Special State Concerns, 2006 Water Quality
Report to Congress

Courtesy of: MODIS Rapid Response System

During 2004-05, the Water Division identified four strategic objectives and associated goals and performance measures, as well as a number of special initiatives. These key areas provide the foundation for protecting and managing water in Wisconsin and are provide measureable milestones and tasks to communicate progress in the coming years.

Great Lakes

The Great Lakes bound the eastern and northern borders of Wisconsin. With the islands of Door County and the Apostle Islands, there are over 1000 miles of Great Lakes shoreline. With over half of the state's popluation living in the basin, the Great Lakes are critical as source of drinking water, industrial and commercial process and cooling water, a significant transportation system and a highly desirable tourist destination for fishing, boating or the beaches. As interstate and international waters, management programs must be established at a regional scale to be effective.

In 2004, the Department elevated the status of Great Lakes issues by creating an Office of the Great Lakes. This office works closely with DNR's administration to support Wisconsin's Governor in his chairing of the Council of Great Lakes Governors. The Council is developing a regional agenda in response to a Congressional inquiry that focuses on 9 priority areas:

ensuring the sustainable use of Great Lake waters

protection of public health from adverse impacts of pollution

controlling pollution from diffuse sources

continue to reduce the introduction of bioaccumulative substances into the ecosystem

stop the introduction and spread of non-native invasive aquatic species

enhance fish and wildlife by protecting and restoring important habitats

restore the environmental quality in Areas of Concern

standardize and enhance methods for data collection, analysis and distribution

adopt sustainable use practices to protect environmental resources and enhance the recreational and commercial values of the Great Lakes. Using this agenda, Wisconsin will be working in partnership with other states to carry out specific actions to eliminate the need for fish and wildlife consumption advisories through remediation of contaminated sediment, atmospheric pollutant controls, nonpoint source reductions. Important habitat areas will be identified and protected or restored in those cases where habitat quality may be impaired. Plans to stop exotic species will be implemented with an emphasis on preventing new introductions from any sources. Sources of pollution which lead to beach closure will be identified and corrected. Through this agenda, the Great Lakes state Governors will seek federal support for a multi-year campaign to restore the quality of the Great Lakes ecosystem.

Because of their immense size, management actions will require extensive collaboration and cooperation among jurisdictions and among all levels of government, advocacy interests and industry. These are large- scale problems which need multi-year efforts. With 20 percent of the world's supply of freshwater at stake, increasing the prominence and national investments into the Great Lakes restoration projects are necessary and reasonable actions.

Aquatic Invasive Species

Since the early 1800s, more than 140 aquatic nonindigenous species (ANS) have arrived in the Great Lakes. Not all arrivals - or introductions - have resulted in harm. However, some threaten the diversity or abundance of native species, the ecological stability of habitats, and/or commercial, agriculture, aquaculture and recreation activities. The pace of introductions is increasing and it will only get worse with increasing global trade unless national/international prevention and control measures can be put in place.

In 2002, WDNR completed a Comprehensive Management Plan to Prevent Further Introductions and to Control Existing Populations of Nonindigenous Aquatic Nuisance Species (ANS). This plan is a blueprint for managing aquatic invasive species and is designed to help prevent new introductions, to slow the spread of existing ANS and to control or abate the ecological and economic impact of existing problem species. water, for example, likely involve and affect the other - surface water. This plan was prepared in partnership with the University of Wisconsin Sea Grant Institute and in 2002 was submitted to the National Aquatic Nuisance Species Task Force, when it was approved.

The invasives program recognizes the need for regional, national and international action and coordination in targeting ballast water of ocean going vessels - the primary, documented way many invasive species reach the Great Lakes. Also, the Comprehensive Plan calls for a coordinated study of the potential for introductions by the bait and aquaculture industry and development of recommendations to reduce this pathway for importation of aquatic exotics. Many aquatic activities can result in the transport of invasive species and their introduction into uninfested waters, but the bait shops, pet pet sales, and aquaculture operations are a much lesser threat than ballast water represents.

The primary way invasive species spread to new inland waters is by hitching a ride aboard the boats, trailers, bait buckets and other equipment of recreational boaters and anglers. Inspections of recreational boats at key public landings and an expanded information and education campaign and outreach efforts to slow the advance of zebra mussels and Eurasian watermilfoil are also recommended.

During 2004-05, the state's comprehensive program for invasives conducted preventio education, outreach, and data collection through watercraft inspection at boat landings, enforcement efforts, and a stepped up public awareness campaign that includes television and radio messages to reach a large audience. The Surface water Integrated Monitoring Program (SWIMS), an integrated data system to support this work, was developed. The following charts were developed from tracking data in SWIMS: Eurasian Water Milfoil infestations in 2005 || Eurasian Water Milfoil infestations by decade || Eurasian Water Milfoil infestations by Hybrid ||

Water Quantity Issues

Wisconsin is known for its abundant water resources. However, there is a growing concern about the availability of enough high quality water for uses ranging from public water supply to sustaining cold water habitat for fish. Wisconsin's surface water and groundwater quantity concerns, while seemingly distinct, are as closely linked as the resources. Studies throughout the state illustrate the direct connection between shallow aquifers and the state's streams, rivers, lakes and wetlands. Thus, in general, water quantity concerns with one aspect of the resource - groundwater, for example, likely involve and affect the other - surface water.

Groundwater availability in a given area is limited by geologic and hydrologic factors. Over the years the state's increasing population, rapid widespread development and increasing and varied industrial demands in some areas have increased demands for groundwater beyond the amount that can be sustained. This imbalance can result in cumulative water quantity and related water quality problems. Significant regional groundwater quantity impacts are documented in the Lower Fox Valley, and Southeastern Wisconsin and are beginning to be seen in Dane County. These three areas are experiencing substantial groundwater level declines. Localized surface expressions of quantity issues include lake level drops, stream flow declines, wetland size and level declines, and the disappearance of springs. In addition these declines have contributed to drinking water quality problems in the Lower Fox Valley and Southeastern Wisconsin.

Historically, management of Wisconsin's groundwater and surface water has been functionally distinct. The State's regulations for water use cover installation of high capacity wells, surface water diversions, in-stream flows and water conservation. The recent evaluation of placement of a high capacity well for a drinking water bottling plant in a spring-fed region illustrated the complexity of social, ecological and institutional issues involved and underscored the state's limited powers to protect sensitive water bodies, such as springs, from the impacts of high capacity wells. In Spring 2004, the state has taken an important step towards integrated management of water resources by passing groundwater quantity legislation designed to further protect groundwater and surface waters from the impacts of high capacity wells. Specifically, the law expands the DNR's authority to regulate high capacity wells that may impact certain critical surface water resources. The law also designates two large regional groundwater management areas for which a coordinated water management strategy is needed to alleviate pressures of increasing water demands and creates a Groundwater Advisory Committee to make recommendations on management strategies in these regions.

In addition, increasing interest in and demand for water diversions involving the Great Lakes Basin also mandate a coordinated programmatic response. Most recently, Wisconsin has been participating on a binational committee to oversee implementation of Annex 2001 to the 1985 Great Lakes Charter. The Great Lakes Charter and the Great Lakes Charter Annex are voluntary agreements through which the Great Lakes states and provinces cooperatively manage the waters of the Great Lakes. In the Annex, the Governors and Premiers outline the framework for a set of binding agreements among the Great Lakes States and Provinces and establish a series of principles for a new standard for reviewing proposed withdrawals of Great Lakes water. Site of interest: Great Lakes Water Use and Diversions || Groundwater Summit || GCC Groundwater Quantity Issues.

Riparian Development

Few natural scenes are more treasured than a golden sunrise over a mist-covered lake. Perhaps it is the sense peace this scene provides that, ironically, has resulted in the tremendous changes in the state's shoreland areas. The sense that many, if not most, of the state's lakes and increasingly its riparian shore areas were fully or nearly completely developed prompted the WDNR to initiate its Northern Initiative in the early 1990s. Surveys in 1994 and 1995 indicated that residents and visitors were very concerned about retaining northern Wisconsin's wild and scenic qualities. Follow-up surveys of land use change in the northern part of the state confirmed suspicions that undeveloped riparian areas were being lost at a rapid rate. Generally, land cover data and land use analyses show extraordinarily rapid growth throughout the entire state. Development pockets are occurring in the Milwaukee to Madison corridor, the Fox Valley/Green Bay area, the Hudson/Eau Claire/Chippewa Falls region (tributary to the Twin Cities) and a generalized growth pattern stretching across the entire northern portion of the state. Within each of these areas and beyond, land values for shorelands have escalated while the same land parcel becomes even more critical (as it becomes more rare) for its ecological functions. Several initiatives, at the federal, state and local levels, are ongoing to address the issue of land use generally - and riparian development specifically - including:

The Northern Initiative (WDNR), a geographically-based framework for focusing interest and resources on preserving the fundamental values of wild places in the north;
Land Legacy (WDNR), a proposed 50-year land acquisition framework for public land purchase and easement development in the state;
Conservation Reserve and Enhancement Program (Federal), a federal match program to secure buffers through easement and acquisition;
Smart Growth (Local), a series of state level requirements for comprehensive planning and the local level which involves identifying key natural resource features in a community. This may result in some type of local protection for key riparian resources.
Shoreland Management Program (State/Local). In the 1960s Wisconsin established an administrative code known as "NR 115" to protect water quality, wildlife habitat and natural shoreline beauty through statewide minimum standards for land uses and development adjacent to lakes, rivers and streams in unincorporated areas. NR 115 was implemented via mandated county shoreland ordinances. NR117 is a similar provision applying to shoreland-wetlands in incorporated areas. NR118 covers shoreland management associated with the Lower St. Croix Riverway.
Lakes Planning, Protection and Classification Grants (State/Local) have provided funds for careful resource planning and protection at the local level, resulting in initiatives designed to meet the resource protection needs of lakes based on waterbody characteristics and development potential.
Rivers Planning and Protection Grants (State/Local) have provided funds to protect rivers through resource planning at the local level to help prevent water quality, fisheries habitat, and natural scenic beauty from deteriorating as residential, recreational, industrial and other uses increased along rivers.
Issues
While Wisconsin's Shoreland Management Program was landmark legislation in the 1960's, it has not kept current with development trends or the impacts of the resulting development. Studies have shown that the current minimum standards may be inadequate to prevent water pollution, shoreline erosion and the loss of fish and wildlife habitat. The Department has updated Ch. NR 115, Wis. Admin. Code, to offer landowner more flexibility in developing and maintaining shoreland property, while offsetting the impacts of shoreland development and increasing environmental protection.

Many local communities have adopted local land use policies that exceed the state minimum standards recognizing the need to protect Wisconsin's resources, however, turnover is often high in local government. As a result there is a continuous need to provide education and training to local governments.

Private property rights groups are becoming more active in the State, and many local communities are turning to the Department for help in understanding the legal implication of proposed regulations, as well as implications of State and Federal Supreme Court cases. Concerns range from regulation and takings to when can a variance be issued. Education and training is needed for local Corporation Counsels, as well for the general public. Land prices have skyrocketed surrounding Wisconsin lakes and rivers. One result is that it is more expensive to preserve the remaining undeveloped land, and the State is often at odds with developers for the same piece of land. The other problem is more and more people are turning to "marginal" pieces of property to develop, often with large areas of wetlands that are difficult to develop and often, the landowners have unrealistic expectationsof how the property can be managed.

Contaminated Sediment

Contaminated sediment is by no means a new issue to the state of Wisconsin - the state has been working in partnership with public and private entitites for many years to identify, understand and remove contaminated sediment. Today, however, the state is redoubling its efforts to remediate contaminated sediment as this issue has been identified as a priority for the Water Division. Showcasing the latest technology and partnership approaches is the Fox River Sediment Remediation. As one of the Governor's top environmental program priorities, the Fox River work is spurring momentum for a much broader effort - the development and implementation of a contaminated sediment strategy for the state.
Great Lakes Contaminated Sediments Program

Last Revised: Saturday July 29 2006