOG areawide program and will provide useful guidance to other
agencies undertaking water quality management planning.
IV-1
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OVERVIEW OF AREA
The Triangle J Council of Governments (TJCOG) is the State designated
regional planning agency for North Carolina Region J and is located in the
central Piedmont section of the State. The Council is governed by locally
appointed delegates who are elected officials of member cities and counties.
The primary objectives of TJCOG are to prepare regional plans and studies,
serve as the project review and comment agency (A-95), provide a forum for
discussion of regional issues, and assist member governments in various aspects
of planning.
The Governor, in 1973, designated TJCOG as the lead agency to undertake
water quality management planning in the region. Twenty-two local governments
within the designated area adopted concurrent resolutions "to develop and im-
plement a coordinated water quality management plan for the region." The
Triangle J region and the designated water quality planning area are shown in
Figure IV-1. The study area, in the Piedmont physiographical region of the
State, is within the drainage area of the Neuse and Cape Fear River basins.
Two multi-purpose Corps of Engineer reservoirs, the B. Everett Jordan and Falls
of the Neuse with a combined project area of 89,000 acres, are proposed for the
area.
Three counties (Orange, Durham, Wake) and portions of two others (Chatham
and Johnston) make up the 1,750 square mile study area. Seventeen municipali-
ties, including the urban triangle formed by the cities of Raleigh, Durham, and
Chapel Hill are within the study area. With the exception of this urban core,
the region is primarily rural and is characterized by small towns and agricul-
tural activity. Population of the planning area in 1970 was 428,000 and 68 per-
cent of this population lived in the three-city urban area. Raleigh is the
State Capital and although the governmental sector is the largest employer,
manufacturing is a close second. The Research Triangle Park, a nationally re-
cognized center for industrial and governmental research facilities, is located
between the three cities of the urban core.
NONPOINT SOURCE ASSESSMENT: PROGRAM
One of the major focal points of the Triangle J water quality management
program was an in-depth study of nonpoint source pollution in the region. Hie
comprehensive effort in pollution source analysis was the first such effort
conducted under the provisions of Section 208, and was designed to assess
existing and projected water quality and analyze the source, magnitude, and
extent of pollution specific to the Triangle J planning area. In addition to
providing direct input to the water quality planning program, the approach also
served as a demonstration effort to determine the feasibility of characterizing
nonpoint source pollution as it relates to land use through extensive sampling,
monitoring, and modeling. Through this analysis, nonpoint source pollution was
analyzed and computer models were developed to serve as water quality planning
and evaluation tools for the region. Approximately $400,000 was expended to
develop and carry out this comprehensive effort. The major objectives of the
assessment elements of the program were as follows:
IV-2
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1
OJ
10 Miles
Figure IV-1. Triangle J Region and 208 Study Area
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• Conduct sampling of streams under storm event conditions and analyze
samples to develop field estimates of nonpoint source pollution loads for
selected representative urban and non-urban watersheds.
• Monitor specific stream reaches continuously to permit evaluation of the
impact of pollutant loads on water quality.
• Select appropriate computer models to predict nonpoint source runoff and
its impact on the major receiving streams in the planning area.
• Collect watershed data, including land use, soil type, and slope and stream
channel data for use in the selected computer models.
• Calibrate and verify with collected data, computer models for nonpoint
source runoff and receiving stream response for the area.
• Assess the probable impact of pollutant loads on water quality in proposed
reservoirs in the region.
Water Quality Sampling and Monitoring Program
An extensive sampling program was conducted over a twelve-month period
to determine the nature and extent of nonpoint source pollution specific to the
planning area. The water quality data for receiving streams was obtained by
the use of six continuous water quality monitoring stations. These stations
were established on major streams and located at critical low-flow dissolved
oxygen sag points, and at points considered critical under stormwater flow
conditions. Continuous readings were provided for dissolved oxygen, tempera-
ture, pH, specific conductivity, and stream flow.
It was of particular interest in Triangle J's nonpoint source assessment
program to establish relationships between land use, pollutant loading rates,
and resultant stormwater runoff characteristics. Sampling, therefore, was
conducted in watersheds with a predominant land use by utilizing automatic
sampling units. Samples were analyzed for BOD5, COD, suspended solids, total
Kjeldahl nitrogen, nitrate nitrogen, total phosphorus, total organic carbon,
and in some instances, heavy metals. Data gathered in this effort were basic
to the application and calibration of computer models to predict pollutant
loading rates and receiving stream water quality in the planning area.
Eleven sites were selected for the automatic sampling program based on
predominant land use typical to the study area and other criteria. Density,
type of development, and degree of activity (primarily related to traffic) in
the watershed were considered in the selection process. Analysis of maps and
data generated from LANDSAT satellite imagery, supplemented with aerial photo-
graphy, provided ground information necessary for determining appropriate
locations for the automatic sampling units. The seven land use types sampled
were: low activity rural, high activity rural, low activity residential, high
activity residential, low activity commercial, high activity commercial, and
urban (central business district).
In addition to these seven watersheds with predominant land use types,
four total-load stations were established to determine runoff effects of larger
drainage areas with multiple land use types. Drainage areas ranged from 120 to
IV-4
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49,000 acres for predominant land use stations and from 36,000 to 730,000 acres
for total-load stations. When a storm event occurred, the samplers were auto-
matically activated and samples were taken at prescribed intervals throughout
the storm event. Depending on. the particular station, between five and eleven
storm events were sampled over the 12-month period. Itie locations of the
sampling and monitoring stations, and rainfall gauging stations are shown in
Figure IV-2.
Related Nonpoint Source Studies
Concurrent with the water quality sampling and monitoring program, several
other potential nonpoint source pollution problems were studied. A study was
made of runoff from a parking lot to determine the potential impact of large
impervious surfaces on water quality in nearby streams. Also, a study was
undertaken to determine the possible impact of storm flows resuspending sludge
deposits below wastewater treatment facilities and causing increased oxygen
demand in the stream. Because of the significance of the two proposed Corps of
Enqineers multi-purpose reservoirs, analyses of nutrient loadings (particularly
phosphorus) from point and nonpoint sources were also conducted to assess the
potential for eutrophication.
NONPOINT SOURCE ASSESSMENT: RESULTS
Determination of Loading Rates by Land Use Type
Trianale J utilized the EPA Storm Water Management Model (SWMM), modified
for 3 application in the study area, as a means of estimating runoff
tor specnic apfc>x rou_h a series of sensitivity analyses, model cali-
quantity and qua y. ,fi ti checks on model runs using collected data,
bration tests, and wrificationestablished. It was concluded
pollutant lcadmg rates for Und us^OT*^ ^ ^
that nonpoint S«is of data collected in the field during the sampling
development. On theba generated by SWJM, it was determined the four
program, and the listed below more accurately reflected nonpoint
primary land use categories usteu
source pollution potential:
.Urban - predominantly Central Business District (CBD).
* rvrnnov-niai - nredaninantly high and medium density commercial and
• O—""1 other than CBD.
. Residential - predominantly single and multi-fanily residential areas.
. Rural - predominantly agrioiltural, forested, and associated rural
development.
. _ , 4-u_.iv. respective pollutant loading rates are
Hheae land use catgories and^ ^^ahed (catchment) hydrographs and
shown in Table IV-1. S*iMM I»ovia®a n
-------
I
ON
10 Mil«t
LEGEND
_ MONITORING
" STATIONS
* SAMPLING
• STATIONS
A RAINFALL GAUGING
A STATIONS
Figure IV-2. Locations of monitoring, sampling, and rainfall gauging stations
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Seven major receiving streams in the planning area were modeled using RECEIV
II. By using SWMM and RECEIV II, the data collected during the sampling and
monitoring effort could be utilized in catchments throughout the planning area,
since the models were calibrated for each of the predominant land use types.
Table IV-1 .—Pollutant loading rates developed by Triangle J for use in the
Storm Water Management Model
Land Use
Pollutant lx>ading Rates - lbs/acre/day
BOD
u
Suspended
Solids
Nitrate
(x 10~3)
Phosphorus
(x lfl-3)
8.3
Urban (CBD)
0.42
11.6
27.3
Commercial
0.29
21.5
26.0
9.8
Residential
0.17
18.5
15.6
4.3
Rural
0.12
15.0
8.3
3.0
Source: Triangle J Pollution Source Analysis.
Based on SWMM predictions it was determined that no single land use was
responsible for generating the highest pollutant loading rates for all
constituents studied. In Table IV-1 for example, it can be seen that urban
land use generated the highest BOD loading rate but the lowest suspended solids
loading rate. The data presented in this Table relate to the build-up of
pollutants on the land and the wash-off potential to a receiving stream under a
particular storm event. Other factors such as the degree of impervious sur-
face, total area of a particular land use, hydrological characteristics of the
catchment, and contribution of upstream catchments were also considered in
assessing the wash-off rates and impacts of pollutants on receiving streams.
Use of Models to Predict Receiving Stream Impacts
lb predict water quality throughout the study area, the region was sub-
divided into a number of individual catchments, each of which drained to a node
point on a receiving stream. SWMM Mas then used to generate runoff data and
Pollutant loadings from these catchments. Input data on land use type and
k31 area' leading rates for the land use, soils, topography, and various
other physical characteristics were developed for each of seventy-eight catch-
ments. For the selected design storm having a recurrence rate of about one
year' runoff hydrographs, pollutographs, and average pollutant concentrations
*&re calculated as input to the receiving stream nodes. Figure IV-3 presents
the catchments modeled and the location of the nodes for the SWMM runs.
IV-7
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?
00
LEGEND
BASIN
* BOUNDARIES
. CATCHMENT
* BOUNDARIES
A NODES USED IN
A RECEIV II
m NODES USED IN
• ARE AW IDE ONLY
m NODES USED IN
¦ BOTH
10 Miltt
Figure IV-3. Area modeled with SWMM and RECEIV II
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SWMM was run with input data for existing and future land use patterns to de-
termine differences in loading rates and pollutant concentrations under alter-
native growth patterns. Table IV-2 shows output data for selected nodes on the
Neuse and New Hope river systems for existing and future conditions, in almost
all cases, loading rates and pollutant concentrations increased between exist-
ing and future land use conditions.
The results of the SWMM predictions related only to the characteristics of
stormwater runoff frcm various land uses and its associated pollutant poten-
tial. Tb predict the impact of stormwater runoff on the water quality in re-
ceiving streams, RECEIV n was utilized. Stormwater hydrographs and polluto-
graphs generated by SWMM were input to RECEIV II, as were pollutant contribu-
tions from point sources and various physical characteristics of the stream
segments being modeled. Data frcm the sampling and monitoring program were
used to test and calibrate the outputs of RECEIV II.
Comparison of Predicted Water Quality with Water Quality Goals
Tb assess the relative significance of the modeled parameters on water
quality, outputs of RECEIV II were compared with preliminary 1983 water quality
goals. These water quality goals were developed through extensive literature
review by TJOOG staff to facilitate evaluation of water quality in the study
area on the basis of existing and future conditions. With comments from State
and federal agencies, university representatives, and technical groups, cri-
teria for various constituents were established. The criteria were not viewed
as rigid standards, but as preliminary water quality goals to work toward in
improving the water quality in the study area. These goals are presented in
Table IV-3.
By comparing the SWMM and RECEIV II modeling results and the predicted
receiving stream water quality with the 1983 water quality goals, the relative
magnitude of nonpoint source pollution impact on stream quality could be as-
sessed. Because models were used, the impact of stormwater runoff from exist-
ing and future development patterns could also be assessed.
As a result of the impact of stormwater runoff, it was concluded that
several 1983 water quality goals were not being met under existing land use
conditions. Dissolved oxygen problems were found, but the degree of the
problem was related to antecedent conditions caused by upstream point source
discharges. In all cases, suspended solids were in excess of the 80 mg/1 goal
and exceeded 1,800 mg/1 in some instances. The goal for phosphorus varies by
receiving stream type and was generally not met in receiving streams above
reservoirs or in reservoir systems. A relationship was observed between in-
creases in phosphorus concentrations and increases in suspended solids levels.
Lead concentrations were found to be a problem in the urban areas, with regard
to the 1983 goals for temperature, nitrate nitrogen, mercury, and dissolved
solids, no significant water quality problems were observed.
When future development and land use conditions were modeled, similar
impacts were found. Differences were seen in the relative contributions of
individual catchments because of the change in land use and associated runoff
loading rates. However, the relative impact of nonpoint source contributions
was seen to increase. The increased significance of nonpoint source contribu-
tions was primarily the result of general decreases in point source contribu-
IV-9
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Table IV-2,—SWMM generated pollutant loads for the design storm under existing and future
development patterns for selected nodes (Total load in pounds).
NODE
Neuse River
24
31
40
New Hope
River
53
57
BOD (x 104)
Existing Future
2.2 3.2
1.2 1.5
3.5 4.3
2.6 2.9
2.7 3.4
Suspended 6
Solids (x 10 )
Existing Future
2.3 3.3
0.74 0.94
2.4 2.9
1.8 1.9
2.1 3.4
Tfot. Kjeldahl2
Nitrogen (x 10 )
Existing Future
7.0 0.1
5.2 6.8
0.11 0.15
8.9 9.7
8.5 0.11
Hot. Phosphorous
(x 102)
Existing Future
5.6 8.0
3.6 4.8
8.8 0.11
6.4 7.2
6.8 8.6
Note: See Figure IV-3 for the locations of the nodes.
Source: Triangle J SWMM data sheets.
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Table IV-3.—Triangle J preliminary 1983 water quality goals
Constituent
Planning Area Goal
Dissolved Oxygen
= 5.0 mg/1
Suspended Solids
— 80.0 mg/1
Total Phosphates
as P — 1.0 mg/1 in free flowing streams
^ 0.5 mgA in streams above reservoirs
— 0.1 mg/1 in reservoirs
Temperature
AT < 5°P, but always < 84°F
pH
6.0 to 9.0
Nitrate-Nitrogen
^ 10.0 mg/1
Dissolved Solids
^ 250.00 mg/1
Mercury
^ 0.002 mg/1
Lead
^ 0.05 mg/1
Source: Section
II, Triangle J Draft Water Quality Managment Plan.
tions through the facilities planning process. Overall differences in pollu-
tant concentrations between existing and future conditions throughout the
region did not appear overwhelmingly significant, but in several catchments
very significant increases were noted. Increases in average pollutant concen-
trations in certain problem catchments ranged from ten to fifty percent from
existing to future conditions.
Results of Related Studies
The results of other elements of Triangle J*s nonpoint source assessment
program provided additional information to characterize potential water quality
problems in the region. The study on the impacts of benthic resuspension
during storm events, concluded that the effect of this resuspension on water
quality was insignificant when compared to that of stormwater runoff. Nonpoint
source phosphorus loadings to the proposed reservoirs in the region were pre-
dicted to be high and would thus increase eutrophic conditions in the reser-
voirs. The most significant source of phosphorus to the proposed reservoirs
was determined to be from stormwater runoff which contributes approximately 65
percent of the total annual load.
IV-11
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APPLICATIONS OF DATA IN DEVELOPING BEST MANAGEMENT PRACTICES
The sampling and modeling efforts were found to be very useful as predic-
tive models of pollutant loads and receiving stream water quality. Specifi-
cally, the models enabled the determination of the relative impact of nonpoint
source pollution in the major receiving streams throughout the planning area.
The models have become part of the TJCOG continuing evaluation process and will
be used in the future to assess the impacts of proposed projects and land use
changes on water quality in the planning area.
Major Nonpoint Source Problems to be Addressed by BMP's
The results of the pollution source analysis established that there were
water quality problems relating specifically to nonpoint sources. Hie analyses
related land use in the region to pollutant loading rates and, more important-
ly, identified water quality problems as they impacted the areas' receiving
streams. Through the model output, the magnitude of the nonpoint source water
quality was determined for existing and future conditions and was directly re-
lated to watersheds in the region. The relative degree of the nonpoint source
problems was established by comparing the concentrations of the modeled consti-
tuents to the proposed TJCOG 1983 water quality goals.
The major nonpoint source problem identified was that of suspended solids.
Additional nonpoint source problems included oxygen demanding materials, high
phosphorus concentrations, and lead concentrations from urban runoff. Hie
latter nonpoint source problems were found to be directly related to erosion
and sedimentation and the resulting high concentrations of suspended solids.
Through the pollution source analysis, it was clear that all man-influenced
land uses contributed to the water quality impacts and that the control of
either urban or rural uses alone would not enable maintenance of the water
quality goals in area streams.
With these broad conclusions, and with the supporting catchment specific
data, TJCOG developed a control program which reflected the need to reduce
suspended solids from all man-influenced land uses. As a means of developing
the program, TJCOG sought input through literature review and technical advi-
sory committee discussions, a series of public workshops, and an analysis of
the existing institutional capabilities to control nonpoint sources of pollu-
tion.
Identification and Applicability of BMP's for the Region
A wide range of best management practices was identified through the
literature survey in conjunction with technical advisory committee input. An
annotated list of management practices was prepared by TJCOG which assessed
each practice on the basis of the effectiveness in reducing the nonpoint source
loads which had been documented as problems through the sampling and modeling
effort. To determine applicability, each management practice was analyzed in
terms of its utility in reducing stormwater runoff and suspended solids levels,
as well as other considerations such as cost and the effectiveness of the con-
trol practice. Table IV-4 lists the best management practices which were
studied and indicates those which were considered applicable in the study area.
IV-12
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Table IV-4.—Best management practices developed for nonpoint source
pollution control by category
Source Techniques
*Land use planning
~Minimization of stripped areas
~Buffer zones along streams and
channels
~Porous pavement
~Street sweeping
Enforced solid waste controls
~Grade stabilization
~Seeding and mulching
~Terraces and diversion ditches
Seepage beds and tile fields
Aeration of lawns
Dutch drains
~Lattice blocks
~Cover crops
~Contour plowing and tillage
practices
Crop rotation
Surface Transport Techniques
~Street and channel design
Protection of culvert in-
lets and outlets
~Grass lined waterways and
outlets
~Channel stablization and
stream bank protection
Collection Techniques
Roof top detention
~Detention basins
(short term storage)
Retention basins (long
term impoundment)
Treatment Techniques
Screening
~Gravity settling
Aeration
Chemical coagulation and
flocculation
~Filtration
Chlorination
~indicates those BMP's considered specifically applicable in the
planning area.
Source: Supplementary Data Report F, Triangle J Draft 208 Plan.
IV-13
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These management practices were incorporated in the nonpoint source control
strategy developed as a major element of the water quality management plan.
For those available best management techniques, source controls and surface
transport controls were assessed to be more effective and less costly than
collection and treatment techniques. The modeling results indicated that the
severity of nonpoint source problems did not warrant the expense of collecting
and treating stormwater runoff.
In conjunction with the development of the detailed list of best manage-
ment practices, a series of eight workshops was conducted throughout the
region. These workshops were co-sponsored by local govenments, civic environ-
mental groups, citizens, and special interest groups such as realtors, agri-
business representatives, soil and water conservation districts, and others.
At each workshop, Triangle J staff presented the findings of the pollution
source analysis with particular emphasis on how water quality problems affected
the interests of those attending the particular workshop. Workshop partici-
pants were asked to draw on their own perception of water quality problems and
suggest solutions to these problems. After suggestions were tallied, the group
was asked to rate the effectiveness of each suggested control measure taking
into account the feasibility of implementation. Although many suggestions were
broad in scope, the control measures identified during these workshops were
closely allied with and supported those which were developed by the staff and
technical committees. The results of the workshop were compiled and incorpor-
ated as supporting information for the development of the nonpoint source con-
trol strategy in the draft Water Quality Management Plan.
The detailed best management practices list and the workshop recommenda-
tions were reviewed with regard to the magnitude of the identified nonpoint
source problems and the potentials for implementing control programs. Existing
and potential management systems were analyzed by TJOOG with particular empha-
sis on the institutional ability and legal authority to implement control
mechanisms. Although the nonpoint source assessment concluded that the control
of sediment was of primary importance, other nonpoint sources of pollution were
identified and actions to abate these problems were also developed. The TJCOG
nonpoint source control program focuses on correcting problems through existing
mechanisms and strengthening those mechanisms were possible, rather than at-
tempting to control all potential sources.
NONPOINT SOURCE PROGRAM AND IMPLEMENTATION STRATEGY
Focus of Nonpoint Source Control Program
Through the process of developing management practices applicable to the
planning area, TJCOG involved groups and agencies which would have an impact on
implementing the proposed nonpoint source program. In presenting the conclu-
sions of the pollution source analysis and focusing on identified problems
which were documented and supported by the modeling efforts, these groups
gained an awareness of the complexities of nonpoint source problems. Further,
TJCOG established the need to take immediate corrective actions on significant
problems as a first step in the nonpoint source control program.
Even with the extensive sampling and monitoring program and modeling
efforts, some potential nonpoint source problems could not be adequately docu-
IV-14
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merited by source or impact. Pesticides, for example, were not sampled for or
modeled because of the sheer number of different chemicals being used in the
area, variability of application rates and methods, and the lack of specific
analysis techniques to identify these constituents. In some urban areas where
limited street cleaning practices were in effect, the effectiveness or the
resultant impacts of utilizing this BMP on stream quality could not be deter-
mined quantitatively. Conversely, suspended solids loads and associated
pollutants were quantitatively determined through the pollution source analy-
sis. The TJGOG nonpoint source control strategy, therefore, focused on speci-
fic implementation measures to reduce sedimentation and erosion; however, the
control program did address other aspects of nonpoint source problems.
Proposed actions were developed for point source discharges, nonpoint
source controls, management agencies, and continuing planning agency. These
recommendations were presented to the technical advisory committees, special
interest groups, and the 208 Steering Committee. Hie Steering Committee is
composed of elected officials and State representatives who would be primarily
responsible for implementing the nonpoint source program and other plan recom-
mendations. Through discussion with these groups, actions to control nonpoint
sources of pollution were developed which included a strengthening of existing
control methods (sedimentation and erosion control ordinances) and the devel-
opment of new methods (urban stormwater management legislation).
Major Actions and Implementation
Prior to publishing the TJCOG Draft Water Quality Managment Plan, each
local government and other agencies who would be affected by the nonpoint
source control program were given the opportunity to review the proposed pro-
gram elements. In this manner, initial commitments to proceed with the various
elements was gained. Hie Draft Water Quality Management Plan, published in
December, 1976, is currently going through the final review process and, while
some of the proposed actions are already being implemented, plan adoption and
submission to the Governor is anticipated by May, 1977.
A prime element of the TJCOG nonpoint source program is the control of
suspended solids. Enabling legislation exists in the State for local sedimen-
tation and erosion control programs but local programs are voluntary. As a
result of the water quality management program, the eleven local governments
Which do not have local programs have indicated they will adopt erosion control
ordinances by July 1, 1977. Annual program costs range fran less than $1,000
for a small town participating in a county-wide program, to over $65,000 to
initiate and administer a full county-wide program. Additionally, the nonpoint
source management plan calls for amendments to the State legislation which
would give municipalities the authority to exercise erosion control in their
extra-territorial jurisdictions.
Rural sources of sedimentation were determined to be significant contribu-
tors of suspended solids. Agrucultural activities, however, are not regulated
by the State's erosion control legislation. Steps are being taken, in conjunc-
tion with the Soil Conservation Service and appropriate State agencies to en-
courage all active farms in the area to be brought under Conservation Manage-
ment Plans with the goal of reducing soil loss to an average of four tons per
acre per year. Actions include county governmental financial support to in-
crease staffing of county Soil and Water Conservation Districts to prepare
-------
soil conservation plans for area farmers, and encouraging increased federal
allocations for Soil Conservation Service efforts.
While the sedimentation control program is concerned with reducing erosion
during construction, continuing management of stormwater runoff is necessary to
maintain reduced suspended solids levels and associated pollutants such as
phosphorus and lead. At the present time, no State program exists for storm-
water management, the nonpoint source control program of TJCOG has initiated
support for proposed legislation for a Comprehensive Stormwater Management Act.
This legislation would focus on controlling the quantity and quality of runoff
from a site after development is completed through state-local responsibility,
similar to that of the existing state-wide sedimentation and erosion control
legislation. In conjunction with local governments, TJCOG has proposed speci-
fic elements for such an act which include authorization for local governments
to require stormwater management plans, establishing maximum runoff rates,
preparation of a model ordinance with minimum standards, and fixing responsi-
bilities and penalties for violations. Such state-wide legislation is being
encouraged to the enacted by July 1, 1978.
As the assessment of pollutant loading rates from individual land uses
concluded that no single land use or type of development contributed the
greatest pollution potential, specific recommendations with regard to develop-
ment regulations could not be supported. A variety of development regulations
are in effect in the planning area. Some of the provisions, for example strict
curb and gutter requirements, may not be compatible with water quality objec-
tives. As an element of the continuing water quality management planning pro-
gram and TJGOG's Regional Development Plan, these regulations will be reviewed
for their potential impact on stormwater runoff.
In addition to the above actions, which have received initial support from
those agencies involved, several elements of Triangle J's nonpoint source pro-
gram focus on the continuing planning agency. As the continuing planning
agency, Triangle J will provide technical assistance primarily to local govern-
ments on all aspects of water quality planning and management. Triangle J will
monitor the implementation of the Water Quality Management Plan, including
annual plan updates and continuing monitoring and evaluation of the effective-
ness, costs, and benefits derived from the nonpoint source control program.
Some of the elements of Triangle J's nonpoint source management program
could have been proposed in the absence of the extensive sampling, monitoring,
and modeling program. This comprehensive program functioned as a demonstration
effort as well as provided a means of characterizing and assessing existing and
projected water quality conditions specific to the planning area. In this man-
ner, the program enabled the development of a detailed nonpoint source data
base and area-specific documentation for identified problems. Because of the
extensiveness of the assessment program, governmental and technical support of
the results and the nonpoint source management plan were significantly en-
hanced. Additionally, the models are now operational and are functioning as a
continuing planning and evaluation tool. The experiences gained and conclu-
sions drawn as a result of the sampling, monitoring, and modeling effort have
provided significant input to the TJCOG water quality management planning pro-
gram and will provide useful guidance to other areas and agencies undertaking
water quality management planning.
IV-16
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