Final Basin 17 Tactical Basin Planning

The Watershed Planning Program develops and implements Tactical Basin Plans (TBPs) in accordance with the  Vermont Surface Water Management Strategy  (VSWMS) and the  Vermont Water Quality Standards  (VWQS) to protect, maintain, enhance, and restore the biological, chemical, and physical integrity of Vermont’s water resources.

The basin-specific water quality goals, strategies, and projects described in the TBPs aim to protect public health and safety and ensure public use and enjoyment of VT waters and their ecological health.  The plan serves as a guidebook for ANR as well as the many partners working to protect and restore waters in this basin.

The 5 chapters in this plan will delve into detailed aspects of the Basin's surface waters.

Chapters 1-4 in the Basin 17 TBP provide an overview of the basin, identification of protection and restoration priorities, and surface water strategies to achieve sector-based protection and restoration priorities. Chapter 5 provides a list of sector-specific strategies to achieve water quality goals and a progress report for the strategies identified in the 2017 TBP. 

The TBP process allows for the issuance of plans for Vermont's 15 planning basins every 5 years.

The basin planning process includes 5 major steps:

1. Monitoring water quality
2. Assessing and analyzing water quality data
3. Identifying strategies and projects to protect and restore waters
4. Seeking public comment and developing the plan
5. Implementing and tracking plan priorities (which is ongoing throughout the planning cycle)

Basin 17 is comprised of the Lake Memphremagog watershed (Black Barton Clyde and Johns Rivers) plus the Coaticook and Tomifobia Drainages that together make up the Vermont tributaries to the St Francais River.

These watersheds are shared with the Province of Quebec. The majority of the Lake Memphremagog watershed is in Vermont while the majority of Lake Memphremagog is in Quebec which requires international coordination on issues related to the Lake and it's watershed. The Quebec Vermont Steering committee on Lake Memphremagog supports coordination around the international lake, meeting twice a year to discuss lake and watershed issues. In addition to this, the international Joint Commission funded a  study on nutrient enrichment  concerns on Lake Memphreamgog which is now available online.

The Tomifobia and Stearns Brook watersheds flow to Lake Massawippi which has elevated levels of nutrients and so addressing nutrient loading from these tributaries is also a priority to support the health of this waterbody.

River Reclassification Candidates

Biomonitoring assessments by the WSMD identified five surface waters, Shalney Branch in Albany, Wheeler Mountain Brook in Westmore, Oswegatchie Brook in Brighton, Hurricane Brook in Holland, and Number 5 Brook in Norton as consistently and demonstrably attaining a higher level of quality than Class B(2), meeting Class B(1) draft criteria for aquatic biota.

An additional 19 streams meet B(1) criteria criteria for fishing use and there are another 17 streams where an additional sampling event may be able to demonstrate that these streams meet the B(1) criteria for fishing use.

Wetland Reclassification Candidates

Class 1 wetlands are exceptional or irreplaceable in their contribution to Vermont’s natural heritage. They provide unmatched environmental functions and values and therefore merit the highest level of protection. There are currently no Class 1 wetlands in Basin 17, but there is currently 3 wetlands proposed for study. For more information on the process see this  webpage. 

For the purposes of identifying and tracking important water quality problems where the VWQS are not met, VDEC has developed the Vermont Priority Waters List. 

These priority waters fall into one of two categories: 1. Impaired waters and 2. Altered waters.

Impaired waters include Part A - 303(d), where a Total Maximum Daily Load Plan (TMDL) is required, Part B - Alternative, where no TMDL is required because other pollution control mechanisms are in place, and Part D - TMDL, where a TMDL has been approved by EPA.

Altered waters are those waters where aquatic habitat or other designated uses are degraded by exotic species or where hydrologic factors lead to alteration from modified flow regimes. Sections of that list include: Part E-waters altered by AIS; and Part F-waters altered by flow modifications. 

Impaired lakes across Basin 17 through 2020-- Yellow represents lakes that are on the 303(d) list and salmon color represents lakes that are on Part D of the Priority Waters List and have an EPA approved TMDL.

Impaired rivers across Basin 17 through 2020--

Phosphorus levels in Lake Memphremagog consistently exceed the phosphorus standard for the lake of 14 micrograms per liter. Low levels of phosphorus generally limit plant and algae growth and so these elevated phosphorus levels have caused Cyanobacteria (or blue-green algae) blooms in the lake as well as  reduced water clarity that have limited the use of the lake.  The graphs below show the individual phosphorus levels in the lake through three monitoring programs which are consistently above 14 micrograms per liter, which is shown as the red lines in each graph.

A cleanup plan, called a Total Maximum Daily Load (TMDL) was developed for Lake Memphremagog in 2017 to identify how phosphorus loading could be reduced across the Lake Memphremagog watershed to meet water quality target for the lake. The 2022 Tactical Basin Plan will include an updated implementation plan to meet the goals of the  Lake Memphremagog Phosphorus Total Maximum Daily Load (TMDL) .

This implementation plan will describe the progress achieved in phosphorus reductions from farm, developed lands, and natural resource sectors since 2017. The plan will project sector-specific target reductions for the next 5 years, report on reduction requirements across all sectors within the basin, including regulatory and non-regulatory actions, and identify gaps in strategy implementation. An  online interactive report  shown in this <-- graphic has been created to show the user loading estimates and reduction targets from the TMDL for each subwatershed in the Lake Memphremagog watershed.

Vermont is reducing phosphorus through regulatory and non-regulatory initiatives in all sectors including developed lands, agricultural lands, forests, streams, wetlands, lakes, and wastewater.

Significant progress has been made in meeting phosphorus reduction target of 15.2 metric tons per year as shown in Chapter 4 of the  2022 annual performance repor t that is available online.

A summery of agricultural practices implemented since 2017 in specific subwatersheds across the basin is available in this  online interactive report  and a second  online interactive report  displays the progress in meeting agricultural reduction targets in each subwatershed as shown below. This analysis shows that there are several subwatersheds that have a larger remaining agricultural reduction goals including the lower Black River, Clyde River, Lake Memphremagog direct and Willoughby River watersheds that are a priority for agricultural outreach and implementation efforts.

Reductions have generally increased annually for each sector. Each year in the bar chart shows the percent of the final target (total TMDL reduction due in 2037) achieved. The totals are not cumulative, and the same volume of reduction must be achieved each year to maintain the 2037 target.

Within these 5 years, the agriculture sector is meeting 15% of the final target for fields and pastures and 21% of the final target for barnyard production areas.

The developed lands sector is meeting 5% of their final target.

The Agency expects to see increases in reductions across all sectors in the next five years and beyond as associated regulatory programs are implemented more comprehensively and reduction efficiency methodologies are developed and established for all clean water project types.

The accompanying graphic shows the Basin 2 & 4 TMDL 2036 target achieved annually for each sector from 2017 to 2021.

Act 76 creates the funding and project delivery framework to ensure essential water quality projects achieve Vermont’s clean water goals.

Act 76 established new regional organizations called clean water service providers (CWSP). CWSPs were recently named in each major watershed to identify, implement, and maintain local water quality projects.

The CWSP for Basin 17 is the Vermont Housing and Conservation Board (VHCB). More information on Basin 17 CWSP operations is available on the  VHCB website .

CWSPs are responsible for partnering with Basin Water Quality Councils (BWQCs) to identify, implement, operate, and maintain non-regulatory projects to meet non-regulatory interim P reduction targets.

BWQCs are made up of representatives from Regional Planning Commissions, Natural Resource Conservation Districts, Watershed Organizations, Municipalities, and Local Conservation Organizations.

The accompanying image shows the potential make-up and distribution of Clean Water Service Providers and Basin Water Quality Councils.

Tactical basin plans address water quality by sector consistent with the Clean Water Initiative Program’s 2022 Performance Report.

These sectors include:

• Agriculture
• Developed Lands - Stormwater & Roads
• Wastewater
• Natural Resources - Rivers, Lakes, Wetlands, and Forests

Agricultural land use makes up approximately 17% of the land cover in the Lake Memphremagog watershed including 11% hayland, 4% pasture and 2% cropland which together are estimated to contribute 46% of the phosphorus loading to Lake Memphremagog. As described in the earlier section on the Lake Memphremagog Total Maximum Daily Load, the most of the phosphorus reductions in the Lake Memphremagog watershed have been achieved by the implementation of agricultural best management practices.

Workshop showing practices implemented at a farm

• The Lower Black, Lower Clyde, Willoughby and Direct to Lake Drainage because of the largest remaining phosphorus reduction targets.
• Mud Pond (Craftsbury), Walker Pond, Stearns Tributary, and Roaring Branch watersheds are a priority due to nutrient impairments.
• Lake Parker, Shadow Lake, Lake Willoughby, Echo Lake, Lake Salem, Seymour Lake watersheds are a priority due to increasing nutrient trends on these waterbodies with active agricultural land use, although increased development and climate change are likely drivers of these increasing trends.

• Target field Best Management practice (BMP) practice implementation in high priority watersheds.
• Develop a pilot program to develop and implement trapping and control practices using Agricultural Conservation Planning Framework.
• Improve nutrient management practices (NMP) through technical support, NMP workshops, and financial support for improved nutrient utilization.
• Implement NMPs and associated agricultural water quality practices in high priority catchments.
• Support monitoring efforts to track results of practices applied in priority watersheds and tell farmer success stories.
• Support farm teams, conservation equipment programs, soil health assessments, and farmer participation in the pay for phosphorus program.

Water quality monitoirng lead by the Orleans County Natural Resources Conservation District (NRCD) has shown reductions in phosphorus concentration in nine out of 14 drainages on farms where best management practices have been monitored. The phosphorus reductions on the Morin farm in Holland are one example where we have seen phosphorus reductions and this Success Story is available on the  Orleans County NRCD website .

DEC has been conducting stormwater surveys and mapping stormwater infrastructure systems. The resulting reports also feed projects to the basin plan and database.

 https://dec.vermont.gov/water-investment/cwi/solutions/developed-lands/idde 

The accompanying interactive map displays stormwater infrastructure identified through field mapping by VDEC.

• Develop designs and implement stormwater treatment projects in the Memphremagog Stormwater master plan and subsequent assessments.
• Support the design and implementation of small-scale stormwater practices through formula grant funding.
• Provide outreach and technical support to landowners with 3 acre parcels to support early design and implementation of stormwater practices.
• Develop a list of erosive stormwater outfalls and work with landowners and municipalities to stabilize and restore sites.
• Develop a residential landowner stormwater BMP campaign/brochure to raise awareness of simple stormwater management solutions.

All towns in the basin have completed required road erosion inventories. These reveal where erosion into waterways is likely and provide towns with information on where to focus erosion control measures.

Little and Great Averill, Bean Pond, Crystal Lake, Echo Lake, Holland Pond, Parker Pond, Lake Salem, Lake Willoughby, Albany, Charleston, Craftsbury, Derby, Glover, Holland

• Coordinate the work of partners through the NEK Rivers and Roads Workgroup to provide and support training for road crews. Develop prioritization and design guidelines to address gully erosion from road cross culvert outlets and failed class IV roads.
• Provide technical support to towns to implement priority MRGP projects.
• Develop private road phosphorus reduction estimates and complete private road segmentation and assessments.
• Develop a phosphorus control plan for state transportation infrastructure in the Lake Memphremagog watershed as required by the state transportation permit TS4 permit.

The TBP includes a summary of permit requirements for the wastewater treatment facilities in the Lake Memphremagog Watershed. Over the last 15 years wastewater operators have reduced the level of phosphorus loading from over 1000 kg per year to less than 600kg per year in recent years.

Barton, Brighton, Glover, Orleans, Newport City, Lake communities

• Support towns in completing Wastewater Treatment Facility (WWTF) optimization efforts.
• Provide technical and financial support for the town of Brighton to increase the level of phosphorus treatment for the Brighton.
• Promote septic system maintenance and ANR Village Wastewater Solutions.

This chart shows the annual loading from WWTF in the Vermont portions of the Lake Memphremagog watershed showing reductions in loading over the last 15 years.

Forestland covers more than two thirds of the Basin. Forest cover is one of the best land uses for the protection of water quality.

The accompanying map displays the land cover types in Basin 17.

Headwaters of: Mad Brook, Nutting Brook, Brownington Branch, Sucker Brook, Minister’s Brook, Webster’s Brook, Pherrins River

• Complete forest road inventories and implement priority projects on state and private lands.
• Develop Memphremagog specific forest road and trail reduction estimates.
• Identify and implement feasible forest gully projects.
• Support the use of skidder bridges through rental and incentive program.
• Work with trail clubs to implement trail erosion control projects.

Degraded geomorphic condition can alter or impair water quality, wildlife and fish habitat, and public safety.

The picture shows a site visit to refine restoration plans for Valley Brook in Morgan.

A River Corridor Plan (RCP) is a synthesis of the physical data collected during Phase I and II Stream Geomorphic Assessments (SGAs) based on protocols and guidelines developed by the Vermont River Management Program. These plans identify causes of channel instability and make recommendations for restoration. All SGAs and RCPs can be found at:  https://anrweb.vt.gov/DEC/SGA/finalReports.aspx 

Lower Clyde River, Middle Barton River, Black River, Lower Johns River, Mad Brook, Shalney Branch

• Develop a basin specific tool to estimate phosphorus reduction potential of stream projects and train local partners on this tool.
• Complete phase 2 lite geomorphic assessments on priority reaches and implement priority stream protection and restoration projects.
• Pilot low tech “process based” restoration and hydroseeding techniques.
• Provide support for Municipalities to update flood hazard bylaws and to consider adoption of river corridor protections with new Federal Emergency management Agency (FEMA) map.
• Implement Aquatic Organism Passage (AOP), strategic wood addition, and dam removal projects.

A great example of a recently completed river restoration project that was recently completed by the Memphremagog Watershed Association can be viewed at the   Valley Brook Stream Restoration Project Summary   .

Monitoring data is summarized in the VDEC  Lake Score Card . It displays overall lake health using the four headings below.

The accompanying map shows Lake Scorecard information for lakes and ponds in Basin 17.   

Twelve lakes in the watershed have statically significant increasing nutrient trends based on spring and summer lake monitoring programs.  These increasing nutrient trends are a concern for the continued recreational quality of these lakes as increased levels of nutrients can lead to increase plant and algae growth. Many of the lakes with increasing nutrient trends have poor or fair shoreland and lake habitat which may be a source along with other upland lake watershed nutrient sources. 

The Lakes and Ponds Program has developed a Lake Watershed Action Planning process to support the identification and prioritization of potential nutrient sources and to develop some initial designs to address these.  In addition to this lakes can address shoreland sources by supporting Lake Wise assessments which provides signs to properties that meet minimum standards and also identify restoration priorities that can be implemented with state funding.

Lake Willoughby, Shadow Lake, Lake Parker, Salem Lake, Echo Lake, Seymour Lake, Crystal Lake, Great Averill Lake and Little Averill Lake, Norton Pond, Island Pond, Holland Pond, Bean Pond, Lake Memphremagog.

• Develop lake watershed action plans and implement priority projects.
• Increase local capacity for designing and implementing lakeshore projects.
• Initiate, maintain, and build the capacity for aquatic invasive species spread prevention programs including Public Access Greeter and Vermont Invasive Patroller Program.
• Where applicable, increase protections for high-quality lakes through reclassification and/or Outstanding Resource Water Designation

During the Tactical Basin Planning process a list of priority waters for monitoring were identified. These include Lake Memphremagog, Mud Pond (Craftsbury), Walker Pond where monitoring is needed to understand phosphorus levels on these impaired ponds. In addition to this Mud Pond (Morgan) is a priority for monitoing due to elevated nutrient levels and a lack of sufficient data to evaluate nutrient trends.

Tributaries to Echo Lake, Lake Willoughby, Shadow Lake, Lake Parker, Norton Pond, Great Averil Lake, Crystal Lake, and Lake Salem are priorites for chemical monitoring to identify sources of phosphorus that may be contributing to increasing phosphorus trends on these lakes

Eighteen streams have been prioritized for monitoring as data gaps due to the size of the unmonitored watershed and/or the level of agricultural/developed lands which may make the stream a priority for reclassificaiton (if 95%+ forested) or where higher levels of agricultural or developed lands may be impacting water quality conditions.

The graphic on the right shows the 74 watersheds in the basin that have not had assessments and the associated landuse.

Nine waters have been identified as needing additional biological monitoring to evaluate attainment of Aquatic Biota use.

Twelve streams have been identified as needing monitoirng to evaluate reclassification of aquatic biota use.