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HomeMy WebLinkAboutL.I. Sound Study 7/1994EPA 842-S-94-001 adist: J.H, Torrance Downes Summary of the Corrq~reher6ive Conservation and Management Plan 0 5 New i0 15 20 Miles I 1_ .....J 2(t Kik ~ ~ctcrs York Co~lle~ ~ la Throgs.:' NeckL Ri~cr Batter> Nor~alk . Lloyds Neck lo~g lslm~d Long Island ML Sinai Contents lt~c New Introduction 1 Hypoxia 11 -~oxic Substances 23 isla~d Pathogens 33 Floatab le Debris 39 Use and Development 49 Supporting Implementation 55 Appendix 6'4 Life in a Long Island Sound Marsh Osprey Ribbed Mussel Saltm, Smooth Killifish River Herring Blue Crab Snowy Egret artist: Paul J. Fusco CTDEP Estuary of Nationat S ignificance h e Long Island Sound Study Management Conference involves federal, state, interstate, and local agencies, universities, environ- mental groups, industry, and the public. The Long Island Sound Study began in 1985 when Congress appropriated funds for the U.S. Environmental Protection Agency and the states of Connecticut and New York to research, monitor, and assess the water quality of Long Island Sound. With the Clean Water Act Amendments in 1987, Section 320 of the Act officially established a National Estuary Program. At the request of the states of Connecticut and New York, Long Island Sound was officially designated an Estuary of National Significance under this new program, and a Management Conference for the Long Island Sound Study was convened in March of 1988. Purpose o1' llie LonJl Ish~ml Sound' The Management Conference was charged with developing a Comprehensive Conservation and Management Plan for pro- tea:ting and improving the health of ~ng Isled Sound w~le ensuring compatible human uses wi~ ~e Sound ecosystem. ~e plan ch~ac- terizes the priority problems affecting Long Island Sound ~d identifies specific commit- ments and recommendations for actions to improve water qu[lity, protect habitat ~d living resources, educate and involve the pub- lic, improve the long-term understanding of how to m~age ~e Sound, monitor ~, ~d ~ ~agemmt efforts. Wherever possi- ble, · e pl~ cun~ ag~ ~ ~ ~ ~o~ ~ss~g ~ issues. This summau document ~ghlights the major elements of ~e pl~. Connect, cut, bogan in !951 lop: the marsh ~f; f974 The Sound is not only beautiful but supports con~mercial and recreational fishing The Management Conference has identified six problems that merit spe- cial attention: (1) low dissolved oxygen (hypoxia), (2) toxic contamination, (3) pathogen contamination, (4) floatable debris, (5) the impact of these water quality problems, and habitat degradation and loss, on the health of living resources, and (6) land use and development resulting in habitat loss and degradation of water quality. The Management Conference has focused its efforts and resources on the most pressing problem among these, Iow dissolved oxygen, which affects a substantial portion of Long Island Sound in late sum- mer, but has addressed ali priority problems. Comu, ctions to Lo~tg I sliu~d Sound Long Island Sound is a national treasure, to be prized for its beauty, abundant and diverse resources, and recre- ational and commercial opportunities. For many, it is a source of inspiration and renewal. For others, it is the basis of eco- nomic survival. In spite of differing per- spectives, people share a conviction that Long Island Sound (the Sound) is worthy of preservation, restoration, and protec- tion. Perhaps we can never bring the Sound back to the condition it was when the explorer Giovanni Verrazano arrived in the 16th century. However, with a clearly articulated vision for the Sound as a guide, we can make a difference. Distilled from the input of National Audubon Society-sponsored citizen hear- ings in 1990, and clearly stated in its pub- lication, Listen to the Sound: "The vision . . . for the Sound is of waters that are clean, clear, safe to swim in, and charged with life. It is a vision of waters nourished and protected by extensive coastal wetlands, by publicly accessible, litter-free beaches and preserves, and of undeveloped islands. It is a vision of abundant and diverse wildlife, of flourishing commer- cial fisheries, of harbors accessible to the boating public, and of a regional consciousness and a way of life that protects and sustains the ecosystem." The Long Island Sound Study is a reflection of the fact that people care about the Sound. Countless hours have been spent by concerned citizens, environmental managers, government officials, and research scientists; a seemingly endless series of committee meetings have taken place; and millions of dollars have been spent on understanding the Sound's problems -- all in the interest of restoring the Sound. Cl;l?£ult £s' Long l s[~tnd Sound? Long Island Sound is an estuary, a place where salt water from the ocean mixes with fresh water from rivers and the land. Bounded by Connecticut and Westchester County, New York, on the north and by Long Island on the south, it is approximately 110 miles long (east to west) and about 21 miles across at its widest point, with mid-Sound depths between 60 and 120 feet. Like other estuaries, Long Island Sound abounds in fish, shellfish, and waterfowl. It provides feeding, breed- ing, nesting, and nursery areas for diverse animal and plant life. But Long Island Sound is unique in other ways. Unlike other estuaries, Long Island Sound does not have one con- nection with the sea: it has two. Rather than having a major source of fresh water at its head, flowing into a bay that empties into the ocean, Long Island Sound is open at both ends, through The Race to the east and through the East River and New York Harbor to the west. Most of its fresh water comes from a series of south-flowing rivers, including the Connecticut, the Housatonic, and the Thames, whose drainages reach as far north as Canada. The Sound's 16,000 square mile drainage basin also includes portions of New York City and Westchester, Nassau, and Suffolk counties in New York state. For many, the Sound is a source of ~nspJration The Sound combines this multi- ple inflow/outflow system with a high- ly convoluted shoreline and a complex bottom topography. Taken together, they produce unique and complex patterns of tides and currents. The abflih/ of tt~e Sound ro sup,oort commercial and recrealional uses depends on natural habitals and good water q~alily. Learning about protecting the Sound's ecosys/em staffs early These youngsters are get/lng a lesson about sail marshes. Y(ew is the Jound ~lsed'and q,Phat is its ~a[ue? The Sound is unique in the degree to which it provides recreational and commercial value to the region. It lies in the midst of the most densely popu- lated region of the United States. More than 8 million people live in the Long Island Sound watershed and millions more flock yearly to the Sound for recreation. Research commissioned by the Long Island Sound Study estimated that about $5 billion is generated annually in the regional economy from boating, commercial and sport fishing, swimming, and beachgoing. The ability of the Sound to support these uses is dependent on the quality of its waters, living resources, and habitats. The regional economy also benefits from many other valuable uses of the Sound, such as cargo shipping, ferry trans- portation, and power generation. With the uses it serves and the recreational opportunities it provides, Long Island Sound is among the most important estuaries in the nation. While Long Island Sound is a demonstra- ble economic resource, there are other values that are less quantifiable. Natural habitats and good water quality contribute to shoreline resi- dential property values. On another level, the Sound has attributes, aesthetic and otherwise, that can inspire a special bond between people and the water. While it is difficult to assign a price tag to such things, Long Island Sound's intrinsic value as a natural resource is worth protecting and preserving for future genera- tions. The current value and quality of the Sound are partly the result of the investments in water pollution control programs made in the two decades since the passage of the Clean Water Act. These programs have led to measurable improvements in pollution control and water quality, in spite of ever-increasing numbers of peo- ple and activities on the Sound and within its watershed. Obvious sources of pollution are now regulated and controlled through permit programs, tidal wet- lands are protected, and major efforts in the states of Connecticut and New York to build sewage treatment plants and control industrial discharges have helped to restore degraded waters. More recently, with programs focusing on the ecosystem as a whole, the approach has become more comprehensive to include increased efforts in stormwater and nonpoint soume pollution control. These efforts have taken place because of increased awareness and con- cern among citizens and the responsiveness of public officials. Without the substantial investment already made in environmental protection, the value of the Sound would be far less than it is today. Proble~6 in Lo~ Isl~nd Soutul In spite of these efforts, problems remain. The quality of Long Island Sound is still far from what it should or can be. Many of the uses or values of the Sound are still impaired from old abuses. Other uses or values face new threats. o~ Large areas of the Sound are impaired as habitat for fish and shellfish because of low dissolved oxygen levels, a condition called hypoxia. ~' The productivity of many wetlands, intertidal areas, and other habitats has been diminished by development and pollution. Some bay and harbor bottoms are contaminated with toxic substances. ..n Health advisories warn against eating too much Long Island Sound bluefish, striped bass, eels, some types of waterfowl, and lobster and crab hepatopancreas (more commonly known as tomalley) due to elevated levels of toxic chemicals. top: Always considered a desir- able place to live. the area around the Sound experienced major population growih following World War II. Development destroyed or altered many vital habitats, reducing breeding grounds and nurseo/ areas for many native species. bottom; The Sound provides many safe harbors for recreational boaters, ~ Beaches suffer periodic closures and many of the Sound's prime shell- fish beds have been closed for years due to indications of pathogen con- tamination. People can become sick by swimming in contaminated waters or by eating raw or partially cooked shellfish harvested from con- taminated waters. o:o Trash and litter mar the Sound's waters and beaches and can pose a hazard to living resources and to navigation. For some, these impairments affect the enjoyment of the Sound; for oth- ers, their livelihood. Uauses of t/~e 'Probit, ins Always considered a desirable place to live and recreate, the area around Long Island Sound experienced a major population influx after World War II. Residential, commercial, and recreational development increased pollution, altered land surfaces, reduced open spaces, and restricted access to the Sound. The use of the Sound as a place to dispose of human and other wastes increased dramatically. The "paving over" of the land increased runoff and reduced the filtration and processing functions of natural landscapes. Habitat destruction and alteration throughout the watershed harmed native wildlife populations and reduced the breeding grounds and nursery areas for a variety of species. Though slowed considerably due to better management, pollution and habitat loss continue to be problems in Long Island Sound. o.*o Over a billion gallons of treated effluent, which contains oxygen-demanding material and the nutrient nitrogen, are discharged each day from sewage treatment plants to the Sound. The nitrogen over- fertilizes the Sound, fueling the growth of marine plants. When the plants die, they sink to the bottom and decay, using up oxygen in the process. Other sources of nitrogen include runoff from overfertilized lawns and gardens and atmospheric deposition from vehicle and power plant emissions. ~ Toxic chemical substances produced through human activity have found their way into the Sound and persist in elevated levels in some bot- tom sediments. In the past, much of this material came from industrial sources, but rigorous compliance with pollution control programs has reduced this source substantially. Continuing sources today include urban runoff, sewage treatment plants, vehicle exhaust emissions, house- hold chemicals, and pesticides. These contaminants affect the health of plants and animals and human consumption of species that concentrate these substances can pose significant health risks. · .'. Pathogens, disease-causing microscopic bacteria and viruses, enter the Sound's waters through inadequately treated human sewage and domes- tic and wild animal wastes. Some of the primary sources of pathogens are older sewer systems that have combined stormwater and sanitary sys- tems that overflow during rainfalls (called combined sewer overflows), sewage treatment plant malfunctions, illegal connections to storm sew- ers, and vessel sewage discharges. o.~ Floatable debris comes from people carelessly disposing of their trash, transforming it into litter that enters the Sound through runoff, stormwa- ter discharges, and combined sewer overflows. In summary, Long Island Sound is stressed by people generating wastes that flow into the estuary and by land uses and practices altering the Sound's natural habitats. These actions degrade the Sound's water quality, disrupt its ecosystem, and impair the uses upon which people depend. '~¢l~at iJ ;'~i~ ;7lctio~ is ']~l~em~ Without aggressive and sustained action, the water quality of the Sound will deteriorate, overshadowing recent improvements. If action is not taken to further reduce and control the discharge of pollutants and to restore and main- taln habitats, continued growth and devdopmeut around the Sound will result in even lower oxygen levels, beach and shellfish area closings will increase, and populations of fish and wildlife will d~line. People will turn away from the Sound as a source of livelihood and recreation. The regional economy will shrink as people find other places to top: The LISS plan is based on sci entitc and field research, Here a researcher nqonflors the Sounds water clarity. botlorY~; The Sound's recrealional fishery, which annually atlracts mil lions of anglers, is a large con- fnbuter ~o Lhe local economy, "... the plan calls for a sustained and cooperative effort among the states of Connecticut and New Yor the EPA and other federalagencies, localgovern- ments, and the private sector.' boat, to fish, and to swim. Perhaps the most vivid and dire consequence of no action will be the degradation of the entire ecosystem. Long Island Sound will not realize its full value to the region without concerted and committed action. Plan In 1985, Congress directed the U.S. Environmental Protection Agency (EPA), in cooperation with the states of Connecticut and New York, to sponsor the Long Island Sound Study. A Management Conference, involving federal, state, interstate, and local agencies, universities, environmental groups, indus- try, and the public was established. The Management Conference identified and investigated the Sound's most significant problems and produced a draft management plan in January 1993. Public meetings were held to solicit com- ments on the draft, many of which were incorporated into the final.version of the plan. The plan describes ongoing programs and lists commitments and recom- mendations for actions that specifically address the Sound's priority problems. Its implementation will have a range of benefits. Degradation of the Sound will be halted. Many of the Sound's uses, impaired and impeded over time, will be recovered. Beach closings will be reduced, shellfish harvest acreage will expand, and there will be more life-sustaining oxygen and fewer fish kills. Habitats will be reclaimed and restored. Diverse and healthy plant and animal life, including endangered species, will be supported. The various water quali- ty-dependent uses, so important to the regional economy, will achieve some level of long-term security as an improved Long Island Sound invites visitors to tatum often. To achieve this vision, the plan calls for a sustained and cooperative effort among the states of Connecticut and New York, the EPA and other feder- al agencies, local governments, and the private secton But the fate of the Sound depends on more than just the commitments of government agencies and regulated entities: it depends on the will and desire of the people of the There are many ways each individual can contribute. First, citizens can inform themselves about Long Island Sound. A good start is to learn more about the problems facing the Sound and what needs to be done about them. Second, people can voice their concerns directly to elected officials and gov- ernment agencies. Third, people can join marine user and citizen's groups to combine their voices with others and demand a cleaner Sound. Fourth, people can take responsibility for their own actions by making changes in lifestyle to reduce the amount of pollution they generate many small changes will add up to protect the Sound. artist: Paul J. Fusco CTDEP The following sections summarize the management plan for Long Island Sound. Each priority problem identified by the Management Conference is characterized and specific commitments and recommendations for actions are highlighted. The last section details the coordination, involvement and educa- tion, and funding needed to support successful implementation of the plan. LONG ISLAND SOUND DRAINAGE BAStNS 1 Pawcatuck Rh~'- 297 sq. ~. 2 So,.J~heast C~ast- 149 sq. mL 3 Thames ~ - 1478 sq. mi. 4 Connec~cut Ftivef. 11,263 sq. mi. 5 South Cenffal Coast - 482 sq. ~. 6 H~,'tonic RJv~. 1~46 sq m 7 Souj~e~t Coast- 355 sq. mi. (hctudos Wostchosm County) a N,ek Yo~x City - 66 sq. mi. L~ (c) Maps of (a) major drainage basins and tributaries of Long Blond Sound; (b) the study area; and (c) basins w~thin Long Island Saund. Problem uring the summers of 1987-1993, from half to two-thirds of the bottom waters experi- enced dissolved oxygen levels below 5 milligrams of oxygen per liter of water (mg/l). Levels of dissolved oxygen of 5 mg/1 and higher are generally accepted as being protective of the Sound's estuarine life. In 1989, a particularly bad summer, more than 500 square miles (40 percent) of the Sound's bottom waters had dissolved oxygen lev- els less than 3 mg/1. During most of these years, dissolved oxygen in a portion of the Sound (up to 50 square miles) fell below 1 mg/1 andin 1987 anoxia, the absence of any oxygen, was recorded in a portion of the Western Narrows. These low levels of dissolved oxygen cause significant, adverse eco- logical effects in the bottom water habitats of the Sound. To date, research shows that the most severe effects (such as mortality) occur when dissolved oxygen levels fall below 1.5 mg/1 at any time and below 3.5 mg/1 in the short-term (i.e., 4 days), but that there are probably mild effects of hypoxia when dissolved oxygen levels fall below 5 mg/1. The levels regularly observed in the Sound during late summer: ~ Reduce the abundance and diversity of adult finfish; ~ Reduce the growth rate of newly settled lobsters and perhaps juvenile winter flounder; ~ Can kill species that cannot move or move slowly, such as lobsters caught in pots and starfish, and early life stages of species such as bay anchovy, menhaden, cunner, tautog, and sea robin; ~ May reduce the resistance to dis- ease of lobsters and other species; and ~, Diminish the habitat value of Long Island Sound. Long Is[and Sound Areas 0I Low Dissolved Oxygen 1991 Areas of Long Island Sound with minimum bottom water dissolved oxygen levels below 5 mg/I during the summer of 1991 A ft~h Nil In fho Mionus R~er, Connecticut, summer of Excessive discharges of nitrogen, a nutrient, are the primary cause of hypoxia. Nitrogen fuels the growth of planktonic algae. The algae die, settle to the bottom of the Sound and decay, using up oxygen in the process. Natural stratification of the Sound's waters occurs during the summer when warmer, fresher water "floats" on the top of cooler, saltier water that is more dense. This natural stratification forms a density difference between the two layers called a pycnocline. This prevents mixing of surface and bottom waters. Oxygen from the atmosphere and photosynthesis keep the surface layer well oxygenated, but the oxygen cannot pass through the pycnocline into the bottom layer very easily. Decaying algae and other organic material in the sed- iment and animal respiration in the bottom layer use up oxygen faster than it is replenished. Hypoxia develops and usually persists as long as the stratification lasts (usually one to two months in late summer). But hypoxia in Long Island Sound is too complex to fully understand using direct observations alone. Natural variations in weather and other physi- cal factors affect the extent and severity of hypoxia. The Management Conference has constructed mathematical models in order to understand the relationship among natural variations, human-caused pollutant loadings to the Sound, and dissolved oxygen levels in the Sound. Work has been completed on LIS 2.0, a two-dimensional water quality model that provides the technical basis for the hypoxia management actions described in the plan. In 1994, the Management Conference will complete work on LIS 3.0, a three-dimensional water quality model that will better define the area impacted by hypoxia. LIS 3.0 will be used as a tool to implement the plan and establish a detailed, cost-effective management program to reduce hypoxia. LIS 2.0 provides a level of detail that allows the Management Conference to draw some clear conclusions about hypoxia in the Sound, its causes, and its solutions. Using LIS 2.0, the Management Conference has sim- ulated water quality conditions as they were in the past, as they are today, and as they would be in the future under alternative nitrogen control scenarios. The model provided a cost-effective way of understanding the Sound and hypoxia. o**o The most oxygen that can be dissolved in Long Island Sound at sum- mer water temperatures is about 7.5 mg/1. This is known as the satura- tion level. 4" In precolonial days, natural, healthy biological activity brought dis- solved oxygen levels below saturation due to the natural loadings of organic material and nitrogen, but oxygen levels probably were not below 5 mg/1. o~ Under today's nutrient and organic material loading conditions, mini- mum dissolved oxygen levels average approximately 1.5 mg/1. These levels are associated with severe hypoxia and have been documented in the field. · .q, By substantially reducing nitrogen loadings to the Sound from sources within its drainage basin, the minimum dissolved oxygen levels in the bottom waters during late summer can be increased to an average of about 3.5 mg/l~ thereby significantly reducing the probability and fre- quency of severe hypoxia and reducing the area affected by hypoxia. Understanding the components of the load of nitrogen entering the Sound is fundamental to understanding the plan: · :o In 1990, defined as a baseline year by the Management Conference, the total nitrogen load was 90,800 tons per year. o:o By 1992, the total nitrogen load had increased to 93,600 tons per year; this increase was anticipated and was a consequence of terminating ocean disposal of sewage sludge from New York City and the need to treat some of the sludge at facilities within the basin, reintroducing nitro- gen to the wastestream. o~o Of the 93,600 tons per year, approximately 39,900 tons are from nat- ural sources and not subject to reductions by management activity. · :o The remaining 53,700 tons of nitrogen per year are associated with human activities and have the potential to be reduced through manage- ment actions. 10,700 tons of nitrogen per year enter the Sound through its boundaries -- the East River in the west and The Race in the east; efforts to reduce the substantial western load will come under the auspices of the New York-New Jersey Harbor Estuary Program. 2,200 tons of nitrogen annually enter the Sound from direct atmospheric deposi- tion; the Management Conference estimates that this load will be reduced to 1,540 tons of nitrogen per year by implementation of the 1990 Clean Air Act amendments. The remaining 40,800 tons of nitrogen per year are a result of human activity coming from point and nonpoint source discharges in the Sound's drainage basin and are the subject of the plan. Point source discharges, primarily sewage treat- ment plants, result in 32,400 tons of nitrogen each year and nonpoint source dis- charges, such as agricultural and stormwater runoff, result in 8,400 tons of nitro- gen each year. The goal of the hypoxia management plan is to eliminate adverse impacts of hypoxia resulting from human activities. 13 Achievement of this goal will require very large investments of capital, a long-term commitment, and the assistance of the New York-New Jersey Harbor Estuary Program. Therefore, the Management Conference has estab- lished interim targets for dissolved oxygen and has outlined a phased approach to achieving them, using what is known now to support early phases and com- mitting to take additional steps as increased understanding of the environment will dictate in the future. Interim Dissolved Oxygen Targets Using scientific information on the relationship between oxygen levels and ecological effects, the Management Conference has established interim target levels for oxygen that, if achieved, would minimize the adverse impacts of hypoxia. In summary, the interim dissolved oxygen targets for the bottom waters of the Sound are to: o:o Maintain existing dissolved oxygen levels in waters that currently meet state standards; o.*o Increase dissolved oxygen levels to meet standards in those areas below the state standards but above 3.5 mg/1; and, · .% Increase short-term average dissolved oxygen levels to 3.5 mg/1 in those areas currently below 3.5 mg/1, ensuring that dissolved oxygen never goes below 1.5 mg/l at any time. There are also interim targets for the surface waters of the Sound. Phased Approach The Management Conference is implementing a phased approach to reducing nitrogen loadings to the Sound from point and nonpoint source dis- charges within the Sound's drainage basin. · :o Phase I, as announced in December of 1990, froze nitrogen loadings to the Sound in critical areas at 1990 levels to prevent hypoxia from wors- ening. o~, Phase II, as detailed in the plan, includes significant, low-cost nitrogen reductions that begin the process of reducing the severity and extent of hypoxia in the Sound. o:o Phase III will present nitrogen reduction targets to meet the interim targets for dissolved oxygen, which will prevent most known lethal and sublethal effects of hypoxia on the Sound's estuarine life. Phase III also will lay out the approach for meeting the nitrogen load reduction targets. artist: Paul J. Fusco CTDEP Phase I - The Nitrogen Loading Freeze Phase I was announced in December 1990. It called for a freeze on point and nonpoint nitrogen loadings to the Sound in critical areas at 1990 levels. It committed the states and local governments to specific actions to stop a 300-year trend of ever-increasing amounts of nitrogen entering the Sound. The states have moved aggressively to implement the freeze, seeking the full cooperation of local governments. o~' Connecticut reacted quickly to obtain $15 million in state funds to ensure that the nitrogen freeze was implemented. Consent orders are in place to cap the nitrogen loads at the 15 affected facilities. ,~** In New York City, the New York State Department of Environmental Conservation (NYSDEC) and the city have reached full agreement on sewage treatment permit limits, freezing total nitrogen loadings at 1990 levels. The permits will be finalized shortly. ***o In Westchester County, the NYSDEC has issued final permits to the four existing sewage treatment plants, freezing their aggregate load at the 1990 level. This was done with the full agreement of the county. ***o On Long Island, the NYSDEC has proposed individual permits that freeze the loads from indi- vidual discharges at 1990 levels; in response, the dischargers have proposed establishment of an aggre- gate limit. This proposal is currently under review by the NYSDEC. Phase I agreements to con- trol nonpoint sources centered around three categories: ***o Use of existing non- point source and stormwa- ter management programs to focus on nitrogen con- trol with the objective of freezing the loads. top: Researchers testing water quality bottom: Three levels of priority for managing nonpoint sources of nitro gert Within level '1, the highest pri ority subbasins are shaded and include all of the portions of Westchester, Suftolk, and Nassau counties and New York 0ii7 that lie wilhin lhe Sound's drainage area and lhe densely populated portions of Fairfield and New Haven counties. o~ Assessing tributary loads to Long Island Sound to begin planning for their control. o:o Assigning priorities for management to coastal subbasins where nitro- gen loads were estimated to be the highest. Phase 11 - Low Cost Nitrogen Reductions (acres x 10~0) (acres x i000) I - Thames 1044.2 7 - Westchcster 69.4 2 - Connecticut 7211.6 8 - Bronx/Queens 55.6 3 - Quinnipiac 327.9 9 - Manhattan/Queens 42.0 4 - Housatonic 1242.9 10 - Nassau 55.8 5 - Saugatuck I38.4 i1 - Suffolk 107.2 6 - Norwalk I58.9 12 * Long Island Sound 832.0 Phase I1 includes firm commitments to reduce the annual, human-caused nitrogen load of 40,800 tons from in-basin sources by approximately 7,600 tons (or 18.6 per- cent). This includes complete compensation for the 2,800 tons per year increase associated with the end of ocean dumping and a 4,800 tons per year reduction from the 1990 freeze baseline. o:o New York state will reduce its aggregate annual nitro- gen load from 11 sewage treatment plants in New York by 22 percent (approximately 6,700 tons) at a total capi- tal cost of $103.1 million. Five of the actions will be achieved by the end of 1995; four will be achieved by the end of 1996. The load reduction associated with cen- trate treatment is to be achieved by the year 2000. The target date for achieving the load reductions associated with the upgrade of the Newtown Creek water pollution control plant in the East River is currently being negoti- ated by the New York City Department of Environmental PHASED PLAN TO REDUCE POINT AND NONPOINT SOURCE DISHARGES IN THE SOUND'S DRAINAGE BASIN 40/ 38 Phase I Year/Phase 33.2 Phase II 23.8 Phase III 40.8 1992 38 g20 ~ 10 0 1990 Protection (NYCDEP), the NYSDEC, and the EPA. Funding for these actions is available through the State Revolving Fund. o.*o Connecticut will reduce its aggregate annual nitrogen load from the 15 affected treatment plants by 25 percent (approxi- mately 900 tons) by 1995. Funding is in place for the $18.1 million expenditure with $14 million available as 100 percent grants and the balance as State Revolving Fund loans. *~o Phase II activities for nonpoint nitrogen control will continue totake advantage of existing programs by focusing additional attention on nitro- gen in priority coastal sub-basins. The states of Connecticut and New York are formulating their Coastal Nonpoint Pollution Control pro- grams to address coastal nitrogen sources. The benefits of Phase II nitrogen reductions, as forecast by the LIS 2.0 model, will be substantial. Summertime minimum dissolved oxygen concen- trations in the bottom waters of the western Sound will be raised on average from 1.5 mg/1 to about 2.4 mg/l. The amount of estuarine habitat presently degraded will be reduced by about 10 pement. The area most severely affected by hypoxia will shrink by more than 30 percent. However, these reductions alone will clearly not meet the interim dis- solved oxygen targets nor achieve the goal for dissolved oxygen. Therefore, an additional level of nitrogen reduction will be necessary. Phase Ill - Nitrogen Reduction Targets to Eliminate Severe Hypoxia LIS 2.0 was used to begin to estimate nitrogen reductions required to meet the interim dissolved oxygen targets. Of the 40,800 tons per year total, in-basin, human-caused nitrogen load, required reductions are expected to range from 17,000 to 24,000 tons per year (or 42 percent to 59 percent). Achievement of these reductions would require the implementation of the mid- to high-level management scenarios as described in the Management Conference's 1990 Status Report and Interim Actions for Hypoxia Management. Preliminary cost estimates of these two levels of control for point sources are from $5.1 to $6.4 billion for New York state and from $900 million to $1.7 billion for Connecticut. Cost estimates for the necessary level of control of nonpoint sources have not been developed but are expected to be substantial. The benefit of achieving the interim targets would be the elimination of severe hypoxia. Most lethal and sublethal effects of hypoxia would be pre- vented and most of the severely impacted habitat area would be restored. However, in order to proceed with such a costly enterprise in a way that obtains the greatest environmental benefits for each dollar spent, approximate Soundwide reductions must be translated into discharge- or zone-specific load reduction targets. oi* Using the LIS 3.0 model, the Management Conference will identify the most beneficial and cost-effective nitrogen load reduction targets for geographic management zones established around the Sound. ~,o The states and local governments will then be given the opportunity to propose the most cost-effective mix of point and nonpoint source reduc- Studen~ monffor~ng wate~ quarry and sediments h~lp p~npoin! problem areas [photol Siupakoll) tion actions to achieve these nitrogen load reduction targets within each zone. The third phase of the plan, therefore, is to: · :o Complete work on LIS 3.0 by June 1994. · :o Establish LIS 3.0-based dissolved oxygen targets, and nitrogen load reduction targets by zone, by December 1994. o:o Encourage and support the development of innovative, cost-effective technologies to reduce point and nonpoint sources of nitrogen. · ,'o Complete in 1995-1997 the zone-by-zone plans to achieve the load reduction targets. · ,'* Establish a firm timetable for achieving the load reduction targets by zone within 20 years with progress measured in five year increments; this timetable can only be met if the State Revolving Funds are adequate- ly capitalized. ";" Continue long-term implementation to ensure steady increases in dis- solved oxygen and reductions in the area impacted by hypoxia. The Management Conference has already allocated funds to complete work on LIS 3.0. Resources and staff from existing programs will be used to establish LIS 3.0-based dissolved oxygen targets and nitrogen load reduction targets. The development of zone-by-zone plans to achieve the nitrogen reduc- tion targets has already been initiated, with over $1 million committed. To complete all the zone-by-zone plans by 1997, the Management Conference estimates that $700,000 per year for three years will be needed. Full attainment of the goal of eliminating the adverse impacts of hypoxia from human activities (not just eliminating severe hypoxia) will require addi- tional actions beyond the scope of the Long Island Sound Study. The New York-New Jersey Harbor Estuary Program is currently considering the need for nitrogen control on a systemwide basis; nitrogen control in the Harbor could reduce the export of nitrogen and increase the export of oxygen from the Harbor to the Sound. Additionally, New York City has initiated studies to evaluate the efficacy of relocating discharges from the upper and lower East River, thereby reducing these inputs of nitrogen to Long Island Sound. The Management Conference recommends a long-term program of mon- itoring and modeling to assess progress in meeting the nitrogen reduction and dissolved oxygen targets, and to assess the ecosystem's response. This pro- gram is essential to ensuring that the management actions that are implemented are benefiting the Sound as expected. A key element of the program is the use of the LIS 3.0 model. The Management Conference recommends that LIS 3.0 be periodically mcalibrated to reflect the changing conditions of the Sound, and be used to explain these changing conditions. Furthermore, the Management Conference recommends that LIS 3.0 be used to evaluate proposals to modify the management plan, as necessary. A comprehensive hypoxia monitoring and modeling program has been proposed, building upon elements of existing programs, primarily those of the Connecticut Department of Environmental Protection (CTDEP), the NYCDEP, and the Interstate Sanitation Commission. Full implementation of the monitor- ing program would require additional funding of $300,000 per year. Recalibration of LIS 3.0 would cost approximately $300,000. The Management Conference recommends increased funding of the Connecticut and New York State Revolving Fund programs. Based on the pre- liminary estimates, if the high-level of nitrogen control were selected, the Connecticut State Revolving Fund would need an infusion of $70 million per year in federal Clean Water Act funds and $47 million per year in state funds over 20 years to meet all statewide wastewater control needs, including Long Island Sound nitrogen control needs. The New York State Revolving Fund would need an infusion of $623 million per year in federal Clean Water Act funds and $128 million per year in state funds over 20 years to meet statewide needs, including Long Island Sound nitrogen control needs. The Management Conference also recommends that the Congress autho- rize a total of $50 million under Section l19(d) of the Clean Water Act. This section of the Clean Water Act, created by the Long Island Sound Improvement Act of 1990, authorizes grants for projects that will help imple- ment the plan. Appropriations could be spread over a period of five years. The Management Conference would use the $50 million to fund a Long Island Sound Challenge Grant program. A significant portion of appropriated funds would be used to ensure that the Phase III nitrogen control efforts get off to a fast start with full local government cooperation. The portion of these funds allocated for nitrogen control would be used to fund cost-effective point and nonpoint source control actions not involving major capital improvements. Innovative projects would be encouraged. And finally, the Management Conference recommends that Congress fully fund the nonpoint source control programs under Section 319 of the Clean Water Act and Section 6217 of the Coastal Zone Act Reauthorization Amendments to support additional nonpoint source management activities. 20 arlist: Paul J. Fusco CTDEP Toxic S ubsta rices qI e oblem substances include both natu- rally occurring and man-made sub- stances that can cause adverse ~ ~ ,~ ecosystem or human health risks when exceeding certain concentrations. The Management Conference has reviewed all available data on the levels of toxic substances in the water, biota, and sediments of Long Island Sound. These levels were compared to applicable standards, criteria, and guide- line§ to provide an indication of environmental problems. Overall, the quality of Long Island Sound's waters is good with respect to toxic substances. The only documented case of levels exceeding either state's water quality standards in the open waters of Long Island Sound is for mercury in the East River. However, data on organic toxic substances (such as polychlorinated biphenyls [PCBs]) were too sparse to allow the Management Conference to draw any conclusions about contamination. While few tests of water column toxicity have been conducted, indications of some aquatic life impairments have been observed in the upper East River. Analysis of fish and shellfish tissue data indicates that very few conta- mination problems exist that could affect the health of seafood consumers. The only documented substances of concern are PCBs, most of which were discharged into the environment before the complete ban on their manufac- ture and severe restrictions on their use. PCB action levels (the minimum concentrations of chemicals in food that may cause the Food and Drug Administration to take enforcement action) are exceeded in the flesh of striped bass, bluefish, eels, and the hepatopancreas (more commonly known as the mmalley) of lobsters and crabs. The states of Connecticut and New York have issued consumption advisories for those species. Because PCBs are globally distributed and most fish and forage species migrate widely, it is not clear if the problem observed in Long Island Sound is caused by local sources. There are also some concerns about contaminant levels in waterfowl tissues. New York state has issued an advisory on consumption of mer- gansers and some other waterfowl. The relationship between waterfowl con- tamination and Long Island Sound management needs is unclear because of the diversity of habitats and wide migration patterns of waterfowl. Connecticut has funded research into contamination of the greater scaup (a diving duck) that may provide additional insight into this type of problem and management needs for Long Island Sound. Surveys of mussels and oysters, while spatially limited in scope, have identified a few areas where the concentrations of heavy metals and organic compounds in tissues are elevated relative to cleaner sites. These include the urban harbors of Bridgeport, Mamaroneck, and Hempstead, the lower Housatonic River near Devon, and the area around Throgs Neck. While the levels of contamination may affect the health of those species, there are no human health risk/consumption advisories as a result of toxic substances in these organisms. Sublethal toxic effects on the pathology and reproductive success of organisms have been measured at some locations as well, specifically in floun- der in New Haven Harbor and clams in Bridgeport and Norwalk Harbors. In contrast to the generally low concentrations of toxic substances in the water, toxic contamination problems persist in the sediments of some areas of the Sound. This may be due, in large part, to historical discharges that occurred prior to implementation of state and federal Clean Water Act require- ments. Despite the great strides in reducing the load of toxic substances to the Sound, field studies have not documented decreases in the amount of toxic substances in sediments in contaminated areas over time. The database since 1972, for example, does not identify general trends in sediment concentrations of heavy metals. This is probably a function of the slow sedimentation rate in the Sound combined with mixing of the sediments by burrowing organisms. More time is needed for the benefits of source reductions to be observed in the sediments because of these physical and biological attributes of the Sound. While most of the Sound's sediments do not exhibit contamination levels of concern, problems have been documented in some areas of the western Sound and in several, mostly urbanized, harbors, rivers, ancl embayments. In these areas, preliminary data indicate that elevated levels of metals in the sedi- ment could be affecting benthic organisms. Sediments with elevated levels of metals and organic compounds are found in portions of Black Rock Harbor, Bridgeport Harbor, Stamford Harbor, the Quinnipiac River and New Haven Harbor, the Housatonic River, the Five Mile River, the West River, Glen Cove Creek, and the Hutchinson River. Sediments from sites in western Long Island Sound and in urban harbors have also elicited toxic responses in tests using sensitive species. Overall, the Management Conference has concluded that problems due to toxic contaminants occur in limited areas and are primarily associated with sediment contaminant levels. However, additional data on toxic substances in water, biota, and sediments are essential to a full characterization of the nature and extent of the toxic substance problems in the Sound. As discussed above, the sediment contamination problems that persist today may be due, in large part, to historical discharges of toxic contaminants. Active industrial and municipal sources of toxic substances still exist but have been greatly reduced. This is the result of the emphasis placed on toxic conta- minant control in existing regulatory discharge permitting programs over the last 25 years. Currently, no single soume category of toxic substances appears to be the primary determinant of conditions in the Sound. The results of the National Coastal Pollutant Discharge Inventory for the Sound, compiled by the National Oceanic and Atmospheric Administration for the Management Conference, indicate the following relative source contributions of some toxic substances to the Sound: · **o The largest sources of heavy metals are the major rivers that flow into the Sound (Connecticut, Housatonic, Quinnipiac, and Thames), which dominate the total load because of their large discharge volumes. Some of the load originates from natural sources and ambient concentrations of most pollutants do not exceed state criteria for surface waters. · ~.. Sewage treatment plants in Connecticut and New York are the second largest source of toxic substances and are dominated by the New York City plants. o.~ Urban runoff, combined sewer overflows, and stormwater discharges are the third most significant source of toxic substances. They are ((Permit ?rograms orcemem activi ... are res?onsi6& for reducin toxic substance &ads over the post 25years." potentially significant sources of some toxic substances, such as lead, PCBs, and polynuclear aromatic hydrocarbons, and may locally affect Long Island Sound's waters and biota. 4° Atmospheric deposition may also contribute substantial amounts of some metals, such as copper, lead, and zinc, as well as organic com- pounds, but additional evaluation is warranted. ~.' Relatively minor soumes of toxic substances, which may affect limited areas, include: industrial discharges (most notably along the Quinnipiac and Naugatuck Rivers), power plants, old landfills, chemical and oil spills, and boating operations. To protect and restore Long Island Sound from the adverse effects of toxic substances, the Management Conference recommends actions in four key areas: o:o Continue and, where appropriate, enhance existing regulatory and pol- lution prevention programs to reduce toxic substance inputs to Long Island Sound; o:o Further evaluate sediments where toxic contamination problems exist to determine the feasibility of remediation; · ~o Improve communication to the public of any legitimate health risks from consumption of seafood species from the Sound; and ~,n, Coordinate and strengthen monitoring activities for toxic substances to improve understanding and management of toxic contamination problems. Existing Regulatory and Pollution Prevention Programs Permit programs and enforcement activity for both direct and indirect discharges, including toxicity testing of those discharges, are responsible for greatly reducing toxic substance loads over the past 25 years. The Management Conference's priority management recommendation for toxic substances is to continue these successful activities, all of which are funded under current programs. 4° The states of Connecticut and New York are reviewing municipal and industrial discharge permits to surface waters to reduce the allowable concentrations of toxic pollutants from the previous, permitted values. This includes municipal discharges and, therefore, affects pretreated industrial discharges as well. The net result will be a substantial reduc- tion in the discharge of toxic materials over the next few years to meet adopted criteria for toxic substances in the states' waters. o:. The Management Conference recommends continued support for existing pollution prevention site visit programs targeting industrial dis- chargers to Long Island Sound and its tributaries. The Connecticut Technical Assistance Program solicits requests from manufacturing facil- ities for voluntary pollution prevention audits and has conducted more than 40 audits in the past two years. The NYSDEC, as a part of its com- pliance inspection program, performs multimedia pollution prevention field assessments at sites where permitted activities are taking place. Other programs that are designed to prevent pollution, reduce pollutant loads, or clean up existing problems and spills must also be supported as part of a comprehensive program to manage toxic contamination in Long Island Sound. Planned activities under the auspices of the New York-New Jersey Harbor Estuary Program that will enhance toxic substance management in Long Island Sound are: · ~o Develop Total Maximum Daily Loads, Waste Load Allocations for point sources, and Load Allocations for nonpoint sources to ensure that water quality standards for mercury are met in the Harbor, the East River, and western Long Island Sound. The Waste Load Allocations and Load Allocations will be completed in 1994. Initially, permits will limit point source discharges of mercury to existing effluent limits. o$o Continue work to fully account for nonpoint sources of mercury, since the work to date has revealed the presence of a major, unidentified non- point source of mercury. This additional work is described under Monitoring. (Page 28) Sediment Contamination *;o The Management Conference will review the data on sediment conta- mination on a site-by-site basis. State and federal experts will evaluate the problem at each site and recommend additional assessments needed to fully characterize the problem, ascertain the need for and feasibility of remediation, and prepare a remediation plan. · ;,, Additional assessments should be conducted and site plans addressing the feasibility, technical approach, cost, and value of conducting sedi- ment remediation projects should be developed for Black Rock Harbor and Glen Cove Creek, where data may be sufficient to construct case study analyses. The cost of conducting characterization and feasibility studies is approximately $250,000 per harbor. This translates to $500,000 per year to address the problem at a rate of two harbors per year. Recently, the City of Glen Cove was awarded $250,000 from the New York State Legislature to evaluate the contamination of Glen Cove Creek. Funds for additional evaluations are presently not available. ~.' The Management Conference will evaluate the research and manage- ment programs and activities in the Great Lakes and New York-New Jersey Harbor as part of developing an approach to remediate sediments. This will ensure cost-effective transfer of appropriate technology to Long Island Sound contamination problems. Risk Communication o:o The states of Connecticut and New York will improve the coordina- tion of health risk assessment and advisory recommendations. This will help minimize confusion about the safety of Long Island Sound fish, shellfish, and waterfowl, thus minimizing human exposure to contami- nated species. Monitoring The Management Conference recommends that a comprehensive, coordi- nated monitoring program be implemented to fully evaluate toxic contamina- tion problems and their causes and trends in the Sound. Elements of the pro- gram include: Contamination damages 1he health of the Sound's liwng resources. Programs to prevent pollution or fo clean up existing problems are part of a comprehensive program to manage toxic contaminants. The reduction ~n pesticide levels has helped osprey populations in lhe Sound o~o The National Oceanic and Atmospheric Administration's Mussel Watch and Benthic Surveillance components of their Status and Trends Program. o~o The EPA's Environmental Monitoring and Assessment Program, which has stations throughout Long Island Sound, and its Regional Environmental Monitoring and Assessment Program (R-EMAP), which is focusing on sediment contamination in westem Long Island Sound as part of a regionwide program. The incremental cost to include Long Island Sound in the R-EMAP program was $200,000. *~ Incorporation of the results of the National Oceanic and Atmospheric Administration's urban harbor sediment assessment, identifying the need for further assessment. o*** Implementation of a comprehensive monitoring program for toxic substances in edible fish and shellfish to ensure compliance with the newly proposed Food and Drag Administration's fish safety initiative. The cost of implementing this recommendation is $300,000 per year. ,~ Implementing the recommendations of the Management Conference Monitoring Workshop to improve monitoring of toxic substances. The cost of implementing the recommendations is $15,000 per year. In addition to these general monitoring recommendations, the New York-New Jersey Harbor Estuary Program has drafted a scope of work to develop comprehensive, systemwide models of PCBs, memury, and other toxic pollutants. The Management Conference endorses these activities that will benefit Long Island Sound. Specific actions include: o:o The U.S. Army Corps of Engineers has agreed to develop a work plan and budget to complete these models. ~* The Corps and the other New York-New Jersey Harbor Estuary Program Management Conference participants have agreed to seek the funding necessary to complete these models. · ~ The systemwide models for PCBs and mercury would provide the technical foundation for comprehensive efforts to eliminate contamina- tion problems in the Sound-Harbor-Bight system. Benefits The benefits of implementing the plan will be significant. o**o Preventing toxic substances from entering the Sound by continuing successful regulatory and pollution prevention programs is the most effective method of preventing future degradation and, in many instances, may be the most economical means of managing toxic substances. °.% Reducing toxic substance loads and remediating sediments will be beneficial not only to organisms that live on or in the sediments, but also to organisms that feed on them. °.% These actions will significantly improve and expand habitat for shell- fish, finfish, and other estuarine life. Risk to seafood consumers will be further reduced. o:° An improved toxic substance monitoring base will allow faster response to emerging problems and a greater ability to plan remediation activities. Costs and Funding Successful implementation of the plan is contingent upon the states and the EPA receiving, at a minimum, level funding for existing programs associat- ed with toxic substance controls, monitoring, and assessment. New funding of approximately $500,000 per year is needed to identify actions to remediate contaminated sediments in selected urban harbors at the rote of two harbors per year. Site-specific remediation cost estimates would be developed as harbor-specific analyses. New funding of $315,000 per year is needed to improve monitoring of toxic substances. ortist: Poul J. Fus¢o CTDEP Canoeing in th~ Guilford salt~narsh, ©uiltord, Oonn~cI~cut Problem an exposure to pathogens can cause ess, most often gastroenteritis, but o potentially more serious diseases h as salmonellosis and hepatitis A. Exposure to pathogens can occur either by direct con- tact with, or ingestion of, contaminated waters by bathers or by eating raw or partially cooked shellfish harvested from contaminated waters. Indications of pathogen contamination have resulted in closed beaches and shellfishing areas, hu~ting the economy of the region and damag- ing public perception of the quality of the Sound and its resources. Pathogen contamination causes a number of beach closures around the Sound each summer. ~ From 1986 m 1990, the Management Conference identified' 10 beach- es that were chronically closed (defined as closed for at least three days per year for at least three of the five years) to swimmers due to pathogen The chronically closed beaches, in order of severity, Park, Gold Star Battalion, the Mamaroneck area, the Hempstead Harbor area, Centerport Fleets Cove, and Mamaroneck Beach Cabana and Yacht New York and the beaches in the Norwalk and Milford areas of all closures occurred at beaches in embayments, rather than on the Sound, because of proximity to sources and reduced :" :iI~lany productive shellfish beds are closed due to pathogen contamination. ~i11 New York, of the 66,000 acres of productive shellfish beds, 73 per- were either completely closed to shellfishing or subject to signifi- limitations in 1990. Despite these restrictions, the propor- Island Sound hard clams relative to the total harvest from has gone from 4 percent in 1972 to 36 percent in · This is due to increased shellfish production in the Sound and clam harvests in the southern hays of Long Island (i.e., Moriches Bay, etc.). Most of the hard clams were hat- of Huntington and Oyster Bay. of the 52,500 acres of productive shellfish beds, 35 closed to shellfishing or subject to signifi- in 1990. Approximately 85 to 90 percent of the Sewage ff eatment p/ants remove pathogens Yom wastewoter efflu eh! before it enters Long Island Sound. harvest of Connecticut oysters and clams from approved waters was orig- inally relayed or transplanted from restricted and prohibited areas by the shellfish industry. This creates additional costs to the industry. 9/ir ( ?t~ tzse o__/' t £te ~zp [~ l'e l~ Pathogens in Long Island Sound originate from untreated or inadequately treated human sewage and wild and domestic animal wastes. They enter the Sound from point and nonpoint discharges. On an annual average basis, the estimated percent of fecal coliforms (an indicator of pathogen contamination) discharged into Long Island Sound from different sources are: o.*o 51.6 pement from rivers, which includes upstream point (e.g., sewage treatment plants) and nonpoint sources (e.g., failing septic systems); "~' 47.3 percent from urban runoff, which includes combined sewer over- flows; and · **' 1.1 percent from sewage treatment plants and industrial sources dis- charging directly to the Sound. However, short-term discharges that are small on an average annual basis, such as discharges from vessels, can be significant sources in localized areas. In New York state, rainfall causing combined sewer overflows and stormwater runoff was the primary cause of beach closures during the 1986 to 1990 review period. In Connecticut during that period, sewage treatment plant malfunctions were the primary cause of beach closures. In both Connecticut and New York, the primary cause of shellfish bed closures varied from harbor to harbor but appeared to be primarily caused by nonpoint source pollution, especially from stormwater runoff. In harbors where detailed case studies were conducted, stormwater runoff, failing septic systems, and boats and marinas appeared to contribute to pathogen-related clo- sures. Sewage treatment malfunctions may also have been significant on a local basis. Some of these closures are administrative or precautionary clo- sures, while others are based on ambient data. The Management Conference recommends that management actions be taken to control the major sources of pathogens and that site-specific manage- ment plans for each harbor, embayment, or discrete shellfish bed area be devel- oped and implemented. This can be best accomplished by directing priority attention at four source control categories in the following order: combined sewer overflows, nonpoint source runoff, sewage treatment plant malfunctions, and vessel discharges. Those and other soumes of pathogens should be identi- fied by conducting site-specific surveys leading to better control of local soumes of pathogens. Combined Sewer Overflows q,q, New York City has begun to implement a combined sewer overflow abatement program to control the discharge of pathogens at a cost of $1.5 billion with enforceable completion dates for various aspects of the pro- gram during the period of 2001 to 2006. ~ Connecticut will implement its long-term combined sewer overflow abatement program to manage combined sewer areas that affect Long Island Sound. The cities of Norwalk, Jewett City, Derby, Norwich, and Shelton have combined stormwater and sanitary systems that will be cor- rected by the year 2000 at a cost of approximately $27 million. Bridgeport and New Haven have large systems that will be corrected in phases. The first phases are underway with remaining phases scheduled over the next 20 years at costs of $91 million and $125 million, respec- tively. Nonpoint Source Runoff · .*. New York and Connecticut are implementing general statewide stormwater permit programs to manage stormwater from industrial and construction activities, in accordance with the EPA's national program regulations. These permits regulate construction activity at sites greater than five acres and from 11 industrial categories. o~o New York state has initiated a pilot program using enforceable instru- ments (e.g., permits or consent agreements) to control and manage stormwater that causes closures of bathing beaches and shellfish beds. This pilot program has been funded at a cost of $100,000. Based on the program's effectiveness, more widespread implementation will be con- sidered. 4o Connecticut and New York commit to using their statewide nonpoint source programs and to developing coastal nonpoint pollution control programs to control pathogen discharges to Long Island Sound. Successful implementation of these programs is contingent upon fully funding the nonpoint source control programs under Section 319 of the Clean Water Act and Section 6217 of the Coastal Zone Act Reauthorization Amendments. 35® Sewage Treatment Plant Malfunctions · .~ The EPA and the states of Connecticut and New York agree to take immediate enforcement seeking corrective actions and penalties in cases where sewage treatment plant malfunctions result in closures of bathing beaches or shellfish beds. o.'o Connecticut and New York commit to taking timely enforcement to eliminate dry weather overflows, eliminate illegal hookups to storm sew- ers, and to control wet weather overflows from sewers caused by exces- sive infiltration and inflow, especially in areas near bathing beaches and shellfish growing waters. Vessel Discharges 8o The states of Connecticut and New York will identify specific embay- ments warranting protection from vessel sewage discharge beyond the protection offered through the federal marine sanitation device standards and, to the extent feasible, will designate these embayments as no dis- charge areas after the EPA has determined that there are adequate pumpout and treatment facilities. o**o New York state has identified Huntington and Lloyd Harbors as areas requiring additional protection and the EPA has issued an official public notice of its tentative determination that adequate pumpout or treatment facilities exist in the areas. Assuming a final affirmative determination, the NYSDEC will designate Huntington and Lloyd Harbors as the first no discharge areas in Long Island Sound. *.*o New York and Connecticut have received $1 million and $120,000 respectively in Clean Vessel Act grants to install vessel sewage pumpout facilities in Long Island Sound and other coastal waters. Both states will apply for additional funds in fiscal years 1995-1997 to meet the need for pumpout facilities in harbors and embayments identified as potential no discharge areas. Site-specific Surveys o*** The states of Connecticut and New York will continue to perform bac- terial surveys of harbors and embayments to identify contaminated shell- fish areas and potential sources of pathogens. The states will continue to use seasonal or conditional certification of shellfish harvest areas and will act to open or close shellfish beds or bathing beaches, as may be warranted by water quality conditions. *~o The Management Conference recommends that each state perform sur- veys to assess the impacts of point and nonpoint sources of pathogens and to identify management options. Management actions should be identified based on viability of the resource and feasibility and cost-effectiveness of management. New funding of $300,000 per year is needed to implement this recommendation at the rate of two harbors per state per year. Benefits With reductions in the major sources of pathogens that cause water quali- ty or health-related problems in the Sound, existing shellfish beds and bathing beaches will be further protected and, where feasible, impaired bathing beach- es and shellfish beds will be opened. This will help ensure protection of public health while minimizing negative effects on the regional economy caused by bathing beach and shellfish bed closures. Costs and Funding Successful implementation of this plan is contingent upon the states receiving, at a minimum, level funding for existing programs associated with pathogen assessment and control. Two significant program enhancements have already been funded. A $100,000 pilot program was initiated in New York to use enforceable instru- ments to control and manage stormwater. Connecticut and New York have received $120,000 and $1 million, respectively, in Clean Vessel Act grants to install vessel sewage pumpout facilities in Long Island Sound and other coastal waters. New funding of $150,000 per year per state is needed to implement sur- veys for sources of pathogens and develop site-specific management actions. The cost of implementing long-term combined sewer overflow abate- ment programs is estimated to cost $243 million in Connecticut and $1.5 bil- lion in New York. Adequate capitalization of the State Revolving Fund pro- gram in each state is required to fund these efforts. Reduot~on$ ~n majoF souroe$ of pathogens will strengthen the shell fishing indust~"y. The Problem sh floating in coastal waters and bays or washed up on the beach is called floatable debris. Floatable debris reduces the enjoyment of the Sound, can be a nuisance or hazard for boaters, and can harm wildlife. As a visual symbol of environmen- tal degradation, floatable debris can also have serious economic consequences. During the summer of 1988, sen- sational headlines about floatable debris fueled public fears, causing a drop in beach attendance, a decline in business at seafood restaurants, and severe economic losses throughout the Northeast. For example, the loss to the Long Island economy alone for that summer was estimated to be as high as $1 to $2 billion. While floatable debris in the open waters of Long Island Sound is less concentrated than in the neighboring New York-New Jersey Harbor estuary and in western Long Island Sound embayments, it is present in great enough quantifies to mar the aesthetic enjoyment of the Sound. Debris floating in the waters of the Sound can accumulate along with detached seaweed and marsh grass into large surface slicks. These slicks can wash ashore fouling beaches and the coastline. Floatable debris is also a nuisance and hazard for boaters. Floating lines can foul a boat's propellers, and sheets of plastic or plastic bags can block an engine's cooling water intake, resulting in the engine overheating. Collisions with larger, heavier floatable debris can cause hull or propeller damage to boats. Floatable debris can harm wildlife when it is ingested or when organ- isms become entangled in it. Ingestion can cause suffocation or starvation. Undigested plastic pellets can stay in the stomachs of wildlife, leaving no space for real food. Floatable debris can have a particularly detrimental effect on endangered species, where the loss of an individual is devastating to a small population. 'Ibe Cause o_[ t£~, Probl~,m The ultimate source of floatable debris is people who litter and improp- erly dispose of their waste. Litter anywhere in the Sound's drainage basin can ultimately enter the Sound. Litter is carded to the Sound primarily from: ~, Stormwater discharges and combined sewer overflows; Ifc~sh and otho; fioatable debris oro a hozarr~ ~o n@,'iga*~oo, are aosfh~)iioally unappealing, and the most effec- tive stratefly is to combat the root Callse 07 the problem, --littering and improper disposal." New York Harbor and tributaries to the Sound; and Shoreline visitors and boaters. 'llie q'&n to Sol~'c the Them are two ways to deal with floatable debris: reduce the flow of lit- ter from its major sources, and collect and pick it up once it is in the Sound. Ultimately, the most effective strategy is to combat the root cause of the prob- lem littering and improper disposal. To reduce the flow of floatable debris into the Sound, the Management Conference has proposed management actions centered around two areas: combined sewer overflow abatement and stormwater management, and educa- tion. Additional actions address cleaning up floatable debris once it has entered the Sound. Combined Sewer Overflow and Stormwater Management The combined sewer overflow abatement and stormwater management actions described previously in the Pathogens section of this summary also will substantially reduce the amount of floatable debris entering Long Island Sound. Education and Cleanup Existing floatable debris education and cleanup efforts should be contin- ued and enhanced, particularly in municipalities that have combined sewer overflows or storm sewers discharging into Long Island Sound or its tribu- taries. Examples include: o~, The New York-New Jersey Harbor Estuary Program has developed detailed short- and long-term floatable debris action plans for the Harbor. The implementation of these action plans will significantly reduce the amount of floatable debris entering the Sound from the Harbor. ,'.*,, "Clean Stmets/Clean Beaches" is an anti-litter campaign launched in April 1992 by a coalition of public and private groups in New York and New Jersey. The intent of this public education campaign is to make people aware that street debris ultimately tums up on beaches, and that this is one reason not to litter. This anti-litter program has been funded at a cost of $100,000. ',.q. The New York Sea Grant Extension Program, Connecticut Sea Grant Marine Advisory Program, and Long Island Sound Study have organized volunteers from civic associations, schools, and environmental and youth groups who use pre-made stencils to paint messages on storm drains, such as "Don't Dump~Drains to Long Island Sound." This activity is estimated to cost $500 per coordinated event or $5,000 per year for ten events. %% As part of the National Beach Cleanup Program, annual cleanups of Long Island Sound shorelines have taken place since 1988. Each autumn volunteers physically pick up trash from shorelines adjacent to the Sound. As presently constituted, this program costs $10,000 per state per year to coordinate and support volunteer efforts. The Management Conference recommends that this program be enhanced to include a sec- ond beach cleanup in the spring, prior to the beach season, at an addition- al cost of $10,000 per state per year. Costs and Funding Successful implementation of this plan is predominantly contingent upon the states and the EPA receiving, at a minimum, level funding for existing pro- grams associated with managing combined sewer overflow and stormwater discharges and for public education. In order to abate combined sewer over- flows, underground infrastructure systems must be modified. The redesign and restructuring of these systems are major public works projects. The costs of such activities are accounted for in the Pathogens section of this summary. New funding of approximately $12,500 per state per year is needed to enhance existing education and cleanup programs. Storm dta~n stencilling is an eftec five way to educate people that nothing but rainwater should go down stormdrain$ Living X ourc and elbe Problem coastal environs of Long Island Sound represent a unique and highly productive ecosystem with a diverse array of living resources, ranging from microscopic plants and animals that drift with the cur- rents to seaweeds and economically important fmftsh, shellfish, and crustaceans. In addition, many other types of wildlife, such as birds, sea turtles, and marine mammals, spend all or part of their lives in the Sound, on its shores, or in its watershed. These living resources are important to people. Commercial and recreational fishing in Long Island Sound contributed more than $1.2 billion to the regional economy in 1990. Moreover, the opportunity to observe and appreciate the Sound's plants and animals is in itself an enjoyment of the Sound for millions of the region's residents and visitors. While there are still abundant living resources in the Sound and in its watershed, there is little doubt that their overall abundance and diversity have been diminished by indifferent human uses of Long Island Sound and its resources. The Cause of t£~ Problem A principal human cause of harm to the Sound's living resources is water pollution. The Management Conference has identified hypoxia as the major water quality problem in Long Island Sound. The effects of hypoxia alld the other priority water quality problems on living resources have been addressed in previous sections of this summary. There are two more negative human influences on living resources -- destruction and degradation of habitat and overharvesting from fishing and hunting. ~, Approximately 25 percent to 35 percent of the Sound's tidal wetlands have been destroyed during the last century by filling, dredging, and development. These wetlands are critical breeding areas and help filter pollutants from land runoff, including nutrients. This trend was halted in the 1970s after wetland protection laws were passed. ~ While tidal wetland loss has been checked by the adoption of wetland regulatory programs, significant wetland areas are degraded as a result of past human disturbance and modification. Additional wetlands are Coastal marshes like th~s one ~n eastern Connecticut contribute to the natural beauJy of the shores of Long Island Sound and term an essential part of the Sound's ecosystem becoming degraded by ongoing activities, as evidenced by the rapid spread of common reed into brackish and fresh tidal wetlands. o:o Dams built on Connecticut rivers and streams have restricted the upstream movement of migrating fish, such as alewives, smelt, blueback herring, shad, and salmon. o:o Overall in the Sound there has been a significant decrease in the quan- tity and distribution of submerged aquatic vegetation. This is believed to be linked to nutrient enrichment. Cormorants, as well as olr~er waterfowl, depend on a healthy coastal habitat, o:o Non-native species introduced into Long Island Sound and popula- tions of certain native species that have grown too large have caused damage by preying upon or competing with sensitive species such as beach nest- ing birds. o:o Species such as winter flounder, lob- ster, bluefish, dia- mondback terrapins, and many others have been harvested to the point where it is essential to manage fishing and hunting activities. 2T/ie '~'l~t~ to .qo(w' thc The states of Connecticut and New York and the federal government have long managed and protected the coastal lands and aquatic habitats of the Sound's living resources, and have implemented management programs to protect living resources from overharvesting. The Management Conference recognizes the need to maintain these ongoing conservation programs and to make priority improvements. Critical ongoing programs include: o:. State and federal regulatory programs that protect tidal wetlands and other productive habitats, such as intertidal sand and mud flats and sub- merged aquatic vegetation; Habitat restoration and enhancement activities; · ~o Fisheries management, including population monitoring, and species regulation and restoration; and o,~ Wildlife management, including population monitoring and programs to protect and restore populations of endangered and threatened coastal plants and animals. The Management Conference recognizes the importance of these pro- grams in meeting its goals for the living resources of Long Island Sound, and urges the states and federal agencies to maintain them. The Management Conference recommends the following enhancements to ongoing habitat management programs: · ~o A Soundwide system of reserves, consisting of the most significant and essential habi- tats, should be established. This should include des- ignation of existing reserves and the acquisition of fee title or easement of additional habitats as they are needed to complete the reserve system. Acquisition of identified priority sites would cost an estimated $30 mil- lion. The states of Connecticut and New York need to develop or enhance and fully fund long-term land conservation funds for acquisi- tions and as a match for the federal Land and Water Conservation Fund. In New York state, the Environmental Protection Fund enacted in 1993 can meet that need, provided that additional revenues are dedicated to the fund, and the Open Space Conservation Plan associated with the fund can guide acquisition activities. The Management Conference advocates a major revitalization of the federal Land and Water Conservation Fund, including enhancement of grants to states and acquisition of federal refuges. Local land trusts also need to be developed or enhanced to sup- plement a Soundwide reserve system. · ,'* Existing state and federal programs to restore and enhance tidal wet- lands and other habitats need to be enhanced. Intermodal Surface PresetYation of essential habitats intrinsic to long term protection of the Sound Transportation Efficiency Act funds and Long Island Sound Challenge Grant funds, among others, should be used for this purpose. Each state's fish and wildlife and coastal management programs need to develop a coordinated strategy to inventory and prioritize habitat restoration and enhancement needs, and to cooperatively implement restoration pro- grams using all available state and federal resources. Development of a strategy will require $700,000 per year in additional funding. The esti- mated cost of implementing habitat restoration and enhancement projects is $1.7 million. · ." Existing state and federal pro- grams to manage and restore popu- lations of har- vestable and endangered and threatened species need to be enhanced. Related manage- ment activities might include shellfish projects such as oyster cultch placement and shellfish seed stocking, artifi- cial reef develop- ment in New York state, and reestablishing migratory finfish passage in Connecticut. Enhancement of species management programs will require $1.76 million per year of additional funding. Implementation of projects benefitting species will cost approximately $1.4 million. Funding from sources such as the Sport Fish Restoration Act (The Dingell-Johnson and Wallop-Breaux Acts), the 1993 federal Atlantic Coast Interjurisdictional Fisheries Act, the Pittman-Robertson Aid in Wildlife Restoration Act, the Endangered Species Act, and the Marne Mammal Protection Act should be used for these activities. Benefits Implementing these actions along with the actions to improve water qual- ity discussed in the preceding sections should enhance prospects for a healthy ecosystem with balanced and diverse populations of indigenous plants and ani- mals, improved abundance and distribution of harvested species, and edible species suitable for unrestricted human consumption. Costs and Funding Successful imple- mentation of the plan is predominantly contin- gent upon the states and federal agencies receiv- ing, at a minimum, level funding for existing pro- grams associated with living resources and habitat management. New funding of approxi- mately $2.46 million per year is needed for living resources and habitat management program enhancements and $33.1 million is needed for liv- ing resources and habitat project implementation. The Management Conference recommends that $10 million of the recommended $50 mil- lion Long Island Sound Challenge Grant Program (as introduced in the Hypoxia section) be used for habitat acquisition and to initiate habitat restoration actions. Problem have often preferred to live near coastline to use and enjoy its abun- dant resources, and the areas surrounding Long Island Sound are no exception. As a result of the cumulative effects of human activity, the natural values of the Sound have been diminished. In many parts of the Sound's watershed, intensive develop- significantly altered the land and degraded the quality of waters flowing through it. Other areas are threat- ened by continuing development. Because the Sound is the ~sink" for a 16,000 square mile watershed, its water quality is closely fled to the ways in which the land is used and developed. Urban and suburban devel- opment has also resulted in the loss of natural habitats and has limited public access to the coast. The cause of the Probfem Water quality protection has often been neglected in land use policies, ~y management of cumulative or downstream impacts of land use that are difficult to predict. As population and development have increased, the 4o¢al land use planning and regulatory processes have fostered uses that, how- ~ver stmsible from a provincial or individual perspective, have cumulatively d~graded the Sound. Even where environmental impacts have been identified, solutions have, in some cases, generated secondary water quality For example, to replicate natural drainage efficiencies in urbanized ~ storm drain systems have been designed to discharge runoff as quickly As a result, contaminants in stormwater are rapidly discharged to and its upstream waters. Ignorance of the value of natural habitats resulted in their despoliation, ~ contributing to environmental problems. While existing habitat man- agem~t and regulatory programs have substantially improved protection and ta~omlion of tidal and freshwater wetlands, some natural habitats are still vul- tierabie to development. Also, despite a significant increase in the number of access areas, additional areas are needed. In return for paying for s to the Sound, the public is deserving of a more acces- for recreational purposes. :lear connection between past, present, and future land uses and the ?l~dth;of Long Island Sound has been established. Accordingly, the plan to the Sound must address not only the consequences of existing devel- How we use the land surrounding the Sound will effect water qucli~, opment, but the improved management of future uses through watershed- and resource-based planning. 2~t' Pli~tt to Solve tfte Probh, rtt In recognition of the importance of the relationship between land use and water quality, the Management Conference established a Land Use Work Group in February 1992. The group's purpose was to identify the ways land use and development affect Long Island Sound water quality and habitat, and to present recommendations to improve land use planning and management throughout the Sound's watershed. However, managing the impact of development is complex and often controversial because the Sound's large drainage area contains a population of nearly 8.5 million people, has many layers of authorities for managing land use, and contains varied and dispersed non- point sources of pollution such as urban runoff. Many of the actions presented in previous sec- tions that address water and habitat quality prob- lems involve land use decisions. Improved land planning and use are needed to support imple- mentation of those actions and to coordinate activities on the state, local, and federal levels and with the private sec- tot. The continued implementation of Connecticut's Coastal Zone Management Plan and New York's newly devel- oped Long Island Sound Coastal Management Plan will greatly improve land use management in the coastal zone. However, much still needs to be done to implement all aspects of these plans. Five areas were identified as critical to enhancing land planning and use to improve water quality, habitat protection, and public access throughout watershed. Recommendations were developed in each area. o.~ The impacts from existing development are significant, particularly in urbanized areas, and must be reduced to impmve coastal water quality. These areas should be targeted for nonpoint soume management, includ- ing public education, infrastructure upgrades, spill prevention and response, and flood and erosion control. Also, abandoned or underuti- lized sites should be a high priority for remediation and reuse. ~.o The impacts from new development are also significant and must be minimized to prevent further degradation of water quality. Progressive planning and management should ensure the application of best manage- ment practices, protect wetlands, minimize land disturbances, improve access, and maintain appropriate water-dependent uses. o.~ To improve land use decision making that incorporates effective water quality and habitat protection, better information, training, and technical assistance must be available. Training, technical assistance, and financ- ing should be made available to local governments, as well as education for the public, professionals, and trade organizations. This will help develop consistent land use and natural resource information and man- agement practices in the region. · :o Conservation of natural resources and open space is vital to the long-term protection of Long Island Sound. Open space preservation and conservation practices must be aggressively pursued. This might be accomplished through a watershed-based planning approach that inte- grates protection of surface waters with programs and plans that guide growth and development. o:o Public access is essential to public use and enjoyment of Long Island Sound, especially since improvements to water quality involve public costs. Public access improvements should be aggressively pursued throughout the watershed using a combination of traditional techniques, such as fee-simple acquisition, and innovative techniques, such as trans- fer of development rights and tax credits. ~i'Xt Ste?s Water quality and resource-based planning and management measures must be put into place throughout the watershed in a consistent and coordinat- ed manner. Through the Management Conference, efforts will continue. Specific actions and potential means to fund them will be identified, built upon the general recommendations presented above. "Public access should be aggressively pursued throughout the watershed..." The New York State Department of State has recently prepared a Long Island Sound Coastal Management Plan that sets out specific recommendations for guiding land use and development, ensuring public access to the shore, and protecting important habitats. The plan is consistent with the Long Island Sound Study plan and should be adopted by New York state. Connecticut's Coastal Management Program, adopted in 1980, contains many of the same provisions that are in the New York plan, including manda- tory requirements for public access at waterfront parcels. Implemented at the local level as a mandatory component of planning and zoning reviews, the Connecticut program has afforded fragile coastal natural resources greater pro- tection from development and has' added in excess of ten miles of public access since 1980. The Connecticut program should be maintained at current levels. Land use and development as it affects Long Island Sound is an unfin- ished agenda. Significant additional effort is required to determine the most appropriate means to effect change as well as to provide the funds needed to implement even the general recommendations presented in the plan. Additional analysis, new initiatives, and their costs must be underwritten by the federal government, the states of Connecticut and New York, local govern- ments, and the private sector. Mystic Seaport, now a historic reslora~zon, has rnazntained its character through the years The oharm of Old Mystio Village drcrws millions of tourists tram around the world, sections have discussed the nature and extent of the priority problems affecting the health of the Long Island Sound ecosystem. Commitments by federal, state, and local govern- ments that begin to resolve these problems have been presented along with recommendations to guide future actions. As a key component of plan development, the Management Conference was also directed to identify the means by which its implementation would be coordinated. The Management Conference has identified three areas that are critical to implementing the plan: ~ The Management Conference must be continued to maintain and improve communication and coordination among different units of gov- ernment, research and educational institutions, and concerned groups and individuals. ~, Public education about Long Island Sound must continue along with mechanisms to involve the public in continuing management efforts. ~, Adequate funding for the new and expanded efforts must be available and funding for existing programs that have been successful must be continued. Cotttinui~ ']t'ze £ottjt l s[atuf &m~td'~qt~d~ The states of Connecticut and New York, local governments, and the EPA have primary responsibility for implementing the plan. However, pro- tection of the Sound is the responsibility of all sectors of government, the private sector, and individual citizens. A framework is needed for coordinat- ing and redirecting efforts. ]Extending the Long Island Sound Study Management Conference to continue this cooperative effort will provide the long-term commitment nec- essary to oversee implementation. Therefore, the Long Island Sound Study Policy Committee has formally requested that the EPA Administrator extend the Management Conference. To accommodate this need, the Congress has passed the Long Island Sound Improvement Act of 1990, which gave the EPA authority to extend the Management Conference upon plan completion. The EPA should, upon plan approval, extend the Management Conference for a minimum of five years to oversee implementation of the plan. With adoption of the plan, the role of the Management Conference will shift from plan development to program implementation. Specifically, contin- uation of the Management Conference will provide a management framework to: nn Track, monitor, and report on program implementation; Incorporate new information to enhance implementation of actions; Develop additional commitments from participating agencies; Seek and advocate adequate funding; and Continue public involvement. These efforts will be summarized in a report every two years. The report will identify progress in implementing the plan, as well as any delays or obsta- cles to implementation; describe water quality conditions in the Sound and the effectiveness of management efforts to improve them; and recommend the redirection of efforts to meet the goals of the program. The Management Conference will continue to prepare fact sheets, articles, and newsletters to report on different aspects of the program. As part of the Long Island Sound Improvement Act, the EPA established a Long Island Sound Office. To serve the bi-state community, the office has two facilities, one located in Stamford, Connecticut and the other in Stony Brook, New York. The basic activities of the Long Island Sound Office are to: · ." Provide administrative support to the Management Conference and coordinate the EPA with other federal agency involvement in Long Island Sound issues; o:. Support state program coordination and involvement in the Management Conference; and °-*° Maintain public education and involvement efforts with an added focus on local government involvement. The cost associated with this base level of effort for the Management Conference is approximately $475,000 per year, of which $175,000 is for maintaining the Long Island Sound Office and providing support to the Management Conference, $150,000 is for state program coordination of imple- mentation, and $150,000 is for public involvement and education. Funding is available for these programs in fiscal year 1994 but will be required in future years. The Management Conference recommends that part of the funding be provided through Section 320 of the Clean Water Act. These funds can be used for activities such as monitoring and reporting on plan implementation. The Management Conference further recommends that additional funding be provided through the Long Island Sound Improvement Act. These funds can be used for all the activities cited above and any additional activities that would be instrumental in enhancing implementation of the plan. Section 320 of the Clean Water Act requires a non-federal match of 25 percent on all funds and the Long Island Sound Improvement Act requires a non-federal match of 50 percent. The states of Connecticut and New York should, at a minimum, ensure the availability of matching funds for all avail- able federal grants. involvement and 'Zducation Public involvement and education are essential to restoring and protect- ing Long Island Sound and will be fundamental to the successful implementa- tion of virtually every part of the plan. Public involvement and education also help the public understand, appreciate, and enjoy the Sound's resources and the benefits derived from them. An informed and educated public can help develop a united and organized constituency to galvanize support for the cleanup and protection of the Sound and its resources. The goal of public involvement and education is to promote an under- standing and appreciation of the Sound as a regional ecosystem and a national treasure and to provide feedback to the Management Conference on future direction. Six objectives have been developed to accomplish this goal. They are to: · ~ Build community awareness and appreciation of the Sound; · ~o Promote understanding of the Sound; 4° Promote individual involvement and management of Long Island Sound by supporting hands-on activities to clean up and restore the Sound; ~,~' Increase communication and cooperation between the public and the many groups involved with Long Island Sound protection, including the Management Conference; o~, Develop educational opportunities at all age levels; and 4, Secure funding for all public involvement activities proposed as part of the plan. Highlights of the actions for achieving the public involvement and edu- cation goal include: ~ The Management Conference Public Involvement and Education Program and the state public outreach programs will be continued. Collectively, these programs will provide consistency of information going to the public and ensure that the public receives current informa- tion on the implementation of the Management Conference actions and recommendations. ,~ The EPA and the states of Connecticut and New York will provide information to municipalities regarding the importance of Long Island Sound protection and restoration. Special attention will be given to coastal municipalities with briefings by state officials to explain how implementation of the plan will affect their cities or towns and to foster cooperation and partnership. Briefings will also be held for specific user groups, local officials, and elected representatives. ~, The Citizens Advisory Committee will continue to provide guidance to the Management and Policy Committees and to serve as a link between the public and the Management Conference. o:o The Management Conference will continue to encourage public partic- ipation in activities relating to the cleanup and protection of the Sound and provide support for activities including storm drain stenciling, beach grass planting, and beach cleanups. ~ The Management Conference will establish a public outreach work group to guide the implementation of the public involvement and educa- tion strategy. The work group will work closely with, and serve to com- plement, the ongoing public outreach and education efforts of the Citizens Advisory Committee. The group will also be charged with determining funding sources for implementing the strategy, consulting with staff on tactics, working to provide coordination of public outreach efforts from both an internal and external basis, and assessing program effectiveness. · ,'* The states of Connecticut and New York will continue to work with appropriate school districts in their states to develop Long Island Sound education materials and outreach programs for primary and secondary schools. These resources also will be made available for integration into other environmental education programs. · ~ The Management Conference will seek to create a public involvement and education (PIE) fund that could be supported by a variety of funding sources. Potential federal appropriations through the Long Island Sound Improvement Act could be used to create an endowment fund. The PIE fund would be administered by the Management Conference. A PIE fund, and interest generated from its endowment, would provide support for both non-governmental and governmental organizations for projects fulfilling the recommendations for education and involvement. Since current state and private Long Island Sound public education pro- grams are underfunded, the Management Conference recommends that addi- tional state and private funding sources be directed toward meeting the needs of existing programs before being sought for a PIE fund. The activities necessary to achieve the involvement and education goal would be undertaken by the states, the EPA, Sea Grant programs, and numer- ous other groups. In Connecticut, the budget for ongoing Long Island Sound related public outreach programs is approximately $100,000 annually. In addi- tion, Connecticut's High School Long Island Sound Research Grant Program provides $30,000 yearly to fund educational research programs on the Sound and, during calendar year 1993, the Long Island Sound License Plate Program spent $250,000 from the Long Island Sound Fund on education projects. The EPA Long Island Sound Office budget for public education and involvement is $150,000, discussed earlier as part of the base level of effort required for the Management Conference. Approximately $450,000 would be needed to fund the priority enhance- ments to current involvement and education programs and recommendations for new programs as stated in the plan. This includes support of enhanced Management Conference and state public outreach programs that will now focus on implementation of the management plan ($200,000 per year); the development and facilitation of public participation in Long Island Sound cleanup and monitoring activities ($100,000 per year); and the integration of Long Island Sound educational materials and curriculum into the New York state and Connecticut school systems ages K-12 ($150,000 per year). Furthermore, the Management Conference also recommends that seed money be made available for the establishment of a PIE fund. Support of public involvement and education is the best long-term investment that can be made to guarantee the successful restoration and protec- tion of Long Island Sound. Public support for the Sound is crucial to the con- tinuation and funding of Long Island Sound improvement programs and a sense of public responsibility, or stewardship, will lead to lifestyle changes that must occur to ensure a healthy Sound for future generations. SutntnatJt ~ q'li~n Costs at~d '~t undi:n~i The costs of cleanup efforts are significant. They include the costs of continuing existing programs, the costs of enhancing these programs, and the costs of project implementation such as upgrading sewage treatment plants or initiating practices to control nonpoint sources of pollution. Funding to cover these costs must be provided by the federal, state, and local governments and by the private sector, in partnership, with each paying its fair share. The prospects for achieving the Management Conference's goals and objectives, and the pace with which progress is made, will be directly related to the availability of adequate funding. Existing Program Funding The plan includes numerous commitments on the part of the NYSDEC, the CTDEP, the EPA, local governments, and other federal, state, and local agencies to continue the implementation of ongoing programs. At a minimum, these commitments require that existing program activities continue to be funded at existing levels by the states of Connecticut and New York and from federal grants. These funds that support statewide programs are the base upon which Long Island Sound protection efforts must build. As presented in Table lA of the Appendix, the total statewide appropria- tion in New York state for water quality protection, natural resource manage- ment, and coastal zone management is $39.8 million. Federal grants to New York state for these activities provide an additional $29.4 million statewide. As shown in Table lB of the Appendix, the total statewide appropriation in Connecticut for water quality protection, natural resource management, and coastal zone management is $8.7 million. Federal grants to Connecticut for these activities provide an additional $6.5 million statewide. Enhanced Program Funding The plan also includes commitments and recommendations for actions requiring additional program resources. The commitments are actions for which enhanced program resources have already been made available or for which there are firm obligations. The recommendations are actions that require additional funding that is not currently available. As summarized in Table 2 of the Appendix, the total cost of the plan's priority commitments is $3.25 million. The total cost of the plan's priority recommendations is $5.99 million per year. The total costs of implementing all of the Management Conference's commitments and recommendations are presented in the full plan. Project Implementation Funding The project implementation costs associated with the plan are large and are dominated by the potential cost of upgrading sewage treatment plants to remove nitrogen, the cost of remediating combined sewer overflows, and the cost of property acquisition (Table 3 of the Appendix). The capital costs of Phase II nitrogen reduction actions are $103.1 million in New York state and $18.1 million in Connecticut. The potential long-term costs are much higher. Based on preliminary estimates, the costs of the additional nitrogen control for point sources ranges from $5.1 to $6.4 billion in New York state and from $900 million to $1.7 billion in Connecticut. These costs would be in addition to the $243 million in Connecticut and $1.5 billion in New York state needed to implement the currently planned combined sewer overflow abatement pro- grams critical to reducing pathogens and floatable debris in the Sound. Using these cost estimates, the total capital need for the wastewater pro- gram in New York state for the next 20 years has been estimated to be $25 bil- lion; this includes $7 billion for the needs within the Long Island Sound drainage basin. The total capital need for the wastewater program in Connecticut for the next 20 years has been estimated to be $3.5 billion, almost all of which is for needs within the Long Island Sound drainage basin. The two states have concluded that the existing State Revolving Funds are the preferred vehicles for funding major capital projects for wastewater programs; substantial funds have already been obligated to the programs for project implementation (Table 4 of the Appendix). Based on the preliminary, high-cost hypoxia management scenario in this plan, the Connecticut State Revolving Fund needs an infusion of $70 million per year in federal funds and $47 million per year in state funds over 20 years to meet statewide needs, including Long Island Sound nutrient control needs. The New York State Revolving Fund needs an infusion of $623 million per year in federal funds and $128 million per year in state funds over 20 years to meet statewide needs, including Long Island Sound nutrient control needs. Cost estimates for the necessary level of control for nonpoint sources of nitrogen have not been developed but are expected to be substantial. Significant project implementation costs are also associated with the habitat-related commitments and recommendations. The total project costs for restoring habitat, creating reserves, and improving species management are $1.7 million, $30 million, and $1.4 million, respectively. Sources of Funding A number of funding sources must be targeted to help meet the need for enhanced program and project implementation funding. To fund project implementation, the Management Conference recom- mends that the Clean Water Act be reauthorized and that grants to the states to help capitalize their State Revolving Fund programs be continued. Following reauthorization of the Act, the Management Conference will formulate a detailed financial plan, consistent with authorized federal funding levels, to meet the total cost for plan implementation. The financial plan will include a specific focus on the ability of local governments to pay for required improve- ments. The states are committed to providing technical assistance to local gov- ernments in complying with the plan. To ensure that implementation of the management plan gets off to a good start, the Management Conference recommends that the Congress appropriate $50 million to fund a Long Island Sound Challenge Grant program. o.'o A significant portion of the funds would be used for point and non- point source nitrogen control actions that do not involve major capital improvements. Funds would be obligated for use within the individual nitrogen management zones in proportion to the load reduction targets. The entities responsible for achieving the nitrogen load reduction targets would submit applications for the funds to the states. The states would obligate funds for the most cost-effective projects. o:" The remaining portion of the funds would be used to support actions in other areas, such as habitat restoration and acquisition, stormwater abatement, and public access. Of this remaining portion, $10 million would be allocated to habitat restoration and acquisition. ,~o Funds would be awarded on a competitive basis, with eligibility limit- ed to projects that support implementation of the plan and go beyond the current legal or regulatory obligations of the recipients. To support program enhancements, the Management Conference recom- mends funding under the Long Island Sound Improvement Act, the targeting of other available federal Clean Water Act and Coastal Zone Management Act program funds, and the targeting of available state and local funds. While the primary focus of the Management Conference has been on programs and projects resulting from the Clean Water Act, there are other leg- islative initiati(,es and programs that affect the quality of Long Island Sound. This is particularly tree for programs to protect living resources and habitat. Continued support for and improvements in these programs will have direct benefits for the Sound. Programs that acquire land or easements include the Land and Water Conservation Fund, New York State's Environmental Protection Fund, and Section 318 of the Coastal Zone Management Act; pro- grams that restore habitat include the federal Intermodal Surface Transportation and Efficiency Act; and programs that manage species include the Sport Fish Restoration Act (the Dingell-Johnson and Wallop-Bmaux Acts), the 1993 federal Atlantic Coast Interjurisdictional Fisheries Act, the Pittman-Robertson Aid in Wildlife Restoration Act, the Endangered Species Act, and the Marine Mammal Protection Act. adist: J.H, Torrance Downes Table lA. Existing Program Funding Statewide~ in New York (in millions of dollars) Program Element State Federal Water Quality Management 8.72 12.20 Natural Resources Management 28.97 14.63 Coastal Zone Management 2.12 2.55 TOTAL 39.81 29.38 ~ These funds are for programs statewide. Long Island Sound is one of 17 drainage basins in New York State encompassing less than one percent of the area and approximately 23 percent of the population of the state. Table lB. Existing Program Funding Statewide~ in Connecticut (in millions of dollars) Element State I Federal Program Water Quality Management Permitting and enforcement 1.82 1.76 Water quality planning, standards, and monitoring 0.80 0.59 Nonpoint source management 1.00 1.42 LIS monitoring 0.052 0.29 Natural Resources Management Coastal structures, dredging permits 0.50 0.00 Aquaculture 0.45 0.00 Coastal zone management 1.00 1.00 Coastal fish and wildlife management 0.25 0.65 LIS research 1.37 0.00 Tidal wetlands restoration 0.60 0.80 Coves and embayments restoration 0.50 0.00 LIS education and outreach 0.383 0.00 TOTAL 8.72 6.51 ~ Almost all of the state is included in the Long Island Sound drainage basin. 2 Does not include $500,000 capital investment in research vessel and depreciation. ~ Includes $250,000 from the Long Island Sound License Plate Fund. Table 2. Priority Enhancements to Existing Program Funding (in dollars) Commitments Recommendations Program Element One Time Annual Hypoxia Complete LIS 3.0 Funded by the LISS -- Establish N-reduction targets Existing Program -- Redirection Develop zone-by-zone plans 1,000,000 700,000~ Monitoring/Modeling -- 400,0002 Toxic Substances Mon itori ng 200,000 315,000 Sediment remediation assessment 250,000 500,000 Pathogens Enforceable instruments 100,000 -- Vessel discharges 1,120,000 -- Site-specific surveys -- 300,000 Monitoring -- 10,000 Floatable Debris Clean Streets/Clean Beaches 100,000 -- Enhance beach cleanups -- 20,000 Storm drain stenciling -- 5,000 Living Resources and Habitat Habitat restoration strategy -- 700,000 Species management -- 1,760,000 Monitoring -- 150,000 Management Conference Coordination of Management Conference 175,000 175,000 by the LIS Office State coordination of implementation 150,000 150,000 Public involvement and education 150,000 150,000 Data Management and Reporting -- 200,000 Education Outreach on plan implementation -- 200,000 Public involvement in cleanup and -- 100,000 monitoring Integration of curriculum -- 150,000 TOTAL 3,245,000 5,985,000 ~ To develop zone-by-zone plans over three years. 2 Includes the annualized cost of recalibrating the LIS 3.0 model for new conditions every three years. Table 3. Project Implementation Funding Estimates (in millions of dollars) Program Element New York Connecticut Total Hypoxia Phase I1: point sources 103.10 18.10 121.20 Phase I1: nonpoint sources N/E~ N/E~ N/E' Phase II1: point sources 5,100.00- 900.00- 6,000.00- 6,400.00 1,700.00 8,100.00 Phase II1: nonpoint sources N/E~ N/E~ N/E~ Toxic Substances N/E2 N/E2 N/E2 Pathogens and Floatable Debris Stormwater/nonpoint sources N/E~ NIE~ N/E~ Combined sewer overflows 1,500.00 243.00 1,743.00 Living Resources and Habitat Restoration 0.95 0.75 1.70 Reserves 16.00 14.00 30.00 Species Management 0.40 1.00 1.40 ~ Not Estimated--The potential costs of implementing stormwater and nonpoint source control actions will depend on the site-specific assessments of conditions and the applicability of management controls. 2 Not Estimated--The cost of remediating sediments would be developed as part of the proposed harbor-specific characterization and feasibility studies. Table 4. Average Annual Obligations to the State Revolving Fund Program for Wastewater Treatment Statewide in New York and Connecticut (in millions of dollars) New York Connecticut Program Element State Federal State Federal Total 35.00 173.00 60.69 18.53 Wastewater Treatment -- -- 53.10 15.94 Combined Sewer Overflows -- -- 7.59 2.59 Back Cover Ad--Brenda C. Bull The U.S. Environmental Protection Agency Long Island Sou.ad Office Stamford Government Center 888 Washington Boulevard Stamford, Connecticu[ 06904-2152 EPA 842-S-94-001 ,EPA