0
Handbook for Developing
1 Watershed Plans to Restore
and Protect Our Waters
0
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Disclaimer
This document provides guidance to states, territories, authorized tribes, local governments,
watershed organizations, and the public regarding technical tools and sources of information
for developing watershed based plans to improve and protect water quality. This document
refers to statutory and regulatory provisions that contain legally binding requirements. This
document does not substitute for those provisions or regulations, nor is it a regulation itself.
Thus, it does not impose legally binding requirements on EPA, states, territories, authorized
tribes, local governments, watershed organizations, or the public and may not apply to a
particular situation based upon the circumstances. EPA, state, territory, local government,
and authorized tribe decision makers retain the discretion to adopt approaches on a case-
by-case basis that differ from this guidance. The use of non-mandatory words like "should,"
"could," "would," "may," "might," "recommend," "encourage," "expect," and "can" in this
guidance means solely that something is suggested or recommended, and not that it is legally
required, or that the suggestion or recommendation imposes legally binding requirements,
or that following the suggestions or recommendations necessarily creates an expectation of
EPA approval.
Interested parties are free to raise questions and objections about the appropriateness of the
application of the guidance to a situation, and EPA will consider whether or not the recom-
mendations in this guidance are appropriate in that situation. EPA may change this guidance
in the future.
United States Environmental Protection Agency
Office of Water
Nonpoint Source Control Branch
Washington, DC 20460
EPA 841-B-08-002
March 2008
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Handbook for Developing
Watershed Plans to Restore
and Protect Our Waters
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Contents
Contents
Acronyms and Abbreviations xiii
Chapter 1. Introduction 1-1
1.1 What Is the Purpose of This Handbook? 1-2
1.1.1 How Is This Handbook Different from Other Guides? 1-3
1.1.2 Who Should Use This Handbook? 1-3
1.1.3 What If We Already Have a Watershed Plan? 1-3
1.2 What's Inside? 1-4
1.2.1 Chapter Overviews 1-4
1.2.2 Appendices and Additional Resources 1-5
1.3 How to Use This Handbook 1-6
Chapter 2. Overview of Watershed Planning Process 2-1
2.1 Why Use a Watershed Approach to Manage Water Resources? 2-2
2.2 Common Features of the Watershed Planning Process 2-2
2.2.1 Watershed Planning Is an Iterative and Adaptive Process 2-3
2.2.2 Watershed Planning Is a Holistic Process 2-3
2.2.3 Watershed Planning Is Geographically Defined 2-4
2.2.4 Watershed Planning Should Be Integrated with Other Planning Efforts 2-4
2.2.5 Watershed Planning Is a Collaborative and Participatory Process 2-5
2.3 Steps in the Watershed Planning and Implementation Process 2-5
2.4 Watershed Planning for Impaired Waters 2-7
2.4.1 What Are the Most Common Impairments? 2-7
2.4.2 Watershed Planning Where a TMDL Has Been Developed 2-8
2.4.3 Watershed Planning in the Absence of a TMDL 2-8
2.5 Including Water Quality Standards in Goal Setting 2-11
2.5.7 What Are Water Quality Standards and Why Are They Important? 2-11
2.5.2 How Are Water Quality Standards Set? 2-11
2.6 Nine Minimum Elements to Be Included in a Watershed Plan
for Impaired Waters Funded Using Incremental Section 319 Funds 2-14
Chapter 3. Build Partnerships 3-1
3.1 Why Do I Need Partners? 3-2
3.2 Identify Driving Forces 3-2
3.2.1 Regulatory Issues 3-3
3.2.2 Government Initiatives 3-3
3.2.3 Community-Driven Issues 3-4
3.3 Identify and Engage Stakeholders 3-5
3.3.7 Identify Categories of Stakeholders 3-5
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
3.3.2 Determine Stakeholders'Roles and Responsibilities 3-6
3.3.3 Provide a Structure to Facilitate Stakeholder Participation 3-7
3.3.4 Identify Stakeholders'Skills and Resources 3-7
3.3.5 Encourage Participation and Involvement 3-8
3.3.6 Initiate Outreach Activities to Build Awareness and Gain Partners 3-9
3.4 Integrate Local, State, Tribal, and Federal Programs into Your Watershed
Planning Effort 3-10
3.4.1 Local Programs 3-11
3.4.2 State and Regional Programs 3-13
3.4.3 Tribal Programs and Organizations 3-16
3.4.4 Federal Programs and Organizations 3-17
Chapter 4. Define Scope of Watershed Planning Effort 4-1
4.1 Why Define the Scope of Your Watershed Planning Effort? 4-2
4.2 Ask Stakeholders for Background Information 4-2
4.3 Identify Issues of Concern 4-2
4.3.1 Draw a Picture 4-4
4.3.2 Take Stakeholders Out into the Watershed 4-6
4.4 Define the Geographic Extent of the Watershed 4-6
4.5 Develop Preliminary Goals 4-8
4.6 Select Indicators to Measure Environmental Conditions 4-9
4.6.1 Select Quantitative Indicators 4-10
4.6.2 Select a Combination of Indicators 4-10
4.7 Link Concerns with Goals and Indicators 4-15
Chapter 5. Gather Existing Data and Create an Inventory 5-1
5.1 How Do I Characterize My Watershed? 5-2
5.2 Focus Your Data Gathering Efforts 5-2
5.2.1 Build on Earlier Scoping Efforts 5-3
5.2.2 Consider Stakeholder Goals and Concerns 5-3
5.3 Who Has the Data and What Types of Data Do You Need? 5-3
5.3.1 Local Sources of Information 5-4
5.3.2 State Sources of Information 5-5
5.3.3 Tribal Sources of Information 5-6
5.3.4 Federal Sources of Information 5-6
5.3.5 Data Types 5-6
5.4 Physical and Natural Features 5-8
5.4.1 Watershed Boundaries 5-8
5.4.2 Hydrology 5-11
5.4.3 Topography 5-13
5.4.4 Soils 5-13
5.4.5 Climate 5-14
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5.4.6 Habitat 5-14
5.4.7 Fish and Wildlife 5-16
5.4.8 Ecosystems 5-17
5.5 Land Use and Population Characteristics 5-18
5.5J Land Use and Land Cover Data 5-18
5.5.2 Land Management Practices 5-22
5.5.3 Demographics 5-24
5.6 Waterbody and Watershed Conditions 5-25
5.6J Water Quality Standards 5-25
5.6.2 Water Quality Reports 5-26
5.6.3 Watershed-Related Reports 5-27
5.7 Pollutant Sources 5-29
5.7.1 Point Sources 5-30
5.7.2 Nonpoint Sources 5-31
5.8 Waterbody Monitoring Data 5-33
5.8.1 Water Quality and Flow Data 5-34
5.8.2 Biological Data 5-36
5.8.3 Geomorphological Data 5-36
5.9 Selected Tools Used to Gather, Organize, and View Assessment Information 5-37
5.9.7 Geographic Information Systems 5-37
5.9.2 Remote Sensing Techniques to Collect Land Use/Land Cover Information 5-41
5.10 Create a Data Inventory 5-47
Chapter 6. Identify Data Gaps and Collect Additional Data If Needed 6-1
6.1 How Do I Know If I Have Enough Data to Start My Analysis? 6-2
6.2 Conduct a Data Review 6-2
6.2.1 Identify Data Gaps 6-3
6.2.2 Determine Acceptability of Data 6-4
6.3 Determine Whether New Data Collection Is Essential 6-6
6.4 Design a Sampling Plan for Collecting New Data 6-6
6.4.1 Select a Monitoring Design 6-7
6.4.2 Develop Data Quality Objectives 6-10
6.4.3 Develop Measurement Quality Objectives and Performance Characteristics 6-10
6.4.4 Develop a Quality Assurance Project Plan 6-11
6.4.5 Develop a Plan for Data Management 6-12
6.5 Collect New Data 6-14
6.5.7 Watershed Overview/Visual Assessment 6-14
6.5.2 Physical Characterization 6-15
6.5.3 Geomorphic Assessment 6-16
6.5.4 Hydrologic Assessment 6-17
6.5.5 Water Quality Assessment 6-18
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
6.5.6 Assessment of Stream Habitat Quality 6-19
6.5.7 Watershed Habitat Assessment 6-20
6.5.8 Biological Assessment 6-22
Chapter 7. Analyze Data to Characterize the Watershed and Pollutant Sources ... 7-1
7.1 Analyze Data to Identify Pollutant Sources 7-2
7.1.1 Focus Your Analysis Efforts 7-2
7.7.2 Use a Combination of Analysis Types 7-2
7.1.3 Consider Geographic Variations 7-3
7.1.4 Incorporate Stakeholders' Concerns and Observations 7-4
7.2 Analyze Instream and Watershed Data 7-4
7.2.7 Confirm Impairments and Identify Problems 7-6
7.2.2 Summary Statistics 7-7
7.2 J Spatial Analysis 7-9
7.2.4 Temporal Analysis 7-9
7.2.5 Other Trends or Patterns 7-10
7.2.6 Stressor Identification 7-12
7.2.7 Visual Assessments and Local Knowledge 7-13
7.3 Evaluate Data Analysis Results to Identify Causes and Sources 7-14
7.3.7 Grouping Sources for Further Assessment 7-15
7.3.2 Time Frame for Source Assessment 7-17
7.4 Summarize Causes and Sources 7-17
Chapter 8. Estimate Pollutant Loads 8-1
8.1 How Do I Estimate Pollutant Loads? 8-2
8.2 Using Monitoring Data or Literature Values to Estimate Pollutant Loads 8-3
8.2.7 Using Monitoring Data to Estimate Loads 8-4
8.2.2 Using Literature Values to Estimate Loads 8-5
8.3 Watershed Modeling 8-7
8.3.7 Factors to Consider When Selecting a Model 8-8
8.3.2 Using Watershed Modeling Tools to Evaluate Loads 8-11
8.3.3 Model Selection and Application Process 8-13
8.3.4 What Models Are Available? 8-16
8.3.5 Capabilities of the Selected Models 8-23
8.4 Model Application Process for the Selected Models 8-26
8.4.1 Watershed Delineation 8-27
8.4.2 Land Use Assignment 8-29
8.4.3 Parameter Selection 8-29
8.4.4 Model Testing 8-31
8.4.5 Estimation of Existing Conditions and Baseline Scenarios 8-35
8.5 Presenting Pollutant Loads 8-35
8.5.7 Consider Spatial Scales 8-36
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8.5.2 Consider Time Scales 8-36
8.5.3 Next Steps in Developing the Watershed Plan 8-37
Chapter 9. Set Goals and Identify Load Reductions 9-1
9.1 How Do I Link the Watershed Analysis to Management Solutions? 9-2
9.2 Translate Watershed Goals into Management Objectives 9-3
9.3 Select Environmental Indicators and Targets to Evaluate Management Objectives .. .9-4
9.4 Determine Load Reductions to Meet Environmental Targets 9-4
9.4.1 Qualitative Linkages Based on Local Knowledge or Historical Conditions 9-6
9.4.2 Mass Balance Approach 9-7
9.4.3 Empirical Relationships 9-7
9.4.4 Statistical or Mathematical Relationships 9-8
9.4.5 Reference Watershed Approach 9-8
9.4.6 Receiving Water Models 9-9
9.5 Focus the Load Reductions 9-12
9.6 Summarize Watershed Targets and Necessary Load Reductions 9-13
Chapter 10. Identify Possible Management Strategies 10-1
10.1 How Do I Link My Management Strategies to My Goals? 10-2
10.2 Overview of Management Approaches 10-3
10.2.1 Nonpoint Source Management Practices 10-4
10.2.2 Regulatory Approaches to Manage Pollutant Sources 10-6
10.3 Steps to Select Management Practices 10-10
10.3.1 Identify Existing Management Efforts in the Watershed 10-11
10.3.2 Quantify the Effectiveness of Current Management Measures 10-13
10.3.3 Identify New Management Opportunities 10-14
10.3.4 Identify Critical Areas in the Watershed Where Additional Management
Efforts Are Needed 10-14
10.3.5 Identify Possible Management Practices 10-15
10.3.6 Identify Relative Pollutant Reduction Efficiencies 10-19
10.3.7 Develop Screening Criteria to Identify Opportunities and Constraints 10-20
10.3.8 Rank Alternatives and Develop Candidate Management Opportunities 10-22
Chapter 11. Evaluate Options and Select Final Management Strategies 11-1
11.1 How Do I Select the Final Management Strategy? 11-2
11.2 Identify Factors that Influence the Selection of Approaches Used to
Quantify Effectiveness 11-3
11.2.1 General Types of Management Practices 11-3
11.2.2 Identify the Types of Indicators You're Using to Measure Performance 11-4
11.2.3 Consider the Scale of Your Watershed 11-4
11.2.4 Consider the Synergistic Effects of Multiple Practices 11-5
11.3 Select an Approach to Quantify the Effectiveness of the Management Strategies.... 11-6
11.3.1 Using Literature Values 11-6
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
11.3.2 Using Models to Assess Management Strategies 11-7
11.3.3 Example Model Applications to Assess Management Strategies 11-18
11.4 Identify Costs and Compare Benefits of Management Practices 11-22
11.4.1 Identify Cost Considerations 11-23
11.4.2 Compare Costs and Effectiveness of Management Practices 11-27
11.5 Select Final Management Strategies 11-29
11.5.1 Decision Process 11-30
11.5.2 Example Procedures for Selecting Final Management Strategies 11-32
Chapter 12. Design Implementation Program and Assemble Watershed Plan.... 12-1
12.1 What Do I Need to Design My Implementation Program? 12-2
12.2 Develop Information/Education Component 12-2
12.2.1 Integrate HE Activities into the Overall Watershed Implementation Program 12-2
12.2.2 Develop an HE Program 12-3
12.3 Establish an Implementation Schedule 12-7
12.4 Develop Interim Measurable Milestones 12-7
12.5 Establish a Set of Criteria to Measure Progress toward Meeting Water Quality
Standards and Other Goals 12-8
12.5.1 Schedule for Implementation of Management Measures 12-9
12.5.2 Nature of Pollutants to Be Controlled 12-10
12.6 Develop a Monitoring Component 12-10
12.6.1 Directly Relate Monitoring Efforts to the Management Objectives 12-11
72.6.2 Incorporate Previous Sampling Designs 12-12
12.6.3 Monitor Land Use Changes in Conjunction with Water Quality Monitoring .... 12-12
12.6.4 Use an Appropriate Experimental Design 12-13
72.6.5 Conduct Monitoring for Several Years Before and After Implementation 12-13
72.6.6 Build In an Evaluation Process 12-14
12.7 Estimate Financial and Technical Assistance Needed and the
Sources/Authorities that Will Be Relied on for Implementation 12-14
72.7.7 Identify Funding Sources 12-15
72.7.2 Leverage Existing Resources 12-15
12.7.3 Estimating Costs 12-16
12.7.4 Identify Technical Assistance Needs 12-19
72.7.5 Identify the Relevant Authorities Needed for Implementation 12-19
12.8 Develop the Implementation Plan Basics 12-19
12.9 Develop an Evaluation Framework 12-22
72.9.7 What Parts of Your Program Should YouEvaluate? 12-22
72.9.2 Using a Logic Model to Develop an Evaluation Framework 12-23
12.9.3 Evaluation Methods 12-24
72.9.4 Timing of Evaluation 12-25
12.10 Devise a Method for Tracking Progress 12-25
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12.11 Putting It All Together 12-27
12.11.1 The Final Review 12-27
12.11.2 Make the Plan Accessible to Various Audiences 12-27
Chapter 13. Implement Watershed Plan and Measure Progress 13-1
13.1 What Do I Do Once I've Developed My Watershed Plan? 13-2
13.2 Create an Organizational Structure for Implementation 13-2
13.3 Implement Activities 13-3
13.4 Prepare Work Plans 13-4
13.5 Share Results 13-4
13.6 Evaluate Your Program 13-6
13.6.1 Track Progress Against Your WorkPlans 13-8
13.6.2 Analyze Monitoring Data 13-9
13.7 Make Adjustments 13-11
13.7.1 Not Meeting Implementation Milestones 13-12
13.7.2 Not Making Progress Toward Reducing Pollutant Loads 13-12
13.8 A Final Word 13-14
Appendix A: Resources
Appendix B: Worksheets
Appendix C: List of State Nonpoint Source and Watershed Planning Contacts
Glossary
Bibliography
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Figures
Figure 2-1. Steps in the Watershed Planning Process 2-6
Figure 2-2. Potential Relationships Between TMDLs and Watershed Plans 2-10
Figure 2-3. Incorporating the Nine Minimum Elements into Your Watershed Plan 2-15
Figure 2-4. Level of Detail for Watershed Management Plans 2-18
Figure 4-1. Simplified Conceptual Model 4-4
Figure 4-2. Simple Conceptual Model Involving Logging Road Construction
Effects on Stream Aquatic Life (adapted from USEPA 1998) 4-4
Figure 4-3. Draft Conceptual Model for Greens Creek, North Carolina 4-5
Figure 4-4. Evolution of Goals Throughout the Watershed Planning Process 4-8
Figure 5-1. Example of NRCS Watershed Delineations Within a USGS 8-digit
Cataloging Unit 5-9
Figure 5-2. Examples of Medium-Resolution and High-Resolution NHD 5-12
Figure 5-3. Example Map Projections 5-39
Figure 5-4. Example of GIS Datasets at Different Scales 5-40
Figure 5-5. Example Fields in a Data Inventory 5-48
Figure 6-1. Excerpt from Spa Creek Proposed Sampling Plan 6-13
Figure 7-1. Example Graph of Observed Aluminum Concentrations Compared
to Water Quality Criteria 7-7
Figure 7-2. Commonly Used Summary Statistics 7-8
Figure 7-3. Example Map of Average Total Dissolved Solids Concentration
Throughout a Watershed 7-9
Figure 7-4. Example Graph of Monthly Statistics for Fecal Coliform Bacteria 7-10
Figure 7-5. Example Load Duration Curve 7-11
Figure 7-6. Stressor Identification Process 7-12
Figure 7-7. Long-term Turbidity Levels at Two Stations in Lake Creek, Idaho 7-14
Figure 8-1. Example of an Application of Export Coefficients to Calculate
Pollutant Loads 8-6
Figure 8-2. Typical Model Evaluation Points 8-31
Figure 8-3. Sample Calibration Tests for Hydrologic Simulation 8-33
Figure 8-4. Sample Model Testing Graphic 8-34
Figure 8-5. Presentation of Annual Sediment Loads (Ib/ac) by Subwatershed,
San Jacinto, California 8-36
Figure 8-6. Seasonal Fecal Coliform Bacteria Loads 8-37
Figure 8-7. Total Sediment Load and Percentages Associated with Each Source 8-37
Figure 9-1. Process for Identifying Final Watershed Goals and Targets 9-2
Figure 10-1. Process for Identifying Candidate Management Practices 10-2
VIM
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Figure 10-2. Percentage of Buffer Area Disturbed and Impaired Waters in the
Troublesome Creek Watershed 10-15
Figure 11-1. Evaluate Candidate Management Practices to Select Final Strategies 11-2
Figure 11-2. Using a Spreadsheet Analysis to Evaluate One Management Practice
at a Single Site 11-8
Figure 11-3. Analysis of Multiple Management Practices Using Multiple Indicators 11-20
Figure 11-4. Quantifying the Effectiveness of Stabilization Practices in Reducing
Sediment Loads 11-21
Figure 11-5. Quantifying the Effectiveness of Management Practices in Improving
Aquatic Habitat 11-22
Figure 11-6. Cost Comparison of Alternative Treatment Trains to Meet Specific
Water Quality and Detention Performance Standards 11-25
Figure 11-7. Example Comparing Construction Cost and Pollutant Loading for
Different Urban Land Use Types with Decreasing Levels
of Imperviousness 11-28
Figure 11-8. Example Showing Increased Cost per Pound of Total Phosphorus
Removed for Urban Land Uses with Highest Levels of Imperviousness 11-29
Figure 11-9. Evaluation of Stormwater Management Options for the Town of Gary 11-34
Figure 12-1. Logic Model Components 12-24
Figure 12-2. Logic Model Example 12-25
Figure 12-3. Table of Contents from White Oak Creek, Ohio, Watershed Plan 12-28
Figure 13-1. Watershed Report Card for Clermont County, Ohio 13-7
Figure 13-2. Example Adaptive Management Approach Using a Logic Model 13-8
Tables
Table 1-1. Relationship of Chapters to the Watershed Planning Process 1-4
Table 2-1. Top Ten 303(d) List Impairments in the United States (August 14, 2007) 2-7
Table 2-2. Summary of Common Pollutants and Sources 2-9
Table 4-1. Coal Creek Sediment Loading Indicators and Target Values 4-9
Table 4-2. Use of Indicators Throughout the Watershed Planning and
Implementation Process 4-9
Table 4-3. Example Environmental Indicators Used to Identify Relationships
Between Pollutant Sources and Environmental Conditions 4-11
Table 4-4. Example Indicators Used throughout Watershed Plan Development
and Implementation 4-14
Table 4-5. Examples of Performance Indicators That Can Be Used to Develop
Targets to Measure Progress in Meeting Watershed Goals 4-15
Table 5-1. Data Typically Used for Watershed Characterization 5-7
Table 5-2. Sources of GIS Data Available on the Internet 5-38
Table 5-3. Sample Costs for Purchasing Remote Sensing Products 5-46
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Table 6-1. Sources and Associated Pollutants 6-18
Table 7-1. Examples of the Types of Data-related Activities Conducted
throughout the Watershed Planning Process 7-3
Table 7-2. Examples of the Level of Detail and Effort for Typical Types of Data 7-4
Table 8-1. Example Approaches Used for Estimating Watershed Loads 8-3
Table 8-2. Various Levels of Detail for Simulating Runoff 8-12
Table 8-3. Levels of Detail in Watershed Models 8-13
Table 8-4. Overview of Several Available Watershed Models 8-17
Table 8-5. Water Quality Endpoints Supported by the Selected Watershed Models 8-24
Table 8-6. Land and Water Features Supported by the Selected Watershed Models 8-25
Table 8-7. Application Considerations of the Selected Watershed Models 8-26
Table 8-8. Typical Data Needs for Example Models 8-27
Table 8-9. Examples of Number and Size of Subwatersheds in Modeling Applications ... .8-28
Table 8-10. Example Land Use Categories for Watershed Models 8-29
Table 8-11. Typical Calibration Options for Selected Example Models 8-32
Table 8-12. Typical Loading Presentation Categories and Types 8-36
Table 9-1. Sample Goals Linked to the Sources and Impacts to Define
Management Objectives 9-3
Table 9-2. Examples of Indicators and Targets to Meet Management Objectives 9-5
Table 9-3. Example Approaches for Linking Indicators and Sources 9-6
Table 9-4. Overview of Various Receiving Water Models 9-10
Table 9-5. Examples of Different Scenarios to Meet the Same Load Target 9-12
Table 10-1. Examples of Structural and Nonstructural Management Practices 10-5
Table 10-2. Existing Programs and Policies Identified in the Mill Creek
Subwatershed Communities 10-11
Table 10-3. Commonly Used Management Practices for Salinity, Sediment, and
Total Dissolved Solids 10-17
Table 10-4. Example Management Practice Screening Matrix 10-20
Table 10-5. Example Ranking Table to Identify Candidate Management Practices 10-23
Table 11-1. Summary of Management Practice Representation Capabilities of the
Selected Models 11-10
Table 11-2. Summary of Management Practice Simulation Techniques of the
Selected Models 11-11
Table 11-3. Data Needs for Management Strategy Modeling 11-13
Table 11-4. Specialized Models for Analyzing Management Practices 11-14
Table 11-5. Considerations for Applying Management Practice Unit Cost Measures 11-24
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Table 11-6. Example of Discounting Management Practice Cost for Comparison
Purposes 11-27
Table 11-7. Selected Management Techniques for the Muddy Creek Subwatershed,
Virgin River TMDL Implementation 11-32
Table 11-8. Summary of Load Reduction Requirements and Expected Removal
Efficiencies for Selected Management Practices for Muddy Creek
Subwatershed 11-33
Table 12-1. Example Indicators to Measure Progress in Reducing Pollutant 12-9
Table 12-2. Annualized Cost Estimates for Selected Management Practices
from Chesapeake Bay 12-17
Table 13-1. Comparison of Example Parameters in a Hypothetical Watershed Plan
and 319 Work Plan 13-5
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Acronyms and Abbreviations
Acronyms and Abbreviations
There are dozens of acronyms and abbreviations used throughout this handbook. Refer back
to this list to help you navigate through the alphabet soup.
ADB Assessment Database
ADID advance identification
AFO animal feeding operation
AGNPS Agricultural Non-Point Source model
AnnAGNPS Annualized Agricultural Non-Point Source model
AIEO American Indian Environmental Office
ARS Agricultural Research Service
ASIWPCA Association of State and Interstate Water Pollution Control
Administrators
AU assessment unit
AVIRIS airborne visible/infrared imaging spectrometer
AVS acid-volatile sulfide
BASINS Better Assessment Science Integrating Point and Nonpoint Sources
BEACH Beaches Environmental Assessment and Coastal Health
BEHI Bank Erosion Hazard Index
BLM [U.S.] Bureau of Land Management
BMP best management practice
BOR [U.S.] Bureau of Reclamation
CADDIS Causal Analysis/Diagnosis Decision Information System
CAEDYM Computational Aquatic Ecosystem Dynamics Model
CAFO concentrated animal feeding operation
CBOD carbonaceous biological oxygen demand
C-CAP Coastal Change Analysis Program
CCMP comprehensive conservation and management plan
cfs cubic feet per second
CH3D IMS Curvilinear grid Hydrodynamics 3D—Integrated Modeling System
CH3D SED Curvilinear Hydrodynamics 3D—Sediment Transport
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CN curve number
CNE curve number equation
CNMP conservation nutrient management plan
COD chemical oxygen demand
CRC Cooperative Research Center
CREM Council for Regulatory Environmental Modeling
CREP Conservation Reserve Enhancement Program
CRM crop residue management
CRP Conservation Reserve Program
CSC Coastal Services Center
CSO combined sewer overflow
CSP Conservation Security Program
CSREES Cooperative State Research, Education, and Extension Service
CSTR continuously stirred tank reactor
CTG composite theme grid
CTIC Conservation Technology Information Center
CWA Clean Water Act
CZARA Coastal Zone Act Reauthorization Amendments
DEM digital elevation model
DIAS/IDLMAS.... Dynamic Information Architecture System/Integrated Dynamic
Landscape Analysis and Modeling System
DLG digital line graphs
DO dissolved oxygen
DOI [U.S.] Department of the Interior
DOT [U.S.] Department of Transportation
DQO data quality objective
DRG digital raster graphic
ECOMSED Estuary and Coastal Ocean Model with Sediment Transport
EDAS Ecological Data Application System
EDNA Elevation Derivatives for National Application
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Acronyms and Abbreviations
EFDC Environmental Fluid Dynamics Code
EMAP Environmental Monitoring and Assessment Program
EMC event mean concentration
EPA [U.S.] Environmental Protection Agency
EPIC Erosion Productivity Impact Calculator
EQIP Environmental Quality Incentives Program
ESA Endangered Species Act
ETM enhanced thematic mapper
FEMA Federal Emergency Management Agency
FGDC Federal Geographic Data Committee
FHWA Federal Highway Administration
FSA Farm Service Agency
GAP Gap Analysis Project
GIRAS Geographic Information Retrieval and Analysis System
GIS geographic information system
GISPLM GIS-Based Phosphorus Loading Model
GLEAMS Groundwater Loading Effects of Agricultural Management Systems
GLLVHT Generalized, Longitudinal-Lateral-Vertical Hydrodynamic and
Transport
GPS global positioning system
GRP Grasslands Reserve Program
GSSHA Gridded Surface Subsurface Hydrologic Analysis
GWLF Generalized Watershed Loading Functions
HBI Hilsenhoff Biotic Index
HCP habitat conservation plan
HEC-6 Hydraulic Engineering Center-Scour and Deposition in Rivers and
Reservoirs
HEC-6T Hydraulic Engineering Center-Sedimentation in Stream Networks
HEC-HMS Hydraulic Engineering Center-Hydrologic Modeling System
HEC-RAS Hydraulic Engineering Center-River Analysis System
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HSCTM-2D Hydrodynamic, Sediment and Contaminant Transport Model
HSPF Hydrologic Simulation Program-Fortran
HUC hydrologic unit code
IBI index of biotic integrity
IDEAL Integrated Design and Evaluation Assessment of Loadings
I/E information/education
IMP integrated management practices
IPM integrated pest management
kg/ha/yr kilograms per hectare per year
kg/yr kilograms per year
KINEROS2 Kinematic Runoff and Erosion Model, v2
Ib/d pounds per day
LID low impact development
LIDAR light detection and ranging
LSPC Loading Simulation Program in C+ +
LULC land use/land cover
MDC minimal detectable change
mg/L milligrams per liter
MINTEQA2 Metal Speciation Equilibrium Model for Surface and Ground Water
MQO measurement quality objective
MRLC Multi-resolution Land Characteristics
MS4 municipal separate storm sewer systems
MSGP multi-sector general permit
MUIR map unit interpretation record
MUSIC Model for Urban Stormwater Improvement Conceptualization
MVUE Minimum Variance Unbiased Estimator
NASA National Aeronautics and Space Administration
NAWQA National Water-Quality Assessment
NCDC National Climatic Data Center
NDVI normalized difference vegetation index
XVI
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Acronyms and Abbreviations
NED National Elevation Dataset
NEIPCC New England Interstate Pollution Control Commission
NEMI National Environmental Methods Index
NEP National Estuary Program
NGO non-governmental organization
NHD National Hydrography Dataset
NIR near-infrared
NLCD National Land Cover Dataset
NLFA National Listing of Fish Advisories
NOAA National Oceanic and Atmospheric Administration
NPDES National Pollutant Discharge Elimination System
NFS nonpoint source
NRCS Natural Resources Conservation Service
NRI National Resources Inventory
NSFC National Small Flows Clearinghouse
NSI National Sediment Inventory
NTTS National TMDL Tracking System
NTU nephelometric turbidity unit
NWI National Wetlands Inventory
NWIS National Water Information System
O&M operation and maintenance
OMB [U.S.] Office of Management and Budget
ORSANCO Ohio River Valley Water Sanitation Commission
OSM Office of Surface Mining
P8-UCM Program for Predicting Polluting Particle Passage through Pits,
Puddles, and Ponds—Urban Catchment Model
PAH polycyclic aromatic hydrocarbon
PBMS Performance-Based Methods System
PCS Permit Compliance System
PGC-BMP Prince George's County Best Management Practice Module
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
POTW publicly owned treatment works
PSA public service announcement
QAPP quality assurance project plan
QA/QC quality assurance/quality control
QHEI Qualitative Habitat Evaluation Index
QUAL2E Enhanced Stream Water Quality Model
RBP Rapid Bioassessment Protocol
REMM Riparian Ecosystem Management Model
RF1 Reach File Version 1
RF2 Reach File Version 2
RF3-Alpha Reach File Version 3 - Alpha
RMP resource management plan
RPD relative percent difference
RSAT Rapid Stream Assessment Technique
RUSLE Revised Universal Soil Loss Equation
SAMP Special Area Management Plan
SAP sampling and analysis plan
SAR synthetic aperture radar
SCS Soil Conservation Service
SDWA Safe Drinking Water Act
SED3D Three-dimensional Numerical Model of Hydrodynamics and Sediment
Transport in Lakes and Estuaries
SEM simultaneously extracted metals
SET Site Evaluation Tool
SLAMM Source Loading and Management Model
SOP standard operating procedure
SPARROW Spatially Referenced Regression on Watershed Attributes
SRF State Revolving Fund
SSO sanitary sewer overflow
SSURGO Soil Survey Geographic Database
XVIII
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Acronyms and Abbreviations
STATSGO State Soil Geographic Database
STEPL Spreadsheet Tool for Estimating Pollutant Load
STORET Storage and Retrieval
STORM Storage, Treatment, Overflow, Runoff Model
SVAP Stream Visual Assessment Protocol
SWA source water assessment
SWAP Source Water Assessment Program
SWAT Soil and Water Assessment Tool
SWCD Soil and Water Conservation District
SWCP soil and water conservation plan
SWMM Storm Water Management Model
SWP source water protection
SWPP source water protection plan
SWPPP stormwater pollution prevention plan
TCEQ Texas Commission on Environmental Quality
TDS total dissolved solids
TIGER Topologically Integrated Geographic Encoding and Referencing
TKN total Kjeldahl nitrogen
TM thematic mapper
TMDL Total Maximum Daily Load
TOC total organic carbon
TP total phosphorus
TSI Carlson's Trophic Status Index
TSP technical service provider
TSS total suspended solids
USAGE U.S. Army Corps of Engineers
fiS/cm microsiemens per centimeter
USDA U.S. Department of Agriculture
USFWS U.S. Fish and Wildlife Service
USGS U.S. Geological Survey
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
USLE Universal Soil Loss Equation
UTM universal transverse mercator
VAFSWM Virginia Field Scale Wetland Model
VFSMOD Vegetative Filter Strip Model
VSAP Visual Stream Assessment Protocol
WAMView Watershed Assessment Model with an ArcView Interface
WARMF Watershed Analysis Risk Management Framework
WASP Water Quality Analysis Simulation Program
WATERS Watershed Assessment, Tracking and Environmental Results System
WATERSHEDSS . .WATER, Soil, and Hydro-Environmental Decision Support System
WBD watershed boundary dataset
WCS Watershed Characterization System
WEPP Water Erosion Prediction Project
WHP wellhead protection
WinHSPF Interactive Windows Interface to HSPF
WMS Watershed Modeling System
WQS water quality standard
WRAS Watershed Restoration Action Strategy
WRDA Water Resources Development Act
WWTP wastewater treatment plant
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Handbook Road Map
— 1 Introduction
2 Overview of Watershed Planning Process
3 Build Partnerships
4 Define Scope of Watershed Planning Effort
5 Gather Existing Data and Create an Inventory
6 Identify Data Gaps and Collect Additional Data If Needed
7 Analyze Data to Characterize the Watershed and Pollutant Sources
8 Estimate Pollutant Loads
9 Set Goals and Identify Load Reductions
10 Identify Possible Management Strategies
11 Evaluate Options and Select Final Management Strategies
12 Design Implementation Program and Assemble Watershed Plan
13 Implement Watershed Plan and Measure Progress
1. Introduction
Purpose ofhandbook
Intended audience
Chapter summaries
Tips for using the handbook
Read this chapter if...
• You want to know if this handbook is intended for you
• You want an overview of all the chapters
• You want tips on how to skip around to various sections in the
handbook
1-1
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
What is a watershed?
A watershed is the area of land
that contributes runoff to a lake,
river, stream, wetland, estuary,
or bay.
1.1 What Is the Purpose of This Handbook?
This handbook provides information on developing and implementing watershed manage-
ment plans that help to restore and protect water quality. A watershed is the area of land that
contributes runoff to a lake, river, stream, wetland, estuary, or bay. A watershed management
plan defines and addresses existing or future water quality problems from
both point sources and nonpoint sources of pollutants. Experience over the
past decade has shown that effective watershed management includes active
participation from stakeholders, analysis and quantification of the specific
causes and sources of water quality problems, identification of measurable
water quality goals, and implementation of specific actions needed to solve
those problems.
Don't be daunted by the size of this handbook! Although it is comprehensive in terms of
providing resources and tools for each step of the watershed planning process, it is laid out in
an easy-to-read format with shortcuts and road maps along the way so you can flip to specific
sections for more in-depth information. You might not need to read all the sections if you
have already completed some stages of the watershed planning process. Read the highlights
at the beginning of each chapter to determine whether you can skip to the next section.
Watershed plans are a means to resolve and
prevent water quality problems that result from both
point source and nonpoint source problems. Although
the primary focus of this handbook is on waters listed
as impaired under section 303(d) of the Clean Water
Act, watershed plans are intended both to provide an
analytic framework to restore water quality in impaired
waters and to protect water quality in other waters
adversely affected or threatened by point source and
nonpoint source pollution.
0
This handbook is intended to serve as the basis for devel-
oping and implementing watershed plans to meet water
quality standards and protect water resources. Although
watershed plans are useful for all watersheds to protect and
restore water resources, as well as to meet other community
resource goals, they are critical for impaired or threatened
waterbodies. The most recent national water quality assess-
ment reported that 40 to 50 percent of the nation's assessed
waterbodies are impaired or threatened. This handbook is
designed to provide a framework to help you develop a scien-
tifically defensible plan that will lead to measurable results
and an overall improvement in the water quality and water-
shed conditions that are important to your community.
Developing watershed plans does not have to be an exhaus-
tive, expensive endeavor. This handbook shows you how to
effectively and efficiently collect the information you need
to answer the right questions. The level of effort you expend
preparing a watershed plan will depend on several factors,
such as the available information, the size of the watershed,
and the pollutants of concern.
Federal, state, and local organizations have developed many
watershed guides. EPA intends for this handbook to supple-
ment, rather than replace, those guides. ^ Appendix A
includes a list of some watershed planning guides for your
reference.
1-2
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Chapter 1: Introduction
1.1.1 How Is This Handbook Different from Other Guides?
This handbook is more rigorous and goes into greater detail than most watershed planning
guides. It describes processes and tools used to quantify existing pollutant loads, develop esti-
mates of load reductions needed to meet water quality criteria, and identify the management
measures appropriate for achieving the needed load reductions.
Using these tools will enable you to then develop effective management measures to reduce
the loads. The handbook also provides tools to track progress once you implement the plan to
ensure that the management measures are helping to improve water quality.
1.1.2 Who Should Use This Handbook?
We have designed this handbook to be used by agencies and organizations that develop
watershed management plans. It is specifically intended for those working in a watershed
where there are impaired or threatened waters. Recognizing that a certain level of technical
expertise is required to develop watershed plans, EPA has included information in this hand-
book on how to engage and involve a wide variety of professionals and other interested par-
ties in plan development. To use this handbook effectively, you should have a basic level of
understanding about watersheds, their processes, and the major components of a watershed
management plan. If your watershed issues are technically complex, you might have to enlist
the support of experienced professionals like engineers, hydrologists, statisticians, biologists,
and database managers that have a variety of skills and can provide specific information for
your watershed plan.
The primary audiences that will benefit from this handbook are the following:
Watershed organizations that are developing new plans, updating existing plans to meet
funding requirements, or considering other watershed issues.
Local agencies that are developing or updating a watershed plan or need references to
research a particular subject related to watershed planning.
State and tribal environmental agencies that are developing and reviewing watershed plans,
participating as stakeholders on watershed planning com-
mittees, or providing guidance to watershed associations. A waterbody is impaired if it does not attain the water
quality criteria associated with its designated use(s).
Federal environmental agencies that have similar planning Threa,ened waters are those that meet standards but
programs to help identify overlapping activities, provide exhibit a declining trend in water quality such that they
sources of data, and offer other kinds of financial and wj|| |jke|y exceed standards in the near future.
technical assistance.
1.1.3 What If We Already Have a Watershed Plan?
EPA recognizes that many states and local groups already have in place or are developing
watershed plans and strategies at varying levels of scale, scope, and specificity that might
contribute significantly to the process of developing and implementing watershed plans
using the approach outlined in this handbook.
These existing plans and strategies should be adapted as appropriate or used as building
blocks for developing and implementing watershed plans that contain the nine minimum
elements that EPA recommends including in watershed plans that address impaired or
threatened waterbodies. This can be accomplished by adapting existing plans to include the
1-3
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Table 1-1. Relationship of Chapters to the
Watershed Planning Process
Chapter
1
2
3
4
5
6
7
8
9
10
11
12
13
Introduction
Overview of Watershed
Planning Process
Build Partnerships
Define Scope of
Watershed Planning
Effort
Gather Existing
Data and Create an
Inventory
Identify Data Gaps and
Collect Additional Data
if Needed
Analyze Data to
Characterize the
Watershed and
Pollutant Sources
Estimate Pollutant
Loads
Set Goals and Identify
Load Reductions
Identify Possible
Management
Strategies
Evaluate Options
and Select Final
Management
Strategies
Design Implementation
Program and
Assemble Watershed
Plan
Implement Watershed
Plan and Measure
Progress
Steps in
Watershed
Planning and
Implementation
Process
Build Partnerships
Characterize the
Watershed
Set Goals and
Identify Solutions
Design
Implementation
Program
Implement
Watershed Plan
Measure Progress
and Make
Adjustments
omitted components, incorporating by reference existing
assessments or other information in a newly developed plan,
or merging existing information into an updated plan that
includes all the basic components.
Where existing plans and strategies have been developed at a
basin-wide or other large geographic scale, they usually need
to be refined at the smaller watershed scale to provide the
information needed to develop a watershed plan. The assess-
ment, monitoring, and other data collection requirements for
larger basin studies typically are not as detailed as those for
watershed plans or assessments generated for site-level work
plans.
1.2 What's Inside?
The handbook is divided into 13 chapters that move through
the watershed planning and implementation process
(table 1-1). Each chapter includes information that addresses
the key issues for each step, along with highlights to illus-
trate how to apply these concepts to your own situation. In
addition, the appendices provide more detailed information
on additional resources and worksheets that can be used as
part of your watershed planning efforts.
1.2.1 Chapter Overviews
Chapter 1: Introduction includes the purpose of the hand-
book, intended audiences, and guidelines on how to use the
information provided.
Chapter 2: Overview of Watershed Planning Process pro-
vides an overview of the watershed planning process and
highlights common features of typical watershed planning
processes.
Chapter 3: Build Partnerships provides guidance on initial
activities to organize and involve interested parties, such as
identifying stakeholders, integrating other key programs,
and conducting outreach.
Chapter 4: Define Scope of Watershed Planning Effort
discusses the preliminary activities you undertake to start
scoping out your planning effort. It includes information on
defining issues of concern, developing preliminary goals,
and identifying indicators to assess current conditions.
Chapter 5: Gather Existing Data and Create an Inventory
discusses the first step in watershed characterization—
gathering existing information and creating a data inventory.
It includes collecting information from existing reports and
datasets.
1-4
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Chapter 1: Introduction
Chapter 6: Identify Data Gaps and Collect Additional Data if Needed discusses how to
identify data gaps and collect additional data if needed. This chapter includes a discussion
on quality assurance/quality control procedures and the development of sampling plans.
Chapter 7: Analyze Data to Characterize the Watershed and Pollutant Sources discusses the
primary data analyses needed to identify problems and support development of the plan. It
includes information on the types of data analyses that can be conducted and the tools used.
It also discusses how to link the impairments to the causes and sources of pollutant loads.
Chapter 8: Estimate Pollutant Loads provides guidance on using watershed models and
other tools to estimate pollutant loads. It discusses computer models, identifies the types of
models available, and tells how to select appropriate models for your watershed study.
Chapter 9: Set Goals and Identify Load Reductions discusses how to set management and
water quality goals, develop management objectives, and determine the load reductions
needed to meet the goals. It provides guidance for identifying critical areas to which manage-
ment efforts can be targeted.
Chapter 10: Identify Possible Management Strategies gives an overview of various manage-
ment measures that might be selected, discusses how to identify existing management efforts
in the watershed, and provides considerations for selecting management options.
Chapter 11: Evaluate Options and Select Final Management Strategies discusses how to
screen and research candidate management options, evaluate possible scenarios, and select
the final management measures to be included in your watershed management plan.
Chapter 12: Design Implementation Program and Assemble Watershed Plan provides guid-
ance on establishing milestones and implementation schedules and identifying the technical
and financial resources needed to implement the plan, including information/education (I/E)
activities and monitoring and evaluation components. It discusses how to use various analy-
ses and products to assemble and document the watershed plan.
Chapter 13: Implement Watershed Plan and Measure Progress provides guidance on using
adaptive management techniques to make changes to your watershed plan and on analyzing
the monitoring data to determine whether milestones are being met. It also provides guid-
ance on using a watershed plan to develop annual work plans.
1.2.2 Appendices and Additional Resources
Appendix A: Resources is an expanded list of resources provided to guide you to more
detailed information on various aspects of the watershed
planning process.
Look for This Handbook on the Web!
Appendix B: Worksheets provides a complete set of all the YQU can down|oad a p(jf versjon Qf th|s documen( a(
worksheets and checklists included in the handbook as ^ www epa gov/owow/nps/pubs html
full-size sheets that you can photocopy and use with your
planning group.
Appendix C: List of State Nonpoint Source and Watershed Planning Contacts can help get
you in touch with people that can help in your watershed planning effort.
A Glossary is provided after appendix B to define key terms used in the handbook.
A Bibliography that lists the sources used to prepare the handbook is included.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
1.3 How to Use This Handbook
Although there is no cookie-cutter approach to developing a watershed plan, plans that seek
to identify and address threats or impairments to water quality have some common elements.
This handbook provides various tools for you to consider when developing your watershed
plan and includes many Web links for more in-depth information on particular topics. The
document is structured so you can proceed step by step through the watershed planning
process or can go directly to a section that highlights a specific technical tool for use in your
watershed planning effort.
Some common themes are repeated throughout the handbook to reinforce the concepts pre-
sented, provide shortcuts, and help you to focus your efforts. These tips are identified by the
following icons:
Elements of Watershed Plans. One of the purposes of this handbook is to show
how the nine elements presented in the Clean Water Act section 319 guidelines are used to
develop effective watershed plans for threatened and impaired waters. Many organizations
already have plans that include some of these elements but might require additional informa-
tion on other elements. Note that most of the nine elements are presented in chapters 10-13.
©Targeting Your Efforts. Although the handbook includes various options to be consid-
ered in each step of the watershed planning process, planners must target their efforts to
move the process forward to achieve measurable progress in reducing specific pollutant loads.
You might already have a good idea of the problems in your watershed and want to identify
targeted management measures to address them. Or perhaps your watershed has only one
pollutant of concern. The ©icon highlights places in the planning process where it makes
sense to target your efforts so you can focus your resources to identify the most likely prob-
lems and solutions for your watershed.
^P Watershed planning is not an exact science. Often we have to make decisions based
on our best professional judgment to move the process forward. There are, however, several
places along the way where you should stop and assess what you know, what information
you have, and what additional information you need. If you see the stop sign, ^y, take a
minute to read the information to make sure you're going down the right path with the right
information.
^> This icon indicates where the topic is discussed elsewhere in the document, or where
more information is provided in the text, the Resources appendix (appendix A), other docu-
ments, or the Internet.
^Worksheets and Checklists. Worksheets and checklists are provided throughout the
handbook to help you work through the watershed planning process with the stakeholders.
The worksheets are noted with a jf. A complete set is provided in appendix B to facilitate
photocopying.
1-6
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Handbook Road Map
1 Introduction
— 2 Overview of Watershed Planning Process
3 Build Partnerships
4 Define Scope of Watershed Planning Effort
5 Gather Existing Data and Create an Inventory
6 Identify Data Gaps and Collect Additional Data If Needed
7 Analyze Data to Characterize the Watershed and Pollutant Sources
8 Estimate Pollutant Loads
9 Set Goals and Identify Load Reductions
10 Identify Possible Management Strategies
11 Evaluate Options and Select Final Management Strategies
12 Design Implementation Program and Assemble Watershed Plan
13 Implement Watershed Plan and Measure Progress
Overview of Watershed Planning
Process
Using a watershed approach
Common features in watershed planning
Steps in the watershed planning process
Watershed planning for impaired waters
Common watershed impairments
Summary of nine minimum elements to be included in
a watershed plan for impaired waters
Read this chapter if...
• You are unfamiliar with watershed planning concepts
• You want to know more about water quality standards
• You don't know the most common water quality impairments in
the United States
• You want a list of the nine minimum elements to be included in
section 319-funded watershed plans
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
2.1 Why Use a Watershed Approach to Manage Water Resources?
Since the late 1980s, watershed organizations, tribes, and federal and state agencies have
moved toward managing water quality through a watershed approach. A watershed approach is
a flexible framework for managing water resource quality and quantity within specified drain-
age areas, or watersheds. This approach includes stakeholder involvement and management
actions supported by sound science and appropriate technology. The watershed planning process
works within this framework by using a series of cooperative, iterative steps to characterize
existing conditions, identify and prioritize problems, define management objectives, develop
protection or remediation strategies, and implement and adapt selected actions as necessary.
The outcomes of this process are documented or referenced in a watershed plan. A watershed
plan is a strategy that provides assessment
and management information for a geo-
What Is an Impaired Waterbody? graphically defined watershed, including the
EPA defines an impaired waterbody as a waterbody that does not meet analyses, actions, participants, and resources
water quality criteria that support its designated use. The criteria might be related to developing and implementing the
numeric and specify concentration, duration, and recurrence intervals for plan The development Of watershed plans
various parameters, or they might be narrative and describe required ir£s a ^^ ^ of technical tise
conditions such as the absence of scum, sludge, odors, or toxic substances. . . ..... . r .
and the participation ot a variety ot people
If the waterbody is impaired, it is placed on the section 303(d) list. For with diverse skills and knowledge.
each pollutant listed, the state or tribe must develop a restoration target
called a Total Maximum Daily Load (TMDL). UsinS a watershed approach to restore
impaired waterbodies is beneficial because it
addresses the problems in a holistic manner
and the stakeholders in the watershed are actively involved in selecting the management
strategies that will be implemented to solve the problems. Nonpoint source pollution poses
the greatest threat to water quality and is the most significant source of water quality
impairment in the nation. Therefore, EPA is working with states, tribes, and watershed
groups to realign its programs and strengthen support for watershed-based environmental
protection programs. Such programs feature local stakeholders joining forces to develop and
implement watershed plans that make sense for the conditions found in local communities.
Specific features of the watershed approach are explained below.
2.2 Common Features of the Watershed Planning Process
Although each watershed plan emphasizes different issues and reflects unique goals and
management strategies, some common features are included in every watershed planning
process. The watershed planning process is iterative, holistic, geographically defined, inte-
grated, and collaborative.
Watershed Planning States are encouraged to develop statewide
^AppendixA includes a selected list of watershed guides published by watershed planning frameworks that inte-
various state and federal agencies. These guides might help you to fulfill grate ancj coordinate plans for large drainage
state-specific requirements or provide more in-depth information on ar£as plans for j basins should contain
specific issues. , . . .
general or summarized quantitative analy-
ses of current water quality problems (e.g.,
pollutant loads) and the load reductions or other benefits expected from the implementation
of best management practices (BMPs). The level of detail for these large-basin plans will not
be as refined as those for smaller watersheds, but an overview of current pollutant loads and
future load reductions expected from BMPs is helpful in providing some sense of the scope
2-2
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Chapter 2: Overview of Watershed Planning Process
of the problem(s) in the basin and the
level of effort needed to restore or protect
water quality. The level of detail would
be further refined for subbasins or water-
sheds, to provide more specific informa-
tion for project work plans.
2.2.1 Watershed Planning Is
an Iterative and Adaptive
Process
EPA recognizes that the processes involved
in watershed assessment, planning, and manage-
ment are iterative and that targeted actions might not
result in complete success during the first or second cycle. It is expected,
however, that through adjustments made during the management cycles,
water quality improvements can be documented and continuous progress
toward attaining water quality standards can be achieved. Watershed plans
should address all the sources and causes of waterbody impairments and
threats; that is, the plans should address not only the sources of the immedi-
ate water quality impairment but also any pollutants and sources of pollutants
that need to be addressed to ensure the long-term health of the watershed.
EPA recognizes the difficulty in obtaining watershed-related information
with precision and acknowledges that a balanced approach is needed to
address this concern. On one hand, it is absolutely critical that watershed
planners make a reasonable effort to identify significant pollutant sources,
specify the management measures that will most effectively address those
sources, and broadly estimate the expected load reductions that will result.
Without this analytic framework to provide focus and direction, it is much
less likely that projects implemented under the plan can efficiently and ef-
fectively address the nonpoint sources of water quality impairments.
On the other hand, EPA recognizes that even if reasonable steps are taken to
obtain and analyze relevant data, the information available during the plan-
ning stage (within reasonable time and cost constraints) might be limited.
Preliminary information and loading estimates might need to be updated
over time, accompanied by midcourse corrections in the watershed plan and
the activities it promotes. In many cases, several years of implementation
might be needed for a project to achieve its goals. EPA fully intends that the
watershed planning process described in this handbook be implemented in
a dynamic and adaptive manner to ensure that implementation of the plan
can proceed even though some of the information in the watershed plan is
imperfect and might need to be modified over time as better information
becomes available.
Remember...
Although watershed plans are
recommended to implement
TMDLs, they should be
developed holistically to consider
other impairments and threats
in the watershed. TMDLs might
focus on specific waterbody
segments, sources, or pollutants,
whereas the watershed plan
should incorporate the pollutant-
and site-specific TMDL into the
larger context of the watershed,
including
• Additional water quality
threats
• Additional pollutants
• Additional sources
• Threatened waterbodies
• Synergistic effects
• Water quantity issues
• Development pressures
• Habitat protection
• Wetland restoration/creation
• Source water protection
2.2.2 Watershed Planning Is a Holistic Process
EPA supports the implementation of holistic watershed plans because this approach usually
provides the most technically sound and economically efficient means of addressing water
quality problems and is strengthened through the involvement of stakeholders that might
2-3
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
have broader concerns than solely attainment of water quality standards (e.g., water supply,
aesthetics). A holistic approach addresses all the beneficial uses of a waterbody, the criteria
needed to protect the use, and the strategies required to restore water quality or prevent deg-
radation. This approach will help to expedite cooperative, integrated water resource planning
and successful implementation of needed management, thereby facilitating the restoration
of water quality. For example, watershed plans that incorporate a full range of other resource
management activities, such as source water protection for drinking water, forest or rangeland
management planning, agricultural resource management
systems, and parkland or greenspace management will be
better able to address the various challenges and opportuni-
ties related to water resource restoration or protection.
Why Watershed Plans Fail
The Center for Watershed Protection conducted a
broad assessment of the value of planning documents
in protecting water resources and identified a number
of reasons why some plans had failed:
• Planning activities were conducted at too great a
scale.
• The plan was a one-time study rather than a long-
term management process.
• Stakeholder involvement and local ownership were
lacking.
2.2.3 Watershed Planning Is Geographically
Defined
The plan skirted land use/management issues in
the watershed.
The document was too long or complex.
The recommendations were too general.
The plan failed to identify and address conflicts.
By definition, watershed planning focuses on a watershed, a
geographic area that is defined by a drainage basin. A water-
shed plan should address a geographic area large enough to
ensure that implementing the plan will address all the major
sources and causes of impairments and threats to the water-
body under review. Although there is no rigorous definition
or delineation of this concept, the general intent is to avoid
a focus on single waterbody segments or other narrowly
defined areas that do not provide an opportunity for address-
ing watershed stressors in a rational, efficient, and economi-
cal manner. At the same time, the scale should not be so
large that it hampers the ability to conduct detailed analyses or minimizes the probability
of involvement by key stakeholders and successful implementation. If you select a scale that
is too broad, you might be able only to conduct cursory assessments and will not be able to
accurately link the impacts back to the sources and causes.
Plans that bundle subwatersheds with similar sets of problems or address a common stressor
(e.g., sediment, nutrients) across multiple related watersheds can be particularly useful in
terms of planning and implementation efficiency and the strategic use of administrative
resources. ^> Chapters 4 and 7 provide more specific guidance on defining the geographic
extent of your planning effort.
Plans That You Might Want to
Integrate into Your Watershed
Planning Activities
• Source water assessments
• TMDL implementation plans
• Stormwater management plans
• Resource management plans
• Master plans
• Facility plans
• Wetland assessments
• Wildlife action plans
• Aquatic GAP analyses
2.2.4 Watershed Planning Should Be Integrated with Other
Planning Efforts
It is likely that many federal, state, tribal, and local planning efforts
are occurring simultaneously with your watershed planning effort. At a
minimum, you should be aware of these programs; ideally, you should
integrate them into your watershed planning effort through stakeholder
participation, data sharing, and implementation of management mea-
sures. ^ Chapter 3 provides a summary of specific programs that have a
planning component or conduct related activities that you might want to
integrate with your watershed planning effort. You might also want to in-
clude staff from these programs as partners in developing your watershed
plan. This approach can help in gaining additional technical expertise,
leveraging resources, and sharing responsibilities for implementation.
2-4
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Chapter 2: Overview of Watershed Planning Process
2.2.5 Watershed Planning Is a Collaborative and Participatory Process
One of the key characteristics of the watershed planning process is that it is participatory.
The Center for Watershed Protection conducted research that showed that implementation
of a watershed plan has the greatest chance of success when stakeholders are brought into
the process at the very beginning of the watershed planning effort (CWP 1996). This finding
is supported by the fact that implementation of the plan usually rests with members of the
community, and if they are involved up front and see that their concerns are addressed, they
will be more likely to participate in developing management options and supporting plan
implementation. ^> Chapter 3 discusses how to involve stakeholders to enhance the water-
shed planning process and implementation of the plan.
2.3 Steps in the Watershed Planning and Implementation Process
The parts of the watershed planning process can be illustrated in a number of ways, such as
steps, phases, or portions of a circle. In general, all watershed planning efforts follow a simi-
lar path from identifying the problems to, ultimately, implementing actions to achieve the
established goals. Many groups find that informal scoping and information collection prior
to plan development provides valuable input during the early phase of planning. Scoping ac-
tivities include pre-planning data review and discussions with stakeholders that can help to
define the planning area, identify other stakeholders, and help to solicit opinions and advice
on how to proceed before launching into the plan development process. __„— —
This handbook organizes the watershed planning process into the
following major steps:
1. Build partnerships.
2. Characterize the watershed to
identify problems.
3. Set goals and identify -
solutions.
4. Design an implementation
program.
5. Implement the watershed plan.
6. Measure progress and make adjustments.
Within each step, several activities are conducted before moving on to the
next step. Many of these activities are repeated in different steps. For example, information/
education (I/E) activities occur in the first step when building partnerships but also occur
throughout the process, especially when implementing the plan.
It can be daunting to begin the planning process and consider the scope of work needed to
implement watershed restoration and/or protection measures. Many groups have found that
tackling smaller projects and tasks early in the planning process can help to engage stake-
holders and demonstrate progress, creating a sense of momentum that leads to long-term
success.
Figure 2-1 shows some of the activities and tools used in each step of the watershed plan
development and implementation process. The figure provides a road map for the watershed
planning process, as well as a road map for this document. You might want to refer back to it
from time to time to find out where you are in the process and where you need to go. Note that
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Steps in the Watershed Planning and Implementation Process
1. Build Partnerships
• Identify key stakeholders
• Identify issues of concern
• Set preliminary goals
• Develop indicators
• Conduct public outreach
2. Characterize the Watershed
• Gather existing data and create a watershed inventory
• Identify data gaps and collect additional data if needed
• Analyze data
• Identify causes and sources of pollution that need to be controlled
• Estimate pollutant loads
3. Finalize Goals and Identify Solutions
• Set overall goals and management objectives
• Develop indicators/targets
• Determine load reductions needed
• Identify critical areas
• Develop management measures to achieve goals
Characterization and
Analysis Tools
> CIS
> Statistical packages
> Monitoring
> Load calculations
> Model selection tools
> Models
> Databases
(environmental and
social tools)
4. Design an Implementation Program
• Develop implementation schedule
• Develop interim milestones to track implementation of management measures
• Develop criteria to measure progress toward meeting watershed goals
• Develop monitoring component
• Develop information/education component
• Develop evaluation process
• Identify technical and financial assistance needed to implement plan
• Assign responsibility for reviewing and revising the plan
5. Implement Watershed Plan
• Implement management strategies
• Conduct monitoring
• Conduct information/education activities
6. Measure Progress and Make Adjustments
Review and evaluate information
Share results
Prepare annual work plans
Report back to stakeholders and others
Make adjustments to program
Watershed Plan
Document
Figure 2-1. Steps in the Watershed Planning Process
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Chapter 2: Overview of Watershed Planning Process
steps 1 through 4 feed into the development of the plan, but the watershed planning process
continues with plan implementation. Once the plan is implemented, annual work plans are
prepared, monitoring activities are conducted to quantitatively measure progress toward meet-
ing water quality goals, and plan adjustments based on evaluation information received (and
other inputs, such as changes in resources or watershed conditions) are continually made.
2.4 Watershed Planning for Impaired Waters
EPA recognizes the need to focus on developing and implementing watershed
plans for waters that are impaired in whole or in part by nonpoint sources. For
these waterbodies it is imperative to select on-the-ground management mea-
sures and practices that will reduce pollutant loads and contribute in measur-
able ways to restoring of impaired waters to meet water quality standards.
What Are Loads?
Pollutant load refers to the
amount of pollutants entering
a waterbody. Loads are usually
expressed in terms of a weight
and a time frame, such as pounds
per day (Ib/d).
2.4.1 What Are the Most Common Impairments?
Waterbodies can be impaired by one source or a combination of sources.
Across the country, a wide variety of waters are listed as impaired by a range
of pollutants. Based on the most recent state 303(d) lists, there are more than
38,000 impaired waters in the United States and more than 63,000 associated
impairments.1 Pathogens, metals, nutrients, and sediment are the most com-
mon pollutants included on state lists, and the top 10 listed impairments account for over 75
percent of the total listings in the nation (table 2-1). Since January 1,1996, EPA has approved
almost 25,000 TMDLs, accounting for approximately 64 percent of the nationwide listings.
Table 2-1. Top Ten 303(d) List Impairments in the United States (August 14, 2007)
Much of this handbook focuses
on how to identify pollutant loads
and how to determine the load
reductions needed to meet water
quality goals.
General Impairment3
Pathogens
Mercury
Sediment
Metals (other than mercury)
Nutrients
Oxygen depletion
PH
Cause unknown - biological integrity
Temperature
Habitat alteration
Number Reported
8,558
8,555
6,749
6,368
5,617
4,540
3,376
2,867
2,852
2,246
Percent Reported
13.5
13.5
10.6
10.0
8.8
7.1
5.3
4.5
4.5
3.5
Cumulative Percent
13.5%
26.9%
37.5%
47.5%
56.3%
63.5%
68.8%
73.3%
77.8%
81.3%
a "General impairment" might represent several associated pollutants or impairment listings. For example, the metals category includes 30 specific
pollutants or related listings (e.g., iron, lead, contaminated sediments).
Source: EPA's National Section 303(d) List Fact Sheet (http://oaspub.epa.gov/waters/national_rept.control).
Most watershed plans address some combination of these major pollutants: pathogens, met-
als, nutrients, sediment, and thermal impacts. The next several chapters of the handbook
highlight various types of data and analysis tools that you can use to support watershed plan
development. ©Knowing the major impairments might help you to focus your data collec-
tion efforts and determine what types of analyses to conduct.
1 Data were accessed on August 14, 2007, and are based on a review of the most recent state data available. The state lists included in the national
summary range from 1998 to 2002. The national summary of 303(d) listings is available at http://oaspub.epa.gov/waters/national_rept.control.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
What Is a TMDL?
If a waterbody is impaired, it is placed on the 303(d)
list. For each impaired waterbody, a state or tribe
must develop an accounting of loads that would result
in the waterbody's meeting water quality standards.
This is called a Total Maximum Daily Load (TMDL).
A TMDL is the amount, or load, of a specific pollutant
that a waterbody can assimilate and still meet the
water quality standards. The load is allocated among
the current pollutant sources (point, nonpoint,
and background sources), a margin of safety, and
sometimes future growth.
The typical steps for developing a TMDL include the
following:
1. Identify linkages between water quality problems
and pollutant sources.
To provide a better understanding of the major pollutants
contributing to waterbody impairments, the typical sources
of pollutants and the associated impacts on waterbodies and
their designated uses are summarized in table 2-2. This
summary provides a starting point for you to think about
the types of data you'll collect and analyses you'll conduct to
characterize watershed conditions.
When collecting and analyzing your data, it's also important
to keep in mind the entire watershed and the general prob-
lems and goals. For example, some of the watershed prob-
lems might not be those officially recognized as impairments
on the 303(d) lists. Broader issues like wetland degradation
and adequate source water protection should also be priori-
ties in your watershed. Source water protection is important
for both sustaining good water quality and quantity and
sustaining biological integrity.
2. Estimate total acceptable loading rate that achieves
water quality standards.
3. Allocate acceptable loading rates between sources.
4. Package the TMDL for EPA approval.
Although watershed plans should be holistic and include
information on the broad array of attributes, problems, and
protection strategies needed in a watershed, plans that include
impaired waters should also contain quantified estimates of
current (and sometimes future) problem pollutant loads and
reductions designed to achieve water quality standards and
other watershed goals. Nonpoint source TMDLs and watershed plans that address quantifiable
loading estimates and load reduction strategies provide the analytic link between actions on
the ground and attainment of water quality standards. To strengthen this link, the load reduc-
tions should be separated by source category to enable you to identify the specific actions and
locations of management strategies as part of your implementation efforts. In the absence of
such a framework, it's difficult to develop and implement a watershed plan that can be expected
to achieve water quality standards or other environmental goals, or to determine the causes of
failure when nonpoint source projects do not result in expected water quality improvements.
The watershed planning process described in this handbook emphasizes the restoration
(and considers protection) of nonpoint source-affected waters through the development of an
analytic framework that accommodates waters with or without approved TMDLs.
2.4.2 Watershed Planning Where a TMDL Has Been Developed
States may use a portion of the funding they receive under section 319 of the Clean Water Act
to develop TMDLs and to develop and implement watershed plans that are consistent with
those TMDLs. In addition, states may develop and implement watershed plans in advance of
TMDLs where none exist. In cases where a TMDL for affected waters has already been de-
veloped and approved or is being developed, the watershed plan should be crafted to achieve
the load reductions called for in the TMDL.
2.4.3 Watershed Planning in the Absence of a TMDL
If a TMDL has not yet been developed, the plan should be designed to attain water qual-
ity standards if possible, in addition to other environmental goals. If implementation of
the watershed plan successfully addresses water quality impairments, a TMDL may not be
needed (^> see www.epa.gov/owow/tmdl/2006IRG). EPA encourages states to include in
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Chapter 2: Overview of Watershed Planning Process
Table 2-2. Summary of Common Pollutants and Sources
Pollutant
Potential Sources
Point Sources
Nonpoint Sources
Impacts on Waterbody Uses
Pathogens
WWTPs
CSOs/SSOs
Permitted CAFOs
Discharges from meat-
processing facilities
Landfills
Animals (domestic, wildlife,
livestock)
Malfunctioning septic systems
Pastures
Boat pumpout facilities
Land application of manure
Land application of wastewater
Primarily human health risks
Risk of illness from ingestion or from contact with
contaminated water through recreation
Increased cost of treatment of drinking water supplies
Shellfish bed closures
Metals
Urban runoff
WWTPs
CSO/SSOs
Landfills
Industrial facilities
Mine discharges
Abandoned mine drainage
Hazardous waste sites (unknown
or partially treated sources)
Marinas
Atmospheric deposition
Aquatic life impairments (e.g., reduced fish populations
due to acute/chronic concentrations or contaminated
sediment)
Drinking water supplies (elevated concentrations in
source water)
Fish contamination (e.g., mercury)
Nutrients
WWTPs
CSOs/SSOs
CAFOs
Discharge from food-
processing facilities
Landfills
Cropland (fertilizer application)
Landscaped spaces in developed
areas (e.g., lawns, golf courses)
Animals (domestic, wildlife,
livestock)
Malfunctioning septic systems
Pastures
Boat pumpout
Land application of manure or
wastewater
Atmospheric deposition
Aquatic life impairments (e.g., effects from excess plant
growth, low DO)
Direct drinking water supply impacts (e.g., dangers to
human health from high levels of nitrates)
Indirect drinking water supply impacts (e.g., effects
from excess plant growth clogging drinking water facility
filters)
Recreational impacts (indirect impacts from excess
plant growth on fisheries, boat/swimming access,
appearance, and odors)
Human health impacts
Sediment
WWTPs
Urban stormwater
systems
Agriculture (cropland and
pastureland erosion)
Silviculture and timber
harvesting
Rangeland erosion
Excessive streambank erosion
Construction
Roads
Urban runoff
Landslides
Abandoned mine drainage
Stream channel modification
Fills pools used for refuge and rearing
Fills interstitial spaces between gravel (reduces
spawning habitat by trapping emerging fish and reducing
oxygen exchange)
When suspended, prevents fish from seeing food and
can clog gills; high levels of suspended sediment can
cause fish to avoid the stream
Taste/odor problems in drinking water
Impairs swimming/boating because of physical
alteration of the channel
Indirect impacts on recreational fishing
Temperature
WWTPs
Cooling water
discharges (power
plants and other
industrial sources)
Urban stormwater
systems
Lack of riparian shading
Shallow or wide channels (due to
hydrologic modification)
Hydroelectric dams
Urban runoff (warmer runoff
from impervious surfaces)
Sediment (cloudy water absorbs
more heat than clear water)
Abandoned mine drainage
Causes lethal effects when temperature exceeds
tolerance limit
Increases metabolism (results in higher oxygen demand
for aquatic organisms)
Increases food requirements
Decreases growth rates and DO
Influences timing of migration
Increases sensitivity to disease
Increases rates of photosynthesis (increases algal
growth, depletes oxygen through plant decomposition)
Causes excess plant growth
Note: WWTP = wastewater treatment plant; CSO = combined sewer overflow; SSO = sanitary sewer overflow; CAFO = concentrated animal feeding operation;
DO = dissolved oxygen.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Watershed Plans to Protect Unimpaired
Waters
In some cases, stakeholders might want to protect
waters that are affected by nonpoint source pollution
but are not included on the 303(d) list. Of particular
concern are high-quality waters that are threatened
by changing land uses when unique and valuable
aquatic resources (e.g., habitat for salmon migration,
spawning, and rearing) are at serious risk of irreparable
harm. Watershed project sponsors can use the tools
presented in this handbook to develop watershed plans
for waters that are not impaired by nonpoint source
pollution to ensure that they remain unimpaired.
their watershed plans all the significant causes and sources
of waterbody impairments and threats; i.e., watershed
plans should address not only the sources of water quality
impairment but also any pollutants and sources of pollution
that need to be addressed to ensure the long-term health of
the watershed. If a TMDL is later completed and approved,
the plan might need to be modified to make it consistent
with the TMDL. EPA continues to encourage the develop-
ment of TMDLs or, where applicable, sets of such TMDLs
on a watershed basis. Figure 2-2 illustrates the potential
relationships between TMDLs and watershed plans.
1 Watershed plan is
used to implement a
completed TMDL
Identify
water quality
problem
Develop
and implement
watershed plan
Meet
water quality
standards
Watershed plan is
developed in the absence
of a completed TMDL. If a
TMDL is completed, the
plan is modified to make it
consistent with the TMDL.
Identify
water quality
problem
Develop
and implement
watershed plan
Meet
water quality
standards
Watershed plan is
developed in the absence
of a completed TMDL. If
monitoring indicates WQS
attainment, there is no
need for a TMDL.
Identify
water quality
problem
Develop
and implement
watershed plan
Meet
water quality
standards
Figure 2-2. Potential Relationships Between TMDLs and Watershed Plans
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Chapter 2: Overview of Watershed Planning Process
2.5 Including Water Quality Standards in Goal Setting
Each watershed management plan will address different issues and include
unique goals and site-specific management strategies to achieve those
goals. All plans should also include attainment of water quality
standards for surface waters in the management area. Because
water quality standards are the foundation of EPA's water quality
protection efforts, this handbook includes a brief description of
what they are and how they're used in watershed management
programs.
2.5.1
What Are Water Quality Standards and Why
Are They Important?
An important cornerstone of the Clean Water Act is the requirement
that states, tribes, and territories adopt water quality standards to protect
public health, support wildlife, and enhance the quality of life within their
jurisdictions. Water quality standards serve as the basis for assessing waters, establishing
TMDLs, and setting attainment limits in NPDES permits. Attaining these standards helps
to ensure that waters will remain useful to both humans and aquatic life. Standards also
drive water quality restoration activities because they help to determine which waterbodies
must be addressed, what level of restoration is necessary, and which activities need to be
modified to ensure that the waterbody meets its minimum standards.
Standards are developed by designating one or more beneficial uses for each waterbody
and establishing a set of criteria that protect those uses. Standards also include an
antidegradation policy.
2.5.2 How Are Water Quality Standards Set?
Water quality standards are composed of three elements:
• Designated (beneficial) uses
• Numeric and narrative criteria
• Antidegradation policies
Designated Uses
Designated or beneficial uses are descriptions of water quality expectations
or water quality goals. A designated use is a legally recognized description
of a desired use of the waterbody, such as aquatic life support, body contact
recreation, fish consumption, or public drinking water supply. These are uses
that the state or authorized tribe wants the waterbody to be healthy enough
to support fully.
Example Designated Uses
• Growth and propagation of fish
• Water contact recreation
• Drinking water
• Agricultural water supply
• Industrial supply
• Wildlife
• Swimming
State and tribal governments are primarily responsible for designating uses of waterbodies
within their jurisdictions. Some water quality agencies have many use designations and
differentiate among various categories of uses for aquatic life support, irrigation, and even
cultural uses for tribal waters. Other agencies designate uses by broad categories or classes,
with uses requiring similar water quality conditions grouped under each class.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Water Quality Criteria
Criteria define the levels, pollutant/constituent concentrations, or narrative statement re-
flecting the condition of the waterbody that supports its designated use(s). Criteria describe
physical, chemical, and biological attributes or conditions as numeric (e.g., concentrations
of certain chemicals) or narrative (e.g., no objectionable scum, sludge, odors) water quality
components. Together, the various criteria for a particular designated use paint a picture of
the water quality necessary to support the use. EPA, states, and tribes establish water quality
criteria for various waterbody uses as part of their water quality standards.
Numeric Criteria
EPA, states, and tribes have set numeric criteria or limits for many common water quality
parameters, such as concentrations of bacteria, suspended sediment, algae, dissolved metals,
minimum/maximum temperatures, and so on. Numeric criteria for protecting aquatic life
are often expressed as a concentration minimum or maximum for certain parameters and
include an averaging period and a frequency or recurrence
interval. For example, a criterion for a parameter of concern
.... ., .. _.„ „ . .. . might state that concentrations of the parameter must not
What's the Difference Between Numeric JC n j r c i i
and Narrative Critpria? exceed 5 parts per million, averaged from five samples col-
lected within a 30-day period, and recurring more than once
It's important to note that numeric criteria are invalu- • ? • ,
able when setting specific, measurable goals for
waterbody cleanup plans because they provide a very Criteria for protecting human health may be derived from
clear indication of when water quality meets the crite- epidemiological studies and laboratory studies of pollut-
ria. However, federal, state, and tribal numeric criteria ant exposure invoiving Species like rats and mice. Numeric
development is complex and expensive in terms of criteda established to nt dmmic conditions are more
time and resources. Narrative criteria provide a means ...... r
,, , , .... ,, ,,. , , , strict than those focusing on acute exposure to parameters of
to convey the context, conditions, and full intent of
water quality protection efforts in the absence of concern.
numeric criteria development and monitoring efforts. Narrative Criteria
Narrative criteria are nonnumeric descriptions of desir-
able or undesirable water quality conditions. An example
of a narrative criterion is "All waters will be free from sludge; floating debris; oil and scum;
color- and odor-producing materials; substances that are harmful to human, animal, or
aquatic life; and nutrients in concentrations that may cause algal blooms."
Biocriteria
A comprehensive assessment of a waterbody might include a description of its biological
characteristics. Biological criteria, or "biocriteria," have been developed to quantitatively
describe a waterbody with a healthy community of fish and associated aquatic organisms.
Components of biocriteria include the presence and seasonality of key indicator species; the
abundance, diversity, and structure of the aquatic community; and the habitat conditions
these organisms require. Monitoring of these biological indicators provides a simple and of-
ten inexpensive way to screen waters that are supporting their uses without a lot of expensive
chemical and other testing. In addition, biological assessments can capture the impacts of
intense, short-term pollution that might go undetected under conventional chemical testing.
Even if states have not yet adopted official biocriteria for their waters, biological sampling
can be an important part of watershed monitoring to show progress in meeting load reduc-
tions and attaining narrative criteria.
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Chapter 2: Overview of Watershed Planning Process
(1)
(2)
Antidegradation Policies and Implementation
Methods
The antidegradation requirements cited in federal, state,
and tribal water quality standards provide an excellent and
widely used approach for protecting waters threatened by
human activities that might cause a lowering of water qual-
ity. Under these provisions, which are required under the
Clean Water Act, a public agency designated as the federally
delegated water quality authority must adopt both an anti-
degradation policy and identify methods for implementing
the policy. The policy must protect existing waterbody uses
(40 CFR 131.12(a)(l)). There are two other parts, or tiers, of
the antidegradation policy. Under Tier II, waters that exceed
quality levels necessary to support propagation of fish,
shellfish, and wildlife and recreation in and on the water
must be protected unless the delegated water quality agency
(1) determines that allowing lower water quality is necessary
to accommodate important economic or social development
in the area in which the waters are located and (2) meets
relevant public participation and intergovernmental coordi-
nation provisions of the state or tribal continuing planning
process. The antidegradation policy must also ensure that
the quality of all outstanding national resource waters is
maintained and protected (Tier III).
Implementation methods or procedures for antidegrada-
tion policies usually include antidegradation reviews for
all new or expanded regulated activities that might lower
water quality, such as wastewater treatment, stormwater,
CAFO, and other discharges subject to National Pollutant
Discharge Elimination System (NPDES) permits; activi-
ties governed by Clean Water Act section 404 "dredge and
fill" permits; and other activities regulated by federal, state,
tribal, or other authorities. In the past, permit approval
processes for these activities focused mostly on whether they
would maintain water quality to meet existing uses (40 CFR
131.12(a)(l)). However, the Tier II antidegradation provisions
require that higher-quality waters be protected unless there
is a demonstration of necessity and if there is important eco-
nomic or social development in the area in which the waters
are located, and public participation and intergovernmental
coordination requirements are met. States often include, as a
part of the Tier II review, requirements to examine possible
alternatives to proposed activities that would lower water
quality, as well as an analysis of the costs associated with the
alternatives.
^i> For more in-depth descriptions of water quality standards and criteria, go to
www.epa.gov/waterscience/standards.
Full Text of the Federal Antidegradation
Regulations at 40 CFR, Chapter I, Section
131.12:
(a) The State shall develop and adopt a statewide
antidegradation policy and identify the methods for
implementing such policy pursuant to this subpart.
The antidegradation policy and implementation
methods shall, at a minimum, be consistent with
the following:
(3)
(4)
Existing instream water uses and the level of
water quality necessary to protect the existing
uses shall be maintained and protected.
Where the quality of the waters exceed levels
necessary to support propagation of fish,
shellfish, and wildlife and recreation in and
on the water, that quality shall be maintained
and protected unless the State finds, after
full satisfaction of the intergovernmental
coordination and public participation
provisions of the State's continuing planning
process, that allowing lower water quality
is necessary to accommodate important
economic or social development in the area in
which the waters are located. In allowing such
degradation or lower water quality, the State
shall assure water quality adequate to protect
existing uses fully. Further, the State shall
assure that there shall be achieved the highest
statutory and regulatory requirements for all
new and existing point sources and all cost-
effective and reasonable best management
practices for nonpoint source control.
Where high quality waters constitute an
outstanding National resource, such as waters
of National and State parks and wildlife refuges
and waters of exceptional recreational or
ecological significance, that water quality shall
be maintained and protected.
In those cases where potential water quality
impairment associated with a thermal
discharge is involved, the antidegradation
policy and implementing method shall be
consistent with section 316 of the Act.
%> http://ecfr.gpoaccess.goV/cgi/t/text/
text-idx?c=ecfr&rgn=div5&view=
text&node=40:21.0.1.1.18&idno=40#
40:21.0.1.1.18.2.16.3
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
2.6 ©Nine Minimum Elements to Be Included in a Watershed
Plan for Impaired Waters Funded Using Incremental Section
319 Funds
Although many different components may be included in a watershed plan, EPA has identi-
fied nine key elements that are critical for achieving improvements in water quality. (^> Go
to www.epa.gov/owow/nps/cwact.html for a copy of the
.... ._ _.. ... _ FY 2004 Guidelines for the Award of Section 319 Nonpoint
what Does This Mean? _ ^ „,_...
Source (jrants to states and lemtones).
^JShowsyou where one or more of the nine minimum __,. ... . . . .. ..
elements are specifically discussed. EPA requires that these nine elements be addressed in
watershed plans funded with incremental Clean Water Act
section 319 funds and strongly recommends that they be
included in all other watershed plans intended to address water quality impairments. In
general, state water quality or natural resource agencies and EPA will review watershed plans
that provide the basis for section 319-funded projects. Although there is no formal require-
ment for EPA to approve watershed plans, the plans must address the nine elements dis-
cussed below if they are developed in support of a section 319-funded project.
In many cases, state and local groups have already developed watershed plans for their rivers,
lakes, streams, wetlands, estuaries, and coastal waters. If these existing plans contain the
nine key elements listed below, they can be used to support section 319 work plans that con-
tain projects extracted from the plan. If the existing plans do not address the nine elements,
they can still provide a valuable framework for producing updated plans. For example, some
watershed management plans contain information on hydrology, topography, soils, climate,
land uses, water quality problems, and management practices needed to address water quality
problems but have no quantitative analysis of current pollutant loads or load reductions that
could be achieved by implementing targeted management practices. In this case, the plan
could be amended by adding this information and other key elements not contained in the
original plan. If separate documents support the plan and the nine elements listed below but
are too lengthy to be included in the watershed plan, they can be summarized and referenced
in the appropriate sections of the plan. EPA supports this overall approach—building on
prior efforts and incorporating related information—as an efficient, effective response to the
need for comprehensive watershed plans that address impaired and threatened waters.
Figure 2-3 highlights where the nine key elements fit into the overall watershed planning
process. Once the plan has been developed, plan sponsors can select specific management
actions included in the plan to develop work plans for nonpoint source section 319 support
and to apply for funding to implement those actions (^t> chapter 12).
The nine elements are provided below, listed in the order in which they appear in the guide-
lines. Although they are listed as a through i, they do not necessarily take place sequentially.
For example, element d asks for a description of the technical and financial assistance that
will be needed to implement the watershed plan, but this can be done only after you have ad-
dressed elements e and i.
Explanations are provided with each element to show you what to include in your watershed
plan. In addition, chapters where the specific element is discussed in detail are referenced.
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Chapter 2: Overview of Watershed Planning Process
Nine Elements of Watershed Plans
a. Identification of causes of impairment and
pollutant sources or groups of similar sources
that need to be controlled to achieve needed
load reductions, and any other goals identified
in the watershed plan. Sources that need to be
controlled should be identified at the signifi-
cant subcategory level along with estimates of
the extent to which they are present in the wa-
tershed (e.g., X number of dairy cattle feedlots
needing upgrading, including a rough estimate
of the number of cattle per facility; Y acres of
row crops needing improved nutrient manage-
ment or sediment control; or Z linear miles of
eroded streambank needing remediation).
(^ Chapters 5, 6, and 7.)
What does this mean?
Your watershed plan should include a map
of the watershed that locates the major
causes and sources of impairment. To ad-
dress these impairments, you will set goals
that will include (at a minimum) meeting
the appropriate water quality standards for
pollutants that threaten or impair the physi-
cal, chemical, or biological integrity of the
watershed covered in the plan.
Steps In the Watershed Planning and Impli
1. Build Partnerships
• Identify key stakeholders
• Identify issues of concern
• Set preliminary goals
• Develop indicators
• Conduct public outreach
2. Characterize the Watershed
• Gather existing data and create a watershed inventory
• Identify data gaps and collect additional data if needed
• Analyze data
• Identify causes and sounces of pollution that need to be controlled
• Estimate pollutant loads
i
3. Finalize Goals and Identify Solutions
• Set overall goals and management objectives
• Develop indicators/targets
• Determine load reductions needed
. Identify critical areas
• Develop management measures to achieve goals
4
4 Design an/m,
nfattonProgn
• Develop implementation schedule
i Develop interim milestones to track implementation of management measures
* Develop information/education component
• Develop evaluation process
i Identify technical and financial assistance needed to implement plan
• Assign responsibility for reviewing and revising the plan
5. Implement Watershed Plan
• Implement management strategies
• Conduct monitoring
• Conduct information/education activities
t. Measure Progress and Mate Adjustments
i Prepare annual work plans
• Report back to stakeholders and others
* Make adjustments to program
Figure 2-3. Incorporating the Nine Minimum Elements into Your
Watershed Plan
This element will usually include an accounting of the significant point and nonpoint
sources in addition to the natural background levels that make up the pollutant loads caus-
ing problems in the watershed. If a TMDL exists, this element may be adequately addressed.
If not, you will need to conduct a similar analysis to do this. The analytical methods may
include mapping, modeling, monitoring, and field assessments to make the link between the
sources of pollution and the extent to which they cause the water to exceed relevant water
quality standards.
b. An estimate of the load reductions expected from management measures.
What does this mean?
On the basis of the existing source loads estimated for element a, you will similarly deter-
mine the reductions needed to meet the water quality standards. You will then identify vari-
ous management measures (see element c below) that will help to reduce the pollutant loads
and estimate the load reductions expected as a result of these management measures to be
implemented, recognizing the difficulty in precisely predicting the performance of manage-
ment measures over time.
Estimates should be provided at the same level as that required in the scale and scope
component in paragraph a (e.g., the total load reduction expected for dairy cattle feedlots,
row crops, or eroded streambanks). For waters for which EPA has approved or established
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
TMDLs, the plan should identify and incorporate the TMDLs. Applicable loads for down-
stream waters should be included so that water delivered to a downstream or adjacent seg-
ment does not exceed the water quality standards for the pollutant of concern at the water
segment boundary. The estimate should account for reductions in pollutant loads from point
and nonpoint sources identified in the TMDL as necessary to attain the applicable water
quality standards. (^> Chapters 8 and 9.)
c. A description of the nonpoint source management measures that will need to be implemented
to achieve load reductions in paragraph 2, and a description of the critical areas in which those
measures will be needed to implement this plan.
What does this mean?
The plan should describe the management measures that need to be implemented to achieve
the load reductions estimated under element b, as well as to achieve any additional pollution
prevention goals called out in the watershed plan (e.g., habitat conservation and protection).
Pollutant loads will vary even within land use types, so the plan should also identify the crit-
ical areas in which those measures will be needed to implement the plan. This description
should be detailed enough to guide implementation activities and can be greatly enhanced by
identifying on a map priority areas and practices. (^> Chapters 7, 8, 9, 10, and 11.)
d. Estimate of the amounts of technical and financial assistance needed, associated costs, and/or the
sources and authorities that will be relied upon to implement this plan.
What does this mean?
You should estimate the financial and technical assistance needed to implement the entire
plan. This includes implementation and long-term operation and maintenance of manage-
ment measures, I/E activities, monitoring, and evaluation activities. You should also docu-
ment which relevant authorities might play a role in implementing the plan. Plan sponsors
should consider the use of federal, state, local, and private funds or resources that might be
available to assist in implementing the plan. Shortfalls between needs and available resources
should be identified and addressed in the plan. (^ Chapter 12.)
e. An information and education component used to enhance public understanding of the project and
encourage their early and continued participation in selecting, designing, and implementing the
nonpoint source management measures that will be implemented.
What does this mean?
The plan should include an I/E component that identifies the education and outreach activi-
ties or actions that will be used to implement the plan. These I/E activities may support the
adoption and long-term operation and maintenance of management practices and support
stakeholder involvement efforts. (^> Chapters 3 and 12.)
/ Schedule for implementing the nonpoint source management measures identified in this plan that is
reasonably expeditious.
What does this mean?
You should include a schedule for implementing the management measures outlined in your
watershed plan. The schedule should reflect the milestones you develop in g. (^> Chapter 12.)
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Chapter 2: Overview of Watershed Planning Process
g. A description of interim measurable milestones for determining whether nonpoint source
management measures or other control actions are being implemented. ( V Chapter 12.)
What does this mean?
You'll develop interim, measurable milestones to measure progress in implementing the
management measures for your watershed plan. These milestones will measure the imple-
mentation of the management measures, such as whether they are being implemented on
schedule, whereas element h (see below) will measure the effectiveness of the management
measures, for example, by documenting improvements in water quality.
h. A set of criteria that can be used to determine whether loading reductions are being achieved over
time and substantial progress is being made toward attaining water quality standards.
What does this mean?
As projects are implemented in the watershed, you will need water quality benchmarks to
track progress. The criteria in element h (not to be confused with water quality criteria in state
regulations) are the benchmarks or waypoints to measure against through monitoring. These
interim targets can be direct measurements (e.g., fecal coliform concentrations) or indirect
indicators of load reduction (e.g., number of beach closings). You should also indicate how
you'll determine whether the watershed plan needs to be revised if interim targets are not
met. These revisions could involve changing management practices, updating the loading
analyses, and reassessing the time it takes for pollution concentrations to respond to treat-
ment. ( ^t> Chapters 12 and 13.)
i. A monitoring component to evaluate the effectiveness of the implementation efforts over time, mea-
sured against the criteria established under item h immediately above.
What does this mean?
The watershed plan should include a monitoring component to determine whether progress
is being made toward attaining or maintaining the applicable water quality standards. The
monitoring program should be fully integrated with the established schedule and interim
milestone criteria identified above. The monitoring component should be designed to deter-
mine whether loading reductions are being achieved over time and substantial progress in
meeting water quality standards is being made. Watershed-scale monitoring can be used to
measure the effects of multiple programs, projects, and trends over time. Instream monitor-
ing does not have to be conducted for individual BMPs unless that type of monitoring is
particularly relevant to the project. ( ^> Chapters 6, 12, and 13.)
The remainder of this handbook proceeds through the watershed planning process, address-
ing these elements in detail to show you how to develop and implement watershed plans that
will achieve water quality and other environmental goals.
The level of detail (figure 2-4) needed to address the nine key elements of watershed man-
agement plans listed above will vary in proportion to the homogeneity or similarity of land
use types and variety and complexity of pollution sources. Urban and suburban watersheds
will therefore generally be planned and implemented at a smaller scale than watersheds with
large areas of a similar rural character. Similarly, existing watershed plans and strategies for
larger river basins often focus on flood control, navigation, recreation, and water supply but
contain only summary information on existing pollutant loads. They often generally identify
only source areas and types of management practices. In such cases, smaller subbasin and
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Scale and Data Collection in Watershed Planning
WATERSHED
PLANS
I
I
SUBWATERSHED
PLANS
I
SITE-SPECIFIC OR
PROJECT-SPECIFIC
ASSESSMENTS
Figure 2-4. Level of Detail for Watershed Management Plans
watershed plans and work plans developed for nonpoint source management grants, point
sources, and other stormwater management can be the vehicles for providing the necessary
management details. A major purpose of this manual is to help watershed managers find
planning tools and data for managing watersheds at an appropriate scale so that problems
and solutions can be targeted effectively.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Handbook Road Map
1 Introduction
2 Overview of Watershed Planning Process
— 3 Build Partnerships
4 Define Scope of Watershed Planning Effort
5 Gather Existing Data and Create an Inventory
6 Identify Data Gaps and Collect Additional Data If Needed
7 Analyze Data to Characterize the Watershed and Pollutant Sources
8 Estimate Pollutant Loads
9 Set Goals and Identify Load Reductions
10 Identify Possible Management Strategies
11 Evaluate Options and Select Final Management Strategies
12 Design Implementation Program and Assemble Watershed Plan
13 Implement Watershed Plan and Measure Progress
3. Build Partnerships
Identifying driving forces
Identifying stakeholders
Keeping stakeholders engaged
Integrating with key local, state, tribal, and federal
programs
Initiating outreach activities
Read this chapter if...
• You want to find out what kinds of stakeholders should be involved
in developing your watershed plan
• You want to get stakeholders involved early in the process
• You don't know what kinds of programs you should integrate into
your planning efforts
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
3.1 Why Do I Need Partners?
Bringing together people, policies, priorities, and resources through a watershed approach
blends science and regulatory responsibilities with social and economic considerations. The
very nature of working at a watershed level means you should work with at least one part-
ner to improve watershed conditions. In addition, watershed planning is often too complex
and too expensive for one person or organization to tackle alone. Weaving partners into the
process can strengthen the end result by bringing in new ideas and input and by increasing
public understanding of the problems and,
more important, public commitment to
the solutions. Partnerships also help to
identify and coordinate existing and
planned efforts. For example, a water-
shed organization might be interested
in developing a volunteer monitor-
ing program but is unaware that the
local parks department is working
on a similar program. Researching
and identifying partners can help
to avoid reinventing the wheel or
wasting time and money.
Budgets can be unpredictable, and
resources for watershed improvement
efforts, such as fencing cows out of
streams, are limited. Resources like
technical assistance, mapping abili-
ties, and funding are always strained, but working with partners might provide some of the
resources that can get your effort closer to its goals more efficiently.
Before you begin to identify and recruit potential partners, you should ask yourself, "Why
are we developing a watershed plan?" To answer that question, you should identify the
driving forces behind the need for the watershed plan.
Dealing with Multiple Political Jurisdictions in a Watershed
There are very few watershed in a single county and few large rivers in a single state. Coordinating watershed planning
and management in multiple political jurisdictions can be difficult, but encouraging stakeholders to focus on the water
resource under study and opportunities to cooperate can help to address water quality impairments or threats. Engaging
the technical and field staff of federal, state, tribal, county, and local agencies in gathering data and identifying the
full range of management options can help to create a collaborative, coordinated approach that can be built upon and
further refined by elected officials, managers, and citizens.
3.2 Identify Driving Forces
Watershed plans can be initiated for various reasons and by various organizations. For
example, a local agency might want to develop a watershed plan to comply with new federal
and state water quality regulations. Or perhaps a watershed organization wants to develop
a watershed plan to help coordinate future land-use planning efforts to protect sensitive
environmental areas in the community. It could also be that preliminary data collection has
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Chapter 3: Build Partnerships
identified some specific problems. EPA acknowledges that watershed
plans are appropriate tools for both restoring waters that are impaire
and protecting waters that are threatened. Plans are also appropriate
for those wishing to better coordinate water resources activities,
use resources more efficiently, and integrate various required
activities, such as protecting source water, implementing Total
Maximum Daily Loads (TMDLs), managing forests and other
lands, or complying with stormwater regulations. It's important to
identify the driving forces motivating you to develop a watershed
plan. These forces will set the foundation for developing your plan's
goals and objectives. The typical watershed planning drivers are
described below.
3.2.1 Regulatory Issues
Water resource or other regulations sometimes require a planning or management document
that contains some or all of the elements required in a watershed plan. Communities pursu-
ing efficient, effective approaches to planning often initiate a comprehensive watershed plan-
ning effort to streamline multiple planning tasks, like the following:
• Clean Water Act section 303(d) requirements for developing (TMDLs)
Clean Water Act section 319 grant requirements
Federal and state National Pollutant Discharge
Elimination System (NPDES) Phase II stormwater
permit regulations
NPDES discharge permit requirements
Source water protection requirements under the Safe
Drinking Water Act
National Estuary Program and coastal zone
conservation/management plan requirements
Federal and state source water assessment and
protection program regulations
Baseline and monitoring studies to implement federal
and state antidegradation policies
Endangered Species Act requirements
Hydromodification, Flows, and Watershed
Management
It should be noted that altering river and stream
flows through dams and diversions can have a major
influence on the ability of such waters to sustain native
fish populations, manage internal sediment loads,
control flooding, and handle other physical, chemical,
and biological issues. Flows are managed by state
water agencies, interstate compacts, dam operators,
and other entities identified under federal and state
laws. <*> For detailed information on dealing with flow
and other conditions affecting the ecological integrity
of surface waters (e.g.,hydromodification), go to
www.epa.gov/owow/nps/hydromod/pdf/
hydro_guide.pdf and www.epa.gov/owow/
wetlands/restore/principles.html
3.2.2 Government Initiatives
Dozens of federal, state, and local initiatives target geographic areas like the Chesapeake Bay
or the Great Lakes, or attempt to focus on one aspect of a management program, such as the
following:
• EPA-supported, geographically targeted programs (e.g., Chesapeake Bay, Great Lakes)
• U.S. Department of Agriculture (USDA) initiatives (e.g., 2002 Farm Bill program,
Forest Service planning)
• Other federal water resource initiatives (e.g., those sponsored by the Bureau of Land
Management, the Bureau of Reclamation, and the National Oceanic and Atmospheric
Administration)
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
River Compacts and Watershed Management
Beginning with the Colorado River Compact of 1922, Congress
has approved about two dozen river management compacts in an
attempt to equitably allocate and manage the waters of interstate
rivers. The allocation formulas and management objectives in
the river compacts vary, but for the most part they seek to protect
existing uses and water rights. River compacts can provide a good
framework for coordinating multiple watershed plans in large river
basins. ^ For more information on river compacts, visit
www.fws.gov/laws/lawsdigest/interstatecompacts.htm
Congressional mandates (e.g., Comprehensive
Wildlife Conservation Strategies required of wild-
life management agencies in each state)
Stream or river restoration planning (e.g., by cities,
counties, states)
River authority and other state-enabled (or
required) watershed planning initiatives (e.g.,
intra- or interstate river compacts)
State initiatives like Pennsylvania's Growing
Greener program or Michigan's Clean Michigan
Initiative
3.2.3 Community-Driven Issues
Often the decision to develop a watershed plan comes from within the community. People
have a desire to protect what they have or to restore water resources for future generations.
Some compelling issues include the following:
• Flood protection
• Increased development pressures
• Recreation/aesthetics (e.g., river walks, boating, fishing, swimming)
• Protection of high-quality streams or wetlands
• Post-disaster efforts
• Protection of drinking water sources
If you're reading this document, you might be part of the group that is leading the
development of a watershed plan. In general, the leader's role involves identifying and
engaging other stakeholders that should be participating in plan development and
implementation. Section 3.3 discusses the importance of stakeholder involvement and
provides some information on how to identify and involve stakeholders.
Fire Helps to Energize Watershed Planning Efforts
The Pajarito Plateau Watershed Partnership (PPWP) began in 1998 in response to a draft watershed
management plan prepared by the Los Alamos National Laboratory (LANL). The development of
LANL's plan did not initially include the stakeholders in the hydrologic watershed. Instead, the plan
was for LANL's property. LANL decided to work with the stakeholders, including tribes, Los Alamos
County, the Forest Service, the National Park Service, and others, to develop a complete watershed
plan. As the plan was developed, however, the partnership began to have trouble keeping the group
engaged. Some stakeholders lost interest, and others limited their participation.
It wasn't until after a controlled burn went out of control in May 2000 and burned almost 50,000
acres of the watershed that the group found a common purpose—post-fire rehabilitation. The
group has received section 319 grant money for rehabilitation activities, such as seeding,
reforestation, and trail maintenance, throughout the watershed. A watershed assessment was
completed, and the group has shifted its focus to sediment erosion issues in one subwatershed.
^ For more information, see the PPWP Web site at
www.volunteertaskforce.org/ppwatershed/default.htm
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Chapter 3: Build Partnerships
Before you start identifying stakeholders, find
out if your state has developed a watershed planning
guide. You might find useful information that will help
you to identify the relevant stakeholders and programs
for your watershed planning effort.
3.3 Identify and Engage Stakeholders
Successful development and implementation of a watershed plan depends primarily on the
commitment and involvement of community members. Therefore, it is critical to build
partnerships with key interested parties at the outset of the
watershed planning effort. People and organizations that
have a stake in the outcome of the watershed plan are called
stakeholders. Stakeholders are those who make and imple-
ment decisions, those who are affected by the decisions
made, and those who have the ability to assist or impede
implementation of the decisions. It's essential that all of
these categories of potential stakeholders—not just those
that volunteer to participate—are identified and included.
Key stakeholders also include those that can contribute
resources and assistance to the watershed planning effort and those that work on similar
programs that can be integrated into a larger effort. Keep in mind that stakeholders are more
likely to get involved if you can show them a clear benefit to their participation.
3.3.1 Identify Categories of Stakeholders
It is daunting to try to identify all the players that could be involved in the watershed plan-
ning effort. The makeup of the stakeholder group will depend on the size of the watershed
(to ensure adequate geographic representation), as well as
the key issues or concerns. In general, there are at least
five categories of participants to consider when identifying
stakeholders:
• Stakeholders that will be responsible for implement-
ing the watershed plan
• Stakeholders that will be affected by implementation
of the watershed plan
• Stakeholders that can provide information on the
issues and concerns in the watershed
• Stakeholders that have knowledge of existing pro-
grams or plans that you might want to integrate into
your plan
• Stakeholders that can provide technical and financial
assistance in developing and implementing the plan
As a starting point, consider involving these entities:
• Landowners
• County or regional representatives
• Local municipal representatives
• State and federal agencies
• American Indian tribes
• Business and industry representatives
• Citizen groups
Unconventional Partners
The staff of the American Samoan Coastal Program
created a Religious Consciousness Project to help
spread the word about the islands' environmental
problems. For years, program staff had tried unsuc-
cessfully to get village mayors involved in efforts to
protect coastal water resources. Through the project,
program staff offered to present information on water
quality, population growth, and nonpoint source pollu-
tion during church gatherings. As a result of the church
partnership, a village mayors workshop was held,
ultimately leading to the start of a new water quality
project focusing on water resource education.
0
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
• Community service organizations
• Religious organizations
• Universities, colleges, and schools
• Environmental and conservation groups
• Soil and water conservation districts
• Irrigation districts
The development of the stakeholder group is an iterative process. Don't worry about whether
you have complete representation at the outset. Once the stakeholders convene, you can ask
them if there are any gaps in representation.
v Section 3.4 provides more detailed information on possible local, state, tribal, and federal
program partners that you might want to include in your stakeholder group.
3.3.2 Determine Stakeholders' Roles and Responsibilities
Before contacting potential stakeholders, you should ask yourself the following questions and
have at least a rough idea of the answers. This exercise will help you to determine the level of
effort needed for the stakeholder process and will provide initial guidance to stakeholders.
• What is the role of the stakeholders?
• How will decisions be made?
• Are stakeholders expected to develop any work products?
• What is the estimated time commitment for participation?
Begin by contacting the people and organizations that have an interest in water quality or
might become partners that can assist you with the watershed planning process. Consider
who would be the most appropriate person to contact the potential partner. Those who might
have a stake in the watershed plan should be encouraged to share their concerns and offer
suggestions for possible solutions. By involving stakeholders in the initial stages of project
development, you'll increase the probability of long-term success through trust, commit-
ment, and personal investment.
"worksheet 3-1 Gid&&ko[de
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Chapter 3: Build Partnerships
3.3.3 Provide a Structure to Facilitate Stakeholder Participation
Once you've identified and contacted stakeholders, you'll organize them to help prepare
and implement a watershed plan. Stakeholder groups range from informal, ad hoc groups to
highly organized committees. The method you choose will likely depend on the makeup of
the stakeholders willing to participate, the time and finan-
cial resources available, and your capabilities with respect
to facilitating the plan development effort. The following
examples provide some indication of the range of options
available for stakeholder participation.
Decisionmakers. The governing boards of some state river
authorities require representation from a broad array of pub-
lic agencies and private entities, including business interests,
recreational organizations, and environmental groups. Giv-
ing decision-making power to stakeholders often increases
the amount of analysis and time needed to make decisions,
but it can provide a venue for generating needed support and
resources for watershed planning and management activities.
Advisors. Many watershed planning initiatives involve
stakeholders as part of a steering committee or advisory
group. Although stakeholders do not have the power to make
and enforce decisions, they can create momentum and sup-
port for moving the process forward in the directions they
choose if they are somewhat united and cooperative in their
approach.
Supporters. Sometimes stakeholders are invited to partici-
pate because of their ability to provide technical, financial,
or other support to the watershed planning process. Under
this approach, watershed planners seek out stakeholders that
have assessment data, access to monitoring or project volun-
teers, educational or outreach networks, or other assets that
can be used to enhance the watershed plan. For example, the
U.S. Geological Survey (USGS) might be invited to provide
water quality monitoring data, such as flow data from the
many gauging stations across the country.
3.3.4 Identify Stakeholders' Skills and
Resources
For the group of stakeholders that have agreed to participate
in the planning effort, determine what resources and skills
are collectively available to support the planning phases. A
wide range of technical and "people" skills are needed for
most planning initiatives. Stakeholders might have access to
datasets, funding sources, volunteers, specialized technical
expertise, and communication vehicles. Use ^Worksheet
3-1 to determine your stakeholders' skills and resources. ^> A
full-size worksheet is provided in appendix B.
Ohio Builds Strong and Effective
Watershed Groups
Ohio has adopted a program philosophy that strong
and effective local watershed stakeholder groups
are necessary to develop and implement integrated
watershed plans. According to Ohio, the key to
watershed organization capacity-building is active
stakeholders that provide technical knowledge,
financial ability, networking ability, organizational
skills, and legitimacy (decisionmakers with the
authority to implement and support problem and
solution statements and recommended action items).
^ Additional information about Ohio's philosophy for
strong and effective watershed groups is available
at www.epa.state.oh.us/dsw/nps/NPSMP/
WAP/WAPccsustainable.html
Ways to Engage and Involve Stakeholders
At Home
• Reading brochures
• Visiting a Website
• Completing a survey
• Adopting practices that conserve water and protect
water quality at home or at work
• Reviewing documents
Out in the Community
• Managing practice tours and watershed fairs
• Conducting coffee shop discussions
• Making educational presentations
Action-oriented Activities
• Stenciling, stormdraining
• Monitoring volunteer work
• Stream cleanup
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
3.3.5 Encourage Participation and Involvement
As stakeholders begin to show an interest, you'll likely note that the type and degree of
effort that individuals or organizations are willing to put forth will vary. Some stakeholders
will want to be directly involved in the detailed technical
process of planning, whereas others will simply want to be
periodically updated on progress and asked for feedback.
Still others won't want to plan at all, but instead will want to
know what they can do now to take actions that will make a
difference. In other words, you'll likely be faced with man-
aging planners, advisors, doers, and watchers. A key step,
therefore, involves organizing the effort to help stakeholders
plug in at the level that is most comfortable for them and
taps their strengths.
More on Working with Stakeholders
**> To find more detailed information on forming
watershed stakeholder groups, keeping a group
motivated, conducting outreach, resolving conflict,
and making decisions using consensus, download a
pdf version of Getting In Step: Engaging and Involving
Stakeholders in Your Watershed from www.epa.
gov/owow/watershed/outreach/documents
^ The Conservation Technology Information Center
(CTIC) has developed a series of documents to
help you know your watershed. This information
clearinghouse for watershed coordinators helps to
ensure measurable progress toward local goals. The
clearinghouse is available at www2.ctic.purdue.
edu/kyw/kyw.html
Facilitating Stakeholder Groups
Any watershed coordinator learns quickly that he
or she needs to be a good facilitator, find one in the
stakeholder group, or hire one. Outside facilitators
(third-party persons not connected directly to the
sponsoring agency or other stakeholders at the table)
are usually best. The facilitator should be perceived as
a neutral party who will not contribute his or her ideas
to the group. The facilitator should be objective and
maintain a broad perspective but should also challenge
assumptions, act as a catalyst, generate optimism,
and help the group connect with similar efforts. It's
important to make sure that the stakeholders feel
comfortable with the facilitator.
It's important also that the facilitator have strong
facilitation skills like understanding productive meeting
room layouts, knowing the different ways decisions can
be made, understanding how to help settle conflicts
and how to move people with conflicting views toward
consensus, and being able to manage time well and
keep the discussion on point during meetings.
If you're not talking about issues that are important to
the stakeholders, they'll be less likely to participate in the
process. Here are some tips to remember when working with
stakeholders to help ensure their long-term participation and
support.
Focus on issues important to the stakeholders. If they
can't see how their issues will be addressed in the water-
shed plan, you need to change the plan or clearly show them
where their issues are addressed.
Be honest. Much of the process is about trust, and to build
trust you must be honest with the stakeholders. That's why
it's important to tell them how decisions will be made. If
their role is advisory, that's OK, but they should know up
front that they will not be involved in the decision-making
process.
Start early. Involve stakeholders as soon as possible in the
watershed planning process. This approach also helps to
build trust by showing them that you have not developed a
draft document and just want them to review it. They will
help to shape goals, identify problems, and develop possible
management strategies for the watershed.
Recognize differences early in the process. It's OK if
everyone does not agree on various issues. For example, not
all data compiled by some stakeholders, such as tribes, will
be shared with a group if there are cultural concerns to be
considered. If you ignore these differences, you'll lose cred-
ibility and any trust that the stakeholders had in the process.
Communicate clearly and often. The watershed planning process is long and complex.
Don't leave stakeholders behind by failing to communicate with them using terms familiar
to them. Regular communication and updates can be done through Web sites, newsletters,
fact sheets, and newspaper inserts. Also remember that sometimes it will take time before
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Chapter 3: Build Partnerships
reluctant stakeholders come to the table, so you need to have a means of communicating with
them and keeping them up-to-date. When they do decide to participate in the process, they'll
already be well informed.
Team-Building Exercise for Stakeholders
At the first stakeholder meeting, give each person a blank sheet of paper. Tell everyone to "draw a map of your
community." Many will want more guidance on what to do, but just repeat the initial instructions.
When the participants are finished, ask them to exchange papers with each other. Then ask the group the following
questions:
• What does this map tell you about this person's community?
• What appears to be the "center" of the community? What are its boundaries?
• What does this map suggest about this person's perception of the environmental character of the community?
• Who included people, water resources, roads, trees, administrative buildings?
This exercise helps the stakeholders to get to know each other and to start getting a feeling of their values and how they
use the resources in the community.
—Adapted from ^ Community and the Environment: A Guide to Understanding a Sense of Place, available at
www.epa.gov/CARE/library/community_culture.pdf
3.3.6 Initiate Outreach Activities to Build Awareness and Gain Partners
Information/education (I/E) activities are key to building support for the watershed plan-
ning effort, as well as helping to implement the plan. I/E activities (also called outreach) are
needed at the very beginning of the watershed planning effort to make potential partners and
stakeholders aware of the issues, recruit them to participate, and educate them on the water-
shed planning process. Often a separate outreach and education committee is created under
the umbrella of the watershed planning team. This committee can help develop related mate-
rials and a strategy for integrating I/E into the overall watershed planning effort. Eventually,
outreach will be most successful if individual stakeholders reach out to their constituents or
peer groups about actions that need to be taken to improve and maintain water quality. The
education committee can help support this effort by developing materials for stakeholders to
use to educate their constituents. ^> Chapter 12 provides more detail on the I/E component.
Developing and distributing effective messages through outreach materials and activities
is one the most important components of getting partners and stakeholders engaged in the
watershed planning and implementation processes. Outreach materials and activities should
be designed to raise public awareness, educate people on wise management practices, and
motivate people to participate in the decisionmaking process or in the implementation of
actions to restore and protect water quality. To achieve these objectives, you should commu-
nicate effectively with a wide range of audiences or groups. At the outset of your watershed
planning effort, you might consider developing an informational brochure and a slide presen-
tation for your stakeholder group that explains current issues in the watershed and the need
to develop a watershed plan. Once the stakeholder group convenes, it can tailor these materi-
als and determine the preferred formats for disseminating information to various audiences.
Remember that your I/E activities should be targeted to specific audiences and will change
over time as you develop and implement your watershed plan.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Watershed plan organizers might need to sponsor a broad spectrum of activities to engage
and involve most of the stakeholders effectively. People differ widely in how much time and
energy they're willing to expend on community-based activities. Some people might want
simply to be informed about what's going on in their community, whereas others might want
a voice in the management decisions made and how they're implemented. A program that
offers many different types of participation opportunities that involve varying levels of effort
is likely to attract more willing participants.
3.4 Integrate Local, State, Tribal, and Federal Programs into
Your Watershed Planning Effort
Because developing and implementing watershed plans usually involves a combination of
at least some local, state, tribal, and federal partners, it's important to identify any poten-
tial programs and activities that might be relevant to your watershed planning effort and
determine whether representatives from these programs should
participate in your stakeholder group. Many such programs have
planning components, collect monitoring data, implement con-
trols, or develop regulations that you might want to incorporate
into your watershed plan. In addition, some states have developed
multiagency partnerships for the support of monitoring and man-
agement practice implementation, which local groups can access.
Including partners from these organizations in the watershed
management process can help to ensure that any available datasets
are identified and that any potential funding opportunities are
noted.
Examples of Local Programs and
Organizations
• Stormwater management programs
• Parks and recreation departments
• Local elected officials and councils
• Planning and zoning programs
• Soil and water conservation districts
• Cooperative extension
• Solid waste programs
• Water and sewer programs
• Watershed organizations
• Volunteer monitoring programs
The various local, state, tribal, and federal programs that might
provide personnel and resources to strengthen your stakeholder
group, as well as technical assistance in developing your water-
shed plan, are briefly described below, v Chapter 5 provides
more detail on specific datasets that might be available from these
programs.
You're not expected to involve all of these programs, but you
should be aware of them if they address issues and concerns that
are important to your planning effort.
©Start at the local level and then broaden
your search to include state and tribal
programs. Then research which federal
programs are relevant to your watershed
planning effort. Most likely, the federal
programs will already be represented to
some extent at the state level. If these
programs exist at both the state and local
levels, they are included here under the
Local Programs heading because the local
offices probably have the information most
relevant to your watershed.
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Chapter 3: Build Partnerships
3.4.1 Local Programs
Because implementing the watershed plan will largely rest with local communities, it's criti-
cal that they be involved from the beginning. They usually have the most to gain by partici-
pating and the most up-to-date information on the structure of the community. In addition,
some of the most powerful tools for watershed plan implementation, such as zoning and
regional planning, reside at the local level. Local might mean city, county, or township; some
states have all three. It's important to learn how the various local governments assign respon-
sibility for environmental protection.
Local Elected Officials
Local elected officials and local agency staff should be closely involved in the plan develop-
ment and implementation process. Although responsibilities vary among localities, most
local government officials are responsible for establishing priorities for local programs and
services, establishing legislative and administrative policies through the adoption of ordi-
nances and resolutions, establishing the annual budget, appropriating funds, and setting
tax rates. There are also opportunities to make others aware of the watershed management
planning process through local government newsletters and presentations at board meetings,
which are often televised on local cable television networks.
Local Cooperative Extension Offices
The county cooperative extension offices are part of a state cooperative extension network
run through academic institutions. Extension agents conduct research, develop educational
programs, and provide technical assistance on a broad range of problems from traditional
agricultural management and production issues to farm business management, soil and water
conservation, land and water quality, the safe use of pesticides, integrated pest management,
nutrient management, models, forestry and wildlife, and commercial and consumer horti-
culture. ^> A link to local extension offices is available from the Cooperative State Research,
Education, and Extension Service at www.csrees.usda.gov/Extension/index.html.
Soil and Water Conservation Districts and NRCS Offices
Most rural counties have local Natural Resources Conservation Service (NRCS) offices and
soil and water conservation districts (SWCDs), sometimes referred to simply as conservation
districts. These districts and NRCS provide leadership, technical assistance, information,
and education to the counties on proper soil stewardship,
agricultural conservation methods, water quality protection,
nonpoint source pollution, streambank stabilization, stream A Mix of Top-down and Bottom-up Efforts
health, conservation planning (e.g., developing conserva- Involvement and leadership from both stakeholders
tion plans), and various other topics related to watershed and Public a9encies are vital ingredients for successful
planning. Local SWCDs also offer volunteer opportunities watershed management. The University of Wisconsin
for citizens, and they can often provide topographic, aerial, I°und in i(hs Fou!Corners Wfrhshedh lnnovat°hrs,
, ., ... 11-11 • i i- Initiative that there is a myth that the watershed
and noodplam maps; established erosion and sediment ^^ consis(s Qf spon(aneous ,b(j
control programs; educational programs; information on the |oca| effor(s M fjnd a|tematives (o (he rigidity Qf
installation and maintenance of management practices; and intransigent bureaucracies and one-size-fits-all
financial assistance for installing management practices. solutions." Researchers noted that although local
^ Go to www.nacdnet.org for a directory of all SWCD support and the energy and resources of watershed
locations; NRCS contact information is posted at groups are vital, "the governmental role is generally
www.nrcs.usda.gov/about/organization/regions.html. critical to successful watershed approaches,
particularly if plans and solutions proposed by
watershed groups are to be implemented."
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Parks and Recreation Department
Local parks and recreation departments are responsible for maintaining recreational facili-
ties and parks in a locality. They manage recreational facilities like boat ramps, nature trails,
and swimming pools. They often have support groups that focus on a particular park or
topic, such as the trail development or bird-watching activities. These groups can provide
insight as to the values of the community in terms of natural resources.
Planning and Zoning Programs
Among the most effective tools available to communities to manage their water resources are
planning and zoning. For example, local or regional planning and zoning programs can play a
particularly significant role in establishing critical watershed protection areas through overlay
zoning; identifying critical water resource areas (e.g., wetlands, springs); and designating
protective areas such as vegetated buffers and hydrologic reserves. Professionals in these local
programs can provide valuable information on the economic development plans of the region
and help to identify current policies to manage growth. The zoning programs are usually
linked to a community's overall master plan, so be sure to obtain a copy of the master plan.
Make sure you use local resources to find helpful information about planning and zoning
programs for your community. *^> Chapter 5 provides information on developing ordinances
as part of your management program, including model language, and information included
in master plans.
Regional Planning Councils
Many urban areas have regional councils represented by the participating local governments.
These organizations focus on various issues, such as land use planning and the environment.
For example, the Southeast Michigan Council of Governments (^ www.semcog.org) repre-
sents seven counties, and staff work to support local environmental planning initiatives like
watershed management. These organizations can provide valuable resources and expertise
useful in your watershed planning effort.
Solid Waste Programs
Many local governments have solid waste programs that address the disposal of solid waste
and yard waste. They might also handle the recycling, illegal dumping, and household
hazardous waste programs that you might want to incorporate into your outreach activities
during the plan implementation phase.
Stormwater Management Programs
The NPDES Stormwater permitting program for Phase I and Phase II cities provides one of
the most direct links between local government activities and watershed planning/manage-
ment. Under the Stormwater program, communities must comply with permit requirements
for identifying and addressing water quality problems caused by polluted urban runoff from
sources like streets and parking lots, construction sites, and outfall pipes. Watershed plan-
ning programs can provide important guidance to constituent cities on what types of pol-
lutants or stressors need to be addressed by their Stormwater programs, what resources are
available, and what other cities are doing. ^ Additional information about the two phases
of the NPDES Stormwater program is available at http://cfpub.epa.gov/npdes/stormwater/
swphases.cfm.
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Chapter 3: Build Partnerships
Volunteer Monitoring Programs
Across the country, volunteers monitor the condition of streams, rivers, lakes, reservoirs,
estuaries, coastal waters, wetlands, and wells. Volunteer monitoring programs are organized
and supported in many different ways. Projects might be entirely independent or associated
with state, interstate, local, or federal agencies; environmental organizations; or schools
and universities. If there is an active volunteer monitoring program in your community,
it can be a valuable resource in terms of data collection and a means to educate others
about watershed issues and concerns. To find out if your community has a volunteer
monitoring program, refer to ^> EPA's Directory of Environmental Monitoring Programs at
www.epa.gov/owow/monitoring/volunteer.
Water and Sewer Programs
Most local governments provide water supply and wastewater
treatment services for residents. They can help determine
whether there are source water protection areas in the water-
shed and locate water supply and wastewater discharges.
They might have a water conservation program that you
could incorporate into your watershed outreach program.
Watershed Organizations
Across the country there are thousands of watershed organi-
zations, which have varying levels of expertise and involve-
ment. These organizations will be a valuable resource in
your watershed planning efforts if you can harness their
members for problem identification, goal setting, and imple-
mentation of the watershed plan. If you're not sure about
the organizations in your community, start by looking at
^ EPA's database of watershed organizations at
www.epa.gov/adopt/network.html.
Source Water Protection and Watershed
Management
Under the 1996 amendments to the federal Safe
Drinking Water Act, states must conduct source water
assessments and produce studies or reports that
provide basic information about the drinking water in
each public water system. These assessments provide
a powerful link to other watershed assessment activities
and should be considered when developing the
watershed plan. The source water assessment programs
created by states differ, because each program is
tailored to a state's water resources and drinking water
priorities, but they all seek to characterize and protect
sources of drinking water such as lakes, rivers, and
other sources (e.g., groundwater aquifers). ^ For more
information, goto http://cfpub.epa.gov/safewater/
sourcewater/index.cfm
3.4.2 State and Regional Programs
Most watershed groups draw on local organizations and resources to develop and implement
their projects, and some have effectively involved state programs in their efforts. In states
that have adopted a statewide watershed management framework, watershed
plans should be integrated into the larger watershed or basin plans spon-
sored under the state framework. Likewise, nonpoint source work plans for
local or site-level projects funded under section 319 should be derived from
the applicable watershed plan. In cases where there are no larger basin or
subbasin plans, the plan under consideration should seek to integrate the
full range of stressors, sources, and stakeholders that are likely to emerge as
important during or after the planning and implementation process.
The following are some key state and regional programs and resources that
can also be tapped to develop and implement watershed plans.
Source Water Assessment and Protection (SWAP) Programs
State and local drinking water utilities develop SWAP programs under the
1996 amendments to the Safe Drinking Water Act to protect sources of
drinking water, including ground water sources. Many of these waters are
Examples of State
Programs
• Statewide watershed or basin
planning frameworks
State water protection
initiatives
Coastal zone management
programs
Source water assessment and
protection programs
State cooperative extension
programs
Wetland conservation plans
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
affected by nonpoint source pollution. SWAP assessments delineate protection areas for the
source waters of public drinking water supplies, identify potential sources of contaminants
within the areas, determine the susceptibility of the water supplies to contamination from
these potential sources, and make the results of the assessments available to the public. Part-
nering with state SWAP programs and local drinking water utilities to develop joint water-
shed assessments provides an excellent opportunity for watershed groups and utilities to pool
funds, produce better assessments, and consider surface water and groundwater interactions.
^ For a list of state source water protection contacts, go to http://cfpub.epa.gov/safewater/
sourcewater/sourcewater.cfm?action=Contacts.
State and Interstate Water Commissions
Several interstate water commissions, such as the Ohio River Valley Water Sanitation Com-
mission (ORSANCO) and the New England Interstate Water Pollution Control Commission
(NEIWPCC), address water quality and water quantity issues. The Association of State and
Interstate Water Pollution Control Administrators (ASIWPCA) is a national organization
representing the officials responsible for implementing surface water protection programs
throughout the United States, v For a listing of state, tribal, and interstate water agencies, go
to www.asiwpca.org and click on the links.
State Coastal Zone Management Programs
These programs address nonpoint source pollution under section 6217 of the Coastal Zone
Act Reauthorization Amendments of 1990 (CZARA). These programs can provide a venue
for developing or consolidating watershed plans in coastal areas. Under CZARA, states are
required to identify and adopt management measures to prevent and control nonpoint source
pollution, ensure that enforceable mechanisms exist, enhance cooperation among land and
water use agencies, identify land uses that might cause degradation of coastal waters, identify
and protect "critical coastal areas," provide technical assistance, provide opportunities for
public participation, and establish a monitoring program to determine the extent and success
of management measure implementation. Projects within the approved 6217 management
area will use the EPA management measures guidance to provide planning objectives for
sources covered in the 6217 program. ^> Coastal zone management measures guidance docu-
ments are available at www.epa.gov/owow/nps/pubs.html.
State Departments of Transportation
In recent years state DOTs have placed new emphasis on environmental performance related
to construction, operation, and maintenance activities. In the past DOTs focused mainly
on environmental compliance, but agencies across the country now take a more holistic
approach to meeting environmental stewardship goals. Incorporating stewardship priorities
into construction and maintenance helps DOTs achieve continuous improvement in environ-
mental performance.
State Fish and Wildlife Programs
Most states have agencies responsible for issuing hunting and fishing permits, maintaining
wildlife protection areas, protecting and managing wetlands, and protecting threatened and
endangered species. These agencies develop state wildlife action plans and management
plans for invasive species control, wildlife management, and habitat protection. They
often have very active volunteer programs that you might be able to access to help identify
community values and concerns and to help with locating key datasets as part of the
characterization process.
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Chapter 3: Build Partnerships
State Health Departments
Many state health departments have an environmental health division that manages infor-
mation on source water protection programs, septic system management programs, well
testing and monitoring, and animal feeding operation permits. Some state programs provide
online information and maps regarding fish consumption guidelines instituted because of
pollutant (often mercury) contamination.
State TMDL Programs
Under section 303(d) of the Clean Water Act, states, territories, and authorized tribes must
list waters that are impaired and threatened by pollutants. States, territories, and authorized
tribes submit their lists of waters on April 1 in every even-numbered year (except in 2000).
The lists are composed of waters that need TMDLs. ^ For more information about TMDLs
developed and approved in your state, visit www.epa.gov/owow/tmdl.
State Nonpoint Source Programs
State nonpoint source programs help local governments, nonprofit entities, and numerous
other state, federal, and local partners to reduce nonpoint source pollution statewide. State
nonpoint source programs provide technical assistance, as well as funding sources, to develop
watershed management plans for implementing nonpoint source activities. ^ A directory of
state nonpoint source coordinators is available at www.epa.gov/owow/nps/contacts.html.
State Water Protection Initiatives
Many states have initiated statewide or region-specific watershed management programs or
have aligned management and water quality monitoring activities around a watershed frame-
work. You should coordinate with these programs and try to integrate their framework with
your goals and objectives; they, in turn, should be aware of
your watershed planning issues and concerns. For example,
Minnesota's Adopt-a-River program encourages Minnesota Integrating Wetlands into Watershed
volunteers to adopt a section of a lake, river, wetland, or Management
ravine to ensure its long-term health through annual clean- Refer to A Guide for Local Governments: Wetlands and
ups. To find out whether your state has any of these initia- Watershed Management, which was developed by the
tives, go to the environmental department section of your Institute for Wetland Science and Public Policy of the
state's Web site (e.g., Pennsylvania's Department of Environ- Association of State Wetland Managers. The document
mental Protection) provides recommendations for integrating wetlands
into broad watershed management efforts and more
State Wetland Proerams specific water programs' ^ Www-aswm-or9/
ziaie weuana i rograms propub/pubs/aswm/wetlandswatershed.pdf
Many states and counties have developed wetland protec-
tion programs. These programs offer a variety of services,
including developing educational and training materials,
working to reduce loss of wetlands, providing landowners with the tools and means to man-
age wetlands on their property, and coordinating monitoring of wetlands. Some programs
propose the use of grants to help share the costs of wetland restoration and help reduce taxes
on wetland property and other conservation lands. Some states, such as Wisconsin, require
decisions on federal wetland permits to meet state wetland water quality standards.
Regional Geographic Watershed Initiatives
In addition to statewide watershed protection programs, there are several large-scale initia-
tives that focus on specific regions of the country. These programs collect substantial data
that you might use to help characterize your watershed. The programs include the following.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
The Columbia River Initiative is a proposed water management program for the Columbia
River. In 2004 the former Governor of Washington (Gary Locke) proposed this program to
allow the basin's economy to grow and maintain a healthy watershed. The program would
offer a plan to secure water for new municipal, industrial, and irrigation uses and to improve
stream flows for fish. The proposal also provides for funding. Work on the Columbia River
Initiative is on hold until further review by the legislature. ^> For more information on the
Columbia River Initiative, visit www.ecy.wa.gov/programs/wr/cwp/crwmp.html.
The Chesapeake Bay Program is a unique regional partnership that has directed the res-
toration of the Chesapeake Bay since 1983. Partners of the program include the states of
Maryland, Pennsylvania, and Virginia; the District of Columbia; the Chesapeake Bay Com-
mission, a tristate legislative body; EPA, representing the federal government; and partici-
pating citizen advisory groups. ^> An overview of the Chesapeake Bay Program is available
at www.chesapeakebay.net/overview.htm. ^t> For additional information about the program,
visit www.chesapeakebay.net.
Since 1970 much has been done to restore and protect the Great Lakes. Although there has
been significant progress, cleaning up the lakes and preventing further problems has not
always been coordinated. As a result, in May 2004 President Bush created a cabinet-level
interagency task force and called for a "regional collaboration of national significance." After
extensive discussions, the group now known as the Great Lakes Regional Collaboration was
convened. The Collaboration includes the EPA-led federal agency task force, the Great Lakes
states, local communities, tribes, non-governmental organizations, and other interests in the
Great Lakes region. The Collaboration has two components: the conveners (mostly elected
local and regional officials) and the issue area strategy teams. The ambitious first goal of the
Collaboration is to create within 1 year a workable strategy to restore and protect the Great
Lakes. ^ More information about the Regional Collaboration is available at
www.epa.gov/greatlakes/collaboration.
Another collaborative effort for the Great Lakes is the Great Lakes Initiative, which is a plan
agreed upon by EPA and the Great Lake states to restore the health of the Great Lakes. Also
called the Final Water Quality Guidance for the Great Lakes System, the Great Lakes Initiative
started in 1995 to provide criteria for the states' use in setting water quality standards. The plan
addresses 29 pollutants and prohibits mixing zones for bioaccumulative chemicals of concern.
^ For more information on the Great Lakes Initiative, visit www.epa.gov/waterscience/gli.
3.4.3 Tribal Programs and Organizations
If your watershed planning effort includes, or might affect, tribal lands or waters, or if you
are a member of a tribe and are developing a watershed management plan, you should be
aware of the various policies and initiatives regarding Indian Country. There are currently
562 federally recognized tribes. The sovereign status of American Indian tribes and special
provisions of law set American Indians apart from all other U.S. populations and define a
special level of federal agency responsibility. The Bureau of Indian Affairs administers and
manages 55.7 million acres of land held in trust by the United States for American Indians
and Alaska Natives. ^> For more information go to www.doi.gov/bureau-indian-affairs.
In addition, EPA's American Indian Environmental Office (AIEO) coordinates the Agency-
wide effort to strengthen public health and environmental protection in Indian Country,
with a special emphasis on building the capabilities of tribes so they can administer their
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Chapter 3: Build Partnerships
own environmental programs. The AIEO provides contact information for all federally rec-
ognized tribal governments, maintains a list of tribes that have developed water quality stan-
dards, and provides lists of resources. ^> Go to www.epa.gov/indian for more information.
EPA's Tribal Nonpoint Source Program provides information on techniques and grant fund-
ing for tribes to address nonpoint source pollution. The program's Web site (^b www.epa.gov/
owow/nps/tribal.html) includes guidelines for awarding section 319 grants to American
Indian tribes, as well as the Tribal Nonpoint Source Planning Handbook. EPA also conducts
training workshops for tribes interested in becoming involved in tribal nonpoint source
programs and obtaining funding.
3.4.4 Federal Programs and Organizations
Various federal programs and agencies are involved in watershed protection activities like
data collection, regulation development, technical oversight, and public education. In addi-
tion, federal land and resource management agencies sponsor or participate in watershed
planning and management processes.
Most federal agencies have regional or state liaisons to help administer their programs. For
example, EPA divides the country into 10 regions. Each region is responsible for selected
states and tribes and provides assistance for all of its programs. ^> To find the EPA regional
office associated with your watershed, go to www.epa.gov/epahome/locate2.htm and click on
a region.
Abandoned Mines Programs
The Department of the Interior's (DOI) Office of Surface Mining (OSM) works with states
and tribes to protect citizens and the environment during mining and reclamation activities.
OSM manages the Clean Streams Program, which is a broad-based citizen/industry/govern-
ment program working to eliminate acid mine drainage from abandoned coal mines. If your
watershed includes abandoned mines, contact OSM. ^ For more information on the Clean
Streams Program, go to www.osmre.gov/acsihome.htm.
Agricultural Conservation Programs
USDA's Natural Resources Conservation Service (NRCS) is an important partner for many
water resource projects. It provides valuable support for funding the implementation of
agricultural management practices, wetland restoration, land retirement, and other projects
associated with watershed plans. NRCS has local offices established through partnerships
with local conservation districts. ^ Go to www.nrcs.usda.gov/about/organization/
regions.html#regions to find state and local contact information.
As part of its watershed protection effort, NRCS administers the USDA Watershed Program
(under Public Law 83-566). The purpose of the program is to assist federal, state, and local
agencies; local government sponsors; tribal governments; and other program participants
in protecting watersheds from damage caused by erosion, floodwater, and sediment; restor-
ing damaged watersheds; conserving and developing water and land resources; and solving
natural resource and related economic problems on a watershed basis. The program provides
technical and financial assistance to local people or project sponsors, builds partnerships,
and requires local and state funding contributions. ^ For more information on this pro-
gram, go to www.nrcs.usda.gov/programs/watershed.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Agricultural Support Programs
USDA's Farm Services Agency (FSA) has several programs that support watershed protec-
tion and restoration efforts. Under the Conservation Reserve Program (CRP), farmers receive
annual rental payments, cost sharing, and technical assistance to plant vegetation for land
they put into reserve for 10 to 15 years. The Conservation Reserve Enhancement Program
(CREP) targets state and federal funds to achieve shared environmental goals of national and
state significance. The program uses financial incentives to encourage farmers and ranchers
to voluntarily protect soil, water, and wildlife resources. The Grassland Reserve Program
(GRP) uses 30-year easements and rental agreements to improve management of, restore,
or conserve up to 2 million acres of private grasslands. The Conservation Security Program
(CSP) is a voluntary program that provides financial and technical assistance to promote the
conservation and improvement of soil, water, air, energy, plant and animal life, and other
conservation purposes on tribal and private working lands, v For more information about
FSA, go to www.fsa.usda.gov/pas/default.asp. ^ For more information on other conserva-
tion programs, go to www.nrcs.usda.gov/programs.
Coastal Programs
The National Estuary Program (NEP) was established in 1987 by amendments to the Clean
Water Act that seek to identify, restore, and protect nationally significant estuaries of the
United States. There are currently 28 active NEPs along the nation's coasts. NEP programs
have identified a number of nonpoint source stressors as sources of estuary degradation, and
they can provide valuable assistance in working with local governments and other partners to
develop and implement watershed plans. ^ To find out if your watershed is in an NEP-desig-
nated area, go to www.epa.gov/owow/estuaries.
Federal Transportation Programs
Two offices in the Federal Highway Administration, a part of the U.S. Department of Trans-
portation, focus on environmental protection and enhancement. One, the Office of Natural
and Human Environment, focuses on environmental programs associated with air quality,
noise, and water quality, and on programs associated with the built environment, includ-
ing transportation enhancements, bicycle and pedestrian facilities, and scenic byways. The
other, the Office of Project Development and Environmental Review, focuses on the National
Environmental Policy Act (NEPA) project development process as a balanced and stream-
lined approach to transportation decisionmaking that takes into account both the potential
impacts on human and natural resources and the public's need for safe and efficient transpor-
tation improvements. V www.fhwa.dot.gov.
An additional resource for projects dealing with the impacts of infrastructure on watershed
resources is Eco-Logical: An Ecosystem Approach to Developing Infrastructure Projects. This
approach, which was developed by a federal interagency steering team including the Federal
Highway Administration, puts forth the conceptual groundwork for integrating plans across
agency boundaries and endorses ecosystem-based mitigation. The document describes ways to
make the governmental processes needed to advance infrastructure projects more efficient and
effective, while maintaining safety, environmental health, and effective public involvement. It
also describes a general ecosystem protection approach useful for watershed planning. ^> To
read more about Eco-Logical, go to www.environment.fhwa.dot.gov/ecological/eco_index.asp.
Natural Resources
USGS maintains vast resources of information on physical processes and features such as
soil and mineral resources, surface and ground water resources, topographic maps, and water
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Chapter 3: Build Partnerships
quality monitoring programs. Regardless of whether you include representatives from USGS
in your stakeholder group, USGS will most likely be a valuable resource in the characteriza-
tion phase. ^> Go to www.usgs.gov to find state contacts.
Public Lands Management
The Forest Service, an agency within USDA, manages the 195 million acres of public lands
in national forests and grasslands. Each national forest and grassland in the United States
has its own management plan. The plans establish the desired future condition for the land
and resources and set broad, general direction for management. Most plans for the national
forests were approved in the 1980s, and, by law, national forests revise their plans every
15 years or sooner. ^ You can reach your local Forest Service managers and their resource
staff through the Forest Service Web site at www.fs.fed.us. DOI's Bureau of Land Manage-
ment manages 261 million surface acres of America's public lands, primarily in 12 western
states. ^t> For more information go to www.blm.gov.
Threatened and Endangered Species Protection Programs
The U.S. Fish and Wildlife Service (USFWS) and National Oceanic and Atmospheric Admin-
istration jointly administer the federal Endangered Species Act. USFWS has a program called
Endangered Species Program Partners, which features formal or informal partnerships for
protecting endangered and threatened species and helping them to recover. These partner-
ships include federal partners, as well as states, tribes, local governments, nonprofit organiza-
tions, and individual landowners. ^ Go to http://endangered.fws.gov/partners.html.
The USFWS's Coastal Program provides incentives for voluntary protection of threatened,
endangered, and other species on private and public lands alike. The program's protection and
restoration successes to date give hope that, through the cooperative efforts of many public and
private partners, adequate coastal habitat for fish and wildlife will exist for future generations.
Water Quantity Issues
The Bureau of Reclamation (BOR) is a water management agency within DOT that works
with western states, American Indian tribes, and others to meet new water needs and balance
the multitude of competing uses of water in the West. If your watershed planning effort is
in one of these states and water quantity is likely to be a key issue, consider involving BOR.
^ For more information go to www.usbr.gov.
Wetland Protection Programs
Section 404 of the Clean Water Act regulates the discharge of dredged or fill material into
waters of the U.S., which include many types of wetlands. This program is jointly imple-
mented by EPA and the U.S. Army Corps of Engineers. In addition, USFWS, the National
Marine Fisheries Service, and state resource agencies have important advisory roles. If your
watershed includes wetlands, you might want to contact representatives from one of these
agencies to identify what management programs exist or
what data are available. ^ Go to www.epa.gov/owow/ Laws Affecting Watershed Management
wetlands for links to laws, regulations, guidance, and scien- Dozens of federa, statutes and hundreds of regu,a_
tific documents addressing wetlands; state, tribal, and local tions affect how watersheds are managed. Most of the
initiatives; landowner assistance and stewardship; water key legal programs are outlined above. ^ For a more
quality standards and section 401 certification for wetlands; complete list of these laws and regulations, go to
monitoring and assessment; wetlands and watershed plan- www.epa.gov/epahome/laws.htm (administered
ning; restoration; education; and information about wetland by EPA) and www.fws.gov/laws/lawsdigest.htm.
programs across the country.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Advance Identification (ADID) and Special Area Management Plans (SAMPs) are two types of
wetland/watershed planning efforts that EPA and other stakeholders use to enhance wetland
protection activities. ADID is a process that involves collecting and distributing information
on the values and functions of wetland areas so that communities can better understand and
protect the wetlands in their areas. EPA conducts the process in cooperation with the U.S.
Army Corps of Engineers and in consultation with states or tribes. Because ADID efforts
are usually based on watershed planning, they are extremely compatible with geographic and
ecosystem initiatives like the watershed approach.
SAMPs are developed to analyze potential impacts at the watershed scale, to identify priority
areas for preservation and potential restoration areas, and to determine the least environmen-
tally damaging locations for proposed projects. SAMPs are designed to be conducted in geo-
graphic areas of special sensitivity under intense development pressure. These efforts involve
the participation of multiple local, state, and federal agencies. The Corps of Engineers
initiated the development of SAMPs and works with EPA. ^> To find out if a SAMP has been
conducted in your watershed, go to www.spl.usace.army.mil/sanip/sanip.htni.
Wildlife Protection Programs
USFWS manages the Partners for Fish and Wildlife Program. Under the program, USFWS
staff provides technical and financial assistance to private landowners and tribes who are
willing to work with USFWS and other partners to voluntarily plan, implement, and monitor
habitat restoration and protection projects, v Go to www.fws.gov/partners.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Handbook Road Map
1 Introduction
2 Overview of Watershed Planning Process
3 Build Partnerships
— 4 Define Scope of Watershed Planning Effort
5 Gather Existing Data and Create an Inventory
6 Identify Data Gaps and Collect Additional Data If Needed
7 Analyze Data to Characterize the Watershed and Pollutant Sources
8 Estimate Pollutant Loads
9 Set Goals and Identify Load Reductions
10 Identify Possible Management Strategies
11 Evaluate Options and Select Final Management Strategies
12 Design Implementation Program and Assemble Watershed Plan
13 Implement Watershed Plan and Measure Progress
Define Scope of Watershed Planning
Effort
Identifying issues of concern
Using conceptual models
Setting preliminary goals
Developing quantitative indicators
Read this chapter if...
• You want to engage stakeholders in identifying issues of concern
• You want to take stakeholders out into the watershed
• You want to develop a conceptual model that links sources of
pollution to impairments
• You're unsure of the extent of the watershed boundaries for your
project
• You want to develop preliminary goals for the watershed plan
• You want to select indicators that will be used to assess current
environmental conditions in the watershed
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
4.1 Why Define the Scope of Your Watershed Planning Effort?
To ensure that your watershed planning effort remains focused, effective, and efficient,
defining the scope of the effort is critical. The term scope is used to describe the boundar-
ies of a program or project, which can be defined in terms of space (the area included in the
watershed plan) or other parameters. This handbook defines the scope of your watershed
planning effort as not only the geographic area to be addressed but also the number of issues
of concern and the types (and breadth) of the goals you want to attain. If your scope is too
broad, it will be difficult to "keep it all together" and make the best use of your financial and
human resources as you develop and implement the watershed plan. It might also hamper
your ability to conduct detailed analyses or minimize the probability of involvement by key
stakeholders and, ultimately, successful plan implementation. A scope that is too narrow,
however, might preclude the opportunity to address watershed stressors in a rational, effi-
cient, and economical manner. If you define your scope and set preliminary goals early in the
planning process, you'll find it easier to work through the later steps in the process.
The issues in your watershed and the geographic scope will also affect the temporal scope of
the implementation of the watershed plan. Although there are no hard and fast rules, water-
shed plans are typically written for a time span of 5 to 10 years. Even if you do not achieve
your watershed goals in 10 years, much of the information might become out-of-date, and
you'll probably want to update the watershed plan.
The stakeholders will provide critical input into the watershed planning process that will
help identify issues of concern, develop goals, and propose management strategies for imple-
mentation. Information from the stakeholders will help shape the scope of your watershed
planning effort.
4.2 Ask Stakeholders for Background Information
The stakeholders will likely be a source of vast historical knowledge of activities that have
taken place in the watershed. Ask them for any information they might have on the water-
shed, including personal knowledge of waste sites, unmapped mine works, eroding banks,
and so on. They might have information on historical dump sites, con-
taminated areas, places experiencing excessive erosion, and even
localized water quality sampling data. Stakeholders might
be aware of existing plans, such as wellhead or source
water protection plans. ©Collecting this background
information will help focus your efforts to identify the
issues of concern and solutions. Use ^Worksheet 4-1 to
work with your stakeholders to determine what informa-
tion is already available. A blank copy of the worksheet is
provided in appendix B.
4.3 Identify Issues of Concern
One of the first activities in developing a watershed man-
agement plan is to talk with stakeholders in the watershed
to identify their issues of concern. These issues will help
to shape the goals and to determine what types of data
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Chapter 4: Define Scope of Watershed Planning Effort
/"worksheet 4-1 yQfali 'Oo 700 Atr&4 «nfl(A/P
[Hand out to stakeholders at the beginning of a meeting, or use as a guide to work through each question as a group]
1. What are the known or perceived impairments and problems in the watershed?
2. Do we already know the causes and sources of any water quality impairments in the watershed? If so, what are they?
3. What information is already available, and what analyses have been performed to support development of a TMDL, watershed
plan, or other document?
4. Have the relative contributions from major types of sources of the pollutant or stressor causing impairment been estimated?
5. Are there any historical or ongoing management efforts aimed at controlling the problem pollutants or stressors?
6. Are there any threats to future conditions, such as accelerated development patterns?
7. Have any additional concerns or goals been identified by the stakeholders?
are needed. As a project manager, you might think you already know the problems, such as
not meeting designated uses for swimming and fishing. The issues of concern are different
in that they are the issues that are important to the community. For example, stakeholders
frequently list trash in the streams as an issue even though it doesn't necessarily affect water
quality.
Set up a meeting with the stakeholders to gather their input as to what they believe are the
major concerns in the watershed, and begin to identify possible causes and sources of these
concerns. The stakeholders might provide anecdotal evidence, such as "There aren't any fish
in the stream anymore (impact) because the temperature is too warm (stressor) and there
is too much dirt going into the stream (stressor) since they removed all the trees along the
streambank (source)." This information provides an important reality check for watershed
plan sponsors, who might have very different notions regarding problems, and it is the start-
ing point for the characterization step described in chapter 5.
Remember that you should also identify any issues related to conserving, protecting, or
restoring aquatic ecosystems. Proactive conservation and protection of such systems can help
to ensure that water quality standards will be met. Concepts such as in-stream flow, hydro-
logic connectivity, and critical habitats (e.g., refugia or stress shelters such as springs and
seeps used by species in times of drought) should be considered when identifying issues of
concern. ^Worksheet 4-2 can help you identify the ecosystem-related issues that need to be
addressed in your watershed planning effort.
At this stage you can even start to link problems seen in the watershed with their possible
causes or sources. For example, stakeholders might say they are concerned about beach clo-
sures, which could lead to a discussion of sources of bacteria that led to the closures. As you
move through the process and gather more data, these links will become more discernible.
Understanding the links between the pollutants or stressors and the impacts in the water-
shed is key to successful watershed management. In the initial stages of watershed planning,
many of the links might not be thoroughly understood; they will more likely be educated
guesses that generate further analyses to determine validity.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
orksheet 4-2
1\&ed io && Considered?
1. What are the sensitive habitats and their buffers, both terrestrial and aquatic?
2. Where are these habitats located in the watershed? Are there any fragmented corridors?
3. What condition are these habitats in?
4. Are these habitats facing any of the following problems?
a. Invasive species
b. Changes associated with climate warming
c. Stream fragmentation and/or in-stream flow alterations
d. Changes in protection status
5. On what scale are these habitats considered? (e.g., regional, watershed, subwatershed, or site-specific) Are these scales
appropriate for the biological resources of concern?
6. Does the variability, timing, and rate of water flow hydrologically support indigenous biological communities?
4.3.1 Draw a Picture
It is often useful to diagram these links as you move through the watershed planning process
and present them as a picture, or a conceptual model (figure 4-1). These diagrams provide a
graphic representation that you can present to stakeholders, helping to guide the subsequent
planning process. In many cases, there will be more than one pathway of cause and effect. You
can also present this concept to stakeholders verbally, as if-then links. For example, "If the
area of impervious surface is increased, then flows to streams will increase. If flows to streams
increase, then the channels will become more unstable." Figure 4-2 shows a simple conceptual
model based on the construction of logging roads.
Source of
Stressor
Stressor
Impact
Impairment
Source of
Stressor
Stressor
Stressor
Impacts
Logging road construction
sediment/soil erosion
jedimentation of streams
Smother aquatic insects/lose pools
Impairment
Fewer insectivorous fish
Figure 4-1. Simplified
Conceptual Model
Figure 4-2. Simple Conceptual Model Involving
Logging Road Construction Effects on Stream
Aquatic Life (adapted from USEPA 1998)
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Chapter 4: Define Scope of Watershed Planning Effort
Sources of
Stressors
Stressors
Impacts
Impairments
Figure 4-3. Draft Conceptual Model for Greens Creek, North Carolina
The conceptual model can be used to start identifying relationships between the possible
causes and sources of impacts seen in the watershed. You don't have to wait until you have
collected additional information. In fact, the conceptual model can help to identify what
types of data you need to collect as part of the characterization process. Figure 4-3 illustrates
a conceptual model that was developed for a watershed planning effort in Greens Creek,
North Carolina. The Greens Creek watershed covers approximately 10 square miles in the
southwestern part of the state. Greens Creek is classified as a C-trout habitat stream, typi-
cal of most of the mountain streams in the region. The watershed is subject to considerable
development pressure from vacation homes and has highly erodible soils and steep slopes.
Locals have observed significant problems related to road construction and maintenance.
To facilitate identifying the problems and their probable causes, an initial conceptual
model of impairment in the Greens Creek watershed was developed. The conceptual
model was presented to stakeholders for discussion at a meeting, at which they identified
upland loading of sediment and subsequent impacts on water clarity (turbidity) as the
key risk pathway for Greens Creek. ^> For more information on the development of
conceptual models as part of the watershed planning process, refer to EPA's Guidelines for
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Ecological Risk Assessment, which can be downloaded at http://cfpub.epa.gov/ncea/cfm/
recordisplay.cfm?deid=12460&partner=ORD_NCEA.
Build your own conceptual model using ^Worksheet 4-3, provided in appendix B.
Conducting visual watershed assessments with the stakeholders, such as stream walks, "wind-
shield surveys," or flyovers, can provide them with a unique perspective about what's going
on in the watershed. They'll be able to make visual connections between sources, impacts,
and possible management approaches. Visual assessments show stakeholders the watershed
boundaries, stream conditions, and potential sources contributing to waterbody impairment.
Stream surveys can be used at several points in the watershed planning process. Visual
assessments might be conducted initially to help stakeholders develop a common vision of
what needs to be done in a watershed. Later, they might be used to help identify areas where
additional data collection is needed, identify critical areas, or select management measures.
Stream surveys can provide an important means of collecting data for identifying stressors
and conducting a loading analysis. For example, streambank erosion can be a considerable
source of sediment input to a stream, and illegal pipe outfalls can discharge a variety of pol-
lutants. Both sources might be identifiable only through a visual inspection of the stream or
through infrared photography.
In addition to visual assessments, photographic surveys can be used to document features
like the courses of streams, the topography of the land, the extent of forest cover and other
land uses, and other natural and human-made features of the watershed. Photographs provide
valuable pre- and post-implementation documentation. You can make arrangements to take
photos, or you might be able to obtain aerial photographs (current and historical) from the U.S.
Geological Survey (USGS), the U.S. Department of Agriculture (USDA), or other sources.
^ Several protocols for conducting visual assessments are discussed further in section 6.5.1
and are listed in appendix A.
As the stakeholders identify concerns in the watershed, their findings will help to define
the geographic extent of the watershed that the plan will address. The plan might address a
small urban watershed with wide-ranging stressors and sources or a large river basin with
only a few problem parameters. If your plan addresses a small drainage system within a
watershed covered by a separate plan, make sure your planned activities are integrated with
those broader-scale efforts.
One way to identify the geographic extent of your watershed planning effort is to consult the
USGS map of hydrologic units. A hydrologic unit is part of a watershed mapping classifica-
tion system showing various areas of land that can contribute surface water runoff to des-
ignated outlet points, such as lakes or stream segments. USGS designates drainage areas as
subwatersheds (including smaller drainages) numbered with 12-digit hydrologic unit codes
(HUCs), nested within watersheds (10-digit HUCs). These are combined into larger drainage
areas called subbasins (8 digits), basins (6 digits), and subregions (4 digits), which make up
the large regional drainage basins (2 digits).
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Chapter 4: Define Scope of Watershed Planning Effort
Another way to identify watershed boundaries more
precisely is to use a topographic map. These maps
are available at USGS map centers and outdoor sup-
ply stores and at v http://topomaps.usgs.gov.
When working in very small watersheds of just
a few square miles, it's better to obtain more
detailed topographic information from city or
county planning departments. From these maps,
lines can be drawn following the highest ground
between the waterways to identify the water-
shed boundaries, or ridge lines. In areas with
storm sewers, maps that show how this "plumb-
ing" might have changed watershed boundar-
ies are often available from local or municipal
government offices.
Most watershed planning efforts to implement
water pollution control practices occur at the 10-
or 12-digit HUC level, although smaller drainage
areas within subwatersheds might be used if they
represent important water resources and have a
significant variety of stressors and sources. It is
still helpful to factor in large-scale basin plan-
ning initiatives for strategic planning efforts that
address interjurisdictional planning and solutions
to widespread water quality problems. The key to
selecting the geographic scope of your planning
effort is to ensure that the area is small enough to
manage but large enough to address water quality
impairments and the concerns of stakeholders.
^ More information on delineating watershed
boundaries is provided in section 5.4.1.
Go to www.ncgc.
nrcs.usda.gov/products/datasets/watershedfor
more information.
Breaking Down the Watershed
Watershed Boundary Definition
A region, the largest drainage basin, contains the drainage area of a major river or the combined
drainage areas of several rivers.
Subregions divide regions and include the area drained by a river system.
Basins divide or may be equivalent to subregions.
Subbasins divide basins and represent part or all of a surface-drainage basin, a combination of
drainage basins, or a distinct hydrologic feature.
Watersheds divide subbasins and usually range in size from 40,000 to 250,000 acres.
Subwatersheds divide or may be equivalent to watersheds and usually range in size from 10,000
to 40,000 acres.
Subwatersheds divide or may be equivalent to watersheds and usually range in size from 10,000
to 40,000 acres.
Example
Mid-Atlantic (02)
Chesapeake Bay watershed (0207)
Potomac River watershed
(020700)
Monocacy watershed (0207009)
Monocacy River watershed
(0207000905)
Double Pipe Creek subwatershed
(020700090502)
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Example Preliminary Goals
• Meet water quality standards
for dissolved oxygen.
• Restore aquatic habitat to meet
designated uses for fishing.
• Protect drinking water reservoir
from excessive eutrophication.
• Manage future growth.
• Restore wetlands to maintain a
healthy wildlife community.
• Protect open space.
4.5 Develop Preliminary Goals
After stakeholders provide information on issues of concern, they
will begin to identify the vision or goals for the watershed that they
would like to see addressed in the watershed plan. Getting this
input is critical to ensuring that you address the issues important
to them and keep them involved in the planning and implementa-
tion effort. In some cases you'll also incorporate goals from other
watershed planning activities. For example, if a TMDL has already
been developed in your watershed, you can include the goals
outlined in the TMDL, such as the required loading targets to be
achieved. These goals are very specific.
Often stakeholders will recommend very broad goals such as
"Restore lake water quality," "Protect wetlands," or "Manage growth
to protect our water resources." These goals might start out broad,
but they'll be refined as you move through the watershed characterization
process (^> chapters 5, 6,7, and 8). For each goal identified, specific manage-
ment objectives should be developed (^ chapter 9). The objectives should
include measurable targets needed to achieve the goals and specific indica-
tors that will be used to measure progress toward meeting the objectives.
The more specific you can make your goals at this stage, the easier it will be
to develop concrete objectives to achieve the goals. You should also set goals
and objectives to guide the process of engaging and informing those who
contribute to water quality degradation and motivating them to adopt more
appropriate behaviors. For example, a goal for a river might be to restore rec-
reational uses (fishing and swimming). This goal might be further defined
as improving cold-water fisheries by reducing sediment in runoff, increasing
dissolved oxygen concentrations, and reinstating swimming by lowering bac-
teria counts during the summer. A wide range of specific objectives should
be developed and implemented to support each aspect of the goal. Make sure
that the goals link back to the issues of concern.
As you move through the watershed planning process, you should build onto your goals,
developing indicators to measure progress toward achieving your goals, developing specific
management objectives to show how you will achieve your goal, and finally, developing
measurable targets to determine when you have achieved your goals (figure 4-4).
Objectives
Set targets
ID load
reductions
Figure 4-4. Evolution of Goals Throughout the Watershed Planning Process
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Chapter 4: Define Scope of Watershed Planning Effort
4.6 Select Indicators to Measure Environmental Conditions
The stakeholders will help to select indicators that will be used to measure the current health
of the watershed and to provide a way to measure progress toward meeting the watershed
goals. Indicators are direct or indirect measurements of some valued component or quality
in a system. Indicators are also extremely useful for assessing and communicating the status
and trends of the health of a watershed. Indicators, however, do not tell you the cause of the
problem. For example, you might use a thermometer to measure stream temperature. An
elevated temperature might indicate a problem, but it does not specifically tell you what the
problem is, where it is, or what caused it. Your stakeholder group will begin by identifying
the indicators that will be used to quantify existing conditions in the watershed.
Indicators are selected, refined, added to, and modified throughout the watershed planning
and implementation process. As you complete the characterization phase and develop goals
and management objectives, you'll shift your indicators from those which assess current
conditions to those which quantitatively measure progress toward meeting your goals. For
example, in the Coal Creek watershed, the goal is to reduce sediment loadings to meet water
quality standards and support all beneficial uses. Table 4-1 shows the indicators used and the
target values for measuring progress toward reducing the sediment load. ^ You'll learn how
to develop these target values in chapter 9.
Table 4-1. Coal Creek Sediment Loading Indicators and Target Values
Sediment Loading Indicator
5-year mean McNeil core percent subsurface fines < 6.35 mm
5-year mean substrate score
Percent surface fines < 2 mm
Clinger richness
Target Value
35 percent
>10
< 20 percent
<14
Be aware that you might have to refer back to this section as you develop your watershed
plan to develop additional indicators to measure performance and the effectiveness of plan
implementation. Table 4-2 illustrates where indicators are used to develop and implement
your watershed plan.
Table 4-2. Use of Indicators Throughout the Watershed Planning and Implementation Process
Planning Step
Assess Current Conditions
Develop Goals
Develop Pollution Load
Reduction Targets
Select Management Strategies
Develop Monitoring Program
Implement Watershed Plan
How Indicators Are Used
Indicators are used to measure current environmental conditions, e.g., water
quality, habitat, aquatic resources, land use patterns
Indicators are used to determine when the goal will be achieved, e.g., reducing
nutrient loads to meet water quality standards
Indicators are used to measure the targets for load reductions, e.g., phosphorus
concentration
Indicators are used to track the implementation of the management measures,
e.g., number of management practices installed
The monitoring program measures the indicators that have been developed as
part of the management strategies and information/education program
Indicators are used to measure the implementation of the watershed plan,
tracking dollars spent, resources expended, management practices implemented,
and improvements in water quality
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
4.6.1 Select Quantitative Indicators
In developing the watershed plan, you'll conduct watershed assessments and analyses to
quantify source loads, characterize impacts, and estimate the load reductions needed to meet
your goals and objectives. Sometimes the source loads and load reductions will be expressed
in slightly different terms, such as the number of miles of
eroded banks and the miles of vegetated buffers needed to
Factors to Consider When Selecting address the problem. Regardless of the approach, the impor-
mdicators tant point to remember is that quantification is the key to reme-
Validity diation. If you can't somehow measure the problems you're
• Is the indicator related to your goals and objectives? facing, it will be almost impossible to know whether you're
• Is the indicator appropriate in terms of geographic making any headway in addressing them.
and temporal scales?
For watershed planning purposes, indicators should be
C'ari'y quantitative so that the effectiveness of management mea-
* ls the indicator simP|e and direct? sures can be predicted. For example, if one of the goals
• Do the stakeholders agree on what will be identified by stakeholders is "restore aquatic habitat to
meet designated uses," and you believe the habitat has been
• Are the methodologies consistent over time? degraded because of elevated levels of nutrients entering the
Practicality waterbody, what indicators will you use to measure progress
• Are adequate data available for immediate use? toward achieving that goal? A specific value should be set
• Are there any constraints on data collection? as a target for the indicator, representing desired levels. For
example, phosphorus can be used as an indicator to directly
Clear Direction measure the reduction in loadings. Table 4-3 provides
• Does the indicator have clear action implications j of environmental indicators and possible target
depending on whether the change is good or bad? , v , . , , , ,.
values, or endpomts. Targets can be based on water quality
standards or, where numeric water quality standards do not
exist, on data analysis, literature values, or expert examination of water quality conditions to
identify values representative of conditions supportive of designated uses. ^> Chapter 9 goes
into more detail on how to develop targets for your goals and objectives.
If a TMDL exists, important indicators have already been defined and you can incorporate
them when selecting appropriate management actions to implement the load reductions
cited in the TMDL. If no TMDL exists, select indicators that are linked to your water qual-
ity restoration or protection goals, such as pollutant concentrations or other parameters of
concern (e.g., channel instability, eroding
banks, channel flow, flow cycles). The indi-
Regardless of the approach, the important point to remember is cators selected should consider the impacts,
that quantification is the key to remediation Jf you can't somehow impairments, or parameters of concern in
measure the problems you re facing, it will be almost impossible to . 1111 11
know if you're making any headway in addressing them. the waterbody and the types and pathways
of watershed stressor sources that contribute
to those impacts.
4.6.2 Select a Combination of Indicators
You'll use different types of indicators to reflect where you are in the watershed management
process and the audience with which you are communicating. You'll first select environmen-
tal indicators to measure the current conditions in the watershed and help to identify the
stressors and the sources of the pollutants. As you develop your management objectives and
actually assemble your watershed plan (^ chapter 12), you'll add performance indicators,
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Chapter 4: Define Scope of Watershed Planning Effort
Table 4-3. Example Environmental Indicators Used to Identify Relationships Between Pollutant Sources and
Environmental Conditions
Issue
Sediment
Eutrophication
Pathogens
Metals
Indicator
Pebble counts
(% surface fines
< 2 mm)
Stream channel
stability
Total suspended
solids (TSS)
Turbidity
Chlorophyll a
(benthic)
Chlorophyll a
(water column)
Nitrate + nitrite
Orthophosphate
Total nitrogen
Ammonia
Total
phosphorus
Fecal coliform
bacteria
£ co// bacteria
Copper
Lead
Zinc
Example
Target Value
< 20%
No significant
risk of bank
erosion
Monthly avg.
concentration
< 40 mg/L
< 25 NTU
Maximum
< 100mg/m2
Geometric mean
< 5 jug/L
Monthly average
< 1.5 mg/L
Monthly average
< 0.05 mg/L
Monthly average
< 5 mg/L
< 15 mg/L
Monthly average
< 0.10 mg/L
30-day
geometric mean
of
< 200/100 mL
30-day
geometric mean
of
< 125/100 mL
<7.3jug/L
<82jug/L
<67jug/L
Why You Would Use It
Pebble counts provide an indication of the type and distribution of bed
material in a stream. Too many fines can interfere with spawning and
degrade the habitat for aquatic invertebrates.
Channel stability uses a qualitative measurement with associated
mathematical values to reflect stream conditions.
Solids can adversely affect stream ecosystems by filling pools, clogging
gills, and limiting the light penetration and transparency critical to aquatic
flora.
Turbidity measures the clarity of water and can also be used as an indirect
indicator of the concentration of suspended matter.
In flowing streams, most algae grow attached to the substrate. Too much
benthic algae can degrade habitat; alter the cycling of oxygen, nutrients,
and metals; and result in unaesthetic conditions.
Chlorophyll a is an indirect measure of algal density. Excess levels might
result in harmful swings in dissolved oxygen (DO) concentrations, de-
crease water clarity, and alter the natural food chain of a system.
Elevated levels of nitrate + nitrite are good indicators of runoff from irriga-
tion, residential lawn care fertilizers, and effluent waste streams. These
parameters can indicate leaching from septic systems and erosion of
natural deposits. Nitrogen is a limiting nutrient to algal production in many
estuarine and arid freshwater systems.
Orthophosphate measures the form of phosphorus that is readily available
to aquatic systems. Too much phosphorus can often cause excessive
aquatic vegetation growth in freshwater systems.
Total nitrogen (often measured as the sum of nitrate + nitrite and total
Kjeldahl nitrogen) measures the total ability of the waterbody to supply
nitrogen to support algal growth after microbial processing.
Excess ammonia can cause toxicity in fish. The toxicity of ammonia is
dependent on pH and temperature.
Total phosphorus includes phosphorus that is bound to sediment particles
or in organic compounds, some of which can become available in the
water column. It is often the limiting nutrient for growth of aquatic
vegetation in freshwater systems.
This bacterial indicator is often used to monitor for the presence of human/
animal waste in a waterbody, which might lead to sickness in human
populations. It also indicates compromised sanitary discharge and septic
systems.
This bacterial indicator is often used to monitor for the presence of human/
animal waste in a waterbody, which might lead to sickness in human
populations. It also indicates compromised sanitary discharge and septic
systems.
Many metals are toxic to various forms of aquatic life, and water quality
criteria have been developed. Criteria for most metals vary with the
hardness of the water.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Table 4-3. Example Environmental Indicators Used to Identify Relationships Between Pollutant Sources and
Environmental Conditions (continued)
Issue
Habitat
General Water
Quality
Flow
Biology
Indicator
Temperature
Physical habitat
quality
Total dissolved
solids (TDS)
Conductivity
Dissolved
Oxygen (DO)
PH
Oil and grease
Dry weather
flows
Frequency of
overbank flood
events
Peak flow
Biological
indexes
EPT richness
DELT anomalies
Example
Target Value
Instantaneous
< 33 °C, daily
avg. < 29 °C
Rapid
Bioassessment
Protocol (RBP)
value
700 mg/L
< 1,OOOjuS/cm
> 5.0 mg/L
6 < pH < 9
Minimize
95% of daily
flows > 5 cfs
< 1 in 2 years
Achieve pre-
development
conditions for
response to
2-year storm
Varies by index,
assemblage,
stream size,
ecoregion
Varies by
stream type and
ecoregion
< 0.1%
Why You Would Use It
Many aquatic organisms are adapted to survive and prosper within
specific temperature ranges.
The assessment of physical habitat quality can be used to determine the
potential of waterbodies to sustain healthy aquatic systems.
TDS is a direct measurement of the dissolved mineral content in stream
ecosystems. High TDS can be harmful to aquatic organisms and can
restrict the beneficial use of water (e.g., for irrigation).
Conductivity is a good indicator of the dissolved mineral content in stream
ecosystems. Also, it is a good measure of the salinity of the water.
DO is an important measure of the quality of the habitat and overall health
of the ecosystem. Oxygen depletion can indicate a number of undesirable
physical, chemical, and biological activities in the watershed.
pH is a measure of the acidity (hydrogen/hydroxide ion concentration).
Most aquatic organisms have a preferred pH range, usually pH 6 to 9.
Beyond that range aquatic organisms begin to suffer from stress, which
can lead to death. High pH levels also force dissolved ammonia into its
toxic, un-ionized form, which can further stress fish and other organisms.
Oil and grease indicate impacts from general vehicular impervious
surfaces and illicit disposal activity.
As impervious surface area increases, often stream base flow decreases,
resulting in decreased aquatic habitat and exacerbating problems with high
temperature and low dissolved oxygen.
The frequency and magnitude of flood events is influenced by increased
urbanization and can affect channel stability. This indicator is also easily
understood by the public.
Urbanization often leads to increased storm flow peaks, which in turn set
off instability in the stream channel.
Several indexes under various acronyms (IBI, ICI, SCI, RIVPACS) have
been developed to directly measure the health of fish, macroinvertebrate,
and periphyton assemblages. See Barbour et al. (1999) for an introduction
to the use of these indexes.
This metric is the richness of the sample in taxa that are mayflies
(Ephemeroptera), stoneflies (Plecoptera), orcaddisflies (Trichoptera).
Invertebrates that are members of these groups are generally understood
to be sensitive to stressors in streams, whether the stressors are physical,
chemical, or biological. Consequently, these taxa are less common in de-
graded streams. Component of most macroinvertebrate biological indexes.
The percentage of fish in a sample with external deformities, fin erosion,
lesions, or tumors. These anomalies increase with both conventional
organic pollution and toxic pollution. Component of some fish biological
indexes.
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Chapter 4: Define Scope of Watershed Planning Effort
Table 4-3. Example Environmental Indicators Used to Identify Relationships Between Pollutant Sources and
Environmental Conditions (continued)
Issue
Indicator
Example
Target Value
Why You Would Use It
Biology
(continued)
Beck's Biotic
Index
Hilsenhoff Biotic
Index (HBI)
<3.8
Observed taxa/
expected taxa
(0/E)
>0.8
A weighted sum of the number of pollution-sensitive macroinvertebrate
species in a standardized sample. Highly sensitive taxa receive 2 points;
sensitive taxa receive 1 point. Similar to EPT richness, but more appro-
priate in low-gradient streams. Component of some macroinvertebrate
biological indexes.
The abundance-weighted average tolerance of all taxa in a macroinverte-
brate sample. The HBI score increases with pollution and degradation as
tolerant taxa replace intolerant (sensitive) taxa. See Barbour et al. (1999).
Component metric of many macroinvertebrate biological indexes.
This is the measurement endpoint of what are termed RIVPACS, or predic-
tive model indexes. This indicator measures the macroinvertebrate taxa
actually observed at a site in relationship to those expected to occur under
undisturbed conditions, adjusted for site-specific features (e.g., stream
size, elevation). See Wright et al. (2000).
such as social and programmatic indicators, to help measure progress toward meeting your
goals. Table 4-4 provides examples of indicators used throughout the watershed plan devel-
opment and implementation effort.
The Audience
Keep in mind that indicators provide a powerful means of communicating to various audi-
ences about the status of the watershed, as well as demonstrating the progress being made
toward meeting goals. Select indicators that will help to communicate these concepts to non-
technical audiences. For example, using a 30-day geometric mean for E. coli bacteria to dem-
onstrate reduction in pathogens to the waterbody won't mean much to most people. But using
the number of shellfish beds that have been reopened because of the reduction of pathogen
inputs is easier to understand. Or being able to count the number of failing septic systems that
have been located and repaired shows people how the sources of pathogens are being reduced.
Environmental Indicators
Environmental indicators are a direct measure of the environmental conditions that plan
implementation seeks to achieve. The indicators should be directly related to the indica-
tors selected for your management objectives. By definition, the indicators are measurable
quantities used to evaluate the relationship between pollutant sources and environmental
conditions. Target goals are defined by the values of the selected indicators. Frequently these
targets reflect water quality standards for designated uses. In other cases, qualitative stan-
dards for water quality and habitat protection need to be interpreted to establish the criteria.
For example, if the indicator was phosphorus, the target could be a reduction of the instream
concentration value or a total allowable load that is expected to protect the resource.
Programmatic Indicators
Programmatic indicators are indirect measures of resource protection or restoration (e.g., the
number of management practices or the number of point source permits issued). These don't
necessarily indicate that you're meeting your load reductions, but they do indicate actions
intended to achieve a goal. When you develop the implementation plan (v chapter 12), look
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Table 4-4. Example Indicators Used throughout Watershed Plan Development and Implementation
Concern: No fish in stream due to heavy sedimentation
Goal: Reduce sedimentation into stream to meet designated uses
Objective: Install management practices streamside to reduce sedimentation by 15 percent
Type of Indicator
Environmental
(baseline conditions)
Programmatic
Programmatic
Social
Social
Social
Social
Programmatic
Environmental (measure
implementation progress)
Example Indicators
Turbidity, flow, total suspended solids
(TSS), channel stability
Number of brochures mailed for
management practice workshop
Number of participants at management
practice workshop
Number of follow-up phone calls
requesting information
Increased awareness of watershed issues
Number of landowners requesting
assistance to install management
practices
Number of landowners aware of technical
and financial assistance available for
management practice installation
Number of management practices
installed
Turbidity, flow, TSS, channel stability
Methods
Direct water quality measurements,
photographs, watershed surveys
Mailing lists
Attendance lists
Phone records
Pre- and post-project surveys, focus
groups
Phone records
Pre- and post-project surveys,
interviews
Tracking database
Direct water quality measurements,
photographs, watershed surveys
for important programmatic actions that can be tracked over time. Programmatic indicators
include measures such as recording the number of people attending workshops, the number
of projects approved, the number of monitoring samples taken, and dollars spent.
Social Indicators
Social indicators measure changes in social or cultural practices, such as increased aware-
ness of watershed issues, and behavior changes that lead to implementation of management
measures and subsequent water quality improvements. Indicators may include the percent-
age of landowners along the stream corridor that know what a watershed is or the number of
homeowners that sign a pledge to reduce fertilizer use. Consider the methods you'll use to
collect this information, such as pre- and post- surveys, focus groups, and one-on-one inter-
views. Table 4-5 provides several examples of indicators that can be used to measure progress
or performance.
Regardless of the types of indicators and targets you develop, you should establish some
means for storing data (e.g., database) and for tracking and reporting progress against these
values. N> Section 12.10 describes various tracking systems that can be used to manage this
information.
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Chapter 4: Define Scope of Watershed Planning Effort
Table 4-5. Examples of Performance Indicators That Can Be Used to Develop Targets to Measure Progress in Meeting
Watershed Goals
Environmental
Programmatic
Social
Number (or percentage) of river/stream miles, lake
acres, and estuarine and coastal square miles that fully
meet all water quality standards
Number (or percentage) of river/stream miles, lake
acres, and estuarine and coastal square miles that
come into compliance with one or more designated
uses
Number (or percentage) of river/stream miles, lake
acres, and estuarine and coastal square miles that
meet one or more numeric water quality standards
Demonstrated improvement in water quality
parameters (e.g., DO, pH, TSS)
Demonstrated improvement in biological
parameters (e.g., increase in numbers or diversity of
macroinvertebrates)
Demonstrated improvement in physical parameters
(e.g., increased riparian habitat)
Reduction in the number of fish consumption
advisories, beach closures, or shellfish bed closures
Number of river/stream miles, lake acres, and
estuarine and coastal square miles removed from the
"threatened" list
Reduction in pollutant loadings from nonpoint sources
Reductions in frequencies of peak flows in developing
areas
Increase in the number of acres of wetlands protected
or restored
Reduction in the amount of trash collected in
stormwater drains
Number of management
measures implemented in a
watershed (e.g., number of
stream miles fenced, number of
riparian buffers created)
Number of approved or
certified plans (e.g., sediment
and erosion control plans,
stormwater plans, nutrient
management plans)
Number of ordinances
developed
Number of hits on watershed
Web site
Number of residents requesting
to have their septic systems
serviced
Number of illicit connections
identified and corrected
Number of permits reissued
Elapsed time from permit
violation reports to compliance
Number of public water systems
with source water protection
plans
Reduction in the amount of
impervious surface area directly
connected to buildings
Rates of participation in
education programs specifically
directed to solving particular
nonpoint source pollution
problems
Increase in awareness,
knowledge, and actions
designed to change behavior
patterns
Rates of participation in various
nonpoint source activities,
such as citizen monitoring and
watershed restoration activities
Increase in participation at
watershed stakeholder meetings
Increase in the number of
residents signing watershed
stewardship pledge
Number of homeowners
requesting an inspection of their
septic systems
4.7 Link Concerns with Goals and Indicators
It's important to help stakeholders to link their concerns with goals. It's also important to
develop indicators that measure the current conditions in the watershed, as well as to iden-
tify possible indicators to measure progress once the watershed plan is implemented. Work
with the stakeholders to fill out ft Worksheet 4-4 to link the concerns with the goals they
have identified. For each of the concerns they identify, ask them to write down the poten-
tial causes of the problem. Ask them how they would measure the current conditions in the
watershed. Then for each goal selected, they should develop the indicators they want to use
to measure progress in meeting those goals. The more specific you can be at this stage, the
more focused your data-gathering efforts will be in the next phase. ^> A blank copy of the
worksheet is provided in appendix B.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
/"worksheet 4-4
What are the
problems/
concerns in the
watershed?
Concerns, Causes, fyoals, And
What do you
think caused the
problems?
How can we What would you How will we measure
assess current like to see for your progress toward
conditions? watershed? meeting those goals?
(Indicators) (Goals) (Indicators)
No more fish in the
stream
£ co// contamination
Trash in the stream
Sedimentation from
eroding streambanks
Failing septic
systems
Stormwater runoff,
people littering
Visual assessment
of eroding banks,
turbidity
Fecal coliform
concentrations
Photographs of trash
Meet designated
uses for fishing
Meet water quality
standards for
pathogens
Reduce trash found
in stream
Turbidity, TSS, fish
assemblages
30-day geometric mean
concentration of fecal
coliforms, number of failing
septic systems repaired
Pounds of trash removed,
comparison of photographs
taken before and after
implementation
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Handbook Road Map
1 Introduction
2 Overview of Watershed Planning Process
3 Build Partnerships
4 Define Scope of Watershed Planning Effort
— 5 Gather Existing Data and Create an Inventory
6 Identify Data Gaps and Collect Additional Data If Needed
7 Analyze Data to Characterize the Watershed and Pollutant Sources
8 Estimate Pollutant Loads
9 Set Goals and Identify Load Reductions
10 Identify Possible Management Strategies
11 Evaluate Options and Select Final Management Strategies
12 Design Implementation Program and Assemble Watershed Plan
13 Implement Watershed Plan and Measure Progress
Gather Existing Data and Create an
Inventory
Determining data needs
Identifying available data
Locating the information
Gathering and organizing necessary data
Creating a data inventory
Read this chapter if...
• You're not sure where to look for data on your watershed
• You want to learn about the types of data you need to develop
the watershed plan
• You want to know where to obtain maps of your watershed
• You want to know how to use GIS and remote sensing to help
characterize your watershed
• You want to know how to create a data inventory
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
5.1 How Do I Characterize My Watershed?
Once you've formed partnerships, you'll begin to characterize the watershed to develop an
understanding of the impacts seen in the watershed, identify possible causes and sources of
the impacts, and subsequently quantify the pollutant loads. Characterizing the watershed,
its problems, and pollutant sources provides the basis for developing effective management
strategies to meet watershed goals.
Because it's rare for any watershed planning effort to require starting from scratch, the chal-
lenge is to understand and build on existing information. The characterization and analysis
process is designed to help you focus the planning efforts strategically to address the most
pressing needs and target your data collection and analyses to your specific watershed.
The next four chapters focus on the characterization process:
• Gather existing information and create a data inventory (^> chapter 5)
• Identify data gaps, and collect new data, if needed (V chapter 6)
• Analyze data (^> chapter 7)
• Estimate pollutant loads (v chapter 8)
Although these phases are presented sequentially, several iterations of gathering data, identi-
fying gaps, and analyzing data might be needed within each phase. This chapter focuses on
gathering existing information to create a data inventory.
Gathering and organizing data is a major part of developing
a successful watershed plan. You'll gather data and conduct
Before You Start... j i i i ,• • f
data analyses to characterize the condition ot your water-
Before you start searching for and gathering data, shed and its waterbodies, identify pollutant sources, and
revisit the conceptual model developed during the support quantification of the pollutant loads. Estimates of
scoping process (0 chapter 4). The watershed sQurce lmds ar£ often a nent missi from and
problems, potential sources, and goals illustrated in . . rr ,,-,,• ,• • •• ,
the conceptual model will focus your data gathering, current panning efforts, and filling this gap is critical to
as well as the subsequent analyses. successfully controlling sources, restoring watershed health,
and meeting watershed and water quality goals. Without
an understanding of where pollutants are coming from, it's
almost impossible to understand their impact on watershed resources and to target your
control efforts effectively. This section provides information on how to target your data-
gathering efforts and explains what types of data and information are useful in developing a
watershed plan.
5.2 Focus Your Data Gathering Efforts
Although the data-gathering and analysis phases of the watershed planning process are
very important in estimating source loads, they can also be very challenging. The types and
amount of data available vary by watershed, and there is often a variety of data, making it
difficult to decide which data (and analyses) are necessary. You should decide which types
of data and how much data you need to complete your watershed plan. ©To make these
decisions easier, your data-gathering efforts should be guided by your earlier scoping efforts,
during which you developed a conceptual model, identified preliminary watershed goals, and
listed stakeholder concerns (^> chapter 4).
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Chapter 5: Gather Existing Data and Create an Inventory
5.2.1 Build on Earlier Scoping Efforts
The conceptual model, discussed in section 4.3, is a graphic representation of the watershed
processes and problems. The conceptual model allows you to visualize the pollutants caus-
ing impairment, their potential sources and pathways, and interactions between pollutants,
related stressors, and impairments.
©The information and links depicted in the conceptual model will help you to determine
what information to collect for analysis and also prioritize the information. Data compila-
tion can be an almost endless process; there's always something more to find out about your
watershed. You should decide what you need and tailor your data-gathering efforts accord-
ingly. It is often time-consuming to gather data and to analyze and make sense of them.
You'll want to be careful not to spend your budget on compiling data and information that
you don't need—data that will not help you understand the watershed problems and meet
your goals. For example, if the primary concern in your watershed is elevated levels of bac-
teria posing human health risks and prohibiting recreational opportunities, you'll need to
focus data collection and analysis on likely sources of bacteria loads to the streams, such as
livestock operations, wildlife populations and their distribution, and septic systems. In addi-
tion, because bacteria are not typically related to other water quality parameters, you might
not need to gather extra monitoring data. Alternatively, some water quality impairments are
related to several parameters and affected by many factors, requiring more data and analyses
to understand the dynamics of the problem. For example, excess nutrients can increase algal
growth (chlorophyll a) and lead to processes that deplete dissolved oxygen, lower pH, and
produce ammonia at potentially toxic levels. These parameters are interrelated: when evalu-
ating one, you must often evaluate all of them. Therefore, identifying these types of relation-
ships and interactions in your conceptual model is crucial to efficiently gathering data and
conducting useful analyses.
5.2.2 Consider Stakeholder Goals and Concerns
©Another factor that will focus your data gathering is the goals and concerns identified by
the stakeholders during the initial phases of the watershed planning process. The conceptual
model relates to the watershed goals identified with the stakeholders by identifying poten-
tial watershed sources causing the problems and, therefore,
the sources that must be controlled to meet the goals. For _ . _ . . _
O66K UUt LOC3I Udtd
example, if a perceived problem in the watershed is the
rifv
data and ground-truth other datasets if possible. State
degradation of fisheries, the conceptual model will identify Remember to check first for the availability of local
possible causes of that problem (e.g., low dissolved oxygen) ... ... , t ,. ,
, , .... , • , . and federal data can provide a broad set of information
and the associated pollutant sources (e.g., increased nutrient M mjght be coarse Qr Qut_of_date Check for recen(
inputs from fertilizer application and subsequent runoff). changeSj especia||y changes in ,and use and ,and
Similarly, if the stakeholders identified development pres- management that might not be reflected in available
sures as a concern, you'll want to collect information on land datasets. Consider the date when the data were
use patterns, building permits, and current zoning practices. originally generated and processed and compare the
If they identified the protection of wetlands as a goal, you data with what you and the stakeholders know about
should identify the wetlands in the watershed and any cur- the watershed.
rent protection strategies in place.
5.3 Who Has the Data and What Types of Data Do You Need?
Building from the information provided by the stakeholders, you'll identify existing reports,
plans, studies, and datasets from various sources that can be used to help characterize the
5-3
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
First, See What's Already Been Done
Much of the data you need for characterizing your
watershed might have been partially compiled and
summarized in existing reports, including
• TMDL reports
• Watershed Restoration Action Strategies
• Source Water Assessments
• CWA section 208 plans
• Clean Lake Plans (Clean Water Act section 314)
Although some of these plans might be outdated
and represent historical conditions, they can provide
a valuable starting point for gathering data and
characterizing historical and current conditions in your
watershed.
watershed. These sources include various local, state, tribal,
and federal programs and organizations.
Many of the data types discussed in this section might already
be summarized or available through existing programs,
reports, and plans. For example, Total Maximum Daily Loads
(TMDLs) completed for the watershed might include infor-
mation on water quality, land use, and sources in the water-
shed. It's helpful to identify environmental studies that have
already been conducted in your watershed because they might
provide information on several different data types and guide
you toward important stakeholders or sources of additional
data. This section provides a variety of information that might
help you identify existing plans and studies in your water-
shed. Another way to find them is an Internet search on your
watershed or waterbodies—a broad search through a general
browser or more specific searches through relevant state or
federal environmental agencies' Web sites.
Before you begin to identify the types of data you need, it's helpful to understand the
different data sources. The following descriptions are meant to familiarize you with
these various sources and provide context for the discussions of specific data types in the
subsequent sections.
Navigating through Local Governments
Because local governments are organized differently,
sometimes it's difficult to find the information you
need. The best approach is to start with the local
planning or environmental department and ask them
to steer you in the right direction for other types of
information. Local governments typically provide the
following services:
• County and city planning offices: master plans,
zoning ordinances
• Environmental departments: recycling policies,
water quality monitoring program
• So/7 and water conservation districts: agricultural
land use information, topographic maps, soil
surveys, erosion control information
• Departments of economic development: census
data, tax records, demographic data
• Water and sanitation department: stormwater plans,
maps of water intakes and sewer lines
• Public health department: septic system inventories,
records of outbreaks of illness or ailments from
poor water quality
• Transportation department transportation master
plans, permits, road and bridge construction
information
5.3.1 Local Sources of Information
Identifying existing information at the local level is criti-
cal to supporting the development of a watershed plan that
is based on local current or future planning efforts (e.g.,
information on zoning, development guidelines and restric-
tions, master planning, wastewater plans, transportation
plans, future land use plans). This information not only
will support the characterization of the watershed but also
will identify any major changes expected to occur in the
watershed (e.g., new development, addition of point sources,
change from septic systems to city sewer). The sources for
local information will depend on the kinds of land uses in
your community (urban or rural).
To know what is available and how to get county-level
information, it is necessary to become familiar with state-,
county-, and city-level agencies. It's important to understand
the authority and jurisdictions of the agencies in the water-
shed. This understanding facilitates the search for informa-
tion and also provides valuable insight into the activities
most likely to be implemented in the watershed. For exam-
ple, it's important that the watershed plan identify control
actions or management practices that people or agencies in
the watershed have the authority and jurisdiction to imple-
ment. This will help you select the management strategies
that you know can be adopted at the local level with existing
5-4
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Chapter 5: Gather Existing Data and Create an Inventory
authorities. ^> Go to section 3.4.1 for a description of various local and regional programs
and organizations.
Other "local" sources of watershed data include universities and environmental non-govern-
mental organizations (NGOs). Although a university or NGO might not be located in or near
your watershed, it might be active in the watershed and hold
relevant local data.
\!f Contact Your Local Stormwater Program
Be sure to check with your local stormwater management
office, usually found in your city or county department of
public works or planning office. They might already have
developed a watershed plan for your area.
Universities can be important sources for demographic,
climate, or spatial data. Many state climatology offices are
associated with universities. In addition, university faculty
or students regularly conduct environmental research related
to their fields of study or expertise, sometimes providing
data and information relevant to local watershed planning
efforts (e.g., water quality, soils, land use changes). However, it might be difficult to identify
any relevant studies and data without already knowing the specific project or contact.
Universities have a variety of schools and departments, and no two are likely to be organized
in the same way. Hopefully, if a university has conducted research in your watershed, one or
more of the key stakeholders will be aware of it and can lead you in the right direction.
NGOs (e.g., Trout Unlimited, Izaak Walton League) often have information on stream condi-
tions, habitat, and long-term changes in watershed characteristics (e.g., habitat, water qual-
ity). As with university information, it's difficult to identify NGOs active in your watershed
and relevant data without already knowing they exist. Typically, if an NGO has an active
interest in your watershed or has collected data, you or one of the involved stakeholders will
know about it.
5.3.2 State Sources of Information
State environmental agencies routinely collect biological,
hydrological, and water quality information for the waters
in the state. State environmental agencies include several
divisions and offices, many of which might be useful in
characterizing your watershed and some of which might be
irrelevant. Environmental agencies typically have a division
or office dedicated to watershed or water quality issues. A
variety of other offices deal with environmental issues (e.g.,
wastewater, mining, air quality) and will likely have informa-
tion relevant to your watershed. ©It's useful to go to your
state environmental agency's Web site to learn what types of
offices work in your state and identify potential sources of
relevant information.
In addition to state environmental agencies, several other
state agencies might be useful in characterizing your water-
shed and potential sources. For example, the Division of
Natural Resources or Department of Fish and Game can
provide information on wildlife habitats and populations,
and the Department of Agriculture can provide agricultural
statistics for counties in your state. ^> Go to section 3.4.2 for
a description of various state programs and organizations.
Does Your State Have Its Own
Watershed Guidance?
Before you start gathering data, check to see if your
state has developed guidance or support materials for
watershed planning. Whether comprehensive technical
manuals or introductory brochures, these documents
can provide information on available data sources,
state and local government organizations, and various
state-specific issues (e.g., laws, unique environmental
conditions). **> For example, the California Watershed
Assessment Manual (http://cwam.ucdavis.edu) was
developed to help watershed groups, local agencies,
and private landowners evaluate the condition of
their watershed. The manual discusses the watershed
assessment process and includes discussions of
California-specific agencies, data types and sources,
and environmental concerns. Check with your
state environmental agency to see whether it has
programmatic or technical documents on watershed
planning.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Types of Data Useful
for Watershed
Characterization
Physical and Natural
Features
• Watershed boundaries
• Hydrology
• Topography
• Soils
• Climate
• Habitat
Land Use and Population
Characteristics
• Land use and land cover
• Existing management
practices
• Demographics
Waterbody Conditions
• Water quality standards
• 305(b) report
• 303(d)list
• TMDL reports
• Source Water Assessments
Pollutant Sources
• Point sources
• Nonpoint sources
5.3.3 Tribal Sources of Information
In watersheds that include tribal lands, tribal sources of
watershed information can be important. Often, data and
information for lands and waterbodies within reservation
boundaries are limited at the state level and you must rely on
tribal contacts for monitoring or anecdotal information.
Watershed characterization for tribal lands can be obtained
from a variety of sources. First, search the Web to see if the
specific tribe has a Web site with historical data or back-
ground information or reports. "i> Go to section 3.4.3 for a
description of various tribal programs and organizations.
5.3.4 Federal Sources of Information
Several federal agencies, including EPA, the U.S. Department of
Agriculture (USDA), and the U.S. Geological Survey (USGS), gener-
ate information that will be useful in characterizing your watershed.
With the various offices, divisions, and agencies in the federal govern-
ment, there are likely several federal sources of every type of data used in
watershed characterization. ^ Go to section 3.4.4 for a description of various
federal programs and organizations. The remainder of this chapter identifies
these data types and their corresponding sources.
5.3.5 Data Types
In general, five broad categories of data are used to adequately characterize
the watershed:
• Physical and natural features
• Land use and population characteristics
• Waterbody conditions
• Pollutant sources
• Waterbody monitoring data
Within these categories are dozens of reports and datasets that you can access
to populate your data inventory. Table 5-1 identifies the types of data typically
needed for watershed characterization and describes how the data might be
used. Each data type is discussed in the following sections. Be careful not to
collect existing information just because it's available. The data should help to
link the impacts seen in the watershed to their sources and causes.
The data discussed in this section come in a variety of forms, including tabu-
lar data and databases, documents and reports, maps and aerial photographs,
and geographic information system (GIS) data. Tabular data include water
quality and flow monitoring data consisting of a series of numeric observa-
tions. Documents and reports include TMDLs or previous watershed studies
that provide background information and summaries of watershed charac-
teristics and conditions. They might address specific topics like fisheries
habitats or particular pollutants, or they might cover a range of watershed
5-6
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Chapter 5: Gather Existing Data and Create an Inventory
Table 5-1. Data Typically Used for Watershed Characterization
Data Type
Typical Uses of Data
Physical and Natural Features
Watershed
boundaries
Hydrology
Topography
Soils
Climate
Habitat
Wildlife
• Provide geographic boundaries for evaluation and source control
• Delineate drainage areas at desired scale
• Identify the locations of waterbodies
• Identify the spatial relationship of waterbodies, including what segments are connected and how
through the watershed (e.g., delineate drainage areas contributing to wetlands)
water flows
• Derive slopes of stream segments and watershed areas (e.g., to identify unstable areas, to characterize
segments and subwatersheds in watershed modeling)
• Evaluate altitude changes (necessary when extrapolating precipitation from one area to another)
• Identify potential areas with higher erosion rates, poor drainage, or steep slopes
• Use to delineate subwatersheds and develop input data for models
• Provide information about loading conditions when evaluated with instream data (e.g., elevated
concentrations during storm events and high flow)
• Drive simulation of rainfall-runoff processes in watershed models
• Describe area's ability to support aquatic life, and identify areas at risk of impairment
• Support defining stressors that could be contributing to impairment
• Identify shading or lack of riparian cover
• Support identification of potential conservation, protection, or restoration areas
• Identify any in-stream flow alterations or stream fragmentation
• Identify special wildlife species to be protected
• Identify potential sources of bacteria and nutrients
Land Use and Population Characteristics
Land use and land
cover
Existing land
management
practices
• Identify potential pollutant sources (e.g., land uses, pervious vs. impervious surfaces)
• Provide basis for evaluation of sources, loading, and controls
• Provide unit for simulation in watershed models
• Identify current control practices and potential targets for future management
• Identify potential watershed pollutant sources
Waterbody and Watershed Conditions
Water quality
standards
305(b) report
303(d) list
Existing TMDL
reports
Source Water
Assessments
• Identify protected uses of the waterbody and associated water quality standards
• Identify the status of designated use support in watershed waterbodies
• Identify potential causes and sources of impairment
• Identify known pollutant impairments in the watershed
• Identify geographic extent of impaired waterbody segments
• Identify potential causes and sources of impairment
• Provide information on watershed characteristics, waterbody conditions, sources, and pollutant
specific waterbodies and pollutants)
oads (for
• Identify water supply areas to be protected
• Identify potential sources of contamination to the water supply
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Table 5-1. Data Typically Used for Watershed Characterization (continued)
Data Type
Typical Uses of Data
Pollutant Sources
Point sources
Nonpoint sources
• Characterize potential point sources for quantifying loads
• Characterize potential nonpoint sources for quantifying loads
Waterbody Monitoring Data
Water quality and
flow
Biology
Geomorphology
• Characterize water quality and flow conditions throughout the watershed
• Provide information on critical conditions, temporal trends, spatial variations, impairment magnitude, etc.
• Provide information on general health of the watershed, considering long-term effects
• Describe river/stream pattern, profile, and dimension
• Characterize drainage basin, channel/bank morphology
• Classify river/stream type, based on morphology
• Assess changes to morphology over time
topics. GIS data are available for a wide range of watershed characteristics, such as land use,
locations of monitoring stations or flow gauges, vegetation, and population distribution.
Many of the data discussed below can be gathered, organized, and viewed using various
tools. ^> The two most popular tools, GIS and remote sensing, are specifically discussed in
section 5.9 to provide guidance on how to use these tools, highlight their limitations, and
identify the most common datasets.
@Many of the datasets discussed in the following sections are provided as GIS data. GIS
data can be critical in developing your watershed plan, but often they can be misinterpreted
by first-time or novice users unfamiliar with the data types and their application. You might
need to do some research or attend training to learn how to use GIS effectively before gather-
ing the associated data—data that could be useless or misleading without the knowledge to
use them properly. ^ For more information on using GIS and what information to gather
when compiling GIS data, go to section 5.9.1.
"*> Web Sites for Downloading
Watershed Coverages
• USGS8-digit watersheds:
http://water.usgs.gov/GIS/huc.html
• USDA Natural Resources Conservation
Service 14-digit watersheds:
www.ncgc.nrcs.usda.gov/products/
datasets/watershed
5.4 Physical and Natural Features
This section discusses information on the physical and natural features
of your watershed, including what data are available, why they are
important, and where you can find them. Information on the physical
and natural characteristics of your watershed will define your water-
shed boundary and provide a basic understanding of the watershed
features that can influence watershed sources and pollutant loading.
5.4.1 Watershed Boundaries
Defining the geographic boundaries of your watershed planning effort is the first step in
gathering and evaluating data. Up to this point, the watershed boundary might have been a
theoretical boundary. You know for what watershed you are writing a plan, but you might not
have documentation of its physical boundary and the waterbodies contained in it. Depending
on the size of your watershed, its boundary might already have been delineated by a state or
federal agency.
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Chapter 5: Gather Existing Data and Create an Inventory
at's My HUC?
Although most watershed planning efforts focus on
areas much smaller than an 8-digit hydrologic unit
(subbasin), it's useful to know in what cataloging unit
your watershed is included. Many databases (e.g.,
monitoring, GIS) are organized or referenced by HUC.
To find your data and navigate through data repositories
and search engines, it's necessary to know the HUC for
your watershed.
^ If you don't know your HUC, visit EPA's "Surf Your
Watershed" Web site (http://cfpub.epa.gov/surf/
locate/index.cfm) to find it
USGS Hydrologic Units
Major watersheds throughout the country were previously
classified according to the USGS system into four levels—
regions, subregions, accounting units, and cataloging units.
The hydrologic units were nested within each other, from
the smallest (cataloging units) to the largest (regions). Each
hydrologic unit is identified by a unique hydrologic unit
code (HUC) consisting of two to eight digits based on the
four levels of classification in the hydrologic unit system.
Although the nomenclature for hydrologic units has been
revised based on an interagency effort (see section 4.4), the
delineation of major watersheds and their hydrologic unit
codes remain. There are 2,150 cataloging units (now called
"subbasins") in the United States. ^> GIS coverages of the
cataloging units are available by EPA region in EPA's BASINS modeling system
(www.epa.gov/ost/basins). ^ The coverages can also be downloaded from USGS at
http://water.usgs.gov/GIS/huc.html.
Most likely, your watershed is smaller than the USGS-designated cataloging units. (Most of
the cataloging units in the nation are larger than 700 square miles.) It's important, however,
to know what cataloging unit includes your watershed because many sources of data are
organized or referenced by HUC.
NRCS Watershed Boundary Dataset
During the late 1970s the USDA's Natural Resources Conservation Service (NRCS) initiated a
national program to further subdivide USGS's 8-digit cataloging units into smaller watersheds
for water resources planning (figure 5-1). By the early 1980s this 11-digit hydrologic unit map-
ping was completed for most of the United States. During the 1980s several NRCS state offices
starting mapping watersheds into sub-
watersheds by adding 2 or 3 digits to the
11-digit units. By the late 1980s and early
1990s, the advent of GIS made the map-
ping of digital hydrologic unit bound-
aries feasible. Through an interagency
initiative in the early 1990s, NRCS used
GIS to start delineating hydrologic units
and subdividing them into smaller units
for the entire United States.
A goal of this initiative is to provide the
Watershed Boundary Dataset (WBD)—a
hydrologically correct, seamless, and
consistent national GIS database of
watersheds at a scale of 1:24,000. The
new levels are called watershed (fifth
level, 10 digits [formerly 11 digits])
and subwatershed (sixth level, 12 dig-
its [formerly 14 digits]). The size at the
watershed level is typically 40,000 to
250,000 acres; at the subwatershed level,
w NHD ftowtine, meolum resolution
•• NHD walerbody, medium resolution
^^ Reach File, vi
3 8-d9it Cataloging Unl (14060004)
j 1 Watershed Boundary Dalasd
Figure 5-1. Example of NRCS Watershed Delineations Within a
USGS 8-digit Cataloging Unit
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
it is typically 10,000 to 40,000 acres, with some as small as 3,000 acres. An estimated 22,000
watersheds and 160,000 sub -watersheds will be mapped to the fifth and sixth levels.
GIS coverages of the WBD are publicly available through the Internet ( > www.ncgc.nrcs.
usda.gov/products/datasets/watershed); however, because the mapping is ongoing, there is
limited availability of the subwatershed coverage. As of January 2005, NRCS had completed
the coverages for Alabama, Connecticut, Georgia, Illinois, Maryland, Massachusetts, Mon-
tana, Rhode Island, Utah, and Vermont, v To check the status of the 12-digit subwatershed
coverages and availability for your watershed, go to www.ncgc.nrcs.usda.gov/products/
datasets/watershed/status-maps.html.
The WBD is also available through USGS's Elevation Derivatives for National Application
(EDNA) database and interactive map ( s> http://edna.usgs.gov). EDNA uses the USGS's
National Elevation Dataset (NED) and National Hydrography Dataset (NHD) to derive and
provide nationwide hydrologic data layers at a scale of 1:24,000. EDNA includes the WBD, as
well as tools and data to delineate watersheds for any point in the United States.
Regional, State, and Site-specific Watershed Boundaries
In addition to the USGS and NRCS classification, many states have created their own
watershed or planning unit delineations that break the USGS cataloging units into smaller
watersheds. For example, California has delineated watersheds with a hierarchy of watershed
designations that has six levels of increasing specificity. These state watersheds are generally
much smaller than the national 8-digit HUCs and are better suited for local watershed plan-
ning activities.
An example of a regional dataset or tool for watershed delineation is the Digital Watershed
Mapper ( ^ www.iwr.msu.edu/dw) from the Institute of Water Research at Michigan State
University. The Digital Watershed Mapper delineates a watershed based on an address or a
selected point on a map. It also provides land use, soils, and curve number coverages for the
delineated watershed.
What If My Watershed Has Not Been Delineated?
If your state does not have watershed boundaries available or your watershed is not specified in the state coverages, you might have to create
your own watershed boundary based on coverages of the stream network and elevation or topography, discussed in t section 5.4.3. There
are also tools available to delineate watersheds automatically. For example, BASINS includes an Automatic Watershed Delineation tool that
segments watersheds into several hydrologically connected subwatersheds. (^ BASINS software is free from EPA and available for download
atwww.epa.gov/ost/basins.) The Automatic Watershed Delineation is used in ArcViewand requires that the Spatial Analyst (version 1.1 or
later) and Dialog Designer (version 3.1 or later) ArcView extensions be installed on your computer. The delineation process also requires a
Digital Elevation Model (DEM) in Arclnfo grid format and optionally a stream network coverage (e.g., RF3 or NHD) in ArcView shape format.
In addition, the National Hydrography Dataset (NHD) Web site provides several applications for using NHD data, including NHD Watershed,
an ArcView (3.x) extension that enables users to delineate a watershed from any point on any NHD reach. The ArcView 3.x Spatial Analyst
extension (version 2.0) is required to delineate watersheds from any point. Without Spatial Analyst, watershed delineation can be performed
only upstream from an NHD reach confluence. Delineating watersheds using this tool also requires National Elevation Dataset (NED) data in
the 8-digit HUC of interest. (^ NED data can be downloaded from USGS's Seamless Data Distribution System at http://seamless.usgs.gov.)
In addition, 10-meter OEMs can be used in place of NED data, where they are available. (^ You can check the availability of 10-meter OEMs at
http://geography.usgs.gov/www/products/status.html)
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Chapter 5: Gather Existing Data and Create an Inventory
5.4.2 Hydrology
Information on the hydrology of your watershed is necessary to visualize and document the
waterbody network, including the locations of all the waterbodies and how they are con-
nected to one another. When water flows through the stream network, it carries pollutant
loads, and therefore the conditions of upstream segments can significantly affect the condi-
tions of downstream segments. When evaluat-
ing source impacts on watershed conditions, it is
crucial to understand the hydrologic network of the ^ Web Sites for Downloading Waterbody Coverages
watershed. Not only is this information important • USGS's NHD: http://nhd.usgs.gov
for characterizing your watershed and evaluating . EPA BASINS RF1 and RF3 by HUC:
sources and waterbody conditions, but it is also www.horizon-systems.com/nhdplus
necessary input when modeling the watershed.
Reach File
The EPA Reach Files are a series of national hydrologic databases that uniquely identify
and interconnect the stream segments or "reaches" that compose the country's surface water
drainage system. The three versions of the Reach File currently available are known as
RF1, RF2, and RF3-Alpha, and they were created from increasingly detailed sets of digi-
tal hydrography data produced by USGS. RF1, at a scale of 1:500,000, contains only major
waterbody features in the country, providing too broad a scale to be useful at the watershed
planning level. RF2 and RF3 are at a scale of 1:100,000, a scale useful for watershed plan-
ning. However, RF3 has been superseded by USGS's National Hydrography Dataset (NHD),
which provides more waterbody features (e.g., ponds, springs).
^> References documenting the content, production, and history of the Reach Files are
available at www.epa.gov/waters/doc/refs.html. ^ The GIS coverages of the Reach Files
are available free for download through EPA's BASINS modeling system at www.epa.gov/
waterscience/basins/bSwebdwn.htm.
National Hydrography Dataset
The NHD is a comprehensive set of digital spatial data for the entire United States that con-
tains information about surface water features such as lakes, ponds, streams, rivers, springs,
and wells. In the NHD, surface water features are combined to form reaches, which provide
the framework for linking water-related data to the NHD surface water drainage network.
The NHD is based on USGS's Digital Line Graph (DLG)
hydrography data, integrated with reach-related information
from EPA's RF3. The NHD supersedes DLG and RF3 by Level of Detail in Maps
incorporating them, not by replacing them. A map's scale is expressed as a ratio between a
distance on the map and a distance on Earth. For
The full national coverage of the NHD is currently based example, a scale of 1:100,000 means that 1 unit of
on 1:100,000 scale data, but the NHD is designed so that it measure on the map represents 100,000 of the same
can incorporate higher-resolution data. It is also designed so units on Earth.
that improvements and corrections to the dataset by indi-
vidual users can be incorporated into the national dataset.
A 1:24,000-scale NHD is being developed for many parts of the country. The l:100,000-scale
NHD is referred to as the "medium-resolution NHD"; finer scales, such as 1:24,000, are
referred to as "high-resolution NHD" (figure 5-2). The attribute information for each water-
body feature is the same in medium- and high-resolution NHD; however, because of the finer
scale, high-resolution NHD contains more waterbodies, including smaller-order streams and
additional springs. ^> To check the status of the 1:24,000 NHD and download coverages for
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
NHD waterbody, medium resolution
NHD flow/line, medium resolution
| NHD waterbody, high resolution
i NHD springs/wells, high resolution
/\/ NHD flow/line, high resolution
Figure 5-2. Examples of Medium-Resolution and High-Resolution NHD
your watershed at no cost, go to http://nhd.usgs.gov. This Web site also includes more infor-
mation on the NHD, its contents, and related tools. Specifically, the Concepts and Contents
technical reference (^> http://nhd.usgs.gov/techref.html) identifies and describes the con-
tents and features of the NHD.
In addition, many state environmental agencies might have
created state-specific hydrography coverage, whether based
on NHD, aerial photos, or other sources. For example, the
Utah Division of Water Quality has a coverage of waterbodies
for the state that includes irrigation diversions and canals—
features that might not be captured in the national datasets.
Check your state environmental department's Web site to see
if your watershed has already-created GIS coverages.
Sources of Digital Elevation Data
• USGS's EROS Data Center:
http://edc.usgs.gov/geodata
• GIS Data Depot: http://data.geocomm.com
Floodplain Maps
To address flooding and control water quality, the Federal Emergency Management Agency
(FEMA) requires municipalities to perform floodplain mapping and develop management
plans to receive federal flood insurance. This information is also relevant to water quality
protection and restoration activities because floodplains, when inundated, serve many func-
tions and provide important habitats for a variety of fish and wildlife. Floodplains are impor-
tant for spawning and rearing areas. Floodplain wetlands act as nutrient and sediment sinks,
which can improve water quality in streams. They also provide storage that can decrease the
magnitude of floods downstream, which can benefit fish and landowners in riparian areas.
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Chapter 5: Gather Existing Data and Create an Inventory
In addition, streams that are actively connected to their floodplains are less prone to severe
downcutting and erosion. Therefore, it's important to incorporate protection of these ben-
efits of floodplain areas into your watershed management planning. ^ Check with your local
government planning office to see if floodplain maps are available, or search the FEMA map
store at www.store.msc.fema.gov.
5.4.3 Topography
Characterizing the topography or natural features of the
watershed can help to determine possible sources of pol-
lution. For example, steep slopes might contribute more
sediment loads to the waterbody than flat landscapes.
Topographical information is also needed in many water-
shed models to route movement of runoff and loading
across the land and to the waterbody. Digital elevation
models (DEMs) are grid-based GIS coverages that repre-
sent elevation. They can be displayed in a GIS and are used
for delineating watersheds and displaying topography. One
DEM typically consists of thousands of grid cells that rep-
resent the topography of an area. DEMs are available with
10-meter, 30-meter, and 90-meter cell sizes. The smaller
cell sizes represent smaller areas and provide more detailed
and accurate topographic data. However, GIS coverages
with small grid cell sizes often have large file sizes and can
be difficult to work with over large areas. The 30-meter and
10-meter DEMs are appropriate for smaller watersheds,
such as a single 8-digit cataloging unit or smaller.
5.4.4 Soils
Soils can be an important factor in determining the amount
of erosion and stormwater runoff that occurs in your
watershed. Soils have inherent characteristics that control
how much water they retain, how stable they are, or how
water is transmitted through them. Understanding the types
of soils in your watershed and their characteristics helps to
identify areas that are prone to erosion or are more likely to
experience runoff.
Where to Get Topographic Maps
USGS has been the primary civilian mapping agency
of the United States since 1879. The best-known
USGS maps are the 1:24,000-scale topographic maps,
also known as 7.5-minute quadrangles. More than
55,000 7.5-minute maps were made to cover the 48
conterminous states. This is the only uniform map
series that covers the entire area of the United States
in considerable detail. The 7.5-minute map series
was completed in 1992. ^ To order hard-copy USGS
topographic maps, goto http://topomaps.usgs.gov/
ordering_maps.html. USGS primary series topo-
graphic maps (1:24,000,1:25,000,1:63,360 scales)
cost $6.00 per sheet, with a $5.00 handling fee for each
order. They are also available through a variety of other
sources, such as TopoZone (www.topozone.com).
Electronic versions of topographic maps, called
Digital Raster Graphics (DRGs), are also available
(http://topomaps.usgs.gov/drg) USGS distributes
DRGs on CDs, and there is a base charge of $45.00
per order, plus $5.00 shipping and $1.00 for each DRG
quadrangle purchased.
Find Your Loca Soil and Water
Conservation District
Local conservation districts can provide information
on soils in your watershed and how they affect
sources and pollutant delivery.
^ To see if your conservation district is online, visit
www.nrcs.usda.gov/partners/districts.htmlor
the National Association of Conservation Districts,
www.nacdnet.org/about/districts/websites
Historically, USDA and the local soil and water conservation
districts have been instrumental in carefully mapping and
classifying soils at the county level. Soils are also grouped
into hydrologic soil groups according to their runoff poten-
tial. These datasets are essential to the development of input
data for models that predict runoff and erosion and for the evaluation of land management
techniques and alternatives.
NRCS is the principal source of soil data across the nation. ^t> You can access that informa-
tion through the Soil Data Mart at http://soildatamart.nrcs.usda.gov. NRCS's Soil Data
Mart includes more than 2,000 soil surveys with spatial and tabular information and another
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
800 soil surveys with tabular (soil attribute) data only. The spatial data on the Soil Data Mart
are available for download at no charge and include the following:
• State Soil Geographic (STATSGO) Database. Soil maps for the STATSGO data-
base are produced by generalizing the detailed soil survey data. The mapping scale for
STATSGO is 1:250,000 (with the exception of Alaska, which is 1:1,000,000). The level
of mapping is designed to be used for broad planning and management uses covering
state, regional, and multistate areas.
^t> Go to www.ncgc.nrcs.usda.gov/products/datasets/statsgo.
• Soil Survey Geographic (SSURGO) Database. Mapping scales for SSURGO generally
range from 1:12,000 to 1:63,360, making the soil maps the most detailed done by NRCS.
SSURGO digitizing duplicates the original soil survey maps. This level of mapping is
designed for use by landowners, township personnel, and county natural resource plan-
ners and managers. ^ Go to www.ncgc.nrcs.usda.gov/products/datasets/ssurgo.
5.4.5 Climate
Local climatological data are often needed in a watershed characterization to help
understand the local water budget for the region and also for modeling purposes. Current
and historical climate data can be obtained from the National Climatic Data Center (NCDC),
maintained by the National Oceanic and Atmospheric Administration (NOAA). ^ The
NCDC data are available online at www.ncdc.noaa.gov/oa/ncdc.html and include informa-
tion such as precipitation, wind speed, temperature, and snow and ice cover at multiple
stations throughout the United States. Stations within or near a watershed can be found in
the NCDC database by using a variety of search tools, and data are provided (for a fee) in
a raw format that can be read by a word processing or spreadsheet program. County-level
stormwater management offices might also collect rain gage data.
Hourly or daily precipitation data, as well as temperature, evaporation, and wind speed, are
necessary for simulating rainfall-runoff processes in watershed models. However, if weather
data are being used only to generally characterize weather patterns in the watershed, daily or
monthly averages are sufficient. Daily and monthly temperature and precipitation data are
available online at no cost. The data are available by station through the regional climate cen-
ters and often through state climate offices. ^t> The Western Regional Climate Center provides
a map of regional climate centers with links to their Web sites: www.wrcc.dri.edu/rcc.html.
City or county stormwater management divisions might also collect rain gauge data.
Climatological data can be organized relatively easily to provide insight into wet and dry
seasons, which can be important considerations in characterizing watershed problems and
sources. Elevation can have an important impact on precipitation; therefore, in watersheds
with significant differences in topography, it is recommended that data be presented from at
least two locations (upper and lower).
5.4.6 Habitat
When characterizing your watershed, it's important to gather data not only to identify poten-
tial pollutant sources but also to identify areas for conservation, protection, and restoration.
Maintaining high-quality wildlife and aquatic habitat is an important goal when developing
watershed plans. High-quality, contiguous habitats and their buffers, as well as small pockets of
critical habitat, help prevent water quality impairments and provide protection for both terres-
trial and aquatic organisms. This section discusses information and programs available to help
you identify and characterize critical habitats—terrestrial and aquatic—in your watershed.
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Chapter 5: Gather Existing Data and Create an Inventory
National Wetlands Inventory
The National Wetlands Inventory (NWI), operated by the U.S. Fish and Wildlife Service
(USFWS), provides information on the characteristics, extent, and status of the nation's
wetlands and deepwater habitats and other wildlife habitats. The NWI has a new feature,
Wetlands Mapper, that allows you to map wetland habitat data. ^ Go to www.nwi.fws.gov.
Identifying wetlands is crucial to protecting natural habitats in your watershed.
Wetland Assessments
Many programs use a wetland assessment or survey to serve as a baseline for future manage-
ment activities. The survey might include global positioning system (GPS) coordinates of
sample plots, a general plot description and condition assessment (land use impacts), canopy
information or measurements, and digital pictures of sampling areas. In addition, the survey
might document flora and fauna diversity observations. These datasets can be used to
help characterize the watershed and identify wetland areas. In addition, State Wetland
Conservation Plans are strategies for states to achieve no net loss and other wetland
management goals by integrating regulatory and nonregulatory approaches to pro-
tecting wetlands. For more information on state wetland conservation planning
activities, ^i> go to www.epa.gov/owow/wetlands/facts/fact27.html.
EPA's Web site for state, tribal, and local wetland initiatives
(^0> www.epa.gov/owow/wetlands/initiative) provides links to a variety of
wetland information, including state/tribal regulatory programs; state/
tribal watershed planning; local initiatives; and state, tribal, and local
partners. The Web site also provides a link to the Association of State
Wetland Managers' Web site, which provides links to state and local wet-
land programs. ^ EPA also provides a link to wetland efforts throughout
the EPA regions at www.epa.gov/owow/wetlands/regions.html.
National Wetlands Status and Trends Report
The Emergency Wetlands Resources Act of 1986 requires the USFWS to
conduct status and trend studies of the nation's wetlands and report the
results to Congress each decade. The report provides the most recent and
comprehensive estimates of the current status and trends of wetlands on
public and private lands in the United States. ^ To download a copy of the
most recent report, go to http://wetlands.fws.gov.
Natural Heritage Program
The NHP is a nonprofit program operated in every state under cooperative agreements with
many state and federal agencies, such as the National Park Service, Forest Service, U.S.
Department of Defense, and USFWS, to monitor the status of the state's rare, threatened,
and endangered plants. State NHPs are part of a network established by The Nature Conser-
vancy and currently coordinated by NatureServe, an international nonprofit organization.
All NHP programs use a standard methodology for collecting, characterizing, and managing
data, making it possible to combine data at various scales to address local, state, regional, and
national issues. State NHP programs provide a variety of information, including statewide
lists of tracked species and communities, plant atlases and maps, rare plant field guides, lists
of rare plants (including rarity status, counties of occurrence, and flowering and fruiting
times), synonyms for the scientific names of rare plants, and descriptions of how rare plants
are treated under federal and state laws, v Go to www.natureserve.org/visitLocal/usa.jsp to
find local programs and datasets for your area.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Habitat Conservation Plans
Private landowners, corporations, state or local governments, and other non-federal land-
owners that wish to conduct activities on their land that might incidentally harm (or "take")
wildlife listed as endangered or threatened must first obtain an incidental take permit
from the USFWS. To obtain this permit, the applicant must develop a Habitat Conserva-
tion Plan (HCP), designed to offset any harmful effects the proposed activity might have on
the species. HCPs describe the impacts expected from the proposed operations or activities
(e.g., timber harvesting) and detail the measures to mitigate the impacts. HCPs can provide
valuable information on critical habitat in your watershed and also identify stakeholders and
current management measures to be integrated into the watershed planning process. ^> Go
to http://endangered.fws.gov/hcp for more information on the HCP program.
The Nature Conservancy
The Nature Conservancy (TNC) is a conservation organization working to protect ecologi-
cally important lands and waters for nature and people. TNC has numerous resources that you
might find helpful when gathering habitat data. For example, TNC's Aquatic Ecosystem Classi-
fication Framework is an approach for establishing freshwater priorities across large geographic
areas that uses all available data on species distributions as well as physical and geographic
features. The approach allows consideration of higher levels of biological information — com-
munities, ecosystems, and landscapes — in addition to rare and imperiled species. ^C> For more
information, go to www.nature.org/initiatives/freshwater/resources/artl7010.html. In addi-
tion, through the Sustainable Waters Program, TNC is demonstrating how water flows can
be managed to meet human needs while sustaining ecosystem health. TNC works with local
stakeholders to help bring their ecosystem-dependent needs and values to the decision tables,
craft scientific approaches and tools to define the water needs of ecosystems, work with water
managers to protect and restore natural patterns of water flow, and help to build alliances to
push for new water policies that embrace environmental sustainability. ^> For more informa-
tion and resources on habitat conservation, go to www.nature.org.
5.4.7 Fish and Wildlife
Identifying the types of wildlife and their habitat requirements in your watershed can help
to identify areas for protection and conservation in your watershed plan. Previous watershed
reports might provide information on wildlife in your watershed. In addition, local and state
fish and wildlife offices can provide you with information on wildlife species and distribution
in their jurisdictions. ^C> Go to http://offices.fws.gov/statelinks.html for a list of and links to
state and territorial fish and wildlife offices. The Nature Conservancy also has ecoregional
plans and other reports that provide this kind of information. Rivers of Life: Critical Water-
sheds for Protecting Freshwater Biodiversity provides information on freshwater species
( ^> www.natureserve.org/publications/riversOflife.jsp). It's especially important to consider
wildlife habitat in your watershed plan when endangered or threatened species occur in your
watershed. ^t> To find out more about endangered species, go to http://endangered.fws.gov.
That page also includes links to endangered species contacts in your area
http://endangered.fws.gov/contacts.html).
Understanding the types of wildlife in your watershed can not only identify critical habitat
areas to protect but sometimes also identify pollutant sources affecting water quality. For
example, waterfowl can be a significant source of bacteria and nutrients to reservoirs and
lakes. Although wildlife are an important component of the watershed ecology and should be
protected, it's important to understand their impact on waterbody conditions when develop-
ing a watershed plan.
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Chapter 5: Gather Existing Data and Create an Inventory
State Comprehensive Wildlife Conservation Strategies
State comprehensive wildlife conservation strategies (also known as wildlife action plans)
assess the condition of each state's wildlife and habitats, identify the problems they face,
and outline the actions that are needed to be conserve them over the long term before they
become more rare and more costly to protect. State fish and wildlife agencies have developed
these plans by working with a broad array of partners, including scientists, sportsmen, con-
servationists, and members of the community. There is a plan for each state and U.S. terri-
tory. Plans contain data on the distribution and abundance of wildlife; locations and relative
conditions of habitats essential to species in need of conservation; and problems that might
adversely affect species or their habitats and priority research and survey efforts. ^> For more
information on state wildlife action plans, go to www.wildlifeactionplans.org.
USGS GAP and Aquatic GAP
Gap analysis is a scientific method for identifying the degree to which native animal species
and natural communities are represented in our present-day mix of conservation lands. The
purpose of the Gap Analysis Program (GAP) is to provide broad geographic information on
the status of ordinary species (those not threatened with extinction or naturally rare) and
their habitats to provide land managers, planners, scientists, and policy makers with the
information they need to make better-informed decisions. GAP is coordinated by the Biologi-
cal Resources Division of the U.S. Geological Survey (^> http://gapanalysis.nbii.gov). Aquatic
GAP promotes conservation of biodiversity through information by providing conservation
assessments of natural communities and native species.
The Aquatic GAP examines how well all aquatic species and their habitats are represented
within places and managed for their long-term persistence, which species and habitat types
are under-represented in aquatic biodiversity management areas or activities, and which spe-
cies and habitat types are at risk. GIS models are used to predict aquatic biodiversity at the
community and species levels. Examples of data and information collected include habitat
cover and quality, fish species and macroinvertebrates associated with habitat types, water
quality, and stream gradient. Aquatic GAP projects are completed or on-going in several
states (NY at the watershed scale) and regions (e.g., Upper Tennessee River). For more infor-
mation, go to ^> www.glsc.usgs.gov/main.php.
5.4.8 Ecosystems
Ecosystem management requires that all aspects of a watershed (e.g., land, water, air, plants,
and animals) be managed as a whole, not as separate and unrelated parts. Ecosystem manage-
ment plans protect the viable populations of native species and the natural rhythms of the
natural range of variability of the ecosystem. They allow public use of resources at levels that
do not result in the degradation of the ecosystem. Successful, effective ecosystem manage-
ment requires partnerships and interdisciplinary teamwork within the watershed.
There are a number of good resources for developing an ecosystem management plan. The
following article provides relevant background information to help you protect ecosystems in
your watershed:
• Endangered Ecosystems of the United States: A Preliminary Assessment of Loss and Degrada-
tion R.F. Noss, E.T. LaRoe III, and J.M. Scott. U.S. Department of the Interior, National
Biological Service (now called BRD). 1995. (^> http://biology.usgs.gov/pubs/ecosys.htm)
This article provides estimates of declines of natural ecosystems in the United States,
a rationale for ecosystem-level conservation, discusses decline and threat as criteria
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
for conservation, and relates ecosystem losses to endangerment at species and popula-
tion levels. Ecosystems are defined generally and at various spatial scales and include
vegetation types, plant associations, natural communities, and habitats defined by
ecologically relevant factors. Appendix B of the article includes a comprehensive list of
at-risk ecosystems of the United States.
Another valuable resource is The Wildlands Project ( v> www.twp.org). The Wildlands Proj-
ect works toward restoring networks of wild landscapes with area-specific, native species. Its
mission is to strengthen existing wilderness areas and create more sustainable ecosystems by
creating a series of wilderness corridors that link larger areas. Development and human activ-
ity in these corridors are limited to lessen their impact on local wildlife. The project has done
notable partnership work in Minnesota, where the Minnesota Ecosystems Recovery Project
(MERP) is working toward the design and establishment of a comprehensive nature reserve
system that includes core reserve areas; buffer zones with limited, sustainable human activi-
ties; and corridors that will allow migration of plant and animal species between core areas.
5.5 Land Use and Population Characteristics
This section discusses data and information for determining the distribution of land use and
population in your watershed. Land uses are an important factor influencing the physical
conditions of the watershed, as well as an indicator of the types of
sources active in the watershed. Together with land use charac-
^ National Sources for Land Use and teristics, population can help you to understand the potential
Land Cover Data growth of the area and possible changes in land uses and sources.
GIS coverages
MRLC/NLCD data: www.mric.gov/index.asp 5.5.1 Land Use and Land Cover Data
USGS's LULC data: http://edc.usgs.gov/geodata Evaluating the land uses of a watershed is an important step in
Survey-based land use data understanding the watershed conditions and source dynamics.
U.S. Census of Agriculture: Land use types (together with other physical features such as
www.agcensus.usda.gov soils and topography) influence the hydrologic and physical na-
National Resources Inventory: ture of the watershed. In addition, land use distribution is often
www.nrcs.usda.gov/technical/NRI related to the activities in the watershed and, therefore, pollut-
ant stressors and sources. Sources are often specific to certain
land uses, providing a logical basis for identifying or evaluating
sources. For example, sources of nutrients such as grazing livestock and fertilizer application
associated with agricultural land uses would likely not contribute to loading from other land
uses such as urban or forest land uses. Likewise, urban land uses typically have specific pol-
lutants of concern (e.g., metals, oil and grease) different from those associated with rural land
uses. Evaluating land use distribution and associated sources also facilitates identifying future
implementation efforts because some management practices are most effective when applied
to a certain land use.
This section discusses some of the most common sources of land use data. Typically, land
use and land cover data are obtained from aerial photographs, satellite images, and ground
surveys. Because in some areas land uses continually change, it's important to keep in mind
the type and date of available land use data when reviewing the sources of land use data for
use in developing your watershed plan.
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Chapter 5: Gather Existing Data and Create an Inventory
What Is the MRLC?
Many of the land use datasets discussed in this section are products of the Multi-Resolution Land Characteristics (MRLC) consortium.
Because of the escalating costs of acquiring satellite images, in 1992 several federal agencies agreed to operate as a consortium to acquire
satellite-based remotely sensed data for their environmental monitoring programs. The original members of the MRLC consortium were
USGS, EPA, NOAA, and the Forest Service. The National Aeronautics and Space Administration (NASA) and the Bureau of Land Management
(BLM) joined the consortium later.
During the 1990s the MRLC created several mapping programs, including (1) the Coastal Change Analysis Project (C-CAP) administered by NOAA;
(2) the Gap Analysis Project (GAP) directed by the Biological Resources Division of USGS; and (3) the National Land Cover Data (NLCD) project
directed by USGS and EPA. The data developed by these projects are available publicly through download or by contacting the agencies involved.
^ For more information on the MRLC and its data products, go to www.epa.gov/mrlc.
National Land Cover Data
Satellite data from the early 1990s are available for the entire United States as part of the
National Land Cover Data (NLCD) program, made available by the Multi-Resolution Land
Characteristics Consortium (MRLC). The NLCD data are classified using a standard land
use classification system and are available as 30-meter grid cell GIS coverages that can be
displayed and queried in a GIS. The NLCD includes 21 land use classifications within the
following broad categories:
• Water
• Developed
• Barren
• Natural Forested Upland (non-wet)
• Natural Shrubland
• Non-natural Woody
• Herbaceous Upland Natural/Semi-Natural Vegetation
• Herbaceous Planted/Cultivated
• Wetlands
^> Definitions of the land use classifications are included at
http://landcover.usgs.gov/classes.php.
^> The NLCD data can be downloaded from the NLCD
Web site at www.epa.gov/mrlc/nlcd.html or through USGS's
Seamless Data Distribution Center (http://seamless.usgs.gov).
The entire United States is being mapped using imagery
acquired circa 2000 as part of the MRLC 2001 land use
project. ^> To check the status of NLCD 2001 and whether
it is available for your watershed, go to www.mrlc.gov/
mrlc2k_nlcd_map.asp.
Land Use and Land Cover Data
USGS's Land Use and Land Cover (LULC) data consist of
historical land use and land cover classification data based
primarily on the manual interpretation of 1970s and 1980s
aerial photography. Secondary sources include land use
maps and surveys. Along with the LULC files, associated
NLCD 1992 vs. NLCD 2001
NLCD 1992 was derived from the early to mid-1990s
Landsat Thematic Mapper (TM) satellite data purchased
under MRLC 92. The entire United States is being
mapped through NLCD 2001 using imagery acquired
circa 2000 from Landsat-7's enhanced TM (ETM).
This project entails re-mapping the lower 48 states,
as well as covering Hawaii and Alaska for the first
time. Classification schemes for the two rounds of
classification are similar but not identical. ^ For a
list and definitions of the classifications, go to
www.epa.gov/mrlc/classification.html
NLCD 2001 is a Landsat-based land cover database
that has several independent data layers, thereby
allowing users a wide variety of potential applications.
Primary components in the database include
• Normalized imagery for three time periods
• Ancillary data, including a 30-m DEM, slope, aspect,
and a positional index
• Per-pixel estimates of percentage of imperviousness
and percentage of tree canopy
• 21 classes of land-cover data derived from the
imagery, ancillary data, and derivatives using a
decision tree
• Classification rules, confidence estimates, and
metadata from the land cover classification
*> To check the status of NLCD 2001 and determine
whether it is available for your watershed, go to
www.mrlc.gov/mrlc2k_nlcd_map.asp
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
maps that provide additional information on political units, hydrologic units, census county
subdivisions, and federal and state land ownership are included. LULC includes 21 possible
categories of cover type within the following Anderson Level I codes:
• Urban or Built-up
• Agricultural
• Rangeland
• Forest
• Water
• Wetland
• Barren
• Tundra
• Perennial Snow or Ice
LULC data are available for the conterminous United States and Hawaii, but coverage
is not complete for all areas. The data are based on 1:100,000- and l:250,000-scale USGS
topographic quadrangles. The spatial resolution for all LULC files depends on the format
and feature type—GIRAS (Geographic Information Retrieval and Analysis System) or CTG
(Composite Theme Grid). Files in GIRAS format have a minimum polygon area of 10 acres
with a minimum width of 660 feet (200 meters) for man-made features. Non-urban or natural
features have a minimum polygon area of 40 acres (16 hectares) with a minimum width of
1,320 feet (400 meters). Files in CTG format have a resolution of 30 meters.
^> All LULC data are available for free by download at http://edc.usgs.gov/geodata.
State and County Land Use Databases
In addition to national coverages, several states and counties have statewide or local land
use and land cover information available. Specialized local land use or land cover sets might
include land parcel or land ownership, impervious surfaces, wetland or forest coverage, sewer
areas, land use zoning, or future land use projections. For example, King County, Washington's
GIS Center ( N> www.metrokc.gov/gis) has an online database of available GIS data for the area,
including 2001 Landsat land cover. Regional examples of land use datasets include land use
data for southern California counties available from the San Diego Association of Governments
(v www.sandag.cog.ca.us) and Southern California Association of Governments
(^> www.scag.ca.gov/index.htm). The Internet is an excellent tool for locating land use data
available from local and regional agencies.
Many GIS Web sites, including Geography Network ( s> www.geographynetwork.com), have
links to local, state, and federal GIS sources and provide query engines to identify available
GIS data by geographic location or content. In addition, states often have GIS groups as part
of their environmental agencies and provide access to the data on the Internet. *^> Examples
of state GIS Web pages are included in section 5.9.
Survey-Based Data
In addition to GIS coverages and databases of land use distribution, there are several survey-
based inventories of land use information. Two examples are the USDA's National Resources
Inventory (NRI) and the USDA's Census of Agriculture. Be careful when using NRI and
Census of Agriculture data to evaluate land use in your watershed because these inventories
are built on a more gross scale than is typically needed for watershed planning. The NRI is
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Chapter 5: Gather Existing Data and Create an Inventory
based on data collected at thousands of sites across the country to evaluate state, regional,
and national trends in resources. The Census of Agriculture includes county-level data on
agriculture characteristics that might or might not reflect the characteristics of your water-
shed. If these data are evaluated for your watershed, they should be used to gain a general
sense of the sources and conditions, not as hard facts on the watershed.
USDA National Resources Inventory
Survey-based land use data are available from the USDA's NRI (^> www.nrcs.usda.gov/
technical/NRI). The NRI is a statistical survey of information on natural resources on non-
federal land in the United States that captures data on land cover and land use, soil erosion,
prime farmland soils, wetlands, habitat diversity, selected conservation practices, and related
resource attributes. The NRI includes inventories such as highly erodible lands, land capa-
bilities, and land uses.
With data collected during each survey from the same 800,000 sample sites in all 50 states,
Puerto Rico, the U.S. Virgin Islands, and some Pacific Basin locations, the NRI is designed
to assess conditions and long-term trends of soil, water, and related resources. Previously,
data were collected every 5 years, with information available at each sampling point for 1982,
1987,1992, and 1997. Since 2001 the NRI has been updated continually with annual releases
of NRI data. The NRI provides information for addressing agricultural and environmental
issues at the national, regional, and state levels.
NRI data are provided on a county or cataloging unit level. Therefore, at the smaller water-
shed level, they are likely useful mainly for providing "big picture" information on trends in
land use over the years. However, NRI data are useful at the watershed level when evaluating
the erodibility of agricultural land in your watershed. When developing watershed models,
for example, the NRI can be an important source of information on site-specific soil charac-
teristics for agricultural lands (e.g., cropland, pastureland) in your area. It's also important to
note that the NRI data are provided as inventories and are not in GIS format.
USDA Census of Agriculture
Additional survey-based land use data are available from USDA's Census of Agriculture (
^> www.agcensus.usda.gov). Prepared by the USDA's National Agricultural Statistics Ser-
vice, the census includes comprehensive data on agricultural production and operator char-
acteristics for each U.S. state and county, including area of farmland, cropland, and irrigated
land; livestock and poultry numbers; and acres and types of crops harvested.
Unfortunately, Census of Agriculture information is provided at the county level—often a
more gross scale than is useful for watershed planning. Moreover, the Census of Agriculture
information is provided as inventories, not in GIS format, preventing you from isolating data
for only your watershed. You must be careful about using county-level information to evalu-
ate your watershed because farming practices can vary widely across a county.
Specialized Land Use Datasets
In addition to the national datasets discussed previously in this section, there are several spe-
cialized datasets on land use focusing on specific regions (e.g., coastal areas, forested areas) or
on specific types of land uses (e.g., mineral areas).
The following are examples of these types of data, v You can find more examples at the fol-
lowing MRLC Web site: www.epa.gov/mrlc/data.html.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
The NOA A Coastal Services Center is developing a nationally standardized database of land
cover within the coastal regions of the United States as part of the Coastal Change Analysis
Program (C-CAP). C-CAP includes land cover and change data for the nation's coastal zone,
designed to assist coastal resource managers in their decisionmaking processes. These land
cover products inventory coastal intertidal habitats, wetlands, and adjacent uplands with the
goal of monitoring changes in these habitats on a 1- to 5-year cycle. ^> For more information
on the C-CAP and related data, go to www.csc.noaa.gov/crs/lca.
Another type of specialized land use dataset is the BLM's Land and Mineral Use Records.
The Land and Mineral Use Records Web site allows users to search, locate, and map the
BLM's land and mineral use authorizations and mining claims on public lands throughout
the United States. Land and mineral use authorizations include such things as oil and gas
leases, right-of-ways, and mineral leases. ^> To search the Land and Mineral Use Records, go
towww.geocommunicator.gov/GeoComm/landmin/home/index.shtm.
5.5.2 Land Management Practices
Information on how the land is managed in a watershed is helpful to identify both current
control practices and potential targets for future management. This information not only
will support the characterization of the watershed but
also will be important in identifying current watershed
Local Conservation Districts sources, future management efforts, and areas for additional
Conservation districts are local units of government management efforts.
responsible for the soil and water conservation
work within their boundaries. A district's role is to Nonpoint Source Projects
increase voluntary conservation practices among Under Clean Wat£r Act S£Ction 319j stateSj territories, and
farmers, ranchers, and other land users. Depending •, • .. ^ • •, • ^ f
' . , ' ,. . , . H ,a tribes receive grant money to support a wide variety of
on the location of the districts, their programs and ......... . ri
available information vary. For example, districts in activities, including implementation of best management
agricultural areas can provide assistance with erosion Practlces (BMPs)to imProve water ^^ To find out lf
control, agriculture-related water quality projects, and there are any current nonpoint source projects in your water-
nutrient and pesticide management plans. Districts in shed' contact your state environmental department. EPA's
suburban or urban areas might focus on protection of Web site for nonpoint source pollution (^ www.epa.gov/
streams from impacts of urban activities and erosion nps) provides a variety of links, including section 319 infor-
control for construction activities. mation, publication and information resources, background
on the state-EPA nonpoint source partnership, and outreach
Local conservation districts can be a good source of information. ^ A list of state nonpoint source coordinators
information on potential watershed sources, as well ..... , , ,„_. ., , , ,
, , ,• v • 4 u j tL. T is available at www.epa.gov/owow/nps/319hlunds.html.
as restoration activities in your watershed, v To see
if your conservation district is online, visit
www.nrcs.usda.gov/partners/districts.html or the Local Ordinances
National Association of Conservation Districts, Local ordinances that establish construction-phase ero-
www.nacdnet.org/about/districts/websites. sion and sediment control requirements, river corridors and
wetland buffers, and other watershed protection provisions
are often included as part of a watershed plan implementation
strategy. Check to see what current ordinances are in place for your community through the
planning or environmental department. For example, your locality might have a local wetland
protection ordinance that protects wetlands by restricting or requiring a special permit for
certain activities, such as dredging, filling, clearing, and paving, within wetland boundaries or
buffers. CWP provides model ordinance language for wetland protection in Adapting Watershed
Tools to Protect Wetlands: Wetlands & Watersheds Article #3 (^> www.cwp.org/wetlands/articles/
WetlandsArticle3.pdf). ^ Also go to CWP's Stormwater Manager's Resource Center, which
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Chapter 5: Gather Existing Data and Create an Inventory
provides examples of real-world and model ordinances (www.stormwatercenter.net/
intro_ordinances.htm) that can be used to guide future growth while safeguarding local
natural resources. The intent is to provide language and ideas that communities and storm-
water managers can incorporate when writing an ordinance for their local area. The Web site
includes a sampling of ordinances from across the nation and can help watershed managers
understand what ordinances might exist in their watershed. ^> Other references for model
ordinances are provided in appendix A.
Land and Water Conservation Measures
There are several ways that land can be conserved for water quality protection, habitat con-
servation, or water supply protection. For example, Purchase of Development Rights (PDR)
is a voluntary land protection tool that pays landowners to protect their land from develop-
ment. Through PDR a government agency, or private nonprofit organization, buys devel-
opment rights (also known as a conservation easement) from landowners in exchange for
limiting development on the land in the future. Transfer of Development Rights (TDRs) is
a land use management technique that can support local comprehensive planning goals and
facilitate watershed-based zoning proposals by transferring development potential from sen-
sitive subwatersheds to subwatersheds designated for growth. The principle of TDRs puts to
creative use the premise that ownership of land entails certain property rights and therefore
individual rights can be bought and sold to accomplish various community planning objec-
tives. TDRs allow developers to purchase the rights to an undeveloped piece of property in
exchange for the right to increase the number of dwelling units on another site. The practice
is often used to concentrate development density in certain land areas.
Under the USDA NRCS's Conservation Reserve Program, farmers convert highly erod-
ible cropland or other environmentally sensitive acreage to vegetative cover, such as native
grasses, wildlife plantings, trees, filter strips, or riparian buffers. Farmers receive an annual
rental payment for the term of the multi-year contract. In addition, designation of conserva-
tion preserves and hydrologic reserves, as well as conservation tax credits (income tax deduc-
tion for conservation easements) are other tools that can be used to protect sensitive lands.
Hydrologic reserves are undeveloped areas that are maintained to protect natural hydrology
and provide habitat during drought periods.
Master Plans
Economic development plans for counties or multi-county regions often have significant
impacts on water resources. The designation of future development areas, greenways, sewer
service districts, and drinking water sources should address how water resources will be
protected through watershed planning/management, antidegradation policy implementation,
and other measures. Integrating watershed planning with economic development master
planning builds efficiencies and effectiveness in both processes and ensures compatibility
among activities that might have competing objectives. In addition, master planning studies
might provide information on future land uses and growth projections. Contact your local
government planning department to find out if your community has a master plan.
Stormzvater Pollution Prevention Plans
Federal regulations require many industrial facilities and most construction sites disturb-
ing more than 1 acre of land to obtain a stormwater permit. Each covered industrial facility
or construction site is required to develop and implement a stormwater pollution prevention
plan (SWPPP) that describes the activities that will be conducted to prevent stormwater
pollution. If you're interested in how a certain industrial facility or construction site plans
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
to control stormwater pollution, you can often obtain a copy of the SWPPP from your state
environmental agency, EPA regional office, or local municipality. ^> Additional information
is available at www.epa.gov/npdes/stormwater.
BLM Resource Management Plans
The BLM administers 262 million surface acres of America's public lands, primarily in 12
western states, and 700 million acres of mineral estate. The BLM's 162 resource management
plans (RMPs) form the basis for every action and approved use on public lands throughout
the country. The RMPs typically establish guidance, objectives, policies, and management
actions for public lands administered by the BLM and might address a combination of the
following issues:
Air quality
Cultural resources
Grazing and rangeland
Wildlife habitat
Mineral and mining resources
Recreation and off-highway vehicle use
Special management designations
Hazardous materials
Soil and water resources
Vegetation
Lands and realty management
Fisheries management
Oil and gas resources
Visual resource management
Soil and water resources
An RMP in your watershed could provide information on potential sources, as well as gen-
eral background information on watershed activities and conditions.
^> The BLM's national planning Web site (Planning, Assessment, and Community Support
Group) allows you to search for BLM management plans by state. Go to www.blm.gov/
planning/plans.html.
... ^..-
k>w^
C^i±
5.5.3 Demographics
Demographic data include information on the people in
the watershed, such as the number of persons or families,
commuting patterns, household structure, age, gender, race,
economic conditions, employment, and educational infor-
mation. This information can be used to help design public
outreach strategies, identify specific subpopulations to
target during the implementation phase, or help determine
future trends and needs of the populations.
Local governments usually collect demographic informa-
tion on their communities through the planning or eco-
nomic departments. The primary database for demographic,
social, and economic data is the U.S. Census Bureau (
*^> www.census.gov/popest). Within the database you can
search county population estimates.
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Chapter 5: Gather Existing Data and Create an Inventory
Population Statistics
Population can provide insight into the distribution of pollutant sources in a watershed and
into future growth patterns. In developing areas, it's important to consider future growth
when evaluating sources of impairment and identifying potential management options. GIS
data for mapping human population are provided by the U.S. Census Bureau through the
TIGER (Topologically Integrated Geographic Encoding and Referencing) program. ^ Go
to www.esri.com/data/download/census2000_tigerline/index.html. TIGER data consist of
man-made features (such as roads and railroads) and political boundaries. Population data
from the 2000 Census can be linked to the TIGER data to map population numbers and
density for small areas (census blocks) and large areas like counties and states. Information
from the 1990 Census includes data on household wastewater disposal methods (e.g., sewer,
septic systems, other), but similar information was not collected as part of the 2000 Census.
Cultural data are also available through many of the states' GIS Web sites.
Land Ownership
Many watersheds contain land owned by a variety of parties, including private citizens and
federal, state, and county government agencies. Although information on land ownership
in a watershed might not help to characterize the physical nature of the area, it can provide
insight into sources of information for characterizing the watershed or identifying pollutant
sources. It can also be very useful in identifying implementation opportunities. For example,
federal parks can cover large expanses of land, comprising large portions of the watershed,
and the managing agency (e.g., National Park Service, USDA Forest Service) can be a valu-
able source of information on watershed and waterbody characteristics and potential sources
(e.g., wildlife populations). State and federal agencies owning and managing land in the water-
shed should also be contacted to identify any previous studies conducted in the watershed
that might support watershed or instream characterization. Keep in mind that local county or
city agencies often maintain parcel maps as GIS coverages.
GIS coverages of managed lands in the country are available through EPA's BASINS model-
ing system. ^> To download data for your cataloging unit, go to www.epa.gov/waterscience/
basins/bSwebdwn.htm. Many states and counties also have coverages of land ownership by
parcel or census block.
5.6 Waterbody and Watershed Conditions
Several sources can provide helpful information on the current condition of the waterbodies in
your watershed, including whether they meet water quality standards and support designated
uses. This section discusses where to find water quality standards for your waterbody, how to
identify impaired waters and use support in your watershed, and how to find any TMDLs that
have already been completed in your watershed. This information provides a general over-
view of the health of the waterbodies in your watershed and what uses should be supported.
5.6.1 Water Quality Standards
You'll need to obtain the current water quality standards for the waterbodies in your
watershed to understand for what uses the waterbodies should be protected and to compare
instream monitoring data with standards to evaluate impairment. You should also document
the designated uses for the waterbodies and any relevant criteria for evaluating waterbody
conditions. ^C> This information can be obtained from EPA's Web site at
www.epa.gov/wqsdatabase. ^> Tribal water quality standards can be found at
http://epa.gov/waterscience/tribes.
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5.6.2 Water Quality Reports
State water quality reports produced to meet federal requirements provide data on the status
of waterbodies, designated uses, known impairments, and potential sources of the stressors.
Local municipalities or counties may also produce individual reports on the status of water
quality in their jurisdictions.
Biannual 305(6) State Water Quality Report
Under section 305(b) of the Clean Water Act, states are required to prepare a report describing
the status of their water quality every 2 years. EPA compiles the data from the state reports,
summarizes them, and transmits the summaries to Congress along with an analysis of the
nationwide status of water quality. The 305(b) reports evaluate whether U.S. waters meet water
quality standards, what progress has been made in maintaining and restoring water quality,
and the extent of remaining problems. Check your state's report to see if your watershed has
been monitored or assessed. If so, you should find information like the following:
• Status of use support with descriptions of significant water quality impairments
• Identification of problem parameters for impaired waters, along with potential sources
of the stressors
• Priority for TMDL development
^> Go to www.epa.gov/OWOW/305b for information on your state's 305(b) report.
303(d) List of Impaired Waters
Under section 303(d) of the 1972 Clean Water Act, states, territories, and authorized tribes
are required to develop lists of impaired waters. Impaired waters are those which do not meet
water quality standards, even after point sources of pollution have installed the minimum
required levels of pollution control technology. The law requires that these jurisdictions
establish priority rankings for waters on the lists and develop TMDLs for these waters.
Reviewing your state's 303(d) lists will help you identify any impaired waterbodies in your
watershed. If there are impairments that have not been addressed through TMDLs, you
might want to consider coordinating with your state's TMDL program to develop TMDLs
concurrently with your watershed plan. The 303(d) list may identify the schedule for TMDL
development, highlighting TMDLs already done, currently under way, or scheduled for
coming years. The list may identify potential sources of the impairment and include notes
on why the waterbody was listed—information that can guide your source assessment and
search for information.
Integrating 303(d) and 305(6) Reports
Beginning with the 2002 305(b) and 303(d) reporting cycle, EPA had encouraged states to
prepare a single integrated report that satisfies the reporting requirements of Sections 303(d)
and 305(b). As part of EPA's guidance to states for preparing integrated reports, EPA recom-
mends that states use the following five reporting categories to report on the water quality
status of all waters in their states:
Category 1: All designated uses are supported, no use is threatened;
Category 2: Available data and/or information indicate that some, but not all of the desig-
nated uses are supported;
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Category 3: There is insufficient available data and/or information to make a designated
use support determination;
Category 4: Available data and/or information indicate that at least one designated use is
not being supported or is threatened, but a TMDL is not needed;
Category 5: Available data and/or information indicate that at least one designated use is
not being supported or is threatened, and a TMDL is needed.
In classifying the status of their waters, states may report each waterbody in one or more cat-
egory (the latter, where there is more than one impairment in a waterbody). Waters assigned
to categories 4 and 5 are impaired or threatened; however, waters assigned to Category 5
represent waters on a state's Section 303(d) list. A state's Section 303(d) list is comprised of
waters impaired or threatened by a pollutant, and needing a TMDL. Similar to Category 5,
waters in Category 4 are also impaired or threatened; however, other conditions exist that no
longer require them to be included on a state's Section 303(d) list. These conditions, which
are referred to as subcategories of Category 4 in EPA's Integrated Reporting Guidance, are
described below:
Category 4a: TMDL has been completed;
Category 4b: TMDL is not needed because other required controls are expected to result in
the attainment of an applicable WQS in a reasonable period of time (see Sec-
tion 5.6.3 for additional details);
Category 4c: The non-attainment of any applicable WQS for the waterbody is the result of
pollution and is not caused by a pollutant. Examples of circumstances where an
impaired segment may be placed in Category 4c include waterbodies impaired
solely due to lack of adequate flow or to stream channelization.
^> For additional information on EPA's five recommended reporting categories, go to EPA's
Integrated Reporting Guidance at www.epa.gov/owow/tmdl.
5.6.3 Watershed-Related Reports
In addition to state or local water quality reports, there might be existing watershed-related
studies produced for all or a portion of your watershed under various state, local, or federal
programs. These studies might have a narrower focus than your watershed plan (e.g., source
water, specific pollutant) or be out-of-date, but they can provide information on available
data, potential pollutant sources, and historical water quality and watershed conditions. This
section provides a few examples of current or recent programs that might provide relevant
watershed information. This is not a comprehensive list of the programs or reports that could
be available for a watershed, but it does highlight commonly used plans that can provide
information relevant to watershed planning.
Existing TMDL Reports
If a TMDL has been developed for all or part of your watershed, the supporting documents
can often provide much of the information needed to support watershed plan development,
such as
• Descriptions of the stressors causing water quality impairment
• The extent (length of stream, area of watershed) and magnitude of the impairment
• Sources of impairment and relative contributions for parameters causing impairment
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• Loading targets for watershed and water quality protection
• Overall load allocations for point and nonpoint sources
s> To find a link to your state's TMDL program Web site, go to
www.epa.gov/owow/tmdl/links.html.
In addition, the National TMDL Tracking System (NTTS)
houses the 303(d) lists and tracks TMDL approvals. The NTTS
stores information necessary to track the performance of state
and regional TMDL programs and to ensure that TMDLs are
being calculated at an adequate pace for waters currently listed as
impaired. The database includes numerous Web-based reports.
The NTTS is mapped to the NHD through the EPA WATERS
(Watershed Assessment, Tracking & Environmental Result)
system. ^> Data files and GIS shapefiles with information on
segments listed for one or more pollutants and listed waters for
which TMDL loading reduction targets have been established are
available for download at www.epa.gov/waters/data/prog.html.
Category 4b Rationales
Similar to a TMDL, a state's rationale for assigning an impaired
water to Category 4b of the integrated report can also provide
much of the information needed to support watershed manage-
ment plans. Specifically, EPA's Integrated Reporting Guidance
recommends that states include the following information in their
rationales for assigning an impaired water to Category 4b:
• Identification of segment and statement of problem causing
the impairment;
• Description of pollution controls and how they will achieve WQS;
• An estimate or projection of the time when WQS will be met;
• Schedule for implementing pollution controls;
• Monitoring plan to track effectiveness of pollution controls; and
• Commitment to revise pollution controls, as necessary.
In return, watershed-based management plans may also provide much of the information
needed to support assigning an impaired waterbody to Category 4b.
^> For additional information on Category 4b, go to EPA's Integrated Reporting guidance
for the 2006 and 2008 reporting cycles at www.epa.gov/owow/tmdl.
Source Water Assessments
The Safe Drinking Water Act (SDWA) Amendments of 1996 require states to develop and
implement Source Water Assessment Programs (SWAPs) to analyze existing and poten-
tial threats to the quality of the public drinking water throughout the state. Every state is
moving forward to implement assessments of its public water systems through the SWAPs.
Assessments were required to be completed by 2003 for every public water system—from
major metropolitan areas to the smallest towns, including schools, restaurants, and other
public facilities that have wells or surface water supplies. (Assessments are not conducted for
TMDLs Are a Starting Point
Do not limit your watershed planning effort
strictly to the information provided in the TMDL.
You'll need to review the TMDL and determine
the following:
Pollutants and Sources. TMDLs are
developed specifically to address the pollutants
included on the state's 303(d) list. The
watershed planning effort should consider all
pollutants causing problems in the watershed.
Availability of Information. Since the TMDL
was completed, has more information that would
change or refine the source assessment become
available?
Scale/Resolution. What was the scale of the
TMDL source assessment? Does it fit the needs
of the watershed plan? Generally, the resolution
of your watershed plan will need to provide more
detail for developing and implementing specific
control strategies.
Resources Available. Was the TMDL
completed with limited resources? Are there
sufficient resources to refine the original source
assessment?
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drinking water systems that have fewer than 15 service connections or that regularly serve
fewer than 25 people because these are not considered public water systems.)
The SWAPs created by states differ because they are tailored to each state's water resources
and drinking water priorities. However, each assessment must include four major elements:
• Delineating (or mapping) the source water assessment area
• Conducting an inventory of potential sources of contamination in the delineated area
• Determining the susceptibility of the water supply to those contamination sources
• Releasing the results of the determinations to the public
The assessments are available through the local utility in its annual consumer confidence
reports. Many local water utilities provide this information online, and it can be found by
searching the Internet. ^ Go to EPA's Local Drinking Water Information Web page,
www.epa.gov/safewater/dwinfo/index.html, to find links to many online water quality
reports and specific information about local drinking water supplies, including information
about the state's drinking water program and source water protection program. ^ Go to
www.epa.gov/safewater/dwinfo/index.html to find links to regional and state contacts for
source water protection. ^ Additional information about SWAPs is available at
http://cfpub.epa.gov/safewater/sourcewater/sourcewater.cfm?action=Assessments.
Watershed Restoration Action Strategies
In 1998 EPA and USDA released the Clean Water Action Plan (USEPA and USDA 1998) as
a means toward fulfilling the original goal of the Clean Water Act—fishable and swimmable
waters for all Americans. A key component of the plan was the development of Watershed
Restoration Action Strategies (WRASs) to comprehensively address watershed restora-
tion, including a balance between discharge control for specific chemicals and prevention
of broader, water-related problems such as wetland loss and habitat degradation. The plan
proposed that states and tribes develop WRASs for those watersheds identified as having the
greatest need for restoration.
The development and implementation of WRASs were a focus of EPA guidelines for award-
ing section 319 funds in Fiscal Years 1999 through 2001. Consequently, many states devel-
oped WRASs for priority watersheds, and some might continue to do so. If a WRAS has
been completed for your watershed, it can be an important source of information about water
quality conditions, available data, land uses and activities, threats to water quality, restora-
tion priorities, key stakeholders, and sources of funding. ^ Browse your state environmental
agency's Web site to see if a WRAS is available for your watershed.
5.7 Pollutant Sources
Pollutants can be delivered to waterbodies from various point and nonpoint sources. Identi-
fying and characterizing sources are critical to the successful development and implementa-
tion of a watershed plan and the control of pollutant loading to a stream. Characterizing and
quantifying watershed pollutant sources can provide information on the relative magnitude
and influence of each source and its impact on instream water quality conditions. Watershed-
specific sources are typically identified and characterized through a combination of genera-
tion, collection, and evaluation of GIS data, instream data, and local information. However,
some common types of pollutant sources might be contributing to watershed problems, and
this section discusses information available to characterize them.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
mu , c u- . . imnroo 5.7.1 POlltf SOUfCGS
Who Is Subject to NPDES?
^ To find out more about NPDES The discharie of pollutants from point sources, such as pipes, outfalls, and
and what discharges are conveyance channels is generally regulated through National Pollutant
subject to NPDES permitting Discharge Elimination System (NPDES) permits. Check with state agencies
reguirements, go to EPA's f°r tne most recent and accurate point source discharge information. Be sure
NPDES Web page at to verify actual monitored discharges and future discharge projections or
http://cfpub.epa.gov/npdes/ capacity because often not all of the water quality parameters that you might
index.cfm. be interested in are monitored.
Permits
Existing dischargers that discharge into waterbodies from specific point sources should be
identified. These include wastewater treatment plants, industrial facilities, and concentrated
animal feeding operations. Generally point sources that discharge pollutants into waterbod-
ies are required to have a permit under the NPDES program. Information on major facilities
is stored in EPA's Permit Compliance System (PCS). PCS is an online database of informa-
tion regarding permitted point sources throughout the United States (^> www.epa.gov/
enviro/html/pcs/index.html). Data from major NPDES permits is included in PCS; PCS
also includes information from certain minor NPDES permits as well. Included in the
database is information about facility location, type of facility, receiving stream, design flow,
and effluent pollutant limits. PCS also contains Discharge Monitoring Report data on efflu-
ent monitoring and recorded violations. Data are continuously added to the database so that
the most recent point sources can be tracked. Geographic information is included with each
point source so that data can be plotted and analyzed in a GIS.
Wastewater Permits
Many communities have a wastewater treatment plant that uses a series of processes to
remove pollutants from water that has been used in homes, small businesses, industries,
and other facilities before discharging it to a receiving waterbody. Generally facilities that
discharge wastewater into waterbodies are required to have a permit under the NPDES
program. ^ Information about wastewater treatment facilities is available in EPA's "Enviro-
facts" data system for water (http://oaspub.epa.gov/enviro/ef_home2.water). Search for facili-
ties in your area by entering your ZIP Code, city, or county. Envirofacts will display a list of
permitted facilities in your area, including each facility's name, permit number, location, and
discharge information.
Stormwater Permits
Federal regulations require certain municipalities, generally those in urban areas with
separate Stormwater sewer systems, to obtain municipal Stormwater permits. These permits
require each municipality to develop a Stormwater management plan that describes how the
municipality will prevent Stormwater pollution. Copies of the permits are available from
your state environmental agency or EPA regional office. The Stormwater management plans
written to comply with the requirements in the permit typically include activities to educate
the public about Stormwater impacts, control Stormwater runoff from new developments and
construction sites, control Stormwater runoff from municipal operations, and identify and
eliminate illicit discharges. Contact your local municipality's environmental agency or public
works department to find out whether it addresses Stormwater runoff. You should also be able
to obtain a copy of the municipality's current Stormwater management plan to see what activ-
ities are planned. ^> Additional information is available at www.epa.gov/npdes/stormwater.
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5.7.2 Nonpoint Sources
Nonpoint source pollution, unlike pollution from industrial facilities and treatment plants,
typically comes from many diffuse sources, not specific pipes or conveyances. Nonpoint
source pollution is caused by rainfall or snowmelt moving over and through the ground,
carrying natural and man-made pollutants and finally depositing them into surface waters.
Surface water runoff represents a major nonpoint source in both urban and rural areas.
Runoff from urban watersheds can deliver a variety of pollut-
ants from roadways and grassed areas, and rural stormwater
runoff can transport significant pollutant loads from crop- Local USDA Extension Offices
land, pastures, and livestock operations. Natural background Extension offices are a va,uab|e source of information
sources like wildlife or geology (e.g., soils high in iron) can on |oca| agricultural practices and can provide infer-
also contribute loadings and might be particularly important mation on types and distribution of livestock, crops,
in forested or less-developed areas of the watershed. Addi- and management practices. The national Cooperative
tional nonpoint sources include on-site wastewater systems Extension System works in six major areas:
(septic tanks, cesspools) that are poorly installed, faulty, . 4-H youth development
improperly located, or in close proximity to a stream and . Agriculture
illicit discharges of residential and industrial wastes. This . |_ea[jershjp development
section discusses some common nonpoint sources character- t Natural resources
ized in watershed plans. r .,
• Family and consumer sciences
Livestock Sources ' Community and economic development
In watersheds with extensive agricultural operations, live- Although the number of local extension offices has
stock can be a significant source of nutrients and bacteria and declined over the Vears and some countVoffices
can increase erosion. If available, site-specific information on have consolidated into re9ional extension centers>
livestock population, distribution, and management should "atmnwide^ ^ eXtenSi°n °ffiCeS ^^
be used to characterize the potential effects from livestock
activities. Local USDA officials are typically the best source **> To find your local extension office, go to
of livestock information. If local information is not available, www.csrees.usda.gov/Extension/index.html.
you can use the Census of Agriculture to find information
about the number and type of animal units per county.
The census is conducted every 5 years; the most recent census was conducted in 2002. Data
from the census are available online at ^ www.agcensus.usda.gov, and data can be analyzed
at the county level in a GIS. You should consult local USDA officials to determine whether
conditions in the watershed are accurately reflected in the census. You should also obtain local
information on additional agricultural sources, such as land application of manure.
Cropland Sources
Depending on crop type and management, croplands are a potentially significant source of
nutrients, sediment, and pesticides to watershed streams. Cropland can experience increased
erosion, delivering sediment loads and attached pollutants to receiving waterbodies. Fertil-
izer and pesticide application to crops increases the availability of these pollutants to be deliv-
ered to waterbodies through surface runoff, erosion (attached to sediment), and ground water.
If cropland is an important source of pollutants in your watershed, it's useful to determine
the distribution of cropland as well as the types of crops grown. Land use coverages for your
watershed can identify the areas of cropland in your watershed. For more information on the
types of crops and their management, contact local extension offices or conservation districts.
The USDA Census of Agriculture can also provide information on crop types and fertilizer
and chemical applications. However, census data are presented at the county level and might
not reflect the cropland characteristics in your watershed, v The USDA's Spatial Analysis
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Research Section has developed a coverage of the distribution of crop types (e.g., soybeans,
corn, potatoes, cotton) called the Cropland Data Layer (www.nass.usda.gov/research/
Cropland/SARSla.htm). Currently, the Cropland Data Layer is available for Arkansas,
Illinois, Indiana, Iowa, Mississippi, Missouri Boot Heel, Nebraska, North Dakota, and
Wisconsin. Some states have data available annually since 1997, and some have only recent
(2003-2004) data available. In addition, NRCS offices in agricultural regions often take
annual aerial photos to track crop usage.
Literature values for pollutant generation by crop type are often used in modeling and other
loading analyses to estimate loads from cropland sources. NRI data also provide information
on cropland characteristics by county and cataloging unit.
Urban Sources
Impervious coverage information is typically used to characterize the density of and poten-
tial loading from urban areas. Impervious coverages are developed from direct photointer-
pretation and delineation or estimated by relating imperviousness to land use and land cover.
Because urban or developed areas have high percentages of impervious area, they typically
experience greater magnitudes of stormwater runoff than do more rural areas. Runoff from
developed areas can wash off and transport pollutants, and urban pollutant loads can be a
significant source when the watershed is predominantly developed, with little or no agricul-
tural area. In addition to the larger areas of impervious surfaces, urban areas typically have
pollutant sources unique to the urban and residential environment (e.g., pet wastes, lawn
fertilizers, pollutants from car maintenance) that are often difficult to identify. These sources
are usually collectively represented by the term stormwater runoff. Literature values of urban
accumulation or stormwater loading rates can be used to characterize the urban land uses in
source analyses and model applications.
Onsite Wastewater Systems
Individual and clustered wastewater systems provide appropriate treatment if they are
designed, installed, operated, and maintained correctly. Malfunctioning systems, however,
can contribute significant nutrient and bacteria loads to receiving waterbodies, particularly
those in close proximity (less than 500 ft). Local agencies can provide estimates of the total
number of septic systems in a specific area or county. For example, the Panhandle Health
District in Idaho has an online searchable database of septic system permits, geographically
identified by Census block. Also, county-level population, demographic, and housing
information, including septic tank use, can be retrieved from the U.S.
Local Knowledge Goes a Long Census Bureau (^ http://quickfacts.census.gov).
Wav
To evaluate septic systems as a source of pollutants, however, you'll
Having a local understanding of your wa- want to know the distribution of malfunctioning systems. In some
tershed and the activities that take place local heahh d tments can ide information on septic
there is critical to accurately identifying , . . r ir N ,
, , , .. ., * systems (e.g., location, frequency, malfunction rates), but in many
and characterizing sources. If you need , , , ' . ., ,, . - ,
help identifying sources, the information watersheds the specific incidence and locations of poorly performing
in this section should guide you in the systems are unknown. Literature values and local or county statisti-
right direction but it's also very important ca^ information can be used to estimate the number of failing septic
to involve local experts that can help you systems in a watershed. ^> For example, the National Small Flows
through the process. Without input from Clearinghouse (NSFC 1993) surveyed approximately 3,500 local and
local agencies (e.g., conservation dis- state public health agencies about the status of onsite systems across
tricts), you might miss important sources the country (NSFC 1993) and provides the number of reported failing
that are unique to your area. septic systems in the United States by county.
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Chapter 5: Gather Existing Data and Create an Inventory
(Go to ^> www.nesc.wvu.edu/nsfc/nsfc_index.htm.) Using the county-specific estimates
from NSFC (1993), the number of failing septic systems in a county can be extrapolated to
the watershed level based on county and watershed land use distribution. The number of mal-
functioning systems can also be estimated by applying an appropriate failure rate, from litera-
ture or from local sanitation personnel, to the total number of septic systems in a watershed.
Silviculture Sources
Silviculture can be a significant source of sediment and other pollutants to a waterbody. The
primary silviculture activities that cause increased pollutant loads are road construction
and use, timber harvesting, site preparation, prescribed burning, and chemical applications.
Without adequate controls, forestry operations can cause instream sediment concentrations
and accumulation to increase because of accelerated erosion. Silviculture activities can also
cause elevated nutrient concentrations as the result of prescribed burns and an increase in
organic matter on the ground or in the water. Organic and inorganic chemical concentra-
tions can increase because of harvesting and fertilizer and pesticide applications. Harvesting
can also lead to instream accumulation of organic debris, which can lead to dissolved oxy-
gen depletion. Other waterbody impacts include increased temperature from the removal of
riparian vegetation and increased streamflow due to increased overland flow, reduced evapo-
transpiration, and runoff channeling.
The BLM administers millions of acres of commercial
forests and woodlands in the western United States. ^t> For
a list of BLM state offices, visit www.blm.gov/nhp/directory/
index.htm. Local BLM personnel can help you identify areas
of silvicultural activity in your watershed.
Wildlife Sources
Although wildlife inputs typically represent natural back-
ground sources of pollutants, they can be an important
source of bacteria or nutrients in forested or less-developed
areas of a watershed. In addition, animals that inhabit area
waters (e.g., waterfowl) represent a direct source to receiv-
ing waters. Although wildlife sources are often uncontrol-
lable, it's important to consider their potential impact on
water quality and their importance relative to other pollutant
sources when characterizing your watershed. State or local
wildlife agencies (e.g., Department of Fish and Game) or rel-
evant federal agencies (e.g., Forest Service) can be contacted
for estimates of wildlife populations in your area. ^> Go to
http://offices.fws.gov/statelinks.html for links to state and
territorial fish and wildlife offices.
5.8 Waterbody Monitoring Data
A number of federal, state, local, and private entities monitor waterbodies across the nation.
These data might represent specialized data collected to answer a specific question about water-
body conditions, or the data might be collected regularly as part of a fixed network of long-term
monitoring to assess trends in water quality. Monitoring data, including chemical, physical,
and biological data, are critical to characterizing your watershed. Without such data, it is
difficult to evaluate the condition of the waterbodies in your watershed. The waterbody data
Airborne Deposition of Pollutants
Watersheds downwind from sources of air emissions
containing nitrogen, phosphorus, ammonia, mercury,
or other metals can receive significant loads of these
pollutants under certain conditions. Airborne pollution
can fall to the ground in raindrops, in dust or simply
due to gravity. As the pollution falls, it may end up in
streams, lakes, or estuaries and can affect the water
quality there. For example, studies show that 21% of
the nitrogen pollution entering Chesapeake Bay comes
from the air. In addition, much of the mercury linked
to fish tissue contamination comes from the combus-
tion of fuels and other material containing mercury
compounds, transported downwind and deposited in
distant watersheds. Dealing with these sources will
require long-term actions to identify source areas/
categories and determine appropriate load reduc-
tion management strategies. More information on air
deposition of pollutants—including isopleth maps
showing general areas of high loadings—can be
found at ^ www.epa.gov/owow/airdeposition/and
http://nadp.sws.uiuc.edu/
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Identify the Weakest Link
Just as a chain is only as strong as its weakest link, a watershed characterization is only as good as the data it is based on. It's important to
understand the quality and quantity of your instream monitoring data when using the data for watershed planning and associated decisions.
Common factors that can affect the usefulness of data include the following:
• Data quality: Data quality represents a variety of aspects of the data, including accuracy, precision, and representativeness. For more
information on data quality, go to section 6.2.2.
• Spatial coverage: The number of locations with relevant data can determine the detail of your watershed analysis. Without instream
data collected throughout the watershed, you can't evaluate the spatial differences in water quality conditions or identify areas of greater
impairment.
• Temporal coverage: Without watershed data covering a long time period or a variety of environmental conditions, it's difficult to
understand the typical instream conditions of your waterbody. Because most instream data consist of occasional (e.g., monthly) grab
samples, monitoring data often represent only a snapshot of the waterbody at the moment of sampling.
Often, data are limited and you don't have the luxury of daily samples collected over a 10-year period. If the amount of data is insufficient
to continue with watershed plan development, it might be necessary to initiate additional monitoring (**> see chapter 6). Otherwise, having
limited data should not stop the watershed planning process; the process can continue with an understanding that the data might not fully
represent or characterize waterbody conditions and that future monitoring should be used to update the plan as necessary.
gathered and evaluated for the watershed characterization typically include flow, water quality
(e.g., chemical concentrations), toxicity, and biological data. Other specialized datasets might
also be available for your waterbodies, such as physical stream assessments or ground water
studies, but this section discusses the most common sources of waterbody data available to the
public.
Much of the nation's hydrology, water quality, and biological data resides in national datasets
accessible on the Internet. Many of the databases include several datasets and analysis tools.
The following sections describe the major databases that contain waterbody monitoring data.
5.8.1 Water Quality and Flow Data
This section discusses a variety national databases containing water quality and flow
monitoring data.
STORET
STORET is EPA's database for the storage and retrieval of ground water and surface water
quality data. In addition to holding chemical and physical data, STORET supports a variety
of types of biomonitoring data on fish, benthic macroinvertebrates, and habitats. Currently,
there are two versions of the STORET database. Legacy STORET contains historical data
from the early 1900s through 1998, and new data are no longer input to the Legacy STORET
database. Modernized STORET has data from 1999 to the present. New data are input into
the Modernized STORET database as they become available. ^> STORET data can be down-
loaded online from www.epa.gov/STORET/index.html.
STORET includes data for the following topics:
• Station descriptions
• Non-biological physical and chemical results ("regular results")
• Biological results
• Habitat results
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Chapter 5: Gather Existing Data and Create an Inventory
Data can be queried through several search options, including geographic location, orga-
nization, and station ID. You can also browse STORET data using mapping tools available
through STORET's main page.
National Listing of Fish Advisories
The NLFA database includes information describing state-, tribe-, and federally issued fish
consumption advisories in the United States for the 50 states, the District of Columbia, and
four U.S. territories. The information is provided to EPA by the states, tribes, and territo-
ries. The advisories recommend limiting or avoiding consumption of specific fish species or
limiting or avoiding consumption of fish from specific waterbodies. The NLFA Web site lists
3,089 advisories in 48 states through the end of 2003. The Web site can generate national,
regional, and state maps that summarize advisory information. Also included on the Web site
are the name of each state contact, a phone number, a fax number, and an e-mail address.
v Go to www.epa.gov/waterscience/fish/advisories.
NWISWeb
The National Water Information System Web site (NWISWeb) is the USGS's online database
for surface water and ground water flow and water quality data. The NWISWeb database
provides access to water resources data collected by USGS at approximately 1.5 million sites
in all 50 states, the District of Columbia, and Puerto Rico. Data are organized by several
categories, such as surface water, ground water, real time, and flow. The data can be queried
using information such as station name, location (latitude and longitude), or 8-digit HUG.
^ Data can be downloaded online at http://waterdata.usgs.gov/nwis.
Beach Environmental Assessment, Communication, and Health Program Data
The BEACH Program appropriates funds to states for developing monitoring and notifica-
tion programs that will provide a uniform system for protecting the users of marine waters.
The BEACH Program can provide information on issues and concerns related to bacteria
contamination at recreational beaches, provide monitoring data, and assist with educating
the public regarding the risk of illness associated with increased levels of bacteria in recre-
ational waters. If your watershed borders the coast or the Great Lakes, ^> go to www.epa.gov/
beaches for additional information.
Volunteer Monitoring Program Data
State, tribal, and local volunteer monitoring programs might also be good sources of water
quality data. Many volunteer groups upload their data to STORET. <^> Go to www.epa.gov/
owow/monitoring/volunteer for more information.
WATERS
The WATERS information system uses EPA's standard mapping application to display water
quality information about local waters. WATERS combines information about water quality
goals from EPA's Water Quality Standards Database with information about impaired waters
from EPA's TMDL database. *i> Go to www.epa.gov/waters.
National Sediment Inventory
EPA completed the National Sediment Inventory (NSI) in response to the Water Resources
Development Act of 1992 (WRDA), which directed EPA, in consultation with NOAA and the
U.S. Army Corps of Engineers, to conduct a comprehensive program to assess the quality of
aquatic sediments in the United States. EPA also submits to Congress a report on the findings
of that program. The report identifies areas in the United States where the sediment might
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
be contaminated at potentially harmful levels. The report also assesses changes in sediment
contamination over time for areas in the United States with sufficient data. The first National
Sediment Quality Survey report was released in 1997, and it was updated in 2004. Before
releasing the update, EPA released the National Sediment Quality Survey Database, which
has compiled information from 1980 to 1999 from more than 4.6 million analytical observa-
tions and 50,000 stations throughout the United States. The database contains information on
• Sediment chemistry, a measure of the chemical concentration of sediment-associated
contaminants
• Tissue residue, a measure of chemical contaminants in the tissue of organisms
• Toxicity, a measure of the lethal and sublethal effects of contaminants in
environmental media on various test organisms
^ Go to www.epa.gov/ost/cs/report/2004/index.htm for more information on the NSI
report. ^t> Go to www.epa.gov/waterscience/cs/nsidbase.html to download the associated
sediment quality data.
5.8.2 Biological Data
Aquatic life (e.g., fish, insects, plants) are affected by all the environmental factors to which
they are exposed over time and integrate the cumulative effects of pollution. Therefore, bio-
logical data provide information on disturbances and impacts that water chemistry measure-
ments or toxicity tests might miss. This makes these data essential for determining not only
the biological health but also the overall health of a waterbody.
Although there is no single source of biological data, many of the datasets already mentioned
under the instream monitoring section include biological datasets. To learn more about the
specific biological assessment programs of states and regions, visit ^> EPA's Biological Indi-
cators of Watershed Health Web site at www.epa.gov/bioindicators/index.html. This site
provides links to state program Web sites, contacts, and relevant documents.
Biological community samples (fish, invertebrates, algae) are collected in the nation's
streams and rivers as part of the USGS National Water-Quality Assessment (NAWQA) Pro-
gram's ecological studies (^ http://water.usgs.gov/nawqa). Data for thousands of fish and
invertebrate samples are available for retrieval online, and algal community and instream
habitat data will be released in summer 2005. ^> Go to http://infotrek.er.usgs.gov/traverse/
f?p=136:13:0::NO:::.
5.8.3 Geomorphological Data
Rivers and streams change in direct response to climate and human activities in the water-
shed. Increasing impervious surfaces like pavement, clearing forests and other vegetation,
compacting soils with heavy equipment, and removing bank vegetation typically result in an
adjustment in the pattern, profile, or dimensions of a river or stream. Assessments of river
and stream geomorphology can help determine (1) the prior or "undisturbed" morphology
of the channel; (2) current channel conditions; and (3) how the stream is evolving to accom-
modate changes in flow volumes/timing/duration, channel alteration, and so forth. This
information is also helpful in analyzing the movement of sediment downstream from upland
sources and channel banks.
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Chapter 5: Gather Existing Data and Create an Inventory
Geomorphological studies focus on characterizing the drainage area, stream patterns (single/
multiple channels, sinuosity, meander width), the longitudinal profile (gradient), channel
dimensions (e.g., width/depth ratio relative to bankfull stage cross section, entrenchment), bank
and channel material, riparian vegetation, channel evolution trends, and other features. Because
of the fairly recent development and application of analytical tools to assess and classify rivers
and streams and explore the relationships among variables affecting their physical conditions,
geomorphological data are not available for many river systems. ^ Guidance on conducting
geomorphological assessments is available from the Federal Interagency Stream Corridor Resto-
ration Working Group (www.nrcs.usda.gov/technical/stream_restoration), Wildland Hydrol-
ogy (www.wildlandhydrology.com), and some state water resource and fish/wildlife agencies.
5.9 Selected Tools Used to Gather, Organize, and View
Assessment Information
Although you can use various tools to help visually organize data, two of the most popular
tools are GIS and remote sensing techniques, which help to collect and display land use data.
5.9.1 Geographic Information Systems
A GIS is a tool used to support data analysis by creating watershed maps and displaying a
variety of spatial information that is helpful for characterizing a watershed; gaining insight
into the local environmental, cultural, and political settings; and identifying potential pollut-
ant sources. For example, application of fertilizer on cropland might be a source of nutrients to
watershed streams, and GIS data can help in identifying the locations of cropland throughout
the watershed and the proximity of cropland to affected streams. Using water quality data
analysis in conjunction with GIS evaluations can provide a basis for evaluating water quality
trends throughout the watershed. GIS provides
the flexibility of evaluating data in different ways
and combinations. Users can display only the ^ Check State and Local GIS Data Sources
data useful to their needs and can easily display This section provides severa| examp|es of G,s data sourceS] primari|y
a combination of spatial coverages. In addition, national, but additional state, local, or regional sources might
users can easily create their own watershed cover- exist and should be investigated. Several states maintain online
ages to display specific information (e.g., average databases of GIS data for the state; for example, California Spatial
pollutant concentrations at different waterbody Information Library (http://gis.ca.gov), West Virginia Department of
sites). Environmental Protection Internet Mapping (http://gis.wvdep.org).
f^jC , ,, ,. j j. , ^ See table 5-2 for more information on locating state and local GIS
GIS also allows users to combine and display
spatial data from a variety of sources. A wide
range of sources for accessing and obtaining GIS
data are available. The Internet provides a con-
venient source for much of the GIS data available from federal, state, and local agencies, as
well as GIS organizations and companies. Browsing the Web sites of state and local environ-
mental agencies or contacting the agencies directly can often lead to GIS sites and databases.
Table 5-2 provides a selected list of several online GIS data sources.
A GIS is very useful and allows for easy display and evaluation of a variety of watershed
characteristics (e.g., soils, land use, streams). However, several aspects of GIS and related data
can "trip up" GIS novices. This section discusses several topics that you should keep in mind
when using GIS and gathering and evaluating GIS data.
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Table 5-2. Sources of GIS Data Available on the Internet
CIS Distribution Source Description and Web Site
Federal Agencies and Consortiums
National Geospatial Data Clearinghouse. Sponsored by the Federal Geographic Data Committee (FGDC), the Clearinghouse offers
a collection of more than 250 spatial data servers that can be searched through a single interface based on their descriptions or
metadata. ^ www.fgdc.gov/dataandservices
EPA's BASINS. BASINS is a multipurpose environmental analysis system that integrates a GIS, national watershed data, and
environmental assessment and modeling tools. The BASINS GIS data include more than 35 standard coverages, including physical data
(e.g., waterbodies, elevation, land use, soils), administrative and political data (e.g., jurisdictional boundaries), landmarks and features
(e.g., roads, dams, cities), and other monitoring or environmental information (e.g., gauge sites, monitoring sites, point source facility
locations, mine locations, Superfund sites). "*> www.epa.gov/OST/BASINS/b3webdwn.htm
USGS's Earth Resources Observation Systems (EROS) Data Center. EROS Data Center is a data management, systems development,
and research field center for the USGS National Mapping Division. The EROS Web site contains aerial, topographic, elevation, satellite,
and land cover data and information. ^ http://edc.usgs.gov
U.S. Census Bureau Topologically Integrated Geographic Encoding and Referencing (TIGER) System. The Census Bureau developed
the TIGER system and digital database to support its mapping needs for the Decennial Census and other Bureau programs.
^ www.esri.com/data/download/census2000Jigerline/index.html or www.census.gov/geo/www/tiger
Bureau of Land Management Geospatial Data Clearinghouse. BLM established the GeoSpatial Data Clearinghouse as part of the FGDC
Geospatial Data Clearinghouse Network. BLM data can be searched through the FGDC Web site or the BLM clearinghouse Web site. The
BLM Geospatial Data Clearinghouse contains only geospatial data held by the BLM, and it can be searched by state or by keyword (e.g.,
geology, minerals, vegetation, fire). ^ www.blm.gov/nstc/gis/GISsites.html orwww.or.blm.gov/metaweb
U.S. Department of the Interior, National Atlas of the United States, Map Layers Warehouse. The Atlas is a largely digital update of
a large, bound collection of paper maps that was published in 1970. It provides high-quality, small-scale maps, as well as authoritative
national geospatial and geostatistical datasets. Examples of digital geospatial data are soils, county boundaries, volcanoes, and
watersheds; examples of geostatistical data are crime patterns, population distribution, and incidence of disease.
^ http://nationalatlas.gov/atlasftp.html
Watershed Characterization System. WCS is an ArcView-based program that uses spatial and tabular data collected by EPA, USGS,
USDA-NRCS, the Census Bureau, and NOAA. The tool can quickly characterize land use, soils, and climate for watersheds in the EPA
Region 4 states. ^ www.epa.gov/athens/wwqtsc/html/wcs.html
EnviroMapper for Water. EnviroMapper for Water provides a Web-based mapping connection to a wealth of water data. It can be used
to view and map data such as the designated uses assigned to local waters by state agencies, waters that are impaired and do not
support their assigned uses, beach closures, and location of dischargers. Water quality data include STORET data, National Estuary
Program (NEP) study areas, and locations of nonpoint source projects. ^ www.epa.gov/waters/enviromapper
State Sources
State GIS Clearinghouse Directory. The Directory provides a list of state GIS agencies, groups, and clearinghouses.
^ www.gisuser.com/content/view/2379
GIS Organizations or Companies
ESRI. ESRI is a software, research and development, and consulting company dedicated to GIS. Its software includes Arclnfo, ArcGIS,
and ArcView. ^ www.esri.com/data/download/index.html
Geography Network. This global network of GIS users and providers supports the sharing of geographic information among data
providers, service providers, and users around the world, www.geographynetwork.com, provided through ^ www.esri.com
GIS Data Depot. GIS Data Depot is an online resource for GIS and geospatial data from The GeoCommunity, a GIS online portal and daily
publication for GIS, CAD, mapping, and location-based industry professionals, enthusiasts, and students. ^ http://data.geocomm.com
University of Arkansas Libraries and the Center for Advanced Spatial Technologies (CAST). Starting the Hunt: Guide to Mostly
On-Line and Mostly Free U.S. Geospatial and Attribute Data, written by Stephan Pollard and sponsored by the University of Arkansas
Libraries and CAST, provides a compilation of links to online GIS data, categorized into two broad classifications—State and Local
Aggregations and National Aggregations. ^ www.cast.uark.edu or http://libinfo.uark.edu/GIS/us.asp (direct link to data lists)
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Chapter 5: Gather Existing Data and Create an Inventory
When You Can't Do It Yourself
Although the advent of GIS has made many aspects of watershed planning much easier, using GIS effectively requires
a certain level of knowledge and practical experience. Sometimes it's not feasible for watershed planners to use GIS
extensively, perhaps because they don't have the expertise or the required software. If this is the case, you can use a
variety of online mapping applications to gain an understanding of the watershed and its characteristics and pollut-
ant sources without doing the GIS work yourself. Many state, local, and university GIS programs or offices have online
interactive mapping applications to display or query their GIS data. For example, the California Digital Conservation
Atlas (^ http://gis.ca.gov/ims.epl) is an interactive map with coverages for a wide variety of natural resources-related
information, including waterbodies, watershed boundaries, environmental hazards, available plans, and land use and
cover. Another example is the Pennsylvania Department of Environmental Protection's eMapPA (^ www.emappa.dep.
state.pa.us/emappa/viewer.htm), which is a mapping application that displays state permit information along with
various statewide data layers. The mapping application displays information on general watershed features (e.g., streams,
floodplains, roads) and a variety of permitted facilities (e.g., wastewater treatment plants, landfills, mines). Although you
won't be able to customize the GIS data or add your own coverages (e.g., average nitrate concentrations at monitoring
stations), these types of interactive maps allow you to view and evaluate general watershed GIS data without having to
gather, store, and manipulate them.
Projections
The spatial representation of data in a GIS is
tied to a mapping plane, and all data have an
associated projection. Map projections are
the means of representing a spherical Earth
on a flat mapping plane, and the process of
data projection transforms three-dimen-
sional space into a two-dimensional map.
Different map projections retain or distort
shape, area, distance, and direction.
It is not possible for any one projection to
retain more than one of these features over
a large area of the earth. Because different
projections result in different representations
of the shape, area, distance, and direction
of mapped objects, GIS data for the same
watershed in different projections will not
overlap correctly. As an example, figure
5-3 presents a map of Massachusetts in
three different projections. Although centered around the same latitude and longitude, these
representations obviously do not spatially represent the state in the same way.
Much of the GIS data available through the Internet is provided in decimal degrees—unpro-
jected latitude and longitude. However, GIS data can be projected, and different sources of
GIS data use different projections. As an example, EPA's BASINS and U.S. Census Bureau
TIGER data are provided in decimal degrees, but many state GIS Web sites provide their
GIS data in projections specific to the state (e.g., state plane) or its location in the country
(e.g., Universal Transverse Mercator [UTM] zones). When gathering GIS data from a variety
of sources, it's important to gather information on the different projections as well so that
data can be "re-projected" into a common projection. Projection information is included in
the GIS data's metadata (under "Spatial Reference Information").
Equidistant Conic
I | Albers Equal-Area
I I Lambert Conformal Conic
Figure 5-3. Example Map Projections
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Don't Forget the Metadata
When gathering GIS data, it's very important to obtain
and review the associated metadata. Metadata are
"data about data" and include the information needed
to use the data properly. Metadata represent a set of
characteristics about the data that are normally not
contained within the data itself, such as
• Description of the data (e.g., creator, contact,
distribution information, citation information)
• Information on how and when the data were created
• Spatial reference information (data projection)
• Definitions of the names and data items
Understanding the content and structure of the data is
especially important when compiling and comparing
data from various sources or agencies.
A/ Roads, 1:500,000
/\/ Streams, 1:500,000
Scale
The map scale of GIS data specifies the amount of reduc-
tion between the real world and its graphic representation,
usually expressed as a ratio of the unit of measure on the
map to the same units on the ground (e.g., 1:20,000). Map
scale determines how much area is included on paper maps;
however, because the capabilities of GIS allow you to zoom
in and zoom out to customize your map display, map scale
does not determine the extent of the mapped information
in a GIS. Scale, however, does affect what is included in the
GIS data. The smaller a map's scale (the more ground area
it covers on a paper map), the more generalized the map
features. A road or stream that is sinuous on the ground
might be represented by a fairly straight line in data with a
small scale, and some features might not even be included in
small-scale data. The scale of your GIS data is an important
aspect to keep in mind when combining datasets for evaluat-
ing your watershed. The scale of
your information influences the
spatial detail of your analysis. For
example, if you want to evaluate
road crossings for streams in your
watershed and you use data at a
small scale, the data will likely not
include many of the small roads
and streams. Figure 5-4 pres-
ents maps of streams and roads
obtained from datasets of different
scales. Obviously, the smaller-
scale dataset (1:500,000) has much
coarser detail, while the larger-
scale dataset provides a higher
level of detail.
Figure 5-4. Example of GIS Datasets at Different Scales
Time Frame
It's very important to consider the date of the GIS data you are evaluating, especially when
combining datasets. Because of the time and effort it takes to create GIS data, often there are
not many versions (dates) of the same coverage available and you are limited to what is avail-
able. Sometimes, however, there are different sources of the same kinds of data from differ-
ent periods. For example, USGS has a variety of land use datasets based on satellite images
taken during different time frames. The LULC data are based on images taken during the
1970s and 1980s, while the NLCD data are based on images from the early 1990s and 2000.
It is important to obtain the data that are most representative of the time period you want
to evaluate. If you want to compare land use and water quality data, try to obtain land use
data from the time your monitoring was conducted. For example, compare historical data
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Chapter 5: Gather Existing Data and Create an Inventory
collected in the 1970s with the LULC data and compare more recent monitoring data with
the NLCD data from the 1990s.
If GIS data are significantly out-of-date, it might be necessary to ground-truth them to avoid
undermining your analysis. For example, if the land use data represent watershed land uses
20 years ago, you might under- or overestimate certain types of sources when evaluating
current loading conditions. If you have a small watershed
and land ownership has not changed significantly (parcels
are still comparable to historical land use divisions or aerial The 1™*°**™™ °f T™nin9
photos), you might be able to drive through your watershed Several nuances are associated with displaying,
and note any major land use changes. manipulating, and controlling GIS data. It is
recommended that you have some training before you
Another factor to keep in mind is the date of creation ver- undertake significant GIS evaluations.
sus the date of the original data on which the GIS coverage Tl ....... .. ,„,„,.. ,.,,
, XTT/-T->-mm .j -11 u- The availability and type of GIS training are highly
is based. For example, the NLCD 2001 data are still being specifjc (o y(M |oca(ion ^ needs ^ TQ M m[
developed; therefore, many datasets will be dated 2005 even more about G|S fraining and educationa| resourceSj
though they are based on satellite images from 2001. Be sure visit www.gis.com/education/index.html or
to review the metadata to determine the dates of all of your conduct an Internet search to research training
GIS coverages. opportunities in your area.
Organization, Storage, and Manipulation of Files
GIS data can come in a variety of formats and typically have several associated files needed
to view and understand their content. For example, a standard shapefile includes the files
(the main file [*.shp] and the index file [*.shx]) that control the display of the shapes and the
file (dBASE file [*.dbf]) that contains feature attributes (e.g., area, name) for each shape in the
file. Grid data require even more files to display. When dealing with data in different projec-
tions, it is necessary to "re-project" the data into a common projection, creating even more
data files. In addition, GIS data that cover large areas or include highly detailed information
(e.g., parcel-based land use) can have very large files. Because of the number and size of files,
the organization of GIS files can become cumbersome and require considerable disk space on
your computer. It is often helpful to organize data according to watershed topics (e.g., hydrol-
ogy, land use, soils, stations) or by the source of the data (e.g., TIGER, EPA BASINS).
In addition, GIS data can be manipulated very easily to evaluate certain areas or certain data
types, but doing so can lead to a number of extraneous files, as well as unintended changes
to your original data files. You can delete or add records to GIS data files, but it's important
to remember that when you do this, you are changing the original data files. If you want to
isolate areas (e.g., subwatersheds) or records (e.g., certain monitoring stations), it is necessary
to clip existing coverages to create new coverages.
Several other issues related to organizing, storing, and using GIS files can aggravate the new
user; therefore, it's useful to rely on members of your watershed group that have experience
in using GIS or contacts that can provide guidance to beginners.
5.9.2 Remote Sensing Techniques to Collect Land Use/Land Cover
Information
Remote sensing refers to the collection of data and information about the physical world
by detecting and measuring radiation, particles, and fields associated with objects located
beyond the immediate vicinity of the sensor device(s). For example, photographs collected by
an aircraft flying over an area of interest (e.g., aerial photography) represent a common form
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
of remote sensing information. Satellites that orbit the earth are often used to collect similar
images over larger areas, and these images are another example of remote sensing informa-
tion. Remote sensing information is collected, transmitted, and processed as digital data that
require sophisticated software and analysis tools. s> An excellent and wide-ranging review of
remote sensing can be found at http://rst.gsfc.nasa.gov/Homepage/Homepage.html.
Using Land Use Data to Evaluate and Manage Stormwater
in Anchorage
The Municipality of Anchorage (MOA), Alaska, created a complete land cover
classification to provide the foundation for mapping inland areas according
to their common surface hydrologic and gross pollutant generation potential.
The "Storm Water Runoff" grid was derived in summer 2000 through analysis
of IKONOS satellite imagery and other geographic datasets (especially land
use, streets, drainage, coastland, and wetlands data). The GIS-based dataset
was built to provide information for stormwater management applications.
The land cover data include five major classes—Impervious, Barren
Pervious, Vegetated Pervious, Snow and Ice, and Water. These classes are
further subdivided to reflect changes in perviousness due to different land
development applications. For example, impervious surfaces are classified
as street surface, directly connected impervious, and indirectly connected
impervious, and vegetation classes are classified as landscaped or forested.
Values for hydraulic connectedness (direct or indirect connection) are
attributed to each mapped land parcel independently of the assessment of
the pervious quality.
MOA uses the GIS coverage to support development and application of the
Stormwater Management Model (SWMM) for stormwater management within
the municipality. SWMM, based on MOA's land use coverage, also was
modified and applied in the Chester Creek watershed to develop draft TMDLs
for bacteria in the creek and two watershed lakes.
Remote sensing data products, especially
land cover and elevation, provide funda-
mental geospatial data for watershed char-
acterization. Remote sensing is a powerful
tool for watershed characterization because
the data are digital and therefore you can
use the information analytically, especially
in a GIS system. You can integrate remote
sensing data with other types of data, such
as digital elevation data, the stream network
(e.g., NHD), and so forth. You can then use
GIS to classify landscape and ecological
attributes at detailed levels within a water-
shed. An example is identifying steeply
forested lands and riparian buffers.
This section includes remote sensing prin-
ciples and highlights some of the most readily
available and useful datasets. The highlighted
datasets have undergone extensive quality
control, are low-cost or free, and can be used
in a basic GIS platform, especially ArcView.
Their use in ArcView includes being able to
perform basic analytical functions, such as
calculating land cover distribution statistics in
watersheds, as well as integration with other
data such as Census data.
Types of Remote Sensing
Remotely sensed data can be broadly placed into two basic categories: (1) aerial imagery,
which includes images and data collected from an aircraft and involves placing a sensor
or camera on a fixed-wing or rotary aircraft, and (2) space-based imagery, which includes
images and data collected from space-borne satellites that orbit the earth continuously.
Although air-based and space-based remote sensing involve the same general principles,
there are important technical differences in the acquisition and application of imagery from
these sources.
Aerial Imagery
Aerial images are collected using sensors placed onboard the aircraft. For example, a photo-
graphic sensor can be placed on the underside of an aircraft and used to collect color pho-
tos over an area of interest. In contrast, a much more sophisticated sensor, such as AVIRIS
(Airborne Visible/Infrared Imaging Spectrometer), can be placed onboard an aircraft to
collect hyperspectral data and thereby acquire much more than simple color photographic
images. A simple photographic sensor collects standard color imagery that is composed of
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Chapter 5: Gather Existing Data and Create an Inventory
the red, blue, and green spectral regions of the visible light
spectrum (e.g., what the human eye can detect). In contrast,
AVIRIS collects 224 contiguous spectral channels (bands)
with wavelengths from 400 to 2,500 nanometers, spanning
both the visible and non-visible regions of the light spectra.
^ Go to http://aviris.jpl.nasa.gov for more information
about AVIRIS.
Most sensors used in remote sensing measure the radiance
from the sun that is reflected by the earth's surface. Various
land surface features absorb and reflect this radiance to vary-
ing degrees, which is what enables the recognition of vari-
ous features on the ground. However, some sensors used in
remote sensing emit a source of energy that is reflected from
the surface of the earth or from the object toward which
the energy is directed. Such sensors can be laser-based or
radar-based (e.g., SAR, which is Synthetic Aperture Radar,
detailed here: ^> www.sandia.gov/RADAR/sar.html).
Light Detection and Ranging (LIDAR) uses the same
principle as radar—using electromagnetic waves in the
visible or near-visible spectrum to remotely investigate
properties of a medium—and is used in topographic
mapping. LIDAR technology is not dependent on atmos-
pheric conditions like cloud cover, so it has several
advantages over traditional photogrammetry for topographic
mapping. LIDAR technology offers the opportunity to
collect terrain data of steep slopes and shadowed areas (such
as the Grand Canyon), and inaccessible areas (such as large
mud flats and ocean jetties). These LIDAR applications are
well suited for making digital elevation models (DEMs),
creating topographic maps, and extracting automatic
features. Applications are being established for forestry
assessment of canopy attributes, and research continues
for evaluating crown diameter, canopy closure, and forest
biometrics. ^ Go to www.etl.noaa.gov/et2 for more information.
Hyperspectral vs. Multispectral Remote
Sensing Information Products
Spectral sensors record data related to sunlight in the
visible, near infrared, and shortwave infrared regions
that strikes surfaces on the earth and is reflected back
to the sensor. Multispectral sensors capture a few
relatively broad spectral bands, whereas hyperspectral
sensors capture hundreds of narrow spectral bands.
Multispectral sensors are used on satellite systems
like LANDSAT, and these systems provide the remote
sensing information used to build the National Land
Cover Data (NLCD).
Hyperspectral sensors are still at an experimental
stage for use in orbiting satellites, so that virtually all
the available hyperspectral data come from airborne
sensors. Hyperspectral imagery provides data for a
broad range of electromagnetic wavelengths with finer
spectral resolutions than conventional multispectral
systems. Substantial costs are associated with
hyperspectral systems for collecting the raw imagery,
processing large amounts of data, and ground-truthing
the remote sensing information with conventional
water quality or land cover data. After specific kinds
of hyperspectral information have been regionalized
to particular watershed areas, the costs can be
substantially reduced. Hyperspectral data can be
applied to develop enhanced gridded datasets for
land covers. With suitable regional calibration, both
hyperspectral and multispectral information can help
to provide numeric estimates for such water quality
parameters as chlorophyll a (or other measures of
algal standing crop), turbidity, and nutrient levels for
phosphorus or nitrogen.
Satellite Imagery
Like aircraft-based sensors, satellite sensors have unique operational limitations and char-
acteristics that must be considered before using them as a remote sensing tool. These factors
include the incidence of cloud cover, the frequency at which the satellite passes over a given
spot, the ground resolution desired, and the amount of post-acquisition data processing
required. Several kinds of imagery and data are collected from satellites. For example, com-
mercial satellites like QuickBird, IKONOS, and SPOT typically acquire high-resolution
imagery useful for basic mapping of land surfaces. In contrast, satellites like LANDSAT-5,
LANDSAT-7 (currently off-line due to an irreparable malfunction), TERRA, AQUA, and
Earth Observing-1 (EO-1) contain an array of on-board sensors that collect far more than
simple photographic imagery. These spacecraft are designed to collect data for a broad
scientific audience interested in a variety of disciplines—climatology, oceanography, geog-
raphy, and forestry to name a few. Thus, the project objectives must be clearly defined before
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
the acquisition of satellite-based data to ensure that the proper remote sensing data prod-
uct is chosen. Satellite imagery is available from several different land-mapping satellites,
including LANDSAT, IKONOS, and SPOT. However, acquiring new aerial photography
and satellite imagery requires extensive knowledge of image processing, and the data can be
expensive or cost-prohibitive for many projects.
Remote Sensing Datasets
The raw data from the satellite sensors are voluminous, and specialized knowledge and soft-
ware are needed to process the data into meaningful information. The digital signals from the
multiple sensors need to be combined and processed, for instance, to be converted into mean-
ingful land cover classifications. Furthermore, the digital images need to be registered and
projected into a coordinate system, such as a Lambert projection. This makes the use of the
raw data expensive and time-consuming. Fortunately, you can access preprocessed "derived"
products, such as land cover datasets, that are available for free or at low cost, v The USGS
maintains a Web site for "seamless" data products at http://seamless.usgs.gov. You can also
purchase data for less than $100 per item from USGS's Earth Resources Observation and
Science (EROS) data center (^> http://edc.usgs.gov). In addition to the land use datasets
mentioned in section 5.7.1, several other datasets might be useful as part of the watershed
characterization process:
• Landsat data
• Elevation
• Greenness
• "Nighttime Lights"
• Coastal and Great Lakes Shorelines
Landsat Data
The Landsat Orthorectified data collection consists of a global set of high-quality, relatively
cloud-free orthorectified TM and ETM+ imagery from Landsats 4-5 and 7. This dataset was
selected and generated through NASA's Commercial Remote Sensing Program as part of a
cooperative effort between NASA and the commercial remote sensing community to provide
users with access to quality-screened, high-resolution satellite images with global coverage
over the earth's land masses. The data collection was compiled through a NASA contract
with Earth Satellite Corporation (Rockville, Maryland) in association with NASA's Scientific
Data Purchase program.
Specifically, the Landsat Orthorectified data collection consists of approximately 7,461
TM (Landsat 4-5) images and approximately 8,500 ETM+ (Landsat 7) images, which were
selected to provide two full sets of global coverage over an approximate 10-year interval (circa
1990 and circa 2000). All selected images were cloud-free or contained minimal cloud cover.
In addition, only images with a high-quality ranking with respect to the possible presence of
errors such as missing scans or saturated bands were selected.
In addition to the NLCD datasets, the basic Landsat data can be obtained from the USGS
EROS Data Center. Unlike the NLCD, the Landsat spectral data need to be processed before
they can produce meaningful information such as land cover characteristics. The advantages
of using the Landsat data include a wider temporal range, covering the 1990s to essentially
current conditions. In addition, trained users can produce customized classification schemes
that might be more meaningful at the local scale. For instance, BMP analyses might require
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Chapter 5: Gather Existing Data and Create an Inventory
cropping types to be broken down into finer classes than the standard NLCD classes. Land-
sat data combined with local ground-truthing can produce such custom land cover breakouts.
The Landsat Orthorectified datasets have been preprocessed so that the images are cloud-
free, joined images that are georeferenced.
Extra steps are required for using the Landsat data, including special software and training in
interpreting the multispectral images. ^> A good place for users to start is the Purdue Multi-
spec system, which is available for free at http://dynamo.ecn.purdue.edu/~biehl/MultiSpec.
This site also contains links to several training and user guides.
Elevation
The USGS National Elevation Dataset (NED), ^ http://ned.usgs.gov, has been developed
by merging the highest-resolution, best-quality elevation data available across the United
States into a seamless raster format. The NED provides a tool for the precise delineation of
small watershed units, which can then be overlain with other vector or gridded GIS data. For
instance, custom watershed polygons can be delineated using vector data from the NHD.
In addition to the NED, the Elevation Derivatives for National Applications (EDNA) data-
sets can be used for watershed analyses. EDNA is a multilayered database that has been
derived from a version the NED and hydrologically conditioned for improved hydrologic
flow representation.
The seamless EDNA database provides 30-meter-resolution raster and vector data layers,
including
• Aspect
• Contours
• Filled DEM
• Flow accumulation
• Flow direction
• Reach catchment seedpoints
• Reach catchments
• Shaded relief
• Sinks
• Slope
• Synthetic streamlines
^> EDNA data are available at http://edna.usgs.gov.
Greenness Maps
Greenness maps show the health and vigor of the vegetation. Generally, healthy vegetation
is considered an indicator of favorable climatic and environmental conditions, whereas
vegetation in poor condition is indicative of droughts and diminished productivity. You can
use USGS greenness maps to evaluate the vegetation condition of a region. The availability of
current and past greenness data can be quite useful in, for instance, correlating the health of
vegetation in a watershed with ambient monitoring data.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
The greenness maps are representations of the Normalized Difference Vegetation Index
(NDVI). NDVI is computed daily from two spectral channels. The two channels are reflected
sunlight in the red (RED) and near-infrared (NIR) regions of the electromagnetic spectrum.
NDVI, which is the difference between near-infrared and red reflectance divided by the sum
of near-infrared and red reflectance, is computed for each image pixel as follows:
NDVI = (NIR - RED) / (NIR + RED)
^> Greenness maps reflecting current conditions can be obtained for free from the USGS seam-
less data Web site (http://seamless.usgs.gov). In addition, historical greenness data can be
purchased from the EROS data center for $55 per scene. ^ Go to http://edcwww.cr.usgs.gov/
greenness. A scene is quite large, covering about half the country.
"Nighttime Lights"
One problem with the NLCD is difficulties in distinguishing vegetated areas such as sub-
urbs from, for instance, woodlands. The Nighttime Lights of North America map layer is an
image showing lights from cities, towns, industrial sites, gas flares, and temporary events,
such as fires. Most of the detected features are lights from cities and towns. This image can
be quite effective in delineating urban-rural boundaries. ^ The data can be accessed at
http://nationalatlas.gov/mld/nitelti.html.
Remote Sensing Data for Coastal and Great Lakes Shorelines
Coastal area elevation data can be especially challenging because of the low relief. Fortu-
nately, the NOAA Coastal Services Center (CSC) provides additional remote sensing prod-
ucts for coastal and Great Lakes shoreline areas. These data include more detailed elevation
data using LIDAR plus specialized hyperspectral-derived imaging datasets. ^t> The CSC
LIDAR and other datasets can be accessed at www.csc.noaa.gov/crs.
Table 5-3 provides a summary of sample costs for purchasing remote sensing products.
Table 5-3. Sample Costs for Purchasing Remote Sensing Products
Remote Sensing Product
NLCD
NED
Greenness
"Nighttime Lights"
EDNA
LIDAR
Landsat
SPOT
IKONOS
Resolution
30m
30m
1 km
30m
Varies
14.25m to 28.5m
Varies; maximum resolution is 2.5 m
Varies; maximum resolution is 1 m
Cost
Free
Free
Free; $55/scene for historical data
Free
Free
Free for selected coastal and Great
Lakes shorelines
$30/sceneto$60/scene
$1,000 +
Varies
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Chapter 5: Gather Existing Data and Create an Inventory
5.10 Create a Data Inventory
Once you've gathered current datasets and existing studies, you should document the avail-
able relevant data in a data inventory. A comprehensive data inventory provides an ongoing
list of available monitoring and watershed data. The data inventory should be updated dur-
ing the course of the watershed planning effort so that a complete summary is available to
stakeholders.
It is often useful to organize the data inventory by data type, allowing you to document the
different types with information that might not be relevant to all types. The most likely
types of data to be gathered are tabular data (e.g., monitoring data), reports and anecdotal
information, and GIS data. For each of the datasets, you should document the important
characteristics to identify and summarize the data. It is often useful to create the lists in a
spreadsheet, such as Microsoft Excel, or a database, such as
Microsoft Access. Spreadsheets are easy to use, but you can't
search or query the data as you can in a database. Creating Information to Be Summarized in the Data
the data inventory in a spreadsheet, or even in a word pro- Inventory
cessing program (e.g., Microsoft Word), is adequate. How- • Type of data (e.g., monitored, geographic)
ever, if you have a large amount of data and would like to be . g0urce of data (agency)
able to query the data, for example, by keyword or content n ,. , , ,„.,„„, .
, u j . V- . • * Quality of data QA/QC documentation, QAPP
type, you should use a database program for the inventory.
The following paragraphs identify the types of information * Representativeness of data (number of samples)
that should be used to document and organize the gathered • Spatial coverage (location of data collection)
data. These lists provide guidelines to help you create your . Temporal coverage (period of record)
data inventory, but you can also tailor your data inventory t r, .
according to your needs and the types of data and informa-
tion you gather. You should also document data not used in
the analysis and justify their exclusion.
For all the tabular datasets, you should create a list documenting the following information:
• Type (e.g., water quality, flow)
• Source/agency
• Number of stations
• Start date
• End date
• Number of samples/observations
• Parameters
• Frequency
• Known quality assurance issues related to the data
• Special comments (e.g., part of special study, ground water vs. surface water)
Once you begin to analyze your monitoring/tabular data (chapter 7), you'll identify more
details about each dataset, including the type and amount of data at each station. For the
data inventory, it's appropriate to document the general types and coverage of the datasets to
provide an evolving list of the monitoring datasets available, where they came from, and what
they include.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
For all the reports and anecdotal information gathered for the watershed, you should include
the following information in the data inventory:
• Document title
• Date
• Source/Author
• Description
• Web site (if available)
For the GIS data gathered, you should document the following information:
• Type (e.g., land use, soils, station locations)
• Source/agency
• Date (date or original data on which the coverage is based)
• Scale (e.g., 1:24,000)
• Projection (e.g., UTM, state plane)
• Description
Figure 5-5 provides an example of the fields in a data inventory.
gdil Vtc- ln<«H F,2iTO.*t Tool* Qat* Win*.3«
A.
C D E r
- t),-.T,
6 ___
%?r-
for—
-te
BLtlH- 'Ul"J)tCl«l
Figure 5-5. Example Fields in a Data Inventory
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Chapter 5: Gather Existing Data and Create an Inventory
For all the data types, it's also useful to document the physical location of the files. For
example, if the dataset is electronic, provide the name of the file and the file path or location
on your computer or network. Another option is to provide a numbering system for the filing
cabinets or location of the hard copy reports you gather.
The data inventory will also be used to help identify any relevant gaps, especially those
that could hinder data analysis. The data inventory can be used to identify obvious, broad
gaps, such as a lack of water quality or flow data for the watershed. The identification of data
gaps is an iterative process, however, and more snecific data needs will be identified during
the next phase of the characterization process (^> chapter 6). For example, a long period of
record of water quality monitoring data might indicate sufficient water quality data for analy-
sis of the waterbody. When you begin data analysis, however, it might become apparent that
the data are not adequate for evaluating seasonal trends or other relationships and patterns.
The characterization process involves many steps. Once you've created the data inventory,
you'll move on to the next phase in characterization: identify gaps and collect new data. As
you review the data, however, you might realize that you need to gather additional existing
information. You'll have to go back, add additional information to your data inventory, and
then proceed forward.
• ID sources-that ne«l
•to bt
oads
flo
mass bo\dntti
temporal
., IDE NT Iff GAPS
'COLLECT NEW DATA
Collect existing repor-ts, date se-ts
stakeholder information
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Handbook Road Map
1 Introduction
2 Overview of Watershed Planning Process
3 Build Partnerships
4 Define Scope of Watershed Planning Effort
5 Gather Existing Data and Create an Inventory
•• 6 Identify Data Gaps and Collect Additional Data If Needed
7 Analyze Data to Characterize the Watershed and Pollutant Sources
8 Estimate Pollutant Loads
9 Set Goals and Identify Load Reductions
10 Identify Possible Management Strategies
11 Evaluate Options and Select Final Management Strategies
12 Design Implementation Program and Assemble Watershed Plan
13 Implement Watershed Plan and Measure Progress
Data Gaps and Collect
Additional Data If Needed
Conducting a data review
Identifying data gaps
Determining acceptability of data
Designing a sampling plan
Collecting new data
Read this chapter if...
• You want to determine whether you have enough data to start
your analysis
• You'd like to review your data
• You want to determine whether you need to collect new data
• You want to design a sampling plan for collecting additional data
• You need to collect new data
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
6.1 How Do I Know If I Have Enough Data to Start My Analysis?
0
One of the most difficult challenges in watershed planning is know-
ing when you have enough data to identify relationships between
impairments and their sources and causes. There will always be
more data to collect, but you need to keep the process moving
forward and determine whether you can reasonably char-
acterize watershed conditions with the data you have.
Once you've gathered all the necessary data related
to the watershed goals identified by the stakeholders,
you must examine the data to determine whether you
can link the impairments seen in the watershed to the
causes and sources of pollutants. Although you will de-
velop a monitoring component as part of your watershed
implementation plan (^ chapter 12), it's often necessary
to collect additional data during the planning phase to
complete the characterization step. The additional data will
help you to develop management measures linked to the sources
and causes of pollutants.
6.2 Conduct a Data Review
The first step is to review the data you've gathered and ask the following questions:
• Do I have the right types of data to identify causes and sources?
• What is the quality of the data?
The answers to these questions will tell you whether you need to collect additional data
before proceeding with data analysis. For example, you might have gathered existing moni-
toring information that indicates the recreational uses of a lake are impaired by excessive
growth of lake weeds due to high phosphorus levels. The permit monitoring data might
show that wastewater treatment plants are in compliance with their permit limits, leading to
speculation that nonpoint source controls are needed. This kind of information, although ad-
equate to define the broad parameters of a watershed plan, will probably not be sufficient to
guide the selection and design of management measures (USEPA 1997a, 1997d) to be imple-
mented to control the as-yet-unidentified nonpoint sources. Therefore, further refinements in
problem definition, including more specific identification and characterization of causes and
sources, will be needed and can be obtained only by collecting new data.
You'll review the data to identify any major gaps and then determine the quality of the data.
©Be careful to first determine whether the data are essential to the understanding of the
problem. For example, although it might become obvious during the inventory process that
chemical data are lacking, this lack should be considered a gap only if chemical data are es-
sential to identifying the possible sources of the impacts and impairments of concern. If the
necessary datasets are available, you should then compare the quality of the information with
the data quality indicators and performance characteristics. If the data quality is unknown or
unacceptable (that is, it doesn't meet the needs of the stakeholders for watershed assessment),
you should not use the existing dataset. Using data of unknown quality will degrade the
defensibility of management decisions for the watershed and could, in the long run, increase
costs because of the increased likelihood of making incorrect decisions.
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Chapter 6: Identify Data Gaps and Collect Additional Data If Needed
Remember that collecting existing and new data, identifying data gaps, and analyzing data
are parts of an iterative process. Although obvious data gaps can be identified during the data
inventory process, more specific data needs are often discovered only during data analysis
and subsequent activities, such as source assessment or modeling.
6.2.1 Identify Data Gaps
Several different types of data gaps might require that you collect additional information.
What constitutes a gap is often determined by the information needed to adequately identify
and characterize causes and sources of pollutants in the watershed. There are three major
types of data gaps—informational, temporal, and spatial.
Informational Data Gaps
First, you need to determine whether your data include the types of information needed.
For example, if one of the goals stakeholders identified was to restore the aquatic resources
of a waterbody and you have only flow and water quality data, you should conduct biological
assessments to get baseline information on the biology of the waterbody and obtain habitat
data. Information gaps can also result if there are no data addressing the indicators identi-
fied by stakeholders to assess current watershed conditions. For example, stakeholders might
want to use the amount of trash observed in a stream as an indicator of stream health. If you
don't have any baseline data on trash, you should collect data to assess the amount of trash
in the stream (e.g., volume of trash per mile). Without baseline data, you'll have little against
which to measure progress. A common data gap is a lack of flow data that specifically corre-
spond to the times and locations of water quality monitoring.
Temporal Data Gaps
Temporal data gaps occur when there are existing data for your area(s) of interest but the data
were not collected within, or specific to, the time frame required for your analysis. Available
data might have been collected long ago, when watershed conditions were very different, re-
ducing the data's relevance to your current situation. The data might not have been collected
in the season or under the hydrologic conditions of interest, such as during spring snowmelt
or immediately after crop harvest. In addition, there might be only a few data points avail-
able, and they might not be indicative of stream conditions.
Spatial Data Gaps
Spatial data gaps occur when the existing data were collected within the time frames of inter-
est but not at the location or spatial distribution required to conduct your analyses. These
types of data gaps can occur at various geographic scales. At the individual stream level,
spatial data gaps can affect many types of analyses. Samples collected where a tributary joins
the main stem of a river might point to that tributary subwatershed as a source of a pollutant
load, but not specifically enough to establish a source. Measuring the effectiveness of restora-
tion efforts can be difficult if data are not available from locations that enable upstream and
downstream comparisons of the restoration activities.
Data collected at the watershed scale are often used to describe interactions among land-
scape characteristics, stream physical conditions (e.g., habitat quality, water chemistry), and
biological assemblages. The reliability of these analyses can be affected by several types
of spatial data gaps. Poor spatial coverage across a study region can hinder descriptions of
simple relationships between environmental variables, and it can eliminate the potential
for describing multivariate relationships among abiotic and biotic parameters. In addition,
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Example Performance Criteria for
Determining Acceptability of Data
Accuracy: The measure of how close a result is to the
true value
Precision: The level of agreement among multiple
measurements of the same characteristic
Representativeness: The degree to which the data
collected accurately represent the population of
interest.
Bias: The difference between an observed value
and the "true" value (or known concentration) of the
parameter being measured
Comparability: The similarity of data from different
sources included within individual or multiple datasets;
the similarity of analytical methods and data from
related projects across areas of concern.
Detection Limit: The lowest concentration of an
analyte that an analytical procedure can reliably detect.
underrepresentation of specific areas within a study region
can affect the reliability and robustness of analyses. For
instance, in a landscape that is composed of a wide range of
land uses and has large variations in topography, preferential
sampling in easily accessible areas can bias the dataset and
subsequent analyses.
6.2.2 Determine Acceptability of Data
In many cases, the existing data were collected to address
questions other than those being asked in the watershed
assessment. Also, sufficient data are rarely available from
a single source, particularly if the watershed is large. As a
result, you might have to rely on data from different sources,
collected for different purposes and collected using a variety
of sample collection and analysis procedures. Therefore, it's
critical that you review existing data to determine their ac-
ceptability before you use them in your analyses.
Practical quantification limit: The lowest level
that can be reliably achieved with specified limits for
precision and accuracy during routine sampling of
laboratory conditions.
Data acceptability is determined by comparing the types
and quality of data with the minimum criteria necessary
to address the monitoring questions of interest. For each
data source, focus on two areas: data quality and measurement
quality. Data quality pertains to the purpose of the monitor-
ing activity, the types of data collected, and the methods and
conditions under which the data were collected. These char-
acteristics determine the applicability of the data to your planning effort and the decisions
that can be made on the basis of the data. The main questions to ask are the following:
• What were the goals of the monitoring activity? Consider whether the goals of the
monitoring activity are consistent with and supportive of your goals. Daily fecal
coliform data collected at a swimming beach document compliance with recreational
water quality standards but might not help in linking violations of those standards to
sources in the watershed. Monthly phosphorus concentration data collected to evalu-
ate long-term trends might or might not help you to relate phosphorus loads from
concentrated animal feeding operations (CAFOs) to storm events in your watershed.
• What types of data were collected? Determine whether the types of data collected
are relevant to your needs. Data on stream macroinvertebrate communities might be
useful only if physical habitat data were also collected. Water quality data without as-
sociated land use and management data might not be useful in linking impairments to
source areas.
• How were the data collected? Data collected at random sites to broadly characterize
water quality in the watershed might present a very different picture from data delib-
erately collected from known hot spots or pristine reference sites. Data from a routine,
time-based sampling program typically underestimate pollutant loads compared to
data collected under a flow-proportional sampling regime (collecting more samples at
high flows, fewer at base flow).
Measurement quality describes data characteristics like accuracy, precision, sensitivity, and
detection limit. These are critical issues for any monitoring activity, and you'll consider them
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Chapter 6: Identify Data Gaps and Collect Additional Data If Needed
in detail when you design your own data collection program (> section 6.4). For pollutants
like metals, toxic substances, or pesticides that are of concern at very low concentrations,
the detection, or reporting, limit of the analytical method is one of the most readily distin-
guished measurement quality parameters in all monitoring programs. Existing data are of
little value in evaluating compliance with water quality standards if the method detection
limits used were higher than the standard.
There are several levels of measurement quality, and these should be determined for any data
source before interpreting the data or making decisions based on the data. State and federal
laboratories are usually tested and certified, meet EPA or other applicable performance stan-
dards, employ documented analytical methods, and have quality assurance data available to
be examined. Analytical results reported from consultants and private laboratories might or
might not meet similar standards, so documentation needs to be obtained. Data from citi-
zen groups, lay monitoring programs, school classes, and the like might not meet acceptable
measurement quality criteria; in most cases, they should be considered qualitatively if proper
documentation can't be obtained.
Ideally, information on the methods used to collect and analyze the samples, as well as the
associated measurement quality attributes, should be associated with the data in a database
so you can easily determine whether those data are acceptable for your purposes. The Quality
Assurance Project Plan (QAPP) associated with a data collection effort is an excellent source
of information if available (^> section 6.4.4). In some cases, sufficient information might be
readily available, but you'll have to dig deeply to obtain the best information. For example,
even though most published analytical methods have performance characteristics associ-
ated with them, the organization conducting the analyses and reporting the data might not
have met those performance characteristics. Some laboratories, however, report performance
characteristics as part of the method, making it easier for data users to identify the potential
quality of data collected using those methods. ^> An example illustrating the use of a perfor-
mance-based approach for bioassessment methods is presented in chapter 4 of EPA's Rapid
Bioassessment Protocols for Use in Streams and Wadeable Rivers: Periphyton, Benthic Macroinverte-
brates, and Fish, available at www.epa.gov/owowwtrl/monitoring/rbp/ch04main.html.
For some types of parameters, method performance information might be limited, particu-
larly if the data obtained are dependent on the method used. For example, parameters like
chemical oxygen demand (COD), oil and grease, and toxicity are defined by the method
used. In such cases, you might need to rely on a particular method rather than performance
characteristics per se. (^> See Methods & Data Comparability Board COD Pilot at
http://wi.water.usgs.gov/methods/about/publications/cod_pilot_v.4.4.3.htm or the National
Environmental Methods Index (NEMI) at www.nemi.gov.)
Other critical aspects of existing data quality are the age of the data and the format of the
database. Old data might be highly valuable in understanding the evolution of water quality
problems in your watershed and are likely to be impossible to recreate or re-measure today.
However, old data might have been generated by laboratory methods different from those in
use today and therefore might not be entirely comparable to current data. Detection limits for
organics, metals, and pesticides, for example, are lower today than they were even a decade
ago. It might be difficult to adequately document measurement quality in old datasets. In
addition, older data might not be in an easily accessible electronic form. If the quality of such
data is known, documented, and acceptable, and the data are useful for your purpose, you'll
need to consider the effort and expense necessary to convert them into an electronic form.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
6.3 Determine Whether New Data Collection Is Essential
At this point, you've collected existing data for your watershed, assessed its quality and
relevance, and identified gaps. Compare your available resources against your tasks:
• Can we identify and quantify the water quality problems in the watershed?
• Can we quantify pollutant loads?
• Can we link the water quality impairments to specific sources and source areas in the
watershed?
• Have we identified critical habitat including buffers for conservation, protection, and
restoration?
• Do we know enough to select and target management measures to reduce pollutant
loads and address water quality impairments?
If you were able to answer "yes" to each of these questions, congratulations! You're ready to
move on to the next phase and begin to analyze the data. If you answered "no," the next step
is to come up with a plan to fill the gaps. Although this might seem like a short-term task, it
is critical to consider data collection requirements in the context of your overall watershed
plan. The kind of sampling plan you initiate now could well become the foundation of the
later effort to monitor the effectiveness of your implementation program, and therefore the
plan should be designed with care.
6.4 Design a Sampling Plan for Collecting New Data
If you've determined that additional data must be collected to complete your watershed
characterization, you should develop a sampling plan. The sampling plan will focus on im-
mediate data collection needs to help you finish the watershed characterization, but it's very
important to consider long-term monitoring needs in this effort. Once data collection and
analysis is complete and management strategies have been identified, your implementation
efforts should include a monitoring component designed to track progress in meeting your
water quality and other goals (^t> chapter 12). Many of the data tools developed to support the
sampling plan, including data quality objectives (DQOs), measurement quality objectives
(MQOs), and a QAPP, can be modified or expanded on for the monitoring component of the
implementation plan. ^t> For more information on designing a sampling plan, visit
www.epa.gov/quality/qs-docs/g5s-final.pdf.
Quality Assurance Project Plans
A QAPP documents the planning, implementation,
and assessment procedures for a particular project,
as well as any specific quality assurance and quality
control activities. It integrates all the technical and
quality aspects of the project to provide a blueprint for
obtaining the type and quality of environmental data
and information needed for a specific decision or use.
All work performed or funded by EPA that involves
acquiring environmental data must have an approved
QAPP. ^ For more information on QAPPs, visit
www.epa.gov/quality/qapps.html
Before collecting any environmental data, you should
determine the type, quantity, and quality of data needed to
meet the project goals and objectives (e.g., specific param-
eters to be measured) and to support a decision based on
the results of data collection and observation. Failure to do
so risks expending too much effort on data collection (more
data collected than necessary), not expending enough effort
on data collection (not enough data collected), or expend-
ing the wrong effort (wrong data collected). You should also
consider your available resources. Water quality monitoring
and laboratory testing can be very expensive, so you need to
determine how best to allocate your resources.
A well-designed sampling plan clearly follows the key steps
in the monitoring process, including study design, field
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Chapter 6: Identify Data Gaps and Collect Additional Data If Needed
sampling, laboratory analysis, and data management. Sampling plans should be carefully
designed so that the data produced can be analyzed, interpreted, and ultimately used to meet
all project goals. Designing a sampling plan involves developing DQOs and MQOs, a study
design, and a QAPP, which includes logistical and training considerations, detailed specifi-
cations for standard operating procedures (SOPs), and a data management plan. Because a
variety of references on designing and implementing water quality monitoring programs are
available, this section provides only a general overview and resources available for further
information. ^ For more information visit EPA's Quality Management Tools Web site at
www.epa.gov/quality/qapps.html.
6.4.1 Select a Monitoring Design
The specific monitoring design you use depends on the kind of information you need. Water
quality sampling can serve many purposes:
• Defining water quality problems
• Defining critical areas
• Assessing compliance with standards or permits
• Determining fate and transport of pollutants
• Analyzing trends
• Measuring effectiveness of management practices
• Evaluating program effectiveness
• Making wasteload allocations
• Calibrating or validating models
• Conducting research
Depending on the gaps and needs you've identified, monitoring to define water quality prob-
lems, assess compliance with standards, and define critical areas might be most appropriate
for your watershed. For example, synoptic or reconnaissance surveys are intensive sampling
efforts designed to create a general view of water quality in the study area. A well-designed
synoptic survey can yield data that help to define and locate the most severe water quality
problems in the watershed, and possibly to support identification of specific major causes and
sources of the water quality problem. Data collected in synoptic surveys can also be used to
help calibrate and verify models that might be applied to the watershed (USEPA 1986).
There are a variety of approaches to conducting synoptic surveys. Less-expensive grab
sampling approaches are the norm for chemical studies. Rapid Bioassessment Protocols
and other biological assessment techniques can be used to detect and assess the severity of
impairments to aquatic life, but they typically do not provide information about the causes or
sources of impairment (USEPA 1997a, 1997d). Walking or canoeing the course of tributaries
can also yield valuable, sometimes surprising information regarding causes and sources. It's
important to recognize that, because synoptic surveys are short in duration, they can yield
results that are inaccurate because of such factors as unusual weather conditions, intermit-
tent discharges that are missed, or temporal degradation of physical or biological features
of the waterbody. Follow-up studies, including fate and transport studies, land use and land
treatment assessments, and targeted monitoring of specific sources, might be needed to im-
prove the assessment of causes and sources derived from synoptic surveys.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Compliance monitoring might focus on regular sampling
Sampling network design refers to the array, or at specific locations, depending on the source, constituent,
network, of sampling sites selected for a monitoring and rdevant standard Although typically associated with
program and usually takes one of two forms: . ,. , ,. . , ,
point source discharges, compliance monitoring can be used
• Probabilistic design: Network that includes effectively to characterize and isolate pollutant loads from
sampling sites selected randomly to provide ^ iyd defined sourc£s such as stormwater outfalls or con.
an unbiased assessment of the condition of the , .......
waterbody at a scale above the individual site or centrated runoff from a concentrated animal feeding opera-
stream; can address questions at multiple scales. tion (CAFO). Monitoring to define critical areas can also be
• Targeted design: Network that includes sampling focused on sPecific locations, chosen on the basis of land use
sites selected on the basis of known, existing patterns or in response to known or suspected problem areas.
problems; knowledge of coming events in the
watershed or a surrounding area that will adversely Fate and transport monitoring is designed to help define the
affect the waterbody, such as development or relationships between the identified water quality problems
deforestation; or installation of management and the sources and causes of those problems. This type
measures or habitat restoration intended to improve f ......... ..
, , , ,., TU , ., , of monitoring typically involves intensive sampling over a
waterbody quality. The network provides for ,.,,•*.,.,_ ,. _ „
assessments of individual sites or reaches. relatively short period, with frequent sampling of all possible
pollutant pathways within a fairly small geographic area.
The limited geographic scope of fate and transport monitor-
ing, coupled with the required sampling intensity, makes it an expensive venture if applied
broadly within a watershed. Because of its cost and relatively demanding protocols, fate
and transport monitoring is best used in a targeted manner to address the highest-priority
concerns in a watershed. For example, the preferential pathways of dissolved pollutants (e.g.,
nitrate nitrogen) that can be transported via surface or subsurface flow to a receiving water-
body might need to be determined and quantified to help identify the critical area, design
effective management measures, and estimate potential pollutant load reductions.
Because nonpoint source contributions are often seasonal and dependent on weather condi-
tions, it's important that all sampling efforts be of sufficient duration to encompass a reason-
ably broad range of conditions. Highly site-specific monitoring should be done on reasonably
representative areas or activities in the watershed so that results can be extrapolated across
the entire area.
Station location, selection, and sampling methods will necessarily follow from the study
design. Ultimately, the sampling plan should control extraneous sources of variability or
error to the extent possible so that data are appropriately representative and fulfill the study
objectives.
In the study design phase, it's important to determine how many sites are necessary to meet
your objectives. If existing data are available, statistical analysis should be conducted to de-
termine how many samples are required to meet the DQOs, such as a 95 percent confidence
level in estimated load or ability to detect a 30 percent change. If there are no applicable
data for your watershed, it might be possible to use data from an adjacent watershed or from
within the same ecoregion to characterize the spatial and temporal variability of water qual-
ity. s> For more on statistical analyses, see EPA's "Statistical Primer" on power analysis at
www.epa.gov/bioindicators/statprimer/index.html.
In addition to sampling size, you should also determine the type of sampling network you'll
implement and the location of stations. The type of sampling network design you choose
depends on the types of questions you want to answer. Generally, sampling designs fall into
two major categories: (1) random or probabilistic and (2) targeted. In a probabilistic design,
sites are randomly chosen to represent a large sampling population for the purpose of trying
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Chapter 6: Identify Data Gaps and Collect Additional Data If Needed
to answer broad-scale (e.g., watershed-wide) questions. This type of network is appropriate
for synoptic surveys to characterize water quality in a watershed. In a targeted design, sites
are allocated to specific locations of concern (e.g., below discharges, in areas of particular
land use, at stream junctions to isolate subwatersheds) with the purpose of trying to answer
site-specific questions. A stratified random design is a hybrid sampling approach that delib-
erately chooses parts of the watershed (e.g., based on land use or geology) to be sampled and
then selects specific sampling points within those zones at random.
^> For more information on sampling designs, see EPA's Guidance on Choosing a Sampling
Design for Environmental Data Collection at www.epa.gov/quality/qs-docs/g5s-final.pdf.
Your monitoring plan should focus not only on water qual-
ity, but also on the land-use activities that contribute to Leveraging Resources for Monitoring
nonpoint source loads. You might need to update the gen- Efforts
eral land use/land cover data for your watershed or gather Local watershed groups in Baltimore, Maryland,
information on specific activities (e.g., agricultural nutrient have long been troubled by the aging, leaky sewage
management practices or the use of erosion and sediment PiPes that run throL|9h the beds of citV streams.
control plans in construction projects). Monitor not only TheV were interested in tracking the raw sewage
where implementation might occur, but in all areas in the enterin9the stream system' esPecial|y after storm
watershed that could contribute to nonpoint source loads. events'but ^n't have the resources for the required
„ r i • rr i 11 r n i equipment. The city s Department of Public Works
Part of this effort should focus on collecting data on current was a|so .^^ jn th(j bu( had ^ (jme
source activities to link pollutant loads to their source. and resources for on|y week|y screenjngs They
In addition, you should generate baseline data on existing decided to Partner: the ^tV agreed to provide the
. , , .... . groups with ammonia test kits high levels of ammonia
land-use and management activities so that you can better can .^ th(j presence Qf sewage) ,R ^ ^
predict future impairments. One tool that can be used to screenjng of addi(iona| s(ations and a grea(er samp|jng
predict where impairments might occur, allowing you to frequency Now both parties have the data they need to
target monitoring efforts, is U.S. EPA's Analytical Tools better understand the problem.
Interface for Landscape Assessments (ATtlLA). ATtlLA
provides a simple ArcView graphical user interface for
landscape assessments. It includes the most common landscape/watershed metrics, with
an emphasis on water quality influences. (^> To read about or download ATtlLA, see
www.epa.gov/nerlesdl/land-sci/attila/index.htm.)
The result of a good land-use/land-treatment monitoring program is a database that will help
you explain the current situation and potential changes in water quality down the road. The
ability to attribute water quality changes to your implementation program or to other factors
will be critical as you evaluate the effectiveness of your plan.
Another important consideration during study design is how other groups and partners can
be enlisted to support your monitoring effort. Think back to the issues of concern expressed
by the different groups and the potential partnerships you can build among local govern-
ments, agencies, private organizations, and citizen groups. Collaborative monitoring strate-
gies can effectively address multiple data needs and resource shortfalls.
Finally, it's also important to consider how this initial monitoring might be used to support a
long-term monitoring program that addresses evaluation of watershed condition and restora-
tion. The sampling and analysis done during this phase can be used to provide an evaluation
of baseline or existing conditions. As long as continued monitoring during implementation is
done consistently, it can be used to track trends, evaluate the benefits of specific management
measures, or assess compliance with water quality standards (^> chapter 12).
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
6.4.2 Develop Data Quality Objectives
DQOs are qualitative and quantitative statements that clarify the purpose of the monitoring
study, define the most appropriate type of data to collect, and determine the most appropriate
methods and conditions under which to collect them. The DQO process, developed by EPA
(GLNPO 1994, USEPA 2000a), is a flexible planning framework that articulates project goals
and objectives, determines appropriate types of data, and establishes tolerable levels of uncer-
tainty. The purpose of this process is to improve the effective-
ness, efficiency, and defensibility of decisions made, based on
the data collected. A team of data users develops DQOs based
on members' knowledge of the data's richness and limits, and
their own data needs. You'll use the information compiled in
the DQO process to develop a project-specific QAPP, which
should be used to plan most of the water quality monitoring
or assessment studies.
Seven Steps In the DQO Process
Step 1. State the problem. Review existing
information to concisely describe the problem to be
studied.
Step 2. Identify the decision. Determine what
questions the study will try to resolve and what actions
might result.
Step 3. Identify inputs to the decision. Identify
information and measures needed to resolve the
decision statement.
Step 4. Define the study boundaries. Specify
temporal and spatial parameters for data collection.
Step 5. Develop a decision rule. Define statistical
parameters, action levels, and a logical basis for
choosing alternatives.
Step 6. Specify tolerable limits on decision
errors. Define limits based on the consequences of an
incorrect decision.
Step 7. Optimize the design. Generate alternative
data collection designs and choose the most resource-
effective design that meets all DQOs.
The DQO process addresses the uses of the data (most im-
portant, the decisions to be made) and other factors that will
influence the types and amount of data to be collected (e.g.,
the problem being addressed, existing information, infor-
mation needed before a decision can be made, and available
resources). The products of the DQO process are criteria for
data quality, measurement quality objectives, and a data col-
lection design that ensures that data will meet the criteria.
^> For more information on DQOs, see EPA's Guidance for
the Data Quality Objectives Process at www.epa.gov/quality/
qs-docs/g4-final.pdf.
The purpose of the study, or the question that needs to be
answered, drives the input for all steps in the DQO process.
Thus, sampling design, how samples are collected and ma-
nipulated, and the types of analyses chosen should all stem
from the overall purpose of the study.
Example DQO: Determine, to a 95% degree of statistical certainty, whether
there is a significant (50%) change in average nitrate concentration over time at
given sampling locations.
6.4.3 Develop Measurement Quality Objectives and Performance
Characteristics
A key aspect of your sampling plan design is specifying MQOs—qualitative or quantitative
statements that describe the amount, type, and quality of data needed to address the overall
project objectives. These statements explicitly define the acceptable precision, bias, and sensi-
tivity required of all analyses in the study, and therefore they should be consistent with the
expected performance of a given analysis or test method (ITEM 1995). You'll use this infor-
mation to help derive meaningful threshold or decision rules, and the tolerable errors associ-
ated with those rules. MQOs are used as an indicator of potential method problems. Data are
not always discarded simply because MQOs are not met. Instead, failure to met MQOs is a
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Chapter 6: Identify Data Gaps and Collect Additional Data If Needed
signal to further investigate and to correct problems. Once the problem(s) are rectified, the
data can often still be used.
MQOs should be realistic and attainable. For example, establishing an MQO of less than 10
percent relative percent difference (RPD) for biological data would most likely result in fail-
ure simply because of the data's natural variability. Often, the best way to establish MQOs is
to look at reliable existing data and choose MQOs that can be met by existing data. They can
be adjusted (made more or less stringent) if protocol and program capabilities are improved.
Every sampling program should find a balance between obtaining information to satisfy the
stated DQOs or study goals in a cost-effective manner and having enough confidence in the
data to make appropriate decisions. Understanding the performance characteristics of meth-
ods is critical to the process of developing attainable data quality goals, improving data col-
lection and processing, interpreting results, and developing feasible management strategies.
By calculating the performance characteristics of a given method, it is possible to evaluate
the robustness of the method for reliably determining the condition of the aquatic ecosystem.
A method that is very labor-intensive and requires a great deal of specialized expertise and,
in turn, provides a substantial amount of information is not necessarily the most appropriate
method if it lacks precision and repeatability. A less-rigorous method might be less sensitive
in detecting perturbation or have more uncertainty in its assessment. All of these attributes
are especially important to minimizing error in assessments. The number of samples col-
lected and analyzed will reflect a compromise between the desire of obtaining high-quality
data that fully address the overall project objectives (the MQOs) and the constraints imposed
by analytical costs, sampling effort, and study logistics. The ultimate question resides in a
firm balance between cost and resolution, i.e., Which is better—more information at a higher
cost or a limited amount of the right information at less cost?
Remember that you still might need to identify funding sources for the new sampling ef-
fort. When determining the number of samples and constituents to be analyzed, consider
the resources available, cost and time constraints, and quality assurance and quality control
requirements to ensure that sampling errors are sufficiently controlled to reduce uncertainty
and meet the tolerable decision error rates. ^> For a list of links to DQO-related items, go to
http://dqo.pnl.gov/links.htm.
6.4.4 Develop a Quality Assurance Project Plan
A QAPP is a project-specific document that specifies the data quality and Quality °°nt[o1 (QC) is a.
f , , 11 11 j 1-111. j system of technical activities
quantity requirements of the study, as well as all procedures that will be used ,,' ,, ,,., , ,
„ , , , , T^. - , , , ,, . that measure the attributes and
to collect, analyze, and report those data. EPA-funded data collection pro- performance of a process, prod-
grams must have an EPA-approved QAPP before sample collection begins. uct or servjce agajnst defjned
However, even programs that do not receive EPA funding should consider standards to verify that they meet
developing a QAPP, especially if data might be used by state, federal, or local the stated requirements.
resource managers. A QAPP helps monitoring staff to follow correct and Quality assurance (QA) is an
repeatable procedures and helps data users to ensure that the collected data integrated system of man-
meet their needs and that the necessary quality assurance (QA) and quality agement activities involving
control (QC) steps are built into the project from the beginning. planning, quality control, quality
assessment, reporting, and qual-
A QAPP is normally prepared before sampling begins, and it usually contains j(y improvement to ensure that a
the sampling plan, data collection and management procedures, training and product or service meets defined
logistical considerations, and their QA/QC components. The intent of the standards of quality with a stated
QAPP is to help guide operation of the program. It specifies the roles and level of confidence.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
QA and QC Procedures,
Detailed in the QAPP,
Address...
• The sampling (data collection)
design
• The methods to be used to
obtain the samples
• How the samples will be
handled and tracked
• What control limits or other
materials will be used to check
performance of the analyses
(quality control requirements)
• How instruments or other
equipment used will be
calibrated
How all data generated during
the monitoring program will
be managed and how errors in
data entry and data reduction
will be controlled (Keith 1991).
responsibilities of each member of the monitoring program team from the
project manager and QA/QC officer to the staff responsible for field sampling
and measurement. Project management responsibilities include overall
project implementation, sample collection, data management, and budget
tracking. Quality management responsibilities might include conducting
checks of sample collection or data entry, data validation, and system audits.
The QAPP also describes the tasks to be accomplished, how they will be
carried out, the DQOs for all kinds of data to be collected, any special
training or certification needed by participants in the monitoring program,
and the kinds of documents and records to be prepared and how they will be
maintained.
A key element of a QAPP is the SOP. SOPs help to maintain data comparabil-
ity by providing a step-by-step description of technical activities to ensure that
project personnel consistently perform sampling, analysis, and data-handling
activities. The use of standard methods of analysis for water quality parameters
also permits comparability of data from different monitoring programs.
The QAPP also contains the types of assessments to be conducted to review
progress and performance (e.g., technical reviews, audits), as well as how
nonconformance detected during the monitoring program will be addressed.
Finally, procedures are described for reviewing and validating the data
generated; dealing with errors and uncertainties identified in the data; and
determining whether the type, quantity, and quality of the data will meet the needs of the
decisionmakers. QAPPs should be continually refined to make them consistent with changes
in field and laboratory procedures. Each refinement should be documented and dated to trace
modifications to the original plan.
^t> For assistance in developing an effective QAPP, visit EPA's Web site to read Quality Man-
agement Tools—QA Project Plans at www.epa.gov/quality/qapps.html, The Volunteer Monitor's
Guide to Quality Assurance Project Plans at www.epa.gov/volunteer/qapp/vol_qapp.pdf, or
Guidance for Quality Assurance Project Plans for Modeling at www.epa.gov/quality/qs-docs/
g5m-final.pdf.
An excerpt from the sampling plan for Spa Creek, Maryland, is provided as figure 6-1.
6.4.5 Develop a Plan for Data Management
Any monitoring program should include a plan for data management. You should determine
how data will be stored, checked, and prepared for analysis. Often, these issues are addressed in
the QAPP. This type of plan usually dictates that data be entered
-- ---" "'" ~ 7, into databases that can help keep track of information collected
_,— -,' -J r" I if i at each site and can be used to readily implement analyses.
- -^ r -~ " ' I .
Y),
-i, There are many types of platforms to house databases. The
simplest databases are spreadsheets, which might be adequate
ji for small projects. For more complex watershed measure-
ments involving many sites or variables, a relational database
is usually preferable. The biological/habitat database EDAS
(Ecological Data Application System; Tetra Tech 2000) runs
on a Microsoft Access platform. Very large databases often use
ORACLE as a platform or a similar type of relational database that
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Chapter 6: Identify Data Gaps and Collect Additional Data If Needed
Located in Annapolis, Maryland, Spa Creek begins at a large stormwater pipe and includes a few major
tributaries before it opens into the Chesapeake Bay. Spa Creek provides recreational opportunities
for boating, fishing, and hiking; it also provides habitat for Chesapeake Bay wildlife. The watershed has
been developed with urban land uses, including residential, commercial, open space, and institutional
uses (e.g., schools). Impairments associated with bacteria, pH, and dissolved oxygen exist in Spa Creek.
A field observation revealed little evidence of a healthy aquatic life community and stream site habitat.
However, there are insufficient data to understand the magnitude of the impairments and the sources and
causes of impairment. As a result, a preliminary sampling plan was developed to better understand the
quality of Spa Creek, its tributaries, and stormwater from a few targeted developed areas. The proposed
monitoring will help stakeholders to develop a watershed management plan with specific water quality
goals and actions.
The preliminary sampling plan recommends a minimum of two dry weather sampling events and two
wet weather sampling events. Dry weather samples help to understand the instream water quality under
minimal dilution conditions (when estuarine impacts are expected to be dominant), while wet weather
samples help to understand the quality of stormwater from the surrounding watershed and its impact on
Spa Creek. To understand the spatial distribution of impairment and to isolate hot spots, five instream
locations and seven storm drain outlets were identified for sampling. Proposed locations and sampling
frequency were recommended in the interest of developing a watershed plan with specific actions and
restoration.
Parameters proposed for monitoring include flow, temperature, pH, dissolved oxygen, conductivity,
turbidity, fecal coliform bacteria, total suspended solids, carbonaceous oxygen demand, total organic
carbon, ammonia, nitrate + nitrite, total Kjeldahl nitrogen, orthophosphate, total phosphorus, copper,
zinc, lead, hardness, and oil and grease. Ecological monitoring was proposed in the sampling plan to
assess the ecological condition of Spa Creek. As part of the assessment, biological, physical habitat,
and chemistry samples would be collected from three to five streams sites in the watershed. For example,
benthic invertebrates and fish would be collected, and in situ toxicity testing would be performed using a
caged oyster study.
The proposed plan emphasizes the importance of continuing to monitor Spa Creek to understand long-
term water quality trends and to measure progress once the plan is implemented. Potential options to
consider for long-term monitoring (every 3 years) include flow, metals, benthics/fish, dissolved oxygen,
oyster baskets, and E. coli. Anticipated costs for monitoring are included in the table below.
Alternative Monitoring
Description
Basic
Chemistry
and Biology
Benthic/Fish
and Oyster
Basket (3-5
locations)
Priority
Pollutant
Scan
(4 locations)
Sampling in
Tidal Area
(4 locations)
Total
Estimated
Cost
Phase 1 (5 instream dry, 5
instream wet, and 3 outlet wet)
Complete screening level (2 dry
and 2 wet at all locations)
Only model parameter data
collection (2 dry and 2 wet at 8
locations)
Long-term trend monitoring,
every 3 years (1 dry and 1 wet at
3-5 locations)
$20,000
$52,000
$33,000
$12,000
$15,000
$15,000
$15,000
$15,000
$14,500
$14,500
$6,000
(1 dry, 1 wet)
$11,000
$55,500
$92,500
$48,000
$27,000
Figure 6-1. Excerpt from Spa Creek Proposed Sampling Plan
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
is more readily Web-accessible. In a relational database, data, metadata, and other ancillary
information reside in a series of relational tables including station information, sample in-
formation, analyses, methods used, and QC information. In this type of database, data can
be organized in many different ways depending on how they are to be used (the types of
analyses to be performed). It is useful to consider any requirements or options for upload-
ing your data to other databases, such as EPA's STORET or a state agency database, as part
of your overall data management process.
As mentioned earlier with respect to existing data, documentation of metadata (informa-
tion about the data) is critical to ensure the proper understanding and use of the data now
and in the future. Many organizations have recognized that adequately characterized data
have more value to the program that collected the data, as well as to other organizations
and programs, than inadequately characterized data. The Methods and Data Comparabil-
ity Board and the National Water Quality Monitoring Council have developed a list of
metadata categories that should be included in database design and should be reflected in
all field sampling forms and other field and laboratory documentation generated as part of
the monitoring (NWQMC 2005). These elements address the who, what, when, where, why,
and how of collecting data. ^ For more information on metadata and data elements, go to
http://acwi.gov/methods or www.epa.gov/edr.
6.5 Collect New Data
Sampling plans often include a mixture of different types of data, including biological (e.g.,
benthic, fish, algae), physical (e.g., visual habitat assessment, geomorphic assessment), chemi-
cal (e.g., conductivity, nitrate, dissolved oxygen), and hydrologic measurements. Numerous
methods are available for collecting these data, but the achieved data quantity and quality
differ. Therefore, data collection techniques should be carefully selected to ensure that the
data produced can be used to meet project goals completely.
6.5.1 Watershed Overview/Visual Assessment
A watershed survey, or visual assessment, is one of the most rewarding and least costly assess-
ment methods. By walking, driving, or boating the watershed, you can observe water and land
conditions, uses, and changes over time that might otherwise be unidentifiable. These sur-
veys help you identify and verify pollutants, sources, and causes, such as streambank erosion
delivering sediments into the stream and illegal pipe outfalls discharging various pollutants.
(Note, however, that additional monitoring of chemical, physical, and biological conditions
is required to determine whether the stressors observed are
actually affecting the water quality.) Watershed surveys can
Examples of Sources That Might Be provide a very accurate picture of what is occurring in the
Unidentifiable without a Watershed watershed and also can be used to familiarize local stake-
' holders, decisionmakers, citizens, and agency personnel
• Streambank erosion in remote areas whh actiyities occurring in their watershed. H> For general
• Pipe outfalls with visible discharges information, read section 3.2, The Visual Assessment, in
• Livestock (near or with access to streams) EPA's Volunteer Stream Monitoring: A Methods Manual (EPA
• Wildlife (e.g., waterfowl populations on lakes and 841-B-97-003), www.epa.gov/owow/monitoring/volunteer/
open streams) stream/vms32.html. Included is a Watershed Survey Visual
• Small-scale land-disturbing activities Assessment form, www.epa.gov/owow/monitoring/volunteer/
(e.g., construction, tree-cutting) stream/ds3.pdf.
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Chapter 6: Identify Data Gaps and Collect Additional Data If Needed
Several agencies and organizations have developed visual assessment protocols that you
can adapt to your own situation. For example, the Natural Resources Conservation Service
(NRCS) has developed a Visual Stream Assessment Protocol (VSAP), which is an easy-to-
use assessment tool that evaluates the condition of stream ecosystems. It was designed as an
introductory, screening-level assessment method for people unfamiliar with stream assess-
ments. The VSAP measures a maximum of 15 elements and is based on visual inspection of
the physical and biological characteristics of instream and riparian environments. V Go to
www.nrcs.usda.gov/technical/ECS/aquatic/svapfnl.pdfto download a copy of the tool.
Some watershed survey tools are designed to examine specific issues in the watershed. For
example, the Rapid Stream Assessment Technique (RSAT), developed for Montgomery
County, Maryland, is a simple, rapid, reconnaissance-level assessment of stream quality and
potential pollutant sources. In this technique, visual evaluations are conducted in various
categories—including channel stability, physical in-stream habitat, riparian habitat condi-
tions, and biological indicators—to gauge stream conditions. ^ Additional information
about RSAT is available at www.stormwatercenter.net/
monitoring%20and%20assessment/rsat/snirc%20rsat.pdf.
Watershed planners often incorporate photographs into their surveys.
Photographic technology is available to anyone, does not require
intensive training, and is relatively inexpensive considering its
benefits. Photos serve as a visual reference for the site and provide a
good "before" image to compare with photos taken after restoration,
remediation, or other improvements or changes. In addition to
illustrating problems that need to be corrected, photos provide a
watershed portrait for those that might not have the opportunity
to visit monitoring sites. They help generate interest in the
watershed, and they can be used in reports, presentations, grant
proposals, and on Web sites and uploaded to GIS programs. In
addition to taking your own photographs, you can also obtain
aerial photographs from USGS (Earth Science Information
Center), USDA (Consolidated Farm Service Agencies, Aerial
Photography Field Office), and other agencies. ^ California's
State Water Resources Control Board Clean Water Team
produced Guidance Compendium for Watershed Monitoring and
Assessment, which contains a section on SOPs for stream
and shoreline photo documentation: www.swrcb.ca.gov/nps/cwtguidance
html#42.
More detailed visual assessment tools to determine aquatic habitat conditions or stream
stability are provided below.
6.5.2 Physical Characterization
The physical conditions of a site can provide critical information about factors affecting over-
all stream integrity, such as agricultural activities and urban development. For example, run-
off from cropland, pastures, and feedlots can carry large amounts of sediment into streams,
clogging existing habitat and changing geomorphological characteristics. An understanding
of stream physical conditions can facilitate stressor identification and allow for the design
and implementation of more effective restoration and protection strategies. Physical charac-
terization should extend beyond the streambanks or shore and include a look at conditions in
riparian areas.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
6.5.3 Geomorphic Assessment
Geomorphic assessments range from cursory evaluations that provide general descriptions
of channel shape and pattern to rigorous assessments designed to describe the geomorphic
features in detail and assess stream channel alterations over time. They can help you answer
various questions about the streams and rivers in your watershed, such as these used by the
Vermont Department of Environmental Conservation:
• What are the physical processes and features that characterize the stream and its
watershed?
• How have human activities affected these processes and features over time?
• Which of these physical processes and features are more sensitive to change, and how
are they likely to change in the future?
• Which of these processes and features are important for creating and sustaining qual-
ity habitat for fish and other aquatic biota?
• Which of these processes and features present high erosion and flood hazard risks?
Geomorphology protocols commonly describe such stream and river characteristics as chan-
nel dimensions, reach slope, channel enlargement and stability, and bank-full and related
measurements. The measures will help you understand current stream conditions and can be
evaluated over time to describe stream degradation or improvements. The measures can also
be used to predict future stream conditions, which can help you choose appropriate restora-
tion or protection strategies.
^t> For examples of standard geomorphic protocols, see EPA's Environmental Monitoring and
Assessment Program (EMAP), www.epa.gov/emap, or Vermont's Stream Geomorphic As-
sessment Protocols, www.anr.state.vt.us/dec/waterq/rivers/htm/rv_geoassesspro.htm.
The Rosgen geomorphic assessment approach (Rosgen 1996) groups streams into different
geomorphic classes on the basis of a set of criteria. The criteria include entrenchment ratio,
width/depth ratio, sinuosity, channel slope, and channel materials. This method is commonly
used throughout the country. The Rosgen stream types can be useful for identifying streams
at different levels of impairment, determining the types of hydrologic and physical factors
affecting stream morphologic conditions, and choosing the best management measures to
implement if necessary. ^ For a summary of the Rosgen Stream Classification System, go to
www.epa.gov/watertrain/stream_class/index.htm.
One of the common goals of a Rosgen assessment and other types of geomorphic assessments
is to compare site-specific data from a given stream reach to data from other reaches of simi-
lar character to help classify a stream reach and determine its level of stability. A good way to
do this is to use a reference channel reach near the watershed or stream reach being evalu-
ated. When looking for a representative reach in your watershed, it is possible that one has
already been surveyed, but it is often unlikely that you will be able to find the data. There-
fore, it might be necessary to survey a local reference reach by determining its longitudinal
profile, representative cross sections, bed materials, and meander pattern. It might be diffi-
cult to find a quality channel that exists locally. However, local data from a similar watershed
are valuable to use for comparison purposes. ^> For more information on stream
channel reference sites, go to www.stream.fs.fed.us/publications/PDFs/RM245E.PDF.
Another common geomorphic assessment method is the Modified Wolman Pebble Count,
which characterizes the texture (particle size) in the stream or riverbeds of flowing surface
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Chapter 6: Identify Data Gaps and Collect Additional Data If Needed
waters. It can be used in conjunction with Rosgen-type physical assessments or as a stand-
alone method. The composition of the streambed can tell you a lot about the characteristics
of the stream, including the effects of flooding, sedimentation, and other physical impacts.
v For detailed descriptions of the Modified Wolman Pebble Count, see Harrelson et al.
(1994) and Rosgen (1996) or check out the Virginia Save Our Streams pebble count factsheet
and worksheets at www.vasos.org/pebblecountandworksheets.pdf or the Sampling Surface
and Subsurface Particle-Size Distributions in Wadable Gravel- and Cobble-Bed Streams for Analy-
ses in Sediment Transport, Hydraulics, and Streambed Monitoring document on the USDA Forest
Service's Stream Team Web site at www.stream.fs.fed.us/index.html.
The Ohio Department of Natural Resources and Ohio State University developed a suite
of spreadsheet tools (the STREAM Modules) that is commonly used across the country for
stream assessments, including the Rosgen classification described earlier in this section. This
ongoing project provides the following module at present: (1) Reference Reach Spreadsheet
for reducing channel survey data and calculating basic bank-full hydraulic characteristics;
(2) Regime Equations for determining the dimensions of typical channel form; (3) Meander Pat-
tern, which dimensions a simple arc and line best fit of the sine-generated curve; (4) Cross-
section and Profile, which can be used to illustrate the difference between existing and proposed
channel form; (5) Sediment Equations, which includes expanded and condensed forms of criti-
cal dimensionless shear, boundary roughness and common bed load equations (can be used
with the Wolman Pebble Counts); and (6) Contrasting Channels, which computes hydraulic
and bed load characteristics in a side-by-side comparison of two channels of different user-
defined forms. ^> The spreadsheet is available at www.ohiodnr.com/soilandwater/
streammorphology/default/tabid/9188/Default.aspx.
6.5.4 Hydrologic Assessment
Nonpoint source pollution is driven by climate and watershed hydrology. Hydrologic assess-
ments deal specifically with measuring stream flow, which can provide important informa-
tion about streams, lakes, and even watersheds. Stream flow data are essential to estimate
nonpoint source loads. Good hydrologic data are also useful in assessing relationships be-
tween precipitation and stream flow, potentially an important indicator of watershed develop-
ment. Some management measures in both agricultural and urban settings directly affect the
stream flow regime, so hydrologic data from before and after implementation of BMPs can be
an important element of plan evaluation.
Weather data are relatively easy to obtain from existing National Weather Service stations,
or the cooperative network, '•b For information on weather data available for your watershed,
see the National Climatic Data Center Web site at www.ncdc.noaa.gov/oa/ncdc.html or the
National Water and Climate Center at www.wcc.nrcs.usda.gov.
Streamflow data are more difficult to obtain. USGS conducts most of the routine streamflow
monitoring in the United States, usually in cooperation with state agencies. ^C> For information
on available USGS streamflow data for your region, see http://waterdata.usgs.gov/nwis, which
contains current-condition, real-time data transmitted from selected surface water, ground
water, and water quality monitoring sites. ^> You can also visit http://water.usgs.gov/osw/
programs/nffpubs.html to find information on regional regression equations that were devel-
oped for states and regions and can be used to predict peak flows. If you're lucky enough to
have a USGS stream gauging station in your watershed, both current and historical data will be
available to help estimate pollutant loads. Otherwise, you might need to look for USGS stations
in adjacent, similar watersheds (similar in terms of size, topography, stream type, and so forth)
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to provide estimates of hydrologic behavior. For example, you might need to apply long-term
average annual runoff estimates to your situation. If you need detailed streamflow monitoring, it
is possible (but expensive) to install a new gauging station. If you go this route, consider install-
ing a full-flow monitoring station at your watershed outlet and supplementing it with periodic
manual measurements at the upstream locations to derive a relationship between the outlet and
upstream locations. Such a relationship could be useful in estimating flow at ungauged sites.
v Washington State's Department of Ecology put together^ Citizen's Guide to Understanding
and Monitoring Lakes and Streams, which has an entire chapter devoted to hydrology. ^> Go to
www.ecy.wa.gov/programs/wq/plants/management/joysnianual/chapter5.htnil.
6.5.5 Water Quality Assessment
Water quality can be assessed using a variety of different methods for a multitude of analytes.
The types of analytes measured should reflect the DQOs specified, as well as previously col-
lected data for the watershed if available. For water quality assessments in support of Total
Maximum Daily Loads (TMDLs), the specific pollutants identified in the TMDLs will be
analyzed. For nonpoint source assessments, a variety of parameters might be analyzed, de-
pending on the specific questions being asked and the land uses in the watershed. It is often
appropriate to analyze pesticides, nutrients, and biochemical oxygen demand in agricultural
areas, for example, whereas oil and grease, polycyclic aromatic hydrocarbons (PAHs), metals,
and dissolved solids are more useful in urban areas. The form of the analyte being measured
might need to be carefully considered; for example, if dissolved metals concentrations are
needed, filtering the sample before preservation is required.
For many types of pollutants, you'll want to analyze some specific parameters simultane-
ously to better interpret the potential effects of those pollutants (table 6-1). For example, the
bioavailability and toxicity of many metals are regulated by the suspended solids, alkalinity,
hardness, pH, or dissolved organic carbon present in the water. If metals are of concern, it is
recommended that many of these other analytes be measured as well. Similarly, if ammonia
is a concern, simultaneous pH and temperature measurements are needed to help interpret
its potential effects.
Table 6-1. Sources and Associated Pollutants
Source
Cropland
Forestry harvest
Grazing land
Industrial discharge
Mining
Septic systems
Sewage treatment
plants
Construction
Urban runoff
Common Associated Chemical Pollutants
Turbidity, phosphorus, nitrates, temperature, total suspended solids
Turbidity, temperature, total suspended solids
Fecal bacteria, turbidity, phosphorus, nitrates, temperature
Temperature, conductivity, total solids, toxic substances, pH
pH, alkalinity, total dissolved solids, metals
Fecal bacteria (i.e., Escherichia coli, enterococci), nitrates, phosphorus, dissolved
biochemical oxygen demand, conductivity, temperature
oxygen/
Dissolved oxygen and biochemical oxygen demand, turbidity, conductivity, phosphorus,
nitrates, fecal bacteria, temperature, total solids, pH
Turbidity, temperature, dissolved oxygen and biochemical oxygen demand, total
suspended solids, and toxic substances
Turbidity, total suspended solids, phosphorus, nitrates, temperature, conductivity,
dissolved oxygen and biochemical oxygen demand
Source: USEPA1997a, 1997d.
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Chapter 6: Identify Data Gaps and Collect Additional Data If Needed
In most nonpoint source-dominated watersheds, the concentration of a constituent in the
stream is positively related to flow; most nonpoint source activity occurs at high flows.
Therefore, an appropriate sampling schedule should be followed to avoid bias in measuring
concentrations of pollutants. Data from time-based sampling (e.g., weekly, monthly by the
calendar) are nearly always biased to low-flow conditions because high-flow events occur
relatively infrequently. Flow-proportional sampling produces less biased information on true
concentration and load.
Sampling methods can range from intensive efforts that require analytical laboratory analyses
to in situ (field) measurements using a multiparameter monitoring and data-logging system.
*k> For more information and detailed descriptions of water quality sampling methods, see the
USGS's National Field Manual for the Collection of Water-Quality Data at http://water.usgs.gov/
owq/FieldManual.
Consider specialized monitoring requirements for your watershed. For example, if sediment
pollutants are being analyzed, methods for sediment sampling and processing might be criti-
cal (^ Refer to EPA's sediment manual at www.epa.gov/waterscience/cs/collection.html,
USGS sediment sampling techniques at http://water.usgs.gov/osw/techniques/sediment.html,
and the section on sediment monitoring in Edward's and Glysson's field manual at
http://water.usgs.gov/osw/techniques/Edwards-TWRI.pdffor good reviews on techniques).
Some sediment quality parameters such as pH; percent moisture; total organic carbon; and,
in the case of metals, simultaneously extracted metals (SEM) and acid-volatile sulfide (AVS)
should be analyzed to help interpret pollutant data.
6.5.6 Assessment of Stream Habitat Quality
When conducting biological assessments, you should assess physical habitat quality to
supplement the biological data. Habitat quality characteristics such as stream substrate
and canopy cover influence the biotic communities that can inhabit the site, regardless of
water quality conditions.
Alterations in stream and
watershed hydrology can
potentially lead to acceler-
ated stream channel ero-
sion, which, in turn, leads
to habitat degradation and
reduces the capacity of the
stream to support a healthy
biota. Though combining Maryland Biological Stream Survey methods for assessing habitat quality are also based on the
the results of biological and RBPs, but the parameters are slightly different and are rated on various scales depending on the
physical habitat assessments parameter. The individual habitat parameters in this protocol are assembled into a final physical
habitat index that assigns different weights to the various parameters. ^ For a complete descrip-
tion of these methods, goto www.dnr.state.md.us/streams/pubs/2001 mbss_man.pdf
Other Visually Based Habitat Assessments
The Mississippi Department of Environmental Quality developed a visually based approach (MDEQ
2001) that is similar to the EPA Rapid Bioassessment Protocols (RBPs) but is more regimented
with respect to habitat quality categories; that is, the criteria used for defining optimal, suboptimal,
fair, and poor habitat are divided in more detail. This strategy was intended to make the protocol
more objective and less reliant on field training.
does not directly identify
specific cause-effect relation-
ships, it can provide insight
into the types of stressors
and stressor sources affect-
ing watersheds of interest,
allowing for more detailed
diagnostic investigations
based on the severity of ob-
served biological responses.
^ Additional descriptions of state protocols for assessing habitat quality can be found in EPA's
Summary of Assessment Programs and Biocriteria Development for States, Tribes, Territories,
Interstate Commissions: Streams and Wadeable Rivers at www.epa.gov/bioindicators.
^ The Stream Mitigation Compendium can be used to help select, adapt, or devise stream
assessment methods appropriate for impact assessment and mitigation of fluvial
resources in the CWA section 404 program: www.mitigationactionplan.gov/
Physical%20Stream%20Assessment%20Sept%2004%20Final.pdf
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As a necessary component of its Rapid Bioassessment Protocols (RBPs), EPA developed a
very useful and simple method for conducting visual assessments of physical habitat. In this
method, 10 parameters describing physical habitat, stream morphology, riparian zones, and
streambanks are visually assessed and ranked as optimal, suboptimal, marginal, or poor.
Each parameter is scored on a 20-point scale (20 = optimal; 0 = poor), and then the scores
are summed for a total habitat score.
Many states have developed visual habitat assessments that are based on EPA's RBPs but are
designed to account for regional stream habitat characteristics. Check with your state De-
partment of Natural Resources or a similar state agency to determine whether it has its own
visually based habitat assessment approaches. For example, Ohio EPA developed a visual
habitat assessment approach, the Qualitative Habitat Evaluation Index, or QHEI (Ohio EPA
1989). The QHEI considers the ability of various habitat characteristics to support viable, di-
verse aquatic faunas. It assesses the type and quality of substrate, amount of instream cover,
channel morphology, extent of riparian canopy, pool and riffle development and quality, and
stream gradient. The individual habitat metric scores are then combined into an aggregate
habitat score. It should be noted, however, that the QHEI was specifically designed to meet
warm-water habitat requirements for aquatic organisms in Ohio and might not be suitable for
all stream types or all ecoregions. V For more information visit
www.epa.state.oh.us/dsw/bioassess/ohstrat.html.
Many of these habitat assessment protocols contain components that qualitatively measure
particular stream characteristics and provide useful descriptions of overall site conditions.
These physical characteristics can also be documented during a watershed survey, as dis-
cussed in ^> section 6.5.1. Such parameters include water and sediment odors, water color
and clarity, presence of trash or algae, aesthetic quality of the site, conditions of riparian
areas, adjacent land use activities, and other on-site observations that could indicate stream
degradation.
6.5.7 Watershed Habitat Assessment
In addition to assessing stream habitat quality, you should also assess overall watershed
habitat quality. There are many components of habitat assessment for your watershed. When
looking at your watershed area, you must identify the different types of habitats that compose
it. Are there areas that are part of a larger habitat that spans more than one watershed? What
conditions are key in forming and maintaining the major habitats in your watershed? What is
the optimal patch size (i.e., size of the fragmented habitat) and spacing for each habitat?
Your watershed could contain many small habitats that were once a part of a larger, uninter-
rupted habitat. In many cases, parts of habitat are destroyed by community infrastructure.
Highways and roads might cut areas into many smaller pieces. Residential and commercial
development might have altered the shape of former habitat. When a larger habitat is split by
these kinds of activities, the smaller parts left over can act as biological islands. They are no
longer a fully functioning habitat, but a smaller area where numbers of species can fluctu-
ate depending on changes in the factors that control their colonization and extinction rates.
Though these smaller areas are composed of the same type of habitat as the larger area was,
the smaller size could limit the number of species the area can support.
In some cases, these smaller (fragmented) habitats have been joined to form a wildlife corri-
dor. Corridors encourage more interbreeding and result in healthier, more sustainable popu-
lations. Riparian or streamside buffers can serve as habitat corridors. Knowing where your
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Chapter 6: Identify Data Gaps and Collect Additional Data If Needed
fragmented habitats are can help you decide if forming corridors should be a part of your
management plan. ^ As mentioned in section 5.4.8, The Wildlands Project (www.twp.org) is
a nonprofit organization that is involved in numerous large-scale projects to create corridors
between habitat areas all across the nation. In addition to its Minnesota Ecosystems Recov-
ery Project, the project is extensively involved in the Comprehensive Everglades Restoration
Project in southern Florida. The assessment tools used in those projects might be useful
to you. In addition, the works of Reed F. Noss (^ also mentioned in section 5.4.8) are good
resources for further study of wildlife corridors. A good place to start would be^4 Checklist for
Wildlands Network Design (^> www.twp.org/files/pdf/Noss_consbio_final.pdf).
Your habitat assessment should consider locations of small isolated populations of species
(particularly fish) that use specific critical habitat when there are drought conditions due to
natural variations in climate. These areas of habitat are referred to as refugia.
Your habitat assessment should also consider the hydrological connections within your
watershed. Hydrological connectivity is the process that transfers water, matter, energy, and
organisms both within habitats themselves and between different habitats. Changes in this
connectivity can have devastating consequences both locally and possibly at a larger, more
national scale. For example, a series of dams on a river can result in negative impacts on the
migration and reproduction of anadramous fish. Your watershed could be affected by these
kinds of conditions.
Landscape composition and pattern measures are other tools that can be used to diagnose
ecological and hydrological condition and thus can be used as an effective method for charac-
terizing landscape vulnerability to disturbance associated with human-induced changes and
natural stress, as well as assess watershed habitat quality. In the San Pedro River watershed,
which spans southeastern Arizona and northeastern Mexico, EPA scientists are using a sys-
tem of landscape pattern measurements derived from satellite remote sensing, spatial statis-
tics, process modeling, and geographic information systems technology to develop landscape
composition and pattern indicators to help evaluate watershed condition. One of the tools
that the San Pedro River landscape assessment scientists are using is ATtlLLA, ^ described
in section 6.4.1) to measure and detect landscape change over this broad watershed area of
concern. ^ For more information on the San Pedro River landscape assessment, go to
www.epa.gov/nerlesdl/land-sci/san-pedro.htm). The landscape characterization and change
detection work helped to identify the significant changes that have taken place in the last
quarter century. The information was also used as input variables for hydrologic response
models which demonstrated the affect landscape change has on stream runoff (erosion) and
loss of ground water infiltration. Additionally, the information has been used to model for
potential wildlife habitat and has been preliminary tested for development into a watershed
assessment atlas. The information is also being used by the interagency San Pedro Partner-
ship Committee as the data source for community planning and development decisions rela-
tive to watershed protection and wildlife corridors and thus provides a focus for exchanging
ideas and building consensus on significant environmental issues.
Using an approach that considers green infrastructure2 is also a good way to help assess
watershed habitats. In addition to identifying ways to connect open space areas, this type of
approach also helps to identify riparian and upland habitat as well as habitat restoration and
linking opportunities. In the Beaver Creek watershed in Knox County, Tennessee, the Bea-
ver Creek Task Force and its partners developed the Beaver Creek Green Infrastructure Plan
The term "green infrastructure" is commonly used within the field of watershed management with several variations for its definition. In this example, the Beaver
Creek watershed partners have defined green infrastructure as an interconnected system of natural areas and other open spaces managed for the benefits to both
people and the environment. Seepage 10-4 for a full explanation of how EPA generally defines green infrastructure.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
to help protect and restore naturally functioning ecosystems, propose solutions to improve
water quality, and provide a framework for future development. The entire creek is listed on
the state's list of impaired waters. The Task Force identified and assessed existing habitat
using land cover data from the Tennessee Wildlife Resources Agency. They then ranked and
scored upland and riparian areas based on patch size, connectivity to other habitat patches,
distance to water, and species richness. Using the scores, they evaluated the spatial pattern of
the existing habitat to identify gaps and focus areas for restoration and protection.
In summary, many technical tools are available when undertaking a habitat assessment. Habitat
assessment tools used in state wildlife action plans, GAP and Aquatic GAP (^ discussed in
section 5.4.7), as well as statewide wetland and riparian buffer habitat assessment tools might
be helpful. In addition to field data and observational efforts, modeling and remote sensing
information can also be invaluable. In addition, Wetlands Mapper from the USFWS provides
easy-to-use tools to display, manipulate, and query data so that you can produce your own in-
formation. The Wetlands Mapper is intended to provide a map-like view of wetland habitat data
that has been collected by the USFWS (^> http://wetlandsfws.er.usgs.gov/NWI/index.html).
Another great resource is the USGS's National Biological Information Infrastructure (NBII)
Web site ( ^ http://www.nbii.gov/portal/server.pt). NBII is a program that provides increased
access to data and information on the nation's biological resources.
Benefits of Biological Information
Biological data can be used to track water quality
trends, list and delist waters under section 303(d) of
the Clean Water Act, and assess the effectiveness of
TMDLs.
Biological organisms provide a measure of the com-
bined impact of stressors because they're exposed
to the effects of almost all the different stressors in a
waterbody.
Biological organisms integrate stress over time and
thus are good measures of fluctuating water quality
conditions.
Routine bioassessments can be relatively inexpen-
sive, especially compared to the cost of monitoring
individual toxic pollutants.
6.5.8 Biological Assessment
Biological assessments, or bioassessments, are highly effec-
tive for understanding overall water quality and watershed
health. They consist of surveys and other direct measure-
ments of aquatic life, including macroinvertebrates, fish,
and aquatic vegetation. Changes in the resident biota are
ultimately caused by changes in their surrounding envi-
ronment. Therefore, by determining how well a waterbody
supports aquatic life, bioassessments directly assess the
condition of ecosystem health; that is, when a waterbody's
biology is healthy, the chemical and physical components are
also typically in good condition. To determine impairment
in a waterbody of concern, the structure and function of the
biological assemblages are compared with those of a known
reference assemblage that approximates the undisturbed or
natural condition. The greater the difference between condi-
tions measured, the greater the extent of impairment.
The public views the status of aquatic life as a measure
of a pollution-free environment.
In addition to benefits (see box), biological assessments have
some shortcomings. Natural variability in biological com-
munities is often extremely high, making it difficult to detect
small or gradual changes in response to changes in pollutant loads. Conclusions drawn from
a biological assessment might be somewhat ambiguous: Is a site poor in macroinvertebrate
fauna because of a large sedimentation event, a transient toxic release, or continuously low dis-
solved oxygen? Finally, biomonitoring typically requires a significant investment in time and
specialized skills. It is fairly easy to collect a water sample, submit it to a lab, and wait for the
results; collecting, identifying, and counting benthic invertebrates is a more demanding task.
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Chapter 6: Identify Data Gaps and Collect Additional Data If Needed
Numerous protocols are available for conducting biological assessments. One of the most
accepted and commonly used methods nationwide is EPA's Rapid Bioassessment Protocols
(RBPs) for Use in Wadeable Streams and Rivers (Barbour et al. 1999). This guidance document
outlines the methods and steps required for conducting rapid bioassessments of three differ-
ent assemblages—periphyton, benthic macroinvertebrates, and fish. It also contains useful
information on conducting physical habitat assessments, performing data analysis, and inte-
grating data and reporting. ^ Go to www.epa.gov/owow/monitoring/rbp/download.html to
download a copy of the document. The Izaak Walton League also has materials available to
help with bioassessment, including a bug card, video, and score sheet for rapidly determining
relative water quality. It also conducts training workshops. ^> Go to www.iwla.org/
index.php?id=412 for more information.
Some states, such as Connecticut, have developed and tested streamlined bioassessment
protocols for volunteer monitors. ^> Go to http://www.ct.gov/dep/cwp/
view.asp?a=2719&q=325606&depNav_GID=1654 for more information.
Once you've collected the additional data needed to adequately characterize your watershed,
you'll add the results to your data inventory. You can now move on to the next step.
In chapter 7, you'll analyze the data to determine sources and causes of water quality
impairments.
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Handbook Road Map
1 Introduction
2 Overview of Watershed Planning Process
3 Build Partnerships
4 Define Scope of Watershed Planning Effort
5 Gather Existing Data and Create an Inventory
6 Identify Data Gaps and Collect Additional Data If Needed
— 7 Analyze Data to Characterize the Watershed and Pollutant Sources
8 Estimate Pollutant Loads
9 Set Goals and Identify Load Reductions
10 Identify Possible Management Strategies
11 Evaluate Options and Select Final Management Strategies
12 Design Implementation Program and Assemble Watershed Plan
13 Implement Watershed Plan and Measure Progress
7. Analyze Data to Characterize the
Watershed and Pollutant Sources
Identifying locations of impairments and problems
Determining timing of impairments and problems
Identifying potential sources
Determining areas for quantifying source loads
Read this chapter if...
• You want to satisfy element a of the section 319 guidelines—
identification of causes and sources that need to be controlled
• You want to characterize the general environmental conditions in
your watershed
• You're not sure what types of data analyses you should use
• You want to conduct a visual assessment as part of your data
analysis
• You want to link your analysis results with the causes and
sources of pollutants in the watershed
• You want to identify critical areas in the watershed that will need
management measures to achieve watershed goals
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7.1 Analyze Data to Identify Pollutant Sources
Chapter 5 discussed the first step of the watershed characterization process — identifying and
gathering available data and information to assess the watershed and create a data inventory.
Chapter 6 discussed the next step — conducting a preliminary data review, identifying any
data gaps, and then collecting additional data if needed. All of this information will now be
used in the next step — data analysis to characterize the watershed. This analysis supports
the identification of watershed pollutant sources and causes of impairment, which is essential
to defining watershed management needs. This chapter highlights the types of data analy-
ses commonly used to characterize water quality and waterbody conditions and to identify
watershed sources contributing to impairments and problems.
phase of the watershed planning process should result in the first of the nine ele-
ments that EPA requires in a section 319-funded watershed plan. Element a is "Identification
of causes and sources or groups of similar sources that need to be controlled to achieve load reductions,
and any other goals identified in the watershed plan."
Remember that data gathering and analysis is an ongoing, iterative process. Data examined
in this phase will continue to be used in subsequent activities, such as identifying and evalu-
ating management measures and tracking implementation efforts.
7.1.1 Focus Your Analysis Efforts
©Although many techniques are described in this chapter, you will likely choose only a
selected combination of the techniques in your watershed. The process of conducting data
analyses to characterize your watershed and its pollutant sources begins with broad assess-
ments such as evaluating the averages, minimums, and maximums of measured parameters
at all watershed stations. The analyses are then systematically narrowed, with each step
building on the results of the previous analysis. Through careful analysis you'll obtain a
better understanding of the major pollutant sources, the behavior of the sources, and their
impacts on the waterbodies. An understanding of the watershed conditions and sources is
also the basis for determining the appropriate method for quantifying the pollutant loads.
In addition, the kinds of data analyses you perform will be determined by the amount of
available data. For example, if you have data for several stations in a watershed, you'll be able
to evaluate geographic variations in water quality throughout the watershed — an analysis
you could not do with data for only one station.
Table 7-1 provides examples of data analysis activities and the tools used in various steps of
the watershed planning process. It gives you an idea of how the parameter or analytical tech-
niques might vary depending on where you are in the process and your reasons for analysis.
7.1.2 Use a Combination of Analysis Types
Because data analysis techniques are used to support a variety of goals and involve multiple
types of data, a combination of techniques is usually used. Less-detailed analyses, such as
evaluating summary statistics, might be conducted for certain pollutants, whereas more
detailed analyses might be conducted for others, depending on the goals of the plan and the
pollutants of concern. Data analysis is typically an iterative process that is adapted as results
are interpreted and additional information is gathered.
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Chapter 7: Analyze Data to Characterize the Watershed and Pollutant Sources
Table 7-1. Examples of the Types of Data-related Activities Conducted throughout the Watershed Planning Process
Watershed
Planning Step
Type of Data
Goal of Data Analysis
Example Activity
Characterize
Watershed
Previously conducted
studies (e.g., TMDLs,
305(b) report, USGS
water quality reports,
university studies)
Generally characterize the
watershed and identify the
most important problems for
further analysis.
Review available reports and assessments.
Watershed data (e.g.,
land use, soils, habitat)
Chemical instream data
Biological instream data
Physical data
Habitat data
Perform targeted analysis of
available data to characterize
the waterbody and watershed.
Examples:
• Identify sources
• Characterize the impairment
• Evaluate spatial trends
• Evaluate temporal trends
• Identify data gaps
Compare data to water quality standards to identify
timing and magnitude of impairment.
Review monthly statistics to identify seasonal
variations.
Use GIS at watershed stations to identify spatial
variations in water quality and potential sources of
pollutants.
Set Goals
and Identify
Solutions
Watershed data
(e.g., land use, soils,
population, habitat)
Chemical instream data
Biological instream data
Physical data
Meteorological data
Habitat data
Appropriately represent
watershed and waterbody
in the model for the most
accurate simulation of
watershed loads.
Use data to establish a non-modeling analysis
(e.g., use observed data to establish a spreadsheet
mass balance calculation).
Use data for model setup (e.g., identify appropriate
model parameter values, establish watershed
characteristics such as land use and soils).
Compare observed data to model output for
calibration and validation.
Implement and
Evaluate
Instream monitoring data
for the parameters of
concern (e.g., nutrients)
Evaluate the effectiveness of
management measures and
track the progress of water
quality improvement.
Compare data collected upstream and downstream
of management practices.
Compare data collected before and after
implementation of management practices to track
water quality improvement.
Note: TMDL = Total Maximum Daily Load; USGS = U.S. Geological Survey; GIS = geographic information system.
7.1.3 Consider Geographic Variations
The kinds of analyses and the level of detail used in your data analysis will vary within the
watershed depending on the pollutants of concern. For example, if bacteria loading from
livestock operations is a primary concern in the watershed, detailed land use analysis might
be necessary to identify pasturelands and evalu-
ate proximity to streams and water access for live-
stock, as well as to identify and characterize areas
of cropland that receive manure applications. In
addition, detailed water quality analyses might
be needed for the areas that contain livestock to
evaluate the timing and magnitude of impacts as
related to livestock grazing schedules and access
to waterbodies. For other areas of the watershed,
general water quality characterization will be suffi-
cient, and low-level evaluations of stream character-
istics, watershed soils, and other types of data will
be acceptable given the focus of the data analysis.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
7.1.4 Incorporate Stakeholders' Concerns and Observations
Stakeholder concerns and goals will also help to determine what kinds of analyses are
needed. If the stakeholders and the earlier characterization identified bacteria- and metals-
associated impacts from developed areas as a primary concern, the data analysis will focus
on characterizing those parameters and the locations, types, or timing of pollutant loading
from urban and residential sources in the watershed. If a specific source is expected to be
contributing to water quality problems, more detailed analyses might be conducted on data
collected upstream and downstream of that source, or smaller time scales (e.g., daily concen-
trations) might be evaluated. Data analysis in the remainder of the watershed would be more
coarse, identifying simple summary statistics (e.g., monthly minimum, maximum, aver-
age) sufficient for general characterization of identified subwatersheds. Table 7-2 illustrates
this concept with examples of different levels of effort for the various types of data used in
watershed characterization. Other factors to consider regarding level of detail include relative
costs of remediation, risks to human health and aquatic life, and level of disagreement among
stakeholders—all of which would likely increase the level of detail needed.
Table 7-2. Examples of the Level of Detail and Effort for Typical Types of Data
Type of
Data
Instream
(e.g., water
quality,
flow)
Land use
Soils
Habitat
Increasing level of complexity
Low
Summary statistics
(e.g., minimum,
average, maximum) for
watershed stations
General distribution
of land use types
throughout the
watershed, using
broad categories (e.g.,
agriculture, urban)
General distribution
of soil types based on
available information
General distribution
of habitats based on
available data
Moderate
Spatial analysis of water
quality using instream
water quality data and
GIS coverages
Specific identification
of land use areas by
subwatershed, including
more detailed categories
(e.g., cropland, pasture,
residential, commercial)
GIS analysis of the
locations and types of
soil series
Mapping of critical
habitats and their
buffers
High
Spatial and temporal analysis of multiple
instream parameters and GIS mapping
data (often combined with modeling and
supplemental monitoring)
Statistical analysis of land use areas in
relation to water quality conditions (e.g.,
regression analysis between amount of
impervious area and average flow or water
quality)
Detailed analysis of soil distribution,
including identification of proximity to
streams, erosion potential, and other soil
characteristics affecting soil erosion and
transport
Landscape pattern measurement near
critical habitat areas with GIS modeling
Once the focus of the data analysis has been identified, the relevant data are compiled and
analyses are conducted. The following sections discuss the typical types of data analyses
used to support watershed characterization and the primary data analysis techniques avail-
able to evaluate the watershed and identify causes and sources.
7.2 Analyze Instream and Watershed Data
Data analysis helps to evaluate spatial, temporal, and other identifiable trends and relation-
ships in water quality. Analysis of instream data is needed to identify the location, timing,
or behavior of potential watershed sources and their effect on watershed functions such as
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Chapter 7: Analyze Data to Characterize the Watershed and Pollutant Sources
hydrology, water quality, and aquatic habitat. Analysis of habitat data is needed to identify
areas that need to be restored or protected. You developed a preliminary assessment of the
watershed during the first and second phases of watershed characterization. Now, with
a more comprehensive dataset, you can perform a more detailed and definitive analysis.
One way to organize and focus the data analysis is to consider the specific watershed char-
acteristics and the questions that need to be answered before an appropriate management
strategy can be developed. Use /"Worksheet 7-1 to help determine the types of analyses you
might need to conduct for water quality. Use /'Worksheet 7-2 to help determine the types
of analyses you might need to conduct for habitat assessment and protection. ^> Blank copies
are provided in appendix B.
/"worksheet 7-1 TOK^t TX# /Wl^sis Vo jd& 1\e&d io GondiACi for Tlkter CMtif?
Questions to help determine what kinds of data analyses are needed
Question Section to refer to for assistance
1. Are water quality standards being met? If so, are they maintaining existing levels? 7.2.1 (Confirm Impairments)
7.2.2 (Summary Statistics)
2. Is water quality threatened? 7.2.1 (Confirm Impairments)
7.2.2 (Summary Statistics)
3. Is water quality impaired? 7.2.1 (Confirm Impairments)
7.2.2 (Summary Statistics)
4. Are there known or expected sources causing impairment? 77.2.7 (Visual Assessment)
5. Where do impairments occur? 7.2.3 (Spatial Analysis)
6. When do the impairments occur? Are they affected by seasonal variations? 7.2.4 (Temporal Analysis)
7. Under what conditions (e.g., flow, weather) are the impairments observed? 7.2.4 (Temporal Analysis)
7.2.5 (Other Trends and Patterns)
8. Do multiple impairments (e.g., nutrients and bacteria) coexist? 7.2.5 (Other Trends and Patterns)
9. Are there other impairments that are not measured by water quality standards? 7.2.6 (Stressor Identification)
Questions to answer based on the results of the data analysis:
1. What beneficial uses for the waterbodies are being impaired? What pollutants are impairing them?
2. What are the potential sources, nonpoint and point, that contribute to the impairment?
3. When do sources contribute pollutant loads?
4. How do pollutants enter the waterbody (e.g., runoff, point sources, contaminated ground water, land uses, ineffective point
source treatment, pipe failures)?
5. What characteristics of the waterbody, the watershed, or both could be affecting the impairment (e.g., current or future growth,
increased industrial areas, future NPDES permits, seasonal use of septic systems)?
6. Revisit the conceptual model showing the watershed processes and sources, and revise it if necessary
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
/"worksheet 7-2 TOK^t TXtf /Wsis Vo jd& 1\wd io
1. Where are critical habitats (e.g., headwaters, wetlands, forests, springs and seeps) and their buffers located?
2. What is their conservation status?
3. What is their condition?
4. Are they threatened?
5. Are there opportunities to protect or restore buffers or fill a habitat connectivity gap to reduce fragmentation
and protect source water?
6. How does spatial hierarchy (e.g., site, subwatershed, watershed, basin, and region) factor into habitat
protection and restoration goals?
7. What are the current and future development projections and how will they affect habitats and their buffers?
Typical analyses used to address these questions include statistical analysis, spatial analysis,
temporal analysis, trends and relationships, and flow and load duration curves. It's important
to note that most of the analyses discussed in this section focus on water quality monitoring
data because many watershed goals can be directly or indirectly linked to instream water
quality conditions. In addition, water quality is an indicator of the general watershed condi-
tions and pollutant source types, locations, and behavior. However, you should also broaden
the evaluation of watershed conditions by incorporating additional data types (e.g., land use,
weather, and stream morphology) discussed in ^ chapter 5, as necessary or appropriate for
your watershed. Further, to meet watershed conservation, protection, and restoration goals
and management measures, you should analyze habitat data and use assessment tools to iden-
tify priority habitats and their buffers, their configuration in a watershed, and the key habitat
conditions and habitat-forming processes. A summary of the various types of analyses used
in a watershed characterization is provided below.
7.2.1 Confirm Impairments and Identify Problems
The first step in characterizing your watershed involves understanding the water quality
impairments and designated use impacts occurring in the watershed. The following reports
and databases are available to support this activity:
• 305(b) report (as part of the Integrated Report)—summarizes designated use support
status for waters in the state
• 303(d) lists (as part of the Integrated Report)—identify waters not meeting water
quality standards
• EPA's Assessment Database (ADB)—includes data used in 305(b) and 303(d)
assessments
• TMDL Tracking System (stand-alone or through WATERS)—includes locations of
303(d)-listed waterbodies and provides downloadable geographic information system
(GIS) coverages
Although these references provide the necessary information to identify the types of water
quality problems occurring in your watershed, it's likely that you'll have to analyze the
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Chapter 7: Analyze Data to Characterize the Watershed and Pollutant Sources
available monitoring data yourself to fully characterize and
understand the problems. This analysis typically involves
comparing available monitoring data to water quality stan-
dards, but in a way that goes beyond the assessment already
completed by the state for section 303(d) and 305(b) assess-
ments. When identifying impaired waterbodies for the 303(d)
list, states usually compare available monitoring data to appli-
cable water quality criteria and, on the basis of their listing
guidelines and criteria (e.g., percentage of samples above the
criteria), determine which waters don't meet the criteria. In
evaluating impairments in your watershed, you don't want to
simply duplicate the state's efforts. (§) Instead, use the 305(b)
and 303(d) information to target your analyses—to identify
which waterbodies are impaired or threatened—and begin
your analysis there. (You should also include in your analysis
those waterbodies identified by stakeholders as degraded but
not included in the state assessments.)
EPA's Assessment Database
EPA's new Assessment Database (ADB) application
provides a framework for managing water quality as-
sessment data. The ADB is designed to serve the needs
of states, tribes, and other water quality reporting agen-
cies for a range of water quality programs (e.g., CWA
sections 305(b), 303(d), and 314). The ADB stores
assessment results related to water quality standards
designated use attainment, the pollution associated
with use impairments, and documentation of probable
pollution sources. The ADB can be used to generate
several pre-formatted reports, as well as conventional
data tables and lists. ^ For more information on us-
ing the ADB, go to www.epa.gov/waters/adb. The
most recent EPA Integrated Report guidance includes
an increased emphasis on using the ADB to meet
reporting requirements.
It's a good idea to do a general analysis (e.g., summary
statistics) of all the waterbodies and associated data in your
watershed, but you can focus the more in-depth evaluation of impairment on those water-
bodies known to have problems. To better understand the watershed impairments, you can
analyze the water quality and instream data in a variety of ways. The first likely analysis is
simply the magnitude of the impairment—how bad is the problem? Identifying the per-
centage of samples that violate standards provides insight into the level of impairment in
the watershed, or at a particular location. Using a graphical display of water quality data
compared to applicable criteria is also an easy way to generally illustrate the frequency and
magnitude of standards violations, as shown in figure 7-1. A temporal analysis of water qual-
ity versus standards can be used to identify
the times of year, season, month, and even
day when the impairment is occurring or
is the worst. Temporal and other analyses
are discussed further in this section. These
analyses are used to understand the general
watershed conditions and to support iden-
tification of pollutant sources, but they also
provide information specific to the distribu-
tion, timing, and magnitude of water quality
impairment.
Observed Aluminum Vs. Water Quality Stand:
100 ;i
<>00 0
^Aluminum
•Chronic Criterion
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
More on Statistics
This section discusses the typical types of data analyses used to support watershed characterization and identification
of pollutant sources. Each analysis can be conducted with varying degrees of detail and complexity. In addition, it might
be useful to perform more detailed statistical tests. For example, a Mann-Kendall test can be applied to long-term
datasets to indicate whether there is a statistically significant increasing or decreasing trend in the water quality data.
Available references with information on statistical analysis of environmental data include
Helsel, D.R., and R.M. Hirsch. 2002. Statistical Methods in Water Resources. Chapter A3 in Book 4, Hydrologic Analysis
and Interpretation, of Techniques of Water-Resources Investigations of the United States Geological Survey.
^ http://water.usgs.gov/pubs/twri/twri4a3
NRCS (Natural Resources Conservation Service). 1997. National Handbook of Water Quality Monitoring.
450-vi-NHWQM. National Water and Climate Center, Portland, Oregon.
mum), central tendency (e.g., mean, median), and variability (standard deviation, coefficient
of variation). Figure 7-2 defines many of the commonly used statistical terms. Summary
statistics should be computed for all stations and relevant data (e.g., pollutants of concern) as
one of the first steps in your data analysis. Microsoft Excel and other spreadsheet programs
make developing summary statistics simple. The program can automatically calculate any of
the statistical functions based on the dataset. In addition, you can create Pivot tables in Excel
that calculate several statistical functions for any combination of the data at once (e.g., by
pollutant by station). It is useful to also calculate the number or percentage of samples violat-
ing water quality criteria to include in your summary statistics for each station.
Measures of Range: Identify the span of the data from low to high.
Minimum: The lowest data value recorded during the period of record.
Maximum: The highest data value recorded during the period of record.
Measures of Central Tendency: Identify the general center of a dataset.
Mean: The sum of all data values divided by the sample size (number of samples). Strongly influenced by outlier samples (i.e.,
samples of extreme highs or lows); one outlier sample can shift the mean significantly higher or lower.
Median (P050): The 50th percentile data point; the central value of the dataset when ranked in order of magnitude. The median is
more resistant to outliers than the mean and is only minimally affected by individual observations.
Measures of Spread: Measure the variability of the dataset.
Sample variance (s2) and its square root, standard deviation (s): The most common measures of the spread (dispersion) of a
set of data. These statistics are computed using the squares of the difference between each data value and the mean, and therefore
outliers influence their magnitudes dramatically. In datasets with major outliers, the variance and standard deviation might suggest
much greater spread than exists for most of the data.
Interquartile range (IQR): The difference between the 25th and 75th percentile of the data. Because the IQR measures the range of
the central 50 percent of the data and is not influenced by the 25 percent on either end, it is less sensitive to extremes or outliers
than the sample variance and standard deviation.
Measures of Skewness: Measures whether a dataset is asymmetric around the mean or median and suggests how far the distribution
of the data differs from a normal distribution.
Coefficient of skewness (g): Most commonly used measure of skewness. Influenced by the presence of outliers because it is
calculated using the mean and standard deviation.
Quartile skew coefficient (qs): Measures the difference in distances of the upper and lower quartiles (upper and lower 25
percent of data) from the median. More resistant to outliers because, like the IQR, uses the central 50 percent of the data.
Figure 7-2. Commonly Used Summary Statistics
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Chapter 7: Analyze Data to Characterize the Watershed and Pollutant Sources
7.2.3 Spatial Analysis
If evaluation of the summary statistics for the water quality stations in your watershed indi-
cates noticeable differences in water quality throughout the watershed, you should do a more
focused analysis of spatial variation in water quality and other waterbody monitoring data.
Spatial analysis of available waterbody data can be useful to
• Determine the general distribution of water quality or habitat conditions
• Identify the locations of areas of concern or potential major sources
• Determine the impact of a specific source
• Identify the effect of a management practice or control effort
The spatial distribution of water quality conditions in the watershed might indicate the
location of "hot spots" and sources potentially affecting impairment. Spatial analysis of data
is also useful in evaluating the potential impacts of specific sources, when sufficient data
are available. Evaluating the difference in paired observations from stations upstream and
downstream of a potential source can indicate the impact of the source on instream condi-
tions. Similar data analysis can be conducted on data available upstream and downstream of
a management practice to evaluate the effectiveness of the management practice in reducing
pollutant loads to the waterbody.
Simply reviewing a table of summary statistics for each station in the watershed can
identify areas of varying water quality. When dealing with a large watershed with multiple
stations, however, a GIS can be used to effectively present and evaluate spatial variations
in water quality conditions, as shown in the example map in
figure 7-3. Presenting water quality summaries by station
throughout a watershed in GIS also allows for identifica-
tion of corresponding watershed conditions or sources
that might be causing the spatial variations, such as
land use distribution and location of point sources.
This information is important for identifying the
potential sources that might be causing the watershed
problems and impairments.
Even if sufficient monitoring data are not available to
adequately evaluate spatial variation in water quality,
you should still evaluate other available watershed data
to understand the spatial distribution of characteristics
that are likely influencing waterbody conditions, such
as land use, soils, and location of permitted sources. GIS
is a very useful tool for displaying and evaluating these
kinds of data.
998-2013
Figure 7-3. Example Map of Average Total Dissolved
Solids Concentration Throughout a Watershed
7.2.4 Temporal Analysis
Another important analysis is the evaluation of temporal trends in water quality conditions.
Evaluating temporal patterns can assist in identifying potential sources in the watershed,
seasonal variations, and declining or improving water quality trends. Temporal analyses can
include long-term trend analysis to identify generally increasing or decreasing trends in data
and more focused analysis of monthly, seasonal, and even daily and hourly variations.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
25th-75th Percentile •Mean, Min, Max Median -Not-To-Exceed Standard
100,000
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Figure 7-4. Example Graph of Monthly Statistics for Fecal
Coliform Bacteria
Degraded water quality during certain months
or seasons can indicate the occurrence of a
source that is active only during those times.
For example, elevated concentrations of nutri-
ents or bacteria during the summer months
(figure 7-4) might indicate increased source
activity, such as livestock grazing, during
those months. It might also indicate a need
for further analysis of other watershed condi-
tions (e.g., weather, flow) that can exacerbate
the impairment during the summer months.
For example, warmer temperatures during the
summer might increase the productivity of
algae, leading to greater decreases in dissolved
oxygen.
7.2.5 Other Trends or Patterns
It is often beneficial to evaluate relationships and trends in the available data other than
spatial and temporal trends. Important examples include
• Evaluating the relationship between flow and instream water quality (^> see chapter 5
for data sources)
• Documenting the relationship between related pollutants
• Evaluating the relationship of instream conditions to other watershed factors (e.g.,
land use, source activity)
Flow Versus Water Quality
An identifiable relationship between flow and instream water quality concentrations can
indicate what types of pollutant sources dominate the instream impairment and can help to
identify critical conditions surrounding the impairment. For example, runoff-driven non-
point sources typically dominate instream water quality conditions during periods of high
flow resulting from rainfall/runoff events, whereas point
sources that provide relatively constant discharges to receiv-
ing waters usually dominate water quality during low flow,
when there is less water to dilute effluent inputs.
Using Duration Curves to Connect the
Pieces
America's Clean Water Foundation published an article
discussing duration curves and their use in developing
TMDLs (Cleland 2002). The duration curves act as an
indicator of relevant watershed processes affecting
impairment, important contributing areas, and key
delivery mechanisms. ^ To read the full article and
get more information on the use of duration curves to
diagnose seasonal impacts and potential sources, go to
www.tmdls.net/tipstools/docs/BottomUp.pdf
There are several options for evaluating the relationship
between flow and a water quality parameter, including
visually evaluating time series data, developing a regression
plot, calculating flow-weighted averages, evaluating monthly
averages, and developing a flow duration curve.
A flow duration curve can be a useful diagnostic tool for
evaluating critical conditions for watershed problems and
the types of sources that could be influencing waterbody
conditions. Flow duration curves graph flows based on their occurrence over the period of
record. Flows are ordered according to magnitude, and then a percent frequency is assigned
to each, representing the percentage of flows that are less than that flow. For example, a flow
percentile of zero corresponds to the lowest flow, which exceeds none of the flows in that
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Chapter 7: Analyze Data to Characterize the Watershed and Pollutant Sources
record. The percentage of 100 corresponds to the highest flow, which exceeds all the flows in
that record. The flow duration is often plotted with corresponding pollutant concentrations
to evaluate the relationship between water quality and flow. To do this, you should isolate
matching flow and water quality and plot the flow and concentration data as a function of
flow percentile.
A variation of the flow duration curve is the load duration curve, which plots observed pollut-
ant loads as a function of flow percentile. Matching water quality and flow (measured on the
same day) are used to calculate observed loads, by multiplying flow by pollutant concentration
and an appropriate conversion factor. The loads are then plotted along with the flow in order
of flow percentile. The load duration curve provides information on when loading occurs.
As shown in the example load duration curve
(figure 7-5), the total dissolved solids (TDS)
concentrations tend to follow a pattern similar
to the flow, with lower concentrations occurring
during lower flows and elevated concentrations
during higher flows. This indicates that surface
runoff (nonpoint source runoff or stormwater
discharges) is likely the source of elevated TDS
rather than point source discharges. The flow
duration method does not allow you to identify
specific sources (e.g., residential versus agri-
cultural), but it provides useful information
on the conditions under which problems occur
and the general types of sources affecting the
waterbody.
30%
40%
50%
sa%
70%
80%
Observed Flow Percenflles at USGS Gage 9413000
— Allowable TDS Load (kg/day) at USGS Gage 9413000
n Observed Flow Percentiles at USGS Gage 9413000
Figure 7-5. Example Load Duration Curve
Relationships between Pollutants
It's also important to evaluate the correlation of instream concentrations (and loading)
of pollutants of concern to other parameters that represent the same impairment or are
likely being contributed by similar sources. For example, metals often attach to sediments,
resulting in increased metals loading during times of high sediment erosion and runoff.
Establishing a correlation between instream sediment and metal concentrations can indicate
that metals loading in the watershed is sediment-related. Understanding these relationships
will be important when establishing load reductions and selecting appropriate management
activities.
Using the Correlation of Phosphorus, pH, and Chlorophyll a to Understand Instream
Conditions and Focus Management Efforts
The Vandalia Lake, Illinois, TMDL establishes load reduction goals for total phosphorus to address impairments from
both phosphorus and pH. Fluctuations in pH can be correlated to photosynthesis from algae. Chlorophyll a indicates the
presence of excessive algal or aquatic plant growth, which is a typical response to excess phosphorus loading. Reducing
total phosphorus is expected to reduce algal growth, thus resulting in attainment of the pH standard. Available monitor-
ing data for the lake were used to evaluate the relationship between pH, chlorophyll a, and total phosphorus. The general
relationships suggested that controlling total phosphorus will decrease chlorophyll a concentrations, which will in turn
reduce pH into the range required for compliance with water quality standards. ^ For more information, go to
www.epa.state.il.us/water/tmdl/report/vandalia/vandalia.pdf
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Waterbody Conditions Versus Watershed Characteristics
Evaluating relationships between instream conditions and watershed features or conditions
will also facilitate identifying sources and establishing successful management goals and
focused implementation efforts. For example, performing statistical analyses on instream
data and watershed features, such as weather patterns, land use (e.g., percent impervious,
area of urban), or soils (e.g., erodibility), can establish a quantitative link between watershed
conditions and the resulting instream conditions. It might also be appropriate to divide data
into separate datasets representing certain time periods or conditions for evaluation (e.g.,
storm event versus base flow, irrigation season, grazing season).
I Detect or Suspect Biological Impairment
I
Stressor Identification
LIST CANDIDATE CAUSES
4J^
ANALYZE CAUSES
CHARAC
BJMNATE
^^t
FERIZE CAUSES
WMB
nauiuuuse
STB9J6TH
OFEV]fie«E
MANAGEMENT ACTION:
Eliminate or Control Causes;
Monitor Results
7.2.6 Stressor Identification
When waterbodies experience biological
impairment due to unknown causes, stressor
identification is used to identify the most likely
causes of the impairment (figure 7-6). This
formal method of causal evaluation can be used
in a number of ways:
• To increase confidence that costly
remedial or restoration efforts are
targeted at factors that can truly improve
biological condition
• To identify causal relationships that are
otherwise not immediately apparent
• To prevent biases or lapses of logic that
might not be apparent until a formal
method is applied
| Biological Condition Restored or Protected |
Figure 7-6. Stressor Identification Process
v For a detailed description of the stressor
identification process, see EPA's Stressor
Identification Guidance Document (USEPA
2000b; www.epa.gov/waterscience/biocriteria/
stressors/stressorid.html). In addition, two
stressor identification modules originally
developed as part of EPA's 2003 National Biocriteria Workshop are available online. ^ The
SI 101 course contains several presentations on the principles of the stressor identification
process: www.epa.gov/waterscience/biocriteria/modules/#sil01.
EPA recently released the Causal Analysis/Diagnosis Decision Information System (CAD-
DIS) to support determination of causes of biological impairment. CADDIS is an online tool
that helps investigators in the regions, states, and tribes to find, access, organize, use, and
share information to produce causal evaluations of aquatic systems. It is based on the EPA's
stressor identification process. Current features of CADDIS include
• Step-by-step guide to conducting a causal analysis
• Downloadable worksheets and examples
• Library of conceptual models
• Links to helpful information
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Chapter 7: Analyze Data to Characterize the Watershed and Pollutant Sources
^> Go to the CADDIS Web site at http://cfpub.epa.gov/caddis/home.cfm to access CADDIS
and obtain more information.
Ecological Risk Assessment
EPA has developed a wide range of tools that consider place-based, multimedia approaches to
environmental management. Watershed ecological risk assessments provide resource managers
with predictions of what ecological changes will occur from the stressors associated with existing
conditions and alternative management decisions. ^ For more information, go to
www.epa.gov/waterscience/biocriteria/watershed/waterrisk.html
7.2.7 Visual Assessments and Local Knowledge
It's important to remember that monitoring and GIS data can provide only a representation
of your watershed. Depending on the frequency of monitoring, the data might not reflect
chronic conditions but rather provide a snapshot of conditions unique to the time of sam-
pling, especially when dealing with parameters that are highly variable and sensitive to local-
ized impacts (e.g., bacteria counts). To make the most of your data analysis, it's important
to analyze the data with an understanding of the real world. Use the data analysis to sup-
port what you already know about the watershed from the people that live and work there.
^ As discussed in sections 4.3.2 and 6.5.1, visual assessments (e.g., streamwalks, windshield
surveys) are useful for identifying and connecting potential sources of impairment and
watershed conditions and should be used to guide and support data analysis for identifying
watershed sources. In watersheds with limited monitoring data, visual assessments are espe-
cially important, providing the basis for source identification.
Not only are visual assessments useful for identifying potential pollutant sources and areas
on which to focus your data analysis, but they can also answer questions raised by your data
analysis. For example, if your data analysis shows a dramatic decrease in water quality in a
portion of your watershed, but the land use and other watershed coverages don't indicate any
major sources in that area, it's a good idea to walk the stream or drive through the area to
identify any possible reasons for the change. For example,
your data might indicate sharp increases in sediment mea- Examples of Sources You Might Miss
sures (e.g., turbidity, total suspended solids) between two without a Watershed Tour
monitoring stations. However, reviewing the land use maps * Streambank erosion
does not suggest any activities that would account for such . pjpe outfalls
a dramatic increase. When you drive through the water- . Uvestock (near or wi(h access (o s(reams)
shed, you might find a source that you would never know ,,,., „., , , , , .
, ., . , , 11- * Wildlife e.g., waterfowl populations on lakes and
about without surveying the area, such as a severely eroding Q s^ams)
Streambank or livestock or wildlife watering in the stream
and causing resuspension of streambed sediments.
In addition to visual inspection of the watershed, local knowledge and anecdotal information
from stakeholders are often very important to successfully analyzing and interpreting
your watershed data. They, too, can provide useful insight to support or guide data
analysis, especially if they provide historical information that would not be identified
through a present-day visual assessment. A data analysis conducted for Lake Creek, Idaho,
provides an example of stakeholder anecdotal information's being crucial to identifying
a watershed source. The data analysis indicated an unexplained increase in turbidity and
sediment between two stations in the stream (figure 7-7). Discussing the data analyses with
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
stakeholders allowed TMDL developers to understand that the increase was the result of
localized logging that had occurred near the stream several years earlier. Knowing that
the logging had occurred explained why the turbidity levels had dramatically and quickly
increased at the downstream station and were now still recovering. Without this knowledge,
the TMDL might have inappropriately targeted areas that were not affecting the stream.
10000 T-
. Upstream • Downstream
Figure 7-7. Long-term Turbidity Levels at Two Stations in Lake Creek, Idaho
7.3 Evaluate Data Analysis Results to Identify Causes and
Sources
Together with the input from stakeholders and your local knowledge of the watershed, ana-
lyzing your data should lead you to an understanding of where and when problems occur in
your watershed and what could be causing the problems. Ideally the data analysis phase will
progress in such a manner that each analysis leads to greater understanding of the problems,
causes, and sources. Suppose, for example, that you started your analysis with a calculation of
summary statistics for bacteria at all the stations in your watershed. In doing so, you noticed
that stations in the upstream portion of the watershed had higher averages, maximums, and
minimums than the rest of the watershed. Focusing on those stations, you began to evaluate
temporal variations, noting that bacteria levels were consistently higher during the spring
and summer. From there you began to look at other factors that might change seasonally,
including weather, flow, and surrounding land activities. You discovered that although rain-
fall and flow are higher during the spring, possibly delivering higher bacteria loads, they are
lower during the summer. Also, rainfall and flow are higher throughout the watershed, not
in only this "problem area." So, what else might be causing the higher levels during those
two seasons? By evaluating land use data for the surrounding area, you realize there are some
concentrated pockets of agricultural land in the area. After talking to stakeholders and driv-
ing the watershed, you identify several acres of pastureland used for horse and cattle grazing
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Chapter 7: Analyze Data to Characterize the Watershed and Pollutant Sources
Watershed Assessment of River Stability and Sediment Supply
EPA provided support for the development of a three-phase technical framework of methods for assessing suspended and bedload sediment
in rivers and streams. The Watershed Assessment of River Stability and Sediment Supply (WARSSS) tool focuses on natural variability in
sediment dynamics, geologic versus anthropogenic sediment sources, erosional and depositional processes, prediction of sediment loads,
streamflow changes, and stream channel stability and departure from reference conditions. WARSSS was developed by Dr. David L. Rosgen
to help watershed managers analyze known or suspected sediment problems, develop sediment remediation and management components of
watershed plans, and develop sediment TMDLs, and for other uses. This Web-based assessment tool was designed for scientists that need to
assess sediment-impaired waters in planning for their restoration. **> For more information, go to www.epa.gov/warsss/.
during the spring and summer. Much of the pastureland is in close proximity to the streams
with elevated observed bacteria, and in some of the pastures animals have direct access to the
streams. Such a combination of focused data analyses, visual assessments, and local knowl-
edge is critical to identifying and understanding watershed sources.
In addition, the data analysis will identify on which sources you'll need to focus during the
loading analysis discussed in chapter 8. Some sources will be expected to have a greater
impact on watershed problems than others and might require more detailed analysis. For
example, if runoff from developed areas is expected to be the primary cause of elevated met-
als in watershed streams, it might not be necessary to evaluate subcategories of agricultural
or other undeveloped lands in the loading analysis. You can likely group those land uses or
sources and focus on the developed areas, possibly even breaking them into more detailed
categories (e.g., suburban, commercial).
7.3.1 Grouping Sources for Further Assessment
Once you understand the potential causes and sources of the watershed problems, you should
decide at what level you want to characterize those sources. The next step of the process is to
quantify the watershed sources—to estimate the pollutant loads contributed by the sources
(chapter 8). Therefore, you should identify the sources you want to quantify. The level of detail
in estimating the source loads can vary widely and will depend largely on the results of your
data analysis. The analysis should give you an understand-
ing of the sources that are affecting watershed and waterbody Example Categories for Grouping Pollutant
conditions, providing a guide for which sources need to be Sources
controlled. Therefore, it's important to identify sources at a . Source type (e.g., nonpoint, point)
level that will result in effective control and improvement. . Loca(ion (e g subwatershed)
For example, if you have identified specific pastures in one
c i i j j • • i i -11- * Land use type
portion of the watershed as dominating the bacteria levels in
your watershed during the summer, it would not be appro- * Source ^havior (e.g., direct discharge, runoff,
priate to quantify agricultural or even pasture
an annual gross load for the entire watershed.
priate to quantify agricultural or even pastureland sources as seasona ac ivi IBS)
To facilitate estimation of source loads, and later source control, sources should be grouped
into logical categories that help to prioritize and address certain pollutants, sources, or loca-
tions for more efficient and effective management. Consider the following factors and methods
when grouping sources for assessment. You can combine many of the methods to create vari-
ous groupings and layers of sources, relevant to the needs and priorities of the watershed plan.
Nonpoint Source Versus Point Source
Although watershed plans typically focus on nonpoint sources, they should consider and
integrate point sources for effective watershed protection. You should separate nonpoint
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
sources from point sources for assessment for both technical and programmatic reasons.
Nonpoint and point sources typically behave differently and affect the receiving waters
under different conditions. For example, nonpoint sources usually contribute pollutant loads
that are washed off and transported during precipitation events, affecting waterbody condi-
tions during times of higher surface runoff and, therefore, higher flow. Point sources usually
discharge constant loads to receiving waters, affecting waterbody conditions during times of
low flow when there is less water to dilute incoming effluents. Not only do point and non-
point sources behave and affect waterbodies differently, but their management and control
mechanisms are also different. Grouping them separately when considering future imple-
mentation of control measures is logical.
Spatial Distribution and Location
Grouping sources by location facilitates their
assessment by dividing the area of concern into smaller,
more focused areas, and it often supports future
implementation. Spatially grouping sources helps to
identify priority regions or locations that should be
targeted for control. The method of grouping sources
typically involves creating subwatersheds within the larger
watershed of concern and also prioritizing sources within the
subwatershed by some other methodology (e.g., proximity to a
stream, land use).
Land Use Distribution
Sources are often specific to certain land uses, making it logical to group them by land use.
For example, sources of nutrients such as livestock grazing and fertilizer application, which
occur in conjunction with agricultural land use, would not likely contribute the same loads
as other land uses such as urban or forest uses. Likewise, urban land uses typically have a set
of pollutants of concern (e.g., metals, oil, sediment) different from those of rural land uses
based on the active sources. Although it is difficult to isolate inputs from individual sources
within a land use, assessing them as land use inputs can still support evaluation of loading
and identification of future controls. Sources can be grouped and characterized by land use
at a large scale, such as all agricultural lands, or at a very detailed level, such as specific crop
type. In some cases, subcategories of nonpoint sources should be used to estimate the source
contribution. For example, a land use like agriculture would often be further broken down
into grazing or cropland, allowing a more accurate estimate of the sources coming from
each subcategory and the ability to choose the most effective management practices for each
subcategory.
Grouping sources according to their land use also facilitates identification of future imple-
mentation efforts because certain management practices are most effective when applied to a
certain land use.
Delivery Pathway and Behavior
Nonpoint sources, depending on their behavior, can contribute pollutants to receiving waters
through different delivery pathways. The nature of the delivery might support separate
assessment of the source. For example, grazing cattle might be treated as a separate source
depending on the activity or location of the cattle. Livestock on rangeland can contribute
pollutants to the land that are picked up in runoff, whereas livestock in streams deposit
nutrient and bacteria loads directly to the streams. Different methods might be required to
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Chapter 7: Analyze Data to Characterize the Watershed and Pollutant Sources
evaluate the effect of each group on waterbody conditions. Another example is failing septic
systems that might be contributing pollutant loads to waterbodies. Because loads from the
septic systems can be delivered through ground water and also through surface breakouts,
you might decide to conduct separate analyses to estimate their loads.
Other Factors
Additional factors that can influence the grouping of sources include the following:
• Social and economic factors. Certain sources and their impact might be of higher pri-
ority to the affected public because they are more visible than other sources or because
they could have negative impacts on the local economy. Public buy-in and priorities can
influence the evaluation and grouping of sources, as well as subsequent source control.
• Political jurisdictions. Because source control can ultimately fall to different jurisdic-
tions (e.g., counties), it might be necessary to evaluate sources based in part on juris-
dictional boundaries. In some cases, the sources might even be subject to different
laws and control options, depending on where they're located.
7.3.2 Time Frame for Source Assessment
Another important consideration when deciding how to quantify your sources is the time
frame you want to capture. Your data analysis should provide insight into the timing of
watershed problems and, therefore, into the temporal scale you need to evaluate sources. For
example, instream dissolved oxygen might decrease only during summer months because of
increased nutrient loading, higher temperatures, and lower flows. Therefore, it will be impor-
tant to characterize and quantify sources on a time scale that allows for evaluation during the
summer months. It would not be appropriate to evaluate annual loading for a problem that
occurs only during the summer.
7.4 Summarize Causes and Sources
WOn the basis of your data analysis, you should now be able to identify the key sources
you will quantify in the next step of the watershed planning process (elements a and b). You
should identify the source type, locations, and timing for load estimation (^> chapter 8). It
might be helpful to identify the areas for evaluation on a watershed map to determine the
key locations for conducting the loading analysis and which sources will be included in the
analysis. You should also develop a brief report summarizing your data analyses and their
results and describing the watershed sources, including their location, associated pollutants,
timing, and impact on the waterbody.
^^In identifying your sources and grouping them for load estimation, you'll also begin to
identify the critical areas needed for implementing management measures, as required as
element c of the nine minimum elements. Element c is "A description of the nonpoint source
management measures that will need to be implemented to achieve load reductions and a description
of the critical areas in which those measures will be needed to implement this plan." At this step,
you have identified the recommended source groupings and priorities and you'll continue
to refine the groupings as you conduct your loading analysis (^> chapter 8) and target your
management measures (^ chapters 10 and 11). You'll identify the final critical areas when
you select the management strategies for implementing your plan (^> chapter 11), but the
sources and associated groupings and characteristics you have identified at this stage will
provide the basis and groundwork for identifying those critical areas.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Handbook Road Map
1 Introduction
2 Overview of Watershed Planning Process
3 Build Partnerships
4 Define Scope of Watershed Planning Effort
5 Gather Existing Data and Create an Inventory
6 Identify Data Gaps and Collect Additional Data If Needed
7 Analyze Data to Characterize the Watershed and Pollutant Sources
— 8 Estimate Pollutant Loads
9 Set Goals and Identify Load Reductions
10 Identify Possible Management Strategies
11 Evaluate Options and Select Final Management Strategies
12 Design Implementation Program and Assemble Watershed Plan
13 Implement Watershed Plan and Measure Progress
8. Estimate Pollutant Loads
Load estimation techniques
Using models to estimate loads
Available models
Model selection
Model application techniques
Presenting pollutant loads
Read this chapter if...
• You're not sure how to estimate pollutant loads from your watershed
sources
• You want information on simple or more detailed approaches for
estimating loads
• You want to select a watershed model that's right for your watershed and
needs
• You want information on the various watershed models available and
their capabilities
• You want to review the typical steps used in applying watershed models
to estimate pollutant loads and evaluate source contributions
• You want some ideas on how to organize the results of your load
estimation analysis and present pollutant loads
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
8.1 How Do I Estimate Pollutant Loads?
Early in the watershed characterization process, you identified and gathered available data
and information to assess the watershed and created a data inventory. Then you conducted a
preliminary data review, identified gaps, and collected additional data if needed. ^> Finally,
you analyzed the data to characterize the waterbody conditions and identify causes and
sources, using the techniques discussed in chapter 7. Your next step is to estimate pollutant
loads from watershed sources to target future management efforts. This step is essential to
eventually satisfy element b (i.e., necessary load reductions) of the nine minimum elements.
(^ Identifying load reductions is discussed in chapter 9.) This element is the component most
often missing from current and past watershed plans, although it is one of the most important.
Without knowing where the pollutants are coming from, you can't effectively control them
and restore and protect your watershed. The loading analysis provides a more specific numeric
estimate of loads from the various sources in the watershed. By estimating source loads,
you can evaluate the relative magnitude of sources, the location of sources, and the timing
of source loading. The loading analysis can help you plan restoration strategies, target load
reduction efforts, and project future loads under new conditions. This chapter discusses the
analysis and modeling techniques commonly used to estimate or to quantify pollutant loads.
Can TMDLs Be a Source of Loading
Information?
As part of developing a Total Maximum Daily Load
(TMDL), loading estimates are typically developed
for point and nonpoint sources for the pollutants of
concern. Remember that TMDLs are developed for
specific pollutants, so they might not include all the
pollutants that the watershed plan considers. TMDL
documents, including the report, supporting modeling
studies, and model input files, are typically available
from the state or EPA. In these materials are estimates
of existing loads, allowable loads (that meet water
quality standards), and the load estimates for point
sources (wasteload allocations) and nonpoint sources
(load allocations). The load estimates are specified
by categories of sources, such as generalized land
use types (e.g., pasture). A TMDL can be an excellent
source of loading estimates that is well documented
and available. If you're using a TMDL, consider its
age and recognize that some changes might have
occurred since the original analyses. Some areas
might have new management activities that have
reduced or changed loading. Other areas might have
significant land use changes or development that could
change estimates. In addition, TMDL analyses do not
require implementation plans, so specific estimates of
management techniques and their effectiveness are not
necessarily included. Some additional or supplemental
analysis is likely to be needed to estimate how the
potential load reductions will be achieved.
An understanding of the watershed, built throughout the
watershed planning process, is used as the basis for deter-
mining the appropriate method for quantifying the pollut-
ant loads. You can use various approaches to do the loading
analysis, and which one is right for you depends on several
factors, including water quality parameters, time scale,
source types, data needs, and user experience. Some load-
ing analyses are focused on determining "how much" load
is acceptable, whereas others focus on "source loads" that
attribute loading to each category of sources in the water-
shed. For watershed planning purposes, source load esti-
mates are desirable because the information can be used to
support management planning and targeting of restoration
resources. In general, the approach you choose should be the
simplest approach that meets your needs.
Sometimes loading estimates have already been developed
for watersheds. Check whether a previous study is avail-
able—a Total Maximum Daily Load (TMDL), Clean Lakes
study, or other watershed-based program that might have
required development of loading estimates. Such studies can
often be used to provide loading estimates appropriate for
developing the watershed plan.
Stakeholders have an interest in the analysis and model-
ing techniques used to support decisionmaking. Engaging
stakeholders in evaluating and selecting analysis techniques
can support more informed decisionmaking and buy-in
for the approaches selected. However, the more complex
techniques and modeling tools can be difficult to describe,
review, and interpret. One consideration in selecting models
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Chapter 8: Estimate Pollutant Loads
is the transparency of results to the affected community. Even the most complex models can
be effectively described and reviewed through public meetings, workshops, and technical
transfer opportunities. However, simplified approaches, when sufficient for addressing the
watershed concerns, can be more easily interpreted and adopted by the community.
Although approaches have different features, their application is typically best suited to
many generalized watershed studies. Some of the more typical model selections are shown in
table 8-1, although you should recognize that site-specific conditions might vary signifi-
cantly. In each example the models are listed in order of complexity, simplest first. All of
these approaches are discussed in this chapter.
Table 8-1. Example Approaches Used for Estimating Watershed Loads
Land Use
Agricultural
Agricultural
Agricultural
Mixed Use
Mixed Use
Urban
Sources/Concerns
Grazing
Livestock and wildlife sources
Cropland management
Conservation tillage
Stormwater management
Agriculture
Residential
Stormwater management
Agricultural
Stormwater management
Land use conversion
Redevelopment
Pollutants
Nutrients and
sediment
Nutrients
Nutrients and
pathogens
Sediment and
nutrients
Pathogens
Sediment, nutrients,
and metals
Models
GWLF
AGNPS
SWAT
Spreadsheet estimation
STEPL
SWAT
HSPF
AGNPS
SWAT
P8-UCM
SWMM
HSPF
Spreadsheet estimation
HSPF
P8-UCM
SWMM
HSPF
Two general types of techniques for estimating pollutant loads are described in the follow-
ing sections. First, techniques that directly estimate loads from monitoring data or literature
values are discussed. These techniques are best suited to conditions where fairly detailed
monitoring and flow gauging are available and the major interest is in total loads from a
watershed. Second, watershed modeling techniques are described, including considerations
in selecting models, available models, and the steps involved in applications. A wide range of
models that can provide loads by sources, help predict future conditions, and evaluate mul-
tiple management practices are discussed.
8.2 Using Monitoring Data or Literature Values to Estimate
Pollutant Loads
Commonly used approaches for estimating pollutant loads in watersheds involve using
instream monitoring data or literature values (e.g., land use loading rates). These simple
approaches can vary in detail or scope depending on the needs of the analysis and the avail-
able data. In most cases, they provide a coarse estimate of the pollutant loads entering a
waterbody, without great detail on the contributing source or areas of concern. This section
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
provides some examples of simple load estimation methods using available monitoring data
and literature values.
8.2.1 Using Monitoring Data to Estimate Loads
Monitoring data can be used to directly estimate the pollutant loading entering a waterbody.
Because the monitoring data represent instream conditions, the resulting estimate represents
the total loading from a watershed upstream of the monitoring point. This type of estimate
does not attribute loads to particular sources or areas. This generalized loading can help to
evaluate downstream impacts, can be used to calculate a per acre loading, and can be used
for comparing local loadings with those of other areas. This loading estimate is also based on
historical conditions because it is directly estimated from monitoring data. It cannot be used
to directly predict how loadings might change in the future.
Monitoring data typically include periodic samples of water quality concentrations of pollut-
ants and flow gauging. Flow multiplied by concentration can be used to calculate the load for
a specific period. However, water quality sampling is not continuous; it is normally done peri-
odically (e.g., weekly, monthly). Load duration curves are a common approach to using spo-
radic flow and water quality data to estimate the average total loading at watershed monitoring
stations (^> see section 7.2.5). In addition, various statistical techniques have been developed
to estimate loading from periodic sampling and flow gauging data. These techniques build
relationships between flow and concentration to help predict or estimate loading during time
periods when there is no sampling. Flow gauging information is more likely to be available on
a daily basis than the more expensive water quality sampling and laboratory analysis.
The major limitation of these approaches is the aggregate nature of the loading estimate. You
can use statistical load estimation techniques to directly estimate loadings from a drainage
area or watershed for which monitoring data are available, but this method is not applicable
for estimating individual source loading or predicting future changes in loading. If you have
a robust dataset throughout the watershed and can apply the load estimation at key areas
(e.g., upstream and downstream of suspected sources), you can potentially evaluate the rela-
tive magnitude and impact of different sources. Often, however, data are not available for a
full range of flow conditions at more than a couple locations in a watershed. If you use this
type of methodology in developing your watershed plan, be sure to include future source
characterization or monitoring as part of the implementation plan to further refine source
loads and target control efforts.
These techniques are also completely reliant on a long period of record of monitoring infor-
mation to develop the loading estimates. Uncertainty can be calculated from the statistical
process, providing the advantage of a system for measuring accuracy. However, continuous
flow gauging is available only in limited locations, and typically for large watersheds. You
should carefully check the availability and relevance of the data when considering using
direct calculations of load. Make sure to check that flow and water quality sampling were
conducted at the same time. Ideally, a continuous flow gauging record is available so you can
evaluate the changes in flow and seasonal patterns.
The following methods for directly calculating watershed loads are discussed in the sections
below:
• FLUX
• Regression of pollutant load and flow using Minimum Variance Unbiased Estimator
(MVUE)
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Chapter 8: Estimate Pollutant Loads
FLUX
FLUX, developed by Walker (1996) for the U.S. Army Corps of Engineers, is an interactive
computer program used to estimate the loads of nutrients or other water-quality constituents
such as suspended sediment. This technique was developed as a companion to the Bathtub
model, a commonly used lake modeling technique (Walker 1985,1986, 1990). The following
six estimation algorithms are available in FLUX: (1) direct-mean loading, (2) flow-weighted
concentrations (ratio estimate), (3) modified ratio estimate, (4) first-order regression, (5) sec-
ond-order regression, and (6) regression applied to individual daily streamflow. FLUX maps
the flow versus concentration relationship developed from the sample record onto the entire
flow record to calculate total mass, streamflow, and associated error statistics. It also provides
an option to stratify the data into groups on the basis of flow to improve the fit of the indi-
vidual models.
Data requirements for FLUX include
• Constituent concentrations, collected on a weekly to monthly frequency for at least a
year
• Date collected
• Corresponding flow measurements (instantaneous or daily mean values)
• Complete flow record (daily mean streamflow) for the period of interest.
Regression of Pollutant Load and Flow
A very simple approach to estimating pollutant logs is to use available water quality and
flow data to develop a regression equation representing the relationship between the pol-
lutant load and flow magnitude. That equation is then used to estimate pollutant loads on
days when flow is available but water quality data are not. For example, the approach can be
applied to a flow gauging station that has sporadic water quality data but continuous flow
data to estimate water quality and, therefore, pollutant loading on unmonitored days.
However, many pollutant loads, such as sediment, are storm-driven and observed values
often span several orders of magnitude. For this reason, the instream sediment load versus
flow relationship tends to be linear when examined on a logarithmic scale. This phenomenon
can introduce a large amount of error when using a regression approach to estimate pollutant
loads. To reduce this error and remove the bias from the regression analysis, a log transform
regression approach can be used. The U.S. Geological Survey (USGS) recommends Mini-
mum Variance Unbiased Estimator, or MVUE, (Cohn and Gilroy 1991) as one of the methods
for bias correction. The objective of this method is to yield an unbiased estimate with the
smallest possible variance. Q> Go to http://co.water.usgs.gov/sediment/bias.frame.html for
more information on MVUE.
8.2.2 Using Literature Values to Estimate Loads
One of the simplest techniques for estimating pollutant loads involves calculating loads on
the basis of land use areas and representative loading rates (i.e., load per area of land). An
example of this approach is shown in figure 8-1. In this case the load is a function of a single
factor, "land use area," based on a predefined loading rate. This simple presentation has the
benefit of being very easy to apply and explain, but simplicity also results in several limita-
tions. The loading rate is a static value and does not account for temporal or spatial varia-
tions in environmental conditions such as precipitation and soils.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
The export coefficient model is the simplest type of pollutant runoff model because all factors that
effect pollutant movement are combined into one term — the export coefficient. For example, the total
pollutant load (in kilograms per year) is calculated by multiplying the land use areas (in hectares) by the
export coefficients (in kilograms per hectare per year) for various activities, such as corn, pasture, and
residential use and summing the products. Export coefficients for the various land uses can be obtained
from literature searches. The table below presents an example of an export coefficient spreadsheet used
to obtain a rough estimate of the effects of various land use activities on watershed nutrient loading.
Example of Pollutant Budget Estimation Using Export Coefficient Model
Forest
Corn
Cotton
Soybeans
Small Grain
Pasture
Feedlot or
Dairy
Idle
Residential
Business
Industrial
Total
100
200
100
20
50
300
5
30
20
10
5
840
1.8
11.1
10
12.5
5.3
3.1
2,900
3.4
7.5
13.8
4.4
-
180
2220
1000
250
285
930
14,500
102
150
138
22
19,757
0.91
11.24
5.6
1.27
1.34
4.71
73.39
0.52
0.76
0.7
0.11
1
0.11
2
4.3
4.6
1.5
0.1
220
0.1
1.2
3
3.8
-
11
400
430
92
75
30
1,100
3
24
30
19
2,111
0.52
18.95
20.37
4.36
3.55
1.42
52.11
0.14
1.14
1.42
0.9
100
\lote: Agricultural coefficients are from Reckhow et al. (1980), and urban coefficients are from Athayde et al. (1983).
Figure 8-1. Example of an Application of Export Coefficients to Calculate Pollutant Loads
Because the loading estimate is dependent on the loading rate used in the calculation, it's
important to identify values that are realistic for your watershed. Loading rates for land uses
can vary widely throughout the nation depending on precipitation, source activity, and soils,
and in some areas estimates are not available. Regional loading rates might be available from
scientific literature or watershed studies conducted in nearby watersheds. Otherwise, use
national estimates with caution, recognizing that the values might not be representative of
your watershed.
North Carolina State University's WATER, Soil, and Hydro-Environmental Decision Sup-
port System (WATERSHEDSS) provides a tool for land managers to evaluate pollutant bud-
gets and agriculture management practices. ^> To download the tool for calculating loads
using export coefficients, go to www.water.ncsu.edu/watershedss. The system also includes
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Chapter 8: Estimate Pollutant Loads
a database of agricultural management practices, references on nonpoint source pollutants
and sources, and an annotated bibliography of nonpoint source literature.
Empirical relationships documented in scientific literature are another option for estimat-
ing pollutant loads. Empirical relationships are those based on observed data, and they are
represented by an empirical equation. An example of an
empirical relationship relating watershed characteristics to
pollutant loading is the Simple Method (Schueler 1987). The Where to Get Export Coefficients
Simple Method is a lumped-parameter empirical model used Lin (2004) summarizes and reviews published export
to estimate stormwater pollutant loadings under conditions coefficient and event mean concentration (EMC)
of limited data availability. Because it is a lumped approach, data for use in estimating pollutant loading into
it assumes the physical characteristics for land units within watersheds. Some references included in that review
a subwatershed are homogeneous, thereby simplifying the and commonly used for export coefficients are
physical representation of the subwatershed. The approach ,,,/,,n ,u -mnn *
. . „ , ,. , . ,, Beaulac, M.N., and K.H. Reckhow. 1982. An
calculates pollutant loading using drainage area, pollutant ... ,, , ... , , ,. ,.
. -- -~ . , . . . , examination of land use-nutrient export relationships.
concentrations, a runoff coefficient, and precipitation data. In Water Resources Bulletin 18(6): 1013-1024.
the Simple Method, the amount of rainfall runoff is assumed
to be a function of the imperviousness of the contributing Reckhow, K.H., M.N. Beaulac., and J.T. Simpson.
drainage area. More densely developed areas have more 1980. Modeling phosphorus loading and lake response
impervious surfaces, such as rooftops and pavement, causing under uncertainty: A manual and compilation of export
more stormwater to run off rather than being absorbed into coefficients. EPA-440/5-80-011. U.S. Environmental
the soil. The Simple Method includes default and suggested Protection A9ency- Office of Water Regulations,
values for the equation parameters, or values can be water- Criteria and Standards Division' Washington< DC'
shed-specific based on monitoring data or local information.
8.3 Watershed Modeling
Models provide another approach for estimating loads, providing source load estimates, and
evaluating various management alternatives. A model is a set of equations that can be used to
describe the natural or man-made processes in a watershed system, such as runoff or stream
transport. By building these cause-and-effect relationships, models can be used to forecast or
estimate future conditions that might occur under various
conditions. Models can be highly sophisticated, including
many specific processes such as detailed descriptions of Definitions
infiltration and evapotranspiration. Models can also be Model: A representation of an environmental system
very generalized, such as a simple empirical relationship through the use of mathematical equations or
that estimates the amount of runoff based on precipitation. relationships.
Some models are available as software packages, whereas
, , , . , 1-1-111 Modeling system: A computer program or software
simple models or equations can be applied with a calculator ; ' K , a,.
, , _, . , , package that incorporates a model and input and
or spreadsheet. Compared to the simple approaches ou(put sys(ems (o faci||tate app|icatjon
v discussed in section 8.2, models add more detailed
procedures that represent the separate processes of rainfall, Model application: The use of a model or models to
erosion, loading, transport, and management practices. By address defined questions at a specific location.
separately addressing each process, models can be adapted
to local conditions, and the simulation can be made more
sensitive to land use activities and management changes.
This section discusses the role of modeling in watershed planning, the types of models avail-
able, how to select appropriate models for your watershed study, and setting up and applying
models for a watershed.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
The Watershed Continuum
One way to represent the watershed is by following the flow of water from land areas to streams and rivers, through lakes, to estuaries,
and ultimately to the ocean. When we evaluate water quality standards, the focus is typically on the waterbody of concern. For TMDLs, the
dominant use of models is to evaluate the relationship between human actions (e.g., land use management or wastewater treatment) and
the impaired downstream waterbody (e.g., river, lake, or estuary). Human actions, such as management practices, land use activities, direct
withdrawals of drinking or cooling water, and discharges of wastewater, can all be considered factors that affect watersheds at the land, river,
lake, or estuary level.
For TMDLs, modeling typically focuses on describing the linkage between human activities and impaired waters. This "linkage analysis"
is necessary to demonstrate that the plan will achieve water quality standards (USEPA 1999a, 1999b, 2001a). For watershed management
plans, analysis should focus in more detail on the management actions and land-based activities that will be used to meet water quality
goals. In this case the analysis is focused on determining how best to address the management needs. Although modeling for watershed
management planning is similar to TMDL modeling, the focus on management typically results in more detailed, localized modeling. This
localized modeling and evaluation can be performed separately or in tandem with TMDL or other modeling efforts. The models described in
this chapter emphasize the management and localized evaluations typically employed in watershed planning and provide references and links
for other types of supporting models.
8.3.1 Factors to Consider When Selecting a Model
Before selecting the most appropriate model, you should define the approach for the specific
study. An approach may include one or more models, multiple analysis procedures, and a
variety of input data to address the project needs. Selecting the appropriate model applica-
tion or approach requires an understanding of the range of complexity of the analytic tech-
niques and a clear understanding of the questions to be answered by the analysis. Note that
the model application might include the following:
• Various levels of detail for each component
• More than one model to address different waterbodies, pollutants, or stressors
• An available modeling system; a modification of an existing model; or a local, custom
model
• A model documentation plan
Determining the model application also means defining the data needs and the accuracy of
the modeling results. To select a model and associated application needs, first examine the
questions that need to be answered. The following are questions that models are typically
used to answer:
• Will the management actions result in meeting water quality standards?
• Which sources are the main contributors to the pollutant load targeted for reduction?
• What are the loads associated with the individual sources?
• Which combination of management actions will most effectively meet the identified
loading targets?
• When does the impairment occur?
• Will the loading or impairment get worse under future land use conditions?
• How can future growth be managed to minimize adverse impacts?
Evaluating questions by using models requires looking at and comparing results in terms
of load, concentration, flow, or another measurement. This comparison should consider the
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Chapter 8: Estimate Pollutant Loads
indicators identified to evaluate the watershed concerns
(^ section 4.6). For example,
• A lake eutrophication problem might focus on pre-
dicting the total nitrogen and phosphorus load.
• A river with an attached algae problem might need
models that can predict concentrations of dissolved
nitrogen and phosphorus during low-flow conditions.
• An area with beach closures due to pathogens might
focus on predicting pathogen counts and the fre-
quency of water quality standards violations.
• A concern over sediment in streams might focus on
changes in hydrology, stream morphology, or sedi-
ment loading from erosion-prone areas.
In each case the predictions of the model should be evalu-
ated on the basis of the indicators identified for meeting and
tracking the goals of the watershed management plan. The
indicators used often dictate the level of detail of the study.
Predicting short-term concentrations, such as a concentra-
tion of aluminum, might require more detailed analysis of
flow and pollutant transport. The model should support the
development of source loads and estimates of their magni-
tude, and it should support the development of the appropri-
ate pollutant load reduction estimates.
In defining a model application for your watershed, keep in
mind four general considerations:
1. Is the approach appropriate to your specific situation,
answering the questions needed to develop a water-
shed plan (relevance)?
2. Has the modeling system been shown to give valid
results (credibility)?
3. Is the model easy enough to learn and use that you
are likely to succeed at obtaining useful results
(usability)? Are data available to support the model
(usability)?
4. Is the model able to predict water quality changes based on the changes planned for
your watershed management plan (utility)?
Each of these considerations is discussed below.
Relevance
Even if the model has been reviewed in the literature and has been applied in other water-
sheds, you need to make sure that it's relevant to the needs of your watershed. For example,
a model developed and tested only in urban areas, or even in rural areas that are mostly
forested, is not a good choice for a watershed that consists almost entirely of agricultural row
crops or mixed uses. If flow-through tile drains are one of the main pathways through which
Additional Modeling Definitions
Field scale. Some applications are focused on small
areas at the subbasin or smaller level. Field-scale
modeling usually refers to geographic areas composed
of one land use (e.g., a cornfield).
Physically based models. A physically based model
includes a more detailed representation of fundamen-
tal processes such as infiltration. Applying physically
based models requires extensive data and experience
to set up and test the model. HSPF and SWAT both
include physically based processes, although many
simplifications are still used.
Lumped model. A model in which the physical
characteristics for land units within a subwatershed
unit are assumed to be homogeneous is referred to as
a "lumped" model. Discrete land use areas within a
subwatershed area are lumped into one group.
Mechanistic model. A mechanistic model attempts
to quantitatively describe a phenomenon by its
underlying causal mechanisms.
Numerical model. A numerical model approximates
a solution of governing partial differential equations
that describe a natural process. The approximation
uses a numerical discretization of the space and time
components of the system or process.
Steady state model. A steady state model is a mathe-
matical model of fate and transport that uses constant
values of input variables to predict constant values
of receiving water quality concentrations. Steady
state models are typically used to evaluate low-flow
conditions.
Dynamic model. A dynamic model is a mathemati-
cal formulation describing the physical behavior of a
system or a process and its temporal variability.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
water reaches the stream in your watershed, a model that
does not include artificial drainage is probably not a good
Relevance Considerations choice. For specialized cases, such as tile drainage, a custom
•/ The model can represent the land uses and modeling application might be needed. Many models have
processes that are most important in your been developed for specific pollutants. Some specialize in
watershed. sediment only because reducing erosion was historically the
•/ The model predicts the pollutants you're concerned mission of modeling conducted by the U.S. Department of
about Agriculture (USDA). Many models give results for sediment,
nutrients, and perhaps pesticides, but not for microbial
contaminants.
Credibility
Because it's not possible to know in advance how accurate the results of a specific model
will be, you need to rely on what others have found. Scientists rely on peer review of journal
articles written about the use of a model. A quick rule of thumb is to use only models whose
validation has appeared in respected peer-reviewed journals. That way you benefit from the
time other modelers and scientists have spent reviewing the
Credibility Considerations model. All the models reviewed in this handbook have been
v' Model validations have been published in a peer- validated, at least to some extent.
reviewed journal. ... . . . , , , .....
In addition to using only models whose validation has
* The model is in the public domain, and the source appeared in respected peer-reviewed journals, you could also
code is available on request. . . ...
develop an external peer review committee to review not
only the development of a model but also the validity of the
model application to the specific project at hand. ^J> The California Water and Environmen-
tal Modeling Forum (www.cwemf.org) has a procedure for such an approach.
Most models distributed in the public domain have been developed by government agencies
(e.g., EPA or USDA) or universities and are freely available. However, some consultants use
proprietary models, which are privately owned software. Such models cannot be checked
because the code is not available to others. It is generally a good idea to use nonproprietary
models if possible. Proprietary models normally require a purchase fee and have lim-
ited distribution rights. Limiting distribution and review might affect acceptance by the
stakeholders.
Because models generate data, EPA has developed a manual for preparing quality assurance
project plans for models entitled Guidance for Quality Assurance Project Plans for Modeling
(EPA QA/G-5M). ^ The guidance is available on EPA's Web site at www.epa.gov/quality.
Also, it should be noted that most models have user support groups that discuss model use
and utility through online forums. For more information, conduct a Web search for "user
support groups" and the model under review.
Usability
Usability Considerations Accuracy of prediction is important, but if the model will
^ Documentation, training, and support are available. not answer the Questions you need to develop your water-
shed plan, it will not be useful.
r The model can be run with data that are generally
available or data that can be obtained with Documentation that explains the parameters, how to get
reasonable effort , , 111- • i 11
them, and reasonable values is essential to ensure that the
v' The model and user interface are reliable and mocjel is usable. New users might need some sort of train-
thoroughly tested. ing to leam how to use the model Finallyj modd users
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Chapter 8: Estimate Pollutant Loads
sometimes run into questions that are not addressed in the documentation. A model that will
be widely used needs to have user support available. The support can be in the form of a per-
son who provides technical assistance or a list server where other users can answer questions.
Obtaining input data is often the most time-consuming and difficult part of running a
model. This often comes as a surprise to those who have not used models. Models generally
require data on land cover, land management (such as agricultural practices), factors that
affect the rate at which water can flow into the soil and recharge ground water (usually geol-
ogy or soil type), and other information about the land in the watershed. In addition, daily
or even hourly weather data, including precipitation and temperature, are usually required.
Other weather data that are more difficult to obtain, such as relative humidity and wind
speed, might be required. For models to be calibrated, accurate input data are needed. Some
modeling systems, such as EPA BASINS, have compiled much of the basic data needed to
run the model; however, this coarse, national-scale data will not always be accurate enough
to give useful results, particularly in small watersheds. Other national, publicly available
databases are available from USGS and other sources. Nevertheless, parameters like soil
nutrient concentrations or fertilizer applications, particularly those associated with agricul-
tural production and other management activities, are not available nationally and must be
obtained locally.
Utility for Watershed Planning
Using a model to predict the impact of changes in a water- Utility Considerations
shed requires that the model be able to represent those ^ The model or supplemental tools are able to predict
changes. Models represent changes in watershed manage- the likely water quality impacts of the land use or
ment in very different ways. You'll need to consider what management changes you are considering in your
management practices are likely to be applied in your water- watershed plan.
shed and whether the model can be used to evaluate their
benefits. In many cases other analyses are used to supplement a model; sometimes additional
spreadsheet calculations can be used to check on the potential load reductions from various
methods. In addition, you might want to consider how the model will be used in the future.
Will it be used to check future changes in management or as a tool to track progress? If the
model will be used as an ongoing planning tool, remember to consider the complexity of the
model and the availability of trained staff to apply the model.
8.3.2 Using Watershed Modeling Tools to Evaluate Loads
Watershed models use a set of equations or techniques to analyze the following key compo-
nents of the watershed system.
• Rainfall/runoff: The description of precipitation, infiltration, evaporation, and runoff.
This portion of a model is used to calculate the amount and timing of runoff from a
land area. Runoff is also related to erosion and to sediment and pollutant transport.
In cold-climate watersheds, it might be important to use a model that can represent
snowmelt/runoff conditions.
• Erosion and sediment transport: The description of soil detachment, erosion, and
sediment movement from a land area. In more detailed approaches this is linked to
the runoff calculation and might include sediment deposition.
• Pollutant loading: The wash-off of pollutants from a land area. In generalized
approaches this is a loading factor. More detailed techniques link pollutant wash-off to
hydrology and sediment movement.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
• Stream transport: The stream portion of watershed models, which is needed, at a
minimum, to collect the runoff/sediment/pollutants from the various land areas. More
detailed models include evaluation of instream behavior of sediment and pollutants.
Processes may include deposition, resuspension, decay, and transformation.
• Management practices: A management practice can be land-based (e.g., tillage or
fertilizer application), constructed (e.g., stormwater ponds), or input/output to a stream
(e.g., wastewater treatment). Land-based management can be generalized (e.g., number
of acres treated) or specific (e.g., field-specific practices). Some models include more
detailed simulation techniques. For example, a pond analysis might include sediment
settling and first-order decay of pollutants.
First, the land areas are described, typically in terms of land use, soils, and slope, which are
the key features that affect runoff, erosion, and pollutant loadings. Second, the management
practices present in the watershed are considered. Third, the stream and river transport is
considered. Each component of this analysis can be considered at various levels of detail. For
example, in describing runoff there are several distinct levels of analytical detail (table 8-2).
Each level considers more specific factors and processes. The more detailed the equations
used to build the modeling system, the more parameters need to be estimated and the more
detailed the evaluation of the model performance needs to be. For each situation the analyst
will need to select the type of model, along with the associated level of detail, that is consis-
tent with the objectives of the analysis.
Table 8-2. Various Levels of Detail for Simulating Runoff
Level of Detail
Equation
Assumptions
Generalized
Percentage of rainfall that
runs off the land into the
water (rational method/
regression of rainfall and
runoff observations)
Simple relationship between rainfall and runoff. One
factor represents the loss associated with evaporation
and plant uptake. No special consideration of slope or soil
characteristics. No consideration of soil moisture.
Mid-level
Curve number
Simple relationship based on studies across the country. Varies
depending on soil type, vegetation, and slope. Considers soil
moisture (antecedent moisture condition). Does not consider
variations in storm intensity; uses daily rainfall.
Detailed
Infiltration equation
Describes infiltration of water and evapotranspiration.
Considers soil moisture and soil type, vegetation, and slope.
Considers variations in storm intensity. Time step is typically
hourly rainfall or less.
Model applications to specific watersheds often include a mixture of levels of detail depend-
ing on the problems being considered. For example, a modeling analysis supporting an
agricultural nutrient management initiative might include very detailed descriptions of land
behavior, such as nitrogen use by plants, and a very simplified analysis of stream transport.
A study considering the upgrade of a wastewater treatment plant would include a detailed
examination of the stream conditions in summer and a very simplified representation of land
use activities. Table 8-3 describes some of the variations in the level of detail that might be
considered in a watershed planning project.
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Chapter 8: Estimate Pollutant Loads
Table 8-3. Levels of Detail in Watershed Models
Element
Land
Land use
Slope
Soil moisture
Hydrology
Pollutants
Load
Management Prac
Management
Practices
Streams/Rivers
Hydrology
Water quality
Toxic
substances
Generalized
Category (Agriculture)
N/A
N/A
Percent runoff
Single
Ib/ac/year
tlces
Percent removal
Single flow, steady
state
Regression, simple
relationships
Regression, simple
relationships
Mid-level
Subcategory (Cropland)
Average for area
Antecedent moisture
condition (3 levels)
Curve number
Multiple
Ib/day; daily average
concentration
Percent removal and
estimated volume
captured
Single flow, steady state
Eutrophication cycle
Settling, 1st-order decay
Detailed
Specific (Corn, ridge-tilled)
Average for area
Calculated
Infiltration equations
Chemical and biological interactions
between pollutants
Ib/hr; hourly average concentration
Hydrology
Deposition/settling
First order decay and transformation
Continuous or variable flow
Eutrophication cycle, carbon/
nutrient/BOD processes
Transformation, biodegradation,
other processes
8.3.3 Model Selection and Application Process
With so many models available, how do you know which
one to choose? The development of a modeling analysis
involves more than selecting a modeling tool. The
application of a model for decisionmaking also
involves designing and implementing an analysis
that addresses the management questions.
Typically, this involves a combination of data (
analysis techniques, ^ as described in chapter 7,
and compilation and organization of disparate /, j
data sources.
Described below are the key steps for selecting
and designing a modeling application for
watershed planning purposes. Throughout
the watershed process you've built an
understanding of the watershed—through
scoping, stakeholder input, and data collection
and analysis. The design of the modeling
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
approach should build on this understanding and help you to better understand the
watershed.
1. Consider the objectives of the analysis. During the scoping process the key objectives
of the study, as well as the general modeling needs and watershed characteristics, are
identified. The specific objectives and associated indicators will help to define the pollut-
ants that the model might need to consider.
2. Define the specific questions that the modeling will be used to answer. As discussed
earlier in the chapter, before selecting a model, the analyst should first carefully define
the questions that the model will be used to answer. The questions should directly relate
to the overarching objectives of the study. The following are examples of modeling
questions:
• What are the sources of the pollutant load?
• Where can management practices be targeted to best meet load reduction
requirements?
• What combination of management practices will result in reducing the load to the
desired level and meeting water quality goals?
3. Select the modeling approach that will address the questions. The modeling approach
includes the model(s) to be used, the input data processing requirements and data
sources, the model testing locations and data sources, and the output analysis. The
modeling approach defines how the model will be applied, not just what the model is.
The approach provides the entire plan or road map for analysis and is broader than the
selection of a model.
4. Set up the model. As required by the modeling approach identified above, the input data
are collected and processed for the model (or models). Typical data inputs include the
following:
• Land use
• Soils
• Slope
• Activities, management
locations, and types
• Monitoring data — flow
and water quality
• Meteorologic data — precipi- <
tation and temperature
Each dataset might require somi
preprocessing before input. For example,
land use information might be selectively updated where new development has occurred.
Sometimes multiple land use datasets are combined. For example, one data source might
provide a more detailed breakdown of forest types and could be used to add detail to a
broader land use coverage. Some models require developing categories of land use, soil,
and slope characteristics. Resulting units could include corn fields with B soils (a hydro-
logic soil group defined by the USDA) and moderate slopes, pasture with C soils and steep
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Chapter 8: Estimate Pollutant Loads
slopes, and so on. User's guides and the selected modeling references provide some addi-
tional guidance on data preprocessing needs for individual models. ^ Much of the data
required for watershed models is discussed in chapter 5.
5. Test the model's performance. Regardless of the com- What's the Difference between Model
plexity or detail of the modeling approach, appropriate Validation and Calibration?
testing (calibration and validation) of model accuracy Calibration and validation are two separate proce-
should be performed. Remember that modeling results dures in model development and testing. Available
need a reality check before they are used to support a monitoring data are separated into two separate time
loading analysis or evaluation of management scenarios. periods for testing. Using one dataset, calibration
If data are available, the model should be calibrated parameters are adjusted, within reasonable ranges,
and validated to ensure accurate representation of the until a best fit to observed data is 9enerated Usin9the
watershed processes. When data are limited, you should second dataset'validation is Performed ^ keePin9the
also compare model results to literature values and data tpharame!e| *«constan'a"d tesj'ng tthfl per'°™e of
r ,. . , ...... the model. Time periods for calibration and validation
irom surrounding watersheds to review the integrity ot , ,, ,,.,.,. ,. j i •
, , , .... , , are carefully selected to include a range of hydrologic
the results. Do the loads seem realistic given observed conditions
concentrations and flows or documented loads in nearby
watersheds? Do the simulation results make sense given
the watershed processes? For example, if a watershed model produces monthly loads, do
the higher loads occur during the times of higher observed flows and concentrations?
Or, if a model provides output from both ground water and surface water, do the rela-
tive contributions make sense given the topography and geology of the area? Watershed
models are meant to represent the processes affecting runoff and pollutant transport
and loading. Use your knowledge of the area to reality-check the model representations
and output. ^> More information on model calibration and validation is provided in
section 8.4.5.
6. Apply the model and interpret the results. The model is applied to evaluate the range of
conditions required for addressing the modeling questions. For example, a model might
be used to evaluate the nutrient loading over a 10-year period. Output postprocessing
might include developing annual and monthly loading summaries by source category
and evaluating seasonal and annual variation. Multiple model applications might be used
to consider changes in land use, installation of management practices, and alterations
in cultivation techniques. Output can be processed to support development of essential
elements of the watershed plan (source controls, magnitude of sources, and pollutant load
reduction estimates).
7. Update the model to include new information or refine assumptions. Often after the
initial management planning study is complete, additional data are collected or new
information is discovered. The model can be updated periodically to further refine and
test performance and update management recommendations, if appropriate.
Selecting and executing an appropriate modeling approach can support the development of a
watershed management plan. Use caution in selecting an approach consistent with the avail-
able data, the specific questions to be addressed, and the type of management. Data analysis
is an ongoing process in which modeling is only one potential tool. In many cases, simplified
techniques or statistical analysis is adequate to evaluate watershed conditions and no formal
modeling is required. Throughout the process, focus on using the most simple methods
appropriate to answering the questions at hand.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
8.3.4 What Models Are Available?
Various modeling systems have been developed and used to answer a wide range of environ-
mental questions. This handbook focuses on selected models that are publicly available and
have a track record of application and use. The models are commonly used in TMDLs and
other watershed studies. They represent a range of complexity and are applicable to a variety
of pollutants and pollutant sources.
Although these models are supported by EPA and included in this handbook, other similar
watershed models might be appropriate for use in developing your watershed plan. An inven-
tory of available models that evaluates the models across a set of key characteristics is pro-
vided in table 8-4. These characteristics were selected to help differentiate among available
tools and to describe areas of emphasis, complexity, and types of pollutants considered. Key
characterization factors include the following:
• Type. "Landscape only" indicates that the model simulates only land-based processes;
"comprehensive" models include land and stream and conveyance routing.
• Level of complexity. Complexity in watershed models is classified as three levels.
Export functions are simplified rates that estimate loading based on a very limited set
of factors (e.g., land use). Loading functions are empirically based estimates of load
based on generalized meteorologic factors (e.g., precipitation, temperature). Physically
based models include physically based representations of runoff, pollutant accumula-
tion and wash-off, and sediment detachment and transport. Most detailed models use
a mixture of empirical and physically based algorithms.
• Time step. Time step is the unit of time (e.g., hourly, monthly) for which a model
simulates processes and provides results. The table identifies the smallest time step
supported by a model. If larger output time steps are needed, model output can be
summarized from smaller time steps.
• Hydrology. This criterion identifies whether a model includes surface runoff only or
surface and ground water inputs as well.
• Water quality. Water quality capabilities are evaluated based on the pollutants or
parameters simulated by the model.
• Types of best management practices. The types of management practices simulated
by the models are indicated in the table.
Even if you're not planning to run the model yourself, it's helpful to know the capabilities
and requirements of the major types of watershed models so you can "talk the talk" and
make informed decisions about how to proceed with your data analysis. Remember that
typically it is not the model itself that causes problems but the matching of the model to local
conditions, key assumptions, and interpretation of model outputs.
v Additional detailed information on available models is provided in EPA's Compendium
of Tools for Watershed Assessment and TMDL Development (USEPA 1997c). Although updated
versions of some models have been released since the compendium was published, it provides
a good starting point for researching available models and understanding their capabilities.
^ A more recent online database, provided by EPA's Council on Regulatory Environmental
Modeling, provides links to model reviews and resources (http://cfpub.epa.gov/crem/).
8-16
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Chapter 8: Estimate Pollutant Loads
Table 8-4. Overview of Several Available Watershed Models
Model Acronym
AGNPS
(event-based)
AnnAGNPS
BASINS
DIAS/IIDLMAS
DRAINMOD
DWSM
(event-based)
EPIC
GISPLM
GLEAMS
GSSHA
GWLF
HEC-HMS
HSPF
KINEROS2 (event-
based)
LSPC
Mercury Loading
Mode
MIKE SHE
MINTEQA2
MUSIC
Source
USDA-ARS
USDA-ARS
EPA
Argonne National
Laboratory
North Carolina
State University
Illinois State
Water Survey
Texas A&M
University-Texas
Agricultural
Experiment Station
College of
Charleston, Stone
Environmental, and
Dr. William Walker
USDA-ARS
USAGE
Cornell University
USAGE
EPA
USDA-ARS
EPA and
TetraTech, Inc.
EPA
Danish Hydraulic
Institute
EPA
Monash University,
Cooperative
Research Center
for Catchment
Hydrology
Type
Landscape only
•
—
—
—
•
—
—
—
—
Comprehensive
•
•
•
•
•
•
•
•
•
•
•
Level of
Complexity
Export coefficients
—
—
Loading functions
•
•
Physically based
Time step
're
•o
.n
a
V)
're
a
c
0
re
c
c
Hydro-
logy
Surface
09
re
•o
c
0
o>
=
re
09
u
V)
Water Quality
•o
09
_s
09
09
9
Sediment
Nutrients
Toxic/pesticides
s
09
Type of BMPs
o
CO
Bacteria
Detention basin
•
•
•
•
Infiltration practices
•
•
—
•
Vegetative practices
•
—
•
•
•
Wetlands
•
•
•
—
•
Other structures
•
—
—
•
•
•
•
8-17
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Table 8-4. Overview of Several Available Watershed Models (continued)
Model Acronym
P8-UCM
PCSWMM
PRP RMP
REMM
SHETRAN
SLAMM
SPARROW
STORM
SWAT
SWMM
TMDL Toolbox
TOPMODEL
WAMView
WARMF
WEPP
WinHSPF
WMS
XP-SWMM
Source
Dr. William Walker
Computational
Hydraulics Int.
Prince George's
County, MD
USDA-ARS
University of
Newcastle (UK)
University of
Alabama
USGS
USAGE (mainframe
version), Dodson &
Associates, Inc.
(PC version)
USDA-ARS
EPA
EPA
Lancaster University
(UK), Institute of
Environmental and
Natural Sciences
Soil and Water
Engineering
Technology, Inc.
(SWET) and EPA
Systech
Engineering, Inc.
USDA-ARS
EPA
Environmental
Modeling
Systems, Inc.
XP Software, Inc.
Type
Landscape only
—
—
—
Comprehensive
—
•
•
•
•
•
•
•
•
•
•
Level of
Complexity
Export coefficients
•
in
=
o
'^
u
=
S
o>
_c
'•S
re
0
_l
•
Physically based
—
•
•
Time step
^>
're
•o
.n
s
V)
•
_>.
're
a
—
•
•
^>
**
c
0
S
—
re
s
c
c
«t
—
Hydro-
logy
Surface
•
09
CB
•o
c
S
o>
=
re
09
u
_re
s
V)
—
•
•
Water Quality
•o
09
=
IS
09
09
S
09
S
•
Type of BMPs
o
CO
—
Bacteria
—
Detention basin
•
Infiltration practices
•
Vegetative practices
•
•
—
Wetlands
—
Other structures
•
•
•
•
•
•
Notes: BMPs = best management practices. — Not supported • Supported
Source: USEPA. 2005. TMDL Model Evaluation and Research Needs. EPA/600/R-05/149. U.S. Environmental Protection Agency, Office of Research and
Development, National Risk Management Research Laboratory, Cincinnati, OH. www.epa.gov/nrmrl/pubs/600r05149/600r05149.htm
8-18
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Chapter 8: Estimate Pollutant Loads
Seven watershed models are presented here for more detailed discussion: AGNPS, STEPL,
GWLF, HSPF, SWMM, P8-UCM, and SWAT. The models represent a cross section of
simple to more detailed approaches, provide simulation of rural and more urbanized areas,
and include a diversity of approaches. These models are used to describe key differentiators
and considerations in selecting and applying models.
Other models that have specialized capabilities to support watershed management planning
or TMDL development are available. The additional models include
• WAMVIEW for areas where there are high water tables that affect infiltration
and runoff
• Models that specialize in detailed sediment detachment and wash-off,
such as KINEROS and the Sediment Tool ( ^> TMDL Toolbox found at
www.epa.gov/athens/wwqtsc)
• Specialty models for simulating mercury, such as the TMDL Toolbox Mercury
Tool, which provides watershed-scale assessment of mercury loading
The key features of the selected models are presented below. ^> In section 8.4 the model
application process for the selected models is described.
for more detailed discussion on available models and
their application.
AGNPS
The Agricultural Non-Point Source (AGNPS)
model was developed by USDA's Agricultural
Research Service for use in evaluating the effect
of management decisions on a watershed system.
The term "AGNPS" now refers to the system of
modeling components, including Annualized
AGNPS (Ann AGNPS), rather than the single-event
AGNPS, which was discontinued in the mid-1990s.
AGNPS has the advantage of providing spatially
explicit modeling results, which is not true of
most of the other models described here. However,
the annualized version has not yet had extensive
validation, and the user base is not yet broad. One
training opportunity per year is typically offered.
^> The model, documentation, and information
about training are available at www.ars.usda.gov/
research/docs.htm?docid=5199.
AnnAGNPS is a continuous-simulation, watershed-
scale program developed based on the single-event
model AGNPS. AnnAGNPS simulates quantities
of surface water, sediment, nutrients, and pesticides
leaving the land areas and their subsequent travel
through the watershed. Runoff quantities are based
on a runoff curve number (CN), while sediment is
determined using the Revised Universal Soil Loss
Equation (RUSLE; USDA 1996). Special compo-
nents are included to handle concentrated sources
Appendix A provides resources
^ Where to Find the Selected Models
AGNPS
www.ars.usda.gov/research/docs.htm?docid=5199
STEPL
Temporary URL http://it.tetratech-ffx.com/stepl
GWLF
The original version of the model has been used for 15 years and
can be obtained from Dr. Douglas Haith at Cornell University. "*> A
Windows interface (Dai etal. 2000) isavailableatwww.vims.edu/
bio/vimsida/basinsim.html. Penn State University developed an
ArcView interface for GWLF (^ www.avgwlf.psu.edu) and com-
piled data for the entire state of Pennsylvania (Evans et al. 2002).
HSPF
HSPF is available through EPA's Center for Exposure Assessment
Modeling (^ www.epa.gov/ceampubl/swater/hspf) and also
as part of EPA's BASINS system (^ www.epa.gov/ost/basins/).
^ Another formulation of HSPF is EPA's Loading Simulation
Program in C++ (LSPC), which can be downloaded at
www.epa.gov/athens/wwqtsc/html/lspc.html.
P8-UCM
^ www.wwwalker.net/p8/p8v24.zip
SWAT
**> www.brc.tamus.edu/swat
SWAT is also included in EPA's BASINS system
^ www.epa.gov/waterscience/basins/basinsv3.htm.
SWMM
^ www.epa.gov/ednnrmrl/models/swmm/index.htm
8-19
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
of nutrients (feedlots and point sources),
Physically Based Models concentrated sediment sources (gullies), and
A physically based model includes a more detailed representation of added water (irrigation). Output is expressed
processes based on physical features. Applying physically based models on an event basis for selected stream reaches
requires extensive data to set up and test the model and substantial ancj as source accounting (contribution to
modeling experience. HSPF and SWAT both include physically based oudet) from land Qr r£ach components over
processes, although many simplifications are used. the simulation period The modd can be
used to evaluate the effect of management
practices such as agricultural practices, ponds, grassed waterways, irrigation, tile drainage,
vegetative filter strips, and riparian buffers. All runoff and associated sediment, nutrient, and
pesticide loads for a single day are routed to the watershed outlet before the next day's simula-
tion. There is no tracking of nutrients and pesticides attached to sediment deposited in stream
reaches from one day to the next. Point sources are limited to constant loading rates (water
and nutrients) for the entire simulation period, and spatially variable rainfall is not allowed.
^> The model is available at www.ars.usda.gov/Research/docs.htm?docid=5199.
AGNPS was developed for agricultural or mixed-land-use watersheds. It predicts nitrogen,
phosphorus, and organic carbon. It is appropriate for use on watersheds of up to 500 square
kilometers. It provides information on the impact on various locations in the watershed,
rather than simply on various land uses.
STEPL
STEPL is a simplified spreadsheet tool for estimating the load reductions that result from
implementing management practices. It is designed as a customized Excel spreadsheet model
that is easy to use. Users can modify the formulas and default parameter values without any
specialized programming skills. STEPL includes a management practice calculator that
computes the combined effectiveness of multiple management practices implemented in
serial or parallel configurations (or both) in a watershed. Management measures that affect
hydrology or sediment can be estimated with empirical factors, such as the Soil Conservation
Service (SCS; now the Natural Resources Conservation Service [NRCS]) CN for estimating
runoff and USLE C and P factors representing vegetative cover and conservation practices,
respectively. ( N> More detail on selecting CNs and USLE parameters is included in sec-
tion 8.4.3.) Pollutant load reductions attributable to the management practices are estimated
with reduction factors (or management practice effectiveness) applied to the pre-management
practice loads from the various land uses. ^> The user's guide, model, default database, and
other supporting information are available on the STEPL Web site (temporary URL
http://it.tetratech-ffx.com/stepl). Application of the STEPL tool requires users to have a
basic knowledge of hydrology, erosion, and pollutant loading processes. Familiarity with the
use and limitations of environmental data is also helpful. Computer skills in Microsoft Excel
and the use of Excel formulas are needed.
GWLF
The Generalized Watershed Loading Function (GWLF) model simulates runoff and sedi-
ment delivery using the SCS curve number equation (CNE) and the USLE, combined with
average nutrient concentration based on land use. GWLF is a good choice for watershed
planning where nutrients and sediment are primary concerns. Because of the lack of detail in
predictions and stream routing (transport of flow and loads through the stream system), the
outputs are given only monthly, although they are calculated daily.
The model is simple enough that most people should be able to learn it without attending
training sessions. The original version of the model has been used for 15 years. Data
8-20
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Chapter 8: Estimate Pollutant Loads
requirements are low: information on land use, land cover, soil, and the parameters that
govern runoff, erosion, and nutrient load generation is all that is required. ^> Pennsylvania
State University developed an ArcView interface for GWLF (www.avgwlf.psu.edu) and
compiled data for the entire state of Pennsylvania (Evans et al. 2002). v A Windows
interface (Dai et al. 2000) is also available at www.vims.edu/bio/vimsida/basinsim.htnil.
Calibration requirements for GWLF are very low. GWLF is a good choice for watershed
planning in many situations. The interfaces and documentation are excellent, and the model
is quite easy to use. The management practice tool (PRedlCT or Pollution Reduction Impact
Comparison Tool) is a good, simple way to estimate the impact of management practices.
However, GWLF is limited to nutrient and sediment load prediction and does not include
instream processes like flow and transport of loads.
HSPF
The Hydrologic Simulation Program-Fortran (HSPF) is a comprehensive package for
simulating watershed hydrology and water quality for a wide range of conventional and
toxic organic pollutants. HSPF simulates watershed hydrology, land and soil contaminant
runoff, and sediment-chemical interactions. The model can generate time series results of
any of the simulated processes. Overland sediment can be divided into three types of sedi-
ment (sand, silt, and clay) for instream fate and transport. Pollutants interact with suspended
and bed sediment through soil-water partitioning. HSPF is one the few watershed models
capable of simulating land processes and receiving water processes simultaneously. It is also
capable of simulating both peak flow and low flows and simulates at a variety of time steps,
from subhourly to one minute, hourly, or daily. The model can be set up as simple or com-
plex, depending on application, requirements, and data availability. For land simulation,
processes are lumped for each land use type at the subwatershed level; therefore, the model
does not consider the spatial location of one land parcel relative to another in the watershed.
For instream simulation, the model is limited to well-mixed rivers and reservoirs and one-
directional flow. HSPF requires extensive calibration and generally requires a high level of
expertise for application.
The most recent release is HSPF Version 12, which is distributed as part of the EPA BASINS
system. Another formulation of HSPF is EPAs Loading Simulation Program in C+ +
(LSPC), a watershed modeling system that includes algorithms for simulating hydrology,
sediment, and general water quality on land, as well as a simplified stream transport model
(^> www.epa.gov/athens/wwqtsc/html/lspc.html). A key advantage of LSPC is that it has
no inherent limitations in terms of modeling size or model operations and has been applied
to large, complex watersheds. In addition, the Microsoft Visual C++ programming archi-
tecture allows for seamless integration with modern-day, widely available software such as
Microsoft Access and Excel. Data management tools support the evaluation of loading and
management within multiple watersheds simultaneously.
P8-UCM
The P8-UCM program predicts the generation and transport of stormwater runoff pollutants
in small urban catchments. It consists mainly of methods derived from other tested urban
runoff models (SWMM, HSPF, D3RM, TR-20). Model components include stormwater runoff
assessment, surface water quality analysis, and routing through structural controls. The model
applications include development and comparison of stormwater management plans, water-
shed-scale land use planning, site planning and evaluation for compliance, effectiveness of sedi-
mentation ponds and constructed wetlands, and selection and sizing of management practices.
8-21
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Simulations are driven by continuous hourly rainfall and daily air temperature time series
data. The model simulates pollutant transport and removal in a variety of urban stormwater
management practices, including swales, buffer strips, detention ponds (dry, wet, and
extended), flow splitters, and infiltration basins (offline and online); pipes; and aquifers.
The model assumes that a watershed is divided into a lumped pervious area and a lumped
impervious area and does not evaluate the spatial distribution of pervious and impervious
land uses. The model also assumes that pollutants entering the waterbodies are sediment-
adsorbed. P8-UCM is a simple model that requires moderate effort to set up, calibrate, and
validate. Limitations of the model include limited capability in flow and pollutant routing and
limited capability in ground water processes and ground water and surface water interaction.
SWAT
The Soil and Water Assessment Tool (SWAT) was developed by the USDA's Agricultural
Research Service (ARS) and is one of the models in the EPA BASINS modeling system.
v SWAT is included in EPA's BASINS v3.1—www.epa.gov/waterscience/basins/
basinsv3.htm. SWAT is strongest in agricultural areas; the urban component was added more
recently. Pollutants modeled are pesticides, nutrients, sediment based on agricultural inputs,
and management practices. The bacteria component has been developed but is still being
tested. SWAT has been validated in many watersheds. It is more comprehensive than GWLF
and can better estimate the water quality impacts of some management changes; however, the
added accuracy gained by running SWAT will be worth the extra effort only in watersheds
where high-resolution agricultural management analyses are warranted and where informa-
tion on agricultural land use practices can be obtained.
SWMM
SWMM is a dynamic rainfall-runoff simulation model developed by EPA. It is applied pri-
marily to urban areas and for single-event or long-term (continuous) simulation using vari-
ous time steps (Huber and Dickinson 1988). It was developed for analyzing surface runoff
and flow routing through complex urban sewer systems. First developed in 1971, SWMM
has undergone several major upgrades. The current edition, Version 5, is a complete rewrite
of the previous release and was produced by EPA's National Risk Management Research
Laboratory. ^> For more information on SWMM and to download the current version, go to
www.epa.gov/ednnrmrl/models/swmm/index.htm.
The model performs best in urbanized areas with impervious drainage, although it has been
widely used elsewhere. SWMM has been applied to urban hydrologic quantity and quality
problems in a number of U.S. cities, as well as extensively in Canada, Europe, and Australia
(Donigian and Huber 1991; Huber 1992). In addition to its use in comprehensive water-
shed-scale planning, typical uses of SWMM include predicting combined sewer overflows,
assessing the effectiveness of management practices, providing input to short-time-increment
dynamic receiving water quality models, and interpreting receiving water quality monitoring
data (Donigian and Huber 1991).
In SWMM, flow routing is performed for surface and sub-surface conveyance and ground
water systems, including the options of non-linear reservoir channel routing and fully
dynamic hydraulic flow routing. In the fully dynamic hydraulic flow routing option, SWMM
simulates backwater, surcharging, pressure flow, and looped connections. SWMM has a
variety of options for water quality simulation, including traditional buildup and wash-off
formulation, as well as rating curves and regression techniques. USLE is included to simu-
late soil erosion. SWMM incorporates first-order decay and a particle settling mechanism
8-22
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Chapter 8: Estimate Pollutant Loads
in pollutant transport simulations and includes an optional simple scour-deposition
routine. The latest version of SWMM simulates overland flow routing between pervious
and impervious areas within a subcatchment. Storage, treatment, and other management
practices can also be simulated. The model typically requires calibration of its parameters for
water quantity and quality simulations. The model also assumes that all pollutants entering
the waterbodies are adsorbed to sediment.
8.3.5 Capabilities of the Selected Models
Major factors in selecting a watershed model include
• Water quality indicators simulated
• Simulation of land and water features (e.g., land use and waterbody types)
• Application considerations (e.g., training required)
The following sections discuss the capabilities and characteristics of the selected models for
each of these considerations.
Water Quality Targets or Endpoints for the Selected Models
The selection of the appropriate model for your watershed and your goals depends on the
types of processes you need to simulate. The initial criteria for determining which model
is right for your watershed analysis include the water quality targets or goals. Water quality
targets are based on specific parameters (e.g., phosphorus, sediment) and typically have an
associated magnitude, duration, and frequency. For example, a target might be established
for a monthly sediment load of 20 tons, or a bacteria target might be set as a daily maximum
of 400 counts/100 mL. To better summarize the selected watershed models' applicability to
typical water quality targets and to aid in identifying appropriate models for your watershed,
table 8-5 summarizes the models' abilities to simulate typical target pollutants and expres-
sions (e.g., load versus concentration). The table scores the models depending on the time
step of the simulation for the target—annual, daily, or hourly.
Simulation of Land and Water Features
After you've initially identified models based on the necessary parameters, it's important to
identify the major land and water features or processes that you want to simulate. For exam-
ple, what types of land uses are in your watershed? Is ground water an important influence
on instream water quality? Are there certain types of management measures you want to
evaluate in your watershed? The available models simulate different land and water features,
and they do so at different levels of detail. Table 8-6 provides a summary of the selected key
models' capabilities for simulating a variety of land and water features. The table identifies
the following categories:
• General Land and Water Features: Rates models according to their ability to simu-
late general land uses and waterbody types.
• Detailed Features: Rates models on the basis of their ability to simulate special pro-
cesses such as wetlands, hydrologic modification, urban management practices, and
rural management practices.
Application Considerations
Another issue to consider when selecting your model is what it takes to apply the model—
considerations like how long it will take to set up and apply the model, how much training
you'll need, and how much the model will cost. Table 8-7 rates the selected models based on
8-23
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Table 8-5. Water Quality Endpoints Supported by the Selected Watershed Models
Parameter/Endpoint
Total phosphorus (TP) load
TP concentration
Total nitrogen (TN) load
TN concentration
Nitrate concentration
Ammonia concentration
TN:TP mass ratio
Dissolved oxygen
Chlorophyll a
Algal density (mg/m2)
Net total suspended solids load
Total suspended solids
concentration
Sediment concentration
Sediment load
Metals concentrations
Conductivity
Pesticide concentrations
Herbicide concentrations
Toxics concentrations
Pathogen count (£ coli, fecal
coliform bacteria)
Temperature
AGNPS
»
»
»
»
—
—
—
»
—
—
—
»
»
»
—
—
»
»
—
—
—
STEPL
O
—
0
—
—
—
—
—
—
—
O
—
—
0
—
—
—
—
—
—
—
GWLF'
»
»
»
»
—
—
»
—
—
—
—
—
»
»
—
—
—
—
—
—
—
HSPF
•
•
•
•
•
•
•
•
•
—
•
•
•
•
•
•
•
•
•
•
•
P8-UCM
•
•
•
•
—
—
—
—
—
—
•
•
•
—
—
—
—
—
—
—
—
SWAT
»
»
»
»
»
»
»
»
»
—
—
»
»
»
»
—
»
1
—
1
1
SWMM
•
•
•
•
•
•
•
•
—
—
•
•
•
•
•
—
—
—
—
•
—
Key:—Not supported O Annual I Daily ^Hourly
aGWLF calculations are performed on a daily basis, but the results are presented on a monthly basis.
Source: USEPA. 2005. TMDL Model Evaluation and Research Needs. EPA/600/R-05/149. U.S. Environmental Protection Agency,
Office of Research and Development, National Risk Management Research Laboratory, Cincinnati, OH.
www. epa.gov/nrmrl/pubs/600r05149/600r05149. htm
8-24
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Chapter 8: Estimate Pollutant Loads
Table 8-6. Land and Water Features Supported by the Selected Watershed Models
Land and Water Feature
AGNPS
STEPL
GWLF
HSPF
P8-UCM
SWAT
SWMM
General Land and Water Features
Urban
Rural
Agriculture
Forest
River
Lake
Reservoir/impoundment
Estuary (tidal)
Coastal (tidal/shoreline)
—
•
•
—
—
—
—
—
—
—
—
—
—
—
»
»
»
»
—
—
—
—
»
•
•
•
•
»
»
—
—
»
—
»
—
—
»
•
•
•
—
—
•
»
»
—
—
Detailed Land Features
Air deposition
Wetlands
Land-to-land simulation
Hydrologic modification
BMP siting/placement
—
—
—
•
—
—
—
—
—
—
—
—
—
—
»
»
—
—
—
»
—
—
—
—
—
—
»
»
Urban Land Management
Street sweeping and vacuuming
Nutrient control practices (fertilizer, pet waste
management)
Stormwater structures (manhole, splitter)
Detention/retention ponds
Constructed wetland processes
Vegetative practices
Infiltration practices
—
»
—
»
—
»
—
—
—
—
—
—
—
—
—
—
—
—
—
—
—
—
»
»
—
—
»
»
»
—
Rural Land Management
Nutrient control practices (fertilizer, manure
management)
Agricultural conservation practices (contouring,
terracing, row cropping)
Irrigation practices/tile drains
Ponds
Vegetative practices
•
•
»
»
—
—
—
—
•
•
—
»
—
—
—
»
—
•
•
•
»
»
—
»
—
Key: — Not supported
O Low: Simplified representation of features, significant limitations
I Medium: Moderate level of analysis, some limitations
9 High: Detailed simulation of processes associated with land or water feature
Source: USEPA. 2005. TMDL Model Evaluation and Research Needs. EPA/600/R-05/149. U.S. Environmental Protection Agency, Office of Research and
Development, National Risk Management Research Laboratory, Cincinnati, OH. www.epa.gov/nrmrl/pubs/600r05149/600r05149.htm
8-25
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
the practical considerations affecting their application. Models with filled circles are gener-
ally easier to use and require less data and time for application.
Table 8-7. Application Considerations of the Selected Watershed Models
Application Considerations
Experience required
Time needed for application
Data needs
Support available Support available
Software tools
Cost to purchase
AGNPS
»
»
»
»
»
•
STEPL
•
•
•
•
•
GWLF
•
•
•
•
•
HSPF
—
—
•
•
•
P8-UCM
•
•
•
•
SWAT
»
»
»
•
•
SWMM
—
»
•
Key:
Experience:
— Substantial training or modeling expertise required (generally requires professional experience with advanced
watershed and/or hydrodynamic and water quality models)
Moderate training required (assuming some experience with basic watershed and/or water quality models)
I Limited training required (assuming some familiarity with basic environmental models)
• Little or no training required
Cost to Purchase:
— Significant cost
(> $500)
Nominal cost (< $500)
> Limited distribution
• < 1 month • Public domain
Source: USEPA. 2005. TMDL Model Evaluation and Research Needs. EPA/600/R-05/149. U.S. Environmental Protection Agency,
Office of Research and Development, National Risk Management Research Laboratory, Cincinnati, OH.
www.epa.gov/nrmrl/pubs/600r05149/600r05149.htm
Support Available:
— None
Low
> Medium
• High
Time Needed for
Application:
— > 6 months
> 3 months
> > 1 month
Software Tools:
— None
Low
> Medium
• High
Data Needs:
High
> Medium
9 Low
8.4 Model Application Process for the Selected Models
Previous sections discussed the basic features of models, how to select appropriate models for
your project, and general steps in applying models. This section discusses the decisions made
during model application. Although the models have different features and capabilities, some
basic decisions regarding data and data processing are required for every model application.
The major data needs for the selected models reviewed here are summarized in table 8-8.
These are the decisions that result in tailoring the model to your specific site. Each major
decision point is discussed, along with some suggestions for how to decide the appropriate
level of detail.
For loading analysis you need to think carefully about the area being modeled. A watershed
is usually composed of areas with diverse land uses and activities. Some watersheds have
regional differences, such as a densely populated areas surrounded by countryside. When
applying a model to a watershed, the diversity within the watershed is simplified into major
categories so that the loads can be estimated. If the analysis is too detailed, the modeling
becomes very difficult to apply and test. If the analysis is too simplified, some important
8-26
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Chapter 8: Estimate Pollutant Loads
information might be lost. Modeling should build on the detailed understanding of the water-
shed developed during planning and data analysis.
Table 8-8. Typical Data Needs for Example Models
Model
AGNPS
STEPL
GWLF
HSPF
P8-UCM
SWAT
SWMM
Number of
Watersheds
>1
1
1
>1
1
>1
>1
Land Use and
Soil Parameters
CN/USLE
CN/USLE
CN/USLE
HSPF-specific
CN/USLE
CN/USLE
Green-Ampt/USLE
Stream Channel
Characteristics
N/A
N/A
N/A
Flow/discharge
relationships, length
N/A
Dimensions of stream
channel
Dimensions of stream
channel, conduits, and
pipes
Nutrient
Applications
Application rate
N/A
Manure/nutrient
applications, date
Application rate
N/A
Application rate
Buildup and wash-off
rates
Management
Practices
Location and type
associated with land use
General type
General/agricultural
Location and type
General type
Location and type
associated with land use
Location and type
associated with land use
Note: CN = curve number; USLE = Universal Soil Loss Equation.
8.4.1 Watershed Delineation
Although you've already delineated your watershed (^> section 5.4.1), you'll likely further divide
the watershed into small subwatersheds for modeling and evaluation. Dividing the watershed
into subwatersheds is usually the very first step in watershed modeling. A watershed of 10 square
miles might be subdivided into 20 subwatersheds about 0.5 square mile each. How do you decide
how small to go? That depends on the watershed characteristics, the type of model you're using,
and the management actions that might be considered. Some watershed characteristics to con-
sider when subdividing the watershed include
• Land use distribution and diversity
• Location of critical areas
• Stream gauging stations and water quality monitoring locations (subwatersheds should
match key monitoring locations for testing)
• Location of physical features like lakes, dams, and point source discharges
• Changes in topography
• Soil distribution
• Areas where management might change
Table 8-9 provides examples of the number of subwatersheds and average size of subwatersheds
for some very large watershed modeling applications using HSPF or LSPC. Why do they vary
significantly? The watershed with the most uniform land uses and a large area was evaluated
using large subwatersheds (e.g., Tongue River watershed in Montana). The watershed with the
smallest subwatersheds is in an area that ranges from highly urbanized to rural and has a dense
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
network of monitoring data available for testing. In this application the local conditions are
represented by using smaller watersheds. Each application is unique, and watersheds are
defined accordingly.
Table 8-9. Examples of Number and Size of Subwatersheds in Modeling Applications
Watershed
Mobile River Basin
French Gulch Creek
Boulder Creek
Clear Lake Watershed
San Gabriel River
San Jacinto River
Los Angeles River
Sacramento River
Lake Tahoe Watershed
Christina River
Tug Fork River
Upper Patuxent River
Lower Tongue River
Lake Helena Watershed
Wissahickon Creek
Tyger River
Salt River
Tygart Valley River
West Fork River
Location
AL/GA/MS/TN
AZ
AZ
CA
CA
CA
CA
CA
CA/NV
DE/MD/PA
KY/VA/WV
MD
MT
MT
PA
SC
USVI
WV
WV
Watershed Size
(mi2)
43,605
16
138
441
689
770
834
9,147
314
564
1,500
130
3,609
616
64
750
5
1,362
880
Number of
Subwatersheds
152
26
9
49
139
32
35
249
184
70
455
50
30
49
5
75
13
1,007
645
Average
Subwatershed
Size (mi2)
286.88
0.62
15.33
9.00
4.96
24.06
23.83
36.73
1.71
8.06
3.30
2.60
120.30
12.57
12.80
10.00
0.38
1.35
1.36
The number and size of Subwatersheds can affect the model selection process. Some water-
shed models have limitations on the number of Subwatersheds or the size of the area the
model can simulate. HSPF, SWMM, and SWAT are typically used for multiple subwater-
sheds, allowing for the evaluation of geographic distributions of loads. Models like GWLF
and STEPL do not inherently handle multiple watersheds and therefore are applied to one
watershed at a time.
How are Subwatersheds delineated? Most applications today use a geographic information
system (GIS) to delineate watersheds based on Digital Elevation Models (DEMs) and topo-
graphic maps. Some software packages provide autodelineation tools or other aids to help
define hydrologic boundaries. Predefined watershed boundaries such as 14-digit hydrologic
units can be used. ^> See section 5.4.1 for more details on delineating watersheds.
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Chapter 8: Estimate Pollutant Loads
8.4.2 Land Use Assignment
Land use information is typically provided as a GIS coverage or map with many individual
codes that describe detailed land use types. For modeling purposes, these individual codes
should be grouped into a more manageable set of dominant land use types. How much com-
bining is done depends on the watershed characteristics. Factors to consider in deciding on
land use grouping include the following:
• Dominant land use types
• Land uses subject to change or conversion
• Land use types where management changes are expected
• Spatial diversity within the watershed
• Availability of information on individual land use types
When grouping land uses, recognize that the summary of pollutant loading will be presented
by land use category. Too many categories of land uses can be difficult to model, test, and
report. Too few categories can result in oversimplification and generalization of the water-
shed conditions. Like so many aspects of watershed analysis, this decision depends on the
local conditions and the management concerns being evaluated. When selecting your land
use grouping, think about the dominant features of your watershed and how they might
change in the future (table 8-10). For example, in a watershed that is predominantly forested,
the key land use categories might include various ages of trees (newly established, mature),
logging roads, and small residential areas. Changes under consideration might be forest
practices/harvesting techniques, road removal, and road management. For this watershed
most of the detailed land use categories would relate to forest type and practice. In an urban
watershed, forest might be grouped into a single category while numerous densities of urban
land uses (e.g., commercial, industrial, high-density urban) are represented in more detail.
Table 8-10. Example Land Use Categories for Watershed Models
Forested Watershed
Mature forest
Scrub/brush
Newly established forest (1-5 years)
Harvested areas (0-1 years)
Dirt roads
Camp areas
Residential
Urban Watershed
Low-density residential
Medium-density residential
High-density residential
Commercial
Industrial
Open space
8.4.3 Parameter Selection
Once subwatersheds and land uses are defined, the next deci-
sions involve summarizing other spatial information within
each subwatershed. For most models, this involves combin-
ing information on soils, topography, and land use. For
example, models that use the CNE (STEPL, GWLF, SWAT,
AGNPS, and P8-UCM) have look-up tables that relate soil,
crop type, and management to a CN factor (USDA-NRCS
1986). The CN is used in the model to calculate runoff based
If k9 ^e decisions made regarding data processing
*• *•[ for model input are part of the assumptions
and potential limitations of the modeling approach.
During the application, keep a log of all data-processing
steps for later use in documenting and identifying
assumptions and limitations.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
on rainfall for specific land areas. For HSPF, an infiltration factor that relates to the soil type
associated with each land use is selected. For example, CN options for cornfields (row crops
without conservation treatment) include the following (USDA-NRCS 1986):
Corn A soil Good Condition 67
Corn B soil Fair Condition 79.5 (Average of the CNs for poor and good
conditions)
Corn B soil Good Condition 78
Corn C soil Poor Condition 88
"Condition" applies to the soil conditions for the area. An area with good-condition soils
likely has a better soil structure, resulting in good infiltration and less runoff. Poor-condi-
tion soils are typically more compacted, resulting in less infiltration and more runoff. When
setting up the model, you would select the appropriate CN that represents a subwatershed/
land use unit.
Similarly, key parameters for sediment predictions in STEPL, GWLF, SWAT, AGNPS, and
P8-UCM are based on the USLE and are selected for each subwatershed/land use unit. The
USLE includes parameters that relate to slope, length, erosion potential, and cropping practice.
The USLE can be written as follows (Wischmeier and Smith 1965,1978):
A = RxKxLSxCxP
Where A represents the potential long-term average annual soil loss in tons per acre per year,
R is the rainfall and runoff factor by geographic location, K is the soil erodibility factor, LS
is the slope length-gradient factor, C is the crop/vegetation and management factor, and P
is the support practice factor. For example, USLE parameters for a cornfield with 2-percent
slope, erodible soils, and conventional tillage could be selected as follows:
R = 275 (Clarke County, Georgia)
K = 0.3 (soil textural class = loam)
LS = 0.2008 (2 percent slope and 100 feet of slope length)
C = 0.54 (residue removed, conventional tillage, fall plow)
P = 1 (no supporting practice)
Therefore, average annual soil loss is calculated as
A = 275 x 0.3 x 0.2008 x 0.54 x 1 = 8.9 ton/acre/year
If no-till is practiced and the soil surface is covered with residues, the C factor is 0.11 and the
average annual soil loss will be
A = 275 x 0.3 x 0.2008 x 0.11 x 1 = 1.8 ton/acre/year
The convenience and consistency of the CNE and USLE approaches are one of the reasons
that use of models based on them is prevalent. In many areas the CNE, as applied in the
NRCS runoff model TR-20, is also used for predicting flow when designing stormwater
ponds and road culverts. Engineers and analysts throughout the country are familiar with
these fundamental equations.
There are, however, some limitations that you should consider when applying models based
on these equations. Like any analytic tool, they are generalizations of natural physical
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Chapter 8: Estimate Pollutant Loads
processes of runoff and erosion. The CNE is based on a stan-
dard storm and uses daily rainfall. That means a very intense
storm in which the rainfall falls very quickly is treated in the
same way as a slow rainfall that continues throughout the
day. This can result in some overprediction or underpredic-
tion of rainfall on a specific day. Similarly, the USLE simpli-
fies the erosion processes of detachment (loosening of surface
soils due to rainfall) and wash-off. These processes are also
very sensitive to rainfall intensity and localized conditions.
HSPF and SWMM are more sensitive to rainfall intensity
because they use an hourly or shorter rainfall record. How-
ever, this additional detail requires more information and
model testing to verify model performance.
8.4.4 Model Testing
How do you know if the model is working appropriately?
What kinds of tests can you perform to prove that the model
is working? Before embarking on detailed evaluation and sta-
tistical testing of a model, you must first check the fundamen-
tal performance of the model. Check whether the model is
working, evaluate the basic performance, and adjust or verify
inputs if necessary. Then test for accuracy. In the early testing
process, most modelers look at graphs of observed and
simulated data and generalized summaries of flow and
loading predictions. Initially, you're looking for ways
to improve the model and identify features that might
have been missed during setup. In the later part of
model testing, you're looking for proof that the model
is working well and providing reasonable results.
Simulation of Management Practices
The selected models reviewed here have various
capabilities for the representation of management
practices, and they tend to specialize in agricultural
and urban practices as listed below:
• Agricultural practices—SWAT, AGNPS, GWLF,
STEPL
• Urban practices—P8-UCM, STEPL, SWMM
• Mixed land use—STEPL, HSPF
**> More information on how the selected models
simulate management practices and how they can
support selection of management strategies is
included in section 11.3.
Ij 10 Use common sense in testing modeling
*• *•[ results. Ask a few key questions: Do the
results appear consistent with other studies or literature
values? Is the water balance correct? Are the predictions
consistent with the types of sources or land uses in the
watershed? Are there any missing sources?
Lower Beaverdam
Creek (006)
Western
Branch(007)
Forested Site
(005)
Testing involves comparing modeling results with
observed data. It should focus on the questions the
model is designed to answer. If a model is designed to
evaluate annual nutrient loads, for example, com-
parisons are made with flow and nutrient monitoring
information. Sometimes, when data are highly limited,
model testing is based primarily on comparison with
literature values, similar studies in nearby regions,
and evaluation using alternative calculation tech-
niques. Figure 8-2 shows idealized model testing
points: an upstream small watershed (1), a small water-
shed dominated by a single land use (2), and a down-
stream point at a USGS flow gauging station (3). In
cases where additional data gathering is not possible
and historical records are limited, testing might be
based on a single downstream location. Testing is best
performed at locations where flow gauging and water quality sampling are available, typically
at USGS gauging stations. When selecting the subwatershed delineation in the initial model
setup, consider the locations of available monitoring and testing points. Then the model out-
put can be compared at the locations where flow and water quality measurements are available.
KB Upstream subwatershed at monitoring station
F'-B Small single land use monitoring site
O Downstream at a main watershed USGS
gauging and monitoring station
Figure 8-2. Typical Model Evaluation Points
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Example Calibration Tests
Regression: Model output is plotted against observed
data, and a regression equation can identify the
relationship between modeled and observed values
and the goodness of fit. (See figures 8-3 and 8-4 for
examples.)
Relative error: Modeled errors are measured by
comparing simulated flow values with observed flow
values for various periods (e.g., for the summer) using
the following equation:
(Simulated value - observed value)/observed value
Some modeling studies require adjusting or estimating
parameters through a calibration process. For this process
the monitoring data are split into two independent peri-
ods—calibration and validation. Ideally, these periods are
two typical time periods (not extreme conditions) with a
range of flow conditions. During the calibration period key
parameters are adjusted within reasonable ranges until the
best fit with the observed data is determined. The perfor-
mance of the "calibrated" model is then tested for a separate
validation period.
The various model adjustment capabilities for the selected
models depend on the techniques used for simulating runoff
and pollutant transport (table 8-11). All models based on the
CNE have limited ability for calibration of flow. Because the
CN is selected based on defined look-up tables, only some
slight adjustment of a CN for local conditions can be justi-
fied. GWLF and SWAT provide for ground water discharges
to stream systems, offering an opportunity for calibrating
instream flow volume. In this group of models, HSPF pro-
vides the most flexibility for adjusting parameters to match
local conditions. HPSF includes calibration variables for
infiltration, upper and lower zones of soil storage, ground
water inputs to streams, and pollutant buildup and wash-off.
Although this flexibility can help tailor the model to local
conditions, the number of parameters involved can intro-
duce errors and bias to the analysis as well. Adjustment of parameters must carefully con-
sider the physical processes being represented and the reasonable ranges for the parameters.
SWMM has many of the same infiltration and pollutant wash-off features as HSPF. SWMM
has a more simplified approach for erosion simulation using the USLE, and it does not have
the ability to simulate detailed land management activities (e.g., manure applications, tillage
practices). However, SWMM does include techniques for evaluating structural management
practices and pipes typical of urban areas.
Table 8-11. Typical Calibration Options for Selected Example Models
A small relative error indicates a better goodness of fit
for calibration.
Model coefficient of efficiency: This value measures
the ratio of the mean square error in model predictions
to the variance in the observed data. Values range
from minus infinity to 1.0; higher values indicate better
agreement.
Student's t-test: This test measures the equality of
average modeled concentrations compared to average
observed concentrations over various periods (e.g., the
entire calibration period).
AGNPS
STEPL
GWLF
HSPF
P8-UCM
SWAT
SWMM
Flow Calibration
Limited CN
Limited/CN only
Ground water recession
Multiple, infiltration, soil storage, ground water
Limited/CN only
Ground water
Multiple, infiltration, soil storage, ground water
Pollutant Calibration
Nutrient concentrations in water and sediment
Loading rate
Nutrient concentrations in water (runoff, ground
water) and sediment
Pollutant buildup and wash-off, instream
transport/decay
Loading rate or more detailed buildup and wash-
off of dust and pollutants
Nutrient concentrations in water and sediment
Pollutant buildup and wash-off, instream
transport/decay
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Chapter 8: Estimate Pollutant Loads
There are two major sequences or hierarchies of testing—parameters and time scales. Of all
the parameters predicted by the model, flow is always checked first, followed by sediment,
and then the various pollutants being simulated (e.g., nutrients, metals). Multiple time scales
are also evaluated, including annual, monthly, and daily summaries (figure 8-3). Time peri-
ods can also be grouped by season to evaluate performance that relates to wet and dry periods
reflective of local weather patterns. In addition, for models sensitive to rainfall intensity, such
as HSPF, predictions can be evaluated on the basis of storm size. For example, how well does
the model predict the smallest 25 percent of all storms?
The typical factors used in evaluating model performance include the following:
• Water balance (general assessment of precipitation, evaporation, infiltration, and
runoff)
• Observed versus measured flow (daily average, monthly, annual, and flow duration
curves) (figure 8-3)
• Observed versus measured load (annual loads, seasonal variation, source loads)
• Observed versus modeled pollutant concentrations (figure 8-4) or pollutant loads
Avg Flow (1/1/1995 to 12/31/1998)
-Line of Equal Value
-Best-Fit Line
o
CO
80 -
60 -
40 -
20 -
n -
y=0
R
X*
9935x - 0.395
= 0.8761
B
f
*
//
/
_.-''
•
0 20 40 60 80 100
Average Modeled Flow (cfs)
Average Monthly Rainfall (in)
- Median Observed Flow (1/1/1995 to 12/31/1998)
100
80 -
Avg Monthly Rainfall (in)
-Avg Observed Flow (1/1/1995 to 12/31/1998)
•Avg Modeled Flow (Same Period)
JFMAMJJASOND
1234567
Month
Observed (25th, 75th)
I Modeled (Median, 25th, 75th)
9 10 11 12
100
80
6°-
40
20
JFMAMJJASOND
Jit
I
*i*.
1 2 3 4 5 6 7 8 9 10 11 12
Month
Figure 8-3. Sample Calibration Tests for Hydrologic Simulation
- 2
4
-10
-12
14
CD
'I
ct
>,
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
• Observed Total Nitrogen (mg/L)
Modeled Total Nitrogen (mg/L)
I Modeled Flow (cms)
Figure 8-4. Sample Model Testing Graphic
These factors can all be "tested" through graphical evaluation or by applying statistical tests
to observed data and modeled output (see sidebar for examples). Each test can examine dif-
ferent aspects of performance consistent with the type of model selected and the questions
being evaluated. Testing is a process that can be used to diagnose problems with the model
setup, improve model simulation, and ultimately confirm that the model is working correctly.
You should not rely too heavily on a single test, but use a combination of approaches to get
a multifaceted evaluation of model performance. When you start testing the model, watch
out for indications that something has been missed during model setup. Sometimes models
appear not to work because a source is missing or was incorrectly entered into the model. For
example, the model might appear to underpredict flow during low-flow periods. This could be
an indication that a point source discharge is missing or that ground water recharge into the
stream system is too low. Looking carefully at this low-flow period, when point sources and
ground water are the dominant sources, and reviewing local records can help you to diag-
nose this problem. Always check carefully for missing information before you adjust model
parameters to compensate for something you observe. Be careful to keep track of changes and
modeling versions so that updates are consistently incorporated into subsequent analyses.
Sometimes local anomalies in geology and hydromodification can significantly affect flow
and loading predictions. These local conditions should be considered during the model selec-
tion process. Setup and application of models need to specifically account for local geology
and hydrologic conditions. Some examples of specialized conditions follow:
• Unusual hydrology due to local geologic conditions (e.g., karst features). Some areas have
unusual conditions. Streams might disappear or have unusual flow patterns. If these
conditions are not well understood or monitored, modeling will be difficult.
• High water table. If the water table is very high, rainfall might not infiltrate, or interac-
tions between surface water and ground water might occur.
• Undiagnosed or undiscovered sources. If a source is unknown, it won't be in the model.
When testing a model, you might realize that a source is missing. Additional field
reconnaissance or monitoring might be needed to check.
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Chapter 8: Estimate Pollutant Loads
8.4.5 Estimation of Existing Conditions and
Baseline Scenarios
The modeling approaches developed are ultimately designed
to support decisionmaking. Essential to decisionmaking is
the application of the model to various alternatives. How you
use the model to support decisionmaking is as important as
the various steps that go into building and testing the model.
Typically, models are applied to an existing condition to set a
baseline for comparison. Existing conditions can be com-
pared with management alternatives and future conditions.
Remember that "existing" is really a reflection of the data
used to build the model. If the land use data you're using are
10 years old and were not updated for the study, "existing"
really represents 10 years ago. If residential development
includes management practices and you have not included
management practices in the model, "existing" conditions
might overestimate loads.
Documenting Model Selection and
Application
When using a model as part of a watershed manage-
ment effort, it's important to document the modeling
process. The purpose of documentation is to provide
a firm understanding of what the modeling effort
represents to the public and planning committee. At
a minimum, the model documentation should include
the following:
• Model name and version
• Source of model
• Purpose of model application
• Model assumptions (list or summarize); any of the
assumptions could limit the usability of the results
of the application, and that must be explained
• Data requirements and source of datasets
To estimate existing conditions, you apply the calibrated
model to some typical time period and then calculate the loads based on model results. To
help understand the watershed loads and their sensitivity to different watershed conditions,
it's useful to apply the model to various scenarios that represent some variation of the base-
line. Some of the model applications you might want to consider are
• Future land use under various growth or land use conversion scenarios
• Management practice or point source implementation alternatives
• Historical or predevelopment conditions
Ultimately, in designing and selecting management alternatives (^> discussed in chapters 10
and 11), you can use the model to support selection of the preferred alternative and to esti-
mate the benefits of management implementation.
Tip
Keep a log of all scenarios considered and the
input assumptions used for each.
8.5 Presenting Pollutant Loads
You'll use the information gained from your loading analy-
sis to quantify the watershed pollutant loads. Your loading
analysis essentially quantified the loads, but now you have to
decide how to present them for use in your watershed plan.
Two factors will affect this decision—space and time. You
need to decide the spatial resolution for your loads, as well as the time scale for their calcula-
tion. You initially made these decisions when you identified your sources (^> chapter 7), but
now you'll refine the spatial and time scales for evaluating and calculating source loads based
on your loading analysis.
Table 8-12 summarizes typical scales for calculating and presenting loading results from
watershed models. Presentations can use a combination of tables and graphical displays.
(Storing information in spreadsheets or databases can facilitate comparisons and prepara-
tion of graphics.) Developing maps, graphs, bar charts, and piecharts can help to summarize
information and facilitate interpretation of results.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Table 8-12. Typical Loading Presentation Categories and Types
Spatial Scale
Land Use
Time Scale
Watershed
Tributary (multiple-subwatershed)
Region (political or other
boundaries)
Subwatershed
Critical areas
Watershed general land use
category (agriculture, urban)
Land use subcategory
(cropland, pasture, residential)
Average annual
Annual
Seasonal
Monthly
Storm
Design storm
8.5.1 Consider Spatial Scales
There are various options for assigning the spatial extent for your load calculations. You can
quantify a gross load for the overall watershed or for each land use or even for each land use
in each subwatershed. The detail to which you calculate
the loads in the watershed will depend primar-
ily on the types and locations of the watershed
sources identified during the data analysis. If a
spatial analysis of water quality data identi-
fied critical areas in the watershed—areas
experiencing the most or worst problems and
impairments—those areas should be isolated
and the loadings presented separately. If the
watershed is large and has a variety of pol-
lutant sources, it is recommended that you
present the loadings by subwatersheds or
groupings of subwatersheds, such as larger
tributaries (figure 8-5). Calculating loads by
land use is also useful because many pollut-
ants are associated more with some land uses
than with others. For example, cropland
runoff is often a source of nutrients, whereas
forested areas are typically less significant
sources of nutrients.
Figure 8-5. Presentation of Annual Sediment Loads (Ib/ac) by
Subwatershed, San Jacinto, California
8.5.2 Consider Time Scales
The other issue affecting how you present the watershed loads in your watershed plan is the
associated time scale. Loads can be calculated for a number of time scales—daily, monthly,
seasonal, annual. Like the spatial resolution, the appropriate time scale depends on the
sources and problems in your watershed. The results of the data analyses provide a guide
for selecting the appropriate time scale for the loading analysis and ultimate presentation of
the loads. For example, analysis of monthly or seasonal water quality conditions identifies
the critical times of year in the watershed. If there is considerable variation in water quality
throughout the year, given source loading characteristics and weather patterns, it might be
necessary to calculate seasonal loads (figure 8-6).
The impairment characteristics and water quality or watershed targets can also affect the
loading time scale. Some pollutants, such as bacteria, have more immediate impacts, and
associated targets are often based on daily maximums or a geometric mean of instantaneous
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Chapter 8: Estimate Pollutant Loads
concentrations. For bacteria, it might be
appropriate to use an approach that is
capable of calculating daily loads for com-
parison to water quality targets. Sediment
loading, on the other hand, is a chronic
problem that has long-term impacts (figure
8-7). Occasional high sediment concentra-
tions might not cause problems, but frequent
high sediment loading could result in long-
term impacts on aquatic habitat. Therefore,
it is usually appropriate to evaluate sediment
loading on a monthly or annual basis.
Keep in mind that how you establish the
pollutant loads will affect your ability to
evaluate management options. When quan-
tifying the pollutant loads, you're essentially
establishing the baseline load that will be
reduced to meet your watershed goals. If you
establish an overall load for the entire water-
shed, it will be difficult to assess changes
in loads and improvements throughout the
watershed. If you establish loads at critical
areas (e.g., downstream of a major source,
for specific land uses), you can more readily
evaluate the direct impact of the surround-
ing sources and also future management
efforts targeted at those sources.
1.E+13 j
1.E+12 i
Figure 8-6. Seasonal Fecal Coliform Bacteria Loads
8.5.3 Next Steps in Developing the
Watershed Plan
Now that you've calculated source loads
for your watershed, you can move on to the
next step of the watershed plan development
process—identifying watershed targets and
necessary load reductions. The loads you've
calculated will provide the basis for iden-
tifying the load reductions needed to meet
watershed goals and eventually for selecting
appropriate management practices.
% of Total Sediment Load
Groundwater
21%
Roads
14%
Residential
1%
Landfill
Evergreen
Forest
18%
Pasture/Hay
4%
Cropland
41%
Figure 8-7. Total Sediment Load and Percentages Associated
with Each Source
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Handbook Road Map
1 Introduction
2 Overview of Watershed Planning Process
3 Build Partnerships
4 Define Scope of Watershed Planning Effort
5 Gather Existing Data and Create an Inventory
6 Identify Data Gaps and Collect Additional Data If Needed
7 Analyze Data to Characterize the Watershed and Pollutant Sources
8 Estimate Pollutant Loads
-. 9 Set Goals and Identify Load Reductions
10 Identify Possible Management Strategies
11 Evaluate Options and Select Final Management Strategies
12 Design Implementation Program and Assemble Watershed Plan
13 Implement Watershed Plan and Measure Progress
9. Set Goals and Identify Load Reductions
Setting goals
Identifying management objectives
Selecting indicators
Developing targets
Determining load reductions needed
Focusing on load reductions
Read this chapter if...
• You want to select indicators to measure attainment of your
watershed goals
• You want to use your watershed goals to identify numeric water
quality targets
• You need an approach to determine how much of a load
reduction you need to meet your watershed goals
• You want information on how to focus load reductions
appropriately
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
9.1 How Do I Link the Watershed Analysis to Management
Solutions?
Once you have analyzed the data, identified the problem(s) in the watershed, and identified
and quantified the sources that need to be managed, you'll develop management goals and
associated targets. During the scoping phase of planning (chapter 4), you established broad
watershed goals (e.g., meet water quality standards, restore degraded wetlands) as a prelimi-
nary guide. Now that you have characterized and quantified the problems in the watershed
(chapters 7 and 8), you're ready to refine the goals and establish more detailed objectives and
targets that will guide developing and implementing a management strategy.
The process of developing specific objectives and targets is an evolution of the watershed
goals you identified with your stakeholders. As you proceed through the watershed plan
development, you'll gain more information on the watershed problems, waterbody condi-
tions, causes of impairment, and pollutant sources. With each step of the process, you can
focus and better define your watershed goals, until eventually you have specific objectives
with measurable targets. Figure 9-1 illustrates this evolution. The first step is identifying
the broad watershed goals with your stakeholders, answering "What do I want to happen as
a result of my watershed plan?" As you do this, you'll also identify environmental indicators
that can be used to measure progress toward meeting those goals. Once you have identified
the sources contributing to watershed problems, you can refine your watershed goals and
develop management objectives targeted at specific pollutants or sources. The management
objectives identify how you will achieve your goals. It's important to have indicators that can
be measured (e.g., load or concentration) to track progress toward meeting those objectives.
You should link some of these indicators to pollutant sources based on their cause-and-effect
relationship to then identify the load reductions needed to meet the target. For example,
instream levels of dissolved oxygen can be linked to nutrient loads, and you can use various
methods to determine what reductions in nutrients will result in the dissolved oxygen target.
Set targets
ID load
reductions
Objectives
Figure 9-1. Process for Identifying Final Watershed Goals and Targets
Once you have identified your indicators, numeric targets, and associated load reductions,
they can be incorporated into the management objectives for the final goals for your water-
shed plan. These goals will guide the identification and selection of management practices
to meet the numeric targets and, therefore, the overall watershed goals, as discussed in
"^ chapters 10 and 11.
9-2
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Chapter 9: Set Goals and Identify Load Reductions
9.2 Translate Watershed Goals into Management Objectives
You've probably already identified preliminary goals and associated environmental indica-
tors with your stakeholders, as outlined in chapter 4, but now you'll refine the goals on the
basis of your data analysis. The data analysis identified the likely causes and sources affect-
ing specific indicators (e.g., temperature, dissolved oxygen, pebble counts). Therefore, you
have an idea of what sources need to be controlled to meet your overall watershed goals and
can use this information to translate your watershed goals into management objectives. Man-
agement objectives incorporate the watershed goals but focus on specific processes that can
be managed, such as pollutant loading and riparian conditions.
For example, perhaps during the scoping phase you knew that there was a problem with
aquatic habitat so you established the preliminary goal "restore aquatic habitat." Now, after
the data analysis, you can refine the goal to include a specific management objective, such as
"restore aquatic habitat in the upper main stem of White Oak Creek by controlling agricul-
tural sources of sediment." Table 9-1 provides some examples of translating watershed goals
into management objectives.
Table 9-1. Sample Goals Linked to the Sources and Impacts to Define Management Objectives
Preliminary Goal
Support designated uses
for aquatic life; reduce
fish kills
Reduce flood levels
Restore aquatic habitat
Meet water quality
standards for bacteria to
reduce beach closures
Improve aesthetics of lake
to restore recreational use
Meet water quality
standards for metals
Restore wetland
Conserve and protect
critical habitat
Indicators
Dissolved oxygen
Phosphorus
Temperature
Peak flow volume and
velocity
Riffle-to-pool ratio,
percent fine sediment
Fecal coliform
bacteria
Algal growth,
chlorophyll a
Zinc, copper
Populations of
wetland-dependant
plant and animal
species; nitrogen and
phosphorus
Connectivity, aerial
extent, patch size,
population health
Cause or Source of Impact
Elevated phosphorus causing
increased algal growth and decreased
dissolved oxygen
Cropland runoff
Inadequate stormwater controls,
inadequate road culverts
Upland sediment erosion and delivery,
streambank erosion, near-stream
land disturbance (e.g., livestock,
construction)
Runoff from livestock operations,
waterfowl
Elevated nitrogen causing increased
algal growth
Urban runoff, industrial discharges
Degradation of wetland causing
reduced wildlife and plant diversity and
increases in nitrogen and phosphorus
runoff because of a lack of wetland
filtration
Potential impacts could include loss of
habitat, changes in diversity, etc.
Management Objective
Reduce phosphorus loads from
cropland runoff and fertilizer
application
Minimize flooding impacts by
improving peak and volume controls
on urban sources and retrofitting
inadequate road culverts
Reduce sediment loads from upland
sources; improve riparian vegetation
and limit livestock access to
stabilize streambanks
Reduce bacteria loads from
livestock operations
Reduce nitrogen loads to limit algal
growth
Improve stormwater controls to
reduce metal loads from runoff
Restore wetland to predevelopment
function to improve habitat and
increase filtration of runoff
Maintain or improve critical habitat
through conservation easements
and other land protection measures
9-3
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Don't Forget About
Programmatic and Social
Indicators
^Chapters 4and 12 discuss
the development of a variety of
indicators to measure progress
in implementing your watershed
plan and meeting your goals.
Indicators can be environmental,
social, or programmatic.
This chapter discusses only
environmental indicators and
how they are used to represent
watershed goals and evaluate
pollutant load reductions.
Social and programmatic
indicators are identified as part
of the implementation program,
^discussed in chapter 12.
9.3 Select Environmental Indicators and Targets to Evaluate
Management Objectives
Once you have established specific management objectives, you'll develop environmental
indicators and numeric targets to quantitatively evaluate whether you are meeting your ob-
jectives. You identified indicators with the stakeholders when you developed your concep-
tual model (v chapter 4), and the indicators should be refined in this step. The indicators
are measurable parameters that will be used to link pollutant sources to
environmental conditions. The specific indicators will vary depending on
the designated use of the waterbody (e.g., warm-water fishery, cold-water
fishery, recreation) and the water quality impairment or problem of con-
cern. For example, multiple factors might cause degradation of a warm-wa-
ter fishery. Some potential causes include changes in hydrology, elevated
nutrient concentrations, elevated sediment, and higher summer tempera-
tures. Each of these stressors can be measured using indicators like peak
flow, flow volume, nutrient concentration or load, sediment concentration
or load, and temperature.
A specific value can be set as a target for each indicator to represent the desired
conditions that will meet the watershed goals and management objectives.
Targets can be based on water quality criteria or, where numeric water quality
criteria do not exist, on data analysis, reference conditions, literature values,
or expert examination of water quality conditions to identify values represen-
tative of conditions that support designated uses. If a Total Maximum Daily
Load (TMDL) already exists for pollutants of concern in your watershed, you
should review the TMDL to identify appropriate numeric targets. TMDLs are
developed to meet water quality standards, and when numeric criteria are not
available, narrative criteria (e.g., prohibiting excess nutrients) must be used to
develop numeric targets.
It might be necessary to identify several related indicators and target values to facilitate evalu-
ation of pollutant loads and measure progress. For example, dissolved oxygen is an indicator of
the suitability of a waterbody to support fisheries. However, dissolved oxygen is not a specific
pollutant and is not typically estimated as a load. Because
dissolved oxygen is a waterbody measure that is affected by
several parameters, including nutrients, it's appropriate to
select other indicators that can be linked to dissolved oxygen
and quantified as loads (e.g., phosphorus loading).
Not All Indicators Will Have Associated
Load Reductions
It will be difficult or impossible to develop
quantifiable indicators for all watershed issues of
concern. For example, some goals and associated
indicators (e.g., "make the lake more appealing for
swimming," or "reduce the prevalence of exotic
species") are indirectly related to other indicators that
are more easily linked to source loads (e.g., dissolved
oxygen, nutrient loads), and trying to link them to
one or even a few specific pollutants and source
loads is often too difficult or inappropriate. Therefore,
these indicators are expected to improve based on
identified load reductions for other indicators. They
will be directly measured to track overall watershed
goals, but they will not have an associated load
reduction target.
Table 9-2 provides some examples of indicators and target
values associated with management objectives.
9.4 Determine Load Reductions to Meet
Environmental Targets
At this point in the watershed planning process, you have
already quantified the pollutant loads from sources in your
watershed (^> chapter 8) and identified appropriate environ-
mental indicators and associated targets to meet your water-
shed goals. The next step is to determine the load reductions
needed to meet your targets—how to control watershed
sources to meet your goals.
9-4
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Chapter 9: Set Goals and Identify Load Reductions
Table 9-2. Examples of Indicators and Targets to Meet Management Objectives
Management Objective
Reduce phosphorus loads from cropland
runoff and fertilizer application
Minimize flooding impacts by improving peak
and volume controls on urban sources and
retrofitting inadequate road culverts
Reduce sediment loads from upland sources;
improve riparian vegetation and limit
livestock access to stabilize streambanks
Reduce bacteria loads from livestock
operations
Reduce nitrogen loads to limit algal growth
Improve stormwater controls to reduce metal
loads from runoff
Indicator and Target Value
Dissolved oxygen: Daily average of 7 mg/L (from water quality standards)
Phosphorus: Daily average of 25/jg/L (based on literature values)
Peak flow volume and velocity: Peak velocity for 1-yr, 24-hr storm of 400 cfs
Riffle-to-pool ratio: 1:1 ratio (based on literature values)
Percent fine sediment: <10 percent of particles <4 mm (based on reference conditions)
Fecal coliform bacteria: Geometric mean of 200 cfu/100 ml (based on water quality
standards)
Algal growth: <10 percent coverage of algal growth (based on reference conditions)
Chlorophyll a: <1 jug/L (based on literature values)
Zinc: Maximum of 120/jg/L (based on water quality standards)
Copper: Maximum of 13/jg/L (based on water quality standards)
; phase of the watershed planning process should result in element b of the nine ele-
ments for awarding section 319 grants. Element b is "An estimate of the load reductions expected
from management measures."
To estimate the load reductions expected from the management measures, you need to under-
stand the cause-and-effect relationship between pollutant loads and the waterbody response.
Establishing this link allows you to evaluate how much of a load reduction from watershed
sources is needed to meet waterbody targets. The options for establishing such links range
from qualitative evaluations to detailed receiving water computer modeling. As with your ap-
proach for quantifying pollutant loads, selecting the appropriate approach will depend on sev-
eral factors, including data availability, pollutants, waterbody type, source types, time frame,
and spatial scale. Most important, the approach must be compatible with the method used to
quantify loads and must be able to predict the necessary load reductions to meet targets.
A number of techniques—some more rigorous and detailed than others—can
be used. Sometimes models or analytic techniques that allow for careful cal-
culation of appropriate loading are used, but at other times you might have
only limited data to estimate loadings. This section includes a range of
approaches you can use to identify the load reductions needed to meet
targets. Remember that the load estimates can be updated over time
as more information and data are collected. The options discussed
in this section include
• Qualitative linkages
• Mass balance approach
• Empirical relationships
• Statistical or mathematical relationships
• Reference watershed approach
• Receiving water models
A Other
9-5
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Table 9-3 presents some example approaches for the linkage analysis for typical waterbody-
pollutant combinations. Many of these approaches are discussed in the following sections.
Table 9-3. Example Approaches for Linking Indicators and Sources
Waterbody-Pollutant
Combination
River-Pathogens
Lake-Nutrients
River-Nutrients
River-Pesticides/Urban
River/Estuary-Toxic
Substances
River-Sediment
River-Temperature
River-Biological Impairment
Estuary-Nutrients
Coastal Pathogen
Example Linkage Approach
Instream response using HSPF (data collection consideration)
Lake response using BATHTUB
More detailed option using CEQUAL-W2 or EFDC
Stream response using mass balance, QUAL2E low-flow model, or WASP
Allowable loading determination based on calculation from identified target at
design flow or a range of flows
Allowable loading determination based on calculation from identified target at
design flow or a range of flows
Load target determined from comparison with desired reference watershed
Geomorphic/habitat targets derived from literature
SSTEMP or SNTEMP stream flow and temperature analysis
QUAL2E stream flow and temperature analysis
Comparison of estimated watershed/source loads with loads in reference watershed
Estuary response using Tidal Prism, WASP, EFDC, or similar model
Response using WASP, EFDC, or similar model
Alternatively, determine correlation of coastal impairment with tributary loading
9.4.1 Qualitative Linkages Based on Local Knowledge or Historical
Conditions
If you have only limited data for your watershed and the sources and causes are not well
documented or characterized, it might be appropriate to use a theoretical linkage to explain
the cause-effect relationship between sources and waterbody conditions. You might have to
rely on expert or local knowledge of the area and sources to identify coarse load reduction
What if Load Reductions for My Watershed Have Already Been Established by a TMDL?
An existing study (e.g., TMDL) might already have identified the allowable loading for one or more pollutants in your watershed. You might be
able to use these studies for your targets or at least incorporate them into your analysis.
Keep the following in mind when incorporating TMDL results:
• Pollutants: What pollutants were considered? How do they relate to your goals?
• Time frame: Have conditions changed from the time of TMDL development?
• Data availability: Are more data available now to update the analysis?
• Management efforts: Have any management activities been implemented since the TMDL was developed that should be taken into account?
• Source level: At what level did the TMDL assign load allocations and reductions? Do you want more detailed or more gross distributions?
9-6
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Chapter 9: Set Goals and Identify Load Reductions
targets. If you do this, remember to incorporate a schedule for updating your watershed plan
and load reductions as more information and data are collected.
An example of a qualitative linkage is an assumed linkage between instream sediment
deposition and watershed sediment loading. The expected problem is fine sediment filling
in pools used by fish and cementing the streambed, prohibiting the fish from laying eggs. Al-
though it is known that sediment loading increases the deposition of fine sediment, you have
no documented or quantified link between the two. You can estimate a conservative load
reduction, accompanied by plans for additional monitoring to evaluate instream conditions.
Another example of a qualitative linkage is the assumption that loading is directly propor-
tional to the instream response. That is, a percent increase in loading will result in an equal
percent increase in instream concentrations. Assuming this, you can use observed data to
calculate the needed reduction in waterbody concentration to meet your target and assume
that it is equal to the necessary percent reduction in loading. Although a 1-to-l relationship
between loading and concentration likely does not exist, you might not have the data needed
to support identification of a more accurate linkage.
9.4.2 Mass Balance Approach
A mass balance analysis represents an aquatic system through an accounting of mass enter-
ing and exiting the system. This analysis simplifies the representation of the waterbody and
does not estimate or simulate detailed biological, chemi-
cal, or physical processes. It can, however, be a useful and
simple way to estimate the allowable loading for a waterbody Usin9 a Mass Ba'ance Equation to
to meet water quality standards or other targets. The ap- ^va!"at1e Ph°*ph°ruS Loading in Pend
, . , , „ . ,,. AC Oreille Lake, Idaho
proach includes tallying all inputs and outputs ot a water-
body to evaluate the resulting conditions. To successfully The Pend Oreille Lake ™DL uses a mass balance
apply a mass balance, it's important to understand the major aPProach for identify|n9 existin9 Ioadin9 and allowable
Cr i- , j loading for nutrients in the nearshore area of the lake.
instream processes aiiectmg water quality, such as decay, . ..
. . . .... . ,. The nearshore area was identified as impaired on the
background concentrations, settling, and resuspension. Many basis Qf stakeho|[jer concems ^ a|gae ^ ^
of these factors can be estimated based on literature values if rocks,, in the area A mass ba|ance approach was used
site-specific information is not available. to identify current watershed phosphorus loading based
„. . . . . .. . . .. on observed lake concentrations and allowable loading
The mass balance approach is versatile in its application, based m an m_|ake phosphoms ^ concentration
allowing for varying levels of detail. In addition, it requires Severa| of (he mass ba|ance fac(ors me based on
loading inputs but does not require that the loads be calcu- site-specific data (e.g., lake "cell" volume calculated
lated by particular methods. Because of this, you can use a usjng Secchi depths) and literature values (e.g., settling
mass balance in conjunction with a variety of approaches for velocity of phosphorus, first-order loss coefficients).
calculating watershed loads. You can use loads calculated
from a watershed model, as well as those from a simple anal- "*For more details on how this ™DL used mass
ysis using loading rates and land use distribution. You can balance< 9°to www.tristatecouncil.org/documents/
i u i • • i • u 02nearshore tmdl.PDF
apply mass balance equations at various places in the water-
shed, depending on the resolution of your loading analysis.
9.4.3 Empirical Relationships
In some cases, depending on the indicators and pollutants of concern, you can use docu-
mented empirical relationships to evaluate allowable loading and load reductions to meet
watershed targets. Empirical relationships are relationships based on observed data, and an
empirical equation is a mathematical expression of one or more empirical relationships.
9-7
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
One example of an empirical relationship that can be used in evaluating allowable loading
is the Vollenweider empirical relationship between phosphorus loading and trophic status.
The Vollenweider relationship predicts the degree of a lake's trophic status as a function of
the areal phosphorus loading and is based on the lake's mean depth and hydraulic residence
time. For example, the Lake Linganore, Maryland, TMDL for nutrients used the Vollenwei-
der relationship to identify the allowable loading and necessary loading reductions to return
the lake to mesotrophic conditions, represented by Carlson's Trophic Status Index (TSI of 53
and chlorophyll a of 10 /ig/L). The existing nutrient loading to the lake was calculated using
land use areas and phosphorus loading rates
-., obtained from the Chesapeake Bay Program.
*[ ; in Check the assumptions used in developing empirical equations. The Vollenweider relationship was then used
1 I They usual|y 7dict an "a7a9e" contdit™ or are ba.s.ed on to identify the allowable annual phospho-
conditions specific to certain regions. Is your waterbody unusual (e.g., narrow 11- , \.-
and deep)? Sometimes the unique features of your waterbody or watershed rus loading rate to meet the trophic status
make a difference and require more sensitive analyses or models. targets. The existing loading and allowable
loading were compared to identify the neces-
sary load reductions.
Another example of an empirical relationship is the Simple Method (Schueler 1987), ^> dis-
cussed in section 8.2.2. The Simple Method calculates pollutant loading using drainage area,
pollutant concentrations, a runoff coefficient, and precipitation data. If your watershed target
is a pollutant concentration, you can apply the Simple Method using your concentration
target to estimate the allowable loading to meet that target.
Use care when applying empirical relationships because although they are based on observed
data, they might not be representative of your watershed or be applicable to your purposes.
When using empirical relationships, it's important to review the documentation and litera-
ture to understand on what data the relationship is based and any related assumptions or
caveats for applying the relationship or equation.
9.4.4 Statistical or Mathematical Relationships
You can use statistical or mathematical analyses to estimate allowable loadings and subse-
quent load reductions based on available data for your watershed. This approach assumes
some relationship between key factors in the watershed (e.g., loading, percent land use) and
instream conditions (e.g., concentration) based on observed data. A load duration curve,
^> discussed in detail in section 7.2.4, is one of the most common of these types of link-
ages. This approach can be applied to diagnose and evaluate waters (e.g., dominant types of
sources, critical conditions) and can help to determine specific load reductions. A limita-
tion of this approach is that it does not explicitly describe where the loads are coming from
or how they are delivered. The technique is well suited to areas where robust monitoring
records are available but data are too limited to use more detailed watershed loading models.
The analysis does not identify load reductions by source type, but it can be applied at any
location in the watershed with sufficient data.
9.4.5 Reference Watershed Approach
If you don't have an appropriate water quality or loading target, another technique for linking
your indicators to source loads is to compare your watershed with another one that is con-
sidered "healthy." The reference watershed approach is based on using an unimpaired water-
shed that shares similar ecoregion and geomorphological characteristics with the impaired
watershed to identify loading rate targets. Stream conditions in the reference watershed are
9-8
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Chapter 9: Set Goals and Identify Load Reductions
WATERSHED
assumed to be representative of the conditions
needed for the impaired stream to support its
designated uses and meet the watershed goals.
You should select a reference watershed on
the basis of conditions that are comparable
with the watershed requiring management.
The reference watershed should be similar to
your watershed in size, land use distribution,
soils, topography, and geology. To set the
loading rate target, predict the loading for
each watershed through modeling or another
method and then determine the allowable loading rate based on the reference watershed
loads and areas. The loading rate from the reference watershed can be calculated at a level
comparable to the sources you identified in your watershed. For example, you can model
specific land uses or crop types in the reference watershed to identify loading rates or
identify a gross rate based on the loading from the entire watershed. The reference loading
rates are then multiplied by the appropriate areas of the watershed to identify allowable loads
for the impaired watershed. The load reduction requirement is the difference between this
allowable loading and the existing load (^> estimated in chapter 8).
This approach is best suited to waters not meeting biological or narrative criteria (e.g., cri-
teria for nutrients and sediment), where instream targets are difficult to identify. Selecting a
reference watershed can be extremely difficult, and not all areas have appropriate watershed
data or sufficient monitoring data to support selection.
9.4.6 Receiving Water Models
Sometimes it will be appropriate or even necessary to use detailed receiving water modeling
to relate watershed source loads to your watershed indicators. The following are typical situa-
tions in which you should use a model instead of a simpler approach:
• Locally significant features or conditions (e.g., groundwater interaction) affect the
waterbody's response.
• Chemical and biological features are complicated and affect the waterbody's response
to pollutant loads (e.g., nutrient loads affecting algal growth and subsequent dissolved
oxygen).
• Unique physical characteristics of the waterbody must be considered (e.g., long and
narrow lake).
• There are localized impairments and impacts due to the location of sources (e.g., dis-
charge from a feedlot affects a small segment of stream).
• Cumulative impacts occur from pollutants (e.g., metals) that can accumulate in sedi-
ment and organisms.
Table 9-4 provides a summary of many of the receiving water models available to support
linkage of sources and indicators for watershed planning. ^ For more details on the models,
go to EPA's Council for Regulatory Environmental Modeling (CREM) Web site at
http://cfpub.epa.gov/crem/.
9-9
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Table 9-4. Overview of Various Receiving Water Models
Model
AQUATOX
BASINS
CAEDYM
CCHE1D
CE-QUAL-ICM/
TOXI
CE-QUAL-R1
CE-QUAL-RIV1
CE-QUAL-W2
CH3D-IMS
CH3D-SED
DELFT3D
DWSM
ECOMSED
EFDC
GISPLM
GLLVHT
GSSHA
HEC-6
HEC-6T
HEC-RAS
HSCTM-2D
HSPF
LSPC
Source
USEPA
USEPA
University of Western
Australia
University of Mississippi
USAGE
USAGE
USAGE
USAGE
University of Florida, Dept. of
Civil and Coastal Engineering
USAGE
WL | Delft Hydraulics
Illinois State Water Survey
HydroQual, Inc.
USEPA &Tetra Tech, Inc.
College of Charleston, Stone
Environmental, & Dr. William
Walker
J.E. Edinger Associates, Inc.
USAGE
USAGE
USAGE
USAGE
USEPA
USEPA
USEPA &Tetra Tech, Inc.
Type
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—
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•
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—
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9-10
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Chapter 9: Set Goals and Identify Load Reductions
Table 9-4. Overview of Various Receiving Water Models (continued)
Model
MIKE 11
MIKE 21
MINTEQA2
PCSWMM
QUAL2E
QUAL2K
RMA-11
SED2D
SED3D
SHETRAN
SWAT
SWMM
Toolbox
WAMView
WARMF
WASP
WinHSPF
WMS
XP-SWMM
Source
Danish Hydraulic Institute
Danish Hydraulic Institute
USEPA
Computational Hydraulics
International
USEPA
Dr. Steven Chapra, USEPA
TMDL Toolbox
Resource Modelling
Associates
USAGE
USEPA
University of Newcastle (UK)
USDA-ARS
USEPA
USEPA
Soil and Water Engineering
Technology, Inc. (SWET) &
USEPA
Systech Engineering, Inc.
USEPA
USEPA
Environmental Modeling
Systems, Inc.
XP Software, Inc.
Type
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—
—
•
•
—
Dissolved oxygen
—
•
•
—
—
•
•
—
Bacteria
—
•
•
•
—
—
•
•
•
•
Note: BOD = biochemical oxygen demand.
— Not supported • Supported
Source: USEPA. 2005. TMDL Model Evaluation and Research Needs. EPA/600/R-05/149. U.S. Environmental Protection Agency, Office of Research and
Development, National Risk Management Research Laboratory, Cincinnati, OH. www.epa.gov/nrmrl/pubs/600r05149/600r05149.htm
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
9.5 Focus the Load Reductions
Regardless of what approach you use to estimate your allowable loadings or necessary reduc-
tions, it's likely that several scenarios or combinations of source reductions will meet your
targets. Depending on the magnitude of your load reductions, you might be able to distribute
them among your sources or you might have to focus on one dominant source to meet your
targets. Table 9-5 illustrates how different target reductions can meet the same overall goal.
In addition, the location of the proposed reductions can affect the distribution and mag-
nitude of load reductions. If you calculate the load reduction only at the mouth of the wa-
tershed, a large number of scenarios will meet the load reduction target—at least on paper.
Sometimes impacts from load reductions are not adequate to meet targets at downstream
locations. Although the upstream reductions will no doubt improve downstream conditions,
they might be such a small portion of the overall load that they won't have a measurable
effect on the overall watershed loading. In addition, the load reductions calculated at the
bottom of the watershed might not capture the more significant reductions needed in smaller
upstream subwatersheds. Be sure to estimate your load reductions at a few key locations in
the watershed to capture the major problem areas and sources and to support efficient and
targeted management.
Table 9-5. Examples of Different Scenarios to Meet the Same Load Target
Source
Roads
Pasture/Hay
Cropland
Forest
Landfill
Residential
Groundwater
Total
Existing
Phosphorus
Loading
(kg/yr)
78
21
218
97
7
6
111
539
Scenario 1
% Load
Reduction
26
26
26
26
26
26
26
26
Allowable
Load (kg/yr)
58
16
162
72
5
5
83
400
Scenario 2
% Load
Reduction
20
10
55
0
0
0
0
26
Allowable
Load (kg/yr)
62
19
98
97
7
6
111
400
Note: Scenario 1 represents an equitable distribution of load reduction among sources. Reductions are applied so that the
resulting loads are the same percentage of the total as under existing conditions. Scenario 2 represents a more feasible
scenario, in which controllable sources (e.g., roads, cropland, pasture) are targeted to meet the load reduction target.
If you used a receiving model to evaluate your load reductions, you should use a "top-down"
approach to evaluating necessary load reductions. Begin by identifying necessary load re-
ductions to meet waterbody targets in upstream portions of the watershed. The model then
allows you to then evaluate the effect of the upstream load reductions on downstream condi-
tions. Starting at the top of the watershed and moving down, you can evaluate the cumulative
effects from upstream controls. In many cases, the upstream reductions will significantly
decrease or even eliminate the necessary reductions for the lower watershed.
By this point, you should have identified the overall load reductions needed to meet your
targets and determined generally how you want to focus reductions among sources.
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Chapter 9: Set Goals and Identify Load Reductions
^C> The activities discussed in chapters 10 and 11 will help you to more specifically identify
and select the reductions for each source.
9.6 Summarize Watershed Targets and Necessary Load
Reductions
that you have identified the pollutant load reductions needed to meet your wa-
tershed goals, you should have the information needed to satisfy element b of the nine
minimum elements. At this point you should prepare a summary to be included in your
watershed plan documenting the source loads, numeric targets to meet the watershed goals
and management objectives, and load reductions needed to meet the targets. The reductions
should be calculated and presented at the same time and spatial scales as the source load esti-
mations ( Q> discussed in chapter 8). As with the source loads, there are a variety of ways you
can present the load reduction requirements, including bar graphs and watershed maps.
You should also include in the summary other watershed targets — the indicators and nu-
meric targets that could not be linked to specific pollutant loads (e.g., cobble embeddedness,
percent fine sediment). Even though the response of these targets could not be predicted and
linked to source loads, they're important for measuring the success of your watershed plan
and the attainment of your watershed goals. These targets will be integrated into the imple-
mentation and monitoring plan ( ^ discussed in chapter 12).
State-Supported Modeling Tools
Some states are supporting modeling tools for conducting current load analyses and BMP load
reduction projections. For example, Pennsylvania has merged the ArcView GWLF model with
companion software developed for evaluating the implementation of both agricultural and non-
agricultural pollution reduction strategies at the watershed level. This new tool, called PredlCT
(Pollution Reduction Impact Comparison Tool), allows the user to create various scenarios
in which current landscape conditions and pollutant loads (both point and nonpoint) can be
compared against future conditions that reflect the use of different pollution reduction strategies.
This tool includes pollutant reduction coefficients for nitrogen, phosphorus and sediment, and it
also has built-in cost information for an assortment of pollution mitigation techniques. **> For more
information, visit http://www.predict.psu.edu/
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Handbook Road Map
1 Introduction
2 Overview of Watershed Planning Process
3 Build Partnerships
4 Define Scope of Watershed Planning Effort
5 Gather Existing Data and Create an Inventory
6 Identify Data Gaps and Collect Additional Data If Needed
7 Analyze Data to Characterize the Watershed and Pollutant Sources
8 Estimate Pollutant Loads
9 Set Goals and Identify Load Reductions
-•10 Identify Possible Management Strategies
11 Evaluate Options and Select Final Management Strategies
12 Design Implementation Program and Assemble Watershed Plan
13 Implement Watershed Plan and Measure Progress
10. Identify Possible Management
Strategies
Overview of management techniques and measures
Reviewing existing management efforts to determine gaps
Identifying management opportunities and constraints
Screening management options to determine the most
promising types
Read this chapter if...
• You want to learn about common types of management
measures
• You need information on how to focus management efforts in
your watershed
• You want help with identifying possible management practices
for your watershed
• You want to identify criteria for evaluating the appropriateness of
management practices
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
10.1 How Do I Link My Management Strategies to My Goals?
Once you have analyzed the watershed conditions, quantified the pollutant loads, and deter-
mined the loading targets needed to meet your goals and objectives, you'll be ready to iden-
tify potential management measures and management practices to achieve your goals. You
can then screen potential practices to narrow the options down to those which are the most
promising and acceptable (figure 10-1). During this phase, it will be important for watershed
planners and scientists to consult with engineers, technicians, and professional resource
managers to ensure that the actions being considered are realistic and capable of meeting
water quality objectives. The importance of this interaction cannot be overstated.
Key questions to address in your evaluation of candidate management measures and
practices are these:
1. Are the site features suitable for incorporating the practice (i.e., is the practice
feasible)?
2. How effective is the practice at achieving management goals and loading targets?
3. How much does it cost (and how do the costs compare between alternatives)?
3. Is it acceptable to stakeholders?
This chapter addresses the first step, identifying potential management measures and
practices that might be feasible for addressing the particular problems in your watershed.
Using screening criteria, you'll evaluate potential management strategies (a single manage-
ment practice or multiple practices used in combination). The screening criteria are based on
factors such as pollutant reduction efficiencies, legal requirements, and physical constraints.
Once you have identified and screened various management options, ^> chapter 11 will show
you how to calculate the effectiveness of the management practices, compare the costs and
benefits, and select the final management strategies that will be the most effective in achiev-
ing the load reductions needed to meet your watershed goals.
Possible
Management
Practices
Screening
Criteria
Critical
areas
Goals
Objectives
Load reduction
estimates
Legal requirements
Physical constraints
Costs
Added benefits
Candidate
Management
Practices
Figure 10-1. Process for Identifying Candidate Management Practices
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Chapter 10: Identify Possible Management Strategies
information presented in chapters 10 and 11 addresses element c of EPA's Nine
Elements of Watershed Plans. Element c is "A description of the nonpoint source management
measures that will need to be implemented to achieve load reductions, and a description of the critical
areas in which those measures will be needed to implement this plan."
10.2 Overview of Management Approaches
A variety of management approaches are available to address water quality problems in the
planning area. These include regulatory and nonregulatory approaches for dealing with
point sources and nonpoint sources, e.g., management measures and management practices,
terms that are sometimes used interchangeably. In general, management measures are groups
or categories of cost-effective management practices that are implemented to achieve com-
prehensive goals, such as reducing the loads of sediment from a field to receiving waters.
Individual management practices are specific and often site-based actions or structures for
controlling pollutant sources.
Management measures and practices can be implemented for various purposes, such as
• Protecting water resources and downstream areas from increased pollution and flood
risks
• Conserving, protecting, and restoring priority habitats
• Setting aside permanent aquatic and terrestrial buffers
• Establishing hydrologic reserve areas
• Acquiring ground water rights
Management measures can also help control the pollutant loads to receiving water resources by
• Reducing the availability of pollutants (e.g., reducing fertilizer, manure, and pesticide
applications)
• Reducing the pollutants generated (source reduction such as erosion
control)
• Slowing transport or delivery of pollutants by reducing the amount of
water transported or by causing the pollutant to be deposited near the
point of origin
• Causing deposition of the pollutant off-site before it reaches the
waterbody
• Treating the pollutant before or after it is delivered to the water
resource through chemical or biological transformation
Management measures can also be used to guide the implementation of your
watershed management program. They are linked to performance expecta-
tions, and in many cases they specify actions that can be taken to prevent
or minimize nonpoint source pollution or other negative impacts associated
with uncontrolled and untreated runoff. ^> The NRCS National Handbook
of Conservation Practices (www.nrcs.usda.gov/technical/standards/
nhcp.html) provides a list of practices applicable to rural and farming areas;
consultation with NRCS staff when considering management actions in
rural areas is highly recommended. ^> Refer to EPA's National Management
Measures guidance documents for information about controlling nonpoint
source pollution (www.epa.gov/owow/nps/pubs.html).
EPA National Management
Measures Guidance
Documents
^ EPA maintains published
guidance documents online for
the following categories (see
www.epa.gov/owow/nps/
categories.html):
• Acid mine drainage
• Agriculture
• Forestry
• Hydromodification/habitat
alteration
• Marinas/boating
• Roads, highways, and
bridges
• Urban areas
• Wetland/riparian
management
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
There are many types of individual management practices, from agricultural stream buffer
setbacks to urban runoff control practice retrofits in developed areas to homeowner educa-
tion programs for on-site septic system maintenance. Management practices can be catego-
rized several different ways, such as source controls versus treatment controls, structural
controls versus nonstructural controls, or point source controls versus nonpoint source con-
trols. For the purposes of this handbook, management practices are grouped into structural
controls and nonstructural controls. Structural controls are defined as built facilities that typ-
ically capture runoff; treat it through chemical, physical, or biological means; and discharge
the treated effluent to receiving waters, ground water, or conveyance systems. Nonstructural
practices usually involve changes in activities or behavior and focus on controlling pollut-
ants at their source. Examples include developing and implementing erosion and sediment
control plans, organizing public education campaigns, and practicing good housekeeping at
commercial and industrial businesses. Regulatory mechanisms like ordinances and permits
are discussed separately from structural and nonstructural controls.
10.2.1 Nonpoint Source Management Practices
Structural Practices
Structural practices, such as stormwater basins, streambank fences, and grade and stabi-
lization structures, might involve construction, installation, and maintenance. Structural
practices can be vegetative, such as soil bioengineering techniques, or nonvegetative, such as
riprap or gabions. Note that practices like streambank stabilization and riparian habitat res-
toration involve ecological restoration and an understanding of biological communities, indi-
vidual species, natural history, and species' ability to repopulate a site. Such practices involve
more than simply installing a structural control. Many vegetative practices can be considered
"green infrastructure." The term green infrastructure has sometimes been used to describe
an approach to wet weather management that is cost-effective, sustainable, and environmen-
tally friendly. Green infrastructure management approaches and technologies mimic natural
processes by capturing rainfall and runoff and infiltrating it into the soil to maintain or
restore natural hydrology and by using plants to help evaporate and transpire water. Green
infrastructure site-level practices might include rain gardens, porous pavements, green roofs,
infiltration planters, trees and tree boxes, and rainwater harvesting for non-potable uses
such as toilet flushing and landscape irrigation. Green infrastructure practices also involve
preserving and restoring natural landscape features (such
„ as forests, floodplains and wetlands). By protecting these
Natural Resources Conservation Service , . ,,
ecologically sensitive areas, communities can improve water
The Natural Resources Conservation Service (NRCS) quality while maintaining healthy ecosystems, providing
provides technical and other assistance to help land wikmfe habitatj and opportunities for outdoor recreation.
owners and managers conserve and protect soil, water, E les of structurai practices for rural and urban scenar-
and other natural resources. Regional and often county- . .. . . .. ,» ,
• i , „ i ui 4 j 4u 4 IDS are listed in table 10-1.
level staff are available to provide this assistance
to land users, communities, units of state and local YQU can choos£ tQ US£ structural practices that are vegeta-
government, and other federal agencies in planning and d no tati or a Combination5 depending on which
implementing natural resource conservation systems. . . ..... ... ....
Technical resources include environmental, scientific, Practlce 1S best suited for the particular site and objective.
engineering, societal, and economic analysis services. For examPle'lf a Slte 1S unable to suPP°rt Plant Srowth ^>
* State, local, and regional contact information for there are areas wlth climate or soils that are not conducive
NRCS staff is posted at www.nrcs.usda.gov/about/ to Plant growth, or areas of high water velocity or significant
organization/regions.html. wave action), a nonvegetative practice can be used to dampen
wave or stream flow energy to protect the vegetative practice.
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Chapter 10: Identify Possible Management Strategies
Table 10-1. Examples of Structural and Nonstructural Management Practices '
Agriculture
Forestry
Urban
Structural Practices
Contour buffer strips
Grassed waterway
Herbaceous wind barriers
Mulching
Live fascines
Live staking
Livestock exclusion fence
(prevents livestock from wading
into streams)
Revetments
Riprap
Sediment basins
Terraces
Waste treatment lagoons
Broad-based dips
Culverts
Establishment of riparian buffer
Mulch
Revegetation of firelines with
adapted herbaceous species
Temporary cover crops
Windrows
Bioretention cells
Breakwaters
Brush layering
Infiltration basins
Green roofs
Live fascines
Marsh creation/restoration
Establishment of riparian buffers
Riprap
Stormwater ponds
Sand filters
Sediment basins
Tree revetments
Vegetated gabions
Water quality swales
Clustered wastewater treatment
systems
Nonstructural Practices
Brush management
Conservation coverage
Conservation tillage
Educational materials
Erosion and sediment control plan
Nutrient management plan
Pesticide management
Prescribed grazing
Residue management
Requirement for minimum riparian buffer
Rotational grazing
Workshops/training for developing nutrient
management plans
Education campaign on forestry-related nonpoint
source controls
Erosion and sediment control plans
Forest chemical management
Fire management
Operation of planting machines along the contour to
avoid ditch formation
Planning and proper road layout and design
Preharvest planning
Training loggers and landowners about forest
management practices, forest ecology, and silviculture
Planning for reduction of impervious surfaces (e.g.,
eliminating or reducing curb and gutter)
Management programs for onsite and clustered
(decentralized) wastewater treatment systems
Educational materials
Erosion and sediment control plan
Fertilizer management
Ordinances
Pet waste programs
Pollution prevention plans
No-wake zones
Setbacks
Stormdrain stenciling
Workshops on proper installation of structural practices
Zoning overlay districts
Preservation of open space
Development of greenways in critical areas
a Note that practices listed under one land use category can be applied in other land use settings as well.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Nonstructural Practices
Nonstructural practices prevent or reduce runoff problems in receiving waters by reducing the
generation of pollutants and managing runoff at the source. These practices can be included
in a regulation (e.g., an open space or riparian stream buffer requirement), or they can involve
voluntary pollution prevention practices. They can also include public education campaigns
and outreach activities. Examples of nonstructural practices are listed in table 10-1. Nonstruc-
tural controls can be further subdivided into land use practices and source control practices.
Land use practices are aimed at reducing impacts on receiving waters that result from runoff
from development by controlling or preventing land use in sensitive areas of the watershed
(e.g., critical habitat). Source control practices are aimed at preventing or reducing potential
pollutants at their source before they come into contact with runoff or ground water. Some
source controls are associated with new development, whereas others are implemented after
development occurs. Source controls include pollution prevention activities that attempt to
modify aspects of human behavior, such as educating citizens about the proper disposal of
used motor oil and proper application of lawn fertilizers and pesticides (when needed).
10.2.2 Regulatory Approaches to Manage Pollutant Sources
The management practices you select can be implemented voluntarily or required under a
regulatory program. Point sources are most often controlled using regulatory approaches. It's
important to consider that regulatory approaches work well only when adequate mechanisms
are in place to provide oversight and enforcement.
Regulatory Approaches for Nonpoint Sources
• Local stormwater ordinances and permits. Local stormwater ordinances may require
development applicants to control stormwater peak flows, total runoff volume, or pol-
lutant loading. Stormwater ordinances that apply these requirements to redevelopment
projects (not just new development areas) can help mitigate current impacts from existing
development. Developers could be required to implement stormwater practices such as
bioretention cells, stormwater ponds, or constructed wetlands to meet performance stan-
dards for the development set forth in the ordinance.
• Local development ordinances and permits. Local development and subdivision
ordinances may require development applicants to meet certain land use (e.g., commercial
versus residential), development intensity, and site design requirements (e.g., impervious
surface limits or open space, riparian buffer, or setback requirements). "i> See section 5.5.2
for examples. Again, ordinances that apply these requirements to redevelopment projects
(not just new development areas) can help mitigate current impacts from existing devel-
opment. Although it might be difficult to add open space to the redevelopment plan of
an already-developed area, equivalent off-site mitigation or payment in lieu might be
required. Similarly, a riparian area might be revegetated and enhanced.
• Federal or state forest land management plans. Corporate, federal, and state owners of
forest lands are often required to develop and implement forest management plans. These
plans usually include management practices for logging, road construction, replant-
ing, and other activities. A number of states also have forestry practice regulations that
cover logging practices by individuals or private landowners. Such regulations may
have requirements such as notification of intent to log, development of and compliance
with a management plan that includes the use of management practices, and notifica-
tion of termination of activities. Watershed planners can review recent or existing forest
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Chapter 10: Identify Possible Management Strategies
management plans in the watershed, discuss with managers which plans and practices are
working well, and identify areas that could be strengthened.
• Federal or state grazing permits. Federal or state lands that are leased to individuals
often require permits that specify conditions and management practices that must be
adhered to for the term of the permit. These practices and conditions might include lim-
iting the number of livestock allowed to graze, establishing off-stream watering or fencing
in sensitive watershed areas, and other water quality protection measures. Again, water-
shed planners can review existing permits in the watershed, discuss with managers which
practices are working well, and identify areas that could be improved.
• State regulatory authority. Some states, such as California, have the authority to regulate
nonpoint sources. California is beginning to issue waivers for traditional nonpoint sources,
such as irrigated agriculture in the Central Valley. The waivers may require growers to
implement management practices and develop farm plans, notice of which is submitted
to the state's water board through a Notice of Intent (NOT). Irrigated agriculture facilities
may be required to submit an NOT indicating that management practices have been imple-
mented before irrigation return flows may be discharged to receiving waters.
In 1990 Congress passed the Coastal Zone Act Reauthorization Amendments (CZARA) to
address the nonpoint source pollution problem in coastal waters. Section 6217 of CZARA
required the 29 coastal states and territories with approved Coastal Zone Management
Programs to develop Coastal Nonpoint Pollution Control Programs. In its program, a
state or territory describes how it will implement nonpoint source management measures
to control nonpoint source pollution. States and territories ensure the implementation
of the management measures through mechanisms like permit programs, zoning, bad
actor laws, enforceable water quality standards, and other general environmental laws and
regulations. Voluntary approaches like economic incentives can also be used if they are
backed by appropriate regulations.
• Decentralized wastewater management. Many states and counties are developing or
upgrading their management programs for onsite and clustered wastewater treatment
systems. These programs usually include an inventory and analysis of existing systems;
inspections; risk assessments; projections of future treatment needs; and development
of standards for new system designs, operation and maintenance, inspections, corrective
actions, and residuals management.
Regulatory Approaches for Point Sources
Point sources are regulated under the National Pollutant Discharge
Elimination System (NPDES) permit program. Authorized by section
402 of Clean Water Act, the NPDES permit program controls water
pollution by regulating point sources that discharge pollutants into
waters of the United States. The NPDES program covers discharges
from industrial facilities, municipal stormwater conveyances, con-
centrated animal feeding operations (CAFOs), construction sites,
publicly owned treatment works (POTWs), combined sewer overflows
(CSOs), and sanitary sewer overflows (SSOs). These categories are
briefly described below.
• Wastewater discharges from industrial sources. Wastewater
discharges from industrial facilities might contain pollutants at
levels that could affect the quality of receiving waters. The NPDES
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
permit program establishes specific requirements for discharges from industrial sources.
Depending on the type of industrial or commercial facility, more than one NPDES
program might apply. For example, runoff from an industrial facility or construction site
might require an NPDES permit under the stormwater program. An industrial facility
might also discharge wastewater to a municipal sewer system and be covered under the
NPDES pretreatment program. If the industrial facility discharges wastewater directly
to a surface water, it will require an individual or general NPDES permit. Finally, many
industrial facilities, whether they discharge directly to a surface water or to a municipal
sewer system, are covered by effluent limitation guidelines and standards.
• Municipal stormwater discharges. Stormwater discharges are generated by runoff from
land and impervious areas like paved streets, parking lots, and building rooftops during
rainfall and snow events. This runoff often contains pollutants in quantities large enough
to adversely affect water quality. Most stormwater discharges from municipal separate
storm sewer systems (MS4s) require authorization to discharge under an NPDES permit
as part of the Phase I or Phase II (depending on the size of the population served) NPDES
Stormwater Program. Operators of regulated MS4s must obtain coverage under an NPDES
stormwater permit and must implement stormwater pollution prevention plans or storm-
water management programs, both of which specify how management practices will be
used to control pollutants in runoff and prevent their discharge to receiving waters. For
example, regulated small MS4s (in general, cities and towns with populations between
10,000 and 100,000) must include the following six minimum control measures in their
management programs:
• Public education and outreach on stormwater impacts
• Public involvement/participation
• Illicit discharge detection and elimination
• Construction site runoff control
• Post-construction stormwater management in new development and redevelopment
• Pollution prevention/good housekeeping for municipal operations
The NPDES stormwater program also requires operators of construction sites 1 acre or larger
(including smaller sites that are part of a larger common plan of development) to obtain
authorization to discharge stormwater under an NPDES construction stormwater permit.
Management practices appropriate for controlling stormwater discharges from MS4s,
construction sites, and other areas are discussed in more detail under Nonpoint Source
Management Practices.
• Publicly owned treatment works (POTWs). These facilities are wastewater treatment
works owned by a state or municipality and include any devices and systems used in the
storage, treatment, recycling, and reclamation of municipal sewage or industrial wastes
of a liquid nature, as well as the sewers, pipes, and other conveyances that convey waste-
water to a POTW treatment plant. Through NPDES permits, discharges from POTWs
are required to meet secondary treatment standards established by EPA. These technol-
ogy-based regulations apply to all municipal wastewater treatment plants and represent
the minimum level of effluent quality attainable by secondary treatment for removal of
biochemical oxygen demand (BOD) and total suspended solids (TSS). Discharges from
POTWs may also be subject to water quality-based effluent limitations to reduce or elimi-
nate other pollutants, if needed to achieve water quality standards.
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Chapter 10: Identify Possible Management Strategies
• Combined sewer overflows. Combined sewer systems are designed to collect runoff,
domestic sewage, and industrial wastewater in the same pipe system. In 1994 EPA issued
its Combined Sewer Overflow Control Policy (^ www.epa.gov/npdes/pubs/owm0111.pdf),
which is a national framework for controlling CSOs through the NPDES permitting
program. The first milestone under the CSO Policy was the January 1, 1997, deadline for
implementing minimum technology-based controls, commonly referred to as the "nine
minimum controls." These controls are measures that can reduce the frequency of CSOs
and minimize their impacts when they do occur. The controls are not expected to require
significant engineering studies or major construction. Communities with combined sewer
systems are also expected to develop long-term CSO control plans that will ultimately
provide for full compliance with the Clean Water Act, including attainment of water
quality standards.
• Separate sanitary systems. Separate sanitary collection systems collect and transport all
sewage (domestic, industrial, and commercial wastewater) that flows through the system
to a treatment works for treatment prior to discharge. However, occasional unintentional
discharges of raw sewage from municipal separate sanitary sewers occur in almost every
system. These types of discharges are called sanitary sewer overflows (SSOs). There are a
variety of causes, including but not limited to severe weather, improper system operation
and maintenance, and vandalism. Examples of management practices that can reduce or
eliminate SSOs are:
• Conducting sewer system cleaning and maintenance
• Reducing infiltration and inflow by rehabilitating systems and repairing broken or
leaking service lines
• Enlarging or upgrading sewer, pump station, or sewage treatment plant capacity and
reliability
• Constructing storage and treatment facilities to treat excess wet weather flows.
Communities should also address SSOs during sewer system master planning and facilities
planning or when extending the sewer system into unsewered areas.
• Concentrated animal feeding operations. AFOs are agricultural operations in which ani-
mals are kept and raised in a confined setting. Certain AFOs that meet a minimum threshold
for number of animals are defined as concentrated AFOs (CAFOs). CAFOs require NPDES
permits. The permits set waste discharge requirements that need to be met by implementing
animal waste management practices such as reducing nutrients in feed; improving storage,
handling, and treatment of waste; and implementing feedlot runoff controls.
• Industrial stormwater permits. Activities that take place at industrial facilities such as
material handling and storage are often exposed to the weather. As runoff from rain or
snowmelt comes into contact with these materials, it picks up pollutants and transports
them to nearby storm sewer systems, rivers, lakes, or coastal waters. Stormwater pollution
is a significant source of water quality problems for the nation's waters. Of the 11 pollu-
tion source categories listed in EPA's National Water Quality Inventory: 2000 Report to Con-
gress, urban runoff/storm sewers was ranked as the fourth leading source of impairment in
rivers, third in lakes, and second in estuaries.
In order to minimize the impact of stormwater discharges from industrial facilities, the
NPDES program includes an industrial stormwater permitting component. Operators of
industrial facilities included in one of the 11 categories of stormwater discharges associated
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
with industrial activity that discharge or have the potential to discharge stormwater to
an MS4 or directly to waters of the United States require authorization under a NPDES
industrial stormwater permit.
Most of the management practices listed in the following section could be required through
regulations or encouraged through training and education programs. Your watershed man-
agement plan might include both regulatory and nonregulatory methods to get landowners,
citizens, and businesses to adopt the practices needed.
10.3 Steps to Select Management Practices
This section describes a process for selecting management practices that might be feasible
to implement in the critical areas identified in your watershed. The first step in the process
is to inventory what has been or is being accomplished in the watershed. Future projects
and management practices should augment efforts already
Steps to Select Management Practices under wa^ This analysis wil1 allow y°u to determine where
modifications are needed to existing programs, practices, or
ordinances and where new practices are needed.
1. Inventory existing management efforts in the
watershed
2. Quantify the effectiveness of current management
measures
3. Identify new management opportunities
4. Identify critical areas in the watershed where
additional management efforts are needed
5. Identify possible management practices
6. Identify relative pollutant reduction efficiencies
7. Develop screening criteria to identify opportunities
and constraints
8. Rank alternatives and develop candidate
management opportunities
The next step involves quantifying the effectiveness of exist-
ing management efforts. This step will allow you to establish
a baseline level of pollutant load reductions that are already
occurring and will help guide the selection of additional
management practices to meet target load reductions.
The third step entails identifying new opportunities for
implementing management measures. ^ Based on the iden-
tification of pollutant sources from chapter 7, you can locate
critical areas where management measures will likely achieve
the greatest pollutant load reductions.
Once opportunities for pollutant load reductions are iden-
tified, you can match them with candidate management
practices, alone or in combination, that could effectively reduce pollutant loads. This step will
involve research into management practice specifications to help you determine which prac-
tices will be most feasible (considering site constraints), which practices are most acceptable to
landowners, and which have the greatest pollutant removal effectiveness under similar condi-
tions. ^ For example, EPA lists management measures for urban areas and cost/benefit and
other information at www.epa.gov/owow/nps/urbanmm/index.htnil.
Managing Onsite and Clustered
Wastewater Treatment Systems
EPA has developed several tools designed to help local
communities manage decentralized (distributed) waste-
water treatment systems. The tools include a handbook
for developing or improving existing management
programs, a set of guidelines that describe five general-
ized management models, a design guide, technology
fact sheets, case studies of successful programs, a
homeowners' guide, and more. ^ To access these tools,
visit http://cfpub.epa.gov/owm/septic/index.cfm
After researching candidate management measures and
practices, you should have enough information to analyze
each management opportunity using screening criteria that
you develop. The screening criteria are based on various
factors, such as your critical areas, site conditions, and
constraints. The criteria will help you sort through the
different attributes of each practice so you can select the
practices worthy of more detailed analysis. Then you can
quantify their effectiveness and conduct the associated
cost versus benefit analysis. ^ You'll conduct these more
detailed analyses in chapter 11.
10-10
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Chapter 10: Identify Possible Management Strategies
Tip
10.3.1 Identify Existing Management Efforts in the Watershed
Before you identify the additional management measures needed to achieve management
objectives, you should identify the programs, management strategies, and ordinances
already being implemented in the watershed. In some cases,
the existing management practices themselves might be
adequate to meet water quality goals, but they might not
be maintained correctly or there might not be enough of
them in place. Perhaps, for example, NRCS conservation
practices on farmland are effective for the farms using them,
but not enough farmers have adopted the practices to meet
the goals in the watershed. In other cases, you might want
to modify an existing practice, for example, by increasing
stream setback requirements from 25 feet to 100 feet. When
identifying the existing programs and management efforts,
be sure to record the responsible party, such as an agency or
landowner, and the pollutants the efforts address.
Remember to incorporate the
existing management efforts into
your implementation plan in addition to any new
management measures you identify. Often, existing
management efforts have already incorporated
complex site-specific social and economic factors,
as well as considerable local knowledge of regional
environmental constraints. Understanding why existing
management measures were selected and choosing
options for new ones is important business. This
points to the need to make sure those entities that will
be asked to implement practices are part of the team
developing your plan.
Communities in the Mill Creek watershed in Michigan first
evaluated existing local regulations and programs to help
identify ways to strengthen local policies to help meet multiple watershed objectives. These
programs and policies are described in table 10-2. Appendix A includes references of example
watershed plans.
Low-Impact Development and Watershed Protection
Stormwater management programs and antidegradation implementation procedures have embraced low-impact
development as a preferred management measure for minimizing water resource impacts from new areas of develop-
ment. Low-impact development is based on preserving the existing hydrology (drainage system) of the development site,
including vegetation growing along the drainage features; minimizing overall disturbance by carefully siting buildings,
roads, and other design elements; promoting infiltration of rain and snowmelt by routing runoff from impervious surfaces
to nearby rain gardens, swales, and other infiltration areas; and reducing the total amount of impervious surface area by
minimizing the footprint of structures built on the site. ^ For more information, visit www.epa.gov/owow/nps/lid.
Table 10-2. Existing Programs and Policies Identified in the Mill Creek Subwatershed Communities
Stakeholder
USDA, Natural
Resources
Conservation
Service
Existing Program or Policy
Wetland restoration (Wetlands Reserve Program)
Controlling erosion/soil information
Streambank stabilization expertise
Riparian revegetation (Conservation Reserve Program)
Forested revegetation/filter strips
Agricultural waste management (Environmental Quality Incentives
Program)
Soil testing
Cross wind strips
Pollutant
Addressed
Hydrologic flow
Sediment
Sediment
Nutrients
Wind erosion
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Table 10-2. Existing Programs and Policies Identified in the
(continued)
Creek Subwatershed Communities
Stakeholder
Washtenaw
County Road
Commission
Village of
Chelsea
Daimler Chrysler
Chelsea Proving
Grounds
Washtenaw
County Drain
Commissioner's
Office
Scio Township
Sylvan Township
Existing Program or Policy
Leave buffers when grading gravel roads
Assess and manage erosion at stream crossings
Follow soil erosion and sediment control practices
Soil erosion and sediment controls and stormwater retention requirements
on new developments
Stormwater calculations must account for roads in new development in
addition to the other development
Large detention on wastewater treatment plant site
Stormwater collectors, proprietary treatment devices
Oil and grease separators installed; add outlet devices to existing
development
Leave buffers (of minimal width) along creek
Switching products to no- or low-phosphorus alternatives
Ongoing monitoring of phosphorus levels in Letts Creek for NPDES permit
Pursuing alternative treatment chemical to reduce phosphorus
Soil erosion and sediment control permits and practices
Oil-grease separators installed
Devices in manholes checked monthly
Planning incentives or requirements for infiltration
Require first flush and wet ponds
Implementation of Phase II NPDES stormwater permits
Work to balance drain maintenance and channel protection
Drains are being entered into a GIS for enhanced use
Community Partners for Clean Streams program encourages business
and community partners to improve operations to protect streams
Stormwater BMP Demonstration Park nearly complete
Adopted Drain Office standards
Follows county Soil Erosion and Sediment Control rules
Part of regional plan to limit sprawl
Lake communities connecting to sanitary sewer
Pollutant
Addressed
Sediment
Sediment
Hydrologicflow
Sediment, oil
and grease
Nutrients
Sediment
Oil and grease
Hydrologicflow
All
Hydrologicflow
Sediment
All
Nutrients
Note: GIS = geographic information system; BMP = best management practice.
^Worksheet 10-1 is an excerpt of a worksheet that can be used to begin identifying and
evaluating existing efforts. ^> A blank worksheet 10-1 is provided in appendix B.
10-12
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Chapter 10: Identify Possible Management Strategies
^Excerpt of Worksheet 10-1
Wastewater Discharges
• Where are the wastewater discharges located in the watershed? If possible, map the locations.
• What volume of wastewater is being discharged?
• What are the parameters of concern in the effluent?
Onsite Wastewater Treatment Systems
• Where are onsite systems located? If possible, map the locations and identify system type, age, and performance.
• Are there known malfunctioning onsite systems? If so, where?
Urban Stormwater Runoff
• Are cities and counties in the watershed covered by an NPDES stormwater permit? If so, what are the conditions of the permit?
• Do local governments in the watershed have stormwater ordinances? If so, what are the requirements?
Agricultural and Forestry Practices
• Are there areas with active farming or logging in the watershed? If so, map them if possible.
• Are management plans in place where these activities are occurring?
• What percentage of the area uses management practices for controlling sediment and other pollutants? Are these practices effective? If
not, why? Are monitoring data available?
Wetlands and Critical Habitat Protection
• Have wetlands been identified and evaluated for the habitat value, water quality benefits, and flood control contributions?
• To what extent do natural buffers and floodplains remain in the watershed?
• To what extent are critical habitats such as headwater streams, seeps, and springs that provide many critical functions (e.g., habitat for
aquatic organisms) being protected?
• Has the natural hydrologic connectivity been mapped? If so, are there management practices in place to restore any fragmentation of
stream networks?
10.3.2 Quantify the Effectiveness of Current Management Measures
After you've identified existing management efforts in the watershed, you'll determine the
effectiveness of the measures in terms of achieving desired load reductions or meeting other
management goals and objectives. The difference between the levels of pollutant load reduc-
tions achieved by existing practices and the targeted reductions you identified in chapter 9
will help determine the additional practices needed.
Quantifying the effectiveness of existing programs and measures can be a challenging task.
First, take a look at whether the source quantification analyses performed earlier (Chapter 8)
reflect existing programs adequately so that you can determine the gap. For example, if you
don't expect the programs to achieve more than what was represented in earlier modeling analy-
ses and a gap exists between the current level of loading and the target, additional measures
will need to be added to fill that gap. In addition, if the existing management measures are not
aimed at controlling the stressors of greatest concern, a gap is clearly evident and new manage-
ment measures are needed. On the other hand, if the existing programs are evolving and greater
participation or improved performance is expected with respect to the parameters of concern,
you can estimate how much that gap will be further reduced by programs already in place.
Additional measures would be needed only to the extent that a gap is expected to remain.
10-13
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
If the modeling tools previously applied to conduct the loading analysis can't be used to
predict the future performance of existing management programs, you can approximate
the additional reductions expected based on best professional judgment or you can develop
additional modeling tools to estimate effectiveness. ^ Chapter 11 discusses methods for
evaluating the effectiveness of new management measures, from the relatively simple to the
complex; some of the methods could be used to evaluate existing measures as well.
10.3.3 Identify New Management Opportunities
Now that you've identified the existing management efforts in the watershed and their relative
effectiveness in reducing pollutant loads, you can begin to identify potential new management
measures that could be used to achieve the additional load reductions required. At this stage
you'll conduct a preliminary screening of these management measures to determine their
potential usefulness, v Once this screening is complete, you'll conduct more rigorous evalua-
tions in chapter 11.
NRCS published National Catalog of Erosion and
Sediment Control and Storm Water Management
Guidelines for Community Assistance
(^ www.info.usda.gov/CED/ftp/CED/
Natl-Catalog-Erosion-and-Sed-Guidelines.pdf)
This document contains a comprehensive list of
urban and development management practices from
every state, as well as representative standards and
specifications for each type of management practice.
This section provides a process for screening management
opportunities and identifying good candidate options, which
will be subjected to a more detailed evaluation. The process
includes
• Identifying critical areas where additional management is
needed
• Identifying candidate management practices
• Identifying relative pollutant loading reductions
• Identifying opportunities and constraints for each
management measure
• Documenting good candidate opportunities
10.3.4 Identify Critical Areas in the Watershed Where Additional
Management Efforts Are Needed
In general, management practices are implemented immediately adjacent to the waterbody
or upland to address the sources of pollutant loads. Streamside practices include streambank
protection and riparian habitat enhancement to address the channel, floodplain, and riparian
corridor of the waterbody. Upland management practices are typically divided into practices
for agricultural lands, forestry, and urban or developed lands. Related to these upland prac-
tices, and important to the ecological integrity of watersheds, is the management of surface
water flow and groundwater pumping.
As part of your screening process, you'll want to identify which management practices can
be implemented in the critical areas that you have identified. ^ Using the location of the
pollutant sources you identified in chapter 7, you'll start to identify possible opportunities for
installing additional management practices.
You can use a geographic information system (GIS) or hand-drafted maps to conduct an
analysis of management opportunities. A simple mapping analysis for a rural residential and
farming area that has nutrient problems might include the following geographic informa-
tion: location of section 303(d)-listed waterbodies, existing agricultural areas (using a GIS
coverage of existing land use or land cover data that indicates grazing versus cropland if pos-
sible), areas where existing management practices are being employed (if any), and the degree
10-14
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Chapter 10: Identify Possible Management Strategies
of riparian buffer disturbance. These maps can often be generated using the land use/land
cover databases and watershed tools from the scoping and watershed analysis.
Figure 10-2 shows a map that was generated to help identify the critical areas where manage-
ment practices were needed in the rural Troublesome Creek watershed. The map shows the
impaired waters, along with
the percentage of buffer area
disturbed in the Trouble-
some Creek subwatersheds.
The subwatersheds that have
buffers more than 15 per-
cent disturbed indicate the
potential for riparian area
restoration efforts to limit
sediment loading. Maps for
an urban or suburban area
might include waters on the
section 303(d) list with an
overlay of subwatersheds
that have impervious area
greater than 10 percent and
greater than 25 percent,
indicating the medium and
high potential for stream
degradation, degree of ripar-
LEG6ND
Streams
%BjfferArea Disturbed
I 10-5
I 16-15
B1S-J2
B-48
•
A
ian buffer disturbance, and
industrial sites.
Figure 10-2. Percentage of Buffer Area Disturbed and Impaired Waters in the
Troublesome Creek Watershed
10.3.5 Identify Possible Management Practices
Dozens of resources are available to help provide a sound basis for your research and prelimi-
nary screening of management practices. ©The resources you select should depend on the
pollutant sources and causes in your watershed and the land use characteristics (chapter 7). For
example, some resources focus on practices to control urban stormwater runoff, some focus on
agricultural practices to manage farm runoff, and some concentrate on forestry practices to
control impacts from logging. These resources provide information on the practice, such as
description, cost, and planning considerations. Although data on management practice effec-
tiveness and program-related load reductions can be very limited, the resources provide insight
on relative performance. For example, NRCS's (2005) National Conservation Practice Standards
allows you to identify the level of technical expertise necessary to successfully design, install,
and maintain specific activities: passive management, active management, mild engineering,
moderate engineering, and intensive engineering, v Appendix A provides several resources
that can be used to begin identifying possible management practices.
As you conduct your research, it's helpful to develop a one- or two-page summary of each prom-
ising management option. (These can be included in an appendix to your management plan.)
Each summary should eventually include, at minimum, the information listed in ^Worksheet
10-2. As you move through the screening process you'll add information to the worksheet,
such as the pollutant reduction effectiveness, planning considerations, legal requirements, and
opportunities and constraints. ^ Full-size, blank worksheets are provided in appendix B.
10-15
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Excerpt of worksheet 10-2 DocMm^vtin T/UnK/iMt V(\e0£wre>
Sources (e.g., streambanks, urban stormwater, malfunctioning septic systems, livestock in stream)
Causes (e.g., eroding streambanks, unlimited access of livestock, undersized culverts)
Name of management measure or program (NRCS code if applicable)
Data source (i.e., where you obtained your information on the management measure)
Description (what it is and what it does)
Approximate unit cost (including installation and operation and maintenance costs; may be expressed as a range)
Approximate or relative load reduction for each parameter of concern (could be high, moderate, low, or unit reduction per acre per year)
Planning considerations (e.g., project factors such as site size and contributing watershed area; physical factors such as slope, depth of
water table, and soil type limitations or considerations; operation and maintenance requirements)
Skill needed to implement the management measures (e.g., engineering, landscape design, construction)
Permitting considerations
Other (e.g., stakeholders' willingness to use the measure)
The National Conservation Practice Standards provides a one-page summary of each of 50
management practices. Drawing from this manual, Table 10-3 lists some commonly used
practices for reducing sediment, total dissolved solids (TDS), and salinity, along with the
pollution sources they address and the expected level of load reduction. The load reduction
potential qualitatively describes the potential reduction of loading achieved by implementing
the practice. The actual load reduction depends on the extent of the practice, existing load-
ing levels, and local features like soils and hydrology.
This handbook and others like it can provide a good basis for screening, with some adapta-
tion to local circumstances. For example, because National Conservation Practice Standards
was developed in the West, if you're developing a plan for an eastern watershed, you might
need to consult your local NRCS office or local engineering department staff regarding the
potential load reductions and cost of selected practices in your area.
Although dozens of management practices can be implemented, you should identify those
practices that will have the greatest likelihood of achieving your watershed goals. You should
relate the management practices back to the sources of pollutants in the watershed, the types
of impairments found, and the amount of load reduction needed. In addition, it is also useful
to consider complementary or overlapping benefits or issues. For example, regional sediment
management plans might be developed to provide an inventory and budget for local sediment
resources. Excess instream sediment might be used for beach or wetland restoration, high-
way construction, landfill cover, or other uses.
The management practices selected should be targeted to the sources of a particular stressor.
For example, full-scale channel restoration can be pursued along reaches where channel
incision and streambank failure result from historical channelization, whereas exclusion fenc-
ing of cattle might be more appropriate when the sediment source is streambank trampling
along cobble bed reaches. In cases where instream habitat is degraded, the components of the
10-16
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Chapter 10: Identify Possible Management Strategies
Table 10-3. Commonly Used Management Practices for Salinity, Sediment, and Total Dissolved
Solids
Pollution Sources (/ = Management practice applies)
AFO
/
/
/
/
/
/
/
/
/
/
/
Ag
Practices
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
Industry
Runoff
/
/
/
/
/
/
/
/
Urban
Runoff
/
/
/
/
Disturbed
Areas
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
Stream
Erosion
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
/
Management Practice
Construction site mgt
Grazing mgt
Nutrient mgt
Cover crop
Fencing
Filter strip
Mulching
Riparian buffer
Seeding
Tree planting
Brush layer
Brush trench
Erosion control fabric
Silt fence
Straw bale barrier
Watering facility
Constructed wetland
Detention basin
Road stabilization
Grade stabilization
Willow fascines
Water quality pond
Rock riprap
Stream channel
stabilization
Brush mattress
Pole/post plantings
Residue mgt
Rock vane
Rock weir
Sloped drain
Terrace
Pest mgt
Load
Reduction
(H,M,
orL)
L
M
M
H
H
H
L
M
M
L
H
H
H
M
M
M
M
M
L-M
H
H
M
H
H
M
M
M
H
H
M
H
H
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
*> Resources on Management Practices
Select appropriate sources of management practice
information on the basis of the pollutant type and land
use characteristics. The following are examples:
Urban Sources
The International Stormwater Best Management
Practice Database at ^ www.bmpdatabase.org
provides access to performance data for more than
200 management practice studies.
Agricultural Sources
NRCS offers a National Handbook o! Conservation
Practices at www.nrcs.usda.gov/technical/
standards/nhcp.html
All Sources
EPA has developed several guidance documents
broken out by type of management measure. Draft and
final manuals are available for agriculture, forestry,
urban areas, marinas and recreational boating, hydro-
modification, and wetlands. These manuals can be
downloaded from **> www.epa.gov/owow/nps
Note: In addition to the resources mentioned above,
many states have published BMP handbooks or
guidance documents for in-state use. For example, the
California Stormwater Quality Task Force published
the California Stormwater Best Management Practice
Handbooks to provide information on current
practices, standards, and knowledge gained about
the effectiveness of management practices. These
documents can be downloaded from
**> www.cabmphandbooks.com
habitat that are most affected can be used to guide manage-
ment actions. Slightly degraded habitat due to limited micro-
habitat (e.g., leaf packs, sticks, undercut banks), poor cover
(e.g., logs and overhanging vegetation), and a thin canopy
could be improved through revegetation of the riparian area;
habitat degraded by poorly defined and embedded riffles,
pools filled with sediment, and unstable streambanks might
better be addressed through natural channel design. In the
case of excessive nutrients from upland areas, passive actions
such as designating conservation easements and limiting
development might be the most prudent choices.
It's important to look at how the management practice being
considered addresses the stressor of concern because that fac-
tor can considerably affect performance. Thus, in cases where
sediment is identified as a stressor, stabilizing streambanks
and limiting incision will be of little value if poor erosion and
sediment control practices in a developing watershed are the
overwhelming source of sediment contributed to the reach.
When you're screening management practices, selecting two
or more practices will usually be more effective than choos-
ing a single practice to achieve the needed load reductions.
When you combine multiple practices, the result is called a
management practice system or treatment train. Multiple prac-
tices are usually more effective in controlling a pollutant
because they can be used at two or more points in the pol-
lutant delivery process. For example, the objective of many
agricultural nonpoint source pollution projects is to reduce
the delivery of soil from cropland to waterbodies. A system
of multiple practices can be designed to reduce soil detach-
ment (e.g., soil additives to make soils less erodible), erosion
potential (e.g., turf reinforcement mats), and off-site trans-
port of eroded soil (e.g., vegetated buffer strips).
When reviewing multiple practices, consider spatial and temporal factors. For example, if
you're trying to reduce impacts from an agricultural area, you should review management
practices that might address upland agricultural activities as well as management practices
that might address stream erosion (if both impacts exist). Complementary practices also have
a time dimension. For example, streambank erosion is often caused by a reduction of woody
vegetation along the stream due to intensive cattle grazing. Before the streambank can be
successfully revegetated, the grazing issue should be addressed through fencing or other
controls that protect the riparian zone from grazing and trampling. You should also screen
for management practices that do not conflict with each other or with other management
objectives in the watershed.
In addition to selecting management practices focused on pollutant reductions, you should
also select practices for protecting, conserving, and restoring aquatic ecosystems. Those prac-
tices include, but are not limited to, the following:
• Ordinances for protecting habitats
• Aquatic buffers
10-18
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Chapter 10: Identify Possible Management Strategies
• Fee simple land purchase
• Conservation easements (landowner grants recipient responsibility for protection and
management)
• Conservation tax credits
• Transfer development rights (TDRs)
• Purchase development rights (PDRs)
• Landowner and public sector stewardship
• Greenways (ecologically significant natural corridors)
• Greenprinting
• Open space preservation
• Conservation or biodiversity banking
• Reserving or reclaiming flow (legal)
• Adoption of regulatory floodways
• Floodplain and riparian zoning
• Dam removal
• Conservation education
• Monitoring
There are resources available to help you weigh the pros and cons of these types of practices
and select the practices that are most appropriate for your watershed planning goals. For
example, every state wildlife action plan (^ refer to section 5.4.7) has a section that describes
the conservation actions proposed to conserve the species and habitats identified in the plan.
Many times, these plans provide pros and cons of the proposed actions or practices. Some ques-
tions to ask when selecting these practices include:
• What are the highest priorities for land conservation?
• Does a land trust exist to accept and manage conservation areas?
• How should conservation areas be delineated?
• What fraction of the watershed needs to be conserved, protected, or restored?
• How much pollutant removal might be gained from the buffer or conservation area?
10.3.6 Identify Relative Pollutant Reduction Efficiencies
Once you've selected potential management practices based on the pollutant type addressed,
you should identify the relative effectiveness of each practice in reducing pollutant load-
ing. At the screening stage, this means using or developing simple scales indicating high,
medium, or low reduction potential (see table 10-3). ^> The actual load reduction will depend
on the extent of the practice and the existing loading levels, which will be addressed in more
detail in chapter 11. Many of the resources and references mentioned previously also identify
the relative load reduction potential of various practices.
Keep in mind that in addition to reducing pollutant loads, you might also want to evalu-
ate management practices to reduce hydrologic impacts like high peak flows and volume
through infiltration or interception. The ability of management practices to address these
hydrologic impacts should be documented using a scale of high, medium, or low potential for
peak flow or volume reduction.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Table 10-4 shows how a community can screen management practices for their relative
performance in addressing pollutant loading and hydrologic issues. The table also shows the
multiple and complementary benefits of the management practices.
Table 10-4. Example Management Practice Screening Matrix
Structural Management Practice
Bioretention
Conventional dry detention
Extended dry detention
Grass swale
Green roof
Infiltration trench
Parking lot underground storage
Permeable pavement
Sand filter
Stormwater wetland
Vegetated filter strip with level spreader
Water quality swale
Wet pond
Hydrologic Factor
Interception
•
o
o
»
•
o
»
»
o
•
»
»
o
Infiltration
»
O
O
»
o
•
»
»
o
o
»
»
o
Evaporation
»
»
»
O
•
O
o
»
o
»
o
»
•
0
u_
CO
Q_
•o
09
O
•o
O9
DC
»
•
•
O
»
»
»
o
•
o
»
•
Pollutant Factor
Total Suspended Solids
O
»
»
O
»
•
•
»
•
•
Nutrients
O
»
O
o
o
•
•
»
•
•
Fecal Coliform Bacteria
•
•
O
O
»
»
•
o
o
•
re
"5
»
»
•
o
o
•
•
»
•
•
Temperature
»
O
»
•
»
•
»
»
•
O
O Poor, low, or no influence
I Moderate
Good, high
10.3.7 Develop Screening Criteria to Identify Opportunities and Constraints
Once you've identified general areas in the watershed that might benefit from management
practices that address the sources of pollutants, you can apply additional screening to further
hone in on feasible sites, for which you will conduct your more detailed evaluation and final
selection ( ^> chapter 11).
Which screening criteria you select depends on where the practice is to be implemented and
the nature of the practice. At this stage you can use the following screening criteria to help
identify candidate management measures:
• Location of management practice within the critical area. Check to see if the candi-
date management practice will help achieve the load reductions that were identified in
one of the critical areas of the watershed.
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Chapter 10: Identify Possible Management Strategies
Estimated load reductions. Using the information you collected in section 10.3.5,
record whether the anticipated load reduction is low, medium, or high.
Legal and regulatory requirements. Identify legal or regulatory requirements for
projects, and determine whether any pose significant constraints. For example, if
the restoration project involves working in the stream channel, a section 404 dredge
and fill permit might be required. You should also check for the presence of wetlands
because disturbance of wetland resources might be prohibited. Also, if the project
is adjacent to a stream, make sure local stream buffer ordinances do not prohibit
disturbance of the buffer for restoration purposes. Are there other resource conserva-
tion constraints (e.g., endangered species)? Federal Emergency Management Agency
(FEMA) floodplain regulations also might affect the project. If the project is adjacent
to a stream, make sure local stream buffer ordinances
allow management practices within the buffer.
Property ownership. Determine the number of
property owners that need to agree to the restoration
project. It's often easier to obtain easements on lands
in public ownership.
Site access. Consider whether you will be able to phys-
ically access the site, and identify a contact to obtain
permission if private property must be traversed to
access the site. Consider whether maintenance equip-
ment (e.g., front-end loaders, vacuum trucks) will be
able to reach the site safely. Design and costs might be
affected if a structural control requires hand-cleaning
because of maintenance access constraints.
Added benefits. In addition to management practices
fulfilling their intended purpose, they can provide
secondary benefits by controlling other pollutants,
depending on how the pollutants are generated or
transported. For example, practices that reduce ero-
sion and sediment delivery often reduce phosphorus
losses because phosphorus is strongly adsorbed to silt
and clay particles. Therefore, a practice like conserva-
tion tillage not only reduces erosion but also reduces
transport of particulate phosphorus. In some cases, a
management practice might provide environmental
benefits beyond those linked to water quality. For
example, riparian buffers, which reduce phosphorus
and sediment delivery to waterbodies, also serve as
habitat for many species of birds and plants.
Unintended impacts. In some cases management
practices used to control one pollutant might inadver-
tently increase the generation, transport, or delivery
of another pollutant. Conservation tillage, because it
creates increased soil porosity (large pore spaces), can
increase nitrate leaching through the soil, particularly
when the amount and timing of nitrogen application
are not part of the management plan.
Sources of Cost Information
A list of currently available cost references is given
below. Most of these references are available for free
download, but some might be available only at a uni-
versity library or by purchase. You should look for local
costs before using these references because construc-
tion costs and designs vary between states. **> A more
detailed list of resources on costing information is
included in appendixA.
EPA Management Practice Fact Sheets
This comprehensive list of BMP fact sheets contains
information on construction and maintenance costs, as
well as other monetary considerations. Information is
provided on both structural and non-structural manage-
ment practices ^ Go to http://cfpub.epa.gov/npdes/
stormwater/menuofbmps/index.cfm
National Management Measures to Control
Nonpolnt Source Pollution from Agriculture
This EPA document provides cost information on a
number of management options for agricultural land.
**> Go to www.epa.gov/owow/nps/agmm
USDA Natural Resources Conservation Service
Some state NRCS offices publish cost information on
agricultural practices. Some cost data are published
to support the Environmental Quality Incentives
Program (EQIP). For an example of this cost informa-
tion, **> go to the "cost lists" section of the following
Web site: www.nc.nrcs.usda.gov/programs/EQIP/
2005Signup.html
Center for Watershed Protection
The Center for Watershed Protection has published
numerous support documents for watershed and
management practice planning. The Web site has
documents available for free download and purchase.
^ Go to www.cwp.org
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
• Physical factors. Many physical factors will determine whether you'll be able to
install management practices. Look for constraints like steep slopes, wetlands, high
water tables, and poorly drained areas. Also look for opportunities such as open space,
existing management practices that can be upgraded, outfalls where management
practices could be added, and well-drained areas. For example, a site proposed for a
stormwater wetland that has steeply sloping topography might not be feasible for a
wetland.
• Infrastructure. Look for sites that don't have utilities, road crossings, buried cables,
pipelines, parking areas, or other significant physical constraints that could preclude
installation or cause safety hazards.
• Costs. The appropriateness of a management practice for a particular site can be
affected by economic feasibility considerations, which encompass short- and long-term
costs. Short-term costs include installation costs, while long-term costs include the
cost of continued operation and maintenance. Most of the guidance manuals refer-
enced earlier in the chapter also provide cost information for each of the management
practices discussed. ^> In section 11.5 you'll consider more detailed cost elements
associated with the management practices, such as construction, design and engineer-
ing, and operation and maintenance costs, as well as adjustment for inflation.
• Social acceptance. Consider how nearby landowners will perceive the management
practice. Will it cause nuisances such as localized ponding of water, unsightly weed
growth, or vector control problems? Can these issues be addressed in the siting and
design of the practice? How can you involve nearby residents in selecting and design-
ing the practice to address their concerns?
The optimal method for evaluating site feasibility for riparian and upland management
practices is a site visit, preferably with staff from permitting or extension agencies. Actual
constraints and opportunities can be identified, and input from the agencies can be incor-
porated to expedite the permitting process. When a site visit is not practical, however, many
physical constraints can be evaluated remotely using a GIS. When the GIS approach is used,
it's important to recognize that the input data might not be entirely accurate (e.g., land cover
data from 1999 might have changed by now).
10.3.8 Rank Alternatives and Develop Candidate Management
Opportunities
Now that you've identified various management practices that you could install in the water-
shed to achieve your goals and objectives, you should screen them to document the candidate
management opportunities. ©At this stage, you're working with the stakeholders to identify
which management options should go through a more rigorous evaluation to determine the
actual pollutant reduction that can be achieved through combined management measures, as
well as the costs and feasibility of the measures.
Using the worksheets from your research, develop a summary chart and map, along with a
ranking of alternatives, to present and discuss with the stakeholders. Summarize and weigh
such factors as
• Relative load reduction expected
• Added benefits
• Costs
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Chapter 10: Identify Possible Management Strategies
• Public acceptance
• Ease of construction and maintenance
When developing your summary worksheets, it's helpful to group similar types of practices.
Once you have collected all the information on the various practices, you can rate practices
according to the screening criteria you've selected (table 10-5). You can create a basic rating
system from 1 to 4, with 1 the lowest rating and 4 the highest. For example, practices receive
higher ratings for high pollutant removal effectiveness, lower cost, lower required mainte-
nance, high likelihood of public acceptance, and added benefits.
Table 10-5. Example Ranking Table to Identify Candidate Management Practices
Management
Practice
Gradient terraces
Grassed swales
Wet extended
detention ponds
Model ordinances
Pollutant
Reduction
Effectiveness
2
3
2
4
Cost
3
4
3
3
Added
Benefits
1
3
2
2
Public
Acceptance
2
4
3
4
Maintenance
4
4
3
4
Average
Score
2.4
3.2
2.6
3.4
Before you rate each practice, you might want to develop some assumptions like the following:
• The management practices will be installed and maintained properly.
• Although public involvement activities will not directly reduce pollutant loads, they
will contribute to an increase in awareness that might lead to people's adopting pollut-
ant-reducing behaviors.
• The management practice is rated for reducing a specific pollutant of concern, not a
suite of pollutants.
When you have rated all the practices, average the values in each row. Comparing the aver-
ages will give you a general idea of which management practices might be good candidates
for implementation. Next, present the summaries to your stakeholders and ask them to
review the information and agree or disagree. If they disagree with the ratings, review the
criteria used, provide them with more information, or change the rating based on their input.
Once you've narrowed down the candidate practices, you're ready to move on to chapter 11
and conduct more detailed analyses.
When developing good candidate options for watersheds with multiple sources, make sure
you've identified management options for each source and that the options are complemen-
tary. Finally, map out upstream-to-downstream management options, making sure that
you begin work on the upstream projects first. Working on upstream projects first, if pos-
sible, will aid in determining BMP effectiveness because water quality improvements can
be measured without interference caused by multiple upstream pollutant sources that might
not be addressed initially. As implementation proceeds, BMPs can be selected, installed, and
adapted as needed to ensure that water quality is improving from upstream to downstream
locations. ^ Chapter 11 provides more detail on evaluating multiple projects in a watershed
or subwatershed.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
10-24
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Handbook Road Map
1 Introduction
2 Overview of Watershed Planning Process
3 Build Partnerships
4 Define Scope of Watershed Planning Effort
5 Gather Existing Data and Create an Inventory
6 Identify Data Gaps and Collect Additional Data If Needed
7 Analyze Data to Characterize the Watershed and Pollutant Sources
8 Estimate Pollutant Loads
9 Set Goals and Identify Load Reductions
10 Identify Possible Management Strategies
-•11 Evaluate Options and Select Final Management Strategies
12 Design Implementation Program and Assemble Watershed Plan
13 Implement Watershed Plan and Measure Progress
11. Evaluate Options and Select Final
Management Strategies
Approaches used to evaluate management practice
performance.
Estimating management performance and comparing to
objectives
Cost considerations
Evaluating options
Selecting final strategies
Read this chapter if...
• You want to evaluate potential management strategies to select
the final strategy for your watershed plan
• You want to learn about approaches to quantify the effectiveness
of management practices
• You want to understand the capabilities of available models for
evaluating management practices
• You need examples of applications for quantifying the
effectiveness of management practices
• You need to identify criteria for ranking and selecting your final
management strategy
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
11.1 How Do I Select the Final Management Strategy?
In chapter 10 you conducted an initial screening to determine the feasibility of using various
management practices in your implementation program. The screening was based on fac-
tors like the critical areas in the watershed, estimated pollutant removal efficiencies, costs,
and physical constraints. In this chapter you'll take those candidate options and refine the
screening process to quantitatively evaluate their ability to meet your management objectives
in terms of pollutant removal, costs, and public acceptance (figure 11-1).
You'll work with your stakeholders to consider various strategies that use a combination of
management practices, to rank and evaluate the strategies, and finally to select the preferred
strategies to be included in your watershed plan.
This chapter presents various techniques to help you to quantify the potential of the manage-
ment actions to meet the watershed objectives, thereby providing the information you'll need to
make final selections. There are five major steps to selecting your final management strategies:
1. Identify factors that will influence selection of the preferred management strategies.
2. Select the suitable approach to evaluate the ability of the management techniques to
meet the watershed objectives.
3. Quantify the expected load reductions from existing conditions resulting from the
management strategies.
4. Identify capital and operation and maintenance costs and compare initial and long-
term benefits.
5. Select the final preferred strategies.
Before you conduct detailed analyses of the management strategies, you should first identify
the factors that will influence which approach you'll use and then select the actual approach
or method you'll use to evaluate the effectiveness of the proposed management practices in
meeting your objectives. The factors that will influence the selection of your approach are
discussed below, followed by a discussion of various approaches.
Candidate
Management
Practices
TOOLS
Spreadsheets & Models
o o
Final
Management
Strategies
Calculate (1
) relative load )
) reduction yi
) y
> r;
Compare /
) cost/benefit p
> results (
\ \
Figure 11-1. Evaluate Candidate Management Practices to Select Final Strategies
11-2
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Chapter 11: Evaluate Options and Select Final Management Strategies
11.2 Identify Factors that Influence the Selection of Approaches
Used to Quantify Effectiveness
You should consider several factors before you select an
approach to evaluate your candidate management strategies.
These include identifying the general and specific types
and locations of management practices that will be used,
what indicators you'll use to evaluate their performance, and
the appropriate scale and detail of the analysis to assess the
cumulative benefit of multiple practices.
11.2.1
Ij 10 While you're setting up your evaluation of
*• *•[ management practices, you might find it
helpful to develop metrics or measures that can be
combined readily with your cost evaluation to facilitate
the cost-effectiveness analysis (^ discussed further in
section 11.5). For instance, pounds per acre per year of
pollutant removal can be combined easily with dollars
per acre of cost to produce dollars per pound removed.
General Types of Management Practices
Which approaches you choose to evaluate the performance of the management practices
depends in part on the location of the sources being managed and the types of management
practices used. A source in an upland area (e.g., cropland erosion) is different from a source
in a stream (e.g., streambank erosion). To evaluate upland loading management, you could
use a tool that estimates sediment loading (on an area basis) from land uses in your water-
shed and could calculate a load reduction from changes in land use management practices.
For streambank erosion, you might need to evaluate the effectiveness of stream restoration
measures in terms of reduction in tons of sediment per linear foot of stream.
When selecting the approaches
used to assess management,
consider the general characteris-
tics of the management practices.
One way to group the various
practices is to consider how
they are applied. Are the prac-
tices applied across a land area,
along a stream corridor, or at a
specific location? Some types of
management practices, such as
tillage and fertilizer management
techniques, are applied over large
land areas.
These land area-based practices
are measured by the area affected
and often include large regions of
the watershed. Practices applied
along a stream corridor are linear
practices that stretch across long
areas, such as riparian or stream
buffer zones. By instituting a
stream buffer zone, some water
from uphill areas can be filtered;
the vegetation might also provide
additional shade and improved
habitat. Practices installed at a
2
3
4
Gy*?/<.C>fc~XJ
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
point or specific location provide treatment for runoff from a specific drainage area. Point
practices include detention ponds, bioretention areas, and many other practices that collect
and treat runoff through settling or infiltration of water and pollutants. These types of prac-
tices require slightly different assessment techniques and have different data collection needs
for evaluating their pollutant removal benefits.
11.2.2 Identify the Types of Indicators You're Using to Measure
Performance
In chapter 9 you developed indicators to help measure progress toward meeting your water-
shed goals and management objectives. Your indicators and associated targets might be
based on pollutant loads, hydrologic factors, concentration values, or habitat measures. The
types and expression of your indicators will affect the types of analyses you can use to assess
your management practices and strategies.
If your indicator is a pollutant load, performance measures for practices are easy to find.
For concentration- or value-based indicators, you should take greater care to ensure that the
information you find is applicable to your situation. Assume, for example, that your water-
shed has been listed as impaired because of frequent exceedances of fecal coliform counts
during storm events. When locating data about management practice performance, you
should make sure that the information you find applies to storm event performance, not to
base flow performance.
If you have more than one indicator to address, note how each management practice per-
forms for all of your indicators. Practices that benefit multiple indicators might have greater
overall benefit as part of a watershed-wide management strategy.
11.2.3 Consider the Scale of Your Watershed
Understanding how to develop your management strategy will depend in large part on how
big and complicated the watershed is and how expensive the management will be. When
looking at how to evaluate a management plan, scale is a major concern. A management
strategy for a small urban watershed (e.g., approximately 1,000 acres) might include
hundreds or even thousands of individual actions such as changes in fertilizer applications,
increased street sweeping and vacuuming, retrofit of existing detention ponds, or restoration
of shoreline areas. In large watersheds, both urban and rural, the effect of multiple actions
is often generalized to get an estimate of the overall impact. For a smaller-scale watershed,
you might conduct a more detailed analysis of the benefit of specific management practices
or restoration activities. These studies might include examining what will happen if
practices are installed or adopted in defined locations within the watershed. Practices can
also be evaluated at the smallest scale, such as an individual development or lot. At that
level, however, analyses typically focus on meeting regulatory requirements or design
requirements of a funding program. Individual practices provide a cumulative benefit when
considered as part of a larger program of implementation, but their individual benefit might
be more difficult to discern.
How to bridge the various scales is an ongoing issue in watershed planning. Tools are needed
to evaluate the cumulative benefit of management strategies to select the best alternatives,
evaluate the most cost-effective solutions, and ultimately be assured that restoration will be
successful. But it's not always appropriate or necessary to use models or perform detailed
analyses of each management practice. In subsequent sections the capabilities of available
11-4
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Chapter 11: Evaluate Options and Select Final Management Strategies
models to assess the benefits of management practice installation are discussed. In applying
models to management analysis, keep in mind that sometimes simplifying or generalizing
the impacts of management practices is appropriate. Sometimes very detailed simulation
or testing of land use practices and small-scale practices can be performed and the results
extrapolated to a larger scale. Such studies can be described as "nested" modeling studies.
For example, a detailed evaluation of fertilizer and tillage practices can be performed at the
field scale using modeling or monitoring. The results from the study can be used to evaluate
the implications of using similar practices on similar fields in the region. Similar approaches
can be used to examine the implications of urban development and redevelopment practices.
In larger watersheds there are also additional considerations in aggregating results to the
entire watershed and accounting for physical and chemical processes that occur on a large
scale (e.g., instream nutrient uptake, the timing and duration of storm event peak flow at the
mouth of the watershed). If the upstream conditions of your watershed significantly influence
the downstream portions, it might be necessary to use models to evaluate the link between
upstream and downstream indicators.
11.2.4 Consider the Synergistic Effects of Multiple Practices
The combined effects of all management practices implemented in a watershed should be
considered to determine whether water quality goals will be achieved. In watersheds with
easily characterized problems (e.g., where bacterial contamination is due to a few obviously
polluting animal operations in a watershed that has no other identifiable sources of patho-
gens), it might be very easy to project that water quality benefits will be achieved by imple-
menting, for example, management practices for nutrient management, erosion and sediment
control, and facility wastewater and runoff. However, in a watershed with multiple land uses
where agriculture is considered to contribute only a portion of the pollutants, it is more dif-
ficult to estimate the combined impacts of various management practices on a fairly large
number of diverse farming operations. Further complicating the assessment is the possibil-
ity that historical loading of pollutants has caused the water quality impairment and several
years might be required for the water resource to recover fully.
If you need to evaluate the interaction of multiple management practices simultaneously,
you'll want to evaluate the degree to which they complement or conflict with one another.
Their combined effect could be different from their individual influence. The cumula-
tive effect of management practices spread throughout a large watershed might need to be
assessed with complex tools. Sometimes multiple management activities at the site scale are
evaluated simultaneously within a single watershed. Most commonly, individual sites are
evaluated in a watershed framework to investigate the downstream effects. An example of a
downstream effect is the magnitude of peak flows at the junction of the main stem and the
tributary on which the management practice is located. Though unlikely, it is possible that
the reduced peak outflow hydrograph from a proposed stormwater management practice
could exacerbate the peak flow in the main stem channel because of differences in timing.
The only way that this unintended, and likely undesirable, downstream effect could be
discovered is through a watershed-scale evaluation. On the other hand, it is possible that
multiple management practices could work in concert to cumulatively reduce peak flows
more than the sum of their individual contributions.
The next section discusses various approaches for quantifying the effectiveness of manage-
ment practices, including the role of modeling and the types of models available.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
11.3 Select an Approach to Quantify the Effectiveness of the
Management Strategies
You can use various approaches to evaluate the performance of management practices and
strategies. Choosing the one that is right for you will depend on several factors, including the
objectives and targets you need to achieve, the types of sources and management practices,
the scale of the analysis, and the cost of implementation. Some of the technical consider-
ations associated with modeling are the types of models that were used for loading analysis,
the availability of data or resources to collect management practice information, and the
availability of the appropriate modeling techniques. A wide variety of approaches can be used
to evaluate management strategies. At one end, you can use published literature values and a
simple spreadsheet-based tool that calculates loads deliv-
ered to and removed by management practices. At the
other end, you can use a detailed watershed model
that requires substantial amounts of input on
each management technique. Sometimes
a combination of approaches are used to
address various indicators and management
practices that might need to be addressed.
Very simple approaches can be appropriate
for planning and alternatives analysis and
can provide relative comparisons of vari-
ous management strategies. The common
limitations of simplified techniques include
a lack of sensitivity to precipitation, seasonal
patterns, and storm events.
11.3.1 Using Literature Values
One of the most commonly used methods for predicting the performance of management
strategies is the use of literature values of the removal percentage typically associated with
each type of management practice and pollutant (e.g., detention pond and sediment). The
removal percentage is typically estimated from one or more monitoring studies in which the
performance of practices was measured using flow and chemical monitoring.
The percentages from various literature sources and studies can include ranges or variations
in the expected reductions from practices. This is because the effectiveness of management
practices in removing pollutants depends on many factors, including local climate and condi-
tions, design specifications, and type of pollutant. Some monitoring studies have detailed
data for only part of the year, such as a few storms, and do not fully consider what the annual
load reduction might be for one or more years. When you use studies that document removal
percentages, consider the location and climate of the study area (e.g., arid, wet region, cold
weather) and the amount of data collected. If you have data that range in values (e.g., from 20
to 80 percent), consider using a range of values in your analysis.
Note that the effectiveness of a series of management practices is not necessarily cumulative.
The removal percentage is typically calculated on the basis of monitoring of an individual
practice. Management practices are frequently combined on a site to provide enhanced
performance. If the same runoff is treated by more than one practice, the configuration is
referred to as a treatment train. One common pitfall is that people add the performance
11-6
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Chapter 11: Evaluate Options and Select Final Management Strategies
results for all the management practices to obtain a com-
bined performance (e.g., 65 percent load removal plus 25 per- Questions to Ask Before You Select a
cent load removal equals 90 percent removal). This method Management Evaluation Approach
of calculation is not accurate and overestimates reduction. * What is the time frame for V°ur ana|Vsis? Determine
whether the management practice performance is
Management practice combinations have some cumulative comParedu to indjcators on anu a™al> seasonal>
. _ . , ,. i 11 j i or storm basis. Determine whether you have to
benefit; however, depending on the pollutant type and the perform ca|cu|ations dai|y or even houNy
removal mechanism (e.g., settling), the removal percent-
, r v Tr u i- * Is your analysis continuous through time, or can
ages can change for subsequent practices. If the removal is ^ eva|J discrete events, Foryjnstancej yoy
cumulative, the removal rate is calculated as follows. If the might need to ,ook at on,y |arge storm eventSj not a
first practice removes 65 percent of the load, 35 percent of continuous hydrologic record.
the total load is passed to the second practice. The second . Are you ca|cu|ating |oadS] concentrations, flow, or
practice removes 25 percent of the remaining 35 percent, or some other measure? Make sure that your approach
8.75 percent of the total load. The overall performance is 65 reflects the units of measure of your indicator(s).
percent plus 8.75 percent, or 73.75 percent. If the process is . DO you need to account for variation in environmen-
not cumulative, the second practice might be slightly less tal conditions in your analysis, such as weather, wet
effective than the first, resulting in a cumulative reduction versus drV vears> and so forth?
of less than 73.75 percent. Typical practices that are not
cumulative include those which rely on settling. For instance, the first practice might remove
coarse, heavy sediment, but the second practice might be less efficient in settling the remain-
ing fine-grained sediment.
It might be tempting to apply more than two practices in a series to achieve better results,
but the mechanisms of pollutant removal suggest that additional removal is not likely to be
achieved. Pollutants are often composed of components with different physical properties;
for example, ammonia, nitrate/nitrite, and organic nitrogen make up total nitrogen. Fre-
quently, a practice can remove only one component of a pollutant well. If the next practice in
the treatment train removes the same component, less removal results. What is left over is
often difficult for any practice to remove. For this reason, you should usually consider using
no more than two practices in a given treatment train.
Watershed-scale reductions can be calculated by using simple spreadsheets to provide an
accounting of the estimated loading, areas treated, and the percent reductions (or ranges of
reductions) expected. Through the use of spreadsheets, multiple scenarios or combinations
of load reduction practices can be easily evaluated. Figure 11-2 shows a simple spreadsheet
analysis that evaluates one management practice at one site and then broadens the analysis to
the watershed scale.
11.3.2 Using Models to Assess Management Strategies
Watershed models or management practice-specific models can also be used to evaluate indi-
vidual management practices or watershed-scale management strategies. These approaches
can build on models developed previously to assess source loads, or they can be set up to
supplement other approaches used to estimate source loading. Watershed management mod-
eling is an active research and development area. The goal is to make existing models more
flexible and to develop new tools for assessing the placement, selection, and cost of manage-
ment practices. You're encouraged to check EPA Web sites, publications, and journal articles
for ongoing research on management practice analysis.
Currently available models have significant capabilities to represent management practices.
The practices they represent, however, vary depending on the specialities of the models.
Some agriculture-oriented models have excellent tools for assessing area-based management
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
A rural/agricultural watershed is listed as impaired because of the impacts of sedimentation on fish
communities. During the watershed characterization portion of the study ("*> chapters 7 and 8), you
determined that upland sources are a major source of sediment. Much of the load originates from fields
planted in conventional-till row cropland. One of the potential management practices you identified in
chapter 10 is implementing no-till in areas currently farmed with conventional till. You want to evaluate the
effectiveness of the no-till practice on a 120-acre field. During your modeling analysis of sources, you
determined that conventional-till row cropland at this site has a sediment loading rate of 1.6 tons/ac/yr.
According to your local extension agent, no-till practices are expected to reduce sediment loading by 75 per-
cent. You perform the following calculation to determine the pre-practice and post-practice sediment load:
Conventional till: 120 ac x 1.6 tons/ac/yr = 192 tons/yr
No-till: 120 ac x 1.6 tons/ac/yr x (1 - 0.75) = 48 tons/yr
Your net reduction is 144 tons/yr for the selected site.
If you want to evaluate this practice on a larger scale for several sites throughout the watershed, you can
use a spreadsheet to facilitate the calculation. For example, suppose your watershed has 10 potential sites
where conventional till could be converted to no-till. Each site has a unique area, of course, but you have
also calculated loading rates for each site, based on variations in slope and soil composition:
Loading Rate Load Removal Load Removed Net Load
Site Area (ac) (tons/ac/yr) (tons/yr) Percentage (tons/yr) (tons/yr)
1
2
3
4
5
6
7
8
9
10
Total
120
305
62
245
519
97
148
75
284
162
2,017
1.6
1.8
1.9
1.7
1.6
2.1
1.9
1.5
2.0
1.8
N/A
192
549
118
417
830
204
281
113
568
292
3,564
75
75
75
75
75
75
75
75
75
75
N/A
144
412
88
312
623
153
211
84
426
219
2,672
48
137
30
105
208
51
70
28
142
73
892
From this analysis, you estimate that altogether converting to no-till on 10 sites will remove 2,672 tons
of sediment. The spreadsheet provides a powerful tool for testing and combining results for various
scenarios. For example, you might test combinations of other management practices, with varying percent
removal at each site.
Figure 11-2. Using a Spreadsheet Analysis to Evaluate One Management Practice at a Single Site
11-8
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Chapter 11: Evaluate Options and Select Final Management Strategies
such as fertilizer and tillage practices. Others that special-
ize in urban areas include techniques for assessing structural
solutions like detention ponds. Similar to the watershed mod-
eling discussions s> highlighted in chapter 8, which model
you use depends on what questions you need to answer and
the strategies under consideration. The modeling approach
you select should provide a process for assessing pollutant
loads, evaluating management practices, and ultimately test-
ing the recommended approach for the watershed plan.
The following sections discuss how you can use the seven
models "^> highlighted in chapter 8 to evaluate manage-
ment strategies. The capabilities, strengths, and weaknesses
of each model are summarized. In addition to the selected
models, descriptions are provided for additional models,
supplementary tools, or specialized techniques that can be
used to assess management practices. Key data needs and
technical considerations in applying the models for manage-
ment analysis purposes are also discussed.
Summary of Management Practices
Simulated by the Seven Models
• AGNPS—agricultural practices, tillage, nutrient
application
• STEPL—removal percentages for multiple
practices
• GWLF—agricultural practices, tillage, simplified
nutrient/manure applications
• HSPF—urban and agricultural practices, nutrient
applications, detention, and buffer areas
• SWMM—urban practices, including detention and
infiltration
• P8-UCM—urban practices, including detention
• SWAT—agricultural practices, tillage, nutrient
applications
Modeling Management Strategies with the Selected Models
The models v discussed in chapter 8 have various capabilities for representing management
practices (table 11-1). As shown in the summary table, each model can assess a variety of
practices and each has associated strengths and weaknesses. The models tend to specialize in
the following areas:
• Agricultural practices: SWAT, AGNPS, GWLF, STEPL
• Urban practices: P8-UCM, STEPL, SWMM
• Mixed land use: STEPL, HSPF
For agricultural practices, the SWAT model provides the ability to examine specific practices
and specialized agricultural techniques like irrigation, drainage, and ponds. STEPL includes
a generalized capability to include management practices and assign a removal percentage of
pollutant loading. The P8-UCM model provides a flexible set of tools for evaluating specific
urban management practices such as ponds and infiltration structures. For mixed-land-use
watersheds, STEPL or similar spreadsheet-based models can provide a generalized descrip-
tion of the load reductions from a variety of sources. HSPF can provide a more detailed
representation of agricultural, forested, and urban areas, although it is more limited than
SWMM in representing structural practices. V Chapter 8 provides additional information
on the selected models.
Each model has a slightly different approach for including management practices, as summa-
rized in table 11-2. For example, the agricultural techniques in SWAT, AGNPS, GWLF, and
STEPL are already recognized during model setup by the selection of parameters for pre-
dicting runoff (e.g., curve number equation) and sediment loading (e.g., Universal Soil Loss
Equation [USLE]). Other practices might need to be specifically identified and separately
input into the model. Some of the agricultural models provide a continuous evaluation of the
availability of nutrients in the active soil layer or root zone. This feature provides for tracking
of nutrient loading, fertilizer applications, crop uptake, and leaching of nutrients. The HSPF
model, with its AGCHEM module, provides a similar ability to track nutrients in the soil.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Table 11-1. Summary of Management Practice Representation Capabilities of the Selected Models
Model
Types of Practices Considered
Strengths
Limitations
STEPL
Contour farming
Filter strips
Reduced-tillage systems
Streambank stabilization and fencing
Terracing
Forest road practices
Forest site preparation practices
Animal feedlot practices
Various urban and low-impact development
(LID) practices (e.g., detention basin,
infiltration practices, swale/buffer strips)
Easy to use; good for giving quick
and rough estimates
Includes most major types of
management practices
Simplified representation
of management practices
using long-term average
removal percentage does
not represent physical
processes
Developed based on
available literature
information that might not
be representative of all
conditions
GWLF
Agricultural area management practices
(e.g., contouring, terracing, no-till)
Easy to use
Long-term continuous simulation
Does not have structural
management practice
simulation capabilities
HSPF
Agricultural practices
Impoundment
Buffer
Can simulate both area and point
management practices
Provides long-term continuous
simulation
Land and management practice
simulation are linked
Weak representation of
structural point practices
Requires moderate to high
effort to set up
SWMM
Detention basin
Infiltration practices
Can simulate both area and point
management practices
Long-term continuous simulation
Physically based simulation of
structural management practices
Management practice simulation
is coupled with land simulation
Limited representation of
non-urban area practices
Requires moderate to high
effort to set up
P8-UCM
Detention basin
Infiltration practices
Swale/buffer strip
Manhole/splitter
Tailored for simulating urban
structural practices
Long-term continuous simulation
Process-based simulation for
structural practices
Management practice simulation
is coupled with land simulation,
which provides dynamic input to
drive practice simulation
Cannot simulate
nonstructural and area
practices
SWAT
Street cleaning
Tillage management
Fertilizer management
Pesticide management
Irrigation management
Grazing management
Impoundment
Filter strips
Strong capabilities for simulating
agricultural area practices
Ability to consider crop rotation
Long-term continuous simulation
Limited urban and
structural practice
simulation
AnnAGNPS
Feedlot management
Tillage management
Fertilizer management
Pesticide management
Irrigation management
Impoundment
Strong capabilities for simulating
agricultural area management
practices
Long-term continuous simulation
Limited urban and
structural practice
simulation
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Chapter 11: Evaluate Options and Select Final Management Strategies
Table 11-2. Summary of Management Practice Simulation Techniques of the Selected Models
Model
AnnAGNPS
STEPL
GWLF
HSPF
SWMM
P8-UCM
SWAT
Management Practice Evaluation Techniques
Sediment - RUSLE factors
Runoff curve number changes
Storage routing
Particle settling
Sediment-RUSLE factors
Runoff curve number changes
Simple percent reduction
Sediment- USLEfactors
Runoff curve number changes
User-specified removal rate
HSPF infiltration and accumulation factors
HSPF erosion factors
Storage routing
Particle settling
First-order decay
Infiltration
Second-order decay
Particle removal scale factor
Sediment-USLE (limited)
Infiltration - Green-Ampt method
Second-order decay
Particle removal scale factor
Sediment - MUSLE parameters
Infiltration - Curve number parameters
Storage routing
Particle settling
Flow routing
Redistribution of pollutants/nutrients in soil profile
related to tillage and biological activities
Water Quality Constituents
Sediment
Nutrients
Organic carbon
Sediment
Nutrients
Sediment
Nutrients
Sediment
Nutrients
Sediment
User-defined pollutants
Sediment
User-defined pollutants
Sediment
Nutrients
Pesticides
Note: MUSLE = Modified Universal Soil Loss Equation; RUSLE = Revised Universal Soil Loss Equation;
USLE = Universal Soil Loss Equation.
Urban models use representation of impoundments to represent a variety of point practices
that collect runoff and remove pollutants through infiltration and settling. Most of the urban
models use settling of sediment and decay as the primary removal mechanisms. SWMM can
emulate the major management practice processes—storage, infiltration, first-order decay,
and sediment settling. The recently added overland flow rerouting (land-to-land routing)
options can be used to mimic riparian buffers or infiltration areas.
Modifying a watershed modeling application using any of the reviewed models typically
includes the following additional steps:
1. Identify the specific or general practices to be included.
2. Identify the practices that were included in the existing conditions.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
3. Incorporate each practice as appropriate into the model.
4. Vary the adoption of the practices according to the management strategy.
5. Summarize the results.
Typical data needs for simulating management strategies using the selected models include
specific information for area, point, and linear management practices. For modeling pur-
poses, you'll need information on the existing and proposed management practices, includ-
ing location, drainage area for each practice, size, type, and key characteristics. Consider
carefully the current adoption of management practices in the watershed and what might
change in the future. Make sure that you include the current practices in areas where signifi-
cant restoration has already taken place.
If you're using the same model or approach from your watershed characterization, you might
need to add new land use categories. For instance, if you defined urban development in terms
of low intensity and high intensity, you might need to break out urban categories in greater
detail (e.g., low-density residential, high-density residential, commercial, industrial, institu-
tional). Some of your management practices might be suited for only certain land uses.
You might also need to add a layer of complexity to an existing approach. For instance, your
assessment might have been based on generic land use classes, but the evaluation of your
management practice is driven by land cover (impervious surface, lawn, forest). In this case,
you should provide direct measures of land cover or estimate proportions of land cover for
each land use class.
Table 11-3 lists typical information needs for each of the selected models and major prac-
tices. The specific information might vary depending on the level of detail of the modeling
tools used. For example, a detailed simulation of detention ponds in SWMM might require
detailed characteristics of the pond design (e.g., depth-volume relationship, depth-outflow
rate relationship), in addition to information on location and the drainage area contributing
to the pond.
In general, area-based practices require information on area affected and land use man-
agement practices (e.g., tillage, fertilizer/manure applications), including application date,
amount, and technique. Simulating point practices generally requires information on the
drainage area to each practice and the design specifics for each practice. Detention ponds
would generally require information on storage volume, shape, outlet structure, and reten-
tion time. Bioretention structures might require information on the infiltration rate, volume
of storage, soil media, and pollutant removal rate.
The performance of the model with management practices is typically tested for the exist-
ing conditions, where historic monitoring data are available. However, because management
practices are dispersed across the watershed and are adopted sporadically over time, the
available monitoring data might not provide a distinct response at the watershed scale. One
solution to this problem is to use smaller-scale pilot studies that simulate individual practices
or combinations of practices for more detailed small-scale testing. In addition, management
practice simulations can build on the available data on removal effectiveness. These results
are used to build the best estimates of the potential benefits of implementing management
practices. Ultimately, these forecasts can be tested or evaluated for accuracy only through
monitoring after implementation. Once implementation has begun, a post-audit can include
monitoring of management effectiveness and a reassessment of modeling results.
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Chapter 11: Evaluate Options and Select Final Management Strategies
Table 11-3. Data Needs for Management Strategy Modeling
Model
Data Needs for Management Practices
AnnAGNPS
Tillage area, type and date, crop rotation
Fertilizer application rate, method, and dates
Manure application rate, method, and dates
Strip cropping location and area
Impoundment size and discharge rate
Sediment settling rate
STEPL
Land use type and condition
Practice type
GWLF
Crop type and condition
Manure application rate and date
Runoff nutrient concentration
HSPF
Land use type and pollutant accumulation rates
Nutrient and pathogen application rates and dates
Impoundment size and discharge rates
Settling rate and pollutant decay rate
SWMM
Land use type and pollutant accumulation rates
Impoundment size, shape, and discharge rate
Settling rates and pollutant decay rates
Street cleaning frequency and areas affected
P8-UCM
Point practice drainage area
Impoundment size and discharge rate, pollutant decay rate
Bioretention size and infiltration rate
Street cleaning frequency and area affected
SWAT
Tillage area, type and date, crop rotation
Fertilizer and pesticide application rate, method, and dates
Manure application rate, method, and dates
Filter strip width
Grazing dates and vegetation biomass affected
Street sweeping pollutant removal rate, date, and curb length
Other Models Available for Analysis of
Management Practices
Although the selected models consider various management
practices, sometimes you might need an additional model or
models that specialize in a particular type of management
practice simulation. In some cases, models are used to per-
form a detailed small-scale (small representative watersheds
or fields) analysis of management practices. Some of the
specialized management practice models available today are
the Site Evaluation Tool (SET), the Prince George's County
[Maryland] BMP Module (PGC-BMP), Model for Urban
Stormwater Improvement Conceptualization (MUSIC), and
Integrated Design and Evaluation Assessment of Load-
ings (IDEAL). SET provides a simplified spreadsheet-based
approach for assessing management practices and is used
in several examples throughout this chapter. PGC-BMP,
Build on Existing Model or Perform
Separate Analysis
When evaluating modeling approaches for evaluating
management practices, consider the following
alternatives:
• Modify original loading model to incorporate man-
agement practices.
• Add supplemental analyses for specific management
practices.
• Perform alternative analyses for management prac-
tices using spreadsheet or other simplified tools.
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MUSIC, and IDEAL provide options for more detailed simulation of multiple management
practices. These systems are oriented to examining networks of one or more management
practices.
Many models, however, do not include ways to evaluate the benefits of buffer zones. The
models that specialize in the representation of buffer strips include the Vegetative Filter Strip
Model (VFSMOD) and Riparian Ecosystem Management Model (REMM). Options for reduc-
ing sediment loading, including forest and agricultural area management, can be evaluated
using Water Erosion Prediction Project (WEPP); the Erosion Productivity Impact Calculator
(EPIC) also provides evaluation of agricultural area management. WETLAND and Virginia
Field Scale Wetland Model (VAFSWM) provide the capability to evaluate wetlands. These
specialized models are summarized in table 11-4 and described in more detail below.
Table 11-4. Specialized Models for Analyzing Management Practices
Model
Types of Management Practices
Considered
Management Practice
Evaluation Techniques
Water Quality
Constituents
SET
Detention basin (e.g., wet pond, extended dry
detention, conventional dry detention)
Infiltration practices (e.g., infiltration trench,
dry well, porous pavement, sand filter)
Vegetative practices (e.g., wetland, swale,
buffer/filter strip, bioretention, green roof)
Wetland
Storage (e.g., cistern/rain barrels)
Simple percent reduction
Simple regression
Sediment
Nutrients (total
nitrogen and total
phosphorus)
GC-BMP
Detention basin
Infiltration practices (e.g., infiltration trench,
dry well, porous pavement)
Vegetative practices (e.g., wetland, swale,
filter strip, bioretention)
Infiltration: Holtan's equation
Storage routing
Weir/orifice flow
First-order decay
User-defined
pollutants
MUSIC
Detention basin
Infiltration practices
Vegetative practices
Infiltration
Settling
First-order decay (k-C* model)
User-defined
pollutants
IDEAL
Vegetative filter strip
Detention/retention basin
Infiltration
Storage routing
Settling
Trapping efficiency
Bacteria die-off rate
Sediment
Nutrients
Bacteria
VFSMOD
Vegetative filter strip
Infiltration: Green-Ampt equation
Kinematic wave
Sediment deposition and resuspension
Sediment
REMM
Riparian buffer strip
Infiltration: Green-Ampt equation
Sediment: USLE parameters
Storage routing
Nutrient cycling: Century Model
Nitrification: First-order Weir/orifice
flow
Sediment transport: Einstein and
Bagnold equations
Sediment
Nutrients
Organic matter
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Chapter 11: Evaluate Options and Select Final Management Strategies
Table 11-4. Specialized Models for Analyzing Management Practices (continued)
Model
WEPP
EPIC
WETLAND
VAFSWM
Types of Management Practices
Considered
• Impoundment
• Tillage management
• Irrigation management
• Grazing management
• Filter strips
• Forest roads
• Forest and rangeland fire management
• Tillage management
• Fertilizer management
• Irrigation management
• Feedlot management (lagoons)
• Detention basin
• Wetland
• Detention basin
• Wetland
Management Practice
Evaluation Techniques
• Infiltration: Green-Ampt Mein-Larson
equation
• Erosion: Steady-state sediment
continuity equation
• Kinematic wave
• Subsurface: Kinematic storage-
discharge
• Infiltration: Curve number equation or
rational formula
• Six variations of USLE equation for soil
erosion and sediment delivery
• Storage routing
• Nitrogen and phosphorus cycling
• Water budget
• Monod kinetics
• Nutrients cycling (carbon, nitrogen,
phosphorus)
• Constant vegetative growth rate
• Freundlich isotherms for phosphorus
sorption/desorption
• First-order mineralization
• Water budget
• Infiltration
• Particle settling
• Continuously stirred tank reactors in
series
• First-order kinetics (adsorption, plant
uptake)
Water Quality
Constituents
• Sediment
• Sediment
• Nutrients
• Pesticides
• Nitrogen
• Phosphorus
• Carbon
• Dissolved oxygen
• Sediment
• Bacteria
• User-defined
• Sediment
SET was developed to assess the impacts of development, including sediment and nutrient
loading, on a site scale. It provides a more robust environment for testing multiple manage-
ment practices and site configurations than simple export calculations, and it incorporates
several principles discussed previously in this section. The tool lets the user define pre- and
post-treated land use/land cover, allowing for multiple drainage areas and various combinations
of practices. An important benefit of SET is that the user can test management practices in
combination with each other, in the context of a site or small catchment. In addition, both
structural and nonstructural practices can be represented, offering a suite of options for
evaluation.
PGC-BMP is an example of a more detailed management practice simulation tool. It evalu-
ates the effect of management practices or combinations of management practices on flow
and pollutant loading. It uses simplified process-based algorithms to simulate management
practice control of modeled flow and water quality time series generated by watershed models
like HSPF. These simple algorithms include weir and orifice control structures, storm swale
characteristics, flow and pollutant transport, flow routing and networking, infiltration and
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
saturation, and a general loss/decay representation for pollutants. The tool offers the flex-
ibility to design retention-style or open-channel management practices; define flow routing
through a management practice or management practice network; simulate integrated man-
agement practices (IMPs), such as reduced or discontinued imperviousness through flow net-
working; and compare management practice controls against a defined benchmark, such as a
simulated pre-development condition. Because the underlying algorithms are based on physi-
cal processes, management practice effectiveness can be evaluated and estimated over a wide
range of storm conditions, management practice designs, and flow routing configurations.
MUSIC (Wong et al. 2001, Wong et al. 2005) was developed by the Cooperative Research
Center for Catchment Hydrology in Australia. It was developed to evaluate small- and large-
scale (0.01 km2 to 100 km2) urban stormwater systems using modeling time steps that range
from 6 minutes to 24 hours. MUSIC provides an interface to help set up complex stormwater
management scenarios. The interface also allows the user to view results using a range of
graphical and tabular formats. The stormwater control devices evaluated by MUSIC include
ponds, bioretention, infiltration buffer strips, sedimentation basins, pollutant traps, wet-
lands, and swales. The major techniques used to evaluate management practices are settling
in ponds and decay of pollutants (first-order). ^ For more information go to the MUSIC Web
site at www.toolkit.net.au/music.
IDEAL (Barfield et al. 2002) provides a spreadsheet-based technique for assessing the ben-
eficial effects of urban management practices on flow, sediment, nutrients, and bacteria. The
model predicts watershed runoff, concentrations, and loads based on your selection of vegeta-
tive filter strips, dry detention ponds, and wet detention ponds. Urban areas are defined as
pervious, impervious connected, and impervious unconnected areas. Flow and loads can be
directed to a pond that can be dry (no permanent pool) or wet (permanent pool). The model
then calculates the pollutant removal efficiencies of the practices using empirical equations.
The model predicts single storm values and converts them to average annual storm values
using a statistical process. IDEAL is designed to help managers estimate long-term manage-
ment practice pollutant removal efficiencies and is not designed for evaluating individual
storms.
VFSMOD (Munoz-Carpena and Parsons 2003) provides specialized modeling of field-scale
processes associated with filter strips or buffers. This model provides routing of storm runoff
from an adjacent field through a vegetative filter strip and calculates outflow, infiltration, and
sediment-trapping efficiency. The model is sensitive to the characteristics of the filter, includ-
ing vegetation roughness or density, slope, infiltration characteristics, and the incoming run-
off volume and sediment particle sizes. VFSMOD includes a series of modules—Green-Ampt
infiltration module, kinematic wave overland flow module, and sediment filtration module.
The model can also be used to describe transport at the edge of the field when flow and trans-
port are mainly in the form of sheet flow and the path represents average conditions across the
vegetative filter strip. VFSMOD uses a variable time step that helps to more accurately solve
the overland water flow equation. The model inputs are specified on a storm basis, and the
model summarizes all the information after each event to generate storm outputs.
^> For more information go to the VFSMOD Web site at http://carpena.ifas.ufl.edu/vfsmod.
REMM is used to simulate hydrology, nutrient dynamics, and plant growth for land areas
between the edges of fields and a waterbody. Output from REMM allows watershed planners
to develop buffer systems to help control nonpoint source pollution. USDA's Agricultural
Research Service (ARS) developed REMM at the Southeast Watershed Research Laboratory,
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Chapter 11: Evaluate Options and Select Final Management Strategies
Coastal Plain Experiment Station, in Tifton, Georgia. ^> For more information go to the
REMM Web site at www.cpes.peachnet.edu/remmwww.
WEPP (Flanagan and Nearing 1995) simulates water runoff, erosion, and sediment delivery
from fields or small watersheds. Management practices, including crop rotation, planting and
harvest date, tillage, compaction, stripcropping, row arrangement, terraces, field borders, and
windbreaks, can be simulated. WEPP has been applied to various land use and management
conditions (Liu et al. 1997, Tiscareno-Lopez et al. 1993). ^t> For more information go to the
Web site http://topsoil.nserl.purdue.edu/nserlweb/weppmain/wepp.html.
EPIC (Sharpley and Williams 1990) simulates the effect of management practices on edge-
of-field water quality and nitrate nitrogen and pesticide leaching to the bottom of the soil
profile. The model considers the effect of crop type, planting date, irrigation, drainage, rota-
tions, tillage, residue, commercial fertilizer, animal waste, and pesticides on surface water
and shallow ground water quality. EPIC has been used to evaluate various cropland manage-
ment practices (Edwards et al. 1994, Sugiharto et al. 1994).
WETLAND (Lee 1999, Lee et al. 2002) is a dynamic compartmental model used to simulate
hydrologic, water quality, and biological processes and to assist in the design and evalua-
tion of wetlands. WETLAND uses the continuously stirred tank reactor prototype, and it
is assumed that all incoming nutrients are completely mixed throughout the entire volume.
The model can simulate both free-water surface and subsurface-flow wetlands. WETLAND
is modular and includes hydrologic, nitrogen, carbon, dissolved oxygen, bacteria, sedi-
ment, vegetation, and phosphorus submodels. The strength of this model lies in the linked
kinetics for the water quality variables and the consideration of seasonal variation (variable
user-defined parameter by season/time period). The weaknesses include the completely
mixed assumption, which overlooks the effect of the system shape, and the need for extensive
kinetic parameters.
VAFSWM (Yu et al. 1998) is a field-scale model for quantifying the pollutant removal in
a wetland system. It includes a hydrologic subroutine to route flow through the treatment
system and precipitation, evapotranspiration, and exchange with subsurface ground water.
VAFSWM simulates settling, diffusion, adsorption to plants and substrate, and vegetative
uptake for a pollutant in dissolved and particulate forms in a two-segment (water column
and substrate), two-state (completely mixed and quiescent) reactor system by employing
first-order kinetics. The governing equations for the quiescent condition are identical to that
for the turbulent condition; however, far lower settling velocities are assumed to account for
the greater percentage of finer particles during the quiescent state. VAFSWM is a relatively
simple model that includes the most dominant processes within the wetland system. How-
ever, the user needs to provide and calibrate the requisite kinetics parameters.
Considerations in Modeling of Management Strategies
Whether you use simplified approaches, one of the selected models, or a combination of
supplementary tools, there are some common considerations in developing your approach to
model management practices. Summarized below are some of the key issues in the emerging
area of watershed management practice simulation. It's important to recognize that simulat-
ing management practices can make the modeling process much more complicated and data-
intensive, primarily because of scale and the amount of information needed. For example, in
a 1,000-acre watershed, hundreds of management practices could be used. Some management
practices, such as cropping practices that affect a percentage of corn fields, cover large areas.
Others, such as an individual pond that drains part of a watershed, are at specific locations.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Others, such as a riparian buffer zone on either side of several miles of a river, might stretch
across part of the watershed. For large watersheds, the information collection needs can
quickly become formidable. In addition, there are often issues related to privacy and protect-
ing information related to management practices installed on private lands. Collecting some
information on current management practice adoption, however, is very important for the
purposes of estimating benefits and evaluating needs for future management.
When setting up models, some approaches involve identifying and inputting information on
each management practice. This is appropriate for small watersheds and can provide a system
for evaluating the benefit of management actions and new initiatives. For large watersheds,
modelers use a variety of techniques to extrapolate or estimate the benefits of management.
One technique is a "nested" modeling approach, in which a
^^ more detailed model is applied to a smaller representative
"| j yj Regardless of the technique used, you should area. The results of the detailed modeling are then used to
V- \ record the rationale and justification for define the land use characteristics used for the large-scale
why the various changes were made. This will provide watershed model. For example, a detailed model might be
documentation for what was done and give you a basis used ^ evaluate n£w residential development techniques. The
for future updates or improvements in the methodology . r . , .. , ,, , ,,, ,
. , ... ., ,, results of the detailed small-scale assessment would be used
as more information becomes available. . ...... „
to create a new alternative new residential development
land use that would then be used in the watershed-wide
simulation. Sample or pilot studies can be used to test and evaluate a variety of management
techniques on a small scale before initiating a large, more complex and time-intensive applica-
tion. Sometimes watershed-wide or large-scale applications can be adjusted by using simple
percentage reductions at the subwatershed or land use level to reflect estimates of load reduc-
tion due to management practices.
Consider carefully what areas are really being treated by the management practices. The
drainage area or treatment area is used for calculations of loading and percent removal. Site
constraints usually prevent 100 percent treatment of a particular development. Assume,
for example, that a residential development will be treated by a stormwater wetland. Site
topography prevents 10 percent of the site from draining to the wetland. If you're using an
ordinance to require a set-aside of undisturbed open space, the untreated area increases
because the open space cannot be graded. In this example, complementary practices result in
a change in the evaluation of one of the practices.
Another consideration might be the drainage area for a buffer zone. The buffer is located
laterally along a channel and receives runoff from the drainage adjacent to the channel. In an
urban setting, however, runoff from storm events tends to accumulate into concentrated flow
within a short distance, probably no more than 150 feet (Schueler 1995). These concentrated
flows will likely bisect or cross a buffer without treatment. In the eastern United States, this
area of concentrated flows usually translates to less than 10 percent of a watershed for peren-
nial streams. The pollutant removal rates in the literature reflect runoff received as overland
flow. Removal performance is therefore limited by the proportion of a site draining to it.
11.3.3 Example Model Applications to Assess Management Strategies
Using the approaches discussed in the previous section, you will now quantify the effective-
ness of the proposed management practices in meeting watershed goals and objectives. This
section presents three examples that reflect various management objectives, such as address-
ing multiple indicators using a variety of practices, assessing sediment loading reductions,
and improving habitat.
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Chapter 11: Evaluate Options and Select Final Management Strategies
Quantify the Effectiveness of Multiple Management Practices
You can use a spreadsheet tool to assist with quantifying multiple practices. This example
demonstrates how a management strategy can be assessed for multiple indicators using a
simplified spreadsheet tool, SET. The example includes a suite of structural management
practices, nonstructural management practices and detailed site layout, and a need to define
multiple drainage areas and management practice combinations, including treatment trains
(figure 11-3).
Quantify the Effectiveness of Management Practices in Reducing Sediment
Loading
When reducing sediment loading is the management objective, rates of sediment generation
from channel enlargement can provide a tool for quantifying effectiveness. A monitoring
approach is a good strategy for assessing longer-term sediment loading and stream chan-
nel characteristics. Historical aerial photographs allow comparison of channel width and
location over discrete points in time, and translating changes to an average annual rate can
provide an estimate of the rate of sediment loading due to instream sources. A more direct
method of calculating erosion rates is to install and monitor bank pins in the reach of inter-
est. Stakes or pins can be driven into channel banks flush with the surface. The amount of
pin exposed due to erosion is the amount of change at the streambank erosion site between
your times of observation. (^> Note: This would have been done during the earlier data col-
lection phase; refer to chapter 6). Reductions in sediment loading can then be quantified by
comparing the estimated erosion rates with the rate for a stable reach (figure 11-4).
Quantify the Effectiveness of Management Practices in Improving Aquatic
Habitat
For stream reaches where instream habitat is degraded, habitat sampling can provide a gauge
for quantifying the effectiveness of a management action. A straightforward comparison of
conditions before and after implementation can numerically quantify the improvement in
aquatic habitat. State agencies typically have habitat evaluation forms that provide numeri-
cal rankings for observed conditions for various components of aquatic habitat. By using
such forms, some of the subjectivity of visual interpretations can be reduced, leading to
better evaluations of effectiveness (figure 11-5). Also, evaluation of community assemblages
(e.g., macroinvertebrates, fish, periphyton) is a critical measure of the overall effectiveness of
habitat protection management measures. *^> EPA's Rapid Bioassessment Protocols (RBPs)for Use
in Wadeable Streams and Rivers (Barbour et al. 1999) provides more information about evalu-
ating habitat (www.epa.gov/owow/monitoring/rbp/index.html). ^> Additional descriptions
of state protocols for assessing habitat quality can be found in EPA's Summary of Assessment
Programs and Biocriteria Development for States, Tribes, Territories, Interstate Commissions: Streams
and Wadeable Rivers at www.epa.gov/bioindicators. (^> See section 6.5.6 for more information
on assessing habitat quality.)
Modeling can be used where nutrient reductions associated with improving vegetation in
riparian areas are the management goal. Loading rates for constituents of concern within a
limited distance of riparian areas can be coupled with the removal efficiencies of the buffers
to evaluate how effective the management action is at reducing contaminant input to the
stream. However, the benefits of nutrient reduction associated with riparian revegetation are
typically limited, especially in locations where stormwater outfalls or drainage ditches result
in concentrated flow through the buffer.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
ecklenburg County, North Carolina, is home to rapidly growing Charlotte and other surrounding com-
munities. It has several watersheds listed as impaired in part due to the impacts of upland sedimenta-
tion. In addition, nutrient loading from much of the county affects several reservoirs on the Catawba River.
The following example explores how the SET might be used to evaluate various combinations of management
practices. The team located sites in the watershed that were publicly owned, were larger than 5 acres, and
could be adapted for retrofit of possible management practices. The selected 10-acre site contains a public
school and lends itself well to placement of a structural practice to capture most of the runoff. Three scenarios
are being tested—a stormwater pond, a combination of bioretention cells in series with an extended dry de-
tention basin, and the conversion of 2 acres of lawn into forest. Thirty percent of the site is impervious surface,
and the remainder is lawn or managed herbaceous. The site configuration for each scenario is as follows:
Stormwater Pond: The pond is at the lowest point on the site, and it captures all runoff except that from 1 acre
of lawn area.
Bioretention Cells and Extended Dry Detention Basin: Bioretention cells treat all the impervious area and
2.75 acres of the lawn area; all bioretention cells are configured to drain completely to the extended dry
detention basin. Another 3.25 acres of the site drain to the extended dry detention basin only. One acre of
lawn is not treated.
Forest Conversion: Two acres of lawn area are planted with saplings, fenced off, and no longer mowed.
Modeled conditions reflect brush/immature forest.
The amount of land in each of the three land cover types is summarized below for existing conditions and the
three proposed management alternatives:
Land Cover in Drainage Area (acres)
Treatment Lawn Impervious Forest
Existing Site
Untreated
7
3
Stormwater Pond Scenario
Stormwater pond
Untreated
6
1
3
Bioretention and Extended Dry Detention Scenario
Bioretention + dry detention
Dry detention only
Untreated
2.75
3.25
1
3
Forest Conversion Scenario
New land cover
5
3
2
The SET calculates annual loads from the site under each scenario for total suspended solids, total
phosphorus, and total nitrogen and shows the percent reduction in load between the existing site and each
scenario. The forest conversion scenario by itself performs poorly, but results suggest it might be a good
candidate as a complementary practice. The two structural management practice scenarios perform better
for pollutant reduction. Note that the bioretention/extended dry detention scenario performs better than the
stormwater pond for nutrient removal but worse for sediment removal.
tons/yr % red.
Existing Site
Stormwater Pond
Bioretention/Ext. Dry Detention
Forest Conversion
5.11
1.79
1.97
4.1
65%
61%
20%
11.5
6
4.6
10.6
48%
60%
8%
70
50
36
66
29%
49%
6%
Figure 11-3. Analysis of Multiple Management Practices Using Multiple Indicators
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Chapter 11: Evaluate Options and Select Final Management Strategies
Bank pins (e.g., rebar with painted ends) were installed in a streambank in October 1999 to determine
the rate of streambank erosion. In October 2002, three years after the pins were installed, the distance
that the pins extended from the streambank was recorded. The streambank profiles are illustrated in the
figure. Six bank pins were installed at approximately one-foot vertical intervals between the toe of the bank
and top of the bank.
This location along the stream is representative of nearly 400 feet of channel. If the streambank along this
reach were stabilized, what would be the effect on the average annual contribution to the total sediment
load, at current erosion rates?
Lateral Erosion of Right Stream Bank
-Oct. 1999
-Oct. 2002
1234567
Lateral Distance From End of Bottom Pin (ft)
The lengths that the six bank pins extended from the bank at the October 2002 measurement, from the
lowest pin to the highest, were 3.5, 4.0, 3.5, 3.0, 3.0, and 3.0 feet, respectively.
Average amount of erosion = (3.5 + 4 + 3.5 + 3 + 3 + 3) / 6 = 3.3 feet
Conversion to average annual rate = 3.3 feet / 3 years = 1.1 feet per year
Average annual volumetric loading (using length of 400 feet and average bank height of 5 feet)
= 1.1 ft/yr * 400 ft * 5 ft = 2,200 cubic feet per year
To convert to a weight-based sediment loading, a unit weight of the streambank soil is needed.
Assume a unit weight of 100 pounds per cubic foot for this streambank soil.
Average annual weight of sediment loading
= 2,200 cubic feet per year * 100 pounds per cubic foot = 220,000 pounds per year
= 110 tons per year.
Unimpacted, stable channels tend to have negligible rates of streambank erosion, so an eroding channel
that is stabilized can be assumed to have a negligible rate of erosion as well. Thus, stabilization efforts
along this reach of stream can be expected to reduce average annual sediment loading by about 110
tons per year. Caution should be exercised to determine the overall effects of any streambank stabilization
work, to ensure that erosive forces are not simply transferred to another—possibly unprotected—location
downstream.
Figure 11-4. Quantifying the Effectiveness of Stabilization Practices in Reducing Sediment Loads
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
In this section you were shown how to quantify the effectiveness of various management
practices to evaluate how well they achieve the management goal. Next, you'll compare
the estimated costs of various management actions to identify the most cost-effective
opportunities.
11.4 Identify Costs and Compare Benefits of Management
Practices
Now that you've quantified the effectiveness of various management practices in achieving
your goals and objectives, you should incorporate cost considerations into your evaluation.
Economics is always a consideration in the evaluation and formulation of management strat-
egies. Stakeholders might offer insights and concerns regarding the cost of various man-
agement options. This is why an ongoing dialogue with stakeholders is critical to selecting
management alternatives that they will support. Cost considerations can also help to identify
opportunities for collaboration or leveraging practices with existing programs.
A stream reach that is classified as impaired because of the condition of the instream aquatic habitat is being
considered for rehabilitation efforts. A few rehabilitation options are under consideration because of various
levels of effort and the associated costs. How can the effectiveness of the rehabilitation efforts be evaluated?
A physiographic region-specific instream aquatic habitat evaluation method can be used to characterize
habitat condition, and the numeric score linked to a functional level of support for the aquatic community. In
this example, the overall score can range from 0 (most impaired conditions) to 200 (capable of fully support-
ing a diverse and abundant aquatic community). The functional levels of support are provided in table A.
Table A. Habitat Quality and Use Classifications by Habitat Score
Habitat Assessment Score Habitat Quality Use Classification
170-200
145-169
95-44
50-94
0-9
Excellent
Good
Good-Fair
Fair
Poor
Supporting
Supporting
Partially Supporting
Not Supporting
Not Supporting
The field form used for the example reach includes 10 key habitat parameters with a numeric scale for each
parameter for assigning 0-20 points. An example breakdown of possible points for the degree of physical
channel alteration is shown in Table B. Under the current conditions, the example reach scores a total
of 90 points, corresponding to Fair habitat quality and A/of Supporting its use. Of the 90 points, 3 points
were assigned to the parameter for Physical Channel Alteration because of historical channelization (i.e.,
100 percent of the reach is disturbed, but no embankments are present).
For the proposed full-scale rehabilitation effort, a new natural channel will be excavated on the existing
floodplain. Because of the location of a sanitary sewer line along the right side of the floodplain, the sinuos-
ity of the new channel will be limited and channel bends will be no tighter than 45 degrees. Therefore, if the
full-scale restoration effort is pursued, the scoring for the Physical Channel Alteration is expected to increase
from 3 points to 18 points.
Figure 11-5. Quantifying the Effectiveness of Management Practices in Improving Aquatic Habitat
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Chapter 11: Evaluate Options and Select Final Management Strategies
To fully evaluate the
effectiveness of the full-
scale rehabilitation option,
the anticipated conditions
will need to be compared
with the existing scores.
Although the scores for
many parameters will be
expected to increase,
decreases are possible
and need to be realistically
evaluated. (For example, if
the existing canopy cover
is dense and scores high,
but the restoration effort
would result in clearing and
revegetation that would not
provide dense cover until
the vegetation had time to
grow, the result would be a
lower score.) In this manner,
the effectiveness of the
various rehabilitation efforts
can be quantified.
Table B. Scoring Thresholds for Physical Channel Alteration
Stream follows a normal and natural meandering pattern; alteration is abs
No evidence of disturbance; bend angles greaterthan 60 degrees
No evidence of disturbance; bend angles between 40 and 60 degrees
No evidence of disturbance; bend angles less than 40 degrees
Some stream alteration present but NO evidence of recent alteration activ
Bridge abutments present but older than 20 years; no other disturbances
10% of reach or less has channel disturbance other than bridge
20% of reach has channel disturbance
30% of reach has channel disturbance
40% of reach has channel disturbance
Somewhat altered; 40%-80% of reach altered; alterations might be within
40% of reach has channel disturbance
50% of reach has channel disturbance
60% of reach has channel disturbance
70% of reach has channel disturbance
80% of reach has channel disturbance
More than 80% of reach altered; instream habitat highly affected
90% of reach has channel disturbance
100% of reach disturbed; straightened with no artificial embankments
100% of reach disturbed; straightened with artificial embankments
100% of reach disturbed; straightened with natural and artificial embankments
1 00% of reach disturbed; concrete or gabion lining
ent
20
18
16
ties
15
14
13
12
11
past 20 years
10
9
8
7
6
5
3
2
1
0
Figure 11-5. Quantifying the Effectiveness of Management Practices in Improving Aquatic Habitat (continued)
To the extent possible, a cost estimate should consider all future costs of the management
strategy, including design and engineering, construction, labor, and operation and mainte-
nance. The following sections explain what to consider when estimating the cost of manage-
ment options and how to conduct a cost/benefit analysis. Most of the guidelines center on
structural management practices, but the discussions of labor, inflation, discounting, and
information sources are applicable to nonstructural management options as well.
11.4.1 Identify Cost Considerations
Construction Costs
The construction costs of various management practices can be estimated in one of two
ways: (1) with a total per unit cost or (2) with a detailed breakdown of individual cost com-
ponents. Total per unit costs are more appropriate when you're considering a large number
of management practice sites or management practices that would be applied throughout the
watershed but at no specific location. If you need to estimate the size of a specific practice,
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
use published design guidelines or consult with a stormwater engineer to ensure the accuracy
of the cost estimate.
If you're comparing a few specific management practices, using a detailed cost estimate
would be more accurate than using a total per unit cost estimate. For example, if you were
comparing the use of a stormwater wetland with the use of a wet pond for a single site, you
should consider how the costs of these management practices would differ on that particular
site. You would estimate the cost of each construction component (e.g., excavation, grading,
outlet structure) and then sum the component costs to arrive at a total cost estimate. Use
guidance from a stormwater engineer when determining preliminary quantities and costs of
individual management practice components.
Whether you're looking for total per unit costs or component costs, look for local cost esti-
mates that use the same design guidelines that your project will require. It's also impor-
tant to use costs that represent soil, climatic, and geographic conditions similar to those
of your future project. Check several sources to determine whether cost estimates vary
geographically.
The accuracy of cost estimates depends on how unit costs are used to translate management
practice design quantities into management practice costs. Although your management prac-
tice might be appropriately sized, you can describe the management practice size in many
different ways. For example, a detention pond has at least three volumes: a permanent pool,
a detention volume, and a volume up to the emergency spillway. You should determine to
which measurements the unit cost refers. Table 11-5 shows example formats of management
practice unit costs and the information you need before using the unit costs.
Table 11-5. Considerations for Applying Management Practice Unit Cost Measures
Example
Management
Practice
Example
Cost Units
Issues to Consider Before Using Unit Costs
Grass swale
$ per linear
foot
Find out the width of swale assumed in the unit cost, and make sure the
width is appropriate for your project. You will overestimate the cost if you
use a unit cost based on a swale that is wider than your proposed swale.
Water quality swale
(dry swale)
$ per square
foot
Find out whether the width should be measured across the filter media
or across the entire swale. You will overestimate the cost if you measure
across the entire swale and the unit cost refers to only the filter media
width.
Wet detention pond
$ per cubic
foot
Determine the height at which to measure the pond volume. If the cost
estimate assumes the volume up to the emergency spillway, using the
volume of the permanent pool would underestimate the pond cost.
Bioretention
$per
impervious
acre treated
This cost estimate format might not be appropriate for all uses. If your
bioretention cell is treating a large amount of pervious area (e.g., grass
lawn), this unit cost would not accurately represent the size of the
bioretention cell needed.
Stormwater wetland
$ per acre of
drainage area
treated
This unit cost would not account for how drainage areas vary in the
amount of impervious surface. Before using this type of estimate, you
should make sure that it assumes a level of imperviousness similar to
that of your stormwater wetland's drainage area.
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Chapter 11: Evaluate Options and Select Final Management Strategies
Management practice retrofit costs can differ from the costs of management practices used in
new development. Check whether the cost information refers to new construction or retrofit
sites. If you're estimating costs for a retrofit site and can't find information on retrofit costs,
consider how your project will differ from new construction. A retrofit on an agricultural site
is likely to be similar in cost to a management practice on a new construction site, whereas
a management practice retrofit on a highly developed site could have a much higher cost
than new construction. For highly developed sites, you should estimate costs for demolition,
regrading, and other components in addition to new construction management practice costs.
Overall, construction cost information can
be an important deciding factor for target-
ing management practices in a watershed.
Figure 11-6 shows a comparison of the
costs of different treatment trains for a
mixed-use development. Each treatment
train achieves a 70 percent total phospho-
rus removal objective, and the cost analy-
sis shows that treating runoff with water
quality swales leading to a wet detention
pond is the least expensive option for this
development. Although this treatment train
is the least expensive for one development,
a different combination of management
practices might be more economical for a
different type of development or treatment
objective.
I EDO D Sand Filter I Wet Pond • Non-Ultra Urban Bioretention D Water Quality Swale
EDO + Sandfilter +
Bioretention
Figure 11-6. Cost Comparison of Alternative Treatment Trains to
Meet Specific Water Quality and Detention Performance Standards
Labor and Nonstructural Management Options
When estimating construction costs, check that the cost information includes labor. Most
total construction cost estimates include labor. If you're estimating costs for a nonstruc-
tural management practice like training programs or site-specific nutrient management
plans, most of the costs will be labor. Request cost information from local agencies that have
recently developed a similar policy or plan. Also consider how project costs vary by the site
acreage or type of watershed being managed. If no local information is available, you can
check Internet references that provide cost estimates for nonstructural management prac-
tices. For example, the EPA Web site provides cost information for agricultural management
practices, including a number of nonstructural management options: ^> www.epa.gov/owow/
nps/agmm. ^ Information is also available for management practices for other source types,
including forestry (www.epa.gov/owow/nps/forestrymgmt/), marinas and recreational boat-
ing (www.epa.gov/owow/nps/mmsp/index.html), and urban areas (www.epa.gov/owow/nps/
urbanmm/index.html).
Design and Engineering Costs
When researching construction cost estimates for various management practices, determine
whether the cost estimates include design and engineering. Typical design and engineer-
ing costs represent an additional 25 to 30 percent of the base construction cost. Use a local
estimate if available; otherwise, consult a national management practice reference for the
approximate design and engineering costs of your specific management practices. ^ See
appendix A for example management practice reference guides.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
HP
Operation and Maintenance Costs
Operation and maintenance costs vary by the type of man-
agement practice and local requirements. Use local cost
estimates when available; otherwise, use the most recent esti-
mates from national sources. Reference sources might report
operation and maintenance costs as average annual costs or
as a percentage of the base management practice construc-
tion cost. For example, Post-Construction Storm Water Man-
agement in New Development & Redevelopment (USEPA 2003b)
estimates that the annual routine maintenance cost for a
wet detention pond ranges from 3 to 5 percent of the pond's
construction cost. Maintenance for a $150,000 wet detention
pond would therefore cost about $4,500 to $7,500 per year.
Inflation Adjustment
Prices of goods and services increase every year because of
inflation. You should adjust cost estimates for inflation if
they are reported before the first year of your project. You
need to adjust only historical prices; maintenance and other
costs after the first project year do not have to be adjusted
because your estimate should be in the perspective of the
first project year, or in "real" terms. The U.S. inflation rate
averages about 3 percent per year. Inflation rates for specific
products are available but are probably not necessary for
preliminary cost estimates.
To adjust historical costs, increase the cost by the inflation rate for every year that the his-
torical cost differs from the first project year. For example, a cost of about $4 per cubic foot
for an infiltration trench in 1997 would be converted to a cost of about $5 per cubic foot in
2005 according to the following calculation:
2005 cost = $4.00 x (1 + 0.03) (2005-1997) = $5.07
Discounting
The costs that occur after the first project year should be estimated in "present value" terms.
The present value is the current value of the projected stream of costs throughout a project's
lifetime. The process of calculating present value is known as discounting. Discounting
is important because the money allocated to future costs could earn an average return in
another investment. For example, assume that the first project year is 2005 and your proj-
ect will require maintenance after construction. If you can invest the project's maintenance
funds in another project or fund and earn at a return of r, consuming one unit of mainte-
nance in 2006 would have a present value of l/(l+r) in 2005. One unit consumed in 2007 has
a present value of l/(l+r)2 in 2005, and so on. The r at which future returns are discounted
to the present value is called the discount rate (Helfert 1997; Sugden and Williams 1981).
Discounting simply reflects the time preference for consumption. Although not synonymous
with the interest rate, for governments it often reflects the rate at which funds can be bor-
rowed and loaned. Discounting is especially important if you're comparing projects with
different maintenance costs and frequencies.
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Chapter 11: Evaluate Options and Select Final Management Strategies
Project costs should be discounted if they are incurred after the first project year. Costs are
discounted according to the following formula:
PV = CI (1+r) (Yc - y°)
where PV = present value, C = cost, r = discount rate, Yc = year of cost, and Y° = first
of cost.
year
After discounting, costs for all years should be summed to calculate the total present value
cost.
The U.S. Office of Management and Budget (OMB) publishes the discount rates required
for use in federal project evaluations. OMB currently requires a 7 percent discount rate for
projects evaluated in real terms (USOMB 2005). A discount rate of 7 percent would be appro-
priate to use with a government-funded project; a higher discount rate should be used if the
project is privately funded.
Table 11-6 gives a hypothetical example of discounting costs for two management practices,
in which MP 1 is $2,000 more expensive to construct than MP 2. Over 20 years, the present
value of maintenance costs for MP 1 is $2,000 less expensive than that of MP 2. When con-
struction and maintenance are considered together, MP 1 is about $100 less expensive than
MP 2. Although MP 1 is the more expensive management practice to construct, the present
value calculation shows that it is the less expensive management practice when construction
and maintenance are considered.
Table 11-6. Example of Discounting Management Practice Cost for Comparison Purposes
Management
Practice
MP1
MP2
Construction
Cost
$12,000
$10,000
Annual
Maintenance
$300
$500
Present Value of Maintenance
Costs over 20 Years, r = 7%
$3,178
$5,297
Total Present
Value of Costs
$15,178
$15,297
11.4.2 Compare Costs and Effectiveness of Management Practices
Choosing the most beneficial management practices for
your watershed involves comparing the costs and pollu-
tion reductions of the available options. At a minimum,
you should compare the total costs and effectiveness of the
management practices. First, compare the total benefits and
determine which management practices achieve the goals of
your project. Then, compare the total costs of the manage-
ment practices that achieve your goals and determine which
ones are the least expensive. If you wish to prioritize fur-
ther, calculate a cost-effectiveness ratio to determine which
management practice is the most cost-effective for achieving
your goals.
Buffer$:
A Conservation Buffer Economic Tool
Buffer$, a Microsoft Excel-based tool, can be used to
analyze the cost benefits of buffers compared to those
of traditional crops. ^ To download the tool, visit
www.unl.edu/nac/conservation (right click on
the picture and click "save target as"; the file size is
6.0 Mb, so it might take a while to download).
^ To request a CD with the tool, contact Gary Bentrup
at gbentrup@fs.fed.us
The following example illustrates how a cost-effectiveness ratio can be calculated. Assume
that you're proposing a treatment train of bioretention cells draining to an extended dry
detention pond for a residential development. The total present value cost of the manage-
ment practice construction, operation, and maintenance is about $200,000. The estimated
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
annual reduction in total phosphorus load is 7 pounds per year. Assuming a project lifetime
of 20 years, the total reduction in phosphorus load would be 7 Ib x 20, or 140 Ib. The cost per
pound of phosphorus removed is $200,000 divided by 140, or about $1,430. In this example,
the pounds of phosphorus removed are not discounted over the project lifetime. If you are
comparing practices with differing benefits over time, you might consider discounting pollu-
tion load reduction and other nonmonetary benefits as prescribed by OMB (USOMB 2005).
You can determine which options are the most cost-effective by comparing the cost- effec-
tiveness ratios of your management options. The management option with the lowest cost-
effectiveness ratio provides the most benefit for the least dollars spent. However, you also
need to evaluate whether the most cost-effective options are adequate to meet your manage-
ment goals. Sometimes you need to select less cost-effective options because they represent
the only way to achieve the required load reductions or other specific goals. For example,
in a watershed targeted for sediment reduction that has significant sediment contribution
from eroding banks, more expensive structural stream restoration might be the only way to
achieve the necessary reduction; more cost-effective upland management practices might not
be able to achieve targets by themselves.
The examples above assume that you're comparing management options for one type of
development or condition. Comparing costs and benefits is also useful when targeting man-
agement practices across different types of land uses. Figure 11-7 compares the costs and
pollutant loadings across 14 types of developments; the percentage on the horizontal axis
refers to the average percentage imperviousness of the developments. A simplified spread-
sheet, SET, was used in this example to estimate the pollutant loading with and without
management practices, and each management practice treatment train achieved 70 per-
cent phosphorus removal. The figure shows that developments with a higher percentage of
impervious area can cost substantially more to treat than developments with lower levels of
imperviousness.
$80,000
(70,000
$60,000
$30,000
$10,000
Construction, Design, and Engineering ($/acre)
SET Loading With BMPs (Ib/acre/year)
SET Loading Without BMPs (Ib/acre/year)
90% 85%
UHMX
Percent Imperviousness
Figure 11-7. Example Comparing Construction Cost and Pollutant Loading for
Different Urban Land Use Types with Decreasing Levels of Imperviousness
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Chapter 11: Evaluate Options and Select Final Management Strategies
Figure 11-8 compares the management practice construction cost per acre with the cost per
pound of total phosphorus removed. At below 70 percent imperviousness, the cost-effective-
ness ratio is fairly constant for the developments, but above that level the cost-effectiveness
ratio increases substantially. In this situation, you should consider how much impact the
developments with high imperviousness have on the water quality of your watershed. You
might find that these land uses are a small percentage of your watershed and that a less-
expensive treatment option for these land uses could achieve your watershed-wide water
quality objectives. When certain land uses are found to be the least cost-effective, stakehold-
ers can be consulted to determine the importance of treating all land uses versus saving on
costs. Beyond cost-effectiveness, stakeholders might be concerned about localized impacts on
water quality from highly impervious developments.
$80,000 -
$70,000
$60,000
| $50,000
8.
8 $40,000
01 $30,000
$20,000 -
•-.
T
\
-•-Construction, Design, and Engineering ($/acre)
-•-Cost per TP Load Removed ($/lb)
\
L__^
*~"\ V'"^— v
90%
UHMX
85%
COMMUH
•—
72%
0-H
•s
70%
70%
HMX
66%
IND
60%
MX
-•--
60%
MFR
0---
45%
OOhM-L
* —
41%
HDR
-•>*.
40%
NS
**—
30%
OH.
-•--.
30%
M3R
19%
MLDR
Cost per Pound TP Removed
Figure 11-8. Example Showing Increased Cost per Pound of Total Phosphorus
Removed for Urban Land Uses with Highest Levels of Imperviousness
When used in combination with an assessment of the project objectives and stakeholder
concerns, a comparison of costs and benefits can be useful in management decisionmaking.
The examples and strategies outlined above do not cover all the possible watershed conditions
and issues to be considered. With each project, look at the situation critically and ensure that
you've covered the most important factors before making a decision on management practices.
11.5 Select Final Management Strategies
The process of narrowing down possible management options involves ultimately matching
the best candidate practices to your needs.
When you screened management options (^> chapter 10), you used worksheets to summarize
promising alternatives, noting potential pollutant removal efficiencies, identifying con-
straints in using the practice, and so forth. In this chapter, you've refined those worksheets,
quantified estimates of the total potential pollutant removal, and identified which combina-
tions of management practices meet your load reduction or hydrology targets. You've also
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
estimated costs for these different watershed
management strategies (or different combi-
nations of management practices). Now it's
time to pull together information from the
environmental and cost analysis and select
the preferred strategies.
11.5.1 Decision Process
In general, you'll work through a process
using established decision criteria to identify
the management strategies that are most
likely to succeed. The process is likely to fol-
low some variation of the following steps:
• Develop decision criteria.
• Summarize evaluation results and
present to stakeholders.
• Obtain feedback from stakeholders.
• Rank preferences and select
management strategy(ies).
Develop Decision Criteria
In such watershed planning efforts, you should address not only the state or local water qual-
ity or hydrology targets but also such issues as
• Fiscal impact on local governments
• Cost to the development community
• Benefits that will be realized
• Overall regulatory feasibility of the strategy
• Compatibility with other local planning objectives and policies
• Overall political feasibility
Pulling together the "big picture" for watersheds is critical for those trying to select the pre-
ferred management strategies, but it can also be challenging. Most likely you'll select indica-
tors and objectives that include both quantifiable indicators (Does it meet the target? How
much will it cost the development community?) and more subjective indicators (Is it compat-
ible with local policies? Is it politically feasible?).
Summarize Evaluation Results and Present to Stakeholders
Before meeting with the stakeholder committee, develop a summary chart that can convey
the big-picture evaluation, noting which indicators you are able to quantify versus those
which must be evaluated subjectively. Fill in the chart for the indicators you are able to quan-
tify and evaluate (in absolute numbers or in relative percentages). For more subjective indica-
tors, you can use a "straw man" or "blank slate" approach with the committee. The straw
man approach involves conducting a preliminary evaluation (e.g., evaluating how compatible
the differing strategies are with local planning policies) and presenting your evaluation to
the committee for review, discussion, and final evaluation. The blank slate approach allows
the committee to jointly or independently evaluate the criteria and develop a response. This
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Chapter 11: Evaluate Options and Select Final Management Strategies
evaluation could be conducted through a survey of committee members, deliberations of the
committee, or both.
Obtain Feedback from Stakeholders
If stakeholders have concerns about a particular management strategy, determine whether
there is information that is already available or could be readily obtained that would address
their concerns. For example, if the stakeholders are not familiar with a
particular management practice and are therefore hesitant to implement it,
consider bringing in an extension agent familiar with the practice who can
further educate concerned stakeholders about the practice and answer ques-
tions credibly. Perhaps increasing familiarity and confidence is all that will
be required for the stakeholders to support the practice.
Stakeholders
**> Refer to appendix A for
additional resources
concerning stakeholders.
Where cost feasibility is an issue, present information regarding cost-sharing sources or
other funding options that might make implementation feasible. Consider accessing techni-
cal support from organizations like Cooperative Extension, NRCS, or other resource agencies
or nonprofit organizations that can offer technical assistance or cost-sharing dollars. Always
keep the end in view, reminding those around the table of the loading that you are trying to
achieve and the load reduction needed. Then focus on the solutions—practices that landown-
ers are willing to implement and can implement on their own or with assistance of agencies,
nonprofit groups, or other stakeholders. The more that you ensure that initial questions and
concerns are adequately addressed, the more buy-in you're likely to have when the time for
implementation arrives.
Rank Preferences and Select Final Strategies
The process for selecting preferred strategies can be very straightforward if you have a small
watershed with a limited number of landowners and a limited number of problems or issues
to resolve. Cost-effective choices might be quite clear, and there might not be many other
issues to work through.
In a small watershed or a watershed with a
limited number of landowners and param-
eters of concern, your management practice
worksheets can be used as the basis for evalu-
ating management strategies and making a
final selection. The task might be as simple as
sharing the information regarding the effec-
tiveness and cost of the different practices
with the landowners, explaining how practices
could be combined in complementary ways
to address the problem, and then discussing
which management practices they would be
willing and able to implement. Discussions
about feasible options also need to address a rea-
sonable timetable for implementing the options.
A more complex process is often needed when
managing larger watersheds or small watersheds
with multiple issues and a broader set of stakehold-
ers. In such cases it can be helpful to develop formal
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
criteria and methods for ranking stakeholder preferences to support final decisions on selec-
tion. These formal methods can include weighting some criteria as more important than oth-
ers to best represent stakeholder preferences. In addition, it might not always be necessary
for stakeholders to agree on exactly the same practices; if different stakeholders are willing
to implement separate practices that still achieve the objectives, there is no reason to force a
single ranking or preference.
The degree to which you feel the need to formally rank the candidate strategies will depend
on the circumstances. ^> You can use a ranking process similar to the one you conducted in
section 10.3.8. The ranking factors and assumptions will change, however.
In reality, there are many more ways you can use to rank and select management practices
than can possibly be covered here. The following section provides two examples in the range
of options for selecting the preferred strategies.
11.5.2 Example Procedures for Selecting Final Management Strategies
The following two examples are provided to help illustrate the range of methods for select-
ing the preferred strategies. The first example represents a simple case in which a less
formal process was used to select preferred practices; the second example includes a more
formal process in which evaluation criteria and objectives were established and results were
weighted before making final selections.
Muddy Creek Selects Final Strategies to Implement TMDL
Watershed planners in the Muddy Creek watershed went through a ranking process to select
management practices to implement their portion of the Virgin River Total Maximum Daily
Load (TMDL). Table 11-7 lists the management techniques evaluated. Note that each is cat-
egorized by the level of engineering intensity. A separate worksheet was developed for each
technique during the screening and then refined during the evaluation process. Table 11-8
lists the final selection of management practices that the landowners plan to use to meet the
load reduction requirement, along with the estimated load reduction of the practices and a
timeline for implementation.
Table 11-7. Selected Management Techniques for the Muddy Creek Subwatershed, Virgin River
TMDL Implementation
Level A
Management Changes
Level B
Management Practices and
Altruistic Techniques
Level C
Mild Engineering
Level D
Moderate Engineering
Level E
Intensive Engineering
1
2
3
1
2
3
1
2
3
1
2
3
1
2
Rotational grazing
Seasonal grazing
No-till farming techniques
Installation of cross-fencing
Use of sprinkler irrigation system
Decreased water usage
Stream grade stabilization structures
Revegetation of streambanks
Replacement of open ditches and diversions with piped systems
Installation of stream barbs
Installation of weirs
Stabilization of road cuts
Slope stabilization
Change in meander and profile of stream sections
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Chapter 11: Evaluate Options and Select Final Management Strategies
Table 11-8. Summary of Load Reduction Requirements and Expected Removal Efficiencies for
Selected Management Practices for Muddy Creek Subwatershed
TMDL Target Values
Overall load allocation
Current measured load
Overall required load
reduction
Total Dissolved
Solids (Ib/day)
12,320
20,550
8,230
Implementation
Technique(s)
A1
B2
B3
C1
C2
C3
D2
E1
Estimated
Percent Load
Reduction (%)
4
8
8
10
15
15
20
20
Timeline for
Implementation
Reductions (mo)
4-12
6-12
6-12
9-24
36-120
12-36
24-48
24-48
Town of Gary, North Carolina, Selects Final Strategies to Manage
Stormwater Runoff
The Town of Gary used a summary chart to evaluate different options and criteria for man-
aging future stormwater runoff from its Town Center area. The town had adopted a redevel-
opment plan that encouraged urban redevelopment along a planned rail corridor in the Town
Center and the use of smart growth principles. However, the
planned redevelopment needed to meet a number of storm-
water management regulations, including an existing nutri-
ent TMDL and drinking water supply protection regulations
and pending National Pollutant Discharge Elimination
System (NPDES) Phase II stormwater requirements.
At the beginning of the planning process, the stakeholder
committee was instrumental in developing and adopting the
evaluation criteria in the box at right for different manage-
ment options. Easily understood consumer report symbols
were then used to convey how well each option met the
evaluation criteria (figure 11-9). The options being compared
by Gary included onsite stormwater water quality and vol-
ume/peak detention controls, an off-site shared facility (e.g.,
constructed wetlands) for local control, regional controls to
meet volume and water quality performance standards, and
combinations, including a buy-down allowance for achieving
nitrogen reductions.
When presenting and discussing the results of the evaluation
of management options, the stakeholder committee priori-
tized two of the criteria:
Criteria Used to Evaluate Management
Options
State Regulations
• Meets state Nutrient-Sensitive Water TMDL and
Phase II requirements
• More protective than state regulations
• Comparable to existing Swift Creek watershed
drinking water supply protection rules
• Regulatory feasibility
Town Plans and Policies
• Supports Town Center Area Plan and preferred
growth areas
• Provides adequate infrastructure
• Preserves and protects natural resources
• Encourages attractive development
Fiscal Impact
• Cost-effectiveness in meeting targets
Overall Feasibility
1. Meets state Nutrient-Sensitive Water TMDL and
Phase II requirements
2. Supports the Town Center Area Plan and preferred growth areas
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Although the other criteria were important in the evaluation, these two became the most
important in selecting the preferred management option. Therefore, option 1 was selected as
the final management strategy (figure 11-9).
Now that you've selected the recommended management strategy that will meet the objec-
tives of your program, the more detailed implementation planning can begin. In the next
chapter implementation plans, schedules, and funding are discussed in more detail.
Meets State
TMDL
More Restrictive than State TMDL
Criteria
Option 1
On-site/
Shared
Option 2
On-site/
Shared
Option 3
Regional
Volume,
Option 4
Regional
Volume,
TSS,
Option 5
On-site/
Shared
Water
Quality
Control;
Regional
TSS, TN N Buy-Down Volume
State Regulations
Meets State Nutrient-Sensitive Water and
Phase II Requirements — High Priority
More Protective than State Regulations
Swift Creek Watershed: Comparable to
Existing Swift Creek Land Management Plan
Regulatory Feasibility
•
—
•
•
•
•
•
•
»
—
•
»
»
—
•
»
»
»
•
»
Town Plans and Policies
Supports Town Center Area Plan (Urban
Form/ Preferred Growth Areas)— High
Priority
Provides Adequate Infrastructure
Preserves/Protects Natural Resources
Encourages Attractive Development
•
•
•
•
—
•
•
•
»
•
»
»
»
•
»
»
—
•
•
•
Fiscal Impact
Cost-Effectiveness of Mitigation Target
Overall Feasibility (Counts •/!/ — )
Percent that Option Meets Criteria
Meets Both High-Priority Criteria
•
8/0/1
90%
Yes
•
7/1/1
85%
No
»
2/6/1
55%
No
»
2/6/1
55%
No
•
5/3/1
72%
No
Meets Criteria
Partially Meets Criteria — Does Not Meet Criteria
Figure 11-9. Evaluation of Stormwater Management Options for the Town of Gary
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Handbook Road Map
1 Introduction
2 Overview of Watershed Planning Process
3 Build Partnerships
4 Define Scope of Watershed Planning Effort
5 Gather Existing Data and Create an Inventory
6 Identify Data Gaps and Collect Additional Data If Needed
7 Analyze Data to Characterize the Watershed and Pollutant Sources
8 Estimate Pollutant Loads
9 Set Goals and Identify Load Reductions
10 Identify Possible Management Strategies
11 Evaluate Options and Select Final Management Strategies
-•12 Design Implementation Program and Assemble Watershed Plan
13 Implement Watershed Plan and Measure Progress
12. Design Implementation Program and
Assemble Watershed Plan
Information/education component
Schedule for implementation
Milestones
Criteria to measure progress
Monitoring component
Financial and technical resources needed
Evaluation framework
Assembling watershed plan
Read this chapter if...
• You want to integrate information and education components
into your watershed plan
• You want to know how to develop the implementation
component of your watershed plan
• You want to develop a schedule, milestones, criteria for
measuring progress, and a monitoring plan
• You would like information on finding sources to help you
implement your plan
• You want to know how to set up an evaluation framework for
your watershed plan
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
12.1 What Do I Need to Design My Implementation Program?
Now that you've identified watershed management measures that when implemented should
meet your objectives, it's time to develop the remaining elements of your implementation
program. Designing the implementation program generates several of the basic elements
needed for effective watershed plans:
• An information/education (I/E) component to support public participation and build
management capacity related to adopted management measures
• A schedule for implementing management measures
• Interim milestones to determine whether management measures are being
implemented
• Criteria by which to measure progress toward reducing pollutant loads and meeting
watershed goals
• A monitoring component to evaluate the effectiveness of implementation efforts
• An estimate of the technical and financial resources and authorities needed to imple-
ment the plan
• An evaluation framework
12.2 Develop Information/Education Component
Every watershed plan should include an I/E component that involves the watershed commu-
nity. Because many water quality problems result from individual actions and the solutions
are often voluntary practices, effective public involvement and participation promote the
adoption of management practices, help to ensure the sustainability of the watershed man-
agement plan, and perhaps most important, encourage changes in behavior that will help to
achieve your overall watershed goals.
V This phase of the watershed planning process should result in element e of the nine ele-
ments for awarding section 319 grants. Element e is "An information and education component
used to enhance public understanding of the project and encourage their early and continued participa-
tion in selecting, designing, and implementing the nonpoint source management measures that will be
implemented."
12.2.1 Integrate I/E Activities into the Overall Watershed Implementation
Program
Where to Go for More Help on I/E Activities
For more information on planning and implementing outreach campaigns,
refer to EPA's Getting in Step: A Guide for Conducting Watershed Outreach
Campaigns. This comprehensive guide will walk you through the six critical
steps of outreach—defining your goals and objectives, identifying your
target audience, developing appropriate messages, selecting materials and
activities, distributing the messages, and conducting evaluation at each
step of the way. ^ You can download the guide at www.epa.gov/owow/
watershed/outreach/documents/getnstep.pdf or order it by calling
1-800-490-9198. Ask for publication number EPA 841-B-03-002.
The objectives of the public outreach
program should directly support your
watershed management goals and imple-
mentation of the watershed management
plan. For example, the overall goal for your
watershed plan might be to restore water
quality to Brooker Creek, which has been
badly degraded due to nutrient inputs from
fertilizers. To help meet that goal, you might
develop a public participation program that
will "make residents aware of proper fertil-
iser use to reduce application rates." The I/E
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
components identified should include measurable objectives and indicators for measuring
progress. The objectives will also be shaped by the size of the community and the resources
available to support efforts.
You can develop a separate public outreach component in your watershed plan that provides
the foundation of your I/E activities, but be sure to include the specific tasks, costs of imple-
mentation, and responsible parties in the overall implementation matrix.
12.2.2 Develop an I/E Program
Although it's important to let people know about the water qual
shed, sometimes simply informing and educating people on the
initiate behavior change. Behavior change occurs over time.
First, audiences should be made aware of the issue or prob-
lem. Then they should be educated on the problems facing
the watershed. Finally, they should know what actions they
can take to help address those problems.
To develop an effective I/E program, you should follow these
six steps:
1. Define I/E goals and objectives.
2. Identify and analyze the target audiences.
3. Create the messages for each audience.
4. Package the messages for various audiences.
5. Distribute the messages.
6. Evaluate the I/E program.
The activities that occur in each of these steps are briefly
summarized below.
Step 1: Define I/E Goals and Objectives
In developing an I/E component, you should identify I/E
goals for the watershed plan implementation program.
^ Start with the driving forces that you outlined at the
beginning of the watershed planning effort in chapter 4.
©This will help set the foundation for, and focus, your I/E
activities.
The outreach goals and objectives will reinforce the overall
watershed goals and objectives and should be specific, mea-
surable, action-oriented, and time-focused. Keep the desired
outcome in mind when developing your objectives. Do you
want to create awareness, provide information, or encourage
action among your target audience? It's very important to
make your objectives as specific as possible and to include a
time element as well as a result. This approach will make it
easier to identify specific tasks and will enable you to evalu-
ate whether you've achieved the objectives.
ity problems in the water-
issues is not enough to
Don't Reinvent the Wheel
EPA has developed a "Nonpoint Source Outreach
Digital Toolbox," which provides information, tools,
and a catalog of more than 700 outreach materials that
state and local agencies and organizations can use to
launch their own nonpoint source pollution outreach
campaign. The toolbox focuses on six nonpoint source
categories: stormwater, household hazardous waste,
septic systems, lawn care, pet care, and automotive
care, with messages geared to urban and suburban
residents. Outreach products include mass-media
materials, such as print ads, radio and television public
service announcements, and a variety of materials for
billboards, signage, kiosks, posters, movie theater
slides, brochures, factsheets, and everyday object
giveaways that help to raise awareness and promote
non-polluting behaviors. Permission-to-use informa-
tion is included for outreach products, which makes
it easy to tailor them to local priorities. Evaluations
of several outreach campaigns also offer real-world
examples of what works best in terms of messages,
communication styles, formats, and delivery methods.
^ The toolbox is available online and as a CD at
www.epa.gov/nps/toolbox/
Objectives Will Change
As you progress through implementation, your outreach
objectives and activities will evolve. For example, dur-
ing the early stages it might be necessary to generate
basic awareness of watershed issues, but as problems
are identified during watershed characterization your
objectives will focus on educating your target audiences
on the causes of the problems. Next, your objectives
will focus on actions your target audience can take to
reduce or prevent adverse water quality impacts. Finally,
your objectives will focus on reporting progress.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Step 2: Identify and Analyze the Target Audience
Next, you should identify the audiences you need to reach to meet your objectives. The target
audience is the group of people you want to reach with your message. You should break down
your target audience into smaller segments using demographics, location, occupation, water-
shed role, and other factors. If your target audience is too broad, chances are you won't be
able to develop a message that engages and resonates with the entire audience. Be creative in
defining and developing perspectives on your target audiences and in finding out what makes
them tick.
Step 3: Create the Message
After gathering information on members of the target audience, you're ready to craft a
message that will engage them and help achieve your watershed planning objectives. To be
effective, the message must be understood by the target audience and appeal to people on
their own terms. The message should articulate what actions the audience should take. These
actions might include letting vegetation grow taller along a stream, pumping septic tanks,
or conducting soil tests before fertilizing lawns. The actions should tie directly back to the
goals of the watershed plan because one of the goals of your I/E program will be to help
implement the watershed plan. In addition, your message should be clear, specific, and tied
directly to something the target audience values, such as
• Money savings
• Time savings
• Convenience
• Health improvements
• Efficiency
• Enhancing public values
• Improving ecosystem function
• Enhancing quality of life and environmental amenities
• Economic development benefits
Step 4: Package the Message
Now it's time to determine the best package or format for the message for eventual delivery
to the target audience. The information you collected in Step 2 while researching the audi-
ence will help to determine the most appropriate format.
Lake Champlain Wins Award for TV Spots Yhen ****** ?om "^sage format, think about where
the target audience gets its information. A farming commu-
In the Lake Champlain Basin, a cooperative venture be- . , , .... ,
,,,,„, , • n • n , , , mty might respond more positively to door-to-door visits or
tween the Lake Champlain Basin Program and a local ..._..... T . ..
TV station produced weekly spots on the evening news artldes m farm Publications than to an Internet and e-mail
between May 1999 and September 2004 that provided campaign.
an in-depth look at many of the important environmen-
tal issues surrounding the lake, its basin, and restora- Work With the Media
tion efforts. Periodic half-hour special reports showed If your message needs to be understood and embraced by the
compilations of these spots and provided videos as public, it should be covered by the mass media. The media
a resource for teachers and communities. The series can be a very cost-effective and efficient way to get your mes-
won many awards, including awards from EPA and the sage delivered. Formats using the mass media can be broken
North American Lake Management Society. down into two major categories—news coverage and advertis-
v www.lcbp.org/ mg NCWS coverage includes interviews, news stories, letters
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
to the editor, and event coverage. Advertising includes the development of public service
announcements (PSAs). Publicity generated from news coverage is dependent on the news
organization, whereas you create radio, TV, and newspaper advertising yourself. In many
cases the advertising you do can be leveraged later into news coverage. For example, one state
bought informational ads on agriculture-related water quality issues from a radio station and
received as a benefit some free news coverage of the issues during the year.
Develop Effective Print Materials
By far the most popular format for outreach campaigns is print. Printed materials include
fact sheets, brochures, flyers, booklets, posters, bus placards, billboards, and doorknob hang-
ers. These materials can be created easily, and the target audience can refer to them again
and again. The Texas Commission on Environmental Quality (TCEQ) launched a nonpoint
source outreach campaign in 2001 that targeted watersheds with water quality problems
where the causes were known. In watersheds where pet waste was identified as contributing
to these problems, TCEQ developed a full-color billboard display of a dog with the message,
"Please pick up my poop." The billboards served as prompts
to encourage behavior change, v For more information, visit
www.tceq.state.tx.us/assistance/education/nps.httnl. Neighbors Help Spread the Word on Water
Stewardship
Hold Events The Livab|e Neighborhood Water Stewardship
Also consider using activities to spread your message. A Program in Falls Church, Virginia, fulfilled community
watershed event can be one of the most energizing formats members' desire to take part in watershed protection
for distributing messages targeted at awareness, education, activities at the neighborhood level. Volunteer leaders
or direct action. A community event plays into the desire recruited their neighbors to form household EcoTeams
of audience members to belong to a group and have shared to he|Peach other become better water stewards.
goals and visions for the community. In urban areas, where The teams ad°Pted behaviors such as Creatin9a rain
knowing your neighbors and other members of your com- 9arden and reducin9the use of household chemicals'
munity is the exception rather than the rule, community Thhe team asphef prov^dh.the m|otivati°hn to ^arrhy °u'
. . . i ri • r i -i the actions while establishing relationships that helped
events can help to strengthen the fabric of the community by , .. ,. . ,, , , „, ,. , ,, ,
, , . . . J J create a more livable neighborhood. Studies show that
creating and enhancing community relationships, building sych commum(y ac(ivities are successfu| m sustainmg
trust, and improving the relationships between government significant behavior change. *> Go to
agencies and the public. And if such events are done well, www.empowermentinstitute.net/files/WSP.html
they're just plain fun. for more information on this program.
Leverage Resources
If resources are limited and the message is fairly focused, try to piggyback onto an existing
event that involves the target audience. Trade shows and other events for farmers, developers,
boaters, fishers, the automobile industry, and other groups can often be accessed with a little
research and a few phone calls. As in all outreach, you can't deliver a message to the target
audience if you don't have access to it. Approaches for generating interest and attention are
limited only by your creativity. Watershed groups have used bands, balloons, face-painting,
mascots, interactive displays, video games, giveaways, clowns, jugglers, and celebrities to
draw crowds. You can also increase the exposure of your event by inviting local TV and radio
stations to cover it.
Step 5: Distribute the Message
Once the message has been packaged in the desired format, you can proceed with distri-
bution. Fortunately, you've already considered distribution mechanisms somewhat while
researching the target audience and selecting a format. Common means of distribution are
by direct mail, door-to-door, by phone, through targeted businesses, during presentations,
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
as hand-outs at events, through media outlets, and by posting your message in public places.
Consider which distribution method(s) is best for your community. Local governments, for
example, might choose to add inserts to utility bills, whereas local community groups might
prefer door-to-door visits. One of the ways the City of Fresno, California, distributed its
stormwater pollution prevention message was through placemats at area fast food restaurants.
Be creative in your distribution mechanisms.
In addition to how you're going to deliver the message, you should decide who will deliver the
message. Analyzing the target audience can help you to identify the most trusted members
of the community. An organization trusted by the public can use a staff representative of its
own. If the organization is a government agency, having a member of the target audience
deliver the message might be more effective.
Example I/E Indicators
Programmatic
• Number of newspaper stories printed
• Number of people educated/trained
• Number of public meetings held
• Number of volunteers attending activities
• Number of storm drains stenciled
Social
• Number of calls to hotline
• Number of people surveyed with increased
knowledge of watershed issues
• Number of people surveyed with changes in
behavior
• Participation at watershed events
• Number of trained volunteer monitors
In Grapevine, Texas, the "Conservation Cowboy" conducts
numerous visits throughout the year within the commu-
nity to promote environmental responsibility and nonpoint
source pollution prevention. The Conservation Cowboy has
been a huge hit with children and has become an effective
environmental education messenger.
Remember to use your watershed stakeholder group to help
distribute the message. The group already has a vested
interest in the success of the watershed plan and will help
you distribute educational materials to the watershed com-
munity—perhaps through in-kind support like helping to
erect watershed road signs, or through financial or technical
support to cover printing costs or conduct presentations at
community meetings. Members of your stakeholder group
will be trusted, respected members of the watershed commu-
nity and will make it easy to spread the word.
Step 6: Evaluate the I/E Program
Evaluation provides a feedback mechanism for ongoing
improvement of your outreach effort. Many people don't
think about how they'll evaluate the success of their I/E
program until after the program has been implemented.
Building an evaluation component into the plan from the
beginning, however, will ensure that at least some accurate
feedback on outreach program impact is generated. Ideally,
feedback generated during the early stages of the project will
be used immediately in making preliminary determinations
about program effectiveness. Adapting elements of the I/E effort continually as new informa-
tion is received ensures that ineffective components are adjusted or scrapped while compo-
nents that are working are supported and enhanced. ^> Go back to chapter 4 (section 4.6) to
review the suite of potential indicators you can use to measure the effectiveness of your I/E
program. ^> Appendix A provides additional information on developing outreach programs.
Environmental
• Number of gallons of used paint collected
• Number of people who purchased rain barrels
• Pounds of trash collected on stream cleanup days
• Number of pet waste bags taken at kiosks
• Pounds of yard waste collected
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
12.3 Establish an Implementation Schedule
phase of the watershed planning process should result in element/of the nine ele-
ments for awarding section 319 grants. Element/is a "Schedule for implementing the nonpoint
source management measures identified in the plan that is reasonably expeditious."
The schedule component of a watershed plan involves turning goals and
objectives into specific tasks. The schedule should include a timeline of
when each phase of the step will be implemented and accomplished, as well
as the agency/organization responsible for implementing the activity. In
addition, your schedule should be broken down into increments that you
can reasonably track and review. For example, the time frame for imple-
menting tasks can be divided into quarters. You will prepare more detailed
schedules as part of your annual work plans ( ^t> see section 13.4).
In developing schedules, it helps to obtain the input of those who have had
previous experience in applying the recommended actions. Locate experienced resource
agency staff and previous management practice project managers where possible to identify
the key steps. Be sure to note sequence or timing issues that need to be coordinated to keep
tasks on track.
12.4 Develop Interim Measurable Milestones
One means of supporting detailed scheduling and task tracking is to identify interim, mea-
surable milestones for determining whether management practices or other control actions
are being implemented. What do you want to accomplish by when? It usually helps to think
of milestones in terms of relevant time scales. For example,
• Short-term (1 to 2 years)
• Mid-term (2 to 5 years)
• Long-term (5 to 10 years or longer)
%JjThis phase of the watershed planning process should
result in element g of the nine elements for awarding section
319 grants. Element g is "A description of interim measurable
milestones for determining whether nonpoint source management
measures or other control actions are being implemented."
It's also helpful to think of the milestones as subtasks, or
what needs to be accomplished over time to fully implement
the practice or management measure. When determining
time scales and subtasks for actions, place the milestones
in the context of the implementation strategy. Given the
selected practices and the available funds or time frame for
obtaining grants, estimate what can be accomplished by
when. First, outline the subtasks involved and the level of
effort associated with each to establish a baseline for time
estimates. Next, identify the responsible parties associated
with the steps so that you can collectively discuss milestones
and identify those which are feasible and supported by the
people that will do the work.
Example Milestones
Short-Term (< 2 years)
• Achieve 5 percent reduction in sediment load on
1,000 acres of agricultural land in the Cross Creek
subwatershed by implementing rotational grazing
practices.
• Eliminate direct sources of organic waste, nutrients,
and fecal coliform bacteria to the stream by
installing 5,000 feet of fencing to exclude direct
access to cattle along Cross Creek.
Mid-Term (< 5 years)
• Reduce streambank erosion and sediment loading
rate by 15 percent by reestablishing vegetation
along 3,600 feet of Cross Creek.
Long-Term (5 years or longer)
• Achieve the fecal coliform water quality standard
in the upper section of Cross Creek above
Highway 64.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
It's important to consider economic, social, and environmental factors. When selecting a
milestone, make sure that it is specific, measurable, achievable, relevant to a nonpoint source
management measure, and time-sensitive.
You should also consider staff availability and funding resources and how the milestones will
be evaluated. For example, will progress toward a milestone be determined through monitor-
ing, spot-checking, participation, adoption of management practices, or some other methods?
Answering this question will enable you to allocate and plan for resources and easily deter-
mine whether a milestone has been met. It would be difficult to set a milestone at "installing
30 miles of buffer strips within 2 years" if no staff were available to measure the miles of
buffer strips installed. Resources should be targeted toward the highest-priority milestones.
Finally, your plan should also provide a description of what will be done if the milestones are
not being achieved or how your program will take advantage of milestones being achieved in
a significantly shorter time frame than expected.
12.5 Establish a Set of Criteria to Measure Progress toward
Meeting Water Quality Standards and Other Goals
As part of your implementation program, you should set some criteria by which to determine
whether you are achieving load reductions over time and making progress toward meet-
ing your overall watershed goals. These criteria can also support an adaptive management
approach by providing mechanisms by which to reevaluate implementation plans if you're
not making substantial progress toward meeting your watershed goals.
€|This phase of the watershed planning process should result in element h of the nine ele-
ments for awarding section 319 grants. Element h is "A set of criteria that can be used to deter-
mine whether loading reductions are being achieved over time and substantial progress is being made
toward attaining water quality standards."
These criteria can be expressed as indicators and associated interim target values. You can
use various indicators to help measure progress (^> chapter 4). You'll want to select indicators
that will provide quantitative measurements of progress toward meeting the goals and can
be easily communicated to various audiences. It's important to remember that these indica-
tors and associated interim targets will serve as a trigger, in that if the criteria indicate that
you are not making substantial progress, you should consider changing your implementation
approach.
The indicators might reflect a water quality condition that can be measured (dissolved oxy-
gen, nitrogen, total suspended solids) or an action-related achievement that can be measured
(pounds of trash removed, number of volunteers at the stream cleanup, length of stream
corridor revegetated). In other words, the criteria are interim targets in the watershed plan,
such as completing certain subtasks that would result in overall pollutant reduction targets.
Be careful to distinguish between programmatic indicators that are related to the implemen-
tation of your work plan, such as workshops held or brochures mailed, and environmental
indicators used to measure progress toward water quality goals, such as phosphorus concen-
trations or sediment loadings.
The indicators and interim target values you select should reflect the performance of the
management measures being implemented, the concerns identified early in the process by
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
stakeholders, and the refined goals that were outlined (chapter 9). Because of the confound-
ing, dynamic conditions that occur in a watershed, you should be careful how you interpret
these indicators once implementation begins. For example, if you've selected turbidity as an
indicator for measuring sediment load reductions and the turbidity value actually increases
after installation of management practices, does this mean you're not making improvements
in the watershed? You should determine whether additional activities, such as new develop-
ment activities, are contributing additional loads that you didn't consider. You also should
realize that the land disturbance that installing management practice sometimes generates
initially could create a short-term increase in sediment loadings. In addition, you might
actually see a decrease in sediment loads while turbidity remains the same or increases due
to increased biological production. Therefore, you also want to include long-term progress
measurements such as reduced frequency of dredging as an indication of reduced sediment
loads, or improved aquatic habitat as a result of reduced sediment loads. Table 12-1 demon-
strates how you can use a suite of indicators to measure progress in reducing pollutant loads
depending on the issues of concern.
Table 12-1. Example Indicators to Measure Progress in Reducing Pollutant
Issue
Eutrophication
Pathogens (related
to recreational use)
Sediment
Suite of Indicators
Phosphorus load
Number of nuisance algae blooms
Transparency of waterbody or Secchi depth
Frequency of taste and odor problems in water supply
Hypolimnetic dissolved oxygen in a lake or reservoir
Soil test phosphorus in agricultural fields
Bacteria counts
Compliance with water quality standards (single sample or geometric mean)
Number and duration of beach closings
Number of shellfish bed reopenings
Incidence of illness reported during recreation season
Total suspended solids concentration and load
Raw water quality at drinking water intake
Frequency and degree of dredging of agricultural ditches, impoundments, and water
supply intake structures
There are various factors to consider before setting criteria, such as the implementation
schedule of the management measures, the nature of the pollutants, and the time frame for
applying the criteria.
12.5.1 Schedule for Implementation of Management Measures
Before developing any criteria to measure progress in reducing loads, you should review the
schedule you've developed for implementing the proposed management measures. Obviously,
you won't see any load reductions until the measures are installed. Check to see if the man-
agement measures are to be installed evenly over the duration of the plan or whether most
practices are to be installed in the first few years of implementation. Often, long and uncer-
tain lag times occur between implementation and response at the watershed level.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
12.5.2 Nature of Pollutants to Be Controlled
The speed with which loads can be reduced also depends on the nature of the pollutants.
Pathogens in animal waste, for example, tend to die off quickly in the environment, so
response to a decrease in pathogen delivery to a waterbody might be noticed quickly. If direct
deposition of waste in a stream by grazing livestock is the problem, fencing the animals away
from the stream might cause nearly immediate reductions in pathogen levels in the water.
Implementation of erosion controls, however, might show results more slowly as sediments
already in the drainage network move through the system even as soil loss from cropland or
construction sites is controlled. If runoff of soluble phosphorus due to excessive soil phos-
phorus levels is the problem, it might take years or even decades to demonstrate a measurable
change in response to nutrient management as accumulated phosphorus is slowly depleted by
crop harvests.
12.6 Develop a Monitoring Component
As part of developing your watershed plan, you should develop a monitoring component to
track and evaluate the effectiveness of your implementation efforts using the criteria devel-
oped in the previous section.
phase of the watershed planning process should result in element i of the nine ele-
ments for awarding section 319 grants. Element i is "A monitoring component to evaluate the
effectiveness of the implementation efforts over time, measured against the criteria established to deter-
mine whether loading reductions are being achieved over time and substantial progress is being made
toward attaining water quality standards."
Monitoring programs can be designed to track progress in meeting load reduction goals
and attaining water quality standards, but there are significant challenges to overcome.
Clear communication between program and monitoring managers is important to specify
monitoring objectives that, if achieved, will provide the data necessary to satisfy all relevant
management objectives. The selection of monitoring designs, sites, parameters, and sampling
frequencies should be driven by the agreed-upon monitoring objectives, although some com-
promises are usually necessary because of factors like site accessibility, sample preservation
concerns, staffing, logistics, and costs. If compromises are made because of constraints, it's
important to determine whether the monitoring objectives will still be met with the modified
plan. There is always some uncertainty in monitoring efforts, but to knowingly implement a
monitoring plan that is fairly certain to fail is a complete waste of time, effort, and resources.
Because statistical analysis is usually critical to the interpretation of monitoring results, it's
usually wise to consult a statistician during the design of a monitoring program.
Measurable progress is critical to ensuring continued support of watershed projects, and
progress is best demonstrated with the use of monitoring data that accurately reflect water
quality conditions relevant to the identified problems. All too frequently watershed manag-
ers rely on modeling projections or other indirect measures of success (e.g., implementation
of management measures) to document achievement, and in some cases this approach can
result in a backlash later when monitoring data show that actual progress does not match the
projections based on surrogate information.
There is no doubt that good monitoring can be complex and expensive. Monitoring can be
done at numerous levels; the most important criterion is that the monitoring component
should be designed in concert with your objectives. If documenting the performance of
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
particular management practices under seasonal conditions is important, a detailed and
intensive water quality monitoring regime might be included. If your objective is to restore
swimming at a beach previously closed, you might monitor progress by keeping track of the
number of days the beach is open or the number of swimmers visiting the beach. If restora-
tion of life in a stream is the objective, annual sampling of benthic invertebrates and fish
might be included, or a count of anglers and a creel census could be useful. If another agency
is already conducting monitoring (e.g., making annual measurements of phosphorus load or
regulating shellfish beds based on bacteria counts), you might be able to use such ongoing
monitoring to track your project's progress. In North Carolina, the Long Creek Watershed
Project used the frequency of dredging at a water supply intake as a measure of the progress
in controlling erosion in the watershed (Lombardo et al. 2004). Regardless of the specific
objective, keep in mind that documental measures of progress toward your water quality
goals are important.
Because of natural variability, one of the challenges in water quality monitoring is to be able
to demonstrate a link between the implementation of management measures and water qual-
ity improvements. To facilitate being able to make this connection, the following elements
should be considered when developing a monitoring program.
12.6.1 Directly Relate Monitoring Efforts to the Management Objectives
The data you collect should be directly related to the management objectives outlined in
your watershed plan. Often data are collected for historical purposes, but the information is
not used to help determine whether watershed plan objectives are being met. The monitoring
component, which will be used to assess the effectiveness of implementation strategies, can
also be used to address other important information needs in the watershed with minimal
changes or additional resources. Consider a range of objectives like the following when devel-
oping your monitoring program:
• Analyze long-term trends.
• Document changes in management and pollutant source activities in the watershed.
• Measure performance of specific management practices or
implementation sites.
• Calibrate or validate models.
• Fill data gaps in watershed characterization.
• Track compliance and enforcement in point sources.
• Provide data for educating and informing stakeholders.
When developing a monitoring design to meet your objectives, it's
important to understand how the monitoring data will be used. Ask
yourself questions like the following:
• What questions are we trying to answer?
• What assessment techniques will be used?
• What statistical power and precision are needed?
• Can we control for the effects of weather and other sources of variation?
• Will our monitoring design allow us to attribute changes in water quality to the
implementation program?
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
The answers to these questions will help to determine the data quality objectives (DQOs) (sec-
tion 6.4.2), that are critical to ensuring that the right data are collected. These DQOs also take
into consideration practical constraints like budget, time, personnel, and reporting require-
ments and capabilities. Parameters measured, sampling locations, sampling and analysis
methods, and sample frequency are determined accordingly. It's helpful to know the degree of
measurement variability you might encounter for a given parameter method and watershed.
If variability in a parameter concentration or value is relatively high because of natural or
methodological causes, it will be difficult to identify actual improvements over time. You
might need to collect more samples, consider different methods, make more careful site
selections, select different parameters or indicators, or use a combination of approaches.
12.6.2 Incorporate Previous Sampling Designs
If you already developed a sampling plan as part of additional data collection efforts (
^> chapter 6), start with that plan to develop the implementation monitoring component.
The plan, which was focused on immediate data needs, should have followed the key steps in
the monitoring process (study design, field sampling, laboratory analysis, and data manage-
ment). Most important, that additional data collection plan should have been developed with
an eye toward supporting your long-term monitoring program. The data collected in that
effort, along with other historical data, can be analyzed to evaluate the locations of hot-spots,
the sampling frequencies necessary to adequately capture variability, and other parameters
of a monitoring program. The sampling and analysis done during that phase can provide an
evaluation of baseline conditions; continued monitoring under a similar program during and
after implementation can be used to track trends in response to plan implementation.
Many of the specific elements developed as part of that effort, including DQOs, measurement
quality objectives (MQOs), and a quality assurance project plan (QAPP), can be modified or
expanded for this final monitoring component. ^ Go back to section 6.4 to review the infor-
mation and resources on the selection of sample design, field and lab protocols, and standard
operating procedures.
12.6.3 Monitor Land Use Changes in Conjunction with Water Quality
Monitoring
The monitoring component of your watershed plan should include not only water quality
monitoring but also monitoring on the land, including the land treatments being imple-
mented and the land use activities that contribute to nonpoint source loads. Land treatment
tracking is important to determine whether the plan is being implemented appropriately and
in a timely manner. At a minimum, you should track where and when practices were installed
and became operational. But you should look beyond dollars spent or points on a map and
consider how the measures are working. Structural practices like waste storage lagoons or
sediment basins might be easy to see and count, but their associated management activi-
ties are more difficult to monitor. How have nitrogen and phosphorus applications changed
under nutrient management? Are riparian buffers filtering sheet flow or is runoff channelized
through the buffer area? Are contractors following erosion and sediment control plans?
Sometimes such questions can be answered only by asking the landowners. Some agri-
cultural watershed projects have had success in asking farmers to keep records of tillage,
manure and fertilizer application, harvest, and other management activities. Several Vermont
projects, for example, used log books and regular interviews by local crop management con-
sultants to gather such information (Meals 1990, 1992, 2001). In urban settings, public works
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
staff can be valuable sources of information. Aerial photography and windshield or foot
surveys are also useful (section 6.5.1). Remember to monitor not just where implementation is
occurring but in all areas in the watershed that might contribute to nonpoint source loads.
A good land treatment/land use monitoring program will help you to
• Know when and where measures are implemented and operational
• Determine whether measures are working as planned and how much they have
accomplished
• Get a handle on contributions of non-implementation areas to watershed nonpoint
loads
• Prevent surprises
Surprises can derail the best watershed plan. An accidental release from a waste storage facil-
ity, a truck spill, land use changes, technology adoption, or the isolated actions of a single
bad actor can have serious water quality consequences and, if the source is not documented,
can cause you to question the effectiveness of your plan.
The result of a good land use/land treatment monitoring program is a database of indepen-
dent variables that will help you explain changes in water quality down the road. The ability
to attribute water quality changes to your implementation program or to other factors will be
critical as you evaluate the effectiveness of the implementation effort and make midcourse
plan corrections.
12.6.4 Use an Appropriate Experimental Design
You can choose from many different monitoring designs, such as paired watersheds,
upstream-downstream monitored before, during, and after land treatment, and multiple-
watershed monitoring (Clausen and Spooner 1993; Grabow et al. 1999a, 1999b). Your decision
should be based on the pollutants of concern, the length of the monitoring program, the size
of the study area, and the objectives of the monitoring program.
Loads can be measured at many levels of resolution; tributaries and watersheds commonly
serve as the geographic unit for load estimation. Loads can also be measured for specific
subwatersheds or sources, providing watershed managers with opportunities to track priority
areas and determine whether funding is being directed efficiently to solve the water qual-
ity problems. The time frame for estimating loads should be selected to fit the watershed
plan and the watershed of interest. For example, seasonal loads might be most relevant for
nonpoint sources, whereas annual loads might be more appropriate in watersheds with fairly
consistent wastewater treatment plant discharges. Because nonpoint source loads are sub-
ject to considerable variability due primarily to weather but also to source
management, it is highly advantageous to use controlled studies (e.g., paired A covarja,e js a measurement
watersheds, upstream-downstream pairs before and after implementation) Of those variables that are not
and covariates (e.g., flow) to aid in interpreting load patterns. ^ See appen- controllable by the researcher.
dix A for resources on developing an effective monitoring program.
12.6.5 Conduct Monitoring for Several Years Before and After
Implementation
To increase your chances of documenting water quality changes, you should conduct mul-
tiple years of monitoring both before and after implementing management measures. Year-
to-year variability is often so large that at least 2 to 3 years each of pre- and post-management
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
practice implementation monitoring might be necessary to document a significant water
quality change following management practice implementation. Also, longer-duration moni-
toring might be necessary where water quality changes are likely to occur gradually. Sam-
pling frequency and collection should be consistent across years.
12.6.6 Build In an Evaluation Process
When developing your monitoring program implementation strategy, plan for evaluation and
reporting processes that will record change and provide the basis for appropriate modifica-
tions to the watershed plan. Link assessments and reporting formats back to the objectives
by comparing monitoring results for the indicators to the criteria for judging progress toward
milestones. ^C> For more information on developing monitoring programs, see results and
recommendations of National NFS Monitoring Program projects at www.bae.ncsu.edu/
programs/extension/wqg/319index.htm.
Often, monitoring programs should be modified as they are implemented. Flexibility is
important in the implementation strategy so that staff can make minor refinements "on the
fly." Significant adaptations also might need to be considered periodically by sponsors and
decisionmakers (e.g., following review of an annual progress report). This applies to revisions
to the QAPP as well.
12.7 Estimate Financial and Technical Assistance Needed
and the Sources/Authorities that Will Be Relied on for
Implementation
phase of the monitoring process should result in element d of the nine elements for
awarding section 319 grants. Element d is "Estimate of the amounts of technical and financial
assistance needed, associated costs, and/or the sources and authorities that will be relied upon to imple-
ment this plan."
A critical factor in turning your watershed plan into action is the ability to fund imple-
mentation. Funding might be needed for multiple activities, such as management practice
installation, I/E activities, monitoring, and administrative support. In addition, you should
document what types of technical assistance are needed to implement the plan and what
resources or authorities will be relied on for implementation, in terms of both initial adop-
tion and long-term operation and maintenance (O&M). For example, if you have identified
adoption of local ordinances as a management tool to meet your water quality goals, you
should involve the local authorities that are responsible for developing these ordinances.
Don't Forget the O&M Costs
Improper maintenance is one of the most common
reasons for failure of water quality controls to function
as designed. It's important to consider who will be
responsible for maintaining permanent management
practices, what equipment is required to perform the
maintenance properly, and the long-term cost involved
in maintaining structural controls.
The estimate of financial and technical assistance should
take into account the following:
• Administration and management services, including
salaries, regulatory fees, and supplies, as well as in-kind
services efforts, such as the work of volunteers and the
donation of facility use
• I/E efforts
• The installation, operation, and maintenance of
management measures
• Monitoring, data analysis, and data management
activities
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
12.7.1 Identify Funding Sources
You can access hundreds of funding sources to help fund the implementation of your
watershed plan. These sources include federal, state, local, and private sources. Try to
access several different funding sources so you don't put all of your eggs into one basket.
The greatest challenge is identifying funding opportunities
in an efficient manner. Several online tools can help nar-
row the places you need to look. ^> For example, EPA has Locating Federal Funding
developed Guidebook of Financial Tools: Paying for Sustain- ^ For a complete list of federal funding, visit the
able Environmental Systems, which is available for download Catalog of Federal Domestic Assistance
at www.epa.gov/efinpage/guidbkpdf.htm. The guide was (www.cfda.gov). This Web site provides access to
designed to enable watershed practitioners in the public a database of all federal programs available.
and private sectors to find appropriate methods to pay for _
. cc T j i ji T-T™> vAlsovisitwww.epa.gov/watershedfundmgto
environmental protection etiorts. It was developed by EPAs . ., _ , , ,r , , r ,. „ ,
_ . ,„. . , . . . _, , , , . , view the Catalog of Federal Funding Sources for
Environmental Financial Advisory Board and the Agency s Watershed Protection. This interactive Web site
network of university-based Environmental Finance Cen- he|ps ma(ch wa(ershed project needs wi(h fundjng
ters. ^ More information on funding sources for watershed sources.
programs is posted at EPA's Sustainable Finance Web site at
www.epa.gov/owow/funding.html.
12.7.2 Leverage Existing Resources
Some of the costs of implementing your watershed plan can be defrayed by leveraging exist-
ing efforts and seeking in-kind services. Some examples follow.
Use existing data sources. Most geographic areas have some associated background spatial
data in the public domain, such as digital elevation models, stream coverages, water quality
monitoring data, and land cover data in the form of imagery like orthophoto quads or raster
satellite image files. Note that the EPA Quality System (^> www.epa.gov/quality) (EPAQA/
G-5) recommends that a QAPP be prepared for the use of existing data, as well as for the col-
lection of new data.
Use existing studies. Many agencies have reports of previous analyses, providing useful base-
line information and data, such as delineated subwatersheds or a historical stream monitor-
ing record. The analyses might have been done for another purpose, such as a study on fish
health in a particular stream, but they can contribute to understanding the background of
the current concerns.
Use partnerships. State, county, or federal agencies working as technical assistance provid-
ers and implementing natural resource program initiatives can offer computer services
and expertise, such as performing GIS analysis or weaving
together elements of different programs that might apply to lQ prjvate Fun
the local area. 1 hey might be in a position to write part ot
the overall watershed plan if they have existing generalized * Visit www.rivernetwork.org for the Directory
, , , . . ,. of Funding Sources for Grassroots River and
watershed characterization studies. ..., , " ,. _ .,.. , . , ,
Watershed Conservation Groups. It lists private and
Cover incidental/miscellaneous costs through contributions. For corP°rate sources' as wel1 as federal sources' Note:
example, staff time to assemble needed elements, supplies, This resource is for River Network members only
and meeting rooms for a stakeholder or scoping meeting can
all be donated. As a start, ^ refer back to the checklist you
compiled from your stakeholder group in section 3.3.4 to
determine what resources are available within the group.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
12.7.3 Estimating Costs
Many factors affect the cost of implementing management measures as part of a watershed
plan, including the following:
• Type of management practice/restoration activity
• Installation costs
• Operation and maintenance costs
• Method of cost calculation
• Annual tasks and milestones that you establish (see the next sections)
Plan2Fund
Plan2Fund was developed by the Environmental
Finance Center (EFC) at Boise State University to help
organizations determine the amount of outside funding
necessary to achieve the goals and objectives of their
watershed management plan. The Plan2Fund tool
leads organizations through the process of estimating
implementation costs for their goals and objectives,
evaluating local funding options, and finally
identifying gaps in funding. With the output from
Plan2Fund, users can then search EFC's Directory of
Watershed Resources database for federal, state, and
private funding sources based on identified funding
needs ^ http://sspa.boisestate.edu/efc/
Tools_Services/Plan2Fund/plan2fund.htm
^> Go back to section 11.5, where you researched cost con-
siderations related to the proposed management measures.
Some management measures might be more diffusely imple-
mented across the watershed, and therefore the costs might
be difficult to quantify. For example, developers across the
watershed are encouraged to use fencing to prevent sedi-
ment runoff on their construction sites, and homeowners
are encouraged through educational outreach to keep their
neighborhood storm drains free of debris. These actions are
voluntary, and therefore no specific operational costs are
associated with them. However, costs would be associated
with the I/E activities.
In refining the implementation plan to establish your
overall financial and technical assistance needs, you should
develop a more detailed estimate of the annualized cost of
your actions. Table 12-2 provides annualized cost estimates
for selected management practices from Chesapeake Bay
installations.
Monitoring Program Costs
The cost of your monitoring program will depend on many factors, including the program
design, the number and locations of sampling stations, the types and number of samples
collected, the variables measured, staff and equipment required, local conditions, and others.
Because these factors vary so much from watershed to watershed, it is impossible to establish
general unit costs for monitoring activities. In building a monitoring budget for your pro-
gram (or in putting together a grant application to support monitoring), you should consider
costs in several common categories, which are described below.
Staffing
Consider how much staff time you'll need to carry out the activities necessary to conduct
monitoring, including
1. Researching and selecting sampling sites
2. Installing and maintaining structures or instruments
3. Collecting samples and other field data
4. Delivering samples to the laboratory
5. Maintaining field data and other records
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
Table 12-2. Annualized Cost Estimates for Selected Management Practices from Chesapeake Bay3
Practice
Terraces
Diversions
Sediment retention water control structures
Grassed filter strips
Cover crops
Permanent vegetative cover on critical areas
Reforestation of crop and pasture11
Grassed waterways6
Animal waste system*
Practice Life
Span (Years)
10
10
10
5
1
5
10
10
10
Median Annual Cost" (EACC)
($/ac/yr)
(1990 dollars)
84.53
52.09
89.22
7.31
10.00
70.70
46.66
1.00/linft/yr
3.76/ton/yr
Median Annual Cost (EAC°)
($/ac/yr)
(2002 dollars)
116.35
71.70
122.81
10.06
13.76
97.31
64.22
1.38
5.18
a Median costs (1990 dollars) obtained from the Chesapeake Bay Program Office management practice tracking database and Chesapeake Bay Agreement
Jurisdictions' unit data cost. Costs per acre are for acres benefited by the practice.
b Annualized management practice total cost, including operation and maintenance, planning, and technical assistance costs.
CEAC = equivalent annual cost: annualized total costs for the life span. Interest rate = 10%.
11 Government incentive costs.
e Annualized unit cost per linear foot of constructed waterway.
' Units for animal waste are given as dollars per ton of manure treated.
Source: Camancho 1991.
Note that the relationship between the number of stations or samples and the staff require-
ment is not always linear; operating 20 stations might cost only 25 percent more in staff time
than operating 10 stations. This is especially true if you are hiring full-time staff dedicated
to a single project. Consider sharing staff with other activities if possible. Monitoring pro-
grams associated with a college or university can take advantage of graduate student efforts
to provide some staff support.
Equipment
Sophisticated monitoring instrumentation like autosamplers,
electronic flow recorders, and dataloggers can automate
much of the monitoring program and offset some staffing
resources. This might be a desirable approach in long-term,
relatively intensive monitoring programs. However, such
equipment is often expensive, has a steep learning curve, and
sometimes has a greater risk of failure than manual sampling
and measurement. The balance between high-tech, high-
initial-expense equipment and more manual, labor-intensive
approaches will depend on your available budget and moni-
toring design. Remember to consider power, shelter, and
security requirements for expensive electronic equipment
in your budget. If you decide to use electronic equipment,
consider renting or purchasing used equipment rather than
purchasing new equipment outright, especially for short-
term projects.
Combine Forces to Share Costs
Twelve state and local Vermont entities facing Storm-
water Phase II requirements formed the Chittenden
County Regional Stormwater Education Program
(RSEP). The RSEP focused on increasing awareness
and changing behaviors through social marketing by
hiring a local marketing firm to craft a communications
and marketing strategy based on the results of a public
stormwater awareness survey. Each entity provided
$5,000 toward the development and implementation of
the strategy. This approach was cost-effective for each
entity and allowed for the development of a consistent
message across the state. The RSEP paid $20,500 in
message distribution through the media (newspaper,
cable TV, and radio broadcasts) in the first year.
**> For more information, visit the RSEP Web site,
www.smartwaterways.org
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Supplies
In estimating your monitoring costs, remember to account for sampling supplies like bottles,
batteries, chemicals, labels, ice, shipping, and so forth, as well as supplies needed to tabulate
and report data collected.
Logistics
Operating and maintaining a sampling network requires logistical support. The cost of
travel between the project base and remote sampling locations must be considered. Be sure
to include routine maintenance and field checks in mileage estimates, in addition to actual
sampling runs. You might also need to factor in some additional costs to deal with difficult
weather conditions like harsh winters or major storms.
Consider the sample handling and holding requirements for the variables you're monitor-
ing. The cost of collecting, preserving, and transporting a sample for analysis of a variable
with a 24-hour holding time might far exceed the costs associated with a variable with a
7-day holding time. Factor this into your decision on whether it's really necessary to mea-
sure soluble reactive phosphorus or whether total phosphorus analysis will meet your needs.
Travel distance and time to deliver samples, as well as the lab's ability to accept certain kinds
of samples on certain days, will affect costs, as well as your decisions on where to collect
samples and what lab to chose. The lowest quoted per sample price might not adequately
represent the total cost to your monitoring budget.
Laboratory
Analytical costs are relatively straightforward to estimate using direct price quotes from one
or more laboratories. Be sure to discuss sample numbers and schedules at the start so that the
lab can give you its best price. Remember to include your own field quality control samples
in your estimates of total sample numbers for the lab.
Training
Your monitoring staff might need training in specialized monitoring techniques such as
stream morphologic assessment or collection and identification of stream biota. Determine
the costs (both tuition and travel) for any such training your staff will require in carrying out
your monitoring program. Remember to budget for training for staff turnover that is likely to
occur over the course of the monitoring program.
Data management
Hardware, software, or programming costs might be associated with storing and manipulat-
ing monitoring data. Budget for anticipated costs for statistical analysis or other data report-
ing that might be contracted out.
HE Program Costs
Just as for other parts of the watershed plan implementation, you should determine roughly
how much funding you'll need to implement your I/E program. I/E program costs are almost
always higher than you expect, especially if you plan to use mass media formats like TV or
radio PSAs. When planning your I/E budget, don't forget to include travel expenses, supplies
(e.g., display booths, paper, storm drain stencil kits), giveaways, and vendor services such as
printing and Web site registration. Also consider costs related to obtaining technical infor-
mation to include in any educational materials developed. You might also incur costs associ-
ated with researching ways that your audience can protect water quality or consulting with
professionals to obtain this information. You can keep costs down by teaming with universi-
ties, local civic organizations, or area businesses. You might also team with other localities or
watershed organizations that face the same issues.
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
12.7.4 Identify Technical Assistance Needs
Technical assistance can take many forms. At the beginning
stages of your watershed planning process, it might be col-
lecting or compiling data on the watershed. Later it might
involve the work of selecting an appropriate model to work
on your watershed's particular issues (e.g., lake-based pollu-
tion, sediments) and then actually running the model. After
specific practices have been selected, technical assistance in
siting chosen practices or selecting among several different
management practices for cost-effectiveness might be neces-
sary. Technical assistance can also include advice on the best
combination of practices and tools to apply to a particular
site based on previous similar work and experience.
The process of delivering technical assistance can include
working one-on-one with a landowner to share technical
design specifications and similar site experiences; develop-
ing engineering plans for a property; showing a demonstra-
tion site; presenting drawings, plans, and documents that
can be used as a technical record to go along with a water-
shed plan; or simply providing oversight.
Technical assistance is offered by many agencies and organi-
zations, including local conservation districts, state natural
resources agencies, universities, and federal agencies.
Common Sources of Technical Assistance
for Agricultural Activities
Federal
In addition to the in-house technical support
that USDA provides through Natural Resources
Conservation Service, Farm Service Agency, and
conservation districts, the Department has expanded
the availability of technical assistance to landowners
by encouraging the use of technical service providers
(TSPs). TSPs are independent of USDA but are
certified in delivering conservation technical services
to landowners. Keep in mind that TSPs are private
professional consultants that provide services to
landowners at a cost, unlike the extension agents,
Soil and Water Conservation District technicians,
and NRCS field staff, whose services are free to the
landowner. USDA has developed a registry of TSPs to
enable landowners to locate and choose TSPs in their
service area ^ Go to http://techreg.usda.gov
State
USDA's Cooperative State Research, Education,
and Extension Service partially sponsors its state
partners through Extension Service programs based in
land-grant universities. Frequently, state Cooperative
Extension Services have a research and education
focus that results in their being able to provide cutting-
edge technical expertise at a regional scale.
%> Go to www.csrees.usda.gov/qlinks/partners/
state_partners.html
12.7.5 Identify the Relevant Authorities Needed
for Implementation
In addition to the required technical assistance you might
need, it's critical to identify any relevant authorities or legis-
lation that specifically allows, prohibits, or requires an activ-
ity. For example, if you're planning a streambank restoration project that involves working
in the stream channel, a section 404 dredge and fill permit might be required. You should
also identify the available authorities that can help you to implement your plan. For example,
you might identify stream buffer ordinances, nutrient management plans, or animal feeding
operation (AFO) regulations. ^C> In chapter 3 you identified other local, state,
tribal, and federal planning efforts that you wanted to coordinate with, and
these same programs can help you identify any relevant authorities that you
might have missed. Close communication with the local agency staff and
state agency personnel can help ensure that you have considered the relevant
statutes and authorities needed for implementation.
12.8 Develop the Implementation Plan Basics
The implementation plan is a guide for turning your management strategies
from paper into reality and for determining how you're going to measure
progress toward meeting your goals. Putting the implementation pieces
together involves laying out the detailed tasks that need to be done, iden-
tifying who will do them, identifying the funding and technical assistance
\
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
needed, and setting up a process to measure the effectiveness of the program. The implemen-
tation plan, or action plan, is a subset of the overall watershed plan.
If you've followed the approach of this handbook, you've already defined
the scope of your plan (chapter 4); estimated pollutant loads and set goals
for load reductions (chapters 8 and 9); and identified, evaluated, and
selected a management strategy (chapters 10 and 11). From information
developed in those steps, you should have a reasonable idea of what,
where, and when practices need to be implemented in the watershed to
achieve your goals. Although the level and source of resources necessary
to complete implementation might not be completely known at this point
in time, the procedures recommended in this section will help identify
responsible parties, costs, sources of funds, and ways to track progress
that will improve the likelihood of assembling the pieces necessary to suc-
cessfully implement your plan. A good implementation plan that is part
of a good overall watershed plan can be very helpful in securing funds for
implementation.
To provide a clear guide for stakeholders implementing the watershed plan, it is recom-
mended that you compile basic information into several matrices. For each selected man-
agement option or related management options, work with your stakeholders to outline the
following:
• Actions that need to be taken (including any special coordination, education, or public
outreach needed to improve the chances of implementation)
• The responsible party(ies) for the action/education
• Time frame for implementing the actions
• Time frame for operation and maintenance requirements
• Estimated total cost and annual cost for each action
• Funding mechanism(s) for each action
• Measures or tracking indicators
Your implementation plan should include all activities, including I/E activities and monitor-
ing requirements. Once all the elements of the plan are laid out in matrices, you'll be able to
identify gaps or areas that you did not address.
Developing implementation plan matrices can also help to increase the likelihood of com-
pleting actions on time and within budget, as well as facilitating the development of annual
work plans. The challenge, however, is to generate implementation information that is
accurate and acceptable to the stakeholders responsible for carrying out the recommended
actions. Meeting that challenge requires research by each responsible party (and consensus-
building discussions where multiple parties are involved) regarding feasibility, constraints,
possible funding sources, and timeline confirmation for each primary action to be taken.
It's important to identify areas of uncertainty and constraints so they can be addressed or
planned for where possible. Where funding resources among stakeholders appear to be fall-
ing short of projected needs, place emphasis on identifying other potential sources of fund-
ing or technical assistance from outside watershed partners. ^Worksheet 12-1 is an exam-
ple of an implementation matrix, based on the ^> blank worksheet provided in appendix B.
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
Worksheet 12-1
Watershed Goals
Goal 1: Restore water quality to meet designated uses for fishing
Objective 1: Reduce sedimentation by 20 percent
PUn
Tasks for G1/01
Taskl
Seek donation of
conservation easements
from property owners
along Baron Creek
I/E Activities Task 1
Hold informational
workshop with property
owners
Develop brochures on
how to donate
easements
Task 2
Purchase greenway
alongside Baron Creek
Respon.
Party
Local land
trust
Local land
trust
County park
district
Total
Costs
$0
$3,000
$2,000/
mile
Funding
Mechanism Indicators Milestones
Short Med
< 1 yr < 3 yr
# acres donated 2 7
Section 319 # workshops held 3 3
funding # participants 40 45
# requests for 2 4
assistance
County # miles purchased 2 4
general
funds
Long Remaining
< 7yr
10 10
0
7 5
I/E Activities Task 2
None
TaskS
Develop ordinance
requiring a150-ft
easement for new
construction infloodplain
of Baron Creek
I/E Activities Task 3
Run articles in local
newspapers on benefits
of ordinances
Task 4
Install 300 ft of riparian
buffer along Baron Creek
Local
municipalities
Watershed
Committee
County dept.
of natural
resources
$0
$0
$2,500
# ordinances 1 2
adopted
# articles 2 5
EQIP, CREP # ft of buffers 100
4 0
8 0
Monitoring Activities for Task 1/2/3
Monitor sediment
load before and after
implementation
Evaluate substrate
habitat
State DEP
State DEP &
Watershed
Committee
$5,000/
yr
$3,000/
yr
Section 319 Annual TSS load 2,500 2,250
funding, state (kg/yr)
funds
Section 319 %embeddedness 12 6
funding, local 0/oSand 10 5
volunteers
2,000
3
2
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Criteria io Tf\jB^swre Progress in
worksheet 12-2
//Vote: Complete one worksheet for each management objective identified.]
Management Objective: Reduce nutrient inputs into Cane Creek by 20 percent
Indicators to Measure
Progress
Pload
# of nuisance algae blooms
transparency
frequency of taste and odor
problems in water supply
hypolimnetic DO
Target Value
or Goal
44 t/yr
0
5.5 m
0
5.0 mg/L
Short-term
52 t/yr
2
4.1 m
1
2.5 mg/L
Interim Targets
Medium-term
49 t/yr
1
4.9m
1
4.0 mg/L
Long-term
44 t/yr
0
5.5 m
0
5.0 mg/L
As a companion matrix to the implementation of your management practices, I/E activities,
and monitoring program, you should document how you will measure progress toward
reducing pollutant loads and meeting your goals. The criteria you select should correspond
to the management objectives in the previous table. ^t> A blank ^Worksheet 12-2 is
provided in appendix B.
12.9 Develop an Evaluation Framework
There are two primary reasons to evaluate your watershed program. First, you want to be
able to prove, or demonstrate, that by implementing the management measures, you are
achieving your water quality and other environmental goals. Second, you want to be able to
continually improve your program in terms of efficiency and quality. This adaptive manage-
ment process should be built into your program before implementation so that you ask the
right questions and use the answers to strengthen your program. Collecting information does
no good if you don't use the information to improve your watershed program.
You should develop an evaluation framework to use once you begin to implement your
watershed plan. The framework should be developed before implementation so that you can
effectively identify what measures you want to evaluate and determine how you will obtain
the information. You should recognize that you'll continue to build on the initial character-
ization, filling information gaps and refining the connections between sources, pollutants,
and load reductions. You'll adapt your implementation efforts on the basis of new informa-
tion collected, changes in the operational structure of your partnership, emerging technolo-
gies, and monitoring results.
12.9.1 What Parts of Your Program Should You Evaluate?
In general, you'll evaluate three major parts of your watershed implementation program to be
able to demonstrate progress and make improvements in your program. You need to struc-
ture your evaluation framework to consider all three components and develop indicators that
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
will measure each. The components are inputs, outputs, and outcomes. When filling in these
components, you'll work backward, starting with your desired outcomes (goals) and working
toward identifying the specific inputs needed to achieve those outcomes.
1. Inputs: the process used to implement your program. Inputs to your program include
resources of time and technical expertise, organizational structure and management, and
stakeholder participation.
Sample evaluation questions:
• Are the human and monetary resources allocated sufficient to carry out the tasks?
• Did stakeholders feel they were well represented in the process? (^ appendix B,
/"Worksheet 13-1)
2. Outputs: the tasks conducted and the products developed. These include the implementation
activities, such as installing management practices, developing brochures, holding work-
shops, and preparing fact sheets.
Sample evaluation questions:
• Are we meeting our implementation schedule?
• Are we meeting our milestones?
• Did we meet our milestones sooner than expected?
• Did we reach the appropriate target audiences with our I/E materials?
3. Outcomes: the results or outcomes seen from implementation efforts. These include increased
awareness and behavior changes among the watershed community, as well as environ-
mental improvements like water quality, habitat, and physical changes. Outcomes can be
further broken down into short-term outcomes and long-term outcomes.
Sample evaluation questions:
• Did the target audience increase its awareness of watershed issues?
• Did the behaviors of the target audience change as a result of implementing the water-
shed plan?
• Are we meeting our interim targets for pollutant load reductions?
• Are pollutant loads being reduced?
Once you've determined the questions you want to answer, you can set up the framework to
collect the necessary information. One approach to setting up an evaluation framework is to
use a logic model.
12.9.2 Using a Logic Model to Develop an Evaluation Framework
Many programs use a logic model (figure 12-1) to set up and evaluate their programs. The
model is an important tool in the adaptive management process because it allows you to
better document the results you find and helps you determine what worked and why. Logic
models have been used for years in social programs and are now being used in the context of
watershed management.
Basically, a logic model is a picture or visual representation of your program, showing the
inputs needed to implement your program, the expected outputs to be performed, and the
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Planning
o
1
+•>
c/5
INPUTS
OUTPUTS
OUTCOMES
Program
Investments
What we
invest
Staff, $$
^ Activities ^^^ Partic
pation ^^^ Short
-*
Medium ^^ Long-term
What we do Whom we What results we get
Audiences reach Practice adopted
reached
Activities
held
Materials
developed
Knowledge gained
Attitude changes
Evidence the knowledge is used
Policies implemented
Water quality improvement
Resource changes
• Evaluation ^^1
Figure 12-1. Logic Model Components
anticipated outcomes from implementing those activities. Using a logic model can help
you to better document the outcomes, discover what works and why, and continually make
changes to your program based on your evaluation results.
Using a logic model has several benefits. First, the model puts all the information about your
program in one place and can summarize a complex program in a simple picture. This is
particularly helpful when communicating key activities to stakeholders. A logic model also
shows the connections that link the inputs to results so that you can readily identify any gaps
in the sequence. Finally, a logic model provides a "to do" list for evaluation, signaling what
needs to be evaluated and when.
The basic structure of a logic model includes stating your situation or problem, recording the
inputs or resources needed, listing anticipated outputs, and ultimately outlining the expected
outcomes from the program. As you move from the inputs through the outputs and to the
outcomes, there should be a direct link between the steps. These links are called "if...then"
relationships. For example, if you invest the required staff time and resources (inputs), you'll
be able to conduct the outlined activities (outputs). If you conduct those activities, you'll see
the expected results (outcomes). Setting up a logic model this way can help you to identify
gaps and revise some of the parameters. See figure 12-2 for an example logic model for water
quality improvements.
^> The resources listed in appendix A provide more information on how to develop and use
logic models to evaluate your program.
12.9.3 Evaluation Methods
To evaluate your watershed program, you'll use various methods and tools, such as baseline
surveys, focus groups, direct measurements, and stakeholder interviews. The important
point is to determine what methods you will use before you implement your program. Iden-
tifying these methods will help make sure you are collecting information that will directly
relate to your program. For example, if you wish to do any before-and-after comparisons, you
should have baseline information with which you can compare the final results. The methods
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
INPUTS
OUTPUTS
OUTCOMES
\
Situation:
\
Because water \
quality in \
Pipestem Creek is \
not meeting \
designated uses \ \
due to sediment /
from cattle, the / s
cattle need to be / ,
restricted from /
the creek. /
/ L
|
Program
Investments ~
Vhat we invest
itate funds for
alary
Agency
artnerships
ocal ag experts
What we do
Educate
landowners
about benefit of
stream bank
fencing and
riparian buffers
demonstrations.
workshops
^ _ . .
Whom we
reach
Landowners
adjacent to
Pipestem Creek
1
"^
c.
Short-Term
Results
.andowners
earn benefits
rf fencing and
Duffers.
Landowners
with ag agents
Medium-Term
Results
Landowners
will restrict
cattle access
with fencing.
Landowners
buffers.
.
Long-Term
Results
Meet
designated
uses in
Pipestem
Creek
Figure 12-2. Logic Model Example
will be used to measure the indicators you have selected. For each indicator selected, you will
identify the method for measuring the indicator. ^> See appendix A for resources for evalua-
tion approaches.
12.9.4 Timing of Evaluation
Once you know what you want to evaluate and how you'll collect the information, you'll
develop a timeline for evaluation. Typically, you'll evaluate your watershed management
program four times. The first is once you've completed the plan but have not yet begun to
implement it. The second is during the implementation of project activities; the purpose of
this evaluation is to provide feedback on the activities so that changes can be made if needed
to increase their effectiveness. The third time is after the project activities have been com-
pleted; the purpose of this evaluation is to provide some measures of project effectiveness.
Finally, you will continue to evaluate after the project has been completed to observe its
effects. This is the most difficult aspect of the evaluation to complete because of lack of long-
term funding. You have the greatest chance of following through on this if you have built
your partnership into a sustaining organization to maintain continuity and stability through
the years. ^> Chapter 13 provides more information on conducting evaluations during the
implementation phase and shows how to use the information collected to make changes in
your program.
12.10 Devise a Method for Tracking Progress
Whether you track your implementation program by using index cards or create a computer
database tracking system, you should identify how you'll track your program before you
begin to implement it. Specifically, you want to set up a system that makes it as easy as pos-
sible to perform subsequent evaluations of your watershed plan's effectiveness.
First, examine the types of data that you'll collect to perform the evaluations and match
them to the appropriate formats. For example, if you want to perform periodic statistical
analysis to answer one or more types of evaluation questions, store data in a spreadsheet (or
a more powerful database program if you have large amounts of data for numerous indica-
tors) that can be linked to the analysis. If you plan to conduct spatial analysis and present
results in map form, storing information in a GIS database will be appropriate. You might
also be using a complex simulation model from your assessment on an ongoing basis and will
need to update and maintain it with new information. Whatever your plans for evaluation of
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Illinois Conservation Practices Tracking System
The Illinois Department of Natural Resources and the University of Illinois
Extension, in cooperation with the USDA's Farm Service Agency, initiated
a pilot program to develop a GIS-based information system to track
conservation practices being implemented in Illinois and, in particular, the
Illinois River Basin.
The project goals are (1) to provide baseline data to assess the efficacy of
conservation practices and management techniques in improving water
quality and habitat in the Illinois River Basin and (2) to create a tool that
will aid state and federal partner agencies in planning and implementing
watershed management activities within the Illinois River Basin, as well as
visualizing the individual and cumulative impact of programs.
To date, conservation easement data for approximately 123,000 acres
have been entered and mapped for all active Illinois Conservation Reserve
Enhancement Program (CREP), Conservation Reserve Program (CRP), and
Environmental Quality Incentives Program (EQIP) contracts in a six-county
area of the Middle Illinois River Basin.
The initiative will continue to expand programmatically and geographically,
with the eventual goal of creating a statewide system that tracks all
conservation management activities of agencies in Illinois.
the implementation program, be sure you
consider the types and uses of the data when
setting up the tracking system.
You should also consider how you plan to
communicate results to stakeholders and
other parties and determine your needs for
that process. Examine the format of the
results—are you communicating progress
in improvement of your indicators, costs of
management measures, a schedule of prog-
ress? Also consider your method of com-
munication—are you sending e-mails and
do you need to maintain an e-mail list, or do
you need a list server (a program for distrib-
uting e-mail to a large number of recipients)?
Are you sending newsletters through the
Postal Service and do you need to maintain
a database of names and addresses? If you
are planning to maintain a Web site, have
you arranged for access to a Web server,
and do you know the Web site address? Be
sure to plan for all of your data manage-
ment needs as they pertain to stakeholder
communication.
Next, think about staff experience, training, and ease of use. For instance, if you need to
input and track a large amount of water quality monitoring data and are using a database,
you might need to train others to use the database system. Alternatively, you could have a
database administrator develop data input forms that are easy to use and require little train-
ing. Web site design and maintenance require a certain level of expertise, depending on your
expectations about the quality and complexity of the Web site. A number of boxed programs
that make Web site design and maintenance relatively easy are available for purchase.
There are several administrative issues to consider as well. Be sure to plan for the following:
1. Process and ownership. Process refers to the procedures you set up to ensure that tasks
are performed and completed. Ownership refers to the specific person responsible for
carrying out each process. It's helpful to have processes written out in detail and easily
accessible by staff. This helps staff reference how to perform procedures that occur infre-
quently, and it facilitates transferring responsibilities when someone is out of the office
or leaves a position. Ownership is critical to ensuring that tasks are completed on time.
2. Maintenance schedule. This is an important component of defining processes. You
should determine a set timetable for various activities, such as data entry, Web site
updates, and database maintenance.
3. Quality assurance/quality control. Be sure to have procedures for QA/QC. For example,
you might want to have a manager responsible for examining data before they are entered
into a database to make sure the data are reasonable. You might want to have a third
party look over data that have just been entered. For correspondence or reports, you
should have someone else do proofreading.
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
4. Version history. In some cases it's important to maintain a file history. This is important
in tracking down errors and preventing important information from being overwrit-
ten. You might also want to refer back to previous versions to detect changes or report
on long-term progress. For files, you might find it helpful to insert the date and version
number into the filename itself (e.g., "Progress Report 3-25-05 V2.wpd"). For simulation
models, you might want to create a new directory each time you do a model run. GIS
files might also need a version history.
5. Metadata. Metadata means "data about data," and it communicates the who, what, when,
where, why, and how about data. You might want to maintain metadata about certain
aspects of project areas. For instance, a database could have metadata describing its
contents, who maintains it, the period it covers, sources of information, and so forth.
You should give special consideration to metadata for GIS files that you generate. In fact,
some state or federal agencies might require that you maintain GIS metadata in a specific
format if you're working under contract for them. You should document sources of data,
processing steps, definitions of database fields and their values, projection information,
and the like. Several scripts and plug-ins for ArcView help with metadata generation and
tracking, and ArcGIS has built-in functionality for this.
Remember that the high-quality work is key to maintaining credibility with your stakehold-
ers and with regulators. Through careful planning, attention to detail, and high standards
for accuracy, you will retain the respect of those that benefit from your work.
12.11 Putting It All Together
There is more than one way to assemble your watershed plan, but most plans follow a similar
sequence of organization. An example table of contents from the White Oak Creek, Ohio,
watershed plan is provided (figure 12-3). ^> To download a complete copy of this
watershed plan, go to http://brownswcd.org/action_plan.htm.
12.11.1 The Final Review
V Once you've assembled your watershed plan, take a few minutes to review
the sections. Ensure that you have included the recommended elements
for a watershed plan, which will help to ensure that you have identified
measurable goals that will lead to measurable results. Use the following
checklist (^Worksheet 12-3) as a guide. ^ A blank worksheet is provided
in appendix B. In addition, some states have developed checklists to help
groups submit watershed plans that meet the nine elements. ^C> Worksheets
from Michigan and Missouri are included in appendix B (^Worksheets 12-4
and 12-5).
12.11.2 Make the Plan Accessible to Various Audiences
Your plan provides an exceptional opportunity to educate the watershed community about
the key watershed issues, goals, and planned implementation activities. Consider developing
a reader-friendly summary version of the watershed plan, a short executive summary, or a
list of frequently asked questions that you can distribute to various audiences. Distribution
mechanisms could include mass mailings, handouts at community events, or articles in local
papers. A press release could also be used to communicate the availability of your watershed
plan for public comment or review. Press releases should be clear, straightforward, and free
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
White Oak Creek Watershed Plan
Plan Endorsement
Table of Contents
Acronyms
General Watershed Facts
Executive Summary
Project Partners
Section 1: Introduction
Mission Statement
Water Quality Goals
Comprehensive White Oak Creek Watershed Goals
Purpose of Action Plan
Updates and Revisions
Previous Water Quality Efforts
White Oak Creek Watershed Group
Development of the Action Plan
Education/Marketing Strategies and Outreach Goals
Education and Community Outreach
Section II: Inventory of the Watershed
Fact Sheet
Map of Watershed
Introduction
Physical Description
Administrative Boundaries
Districts
Demographics
Economics
Agriculture and Economy
Geology and Topography
Land Form and Slope
Soils
Land Uses
Livestock in Streams
Forested Areas and Riparian Corridors
Floodplains
Agriculture
Chemical Use Patterns
Precipitation and Climate
Surface Water Resources
Wetlands
Tributary
Groundwater Resources
Climate and Precipitation
Flow and Depth
Threatened and Endangered Species
Wildlife
Recreation
Historical Information
Historical Sites
Dams
Physical Attributes of the Stream and Floodplain Area
Section III: Water Quality Data
Point and Nonpoint Source Pollution
Designated Uses and Subcategories for Surface Water Resources
Aquatic Life Habitat
Water Supply
Recreation
State Water Resources
Aquatic Life Use Designations
Potential Contamination Sources
Overview of Water Quality Impairments
Section IV: Water Quality Issues
Critical Area Table
Major Water Quality Issues
Sedimentation and Loss of Riparian Area
Improperly Treated Wastewater
Excessive Nutrient and Pesticide Runoff
Section V: Load Reductions
STEPL Program
Section VI: Subwatershed Inventory
Subwatershed Introduction and Goals
1997 Use Attainment Status Summary
Individual Subwatersheds
Physical Description
Tributaries, Reservoirs, Dams, Special Features
Land Use
Point and Nonpoint Causes and Sources
Water Quality Results
Subwatershed Map
Impairments
Background
Problem Statement
Goals
Implementation Strategies/Task Table
Causes/Sources by Tributary
Inventory Spreadsheet
Section VII: Watershed Programs
Previous and active programs
Section VIM: Water Quality Monitoring
Introduction
Program
High School Volunteer Monitoring Sites
Monitoring Parameters
Macroinvertebrate Testing
Future Water Quality Monitoring Activities
Section IX: Funding and Evaluation
Funding Guideline
Evaluation Activity Table
Appendices
Figure 12-3. Table of Contents from White Oak Creek, Ohio, Watershed Plan
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
'worksheet 12-3 &0£(C Gowon&niS 0$ A y\)tf.ie>rsk&d PUn
Key watershed planning components
Include the geographic extent of the watershed covered by the plan.
Identify the measurable water quality goals, including the appropriate water
quality standards and designated uses.
Identify the causes and sources or groups of similar sources that need to be
controlled to achieve the water quality standards.
Break down the sources to the subcategory level.
Estimate the pollutant loads entering the waterbody.
Determine the pollutant load reductions needed to meet the water quality goals.
Identify critical areas in which management measures are needed.
Identify the management measures that need to be implemented to achieve the
load reductions.
Prepare an I/E component that identifies the education and outreach activities
needed for implementing the watershed management plan.
Develop a schedule for implementing the plan.
Develop interim, measurable milestones for determining whether management
measures are being implemented.
Develop a set of criteria to determine whether loading reductions are being
achieved and progress is being made toward attaining (or maintaining) water
quality standards, and specify what measures will be taken if progress has not
been demonstrated.
Develop a monitoring component to determine whether the plan is being
implemented appropriately and whether progress toward attainment or
maintenance of applicable water quality standards is being achieved.
Estimate the costs to implement the plan, including management measures, I/E
activities, and monitoring.
Identify the sources and amounts of financial and technical assistance and
associated authorities available to implement the management measures.
Develop an evaluation framework.
Chapter Done? Comments
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4, 5, 8, 9
4,5,6
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7,9,10
10,11
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6,12
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AppxC
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of unnecessary words or details. The goal of a press release is to arouse the curiosity of
reporters and furnish information they can use in developing new stories to publicize your
plan.
You should also consider posting the watershed plan on the Internet. With a Web-based
format, readers can view the document at their leisure and you can easily update the plan
as necessary. In addition, you should provide background information on the Web site that
describes how the plan was developed, who was involved in developing it, and how citizens
can get in involved in implementing it. Keep in mind that the downloading capabilities and
processing speeds of computers vary widely, so you should allow readers to choose which
format they would like to view or download, depending on their computer capabilities. The
Upper Neuse River Basin Association posted the Upper Neuse Watershed Management Plan
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
on its Web site (^C> www.unrba.org/projact.htm#mgmtplan) in May 2003. Since the plan
was posted, it has been downloaded more than 850 times.
When it comes to publicizing your watershed plan, be creative. Team with local schools to
build watershed lessons into science curricula. Develop a slide presentation on the watershed
plan and present it at Master Gardeners or Kiwanis Club meetings. Try to piggyback on the
efforts of other organizations to help spread the word about the watershed plan. Finally, be
inclusive in your efforts to get the plan out. Be sure to develop written communication in all
languages relevant to your community and across various education levels.
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Chapter 12: Design Implementation Program and Assemble Watershed Plan
General Outline of a Watershed Plan
1. Executive Summary
2. Introduction
2.1. Document Overview
2.2. Planning Purpose and Process
2.2.1. Watershed Management Team
2.2.2. Public Participation Approach
3. Watershed Description
3.1. Physical and Natural Features
3.1.1. Watershed Boundaries
3.1.2. General Hydrology
3.1.3. Climate/Precipitation
3.1.4. Wetlands (NWI) Data
3.1.5. Surface Water
3.1.6. Ground Water Resources
3.1.7. Floodplain Information
3.1.8. Dams in the Watershed
3.1.9. Navigation Channels/Ports/Harbors
3.1.10. Topography/Elevation Data
3.1.11. Geology and Soils
3.1.12. Vegetation
3.1.13. Exotic/Invasive Species
3.1.14. Wildlife
3.1.15. Endangered Species
3.1.16. Sensitive Areas
3.1.17. Cultural Resources
3.2. Land Use and Land Cover
3.2.1. Open Space
3.2.2. Forested Areas
3.2.3. Agricultural Practices
3.2.4. Mining Activities
3.2.5. Fisheries
3.2.6. Developed Areas
3.2.7. Political Boundaries
3.2.8. Relevant Authorities
3.2.9. Future Land Use Expectations
3.3. Demographic Characteristics
3.3.1. Population
3.3.2. Economics
3.3.3. Languages
4. Watershed Conditions
4.1. Water Quality Standards
4.1.1. Designated and Desired Uses
4.1.2. Numeric Criteria/ State Standards
4.1.3. Antidegradation Policies/Procedures
4.2. Available Monitoring/Resource Data
4.2.1. Water Quality Data (Impairments/Threats)
4.2.2. Flow Data
4.2.3. Biological Data
4.2.4. Stream Corridor Data
4.2.5. Sediment and Other Data
5. Pollutant Source Assessment
5.1. Nonpoint Sources
5.1.1. Agriculture
5.1.2. Wildlife
5.1.3. Septic Systems
5.1.4. Silviculture
5.1.5. Urban/Suburban Runoff
5.1.6. Streambank Erosion
5.1.7. Atmospheric Deposition
5.2. Point Sources
5.2.1. NPDES Permitted Facilities
5.2.2. Wastewater Treatment Plants
5.2.3. Phase I and II Stormwater Permits
5.2.4. CAFO Permits
5.3. Hazardous Waste Sites
5.3.1. CERCLA Sites
5.3.2. RCRA Sites
5.3.3. Brownfields
5.3.4. Underground Storage Tanks
5.4. Mines and Other Pollutant Sources
6. Pollutant Loads and Water Quality
6.1. Estimate of Existing Pollutant Loads
6.2. Future/Buildout Pollutant Load Estimates
6.3. Identification of Critical Areas
7. Watershed Goals
7.1. Management Objectives and Indicators
7.2. Key Pollutant Load Reduction Targets
8. Identification of Management Strategies
8.1. Existing Management Strategies
8.1.1. Structural Controls
8.1.2. Nonstructural Controls
8.2. Other Strategies Needed to Achieve Goals
8.2.1. Structural Controls
8.2.2. Nonstructural Controls
9. Implementation Program Design
9.1. Management Strategies Overview
9.2. Schedule of Activities
9.3. Interim Milestones
9.4. Indicators to Measure Progress
9.5. Costs and Technical Assistance Needed
9.6. Information/Education Activities
9.7. Monitoring Approach
9.8. Evaluation Framework
10. Watershed Plan Implementation Updates
Appendices
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Handbook Road Map
1 Introduction
2 Overview of Watershed Planning Process
3 Build Partnerships
4 Define Scope of Watershed Planning Effort
5 Gather Existing Data and Create an Inventory
6 Identify Data Gaps and Collect Additional Data If Needed
7 Analyze Data to Characterize the Watershed and Pollutant Sources
8 Estimate Pollutant Loads
9 Set Goals and Identify Load Reductions
10 Identify Possible Management Strategies
11 Evaluate Options and Select Final Management Strategies
12 Design Implementation Program and Assemble Watershed Plan
-•13 Implement Watershed Plan and Measure Progress
13. Implement Watershed Plan and
Measure Progress
Creating an organizational structure
Implementing activities
Preparing work plans
Sharing results
Evaluating your program
Making adjustments
Read this chapter if...
• You want to know what to do after you've developed the
watershed plan
• You want to get organized for implementation
• You're ready to implement activities
• You want to prepare work plans that will outline implementation
activities over time
• You'd like to share the results of your effort
• You want to evaluate your program
• You need to make adjustments to your watershed plan
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
13.1 What Do I Do Once I've Developed My Watershed Plan?
Although you've expended a tremendous effort to develop your watershed plan, remember
that it is nothing if you don't implement it. Although many watershed planning handbooks
end with development of the plan, the plan is just the starting point. The next step is to
implement the plan in your watershed. Implementation can begin with an information/
education (I/E) component or with on-the-ground management measures. Remember that
implementation activities should follow the road map developed in your plan.
When implementation begins, the dynamic of your watershed group, as well as stakeholders'
level of participation, might change. This is the time when most members of your watershed
group are really excited that something more than a written plan will come out of the plan-
ning efforts. This chapter offers tips and suggestions on measuring implementation progress,
determining when you need to make changes to your current plan, and sharing the results of
your efforts with the rest of the community.
13.2 Create an Organizational Structure for Implementation
After the plan is completed, you need to determine how you want to continue to operate.
Don't just assume that you'll proceed with the same group that helped to develop the plan.
Take a hard look at the planning team and ask the team members if they want to continue
to be involved in implementing the plan. It's useful to ask the stakeholders to evaluate the
process used to prepare the watershed plan so that you can improve on the process during
implementation. Use ^Worksheet 13-1 to ask your stakeholders for input. ^ A blank copy
of the worksheet is provided in appendix B.
Identify any gaps in skills or resources, and try to find some new faces with skills, energy,
and enthusiasm to move the ball forward. Consider creating a watershed implementation
team made up of key partners, whose responsibilities include making sure tasks are being
implemented, reviewing monitoring information, identifying or taking advantage of new
funding sources, and sharing results.
Make sure, however, that new players that join the team are committed to the plan and its
goals. Seek a balance between bringing in new ideas and energy and allegiance to following
through on your hard-won plan.
To help ensure that you can continue to implement your watershed plan for many years,
consider "institutionalizing" your watershed team. Try to create several positions that are
funded by outside sources to provide continuity and stability. These positions might reside
in other organizations but are tasked with administering the watershed plan. For example,
the county might fund a part-time watershed coordinator out of the environmental planning
department to assist with implementing your watershed plan.
If you want to make your partnership official, many guides explain how to create a nonprofit
organization such as a 501(c)3. Having this designation is often useful in applying for fund-
ing from foundations. ^C> Go to www.501c3.org for information on how to set up a nonprofit
organization.
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Chapter 13: Implement Watershed Plan and Measure Progress
/"worksheet 13-1 &Uo/iU yQ&ersM. Gitfk&koldw Govwwtt&6
Possible Evaluation Questions for Participants
Purpose: To determine how the level of participation in the Watershed Stakeholder Committee has changed over the past 2 years and why,
and to assess the usefulness of the Committee.
Name/Affiliation:
Participation
1. How many Watershed Stakeholder Committee meetings have you participated in over the past 2 years?
2. If you have not participated in all the meetings, what factors would have increased your participation?
Q Hosting the meeting closer to where I live.
Q Hosting the meeting at a time that was more convenient for me, such as
Q Providing more advance notice of where and when the meeting was to be held.
Q Including topics for discussion that were more relevant to my interests.
Q Other:
Group Structure
1. Do you feel the size of the group was adequate? Please explain.
2. Do you feel the composition of the group was representative of the watershed community? Please explain.
Group Input
1. Do you feel the meetings were held to optimize participation from the attendees? Please explain.
2. Do you feel that your input was incorporated into the watershed management planning process? Please explain.
Overall Recommendations
1. What do you think are the most useful aspects of the Watershed Stakeholder Committee?
2. What do you think can make the Watershed Stakeholder Committee more useful?
3. Would you like to be involved in future watershed protection efforts?
13.3 Implement Activities
Implementing the watershed management plan involves a variety of expertise and skills,
including project management, technical expertise, group facilitation, data analysis, com-
munication, and public relations. Your watershed plan implementation team should include
members that can bring these skills to the table. The management measures you selected,
schedules and milestones you set, financial and technical resources you identified, and I/E
programs you developed in the course of assembling your plan provide a road map for imple-
mentation. Follow it. Take advantage of the partnerships you formed during plan develop-
ment to work toward efficient implementation of the plan.
Key implementation activities include the following:
• Ensuring technical assistance in the design and installation of management measures
• Providing training and follow-up support to landowners and other responsible parties
in operating and maintaining the management measures
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
• Managing the funding mechanisms and tracking expenditures for each action and for
the project as a whole
• Conducting the land treatment and water quality monitoring activities and interpret-
ing and reporting the data
• Measuring progress against schedules and milestones
• Communicating status and results to stakeholders and the public
• Coordinating implementation activities among stakeholders, among multiple jurisdic-
tions, and within the implementation team
To keep the implementation team energized, consider periodic field trips and site visits to
document implementation activities in addition to the necessary regular team meetings.
13.4 Prepare Work Plans
You'll use your overall watershed plan as the foundation for preparing work plans, which will
outline the implementation activities in 2- to 3-year time frames. Think of your watershed
plan as a strategic plan for long-term success; annual work plans are the specific to-do lists
to achieve that vision. Work plans can be useful templates for preparing grant applications to
fund implementation activities. Depending on the time frame associated with your funding
source, your work plan might need to be prepared annually with quarterly reporting. It's
also possible to update work plans and make some changes, within the original scope of the
work plan, as needed. However, completely changing the focus of the work plan after receiv-
ing funding is unacceptable to most funding sources. Table 13-1 presents similarities and
differences in the scope and breadth of a hypothetical watershed plan with a hypothetical
319 grant application/work plan for the same area. A written work plan would go beyond this
tabular format and explain each parameter in much greater detail.
There are two other key pieces of information to include in your work plans. To help keep
track of what will need to be done in the future, it's important to document what will not be
done in your proposed work plan that relates to the overall watershed plan. This approach
helps to provide continuity from year to year. In addition, you should indicate other activities
that will be conducted using other funds, as well as activities conducted by other cooperating
groups as part of the watershed plan implementation.
13.5 Share Results
^t> As part of the I/E program developed in chapter 12,
you should have included opportunities to publicize the
plan to increase awareness of the steps being taken during
implementation. Continuous communication is essential
to building the credibility of and support for the water-
shed implementation process. Lack of communication can
impede participation and reduce the likelihood of successful
implementation. This is especially critical if you're using
a stakeholder-driven process. Transparency of the process
builds trust and confidence in the outcome. Regular com-
munication also helps to strengthen accountability among
watershed partners by keeping them actively engaged. Such
communication might also stimulate more stakeholders to
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Chapter 13: Implement Watershed Plan and Measure Progress
Table 13-1. Comparison of Example Parameters in a Hypothetical Watershed Plan and 319 Work Plan
Parameter
Lake Fraser Watershed Management Plan
319 Work Plan #1
Period
2003-2013
2003-2006
Geographic scope
180,000 acres
24,000 acres
Critical areas
52,000 acres
7,000 acres
Goal statement
Improve watershed conditions to support sustainable
fisheries
Reduce sediment loadings from priority
subwatershed X
Example objectives
and key elements
Increase the Index of Biotic Integrity (IBI) from 30 to 75
Identify causes and sources of sediment
Identify load reduction expected
Identify management practices needed
Identify critical areas
Treat 5,000 acres of cropland with crop
residue management (CRM) practices
Install six terraces to treat 1,200 acres
Establish five buffer strips for a total of 8,000
feet
Implementation
CRM: 2,000 acres of row crop/year into CRM
Terraces: 4 fields/year, 40 fields total
Buffers: restore 1 to 1.5 miles of riparian area/year,
8 miles total
Field buffers: 100 fields total
Develop training materials on CRM in year 1
Hold two workshops each in years 2 and 3
2 terraces/year
One buffer strip in first year and two each in
years 2 and 3
Costs
$4.02 million over 10 years
• $800,000 for information and education (I/E)
• $600,000 for monitoring and reporting
• $1,980,000 for buffers (18,000 acres at $110/acre)
• $140,000 for 40 terraces
• $500,000 for CRM
$250,000 over 3 years
• $50,000 to prepare training materials and
give five workshops on CRM
• $160,000 for management practice cost-
sharing
• $40,000 for monitoring and reporting
Schedule
Begin slowly and accelerate (build on successes)
Establish interim milestones
- Cropland: 2008 - reduce soil erosion by 80,000
tons/year
- Streambanks: 2006 - stabilize 10,000 feet of eroding
streambanks
- 2010 - stabilize 30,000 feet of eroding streambanks
Push I/E early and complete by year 6
Prepare annual reports that track progress
Coordinate with partners
See above
Annual progress reports
Monitoring
Environmental - water quality, IBI, acres treated, tons of
soil erosion reduced, feet of streambank stabilized
Administrative - contracts approved, funds expended,
and funds obligated
Social - landowners contacted
Changes in public understanding resulting from I/E
Attendance at CRM training workshops
Acres of cropland using CRM
Feet of stream buffers established
Feet of field buffers established
Number of terraces
Environmental: reduction in sediment loads
Administrative: contracts approved and
funds expended
Social: landowners contacted
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
get involved in the effort and offer new ideas or suggestions. Sharing results can also help to
ensure more consistent watershed approaches across subwatersheds.
The many stakeholders that have invested time and money
.. ,. , . .,,. in the watershed plan will want to know if the plan is mak-
More ideas regarding sharing success are provided in . ...... „. ,,,.,, , ,
the Section 319 Nonpoint Source Success Stories at m§ a difference. They re also likely to want to know what
www.epa.gov/owow/nps/Success319 resources have been used to make that difference and what
resource gaps remain. You can be accountable to stakehold-
ers by regularly reporting information. You should provide
information on interim results and report the ways in which the plan is working and how
you plan to address the deficiencies. Encourage stakeholders to contribute ideas on how to
make improvements.
Progress and implementation results can be shared through various media formats, such as
press releases, ads in local newspapers, television or radio public service announcements,
or presentations at community meetings such as those of homeowner associations and local
civic organizations, PTA meetings, or other gatherings of members of the watershed com-
munity. You could secure time on the local cable access station to discuss the watershed plan
and share monitoring results with the public. You might also consider hosting a press confer-
ence with local officials and the stakeholders as a way to thank them for their participation
and to inform the larger community about the plan's contents and how they can participate
in implementing the plan. (*i> See section 12.2.2 on developing an I/E program.)
Remember to publicize the project team's accomplishments to county commissioners, elected
local and state officials, watershed residents, and other major stakeholders. The group might
wish to issue a watershed "report card" (figure 13-1) or develop a fact sheet, brochure, or
annual report to highlight its successes. Report cards let the community know whether water
quality conditions are improving overall. They also allow people to compare results across
specific areas to see if things are improving, whether some aspects seem to be connected,
and whether a change in direction is needed to bring about greater improvements. This is an
effective way to build awareness of the watershed issues and the progress of watershed plan
implementation. In addition, when people see progress, they'll continue to work toward mak-
ing the plan a success.
13.6 Evaluate Your Program
Once you've started to implement your watershed plan, you need to monitor both water qual-
ity and land treatment to ensure smooth implementation and to measure progress toward
meeting goals. The adaptive management approach is not linear but circular, to allow you to
integrate results back into your program. You need to create decision points at which you'll
review information and then decide whether to make changes in your program or stay the
course. Figure 13-2 illustrates how the adaptive management approach feeds back into your
program based on information gathered from monitoring and management tracking. As part
of your evaluation efforts, you'll periodically review the activities included in your work plan
and the monitoring results to determine whether you're making progress toward achieving
your goals.
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Chapter 13: Implement Watershed Plan and Measure Progress
Reading Watershed Report Cards
Above Harsho Born, oppnoximoielv 9 monrtonng stolions in
Clwmwii and hewn itujniies uenerote biological and water
quality data. The map shows the location of these stations and
provides a report card that summarizes Itw h*olth of It*
watershed at each station. Report cards for this portion of the
watershed illustrate information included in the EFLMfi 2000
Wotfr Quality AwMment repoflj the EflMf Wow Quolty f»«
Year Slows ond Trends 11996-2000] report, end recent
biological monitoring reports.
Oiher counties in the wolershed currently do noi hove on
extenswe rnonnonng nehwrti in place. However, C#wo EPA
does monitor these portions of Ihe watershed as part ol its
waler quality osscssmcnl program The map hlghlighls a lew
of ihe stream segments ihot ohto ER4 ossessed and included EFRM 60.6
in the Tsar ZOOO Oh to Waler Resource Inventory report. The ["*
color coded Elreams on Ihe map represent the differenl
wg menrs assessed by Ohio EPA EachcokK-codedstream
hos its own report card ihot reflects condihons throuohout the
teoslhotthQlseametil.
Example Report Card
STATION !•».»».
Monitoring Our
Watershed's Health
A doctor determines if we are healthy by taking
our temperature, ihedung our pulse und
listening To our rwnrthpnl To rlptpmnhe It our
wolershed u healthy, we have ID look tor certain
signs in and along streams. Several partners in
the EFUAft watershed inducing Clermonl County
ond the Ohio Environmental Protection Agency,
continuously check on the
health ul the wuterbl i«J
through monitoring
programs. Oaia collected
through monitoring programs
tell us if the health of our
watershed is improving over
time, and help us to
determine the causes and
sources ol pollution problems
Highlighted Point and Nonpotnt Sourots
O W**l« Wa<»r TrMlrmnt Plant*
v Gwel Mining
CoW Courvvc
/« of ttonso S»p4Jc Syitomt
Imfcntrtri Land
i New Housing Dovftlapmtntft Sine* 1996
A Lcrxtnilt
n M«mi1«etur*d Home Parfcs
Monitor ing SUIinn
• WaurQuMKy
Biotogfctl and Water Quality
* --'.'
Tributary to Crone Rufi
in Clermont Co-unty
Focus:
Biological Monitoring
Braluyid nunilrjiing Iraiks the nunibti ond Ifpt ol
Ibh ond ifintic in:«u living in the mnrnj. More pollulnnl
G ond iilalGront tpcfJK indirntin Ihe itream n heollhv.
THINK Whcrt report cards show poor habitot quality?
ABOUT What or* thfl conditions of fish and insects on these report cards?
THIS... what is nappwiing in the watwshed tttat might expton th*» conditions?
Monitor Your Meals:
Fish Consumption
Advisory lor the
East Fork
monitoring information
shows thcrt five types of sport fish in the
CflMR watershed contain low Iwek of
rtwthyt mercury—o form of mercury
tunwrled by Luitferki in sediiTients and
pnssfld up thrnugh tfw fnod rhnln [Merairy
occurs m nature, but certain sources, such as
coal-burning power plants, may release
more to Ihe environment.I
The fish ronsumptlnn nrMsory for the FFlMR
water shed recommendis limiting your meals
of dxinnel ctrlli&li. ttalhead cotfi&h.
smallm-outri bass, rock bass, and spotted
bass 10 one S-ounce servirwj per monih-
5«nsrtrv« populottons, including pregnant
wumun and yuuny thildrun, slujuld limit
mfinh of thn flvs flsh from the fRMR
watershed to one meal even/ two months.
Focus: Water Quality Monitoring
Water quality monitoring meouirei levels of pollutants In the wader.
Reunl monilDring dala for the tribulnriei dirtxtly (lowing into Eail Fork
Lab bihibil predominanlly fair or poor water quality conditions, The
tffltion at [\\tt.f Run raltom poor rondiiions related tn nutrients, and fair
uodilions raided to boderio. Nutritnl doto exhibit oood (OflditJow ol
itie Cabin Run itaiion, olihough dissolved oiygen dota depict o declining
trend nnd bartcria dala ihnw fair rondttlom Monitoring data collectDd
ol KOMI Run show poor (onditioni (or phm wostewoter ireoiment plants, falling on-jite septic systems, and
Indloh. High levels of bwtetio can limit our ability la use KM
wotershed for recreation! purposei due to the potential for serious
Ulnes
Nutmnti tollKTivcly refer to phasptiorus ond nitrogen found in
fertilizer*, manure, and sewage High leveh of nutrienh ion rouie
exuurvt a\yos to grow, and con haw on import cm diuohvd oxygen
levels needed to sustain oqiwtk life.
Metals include pollutants such as copper, lead, ond line found in
Industrial wastewoter and runoff from hlgrwoys High lewis of motols
ion uw» health pioblurm, suili as deformities, in both people and
THINK In wticrf ways could fair
ABOUT or poor conditions related
THIS... to bacteria and nutrients
impact the uses of East Fork Lake?
Focus: Habitat Evaluation
The condition of o strum's habitat
pkrrs o key role In Ihe heahh ol frsh
and aquatic imech, as well as ana
water quality Onto EPA evaluates
many asperft ol Kobitai quolity
High quality stream habitat has
several features, including:
4 Overhanging vegetation that
cronies diode and food;
* Rotlry strum bottoms thot provide habitat ond tolled food
sources;
* Wide vegetated areas along the stream bank that help to
prevent erosion; ond
t Inlacl natural shape and slope of the stream la prevent
erosion and flooding
If o habitat etoluotion wools poor habitat quality* it is like!)1
thai biological monitoring doto will reflet? unhealthy (ondifionj.
What Impacts the Health
of Our Watershed?
What we do on the kind atlects the neotth of our
watershed Pollution that enters our watershed originates
from numerous sources, depending on surrounding land
USAS,
* Point source
JijjQUT Whwe on most
through o
pip* or another distinct location Point sources
include disclwrges from wastpwater treotmeni plants
and industrial facilities. Water discharged from these
sources to Ihe watershed may contain bacteria, toxic
(,titflTir(.uh>, uinj nutriytiti, Diitliuryy periruli tiyljj ty
control pollution from these sources.
* Nonpofcit source pollution does not come from one
distinct location—it conies From many places within
the watershed, such as the roods and parking lots of
urban areas ond the fteWs and pastures of farms, As
rainfall moves over the land, it picks up pollutanis,
such os sediment, rxKterto. nutrients, and toxk
chemicals, ond carries them into the streams of the
watershed Controlling this type of pollution is difficult
OTKJ requires the
help of THINK What ore tome of
everyone in the ABOUT the nonpoln* sources
watershed THIS., shown on ttw map?
Figure 13-1. Watershed Report Card for Clermont County, Ohio
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
INPUTS
OUTPUTS
SHORT-TERM
OUTCOMES
LONG-TERM
OUTCOMES
Depending on
results, continue
implementation
YES-
Identified why not
meeting
targets/milestones
•NO-
• Review types of BMPs, rates at
which they were installed,
maintenance practices
• Review I/E activities, target
audiences, messages, formats,
distribution methods
• Review monitoring parameters,
sampling locations
• Review budget expenditures,
administrative functions
1 Meet financial
targets
1 Meet interim
milestones
1 Change
behaviors
1 Meet interim
load reduction
targets
•YES'
1 Performed
within budget
1 Met milestones
1 Met load
reduction
targets
1 Changed
behaviors
1 Met WQS
• NO
Figure 13-2. Example Adaptive Management Approach Using a Logic Model
13.6.1 Track Progress Against Your Work Plans
As part of developing your implementation plan, you devised a method for tracking prog-
ress (^> section 12.10). Using that tracking system, you should review the implementation
activities outlined in your work plan, compare results with your interim milestones, provide
feedback to stakeholders, and determine whether you want to make any corrections. These
reviews should address several key areas:
• The process being used to implement your program. This process includes the administra-
tive and technical procedures used to secure agreements with landowners, develop
specifications, engage contractors, and the like.
• Progress on your work plan. Check off items in your annual work plan that have been
completed.
• Implementation results. Report on where and when practices have been installed and
have become operational.
• Feedback from landowners and other stakeholders. Review information on the stakehold-
ers' experience with the implementation process and with operation and maintenance
of the practices.
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Chapter 13: Implement Watershed Plan and Measure Progress
Evaluate Your Data Routinely
This time series plot of total Kjeldahl nitrogen (TKN) data collected in three
Vermont watersheds illustrates the importance of frequent data evaluation.
Obviously, something happened around May 1996 that caused a major shift
in TKN concentrations in all three streams. In addition, it is clear that after
October, no values less than 0.5 mg/L were recorded. In this case, the shift
was not the result of some activity in the watersheds but an artifact of a faulty
laboratory instrument, followed by the establishment of a detection limit of
0.50 mg/L. Discovery of this fault, although it invalidated a considerable
amount of prior data, led to correction of the problem in the lab and saved
the project major headaches down the road.
Schedule reviews regularly and formalize
the routine procedures. A simple way to
gather this information is to provide work-
sheets to the project team at their regularly
scheduled meetings. Use ^Worksheet 13-2
to check in with the group and evaluate how
things are going. ^> A copy of the worksheet
with detailed questions is provided in appen-
dix B. Maintain agendas, minutes, and other
records so that important issues and deci-
sions are well documented. Consider tying
each meeting to a simple progress report
so that all team members stay up-to-date.
Above all, involve all team members, not just
those directly involved in the specific items
outlined above. Communication and shar-
ing of knowledge among team members are
essential ingredients for success.
13.6.2 Analyze Monitoring Data
As part of the monitoring component devel-
oped in section 12.6, you have determined
how and where the data are stored, how fre-
quently they are compiled and analyzed, the
types of analyses that will be performed, and
how results will be interpreted. Two types
of analyses should be considered during the
implementation phase: (1) routine summary
analysis that tracks progress, assesses the quality of data relative to measurement quality
objectives (i.e., whether the data are of adequate quality to answer the monitoring question),
and provides early feedback on trends, changes, and problems in the watershed and (2) inten-
sive analysis to determine status, changes, trends, or other issues that measure the response
to the implementation of the watershed plan.
Routine summary analysis should examine both water quality and land treatment monitor-
ing data fairly frequently. Simple, basic data analysis should be done at least quarterly as
part of the regular review process. Progress reports (self-imposed, not necessarily reports to
funding agencies or the public) and regular team meetings are effective ways to accomplish
this. Even though the process might seem demanding, early suggestion of trends or problems
- Series 1 Series2
SeriesS
^Worksheet 13-2
Topics io Oiscwss
Administrative and management activities
I/E activities
Monitoring activities
Additional issues
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Review Your Land-Treatment Tracking
Data
Inventory of practices/measures implemented
Where and when were measures implemented?
Consider locating implementation as points or areas in
a geographic information system (GIS) and developing
standard maps.
Status of practices/measures implemented
How were structural measures built or maintained?
Are landowners following management practices? For
practices that "grow in" such as riparian buffers, report
on growth of vegetation.
Index of effects of Implementation
What is the magnitude of implementation? What are
the estimated effects? In agricultural watersheds, for
example, the number or proportion of acres treated or
animal populations under management practices in
the critical areas can be useful indices of how much
treatment has been implemented. Where land treat-
ment tracking data allow, report estimates of changes
in nitrogen and phosphorus application under nutrient
management. If possible, estimate changes in soil
loss using tools like the Revised Universal Soil Loss
Equation (RUSLE).
can prevent major headaches down the road by detecting
changes or problems early. Feedback from monitoring can
be invaluable in tracking the effectiveness of your plan and
making small adjustments. To promote consistency and
continuity, consider appointing a single team member as the
primary gatekeeper for routine data analysis.
Routine data analysis in this context does not have to be
complex or sophisticated. Your primary goals are to make
sure that your monitoring effort is on track and that you get
a general sense of what's going on in your watershed.
Because many watershed activities can affect nonpoint
source loads, you should pay attention to broad watershed
land use patterns such as overall land use change (e.g., aban-
donment of agricultural land, timber harvest, large urban
development); changes in agriculture, such as acres under
cultivation or animal populations; and changes in watershed
population, wastewater treatment, stormwater management,
and so forth. An annual look at watershed land use is prob-
ably enough in most cases.
Types of Data Analyses
In general, intensive data analysis should be conducted at
least annually in a multiyear watershed plan. The types of
data analyses you perform on the monitoring data depend on
the overall goals and objectives, the management approach,
and the nature of the monitoring program; several types
of analyses might be appropriate depending on the monitoring questions. For example, an
assessment of the Clinch River watershed in Virginia used a variety of statistical analyses
to relate land use/land cover data and biological or stream habitat indices. Some of these
analyses involved relatively simple procedures, such as correlations between percent urban
area and fish Indices of Biotic Integrity (IBIs). Other analyses were more complex, involving
multivariate procedures such as clustering, multiple regression, or factor analysis to tease
out the stressors most responsible for fish community impairments in the watershed. Where
analysis and evaluation of management practices are the focus of monitoring, it might be fea-
sible to use relatively simpler analyses, such as t-tests comparing indicator levels before and
after implementation, levels above and below implementation sites, or levels in areas where
management options were implemented and areas where they were not. Where adequate pre-
implementation data are not available, trend analysis can be used to look for gradual changes
in response to your implementation program. In some cases, more sophisticated statistical
techniques like analysis of covariance might be required to control for the effects of varia-
tions in weather, streamflow, or other factors.
Determine Who Should Review the Data
Monitoring data might need to be reviewed by several types of personnel depending on the
complexity of the data. For large watershed projects, it's often necessary to enlist the help of
an expert in GIS applications because maps and land use relationships are usually critical
to the analyses. A statistician is often required to review the data and help design appropri-
ate analyses. Note that even the most capable statistician cannot completely compensate for
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a weak monitoring design. Consult a statistician during the
development of your monitoring design (^t> section 12.6).
Additional specialists might be necessary depending on the
types of data reported. For example, a toxicologist should
review toxicity data and a biologist should review bioassess-
ment data. Finally, the watershed coordinator should review
the results of analyses to ensure that they are on track and to
help determine whether midcourse changes are needed.
Run Models to Compare Actual Results with
Predicted Results
Under some circumstances, models might be useful to evalu-
ate the progress of implementing your plan. You can, for
example, compare the predictions of a model that has been
validated for your watershed against actual monitoring data.
Such a comparison can confirm that you are on track toward
your load reduction goals or can tell you that something is
amiss. If data do not match predictions, you might be able
to track down possible reasons. The failure of a treatment
measure to reduce pollutant load as expected, for example,
could be due to problems in installation or management that
can be corrected.
Models are also useful when you need to extrapolate moni-
toring data to the watershed scale. For example, you can't
monitor every inch of stream and runoff from every square
inch of land. In fact, often you'll be lucky if there are moni-
toring stations (or more than a couple) in your watershed.
With modeling techniques, you can sometimes extrapolate
data from monitoring stations to other locations to check
instream flows, concentrations, loads, or other parameters.
Review Water Quality Data
Evaluate data collection effectiveness and data
quality
Are all planned samples and measurements being
collected? If not, why not? Are there technical,
logistical, laboratory, or financial issues? Are
measurement quality objectives being met? Is the
laboratory meeting the stated detection limits and
quality control standards?
Screen data
Are the data reasonable? Are there major outliers that
suggest sampling or analytical errors that require
attention or something going on in the field that needs
investigation?
Conduct exploratory data analysis
What can the data tell you? Characterize the data with
simple descriptive statistics like mean, median, and
standard deviation. Plot the data as a time series that
is added to each quarter. This approach allows the
team to visualize seasonal patterns, compare data from
different locations, and compare current data with data
from previous years.
Look at supporting data
What other data are available to support your
monitoring? Weather data from the local National
Weather Service station, for example, are often key to
explaining patterns in your data and putting the data
in context. Was this year unusually wet or dry? Did a
100-year storm occur in part of the watershed?
However, always use models with caution. You should not
use models as the sole means of assessing progress or evalu-
ating the effectiveness of your efforts. Models incorporate many assumptions about how
management practices perform, and without good monitoring data, model predictions can
overstate or misstate changes in water quality. In the Chesapeake Bay, for example, model
results have suggested major reductions in pollutant loads that are not borne out by monitor-
ing data, leading to a great deal of controversy and uncertainty over the status and direction of
the Bay restoration plan. Always remember that you're working to reduce pollutant loads to a
real waterbody and that is where you should look to evaluate the effectiveness of your plan.
13.7 Make Adjustments
If you've determined that you are not meeting the implementation milestones or interim tar-
gets that you set for load reductions and other goals, what should you do? There are several
possible explanations for why you haven't met your interim milestones or why pollutant loads
aren't being reduced. Sometimes it takes much longer to see results in the waterbody than
anticipated. Sometimes management practices have been installed but are not being used or
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maintained properly so they have lost their effectiveness. Before making any modifications to
your watershed plan, ^> ask yourself the questions in sections 13.7.1 and 13.7.2.
13.7.1 Not Meeting Implementation Milestones
Did weather-related causes postpone implementation?
Installation of many management practices depends on favorable weather conditions. If you
were unable to install these practices because of weather conditions, you might want to stay
the course, assuming you'll be able to install them in the near future.
Was there a shortfall in anticipated funding for implementing management
measures?
You might have identified funding sources to implement several of the management mea-
sures. For example, the availability of crop subsidies or funding for cost-share (e.g., USDA
Environmental Quality Incentives Program [EQIP]) can affect the installation and mainte-
nance of management practices. If these sources were insufficient or became unavailable, you
need to determine whether the management practices can still be installed and adjust new
targets for the milestones.
Was there a shortage of technical assistance?
Many management practices require technical assistance (e.g., Natural Resources Conser-
vation Service [NRCS] engineers, Extension personnel, or private crop management con-
sultants) in design and construction or in management. Lack of such assistance can slow
implementation. You should consult with NRCS and other sources of technical assistance to
determine future availability and possibly adjust your timetable accordingly.
Did we misjudge the amount of time needed to install some of the practices?
Installation of structural practices, growth of vegetative measures, or adoption of manage-
ment or behavioral changes might take longer than predicted. You might want to adjust your
timetable to reflect this new reality.
Did we fail to account for cultural barriers to adoption?
Cultural or social barriers to the adoption of some practices exist. Some stakeholder groups
might avoid participation in government programs. Traditional aesthetic preferences might
conflict with development of riparian buffers. If such factors become evident, you might need
to increase incentives to landowners or undertake additional I/E efforts.
13.7.2 Not Making Progress Toward Reducing Pollutant Loads
Are we implementing and using the management measures correctly?
Are structural practices being installed, operated, and maintained correctly? Remember that
the existence of an animal waste storage structure does not itself guarantee effective animal
waste management. Are management changes being followed? Don't assume that phospho-
rus inputs are automatically reduced by a set amount for each acre of nutrient management
implemented. Changes in phosphorus applications following nutrient management must be
documented. This is one big reason for the land treatment monitoring discussed earlier. If
you have instituted erosion and sediment control regulations in portions of the watershed but
the sediment loads are not decreasing, determine whether the regulations are being followed,
with the proper setbacks, installation of silt fences, and so forth. If management measures are
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Chapter 13: Implement Watershed Plan and Measure Progress
not being implemented or followed correctly, more education or technical assistance might
be needed.
Has the weather been unusual?
Extended wet periods or storm events of unusual magnitude or unfortunate timing can
increase nonpoint source loads. Furthermore, many management practices have a finite
capacity to control nonpoint source loads, and this capacity might be exceeded during
extreme weather events. Before concluding that your implementation program needs to be
revised, check to see if unusual weather events might have contributed to the failure to reach
milestones.
Have there been unusual events or surprises in the watershed?
One purpose of land treatment and land use monitoring is to identify factors other than the
implementation program that might affect water quality. Are there new sources of pollutants
that you did not consider? Before setting off to revise your implementation program, check
to see that no surprises, disasters, or bad actors have created problems in the watershed that
affect your progress or mask the progress that your plan implementation has made elsewhere.
Are we doing the right things?
If all your measures are being implemented according to specifications and there has been
no unusual weather or other unusual events, you might need to examine the specifications
themselves. If erosion and sediment control regulations have not reduced sedimentation
problems enough, you might need to extend the setback or increase the inspections of con-
struction sites for those areas. If your nutrient management practice is nitrogen-based but
phosphorus loads remain high, you might need to move to phosphorus-based nutrient man-
agement. Alternatively, you might need to expand the level of implementation so that more
watershed area comes under improved management.
Are our targets reasonable?
If load reductions were predicted on the basis of models, plot studies, or idealized systems,
the milestones set for load reductions could be overly optimistic. For most management prac-
tices, reports of effectiveness vary widely, depending on the pollutant inputs, climate, and
monitoring regime. Riparian buffers, for example, might perform well in plot studies when
runoff occurs as sheet flow, but in the real world concentrated overland flow might bypass
the treatment processes. You might need to revisit your assumptions about expected load
reductions.
Are we monitoring the right parameters?
Despite your best efforts to develop a monitoring program that's targeted to measuring
progress, review the parameters you selected to ensure that they truly will tell you if load
reductions are occurring. Data on turbidity, for example, might not tell the whole story on
the success of erosion control measures if high turbidity results from fine clay particles that
are not controlled effectively by your management practices.
Do we need to wait longer before we can reasonably expect to see results?
The nonpoint source problems might have taken time to develop, and it might take time to
clean them up. Pollutants like phosphorus might have accumulated in soils or aquatic sedi-
ments for decades. Sediment could continue to move through drainage networks even after
upland erosion has been reduced. It might be a mistake to expect an immediate response to
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
your implementation program. You might want to rethink your targets or timetable for some
pollutants.
Revisit the watershed plan
If you've ruled out all the above possibilities, you need to consider whether your plan has
called for the right management measures. It's possible that the identification of the causes
and sources of pollutants earlier in the planning process was not completely correct or that
the situation has changed. For example, from 1978 to 1982, the New York Model Imple-
mentation Project attempted to reduce phosphorus loads to the Cannonsville Reservoir by
implementing improved management of dairy barnyards and barnyard runoff. This approach
was based on an assessment that had
identified barnyards as the main source
of the excessive phosphorus load.
When the phosphorus load reduction
targets were not met, the project team
determined that winter spreading of
dairy manure, not barnyard runoff, was
the actual culprit (Brown et al. 1989).
In such a case, no amount of barnyard
management would address the funda-
mental problem.
Revisiting the plan and reexamining earlier
assessments of the sources of pollutant loads
might be the only answer at this point. The good news
is that the land treatment and water quality monitoring data you've collected during this
process can contribute to a better understanding of your watershed. The watershed team can
change any of the elements on the schedule of activities, especially a management measure or
responsible party. It can also change priorities and shift resources to achieve a high-priority
milestone.
13.8 A Final Word
Volumes have been written on watershed management, and not all the permutations and
combinations that you might encounter in your watershed planning effort could be included
in this handbook. However, the authors have tried to provide a framework to help you
develop a scientifically defensible plan that will lead to measurable results and an overall
improvement in the water quality and watershed conditions that are important in your
community.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Handbook Road Map
>. 1 Introduction
2 Overview of Watershed Planning Process
3 Build Partnerships
4 Define Scope of Watershed Planning Effort
5 Gather Existing Data and Create an Inventory
6 Identify Data Gaps and Collect Additional Data If Needed
7 Analyze Data to Characterize the Watershed and Pollutant Sources
8 Estimate Pollutant Loads
9 Set Goals and Identify Load Reductions
10 Identify Possible Management Strategies
11 Evaluate Options and Select Final Management Strategies
12 Design Implementation Program and Assemble Watershed Plan
13 Implement Watershed Plan and Measure Progress
Appendices
• Appendix A: Resources
• Appendix B: Worksheets
• Appendix C: List of State Nonpoint Source and
Watershed Planning Contacts
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Appendix A: Resources
General Watershed Planning Information
The Indiana Watershed Planning Guide
This guide was developed by the Indiana Department of Environmental Management to
assist local groups in developing successful watershed plans and to establish a common
approach for watershed planning throughout Indiana. It helps users answer the following wa-
tershed planning questions: Where are we now? Where do we want to be? How are we going
to get there? How will we know when we've arrived? The guide is available at
^> www.in.gov/idem/catalog/documents/water/iwpg.pdf.
Michigan's Developing a Watershed Management Plan for Water Quality:
An Introductory Guide
This guide was developed to help local units of government, nonprofit organizations, and
citizens develop watershed management plans. It outlines a process for gathering people,
information, and resources to protect and improve Michigan's water resources. The guide is
available for download at ^> www.deq.state.mi.us/documents/deq-swq-nps-Watershe.pdf.
Ohio EPA's A Guide to Developing Local Watershed Action Plans in Ohio
This guide helps users develop local watershed plans. It provides background informa-
tion about watershed planning, including the watershed approach, what a watershed plan is
and why it is important to develop one, why the plan needs to be locally based, who should
participate in planning, when to prepare the plan, and limitations to the approach. The guide
also provides guidelines to help users get started with the planning process, inventory the
watershed, define the problem, develop solutions and set goals, and implement the action
plan. The guide is available for download at ^> www.epa.state.oh.us/dsw/nps/wsguide.pdf.
Pennsylvania's Watershed Stewardship—A Planning and Resource Guide
This guide, developed by the Pennsylvania Department of Environmental Protection, con-
sists of six toolboxes designed to give grassroots watershed groups and local governments
guidance and a framework for developing comprehensive watershed plans that address local
goals, are compatible with regional and state-scale planning efforts, and are based on the
most current information available. The guide focuses on six components—watershed orga-
nization development and sustainability, securing financial and human resources, watershed
assessments, developing the watershed management plan, implementation, and monitoring for
success. The guide is available on CD or hard copy by contacting the Watershed Protection
Division at 717-772 5807 or emcdonald@state.pa.us. The guide may also be downloaded at
^http://164.156.71.80/WXLogin.aspx?dp=%2fWXOD.aspx%3ffs%3d2087d8407cOe000080
00047a0000047a%26ft%3dl%26watershedmgmtNav%3d%7c37942%7c.
The California Watershed Assessment Manual
The California Watershed Assessment Manual (CWAM) provides guidance for conducting a wa-
tershed assessment in California. It is intended to support the planning and technical needs
primarily of watershed groups, but also local and state agencies, academic scientists, consul-
tants, and individuals involved in developing and conducting a watershed assessment. The
manual includes guidance on planning and operational principles and steps that are useful
for assessment processes anywhere in the state. The topics addressed cover the primary natu-
ral and human processes in rural watersheds of northern and central California. The optimal
organizational and geographic scale for use of the manual is watershed groups conducting
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
assessments in 10,000-acre to 1 million-acre watersheds. The guide is available for download
at ^t> http://cwam.ucdavis.edu.
The Watershed Project Management Guide
This book presents a four-phase approach to watershed management that is based on a
collaborative process that responds to common needs and goals. Chapters in the book focus
on watershed importance, the watershed management process, partnership development and
operation, the assessment and problem identification phase, plan development, the watershed
management plan, implementation, evaluation, monitoring, models, and social building
capacity. The book is available for purchase at ^> www.enviroscapes.com/
watershed_management.htm.
The Clean Water Act: An Owner's Manual
This manual was written by River Network to make the Clean Water Act comprehensible
and usable for every American working to protect or restore a watershed. An Owner's Manual
provides citizen activists with clear descriptions of the provisions of the act that enhance
citizen involvement. The document is available for purchase at ^ www.rivernetwork.org/
marketplace/product_details.php?item_id=55334.
The Urban Subwatershed Restoration Manual Series
This series from the Center for Watershed Protection includes 11 manuals on techniques
for restoring small urban watersheds. The entire series of manuals was written to organize
the enormous amount of information needed to restore small urban watersheds in a format
that watershed groups, municipal staff, environmental consultants, and other users can ac-
cess easily. The manuals are organized by the following topics: an integrated approach to
restore small urban watersheds, methods for developing restoration plans for small urban
watersheds, stormwater retrofit practices, stream repair and restoration practices, riparian
management practices, discharge prevention techniques, pervious area management prac-
tices, pollution source control practices, municipal practices and programs, a user's manual
for Unified Stream Assessment (USA), and a user's manual for Unified Subwatershed and
Site Reconnaissance (USSR). The manuals are available from the Center for Watershed
Protection at ^ www.cwp.org/USRM_verify.htm.
Colorado Nonpoint Source Forum
The Colorado Nonpoint Source Forum, which is held each year, provides tools for watershed
planning. The 2004 Forum was a day-long presentation about the nuts and bolts of prepar-
ing a watershed plan. A discussion of the nine critical elements of watershed-based nonpoint
source pollution control plans was also provided. Additional information about the 2004
Colorado Nonpoint Source Forum is available at ^ www.ourwater.org/econnection/
connectionlS/npsforum.html. Information about the Colorado Nonpoint Source Program is
available at ^> www.npscolorado.com.
Comprehensive Conservation and Management Plans
EPA's National Estuary Program (NEP) was established to improve the quality of estuaries
of national importance. Clean Water Act section 320 directs EPA to develop plans for attain-
ing or maintaining water quality in an estuary. This includes protection of public water sup-
plies; protection and propagation of a balanced, indigenous population of shellfish, fish, and
wildlife; allowance of recreational activities, in and on water; and required control of point
and nonpoint sources of pollution to supplement existing controls of pollution. Each NEP es-
tablishes a Comprehensive Conservation and Management Plan (CCMP) to meet the goals of
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Appendix A: Resources
section 320. Program-specific CCMPs are available at v www.epa.gov/owow/estuaries/ccmp/
index.htm. Additional information about the NEP is available at Q> www.epa.gov/nep.
Community-Based Watershed Management: Lessons from the National Estuary Program
This document (EPA 842-B-05-003) describes the highly successful approaches to watershed
management implemented by NEPs throughout the United States. The principles and les-
sons learned contained in the document are relevant not only to the NEPs, but also to other
watershed organizations that are working to implement watershed protection and restoration
efforts. To obtain a copy, contact the National Service Center for Environmental Publications
(NSCEP) at 800-490-9198 or ^ www.epa.gov/ncepihom.
A Guide for Local Governments: Wetlands and Watershed Management
This guidebook (by Dr. Jon Kusler, Institute for Wetland Science and Public Policy of the
Association of State Wetland Managers) was written to help local governments integrate water
resources management and wetland ecosystem protection efforts. The guidebook was writ-
ten for engineers, biologists, botanists, planners, not-for-profit staff, legislators, and others. It
makes recommendations for integrating wetlands into broad watershed management efforts
and more specific water programs, including floodplain management, stormwater management,
source water protection, point source pollution control, and nonpoint source pollution control
programs. Case study examples are provided from throughout the nation. The guidebook is
available for download at ^ www.aswm.org/propub/pubs/aswm/wetlandswatershed.pdf.
Planning As Process: A Community Guide to Watershed Planning
Some of the most successful efforts at solving environmental problems have happened
through local watershed planning projects. Because most environmental problems origi-
nate as local land use issues, it makes sense that local efforts should be the primary means
of determining ways to control land use-generated pollution. This guide, developed by the
Washington State Department of Ecology, adapts those efforts and presents a watershed
planning process that has been used throughout Washington State by local entities that have
successfully battled water quality problems. However, the guide can be applied to most en-
vironmental problems that require local involvement. Developing a general process that can
be converted into the various applications is the idea behind this guide, which is available for
download at v www.ecy.wa.gov/pubs/9901.pdf.
Protecting the Source: Land Conservation and the Future of America's Drinking Water
The Trust for Public Land and the American Water Works Association prepared this report
in 2004. The report identifies five best practices for city planners, government officials, and
water suppliers involved in developing and implementing a source protection plan. The prac-
tices are (1) understanding the watershed, (2) using maps and models to prioritize protection,
(3) building strong partnerships and working watershed-wide, (4) creating a comprehensive
source protection plan, and (5) developing and implementing a "funding quilt." The best
practices outlined in this document offer a guide to success for local communities. This
report is available at ^t> www.tpl.org/tier3_cd.cfm?content_item_id=14288&folder_id=175.
Source Protection Handbook: Using Land Conservation to Protect Drinking Water Supplies
This handbook, prepared by Trust for Public Land and American Water Works Association in
2005, provides information about implementing the policy recommendations in Protecting the
Source (2004; see above). The handbook provides resources to help a community make the case
for land conservation and implement land conservation measures. The handbook has a land
conservation "how-to" section, which includes lessons learned and best practices for protecting
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drinking water sources, as well as nine case studies. The goal of this handbook is to strengthen
the ability of water suppliers, local governments, and communities to develop protection
strategies that address the threats posed by development to drinking water sources. It was pro-
duced with funding from EPA's Office of Ground Water and Drinking Water and is available
at ^> www.tpl.org/tier3_cd.cfm?content_item_id=18298&folder_id=175.
Path to Protection: Ten Strategies for Successful Source Water Protection
This booklet was prepared by the Trust for Public Land in 2005. It summarizes findings based
on the experiences of five source water demonstration projects and proposes 10 strategies that
will help put more state and local governments on the path to protection. The pilot projects
were implemented around the country by five national nonprofit organizations and were
funded by EPA's Office of Groundwater and Drinking Water. The purpose of the projects was
to build on state Source Water Assessment Programs to move communities from planning to
implementing protection for drinking water sources. The Trust for Public Land led a joint re-
view of the five demonstration projects to glean lessons learned and identify best practices. The
booklet is available at v www.tpl.org/tier3_cd.cfm?content_item_id=19077&folder_id=175.
NRCS Watershed Resources
The Natural Resources Conservation Service provides a wide range of watershed-related guid-
ance documents, manuals, handbooks, reports, and technical notes. They include planning
tools, stream and wetlands restoration documents, information on nutrient and pest manage-
ment, and information on conservation buffers. All are available at ^> www.nrcs.usda.gov/
technical/water.html.
County Water Quality Issue Brief: Using GIS Tools To Link Land Use Decisions to Water Resource
Protection
This issue brief provides a list of commonly used GIS tools available to help county leaders link
land use decisions to water resource protection. In addition, five county case studies are profiled
and a new tools assessment section evaluates some commonly available tools. The document
is available for download at ^ www.naco.org/Template.cfm?Section=New_Technical_
Assistance&template=/ContentManagement/ContentDisplay.cfm&ContentID=23928.
Smart Watershed Benchmarking Tool
Using lessons learned from around the country, the Center for Watershed Protection devel-
oped this self-assessment tool to help local program managers make better decisions on
watershed restoration priorities to maximize the performance of staff and financial resources.
Local watershed groups can also use this tool by determining how their community compares
to others and work with their local governments to encourage adoption of practices that would
improve scores. The document is available for download at ^ http://cwp.org.master.com/
texis/master/search/+/form/Smart_Watershed.html.
Water Quality Trading Toolkit for Permit Writers
The Water Quality Trading Toolkit for Permit Writers is EPA's first "how-to" manual on design-
ing and implementing water quality trading programs. The Toolkit helps National Pollutant
Discharge Elimination System (NPDES) permitting authorities incorporate trading provi-
sions into permits. It discusses in detail the fundamental concepts of designing and imple-
menting trading programs, which include the relevant geographic scope, effluent limitations,
and other factors involved in defining a credit. The Toolkit also includes five basic trading
scenarios that walk the permit writers through the components of a permit where trading
A-4
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Appendix A: Resources
provisions can be incorporated. To download the Toolkit, ^> go to www.epa.gov/owow/
watershed/trading/WQTToolkit.html.
Integrating Water and Waste Programs to Restore Watersheds: A Guide for Federal and State Project
Managers
This manual is targeted primarily to federal and state project managers in water and waste
programs who are working on assessment or cleanup projects in watersheds contaminated by
hazardous materials or waste. The manual is also a helpful reference document for stakehold-
ers involved in watershed cleanup efforts. The goal of the manual is to enhance coordination
across EPA and state waste and water programs by identifying opportunities for streamlining
requirements, leveraging resources, and implementing restoration activities more efficiently.
This manual provides valuable guidance and information to enable effective use of water and
waste program authorities and resources to restore and protect watersheds. The manual is
available at ^C> www.epa.gov/superfund/resources/integrating.htm.
Water Quality Trading Assessment Handbook
Water quality trading has gained increasing attention as an innovative approach for achiev-
ing water quality goals at lower cost. This handbook is intended to help you determine when
and where trading is the right tool and if training will work in your watershed. It provides
an analytical framework to assess the conditions and water quality problem(s) in a watershed
and determine whether trading could be effectively used to meet the water quality standards.
The framework is illustrated through the use of example trades in a hypothetical river basin
which will familiarize the reader with the requisites and potential benefits of specific trading
scenarios. To download the handbook, ^ go to www.epa.gov/owow/watershed/
trading/handbook.
A User's Guide to Watershed Planning in Maryland
This guide presents a common watershed planning framework for Maryland communities,
assembles planning resources into one place, integrates regulatory drivers, and presents the
methods necessary for completing a local watershed plan. Local government staff are the
primary audience for this guide. It incorporates a review of more than 47 local watershed
planning surveys; a review of existing watershed management planning guides; and research
on Maryland GIS mapping, monitoring, modeling, and financial resources available to water-
shed planners. The methods in the guide are organized into four broad categories: desktop
analysis, field assessment, stakeholder involvement, and management methods. ^ The guide
can be downloaded at www.dnr.state.md.us/watersheds/pubs/userguide.html.
The Community Watershed Assessment Handbook
This handbook is a simple watershed assessment tool that is intended to direct community
groups and local governments in conducting a comprehensive environmental assessment. The
purpose of the handbook is to outline a basic process for assessing your community's current
and anticipated future watershed conditions. In addition, the handbook offers guidance for
using the resulting assessment information as a foundation for future watershed management
planning. Local governments and community organizations interested in addressing
watershed-wide water quality, water supply and habitat concerns will find this handbook
particularly useful. <*> Call (800)-YOUR-BAY for a copy.
National Association of Counties (NACO) Water Program
NACo's water program is designed to help counties improve water quality and water
resource management. With support from EPA and the National Oceanic and Atmospheric
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Administration, NACo offers a range of services to help county officials protect water
resources on the local level. NACo's water program offers financial and technical assistance
to counties on stormwater, wastewater, watershed Planning and TMDLs, GIS Decision
Support System Tools, wetlands, coastal habitat, and community-based wetland and habitat
restoration grant programs. For more information on NACo's water quality services, ^> visit
their Web site at www.naco.org and click on Training and Technical Assistance, and then
scroll down to Water Resource Management.
Example Watershed Plans
Mill Creek Subwatershed Management Plan, Michigan:
^ www.hrwc.org/program/mid.htm#plan
White Oak Creek Watershed Action Plan, Ohio:
^t> http://brownswcd.org/action_plan.htm
Upper Neuse Watershed Management Plan, North Carolina:
^ www.unrba.org/projact.htm
Mill Creek Watershed Implementation Plan, Lancaster County, Pennsylvania:
^> www.depweb.state.pa.us/watershedmgmt/lib/watershedmgmt/nonpoint_source/
implementation/mill_creek_plan.pdf
Beaver and Little Creek TMDL Implementation Plans, Washington County and
City of Bristol, Virginia:
^t> www.deq.virginia.gov/export/sites/default/tmdl/implans/bvrltlip.pdf
Clean Water Act Information
Section 319 Nonpoint Source Management Program
Congress amended the Clean Water Act in 1987 to establish the section 319 Nonpoint Source
Management Program. Under section 319, states, territories, and American Indian tribes
receive grant money to support a wide variety of activities, including technical assistance,
financial assistance, education, training, technology transfer, demonstration projects, and
monitoring to assess the success of specific nonpoint source management projects. Go to
^> www.epa.gov/owow/nps/cwact.html.
Nonpoint Source Program and Grants Guidelines for States and Territories
EPA has developed guidelines for state implementation of nonpoint source management pro-
grams under section 319 and for awarding of section 319 grants to states to implement those
programs. The guidelines are available, under "EPA Guidance," at ^ www.epa.gov/owow/
nps/cwact.html.
National Pollutant Discharge Elimination System
All facilities that discharge pollutants from any point source into waters of the United States are
required to obtain an NPDES permit. These facilities include sewage treatment plants, indus-
trial wastewater facilities, large concentrated animal feeding operations, stormwater runoff
from certain urban areas, and other facilities that discharge pollutants from a point source into
surface waters regulated under the Clean Water Act. More information on the NPDES permit-
ting program can be found at ^> http://cfpub.epa.gov/npdes/home.cfm?program_id=45.
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Appendix A: Resources
Other Federal Watershed Management Resources
Digest of Federal Resource Laws
The U.S. Fish and Wildlife Service publishes an online digest of federal resource laws of
interest to water quality managers. The digest provides a comprehensive list and descriptions
of all federal laws under which agencies like the Fish and Wildlife Service functions, includ-
ing administrative laws, treaties, executive orders, interstate compacts, and memoranda of
agreement. For more information, go to ^ www.fws.gov/laws/lawsdigest.htm.
Multi-State River Compacts
Beginning with the Colorado River Compact of 1922, Congress approved about two dozen
water allocation compacts in an attempt to equitably allocate and manage the waters of inter-
state rivers. The allocation formulas and management objectives in the river compacts vary,
but for the most part they seek to protect existing uses and water rights. River compacts can
provide a good framework for coordinating multiple watershed plans in large river basins.
For more information on river compacts, visit ^> www.fws.gov/laws/lawsdigest/
interstatecompacts.htm.
Stream Corridor Restoration: Principles, Processes, and Practices
Stream corridors are increasingly recognized as critical ecosystems that support interdepen-
dent uses and values. A group of 15 federal agencies in the United States partnered in the de-
velopment of a comprehensive stream restoration guide that contains extensive information
on assessment, restoration practices, monitoring, and other issues. For more information, go
to ^> www.nrcs.usda.gov/technical/stream_restoration/.
Public Outreach and Stakeholder Involvement
Community Culture and the Environment: A Guide to Understanding a Sense of Place
This guide addresses the social and cultural aspects of community-based environmen-
tal protection. To obtain a copy, contact the National Service Center for Environmental
Publications (NSCEP) at 800-490-9198 or ^ www.epa.gov/ncepihom. The guide is also
available at ^ www.epa.gov/CARE/library/community_culture.pdf.
Getting In Step: Engaging and Involving Stakeholders in Your Watershed
This guide provide tips and tools to identify stakeholders, make decisions using consensus,
build a stakeholder group, maintain momentum in the watershed planning process, and re-
solve conflict. The guide is available only in pdf format at ^ www.epa.gov/owow/watershed/
outreach/documents/stakeholderguide.pdf.
Getting In Step: A Guide for Conducting Watershed Outreach Campaigns
This guide provides detailed information on developing and conducting effective watershed
outreach campaigns. You can download a pdf version at ^ www.epa.gov/owow/watershed/
outreach/documents/getnstep.pdf.
Know Your Watershed
The Center for Technology Information Center (CTIC) has developed a series of documents
to help you to know your watershed. This information clearinghouse for watershed coordina-
tors helps ensure measurable progress toward local goals. The clearinghouse is available at
^> www2.ctic.purdue.edu/kyw.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Model Ordinance Language
Stormwater Manager's Resource Center
Located at the Center for Watershed Protection, this center provides technical assistance for
stormwater management. The Center for Watershed Protection also provides a checklist to
evaluate community needs and model ordinances. Go to ^ www.stormwatercenter.net.
EPA's Web site for stormwater control operation and maintenance
This site provides model ordinance language, example ordinances, and supporting materials.
Go to ^t> www.epa.gov/owow/nps/ordinance/stormwater.htm.
The Metropolitan North Georgia Water Planning District
The District provides a model stormwater management ordinance. Go to
Q> www.northgeorgiawater.com/html/86.htm.
Almanac of Enforceable State Laws to Control Nonpoint Source Water Pollution
This report provides a state-by-state summary, including Puerto Rico and the District of
Columbia, of enforcement-based laws that are potentially applicable to nonpoint source water
pollution. Goto ^> www.elistore.org/reports_detail.asp?ID=432.
Putting the Water Quality Plan into Action: Tools for Local Governments
The Southeast Michigan Council of Governments provides specific actions local communi-
ties can implement to protect their water resources, including ordinances. Go to
Q> www.semcog.org.
Evaluation Tools
Logic Model Development Guide: Using Logic Models to Bring Together Planning,
Evaluation, and Action
This guide provides a step-by-step approach for using logic models to effectively
evaluate programs. It's available in pdf on the Web site at Q> http://wkkf.org/
Default.aspx?LanguageID=0.
Logic Model Worksheets
The University of Wisconsin Cooperative Extension has done quite a bit of research on logic
models and provides online courses and worksheets that you can download at
^> www.uwex.edu/ces/pdande/evaluation/evallogicmodel.html.
Seeking Signs of Success: A Guided Approach to More Effective Watershed Programs
This guide includes a step-by-step process and worksheets to conduct meaningful evalua-
tions of watershed programs. Available for $19.95 at ^i> www.rivercare.org.
Establishing Watershed Benchmarks—Tools for Gauging Progress
(River Network. Volume 8, Number 3)
This issue of River Voices focuses on establishing watershed benchmarks, including water-
shed health, organizational health, and watershed activities. Available for $2 at
^t> www.rivernetwork.org.
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Appendix A: Resources
Monitoring Program Design and Implementation
Monitoring Guidance for Determining the Effectiveness ofNonpoint Source Controls
This EPA manual gives an overview of nonpoint source pollution and covers the develop-
ment of a monitoring plan, data analysis, quality assurance/quality control, and biologi-
cal monitoring. To obtain a copy, contact the National Service Center for Environmental
Publications (NSCEP) at 800-490-9198 or ^ www.epa.gov/ncepi.
EPA's Monitoring and Assessment Web Site
This site includes a wealth of information on assessment and reporting guidelines, databases
and mapping capabilities, biological assessment, and volunteer monitoring. Go to
^> www.epa.gov/owow/monitoring.
Elements of a State Water Monitoring and Assessment Program
This guidance recommends 10 basic elements of a holistic, comprehensive monitoring
program that serves all water quality management needs and addresses all waterbody types.
It describes a process in which states develop a monitoring program strategy to implement
these basic components over a period of up to 10 years. Go to
^> www.epa.gov/owow/monitoring/elements.
DQOs, MQOs, and Performance Characteristics
The Methods and Data Comparability Board
This board, a work group of the National Water Quality Monitoring Council, has developed
data and method quality objectives tools. Go to ^ http://wi.water.usgs.gov/methods/tools/
dqomqo/index.htm.
Consolidated Assessment and Listing Methodology (CALM), Appendix C
Appendix C provides information on statistical considerations for data quality objectives and
data quality assessments in water quality attainment studies. Go to ^> www.epa.gov/owow/
monitoring/calm/calm_appc.pdf.
Quality Assurance Project Plans
Quality assurance project plans document the planning, implementation, and assessment pro-
cedures for a particular project, as well as any specific quality assurance and quality control
activities. They integrate all the technical and quality aspects of the project to provide a "blue-
print" for obtaining the type and quality of environmental data and information needed for a
specific decision or use. For more information, go to v http://epa.gov/quality/qapps.html.
Sampling Design
Biological Criteria: Technical Guidance for Survey Design and Statistical Evaluation ofBiosurvey
Data
This guidance provides methods to help managers interpret and gauge the confidence with
which biological criteria can be used to make resource management decisions. Go to
*^> www.epa.gov/bioiwebl/html/biolstat.html.
Sampling and Analysis Plans (SAPs)
For more information on SAPs, check out the U.S. Army Corps of Engineers' publication
titled Engineering and Design—Requirements for the Preparation of Sampling and Analysis Plans
(specifically chapter 3, Sampling and Analysis Plan: Format and Contents, and Appendix J,
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Sampling and Analysis Plan Review Checklist). Go to ^> www.usace.army.mil/publications/
eng-manuals/em200-l-3.
Visual Stream Assessment Tools
Izaak Walton League Save Our Streams Program
The Save Our Streams (SOS) program is a national watershed education and outreach tool
to provide innovative educational programs for groups and individuals. SOS has educated
and motivated citizens to clean up stream corridors, monitor stream health, restore degraded
streambanks, and protect dwindling wetland acreage through biological and other assess-
ments, education, and training. Go to ^> www.iwla.org/sos.
Rapid Stream Assessment Technique (RSTAT)
RSAT is a methodology for visually evaluating a stream to assess the stream quality and
to identify potential pollutant sources. RSAT was developed for Montgomery County,
Maryland, to provide a simple, rapid, reconnaissance-level assessment of stream quality
conditions. Go to ^ www.stormwatercenter.net/monitoring%20and%20assessment/rsat/
smrc%20rsat.pdf.
Stream Visual Assessment Protocol (SVAP)
SVAP is designed as an introductory, screening-level assessment method for people unfamil-
iar with stream assessments. The SVAP measures a maximum of 15 elements and is based
on visual inspection of the physical and biological characteristics of instream and riparian
environments. To download a copy of an SVAP document, go to ^t> www.nrcs.usda.gov/
technical/ECS/aquatic/svapfnl.pdf.
Unified Subwatershed and Site Reconnaissance (USSR)
USSR is designed to assess upland areas for behaviors that can potentially influence water
quality and to identify promising restoration project opportunities. Go to ^C> www.cwp.org.
Biological Assessment
Rapid Bioassessment Protocols for Use in Wadeable Streams and Rivers: Periphyton, Benthic
Macroinvertebrates, and Fish, 2nd edition
This document describes refined and revised methods for conducting cost-effective biologi-
cal assessments of streams and small rivers. It focuses on periphyton, benthic macroinverte-
brates, and fish assemblages and on assessing the quality of the physical habitat. Go to
^0 www.epa.gov/owow/monitoring/rbp.
Stressor Identification Guidance Document
This guidance leads water resource managers through a rigorous process to identify stressors
that cause biological impairment in aquatic ecosystems and to assemble cogent scientific evi-
dence that supports conclusions about potential causes. Go to ^> www.epa.gov/waterscience/
biocriteria/stressors/stressorid.html.
Summary of Assessment Programs and Biocriteria Development for States, Tribes, Territories,
Interstate Commissions: Streams and Wadeable Rivers
This EPA document includes an overview of biological assessment programs and protocols
used at the state level. Go to ^> www.epa.gov/bioindicators.
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Appendix A: Resources
Modeling Tools
Compendium of Tools for Watershed Assessment and TMDL Development
The Compendium supports the watershed approach by summarizing available techniques
and models that assess and predict physical, chemical, and biological conditions in waterbod-
ies. Go to ^t> www.epa.gov/OWOW/tmdl/comptool.html; for more technical resources, visit
N> www.epa.gov/owow/tmdl/techsupp.html.
The Council on Regulatory Environmental Modeling
The CREM promotes consistency and consensus within the Agency on mathematical model-
ing issues, including model guidance, development, and application, and it enhances internal
and external communications on modeling activities. CREM is the Agency's central point
for addressing modeling issues. It has a comprehensive online database that provides links to
model reviews and resources. Go to ^> http://cfpub.epa.gov/crem.
Management Measures
Guidance Specifying Management Measures for Sources ofNonpoint Pollution in Coastal Waters
This 1992 EPA document describes management measures and associated management prac-
tices for all six nonpoint source categories. The document includes extensive cost and effec-
tiveness information, as well as examples and detailed descriptions of management practices.
EPA has updated and expanded several chapters of the 1992 guidance. Updated sections are
available for agriculture, forestry, marinas and recreational boating, and urban areas. All the
chapters can be downloaded at ^ www.epa.gov/owow/nps/pubs.html.
International Stormwater Best Management Practices Database
This database is operated by the Urban Water Resources Research Council of the American
Society of Civil Engineers under a cooperative agreement with EPA. The database provides
technical documents, software, and tools to evaluate the effectiveness of stormwater runoff
BMPs. The tools include standardized BMP monitoring and reporting protocols, a stormwa-
ter BMP database, BMP performance evaluation protocols, and BMP monitoring guidance.
Go to ^ www.bmpdatabase.org.
National Handbook of Conservation Practices
Written in 1977 by the Natural Resources Conservation Service, this handbook is updated
annually. It provides details on nationally accepted management practices and is available in
hard copy and electronically at Q> www.nrcs.usda.gov/technical/standards/nhcp.html.
National Menu of BMPs for Storm Water Phase II
EPA developed this compliance assistance tool to help small communities develop stormwa-
ter management programs and select management practices to control pollutants in runoff.
It includes descriptions, cost and effectiveness data, and case study examples for more than
100 management practices. Go to ^ http://cfpub.epa.gov/npdes/stormwater/menuofbmps/
index.cfm.
Techniques for Tracking, Evaluating, and Reporting the Implementation ofNonpoint Source Control
Measures
Three documents provide information on the techniques used to track, evaluate, and report on
the implementation of nonpoint source control measures. Each document focuses on a different
measure—agriculture, forestry, and urban areas. Go to ^> www.epa.gov/owow/nps/pubs.html.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
National Management Measures to Control Nonpoint Source Pollution from Urban Areas
This guidance provides information on polluted runoff sources, impacts, and manage-
ment measures for all urban and urbanizing areas, including those covered by the NPDES
stormwater program. The introduction includes specific comparisons of the nonpoint source
management measures described in this guidance with the six minimum control measures to
be addressed for the NPDES Phase II permit program. Go to ^> www.epa.gov/owow/nps/
urbanmm/index.html.
Onsite and Clustered (Decentralized or Distributed) Wastewater Management
EPA has developed several tools designed to help local communities manage decentralized
(distributed) wastewater treatment systems. These include a handbook for developing or
improving existing management programs, a set of guidelines that describe five generalized
management models, a design guide, technology fact sheets, case studies of successful pro-
grams, a homeowners' guide, and more. To access these tools, visit
^ http://cfpub.epa.gov/owm/septic/index.cfm.
BMP Costing Information
A list of currently available cost references is provided below. Most of these references are
available for free download, but some might be available only at a university library or by
purchase. You should look for local costs before using these references because construction
costs and designs vary between states.
USEPA BMP Fact Sheets
This comprehensive list of BMP fact sheets contains information on construction and main-
tenance costs, as well as other monetary considerations. Information is provided on both
structural and nonstructural BMPs. Go to ^ http://cfpub.epa.gov/npdes/stormwater/
menuofbmps/index.cfm.
Environmental Quality Incentives Program
Some state NRCS offices publish cost information on agricultural practices to support the
Environmental Quality Incentives Program (EQIP). For an example of this cost information,
go to the "cost lists" section of the following Web site: ^> www.nc.nrcs.usda.gov/programs/
EQIP/2005Signup.html.
Rouge River National Wet Weather Demonstration Project
This demonstration project has produced cost-estimating criteria for both structural and
nonstructural management practices. The project continues to publish information on recent
BMP projects. The most recent cost-estimating criteria are at ^ www.rougeriver.com/pdfs/
stormwater/sr25.pdf.
International Stormwater BMP Database
The American Society of Civil Engineers and EPA have developed a stormwater BMP data-
base that contains site-specific BMP information from across the country. Depending on the
location and type of BMP, the database might provide BMP cost information. It's available at
^> www.bmpdatabase.org.
Low Impact Development Center
Among many LID resources, the Low Impact Development Center offers a series of fact
sheets with BMP construction and maintenance cost information at
^> www.lid-stormwater.net/intro/sitemap.htm.
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Appendix A: Resources
RS Means Construction Cost Data
RS Means publishes construction cost data and updates this information annually. RS Means
publications usually can be found at university libraries. In addition to construction cost, the
RS Means publications contain indices for converting prices between cities and states. Go to
^> www.rsmeans.com.
Performance and Whole Life Costs of Best Management Practices and Sustainable Urban Drainage
Systems
This 2005 publication provides an extensive review of BMP costing techniques for se-
lected controls, as well as a spreadsheet model to estimate costs. Reviewers include Black &
Veatch Corporation; Center for Research in Water Resources, University of Texas; Glenrose
Engineering; Urban Water Technology Center, University of Abertay; HR Wallingford Ltd.;
and Black & Veatch Consulting Ltd. The document is available from the Water Environment
Research Foundation (WERE) at ^ www.werf.org.
Funding Resources
List of Watershed Funding Resources
This EPA Web site provides tools, databases, and information about sources of funding that
serve to protect watersheds. Go to ^> www.epa.gov/owow/funding.html.
List ofNPS Funding Opportunities
This EPA site provides links to various federal, state, and private funding sources available to
address nonpoint source issues. Go to ^> www.epa.gov/owow/nps/funding.html.
Catalog of Federal Funding Opportunities
This interactive EPA Web site helps match project needs with funding sources. It also pro-
vides administrative guidelines and applicability for each source. Go to
^> www.epa.gov/watershedfunding.
Grassroots Fundraising Journal
The Grassroots Fundraising Journal helps nonprofit organizations learn how to raise more
money to support their goals. It offers practical how-to instructions on implementing fund-
raising strategies such as direct mail, special events, major gift campaigns, and phone-a-
thons. It also has tools to help you build a board of directors that is willing to raise money,
choose a database to track donors, manage your time effectively, and ultimately develop a
successful fundraising program. Go to ^> www.grassrootsfundraising.org/index.html.
A Guidebook of Financial Tools
EPA's Environmental Financial Advisory Board and the Agency's network of university-
based Environmental Finance Centers developed this guidebook as a working tool to enable
practitioners in the public and private sectors to find appropriate methods to pay for environ-
mental protection efforts. Go to ^ www.epa.gov/efinpage/guidebook/guidebooktp.htm.
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Appendix B: Worksheets
/"Worksheet 3-1 I^vtiftjing Siakekolder Skills and 'Resources
Name:
Phone:
E-mail:
If you possess these
skills or have access
Skills/resources to these resources Comments
Skills in Stakeholder Group
Accounting
Graphic design
Computer support
Fund-raising
Public relations
Technical expertise (e.g., geographic
information systems, water sampling)
Facilitation
Other
Other
Resources Available
Contacts with media
Access to volunteers
Access to datasets
Connections to local organizations
Access to meeting facilities
Access to equipment (please
describe)
Access to field trip locations
Other
Other
Other
Please identify any other skills or resources you bring to the group:
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
^Worksheet 4-1 -yOK^t Vo y\)e Already
1. What are the known or perceived impairments and problems in the watershed?
2. Do we already know the causes and sources of any water quality impairments in the watershed?
If so, what are they?
3. What information is already available, and what analyses have been performed to support development of a
TMDL, watershed plan, or other document?
4. Have the relative contributions from major types of sources of the pollutant or stressor causing impairment
been estimated?
5. Are there any historical or ongoing management efforts aimed at controlling the problem pollutants or
stressors?
6. Are there any threats to future conditions, such as accelerated development patterns?
7. Have any additional concerns or goals been identified by the stakeholders?
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Appendix B: Worksheets
/"Worksheet 4-2 TOK^-t to^sten/i ISSIA^ need io &e Considered?
1. What are the sensitive habitats and their buffers, both terrestrial and aquatic?
2. Where are these habitats located in the watershed?
3. What condition are these habitats in?
4. Are these habitats facing any of the following problems?
a. Invasive species
b. Changes associated with climate warming
c. Stream fragmentation and/or in-stream flow alterations
d. Changes in protection status
5. On what scale are these habitats considered? (e.g., regional, watershed, subwatershed, or site-specific)
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
/"Worksheet 4-3 IBwUm A.
The conceptual model is essentially made up of three parts— the sources (at the top); the impairments (at the bottom);
and the stressors (or the steps/relationships between the sources and impairments (in the middle).
1. Start at the end: Define the impairments
The impairments are the endpointsforthe conceptual model. Add the impairments in boxes at the bottom of the next
page. Put each impairment in its own box on the worksheet. Be as specific as possible. Keep the impairments on the
same sheet (don't make a separate model for each impairment). You might find that the impairments share a common
source and are linked in unexpected ways.
2. Go to the top
Start listing the most likely sources of impairment. In general, you will identify many more sources than impairments.
List the sources in boxes at the top of the next page.
3. Identify the stressors and impacts that link sources to impairments
These boxes provide the links between the sources and the impairments. Draw in as few or as many stressors and
impacts as are needed to show cause and effect between sources, stressors, and impairment.
4. Connect the sources, stressor, impacts, and impairments
Start drawing arrows between the sources, linkages, and impairments. You might have arrows that go from sources
to sources (e.g., between logging and unpaved roads), from sources to linkages, and finally from linkages to the
impairments.
Examples
Use the template and examples on the next page as guides to identifying sources, stressors, impacts, and impairments
in your watershed.
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Appendix B: Worksheets
/'Worksheet 4-3
Sources
Stressors
Impacts
Impairments
Tf\.odd (continued)
Your sources here
your impairments here
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
^W(
)rksheet4-3 IBwUu
Sources
i
i
L
F
Stressors
L
i
L
Impacts
L
r
Impairments
^<
a GoncepiuA Ti\ode(
Example 1
Agriculture
i
i
i
F
Sediment
i
i
1
Smothering of eggs
Loss of habitat
L
r
Impairments
(CO
ntinued)
Example 2
Residential housing
development
i
i
i
Nutrients
i
\
i
Reduced DO
j
i
L
r
Fish kills
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Appendix B: Worksheets
/'Worksheet 4-4 Identifying Concerns, Causes, fyoals, and InAcaiors
What are the
problems/
concerns in the
watershed?
What do you
think caused the
problems?
How can we
assess current
conditions?
(Indicators)
What would you
like to see for
your watershed?
(Goals)
How will we measure
progress toward
meeting those goals?
(Indicators)
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
/"Worksheet 7-1
/Wl^sis Do 700 UW io
£or
Questions to help determine what kinds of data analyses are needed
Question Answer
1 . Are water quality standards being met?
If so, are they maintaining existing levels?
2. Is water quality threatened?
3. Is water quality impaired?
4. Are there known or expected sources causing impairment?
5. Where do impairments occur?
6. When do the impairments occur? Are they affected by seasonal variations?
7. Under what conditions (e.g., flow, weather) are the impairments observed?
8. Do multiple impairments (e.g., nutrients and bacteria) coexist?)
9. Are there other impairments that are not measured by water quality standards?
Questions to answer based on the results of the data analysis:
1 . What beneficial uses for the waterbodies are being impaired?
What pollutants are impairing them?
2. What are the potential sources, nonpoint and point, that contribute to the impairment?
3. When do sources contribute pollutant loads?
4. How do pollutants enter the waterbody (e.g., runoff, point sources, contaminated ground water, land uses,
ineffective point source treatment, pipe failures)?
5. What characteristics of the waterbody, the watershed, or both could be affecting the impairment (e.g., current or
future growth, increased industrial areas, future NPDES permits, seasonal use of septic systems)?
6. Revisit the conceptual model showing the watershed processes and sources, and revise it if necessary.
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Appendix B: Worksheets
^Worksheet 7-2 y\)Ui DM Mkfi& Vo y\)z TW io CondiACi
fi£6e66w£n.i
1. Where are critical habitats (e.g., headwaters, wetlands, forests, springs and seeps) and their
buffers located?
2. What is their conservation status?
3. What is their condition?
4. Are they threatened?
5. Are there opportunities to protect or restore buffers or fill a habitat connectivity gap to reduce
fragmentation and protect source water?
6. How does spatial hierarchy (e.g., site, subwatershed, watershed, basin, and region) factor into
habitat protection and restoration goals?
7. What are the current and future development projections and who will they affect habitats and
their buffers?
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
/"Worksheet 10-1 Lfenttfying Existing T/Un^^(^M-t Efforts
Wastewater Discharges
(Source of Information: state water quality program administering NPDES permits)
1. Where are wastewater discharges located in the watershed?
If possible, map the locations.
2. What volume of wastewater is being discharged?
3. What are the parameters of concern in the effluent?
4. For each permit, what are the existing requirements?
5. What is the recent (5-year) history of permit compliance? How severe are the violations, and what caused them?
6. Are significant treatment plant upgrades being planned?
If so, will the future discharge show a net increase or decrease in pollutant loading?
7. Have potential threats to diminishing water supplies been identified in a source water assessment?
On-Site Wastewater Treatment Systems
(Source of Information: local health department)
8. Where are on-site systems located? If possible, map the locations.
9. Are there known concentrations of failing on-site systems? If so, where?
10. Is there a homeowners' education program for proper maintenance of on-site systems?
Is there an inspection program?
11. What is the depth of the water table?
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Appendix B: Worksheets
/"Worksheet 10-1 Identifying Existing TfitwiQewieni 'Efforts (continued)
Urban Stormwater Runoff
(Source of Information: local government engineering and planning department)
12. Are cities and counties in the watershed covered by an NPDES stormwater permit?
If so, what are the conditions of the permit?
13. Do local governments in the watershed have stormwater ordinances?
If so, what are the requirements?
14. Do the regulations address stormwater volume and pollutant loading?
15. Do the stormwater requirements apply to redevelopment of existing developed areas?
16. Does the local government have a public education program for pollution prevention?
17. Does the local government have a stream restoration and BMP retrofit program?
Are projects being located in your watershed?
18. Are any new ordinances or programs being developed or planned?
Agricultural and Forestry Practices
(Sources of information: local NRCS Conservation District office and Forest Service office, state soil and water district office,
and state forestry service office)
19. Are there areas with active farming or logging in the watershed?
If so, map them if possible.
20. Are management plans in place where these activities are occurring?
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
/"Worksheet 10-1 Identifying Existing Tf^agemeni 'Efforts (continued)
21. What percentage of the area uses management practices for controlling sediment and other pollutants?
Are these practices effective? If not, why? Are monitoring data available?
22. For areas not using management practices to control runoff, what have been the obstacles to their use?
23. Are there existing stream side buffers? If so, how wide are they?
Note: Farm*A*Syst is a voluntary, confidential program in each state that helps farmers and ranchers evaluate pollution risks to their
property and take preventive action to reduce those risks. Further state program information and Web links can be accessed through
www.uwex.edu/farmasyst/index.html. Click on "Resources" and the state of interest. Other programs that have developed from
Farm*A*Syst include Forest*A*Syst, Stream*A*Syst, and Cotton*A*Syst. Forest*A*Syst provides a series of questions for landowners
on the types of practices conducted on their forestland. Stream*A*Syst is a set of materials that landowners review to determine whether
there are stream-related factors to improve with better management practices. Cotton*A*Syst is an assessment tool to measure current
levels of integrated pest management (IPM) implementation and help cotton farmers improve management practices.
Wetlands and Critical Habitat Protection
(Sources of Information: Association of State Wetlands Managers, Association of State Floodplaln Managers, local wetlands
partners)
24. Have wetlands been identified and evaluated for the habitat value, water quality benefits, and flood control
contributions?
25. To what extent do natural buffers and floodplains remain in the watershed?
26. What projects have created or restored wetlands and wetland formations?
27. To what extent are critical habitats such as headwater streams, seeps, and springs that provide many critical
functions (e.g., habitat for aquatic organisms) being protected?
28. Has the natural hydrologic connectivity been mapped? If so, are there management practices in place to restore
any fragmentation of stream networks?
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Appendix B: Worksheets
/'Worksheet 10-2 Docomm-tin^ T/Un^n/iM-t Y(\e0£W6 Opportunities
Sources (e.g., streambanks, urban stormwater, malfunctioning septic systems, livestock in stream)
Causes (e.g., eroding streambanks, unlimited access of livestock, undersized culverts)
Name of management measure or program (NRCS code if applicable)
Data source (i.e., where you obtained your information on the management measure)
Description (what it is and what it does)
Approximate unit cost (including installation and operation and maintenance costs; may be expressed as a range)
Approximate or relative load reduction for each parameter of concern (could be high, moderate, low, or unit reduction per acre per year)
Planning considerations (e.g., project factors such as site size and contributing watershed area; physical factors such as slope, depth of
water table, and soil type limitations or considerations; operation and maintenance requirements)
Skill needed to implement the management measures (e.g., engineering, landscape design, construction)
Permitting considerations
Other (e.g., stakeholders' willingness to use the measure)
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
^Worksheet 12-1
for
/Vote: prepare one worksheet for each management objective Identified.
Watershed Goal:
Management Objective (M0 1):
Implementation Activities
Management
Measures
MM1
Benefits/
estimated load
reduction
MM 2
Benefits/
estimated load
reduction
MM 3
Benefits/
estimated load
reduction
Who Needs to
Be Involved?
(Authorities/
Resp. Party/Other
Costs
(Annual/
Total Funding
Sources)
Schedule/Milestones
Short
Med
Long
Remaining
I/E Activities
I/E1
I/E 2
I/E 3
Monitoring Component
B-14
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Appendix B: Worksheets
/^Worksheet 12-2 O^oping Criteria io T(\WBiMce Progress in V(\eetinQ
TVkter CMsty fyodi6
[Note: Complete one worksheet for each management objective identified.]
Management Objective: Reduce nutrient inputs into Cane Creek by 20 percent
Indicators to Measure
Progress
Target Value or Goal
Interim Targets
Short-term
Medium-term
Long-term
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
/"Worksheet 12-3 teic Gowyoywfe o£ a yQfaersked 'PUn
Key watershed planning components
Include the geographic extent of the watershed covered by the plan.
Identify the measurable water quality goals, including the
appropriate water quality standards and designated uses.
Identify the causes and sources or groups of similar sources that
need to be controlled to achieve the water quality standards.
Break down the sources to the subcategory level.
Estimate the pollutant loads entering the waterbody.
Determine the pollutant load reductions needed to meet the water
quality goals.
Identify critical areas in which management measures are needed.
Identify the management measures that need to be implemented to
achieve the load reductions.
Prepare an I/E component that identifies the education and outreach
activities needed for implementing the watershed management plan.
Develop a schedule for implementing the plan.
Develop interim, measurable milestones for determining whether
management measures are being implemented.
Develop a set of criteria to determine whether loading reductions
are being achieved and progress is being made toward attaining (or
maintaining) water quality standards, and specify what measures
will be taken if progress has not been demonstrated.
Develop a monitoring component to determine whether the plan
is being implemented appropriately and whether progress toward
attainment or maintenance of applicable water quality standards is
being achieved.
Estimate the costs to implement the plan, including management
measures, I/E activities, and monitoring.
Identify the sources and amounts of financial and technical
assistance and associated authorities available to implement the
management measures.
Develop an evaluation framework.
Done?
Comments
B-16
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Appendix B: Worksheets
/"Worksheet 12-4 £x^i/iU Ched&si for f&vwin Section 319
319 WATERSHED PLANT REVIEW LIST
Watershed:
Plan(s): Document(s) reviewed and dates.
a. An identification of the causes and sources or groups of similar sources that will need to be controlled to achieve
the load reductions estimated in this watershed-based plan (and to achieve any other watershed goals identified in
the watershed-based plan), as discussed in item b immediately below. Sources that need to be controlled should be
identified at the significant subcategory level with estimates of the extent to which they are present in the watershed
(e.g., including a rough estimate of the number of cattle per facility, Y acres of row crops needing improved nutrient
management or sediment control, or Z linear miles of eroded streambank needing remediation).
a Plan(s) meets element as demonstrated.
a Plan(s) does not meet element. The following additional information is required:
b. An estimate of the load reductions expected for the management measures described under paragraph c below
(recognizing the natural variability and the difficulty in precisely predicting the performance of management
measures over time). Estimates should be provided at the same level as in item a above (e.g., the total load reduction
expected for row crops, or eroded streambanks).
a Plan(s) meets element as demonstrated.
Q Plan(s) does not meet element. The following additional information is required:
c. A description of the BMPs and techniques (nonpoint source management measures) that are expected to be
implemented to achieve the load reductions estimated under item b above (as well as to achieve other watershed
goals identified in this watershed-based plan), and an identification (using a map or a description) of the critical
areas (by pollutant or sector) in which those measures will be needed to implement this plan.
a Plan(s) meets element as demonstrated.
a Plan(s) does not meet element. The following additional information is required:
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
/"Worksheet 12-4 £x^i/iU CfaeMst for f&vwing Section 319
(continued)
d. An estimate of the amounts of technical and financial assistance needed, monitoring and I&E cost, associated
administrative costs, and/or the sources and authorities that will be relied on to implement the entire plan (include
administrative, I&E, and monitoring costs). Expected sources of funding, states to be used section 319 programs,
State Revolving Funds, USDA's Environmental Quality Incentives Program and Conservation Reserve Program, and
other relevant federal, state, local, and private funds to assist in implementing this plan.
a Plan(s) meets element as demonstrated.
Q Plan(s) does not meet element. The following additional information is required:
e. An information/education component that will be implemented to enhance public understanding of the project and
enable the public's early and continued participation in selecting, designing, and implementing the NPS management
measures that will be implemented (cost needs to be included in item d above).
a Plan(s) meets element as demonstrated.
a Plan(s) does not meet element. The following additional information is required:
f. A schedule for implementing the activities and NPS management measures identified in this plan.
a Plan(s) meets element as demonstrated.
Q Plan(s) does not meet element. The following additional information is required:
g. A description of interim, measurable milestones for determining whether NPS management measures or other
control actions are being implemented and what will be done if the project is not meeting its milestones.
a Plan(s) meets element as demonstrated.
Q Plan(s) does not meet element. The following additional information is required:
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Appendix B: Worksheets
/"Worksheet 12-4 £x^i/iU Ched&si for f&vwing Section 319
(continued)
h. A set of environmental criteria that will be used to determine whether loading reductions are being achieved over
time, and substantial progress is being made toward attaining water quality standards. These criteria provide the
basis for determining whether the watershed-based plan needs to be revised or whether the nonpoint source TMDL
needs to be revised.
a Plan(s) meets element as demonstrated.
Q Plan(s) does not meet element. The following additional information is required:
i. A monitoring and evaluation component to track progress and evaluate the effectiveness of the implementation
efforts overtime, measured against the criteria established under items g and h above.
a Plan(s) meets element as demonstrated.
a Plan(s) does not meet element. The following additional information is required:
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
/• Worksheet 12-5 lYtewri's Tlin^-€.U(^m-t 7(ktersrW TYUn^sw/usn-t
'PUnnin^ TOorksK^-t
The attached worksheet provides guidance for the development of watershed management plans that meet the
requirements of the Environmental Protection Agency to be eligible for certain grant funding. It is designed to help
the user find basic information to begin the development of these watershed management plans, as well as providing
nformation about the nine elements that are required in the plan. The completion of this worksheet does not constitute
an approved plan, but it should provide the user with the basic necessary information from which an approved
watershed management plan can be developed and ultimately implemented.
Completing the Worksheet:
This worksheet must include the Waterbody Identification Number (WBID) of the impaired waterbody that the planning
effort will impact.
f a Total Maximum Daily Load (TMDL) has been written for the watershed, the Watershed Management Plan must be
designed to achieve the reduction in pollutant load called for in the NPS Total Daily Maximum Load (TMDL). If a TMDL
has not been developed for the waterbody, the plan must include implementation practices to remove the waterbody
from the 303(d) list.
Project Name:
Project Sponsor:
Address:
Project Manager:
Phone:
E-mail:
Waterbody Name(s)
Waterbody ID Number
Watershed Identification
Name of Watershed:
HUC Codes for all 14-Digit Watersheds
in Planning Effort:
Total Area Encompassed
in Planning Effort (Acres):
Approved TMDLs with nonpoint source
impairments (if any) See Attachment B
Does the area encompass a
Public water supply <
Waterbody WBID
Size Pollutant(s) Source
Yes Q Name(s):
No
B-20
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Appendix B: Worksheets
^Worksheet 12-5 Tf\i,ssoiA.ris Tlin^-H^nA^nt yO&i&rsk&d
Tf^n^&^&ni Pt^nnin^ yOor^k^&i (continued)
Elements of the Watershed Management Plan (see Attachment C)
Element A
Pollutant(s)
Addressed in the Plan:
Sediment
Nutrients
Pesticides
Fecal Conforms
Dissolved Oxygen
Metals
PH
Other/Unknown
Pollutant Category (see Attachment D)
(Mark all that apply) Element A
x I-I-J/ nnontifw Cnnr^no nf Dnlhitont
Ag Ag
CP AP Silv. C
U/ (e.g.,#of cattle, # of acres,
SW HM LD RE miles of stream, etc.)
AgCP-Agriculture Crop Production, AgAP-Agriculture Animal Production, Silv.-Silviculture, C-Construction,
U/SW-Urban/Stormwater, HM-Hydrologic/Habitat Modification, LD-Land Disposal, RE-Resource Extraction
NFS Management Measures — Element C
BMP to Be
Implemented (For a list
of some BMPs, refer to
the Natural Resources
Conservation Service's
(NRCS) Electronic Field
Office Technical Guide)
Total # or Area Unit of
Measure
Estimate of Pollutant Load Reduction— Element B
Describe Methods Used to Estimate Pollutant Load Reduction:
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
^Worksheet 12-5
i's 7lin£-
(continued)
Estimate of Assistance Needed—Element D
Agency Providing Technical Assistance
(For a list of some agencies, refer to appendix J of the
Nonpoint Source Management Plan)
Technical Assistance to be Provided
Agency Providing Technical Assistance
(For a list of some agencies, refer to appendix J of the
Nonpoint Source Management Plan)
Amount of Financial Assistance Provided
Schedule for BMP Implementation—Element F
BMP to Be Implemented
Anticipated Date of Completion
25% complete 50% complete 75% complete 100% complete
Description of Interim Milestones—Element G
Describe interim, measurable milestones:
Method Used to Determine Load
Reduction—Element H
Pollutant Type(s)
Fixed Station Network
Intensive Surveys
Toxics Monitoring Program
Biological Monitoring Program
Fish Tissue Analysis
Volunteer Monitoring Program
Other(s)
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Appendix B: Worksheets
^Worksheet 12-5
(continued)
Monitoring Program—Element 1
Describe monitoring component(s):
Information/Education Component—Element E
Describe information/education component(s):
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
^Worksheet 13-1
Possible Evaluation Questions for Participants
Purpose: To determine how the level of participation in the Watershed Stakeholder Committee has changed over the
past 2 years and why, and to assess the usefulness of the Committee.
Name/Affiliation:
Participation
1. How many Watershed Stakeholder Committee meetings have you participated in over the past 2 years?
2. If you have not participated in all the meetings, what factors would have increased your participation?
Q Hosting the meeting closer to where I live.
a Hosting the meeting at a time that was more convenient for me, such as .
a Providing more advance notice of where and when the meeting was to be held.
a Including topics for discussion that were more relevant to my interests.
a Other:
Group Structure
1. Do you feel the size of the group was adequate? Please explain.
2. Do you feel the composition of the group was representative of the watershed community? Please explain.
Group Input
1. Do you feel the meetings were held to optimize participation from the attendees? Please explain.
2. Do you feel that your input was incorporated into the watershed management planning process? Please explain.
Overall Recommendations
1. What do you think are the most useful aspects of the Watershed Stakeholder Committee?
2. What do you think can make the Watershed Stakeholder Committee more useful?
3. Would you like to be involved in future watershed protection efforts?
B-24
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Appendix B: Worksheets
/"Worksheet 13-2 S^m.pU Topics io Oiscoss 0k
Review Administrative and Management Activities
1 . Are we on track with resources and expenditures?
2. Do we have any gaps in skills or do we need additional technical assistance?
3. What implementation activities have occurred since the last quarterly meeting?
4. Are we meeting our implementation milestones?
5. What are the next management measures to be implemented?
6. Do we have the resources/skills/authorities to proceed?
Review I/E Activities
7. Are we getting participation at the events?
8. What materials have been produced?
9. How were they distributed?
10. What are the upcoming I/E activities?
Review Monitoring Activities
11. Are we meeting our interim load reduction targets?
12. When is the next round of monitoring?
13. How will we publicize the monitoring results?
Additional Issues
14. Are there any upcoming initiatives or new regulatory requirements of which we need to be aware?
15. Are there any additional issues that we need to discuss?
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
ALABAMA
Norm Blakey, Chief
Department of Environmental Management
Nonpoint Source Unit
PO Box 301463
1400 Coliseum Blvd.
Montgomery, AL 36110-2059
Phone: (334) 394-4354
Fax: (334) 394-4383
nb@adem.state.al.us
ALASKA
Kent Patrick-Riley
Acting NFS Program Manager
Alaska Dept. of Environmental Conservation
555 Cordova St.
Anchorage, AK 99501
Phone: (907) 269-7554
Fax: (907) 269-7508
kent_patrick-riley@dec.state.ak.us
AMERICAN SAMOA
Edna Buchan
SAMOA Water Program Manager
American Samoa EPA
P.O. Box PPA
Pago Pago, AS 96799
Phone: (684) 633-2304
Fax: (684) 633-5801
ebuchan2@yahoo.com
ARIZONA
Carol M. Aby
Water Quality Planning Manager
Water Quality Planning Section - 5415A-2
Department of Environmental Quality
1110 West Washington Street
Phoenix, Arizona 85007-2955
Phone: (602) 771-4601
Fax: (602) 771-4528
cma@azdeq.gov
Chris R. Vargas
Surface Water Section Manager
Arizona Department of Environmental Quality
Water Quality Planning Section - 5415A-2
Phone: (602) 771-4665
Fax: (602) 771-4528
crv@azdeq.gov
ARKANSAS
Tony Ramick
Soil and Water Conservation Commission
101 East Capitol, Suite 350
Little Rock, AR 72201
Phone: (501) 682-3914
Fax: (501) 682-3991
tony.ramick@mail.state.ar.us
CALIFORNIA
Syed Ali
State Water Resources Control Board
Nonpoint Source Section
10011 Street
Sacramento, CA 95814
Phone: (916) 341-5555
Fax: (916) 341-5252
sali@waterboards.ca.gov
Steve Fagundes
State Water Resources Control Board
Nonpoint Source Pollution Unit
10011 Street
Sacramento, CA 95814
Phone: (916) 341-5487
Fax: (916) 341-5470
sfagundes@waterboards.ca.gov
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
COLORADO
Lucia Machado
Nonpoint Source Coordinator
Restoration and Protection Unit
Colorado Dept. of Public Health, Environment
4300 Cherry Creek Dr. S.
Denver, CO 80246-1530
Phone: (303) 692-3585
Fax: (303) 782-0390
lucia.machado@state.co.us
Commonwealth of the Northern Mariana Islands
(CNMI)
Frances (Fran) Castro
NFS Program Manager
Division of Environmental Quality
P.O. Box 1304
Saipan, MP 96950
Phone: (670) 664-8506
Fax: (670) 664-8540
fran.castro@saipan.com
CONNECTICUT
Stan Zaremba
Department of Environmental Protection
Bureau of Water Management
79 Elm Street
Hartford, CT 06106
Phone: (860) 424-3730
Fax: (860) 424-4055
stanley.zaremba@po.state.ct.us
DELAWARE
Bob Palmer
Nonpoint Source Program Manager
Division of Soil and Water Conservation
Department of Natural Resources and
Environmental Control
89 Kings Highway
Dover, DE 19901
Phone: (302) 739-8014
Fax: (302) 739-8017
robert.palmer@state.de.us
DISTRICT OF COLUMBIA
Sheila A. Besse
Nonpoint Source Management Branch
Environmental Health Administration
Room 5024 51 N Street, NE
Washington, DC 20020
Phone: (202) 535-2241
Fax: (202) 535-1364
sheila.besse@dc.gov
FLORIDA
John Abendroth
Florida Department of Environmental Protection
2600 Blair Stone Rd.
Tallahassee, FL 32399-2400
Phone: (850) 245-8682
Fax: (805) 245-8434
john.abendroth@dep.state.fl.us
GEORGIA
Michelle Vincent
Georgia Environmental Protection Division
Nonpoint Source Program
4220 International Parkway, Suite 101
Atlanta, GA 30354
Phone: (404) 675-1641
Fax: (404) 675-6245
michelle_vincent@dnr.state.ga.us
GUAM
Margaret P. Aguilar
Guam Environmental Protection Agency
PO Box 22439-GMF
Barrigada, Guam 96921
Phone: (671) 475-1658/59
Fax: (671) 475-8006
margaret.aguilar@guamepa.net
HAWAII
Alec Wong
Chief, Clean Water Branch
Department of Health
P.O. Box 3378
Honolulu, HI 96801-3378
Phone:(808)586-4311
Fax: (808) 586-4352
alec.wong@doh.hawaii.gov
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Appendix C: List of State Nonpoint Source and Watershed Planning Contacts
HAWAII (continued)
Lawana Collier
Polluted Runoff Program
Department of Health
P.O. Box 3378
Honolulu, HI 96801-3378
Phone: (808) 586-4345
Fax: (808) 586-4352
lawana.collier@doh.hawaii.gov
IDAHO
Tim Wendland
Nonpoint Source Manager
Idaho Dept. of Environmental Quality
Water Quality Division
1410 N. Hilton
Boise, ID 83706
Phone: (208) 373-0439
Fax: (208) 373-0576
tim.wendland@deq.idaho.gov
ILLINOIS
Amy Walkenbach
Nonpoint Source Unit Manager
Illinois EPA
P.O. Box 19276, #15
Springfield, IL 62794-9276
Phone: (217) 782-3362
Fax: (217) 785-1225
amy.walkenbach@epa.state.il.us
INDIANA
Andrew Pelloso
IN Department of Environmental Management
P.O. Box 6015
Indianapolis, IN 46206-6015
Phone: (317) 233-2481
Fax: (317) 232-8406
apelloso@idem.in.gov
IOWA
Becky Schwiete
Department of Natural Resources
Wallace State Office Bldg.
Des Moines, IA 50319
Phone: (515) 242-6196
rebecca.schwiete@dnr.state.ia.us
KANSAS
Donald Snethen
Department of Health & Environment
Division of Environment
Bureau of Water - Watershed Management Section
1000 SW Jackson St. Suite 420
Topeka, KS 66612-1367
Phone: (913) 296-5567
Fax: (913) 296-5509
dsnethen@kdhe.state.ks.us
KENTUCKY
Paulette Akers
Nonpoint Source Section Supervisor
Kentucky Division of Water
14 Reilly Road
Frankfort, KY 40601
Phone: (502) 564-3410 x494
Fax: (502) 564-9636
paulette.akers@ky.gov
LOUISIANA
David Hughes
Louisiana Dept of Environmental Quality
Office of Environmental Service
P. 0. Box 4314
Baton Rouge, LA 70821-4314
Phone: (225) 219-3555
Fax: (225) 933-0946
david.hughes@la.gov
John James Clark
Louisiana Dept of Environmental Quality
Office of Environmental Service
P. 0. Box 4314
Baton Rouge, LA 70821-4314
Phone: (225) 219-3595
Fax: (225) 933-0946
john.clark2@la.gov
Brad Spicer, Asst. Commissioner
Butch Stegall, Adm. Coord.
Louisiana Department of Agriculture and Forestry
P.O. Box 3554
Baton Rouge, LA 70821-3554
Phone: (225) 922-1269
Fax: (225) 922-2577
brad_s@ldaf.state.la.us
butch_s@ldaf.state.la.us
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
MAINE
Norm Marcotte
Dept. of Env. Protection
State House #17
Augusta, ME 04333
Phone: (207) 287-7727
Fax: (207) 287-7191
norm.g.marcotte@maine.gov
MARYLAND
Joe Woodfield
Acting NFS Program Manager
Maryland Department of the Environment
1800 Washington Boulevard
Baltimore, MD 21230
Phone: (410) 537-4222
Fax: (410) 537-3873
jwoodfield@mde.state.md.us
MASSACHUSETTS
Jane Peirce
MA Dept. Of Environmental Protection
627 Main St.
Worcester, MA 01608
Phone: (508)767-2792
Fax:(508)791-4131
jane.peirce@state.ma.us
Michael DiBara
MA Dept. Of Environmental Protection
627 Main St.
Worcester, MA 01608
Phone: (508) 767-2885
Fax:(508)791-4131
michael.dibara@state.ma.us
MICHIGAN
Susan Erickson
MI Dept. of Env. Quality
PO Box 30473
Lansing, MI 48909
Phone: (517) 241-8707
Fax: (517) 373-2040
ericksos@michigan.gov
MINNESOTA
Faye Sleeper
MN Pollution Control Agency
520 Lafayette Rd., North
St. Paul, MN 55155
Phone: (651) 297-3365
Fax: (651) 297-8676
faye.sleeper@pca.state.mn.us
MISSISSIPPI
Zoffee Dahmash
Dept. of Environmental Quality
PO Box 10385
Jackson, MS 39289-0385
Phone: (601) 961-5137
Fax: (601) 961-5376
zoffee_dahmash@deq.state.ms.us
Robert Seyfarth
Dept. of Environmental Quality
PO Box 10385
Jackson, MS 39289-0385
Phone: (601) 961-5160
Fax: (601) 961-5376
robert_seyfarth@deq.state.ms.us
MISSOURI
Greg Anderson
Nonpoint Source Coordinator
Missouri Dept of Nat. Resources, WPCP
PO Box 176
Jefferson City, MO 65102
Phone: (573) 751-7144
Fax: (573) 526-6802
greg.anderson@dnr.mo.gov
MONTANA
Robert Ray
MT Dept. of Environmental Quality
Planning, Prevention, and Assistance Division
PO Box 200901
Helena, MT 59620-0901
Phone: (406) 444-9094
Fax: (406) 444-6836
rray@state.mt.us
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Appendix C: List of State Nonpoint Source and Watershed Planning Contacts
NEBRASKA
Elbert Traylor
Nebraska Dept. of Environmental Quality
Suite 400 Atrium 1200 N St P
Lincoln, NE 68509-8922
Phone: (402) 471-2585
Fax: (402) 471-2909
elbert.traylor@ndeq.state.ne.us
NEVADA
Birgit M. Widegren
Nonpoint Source Program Manager
Bureau of Water Quality Planning
Nevada Division of Environmental Protection
901 S. Stewart St., Suite 4001
Carson City, NV 89701
Phone: (775) 687-9550
Fax: (775) 687-5856
bwidegren@ndep.nv.gov
Kathy Sertic
Division of Environmental Protection
333 W.Nye Lane, Room 138
Carson City, NV 89706
Phone: (775) 687-4670 ext. 3101
Fax: (775) 687-6396
ksertic@govmail.state.nv.us
NEW HAMPSHIRE
Eric Williams
NH Dept. of Env. Services
6 Hazen Drive
P.O. Box 95
Concord, NH 03302
Phone: (603) 271-2358
Fax: (603) 271-7894
ewilliams@des.state.nh.us
NEW JERSEY
David McPartland
Dept. of Environmental Protection
Division of Watershed Management
Bureau of Watershed Planning
PO Box 418
Trenton, NJ 08625-0418
Phone: (609) 292-0837
Fax: (609) 633-1458
david.mcpartland@dep.state.nj.us
NEW MEXICO
David Hogge
NM Environment Department
P.O. Box 26110
Santa Fe, NM 87502
Phone: (505) 827-2981
Fax: (505) 827-0160
david_hogge@nmenv.state.nm.us
NEW YORK
Angus Eaton
Dept. of Environmental Conservation
DOW
625 Broadway Avenue, 4th floor
Albany, NY 12233-3508
Phone: (518) 402-8123
Fax: (518) 402-9029
akeaton@gw.dec.state.ny.us
NORTH CAROLINA
Alan Clark
Supervisor, NFS Unit
Division of Water Quality
Raleigh, NC 27626-0535
Phone: (919) 733-5083 ext. 570
Fax: (919) 715-5637
alan.clark@ncmail.net
NORTH DAKOTA
Greg Sandness
SWP - NFS Pollution Control Program
1200 Missouri Ave.
PO Box 5520
Bismarck, ND 58502-5520
Phone: (701) 328-5232
Fax: (701) 328-5200
gsandnes@state.nd.us
OHIO
Gail Hesse
Ohio EPA
122 South Front Street
P.O. Box 1049
Columbus, OH 43215-1049
Phone: 614-644-2146
Fax: 614-460-8275
gail.hesse@epa.state.oh.us
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
OKLAHOMA
Jim Leach, Assistant Director
Conservation Commission
Water Quality Program
5225 N. Shartel, Ste. 102
Oklahoma City, OK 73118-6035
Phone: (405) 810-1039
Fax: (405) 810-1046
jiml@okcc.state.ok.us
J. D. Strong
Office of the Secretary of Environment
3800 North Classen Blvd.
Oklahoma City, OK 73118
Phone: (405) 530-8995
Fax: (405) 530-8999
jdstrong@owrb.state.ok.us
Jennifer Wasinger
Environmental Grants Administrator
Office of the Secretary of Environment
3800 North Classen Blvd.
Oklahoma City, OK 73118
Phone: (405) 530-8800
Fax: (405) 530-8999
jlwasinger@owrb.state.ok.us
OREGON
Ivan Camacho
Dept. of Environmental Quality
811 SW 6th Avenue
Portland, OR 97204
Phone: (503) 229-5088
Fax: (503) 229-5850
camacho.ivan@deq.state.or.us
PENNSYLVANIA
Russ Wagner
Nonpoint Source Section
Bureau of Water Management
Department of Environmental Protection
P.O. Box 8555
Harrisburg, PA 17105-8555
Phone: (717) 787-5859
Fax: (717) 787-9549
ruwagner@state.pa.us
PUERTO RICO
Roberto Ayala or
Wanda Garcia
Planning and Program Division
Water Quality Area
Environmental Quality Board
P.O. Box 11488
Santurce, Puerto Rico 00910-1488
Phone: (787) 767- 8073
Fax: (787) 767-1962
robertoayala@jca.gobierno.pr
wandagarcia@jca.gobierno.pr
RHODE ISLAND
Betsy Dake
Dept. of Environmental Management
235 Promenade St.
Providence, RI 02908-5767
Phone: (401) 222-4700 x7230
Fax: (401) 222-3564
betsy.dake@dem.ri.gov
SOUTH CAROLINA
Meredith Murphy
NFS Program Coordinator
Bureau of Water
SC Dept. of Health and Environ. Control
2600 Bull Street
Columbia, SC 29201
Phone: (803) 898-4222
Fax: (803) 898-4140
murphymb@dhec.sc.gov
Mihir Mehta
Bureau of Water
SC Dept. of Health and Environ. Control
2600 Bull Street
Columbia, SC 29201
Phone:(803)898-4011
Fax: (803) 898-4140
mehtam@dhec.sc.gov
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Appendix C: List of State Nonpoint Source and Watershed Planning Contacts
SOUTH DAKOTA
Dennis Clarke
Dept. of Env and Natural Resources
PMB 2020
DENR-WRA
523 E. Capitol Ave.
Pierre, SD 57501-3182
Phone: (605) 773-4254
Fax: (605) 773-4068
dennis.clarke@state.sd.us
TENNESSEE
Sam Marshall
TN Dept of Agriculture
PO Box 40627
Nashville, TN
Phone: (615) 837-5306
Fax: (615) 837-5025
sam.marshall@state.tn.us
TEXAS
Linda Brookins
Watershed Management Team
Natural Resource Conservation Commission
PO Box 13807
Austin, TX 78711-3087
Phone: (512) 239-4625
Fax: (512) 239-4010
lbrookin@tceq.state.tx.us
UTAH
Rand Fisher
Dept. of Environmental Quality
Division of Water Quality
288 North, 1460 West
Salt Lake City, UT 84114-4870
Phone: (801) 538-6065
Fax: (801) 538-6016
randfisher@utah.gov
VERMONT
Rick Hopkins
Dept. of Environmental Conservation
103 S. Main Bldg. 10 N.
Waterbury, VT 05671-0408
Phone: (802) 241-3770
Fax: (802) 241-3287
rick.hopkins@state.vt.us
VIRGIN ISLANDS
Mr. Syed Syedali
Ms. Diane Caphart
Division of Environmental Protection
Department of Planning and Natural Resources
Watergut Home 1118
Christiansted, St. Croix, VI 00820-5056
Phone: (340) 773-0565
Fax: (340) 773-9310
ssyeda@viaccess.net
dtchart@yahoo.com
VIRGINIA
Richard Hill
Nonpoint Source Program Manager
Division of Soil and Water Conservation
Department of Conservation and Recreation
203 Governor Street, Suite 206
Richmond, VA 23129-2094
Phone: (804) 786-7119
Fax: (804) 786-1798
rick.hill@dcr.virginia.gov
WASHINGTON
Helen Bresler
Department of Ecology
300 Desmond Dr.
PO Box 47600
Lacey, WA 98504
Phone: (360) 407-6180
Fax: (360) 407-6426
hbre461@ecy.wa.gov
Bill Hashim
Department of Ecology
300 Desmond Dr.
PO Box 47600
Lacey, WA 98504
Phone: (360) 407-6551
Fax: (360) 407-6426
bhas461@ecy.wa.gov
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
WEST VIRGINIA
Teresa Koon
Assistant Deputy
Director Nonpoint Source and Framework Branch
Division of Water and Waste Management
Division of Environmental Protection
1201 Greenbrier Street
Charleston, WV 25311
Phone: (304) 926-0499 ext 1020
Fax: (304) 926-0496
tekoon@wvdep.org
WISCONSIN
Russell Rasmussen
Department of Natural Resources
101 S. Webster St.
Madison, WI 53707
Phone: (608) 267-7651
Fax: (608) 267-3579
rasmur@dnr.state.wi.us
Jim Baumann
Department of Natural Resources
101 S. Webster St.
Madison, WI 53707
Phone: (608) 266-9277
baumaj @ dnr.state.wi.us
WYOMING
Jack Smith
Water Quality Division
Dept. of Environmental Quality
122 West 25th Street
Herschler Bldg., 4th floor
Cheyenne, WY 82002
Phone: (307) 332-3144
Fax: (307) 332-3183
jsmith@state.wy.us
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Glossary
The following terms are used throughout this handbook. Refer back to this list if you need
to determine the meaning of any of these terms. In addition, EPA's Terms of Environment:
Glossary, Abbreviations and Acronyms provides definitions for a variety of environmental
terms and is available at www.epa.gov/OCEPAterms.
Baseline
Beneficial uses
Best management
practice (BMP)
Biocriteria
Calibration
Clinger richness
Coefficient of
skewness (g)
Combined sewer
overflow (CSO)
Criteria
CWA section 303(d)
CWA section 305(b)
An initial set of observations or data used for comparison or as a
control; a starting point.
See Designated uses.
A method that has been determined to be the most effective,
practical means of preventing or reducing pollution from nonpoint
sources.
The biological characteristics that quantitatively describe a
waterbody with a healthy community of fish and associated aquatic
organisms. Components of biocriteria include the presence and
seasonality of key indicator species; the abundance, diversity, and
structure of the aquatic community; and the habitat conditions
required for these organisms.
Testing and tuning of a model to a set of field data not used in
developing the model; also includes minimization of deviations
between measured field conditions and output of a model by
selecting appropriate model coefficients.
A metric used to measure the diversity of macroinvertebrates that
have the ability to attach to the substrate in flowing water.
Most commonly used measure of skewness. It is influenced by the
presence of outliers because it is calculated using the mean and
standard deviation.
Overflow from systems designed to collect runoff, domestic sewage,
and industrial wastewater in the same pipe system.
Standards that define minimum conditions, pollutant limits, goals,
and other requirements that the waterbody must attain or maintain
to support its designated use or uses. Criteria describe physical,
chemical, and biological attributes or conditions as measurable
(e.g., parts per million of a certain chemical) or narrative (e.g., no
objectionable odors) water quality components.
Section of the Clean Water Act under which states, territories, and
authorized tribes are required to develop lists of impaired waters.
Section of the Clean Water Act under which states are required to
prepare a report describing the status of their water quality every 2
years.
Glossary-1
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
CWA section 319
Delineation
Designated use
Discounting
Eutrophication
First-order decay
Geographic
information system
(CIS)
Hydrologic unit
code (HUC)
Information/
education (I/E)
activities
Impaired
waterbody
Indicator
Interquartile range
(IQR)
Section of the Clean Water Act under which EPA has developed
guidelines to help states, territories, and tribes implement
nonpoint source pollutant management programs and provide
grants to fund the programs.
The process of identifying a watershed boundary on the basis of
topographic information.
Simple narrative description of water quality expectations or water
quality goals. A designated use is a legally recognized description of
a desired use of the waterbody, such as (1) support of communities
of aquatic life, (2) body contact recreation, (3) fish consumption,
and (4) public drinking water supply. These are uses that the state
or authorized tribe wants the waterbody to be healthy enough to
fully support. The Clean Water Act requires that waterbodies attain
or maintain the water quality needed to support designated uses.
The process of calculating the present value of a project on the basis
of the current value of the projected stream of costs throughout the
project's lifetime.
Enrichment of an aquatic ecosystem with nutrients (nitrogen,
phosphorus) that accelerate biological productivity (growth of algae
and weeds) and an undesirable accumulation of algal biomass.
A reaction in which the concentration decreases exponentially over
time.
A tool that links spatial features commonly seen on maps with
information from various sources ranging from demographics to
pollutant sources.
A unique code, consisting of two to eight digits (based on the four
levels of classification in the hydrologic unit system), that identifies
each hydrologic unit.
Public outreach.
A waterbody that does not meet the criteria that support its
designated use.
Direct or indirect measurements of some valued component or
quality in a system. Can be used to measure the current health of
the watershed and to provide a way to measure progress toward
meeting the watershed goals.
The difference between the 25th and 75th percentile of the data.
Because the IQR measures the range of the central 50 percent of
the data and is not influenced by the 25 percent on either end, it is
less sensitive to extremes or outliers than the sample variance and
standard deviation.
Glossary-2
-------
Glossary
Management
measure
Management
practice
Maximum
(statistics)
McNeil core
Mean
Measure of central
tendency
A group of cost-effective practices implemented cooperatively to
achieve more comprehensive goals, such as reducing the loads of
sediment form a field to receiving waters.
A method that is effective and practical for preventing or reducing
pollution from nonpoint sources. Management practices, which are
the building blocks of management measures, are similar to best
management practices.
The highest data value recorded during the period of record.
A streambed sample collected with a McNeil core sampler and used
to characterize the composition of the substrate.
The sum of all data values divided by the number of samples. The
mean is strongly influenced by "outlier" samples (extremely high
or low samples), with one outlier sample possibly shifting the mean
significantly higher or lower.
Measure that identifies the general center of a dataset.
Measure of range Measure that identifies the span of the data from low to high.
Measure of
skewness
Measure of spread
Median (P0.50)
Mesotrophic
Minimum
(statistics)
Model
Model application
Modeling system
Narrative criteria
Measure that shows whether a dataset is asymmetrical around the
mean or median and suggests how much the distribution of the
data differs from a normal distribution.
Measure of the variability of the dataset.
The 50th percentile data point; the central value of the dataset
when ranked in order of magnitude. The median is more resistant
to outliers than the mean and is only minimally affected by single
observations.
Describes reservoirs and lakes that contain moderate quantities of
nutrients and are moderately productive in terms of aquatic animal
and plant life.
The lowest data value recorded during the period of record.
A representation of an environmental system obtained through the
use of mathematical equations or relationships.
The use of a model or models to address defined questions at a
specific location.
A computer program or software package that incorporates a model
and input and output systems to facilitate application.
Nonnumeric descriptions of desirable or undesirable water quality
conditions.
Glossary-3
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
National Pollutant
Discharge
Elimination System
(NPDES)
Nine minimum
elements
Nonpoint source
Nonstructural
practice
Numeric criteria
Point source
Pollutant
Pollutant load
Probabilistic
sampling
Quality assurance
project plan
(QAPP)
Quartile skew
coefficient (qs)
A provision of the Clean Water Act that prohibits the discharge of
pollutants into waters of the United States unless a special permit is
issued by EPA, a state, or, where delegated, a tribal government on
an Indian reservation.
Components that EPA has identified as critical for achieving
improvements in water quality. EPA requires that these nine
elements be addressed for section 319 funded watershed plans and
strongly recommends they be included in all watershed plans that
are intended to remediate water quality impairments.
Diffuse pollution source; a source without a single point of origin
or not introduced into a receiving stream from a specific outlet.
The pollutants are generally carried off the land by stormwater.
Common nonpoint sources are agriculture, forestry, urban areas,
mining, construction, dams, channels, land disposal, saltwater
intrusion, and city streets.
A practice that prevents or reduces runoff problems in receiving
waters by reducing the generation of pollutants and managing
runoff at the source. This type of practice may be included in a
regulation or may involve voluntary pollution prevention practices.
Criteria or limits for many common pollutants that are based on
laboratory and other studies that test or otherwise examine the
effects of pollutants on live organisms of different species.
A stationary location or fixed facility from which pollutants are
discharged; any single identifiable source of pollution, such as a
pipe, ditch, ship, ore pit, or factory smokestack.
A contaminant in a concentration or amount that adversely alters
the physical, chemical, or biological properties of the natural
environment.
The amount of pollutants entering a waterbody. Loads are usually
expressed in terms of a weight and a time frame, such as pounds per
day (Ib/d).
Sampling in which sites are randomly chosen to represent a larger
sampling population for the purpose of trying to answer broad-scale
(e.g., watershed-wide) questions.
A project-specific document that specifies the data quality and
quantity requirements of a study, as well as the procedures that will
be used to collect, analyze, and report the data.
Measure of the difference in the distances of the upper and lower
quartiles (upper and lower 25 percent of data) from the median. The
qs is more resistant to outliers because, like the IQR, it uses the
central 50 percent of the data.
Glossary-4
-------
Glossary
Reach file
Remote sensing
Sample variance
(s2) and its square
root standard
deviation (s)
SCS curve number
Stakeholder
Sanitary sewer
overflow (SSO)
Structural practice
Targeted sampling
Threatened
waterbody
Total Maximum
Daily Load
(TMDL)
Universal Soil Loss
Equation (USLE)
Validation
A series of national hydrologic databases that uniquely identify and
interconnect the stream segments or "reaches" that compose the
country's surface water drainage system.
The collection of data and information about the physical world by
detecting and measuring radiation, particles, and fields associated
with objects located beyond the immediate vicinity of the sensor
device(s).
The most common measures of the spread (dispersion) of a set
of data. These statistics are computed using the squares of the
difference between each data value and the mean, so that outliers
influence their magnitudes dramatically. In datasets with major
outliers, the variance and standard deviation might suggest much
greater spread than exists for the majority of the data.
Number used to determine runoff, as a result of rainfall, for a
specific land area based on the area's hydrologic condition, land
use, soil, and treatment.
Individual or organization that has a stake in the outcome of the
watershed plan.
An occasional unintentional discharge of raw sewage from a
municipal sanitary sewer.
A practice, such as a stormwater basin or streambank fence, that
requires construction, installation, and maintenance.
Sampling in which sites are allocated to specific locations of
concern (e.g., below discharges, in areas of particular land use, at
stream junctions to isolate subwatersheds) for the purpose of trying
to answer site-specific questions.
A waterbody that is meeting standards but exhibits a declining
trend in water quality such that it will likely exceed standards.
The amount, or load, of a specific pollutant that a waterbody
can assimilate and still meet the water quality standard for its
designated use. For impaired waters the TMDL reduces the overall
load by allocating the load among current pollutant loads (from
point and nonpoint sources), background or natural loads, a margin
of safety, and sometimes an allocation for future growth.
An equation used to predict the average rate of erosion of an area
on the basis of the rainfall, soil type, topography, and management
measures of the area.
Subsequent testing of a precalibrated model to additional field data,
usually under different external conditions, to further examine the
model's ability to predict future conditions. Same as verification.
Glossary-5
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
Water quality Standards that set the goals, pollution limits, and protection
standards requirements for each waterbody. These standards are composed
of designated (beneficial) uses, numeric and narrative criteria, and
antidegradation policies and procedures.
Watershed Land area that drains to a common waterway, such as a stream,
lake, estuary, wetland, or ultimately the ocean.
Watershed A flexible framework for managing water resource quality and
approach quantity within specified drainage area, or watershed. This
approach includes stakeholder involvement and management
actions supported by sound science and appropriate technology.
Watershed plan A document that provides assessment and management information
for a geographically defined watershed, including the analyses,
actions, participants, and resources related to development and
implementation of the plan.
Glossary-6
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Handbook for Developing Watershed Plans to Restore and Protect Our Waters
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