S U M M A R Y AND CONCLUSIONS INTRODUCTION

The Canada-United S t a t e s Agreement on Great Lakes Water Q u a l i t y s igned a t O t t a w a , A p r i l 15, 1972, by t h e P r e s i d e n t of t h e United States and t h e Prime M i n i s t e r of Canada, reques ted t h e I n t e r n a t i o n a l J o i n t Commission (IJC) t o conduct a s tudy of p o l l u t i o n of t h e boundary waters of t h e Great Lakes System from a g r i c u l t u r a l , f o r e s t r y and o t h e r land use ac t iv i t i e s . A s a r e s u l t , a n intensive i n q u i r y w a s conducted by t h e I n t e r n a t i o n a l Reference Group on Great Lakes P o l l u t i o n from Land U s e Activit ies (PLUARG), e s t a b l i s h e d by t h e I J C .

The scope of t h i s i n q u i r y was broader than previous Great Lakes s t u d i e s conducted under t h e sponsorsh ip of t h e Commission. The e n t i r e land area, as w e l l as t h e water, i n t h e b a s i n w a s s t u d i e d . The b a s i n t o t a l s 755,200 km2 (295,000 mi') i n area, w i t h 538,900 km2 (200,000 mi2) of land and 216,300 km' (95,000 mi2) of water s u r f a c e area. The Great Lakes c o n t a i n approximately 20 p e r c e n t of t h e wor ld ' s f r e s h s u r f a c e water supply. U n t i l r e c e n t l y , t h e Great Lakes have been viewed as a v i r t u a l l y i n e x h a u s t i b l e supply of h igh q u a l i t y water. However, i n c r e a s i n g popula t ion , advancing technology and i n t e n s i f y i n g water and land u s e i n t h e b a s i n have caused water p o l l u t i o n .

The Pollution From Land Use Activit ies Reference Group

1

The 37 m i l l i o n Canadians and United S t a t e s c i t i z e n s l i v i n g i n t h e b a s i n , t h e i n d u s t r i a l h e a r t l a n d of bo th n a t i o n s , gene ra t e a major p o r t i o n of t h e i r two c o u n t r i e s ' g r o s s n a t i o n a l products . are an in te rconnec ted system, each b a s i n is unique i n terms of i t s limnology, t h e socio-economic c h a r a c t e r i s t i c s of i t s communities, t h e types and degrees of p o l l u t i o n and t h e k inds of c o n t r o l measures r equ i r ed .

Although t h e Great Lakes

PLUARG confirmed and s tud ied two major p o l l u t i o n problems i n t h e Great Lakes Basin: eu t roph ica t ion , due t o e l eva ted n u t r i e n t i n p u t s , p a r t i c u l a r l y i n t h e lower l akes , E r i e and Ontar io ; and i n c r e a s i n g contaminat ion by t o x i c subs tances . While t h e Great Lakes themselves are a f o c a l p o i n t of concern and clean-up e f f o r t s , i t became apparent dur ing t h e PLUARG s t u d i e s t h a t they are p a r t of t h e complex system of t h e Great Lakes Basin. Future e f f o r t s should recognize t h a t t h e i n t e r a c t i o n s of climate wi th t h e land and i t s use exert a major i n f luence on t h e Great Lakes.

P a s t s t u d i e s ("Report t o t h e I n t e r n a t i o n a l J o i n t Commission on t h e P o l l u t i o n of Lake E r i e , Lake Ontar io and t h e I n t e r n a t i o n a l Sec t ion of t h e S t . Lawrence River , 1969") i n d i c a t e d t h a t c u r r e n t cond i t ions i n t h e l a k e s could n o t be r e l a t e d e n t i r e l y t o p o l l u t a n t l oad ings from r e a d i l y i d e n t i f i a b l e p o i n t sources . These s t u d i e s i n d i c a t e d t h a t f o r l a k e s Erie and Ontar io , r e s p e c t i v e l y , 30 and 43 percen t of t h e t o t a l phosphorus load w a s due t o sources o t h e r than municipal sewage t rea tment p l a n t and i n d u s t r i a l e f f l u e n t s .

I n a t t empt ing t o q u a n t i f y and d e s c r i b e nonpoint sources of p o l l u t i o n , PLUARG reviewed and s tud ied t h e p o l l u t i o n p o t e n t i a l of several land use a c t i v i t i e s . These inc luded a g r i c u l t u r e , urban, f o r e s t r y , t r a n s p o r t a t i o n and waste d i s p o s a l , as w e l l as n a t u r a l p rocesses such as l akeshore and r ive rbank e ros ion . PLUARG a l s o examined atmospheric d e p o s i t i o n of materials on land and w a t e r s u r f a c e s . P i l o t watershed s t u d i e s w e r e e s t a b l i s h e d and monitor ing programs i n i t i a t e d t o f u r t h e r d e f i n e t h e r e l a t i o n s h i p between l and u s e act ivi t ies and water q u a l i t y .

D i f f u s e source p o l l u t a n t s are n o t der ived uniformly from whole watersheds o r even sub-basins. p ropor t ion of a d ra inage b a s i n area. c r i te r ia f o r t h e i d e n t i f i c a t i o n of p o t e n t i a l c o n t r i b u t i n g areas and w i t h i n t h e s e , t h e most hydro log ica l ly active areas, those zones most l i k e l y t o produce w a t e r p o l l u t i o n from land use activities.

Problem areas may r e p r e s e n t on ly a small A s a r e s u l t , PLUARG has developed

I n seeking s o l u t i o n s t o most problems of p o l l u t i o n from land u s e a c t i v i t i e s , i t i s important t o recognize several th ings : term n a t u r e ; ( 2 ) t h e i r r a m i f i c a t i o n s through most s e c t o r s of s o c i e t y ; ( 3 ) t h e need t o invo lve many agenc ie s i n t h e i r implementation; and ( 4 ) t h e i r p u b l i c consequences i n such p o l i c y areas as food product ion , housing and p u b l i c h e a l t h .

(1) t h e i r long

2

Popula t ion growth and l o c a t i o n , i n d u s t r i a l development and t echno log ica l i n n o v a t i o n ' w i l l a l l have impacts on t h e load ings of p o l l u t a n t s t o t h e l a k e s from land use ac t iv i t ies . These f a c t o r s w i l l a f f e c t bo th t h e need f o r nonpoint source c o n t r o l and t h e a b i l i t y t o c o n t r o l some of t h e s e sources . g iven c u r r e n t technology, p o l l u t a n t i n p u t s from p o i n t sou rces w i l l undoubtedly cont inue t o grow. The f i n i t e c a p a c i t y of t h e l a k e s t o accep t t h e s e i n p u t s must be recognized. Appropr ia te p o l l u t a n t loading t a r g e t s must be e s t a b l i s h e d , and proper monitor ing programs must be undertaken t o q u a n t i f y t h e s e loads and i n s u r e t h a t t h e l a k e s c a p a c i t y i s no t exceeded.

A s popula t ion grows and i n d u s t r i a l development con t inues ,

E f f e c t i v e s t r a t e g i e s a t t h e i n t e r n a t i o n a l , n a t i o n a l and l o c a l level must be developed t o cope wi th t h e s e f a c t o r s , s i n c e they t ranscend j u r i s d i c t i o n a l and p o l i t i c a l boundaries . F l e x i b l e management systems and c o n t r o l measures capable of incrementa l ad jus tments i n response t o a changing environment w i l l be r equ i r ed . A s w e l l , ques t ions of e q u i t y must be taken i n t o account and a formula a r r i v e d a t f o r t h e reasonable a l l o c a t i o n of r e s p o n s i b i l i t y between governments, i n s t i t u t i o n s and i n d i v i d u a l s . Above a l l , i t is e s s e n t i a l t o recognize t h a t t h e management of nonpoint sources w i l l r e q u i r e a dramat ic d e p a r t u r e from t h e t r a d i t i o n a l approach followed f o r t h e c o n t r o l of p o i n t sources .

COPKLUS IONS The I n t e r n a t i o n a l J o i n t Commission i n s t r u c t e d t h e I n t e r n a t i o n a l

Reference Group on P o l l u t i o n of t h e Great Lakes from Land U s e A c t i v i t i e s t o i n q u i r e i n t o and r e p o r t on t h r e e ques t ions :

1. by land drainage (including ground and surface runoff and sediment) from agriculture, forestry, urban and industrial land development, recreational and parkland development, utility and transportation systems and natural sources?"

"Are the boundary waters of the Great Lakes System being polluted

PLUARG f i n d s t h a t t h e Great Lakes are being po l lu t ed from land dra inage sources by phosphorus, sediments , some i n d u s t r i a l o rgan ic compounds, some previous ly used p e s t i c i d e s and, p o t e n t i a l l y , some heavy me ta l s , as i n d i c a t e d i n t h e fol lowing. t a b l e .

Phosphorus loads from land d ra inage and atmospheric d e p o s i t i o n c o n t r i b u t e t o both s u r f a c e o f f s h o r e and nearshore w a t e r q u a l i t y problems r e l a t e d t o eu t roph ica t ion . Depending on t h e magnitude of t h e p o i n t source loads , PLUARG es t imated t h a t t h e combined land d ra inage and atmospheric i n p u t s t o i n d i v i d u a l Great Lakes ranged from 32 percen t (Lake Ontar io) t o 90 pe rcen t (Lake Super ior ) of t h e t o t a l phosphorus

3

PROBLEM SOURCES N e a r s h o r e o r ' DIFFUSE L o c a l i z e d Land Runoff 4 Atmosphere In-Lake S e d i m e n t s POINT

POLLUTANT -

Phosphorus ' Yes Yes Yes Yes y e s a Y e s

Sedimentb ' ' No Yes YesC N e g l i g i b l e Under some N e g l i g i b l e C o n d i t i o n s

I B a c t e r i a of No Y e s Minor No NO Yes P u b l i c H e a l t h Concern I

P C B s ' Yes Yes Yes Yes Y e s Yes

P e s t i c i d e s ' Yese y e s e Yes Yes Yes No

d

( P a s t )

I n d u s t r i a l 1 O r g a n i c s Yes Yes Yes Yes Y e s Yes

I

REMARKS

a p e r c e n t a g e unknown; n o t c o n s i d e r e d s i g n i f i c a n t o v e r a n n u a l c y c l e

'may c o n t r i b u t e t o problems o t h e r t h a n water q u a l i t y ( e . g . , h a r b o r d r e d g i n g ) i n c l u d i n g s t r e a m b a n k e r o s i o n C .

d l a n d r u n o f f i s a p o t e n t i a l , b u t m i n o r s o u r c e ; combined sewer o v e r f l o w s g e n e r a l l y more s i g n i f i c a n t

esome r e s i d u a l problems e x i s t f rom p a s t p r a c t i c e s

Yes Minor L- Mercurv ' Yes Yes Yes -.

Yes Yes Yes p o s s i b l e m e t h y l a t i o n t o t o x i c form

- N i t r o g e n SO No g Yes Yes Minor

C h l o r i d e so N O Yes N e g l i g i b l e No h

P e s t i c i d e s i ( P r e s e n t ) No No Yes No No

O t h e r Heivy P o t e n t i a l f P o t e n t i a l f Yes Y e s Yes

A s b e s t o s J No Yes No ? Yes

Metals

Yes k o m e i n l a n d g r o u n d w a t e r problems

Yes hsome l o i a l p roblems e x i s t i n n e a r s h o r e a r e a s due t o p o i n t s o u r c e

i Yes new p e s t i c i d e s have been found i n t h e

e n v i r o n m e n t ; c o n t i n u e d m o n i t o r i n g i s r e q u i r e d

Yes

Yes ' s e e l.p;cr Lakes R e f e r e n c e Group R e p o r t

V i r u s e s k / No Data A v a i l a b l e Yes

Acid P r e c i p i t a t i o n No Nom 1 NO Yes No N o

i b e t t e r d e t e c t i o n methods needed

ma p o t e n t i a l p roblem f o r smaller, s c f t water , i n l a n d l a k e s

l o a d s (excluding s h o r e l i n e e r o s i o n ) . Phosphorus l o a d s i n 1976 exceeded t h e recommended t a r g e t l o a d s i n a l l l a k e s . w i l l b e s u f f i c i e n t a t t h e p r e s e n t t i m e t o m e e t t h e t a r g e t l o a d s o n l y i n l a k e s Super ior and Michigan, and southern Lake Michigan may need f u r t h e r measures.

P o i n t source c o n t r o l programs

Sediment a f f e c t s t h e Great Lakes System p r i m a r i l y as a carrier of phosphorus and o t h e r p o l l u t a n t s , and thereby i t c o n t r i b u t e s t o t h e o v e r a l l p o l l u t i o n of t h e l a k e s . s i l t a t i o n of f i s h h a b i t a t and s i l t a t i o n of d r a i n a g e channels , harbors and bays which can n e c e s s i t a t e expensive dredging.

Sediment a f f e c t s nearshore areas through

Toxic subs tances such as PCBs have been found t o g a i n access t o t h e Great Lakes System from d i f f u s e sources , e s p e c i a l l y through atmospheric d e p o s i t i o n . Through land dra inage , r e s i d u e s of prev ious ly used organochlor ine p e s t i c i d e s ( e .g . , DDT) are s t i l l e n t e r i n g t h e boundary waters i n s u b s t a n t i a l q u a n t i t i e s . levels i n f i s h t i s s u e s . Curren t ly used p e s t i c i d e s do n o t appear t o pose problems.

Amounts have s i g n i f i c a n t l y dec l ined as shown by d e c l i n i n g

Mercury has been d e t e c t e d i n f i s h t i s s u e s i n a l l t h e l a k e s . A cont inuous bui ldup of l ead i n t h e sediments of t h e Great Lakes h a s a l s o been noted. I n l i g h t of t h e p o t e n t i a l f o r t h e methyla t ion of l e a d , t h i s poses a p o t e n t i a l problem of unknown dimensions. Lead e n t e r s t h e Great Lakes System i n s u b s t a n t i a l q u a n t i t i e s through atmospheric d e p o s i t i o n . It is be l ieved t h a t much mercury e n t e r s t h e system i n a s i m i l a r manner, a l though t h i s h a s n o t been v e r i f i e d .

Microorganisms e n t e r t h e Great Lakes System from d i f f u s e sources , r e s u l t i n g i n l o c a l i z e d problems a f f e c t i n g some nearshore waters.

While i n many cases i t is d i f f i c u l t t o a s c r i b e p o l l u t i o n ( i . e . , v i o l a t i o n of a s p e c i f i c e x i s t i n g o r proposed water q u a l i t y o b j e c t i v e ) t o any p a r t i c u l a r land use, i t i s important t o n o t e t h a t i t i s t h e cumulative e f f e c t of a v a r i e t y of land u s e ac t iv i t i e s t h a t u l t i m a t e l y c o n t r i b u t e s t o p o l l u t i o n of t h e G r e a t Lakes.

2. to what extent, by uhat causes, and in what localities is the pollution taking pzace?"

"If the answer to the foregoing question is in the affirmative,

PLUARG f i n d s t h a t t h e l a k e s most a f f e c t e d by phosphorus and t o x i c subs tances are E r i e and Ontar io . microorganisms and sediment are seen i n such areas as Green Bay, Saginaw Bay, southern Georgian Bay, Lake S t . Clair , t h e Bay of Quinte , and t h e s o u t h s h o r e r e d c l a y area of Lake Superior .

Local problems a s s o c i a t e d w i t h phosphorus,

5

Intensive a g r i c u l t u r a l o p e r a t i o n s have been i d e n t i f i e d as t h e major d i f f u s e source’ c o n t r i b u t o r of phosphorus. The fol lowing table i n d i c a t e s t h e re la t ive l o a d i n g of phosphorus t o each l a k e from t h e i n d i c a t e d land uses .

37

26

23

GREAT LAKES PHOSPHORUS LOADS

5 3

30

50

Lake

66

66

Super i o r

Michigan

HurQn

Erie

Ontar io

21

1 9

To t a l Loada

( m e t r i c t o n s / y r )

4 ,200

6 , 3 5 0

4 , 8 5 0

1 7 , 4 5 0

11,750

Atmo s p h e r i c Load

(percent of t o t a l l oad )

To t a l D i f f u s e T r i b u t a r y

Load (percent of t o t a l l oad )

4

4

4 8

28

E s t i m a t e d Cont r ibu t ions of Major Land Uses t o D i f f u s e T r i b u t a r y Loads (percent of d i f f u s e load ) A r i c u l t u r e Urban

i;, F o r e s t & Other

86

1 7

20

13 15

a 1976 load rounded o f f t o n e a r e s t 50 metr ic tons

Erosion from crop product ion on f i n e - t e x t u r e d s o i l s and from urbaniz ing areas, where l a r g e scale land developments have removed n a t u r a l ground cove r , w e r e found t o he t h e main sources of sediment. Urban runoff and atmospheric d e p o s i t i o n were i d e n t i f i e d a s t h e major c o n t r i b u t o r s of t o x i c subs tances from nonpoint sources .

The most important land- re la ted f a c t o r s a f f e c t i n g t h e magnitude of p o l l u t i o n from land use a c t i v i t i e s i n t h e Great Lakes Basin were found t o be s o i l type, l and use i n t e n s i t y and materi.als usage. For example, i n t e n s i v e a g r i c u l t u r a l a c t i v i t i e s such as row cropping ( e . g . , growing co rn , soybeans and vegetables) on s o i l s with f i n e t e x t u r e s ( i . e . , h igh c l a y c o n t e n t ) c o n t r i b u t e d t h e g r e a t e s t amounts of phosphorus. Areas of h i g h phosphorus loading from i n t e n s i v e a g r i c u l t u r a l a c t i v i t i e s i n c l u d e northwestern Ohio and southwestern Ontar io .

Mercury i n t h e Great Lakes i s a s s o c i a t e d w i t h sediment and, i n

Other s o u r c e s inc lude municipal and l a r g e measure, r e f l e c t s “ in- lake” r e d i s t r i b u t i o n of t h i s material from p a s t i n d u s t r i a l p o i n t sources . i n d u s t r i a l waste water d i s c h a r g e s and atmospheric d e p o s i t i o n of unknown dimensions, which h a s r e s u l t e d i n s i g n i f i c a n t t r i b u t a r y loadings throughout t h e Great Lakes watershed. Highest l o a d i n g s were observed i n Lake E r i e .

6

D i v e r s i o n s , t e r r a c e s , waterways and con tour s t r i p c r o p p i n g are major mechanica l p r a c t i c e s t h a t keep s o i l and p o l l u t a n t s a s s o c i a t e d w i t h i t ou t of t h e water. (USDA - S o i l Conse rva t ion S e r v i c e )

E ighty- f ive t o ninety-nine pe rcen t of t h e l ead i n t h e Great Lakes e n t e r s from nonpoint sources . The h ighes t l oad ings are found i n l a k e s E r i e and Michigan. emiss ions and e n t e r s t h e Great Lakes through t r i b u t a r y and atmospheric i npu t s .

Lead i s mainly a s s o c i a t e d wi th v e h i c u l a r

Loadings of organic subs tances (e .g . , PCBs ) e n t e r t h e Great Lakes via t r i b u t a r i e s and atmospheric depos i t i on . emissions, i n d u s t r i a l and municipal p o i n t sources and urban d i f f u s e sources .

Main sources are atmospheric

3 . "If the Group should f ind that pollution of the character j u s t referred to is taking pZace, what remedia2 measures wouZd, i n i t s judgement, be most practicable and what would be the probable cost thereof ?It

PLUARG f i n d s t h a t t h e remedying nonpoint source p o l l u t i o n w i l l be n e i t h e r s imple nor inexpensive. Nonpoint sources of water p o l l u t i o n are c h a r a c t e r i z e d by t h e i r wide v a r i e t y and l a r g e numbers of sources , t h e seemingly i n s i g n i f i c a n t n a t u r e of t h e i r i n d i v i d u a l c o n t r i b u t i o n s , t h e damaging e f f e c t of t h e i r cumulat ive impact, t h e i n t e r m i t t e n t n a t u r e of t h e i r i npu t s , t h e complex set of n a t u r a l p rocesses a c t i n g t o modify them and t h e v a r i e t y of s o c i a l and economic i n t e r a c t i o n s which a f f e c t them.

7

PLUARG does n o t f avor across-the-board measures f o r nonpoint source p o l l u t i o n c o n t r o l . areas on a p r i o r i t y b a s i s and then a p p l i e s t h e most p r a c t i c a b l e c o n t r o l means f o r any p a r t i c u l a r source. which inc lude a number of c o n s i d e r a t i o n s which have n o t been comprehensively addressed i n p a s t p o i n t source c o n t r o l programs. have been i d e n t i f i e d : (1) informat ion , educa t ion and t e c h n i c a l assistance; (2) planning; (3) f i s c a l arrangements; and ( 4 ) r e g u l a t i o n .

In s t ead i t recommends a methodology which d e f i n e s problem

Management p l ans must be formulated

Four major components

I n a d d i t i o n , t h e s u c c e s s f u l implementation of t h e s e management p l a n s w i l l r e l y heav i ly on t h e i n t e r e s t , concern and a c t i o n of i n d i v i d u a l members of s o c i e t y .

D i f f e rences i n water q u a l i t y between and w i t h i n l a k e s are t h e b a s i s f o r r e q u i r i n g d i f f e r e n t degrees of management i n d i f f e r e n t watersheds. A s a r e s u l t , implementation programs should be emphasized i n those areas of t h e b a s i n where w a t e r q u a l i t y i s t h e most degraded, o r where a need t o p re se rve h igh q u a l i t y waters is i d e n t i f i e d . Remedial program p r i o r i t i e s must then be based on t h e degree t o which t h e p o l l u t a n t can be c o n t r o l l e d .

A b a s i c t o o l f o r e s t ima t ing t h e level and l o c a t i o n of management r equ i r ed i n p o t e n t i a l p o l l u t a n t c o n t r i b u t i n g areas i s t h e i d e n t i f i c a t i o n of t h e most hydro log ica l ly a c t i v e areas (HILA). These are land areas t h a t c o n t r i b u t e d i r e c t l y t o ground and/or s u r f a c e waters, even dur ing minor p r e c i p i t a t i o n and snow-melt even t s , because of t h e i r proximity t o streams o r a q u i f e r r echa rge areas. The s i z e of hydro log ica l ly a c t i v e areas v a r i e s , being a f u n c t i o n of land u s e and management, s lope , i n f i l t r a t i o n ra tes and s o i l mo i s tu re conten t .

Developed urban areas, because of t h e i r h igh ly impervious, connected s u r f a c e area and t h e e x t e n s i v e a l t e r a t i o n of t h e i r n a t u r a l hydrology, have l a r g e hydro log ica l ly a c t i v e areas. Many developing urban areas are e i t h e r w i t h i n a hydro log ica l ly act ive area o r on a stream which is t r i b u t a r y t o one. t o i n s u r e t h e c o n t r o l of sediment and a s s o c i a t e d p o l l u t a n t s .

Thus, s p e c i a l a t t e n t i o n must be g iven t o t h e s e areas

I n a g r i c u l t u r a l areas, s o i l conse rva t ion techniques can reduce e r o s i o n and runoff of sediment and t h e a s s o c i a t e d contaminants from hydro log ica l ly act ive areas.

i t i s necessary t o p r o t e c t t h e most hydro log ica l ly active areas i n o rde r t o avoid water q u a l i t y problems. A common p r a c t i c e has been t h e maintenance of b u f f e r s t r i p s a long open w a t e r courses . a c t i v e areas i s important f o r s i t i n g s o l i d and l i q u i d waste d i s p o s a l

I n some t imber and pulpwood h a r v e s t i n g o p e r a t i o n s ,

Locat ion of t h e most hydro log ica l ly

8

f a c i l i t i e s . d e l i v e r y , b u t a l s o groundwater contaminat ion. S imi l a r concerns are important f o r l o c a t i n g d i s p o s a l areas f o r mine t a i l i n g s .

This is p e r t i n e n t when cons ide r ing n o t on ly s u r f a c e water

:ed S t a t e s

Urban Rural Nonpoint Nonpoint

Source Source

7.5 2.5 3 4 . 0 12.5

6.5 Minimal 48.0 I 15.0

The minimum es t imated annual c o s t s t o ach ieve recommended phosphorus t a r g e t l o a d s are presented i n t h e fo l lowing t a b l e . costs are i n addition t o those o f established Great Lakes Water Quality Agreement programs and are based only on economic estimates. To adhere t o t h e t a r g e t loads , i t w i l l b e necessary t o a d j u s t programs t o ba lance t h e e f f e c t s of popu la t ion growth and o t h e r changes.

These estimated

Canada

Po in t Urban Rura l Source Nonpoint Nonpoint

Source Source

1 .0 0.5 1 .5 1.5 2.5 10.0 5.0 7.5 Minimal 7.5 10.5 11.5

ESTIMATED MINIMUM ANNUAL COSTS TO ACHIEVE PHOSPHORUS TARGET LOADS

: T o t a l costs

m i l l i o n s of d o l l a r s

P o i n t Source

Lake I’ Southern Huron 2.5 E r i e Ontar io TOTAL

15.5 69.5 21.5

106.5 a Condi t iona l on Lake Erie t a r g e t load being m e t , i n o r d e r t o reduce t h e annual

Niagara River phosphorus inpu t by 1,200 m e t r i c t ons .

I n a d d i t i o n t o t h e foregoing conclus ions , t h e I n t e r n a t i o n a l Reference Group on Great Lakes P o l l u t i o n from Land U s e A c t i v i t i e s concludes t h e fo l lowing as to:

“the adequacy of existing programs and control rneasuxes”

Though broad l e g i s l a t i v e a u t h o r i t y , which could be cons t rued as covering p o l l u t i o n from d i f f u s e sources , e x i s t s a t state, p r o v i n c i a l and l o c a l l e v e l s , s p e c i f i c l e g i s l a t i o n o r r u l e s may be necessary t o enable implementation of remedial programs. Some states have a l r e a d y enacted such s p e c i f i c l e g i s l a t i o n , wh i l e o t h e r s are c u r r e n t l y a t t e h p t i n g enactment. I n t h e United States. t h e 1972 and 1977 amendments t o t h e Federa l Water P o l l u t i o n Cont ro l A c t p rovide t h e mechanism f o r t h e planning and f i s c a l a s p e c t s of nonpoint source p o l l u t i o n c o n t r o l . The 1977 amendments a l s o improve t h e sediment c o n t r o l programs by providing a s s i s t a n c e on a p r i o r i t y water q u a l i t y related b a s i s .

9

Properly maintained grassed waterways reduce erosion. (USDA - Soil Conservation Service)

Federa l p e s t i c i d e c o n t r o l l e g i s l a t i o n i n both c o u n t r i e s i s deemed t o be adequate a t p r e s e n t .

F e d e r a l l e g i s l a t i o n and c o n t r o l programs now i n development c u r r e n t l y appear t o be adequate t o reduce and e v e n t u a l l y e l i m i n a t e d i s c h a r g e s of t o x i c subs tances .

The l e g i s l a t i o n and/or c o n t r o l programs and measures concerning l a n d f i l l s , deep w e l l d i s p o s a l and f o r e s t r y o p e r a t i o n s , where boundary waters are a f f e c t e d , are considered adequate a t p r e s e n t . These land u s e s are n o t deemed t o c o n t r i b u t e s i g n i f i c a n t l y t o t h e p o l l u t i o n of t h e Great Lakes. However, local problems re lated to these a c t i v i t i e s can occur .

Atmospheric i n p u t s d i r e c t l y t o t h e l a k e s c o n s t i t u t e a s u b s t a n t i a l p o r t i o n of t h e t o t a l l o a d s of phosphorus and o t h e r p o l l u t a n t s . The q u a n t i t i e s of t h e s e p o l l u t a n t s being depos i ted on l and , and subsequent ly reaching t h e l a k e s as a r e s u l t of m i g r a t i o n over o r through t h e s o i l , are only p a r t i a l l y known a t p r e s e n t .

The level of awareness about p o l l u t i o n from nonpoint sources among Great Lakes Basin r e s i d e n t s , is inadequate a t p r e s e n t . Control of nonpoint s o u r c e s w i l l r e q u i r e a l l b a s i n r e s i d e n t s t o become involved i n

1 0

reducing t h e g e n e r a t i o n of p o l l u t a n t s through conserva t ion p r a c t i c e s . Improved planning and t e c h n i c a l assistance are p r e r e q u i s i t e s t o long term s o l u t i o n s of land d r a i n a g e problems.

A b e t t e r d e f i n i t i o n of p o l l u t i o n i n t h e Great Lakes i s r e q u i r e d . PLUARG found t h a t t r a d i t i o n a l y a r d s t i c k s , such as water q u a l i t y o b j e c t i v e s o r s tandards , w e r e i n s u f f i c i e n t f o r adequate ly e v a l u a t i n g t h e impact of d i f f u s e o r nonpoint sources t o t h e Great Lakes. i n themselves produce v i o l a t i o n s of water q u a l i t y o b j e c t i v e s . However, i n combination w i t h o t h e r sources , they can c o n t r i b u t e t o t h e o v e r a l l p o l l u t i o n of t h e Great Lakes.

These sources may n o t

The p u b l i c c o n s u l t a t i o n panels suggested t h a t no a d d i t i o n a l l a y e r s of government be introduced and t h a t p r e s e n t governments more c l e a r l y d e f i n e t h e i r o b j e c t i v e s regard ing p o l l u t i o n c o n t r o l . A renewed commitment and b e t t e r d e f i n i t i o n of r o l e s of agencies are r e q u i r e d t o maximize t h e u t i l i t y of e x i s t i n g measures.

A wealth o f ' da ta c u r r e n t l y e x i s t s i n v a r i o u s i n s t i t u t i o n s throughout t h e bas in . Increased e f f o r t s must be made t o assess and ana lyze t h e s e d a t a . Due t o i t s d i s p e r s a l , i t s a v a i l a b i l i t y and p o t e n t i a l u s e f u l n e s s i s r e s t r i c t e d . Current d a t a s t o r a g e and re t r ieva l mechanisms have been found t o be inadequate and r e q u i r e s u b s t a n t i a l improvement t o i n s u r e e f f i c i e n t access.

P a s t Great Lakes r e s e a r c h e f f o r t s have, f o r t h e most p a r t , been piecemeal and without un i fy ing o b j e c t i v e s . Future s t u d i e s on t h e Great Lakes would be of g r e a t e r v a l u e i f they were more h o l i s t i c i n n a t u r e . The r e l a t i o n s h i p t o t h e Great Lakes System should be considered as a n i n t e g r a l p a r t of new s t u d i e s .

Greater emphasis must be placed on t h e s tudy of t h e nearshore areas and c o a s t a l zones of t h e Great Lakes. Few comprehensive s t u d i e s have been completed i n t h e s e areas; y e t , they are most a f f e c t e d by man's a c t i v i t i e s .

PLUARG has c o n t r i b u t e d new information on t h e b i o l o g i c a l a v a i l a b i l i t y of heavy metals but h a s n o t been a b l e t o s a t i s f a c t o r i l y r e s o l v e q u e s t i o n s concerning t h e a v a i l a b i l i t y of phosphorus, heavy metals and t o x i c organic subs tances o r t h e i r t ransmiss ion from d i f f e r e n t land use ac t iv i t i e s t o t h e Great Lakes.

Immediate a t t e n t i o n must be given t o determining whether t h e Great Lakes ecosystem can main ta in i t s d e s i r a b l e c h a r a c t e r i s t i c s of d i v e r s i t y , r e s i l i e n c e and s t a b i l i t y when i t i s changed by man. c a p a c i t y of t h e Great Lakes System t o handle w a s t e l o a d s i s r e q u i r e d SO t h a t t o l e r a b l e l o a d s can be prescr ibed .

Knowledge of t h e

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The most hydrologically active areas in the Great Lakes Basin must be more clearly identified. provided for through proper land use management, and remedial measures applicable to such areas must be developed.

Future protection of such areas must be

The potential for Great Lakes pollution from the disposal of radioactive and other toxic wastes is of concern. Unless safe, permanent disposal systems are found for the increasing quantities of exotic and radioactive wastes being produced, hazardous wastes disposal may be a major future problem in the Great Lakes Basin.

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RE CO M M EN DATlO NS

DEVELOPMENT OF MANAGEMENT PLANS

PLUARG RECOMMENDS MANAGEMENT PLANS, STRESSING SITE-SPECIFIC APPROACHES, TO REDUCE LOADINGS OF PHOSPHORUS, SEDIMENTS AND TOXIC SUBSTANCES DERIVED FROM AGRICULTURAL AND URBAN AREAS, BE PREPARED BY THE APPROPRIATE JURISDICTIONS WITHIN ONE YEAR AFTER THE INTERNATIONAL JOINT COMMISSION'S RECOMMENDATIOhS ARE TRANSMITTED TO THE GOVERNMENTS. PLUARG FURTHER RECOMMENDS THAT A MUTUALLY SATISFACTORY SCHEDULE FOR THE REDUCTION OF NONPOINT SOURCE LOADINGS BE ANNEXED TO THE REVISED GREAT LAKES WATER QUALITY AGREEMENT.

MANAGEMENT PLANS SHOULD INCLUDE:

(i>

( i i )

( i i i )

( iv)

(VI

(Vi)

(v i i )

( v i i i )

PLANNING

A TIMETABLE INDICATING PROGRAM PRIORITIES FOR THE IMPLEMENTATION OF THE RECOMMENDATIONS;

AGENCIES RESPONSIBLE FOR THE ULTIMATE IMPLEMENTATION OF PROGRAMS DESIGNED TO SATISFY THE RECOMMENDATIONS:

FORMAL ARRANGEMENTS THAT HAVE BEEN MADE TO INSURE INTER- AND INTRA-GOVERNMENTAL COOPERATION;

THE PROGRAMS THROUGH WHICH THE RECOMENDATIONS WILL BE IMPLEMENTED BY FEDERAL, STATE AND PROVINCIAL LEVELS OF GOVERNMENT;

SOURCES OF FUNDING;

ESTIMATED REDUCTION IN LOADINGS TO BE ACHIEVED:

ESTIMATED COSTS OF THESE REDUCTIONS; AND

PROVISION FOR PUBLlC REVIEW.

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(i) INSURING THAT DEVELOPMENTS AFFECTING LAND ARE PTANNED TO MINIMIZE THE INPUTS OF POLLUTANTS TO THE GREAT I.AK:ES; AND

(ii) .INSURING THAT PLANNERS ARE AWARE OF AND CONSIDER PLUARG FINDINGS IN THE DEVELOPMENT AND REVIEW OF LAND USE PLANS.

FISCAL ARRANGEMENTS

PLUARG RECOMMENDS THAT A REVIEW OF FISCAL ARRANGEMENTS BE UNDERTAKEN TO DETERMINE WHETHER PRESENT ARRANGEMENTS ARE ADEQUATE TO INSURE EFFECTIVE AND RAPID IMPLEMENTATION OF PROGRAMS TO CONTROL NONPOINT POLLUTION. SUCH A REVIEW SHOULD INCLUDE:

(i) DETERMINATION OF THE AVAILABILITY OF GRANTS, LOANS, TAX INCENTIVES, COST-SHARING ARRANGEMENTS AND OTHER FISCAL MEASURES;

(ii) DETERMINATION OF WHETHER OR NOT THE TERMS OF FINANCIAL ASSISTANCE PROGRAMS ARE SUFFICIENT TO ENCOURAGE WIDESPREAD PARTICIPATION; AND

(iii) DETERMINATION OF THE EXTENT TO WHICH VARIOUS FINANCIAL ASSISTANCE PROGRAMS ARE CONDITIONAL UPON THE IMPLEMENTATION OF NONPOINT SOURCE CONTROLS.

INFORMATION, EDUCATION AND TECHNICAL ASSISTANCE

PLUARG RECOMMENDS THAT GREATER EMPHASIS BE GIVEN TO THE DEVELOPMENT AND IMPLEMENTATION OF INFORMATION, EDUCATION AND TECHNICAL ASSISTANCE PROGRAMS TO MEET THE GOALS OF THE GREAT LAKES WATER QUALITY AGREEMENT. THIS EMPHASIS SHOULD INCLUDE:

(i) DEVELOPMENT OF BROAD PROGRAMS, THROUGH SCHOOL SYSTEMS, THE MEDIA AND OTHER PUBLIC INFORMATION SOURCES, DESCRIBING THE ORIGINS AND IMPACTS OF POLLUTANTS ON THE GREAT LAKES AND ALTERNATIVE STRATEGIES THAT SHOULD BE FOLLOWED BY THE PUBLIC AND GOVERNMENT AGENCIES TO PREVENT WATER QUALITY DEGRADATION;

(ii) INITIATION OF MORE SPECIFIC PROGRAMS TO IMPROVE THE AWARENESS OF IMPLEMJINTORS AND THOSE WORKING IN AND FOR GOVERNMENT, EMPHASIZING THE NEED FOR THE FURTHER CONTROL AND ABATEMENT OF NONPOINT POLLUTION; AND

(iii) STRENGTHENING AND EXPANDING EXISTING TECHNICAL ASSISTANCE AND EXTENSION PROGRAMS DEALING WITH THE PROTECTION OF WATER QUALITY, INCLUDING RURAL AND URBAN LAND MANAGEMENT PRACTICES.

REGULATION

PLUARG RECOMMENDS:

(i) THAT THE ADEQUACY OF EXISTING AND PROPOSED LEGISLATION BE ASSESSED TO INSURE THERE IS A SUITABLE LEGAL BASIS FOR THE

14

ENFORCEMENT OF NONPOINT POLLUTION =DIAL MEASURES IN THE EVENT THAT VOLUNTARY APPROACHES ARE INEFFECTIVE; AND

(ii) THAT GREATER EMPHASIS BE PLACED ON THE PREVENTATIVE ASPECTS OF LAWS AND REGULATIONS DIRECTED TOWARD CONTROL OF NONPOINT POLLUTION.

IMPLEMENTATION OF MANAGEMENT PLANS

REGIONAL PRIORITIES

PLUARG RECOMMENDS THAT REGIONAL PRIORITIES FOR IMPLEMENTING MANASEMENT PLANS DEVELOPED BY THE JURISDICTIONS BE BASED UPON:

(i> THE WATER QUALITY CONDITIONS WITHIN EACH LAKE;

(ii) THE POTENTIAL CONTRIBUTING AREAS (PCA) IDENTIFIED BY PLUARG; AND

(iii) THE MOST HYDROLOGICALLY ACTIVE AREAS (HAA) FOUND WITHIN THESE POTENTIAL CONTRIBUTING AREAS.

CONTROL OF PHOSPHORUS

PLUARG RECOMMENDS THAT PHOSPHORUS LOADS TO THE GREAT LAKES BE REDUCED BY IMPLEMENTATION OF POINT AND NONPOINT PROGRAMS NECESSARY TO ACHIEVE THE INDIVIDUAL LAKE TARGET LOADS SPECIFIED BY PLUARG.

IT IS FURTHER RECOMMENDED THAT ADDITIONAL REDUCTIONS OF PHOSPHORUS TO PORTIONS OF EACH OF THE FIVE GREAT LAKES BE IMPLEMENTED TO REDUCE LOCAL NEARSHORE WATER QUALITY PROBLEMS AND TO PREVENT FUTURE DEGRADATION.

CONTROL OF SEDIMENT

PLUARG RECOMMENDS THAT EROSION AND SEDIMENT CONTROL PROGRAMS BE IMPROVED AND EXPANDED TO REDUCE THE MOVEMENT OF FINE-GRAINED SEDIMENT FROM LAND SURFACES TO THE GREAT LAKES SYSTEM.

15

CONTROL OF TOXIC SUBSTANCES

PLUARG RECOMMENDS THE FOLLOWING ACTIONS BE TAKEN TO REDUCE INPUTS OF TOXIC SUBSTANCES TO THE GREAT LAKES:

CONTROL OF TOXIC SUBSTANCES AT THEIR SOURCES;

CLOSER COOP.ERATION OF BOTH COUNTRIES IN THE IMPLEMENTATION OF TOXIC SUBSTANCES CONTROL LEGISLATION AND PROGRAMS;

PROPER MANAGEMENT AND ULTIMATE DISPOSAL OF TOXIC SUBSTANCES PRESENTLY IN USE ;

IDENTIFICATION AND MONITORING OF HISTORIC AND EXISTING SOLID WASTE DISPOSAL SITES WHERE THERE IS AN EXISTING OR POTENTIAL DISCHARGE OF TOXIC SUBSTANCES, AND THE IMPLEMENTATION OF CONTROL PROGRAMS AT THOSE SITES AS NEEDED; AND

JOINT EXPANSION OF EFFORTS TO ASSESS THE CUMULATIVE AND SYNERGISTIC EFFECTS OF INCREASING LEVELS OF THESE CONTAMINANTS ON ENVIRONMENTAL HEALTH AND THE RAPID TRANSLATION OF THESE ASSESSMENTS INTO REFINED WATER QUALITY OBJECTIVES, OTHER ENVIRONMENTAL OBJECTIVES AND, WHEREVER POSSIBLE, TOLERABLE LOADS. FOR CERTAIN TOXIC SUBSTANCES, A ZERO LOAD WILL BE NECESSARY.

CONTROL OF MICROORGANISMS

PLUARG RECOMMENDS THAT EPIDEMIOLOGICAL EVIDENCE BE EVALUATED TO ESTABLISH APPLICABLE MICROBIOLOGICAL CRITERIA FOR BODY CONTACT RECREATIONAL USE OF WATERS RECEIVING RUNOFF FROM URBAN AND AGRICULTURAL SOURCES.

PRINCIPAL LAND USES OF CONCERN:

AGRICULTURAL LAND USE

PLUARG RECOMMENDS THAT AGENCIES WHICH ASSIST FARMERS ADOPT A GENERAL PROGRAM TO HELP FARMERS DEVELOP AND IMPLEMENT WATER QUALITY PLANS.

THIS PROGRAM SHOULD INCLUDE:

(i) A SINGLE PLAN DEVELOPED FOR EACH FARM, WHERE NEEDED;

(ii) CCNSIDERATION OF ALL POTENTIAL NONPOINT SOURCE PROBLEMS RELATED TO AGRICULTURAL PRACTICES, INCLUDING EROSION, FERTILIZER AND PESTICIDE USE, LIVESTOCK OPERATIONS AND DRAINAGE; AND

A PLAN COMMENSURATE WITH THE FARMERS' ABILITY TO SUSTAIN AN ECONOMICALLY VIABLE OPERATION.

(iii)

16

Gentle s i d e s lopes and w e l l e s t ab l i shed vege ta t ion p r o t e c t water q u a l i t y in t h i s creek. (USDA-Soil Conservation Service)

URBAN LAND USE

PLUARG RECOMMENDS THE DEVELOPMENT OF MANAGEMENT PLANS FOR CONTROLLING URBAN STORMWATER RUNOFF. THESE PLANS SHOULD INCLUDE:

(i) PROPER DESIGN OF URBAN STORMWATER SYSTEMS IN DEVELOPING AREAS SUCH THAT THE NATURAL STREAM FLOW CHARACTERISTICS ARE MAINTAINED; AND

(ii) PROVISION FOR SEDIMENT CONTROL IN DEVELOPING AREAS, AND CONTROL OF TOXIC SUBSTANCES FROM COMMERCIAL AND INDUSTRIAL AREAS.

WETLANDS AND FARMLANDS

PLUARG RECOMMENDS THE PRESERVATION OF WETLANDS, AND THE RETENTION FOR AGRICULTURAL PURPOSES OF THOSE FARMLANDS WHICH HAVE THE LEAST NATURAL LIMITATIONS FOR THIS USE.

LOCAL PROBLEM AREAS

PLUARG RECOMMENDS THAT THE INTERNATIONAL JOINT COMMISSION, THROUGH THE GREAT LAKES REGIONAL OFFICE, INSURE THAT LOCAL LEVELS OF GOVERNMENT ARE MADE AWARE OF THE AVAILABILITY OF PLUARG FINDINGS, ESPECIALLY AS THEY RELATE TO LOCAL AREA PROBLEMS, TO ASSIST THEM IN DEVELOPING AND IMPLEMENTING NONPOINT SOURCE MANAGEMENT PROGRAMS.

17

REVIEW AND EVALUATION OF MANAGEMENT PLAN IMPLEMENTATION

REVIEW OF IMPLEMENTATION

PLUARG RECOMMENDS:

(i) THE INTERNATIONAL JOINT COMMISSION INSURE REGULAR REVIEW OF PROGRAMS UNDERTAKEN FOR THE IMPLEMENTATION OF RECOMMENDATIONS ARISING FROM THIS REFERENCE; AND

(ii) THAT NONPOINT SOURCE INTERESTS BE REPRESENTED DURING THESE REVIEWS.

SURVEILLANCE

PLUARG RECOMMENDS THAT TRIBUTARY MONITORING PROGRAMS BE EXPANDED TO IMPROVE THE ACCURACY OF LOADING ESTIMATES OF SEDIMENT, PHOSPHORUS, LEAD AND PCBs. SAMPLING PROGRAMS:

(i) SHOULD BE BASED ON STREAM RESPONSE CHARACTERISTICS, WITH INTENSIVE SAMPLING OF RUNOFF EVENTS, WHERE NECESSARY; AND

(ii) SHOULD BE EXPANDED TO INCLUDE TOXIC ORGANIC COMPOUNDS, TOXIC METALS AND OTHER PARAMETERS AS MAY BE DEFINED IN THE FUTURE.

FURTHER, THE ROLE OF ATMOSPHERIC INPUTS SHOULD BE CONSIDERED IN THE EVALUATION OF GREAT LAKES POLLUTION, WITH SPECIAL CONSIDERATION GIVEN TO DETERMINATION OF THE SOURCES OF MAJOR ATMOSPHERIC POLLUTANTS.

EFFORTS SHOULD BE MADE TO IMPROVE THE COORDINATION BETWEEN DATA COLLECTION AND DATA USER GROWS, AND TO ESTABLISH AGREEMENTS REGARDING DATA COLLECTION STANDARDS AND ACCESSIBILITY.

PLUARG FURTHER RECOMMENDS THAT THE ADEQUACY OF UNITED STATES GREAT LAKES NEARSHORE AND OFFSHORE WATER SURVEILLANCE EFFORTS BE EXAMINED.

Developing urban areas s h o u l d be sodded ( a s i n t h e area a t t h e l e f t ) , a t t h e earliest o p p o r t u n i t y , t o p r e v e n t sed iment l o s s e s . (Environment Canada - B u r l i n g t o n )

18

ROLE OF THE PUBLIC

PLUARG RECOMMENDS THAT THE INTERNATIONAL JOINT COMMISSION ESTABLISH A COMPREHENSIVE PUBLIC PARTICIPATION PROGRAM AT THE OUTSET OF FUTURE REFERENCES.

Sanitary landfills should be monitored to detect and deal with toxic substances losses should they occur. (Environment Canada - Burlington)

19