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Minnesota River Basin Management Framework — The Strategy: Working within Watersheds

Overview

The MPCA began a basin management approach in three basins in 1996: the Minnesota River, Red River and Lake Superior basins. Its goals are to: 1) more clearly identify specific water-quality goals and priorities; 2) better integrate programs to address those goals and priorities; and 3) develop more effective partnerships with agencies, governments and organizations.

The basin approach rests on the following four principles: 1) focus on water resource priorities; 2) integration of point and nonpoint source pollutant reduction strategies; 3) an emphasis on achieving environmental outcomes; and 4) customer involvement by stakeholders at all levels in determing goals and priorities, and forging solutions.

In the Minnesota River Basin, this approach is being implemented at two levels: 1) basin-wide management of issues that are widespread in nature, and 2) management by major watershed to achieve improved focus and targeting to solve specific water quality problems. The MPCA is pursuing this two-pronged approach simultaneously, in partnership with the Minnesota River Basin Joint Powers Board and local, state and federal government agencies.

Basin-wide Activities

Several of the problems found in the Minnesota River Basin are widespread. Examples are sedimentation, bacterial contamination and phosphorus pollution. These problems appear throughout the basin, and originate from a multitude of point and nonpoint sources. A basin-wide approach often is the most efficient and practical way to address and solve these types of problems. This extends from basin-wide assessment, as with the Minnesota River Assessment Project, to the development of goals and strategies for widespread problems.

To support basin management, the MPCA is developing two sets of information:

1. A Basin Information Document. This contains information about the water resources of the basin, recent and historical assessments of surface and groundwater, land use descriptions and a listing of relevant programs and organizations.
2. Strategic Options for Pollutant Reduction. These include, for each of the pollutants of concern, a description of the problem, the range of potential solutions and programs available for implementing these solutions.

Concurrent with the the preparation of these documents, a basinwide approach is being taken to address a number of problems facing the Minnesota River:

The Minnesota River Basin Sediment Initiative. Sediment was identified by the Minnesota River Assessment Project as a basinwide concern. It was estimated that agricultural sources of sediment could be reduced by 40 percent through the widespread adoption of soil conservation practices such as residue management. Thus, MRAP established 40 percent as a basinwide goal for sediment reduction from agriculture. Subsequently, the University of Minnesota developed a series of Extension bulletins describing guidelines for reduced tillage within the Minnesota River basin. In addition, the Natural Resources Conservation Service (NRCS) and the MPCA helped to initiate statistically reliable measurements of surface crop residue. Local groups including NRCS, Soil and Water Conservation Districts, Extension and others conducted the crop residue transect survey in almost 30 counties in the basin. Basinwide, estimated rate of adoption of conservation tillage was 31 percent in 1995 and 44 percent in 1996. Analysis of water quality data in the Minnesota River at Mankato by the MPCA and the University of Minnesota indicate a substantial reduction in sediment concentration.

Phosphorus Reduction. Phosphorus has been identified as a widespread problem that originates from many point and nonpoint sources. The University of Minnesota has prepared a set of phosphorus management guidelines for farmers. Several educational programs are underway to help speed up the adoption of these recommended practices by farmers. On the point source side, the MPCA has developed an inventory of point source load estimates for the entire Minnesota River Basin. MPCA also is developing its policies regarding phosphorus discharges into rivers--the current state rule applies only to point source discharges that are to, or that affect, a lake or reservoir. The Metropolitan Council has begun to use biological phosphorus removal at three of its wastewater treatment plants: Blue Lake, Seneca and the Metro Plant. Initial results are very encouraging. MPCA is exploring ways to facilitate the transfer of this technology to other wastewater treatment plants in the basin.

Bacteria. For a large proportion of the stream reaches in the Minnesota River basin that are impaired, the reason for impairment is excessive concentration of pathogens, as indicated by the presence of fecal coliform. Primary sources of bacteria have been identified as livestock manure and inadequate septic systems. There is as yet no basin-wide approach to the bacteria problem. However, statewide, both the feedlot and septic issues have received increased attention, and resources, at the state and county level. Some of the most active counties in addressing these issues are in the Minnesota River Basin. Thus, although a basin-wide strategy has not formally been adopted to deal with bacteria, many of the elements required to develop such a program have been developed.

River-Friendly Farmer Program. In addition to pollutant-specific basinwide approaches, several such approaches target a specific sector which contributes several types of pollution to the Minnesota River. The River-Friendly Farmer program is an example of this type of approach. It gives public recognition to farmers who satisfy 10 criteria related to farm management and water quality, ranging from erosion control to nutrient and pesticide management. These 10 criteria embody the most important agricultural best management practice (BMP) recommendations from the MRAP report. Thus, its support by counties in the Minnesota River Basin help to promote these BMPs basinwide.

Restoring Impaired River Reaches. Monitoring data on the water quality of streams and rivers throughout the Minnesota River Basin has been used to identify many impaired reaches. In these reaches, excess pollution prevents the water from being used for its designated uses, such as the support of healthy aquatic life, recreational activities such as swimming and boating, and occasionally for drinking water. This list is called the 303(d) list, because Section 303(d) of the Clean Water Act requires that States identify water quality limited segments which do not or are not expected to meet water quality standards with technology based controls on wastewater treatment plants alone.

Through MPCA's basin management approach, local citizens and organizations in each major watershed of the basin will be informed about the presence of impaired reaches within their watersheds. They will be asked to help to MPCA to prioritize the segments it intends to focus on by developing and implementing refined load allocations as part of its watershed management process. This will enable MPCA to consider the 303(d) list and the severity of those problems together with other concerns and priorities, such as the protection of high quality waters which do not appear on the 303(d) list. Where appropriate, the Total Maximum Daily Load (TMDL) process will be used to allocate pollutant loads and accelerate the implementation of identified solutions.

The EPA is considering a policy to require completion of TMDLs on reaches listed under 303(d) within a fixed period, such as 8-13 years, together with development of a schedule for implementation (not actual implementation) within that timeframe. The MPCA intends to comply with updating the 303(d) list every two years, but intends to approach TMDLs through basin management as described above.

Five Steps to Basin Management

1. Basin management starts with data compilation and analysis to identify impaired water bodies and their stressors within a basin.

2. It then engages concerned citizens within the basin in determining which of the impaired water bodies should receive priority attention.

3. Additional monitoring and modeling are conducted as necessary to assess which sources are contributing to the problem, and by how much their pollutant loadings could be reduced. A full range of stakeholders, representing point and nonpoint sources, citizens and environmental groups, need to be fully involved to ensure that this stage results in shared goals for water quality improvement rather than in simply a technical allocation of the pollutant load among sources.

4. The next step is to develop strategies for achieving shared water quality goals through point and nonpoint source load reductions. This will be accomplished through a wide range of programs, ranging from point source permitting to feedlot management to wetland restoration. Again, participation by affected parties will help to ensure that strategies are carried out, and are consistent with local and regional goals.

5. Finally, through additional monitoring, it is determined whether and to what extent shared goals for priority water bodies have been met. Based on the results, priorities, goals and strategies are modified, and basin management progresses to its next five-year cycle.

More Information

For questions about the Minnesota River Basin management framework, contact Norm Senjem at 507-206-2655.