Missouri RjVer
MT
United States
Environmental Protection
Agency
Hypoxic Zone
Mississippi River/Gulf of Mexico
Watershed Nutrient Task Force
2019/2021 Report to Congress
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Acknowledgements
Special thanks go to the many federal, regional, and state representatives and their staff who support
the efforts of the Mississippi River/Gulf of Mexico Watershed Nutrient Task Force, also known as the
Hypoxia Task Force (HTF). Their diverse knowledge and expertise contributed to the successful
collaboration and consensus building needed to produce this report to Congress. The U.S.
Environmental Protection Agency (EPA) appreciates the input provided by the HTF member agencies:
State Agencies
Arkansas Natural Resources Commission
Illinois Department of Agriculture
Indiana State Department of Agriculture
Iowa Department of Agriculture and Land Stewardship, State Co-Chair
Kentucky Department for Environmental Protection
Louisiana Governor's Office of Coastal Activities
Minnesota Pollution Control Agency
Mississippi Department of Environmental Quality
Missouri Department of Natural Resources
Ohio Department of Agriculture
Tennessee Department of Agriculture
Wisconsin Department of Natural Resources
Federal Agencies
U.S. Army Corps of Engineers
U.S. Department of Agriculture: Farm Production and Conservation
U.S. Department of Agriculture: Research, Education and Economics
U.S. Department of Commerce: National Oceanic and Atmospheric Administration
U.S. Department of the Interior: U.S. Geological Survey
U.S. Environmental Protection Agency
Tribes
National Tribal Water Council
Additional Entities Participating on the HTF's Coordinating Committee:
Lower Mississippi River Sub-basin Committee
Ohio River Valley Water Sanitation Commission
Upper Mississippi River Basin Association
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Mississippi River/Gulf of Mexico Watershed Nutrient Task Force
2019/2021 Report to Congress
February 2022
Third Report
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Contents
Executive Summary iii
Part 1. The HTF and an Assessment of Progress Made Toward Nutrient Load Reductions 1
1.1 The HTF 1
1.1.1 Structure of the HTF 1
1.1.2 Public Engagement 2
1.1.3 Goals 2
1.1.4 Tracking Progress Toward the 2025 Interim Target and 2035 Goal 3
1.2 Tracking Progress and Scaling Up Work to Reduce Nonpoint Source Loads 4
1.3 Point Source Load Reduction Progress 5
1.4 Targeting Tools for Watershed Planning in Priority Nutrient Reduction Strategy Watersheds 6
1.4.1 Agricultural Conservation Planning Framework 6
1.4.2 Weather Forecast-Based Nutrient Application Tools 7
1.5 Federal Agency Collaboration and Assistance to HTF States and Tribes 7
1.5.1 National Leadership and Federal Programs Working Together 7
1.5.2 Ongoing EPA Program Work on Nutrient Reductions 8
1.5.3 Ongoing USDA Program Work on Nutrient Reductions 10
1.6 State Implementation of Nutrient Reduction Strategies 11
1.6.1 Arkansas 11
1.6.2 Illinois 12
1.6.3 Indiana 17
1.6.4 Iowa 21
1.6.5 Kentucky 25
1.6.6 Louisiana 29
1.6.7 Minnesota 32
1.6.8 Mississippi 37
1.6.9 Missouri 43
1.6.10 Ohio 47
1.6.11 Tennessee 50
1.6.12 Wisconsin 53
Part 2. The Response of the Hypoxic Zone and Water Quality Throughout the MARB 61
2.1 Impacts of Excess MARB Nutrients and Gulf Hypoxia 61
Contents i
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2.2 The Response of the Hypoxic Zone to Excess Nutrients from the MARB 62
2.2.1 Scientific Developments in the Metrics Used for Assessing Gulf Hypoxia 62
2.2.2 Advancements in Modeling and Monitoring the Hypoxic Zone 65
2.3 New Science and Information on Water Quality throughout the MARB 66
2.3.1 Advancements in Monitoring Water Quality and Nutrient Loads in the MARB 66
2.3.2 Advancements in Modeling Water Quality throughout the MARB 69
Part 3. The Economic and Social Effects of the Hypoxic Zone 74
3.1 Advancements in Modeling the Economic and Ecological Impacts of Hypoxia 74
Part 4. Lessons Learned 76
4.1 The Critical Role of Partnerships 76
4.2 The Importance of Incorporating Scientific Advancements and New Findings into Nutrient
Strategies 77
4.3 The Value of State Strategies that Include Core Elements Adapted to Local Circumstances 78
Part 5. Recommended Appropriate Actions to Continue to Implement or, if Necessary, Revise the
Strategy Set Forth in the Gulf Hypoxia Action Plan 2008 80
5.1 Continue to Implement the 2008 Action Plan 80
5.2 Accelerate Actions to Reduce Excess Nutrients 80
5.3 Better Communicate Results to the Public 82
5.4 Conclusion 83
References 84
Contents
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Executive Summary
The Harmful Algal Blooms and Hypoxia Research and Control Amendments Act of 2014 (HABHRCA)
directs the U.S. Environmental Protection Agency (EPA) Administrator, through the Mississippi
River/Gulf of Mexico Watershed Nutrient Task Force (Hypoxia Task Force or HTF), to submit a progress
report to the appropriate congressional committees and the President beginning no later than 12
months after the law's enactment, and biennially thereafter.
This combined 2019/2021 report is the third Report to Congress and describes progress made toward
the goals of the Gulf Hypoxia Action Plan 2008 (2008 Action Plan) (USEPA 2008) through activities
directed by or coordinated with the HTF and carried out or funded by the EPA and federal and state
partners; it provides updates since the 2017 Report to Congress, including actions, newly published
science, and advancements.
This report is organized in accordance with the HABHRCA:
• The HTF and an Assessment of Progress Made toward Nutrient Load Reductions (Part 1)
• The Response of the Hypoxic Zone and Water Quality Throughout the Mississippi/Atchafalaya
River Basin (Part 2)
• The Economic and Social Effects of the Hypoxic Zone (Part 3)
• Lessons Learned(Part 4)
• Recommended Appropriate Actions to Continue to Implement or, if Necessary, Revise the
Strategy Set Forth in the Gulf Hypoxia Action Plan 2008 (Part 5)
The HTF, its partners, and the scientific community have made tremendous strides in characterizing the
hypoxic zone and many of the upstream, land-based factors that contribute to its annual formation.
Among these factors, the effects of climate change are expected to result in more severe and prolonged
periods of hypoxia and acidification. The HTF remains committed to its 2035 goal of reducing the five-
year average areal extent of the hypoxic zone in the Gulf of Mexico (Gulf), to less than 5,000 square
kilometers by 2035, with an interim target for reducing total nitrogen and total phosphorus loads by
20% by the year 2025. The HTF agrees that quantifying the nutrient loads from the
Mississippi/Atchafalaya River Basin (MARB) to the Gulf is a key HTF metric for tracking progress towards
its goals. Key scientific knowledge has advanced and the findings from recent Gulf models confirm that a
dual strategy that reduces both nitrogen and phosphorus by 48% would be sufficient to meet the 2035
goal (Fennel and Laurent 2018). The federal HTF members continue to provide support to the scientific
community to advance the knowledge of nutrient sourcing, fate and transport in the Basin and to the
Gulf, the resource response of the hypoxic zone and water quality throughout the MARB, and economic
and social effects of excess nutrients.
In the thirteen years since the HTF adopted its 2008 Action Plan, the HTF has engaged a wide range of
partners in the public and private sectors. As states implement their nutrient reduction strategies, they
work with diverse groups including universities, agricultural associations, business councils, conservation
organizations, municipalities, wastewater utilities, non-profits, and private foundations. Accelerated
implementation of State Nutrient Reduction Strategies continues to be the path forward and is
supported by technical and financial support from federal HTF members, including support through
Farm Bill Conservation Programs, the Clean Water Act (CWA), the Water Resources Development Act,
Executive Summary
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and others, and with active participation by private sector, nongovernmental, and other partners and
stakeholders at the MARB scale. State-specific summaries of progress are provided in this Report.
The HTF is focused on continuing to identify the highest priority nutrient source areas for conservation
treatment using tools to target priority watersheds, inventory existing conservation practices, and
estimate nutrient load reduction to help target scarce resources. Given the scale of work needed, the
HTF is looking to more fully consider opportunities to expand the use of pay for performance as well as
market-and community-based approaches to broaden the circle of partners who invest in reducing
excess nutrients in the MARB. The HTF is working to communicate successes to producers and their
networks of trusted advisors to further build their support for conservation investments. The HTF is
sharing stories of success and working to acknowledge remaining challenges with the public at large.
Better communication and engagement with the public is essential to sustaining and expanding the
HTF's work.
This Report to Congress is an effective tool for the HTF to describe progress toward reducing nutrient
loads to the northern Gulf, summarize lessons learned in implementing nutrient reduction strategies,
and explain any adjustments to its strategies for improving water quality in the Gulf.
Executive Summary
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HABHRCA 2014: LANGUAGE REGARDING THE HTF1
PUBLIC LAW 113-124—JUNE 30, 2014
Public Law 113-124
113th Congress
An Act
To amend the Harmful Algal Blooms and Hypoxia Research and Control Act of
1998, and for other purposes.
Be it enacted by the Senate and House of Representatives of the United States of America in Congress
assembled,
SECTION 1. SHORT TITLE.
This Act may be cited as the "Harmful Algal Bloom and Hypoxia Research and Control Amendments Act of
2014."
SEC. 7. NORTHERN GULF OF MEXICO HYPOXIA.
Section 604 is amended to read as follows:
"SEC. 604. NORTHERN GULF OF MEXICO HYPOXIA.
"(a) INITIAL PROGRESS REPORTS. —Beginning not later than 12 months after the date of
enactment of the Harmful Algal Bloom and Hypoxia Research and Control Amendments Act of 2014,
and biennially thereafter, the Administrator, through the Mississippi River/Gulf of Mexico Watershed
Nutrient Task Force, shall submit a progress report to the appropriate congressional committees and
the President that describes the progress made by activities directed by the Mississippi River/Gulf of
Mexico Watershed Nutrient Task Force and carried out or funded by the Environmental Protection
Agency and other State and Federal partners toward attainment of the goals of the Gulf Hypoxia
Action Plan 2008.
"(b) CONTENTS.—Each report required under this section shall—
"(1) assess the progress made toward nutrient load reductions, the response of the hypoxic
zone and water quality throughout the Mississippi/Atchafalaya River Basin, and the economic
and social effects;
"(2) evaluate lessons learned; and
"(3) recommend appropriate actions to continue to implement or, if necessary, revise the
strategy set forth in the Gulf Hypoxia Action Plan 2008."
1 On Jan 7th, 2019, the HABHRCA 2014 was amended through the Harmful Algal Bloom and Hypoxia Research and
Control Amendments Act of 2017 (Pub. L. 115-423, §9, Jan. 7, 2019,132 Stat. 5462). Section 604, requiring the HTF
reports to Congress, was unaffected by the 2017 amendments.
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Part 1. The HTF and an Assessment of Progress Made Toward
Nutrient Load Reductions
Each year, the Mississippi/Atchafalaya River Basin (MARB) (made up of 796,800,000 acres that spread
across 31 states and two Canadian provinces) delivers enormous flows of water containing nitrogen and
phosphorus to the northern Gulf of Mexico (Gulf), creating hypoxic conditions that can be inhospitable
to life. These excess nutrients come from the daily activities of citizens throughout America's heartland,
including urban land use, wastewater management and production agriculture on millions of acres of
farmland. In 1997, federal and state agencies formed a Mississippi River/Gulf of Mexico Watershed
Nutrient Task Force (Hypoxia Task Force or HTF) to lead collaborative efforts to reduce Gulf hypoxia and to
improve water quality throughout the Basin.2 Despite strong efforts, reducing nutrient loads from this vast
landscape—one where tens of millions of people live and work—is an extraordinarily large task. The
enormity of this challenge drives collaboration between states, federal partners, and stakeholders to scale
up conservation and increase the use of innovative, community-based and market-based approaches to
supplement traditional state and federal regulatory and grant programs and make more progress.
1.1 The HTF
The HTF is a federal, state, and tribal partnership that works collaboratively and voluntarily on reducing
excess nitrogen and phosphorus loads delivered from the MARB and ultimately reducing the size of the
hypoxic zone in the Gulf. Major efforts undertaken by the HTF are summarized on the HTF history
web page.
1.1.1 Structure of the HTF
Members of the HTF include five federal agencies and 12 states bordering the Mississippi and Ohio
rivers.3 The National Tribal Water Council represents tribal interests on the HTF. The U.S. Environmental
Protection Agency (EPA) is the HTF federal co-chair; the position of state co-chair, established in 2010,
rotates among the state members. Iowa is the current state co-chair. Each HTF member state is
represented by an official from its agriculture, pollution control, or natural resources agency. The
representative state agency frequently works with all relevant agencies within the state to achieve HTF
goals. Senior staff of each member agency and collaborating state agency meet as the Coordinating
Committee and support HTF members.
The HTF membership structure facilitates HTF members partnering on local, state, and regional nutrient
reduction efforts and encourages a holistic approach to reducing hypoxia in the Gulf and improving
water quality in the MARB. This holistic approach includes addressing upstream sources as well as
near-field and downstream impacts. Partnerships are key to scaling up the needed work, and the HTF
strongly values the actions and collaboration of partners described throughout this report.
2 The HTF was convened as an Interstate Management Conference under CWA Section 319(g)(1).
3 Federal and state members: U.S. Environmental Protection Agency; U.S. Department of Agriculture Farm
Production and Conservation and Research, Education and Extension; U.S. Department of Interior; National
Oceanic and Atmospheric Administration; and the U.S. Army Corps of Engineers; and Arkansas, Illinois, Indiana,
Iowa, Kentucky, Louisiana, Minnesota, Mississippi, Missouri, Ohio, Tennessee, and Wisconsin.
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HTF members are supported by a Coordinating Committee; staff from each federal agency and the
National Tribal Water Council, as well as staff from multiple state agencies in addition to the state
member agency make up this committee. The Coordinating Committee meets regularly to share
information on the state of science and communication in the MARB, and to keep each other informed
on state-specific actions to implement nutrient reduction strategies. Ten HTF workgroups are staffed by
Coordinating Committee members and their colleagues to further advance the areas of metric*
development, policy advancement, funding opportunities, and communication coordination. The
workgroups (with further discussion where appropriate) are:
• Nonpoint Source Metrics* (Part 1.2)
• Point Source Metrics* (Part 1.3)
• Water Quality Monitoring*
• Water Quality Trends* (Part 2.3.1)
• Ecosystem/Social Metrics* (Part 1.2)
• Research Needs (Part 4.1)
• Adoption of Innovative BMPs (Part 1.2)
• Communications (Part 5.3)
• Environmental Mitigation for Restoration Projects
• Funding, Traditional and Non-traditional
1.1.2 Public Engagement
The HTF conducts biannual public meetings (concurrently webcasted) throughout the MARB and
periodically in Washington, DC. Recent public meetings were held virtually and in Washington, DC, in
2020, in Baton Rouge, Louisiana, in 2019, and in Arlington, Virginia, in 2018. During each in-person
public meeting since 2016, the HTF has hosted a public networking session that provides an opportunity
for informal engagement between the local community and HTF members.
In addition to these public meetings, stakeholders can engage with the HTF and its members on multiple
levels, including by participating in state efforts as they implement their nutrient reduction strategies,
interacting with land grant universities in partnership with HTF and state efforts, engaging in local
watershed efforts, and contacting HTF representatives and their staff at any time throughout the year.
1.1.3 Goals
In 2001, the HTF first agreed, subject to the availability of resources, to meet a "coastal" goal of reducing
the size of the hypoxic zone in the northern Gulf to a five-year annual average of less than 5,000 square
kilometers by 2015. To achieve this goal, the HTF developed its first Action Plan (2001 Action Plan)
(USEPA 2001), which described nitrogen reduction activities that HTF member states agreed to
implement with federal member support at large sub-basin scales across the Mississippi River Basin (i.e.,
the Upper and Lower Mississippi and Ohio basins). Through the 2001 Action Plan, the HTF also agreed to
restore and protect waters within the MARB and to improve the MARB communities and economic
conditions, in particular the agricultural, fishery, and recreational sectors, through improved public and
private land management using a cooperative, incentive-based approach (USEPA 2001).
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In 2007, the HTF convened a Mississippi River Basin Science Advisory Board Panel to provide an updated
science assessment to the HTF. The Panel estimated that a 45% reduction in total nitrogen and a 45%
reduction in total phosphorus would be needed to reach the goal set by the HTF in 2001 (USEPA 2007).
In 2008, the HTF recognized state nutrient reduction strategies as the cornerstone for reducing nutrient
loads to the Gulf and throughout the Basin, as only states have the authority, with strong support from
federal partners, to achieve the nutrient loss reductions needed. Therefore, in the HTF's 2008 Action
Plan, the first of 11 actions called for states to complete and implement comprehensive nitrogen and
phosphorus loss reduction strategies. The 11th action calls for a reassessment of the Action Plan every
five years. In the Reassessment 2013: Assessing Progress Made Since 2008, the HTF recommended
accelerating the implementation of nutrient reduction activities and identifying ways to track and
measure progress at a variety of scales. The Harmful Algal Blooms and Hypoxia Research and Control
Amendments Act of 2014 (HABHRCA) requires this Report to Congress. The HTF uses this Report to
Congress in place of the reassessments of its Action Plan.
In 2015, recognizing the enormity of the task of reducing nutrient loads on a subcontinental scale, the
HTF affirmed its original goal of reducing the areal extent of the hypoxic zone in the Gulf, but extended
the time for reaching that goal from 2015 to 2035. As part of its New Goal Framework, the HTF agreed
to an interim target for reducing total nitrogen and total phosphorus loads from the MARB to the Gulf
by 20% by the year 2025 and committed to regularly track progress towards its 2025 interim target and
2035 goal (USEPA 2015).
1.1.4 Tracking Progress Toward the 2025 Interim Target and 2035 Goal
To more effectively help track and measure progress towards the 2035 goal and 2025 interim target, the
HTF has worked in recent years to establish and report on specific Gulf and basin wide water quality and
nutrient reduction metrics at a variety of scales. The HTF relies on states to report state-level water
quality and state-level actions taken toward meeting the 2035 goal and 2025 interim target (section
1.6), and relies on federal partners for research, monitoring, and modeling support. The HTF's metrics,
discussed in the 2017 Report to Congress, include:
• Regular tracking of loading trends from nonpoint and point sources (sections 1.2 and 1.3);
• Ongoing work by states to quantify progress towards the 2035 goal and 2025 interim target
through implementing State Nutrient Reduction Strategies (section 1.6);
• The five-year average areal extent of the hypoxic zone, based on the National Oceanic and
Atmospheric Administration's (NOAA) annual hypoxic zone cruise that measures the areal
extent (section 2.2);
• Water quality, river flow data, and trend analyses (section 2.3); and
• Modeled decadal riverine nutrient loading trends using U.S. Geological Survey (USGS) National
Water Quality Network data (section 2.3.1) and U.S. Department of Agriculture (USDA)
Conservation Effects Assessment Project (CEAP) models (section 2.3.2).
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1.2 Tracking Progress and Scaling Up Work to Reduce Nonpoint Source
Loads
Since 2014, the state-led Nonpoint Source Workgroup (the HTF NPS Workgroup) has coordinated HTF
efforts to track progress in reducing nonpoint source loads of excess nutrients to the Gulf. In tracking
progress, the HTF NPS Workgroup focused on developing a method of tracking conservation practice
implementation. Examples of conservation practices include cover crops, conservation tillage, saturated
buffers, riparian buffers, wetlands, conservation drainage water management, nutrient management,
terraces, and sediment-trapping ponds.
The HTF published its first Nonpoint Source Progress Report in 2018. Findings in this report include the
following:
• Many federal and state agencies collect, store, and report on conservation actions implemented
throughout the MARB.
• There is no consistent framework for all 12 HTF states to use in reporting nonpoint source
metrics. States currently use a variety of methods to store and report data on conservation
practice implementation.
• A more consistent nonpoint source metric framework would allow HTF members to more
effectively track and evaluate progress, and adaptively manage their programs; facilitate more
effective collaboration with partners; and support improved communication about the HTF's
work.
In addressing these findings, the HTF NPS Workgroup set two guiding principles for developing and
implementing common metrics of nonpoint source progress:
• They must be reasonably reportable by all member states and federal agencies; and
• They must be meaningful metrics of nutrient load reductions to the Gulf.
The HTF NPS Workgroup examined several potential metrics and determined that a conservation
practice inventory is the most fitting common metric to track the collective effort of practice
implementation by state, federal, and local governments, and—to the greatest extent practicable-
partners. The HTF would update the practice inventory on a recurring basis and use the inventory and
load reduction modeling tools to track progress in reducing nonpoint source loads of excess nutrients.
Because so many entities are working to reduce nonpoint source nutrient loads to the Gulf—federal,
state, and local agencies; individual landowners and producers; nongovernmental organizations (NGOs)
and foundations; corporate sustainability programs; and others—developing a common approach to
inventorying conservation practices and then estimating load reductions is a complex endeavor.
However, with support from the Walton Family Foundation, this work is advancing through the
leadership of researchers from the land grant universities in the 12 HTF states, working collaboratively in
a group known as Southern Extension and Research Activities committee number 46 (SERA-46) (see
section 4.1). SERA-46 researchers first worked with two pilot states, Arkansas and Indiana, to build a
quantitative assessment of conservation practice implementation from state and federal sources. This
work has now expanded to include three additional states: Illinois, Kentucky, and Minnesota.
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At the May 2019 Public Meeting, the HTF heard presentations on new tools that use aerial photography,
satellite imagery, and remote sensing techniques to track landscape-scale implementation of
conservation practices. These tools can document where all of these practices are situated on the
landscape, regardless of whether the practice was mandated, voluntary, or funded by a third party. The
HTF NPS Workgroup is now considering how to integrate these tools into a nonpoint source reporting
framework, even if they are not yet available in each state, and the HTF has published a compendium
guide to share information on many of the tools that exist for use in the MARB. The HTF
Ecosystems/Social Metrics Workgroup is exploring a subset of these tools to recommend additional
ecosystem benefits, such as carbon sequestration, that can accrue with adoption of nutrient reduction
practices and thus be tracked as HTF metric.
Since the 2017 Report to Congress, the significant challenge of scaling up conservation implementation
throughout the MARB has been further explored (Rao and Power 2019). The scaling up process is
defined as generally using watersheds as the scalable units for planning, priority setting, and
implementation while recognizing the diversity of state and local opportunities and needs. For
efficiency, planning and priority setting might occur at a larger scale such as an eight-digit hydrologic
unit code (HUC-8) watershed, which is about 700 square miles. As Rao and Power (2019) note, however:
[successful implementation of watershed plans requires strong, local networks to expand
awareness of watershed issues and maintain trust. In the upper Midwest, these local social
networks tend to be more similar in size to a HUC-10 (typically ranges in size from about 40,000-
250,000 acres) or HUC-12 watershed (typically ranges in size from about 10,000-40,000 acres),
therefore implementation at smaller scales tends to be necessary for success.
Key elements of successfully scaling up conservation implementation include skilled leadership and
management; local champions; and policies and financial frameworks that incentivize and provide stable
funding for scaling up work. Tracking social indicators as outcomes of focused skilled leadership and local
champions elements support landscape-scale changes in the use of conservation practices and systems.
Another important opportunity to promote landscape scale deployment of conservation practices is
harnessing the use of market forces, including water quality trading (WQ.T) as well as community-based
and collaborative programs, to increase the scale of investment in nonpoint source reductions beyond
the levels that have been achieved to date using regulatory and traditional grant and cost-share
programs. These opportunities are discussed further in section 1.5.
1.3 Point Source Load Reduction Progress
As part of the HTF's Revised Goal Framework, the HTF also committed to tracking point source progress.
The HTF Point Source Workgroup (HTF PS Workgroup) reported on two metrics in 2016: (1) the number
and percentage of major sewage treatment plants (including publicly owned treatment works) that were
issued National Pollutant Discharge Elimination System (NPDES) permits with monitoring requirements
for nitrogen and/or phosphorus, and (2) the number and percentage of those that were issued NPDES
permits with numeric discharge limits for nitrogen and/or phosphorus.
In January 2018, the HTF adopted an additional metric to track point source progress: estimated loads of
nitrogen and phosphorus discharged by major sewage treatment plants and, in 2019, issued a second
Point Source Progress Report. This report generally uses a common tool, the Water Pollutant Loading Tool
to calculate or estimate facility discharge loads. Some notable findings include the following:
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• Across the 12 HTF states, 70% of permits for major sewage treatment plants discharging to the
MARB included monitoring requirements for both nitrogen and phosphorus, an increase from
56% in 2014. Eighty-six percent of permits for major sewage treatment plants included
monitoring requirements for at least one nitrogen or phosphorus parameter, an increase from
71% in 2014.
• Thirty-two percent of the permits for major sewage treatment plants that discharge to the
MARB have limits for nitrogen or phosphorus, an increase from 27% in 2014; most of these
permits have phosphorus limits. Four percent of the permits for major sewage treatment plants
include limits for both nitrogen and phosphorus.
• In sum, the 1,199 major sewage treatment plants that discharge to the MARB contributed
287,708,571 pounds of nitrogen and 44,972,256 pounds of phosphorus to nutrient loads in the
MARB. For comparison, USGS calculates that the total nutrient loads from the MARB to the Gulf
in Water Year 2017 were approximately 3,320,000,000 pounds of nitrogen and 314,000,000
pounds of phosphorus.
The third Point Source Report is in development. As noted in its 2019 report, the HTF PS Workgroup
continues to examine options for deriving a common point source-specific loading baseline for the
1980-1996 period, which the HTF uses to track overall progress in reducing nutrient loads to the Gulf.
Iowa undertook a pilot project to evaluate whether a 1992 point source data set developed by USGS
could be used to reasonably estimate loads from that year. Results are promising; the HTF PS
Workgroup is exploring whether other states can also use this USGS data set to estimate 1992 point
source loads to establish a baseline.
1.4 Targeting Tools for Watershed Planning in Priority Nutrient
Reduction Strategy Watersheds
As states implement Nutrient Reduction Strategies, they focus on priority watersheds. Since the 2017
Report to Congress, several planning and conservation-targeting tools are being more widely used
throughout the MARB. As an example of how USDA integrates these types of tools into their technical
and financial support opportunities, USDA is transitioning to a new Conservation Assessment and
Ranking Tool (CART). CART is designed to assist conservation planners assess site vulnerability, existing
conditions, and potential resource concerns on a unit of land (e.g., agricultural field). This screening-
level assessment includes the use of geospatial data and other information to assist USDA staff and
partner planners determine if additional conservation practices may be necessary on a particular unit of
land. CART captures this information for use in prioritization for programs and funding.
1.4.1 Agricultural Conservation Planning Framework
A watershed targeting tool, the Agricultural Conservation Planning Framework (ACPFi. founded on
USDA's CEAP concepts and techniques (see Section 2.3.2. for further information), was released in 2015
by a USDA-led partnership and updated in 2019. ACPF includes tools to process Light Detection and
Ranging (LiDAR)-based digital elevation models for: (1) hydrologic analysis and identification of
agricultural fields most prone to deliver runoff directly to streams; (2) map and classify riparian zones to
inform whole-watershed riparian corridor management; and (3) estimate the extent of tile drainage in a
watershed. The software maps locations appropriate for installation of several types of conservation
practices, including controlled drainage, grassed waterways, water and sediment control basins, and
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nutrient removal wetlands. This targeting tool is used by watershed planners for projects in several
MARB states where appropriate data is available, including Illinois, Indiana, Iowa, Minnesota, and
Wisconsin, to make progress on federal or State Nutrient Reduction Strategy projects (Tomer et al.
2013). USDA's Natural Resources Conservation Service (NRCS) has an agreement with USDA's
Agricultural Research Service through FY2021 to provide support and assistance to NRCS staff and
partners to use and adopt the ACPF, and to apply ACPF results in watershed planning and assessment to
inform conservation practice implementation and outreach strategies for water quality efforts. Illinois,
Indiana, Iowa, Missouri and Wisconsin NRCS are participating as pilots, and ACPF expansion into new
geographic areas is supported through CEAP Watersheds. In FY 2021, NRCS provided funding for the
establishment of a HUB for the ACPF tool and implementation as well as funding to enhance ACPF and
address development opportunities.
1.4.2 Weather Forecast-Based Nutrient Application Tools
NOAA and USDA are supporting complementary efforts to develop state and local decision-support tools
to minimize potential nutrient losses from watersheds due to various weather and precipitation
conditions. NOAA and USDA are exploring possible collaboration on the development of an optimal
approach for states using these tools.
Working with state partners, NOAA's National Weather Service (NWS) has developed Runoff Risk
Advisory Forecasts across the Great Lakes region with the help of the Great Lakes Restoration Initiative.
These tools guide farmers and producers on how the timing of fertilizer and manure applications can
minimize nutrient losses. A significant percentage of annual nutrient losses can occur from only a few
large precipitation events per year. Relying on NOAA's NWS modeling, on-farm research data, and multi-
partner collaboration, these tools offer a science-based approach to nutrient application timing. The
tools are currently available in Ohio, Michigan, Minnesota, and Wisconsin, with potential for expansion
into New York and Indiana in the next couple of years. A newer Runoff Risk version based on the NWS
National Water Model is also in development. If operationalized, this new version could offer potential
coverage to the lower 48 states, pending state interest and collaboration. If Runoff Risk tools are
implemented across the MARB, HTF member states would be able to encourage their use to enhance
farm-scale nutrient management planning and help minimize nutrient loss to local water bodies and
ultimately to the Gulf.
1.5 Federal Agency Collaboration and Assistance to HTF States and
Tribes
1.5.1 National Leadership and Federal Programs Working Together
In December 2018, EPA and USDA jointly invited directors of state environmental and agricultural
programs to engage with the federal agencies and identify local opportunities to reduce excess nutrients
in waterways. In advance of the May 2019 HTF meeting, EPA convened an interagency leadership team
from EPA, USDA, NOAA, U.S. Department of Interior, and the U.S. Army Corps of Engineers (USACE) in a
nutrient roundtable discussion with national leaders in conservation financing and implementation. The
nutrient roundtable discussion focused on the challenges and opportunities for reducing nutrient
pollution in the Mississippi River Basin, with emphasis on how the federal agencies can better focus
financial, scientific, and technical resources in working with states and collaborators to make greater
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progress in improving water quality in the MARB and across the country. As an outcome of this
convening, the states submitted a letter to the federal agencies in June requesting additional action in
several areas in order to make greater progress. In response, seven additional HTF workgroups were
launched at the February 2020 HTF meeting in response to these state-identified needs (see Part 1.1.1).
USDA and EPA continue to partner on watershed-scale implementation of agricultural conservation
practices for nutrients through the National Water Quality Initiative (NWQI). The program is supporting
enhanced conservation planning in all NWQI watersheds. States report that more than 25% of NWQI
watersheds with monitoring programs show improved water quality. States have also "delisted" nine
more NWQI watersheds as no longer impaired by nutrient-related pollution.
In 2019, USDA expanded the scope of NWQI to include source water protection (SWP) as an additional
focus area, including both surface and ground water sourced public water systems. EPA worked closely
with USDA to assist partners in adapting and expanding SWP plans to identify critical source areas
related to agricultural land uses. Twenty-three SWP projects have been selected to date for funding
through 2023.
The Agriculture Improvement Act (the 2018 Farm Bill) placed an emphasis on collaboration between
agriculture producers and the drinking water community and directs 10% of conservation dollars to
activities that benefit drinking water source water. EPA works with USDA NRCS on opportunities to
implement conservation and management practices that protect both surface and ground water drinking
water sources from nutrient and other agriculture-related impacts. EPA is also working with NRCS to foster
communication and partnerships among NRCS, state, and water utility leaders to capitalize on resources
provided through the USDA's conservation programs to target source water concerns.
NOAA, EPA, and the Office of Science and Technology Policy (OSTP) co-chair the Interagency Working
Group for the HABHRCA. This Interagency Working Group has made advances in the scientific
understanding and ability to detect, predict, control, mitigate, and respond to harmful algal blooms
(HABs) and hypoxia events. This group is tasked with coordinating and convening Federal agencies to
discuss HAB and hypoxia events in the United States, and to develop action plans, reports, and
assessments of these events. In addition to publishing several reports, they are working with
communities, resource managers, and other stakeholders to allow managers to prepare well in advance
through forecasts and monitoring and minimize impacts during an event.
In August 2019, EPA and four federal partners (USGS, USDA, the National Institute of Standards and
Technology, and NOAA's U.S. Integrated Ocean Observing System) announced the winners of the
Nutrient Sensor Action Challenge, a technology-accelerating water quality challenge that is focused on
advancing nutrient management. The winners demonstrated how data from low-cost water quality
monitoring sensors can be used to inform local-scale nutrient management decisions.
1.5.2 Ongoing EPA Program Work on Nutrient Reductions
In fiscal years (FYs) 2017 and 2018, EPA provided $94.9 million in grants to HTF states to support their
work in reducing nonpoint source pollution. States are currently reporting that approximately 40% of
these funds ($37 million) will go specifically toward reducing nutrient pollution. Most of the projects
that states fund with these grants reduce excess nutrients, either directly or as a co-benefit. The HTF
member states recorded 16 water bodies with waters primarily impaired by nonpoint source nutrient
loads are now restored and meet state water quality standards.
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EPA's Gulf of Mexico Division awarded $2 million for two grants in 2018 and $7.5 million for seven
grants in 2019 to fund projects that improve water quality, habitat, and environmental education in the
Gulf watershed, with a significant focus on reducing excess nutrients delivered to the Gulf.
In October 2019, EPA published, on behalf of the HTF, the first HTF Newsletter, highlighting recent state
and federal activities that provide the public a summary of the activities HTF members are supporting
and undertaking. The public can sign up to receive this newsletter. Through July 2021, eight newsletters
have been published.
EPA continues to provide more than $1 billion each year in capitalization grants for state revolving fund
(SRF) loan programs, which states can use to help communities reduce excess nutrients. Some states
such as Iowa and Ohio use innovative "sponsorship projects" that pair towns with farmers to work on
cost-effective nutrient conservation practices. States can use SRF loans for point or nonpoint source
projects to improve water quality.
In 2019 and 2020, EPA provided $2.4 million dollars in grants to the twelve HTF member states to help
them implement tailored and effective plans to reduce excess nutrients in the MARB, including updating
nutrient management plans, developing water quality trading programs and demonstrating best
practices in high-priority watersheds. State grant outcomes include the following key themes:
• Reporting and communicating of state progress to HTF member states and the public
• Prioritization of high-impact watersheds: Determine approach for identifying major sources of
nutrients in state
• Identification and adoption of state-level actions and programs to better support nutrient
reductions
• Deployment of staff to plan, prioritize, engage partners and stakeholders in priority watersheds,
and manage progress tracking mechanisms
• Assessment of progress: Identify and develop accountability measures
• Assessment of progress: Develop and deploy a system for tracking and reporting progress
• Support State Science Assessment
In February 2019, EPA signed a Memorandum of Understanding (MOU) with the Water Research
Foundation to develop affordable technologies to recycle nutrients from manure. This MOU builds on
successes achieved through the Nutrient Recycling Challenge, a competition launched by EPA with the
Foundation and others to develop affordable technologies to recycle nutrients from livestock manure.
In August 2021, EPA published revised ambient water quality criteria to address nutrient pollution in
lakes and reservoirs. These Clean Water Act Section 304(a) recommended ambient water quality criteria
are part of EPA's ongoing effort to help states and authorized tribes in adopting numeric nutrient criteria
into their water quality standards to protect public health and the health of pets and aquatic life from
the adverse effects of nutrient pollution and harmful algal blooms. The criteria represent the latest
scientific knowledge of the concentrations of nitrogen and phosphorus that are protective of drinking
water sources, recreational uses and aquatic life in lakes and reservoirs. EPA developed national
statistical models that provide a flexible approach for identifying appropriately protective numeric
nutrient criteria. States and authorized tribes can use the national models or incorporate local data into
them to help develop numeric nutrient criteria that are consistent with national relationships while
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accounting for unique local conditions. These criteria replace EPA's previously recommended ambient
nutrient criteria for lakes and reservoirs that were published in 2000 and 2001.
1.5.3 Ongoing USDA Program Work on Nutrient Reductions
USDA's NRCS offers financial and technical assistance to help landowners implement voluntary
conservation practices through various programs, including the Environmental Quality Incentives
Program (EQIP), Regional Conservation Partnership Program (RCPP), Conservation Stewardship Program,
and Agricultural Conservation Easement Program. From FY 2009 through FY 2020, NRCS invested $13.9
billion in voluntary conservation programs and conservation technical assistance in HTF states.
Beginning in the 2008 Farm Bill, NRCS developed several landscape conservation initiatives that target
voluntary conservation program funding to areas with critical natural resource concerns. Design and
delivery approaches of these initiatives has been informed by CEAP watershed studies and CEAP-based
assessment tools. These water quality initiatives also intersect with MARB, cross geopolitical boundaries,
take a science-based approach to addressing resource concerns on a landscape scale, and rely on strong
planning and partnerships to enhance and accelerate conservation system implementation.
• There are over 80 NWQI priority watersheds within the 12 HTF states. From 2012 through 2021,
NRCS obligated $106 million through NWQI to address nutrient and sediment runoff, supporting
farmers in treating over 370,000 acres.
• The Mississippi River Basin Healthy Watersheds Initiative (MRBI) priorities are aligned with and
support each state's nutrient reduction strategy. From 2010 through 2021, MRBI supported
conservation on almost 1.7 million acres, with EQIP obligations totaling $403 million.
• RCPP projects for water quality within the 12 HTF states since 2017, totaling over $143 million in
financial assistance for water quality efforts, included partners such as watershed improvement
districts, irrigation districts, soil and water conservation districts (SWCDs), American Farmland
Trust, Ducks Unlimited, The Conservation Fund, and state agencies.
• USDA's Farm Service Agency (FSA) administers the Conservation Reserve Program (CRP), a
voluntary program through which participating landowners convert highly erodible and
environmentally sensitive cropland into conservation covers. There were 6.9 million acres
enrolled in CRP in the 12 HTF states as of July 2018.
• NRCS provided the HTF NPS Workgroup with EQIP implementation data from 2009 to the
present. NRCS will annually provide certified EQIP data for the 12 MARB states in the format
requested by the HTF NPS Workgroup.
USDA's Office of Environmental Markets supports the development of market-based programs across
the country, evaluates the economics of markets, and develops tools and resources such as the Nutrient
Tracking Tool (NTT) to help landowners estimate environmental services of conservation efforts and
participate in markets, where available. NTT is a field-specific tool developed to estimate nutrient and
sediment losses and estimate yield impacts, helping to inform conservation decisions on the farm. NRCS
supports the development of environmental markets and conservation finance approaches through its
programs such as Conservation Innovation Grants and the RCPP. USDA's National Institute of Food and
Agriculture (NIFA) also provides funding for environmental market related research, including water
quality trading.
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1.6 State Implementation of Nutrient Reduction Strategies4
1.6.1 Arkansas
The Arkansas Nutrient Reduction Strategy is a strategic framework that outlines both regulatory and
voluntary opportunities to improve overall aquatic health and viability in Arkansas waters for
recreational, economic, environmental, and human health benefits. The strategic framework recognizes
that achievement of water quality goals requires iterative and collaborative processes that, when
implemented over time, result in incremental progress toward improvement goals. Those processes
adhere to the following guiding principles:
• Strengthening existing programs;
• Promoting voluntary, incentive-based, cost-effective nutrient reduction metrics;
• Incorporating adaptive management and flexible strategic planning;
• Leveraging available financial and technical resources; and
• Pursuing market-based opportunities and solutions.
Arkansas Nutrient Reduction Strategy Update
In 2018, Arkansas initiated a stakeholder process to update and revise the Arkansas Nutrient Reduction
Strategy. The update to the Arkansas Nutrient Reduction Strategy will build on the successes of the
original strategy and will focus on establishing a new method of measuring overall progress, targeting
nutrient-focus watersheds, and reporting nutrient reductions from nonpoint source practices.
Measuring Success
As part of the process to update the Arkansas Nutrient Reduction Strategy, it was determined that a
revised method for measuring success toward meeting the goals of the Strategy should be established.
It was agreed that Arkansas will measure progress/success by analyzing the directional change of 75% of
all total nitrogen and total phosphorus concentration data within each 8-digit HUC from 1990 to the
present. Based on a preliminary analysis of phosphorus concentrations throughout Arkansas since 1990,
33% of Arkansas 8-digit HUC watersheds have exhibited significant reductions in phosphorus
concentrations, whereas only one Arkansas 8-digit HUC watershed has exhibited a significant increase in
phosphorus concentrations. Additional analysis of Arkansas's progress/success will be performed and
presented in the forthcoming update to the Arkansas Nutrient Reduction Strategy.
Targeting Nutrient Focus Watersheds
One important aspect of the strategy update is to focus limited resources in watersheds that have the
potential to result in the greatest reduction in nutrient loading. For that reason, focus watersheds will be
identified for the purpose of prioritizing resources.
4 These summaries were drafted by HTF states and incorporated into this document with very little editing; the
summaries reflect state actions as described by the states.
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Focus watersheds will be identified by analyzing site-specific trends in nutrient concentrations at the
Arkansas Department of Environmental Quality's ambient monitoring stations as well as select roving
stations when adequate concentration and flow data exist. Water quality trends will be evaluated using
a three-step process: (1) water quality data will be log-transformed, (2) nutrient concentrations will be
flow-adjusted using LOESS smoothing techniques, and (3) flow-adjusted concentration data will be
evaluated for changes over time.
The categorization of watersheds will be based upon several levels of information including site-specific
trends and trends in percentile nutrient concentrations at the HUC-8 and ecoregion level. The goal is to
evaluate trends of nutrient concentrations relative to those observed within the watershed and
ecoregion watershed-wide. This will help determine if the watershed should be a priority for
concentrating nutrient reduction efforts or for data collection. Once focus or priority watersheds are
identified, resources to address both point and nonpoint sources of excess nutrients will be focused in
those watersheds with the goal of measuring significant instream nutrient reductions. This strategy has
proven highly effective in the Illinois River watershed and Arkansas seeks to expand that success to
additional targeted watersheds throughout the state.
Nutrient Reduction Measurement Framework
As part of the update to the Nutrient Reduction Strategy, it was determined that a common framework
should be developed for the purpose of tracking and measuring progress in reducing excess nutrients
from agricultural management practices (i.e., best management practices (BMPs)) applicable for the
Lower Mississippi River Basin. The general approach for formulating an Arkansas Nutrient Reduction
Measurement Framework was as follows: A panel of experts was convened to identify nutrient
reduction practices used in Arkansas row crop and animal production systems and reach consensus on
expected reduction efficiencies for these practices. Irrigation water management practices and their
expected nutrient reduction efficiencies were included, as were suites of BMPs implemented in
Arkansas agriculture and their collective nutrient reduction efficiencies. Commonly used BMPs and
suites of BMPs that require additional research before inclusion in the Arkansas Framework were also
identified. Results of this effort will be incorporated into the updated Strategy.
1.6.2 Illinois
The Illinois Nutrient Loss Reduction Strategy (INLRS or Strategy), which was released in 2015, is based on
an assessment of available science and uses the input of Illinois stakeholders.
In 2017, Illinois released their first Nutrient Loss Reduction Strategy Biennial Report. That report
describes the actions taken to achieve the nutrient reduction goals since the release of the INLRS. Illinois
has been able to make significant progress in many areas despite no new state or federal funding. This
progress was made due to the numerous partnerships that leveraged resources and refocused efforts to
meet nutrient loss reduction goals. As the program matures and more stakeholders and organizations
become engaged, continued progress and growth is expected. A second biennial report covering more
recent efforts was released in the fall of 2019.
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Updates on INLRS Implementation
The INLRS established several workgroups responsible for implementing the actions recommended
within the Strategy. These workgroups meet two to three times each year. Updates for each workgroup
are summarized below:
• Policy Working Group-The Policy Working Group continues to meet twice per year to provide
oversight and recommendations for implementing the overall Strategy. Close to 30
organizations are represented in this group, representing point source, agriculture, urban
stormwater, and conservation/environmental groups. The Policy Working Group was focused on
developing the 2019 Biennial Report.
• Performance Benchmark Committee-This committee has previously focused on benchmarks for
point sources, but in 2018 began to discuss benchmarks and adaptive management approaches
for nonpoint source pollution as well. This resulted in a new chapter featured in the 2019
Biennial Report called "Adaptive Management and Measuring Progress." This chapter compares
water quality goals with observed water quality data as well as implementation goals for point
and nonpoint sources compared to current implementation levels.
• Nutrient Monitoring Council-The Nutrient Monitoring Council continues to meet three times per
year. USGS provides updates on the performance of the network of nine "super gauges" in Illinois
that continuously measure flow, nutrients, and other parameters. Members also provide updates
and results from ongoing monitoring efforts being conducted by other agencies and organizations.
• Nutrient Science Advisory Committee-A committee of six experts was convened to guide the
Illinois Environmental Protection Agency (EPA) on the development of numeric nutrient criteria
for Illinois streams and rivers based on the best available science. A final report to Illinois EPA
was released in early 2019 and was made available for public review and comment. Based on
the comments provided by stakeholders, Illinois EPA is currently determining whether the
recommendations should be proposed to the Illinois Pollution Control Board to begin the
rulemaking process.
• Agriculture Water Quality Partnership Forum-Members representing the agriculture sector
continue to meet two to three times per year. Partnerships and collaborations continue to
develop. The forum seeks to identify new paths for tracking the adoption of conservation
practices and new streams of revenue to offset implementation costs.
• Urban Stormwater Working Group (USWG)-The USWG has added two subcommittees: an
education subcommittee and a tracking subcommittee. The Education Subcommittee works to
identify outreach materials focusing on nutrient loss reduction that can be easily distributed to
stormwater managers throughout the state. The Tracking Subcommittee is identifying options
for tracking practices that reduce nutrient loads from urban stormwater.
• Communication Subgroup-The Communications Subgroup was stood up at the beginning of
2018 based on Policy Working Group recommendations. This subgroup had two objectives:
(1) develop a presentation that anyone can use to inform the general public about the INLRS,
particularly segments of the public that traditionally have not been a part of INLRS discussions;
(2) write a letter, signed by directors of the Illinois EPA and Illinois Department of Agriculture, to
be sent to members of the Illinois General Assembly and Senate, along with copies of the INLRS
and the 2017 Biennial Report, to build awareness about the program. Both objectives were met
by the spring of 2018.
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Agriculture Nonpoint Sources Programs and Projects
Besides traditional state and federal cost-share programs, most of the outreach and implementation
activities are initiated through partnerships and collaborations within the agriculture industry and
related organizations. Many of these are highlighted in the INLRS and the 2017 and 2019 Biennial
Reports. The programs and projects presented below highlight both new and ongoing initiatives.
S.T.A.R. Program
Developed by the Champaign County Soil and Water Conservation District, Saving Tomorrow's
Agriculture Resources (S.T.A.R.) is a free tool to assist farm operators and landowners in evaluating their
nutrient and soil loss management practices on individual fields. The purpose of S.T.A.R. is to motivate
those making cropping decisions to use the BMPs that will ultimately meet the goals of the INLRS. At the
end of 2019, 45 counties offered the program through county Soil and Water Conservation Districts and
county Farm Bureaus. The goal is to make S.T.A.R. available in every county in Illinois.
Illinois Sustainable Agriculture Partnership
The Illinois Sustainable Agriculture Partnership is a coalition of partners who have come together to
promote soil health, cover crops, water quality, nutrient management, and conservation issues to meet
the goals of the INLRS. A network of regionally based soil health specialists has been established, as well
as training for those working directly with farmers such as the Advance Conservation Drainage Training
and Advance Soil Health Training held during 2018 and 2019. Other programs include the S.T.A.R.
Program and Illinois Corn Growers Association's Precision Conservation Management.
Nutrient Stewardship Grant Program
Since 2016, the Illinois Farm Bureau Board of Directors has dedicated $100,000 annually to the Nutrient
Stewardship Grant Program to empower county farm bureaus to work with local partners to implement
the INLRS in a meaningful way in their areas. Projects include education and outreach activities, and on-
farm evaluation and installation of both infield and edge-of-field practices. Learn more.
4R4U
In 2016, the Illinois Farm Bureau and GROWMARK announced this initiative to demonstrate and
investigate right source, right rate, right time, right place (4R) nutrient stewardship practices at the local
level. This statewide collaboration focuses on highlighting on-farm nutrient management practices and
data that show how 4R nutrient stewardship optimizes crop yield while reducing environmental impacts.
The Illinois Farm Bureau and GROWMARK provide financial and programmatic support for the project;
FS Systems member companies (agricultural service providers) and 11 County Farm Bureaus carry out
the 4R field demonstrations at the local level.
Nutrient Research & Education Council
The Illinois Nutrient Research & Education Council (NREC) was created by state statute in 2012. Funded
by a 75-cent per ton assessment on bulk fertilizer sold in Illinois, NREC provides financial support for
nutrient research and education programs to ensure the discovery and adoption of practices that
address environmental concerns, optimize nutrient use efficiency, and ensure soil fertility. A 13-member
NREC Council annually solicits, reviews, and funds projects that fulfill the organization's mission. Annual
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assessments tend to generate an average of $3.5 million. To date, 40 projects have been funded for a
total of almost $16 million.
National Agriculture Statistics Service Survey 2019
The National Agriculture Statistics Service (NASS) created and distributed a statewide survey to a
random sample of 1,900 farmers in the state. The survey gaged farmer knowledge on practices
recommended in the INLRS and the level at which these practices were implemented in 2011 (baseline
year) and 2015. A summary of the survey results is in the 2017 Biennial Report. NASS distributed this
survey again in early 2019, to gage practices implemented in the 2017 growing season, with the results
being summarized in the 2019 Biennial Report.
Illinois Fertilizer & Chemical Association 4R Survey
The Illinois Fertilizer & Chemical Association (IFCA), which represents the companies in Illinois that
manufacture, distribute, and apply commercial fertilizers, is preparing a fertilizer use survey for their
agriculture retail members who sell and custom-apply fertilizers. The survey will focus on the 4Rs of
nutrient stewardship: right source, right rate, right time, right place. A certified crop advisor (CCA) with
the retail company will review and approve each agrichemical facility's responses before submitting
results. IFCA aggregated the data to share the results with all nutrient stakeholders in Illinois and this
information was included in the INLRS 2019 Biennial Report.
University of Illinois Extension Watershed Coordinators and Science Team
In 2017, Illinois EPA entered into a five-year agreement with the University of Illinois Extension to hire
two watershed coordinators to work in priority watersheds identified in the INLRS. Both watershed
coordinators were hired in the spring of 2018. One watershed coordinator works at the Extension office
in Effingham and focuses on the Embarras River and Little Wabash River watersheds, addressing
phosphorus loss. The other watershed coordinator works at the Extension office in Galva and focuses on
the Lower Rock River and Mississippi River (Flint-Henderson) watersheds, addressing nitrate loss. The
agreement also provides funding for a Science Team, composed of University of Illinois researchers who
work in the College of Agricultural, Consumer, and Environmental Sciences to develop and implement a
process for adding new conservation practices to the INLRS and to update conservation practice
performances based on new research. That process was established in early 2019.
Point Source Programs and Projects
Illinois currently has 213 major municipal dischargers (facilities with a design average flow (DAF) greater
than 1 million gallons per day (MGD)) permitted in the state. Ninety-three percent of the permits
require nutrient monitoring. Thirty percent have an effluent limit of 1.0 milligram per liter (mg/L) of
total phosphorus and these dischargers represent over 80% of the state's DAF. Facility improvements at
some of the major facilities in Illinois have promoted nutrient loss reduction. As part of the NPDES
permit renewal process, Illinois EPA requires major dischargers to submit feasibility and optimization
studies for reducing total phosphorus levels to 0.1 mg/L and 0.5 mg/L. The number of permits with total
phosphorus effluent limits and nutrient monitoring will continue to grow as existing major facility
permits are up for renewal.
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As stated in the 2019 Biennial Report, from 2011 to 2018, the statewide point source total phosphorus
load was reduced by 4.3 million pounds annually, representing a 24% reduction. Statewide point source
total nitrogen loads were reduced by 10%. These calculations were determined using the USEPA
nutrient loading tool and direct measurements from individual municipal and industrial wastewater
treatment facilities. Illinois EPA intends to use this tool annually to track and report nutrient reductions
from point sources.
Starting in the fall of 2018, a new requirement went into effect that requires all major municipal
facilities to meet an annual total phosphorus effluent limit of 0.5 mg/L by 2030 if their treatment
method is biological phosphorus removal. If a chemical phosphorus removal option is chosen, the facility
shall meet an annual phosphorus effluent limit of 0.5 mg/L and a monthly average total phosphorus
effluent limit of 1.0 mg/L by the end of 2025. If a biological nutrient removal option is chosen, the facility
shall meet an annual total phosphorus effluent limit of 0.5 mg/L by 2035. There are some exceptions to
these requirements, such as if the construction of these facilities causes widespread social and
economic hardship for the community.
Under these 2018 requirements, a major facility might also be required to develop a Nutrient Assessment
Reduction Plan (NARP). A NARP will be required for all major municipal facilities that are upstream of a
segment listed as impaired for aquatic algae, aquatic plants (macrophytes), or dissolved oxygen (DO) that
has the signature of excess algae (above 100% DO saturation and below the DO water quality standards
within a 24-hour period). A NARP will also be required for all major municipal facilities that are causing or
contributing to "risk of eutrophication" in the receiving stream. An interim total phosphorus effluent limit
of 1.0 mg/L will be included in future permit renewals for facilities discharging upstream of a water body
with an impairment due to excess nutrients. The interim 1.0 mg/L effluent limit will remain in effect until
the future 0.5 mg/L total phosphorus effluent limit goes into effect as described above or a completed
NARP determines that a more stringent total phosphorus effluent limit is required.
Urban Stormwater
The USWG is focusing on two areas: education and tracking.
• Education: USWG members adapted the Calumet Stormwater Collaborative's resource
repository to include additional educational links; the total number of resource links is 182. The
Illinois Association for Floodplain and Stormwater Management will house the repository on
their website. USWG also made a template for a "Stormwater 101" presentation that local
governments can use. Partner education projects include the Illinois-Indiana Sea Grant's Lawn to
Lake Program, which recently collaborated with University of Illinois Extension and received a
grant to create outreach materials tailored to two nutrient priority watersheds. Another
partner, Parkland College in Champaign, IL, recently became a training center for the Water
Environment Federation's National Green Infrastructure Certification Program. The inaugural
class began in January 2019.
• Tracking: USWG's 2018 meetings included a conference call with the Chesapeake Bay Network's
Tom Schueler to learn how that region addresses tracking. By the end of the year, USWG began
discussions on how to select appropriate nutrient reduction efficiency numbers. USWG partner
DuPage County has developed a geographic information system (GIS) stormwater basin and
BMP inventory system and shared their experience with members. In 2019 the University of
Illinois Extension mined information from over 350 Illinois municipal separate storm sewer
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system (MS4) annual inspection reports to summarize urban stormwater practices statewide. An
additional goal of this project is to use GIS layers to overlay MS4 locations with other existing
statewide data such as Illinois State Water Survey rainfall and floodplain maps to find areas of
need to which to target outreach efforts.
1.6.3 Indiana
Indiana's State Nutrient Reduction Strategy (SNRS) is the product of an inclusive effort of the Indiana
Conservation Partnership (ICR) under the leadership of the Indiana State Department of Agriculture
(ISDA) and the Indiana Department of Environmental Management (IDEM). The SNRS aims to capture
statewide present and future endeavors in Indiana that positively impact the state's waters, as well as to
gauge the progress of conservation, water quality improvement, and soil health practice adoption in
Indiana.
The SNRS represents Indiana's commitment to reduce nutrient runoff into waters from point and
nonpoint sources alike. The main objectives of Indiana's Strategy are included in the executive summary
of the SNRS.
The Indiana SNRS underscores the importance of continual outreach and education to conservation
partnerships and the public regarding stewardship of Indiana's waters. The Strategy acknowledges that
the great potential to reduce nitrogen and phosphorus entering state waters depends on the
cooperation of state, federal, and local organizations' agricultural and urban programs and initiatives, as
well as private sector and citizen endeavors. The Strategy identifies measures such as the proper
location and types of conservation practices on productive agricultural ground and at the edge-of-field,
efficient nutrient management, and managed drainage. In addition, septic system management,
appropriate residential fertilizer applications, erosion control at construction sites, and urban BMPs
(e.g., green infrastructure) will be key to controlling nutrient runoff. Consequently, there will always be a
need for continued conservation, education, outreach, and research efforts to maintain progress.
Key Developments Since Release of the 2016 SNRS
• ISDA developed 10 GIS Story Maps, one for each of the major river and lake basins in Indiana, to
help tell the story of conservation and showcase Indiana's efforts to enhance water quality
within those basins. These Story Maps make Indiana's SNRS more interactive. Learn more.
• IDEM, as part of the Indiana Water Monitoring Council (InWMC), has been working to improve
the ambient water quality monitoring network throughout the state to determine nutrient loads
entering and leaving Indiana. In 2017, the InWMC, USGS, and IDEM completed a white paper
titled An Assessment for Optimization of Water-Quality Monitoring in Indiana, 2017, which was
compiled to document existing river and stream water quality networks within Indiana and to
identify potential sites of redundancy and gaps in the network of monitoring sites. This
assessment contributes to a more in-depth understanding of nutrient sources and loading in the
state. An example of an outcome of this white paper is a USGS super gage was installed on the
Wabash River in New Harmony, IN, to better capture the nutrient loads in the Wabash River.
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• Indiana's Great Lakes Water Quality Agreement (GLWQA) Domestic Action Plan (DAP) for the
Western Lake Erie Basin (WLEB) to reduce phosphorus to the WLEB was released February 28,
2018. A HUC-12 watershed prioritization process was piloted in the WLEB to target efforts and
define next actions within the plan, and this successful process will be used within the other
watershed basins in Indiana.
• Members from the ICP, Agriculture Commodity groups, Indiana Farm Bureau, Agribusiness
Council of Indiana, and The Nature Conservancy formed a workgroup and worked to develop
what was referred to as the "nutrient management and soil health strategy," which
complemented Indiana's SNRS and was used as an agricultural industry implementation plan. As
a result of this effort, a new initiative and group was created in 2018 called the Indiana
Agriculture Nutrient Alliance (IANA). The formation of IANA from the nutrient management and
soil health strategy workgroup is an example of a key refinement of adaptively managing our
needs. These groups actively work toward the same goal—to reduce nutrient loss and improve
water quality. IANA focuses on bridging multi-partner efforts to create practical, cohesive, and
significant effects across Indiana.
• In November 2018, ISDA held the Nutrient Reduction Estimation Framework (NREF) Workshop
to bring together researchers, experts, and staff to discuss how to strengthen Indiana's current
method of nutrient load reduction estimation and tracking, which led to the development of an
Indiana Science Assessment. The Indiana Science Assessment Core Team was formed with
partners around the state.
• Under Component 1 of the Indiana Science Assessment, a subcommittee of members from
USGS, IDEM, ISDA, and TNC was formed to discuss water quality monitoring locations and data
that could be used in determining nutrient load trends in Indiana. Analysis was conducted at
pour points at the state border and within the major river and lake basins using the USGS
WRTDS model. Results of this work and analysis will be available in 2021.
• ISDA received a grant from the EPA through the HTF to work with Purdue University's College of
Agriculture and other members of the Science Assessment Core Team to help carry out
Component 2 of the Indiana Science Assessment. A research associate was hired to compile,
review, and analyze research that will be used to identify or develop a standardized tool for
calculating nutrient load reductions; the research will also be used to determine the percent
efficiency of certain conservation practices on reducing nitrogen and phosphorus loads.
• The 4R Nutrient Stewardship Certification Program was launched statewide in November 2020.
It is a voluntary program for Indiana Agribusiness Council members that encourages agricultural
retailers, nutrient service providers, and other independent crop consultants to adopt proven
BMPs and use the 4Rs, which refers to using the Right Source of nutrients at the Right Rate at
the Right Time in the Right Place. It was launched with five companies in the state that went
through a pilot audit process.
Nonpoint Sources
Nutrient Load Reduction Tracking
The ICP is using EPA's Region 5 Nutrient Load Reduction model, which estimates sediment, nitrogen, and
phosphorus load reductions from individual BMPs on the ground, to determine the impact of assisted
conservation efforts statewide. Each year, Indiana collects conservation practice data such as type of
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practice, practice locations, measurements, and other necessary parameters from ICP partners for all
federal, state, and local programs, including federal Farm Bill practices, state-level conservation projects
(e.g., those funded by Conservation Reserve Enhancement Program (CREP), Clean Water Indiana, the
Lake and River Enhancement program, and CWA section 319), and local conservation efforts by SWCDs.
Through the process of data collection, we can see the impact of the number of conservation practices
that are implemented annually. The collected data are then run through the Region 5 model to analyze the
sediment, nitrogen, and phosphorus load reductions for specific practices. While this model is project-
specific, it provides a valuable perspective on a larger scale when showing the collective reductions of
practices across several programs. The accountability/verification and annual reporting on implementation
are current expectations among the ICP partners and are regularly being refined and improved. The ICP
uses the end products of this process to help establish baselines, measure load reduction trends by
watershed for each calendar year, and serve as a tangible component of the Indiana SNRS.
Load reductions estimated by the model for Indiana each year are published in annual accomplishments
reports, including watershed maps showing the nitrogen, phosphorus, and sediment reductions. These
annual reports can be found on ISDA's Indiana SNRS web page. The estimates, paired with monitoring by
state and federal partner agencies, as well as continued assessment of Indiana's CWA 303(d) list of
impaired waters, will inform watershed prioritization and conservation resource management for the
ICP's efforts and Indiana's SNRS.
Strengthening and Improving Our Method
The Region 5 model is used to determine nitrogen and phosphorus load reductions that are tied directly
to sediment. Nutrients that are dissolved and carried by runoff waters are not accounted for in the
model; as a result, we are missing dissolved nitrate and phosphorus. Also, there are several conservation
practices that cannot be run through the model because the practice is not tied to sediment (e.g.,
nutrient management). The ICP would like to strengthen and improve how nutrient load reductions are
accounted for so that we can account for more accurate estimates of reductions and better assess the
progress being made on improving water quality.
The effort to strengthen the method to account for nutrient reductions is supported through
Component 2 of the Indiana Science Assessment. Monitoring conducted around the Midwest and in
Indiana provides new understanding of the effectiveness of in-field and edge-of-field conservation
practices in reducing nitrogen and phosphorus loads from agricultural fields. This research will be
compiled, reviewed, and used to improve the method that Indiana uses to calculate reductions in
sediment, nitrogen, and phosphorus loads. Indiana will identify or develop a standardized tool and
procedure for calculating nutrient load reductions from conservation practices, which can help
determine the percent efficiency of certain conservation practices load reduction.
Targeted Implementation Efforts
Conservation Reserve Enhancement Program
One of the initiatives that is part of Indiana's SNRS is CREP. It is a voluntary federal and state
conservation program that aims to improve water quality and address wildlife issues by reducing
erosion, sedimentation, and excess nutrients and enhancing wildlife habitats within specified
watersheds in the Wabash River system.
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CREP in Indiana was first announced in 2005 across three HUC-8 watersheds in the state and was
expanded in 2010 to include 11 HUC-8 watersheds in Indiana, covering a total of 65 Indiana counties.
Indiana's CREP enrollment goal is 26,250 acres and, according to the state's tracking system, as of
December 2020, over 20,019 acres had been enrolled in the program and over 919 linear miles of
waterways have been protected. The ISDA and its partners have invested over $8.8 million in state funds
to implement these conservation practices and, for every state dollar that is invested, $4-$13 federal
dollars are matched through CRP incentives available through the USDA FSA. In 2018, The Nature
Conservancy committed more than $300,000 over the next five years in support of expanding the
Indiana CREP program. In 2020, the Indiana Wildlife Federation and the American Electric Power
company provided $500,000 to support implementation of conservation practices through the Indiana
CREP.
INfield Advantage Program
INfield Advantage (INFA) provides farmers who participate access to tools to collect and analyze on-
farm, field-specific data. Peer-to-peer group discussions, local aggregated results, and collected data
allow participants to make more informed decisions and implement personalized BMPs. INFA offers
growers the chance to participate in multiple projects depending on their own specific concerns. Many
growers will enroll fields in more than one study. Current projects include nutrient management for
either corn or beans; the impact of cover crops, both late-season seeding and in-season interseeding;
and manure management. Participating farmers use precision agricultural tools and technologies to
conduct research on their own farms such as aerial imagery and the corn stalk nitrate test to determine
nitrogen use efficiency in each field that they enroll. The program began in Indiana in 2010 and, in 2018,
the impact had grown to include over 1,000 fields in more than 60 counties.
Point Sources
NPDES Measures
To reduce significantly the discharge of nutrients to surface waters of the state and to protect
downstream water uses, IDEM set a practical state treatment standard of 1.0 mg/L total phosphorus for
sanitary wastewater dischargers with design flows of 1 MGD or greater. This policy became effective
January 1, 2015.
Applying the 1 mg/L total phosphorus limit will amount to a nearly 45-50% reduction of total
phosphorus loads from major sanitary dischargers over the next few permit cycles.
Additionally, IDEM will implement Total Maximum Daily Load (TMDL) load reductions as written and
approved for total phosphorus upon the renewal of any affected permit and will continue to implement
phosphorus removal as required by Title 327 Indiana Administrative Code (IAC) Article 5-Rule 10-
Section 2.
For nitrogen, effective January 1, 2019, IDEM requires all major sanitary permits with an average design
flow rating of 1.0 MGD or greater to monitor for total nitrogen. It requires total nitrogen be reported
and sampled at a minimum of one time monthly for both effluent mass (loading) and concentration via
24-hour composite sampling.
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For all major sanitary dischargers, Total Nitrogen shall be determined by testing Total Kjeldahl Nitrogen
(TKN) and Nitrate + Nitrite and reporting the sum of the TKN and Nitrate + Nitrite results (reported as
N). Nitrate + Nitrite can be analyzed together or separately. Monitoring for Total Nitrogen is required in
the effluent only.
The data collected will be used to garner a better understanding of nitrogen loadings in Indiana waters
and aid the State of Indiana with future updates of its nutrient reduction efforts.
1.6.4 Iowa
The Iowa Nutrient Reduction Strategy (NRS or Strategy) is a research- and technology-based approach to
assess and reduce excess nutrients delivered to Iowa waterways and the Gulf. The Strategy outlines
opportunities for efforts to reduce excess nutrients in surface water from both point sources such as
municipal wastewater treatment plants and industrial facilities and nonpoint sources, including
agricultural operations and urban areas, in a scientific, reasonable, and cost-effective manner.
The NRS and the Annual Progress Report are a collaboration of representatives of the Iowa State
University College of Agriculture and Life Sciences, Iowa Department of Natural Resources (DNR), and
Iowa Department of Agriculture and Land Stewardship (IDALS). The Water Resources Coordinating
Council, a body of governmental agencies that coordinate around water-related issues in Iowa, is
presented with the Annual Progress Report each year.
The NRS documents, including each year's Annual Progress Report, can be accessed on Iowa State
University's Iowa Nutrient Reduction Strategy web page.
Updated Baseline Assessment
In 2017, researchers at ISU and Iowa DNR conducted parallel studies to quantify Iowa's average annual
nutrient load during the 1980-1996 period summarizing the results detailed in the two studies:
Assessment of the Estimated Non-Point Source Nitrogen and Phosphorus Loading from Agricultural
Sources from Iowa During the 1980-96 HTF Baseline Period, and Nitrogen and Phosphorus Load
Estimates from Iowa Point Sources During the 1980-96 HTF Baseline Period (see Table 1-1). Both studies
are available on the Strategy Documents web page for ISU's Iowa Nutrient Reduction Strategy. A brief
summary of the studies' methods and results is also available on the same web page.
Table 1-1, Baseline (.1930-1996) and Benchmark (2006-2010) Average Annual Loads from Nonpoint
and Point Sources
1980-96 Baseline Load
(tons)
2006-10 Benchmark Load
(tons)
Change,
1980-96 to 2006-10
Nitrogen
NPS
278,852a
293,395
5.2%
Increase
PS
13,170
14,054
6.7%
Increase
Total
292,022
307,449
5.3%
Increase
Phosphorus
NPS
21,436
16,800
21.6%
Decrease
PS
2,386
2,623
9.9%
Increase
Total
23,822
19,423
18.5%
Decrease
Notes: PS = point sources; NPS = nonpoint sources.
a The method used to derive the total nitrogen estimate of 292,022 tons indirectly reflected the point source contributions.
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BMP Mapping
A statewide effort to identify and map six types of conservation practices (ponds, grassed waterways,
terraces, water and sediment control basins, contour buffer strips/prairie strips, and contour strip
cropping) has been completed and provides a comprehensive inventory of conservation practices in the
state by watershed.
The initial number of practices identified by the mapping project include the following:
• 114,400 pond dams
• 327,900 acres of grassed waterways
• 506,100 terraces stretching 88,874 miles
• 246,100 water and sediment control basins stretching 12,555 miles
• 557,700 acres of contour buffer strips
• 109,800 acres of strip cropping
This mapping effort shows the scale and investment made by farmers, landowners, state and federal
agencies, conservation partners, and many others over several decades to reduce erosion and protect
our natural resources. While the practices identified are focused on reducing soil erosion and
phosphorus loss, seeing the progress that has been made illustrates how we can make similar progress
with a long-term focus and investment in proven conservation practices targeted at reducing nitrogen
loss.
Maps and additional information about the project can be found on the Iowa BMP Mapping Project page.
Recent Highlights
Recent NRS highlights can be accessed on the Strategy Documents web page for ISLTs Iowa NRS.
Recent Funding or Program Announcements
In 2018, the Iowa Legislature passed and Governor Kim Reynolds signed into law new legislation that will
provide more than $270 million for water quality efforts in Iowa over the next 12 years. This long-term
funding source will provide significant additional resources for water quality programs in the state.
IDALS and the USDA Risk Management Agency are continuing the partnership project aimed at
expanded usage of cover crops in conjunction with federal crop insurance. The program provides an
additional premium discount for acres in cover crops not already covered by current state or federal
programs. More information can be found on the IDALS's Crop Insurance Discount Program web page.
Current Challenge: The Capacity for Acceleration
The capacity for accelerating the availability of these financial inputs remains a distinct challenge. New,
dedicated long-term funding approved in 2018 will help. Stability and predictability of funding sources
coupled with increased funding can assist the acceleration of NRS implementation. In the long term,
grant and annual funding, which accounted for 55% of reported funding, may be most appropriate for
trials of innovative new approaches and studies, but are difficult to rely upon for long-term
management programs that maintain ongoing NRS progress.
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The Conservation Infrastructure (CI) Initiative was started with this challenge in mind. A broad cross-
section of leaders within and outside of the agriculture industry came together to help identify barriers
and opportunities associated with advancing the Iowa NRS. Since announcing the initiative in August
2016, more than 100 representatives from the public and private sectors have been engaged in defining
and developing the initiative. This includes rural and urban organizations; agricultural associations;
conservation and environmental groups; agribusinesses; food companies; engineering firms; farmers;
academic institutions; and federal, state, and local governments.
Water Monitoring
Monitoring of nitrogen and phosphorus in streams and rivers throughout Iowa is an essential element of
the Iowa NRS. Water monitoring has provided the basis for the NRS Science Assessment of the
performance of various practices on their ability to reduce excess nutrients. Monitoring also provides
information related to nutrient loading and important data for assessing critical locations and/or
watersheds in which to focus efforts.
In August 2016, Iowa completed a report titled Stream Water-Quality Monitoring Conducted in Support
of the Iowa Nutrient Reduction Strategy. The report improves understanding of the multiple nutrient
monitoring efforts with available data and can be compared to a nutrient water quality monitoring
framework to identify opportunities and potential data gaps to better coordinate and prioritize future
nutrient monitoring efforts. The report can be found on the Strategy Documents web page for ISU's
Iowa NRS.
In 2013, the NRS intended to define the process for providing a regular nutrient load estimate based on
Iowa's fixed-station stream water quality monitoring network. A technical workgroup was tasked with
determining the most appropriate estimation method by assessing the quality of existing data that was
to be used to evaluate methods, creating a process for making future adjustments based on the latest
information and advancements in science and technology, and considering resource efficiency. The
outcome of this investigation, titled "Variability of nitrate-nitrogen load estimation results will make
quantifying load reduction strategies difficult in Iowa," was published in 2017 (Schilling et al. 2017). The
annual load estimates are displayed along with streamflow, as streamflow amounts have the largest
known impact on nutrient loading.
Source Water Protection
In February 2018, EPA contractors completed SWP plans with a focus on reducing nutrient and sediment
discharges into the lakes used by the cities of Winterset and Spirit Lake, IA. These plans have been
approved by the Iowa DNR as Phase 2 SWP plans. The plans identified resources that the communities
could engage as implementation and coordinating partners. The plans, using the ACPF model and Iowa
State University BMP mapping project, targeted BMPs that can be funded and deployed on the
landscape. Both plans received USDA NRCS NWQI funds for implementation and two additional SWP
plans for surface water drinking water sources are under development in the state. As a result of the
SWP plan, the Winterset area was able to employ a watershed coordinator to help implement projects
identified in the SWP plan for Cedar Lake.
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In addition to proactively addressing drinking water quality through a voluntary plan, the SWP plans
(1) focus on nutrient loading from the contributing drainage area, (2) work to implement the
phosphorus and nitrogen goals of the Iowa Nutrient Reduction Strategy, and (3) complement the
implementation of existing planning efforts, such as TMDLs.
Nutrient Trading: Recent Innovative Approaches
The Iowa League of Cities was awarded a USDA NRCS Conservation Innovation Grant in October 2015 to
develop a water quality credit trading (WQCT) framework as a means to advance the goals of the NRS
and beyond. This work has led to the development of a pre-regulatory compliance strategy titled the
Nutrient Reduction Exchange (NRE) that could serve as a tracking system and would allow nutrient
sources across the state to register and track nutrient reductions resulting from installed BMPs that
target NRS goals. In addition to nutrient reduction, the NRE acts as a registry to track additional benefits
that drive watershed investment such as flood mitigation and development of SWP plans. It is
anticipated that this effort will accelerate the development of partnerships between cities and the
agricultural community to further reduce nonpoint source nutrient loads in a variety of ways. Currently
four communities (Ames, Cedar Rapids, Dubuque, and Storm Lake) have entered into a Memorandum of
Understanding (MOU) with the Iowa DNR and three communities (Des Moines, Ames, and Cedar Rapids)
have registered practices resulting from watershed investments into the NRE.
Iowa Nutrient Research Center
The Iowa Nutrient Research Center (INRC) was established in 2013 to help manage nonpoint source
nitrogen and phosphorus pollution. The INRC was established by the Iowa Board of Regents in response
to legislation passed by the Iowa Legislature. The INRC pursues science-based approaches to nutrient
cycling that include evaluating the performance of current and emerging nutrient management practices
and providing recommendations on implementing existing practices and developing new practices.
Since 2013, the INRC has awarded more than 76 grants among Iowa's three Regent Schools (University
of Iowa, University of Northern Iowa, and Iowa State University). The awards total slightly over
$8.7 million, with approximately 67% of the funds going toward nitrogen and phosphorus research, and
approximately 33% going to water quality monitoring projects overseen by IIHR-Hydroscience and
Engineering at the University of Iowa.
Addition of New Practices in the NRS
As research on nonpoint source conservation practices is conducted, new insights are developed
regarding the effectiveness of practices in reducing nitrogen and phosphorus loss. This data can be
submitted to the NRS Science Team to review the effectiveness of conservation practices in the same
manner in which the original NRS Science Assessment was conducted.
In the 2016 reporting period, saturated buffers were approved as an NRS practice. In the 2017 reporting
period, blind tile inlets were approved. Multi-purpose oxbows were added to the practice list in 2019.
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1.6.5 Kentucky
Kentucky continues to work with stakeholders to refine and implement the state's Nutrient Reduction
Strategy (Strategy). The Kentucky Energy and Environment Cabinet's Division of Water (DOW) is working
to update the existing state Strategy, which can be accessed on the Kentucky Nutrient Reduction
Strategy web page. The Strategy was developed with input from stakeholders representing a broad
perspective of interests: agriculture, industry, environmental advocacy, municipalities, conservation
organizations, and federal and state partners. The Strategy encompasses reduction from both point and
nonpoint sources, as well as a variety of regulatory and cooperative approaches.
DOW's 2021 Strategy Update focuses on reducing nutrient loads from wastewater point sources, and
improving implementation of the Kentucky Agriculture Water Quality Act (AWO with the help of an
EPA HTF grant. To guide the trajectory of the Strategy Update, DOW conducted a study in 2019 of
average nutrient loads and yields in Kentucky watersheds using DOW's Ambient Monitoring Network
data. In 2021, DOW updated this Loads and Yields Study to include 2018-2019 DOW water quality data
and expanded analyses (see Figure 1-1 and Figure 1-2). The 2021 and 2019 studies are available on
DOW's web page and through an interactive dashboard.
Nitrogen Yield
0.59 -i.i8tons/yr/sqmi
LXS 1.19 - 2.05 tons/yr/sqmi
CC 2.06 - 3.43 tons/yr/sqmi
3.44 - 4.98 tons/yr/sqmi
4-99 - 23.00 tons/yr/sqmi
03 Poor model output
Covington
Louisville
Owensboro
Paducah
Bowling Green
Nitrogen Loads and Yields
2021 Update
Nitrogen Load
0 37-86iton/yr
862-1898 ton/yr
1899 - 4490 ton/yr
4491 -10844 ton/yr
o
o
o
o
o
10845 -21200 ton/yr
Poor model output
75
H Miles
Figure 1-1. DOW monitored nitrogen loads and yields in 2005-2019.
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Phosphorus Yield
30.00 - 0.09 tons/yr/sqmi
0.10 - 0.27 toris/yr/sqmi
(Xj: 0-28 - 0.54 tons/yr/sqmi
Co o-55 - 0.95 tons/yr/sqmi
0.96 -1.77 tons/yr/sqmi
C Poor model output
Covington
Louisville
Owensboro
Paducah
I Miles
Phosphorus Loads and Yields
2021 Update
Phosphorus Load
•
0 - 73 tons/yr
O
74-164 tons/yr
O
165 - 347 tons/yr
O
348 - 814 tons/yr
O
815-1880 tons/yr
O
Poor model output
Figure 1-2. DOW monitored phosphorus loads and yields in 2005-2019
Point Sources
DOW continues to work to address nutrient loads in wastewater effluent by identifying new
technologies and ways to optimize facilities for enhanced nutrient removal. In 2015, DOW assembled a
team of universities, associations, and state and federal agencies to conduct nutrient and energy
efficiency management audits for Kentucky wastewater facilities. This Wastewater Treatment Plant
(WWTP) Optimization Program Team leveraged an EPA grant initiative to provide these audits at no cost
to participating facilities. The WWTP Optimization Program Team members include representatives
from:
• Division of Water
• Division of Compliance Assistance
• Division of Enforcement
• Office of Energy Policy
• Kentucky Infrastructure Authority
• Kentucky-Tennessee Water Environment Association
• Kentucky Rural Water Association
• University of Kentucky Industrial Assessment Center
• University of Memphis
• EPA Region 4
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This Optimization Program provides free nutrient and energy audits and provides recommendations for
facility optimization of nutrient treatment methods to reduce nutrients and costs. Each year from 2016
through 2018, three new facilities participated in the program. Facilities that implemented
recommendations or portions of recommendations all saw a decrease in their energy demand costs,
with some wastewater facilities seeing results with a cost saving of ~30% a month on their utility bills.
The December 2019 edition of Streamlines magazine highlighted optimization success at three Kentucky
facilities. After a year of implementing optimization, the Lawrenceburg WWTP reduced total nitrogen
discharge by 63% (18,600 Ibs/yr) and total phosphorus by 39% (1,000 Ibs/yr), and the WWTP realized a
16% cost savings in reduced energy demand. Additionally, the Princeton WWTP and Greenville WWTP
reduced total nitrogen in effluent by 55% (30,000 Ibs/yr) and 33% (12,700 Ibs/yr), respectively. The
optimization team continues working with facilities to track nutrient reduction through the program.
Additionally, DOW convenes a Wastewater Advisory Council (WWAC), which provides a forum for the
wastewater community to discuss infrastructure funding, regulatory impacts, and other issues. This
collaborative stakeholder group is comprised of public utility representatives providing wastewater
treatment services to Kentucky's citizens. This WW AC forum also provides DOW an opportunity to
discuss permit changes, such as DOW's decision to require all municipal and sanitary sewer permittees
to monitor and report nitrogen and phosphorus concentrations from influent (source) and effluent
(finish) waters. As a result, regulatory decisions are more data-driven and transparent with the
regulated community.
HABs Monitoring and Reporting
DOW continues to work with partner agencies to monitor and issue advisories of HABs and to develop
protocols and thresholds for HAB-related public advisories. DOW regularly convenes a HAB Workgroup
with partners from state and federal agencies, including the Kentucky Department for Public Health,
Kentucky Department of Parks, Kentucky Department of Fish and Wildlife, USGS, and USACE to coordinate
response, resources, and advisories to algal blooms across the state. DOW developed a "HAB Viewer" that
allows users to quickly identify locations of HAB advisories and sample results from reported HABs. DOW
provides guidance and technical assistance to public water systems that are experiencing HABs in source
waters or who rely on HAB-susceptible source waters.
To improve detection of algal blooms, DOW uses remote sensing techniques to help assess waters for
HABs and to alert the agency of developing HABs. DOW and partners conduct regular water quality
sampling and screening where HABs have been identified or suspected. DOW partnered with Watershed
Watch in Kentucky (a nonprofit organization of citizen scientists that conducts water quality monitoring as
education and outreach to communities) to develop a volunteer lake monitoring program to assess water
quality in lakes and reservoirs. Volunteers collect field data and observations coincident with satellite data,
which allows for field verification and model calibration. The Kentucky Water Watch Volunteer Lake
Sampling Results map viewer can be accessed via the Kentucky Geological Survey web page.
Nutrient Criteria Development
In 2013, Kentucky's narrative nutrient criteria were updated to better represent expectations for water
quality to protect designated uses. Most significantly, this update strengthened the definition of
eutrophication to identify specific indicators of nutrient over-enrichment such as large diurnal oxygen
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swings, algal blooms, and displacement of diverse aquatic communities with species known to be
tolerant of nutrient enrichment. Applying these new criteria results in more robust designated use
assessments and improved metrics to restore and protect Kentucky waters.
Kentucky's work towards development of numeric nutrient criteria is ongoing. This work includes
compilation and cleanup of historical data, performing preliminary analyses, assessing data and
knowledge gaps, and conducting focused studies to address these gaps. In addition, most routine
monitoring programs in the state have added or expanded nutrient data collection as part of their
program design. While the level of progress toward numeric criteria varies among water body classes
(e.g., streams, rivers, lakes), there have been common challenges in defining precise protective nutrient
levels. One of these challenges is that existing historical data have often not well characterized the
effects (i.e., response indicators) across Kentucky's diverse regions and water body types. Additional
data collection and studies that better target response indicators have been a focus in recent years.
Nonpoint Sources
Kentucky's Nonpoint Source Pollution Control Program coordinates efforts to minimize nutrient loss at a
statewide level through multiple partnerships with federal, state, and local organizations. DOW
coordinates closely with the state NRCS on NWQI watersheds, including the 2021 planning phase for the
Rockhouse Creek, Wades Creek-Clarks River, and Almo-Clarks River watersheds. DOW also has a long-
term collaborative relationship with the state Division of Conservation (DOC) to align common program
objectives and work together on state soil and water cost-share practice implementation. All CWA
section 319 watershed-planning projects, as well as any associated state soil and water cost-share
projects, generate estimated load reductions for excess nutrients on an annual basis. DOW estimates
that the CWA section 319-funded projects cumulatively reduced loads by 325 tons/year of nitrogen and
59 tons/year of phosphorus from fiscal years 2017 to 2020. The Nonpoint Source Annual Report, which
discusses implementation of the Kentucky Nonpoint Source Management Plan, is on Kentucky's
Nonpoint Source Pollution web page.
DOW also developed a (water quality) Success Program, working with partners to track and monitor
projects where nutrient reductions are anticipated. The state NRCS office and the DOC regularly provide
DOW with reports on water quality management practices implemented at the HUC-12 scale, which are
critical to tracking water quality improvements. Through the state Agriculture Water Quality Authority
(AWQA), Kentucky updated the State Water Quality Plan in December 2020. DOW is working with DOC
and the AWQA to roll out an electronic tool to assist farmers with plan development. This tool
incorporates updates to the State Water Quality Plan and includes BMP visuals to streamline
conservation planning.
Recent legislation created the Kentucky Water Resources Board to address agricultural and rural water
quantity issues. This group works to develop and fund programs that help address agricultural water
sustainability issues of concern. Members of this board are currently working with the Governor's Office
of Agricultural Policy and DOW to implement an On-Farm Water Resiliency Program. This program
promotes water resilience on farms by funding projects that develop innovative water management
best practices and helping producers implement the practices on their farms.
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1.6.6 Louisiana
The collaborative of Louisiana's Coastal Protection and Restoration Authority (CPRA), Department of
Agriculture and Forestry (LDAF), Department of Environmental Quality (LDEQ), Department of Natural
Resources, USDA NRCS Louisiana, and Louisiana State University Agricultural Center (LSU AgCenter)
released an updated Louisiana Nutrient Reduction and Management Strategy in 2019 (the Strategy). The
Strategy provides a framework of strategic components with underlying actions that guide
implementation of nutrient reduction and management across the state to protect, improve, and
restore water quality in Louisiana's inland and coastal waters. Implementation of the Strategy has
focused on six key areas: (1) river diversions, (2) nonpoint source management, (3) point source
management, (4) incentives, (5) leveraging opportunities, and (6) new science-based
technologies/applications.
Nutrient Management Strategy Implementation
The interagency collaborative that developed the Louisiana Nutrient Reduction and Management
Strategy team continues to jointly implement and monitor the progress of the Strategy in Louisiana. In
addition to EPA, other collaborative partners include: U.S. Business Council for Sustainable
Development, Louisiana Water Synergy Group, LDAF Soil and Water Conservation, Barataria-Terrebonne
National Estuary Program, and the Lake Pontchartrain Basin Foundation (among others). The Louisiana
Nutrient Reduction and Management Strategy Interagency Team compiles annual reports which
document the nutrient reduction and management implementation activities in the state. The Strategy
annual reports can be accessed on Louisiana's Nutrient Reduction and Management Strategy web page.
Nutrient Monitoring
LDEQ routinely monitors surface waters for nitrogen and phosphorus in their Ambient Water Quality
Monitoring Program. Regarding water permitting, LDEQ's goals are to incorporate nutrient monitoring
into all individual sanitary permits and landfills, industrial permits that are a source of excess nutrients,
and general permits for which nutrient monitoring is required by a TMDL. Nutrient monitoring has been
included in 1,166 facility permits to date (637 general permits and 529 individual permits). This information
is based on permits that are coded into EPA's Integrated Compliance Information System (ICIS).
Alternatives to TMDLs/New Vision for 303(d) Program
EPA's 2013 a-Term Vision for Assessment, Restoration, and Protection under the Clean Water Act
Section 303(d) Program is a collaborative framework and vision that enhances the overall efficiency of
the CWA 303(d) listing and TMDL program, encourages focusing attention on priority waters, and
acknowledges that states have flexibility in using available tools to attain water quality restoration and
protection. Under this vision, LDEQ began implementation of alternative restoration strategies for
monitoring and reduction of nutrient loads in Yellow Water River (subsegment 040504). LDEQ also
began planning alternative restoration strategies to address excess nutrients in Natalbany River
(subsegment 040503).
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Water Quality Credit Trading
Louisiana developed a Louisiana Water Quality Credit Trading (WQCT) program to address excess
nutrients and other appropriate parameters. LDEQ made available a draft guidance document in
December 2017, held six stakeholder meetings in 2018, and proposed and finalized rulemaking in 2019.
Nonpoint Source
Currently through the Nonpoint Source Management Program, LDEQ is working in collaboration with
the state's agricultural partners at LDAF to refine techniques for calculating load reduction in
implementation project areas. The goal of this collaborative effort is to compare estimated load
reductions from implementation with loads calculated at sampling sites in priority watersheds through
monitoring during the duration of implementation and one year following completion of
implementation projects.
Statewide agricultural programs institutionalize nonpoint source goals and objectives into all of the
state's agencies' programs. For example, LDEQ and USDA have coordinated their watershed programs
and used water quality data to identify water bodies that are eligible for implementation of federal cost-
share programs. EQIP, the Wetlands Reserve Program (WRP), CREP, and CRP have been implemented in
watersheds identified as impaired by agricultural nonpoint sources in the state's integrated report. Most
recently, USDA and LDEQ partnered on USDA's MRBI to target practices that reduce excess nutrients
such as nitrogen and phosphorus entering the Gulf. MRBI allowed states that border the Mississippi
River to implement these types of nonpoint source controls that could be expanded to adjacent
watersheds to reduce the size of hypoxia in the Gulf.
Louisiana's state Nonpoint Source Management Program is consistent with the federal CWA section 319
program. Federal agencies participate in the Nonpoint Source Interagency Committee to coordinate
their programs to meet CWA water quality goals. Two examples of this federal/state partnership are
NRCS and U.S. Forest Service. Both of these agencies have partnered with LDEQ on coordination of
projects to reduce the concentration and/or loading of sediment, excess nutrients, and other pollutants
associated with agricultural and forestry activities, respectively.
Federal and state agricultural agencies in Louisiana have taken leadership roles in addressing agricultural
nonpoint source pollution. Through Farm Bill programs that USDA administers each year, thousands of
acres of BMPs have been implemented across the state to reduce the amount of sediment and excess
nutrients entering the state's water bodies. LDEQ participates in the USDA State Technical Advisory
Committee (STAC) to ensure water quality improvements continue to be a top priority for USDA's Farm
Bill Conservation Programs. Through USDA's ranking criteria, which have been provided to local
stakeholders and field offices, water quality and habitat protection remain key factors in selecting which
lands are included in Farm Bill programs. Members of the STAC are provided an opportunity to vote on
the list of resource concerns addressed by Farm Bill Conservation Programs in the same manner as
members of local stakeholder groups. This process keeps water quality priorities at the top of the list of
issues that need to be addressed through Farm Bill programs. Each of the following statewide programs
has a nutrient management component: Agricultural Statewide Program, Forestry Statewide Program,
Urban Runoff Statewide Program, Hydromodification Statewide Education Program, and Coastal
Nonpoint Pollution Control Program.
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Source Water Protection
Louisiana DEQ's SWP Program (SWPP) staff assist Louisiana's communities in protecting aquifers and
surface waters (e.g., rivers, lakes) that are sources of drinking water. The staff also works on
environmental water quality issues that might arise related to drinking water sources. In addition,
Louisiana SWPP staff assist Louisiana Nonpoint Source staff in watershed areas where watershed
implementation plans are completed as part of the watershed coordination team effort.
Numerous areas of Louisiana have experienced rapid growth and development; therefore, emphasis has
been placed on working with parishes to establish a drinking water protection ordinance that protects
their source water from nonpoint source pollutants. SWPP has collaborated with the Nonpoint Source
Management Program to educate the public on the importance of preventing nonpoint source pollution
and maintaining On Site Disposal Systems.
Coastal Protection and Restoration
CPRA continues to work with universities, federal agencies (USACE, USGS, and NOAA), nongovernmental
organizations, and private industry to improve the science surrounding river diversions and nutrient
assimilation. In 2017 to 2019, CPRA scientists worked collaboratively with leading academics to review,
document, and synthesize diversion effects on receiving basin open water bodies and wetlands. A
special issue of the journal Estuarine, Coastal and Shelf Science contains peer-reviewed synthesis papers
developed by this effort. The goal of this special issue is to summarize the relevant state of the science
with respect to predicting the response of deltaic plain emergent wetlands and estuarine open water
bodies to freshwater and sediment diversions and siphons.
Louisiana's Comprehensive Master Plan for a Sustainable Coast (2017) (the Master Plan) includes the
construction of additional river diversions with the intent to deliver high sediment loads and river water
into more areas of deltaic wetlands. Sediment diversion projects will result in the flow of Mississippi and
Atchafalaya river nutrients, freshwater, and sediment to bays, marshes, and estuaries. Intercepting
excess nutrients via river diversions by filtering them through coastal basins before they exit the mouth
of the Mississippi River might ultimately reduce the concentrations of nutrients that reach the Gulf. To
assess potential changes in water quality dynamics and spatial and temporal patterns in nutrient
transformation, one of the subroutines of the Master Plan model focuses on nitrogen uptake to evaluate
the potential fate of nitrogen in different types of wetlands and open water bodies. Removal for different
future scenarios is calculated, including future with and without project conditions for the ability to
compare nitrogen uptake under various scenarios. Higher resolution project-specific numeric water quality
models (e.g., for the Barataria, Breton, and Maurepas diversions) have also been further refined.
To determine baseline conditions, support the development and calibration/validation of models, and
increase understanding of how Louisiana's coastal basins might respond to the influx of nutrients from a
future Mississippi River diversion, CPRA is also designing and implementing the System-Wide
Assessment and Monitoring Program (SWAMP). The development of SWAMP ensures that relevant
water quality data are collected both prior to and following the construction and operation of new river
diversion projects. As part of SWAMP implementation in Barataria Basin, CPRA initiated water quality
data collection in 2015 by adding 23 discrete monitoring stations (measuring nitrogen, phosphorus,
turbidity, DO, and chlorophyll) and upgrading four existing real-time USGS data collection platforms to
include chlorophyll, turbidity, and DO. CPRA also worked with USGS to install three additional real-time
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monitoring stations within Barataria Basin to improve the availability of spatial and temporal water
quality data. In 2017-2018, CPRA installed an additional 37 discrete water quality data collection
stations east of the Mississippi River in the Breton and Pontchartrain basins.
1.6.7 Minnesota
During 2017-2019, Minnesota made many strategy implementation advancements, several of which are
highlighted below. During 2019-2020, Minnesota worked to develop a comprehensive five-year
Minnesota Nutrient Reduction Strategy (NRS) progress report. The complete accounting of activities and
outcomes for the 2014-2018 period are available in the progress report. The Minnesota NRS and the
five-year progress report can be found on Minnesota's NRS web page. Initial reporting on strategy
implementation is found in the 2u I ' lu port 1 ^ iress.
Activities Advanced during 2017-2013
• Tracking BMP Adoption-Minnesota established a new system and web tool to track government-
assisted BMP adoption. Access the watershed-level tracking tool and the state-level tracking tool.
• State Assistance for BMP Implementation-Over the 2018-2019 biennium, Minnesota's 25-year
Clean Water Legacy funding provided approximately $53 million per year for nonpoint source
implementation and $9 million per year for point source implementation. A considerable
portion of this money is directed toward nutrient-reduction practices and efforts. More
information can be found in the 2020 Clean Water Fund Performance Report (MCWFT 2018).
• Minnesota Agricultural Water Quality Certification-Minnesota has continued its certification
program that provides regulatory certainty and prioritized cost-share for farms certified to meet
BMP standards for water quality protection. Private industry (e.g., Land O'Lakes SUSTAIN and
others) has partnered with agencies to promote and use this program. Recent progress (May
2021) shows that 1,058 producers are certified, representing 756,990 acres; 2,131new practices;
and over 49,000 pounds (lbs) of phosphorus loss prevented. Access more information here.
• Mandatory Riparian Buffer lnitiative-50-foot perennially vegetated buffers on all public waters
in Minnesota are now over 99% compliant with the 2015 buffer law; 17-foot buffers on all public
ditches are over 90% compliant. Learn more about the initiative.
• Groundwater Protection Rule to Address Groundwater Nitrate from Fertilizer-The Minnesota
Department of Agriculture adopted a groundwater protection rule in 2019 that outlines how an
initial voluntary approach can become regulatory in high-nitrate drinking water supply
management areas where fertilizer BMPs are not adopted or groundwater nitrate levels increase.
The new rule also restricts nitrogen fertilizer applications in the fall and on frozen soils in both
vulnerable groundwater areas and drinking water supply management areas with elevated nitrate.
• Water Quality Standards-Eutrophication standards for lakes (2008) and rivers (2015) have been
a major driver affecting wastewater facility phosphorus effluent limits. Phosphorus effluent limit
reviews have been completed for half of the watersheds throughout Minnesota. Total
phosphorus effluent limits have been set for 370 wastewater facilities, which represent over
90% of the waste stream. Learn more about the eutrophication standards. Minnesota currently
requires wastewater nitrogen monitoring at 477 wastewater facilities, representing 94% of the
domestic effluent flow. Recent scientific studies on aquatic-life toxicity impacts from nitrate are
currently under review as Minnesota evaluates potential water quality nitrate standards.
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• Watershed Strategies and Planning-Minnesota uses watershed monitoring, modeling, and
other assessments to develop problem-solving strategies for local and downstream waters.
Water quality conditions have been intensively monitored in all 80 watersheds, and
restoration/protection strategies (WRAPS) have been developed for more than 65 of the 80
watersheds, with the others currently under development. The technical reports and strategies
are being used by partnerships of local governments to develop prioritized, targeted, and
measurable implementation plans within the watersheds (known as One Watershed, One Plan).
More information is available about Minnesota watersheds.
• Nitrogen Smart Program-As part of a new educational program called "Nitrogen Smart," 36
nitrogen fertilizer management educational events were conducted around Minnesota between
2016 and 2018. The events reached over 500 farmers and over 100 agronomists. When farmers
were surveyed several months after the events, 75% indicated that they intended to make a
change in the way they manage nitrogen during the next growing season. Estimated nitrogen
fertilizer reductions from these changes exceed 2 million lbs per year. More information is
available about the Nitrogen Smart Program.
• Improving Continuous Living Cover Options-The Forever Green Initiative brings together
researchers from multiple departments at the University of Minnesota, including Plant Breeding,
Agronomy, Food Science, and Economics. The university has made considerable progress in
developing new high-value commodity crops for conservation purposes. Many of these new
crops fit into a corn and soybean rotation, thereby providing ground cover between fall harvest
and spring emergence. Learn more about the initiative.
• Discovery Farms-The farmer-led Discovery Farms effort to gather field-scale water quality
information has increased the number of its core farms to 11 farms across different parts of
Minnesota. The goal is to provide practical, credible, site-specific information to enable better
farm management.
• CREP-The Minnesota CREP easement program began in 2017 with a goal of creating 60,000
acres of buffers, restored wetlands, and protected wellheads for drinking water. Farmers and
agricultural landowners can voluntarily enroll land in the program, which is funded with $350
million from USDA and $150 million from the State of Minnesota.
• Soil Health I initiative—I n 2018, the University of Minnesota in collaboration with the Board of
Water and Soil Resources initiated a Minnesota Office of Soil Health and hired a soil health
specialist. The Soil Health office will work to build local soil health and conservation expertise
(with agricultural and conservation professionals), create regionalized economic data related to
practices that improve soil health, and build and expand partnerships.
• Point-Nonpoint Trading-Point-nonpoint trading policies and guidance have advanced in
Minnesota during the past two years, and new trading opportunities are being considered in
several parts of the state.
• Source Water Protection Program (SWPP)-ln 2017, the Minnesota Legislature appropriated
funds to the Minnesota Department of Health (MDH) to develop a surface water SWPP to
protect public water supply systems that rely on surface water for their source of drinking
water. Approximately 25% of Minnesotans get their drinking water from surface water from 23
community public water suppliers.
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• CWA Section 319 Nonpoint Source Pollution Program-The federal CWA section 319 pollution
program was recently restructured in Minnesota to provide 16 years of stable local resources for
small watersheds. The program focuses on relatively small watersheds to make it more
manageable to get the detailed assessment needed for goal setting, source identification,
critical area identification, implementation targeting, and performance evaluation monitoring.
The first 10 watersheds were selected in 2018; by 2020, 30 watersheds were selected.
• 25 by 2025 Governor's Initiative—In 2017, Minnesota's Governor Mark Dayton hosted a series of
town hall meetings to promote 25% improvements in Minnesota's water quality by 2025. The
meetings were attended by more than 2,000 people who discussed excess nutrients and other
water pollution issues. Attendees provided over 3,500 suggestions on how to improve
Minnesota's water quality by 2025.
Outcomes
• Point Source Nutrient Reductions-Between 2005 and 2017, wastewater point source
phosphorus discharges were reduced 72 percent in areas ultimately draining to the Mississippi
River and 9 percent in areas draining to Lake Winnipeg (see Figure 1-5). More information is
available at the wastewater phosphorus loads interactive map and the 2020 pollution report to
the legislature.
• River Monitoring Trends-A 37% phosphorus load (flow-adjusted) decrease was found over the
period 1999-2018 in the Mississippi River just upstream of Lake Pepin. River phosphorus
concentration trends have shown decreases during the past two decades at 21 of 28 river sites
throughout Minnesota, and only one of 21 sites showed an increase. River nitrate and total
nitrogen concentrations have been increasing at half of the sites assessed for 20-year trends,
and only three of 28 sites showed decreasing nitrate trends. Additional water quality monitoring
results are available.
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Clean Water Fund Projects 2010-2019
Projects by Major Basin
, ¦
. \ 2,390
Projects
3,154
Projects
282
Projects
1,414
Projects
Figure 1-3. State assistance for BMP implementation (MCWFT 2020).
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Clean Water Fund Appropriations by Category
$180
$160
$140
$120
~ $100
c
o
= $80
S
$60
$40
$20
$0
Protection/restoration
implementation
activities
FY 10-11 ¦ FY 12-13
Drinking water Monitoring/assessment Watershed restoration Applied research, tool
protection and protection st rategies development, and
technology
i FY 14-15 B FY 16-17 ¦ FY 18-19 S3 FY 20-21
Figure 1-4. State assistance for BMP implementation (MCWFT 2020).
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2,000,000
1,800,000
1,600,000
1,400,000
1,200,000
3
O
o
1,000,000
800,000
g 600,000
400,000
200,000
acP° ^ ^ ^ ao\° ^ ^ ^
¦ Lake Winnipeg ¦ Lake Superior ¦ Mississippi River Basin
Figure 1-5. Minnesota wastewater phosphorus discharge trend from 2000 to 2018 (MCWFT 2020).
1.6.8 Mississippi
Nutrient Reduction Strategies
Mississippi developed both a statewide strategy and a regionally specific strategy to address nutrient
concerns on state lands and in state waters. These strategies focus on land-use practices and
characteristics that are unique to each region of the state: the Mississippi Delta (Alluvial Plain), upland
areas, and coastal areas of the state. As individual watershed projects are developed, the Nutrient
Reduction Strategies are used to guide the development and implementation of watershed restoration
and protection plans to ensure all plans include activities necessary to mitigate nutrient contributions to
state waters and the Gulf.
Mississippi Department of Environmental Quality (MDEQ), working with resource partners, has
implemented at least one nutrient reduction pilot project in each of the regions defined in the Nutrient
Reduction Strategies. As part of the process, a project-specific monitoring plan was developed for each
pilot project area. Working with the USGS and others, MDEQ has been collecting physical, chemical,
biological, and meteorological data in the project areas. Also, the monitoring design included sampling
to represent both storm and routine stream flows. To ensure consistency, the monitoring strategy
outlined in the Nutrient Reduction Strategies was used to guide the process.
The focus of Mississippi's Nutrient Reduction Strategies, developed in conjunction with stakeholder
input and recommendations, is to work toward answering the following questions:
• What levels of nutrient reduction are achievable?
• What will they cost?
• What is the value to each stakeholder from these nutrient reductions?
• What levels of nutrient reduction will protect state water bodies and benefit the Gulf?
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Working with partners, producers, and researchers, MDEQ is making progress toward answering those
questions in the strategies. Taking a data-driven approach, the agency and partners have been collecting
water quality data in watersheds in which nutrient reduction practices have been implemented
following the monitoring approaches outlined in the strategies. These data, collected pre- and post-
implementation and representing varying flow regimes, will be used to determine the nutrient load
reductions achieved by the practices. Once load reductions are calculated, progress can be made on
determining the costs and values associated with nutrient reduction practices.
Nutrient Monitoring
MDEQ collects water samples at 37 bridge sites within the state each year under the Fixed Station
Monitoring Program as part of status and trends monitoring. The network of statewide ambient,
primary fixed stations provides systematic water quality sampling at regular intervals and for uniform
parametric coverage to monitor water quality status and trends over a long-term period. These
locations are sampled monthly for routine water chemistry, including nutrient parameters, and
quarterly for metals.
For wadeable streams, Mississippi uses a calibrated index of biotic integrity to assess the health of
benthic macroinvertebrate communities in streams outside of the Mississippi Alluvial Plain. As part of
this monitoring program, MDEQ collects biological community data along with habitat metrics and
water quality on approximately 100 streams annually.
Annually, MDEQ collects samples from 20 publicly accessible lakes larger than 100 acres in size
Depending on the size of the lake/reservoir, one to five monitoring locations are sampled during a
sampling event. Lakes are monitored for traditional physical, chemical, and biological water quality
parameters during the summer index period (May-November). Lakes/reservoirs are sampled on a
rotating cycle until all water bodies larger than 100 acres have been monitored.
As part of the Mississippi Coastal Assessment Program, MDEQ annually collects samples at 25 randomly
selected sites along with 12 static sites. Coastal assessment monitoring is conducted during the late
summer index period (July-September). Sample sites are selected using a probabilistic site selection
methodology. At the end of the five-year reporting period, MDEQ will have monitoring data from a total
of 125 sites that can be used to assess water quality in the coastal and estuarine waters in the state.
Water Quality Standards
MDEQ's goal is to develop scientifically defensible numeric nutrient water quality criteria that are
appropriate and protective of Mississippi's surface waters. Numeric nutrient criteria development
efforts continue for each of Mississippi's various water body types: lakes/reservoirs, rivers/streams,
coastal waters, and waters of the Mississippi Alluvial Plain. The criteria developed for each water body
type will be coordinated with the water quality criteria for other water body types to ensure consistency
across the state and protection from downstream impacts.
Highlights of MDEQ's numeric nutrient criteria development efforts:
• While MDEQ continues criteria development efforts across all water body types, the overall plan
is to move forward in a sequenced approach, addressing the water body types in the following
order: (1) Mississippi lakes and reservoirs, (2) Mississippi coastal and estuarine waters, (3)
wadeable streams, and (4) delta waters (all surface waters within the Mississippi Alluvial Plain.
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Criteria for Mississippi's large, nonwadeable rivers will be developed through site-specific
evaluations. Timing of criteria development for large, nonwadeable rivers will be based on
prioritization and available agency resources.
• MDEQ is committed to following a defensible, scientifically driven process for deriving
protective criteria. Mississippi's Nutrient Technical Advisory Group is made up of technical
experts representing various state agencies, federal agencies, and academia. This group
provides technical expertise and regional knowledge to inform and support the criteria
development process.
• MDEQ is applying a multiple-line-of-evidence approach to the development of numeric nutrient
water quality criteria across all water body types. This weight-of-evidence approach uses various
criteria development methods that are considered collectively to produce criteria with greater
scientific validity. MDEQ is evaluating potential criteria through four methods: (1) reference
approach, (2) stressor-response approach, (3) mechanistic modeling, and (4) scientific literature.
• Significant progress has been made to develop numeric nutrient water quality criteria for
Mississippi lakes and reservoirs (outside the Mississippi Alluvial Plain). In order to translate
Mississippi's narrative criteria into numeric values, MDEQ selected the endpoints of chlorophyll
a and DO concentrations for analyses. A range of numeric nutrient criteria for total nitrogen and
total phosphorus concentrations have been developed to be protective of these endpoints. EPA
is currently working to develop updated recommendations regarding numeric nutrient criteria
for lakes. MDEQ will review and incorporate the new information into our criteria development
work as we finalize numeric nutrient criteria for lakes and reservoirs.
• Endpoints for evaluation have also been selected for other water body types. At this time, total
nitrogen and total phosphorus concentrations are being evaluated in Mississippi coastal and
estuarine waters based on chlorophyll a and DO endpoints. For Mississippi wadeable streams, in
addition to DO, the Mississippi Benthic Index of Stream Quality (M-BISQ) is providing an
additional endpoint for criteria development through a measure of the instream biological
health using benthic macroinvertebrate communities.
• MDEQ continues to strive for a transparent, well-documented process related to nutrient water
quality criteria development. Stakeholders are updated regarding the status of nutrient criteria
development through numerous efforts, including active participation in Mississippi's Basin
Team meetings across the state, presentations at water resource conferences (e.g., Mississippi
Water Resources Research Institute, Mississippi Manufacturer's Association, Mississippi Water
and Environment Association). In addition, MDEQ has held multiple Numeric Nutrient Criteria
Update Sessions since June 2012. These sessions include technical updates to the group as well
as time set aside for answering any questions stakeholder might have regarding the topic.
Information has also been shared through MDEQ's web page and the monthly MDEQ External
Newsletter. These efforts promote and encourage open communication between MDEQ staff
and our stakeholders.
• MDEQ continues to develop the plan for implementing numeric nutrient water quality criteria.
In addition to developing the numeric nutrient criteria themselves, MDEQ also focuses efforts
on exploring concerns and questions raised by both MDEQ staff and stakeholders. MDEQ will
continue to work concurrently on both criteria development and implementation planning.
• MDEQ continues to collect data, conduct studies, and develop water quality models to support
nutrient criteria development across the state.
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Nonpoint Source
The state's strategy for the management and abatement of nonpoint source pollution relies on
statewide and targeted watershed approaches. These approaches are implemented through both
regulatory and nonregulatory programs on the federal, state, and local levels. The implementation of
program activities or categories that are not regulated rely primarily on the voluntary cooperation of
stakeholders and are supported financially through federal assistance programs such as CWA section
319 and available state resources. The strategy for addressing nonpoint source pollution on a statewide
level includes education/outreach, monitoring and assessment, watershed planning activities, BMP
demonstrations, BMP compliance, technology transfer, consensus building, and partnering.
Implementation of the nonpoint source Program is done in cooperation with numerous agencies,
organizations, and groups at all levels of government and in the private sector. Priority is given to
activities that promote consensus building and resource leveraging opportunities to increase the overall
effectiveness of Mississippi's Nonpoint Source Program.
The Nonpoint Source Management Program implements strategies that target priority watersheds
throughout the state. Prioritization of these watersheds is an evolving process identified in coordination
with resource agency partners as part of the Basinwide Approach to Water Quality Management.
Mississippi's collaborative and leveraged approach to reducing excess nutrients and their impacts
focuses on the development and implementation of appropriate nutrient reduction strategies. The
target audience for the strategic planning and implementation includes local agencies and organizations
with a mission of environmental and water quality restoration and protection, and local, state, and
federal agencies with the authority to develop and implement nutrient reduction plans and practices.
CWA section 319 funding has been used increasingly to support nutrient reductions in large watersheds.
The strategy behind this approach is to use the committed CWA section 319 resources to attract
additional leveraging opportunities that together create a greater potential to achieve quantifiable
reductions in nutrient concentrations/loadings.
Point Sources
Through the NPDES Permitting Program, Mississippi has been implementing nutrient monitoring and/or
limits for total nitrogen and/or total phosphorus based on the following criteria:
• Effluent monitoring of total nitrogen and total phosphorus for all municipal NPDES permitted
facilities with discharge rates greater than 1.0 MGD.
• Influent monitoring of total nitrogen and total phosphorus for all municipal NPDES permitted
facilities with discharge rates greater than 1.0 MGD.
• Effluent limits for total nitrogen and/or total phosphorus for NPDES permitted facilities that
discharge into receiving waters that have nutrient TMDLs.
In addition, as part of the MS4 process, Mississippi is requiring entities to incorporate nutrient reduction
strategies into stormwater management plans. Figure 1-6 and Figure 1-7 are maps showing permitted
facilities with nutrient (total nitrogen and/or total phosphorus) monitoring and those with nutrient
permit limits. Note: Data used to generate maps came from June 2019 ICIS data retrieval.
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• Minor (37)
County 0 40 Miles
I I 07 Jun 19
Figure 1-6. Permitted facilities with nutrient limits.
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Legend
MS NPDES Municipal
with Monitoring for TN and TP
~ Major ( 63 )
• Minor (121)
Cou nty
40 Miles
—I
Figure 1-7. Facilities with nutrient monitoring (June 2019 ICIS data retrieval).
"I MDLs and Modeling
Mississippi has 191 water bodies with TMDLs for total nitrogen and/or total phosphorus statewide.
Whenever a discharger is located in a watershed with an applicable nutrient TMDL, the facility, at a
minimum, is required to monitor their discharge for nutrients. Based on the TMDL loading
requirements, those facilities might also be required to have nutrient limits. Additionally, as intensive
water quality models are developed for state waters for which data of sufficient quality and quantity
exist and the models are calibrated and verified; model outputs are used to provide nutrient limits for
new or expanding dischargers. Figure 1-8 is a map showing the total nitrogen and/or total phosphorus
TMDLs statewide.
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Figure 1-8. TMDLs for TIM or TP.
1.6.9 Missouri
The Missouri Nutrient Loss Reduction Strateg was developed over a 3-year period from 2011 through
2014 using a CWA section 104(b)(3) grant and funding from existing state, federal, local, and private
resources. A committee composed of representatives from state agricultural, environmental, and
natural resource organizations was formed to develop recommendations for reducing nutrient loads to
surface water and groundwater in Missouri through an open, consensus-building process. An internal
workgroup consisting of staff from the Missouri Department of Natural Resources (Department) Water
Protection and Soii and Water Conservation programs meets quarterly to discuss the progress being
made toward the goals of Missouri's Strategy. There are many recommended actions listed in the
Strategy, making prioritization important to focusing Department resources. Meetings are being held in
an effort to identify areas in which coordination would be beneficial. The workgroup will produce
biennial reports to communicate progress to the public. The first report was published in 2018.
Parks, Soils and Water Sales Tax
In Missouri, the Parks. Soils and Water Sales Tax is a statewide one-tenth of 1% sales tax that provides
funding for Missouri state parks and historic sites as well as soil and water conservation efforts. Due to
the efforts of the Missouri Soil and Water Conservation Program, Missouri has saved more than 179
million tons of soil over the past 30 years.
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In FY 2018, the Soil and Water Conservation Program processed 8,147 contracts for installing
agricultural BMPs for a total of $40 million (100% of appropriation). That is the largest percentage of the
Parks, Soils and Water Sales Tax used to fund BMPs since the tax was implemented in 1984
During the drought in the summer of 2018, the efforts of the Soil and Water Conservation Program
substantially improved in implementing cover crops on the landscape.
Monitoring Efforts
The Department is working toward advancing understanding of Missouri's nutrient contributions
through data collection and analysis.
Agricultural Water Quality Monitoring Program
The Department has committed $1 million from CWA section 319 grant funding to monitoring efforts in
partnership with the USDA RCPP. This funding provides support where monitoring is not an eligible cost
under the USDA RCPP.
The Department has a cooperative agreement with the Missouri Corn Merchandising Council in
partnership with the Missouri Soybean Merchandising Council to form a collaborative monitoring
partnership that will conduct farm-scale edge-of-field agricultural runoff monitoring of nutrients and
sediment to study effectiveness, demonstrate benefits of agricultural conservation practices, and
support water quality efforts aimed at meeting state soil and water stewardship goals.
Edge-of-field water quality monitoring of
relevant BMPs provides power through data,
analysis, and communication of critical
information that supports historical, current,
and future recommendations and guidance of
water quality improvement strategies. BMPs
that address nutrient and sediment loss
reduction strategies include vegetative filter
strips, grassed waterways, constructed
wetlands, terraces, tillage, grazing, crop
rotations, manure management, field borders,
subsurface tile, riparian buffer strips, cover
crops, and, in some cases, combinations of
those practices. Data from this monitoring
program will also be analyzed to inform numerical simulation(s) such as the APEX model to support BMP
recommendations as well as to document expected reduction/water quality improvement of existing
BMPs. Figure 1-9 shows an example of a monitoring station in a grassed waterway.
Figure 1-9. Monitoring station in grassed waterway.
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These BMPs have been implemented in a wide array of
circumstances for the purpose of conserving soil and
water integrity and improving the sustainability of
production agricultural methods. In an attempt to
understand the extent to which these practices have an
impact, Missouri's Department of Natural Resources
selected approximately seven Missouri farms
representing typical row crop farming practices for
implementation of an edge-of-field monitoring study. As
part of this study, a field approach will be used (as
represented in Figure 1-10), comparing two similar
fields/plots at each of the seven locations: the study
containing an identified BMP and the control employing
conventional methods. Aside from the differences
resulting from BMP implementation, all other factors
pertaining to the fields/plots will be as close to identical
as possible.
The RCPP promotes partnerships among environmental and agricultural stakeholders in Missouri.
Partners in this monitoring project include the Department, Missouri Soybean Merchandising Council,
Missouri Corn Merchandising Council, USDA, University of Missouri, and Waterborne Environmental.
Point Source Monitoring
An increasing number of Missouri's point sources will be required to sample and report nutrient
discharges. Missouri's effluent regulation was revised in 2014 to require facilities with a design flow
greater than 100,000 gallons per day to monitor discharges for total phosphorus and total nitrogen
quarterly. These monitoring requirements are being incorporated into permits as they are renewed.
Recently, further nutrient monitoring requirements for point sources in the state's effluent regulation
were approved by the Missouri Clean Water Commission. These revisions went into effect in February
2019 and expand the monitoring requirements in the following ways:
• Facilities with a design flow greater than 1 MGD are required to monitor monthly instead of
quarterly.
• Instead of reporting total nitrogen, facilities are to report nitrogen's constituents as total
Kjeldahl nitrogen (TKN), nitrate plus nitrite, and ammonia.
• Facilities are to monitor influent for a period of time, in addition to effluent.
Surface Water Monitoring
In addition to collecting data from point source dischargers, the Department collects surface water data
from multiple sources statewide. Along with nutrient data collected by the Department's Monitoring
and Assessment Unit (sites highlighted in Figure 1-11), the University of Missouri's Statewide Lake
Assessment and Lakes of Missouri Volunteer programs sample and provide lake nutrient data to the
Department.
Treatment Period
Figure 1-10. Study design comparing BMP
to control site employing conventional
methods.
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Water Quality Standards
Nutrient criteria for lakes and reservoirs were adopted as part of Missouri's water quality standards rule
in 2009. In August 2011, EPA denied approval of a substantial part of this rule, expressing some technical
issues with the criteria that were proposed. The Department has since worked to address these
concerns and has promulgated water quality standards that include numeric nutrient criteria for lakes
and reservoirs. These criteria were approved by EPA on December 14, 2018. The Department has
developed a Nutrient Criteria Implementation Plan that describes how it intends to implement nutrient
criteria in accordance with the newly revised water quality standards.
For more information on the Department's efforts to reduce nutrient pollution, see the Water
Protection Program's nutrient web page and the Soil and Water Conservation Program's web page.
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1.6.10 Ohio
Ohio is wrestling with severe nutrient issues in many areas of the state, especially those which have
come to the forefront in contributing to HABs. The effect of cyanotoxins on drinking waters and popular
recreational areas has increased targeting of state and federal resources toward nutrient reduction and
monitoring. Although many efforts in Ohio are being targeted toward the Western Lake Erie Basin
(WLEB), the following describes monitoring and implementation efforts that influence the Ohio River
Basin and, subsequently, the Mississippi River Basin. While
this information is focused primarily on nonpoint source
monitoring and efforts, it should be noted that more than
20 WWTPs in the Ohio River watershed have updated
permits for technology reasons or to meet more stringent
nutrient standards.
Monitoring
In 2018, Ohio produced its second biennial report
(required by state law) on the mass loading of nutrients
delivered to Lake Erie and the Ohio River from Ohio's point
and nonpoint sources. The 2018 Nutrient Mass Balance
Study for Ohio's Major Rivers provides estimated nutrient
loading (total phosphorus and total nitrogen) and is
divided into major contributing sources for nine
watersheds in Ohio based on monitoring and covering 66%
of the land area of Ohio. Much of this monitoring is being
performed by the National Center for Water Quality
Research, which is measuring pollutant export from
watersheds. Within the Ohio River Basin (contributing to
the Mississippi River Basin), there are three major
watersheds being monitored for this ongoing mass balance nutrient study—the Great Miami, Scioto,
and Muskingum watersheds (see Figure 1-12). This study notes several factors that influence watershed
loading such as watershed size, annual water yield, nonpoint source yield, land use, per capita yield, and
population density. These factors help describe the total load from a watershed and provide the
breakdown of sources contributing to those loads.
For Ohio River watersheds, nonpoint sources contributed an average of 79% of the total nitrogen load.
When considering the three Ohio River watersheds together, the total nitrogen load was 61,600 metric
tons per year averaged over the 5 water years. The maximum and minimum loads estimated for the
three watersheds draining to the Ohio River Basin are shown in Table 1-2 followed by watershed
descriptions.
Nutrient Mass Balance—The Great Miami River Watershed
Agricultural land use dominates this watershed at 68%. Nonpoint source is the largest proportion of the
total phosphorus and total nitrogen load as shown in Table 1-2.
monitored for State of Ohio Nutrient
Mass Balance Study.
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Table 1-2. Maximum and Minimum Total Phosphorus and Total Nitrogen Loads Estimated for Three
Watersheds Draining to the Ohio River Basin
Watershed
Total N Loads Water Years 13-17
(metric tons per year)
Total P Loads Water Years 13-17
(metric tons per year)
Maximum
Minimum
Maximum
Minimum
Great Miami
22,139 wyl7
14,733 wyl6
1745 wyl4
883 wyl6
Scioto
28,083 wyl7
17,784 wyl6
2,402 wyl4
1,485 wyl6
Muskingum
22,153 wyl4
12,578 wyl6
1,630 wyl4
883 wyl6
Notes: N = nitrogen; P = phosphorus; wy = water year.
Monitoring of Public Drinking Water Systems
Ohio requires public drinking water systems (PDWS) to monitor for cyanotoxins with results posted for
both PDWS and recreational waters. The Public Water System Harmful Algal Bloom Response Strategy
was last updated in 2017. In 2017, nitrate and microcystins were responsible for 14 impairments of
PDWS in the Ohio River Basin, eight of which were new.
Monitoring of Watersheds for TMDL
Ohio's TMDL Program plans watershed assessment and TMDL development and is closely tied to the
Ohio Integrated Water Quality Monitoring and Assessment Report, which summarizes water quality
conditions in the State of Ohio. Seven HUC-12 watersheds in the Ohio River Basin were surveyed or
assessed in 2017. No new TMDLs have been approved in the Ohio River Basin since 2012,5 although
several are under development. Of the 34 existing TMDLs approved since 2002 in the Ohio River Basin,
29 appear to have nutrient- or sediment-related criteria (total phosphorus, nitrate, ammonia, total
nitrogen, DO, carbonaceous biochemical oxygen demand, sediment, or total suspended solids).
Legislation and Other Efforts
Ohio Senate Bill 150 (passed in 2014) mandated that, after September 2017, fertilizer applicators
affecting parcels of land more than 50 acres must be certified and educated about the handling and
application of fertilizer. To date, 17,375 Ohio fertilizer applicators have taken the 2- or 3-hour training
(depending upon pesticide certification) and been certified by the Ohio Department of Agriculture
(ODA). The training covers a variety of agricultural- and nutrient-related issues such as precipitation
forecasts, water quality impairments, summary of edge-of-field studies, and recommendations for
phosphorus and nitrogen application and management.
The Grand Lake St. Marys watershed continues to receive additional technical assistance and have
special rules developed related to the application of manure and nutrients. This area was designated a
watershed in distress in 2011 and one of the special rules requires nutrient management plans for large
appliers of manure (more than 350 tons or 100,000 gallons annually) and, from December 15 to March
1, does not allow manure or fertilizers to be applied on frozen or snow-covered ground or when more
than one-half inch of precipitation is expected.
5 TMDL formulation was suspended in 2015 until an Ohio House Bill (HB 49) reconciled issues regarding the TMDL
process, rulemaking, and stakeholder involvement in June of 2017. For more information about these changes, a
TMDL factsheet is available.
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Nonpoint Source Efforts, including Watershed Planning and Implementation Projects
The development of approved Nine-Element Nonpoint Source Implementation Strategic (NPS-IS) Plans is
encouraged throughout Ohio to tie known water resource impairments to potential actions that will
work toward delisting impaired waters or protecting high-quality waters of the state. Ohio EPA's Division
of Surface Water (DSW) and ODA's Division of Soil and Water Conservation (DSWC) provide financial and
technical assistance for the development of watershed plans. Thirteen Ohio River Basin watersheds have
completed or are in the process of completing watershed plans. Having a completed NPS-IS plan or
equivalent is a condition of being eligible for CWA section 319 funding for implementation of nonpoint
source reduction in impaired waters or projects protecting high-quality waters.
Focused technical assistance is being provided to agricultural producers within the Grand Lake St. Marys
watershed through ODA DSWC and through SWCDs across the state. This assistance focuses on
providing nutrient management training and education; assisting in the development of nutrient
management plans; and the engineering, design, and implementation of nutrient treatment BMPs. In
the Ohio River Basin, Comprehensive Nutrient Management Plans covering 37,412 acres were
developed from 2017 through this period.
Scioto Conservation Reserve Enhancement Program
The Scioto CREP began in 2005 as a partnership between USDA and ODA to provide increased
incentives for priority agricultural conservation reserve practices. This program provided 15-year
conservation reserve contracts on more than 69,200 acres of farmland. The program was suspended
in 2017, but efforts are being made to renew the program. Additional information can be found on the
SWCD Watershed Program Grant Updates web page
Muskingum Watershed Program
Since 2011, the Muskingum Watershed Conservancy District and ODA DSWC have administered
$1,931,275 in project dollars to private landowners and local SWCDs by providing cost-share dollars to
agricultural producers in the watershed to reduce runoff, sedimentation, and loss of nutrients from crop
and pasture fields. Additional information can be found on the SWCD Watershed Program Grant
Updates web page
CWA Section 319 Nonpoint Source Implementation Grants
Table 1-3 shows CWA section 319 implementation grants that have been provided in the Ohio River
Basin since the 2017 Report to Congress along with estimated load reductions.
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Table 1-3, CWA Section 319 Nonpoint Source Implementation Grants and Estimated Load Reductions
in the Ohio River Basin
Project Sponsor
Project Title
Watershed
Project Total
N
Ibs/yr
P
Ibs/yr
Sed
tons/yr
Holmes SWCD
Water Quality Efforts
in the South Fork of
the Sugar Creek
South Fork of
Sugar Creek
$288,500
1,977
480
96
City of Wyoming
Cilley Creek Stream
Restoration at Stearns
Woods
Congress Run
Mill Creek
$310,218
3
1
16
City of Cincinnati
Mill Creek Low-Head
Dam Mitigation
Congress Run
Mill Creek
West Fork Mill
Creek
$512,405
4,900
2,300
1,900
Mercer County
Commissioners
West Branch Beaver
Creek Stream
Restoration
Beaver Creek
$510,908
510
255
255
Summit Metro
Parks
Pond Brook Phase 3
Stream Restoration
Tinker's Creek
$400,000
1,391
1,182
2,365
Ohio DNR-
Mineral
Resources
Management
Appalachian Ohio
Watershed Support
Appalachian
Ohio
$166,667
Y
Y
N/A
City of Mount
Vernon
Armstrong Run
(Kokosing River)
Restoration Project
Armstrong Run
(Kokosing River)
$560,518
1,476
737
641
Mercer SWCD
Phosphorus Reduction
and Edge-of-Field
Practice Plans
Beaver Creek
$362,366
12,566
519
1,584
Notes'. Ibs/yr = pounds per year; N = nitrogen; P = phosphorus; Sed = sediment; tons/yr = tons per year; Y = quantified
reductions not yet reported.
Highlighted CWA Section 319 Project
In 2015, the Mercer County Commissioners and the Grand Lake St. Marys Lake Facilities Authority
applied to Ohio EPA for CWA section 319 funding to establish a 39-acre vegetative biofilter to enhance
sediment and nutrient removal in Beaver Creek. This application was selected and $312,500 of the funds
were matched with $260,000 of local funding to construct a 0.5-MGD lift station to take flow from
Beaver Creek ditch into 39 acres of roughened and vegetated floodplain.
1.6.11 Tennessee
Ambient Monitoring for Nutrients
The Tennessee Department of Environment and Conservation (TDEC) performs water quality monitoring
for nitrate/nitrite, TKN, and total phosphorus as part of their ambient water monitoring program, which
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included sampling for nutrients at 298 sites across Tennessee in FY 2018. Monitoring sites are chosen
jointly by the eight environmental field offices and the central office to ensure representation of the
watershed. Sites are sampled according to TDEC's watershed approach schedule.
Point Source: WWTP Optimization for Nutrient Removal
Training and technical support was given to TDEC and municipal employees (by The Water Planet
Company, now CleanWaterOps) to assist them in the optimization of nutrient removal at municipal
WWTPs. TDEC staff training and technical support was provided as classroom training,
videoconferences, meetings, site visits, emails, and telephone calls. Municipal WWTP support was
similarly provided as classroom training, videoconferences, meetings, site visits, emails, and telephone
calls. Using newly acquired knowledge and ongoing technical support, and by challenging themselves to
operate existing equipment differently, two-thirds of the municipal wastewater facilities involved in the
2016 and 2014 training efforts are meeting anticipated nitrogen and phosphorus nutrient limits or have
demonstrated the capability to do so.
A Summary Report on these training and technical support actions is available.
Harmful Algal Bloom Workgroup
TDEC led the formation of a total nitrogen HAB workgroup in July 2018. The workgroup consists of
stakeholders and representatives from state and federal agencies, and land grant universities and was
formed to develop monitoring, reporting, and research activities related to HABs. The partners involved
are USACE, the Tennessee Valley Authority, USGS, the Tennessee Department of Health, TDEC, the
Tennessee Department of Agriculture, Tennessee State University Extension, University of Tennessee
Extension, Tennessee Technological University, Middle Tennessee State University, Vanderbilt University
and Metro Nashville Water Services. Other partnerships are being formed, and much research is
underway in support of creating a Tennessee-specific Harmful Algal Bloom response plan, public
reporting and data collection, and toxicity research and evaluation.
Pollutant Trading
With Tennessee Valley Authority funding, Tennessee contracted with University of Tennessee-Extension
to conduct a preliminary feasibility study on nutrient trading in the Tennessee Valley. The study
identified potential trading zones that might have potential as pilot markets if Tennessee establishes a
trading system.
Nonpoint Source Summary
Tennessee Department of Agriculture continues to partner with qualifying entities to fund projects
under the CWA section 319 Program to lessen impacts to Tennessee waters from nonpoint sources,
including excess nutrients. As required by EPA, staff are modeling load reductions on CWA section
319-funded projects and have chosen to use EPA's STEP-L model. Success stories are documented on
EPA's Nonpoint Source Success Stories web page for Tennessee.
State funds are provided through the Agricultural Resources Conservation Fund Incentive Program to
provide financial support for Tennessee farmers to install conservation practices to lessen soil erosion,
reduce livestock impacts to state waters, and to improve land management on Tennessee farms. There
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has been a significant increase in the requests for funding for the planting of cover crops, due to the
promotional work by USDA NRCS across Tennessee. The Land and Water Stewardship section is also
estimating load reductions using the STEP-1 model on all these practices.
Benchmark Data from 2017 U.S. Census of Agriculture
An important function in beginning to implement Tennessee's Nutrient Framework is to determine
benchmarks as a means of gauging progress. The following are some key benchmarks from the 2017 U.S.
Census of Agriculture (the Census)6:
• 109,000 acres of Tennessee farmland is tile drained (about 1% of cropland total).
• 79.8% of planted acres in Tennessee used No-Till practices.
o 16.2% of planted acres in Tennessee used a conservation tillage practice,
o 4% of planted acres in Tennessee used conventional tillage practices.
• 340,000 acres of cover crop acres planted, up 85% over 2012 Census totals.
Federal- and state-funded cover crop acreages totaled 195,000 acres in 2017, which when compared to
the acreage reported in the Census, could indicate 42% of total cover crop acres planted are privately
funded.
Partnerships with NGOs and Land Grant Universities
The Tennessee Department of Agriculture is negotiating with The Nature Conservancy and the Soil
Health Partnership to fund several full partner and associate partner sites for in-depth soil health
applied research and analysis. University of Tennessee Agricultural Research is collaborating with the
Soil Health Partnership on this effort and also on a companion research project through the university.
This work will begin in Calendar Year 2019.
From Our Farmers
Work continues with the Tennessee Association of Conservation Districts to develop narratives of the
experiences Tennessee crop producers have had concerning all facets of soil health and cover crops.
These stories are very enlightening and useful, in that they are written from the farmer's perspective,
and provide on-farm details of what has worked and not worked for them with respect to cover crops,
and the lessons learned. Planting of cover crops and the improvements that come from increasing soil
health have enormous potential benefits to reducing nutrient flux.
6 The U.S. Census of Agriculture is a count of U.S. rural and urban farms and ranches raising and selling more than
$1,000 of fruit, vegetables, or food animals during the Census year. The Census, taken only once every five years,
looks at land use and ownership, operator characteristics, production practices, income and expenditures. The
census can be used for many different reasons, including by farmers and ranchers to make informed decisions
about the future of their own operations, by companies and cooperatives to determine where to locate facilities to
serve agricultural producers, by community planners to target needed services to rural residents, or by legislators
when shaping farm policies and programs.
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Multidisciplinary Nutrient Strategy Task Force
Tennessee has begun a process to review and revise its Nutrient Reduction Framework. Stakeholders
representing wastewater, stormwater, agriculture, industry, and nonprofit environmental groups have
come together to create a Multidisciplinary Task Force. The Task Force meets quarterly and held a kick-
off meeting on February 12, 2019, to discuss the current Nutrient Reduction Framework, learn the
science behind the framework, and explore ways to expand the framework via stakeholder-led
discussion and voluntary engagement. The May 14, 2019, follow-up meeting included presentations on
current practical applications of nutrient reduction by agricultural, municipal, and stormwater
practitioners and led to the creation of five working groups tasked with setting goals for the Task Force,
collecting data, identifying best practices, and implementing pilot projects to support revision of the
state Nutrient Framework. Working groups provided an initial report to the Task Force at the August
2019 meeting.
1.6.12 Wisconsin
In addition to Wisconsin's ongoing efforts described in the 2017 Report to Congress, implementation
continues to be focused on phosphorus reduction through existing state regulations, discharge permits,
and TMDLs. Wisconsin's Nutrient Reduction Strategy (2013) and Implementation Progress Report (2017)
can be viewed on Wisconsin's Nutrient Reduction web page.
Monitoring
Wisconsin routinely collects data on nutrient concentrations as well as documentation of waterbody
responses. Looking statewide, long-term trend data reported in the 2018 Integrated Report showed
generally decreasing trends for phosphorus and flat or increasing trends for nitrate. Figure 1-13 shows
the areas of Wisconsin with notable changes in phosphorus, and Figure 1-14 provides a similar
illustration for nitrogen.
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Diiulh _ .
e Total Phosphorus
„ _ sum:
i#1n/Ofal For»«
Clear increase
Possible Increase
jSSS B No Trend
Possible Decrease
¦ Clear Decrease
Nicc Noi Enough Data
Mjto.a
0
Q,
WISCONSIN
tfti Claire
o
o
Ro(h«K.tef
o
iU jtlll
.J Crosse
WISCONSIN cc*
Qrcon Bay
C3 •
F cir>1 du L.ic « . ,
Q A Sill CDO > ' Jjfl
n City
G '•
MO'll ¦ «i'
ktll Jlll c'j
A Jt- j(loo
O
o
Li Ut«.K(U<0
O
^P^dclrte
K^^ha o
Figure 1-13. Notable concentration increases or decreases in phosphorus levels.
Part 1. The HTF and ari Assessment of Progress Made Toward Nutrient Load Reductions
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Duluih
o
o
r C-° Ch*qi«m«Mn
MIO)l
Fere SI
Otlni
Natani
f<*64)
Waj
Nitrate
| Clear increase *
Possible Increase
|j No Trend
Possible Decrease
| Clear Decrease
Not Enough Data
est S
O
WISCONSIN
e9u Claire
o
a
WSCOHSINfc'
Rc>dvt»(e»
©
Cfosse
jistin
Pond du Lac
ii Crty
l-laJ-.
-------
° 1960 1970 1980 1990 2000 2010 2020
Figure 1-15. Rock River long-term trend monitoring site at Afton, Wl.
Point Source Phosphorus Reduction Options
Since December 2010, the Wisconsin Department of Natural Resources (WDNR) has been including
WQBELs in Wisconsin Pollutant Discharge Elimination System (WPDES) permits to comply with
Wisconsin's water quality standards for phosphorus. Wisconsin's Phosphorus Implementation Guidance
provides a detailed discussion of the phosphorus standards and implementation procedures for those
standards in WPDES permits.
To help address shortfalls in funding for nonpoint source reductions and help offset the often-costly
point source reductions, WDNR, in collaboration with its stakeholders, developed innovative compliance
options as part of the 2010 phosphorus rulemaking to reach water quality goals in a more economically
efficient manner. This spurred the development of Wisconsin's Adaptive Management and WQ.T
programs. The premise behind these compliance options is that point source dischargers could invest a
smaller amount of money towards nonpoint source pollution control projects and while achieving a
greater water quality benefit. These programs are considered to be a viable solution for many point
sources working towards phosphorus compliance.
Although similar, adaptive management is different than WQ.T. In both cases, point sources can take
credit for phosphorus reductions within the watershed towards phosphorus compliance. Because the
practices used to generate phosphorus reductions may be the same, these compliance options are often
confused with one another. Adaptive management and WQ.T have different permit requirements,
however, making them different from permitting and timing standpoints:
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• Adaptive management and trading have different end goals. Adaptive management focuses on
achieving water quality criteria for phosphorus in the surface water; trading focuses on
offsetting phosphorus from a discharge to comply with a permit limit.
• Monitoring. Because adaptive management focuses on water quality improvements, in-stream
monitoring is required under adaptive management; this is not required undertrading.
• Timing. Practices used to generate reductions in a trading strategy must be established before
the phosphorus limit takes affect; adaptive management is a watershed project that can be
implemented throughout the permit term.
• Quantifying reductions needed. Trading requires trade ratios be used to quantify reductions
applied to offset a permit limit; the reductions needed for adaptive management are based on
the receiving water, not the effluent, and trade ratios are not necessary in this calculation.
• Eligibility. Adaptive management and trading have different eligibility.
Many point sources are developing and/or implementing trading or adaptive management projects to
seek phosphorus compliance in lieu of installing treatment technologies (see Figure 1-16). Information
about these and other projects is available. It is anticipated that adaptive management and trading
projects will continue to be developed over the next 5-10 years as point sources make compliance
decisions.
iiiv C(6' Chaquamagci
, NaicrJ
,< Fcretl
Map Key
^ Water Quality Trading site
Adaptive Management site
sapolis r\
a 0 V
St Paul
Rochester
0
>ert Lea Austin
Mason City
Eau ClairW^
o 1
9
Q,
O^een Bay
Sheboygan
OfeX 9
v 9k
Dubuque'
Figure 1-16. Adaptive management/WQT participants as of October 2018.
Despite the widespread need and relatively low costs associated with installation of nonpoint BMPs
compared to other compliance options, some common hurdles have been identified for point sources
during project development. In some instances, industrial or municipal wastewater treatment
operations are not readily equipped to conduct watershed work to implement nonpoint source
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phosphorus reductions. The degree of uncertainty associated with relying on BMPs for compliance
purposes is possibly higher than that associated with a facility upgrade. Likewise, spending pollution
control dollars outside of the facility might be controversial in some situations.
To address some of these challenges, a variety of partnerships have formed among the conservation
community. Local environmental organizations such as county land and water conservation
departments, watershed and agricultural groups, and other NGOs have begun partnering with point
sources to implement compliance-driven projects.
In some cases, point sources might seek an individual phosphorus variance based on substantial and
widespread social and economic impacts. Facilities with an approved variance might be allowed to
discharge higher concentrations of pollutant for a period of time, but also commit to making strides
towards reducing effluent phosphorus and achieving eventual compliance with the final limit.
In anticipation of the expected increase in phosphorus variances associated with the 2010 rule change
and the opportunities for watershed-based offsets, a multi-discharger variance (MDV) for phosphorus
was established in 2017 to help streamline and improve the variance process. The MDV allows a
discharger 5-20 years to comply with restrictive phosphorus limits, while making meaningful
contributions to local water quality. During the variance term, point sources are required to optimize
their treatment processes for phosphorus, make stepwise reductions in effluent phosphorus
concentrations, and implement a watershed project through an MDV watershed plan.
Point sources can select one of three types of watershed projects eligible for the MDV: payments to
county land and water conservation departments, an implementation agreement with WDNR for
phosphorus reduction projects, or implementation with a third party for phosphorus reduction projects.
As of late 2018, 54 point sources had been approved for coverage under the MDV (see Figure 1-17). The
vast majority of all MDV watershed plans use the county payment option. Because of this, an estimated
$900,000 was available to county land and water conservation departments in 2019.
Future years are expected to see similar funding levels, increased due to additional dischargers seeking
coverage under the MDV, but reduced payments from those already enrolled due to phosphorus
optimization efforts. Many facilities enrolled in the MDV are also working towards compliance via
trading or adaptive management over a longer time frame. More information about the multi-
discharger phosphorus variance is available.
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Figure 1-17. Wisconsin's phosphorus multi-discharger variance facilities (2018 list) and major basins.
Wisconsin River Basin TMDL: Edge of Field Agricultural Targets
WDNR has completed development of a TMDL for the Wisconsin River basin that covers 9,156 square
miles (14% of the state). The TMDL addresses 109 river segments and eight lakes that are impaired for
phosphorus. Several innovative modeling approaches were developed to assist in the TMDL
development, including a unique approach that will assist in implementing the agricultural load
allocation (LA) as well as potential WQT and adaptive management.
Agricultural LAs have always been challenging to effectively communicate because a lumped LA does not
effectively allow translation of reduction requirements into needed implementation practices and
actions. To address this issue, the WDNR has developed a framework for translating agricultural LAs,
which are developed using the Soil and Water Assessment Tool (SWAT) watershed model, into edge-of-
field total phosphorus targets (in Ibs/acre/yr) that can be implemented by the Soil Nutrient Application
Planner (SnapPlus) field-scale model.
Point sources can enter into trading agreements and receive credit for reducing phosphorus loss on
agricultural fields. Crediting will depend on whether the agricultural field is currently exceeding the
credit threshold of phosphorus. The total phosphorus target listed in the Wisconsin River TMDL
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document is the credit threshold for the corresponding subbasin. If the agricultural field is currently
exceeding the credit threshold, adoption of additional conservation practices can generate "interim
credits" for a maximum of five years for reductions that occur above the credit threshold; and if the
practices reduce the agricultural field to below the credit threshold, "long-term credits" are generated.
More details on edge-of-field targets can be found in Appendix N of the TMDL.
Tracking Agricultural Nonpoint Source BMPs
WDNR and the Wisconsin Department of Agriculture, Trade, and Consumer Protection (DATCP) are
currently developing a management system to facilitate the exchange of data between external entities
and the departments. Nonpoint source pollution reduction implementation programs require external
entities—such as counties, permittees, consultants, and others—to submit data regarding their use of
State of Wisconsin and other funds to reduce nonpoint source pollution and meet state soil and water
standards. Several programs necessitate and use this type of data. Such programs include the following:
MDV for phosphorus options, TMDL implementation, Urban Nonpoint Sources grants, Targeted Runoff
Management grants, Soil & Water Resources Management grants, adaptive management options, WQ.T
options, NR 151 compliance tracking implementations, and nutrient reduction strategies. The
development of a system that efficiently facilitates data submission and analysis will allow WDNR and
DATCP to provide better transparency to the public as to how funds are being used. Through this
program, WDNR and DATCP will be able to better track and show progress towards reaching nutrient
reduction goals related to TMDLs; statewide Nutrient Reduction Strategy; and other WDNR, DATCP, and
EPA reporting requirements.
The system is currently under development, and substantial progress has been made since the project's
inception. The MDV tracking system is now live and available for point sources to use. For the first year
of MDV implementation, users will be encouraged to use the program but will still have the option to
submit the existing paper forms. The MDV program fully replaced the existing forms in 2020. DATCP and
WDNR have several program modules currently under development that will capture implementation
information from their grant programs.
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Part 2. The Response of the Hypoxic Zone and Water Quality
Throughout the MARB
2.1 Impacts of Excess MARB Nutrients and Gulf Hypoxia
The largest hypoxic zone in the United States forms in the northern Gulf every summer and significantly
disrupts the aquatic ecosystems there by lowering the DO levels beyond what most species need to
survive. As described in the 7 aort to Congress, the hypoxic zone is fueled primarily by excess
nitrogen and phosphorus loads delivered from the MARB. These loads trigger an overgrowth of algae
that rapidly consumes oxygen as it decomposes. A lack of mixing between the surface and subsurface
water causes oxygen to be removed faster than it is replaced. These phenomena result in the annual
hypoxic zone.
The nitrogen and phosphorus loads are from a variety of both anthropogenic and natural sources in the
MARB upstream of the Gulf. Sources of nitrogen and phosphorus include agriculture (both row crop
agriculture and animal feeding operations), urban runoff, and point sources such as WWTPs.
Atmospheric deposition is an additional source of nitrogen. Stream channel erosion and natural soil
deposits are additional sources of phosphorus. Other factors and actions can add to and enhance the
delivery of excess nutrients to the Gulf such as land-use changes and development in the drainage basin;
channelization, hydromodification, and impoundment of the Mississippi River, the Mississippi Delta, and
other rivers and streams in the MARB; loss of coastal wetlands; changes in the hydrologic regime of the
Mississippi and Atchafalaya rivers; and the timing of fresh water inputs that are critical to stratification
(USEPA 2008).
While current anthropogenic sources of excess nutrients can generally be controlled through a variety of
practices and are largely able to be measured, naturally derived and legacy anthropogenic sources of
nutrients can be more challenging to manage and measure. Historic deposits of soil containing nitrogen
and phosphorus that have built up in agricultural landscapes and settled in streambeds over decades
and centuries have not been fully considered as potential sources of current nutrient loading. The timing
and role of nitrate movement from groundwaters into surface water is also not fully understood. Due in
part to the difficulty in measuring and assessing the nutrient loading from these sources, their overall
contributions to hypoxic conditions in the Gulf have been difficult to quantify. More recently, due to
advancements in measuring capabilities and modeling efforts, observations have revealed that these
legacy nutrients have a large potential to be a source of nutrient loading currently and into the future.
Models such as the processed-based ELEMeNT (Exploration of Long-tErM Nutrient Trajectories) model
(Van Meter et al. 2018) are able to account for the effects of nitrogen legacies on long-term nutrient
loading, something that previous models have been unable to adequately capture. Year-round data
collection has also increased understanding of the effects of legacy nutrients on nutrient loading, as
previously many studies have limited their data collection to just the growing season. Year-round data
collection is needed to fully understand water and nutrient balances in waterbodies, as lag times for
nutrient effects and transport can range from annual to decadal time scales (Sharpley et al. 2019). These
legacy sources of nutrient loading present new and unique challenges to meeting the HTF's 2035 goal
and 2025 interim target; better understanding of these sources is a significant research need.
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2.2 The Response of the Hypoxic Zone to Excess Nutrients from the
MARB
Since the 2017 Report to Congress, a better understanding of the extent and nature of the hypoxic zone
and its potential economic impacts (Part 3) as well as tools for assessing progress in reducing the
hypoxic zone size have been gained. In support of hypoxic zone management, NOAA has invested more
than $47 million in enhanced research, forecasting, and monitoring capabilities since 1990. Activities
involving many NOAA programs include the Nutrient Enhanced Coastal Ocean Productivity (NECOP)
program (1990-1999), the HABHRCA-mandated Northern Gulf of Mexico Ecosystems and Hypoxia
Assessment (NGOMEX) Program (2000-present), the Gulf of Mexico Hypoxia Watch collaborative
project (2001-present), the Coastal and Ocean Modeling Testbed (COMT) program (2010-2017), and
the Ocean Technology Transition (OTT) program (2020-present). These capabilities improved the
understanding of scientific processes involved in hypoxia formation and ultimately led to improved
predictive modeling tools. These investments enable the HTF and partners to make informed, proactive,
and science-based decisions regarding mitigating the impact of hypoxia on the Gulf ecosystem and for
assessing progress toward reaching the Action Plan goals.
New science includes improved hypoxic zone characterization, improved understanding and modeling of
the nitrogen and phosphorus reductions necessary to observe a statistically significant reduction in the
zone's size (Scavia et al. 2017; Fennel and Laurent 2018; Kim et al. 2020; Tian et al. 2020), identification
of economic impacts of hypoxia on fisheries (Smith et al. 2017; Purcell et al. 2017), and improved
modeling methods used to predict the hypoxic zone (Matli et al. 2020).
2.2.1 Scientific Developments in the Metrics Used for Assessing Gulf Hypoxia
The annual areal size of the hypoxic zone informs accounting for the HTF's goal through the five-year
average size. New science continues to support that the size metric is an appropriate metric for
assessing progress towards the 2035 goal (Matli et al. 2018).
Additional advancements in recent science can also help as the HTF considers metrics in addition to the
five-year average hypoxic zone size. Multiple models now show great potential as tools for
understanding the evolution of the hypoxic zone through space and time and can offer broader insight
to the HTF. For example, some other dimensions of the hypoxic zone (e.g., severity, vertical extent) that
reflect its impacts and connection to nutrient loading can now be modeled (Laurent and Fennel 2019;
Scavia et al. 2017). The results of this modeling can provide critical information for understanding the
large fluctuations in hypoxic zone sizes during 2017-2020 and in providing a model-simulated hypoxic
area when there was no data in 2016.
Future climate conditions are also an important consideration when understanding what actions are
needed to reach the HTF's 2035 goal and 2025 interim target and assessing related progress. The effects
of climate change in the northern Gulf of Mexico are expected to exacerbate hypoxia and its impacts to
aquatic life due to increased density stratification, reduced oxygen solubility, and enhanced bottom
water acidification. Although these effects may vary interannually, overall patterns of rising sea surface
temperature, increasing freshwater and nutrient inputs due to changes in precipitation patterns, and
changes in the atmospheric carbon dioxide concentrations are likely to result in more severe and
prolonged periods of hypoxia and acidification (Lehrter et al. 2017; Laurent et al. 2018; Del Giudice et al.
2019). Therefore, the potential influence of climate on the hypoxic zone is a major reason continued
Part 2. The Response of the Hypoxic Zone and Water Quality Throughout the MARB
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monitoring and model calibration is required over time, as these tools are critical for confirming
appropriate nutrient reduction strategies.
The areal extent of the hypoxic zone is measured each summer during the annual hypoxic zone cruise.
typically occurring during the last week of July. The HTF uses these measurements to track progress
towards the 2035 goal. Starting in 1985 and continuing to present, monitoring has been supported by
NOAA and,, at times, EPA. The current five-year average (2015-2020) is approximately 14,000 square
kilometers, which includes data from five years (2015, 2017, 2018, 2019, 2020) as there is no data for
2016 (see Figure 2-1). A five-year average is used, as opposed to an annual average to account for
variability in hypoxic zone size from year to year.
25,000
20,000
CO
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kilometers, resulting in one of the smallest hypoxic zones measured, despite May nutrient loads that
were high compared to previous years (Figure 2-3). Hurricane Hanna passed through the central and
western Gulf days prior to the research cruise and mixed the water column, disrupting the hypoxic zone.
Due to the proximity of the storm to the survey cruise, the hypoxic area was only able to partially reform
before the end of the monitoring cruise, resulting in a patchy distribution across the Gulf. Dynamic
models including the NOAA-supported Regional Ocean Modeling System (ROMS) and the Finite Volume
Community Ocean Model (FVCOM) provided additional information to better understand and confirm
the observed hypoxic zone conditions in 2017, 2018, 2019, and 2020, including the effect wind events
had prior to the cruises and the role these events played in the smaller than anticipated measured dead
zone sizes in 2018 and 2019 given the springtime nutrient loading.
Figure 2-2. The hypoxic zone model
predictions for the ROMS (a) and
FVCOM (b) models at the time of the
2018 cruise (c) show that overall
there is good spatial agreement in
their estimate of the hypoxic zone
extent. The black line on panels (a)
and (b) indicate the regions of
hypoxia determined from the cruise
overlaid onto the model predictions.
Model developed under support
from NOAA's NGOMEX Program and
the Coastal and Ocean Modeling
Testbed (COMT) and courtesy of
Katja Fennel (Dalhousie University)
and Dubravko Justic (LSU).
The NOAA-supported annual hypoxic zone cruise remains one of the longest standing monitoring
activities in the Gulf (see Figure 2-2). A new, formal standard operating procedure aims to ensure the
continued, long-term sustainability of the cruise, independent of the ship platform, and expand
collaborative support for monitoring activities.
In addition to the annual cruise survey, the Gulf of Mexico Hypoxia Watch collaborative project (2001-
present) conducts separate annual cruises to provide scientists with difficult-to-obtain environmental
and fishery-independent data. This information allows scientists to understand the effects of the
physical environment on fish and other marine organisms. As part of these efforts, Hypoxia Watch
disseminates near real-time data and maps of the hypoxic zone online from data collected during the
annual SEAMAP summer ground fish surveys. These maps have been instrumental in monitoring
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changes in hypoxia throughout the Gulf outside of the cruise window and for providing much-needed
data for hypoxia model calibration and validation.
NOAA, in partnership with the Northern Gulf Institute (NGI), continues to support efforts to advance
research and management of hypoxia in the Gulf of Mexico as a member of the HTF and, more broadly,
to implement the mandates of the Harmful Algal Bloom and Hypoxia Research and Control Act
(HABHRCA). Funding is provided by the National Centers for Coastal Ocean Science and executed
through the NGI, one of NOAA's Cooperative Institutes. NOAA and NGI collaborate along three main
focal areas: (1) technical assistance; (2) observations and monitoring, and; (3) coordination with the goal
to advance the science underpinning management of the large annual hypoxic zone in the northern Gulf
of Mexico. Additional information can be found on the hypoxia national office website.
The 2017 Report to Congress noted that a NOAA-funded 2016 glider study used gliders to complement
ongoing ship surveys and moored observation systems. The recent results of this study show that gliders
are not ideally suited for hypoxia monitoring and mapping of the hypoxic zone due to challenges in
navigating in the shallow, highly stratified, strong, and variable coastal current conditions found in the
Gulf. This project resulted in a finding that, moving forward, a hybrid approach should be adopted for
monitoring the hypoxic zone, one that uses a combination of buoyancy gliders and autonomous
vehicles.
2.2.2 Advancements in Modeling and Monitoring the Hypoxic Zone
Research shows that both physical variables that affect water stratification and the decomposition of
plankton and other organisms, whose biomass is increased by nutrient loading, contribute to the
hypoxic zone size (Matli et al. 2018; Feng et al. 2012). These dynamics result in a changing hypoxic zone
that can dissipate and reform over short time periods (hours to days) (Rabalais et al. 2007).
NOAA's NGOMEX Program has supported development of a suite of hypoxia forecast models over the
past decade; this ensemble of models has been transitioned to NOAA from the developers that include
teams of researchers at the University of Michigan, Louisiana State University, William and Mary's
Virginia Institute of Marine Science, North Carolina State University, and Dalhousie University. After
several years of testing, NOAA, in conjunction with academic partners, issued its first hypoxic zone
forecast in 2018 (NOAA 2018a), a second in 2019 (NOAA 2019a), and a third in 2020 (NOAA 2020). With
the transition of these models to NOAA, this forecasting capability will now be available for future HTF
assessments of nutrient management reduction scenarios necessary to achieve the nutrient reduction
goals of the HTF.
The inability to perform phosphorus modeling by all but one of the ensemble of models is an important
and significant gap in the current suite of NOAA-supported forecast models that provide results to the
HTF. Studies have shown that the inclusion of this important nutrient is warranted (Diaz and Rosenberg
2008; Fennel and Laurent 2018), in line with the 2007 Science Advisory Board recommendation to the
HTF. Modeling results suggest that a 63% reduction of nitrogen alone would be required to reach the
HTF's 2035 goal (Scavia et al. 2017), while a dual strategy that reduces both nitrogen and phosphorus by
48% would be sufficient (Fennel and Laurent 2018), confirming that the 2035 goal is appropriate.
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In 2019 and 2020, an experimental coupled FVCOM and Water Analysis Simulation Program (WASP)
model was run in forecasting mode a week ahead of the annual monitoring cruise to inform scientists
conducting the measurement of the potential hypoxic zone size based on recent weather conditions.
The coupled model incorporates surface wind forcing, tidal forcing, offshore remote forcing, heat fluxes,
oxygen exchanges at the air-sea interface, solar radiation, and freshwater and nutrient (nitrogen and
phosphorus) fluxes from the Mississippi and Atchafalaya Rivers (Justic and Wang 2014). These short-
term forecasts have proven useful for efficiently planning and mapping the survey cruise.
In 2020, NOAA's OUT Program funded a project to develop a cost-effective technology to gather water-
quality data throughout the water column of the Gulf hypoxic zone. This project will use autonomous
surface vehicles, which can measure oxygen and other water quality parameters in depths from
5 meters to over 50 meters and provide the necessary near-bottom observations. Field trials are set to
begin in summer 2022. These new capabilities, once operationalized, will augment the annual
monitoring cruise and the generation of the metric used by the Hypoxia Task Force. Benefits of this
effort will go beyond the one-time annual measurement, as these technologies can be mobilized quickly
and used to monitor wherever hypoxic conditions persist, especially in shallow waters.
EPA has developed two complex biogeochemical simulation models, the Coastal Generalized Ecosystem
Model (CGEM) and the Gulf of Mexico Dissolved Oxygen Model (GoMDOM), to simulate hypoxia in the
northern Gulf of Mexico. These modeling tools have most recently been applied to compare the range
and uncertainty of expected hypoxia response to reduced nutrient load scenarios (Jarvis et al. 2021;
Feist et al. 2016). Model simulations have also been used to improve understanding of the drivers of
hypoxia in space and time, thus informing future modeling of hypoxia under a range of physical and
biological conditions.
2.3 New Science and Information on Water Quality throughout the
MARB
The HTF looks to a combination of water quality monitoring and modeling in the MARB rivers to
understand the link between riverine nutrient loading and the hypoxic zone size; therefore, quantifying
the nutrient loads from the MARB to the Gulf is a key HTF metric for tracking progress in meeting the
2035 goal and 2025 interim target.
2.3.1 Advancements in Monitoring Water Quality and Nutrient Loads in the MARB
To track progress towards the HTF's 2035 goal and 2025 interim target, nutrient load reductions in the
MARB rivers are measured against the average total nitrogen and total phosphorus loads delivered to
the Gulf during the baseline period from 1980 to 1996. However, the amount of nutrient loading into
the Gulf, and thus the hypoxic zone, is heavily influenced by the amount of water flowing from the
MARB (i.e., higher streamflows carry more nutrients, contributing to a larger hypoxic zone). Thus,
streamflow changes alone can increase or decrease nutrient loading to the Gulf each year, despite any
point and nonpoint source controls, land-use change, population growth, or other changes
simultaneously occurring in the watershed. Therefore, to more clearly track changes in nutrient loading
to the Gulf due to human actions, the short-term variability in nutrient loading due to year-to-year
changes in streamflow must be accounted for during analysis of long-term change.
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The HTF has adopted two metrics for assessing the long-term changes in nutrient loading that minimize
the variability due to year-to-year changes in streamflow. The first is the HTF's long-standing use of a
five-year moving average load, which is computed in any given year as the average of the load in the
current year and the preceding four years. Often, a five-year period will contain a mix of high, moderate,
and low streamflow years, and the resulting average nutrient load over the five-year period will reflect a
balance of high and low streamflows. However, a five-year period might contain more low or high
streamflow years such as during a multi-year drought or other prolonged climatic condition. While
multiple years of low streamflow will likely result in multiple years of low nutrient loading—and thus
multiple years of a smaller hypoxic zone—nutrient loading and the size of the hypoxic zone will
eventually increase again as streamflows naturally increase. Thus, a five-year moving average during a
period with multiple years of higher or lower than average streamflows will reflect these prolonged
natural climatic conditions more than sustained human progress in reducing nutrient loading to the Gulf.
For these reasons, a second, more robust metric that is less affected by these climatic situations was
adopted in January 2018. This second metric is based on a method that "normalizes" loads to average
streamflow conditions, using the USGS Weighted Regressions on Time, Discharge and Season (WRTDS)
model (Lee et al. 2017; Hirsch et al. 2015, 2010). While the flow-normalized WRTDS loads can more
robustly compensate for changes in streamflow, both metrics are used to assess progress because the
five-year moving average metric is aligned with the five-year moving average method the HTF has used
to evaluate its 2035 goal for reducing the size of the hypoxic zone since the early 2000s.
While the WRTDS method, like other load-estimation approaches, has strengths, it also has limitations.
With WRTDS, estimates of flow-normalized load in previous years might vary as new data are
incorporated; therefore, it can take several years of new data to stabilize the estimates in previous
years. For this reason, estimates from the model are considered provisional until 10 years of new data
have been added. This feature illustrates the importance of the HTF using multiple metrics to track
progress in any given year.
The five-year moving average and the WRTDS flow-normalized loads from the Mississippi and
Atchafalaya rivers during the period from 1980 to 2019 are shown in Figure 2-3 and Figure 2-4 (Lee et al.
2019). Total nitrogen loads have generally decreased since 1980 as indicated by flow-normalized total
nitrogen loads, which were near the 20% interim reduction target in 2019 (see Figure 2-3). Overall, the
change in flow-normalized total nitrogen loads between the baseline (1980-1996) and 2019 was
estimated to be -16% (-17% of that was likely due to changes in upstream nitrogen sources and +1%
from a long-term change in streamflow). In contrast, total phosphorus loads have increased somewhat
since the late 1990s, and both metrics were still above the 20% interim reduction target in 2019 (see
Figure 2-4). Overall, the change in flow-normalized total phosphorus loads between the baseline (1980-
1996) and 2019 was estimated to be +7% (+6% of that was likely due to changes in upstream
phosphorus sources and +l%from a long-term change in streamflow).
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Annual loads
- Flow-normalized loads
Provisional Flow-Normalized Loads
90% confidence interval
5-year moving average
Annual Total Nitrogen Loads to the Gulf
Figure 2-3. Total nitrogen loads to the Gulf from the Mississippi and Atchafalaya rivers between 1980
and 2019. Results from the two metrics used by the HTF to evaluate progress towards nutrient
reduction targets—the five-year moving average loads and the flow-normalized loads—are shown.
Part 2. The Response of the Hypoxic Zone and Water Quality Throughout the MARB
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Figure 2-4. Total phosphorus loads to the Gulf from the Mississippi and Atchafalaya rivers between
1980 and 2019. Results from the two metrics used by the HTF to evaluate progress towards nutrient
reduction targets—the five-year moving average loads and the flow-normalized loads—are shown.
In addition to these two metrics for tracking nutrient loading trends near the mouth of the Mississippi
and Atchafalaya rivers, many of the HTF states have state-specific approaches for tracking water-quality
progress (see section 1.6). The HTF is now considering whether to adopt one or more consistent water-
quality metrics of progress within the basin, at a sub-basin scale. In May 2019, the HTF chartered a
Trends Workgroup to compile current state water-quality metrics and develop options for one or more
common approaches for tracking sub-basin water-quality trends. In January 2020, the HTF approved a
plan for the Trends Workgroup to continue to engage with the National Great Rivers Research and
Education Center (NGRREC) in a partnership to measure and display water quality trends for the public.
NGRREC and the Trends Workgroup will continue to collaborate on this effort with guidance from the
Coordinating Committee and HTF throughout the process.
2.3.2 Advancements in Modeling Water Quality throughout the MARB
The 2017 Report to Congress provided a detailed overview of MARB-scale modeling assessments using a
mechanistic model, SWAT, and a hybrid regression-based model, SPARROW, led respectively by USDA
and USGS. While SWAT model results at the MARB-scale have not been updated since the 2017 Report
to Congress, work has continued on refining the input data sets, and USDA anticipates publishing
updated results in the next year. USGS has updated the SPARROW results since the 2017 Report to
Congress, and new results are described below. The HTF uses the data inputs to these models to assist in
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tracking point nonpoint source metrics along with the model outputs to better understand sources of
and decadal trends in nutrient loads to the Gulf.
Conservation Effects Assessment Project Modeling using SWAT
USDA quantifies the effectiveness of conservation practices implemented through NRCS and other
programs and uses models to predict impacts of those practices through CEAP. This assessment project
provides valuable information to policymakers and conservation planners so they can more effectively
allocate conservation dollars and assistance.
Section 3.1 of the 2017 Report to Congress discusses in-depth the USDA CEAP cropland assessment
modeled water quality impacts of conservation work throughout the MARB. These assessments were
completed for the five sub-basins of the MARB using 2003-2006 conservation data.
To develop the conservation data used in the CEAP assessments, USDA conducts a national survey of
farmers. The first national survey of farmers was completed in 2006 and provided the data layer used in
the model in the MARB assessments. A second national survey was recently completed in 2016, and
USDA expects to publish the second CEAP results for the MARB in early 2022. These two national
surveys will provide the HTF with a method to track progress represented by a decade of conservation
adoption and highlight areas in which additional conservation will make the largest impact on reducing
sediment and excess nutrients to the Gulf.
In addition to the CEAP cropland assessments, section 3.1 of the 2017 Report to Congress also included
discussion of CEAP watershed studies that provide insight into the tools necessary to improve water
quality at the watershed scale. Current CEAP watershed studies are underway as a complement to the
broader scale CEAP cropland assessments and are examining lag time and conservation effects at
multiple watershed scales. A new assessment of legacy phosphorus sources, processes and
management options was funded in 2021.
Nutrient Modeling using SPARROW
USGS estimates total nitrogen and total phosphorus transport throughout the MARB and into the Gulf
using the SPARROW model. USGS recently updated the total nitrogen and total phosphorus SPARROW
models to a base year of 2012 (from the initial 2002 base-year model), which means they were
developed based on source inputs and management practices similar to those existing during or near
2012 and hydrological conditions from the 2000 to 2014 period. Several updates and improvements
were made to the model data inputs and statistical approaches, including the use of a higher resolution
stream network (which resulted in a mean catchment size of 2.7 square kilometers compared to 480
square kilometers in the 2002 models); more detailed and updated wastewater treatment plant
contribution estimates; inputs from background phosphorus sources that were not included in the 2002
model; and more accurate loads for calibration (Robertson and Saad 2019). Results from the new
models can be viewed on-line.
Results from 2012 SPARROW models describe which areas of the MARB deliver the greatest amount of
nutrients to the Gulf (Robertson and Saad 2021). For both total nitrogen and total phosphorus, the areas
estimated to contribute the greatest loads downstream to the Gulf are in the north-central portions of
the MARB (Figure 2-5 and Figure 2-6).
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Figure 2-6. Distribution of incremental total phosphorus yields delivered to the Gulf from the
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Results from 2012 SPARROW models also describe the breakdown of major nutrient sources to the Gulf
as a whole or from any specified region within the MARB (Robertson and Saad 2021). For total nitrogen,
the major sources were estimated to be atmospheric deposition (33%), fertilizer applied to cropland
(25%), nitrogen fixing crops (18%), manure (16%), municipal wastewater treatment discharge (5%), and
urban land (2%) (see Figure 2-7). For total phosphorus, the major sources were estimated to be farm
fertilizer (38%), natural sources (23%), manure (18%), municipal wastewater treatment discharge (13%),
and urban land (8%) (see Figure 2-8). Therefore, agricultural contributions are the largest general source
of nitrogen and phosphorus to the Gulf. Model results also indicated that agricultural BMPs reduce the
delivery of nutrients to streams and rivers in the MARB (Robertson and Saad 2019; Robertson and Saad
2021).
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Part 2. The Response of the Hypoxic Zone and Water Quality Throughout the MARB
72
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Part 2. The Response of the Hypoxic Zone and Water Quality Throughout the MARB
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Part 3. The Economic and Social Effects of the Hypoxic Zone
Hypoxia in the Gulf is a serious environmental concern with much to be explored on the economic,
social, and ecological impacts. However, recent and ongoing research investments have expanded the
understanding of the effects of hypoxia on fish and fisheries, as well as on economic impacts.
Advancements in this field are providing support for management decisions with new tools and
forecasting capabilities, generating greater interest in hypoxia, and furthering the body of knowledge
surrounding hypoxia.
By reducing the extent and quality of habitat for a variety of organisms, hypoxia affects valuable
fisheries and disrupts sensitive ecosystems (Diaz and Rosenberg 2008; Breitburg et al. 2009). Hypoxia
has a number of lethal and sublethal effects on ecosystems, such as increased mortality, reduced
growth, shifts in fish diet, changes in migration patterns, barriers to spawning pathways, changes to
species reproductive success, and sex ratios (Glaspie et al. 2019; LaBone et al. 2019; Rahman and
Thomas 2018, 2017; Rose et al. 2017a, 2017b, Langseth et al. 2014; Thomas et al. 2015; Rahman and
Thomas 2012; Craig 2012).
The impacts observed at the ecosystem level, in both the MARB and the Gulf, are complex and
interwoven along with larger scale socioeconomic effects. The northern portion of the Gulf ecosystem
contains almost half of the nation's coastal wetlands and supports commercial and recreational fisheries
generating more than $2.8 billion annually. This environmentally significant and economically important
geographic area has undergone profound changes due to nitrogen and phosphorus loads from the
MARB. Previous NOAA-supported studies have demonstrated the economic impacts of hypoxia on
seafood process and the shrimp fishing industry (Purcell et al. 2017; Smith et al. 2017). Analysis of
monthly trends in the price of Gulf brown shrimp from 1990 to 2010 showed that hypoxia resulted in
short-run price increases for large shrimp compared to the price of small ones (Smith et al. 2017). When
the hypoxic zone is present, fishermen catch more smaller shrimp and fewer large ones, making small
shrimp cheaper and larger ones more expensive. While the total quantity of shrimp caught could remain
the same during hypoxic periods, a reduction in the highly valued large shrimp would lead to a net
economic loss for fishermen.
Study results demonstrate that hypoxia alters the spatial dynamics of the Gulf shrimp fishery, and this
has potential negative consequences for shrimp harvesting and the economic condition of the fishery
(Purcell et al. 2017). Other fisheries affected by hypoxia likely undergo similar spatial fluctuations, and
further studies are needed to understand how lethal and sub-lethal hypoxia effects, along with human
decisions, can have an economic impact on affected fisheries.
3.1 Advancements in Modeling the Economic and Ecological Impacts of
Hypoxia
Three ongoing NOAA-supported projects (2016-2022) are evaluating the impacts of hypoxia on fish and
fisheries in the Gulf as well as considering what can be expected from the Gulf fisheries when the 2035
goal is met. The overall objective of these projects is to quantify, through multidisciplinary ecosystem
models or other methods, the ecological and socioeconomic impacts of hypoxia, including an evaluation
of the effects of alternative management strategies on ecosystem function and living resource
populations. Projects include the following:
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• Synthesis of long-term data sets and modeling of data to support fisheries and hypoxia
management in the northern Gulf. This project is focused on exploring the consequences of
hypoxia for regional fisheries and for fish community ecological indicators. Specific outcomes
from this project will include:
1) Estimates of hypoxic area and volume over the entire hypoxic season for the period of record
(1985-present) based on the dissolved oxygen sampling data available from the monitoring
cruise programs.
2) A probabilistic biophysical hypoxia model capable of simulating and forecasting dissolved
oxygen on multiple sections of the continental shelf over the entire hypoxic season and entire
period of record. Results will have a strong empirical basis and quantified uncertainty.
3) A new set of hypoxia metrics (area, volume, and duration, using multiple hypoxic thresholds:
1 mg/L, 2 mg/L, 3 mg/L) for multiple shelf sections, based on the results of the geostatistical and
biophysical modeling.
4) Evaluation of hypoxia effects on catch and effort from the region's two major commercial
fisheries (Gulf menhaden, penaeid shrimp) that incorporates the new hypoxia estimates.
5) Evaluation of hypoxia effects within the context of other environmental and anthropogenic
stressors on ecological indicators of upper-trophic-level fish community currently in use to
monitor the status of the Gulf ecosystem. (Project page).
• Linking models to connect nutrient pollution and impacts of diversions on hypoxia and the
subsequent impacts on living resources. Modeling results will provide managers with new
quantitative information about how nutrient reductions will affect fish populations, and how the
combination of river diversions and hypoxia will affect fish and shrimp populations. A second
outcome will be a tool that provides consistent and defensible predictions, from the watershed
to the living resources. In the longer term, results will contribute to management decisions
about watersheds and diversions that reduce the extent and severity of the hypoxic zone, based
least partially on fishery population-level responses. (Project page).
• User-driven tools to predict and assess effects of reduced nutrients and hypoxia on living
resources in the Gulf. These tools will predict how hypoxia could affect species-specific fish
growth rate potential as a metric of Essential Fish Habitat and biomass and catch of ecologically
and economically important living resources. The project will lead to an improved capability to
assess the effects of alternative management strategies on ecosystem function, living resources,
and fisheries revenue. (Project page).
The full project results are expected in the 2021-2022 timeframe and will be valuable to the HTF as it
continues to implement the 2008 Action Plan.
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Part 4. Lessons Learned
4.1 The Critical Role of Partnerships
Since the HTF adopted its 2008 Action Plan, the HTF has engaged a full range of public and private sector
partners. States are implementing their nutrient reduction strategies by working with universities,
agricultural associations, business councils, conservation organizations, municipalities, wastewater
utilities, nonprofits, private companies, and private foundations.
The scope of the HTF's 2035 goal and 2025 interim target requires this wide array of partners. As noted
in Part 1 of this report, reducing the nutrient load delivered to the northern Gulf every year is an
extraordinary challenge, requiring conservation on millions of acres across nearly half the United States.
Recent science confirms that meeting the HTF's 2035 goal for reducing the size of the Gulf hypoxic zone
will require nitrogen and phosphorus reductions of about 48% (Fennel and Laurent 2018). The scope and
scale of this challenge is driving the development of new levels of collaboration among states, federal
partners, and stakeholders to widen the circle of engagement, accelerate innovation, and amplify efforts
to achieve the results needed.
Further expansion of partnerships is necessary to support the many needs of the HTF. Research needs
range from the social sciences (e.g., how to successfully promote the implementation of conservation
practice systems) to the physical sciences (e.g., nutrient transport, transformation, and fate); the HTF
Research Needs Workgroup has identified key research needs to effectively support state implementation
of nutrient reduction strategies. Of these, they have noted seven needs as the most important for states to
better understand and published these needs in a letter to the HTF in August 2020. Implementation
requires partners who can provide planning, engineering, technical assistance, funding, and on-the-
ground services. Partners are needed who can help national soil and water conservation efforts move to
the next level, by fully integrating water quality considerations into activities across urban, suburban,
industrial, and rural landscapes. Examples of these key partnerships and partner organizations include:
• Citizen Science Projects: Several states support volunteer citizen monitoring projects that vastly
increase the amount of screening and other data available to agency personnel. In Kentucky, the
Watershed Watch program, which is sponsored by Kentucky Division of Water (DOW) and its
university and environmental group partners, involves hundreds of trained citizens who monitor
more than 700 sites for a suite of parameters, including nutrients. Results are collected and
posted online by the Kentucky Geological Survey and analyzed by university scientists and other
professionals.
• Farmer-Led Watershed Projects: Across the Midwest, farmer-led watershed projects are
assessing nutrient sources, and implementing conservation practices. The North Central Water
Region Network's Southern Extension and Research Activities Committee number 46 (SERA-46):
members, and other partners in multiple states are supporting these groups with technical
assistance, seminars, and other resources.
• SERA-46: This consortium of university scientists serves as the research and extension arm of
the HTF. SERA-46 is supported by USDA and land grant universities and brings together a
multistate group of researchers and extension specialists to explore and inform future action on
the environmental, social, and economic factors that contribute to reducing nutrient loss from
agricultural lands.
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• Nutrient Trading Partnerships: With USDA support and working with the Iowa DNR and Iowa
Soybean Association, the Iowa League of Cities has built the Iowa Nutrient Reduction Exchange
(NRE) to support water quality and multi-environmental benefit trading. In April 2020, the City
of Dubuque and Iowa DNR, working with the Sand County Foundation, signed a memorandum
of agreement that allows Dubuque to meet certain State of Iowa water quality requirements by
working with farmers to implement farm conservation practices to reduce erosion and farm
nutrient runoff instead of making expensive upgrades to its wastewater treatment plants.
• The Ecosystem Services Market Consortium was launched to bring together corporate and NGO
stakeholders, sustainable agriculture experts, soil scientists, producers, buyers, and sellers to
undertake the critical research and science for a viable, scalable, and cost-effective ecosystem
services marketplace.
• Walton Family Foundation: This Arkansas-based foundation, which supports and maintains a
broad portfolio of programs focused on healthy fisheries, is working to preserve coastal
economies, improve water quality and availability, and restore wetlands. The foundation is
supporting the HTF states and their partners by funding an ambitious effort to identify and
inventory conservation practices across the Mississippi River Basin, so that nutrient reductions
can be better quantified.
• The Nature Conservancy Floodplain Tool: The Nature Conservancy developed a Floodplain
Prioritization Tool (FP Tool) for planners to optimize conservation and restoration investments;
minimize the impacts of development on water quality, flooding, aquatic life, the economy, and
quality of human life; and identify critical opportunities for floodplain conservation and
restoration in the Mississippi River Basin. The FP tool is being applied by local planners in
partnership with decision-makers, enhancing federal, state and local collaboration.
• Farmers Cooperatives: These types of cooperatives are advancing data driven conservation
decision making on farms. Land O'Lakes. a farmer-owned cooperative of nearly 4,000 producers
and retailers has developed an innovative model that brings together agricultural technology
and on-farm business management to tailor conservation practices to individual farms. The
system includes interactive digital platforms that help farmers advance their stewardship goals
and monitor their return on investment in real time.
4.2 The Importance of Incorporating Scientific Advancements and New
Findings into Nutrient Strategies
The HTF, its partners, and the scientific community have made tremendous strides in characterizing the
hypoxic zone and many of the upstream, land-based factors that contribute to its annual formation.
Research on the scope and scale of efforts for achieving the necessary nutrient reductions has been
impressive, and the findings provide insight into expanding conservation implementation (Sharpley et al.
2019; Fennel and Laurent 2018; CAST 2019).
Because much of the nutrient load in the northern Gulf originates on agricultural land, research into the
application, fate, and transport of fertilizer applied to Midwestern lands is critical. Researchers have
found that "managing agricultural nutrients to achieve water quality goals involves complexities best
organized around source and transport processes," because once nutrients are applied, "management
outcomes are influenced by several factors across many scales, most uncontrollable, which must be
considered when transferring science into policy" (Sharpley et al. 2019). Attempts to intercept, treat, or
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otherwise address nutrients after they are mobilized on the landscape is complex, difficult, and often
costly. More effectively planning and calibrating nutrient applications provides the opportunity to
improve both a producer's return on investment and water quality. For example, the Fertilizer Institute,
The Nature Conservancy, and state partners promote optimized on-farm nutrient management using
the 4Rs (SERA-46 2018). This educational approach highlights the key decision points in crop nutrient
application, from selecting crop-specific blends of nitrogen and phosphorus to ensuring efficient uptake
by plants. It also guards against practices that might lead to excessive fertilizer runoff, like applying
fertilizer on frozen or wet ground before a storm. Nutrient management is challenging to scale up
(Osmond et al. 2012), and this communication strategy is reaching many nutrient application decision
makers. Recent work by a partnership in Iowa builds on the 4Rs of nutrient management to include
additional elements of a conservation treatment system in a 4R Plus Program to further reduce nutrient
losses.
States and the private sector are using science-based decisions for fertilizer application, tillage, and
other crop management activities in planning and assessment methods. For example, the Operational
Tillage Information System (OpTISi uses publicly available remote sensing data to map and monitor
tillage practices, plant residue, and cover crops (CTIC 2019). OpTIS and similar data-driven tools are
being developed to aid farm planning, target conservation efforts, validate ecosystem market credits,
model greenhouse gases, and track soil moisture and overall soil health. Iowa State University and its
partners sponsor an online tool that calculates economic returns for nitrogen applications using variable
nitrogen and corn prices to determine the optimum profitable application rate, given the estimated
increase in production.
The HTF NPS Workgroup developed a list of key conservation practices, by working with SERA-46 and
the Walton Family Foundation. The HTF NPS Workgroup is identifying, inventorying, and analyzing these
practices to derive nutrient loss estimates using a Conservation Tracking Framework (Christianson
2019). The framework can be used across HTF states to ensure centralized, consistent, and accessible
data sources for assessing progress. This framework can also be used to support each state as it
implements its individual nutrient strategies and help ensure agricultural conservation practices
adopted across the MARB are accurately and consistently reported.
4.3 The Value of State Strategies that Include Core Elements Adapted to
Local Circumstances
While many sources contribute to excess nutrients in the MARB, much of the nutrients in MARB
waterways and the Gulf come from nonpoint sources, a majority of which are from agricultural losses
(Robertson and Saad 2021; Robertson and Saad 2019; White et al. 2014). During the 20-plus year history
of the HTF, the federal policy and legal and regulatory framework for managing nonpoint source
pollution has remained largely unchanged, relying on state strategies and programs; federal financial
and technical assistance and investments in science; and some efforts to encourage market-based
approaches, including trading between regulated point sources and unregulated nonpoint sources. This
framework, which encompasses more than two decades of research, multiple conservation
developments and implementation, wastewater treatment improvements, nutrient management
innovation, and partnership building by the HTF and many others, shows that there is no one-size-fits-all
approach to reducing excess nutrients. State-led nutrient reduction strategies—with each state using a
combination of regulatory programs, financial and technical assistance, and community-based and
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innovative approaches that works best for that state and its partners and stakeholders, and supported
by federal partners—continue to be the cornerstone of the HTF's strategic work. Still, while recognizing
the need for flexibility and adaptability, there are common themes that emerge from these state-led
efforts and inform the HTF's future directions. These include:
• Identifying and targeting the highest priority nutrient source areas for conservation treatment is
necessary to make the most progress. Data-driven tools (e.g., remote sensing and analysis,
modeling) that identify priority nutrient source areas, inventory existing conservation practices,
and estimate nutrient load reduction can help target scarce resources.
• Nutrient management can provide a strong return on conservation investments and reduce
costs for producers, providing an economic incentive for progress. Yet, in many areas, achieving
nutrient reduction at the scale needed to meet the HTF's 2035 goal and local water quality
objectives will require the use of additional elements of a comprehensive conservation system
to also control and trap excess nutrients.
• Given the scale of work needed, the HTF should more fully consider opportunities to expand the
use of market and community-based approaches to broaden the circle of partners who invest in
reducing excess nutrients in the MARB.
• Communicating examples of success to producers and their networks of trusted advisors is
critical for progress. Highlighting stories of success and of remaining challenges to the public at
large is also essential to sustaining and expanding the HTF's work.
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Part 5. Recommended Appropriate Actions to Continue to
Implement or, if Necessary, Revise the Strategy Set Forth in
the Gulf Hypoxia Action Plan 2008
5.1 Continue to Implement the 2008 Action Plan
Much has been accomplished since the HTF adopted its 2008 Gulf Hypoxia Action Plan over a decade
ago, and much more work remains to be done. However, state-of-the-art scientific and social knowledge
has advanced significantly. The 2008 Action Plan set in motion scientific, technical, educational, and
public policy activities to more thoroughly assess the problem and advance the adoption of solutions.
The groundwork laid over the intervening years now provides a clear path forward. No significant
changes are needed in the specific actions in the plan. State and federal members and their many
partners and stakeholders should continue monitoring, assessing progress, taking action, and adaptively
managing their work. This will include testing new approaches that can enlist additional partners and
resources to help the HTF achieve its goals.
Activities set in motion by the 2008 Action Plan—supporting state nutrient loss reduction strategies,
accelerating nutrient loss reduction, advancing the science, tracking progress, and raising awareness-
remain relevant. Leveraging existing conservation and water management programs, promoting
efficient and effective nutrient reduction practices, and scaling up successful watershed planning
approaches are foundational to success (Rao and Power 2019). Harnessing the power of "big data" to
assess nutrient impacts, quantify pollutant loads, prioritize management actions, track conservation
practices, and evaluate programs and progress is essential.
Advancements in the scientific understanding of nutrient transport, transformation, and fate over the
past 20 years have reduced some uncertainties regarding the dynamic processes associated with the
challenges and solutions needed to advance implementation, but much work remains to be done
(Sharpley et al. 2019). The HTF must continue to rely upon evidence to advance towards its goals.
Finally, more effective communication is necessary to increase awareness of Gulf hypoxia and build a
broader understanding of the wide array of work being accomplished by the HTF states, the challenges
they face, and the need for greater support and engagement by partners and stakeholders to make
more progress. Example actions the HTF is taking to highlight these issues include a newsletter and
release of a storymap to highlight success stories where states have reduced nutrients.
5.2 Accelerate Actions to Reduce Excess Nutrients
Accelerated implementation of State Nutrient Reduction Strategies supported by federal HTF members
and with active participation by private sector, nongovernmental, and other partners and stakeholders
continues to be the path forward. Examples of recent state actions that the HTF can build on to
accelerate progress include the following:
• Arkansas, Kentucky, Louisiana, and Tennessee are now engaging their citizens, businesses, and
producers in reviewing and revising their nutrient reduction strategies. For example, Tennessee
brought together stakeholders representing wastewater, stormwater, agriculture, industry, and
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nonprofit environmental groups to create a Multidisciplinary Nutrient Strategy Task Force. The
Task Force held a kick-off meeting on February 12, 2019 and will meet quarterly to discuss the
current nutrient strategy framework, learn the science behind the framework, and explore ways
to expand the framework via stakeholder-led discussion and voluntary engagement. Meanwhile
these states continue to work to reduce nutrient losses. Louisiana is planning for massive river
diversion/marsh creation projects that have the potential to sequester enormous levels of
excess phosphorus and nitrogen.
• In Illinois, 28% of major municipal wastewater facilities, with more than 80% of the state's
municipal discharge capacity, have a permit effluent limit of 1.0 mg/L for total phosphorus. All
major municipal facilities are required to meet an annual total phosphorus effluent limit of 0.5
mg/L, with the timeframe for compliance (2025, 2030, or 2035) depending on the treatment
process (sooner for chemical treatment, later for biological treatment). There are some
exceptions such as if the upgrade would cause widespread social and economic hardship. All
major municipal facilities that are upstream of a waterway impaired by nutrient-related
pollution or that cause or contribute to a risk of eutrophication must develop a NARP.
• Indiana is tracking conservation practices and associated nutrient loss reduction tallies by
county and posting its progress online through a series of locational and thematic maps.
• In Iowa, new legislation will provide more than $270 million for water quality efforts over the
next 12 years to agricultural conservation practices and systems, WWTP improvements,
outreach, education, monitoring, and research. The state has already reduced phosphorus loads
by more than 18%.
• Minnesota's riparian buffer policy has achieved an implementation rate of more than 90%
statewide. Between 2005 and 2017, wastewater point source phosphorus discharges were
reduced 72% in areas draining to the Mississippi River.
• Mississippi is engaging with academic and nonprofit partners and taking a data-driven approach
to advancing the understanding of agricultural conservation practice implementation and
informing further investments. MDEQ and partners collect water quality data in watersheds
where nutrient reduction practices have been implemented. This data, collected pre- and post-
implementation and representing varying flow regimes, will be used to determine nutrient load
reductions and evaluate costs and benefits.
• Missouri continues to use a portion of its state sales tax to support investment in watershed
projects, including funding stream exclusion practices for pastured livestock. In FY 2018, the Soil
and Water Conservation Program processed 8,147 contracts for installing agricultural BMPs for a
total of $40 million (100 % of appropriation). That is the largest percentage of the Parks, Soils
and Water Sales Tax used to fund BMPs since the tax was implemented in 1984. The state
requires cost-share program participants to attend a "grazing school" to learn how to reduce
nutrient losses from pasture lands.
• In Ohio, fertilizer application training and certification has reached more than 17,000 enrollees.
• Wisconsin is targeting high-priority watersheds and using point source-nonpoint source adaptive
management and trading programs to lower the costs of reducing excess nutrients.
These are only a small sampling of state programs, policies, and activities underway across the MARB
watershed. Scaling up progress throughout the MARB will require significantly broader engagement.
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In addition to state efforts, USDA has committed to continue the Mississippi River Basin Healthy
Watersheds Initiative and the National Water Quality Initiative, which support implementation of State
Nutrient Reduction Strategies and efforts to address impaired waters, respectively. These initiatives
provide accelerated funding for conservation practices, use of watershed planning/assessment tools and
identification of critical source areas to help target outreach and implementation to areas most in need
of treatment.
Many of the most promising prospects for future success will be realized through innovations underway
among agricultural associations, producer organizations, supply chain consortiums, and other private
sector entities. Farmer-led watershed management projects are of particular note. Farmers can lead the
development of water quality monitoring, BMP targeting, and conservation implementation approaches
via peer-to-peer consultation or through decision-making structures incorporating their input (Benning
et al. 2019). Having peers and community members provide advice on the nature of the challenge,
workable solutions, and how to seek out and use professional and technical information helps to reach
and involve more producers in conservation activity. Leadership and development training is vital to
further expand this important model.
A more robust use of market-based approaches has promise for increasing progress by encouraging
investment in low-cost approaches to reducing excess nutrients and increasing return on investments in
achieving reductions. An emerging concept that borrows from nutrient trading and wetland banking
frameworks is selling ecosystem credits to investors and using the funds to pay for conservation
practices and other environmental improvements. Purchasers of the credits could be corporations
seeking to meet corporate sustainability goals, entities involved in enforcement actions, governmental
units seeking remediation options for infrastructure projects, or other investors. The market for
ecosystem credits from agriculture nationwide could be as high as $13.9 billion, according to some
estimates. Credit sale income could support projects that contract with farmers and ranchers to adjust
crop and livestock production systems in ways that improve water quality, increase carbon
sequestration, and enhance other ecosystem services. A national credit market could promote sale of
the credits, organize the payments to producers, and verify that conservation practices were installed
and maintained (ESMC 2019).
While the HTF acknowledges the challenge of scaling up use of conservation systems on vulnerable
lands, upgrading wastewater treatment, and reducing other sources of excess nutrients across a
landscape as vast as the MARB, these examples provide a sense of the opportunities for further progress
in improving local water quality and reducing Gulf hypoxia.
5.3 Better Communicate Results to the Public
Many HTF states and federal members regularly communicate to their constituencies about work they
do to reduce excess nutrients in waterways, their scientific studies on Gulf hypoxia, and causes of
hypoxia. To amplify and support these efforts, the HTF is implementing a communication strategy to
highlight topics such as successful projects and programs that have the potential for replication in other
states; case studies that result in demonstrable progress or measurable environmental results;
opportunities to support markets to fund watershed improvements and establish nutrient trading
programs; and innovative partnerships created by supply chain and other market-based entities.
Part 5. Recommended Appropriate Actions to Continue to Implement or,
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EPA, on behalf of the HTF, recently began publishing a regular newsletter to highlight state and federal
activities, upcoming events, and resources and to help build awareness of and support for implementing
nutrient reduction strategies. The HTF Communications Workgroup is exploring opportunities to
enhance public awareness of HTF accomplishments and promote and support actions that reduce
nutrient inputs and improve water quality. They are working to develop tools and strategies and looking
for opportunities to communicate with HTF partners and the public about progress, challenges, and
needs for achieving the HTF hypoxic zone reduction goal.
5.4 Conclusion
This third report to Congress, required by the 2014 HABHRCA Amendments, describes the progress
made by the HTF toward attainment of its goals since the 2017 Report to Congress. The members of the
HTF continue to work collaboratively to implement the 2008 Action Plan. All HTF states are
implementing strategies to reduce excess nutrients in the MARB that contribute to the hypoxic zone in
the Gulf. The HTF is committed to making strong progress on implementing these strategies and other
actions outlined in the 2008 Action Plan. Federal agencies are providing coordination support and
technical and financial assistance and engaging in scientific investigations to support state and tribal
efforts to reduce excess nutrients. The HTF continues to forge action-focused partnerships, employing
innovative approaches, and investing in tracking progress. The HTF remains committed to meeting its
2025 interim target and its 2035 goal for reducing Gulf hypoxia.
Part 5. Recommended Appropriate Actions to Continue to Implement or,
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