August 27, 2012 Association of State Wetland Managers Wetland Water Quality Standards for States By Jon Kusler, Esq. Ph.D. [email protected] Jeanne Christie, ASWM [email protected] 1 August 27, 2012 Wetland Water Quality Standards for States By Jon A. Kusler, Esq. Ph.D. and Jeanne Christie Jeanne Christie photo Association of State Wetland Managers, Inc. 32 Tandberg Trail, Suite 2A Windham, ME 04062 http://aswm.org i Foreword The following report has been prepared by the Association of State Wetland Managers as part of a broader project to help states adopt water quality standards for wetland ecosystems. It addresses selected issues with regard to the formulation and adoption of such standards. It provides the states with some examples of draft narrative standards in Appendices A and B. The materials which follow are based upon: • A literature search; web search; and legal statutory and regulatory search of the terms “state water quality standards”; “state wetland water quality standards; “state water quality; tribal water quality; “tribal wetland water quality standards” and variety of other relevant terms; • Examination of existing state and tribal water quality standards for wetlands. We have examined the standards adopted by all of the states and tribes which have approved water quality standards; • A series of conference calls and Webinars with the states conducted by ASWM in cooperation with many states • Discussions with state staff concerning the content, strengths, and weaknesses of existing wetland water quality standards. In preparing the materials in Appendices A and B, ASWM staff first prepared an outline of draft standards based upon the sources listed above. States and other interested parties were then asked to review the outline. Draft language for the standards were prepared based upon the outline. Much of this language has been taken from existing state and tribal statutes and regulations. States and other interested parties have been asked to review the draft language posted on the Internet. Three one day wetland water quality meetings were conducted in the spring of 2012. A session was also included in the joint EPA/ASWM annual coordination meeting in the spring of 2012. We hope that you will find the report interesting and useful. We welcome any corrections or suggestions. Thanks. Jon Kusler Jeanne Christie i Acknowledgements The materials which follow are based, in part, upon an earlier study and report concerning state wetland water quality standards prepared by the Association of State Wetland Managers for the Maryland Department of the Environment. The earlier report and the report which follows have been prepared with funding support from the U.S. Environmental Protection Agency, Wetland Division, which is gratefully acknowledged. However, the reports reflect the views of the authors and not necessarily the U.S. Environmental Protection Agency or the Association of State Wetland Managers (ASWM). Draft state wetland and water quality language is suggested in Appendices A and B. The draft language provides examples for the states wishing to adopt their own narrative wetland water quality guidance or standards. Limitations The following document is intended solely for state use and does not represent the U.S. Environmental Protection Agency. The draft language in Appendices A and B is drawn from existing state wetland water quality regulations and revised to reflect comments and suggestions provided to ASWM staff in webinars, workshops, written comments, and discussions concerning state wetland and water quality standards. Future Revisions Water quality standards for wetlands is an area of public policy that will continue to evolve as additional states and tribes adopt wetland-specific water quality standards. This report may be expanded and revised as more examples, best practices and references become available. Therefore, the Association of State Wetland Managers retains the discretion to revise and add to this document in the future. States and tribes and other interested parties that would like to provide information and recommendations for improving this document may contact Jon Kusler ([email protected]) or Jeanne Christie ([email protected]). ii Table of Contents Foreword .......................................................................................................................................... i Acknowledgements ......................................................................................................................... ii PART 1: INTRODUCTION ........................................................................................................... 1 Wetlands ..................................................................................................................................... 1 A Clean Water Act Partnership ................................................................................................... 4 EPA Guidance for State Wetland Water Quality Standards ....................................................... 6 PART 2. POLLUTION SOURCES AND IMPACTS ................................................................. 12 Types of Pollutants and Pollution ............................................................................................. 12 Water Quality and Wetland Functions ...................................................................................... 14 PART 3. BENEFITS OF WETLAND WATER QUALITY STANDARDS TO THE STATES ........................................................................................................................................ 22 PART 4. HOW WETLANDS ARE SIMILAR TO AND DIFFERENT FROM OTHER WATERS; WHAT THIS MEANS TO STATE WATER QUALITY STANDARDS FOR WETLANDS................................................................................................................................. 24 Shared Characteristics Between Wetlands and Other Waters .................................................. 24 Differences Between Wetlands and More Traditional Waters ................................................. 24 Differences in Hydrology, Soils, Vegetation Within Individual Wetlands. ............................. 25 Implications of Similarities and Differences ............................................................................ 31 PART 5: STATE WETLAND WATER QUALITY PROGRAMS ............................................. 34 Overview of State Provisions.................................................................................................... 35 PART 6: DEVELOPING A STATE WETLAND WATER QUALITY PROGRAM ................. 41 Does Your State Need New Legislation? ................................................................................. 41 What Programs Could Provide The Basis for State Wetland Water Quality Regulations? ...... 41 Does a State Need to Regulate Water-Quality Related Hydrologic Alterations as Well Traditional Sources of Pollution? ............................................................................................. 44 Do States Need to Protect Riparian as Well As Wetland Areas? ............................................. 45 Should a State Adopt Wetland and Water Quality Regulations as Statutes, Administrative Regulations, or Guidance? ........................................................................................................ 45 What Steps Can a State Take to Develop a Wetland/Water Quality Program?........................ 46 Does a State Need to Supplement Wetland Water Quality Regulations With Nonregulatory Approaches? .............................................................................................................................. 49 PART 7. FUTURE DIRECTIONS .............................................................................................. 52 State Actions ............................................................................................................................. 52 EPA ........................................................................................................................................... 54 iii APPENDIX A. DRAFT WETLAND AND WATER QUALITY/ REGULATIONS/GUIDANCE..................................................................................................... 56 Introduction: Use of Draft Regulations/Guidance Contained in Appendices A and B ............ 56 Draft: Appendix A. Suggested State Wetland Water Quality Regulatory Elements for Insertion Into Broader Regulations ........................................................................................... 57 Summary of Appendix A Provisions ........................................................................................ 58 EPA Guidance ........................................................................................................................... 59 Draft Textual and Commentary Language for Appendix A: Suggested State Wetland Water Quality Regulatory Elements for Insertion Into Broader Regulations ...................................... 60 Section 1. Statutory Authority; Application of Regulations. ................................................ 60 Section 2. Definition of State Waters to Include Wetlands. ................................................. 61 Section 3. Findings of Fact ................................................................................................... 61 Section 4. Explicit Definition for “Wetlands”. ...................................................................