Clean Water Council FY 22-23 Clean Water Fund and Policy Recommendations Report

Biennial Report to the Legislature December 1, 2020

lr-cwc-1sy20 LEGISLATIVE CHARGE AND COUNCIL MEMBERSHIP

Minn. Stat. § 114D.30, Subd. 7, of the Clean Water Legacy Act (CWLA) requires the Clean Water Council (Council) to submit a biennial report to the Legislature by December 1 of each even-numbered year. The CWLA also requires the Council to recommend to the Governor and the Legislature the manner in which money from the Clean Water Fund should be appropriated for the purposes stated in Article XI, Section 15, of the Minnesota Constitution and Minn. Stat. § 114D.50.

Voting Members Appointed by the Governor • John Barten, Lakes & Streams Non-Profit, Chair, Policy Committee • Steven Besser, Fishing Organizations • Pamela Blixt, Watershed Districts, Vice-Chair • Richard Brainerd, City Governments • Gary Burdorf, Township Officers • Warren Formo, Farm Organizations • Kelly Gribauval-Hite, Business Organizations • Rylee Hince, Environmental Organizations • Robert Hoefert, Farm Organizations • Frank Jewell, County Governments-Rural, Chair • Jen Kader, Environmental Organizations • Holly Kovarik, Soil and Water Conservation Districts, Vice-Chair, Budget & Outcomes Committee • Raj Rajan, Business Organizations • Victoria Reinhardt, County Governments, Seven County Metro Area, Vice-Chair, Policy Committee • Todd Renville, Hunting Organizations, Chair, Budget & Outcomes Committee • Patrick Shea, City Governments • Jordan Vandal, Tribal Governments Non-Voting Members Appointed by State Agencies & the University of Minnesota Board of Regents • Kevin Bigalke, Board of Water and Soil Resources • Tannie Eshenaur, Minnesota Department of Health • Jason Moeckel, Minnesota Department of Natural Resources • Jeff Peterson, University of Minnesota • Whitney Place, Minnesota Department of Agriculture • Glenn Skuta, Minnesota Pollution Control Agency • Phillip Sterner, Metropolitan Council Non-Voting Members Appointed by the Legislature • Rep. Patty Acomb, Minnesota House of Representatives • Sen. Karla Bigham, Minnesota Senate • Rep. Josh Heintzeman, Minnesota House of Representatives • Sen. Carrie Ruud, Minnesota Senate

Council Administrator and Principal Author: Paul Gardner Council Administrative Support: Brianna Frisch www.pca.state.mn.us/cleanwatercouncil Graphic Design: Maureen McIlhargey, Momentum Design, Inc.

The Clean Water Council printed this report in limited quantities. The report is available in alternative formats upon request and online at www. pca.state.mn.us/cleanwatercouncil. This report was printed on 100% post consumer recycled content paper manufactured without chlorine or chlorine derivatives. Estimated cost to prepare this report (as required by Minn. Stat. §3.197) was $9500, which includes agency staff time, printing costs, and graphic design. MPCA document number (lr-cwc-1sy20)

2 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations TABLE OF CONTENTS

Legislative Charge and Council Membership 2 Glossary 4 Introduction 5 Statutory Guidance 5 Surface Waters 6 Drinking Water 7 The Value of the Clean Water Fund 8 Funding Recommendations 10 Recommendations Process 10 Uncertainty 11 Pass-Through 13 Program Reductions 13 Policy Recommendations 19 Chloride Reduction: De-Icer 20 Chloride Reduction: Water Softening 21 Disclosure of Well Water Quality at Time of Sale 22 Highlighted Programs 24 Drinking Water 24 Enhanced Compliance 26 Technical Assistance 26 Grants 28 Economic Benefits 29 Monitoring & Assessment 30 Combined Efforts with Other Dedicated Funds, Federal Funds, etc. 31 How Does the State Measure Progress and Provide Oversight? 32 Statutory Requirements 32 Fishable, Swimmable, Drinkable Standard 32 Strategic Indicators 33

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 3 GLOSSARY

1W1P – One Watershed, One Plan, also known as LGU – Local Government Unit Comprehensive Watershed Management Plan LiDAR – Light Detection and Ranging AgBMP – Agricultural Best Management Practices MAWQCP – Minnesota Agricultural Water Quality AMT – Alternative Management Tools Certification Program AOC – St. Louis River Area of Concern MDA – Minnesota Department of Agriculture BMP – Best Management Practices MDH – Minnesota Department of Health BOC – Budget and Outcomes Committee Met Council – Metropolitan Council BWSR – Board of Water and Soil Resources Minn. – Minnesota Ch. – Chapter MPCA – Minnesota Pollution Control Agency Council – Clean Water Council MS4 – Municipal Separate Storm Sewer Systems CEC – Contaminants of Emerging Concern NPDES – National Pollution Discharge Elimination System CREP – Conservation Reserve Enhancement Program NRS – Nutrient Reduction Strategy CWA – Clean Water Act (federal) PFA – Public Facilities Authority CWC – Clean Water Council PFAS – Per- and Perfluoroalkyl Substances CWF – Clean Water Fund PSIG – Point Source Implementation Grants CWLA – Clean Water Legacy Act RUSLE2 – Revised Universal Soil Loss Equation DNR – Minnesota Department of Natural Resources SSTS – Subsurface Sewage Treatment System DWSMA – Drinking Water Supply Management Area Stat. – Statute FGI – Forever Green Initiative Subd. – Subdivision FY – Fiscal Year Subp. – Subpart GRAPS – Groundwater Restoration and Protection Strategies SWCD – Soil and Water Conservation District IBI – Index of Biological Integrity TMDL – Total Maximum Daily Load ICT – Interagency Coordination Team UMN – University of Minnesota LCC – Legislative Coordinating Commission WRAPS – Watershed Restoration and Protection Strategies

4 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations INTRODUCTION

The Clean Water Fund (CWF) uses 1/3 of the sales tax revenue (a) The Clean Water Council shall recommend to the increase approved by Minnesota voters in 2008 through governor and the legislature the manner in which money the Clean Water, Land, and Legacy Amendment to the from the clean water fund should be appropriated for the State Constitution. The Clean Water Council is charged with purposes stated in article XI, section 15, of the Minnesota recommending how the Clean Water Fund should be used Constitution and section 114D.50. (Minn. Stat. 114D.50), and the Legislature considers these (b) The council's recommendations must: recommendations as it appropriates funding. (1) be to protect, enhance, and restore water quality in lakes, rivers, and streams and to protect groundwater from The Clean Water Fund was created to improve water quality degradation and ensure that at least five percent of the in ways that are beyond the state’s existing funding capacity. clean water fund is spent only to protect drinking water The result has been a comprehensive statewide approach that sources; prioritizes, targets, and measures results for improved water (2) be consistent with the purposes, policies, goals, and quality. priorities in this chapter; and (3) allocate adequate support and resources to identify degraded groundwater and impaired waters, develop TMDLs, implement restoration of groundwater and impaired Statutory Guidance waters, and provide assistance and incentives to prevent The statute governing the Clean Water Fund specifies these groundwater and surface waters from becoming degraded purposes (Minn. Stat. 114D.50): or impaired and improve the quality of surface waters which are listed as impaired but have no approved TMDL. (a) The clean water fund may be spent only to protect, (c) The council must recommend methods of ensuring enhance, and restore water quality in lakes, rivers, and that awards of grants, loans, or other funds from the streams, to protect groundwater from degradation, and to clean water fund specify the outcomes to be achieved as protect drinking water sources by: a result of the funding and specify standards to hold the (1) providing grants, loans, and technical assistance to public recipient accountable for achieving the desired outcomes. agencies and others testing waters, identifying impaired Expenditures from the fund must be appropriated by law. waters, developing total maximum daily loads, implementing restoration plans for impaired waters, and evaluating the In response, the Clean Water Council has recommended effectiveness of restoration; spending over several biennia that creates a comprehensive (2) supporting measures to prevent surface waters from approach to accomplish the objectives in statute. becoming impaired and to improve the quality of waters that are listed as impaired, but do not have an approved total maximum daily load addressing the impairment; (3) providing grants and loans for wastewater and storm water treatment projects through the Public Facilities Authority; (4) supporting measures to prevent the degradation of groundwater in accordance with the groundwater degradation prevention goal under section 103H.001; and (5) providing funds to state agencies to carry out their responsibilities, including enhanced compliance and enforcement. (b) Funds from the clean water fund must supplement traditional sources of funding for these purposes and may not be used as a substitute.

State law (Minn. Stat. 114D.30) also specifies what type of spending the Clean Water Council must recommend.

Lake Pepin

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 5 INTRODUCTION

Surface Waters The State has used a watershed-based approach to improving or protecting the quality of Minnesota surface waters. It adheres to the Minnesota Water Management Framework developed in 2014.

Figure 1: Water Management Framework

The red arrow emphasizes the important connection between state water programs and local water management. Local partners are involved—and often lead—in each stage in this framework.

Identifying What’s Wrong (or Healthy) with the Water: Monitoring, Assessment, and Characterization State agencies and local government partners test the state’s surface waters in our 80 major watersheds. They determine initial water quality, assess water quality compared to the state’s water quality standards to determine if waters are supporting their goals or are impaired, and evaluate other factors impacting water quality such as land use. This initial intensive baseline monitoring approach has been completed in a ten-year cycle that ended in 2019. This funding also supports some evaluation of the presence and levels of contaminants of emerging concern in the state’s surface waters. (Monitoring is covered in detail later in the report.)

6 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations INTRODUCTION

Blueprint for Improvement: Watershed • The Public Facilities Authority receives Clean Water Fund support for water treatment facility upgrades through the Restoration and Protection Strategies Point Source Implementation Grant (PSIG) program. The Minnesota Pollution Control Agency (MPCA), working with local water resource managers, develops a blueprint for each watershed (called a Watershed Restoration and Protection Measurement and Evaluation Strategy, or WRAPS) that identifies what actions will be required The MPCA has now begun a targeted second ten-year to meet water quality goals and how much those actions will monitoring cycle using a reduced set of monitoring sites and a cost. The MPCA also determines Total Maximum Daily Loads strategy to measure progress for projects completed during the (TMDLs) for contaminants in water. process listed above.

Prioritizing Projects: One Watershed One The State estimated in a 2014 Road Map report that as a result of these and other activities, 70 percent of Minnesota waters Plan will be “swimmable” and 67 percent will be “fishable” by 2034 The Board of Water and Soil Resources (BWSR) supports local when the Legacy Amendment expires. The 2020 Clean Water government partners in each major watershed to develop Fund Performance Report shows that 64 percent of waters are a comprehensive watershed management plan under the currently swimmable and 61 percent are fishable. One Watershed One Plan program. These plans identify local concerns which, along with strategies in the WRAPS, guide funding priorities. Drinking Water Minnesota’s approach to protecting drinking water sources has Funding the Priorities: Implementation been comprehensive and often coincides with the watershed- The Clean Water Fund provides financial support via BWSR for based approach for surface waters. priority projects in the comprehensive watershed management plan. The CWF has also supported capacity building for A more detailed description of how Clean Water Fund programs local governments to implement projects (“accelerated protect and restore sources of drinking water can be found later implementation”) as well as competitive grants to watersheds in the report. that do not yet have an approved plan (“projects and practices”).

The CWF is also a source of funds for “protection” strategies Gathering Groundwater and Drinking Water such as easements that maintain or improve water quality Information: Monitoring, Assessment, and through less intensive land use. “Restoration” projects help Characterization waterways and surrounding land mimic natural functions for The state compiles data on our groundwater, both quality and improved water quality. quantity, from multiple sources that work together to provide a comprehensive picture. This includes county geologic and The DNR, MDA, and MDH provide technical assistance to groundwater atlases from the Minnesota Geological Survey landowners and local governments to ensure project success. and the DNR, respectively. In addition, the DNR also maintains a network of aquifer level monitoring wells. The Minnesota The Clean Water Fund supports implementation in several other Department of Agriculture samples for pesticides and nitrate in ways that are mentioned later in the report: private wells in areas with vulnerable groundwater and analyzes pesticides statewide with some of the most sophisticated • The CWF funds the MPCA subsurface sewage treatment laboratory capability in the country. MPCA monitors system (SSTS) enhanced compliance program to improve groundwater quality in non-agricultural parts of the state. MDH septic system performance. develops health-based guidance for selected contaminants • The MPCA also leads the St. Louis River Area of Concern that are anticipated to be found in state’s waters and federally (AOC) program to clean up the Duluth-Superior Harbor and regulated, as well as contaminants that are not regulated by the the area upstream. federal government. • A group of local governments in St. Louis County use the CWF to reduce the amount of sewage entering Voyageurs National Park.

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 7 INTRODUCTION

Blueprint for Improvement: Drinking Water • Accurate data and information, such as that provided by the MPCA’s intensive watershed monitoring approach and Source Protection Planning water quality models, is needed to support development The Minnesota Department of Health works with public water of effluent limits and other discharge permit requirements. suppliers to develop plans to protect community drinking water Permit holders such as municipal wastewater treatment wells. MDH funds many of the activities required to fulfill the plants rely on accurate data and information to make plans ensuring the wells are protected indefinitely. appropriate investments to meet the requirements in discharge permits. Regulatory agencies may need to be Watershed-Based Planning: Groundwater more conservative, resulting in more expensive fixes, if Restoration and Protection Strategies accurate information is lacking. • State agencies only had the funding to sample a small An interagency team led by MDH completes Groundwater amount of the state’s waters infrequently, and impaired Restoration and Protection Strategies (GRAPS) that align with waters in response to complaints, before the Legacy the MPCA’s Watershed Restoration and Protection Strategies Amendment. They could not determine in most places (WRAPS). The GRAPS identify which steps need to happen to which waters were healthy and in need of protection, or protect groundwater in major watersheds. The GRAPS assist in see if protection and restoration efforts were working. the development of Comprehensive Watershed Management This resulted in long delays to develop and issue discharge Plans (One Watershed One Plan). permits and ultimately led to legal challenges from communities where economic and population growth was Funding Priority Projects: Implementation limited because of the delay. Minnesota now has a world- class monitoring system. MDH provides source water protection grants that help keep • There was little coordination among various local contaminants out of community water supplies. BWSR uses government units on local nonpoint water plans, and easements, grants, and technical assistance to protect drinking quality varied. Planning is now conducted in a coordinated, water sources through better land use. MDA works with farmers watershed basis, rather than discreetly along political and agronomists to adopt practices that protect groundwater. boundaries. The Metropolitan Council works with businesses and households to reduce their groundwater use in the seven-county metro The predictable and long-term funding from the Legacy area to accommodate future population growth. The MPCA’s Amendment has overcome these obstacles. Subsurface Sewage Treatment System program supports enhanced inspection of septic systems and grants for selected • The State has completed intensive water monitoring and low-income households. assessment for every watershed in the state over ten years. The MPCA knows which waters are impaired, and which are not but could be without action. In a second ten-year The Value of the Clean Water Fund monitoring cycle, the State is now targeting its efforts to The Clean Water Fund has given the State of Minnesota new determine whether protection and restoration activities tools and resources that empower it to identify impaired are working, while preserving the overall data record to waters and then protect and restore them in a way not possible continue monitoring overall conditions over time. before 2008 when the Legacy Amendment passed. Prior to the • The MPCA has completed three-quarters of the Watershed passage of the Legacy Amendment, there were several barriers Restoration and Protection Strategies (WRAPS) reports for preventing the state from achieving its goals of protecting and the state’s 80 major watersheds. The WRAPS incorporates all improving Minnesota’s water. the monitoring and assessment work as well as the TMDLs for each watershed. • The U.S. Environmental Protection Agency (EPA) requires • BWSR is leading work with local units of government to that the state develop Total Maximum Daily Load develop comprehensive watershed management plans (TMDL) reports to determine how much of a particular (“One Watershed One Plan”) for all 80 major watersheds, contaminant would cause a body of water to be impaired. using the WRAPS and GRAPS to set priorities for action. Prior to 2008, the State lacked the funding to do this in a • CWF investments in water treatment facilities through the systematic fashion and on a reasonable timeframe. The PSIG program make it possible for the state to leverage more state has greatly accelerated progress and is exceeding EPA federal investments from the Clean Water Revolving Fund. expectations.

8 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations INTRODUCTION

• MDH coordinates with the agencies charged with protecting • The Clean Water Fund is the catalyst that allows high-impact groundwater by producing Groundwater Restoration and projects to happen more quickly. The CWF is often the seed Protection Strategies for the One Watershed One Plan funding that attracts matching local, state, federal, and/ watersheds. In addition, MDH has delineated all areas around or private dollars. An example is the St. Louis River Area of public water supply wellheads that require protection—a Concern (AOC). In and upstream from the Duluth harbor, Drinking Water Supply Management Area (DWSMA). the Clean Water Fund supports MPCA staff who administer • CWF investments have allowed the MDA to revise and a complex set of clean-up projects. These projects bring in implement the Nitrogen Fertilizer Management Plan and state bonding dollars, other Legacy Amendment support create the new Groundwater Protection Rule to address for outdoor habitat (Outdoor Heritage Fund), and federal nitrate from fertilizer in groundwater. Great Lakes Restoration Initiative funding. Other prominent examples include the Forever Green Initiative and the Minnesota Agricultural Water Quality Certification Program, “The City of Mankato has worked closely both of which attract significant private and federal financial with MDH to keep the water of Mankato support, respectively. residents as a number one priority. The • The 2020 Clean Water Fund Performance Report estimates that other funding sources provide 95 cents for every dollar initiatives that we have been able to spent from the Clean Water Fund. This is likely a conservative accomplish would not have been possible estimate as it does not include landowner contributions. if it were not for the funds allotted through • Smaller amounts of CWF funding—such as BWSR Accelerated the Source Water Protection Grants. We Implementation grants—help local governments increase their capacity to handle bigger projects. have worked closely with the Source • The federal Safe Drinking Water Act requires that public water Water Protection program on the adoption suppliers prepare a source water assessment of potential and implementation of our Wellhead threats to drinking water from surface waters. The Clean Protection Plan. We are currently relying Water Fund allows the MDH to go beyond just an assessment by supporting a source water protection plan that identifies on MDH to write our Source Water what activities will protect the source. Assessment for our collector wells and • The CWF has developed tools that few other states have. For create a Surface Water Intake Protection example, Minnesota is the first state to create a statewide chloride management plan. The plan, which includes some Plan. The Minnesota Department of Health new elements to the statewide general stormwater permit, grants program is an important tool for will help reduce impairments for chloride. The MPCA’s implementing these plans.” Smart Salting Assessment Tool is something used by many other states. –City of Mankato “The consistency of Legacy

Beyond identifying impaired waters, the Clean Water Fund is now funding has literally been supporting an increasing number of projects that are designed a game-changer in how we to remove these impairments in a way that could not be done without the CWF. systematically evaluate water in Minnesota and clearly focus on • BWSR provides non-competitive grants to watersheds to fulfill priority activities in comprehensive watershed management problem areas, pollution sources, plans (One Watershed One Plan). These targeted and protecting what is not efforts—based on the water monitoring, assessment, and characterization supported by the CWF—speed up priority impaired.” projects and avoid “random acts of conservation.” –MPCA Division Manager

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 9 FUNDING RECOMMENDATIONS

• By supporting key staff and equipment, clean water funding has allowed the MDA to increase the number of detectable pesticides, increase the sensitivity of detection of certain pesticides and increase the overall number of samples that can be analyzed on an annual basis. As a result, Minnesota’s pesticide water monitoring program is one of the most comprehensive programs in the country and is regarded as a national leader.

Figure 3: Clean Water Appropriation by Category

The Council then requested that state agencies and the University of Minnesota adhere to the objectives in the Strategic Plan when submitting proposals for CWF funding. Agencies and the University gave overviews of their programs to the full Council in March, April, and May of 2020, and then had a Figure 2: Annual Pesticides Analyzed and Detected dialogue with the BOC at its April, May, and June meetings. (All but one of these meetings were held on-line using WebEx due to COVID-19.) In June 2020, the Council held a meeting just for public input. By September 2020, the Council received 132 Recommendations Process specific written comments from 41 entities. These recommendations for fiscal years 2022-2023 apply for the period beginning July 1, 2021 and ending June 30, 2023 In July 2020, agencies submitted budget requests to the BOC that took into account decreased sales tax revenue expected in FY22- The Clean Water Council’s Budget & Outcomes Committee (BOC) 23. Several university departments, a nonprofit organization, and developed its recommendations over the course of six months, a collection of local governments near Voyageurs National Park with a substantial period of public and agency input beginning in also submitted requests. the middle of 2019. The state agencies, acting together as the Interagency The BOC’s June 2019 meeting solicited input from several dozen Coordination Team (ICT), recommended using a revenue target stakeholders in the public, private, and nonprofit sectors on for FY22-23 of $220 million based in input from Minnesota the outcomes of the Clean Water Fund since the passage of the Management and Budget and on the May 2020 state Legacy Amendment. This meeting built on the Clean Water Fund budget forecast and revenue estimate. The BOC then made Trajectory Report assembled by the nonprofit Freshwater in late recommendations to the full Council for $219,984,000. The full 2018 with the input of stakeholders who were instrumental in Council on September 21, 2020 made two minor amendments of recommending the creation of the Clean Water Fund. a few hundred thousand dollars at the request of two agencies seeking shifts between their own programs. On November The Council also began a strategic planning process in the fall 16, 2020 the Council approved two additional adjustments to of 2019, which included facilitated discussions during several maintain continuity of several programs at MDH and DNR, which Council meetings. Council staff and leadership also met one- involved the transfer of some unspent BWSR funds from FY14-15 on-one with many parties having a particular interest in the and increased the total revenue available from $219,984,000 to success of the CWF. The Council approved its Strategic Plan in $220,247,000. April 2020.

10 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations FUNDING RECOMMENDATIONS

Uncertainty The Council anticipates the need to revise its recommendations in response to the December 1, 2020 budget forecast and revenue estimate. This is due to continued economic uncertainty due to COVID-19 since the May 2020 forecast. At the time of this report’s writing, discussions are taking place in the executive branch about a funding solution for soil and water conservation districts. The solution may include some Clean Water Fund support.

The funding recommendations are listed in the following Figures 4 and 5.

Figure 4: Spending Breakdown by Water Management Framework Category

Watershed & Groundwater Restoration/Protection Strategies Comprehensive Local $24,492,000 Watershed Management $5,808,000 Monitoring, Assessment & Characterization $29,996,000 Nonpoint Source Administration Implementation $3,828,000 $110,638,000

Research, Evaluation and Tools $8,266,000 Point Source Implementation Groundwater/Drinking $18,855,000 Water Implementation $18,564,000

• Nonpoint Source Implementation: Programs and projects that address pollution from nonpoint sources— ­ storm sewers, failing septic systems, and runoff from construction sites, animal feedlots, paved surfaces, and lawns. • Point Source Implementation: Programs and projects that address pollution from a single location such as a water treatment plant. • Groundwater/Drinking Water Implementation: Projects that address water quality and quantity needs in groundwater and drinking water. • Monitoring, Characterization, and Assessment: Programs that determine the condition of ground and surface waters, and analyze and synthesize data so that key interactions, stressors, and threats are understood. • Watershed and Groundwater Restoration and Protection Strategies: Development of strategies and high level plans that identify priorities in each of the state’s 80 major watersheds. • Comprehensive Local Watershed Management: Planning for prioritized, targeted, and measurable actions for each major watershed (“One Watershed One Plan”).

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 11 FUNDING RECOMMENDATIONS

Figure 5: Spending Breakdown by Agency

LCC $8,000 (0%) MPCA $41,594,000 (19%) UMN MDH $2,440,000 (1%) $11,910,000 (5%)

MC $2,338,000 (1%) MDA PFA $19,660,000 (9%) $16,135,000 (7%)

DNR $17,352,000 (8%)

BWSR $108,810,000 (49%)

Agency Acronyms BWSR – Board of Water & Soil Resources MDH – Minnesota Department of Health DNR – Department of Natural Resources MPCA – Minnesota Pollution Control Agency MDA – Minnesota Department of Agriculture PFA – Public Facilities Authority MC – Metropolitan Council

12 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations FUNDING RECOMMENDATIONS

Pass-Through While state agencies are the primary recipients of the Clean Water Fund, 63 percent of these funds would be passed through to other entities through grants, technical assistance, and easements. (Grants and technical assistance have highlighted sections later in the report.)

Program Reductions Compared to the Council’s FY20-21 recommendations, the number of programs to be funded has been reduced from 65 to 57.

Boundary Waters Canoe Area (BWCA)

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 13 FUNDING RECOMMENDATIONS

Monitoring, Assessment, and Characterization ($29,996,000 and 13.6%)

Agency Activity Summary of Program Recommendation Monitors 1,125 wells statewide and installs 50 new wells Aquifer Monitoring for Water DNR annually. Provides planning and technical assistance to water $3,700,000 Supply Planning* suppliers and LGUs.

DNR Fish Contamination Assessment Tests fish for mercury and PCBs for 1385 lakes and 114 rivers. $136,000

Lake Index of Biological Surveys fish and aquatic plants in 495 lakes for stressors. DNR $2,000,000 Integrity Results serve as proxy for “fishable” waters. Maintains mapping capability to determine compliance with DNR Buffer Map Maintenance $50,000 buffer law. Stream Flow Monitoring Continuously monitors 172 sites for volume, chemistry, and DNR $4,000,000 Program sediment. Monitoring for Pesticides Analyzes an additional 650 pesticide samples annually at MDA MDA in Surface Water and $700,000 lab for risk assessment, planning, and BMPs. Groundwater Pesticide Testing in Private Provides free pesticide testing for 6,100 vulnerable wells in 344 MDA $678,000 Wells* priority townships. Contaminants of Emerging Develops health-based drinking water guidance for about five MDH $2,400,000 Concern** contaminants annually. River and Lake Monitoring and Completes intensive monitoring in about eight watersheds per MPCA $14,432,000 Assessment year, and annual pollutant monitoring @ 197 sites annually. Groundwater Monitoring and Performs water quality sampling & data analysis from network MPCA $1,900,000 Assessment of 270 ambient wells.

Watershed & Groundwater Restoration/Protection Strategies ($24,292,000 and 11.0%)

Agency Activity Summary of Program Recommendation Watershed Restoration and Adds geomorphology, hydrology, and connectivity data to DNR Protection Strategies-DNR WRAPS process, and supports Watershed Health Assessment $3,800,000 Portion Framework (WHAF) tool. Watershed Restoration and Develops data-driven strategies to meet water quality goals MPCA Protection Strategies (includes in each of 80 watersheds at about eight to ten watersheds $13,208,000 TMDL development) annually. Required by law to be complete in 2023. Completes GRAPS for six to eight major watersheds annually in Groundwater Restoration and alignment with comprehensive watershed management plans MDH $1,126,000 Protection Strategies (One Watershed One Plan). Also provides training and makes groundwater data public. Assists public water systems in the management of over 500 source water protection plans statewide. Completes new or updated planning and data driven strategies for 60 systems MDH Source Water Protection* $6,158,000 during the biennium. Provides grants for implementation activities. Collaborates with other local planning efforts and develops and coordinates water quality surveillance activities.

14 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations FUNDING RECOMMENDATIONS

Comprehensive Local Watershed Management ($5,808,000 and 2.6%)

Agency Activity Summary of Program Recommendation Watershed Management Completes about seven comprehensive watershed BWSR Transition (One Watershed, $5,808,000 management plans annually. All plans will be started by 2025. One Plan)

Nonpoint Source Implementation ($110,638,000 and 50.2%)

Agency Activity Summary of Program Recommendation

Grants to Watersheds with Approved Comprehensive Makes non-competitive grants to fulfill projects in approved BWSR Watershed Plans (Watershed- comprehensive watershed management plans (One Watershed $43,564,000 based Implementation One Plan). Funding)** Builds technical skills through Technical Service Areas and technical trainings. This grant program builds the capacity BWSR Accelerated Implementation of local governments to accelerate on-the-ground projects $9,682,000 that improve or protect water quality and perform above and beyond existing standards. Conservation Drainage Provides grants and technical assistance to SWCDs/drainage BWSR $1,446,000 Management and Assistance authorities for water quality BMPs. Conservation Reserve Purchases and restores permanent easements to treat & store BWSR Enhancement Program $1,208,000 water. (CREP)** Critical Shoreland Protection- Protects threatened shoreline with easements to protect good BWSR Permanent Conservation $2,468,000 water quality. Easements** Working Lands Floodplain Easements [formerly Riparian Establishes and restores easements in floodplains and riparian BWSR $3,872,000 Buffer-Permanent Conservation areas. Easements]** Surface and Drinking Water Makes competitive grants for high priority conservation BMPs BWSR Protection/Restoration Grants: in local water plans. Up to twenty percent must support $22,266,000 (Projects and Practices)** drinking water. Watershed Partners Legacy Would create a small grants program modeled on Conservation BWSR $200,000 (WPL) Grants Partners Legacy. Requested by Council strategic plan. Enhancing Soil Health and Supports Office of Soil Health. Makes grants to SWCDs for Landowner Adoption of Cover BWSR cover crop and conservation tillage demonstration projects. $4,066,000 Crops for Drinking Water & Supports Governor's climate initiative. Groundwater Protection

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 15 FUNDING RECOMMENDATIONS

Nonpoint Source Implementation ($110,638,000 and 50.2%) Cont'd

Supports oversight and grants to SWCDs for implementation of BWSR Buffer Law Implementation $3,872,000 the buffer law.

Wetland Restoration Creates permanent easements for de-nitrification and rate and BWSR $4,840,000 Easements** volume control.

Non-point Source Restoration Provides technical assistance for 85 projects annually that are DNR $2,600,000 and Implementation prioritized in comprehensive watershed management plan.

Supports administration of 2,000+ clean water loans for MDA AgBMP Loan Program conservation tillage, SSTS, erosion control, and agricultural $150,000 waste. Provides technical assistance for 900+ farmers to adopt water MN Agricultural Water Quality MDA quality BMPs with verified results. Matched with federal RCPP $6,000,000 Certification Program grant. Supports 25 edge-of-field water quality monitoring sites, 100 MDA Technical Assistance farm demonstration plots, and 30 field days and other events $2,904,000 annually. St. Louis River Area of Concern Manages cleanup of the St. Louis River/Duluth harbor. Attracts MPCA - Remedial Action Plan $1,500,000 state and federal matching funds. Implementation

Point Source Implementation (18,855,000 and 8.6%)

Agency Activity Summary of Program Recommendation Provides technical assistance to cities to help them comply Accelerated Implementation of MPCA with state stormwater permit. Will support increased need due $400,000 MS4 Permit Requirements to new general permit. Provides technical assistance and grants to public entities to MPCA Chloride Reduction meet chloride TMDLs, mostly from road de-icers and water $520,000 softening. Integrates stormwater and wastewater data with WRAPS NPDES wastewater/stormwater MPCA and includes TMDLs in permits. Supports pollutant trades. $1,800,000 TMDL implementation Maintains MN Stormwater Manual.

Point Source Implementation Upgrades municipal water treatment facilities to comply with PFA $15,935,000 Grant (PSIG) Program TMDLs.

Small Community Wastewater PFA Makes grants & loans to replace failing community SSTS. $200,000 Treatment Program

16 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations FUNDING RECOMMENDATIONS

Groundwater/Drinking Water Implementation ($18,564,000 and 8.4%)

Agency Activity Summary of Program Recommendation

Targeted Wellhead/Drinking Makes easements and grants to LGUs in priority wellhead BWSR $2,000,000 Water Source Protection* protection areas. Irrigation Water Quality Funds irrigation UMN extension staff to educate on irrigation & MDA $270,000 Protection* nitrogen BMPs. Supports implementation of the new Groundwater Protection Rule and Nitrogen Fertilizer Management Plan to reduce MDA Nitrate in Groundwater* nitrate from fertilizer to groundwater. Working with 38 $5,006,000 local government units on nitrate monitoring and reduction activities. Will develop a State Drinking Water Plan and implement The MDH Drinking Water Protection* $500,000 Future of Drinking Water report. Water Demand Reduction- Makes grants to metro cities to replace inefficient residential MC $500,000 Efficiency - Grant Program fixtures/sprinklers to reduce groundwater demand. Metropolitan Area Water Provides technical support to communities and businesses to MC Supply Sustainability Support $1,838,000 use groundwater more efficiently. Program** Enhanced County inspections/ Provides county grants for more SSTS inspections and income- MPCA $5,324,000 SSTS corrective actions based assistance to reach 80% compliance. National Park Water Quality Replaces failing septic systems polluting Voyageurs National MPCA $1,400,000 Protection Program Park. Matched by many other sources. Studies well contaminants. Supports outreach to 1.2M well MDH Private Well Protection* $1,726,000 users to test and address contaminants.

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 17 FUNDING RECOMMENDATIONS

Research, Evaluation and Tools ($8,266,000 and 3.7%)

Agency Activity Summary of Program Recommendation

Tillage, Cover Crop and Erosion Estimates soil erosion and tracks use of tillage BMPs and cover BWSR $724,000 Evaluation crops. Technical Evaluation [aka Conducts up to 10 technical evaluations of CWF projects BWSR $84,000 Restoration Evaluation] annually. Required by law.

Tool Development and Evaluates water flow ("digital dams") and forestry BMPs DNR Evaluation [Formerly Applied throughout the state, and develops fine-scale watershed $1,066,000 Research and Tools] models using LiDAR.

UMN County Geologic Atlas Part A* Develops Part A county-level geologic atlases. $900,000

MN Water Research Digital One stop to find water related research and reports in MDA Library [aka Research Inventory $80,000 Minnesota. Database] Forever Green Agricultural Supports competitive R&D grants for crops providing MDA $3,872,000 Initiative (U of MN) continuous living cover, and implementation of those crops. Stormwater Research and Makes competitive grants to research and evaluate stormwater UMN $1,350,000 Technology Transfer Program** BMPs. Quantifying the Multiple Reviews CWF for equity considerations, estimates costs of UMN Benefits of Clean Water water quality goals, and adds climate to comprehensive $190,000 Investments watershed management plans.

Administration ($3,828,000 and 1.7%)

Agency Activity Summary of Program Recommendation Funds two FTEs, communications, planning, and Council MPCA Clean Water Council member expenses. Separated out from MPCA CWF budget for $550,000 transparency, so it is cost neutral.

Legislative Coordinating Supports upkeep of LCC site with CWF project information. LCC $8,000 Commission Website Required by law.

Measures, Results and BWSR Supports grants management, reporting, and oversight. $2,710,000 Accountability Supports traveling water exhibit and local engagement at six MPCA We Are Water MN $560,000 sites in FY22-23.

TOTAL: $220,247,000

* 100 percent of this appropriation would be spent to protect drinking water sources. ** Between 10 and 75 percent of this appropriation would be spent to protect drinking water sources.

18 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations POLICY RECOMMENDATIONS

The Council recognizes that CWF dollars alone will not meet the expectations of Minnesota citizens for clean water. The Council’s Policy Committee considered a range of policy issues in 2019 and 2020, and developed or revised three policy recommendations that are sufficiently important to warrant the Council’s support:

• Reducing de-icing chloride (road salt) pollution (revised) • Reducing chloride pollution from water softening • Disclosure of well water quality at time of sale

Boundary Waters Canoe Area (BWCA)

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 19 POLICY RECOMMENDATIONS

Chloride Reduction: De-Icer Revised Policy Statement The Clean Water Council recommends that the State of Minnesota implement the following actions to reduce chloride in Minnesota surface and groundwater: • Fund the Smart Salting applicator training and certification program, and the MPCA’s chloride reduction budget to support the development and maintenance of tools, resources, policies, trainings and assistance programs to reduce chloride pollution. • Request that the Legislature give the MPCA the • Inconsistent labeling for de-icers creates confusion for authority to charge a fee for chloride training. consumers. De-icers can be labeled as “eco-friendly” or as • Provide liability protection for the Smart Salting an alternative to salt, but they may pose other problems for program certifying private winter de-icing applicators water quality. Currently there is not a standard for labeling for reduced salt applications. de-icers for their potential threats to water quality. • Provide research funds to develop new technology and alternatives to chloride-containing de-icing chemicals, Solution and best management practices. • Encourage and support the adoption of the MPCA’s 1. Training and Certification. Continue the Smart Salting Chloride Reduction Model Ordinance Language by applicator training and certification program: The MPCA has local governmental entities. a training program for private and public salt applicators, such as snow removal contractors and snowplow drivers. • Have the MPCA convene and lead a stakeholder This has been a very successful program and has assisted process to develop recommendations for new labeling winter maintenance programs in reducing salt application requirements on bags of de-icing chemicals sold in rates by 30% to 70%, without compromising public safety. Minnesota. The TCMA Chloride Management Plan and Statewide Chloride Management Plan include the Smart Salting Problem training program as the top implementation strategy to Chloride is a naturally occurring ion found in low levels in reduce salt use in the winter. In the past, MPCA conducted Minnesota surface and groundwater. Salt used for winter de- this training with federal funds, but those funds are icing and water softening contains chloride. Chloride is not toxic temporary. The estimated operating cost for the training in small concentrations. However, above 230 mg per liter (about program in FY22 is $350,000/year. To qualify for the liability one teaspoon in 5 gallons of water), chloride becomes toxic to protection to private salt applicators, the applicator must freshwater fish and other aquatic life under long-term exposure. complete Smart Salting training program to be certified. The Once chloride enters our surface water (lakes, streams, and State should continue to provide adequate funding to the wetlands) and groundwater, it is extremely expensive and not MPCA’s Chloride Reduction Program budget to support the feasible to remove it. development and maintenance of tools, resources, policies, trainings and assistance programs like MnTAP to assist communities in their effort to reduce chloride pollution. Winter de-icing salts are among the primary sources of chloride in Minnesota waters. 2. Allow the MPCA to Charge a Fee. Currently the MPCA does not have the authority to charge a fee for the training In the Twin Cities Metro Area (TCMA) winter maintenance that would defray some of the cost. Legislative authority activities use approximately 365,000 tons of chloride de- will be required. There is more demand for these chloride icer per year. The de-icing salts eventually wash into nearby reduction training than the MPCA can meet. By charging a lakes, streams and wetlands. Recent monitoring shows fee to willing customers, the agency can meet the demand. increasing chloride concentrations in surface water and shallow groundwater. Since it is very difficult and expensive to remove chloride from our surface and groundwater once it gets into 3. Liability Protection. Provide liability protection to water, reducing chloride at the source is necessary. certified private salt applicators against slip and fall lawsuits:

20 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations POLICY RECOMMENDATIONS

The notion here is that private applicators certified through • Report possible negative impacts of the product on the Smart Salting program would be able to apply for surfaces, vegetation, water quality, and other liability protection. The private applicator industry and local • Safety protocols for handling the products stakeholders strongly support this proposal. Various groups • Guidance for proper application that includes: introduced bills to this effect in the last three legislative º Snow and Ice removal prior to application sessions and it has passed several committees and one º Application rates that are based on research house; however, none was enacted into law. º Suggested equipment for proper application and proper spread patterns 4. Research Funding for Alternatives. Make research funds º Conditions in which product will not be effective available to develop new technology and alternatives to or may create unsafe surfaces chloride-containing de-icing chemicals. Research on new technologies and alternative de-icing solutions may allow for a shift in snow and ice management that protects water resources while maintaining public safety. A full list Chloride Reduction: Water of needed research areas can be found in Section 5 of the Softening TCMA Chloride Management Plan. Policy Statement 5. Adopt Local Chloride Reduction Ordinances. Encourage The Clean Water Council recommends that the State do and support the adoption of the MPCA’s Chloride Reduction the following to reduce chloride in Minnesota surface and Model Ordinance Language by local governmental entities. groundwater: The model ordinances provide guidance for creating and implementing ordinances that will assist with reducing • Provide financial support and technical assistance to chloride pollution. The new municipal stormwater general municipalities to reduce chloride discharges and allow permit for the State (also known as the MS4 general permit) flexibility for how municipalities achieve these reductions. requires adoption of several of these ideas. The four focus • Update the state plumbing code to effectively prohibit the areas in the guidance include: installation of new water softeners in Minnesota that use timers rather than on-demand regeneration systems. a. Occupational Licensure for Winter Maintenance • Fund a program for activities, training, and grants that Professionals reduce chloride pollution. Grants should support upgrading, b. De-icer Bulk Storage Facility Regulations optimizing, or replacing water softener units. c. Land Disturbance Activities d. Parking Lot, Sidewalk and Private Road Sweeping Requirements Problem Chloride is a naturally occurring ion found in low levels in 6. De-icing product labeling requirements. The MPCA Minnesota surface and groundwater. Salt used for winter de- should convene and lead a stakeholder process to develop icing and water softening contains chloride. Chloride is not toxic recommendations for new labeling requirements on bags of in small concentrations. However, above 230 mg per liter (about de-icing chemicals sold in Minnesota. The goal of this effort one teaspoon in 5 gallons of water), chloride becomes toxic to will be to convene a knowledgeable group of stakeholders from freshwater fish and other aquatic life under long-term exposure. a variety of sectors to create language that will ensure that Once chloride enters our surface water (lakes, streams, and consumers are provided accurate and necessary information wetlands) and groundwater, it is extremely expensive and not about the de-icing products they are purchasing and applying feasible to remove it. to Minnesota’s environment. Some key areas that should be evaluated include, but would not be limited to: Residential water softeners are among the primary sources of chloride in Minnesota waters. • Require complete ingredients list with percentages provided • Third party certification requirements for any statements The discharge of chloride from residential water softeners can about the products’ environmental, pet and human safety end up in surface waters even after wastewater treatment. • Provide “practical’ temperature ranges (not temperature Reducing the need for chlorides in water treatment is a priority ranges that can only be achieved in a lab setting or over a in Minnesota. However, there are obstacles to achieving chloride time period of weeks for melting to occur) reduction.

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 21 POLICY RECOMMENDATIONS

• Timer water softeners are still available. Newer on-demand water softeners are more efficient than older models Disclosure of Well Water Quality at because they add salt when water demand requires Time of Sale it. However, water softeners are still on the market in Minnesota with a timer that will use salt at regular intervals Policy Statement whether the water requires it or not to remove hardness. The Clean Water Council recommends that the State do the • If public water suppliers upgrade to central softening of following to protect drinking water for private well owners: water, excessive wastewater discharges of chloride may persist due to continued use of residential water softeners • Require all sellers of real property to test drinking water when they are no longer necessary to reduce hardness. from wells for bacteria, nitrate, arsenic, manganese, and lead Solution • Inform buyers and renters of the test results • Direct buyers to mitigation guidance from the Minnesota 1. Support municipal efforts to reduce chloride. The State Department of Health should provide adequate funding to provide municipalities financial resources to reduce chloride discharges. This includes funding programs offered through the Minnesota Public Facilities Problem Authority and the Minnesota Pollution Control Agency’s water Currently, about 1.2 million Minnesotans get their drinking water softening grant program. from groundwater through a private well. While the State plays a role in protecting drinking water sources, testing well water is 2. Update the Plumbing Code. The plumbing code would generally treated as the responsibility of the property owner, and effectively prohibit the installation of new water softeners that the Minnesota Department of Health (MDH) recommends that it use a timer through one of two options. be done regularly (annually for bacteria; bi-annually for nitrate; at least once for arsenic and lead; and before a baby drinks the a. Ion Exchange water softeners used primarily for water water for manganese). In limited cases, such as the Township hardness reduction that, during regeneration, discharge a Testing program of the Minnesota Department of Agriculture, brine solution shall be of a demand initiated regeneration the State provides the funding. However, many private well type equipped with a water meter or a sensor [based on a owners do not test their water. A 2016 Minnesota Department Wisconsin model]; or of Health (MDH) survey of private well owners found less than b. All water softening or conditioning appliances installed 20% of respondents had tested their well water at the frequency must meet the following criteria [based on a California MDH recommends. model]: i. The appliance activates regeneration by demand Once a well owner tests their water and gets the results, they control. are better able to know what steps they may need to take c. An appliance installed on or after January 1, [insert desired to ensure safe drinking water. However, currently owners year], shall be certified by a third party rating organization are under no obligation to inform buyers of their property of using industry standards to have a salt efficiency rating of any high contaminant levels in private drinking water supply no less than 4,000 grains of hardness removed per pound of system. Education is useful, but some mandates are necessary salt used in regeneration. (This is the recommendation that to increase testing, reporting, and protect the health of private MPCA suggests in Property Management training and in the well users. Minnesota Statutes 103I.235 requires sellers of real Statewide Chloride Management Plan.) property to disclosure the existence of a well but not water quality results. 3. Fund activities, training, and grants that reduce chloride pollution. The MPCA has several tools available to help municipalities reduce chloride pollution. Grants can be used to support rebates that homeowners and businesses can use to upgrade, optimize, or replace their water softening equipment.

22 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations POLICY RECOMMENDATIONS

Some lenders and loan programs already require testing In a 2019 MDH survey of 243 real estate professionals, 46% of respondents said that the mortgage companies they work with always or usually require well water testing. Respondents explained that the following loan programs require well testing, but the testing parameters varies on what is tested: Veterans Affairs Home Loan, Federal Housing Administration1, and USDA Home Loans. A statewide policy would bring consistency to testing requirements at property transfer.

Dakota County has required well testing at property transfer since 1998 Dakota County Ordinance number 114 requires testing a private well for bacteria, nitrate, arsenic, and manganese (added in 2019) within in 12 months prior to a real estate transfer. The ordinance updates in 2019 also require that water quality issues are addressed through treatment or well The Council also adopted a policy statement in FY18-19 in replacement prior to sale. support of testing and disclosure for private wells.

Cost considerations • Develop a comprehensive, systematic approach for periodic On average, it costs about $125 to test for all five recommended testing of the water quality of private wells including the contaminants. notification of testing results and education on possible actions. Examples for consideration may include: There are home water treatment options to address water º The testing of private wells providing drinking water quality issues. The price for treatment varies based on the type at property transfer and notification of testing results of treatment and who installs it. Point-of-use reverse osmosis to buyers. is an effective way to treat for all five contaminants and costs º Periodic testing of private wells providing drinking about $300 if you install it yourself or $1500 to have a water water to rental properties and requiring notification treatment professional install it. Annual maintenance is about of the results before rental property owners $100. There are additional treatment options that range in price can rent to new tenants or enter into new lease and application2. agreements.

Precedent on Disclosure Solution Regarding public water testing disclosure related to urban property transfer, the Clean Water Council has already made the The Council recommends legislation to require property owners following policy recommendation in FY16-17: to have their well water tested by the time the property is sold and to notify potential buyers of the test results. • Property Transfers: Notify the buyers of the potential existence of lead pipes between the water main and taps, and provide informational material to mitigate risks. • Renters: Notify the renters, the potential existence of lead pipes between the water main and taps and provide informational material to mitigate risks.

1 The FHA requirements can be found at 24 CFR 200.926d. 2 Minnesota Department of Health, https://www.health.state.mn.us/communi- ties/environment/water/wells/waterquality/index.html.

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 23 HIGHLIGHTED PROGRAMS

monitoring to characterize water quality in three study areas Drinking Water within the Root River watershed. Through outreach activities Protecting drinking water is one of the key objectives of the Clean and one-on-one meetings, the results are discussed with Water Fund and the Clean Water Legacy Act. farmers, landowners, fertilizer dealers, water managers and community leaders to promote an advanced level of In the Council’s FY22-23 recommendations, twenty percent of conservation planning and delivery. the Clean Water Fund would be spent on protecting sources of drinking water. As described in a previous section, the state Protect approach to protecting drinking water sources is to: • Source Water Protection – MDH carries out numerous activities to protect drinking water sources with the Clean • Gather and share important information about groundwater Water Fund. resources and drinking water wells as well as surface water drinking water sources º Delineate Drinking Water Source Management Areas (DWSMAs) around 500 vulnerable public water supplies • Learn more about the health risks from chemicals, (complete in 2020) and 420 non-vulnerable public pathogens, and naturally occurring elements in water water supplies • Assist communities to protect their drinking water º Help public water suppliers develop a wellhead protection plan within the DWSMA The primary contaminants of interest in water supply wells º Provide planning and surveillance assistance to public are nitrogen/nitrate, bacteria, arsenic, manganese, and lead. water suppliers Nitrogen/nitrate is usually the result of commercial fertilizer º Monitor possible threats from newly identified or manure infiltrating below the crop root zone on farms or on pathogens urban lawns. Bacteria can reach wells mostly from leaking septic º Encourage water suppliers to engage their systems and animal waste. Arsenic and manganese already exist communities: in the soil, while lead comes from lead drinking water pipes and ▪ Send fliers to property owners in vulnerable on-premise plumbing. DWSMAs on ways to protect the drinking water source While the Minnesota Department of Health has the largest ▪ Share tips about source water protection, water role, other agencies have active parts in drinking water source use, and conservation on city websites protection. ▪ Host a nitrate testing clinic ▪ Distribute fliers for farmers and companies about Monitor, Assess, and Characterize underground tank management within the DWSMA • Nitrate and Pesticide Testing in Private Wells – MDA provides free nitrate and pesticide testing to 90,000 well owners in priority townships where groundwater is particularly vulnerable to contamination. As of March 2020, MDA tested 32,217 wells in 344 vulnerable townships across 50 counties. • Groundwater Quality Monitoring – MPCA monitors ambient groundwater quality in non-agricultural parts of the state using a network of 270 wells. • Aquifer Monitoring for Water Supply Planning – DNR uses a network of 1,125 water quantity monitoring wells statewide with 50 new wells installed annually, and provides planning and technical assistance for local government units. • County Geologic Atlas Part A – The Minnesota Geological Survey (MGS) at the University of Minnesota completes county-level geologic atlases. • MDA’s Root River Field to Stream Partnership (RRFSP) under the agency’s Technical Assistance program is a unique water monitoring project located in southeast Minnesota. The RRFSP project uses both edge-of-field and in-stream Figure 5A: Source Water Protection Grant Activities 2010-2019

24 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations HIGHLIGHTED PROGRAMS

• Drinking Water Protection – MDH will develop a State Restore/Mitigate Drinking Water Plan and carry out priorities in the Future of Drinking Water report. • Targeted Wellhead/Drinking Water Source Protection – BWSR supports easements and grants to local units of • Private Well Protection – MDH studies well contaminants and government for priority wellhead protection areas. provides outreach to 1.2 million private wells users to test and address contaminants. For example, MDH creates handouts • Nitrate in Groundwater – MDA supports the new and fliers for private well owners on well water safety, Groundwater Protection Rule as part of the state’s Nitrogen operation and maintenance, and sealing abandoned wells. Fertilizer Management Plan (NFMP). The rule restricts Fall application of nitrogen fertilizer in areas vulnerable to • Metropolitan Area Water Supply Sustainability Support contamination and outlines steps to reduce the severity of the Program – The Metropolitan Council provides technical problem in areas where nitrate in public water supply wells is support to communities and businesses to use groundwater already elevated. The Clean Water Fund will support testing more efficiently. of 700 to 900 private wells annually, support two university • Contaminants of Emerging Concern – Since the federal extension staff to educate landowners on nitrogen BMPs and government only regulates for about 100 contaminants, support their adoption. The CWF will also fund local advisory MDH develops health-based guidance for drinking water for teams and seven BMP demonstration sites. five contaminants annually that either have been or could be expected to be detected in Minnesota’s groundwater. For example, MDH has developed guidance for a number of PFAS chemicals that have no federal standards. That guidance is essential for determining what levels are safe to drink over a lifetime, how toxic mixtures are, and when treatment is needed. • Easements - BWSR helps landowners take selected lands out of production through easement programs. These easements provide some income for farmers but avoid the application of fertilizer in DWSMAs, or otherwise filter it out before it reaches surface or groundwater. • Irrigation Water Quality Protection – MDA supports a University extension specialist who educates farmers on best management practices in nitrogen application through irrigation. • MDA’s Nitrate in Groundwater program funds applied nitrogen research at Rosholt Farms in Pope County. and other demonstration sites to help the University of Minnesota revise its widely-used nitrogen application guidelines.

Figure 7: Vulnerable Groundwater Areas/Fall Restrictions

• Managing contamination – Several agencies use the programs in this section to execute many different activities that eliminate or reduce contaminants in groundwater that is used for drinking water. These are several examples: º Planting native plant species in a stormwater basin º Establishing perennial crops in a DWSMA, such as introducing continuous loving cover to landowners or renting land and planting Kernza® and cereal rye through the Forever Green Initiative º Incentivizing nitrogen best management practices near the municipal well º Remediating a gravel pit site within a DWSMA Figure 6: Lysimeters Monitoring Nitrogen Loss at Rosholt Farm

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 25 HIGHLIGHTED PROGRAMS

º Removing leaking underground storage tanks There are several activities in the Council’s recommendations within a DWSMA that enhance compliance and enforcement. º Sealing old or abandoned wells and constructing new wells • The MPCA’s Enhanced Subsurface Sewage Treatment • MDA’s Minnesota Agricultural Water Quality Certification System (SSTS) Compliance and Corrective Actions program Program (MAWQCP) engages farmers to employ best supports a higher level of inspection for septic systems. management practices for water quality. The average The program also provides some support for replacement 400-acre certified farm reduces nitrogen loss by up to 49 of SSTS systems for qualified low-income property owners. percent. The most common new conservation practices The MDA’s Agricultural Best Management Practices Loan implemented by MAWQCP certified producers include: Program provides low-interest loans to farmers to get their cover crops, nutrient management, grassed waterways, septic systems into compliance. irrigation water management, treating tile inlets, prescribed • The MPCA’s program for Accelerated Implementation of grazing, and water and sediment control basins. MS4 Permit Requirements assists local government in • Stormwater Research & Technology Transfer Program – their efforts to comply with the state’s general permit for Minnesota’s Stormwater Research Council at the University municipal separate storm sewer systems (MS4). The permit of Minnesota provides competitive grants to research and requires municipalities to eliminate or reduce the flow of evaluate stormwater BMPs, a portion of which have positive contaminants into their storm sewer system. A new general impacts on drinking water sources. state MS4 permit went into force in the fall of 2020 and • Grants to Watersheds with Approved Comprehensive it includes some new requirements, especially on the use Management Plan (Watershed-Based Implementation and storage of chlorides such as road de-icer. The Clean Funding) – BWSR makes non-competitive grants Water Fund supports training and other assistance to permit to implement projects and activities in approved holders to achieve compliance. comprehensive watershed management plans (One • The MPCA’s Chloride Reduction Program helps wastewater Watershed One Plan). discharge permit holders, such as municipalities, to • Surface and Drinking Water Protection/Restoration Grants achieve compliance with chloride limits. Excessive chloride (Projects and Practices) - BWSR makes competitive grants in wastewater discharge is usually due to inefficient or for high priority conservation BMPs identified in local unnecessary residential water softeners. The MPCA works management plans. BWSR requires that up to 20 percent of with the permit holder to educate residents on how funding support drinking water protection. to reduce their chloride use and occasionally provide incentives to upgrade their softeners. “Working with the Source Water Protection Program • The Public Facilities Authority (PFA)’s Point Source has allowed us to pursue initiatives to reduce the Implementation Grant (PSIG) supports selective upgrades to water treatment facilities so that they comply with permit nitrates that impact our drinking water. Kernza, requirements based on the Total Maximum Daily Load a perennial wheatgrass that is also a nitrogen (TMDL) for the waterway that receives the discharge and scavenger, is currently planted on 125 acres in other regulatory requirements to improve water quality. our wellhead protection area. The Minnesota Department of Health grants program has been an important financial resource for our small Technical Assistance community as we diligently work to safeguard our A large proportion of Clean Water Fund spending supports drinking water.” technical assistance. Minnesota’s landowners and local government units often cannot accomplish our water quality goals without expert help. –City of Edgerton (Pipestone County) Regulation has provided measurable benefits for water quality. Empowering the public and private sectors as well as individuals Enhanced Compliance with technical assistance multiplies its effects and increases Minn. Statute 114D.50 Subd. 3 (5) permits the use of the Clean the likelihood of success. Assistance comes in the form of Water Fund for enhanced compliance and enforcement — demonstration sites to show the targeted audiences what is meaning work that could not be done before the creation of possible, interpretation of scientific data to guide projects, as the CWF. well as training in best management practices.

26 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations HIGHLIGHTED PROGRAMS

Municipalities/Townships Extension who promotes best management practices (BMPs) that can reduce nitrate-nitrogen losses to groundwater from • Source Water Protection – MDH delineates Drinking Water irrigated crops. This specialist provides direct support and Supply Management Areas (DWSMAs) with local units of education to irrigators, and collaborates with partners on government; supports public water systems with planning applied research and demonstration. for protection activities; and coordinates source water • Nitrate in Groundwater – MDA supports the state’s Nitrogen monitoring. Fertilizer Management Plan and Groundwater Protection • Accelerated implementation of MS4 Permit Requirements Rule. MDA is working with 38 local government partners on – The MPCA helps cities comply with the state’s general nitrate monitoring and reduction activities including: private stormwater permit. A new statewide permit with new well testing; groundwater monitoring; nitrogen fertilizer provisions that help meet water quality goals has been BMP promotion and adoption; local advisory teams to completed, requiring more time to familiarize cities with the work with farmers; technical support; and demonstration new requirements. projects. The CWF also supports two university extension • National Pollutant Discharge Elimination System (NPDES) staff who educate landowners on adoption of best Wastewater/Stormwater TMDL Implementation – This management practices (BMPs). MPCA program maintains the Minnesota Stormwater • Technical Assistance Program – Technical assistance Manual, a resource used by thousands of public and private activities are a primary way to work with farmers and the sector professionals to ensure compliance and encourage agricultural community to promote conservation practices innovation for stormwater management. and vegetative cover. MDA maintains 25 edge-of-field water • Groundwater Restoration and Protection Strategies quality monitoring sites and 100 farm demonstration plots (GRAPS) – An interagency team led by MDH identifies risks per year, and results are shared at field days, workshops and to groundwater quality and quantity in watersheds and other educational events (~30 events annually). recommends targeted strategies for local partners to protect • AgBMP Loan Program: The AgBMP Loan Program provides and restore groundwater. low interest loans to individuals for best management practices that restore or protect water resources. These Watershed Districts/Soil and Water loans can be used for any practice that reduces pollution. Conservation Districts/Water Management The program is administered by local governments, has very low transaction costs, and repayments fund additional Organizations projects. • Non-Point Source Restoration and Implementation – • Private Well Protection: MDH promotes well stewardship DNR provides “cradle to grave” technical assistance for strategies for 1.2 million private well owners, including 85 projects annually that are prioritized in approved testing for contaminants, protection actions, and treatment comprehensive watershed management plans. Assistance when needed. includes design help on streambank stabilization, culverts, • Minnesota Agricultural Water Quality Certification Program side inlets, fish passage, forestry BMPs, and stormwater (MAWQCP) – See description on page 36. BMPs; coaching of local project managers; planning • Enhancing Soil Health and Landowner Adoption of Cover assistance; on-site construction; and oversight. Crops for Drinking Water and Groundwater Protection • Accelerated implementation – BWSR provides grants – BWSR supports the Office of Soil Health and makes to build technical skills through Technical Service Areas grants to SWCDs for cover crop and conservation tillage (TSAs) and technical trainings. The program builds local demonstration projects. government capacity to accelerate on-the-ground projects that improve or protect water quality and perform above and beyond existing standards. Businesses • Conservation Drainage Management and Assistance – • Chloride Reduction - The MPCA used the CWF to develop BWSR provides grants and technical assistance to SWCDs/ a Smart Salting Assessment Tool used by 1,000 salt de-icer drainage authorities for water quality benefits beyond what consumers such as snow removal companies, commercial is required in drainage law. property owners, and public works departments. The tool complements the MPCA’s Smart Salting training classes that Farmers and Other Rural Landowners have certified 40 entities. The tool and training help avoid additional chloride impairments in Minnesota’s waters. The • Irrigation Water Quality Protection – MDA supports Mayo Clinic in Rochester used the assistance to reduce its an irrigation specialist at the University of Minnesota- salt use by 60 percent.

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 27 HIGHLIGHTED PROGRAMS

• Metropolitan Area Water Supply Sustainability Support • Contaminants of Emerging Concern – Outreach and Program – The Metropolitan Council supports businesses education grants foster innovative actions that help keep that seek to use groundwater more efficiently using CECs out of Minnesota’s waters. Grants funded drug take university interns. This program meets the Council’s back programs, culturally relevant outreach to Latinx Strategic Plan by reducing demand in the metro area by 150 communities, media ads, outreach toolkits for safe disposal million gallons a year. options, and local collaborations on decreasing the use of toxic chemicals and pharmaceuticals. • Enhanced County Inspections/SSTS Corrective Actions – Grants The MPCA makes grants to counties so that counties can increase inspections of septic systems. This program has led Much of the Clean Water Fund is used for grants. They range to an 80 percent compliance rate statewide, a goal in the from support for research to grants to local governments that Council’s Strategic Plan. The program also allows counties accelerate the state’s ability to protect and restore water quality. to support replacement of SSTSs for qualified low-income • Forever Green Initiative – Through the MDA, the University property owners. of Minnesota’s Forever Green Initiative makes grants available to researchers. The program supports the development and increased adoption of perennial species that can improve water quality and provide economic benefits for farmers. • Stormwater Research and Technology Transfer Program – The University of Minnesota’s Stormwater Research Council supports competitive grants to evaluate stormwater BMPs. Successful research on enhanced street sweeping is an example of how this program helps local governments improve water quality in new ways. • Source Water Protection – MDH provides public water supplier grants for municipalities. These are most often small grants that help a city reduce risks to their drinking water sources, wells, lakes, or rivers. Figure 9: SSTS Systems in Compliance 2010-2019

• Point Source Implementation Grants (PSIG) – The Public Facilities Authority (PFA) uses the Clean Water Fund to assist municipal water treatment facilities through the PSIG program. In contrast to other PFA grants and loans supported by other funds, PSIG supports selected treatment upgrades to comply with Total Maximum Daily Load (TMDL) requirements and other regulatory requirements to improve water quality. • Small Community Wastewater Treatment Program – The PFA makes grants and loans to replace failing SSTSs with community SSTSs. These modest grants from the CWF allow these very small communities to get started on the planning process. • Water Demand Reduction Efficiency Grant Program – The Metropolitan Council makes grants to municipalities in the seven-county Twin Cities metro area that defray resident expenses in replacing inefficient residential fixtures and Figure 8: Tank Removal in Bovey sprinkler control systems. • Watershed Management Transition (One Watershed One Plan) – BWSR provides support to approximately seven major watersheds a year (via a managing partner such as an SWCD or watershed district) to complete comprehensive

28 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations HIGHLIGHTED PROGRAMS

watershed management plans. These plans use the data Water Fund (MAWQCP and BWSR competitive grants) have from the state’s Watershed Restoration and Protection provided the majority of non-federal cost-share funding that Strategies (WRAPs) and Groundwater Restoration and supports adoption of cover crops.” Protection Strategies (GRAPS) to prioritize which projects should be funded first to achieve water quality goals. Plans for all 80 major watersheds will have started by 2025. • Targeted Wellhead/Drinking Water Source Protection – BWSR provides funding for local government units to set aside land in priority wellhead protection areas, including with easements. • Buffer Law Implementation – BWSR provides grants to SWCDs for implementation of the buffer law. Projects support SWCDs for design and landowner assistance. • Grants to Soil and Water Conservation Districts – For several biennia, the Legislature has appropriated between $18 and $24 million in funding each biennium for SWCDs from the Clean Water Fund. These grants, usually at or just above $100,000 per district and distributed through BWSR, support the capacity of SWCDs to provide increased technical and financial assistance to private landowners statewide. • Accelerated Implementation – BWSR makes modest grants Figure 10: New Acres of Cover Crop to local government units so that they can carry out more complex projects. Funding often supports equipment and analytical tools. Economic Benefits • Surface and Drinking Water Protection/Restoration Grants (Projects and Practices) – BWSR distributes In the Clean Water Legacy Act, the Legislature in 2006 stated competitive grants to local government units for high that “there is a close link between protecting, enhancing, and priority conservation and urban BMPs identified in local restoring the quality of Minnesota's groundwater and surface management plans. Up to twenty percent of grant funding waters and the ability to develop the state's economy, enhance must be for drinking water protection activities. its quality of life, and protect its human and natural resources.” • Grants to Watersheds with Approved Comprehensive Watershed Plans (Watershed-Based Implementation In addition, the statutory requirement for this document (Minn. Funding) – BWSR distributes non-competitive grants Stat. 114D.30 Subd. 7) requires that it report on “the impact to major watershed partnerships to carry out priority on economic development of the implementation of efforts projects agreed upon by state and local government in to protect and restore groundwater and the impaired waters a comprehensive watershed management plans (One program.” Watershed One Plan). These are non-competitive grants distributed on a rotating basis. As more plans are complete, Many activities supported by the Clean Water Fund provide this pool of funding will increase over time. economic benefits. • Watershed Partners Legacy Grants – At the request of the Clean Water Council, BWSR proposes to make small grants to Accommodating Economic Growth help non-governmental entities improve local water quality. The CWF supports activities that helps Minnesota de-couple • Enhancing Soil Health and Landowner Adoption of Cover economic growth and use of water. Examples include: Crops for Drinking Water and Groundwater Protection – BWSR grants funding to selected local governments to • The Metropolitan Area Water Supply Sustainability Support demonstrate cover crops for local farmers. According to the Program provides ongoing assistance supporting the state’s Nutrient Reduction Strategy (NRS) five-year progress Metropolitan Council’s efforts to reduce groundwater use in report, “Since 2017, two programs supported by the Clean the Twin Cities by 150 million gallons a year to accommodate expected future population growth.

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 29 HIGHLIGHTED PROGRAMS

• The Public Facilities Authority’s Point Source impaired waters. Waters are impaired when they exceed a water Implementation Grant program finances selective upgrades quality standard for certain contaminants. to wastewater treatment plants in Greater Minnesota when the plant might exceed permitted amounts of contaminants The Minnesota Pollution Control Agency (MPCA) evaluates in wastewater effluent. waters to see if they are impaired for the following uses: aquatic • A BWSR grant from the Clean Water Fund supported a consumption; aquatic life; aquatic recreation; drinking water; stormwater reuse/rainwater harvesting system at Allianz and limited resource value. The MPCA tests for 31 specific Field in St. Paul to supply water to future nearby buildings. impairments.

Enhancing tourism and other outdoor The State recently completed a ten-year cycle of testing all waters in all 80 major watersheds. Other agencies complete activities additional testing (also supported by the Clean Water Fund) • The CWF supports the staff who direct the St. Louis River including a Fish Contamination Assessment; Lake Index of Area of Concern (AOC) program and leverages millions of Biological Integrity; Stream Flow Monitoring; and Groundwater federal dollars that are restoring Duluth’s harbor and other Monitoring. outdoor activities. • Easements and other land protection strategies can create These monitoring results are combined with other testing and additional habitat that also protects public drinking water inform the creation of a Watershed Restoration and Protection sources. Strategy (WRAPS). The WRAPS lists all impairments in the watershed and lists specific strategies for how to meet water Financing quality goals. Local stakeholders then produce a comprehensive watershed management plan (One Watershed One Plan) with • The CWF provided $14.3 million to the Agricultural Best the Board of Water and Soil Resources (BWSR) using Clean Water Management Practices (AgBMP) Loan Program. This Funds. The plan prioritizes which strategies get funded first. program provides low-interest loans to farmers and local governments to finance projects like septic system The MPCA has now started a second cycle that targets resources replacement, conservation tillage, agricultural waste at specific issues and at reduced levels compared to the first ten- management, and structural erosion control measures. By year cycle. The second cycle will be different from the first. recirculating the proceeds, the clean water portion of the program has financed 2,043 projects totaling $26.9 million. • The MPCA has reduced the total amount of testing sites by one-third while still maintaining the minimum required by Reduced economic risk and greater resilience the U.S. EPA. Farms that are in the Minnesota Agricultural Water Quality • One-third of this monitoring is committed to the requests Certification Program (MAWQCP) are more profitable. of local or state agency partners in the second cycle. These • Certified farms have a higher net income, better term partners may be looking to measure the impacts of specific debt coverage and operating expense ratios, and in most projects such as stream restoration or drinking water instances higher yields. protection activities. • The average net farm income of certified farms is 26% • The MPCA also maintains 197 long-term stream pollutant higher than non-certified farms, or on average $19,000 monitoring sites that allow the State to identify trends more income per year. and looming threats. Contractors like soil and water • The net worth of certified farms is on average 62% higher conservation districts (SWCDs) take water chemistry than non-certified.4 samples 30 times a year.

Why keep monitoring? Targeted investment and progress Monitoring & Assessment tracking requires a comprehensive monitoring strategy to identify which waters are healthy, which are declining, and Up to 15 percent of the Clean Water Fund is spent on monitoring and assessment. 4 Farm Business Management (FBM) and the Minnesota State Agriculture After its passage in 2008, the Clean Water Fund allowed the Centers of Excellence, “Influence of Intensified Environmental Practices on Farm State of Minnesota to complete federal requirements to identify Profitability,” April 2020.

30 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations HIGHLIGHTED PROGRAMS

which are improving. Monitoring data make it possible for • Healthy Forests Reserve Program (HFRP) state agencies and local partners to target Clean Water Fund • Conservation Innovation Grants (CIG) investments and other federal and state dollars to keep healthy waters healthy, stop declining trends, and make improvements where they would make the biggest impact. In addition, accurate Administered by the Farm Service Agency, TMDLs ensure that point source discharge sources such as U.S. Department of Agriculture wastewater treatment plants spend only the financial resources • Conservation Reserve Enhancement Program (CREP) they need to in order to comply with their permits. Administered by the U.S. Environmental Combined Efforts with Other Protection Agency • Federal Clean Water Act Section 319 Grants Dedicated Funds, Federal • Great Lakes Restoration Initiative/Area of Concern (AOC) Funds, etc. State statute allows and gives priority to clean water projects Administered by the U.S. Fish and Wildlife that can leverage other sources of funding. Service • Fishers and Farmers Partnership Grants Money from the clean water fund may be used to leverage federal funds through execution of formal project State Funding Sources partnership agreements with federal agencies consistent with respective federal agency partnership • General Obligation Bonds agreement requirements. -- Minn. Stat. 114D.50 Subd. 4 (h) • Environment & Natural Resources Trust Fund • Outdoor Heritage Fund The Clean Water Council shall give priority in its recommendations for restoration funding from the clean Local Funding Sources water fund to restoration projects that…most effectively leverage other sources of restoration funding, including • Watershed Districts federal, state, local, and private sources of funds. – Minn. • Water Management Organizations Stat. 114D.20 Subd. 6 (3): • Soil and Water Conservation Districts • Counties, Municipalities, and Townships The Clean Water Fund is often the initial seed funding or is • Landowners and Property Owners: Our current estimate of otherwise a partial source of funding for large and complex leverage funds does not include landowner contributions. projects. The State has documented that every dollar from the Most support for landowners, such as agricultural BMPs, Clean Water Fund leverages another 95 cents from other funding require initial investment by the individual. sources. Some other sources such as landowner contributions are not always documented, so the leverage is likely even higher. Dozens of programs supported by the Clean Water Fund operate simultaneously, making it challenging to track progress in one Other funding sources leveraged by the Clean Water Fund— place. Generally speaking, the larger the scale (e.g., statewide either to assist a project or as direct payment to landowners— perspective), the more difficult it is to see trends influenced include the following: by the Clean Water Fund. Smaller scale evaluation on a sub- watershed scale is more likely to connect results to the Fund. Administered by the Natural Resources Conservation Service (NRCS), U.S. Protection strategies, such as reducing the risk of future water impairments by reducing potential sources of pollution, are an Department of Agriculture additional barrier to measuring progress. This is because when • Environmental Quality Incentives Program (EQIP) they are effective, successful protection strategies keep water • Conservation Stewardship Program (CSP) quality at a high level and therefore show no “improvement.” • Regional Conservation Partnership Program (RCPP) • Agricultural Conservation Easement Program (ACEP)

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 31 HOW DOES THE STATE MEASURE PROGRESS AND PROVIDE OVERSIGHT?

Statutory Requirements Fishable, Swimmable, Drinkable There are several statutory reporting requirements on the Clean Water Fund that measure certain activities. Standard There are several statutory reporting requirements on the Clean State Constitution: Article XI, Section 15 Water Fund that measure certain activities. requires that five percent of the Clean Among the broadest objectives of the Clean Water Fund and Water Fund be spent on protection of State water policy are to have “fishable”, “swimmable”, and drinking water sources. The FY22-23 set of “drinkable” water. In 2014, Minnesota’s Clean Water Roadmap recommendations would spend 20 percent estimated goals that were realistic to meet by 2034. of the Fund on this purpose. • Fishable: The tool for measuring “fishability” of Minnesota lakes is the Fish-Based Index of Biological Integrity (IBI). The • Performance Report: State agencies produce a biennial statewide goal was to increase the percentage of Minnesota’s report on clean water outcomes in the biennial Clean Water rivers and streams with healthy fish communities, as Fund Performance Report. This document includes roughly measured by the IBI, from 60 percent in 2008 to 67 percent 20 key measures on surface water quality, drinking water, in 2034. Minnesota was at 61 percent in 2017. and groundwater. A summary of these measures is included in a four-page Clean Water Fund Report Card. These measures do not necessarily make a direct connection between Clean Water Fund spending and environmental outcomes that are measured on a statewide level. • Restoration Evaluation: The DNR and BWSR, as described in Minn. Stat. 114D.30 Subd. 6, performs a biennial Legacy Fund Restoration Evaluation Report. This report evaluates restoration projects supported by dedicated sales tax revenue derived from the Legacy Amendment, including the Clean Water Fund. • Clean Water Fund Recommendations: This document is required to be submitted by the Clean Water Council every even-numbered year on December 1st, according to Minn. Figure 11: Fishable Waters as Determined by Healthy Fish Stations Stat. 114D.30 Subd. 7. • Legacy Web Site: Minn. Stat. 114D.50 Subd. 4(c) requires that agencies submit project information to the Legislative • Swimmable: The indicator for “swimmability” is good water Coordinating Commission (LCC) for inclusion in a searchable quality on the Trophic State Index (TSI). The statewide goal database at https://www.legacy.mn.gov/. (The Council’s was to increase the percentage of lakes with a good quality recommendations include partial support for web site on the TSI from 63 percent in 2008 to 70 percent in 2034. maintenance.) Minnesota was at 64 in 2017. • Measurable Outcomes: “A project receiving funding from the clean water fund shall include measurable outcomes, as defined in section 3.303, subdivision 10, and a plan for measuring and evaluating the results.” -Minn. Stat. 114D.50 Subd. 4(a)

Figure 12: Swimmable Waters as Determined by Recreational Standards

32 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations HOW DOES THE STATE MEASURE PROGRESS AND PROVIDE OVERSIGHT?

• Drinkable: Drinkability is measured by water quality and º Complete revised source water assessments for all 23 water quantity indicators. The goal for water quality is surface water systems by 2025. This program is ON twofold; to reduce the number of new wells with unsafe TRACK. MDH plans to have ten assessments complete levels of arsenic by 50% and to reduce the number of wells by 2023. with unsafe levels of nitrate by 50% in two regions of the º Complete source water intake protection planning by state. The goal for water quantity is to have 90% of the 2027. This program is ON TRACK. Five plans should be monitoring sites have either a steady or increasing water complete by mid-2023. level trend. º Complete pilot source water protection planning for 10 non-community public water systems with at-risk populations by 2027. This program is ON TRACK. MDH projects that three will be complete by mid-2024. Drinking water is safe for everyone, everywhere in Minnesota • Metro Groundwater Use Reduction (Metropolitan Council): Metro population growth will require a reduction in Ground water is clean and available groundwater use by 150 million gallons per year to ensure a sustainable water supply in the future. Due to two programs supported by the Clean Water Fund, the Met Council is ON

GOALS Surface water is swimmable and fishable TRACK with this goal.

Minnesotans value water and take actions to sustain and protect it

Strategic Indicators In order to give Minnesotans a better indication the results achieved by the Clean Water Fund, the Clean Water Council established its first Strategic Plan in the spring of 2020. The Plan includes roughly 40 strategies for the State to complete by 2034 using the Clean Water Fund. These strategies, when fulfilled, would result in protected or improved water quality, although the ability to show trends will take place over many years. Here is a key sampling of these strategies. Figure 13: Combined MnTAP and Water Efficiency Grant Program Cumulative Gallons Saved Goal 1: Drinking water is safe • Nitrogen Reduction in Groundwater: The CWF supports for everyone, everywhere in the MDA’s implementation of the Ground Water Protection Minnesota Rule, so that no additional existing municipal water supply wells exceed the drinking water standard for nitrate. The state has identified all DWSMAs where nitrate is above • Source Water Protection Plans (MDH) or projected to be above the drinking water standard º Complete source water protection planning and of 10 mg/L. Beginning in 2019 with the adoption of the implementation for 500 vulnerable community public Groundwater Protection Rule, the Clean Water Fund water systems. Delineation of DWSMAs for these supports the mitigation activities that will reduce nitrate systems was COMPLETED in 2020. The Clean Water levels to acceptable levels. The state is ON TRACK in Fund will support half of needed activities through applying the initial two of four mitigation levels. This 2034. includes voluntary adoption of best management practices º Complete first generation source water protection (BMPs) and alternative management tools (AMT) (Level plans for remaining 420 community public water One), creation of local advisory teams that recommend systems by 2025. This program is ON TRACK. uniform BMPs and AMTs, and measuring their effects (Level

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 33 HOW DOES THE STATE MEASURE PROGRESS AND PROVIDE OVERSIGHT?

Two). There are six DWSMAs in Level One and 17 in Level • Protection of Public Wellheads: Approximately 400,000 Two. There are 11 other DWSMAs that could be included acres of vulnerable land surround more than 900 DWSMAs. pending additional information. The Council’s strategy is to protect this acreage to ensure safe drinking water no later than 2034. MDH is ON TRACK to complete development of this measure in FY23. Drinking Water Supply Management Area Mitigation Levels as of January 15th, 2020

Pine River Perham Verndale Moose Lake

2020 DWSMA Levels

1 Rice Milaca Melrose Glenwood 2 Sauk Rapids Cold Spring Clear Lake Roscoe Need more information Becker Atwater Shakopee Rosemount Hastings

Verdi Holland Saint Peter Goodhue Balaton Plainview North Darfur Elgin Altura Holland Chandler Edgerton Utica Adrian Rock Ellsworth Co RWS

Figure 14: Drinking Water Supply Management Area Mitigation Levels as of January 2020 Figure 15: MN Geologic Atlas Part A

Goal 2: Groundwater is clean and available to all in Minnesota

• Groundwater Restoration and Protection Strategies (GRAPS): MDH completes a GRAPS for all major watersheds engaged in comprehensive watershed planning. This program is ON TRACK to be completed at the same time that One Watershed One Plans are complete by 2025. • Geologic Atlases: The Minnesota Geological Survey is ON TRACK to complete geologic atlases for all Minnesota counties within the next decade. These are Part A of the County Geologic Atlas series. • Groundwater Atlases: DNR is ON TRACK to complete groundwater atlases for all Minnesota counties by 2029. These are Part B of the County Geologic Atlas series.

34 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations HOW DOES THE STATE MEASURE PROGRESS AND PROVIDE OVERSIGHT?

Figure 16: County Groundwater Atlas Part B Program Status Figure 17: WRAPS dashboard map

• Groundwater Monitoring Wells: The DNR has a goal • One Watershed One Plan (1W1P): The Board of Water and of having 1,600 state-owned and managed long-term Soil Resources (BWSR) assembles local government units— groundwater monitoring wells statewide by 2034. The Clean such as watershed districts, soil and water conservation Water Fund supports 50 new wells a year in addition to the districts, water management organizations, counties, 1,125 current wells and DNR is ON TRACK to meet its goal. municipalities—to prioritize the projects identified in the • Subsurface Sewage Treatment Systems (SSTS): The MPCA WRAPS, GRAPS, and other local issues. This results in a estimates that the Clean Water Fund can help to maintain comprehensive watershed management plan using the a compliance rate for subsurface septic treatment (SSTS) One Watershed One Plan program. With an approved plan, systems at a minimum of 80 percent, and to attain a goal of that watershed will receive a defined amount of funding 90 percent annually. The compliance rate will vary annually for high priority projects for the lifetime of the Clean Water since there are always new systems failing every year. Fund. The program is voluntary, but there likely will be In 2019, compliance was at 83 percent, which EXCEEDS approximately 60 plans completed due to combined efforts the minimum goal. The percentage of SSTSs that pose an among watersheds. Sixteen have been approved and 22 imminent threat to public health and safety has dropped are in development to date. Plans are ON TRACK to be from seven percent in 2010 to two percent in 2019. underway by 2025. • Mississippi River Headwaters: The Council’s plan aligns with other public and private stakeholders seeking to protect 100,000 priority acres and restore 100,000 priority acres in Goal 3: Surface waters are the Upper Mississippi River headwaters basin by 2034 to swimmable and fishable ensure high water quality into the future. The Council is still throughout the state working with stakeholders on the best way to measure this strategy. • Contaminants of Emerging Concern: MDH attempts to • Watershed Restoration and Protection Strategies (WRAPS): evaluate five contaminants annually. MDH is ON TRACK A WRAPS is like a blueprint for action in each of Minnesota’s to complete this goal. The University of Minnesota Water 80 major watersheds. The MPCA compiles the science from Resources Center and Humphrey Institute of Public Affairs other CWF activity to identify which actions are most likely conducted a review of this program in 2016. to meet a watershed’s water quality goals. As of November • Cover Crops/Continuous Living Cover: Achieve a goal of five 2020, 56 of 80 WRAPS have been completed. Statue million acres of row crop agriculture that use cover crops or requires them to be complete by 2023, and the MPCA is ON continuous living cover by 2034. See Figure 10. TRACK to complete them.

Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations 35 HOW DOES THE STATE MEASURE PROGRESS AND PROVIDE OVERSIGHT?

• Certified Farms (cumulative benefits): The Council and MPCA and for project support activities. The program is ON MAWQCP estimates that 6,500,000 acres and 5,100 TRACK to complete its remediation and restoration projects Minnesota farms will be enrolled in the program in the by by 2024. Delisting the AOC will follow sometime after that. 2030. This would constitute about one-third of cropland in • BWSR Competitive Grants: The Legislature in 2017 Minnesota. MAWQCP is ON TRACK to meet this goal. As of required BWSR to submit a biennial report on its Clean September 2020, there are 659,440 certified acres in the Water Fund recipients, and the amount of pollution program and 950 certified producers. MAWQCP documents reduced by their projects. According to the report, “BWSR water quality and climate benefits from certification, requires grant applicants to estimate anticipated outcomes including how many new best management practices are for proposed projects during the application process. employed. These are the cumulative benefits: Applicants used pollution reduction calculators, such as the º Keeps 37,786 tons of sediment out of our waterways Revised Universal Soil Loss Equation (RUSLE2), and similar º Avoids the loss of 106,445 tons of soil tools for estimating effectiveness of keeping water runoff º Reduces phosphorus by 46,903 pounds on the land through infiltration, diversion, or collection. º Reduces carbon emissions by 43,745 metric tons of Based on projected outcomes, projects funded in FY 18-19 CO2-equivalent, or the amount emitted annually by will remove 35,500 pounds of phosphorus and 51,000 tons 9,400+ passenger vehicles of sediment from Minnesota waters.” • BWSR Easements: BWSR carries out several easement programs to improve water quality. The State entered into an agreement with the federal government to provide $175 million in Conservation Reserve Enhancement Program (CREP) funding to leverage $350 million in federal funding. Minnesota is only $16.5 million shy of this goal. BWSR reports that as of January 2020, 450 applicants had enrolled 24,000 acres in permanent conservation easements. To date, the program has reduced annual pollutant loads by the following: 5,300 metric tons of CO2 equivalent per year; 7,600 pounds of total phosphorus per year; 480,000 pounds of total nitrogen per year; and 49,200 tons of sediment per year. • Cumulative BWSR Impacts: For the period 2018-2019, the cumulative impacts of grants and easements have reduced Figure 18 MAWQCP certified acres graph 2014-2020 sediment by 177,000 tons of sediment and prevented 189,000 pounds of phosphorus annually.

• Certified Farms (marginal benefits): On average, each new 400 acre Water Quality Certified farm provides the following annual benefits: º Conserves 65 tons of soil and reduces sediment load into surface waters by 23 tons º Avoids 29 pounds of phosphorus (one pound of phosphorus can create 500 pounds of algae) º Reduces carbon emissions by 65 metric tons of CO2 equivalent (the same amount emitted by 7.5 homes a year) º Reduces nitrogen loss by up to 49% through Advanced Nutrient Management that exceeds best management practices set by the University of Minnesota) • Great Lakes Restoration: The Strategic Plan asks for support of the federal Great Lakes Restoration Initiative’s Action Plan. Currently, this means continued funding of staff who lead the St. Louis River Area of Concern (AOC) program at Duluth Harbor

36 Clean Water Council Report: FY 22-23 Clean Water Fund and Policy Recommendations