USEPA Office of Water - TMDL Program Results Analysis Fact Sheet 9 - May 11, 2009
Fact Sheet:
Implementing Total Maximum Daily Loads -- Understanding and
Fostering Successful Results
Purpose
Over the last decade, state governments throughout the US have developed Total Maximum Daily Loads
(TMDLs) for impaired waterbodies. These TMDLs identify the amount of a pollutant that a waterbody can
receive and still comply with water quality standards. EPA has now approved TMDLs for thousands of stream
segments and water bodies throughout the country; however, there have been only limited efforts to assess
the extent to which TMDLs are being implemented. This study, completed by Kent State University (KSU) with
funding from EPA grant #AW-83339301-0, assessed the implementation of TMDLs in Ohio and West Virginia.
Questions of focus in the study:
To what extent are TMDLs being implemented in Ohio and West Virginia?
What factors facilitate progress in implementation?
What steps can facilitate further progress in implementation?
Methods
To address the questions above, the research team reviewed 63 EPA-approved TMDL reports for impaired
waters in Ohio and West Virginia. The TMDLs contained in these reports were approved by the EPA between
1998 and September 2006, and they address a total of 174 specific report-pollutant combinations. The
researchers focused on identifying pollutants and their sources, and on collecting information that could be
used to assess TMDL implementation progress. The information contained in these reports was analyzed in
combination with information from other sources to assess implementation progress.
The researchers also reviewed publicly available documents relevant to TMDL implementation in Ohio and
West Virginia, surveyed state staff members involved in developing TMDLs, and interviewed knowledgeable
state officials regarding implementation progress of non-point source as well as point source pollution control
actions in watersheds addressed by the TMDLs. The researchers also reviewed major National Pollutant
Discharge Elimination System (NPDES) permits limiting wastewater discharges in these watersheds. These
reviews were undertaken to determine if recommendations from approved TMDLs have been incorporated into
NPDES permits. Consequently, the study relied on written information and the knowledge and perceptions of
state environmental officials and did not conduct any new environmental sampling and analysis.
Results and Conclusion
The study measured implementation progress through four stages of program activity as a conceptual
framework for evaluation. The first stage of program activity relates to planning and management, and the
study found that these kinds of activities have been implemented in over one-half of the watersheds of focus
within the TMDL reports studied. For example, at least one state official was knowledgeable regarding TMDL
implementation activities in 71% of the watersheds studied, and at least one project was underway in 65% of
these watersheds. 57% of the watersheds had at least one local or regional group working to implement
TMDL-recommended actions.
The second stage focuses on the implementation of controls on pollutants released to TMDL limited waters.
Knowledgeable state officials knew or believed that pollutant loading reductions had occurred in 46% of the
watersheds of focus within the TMDL reports studied. The study also found that more stringent NPDES
effluent limits were implemented most of the time when effluent reductions were clearly targeted by TMDLs.
The state officials interviewed also identified progress in the third stage, which focuses on identifying
incremental improvements in water quality that fall short of full water quality standards attainment. More
specifically, these officials identified improvements in water or sediment quality in 19% of the watersheds

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USEPA Office of Water - TMDL Program Results Analysis Fact Sheet 9 - May 11, 2009
studied. At the fourth stage - full recovery - the study found two cases of full waterbody restoration, and these
two cases constituted 3% of the watersheds studied (see Figure 1).
MANAGEMENT IMPLEMENT
& PLANNING CONTROLS
PARTIAL
RECOVERY
RESTORE
WATER BODY
Stages of Watershed Recovery
Figure 1. Implementation Progress in Ohio and West Virginia.
The research team concluded that both states have made progress in implementing recommendations called
for in TMDLs, and suggested that steps can be taken to accelerate progress and foster TMDL implementation.
Some of these steps are identified below. The study also identified potential driving factors for TMDL
implementation progress in Ohio and West Virginia. The driving factors relating to pollutant load reductions
and general progress in TMDL implementation that were identified are also listed below.
Factors that are useful predictors of whether
state officials believe pollutant load reductions
are occurring as a result of implementation
activities include:
1)	A group taking responsibility for TMDL
implementation
2)	The existence of a state grant to support a
watershed coordinator
3)	Approval or endorsement of a watershed
plan (for non-point source load reductions
only)
4)	Time (as months from TMDL approval
increase, the likelihood of perceived
pollutant loading reductions also increases);
and
5)	The population density in the TMDL area
(higher densities appear to make perceived
pollutant loading reductions less likely)
Steps that state administrative officials and water
quality stakeholders can take to help accelerate
progress in implementing TMDLs include:
1)	Engage local and regional groups in TMDL
development
2)	Provide funding to implement projects to
reduce pollutant loads and improve water
quality
3)	Engage state officials in implementation
processes
4)	Create standardized formats for TMDL
implementation recommendations and
procedures for incorporating TMDL
recommendations into implementation efforts
5)	Develop indicators of implementation progress
and track progress against them
6)	Educate and engage key audiences in TMDL
implementation and its tracking and
management
For more information:
Implementing Total Maximum Daily Loads: Understanding and Fostering Successful Results (December 2008)
is available at http://www.kent.edu/cpapp/upload/TMDL Report-DecemberFINALnew-cover-4.pdf and at
http://www. e pa ,q o v/owow/t md l/res u Its
John Hoornbeek, PhD, Principal Investigator
KSU Center for Public Administration and Public Policy
(330) 672-7148, ihoornbe@kent.edu
Douglas Norton
Project Officer, USEPA grant #AW-83339301-0
(202) 566-1221, norton.doualas@epa.gov

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