BLOG: Proactive Source Water Management for a Unique Water System

by Jonathan Mohr, JEO Consulting Group, Inc. and David Hunter, Auburn Board of Public Works

The City of Auburn, population 3,000, is located in southeast Nebraska, near the Little Nemaha River, approximately seven miles upstream of its confluence with the Missouri River. The City receives its drinking water from a wellfield located east of the community within an alluvial aquifer along the Little Nemaha River. The wellfield consists of 11 vertical wells averaging 45 to 50 feet below the ground's surface, pumping up to 150 million gallons per year. The source water area also includes multiple small perennial tributaries, which provide recharge to the aquifer, and are therefore hydrologically connected to the alluvial aquifer.

This connection has resulted in several unique water management challenges for the Auburn Board of Public Works (BPW), which is responsible for managing the community’s water system. This hydrologic connection resulted in a 2008 determination by the Nebraska Department of Health and Human Services that the water system is a “groundwater system under the influence of surface water.” Only 12 water systems in Nebraska (out of 602) carry this designation, which requires a higher level of water treatment. As a result, the BPW started construction of a new water treatment plan in 2009 which went online in 2011.

In order to better manage this unique resource, the BPW developed the Auburn Drinking Water Protection Management Plan (DWPMP) to guide decision-makers towards their goal of providing a long-term, safe, and reliable source of drinking water. The plan was approved by the Nebraska Department of Environmental Quality (NDEQ) and U.S. Environmental Protection Agency Region VII in July 2018, making Auburn the first municipality in the United States with an approved DWPMP.

The idea behind the DWPMP began in 2014 by the NDEQ Source Water Protection Program. NDEQ staff worked with U.S. EPA Region VII to recognize the hydrologic connection between surface water and groundwater. Historically, EPA has only focused funds towards protecting surface water quality; however, by recognizing this hydrologic connection and the risks to groundwater from nonpoint source pollution, NDEQ has opened the door to funding additional opportunities. NDEQ can now allow communities with an approved DWPMP to use funding from the Nonpoint Source Management Program 319 Funds to implement projects and programs to safeguard a groundwater-based drinking water source. Auburn’s DWPMP focuses on improving the water quality within the perennial streams that recharge the alluvial aquifer where Auburn’s wells are located.

A hydrologically connected aquifer requires a unique methodology to identify and delineate the wellhead protection area (WHPA). The former WHPA was updated to include a "conjunctive delineation" which identifies an area from which surface water may contribute to the groundwater reaching a well. Auburn’s conjunctive WHPA now includes the watersheds of the locally contributing tributaries, and a small portion of the Little Nemaha River watershed upgradient of the wellfield. This allows for holistic management and protection of both surface and groundwater resources. The new WHPA is 51,400 acres, one of the largest in Nebraska, and the first to be officially designated a conjunctive delineation by NDEQ.

Working with stakeholders and the public was critical to developing the DWPMP.  These included the Nemaha Natural Resources District (NRD), NDEQ, the Natural Resources Conservation Service, and private property owners. Stakeholders, including agricultural producers, provided input on preferred best management practices (BMPs), including cover crops, grassed waterways, no-till farming, soil sampling, and use of bioswales and constructed wetlands within urban areas.

Another key plan recommendation, currently under design by JEO Consulting Group, Inc., is exploring the use of artificial groundwater recharge (AGR) to increase the storage capacity of the aquifer. This could increase the quantity of water available to Auburn’s wells, build resistance to drought, and create a more sustainable and resilient water system. Structures used to achieve AGR will also improve streambank stabilization, improve water quality, and improve aquatic habitat. AGR structures include in-stream grade control, low-head weirs, or similar structures which raise the surface level of the tributaries, thereby increasing storage in the aquifer. An existing 19-acre borrow pit immediately north Auburn is another target for AGR, by pumping water from a local tributary into the pit and allowing it to seep into the aquifer.

The DWPMP is a shining example of collaboration between Auburn BPW, Nemaha NRD, NDEQ, agricultural producers, and citizens. The Auburn community and agricultural producers will benefit from the plan and its future actions with safe drinking water, improved soil health, reduced erosion, and improved water quality for years to come.
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Jonathan Mohr is a Senior Environmental Planner at JEO Consulting Group, Inc. in Lincoln, Nebraska. Reach him at jmohr@jeo.com. David Hunter is the General Manager for the Auburn, Nebraska Board of Public Works. Reach him at dhunter@auburnbpw.com.

It's Water-Wise Wednesdays with Frannie the Fish! {Wellhead Protection: Nebraska Wellhead Protection Network}

This is Part 2 in Frannie's exploration of Wellhead Protection.   Read Part 1 here and look for more blogs to learn more about what it is, who protects the wellheads, and why it's important.

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Frannie knows that it takes a lot of teamwork to develop and enforce a Wellhead Protection Area. From members of government to city water operators to customers, everyone has to work together to protect the water supply.

Wells and wellfields are highly influenced by the surface around them. For example, if a community uses too much fertilizer on its lawns or crops, a well has the potential to act as a direct pipeline, funneling the chemicals into the groundwater below.  It’s important for people and agencies to communicate with each other about appropriate strategies for facing groundwater threats.

In Frannie’s home state of Nebraska, a special group meets 3-4 times each year to hold such conversations.  Back in 2001, The Groundwater Foundation, funded by the NebraskaDepartment of Environmental Quality, began to facilitate and record the meetings of the Nebraska Wellhead Protection Network (NeWHPN).  Members include the Nebraska Department ofHealth and Human Services, the 23 Natural Resources Districts in Nebraska, theNebraska Rural Water Association, local water systems and water supply operators as well as other people, businesses, and agencies who are involved with tackling groundwater and drinking water issues.

Network meetings often cover topics and hot button issues that are requested by and relevant to Nebraska communities facing threats to their groundwater, including nitrate contamination and depletion.   Many meetings include tours of the facilities being discussed or workshops that help network members develop skills that facilitate groundwater education and protection.

If you’d like to read about what the NeWHPN has covered in the past or you’d like to participate in future meetings, check out their page on The Groundwater Foundation’s website.

It’s Water-Wise Wednesdays with Frannie the Fish! {Awesome Aquifer Kit: Improperly Abandoned Well}

This week in Frannie’s exploration of the Awesome Aquifer Kit is all about why you should properly seal abandoned and unused wells.

Did you know that 42 million people in the United States use a private, or individual well to provide water for their families?  But as cities grow and develop, more and more people are turning to municipal systems to get clean, treated water directly to their faucets.  An unused well is basically a direct line for contaminants to enter the groundwater, so it is very important that, if a well is going to be decommissioned, then a well contractor should be called to seal it properly.

But what actually happens if a well is not sealed properly?

In rural areas, such as homes on or near farms, an open well can be contaminated with animal waste, fertilizers, and pesticides.  After a rain, runoff may simply pick up these dangerous chemicals and flow right over the open will, depositing them into the groundwater supply.   If a well is dug deep enough and is connected to other water supply sources in the area, it could contaminate large sections of the aquifers and prevent many other people in the area from being able to access clean water.

Forgotten wells are a big problem too.  Well casings may rust or break down and, even without the help of any outside contaminants, pollute the groundwater.

Wells that are dug, instead of drilled, are typically shallow enough not to majorly affect groundwater quality.  However, if these wells are not sealed properly, their wide shape may cause unsuspecting people and animals to fall into them and injure themselves.

To learn more about wells and to find out where you can go to test and protect yours, visit The Groundwater Foundation's Wells and Wellhead Protection webpages. 

BLOG: First Groundwater Focused Plan to Address Nonpoint Pollution

by Sam Radford, Wellhead Protection Program Coordinator and Laura Johnson, Integrated Report and TMDL Coordinator, Nebraska Department of Environmental Quality

The spotlight is on Nebraska as the EPA recently approved the Bazile Groundwater Management Area (BGMA) Plan. The BGMA Plan is the first groundwater focused plan in the nation to address nonpoint source pollution. The plan is the result of a collaborative effort to reduce groundwater nitrate contamination between the Nebraska Department of Environmental Quality (NDEQ) and four of Nebraska’s Natural Resources Districts (NRDs): Lewis and Clark, Lower Elkhorn, Lower Niobrara, and the Upper Elkhorn. The approval of this plan provides NRDs, Communities, and other Public Water Systems (PWS) an innovative framework to build upon, and new funding sources to protect the BGMA Wellhead Protection (WHP) Areas, as well as WHP Areas across the state.

Figure 1

The BGMA covers 756 square miles in northeast Nebraska and is home to 10 communities and over 7,000 residents (see Figure 1). Groundwater in the BGMA is the only drinking water source for communities and rural residents. Extensive row crop and sandy soils have allowed nitrate from land applied manure and commercial fertilizer to leach into the groundwater. The NRDs have collected data on groundwater nitrate concentrations since 1980. During that time, average nitrate concentrations have increased with some areas exceeding 30 mg/L, three times the levels safe for drinking water.

The plan focuses on reducing groundwater nitrate levels below 10 mg/L by progressively adopting more protective Best Management Practices (BMPs) throughout the BGMA. Community Wellhead Protection Areas are listed as the highest project funding priority. The NRDs will utilize a combination of agricultural BMPs required by elevated Groundwater Management plan phases, and voluntary BMPs outlined in the BGMA plan that go above and beyond phase requirements. Through the development of the BGMA Plan, the NRDs have created a cohesive strategy to monitor nitrate reductions in groundwater as fertilizer practices and irrigation methods are improved in the area. This monitoring data will also further refine future versions of the BGMA plan to ensure its goals are achieved.

To truly understand the significance of this plan, one must understand the history of water laws in Nebraska as well as at the federal level. In the past, groundwater and surface water were thought to be two separate water sources and were therefore regulated by separate water laws. At the federal level, the Clean Water Act (CWA) of 1972 charged the US EPA to regulate point source pollution to surface water. While the CWA began to successfully reduce point source contamination, it failed to effectively address nonpoint source contamination. In 1987, the CWA was amended, and the Section 319 Nonpoint Source Management Program was established to improve federal leadership and support, and focus local efforts on voluntarily reducing nonpoint source contamination (EPA 2016). Even with the 1987 amendment, the CWA act did not directly speak to groundwater, leaving management of groundwater resources to the states. Nebraska has been managing and regulating groundwater resources through the NRDs since the mid ‘70s. However, the hydrologic connection between surface and groundwater wasn’t legally recognized until 1996.This acknowledgement has led Nebraska to collaborative efforts that address nonpoint source contamination from a different perspective than what is generally found at the federal level.

The BGMA plan is the first EPA approved plan in the nation to address nonpoint source groundwater quality problems using the Clean Water Act. This is a milestone for communities who have struggled to obtain funding for projects that seek to educate and inform residents and local producers; and implement BMPs targeted at reducing nonpoint source groundwater pollution in their Wellhead Protection Areas. Until now, CWA Section 319 funding was only used on projects that address impairments in surface water or in areas that were listed as priority areas in a NRD’s watershed management plan. While more and more WHP areas are being targeted in watershed management plans, the BGMA plan is the first to address it from the standpoint of groundwater and to make WHP areas a priority for project funding.

Nebraska is unique in that approximately 88% of the state’s residents, and nearly all rural residents, primary source of drinking water comes from groundwater (NDEQ 2015). The geology, hydrology, and depth to groundwater determine how susceptible groundwater aquifers are to contamination. For example, sandy soils, little or no protective surface layers (i.e. clay or glacial till), and/or high groundwater tables leave drinking water aquifers especially vulnerable to point and nonpoint source contamination. The rate of groundwater movement ranges from inches per year(s) to inches per decade(s) compared to surface water which moves inches per day(s) to week(s) to enter surface waterbodies.

Table 1

Nonpoint source groundwater nitrate contamination is one of the most prevalent nonpoint source contaminants in Nebraska. It puts a heavy financial burden on communities and their Public Water Systems, as the only way to remove nitrate from drinking water is through treatment. In the last 20 years, five PWS and landowners with private wells in the BGMA have spent over $9 million dollars on treatment (see Table 1). This amount includes the cost of facility operations and maintenance (O&M) and point of use (POU) treatment systems for domestic well owners. Ultimately, the cost of treatment and O&M falls on the 4,201 residents that reside in the five affected communities and land owners in the surrounding area. In the future, the cost of treatment will only increase if the source of contamination is not addressed (NDEQ 2016). Nitrate contamination is prevalent throughout Nebraska and many other communities are dealing with the same problems as those in the BGMA (see Figure 2). This is just one example of why the work that has been done and will continue to be done in the BGMA is so important. Hopefully, the plan will pave the way for many other NRDs and communities to better respond to and manage nonpoint source contamination, especially in WHP areas.

Figure 2

The approval of the BGMA plan by the EPA has provided an entirely new source of funding that wasn’t previously available for groundwater and drinking water protection efforts. Since the creation of Nebraska’s voluntary Wellhead Protection Program, communities and PWS across the state have had the ability to create WHP protection plans to protect their drinking water sources. These plans identify possible sources of contamination in the WHP area and lay out management strategies to address sources of contaminants. The ultimate goal is to implement on-the-ground activities such as BMPs and education and outreach programs. More often than not this goal falls short as no direct funding is available to communities. Many communities do not have the time, support, education, or money needed to develop and implement effective WHP plans. Until now, the only financial assistance NDEQ has been able to give communities who wish to protect their drinking water sources are Source Water Protection (SWP) Grants. The grant program distributes up to $100,000 a year, which generally isn’t enough to fund multiple larger more involved projects. The SWP Grant has been limited in its ability to support long-term efforts to reduce nonpoint source contamination. The NDEQ is hopeful that communities will be able to better protect their drinking water sources through CWA Section 319 funding.

The BGMA plan approval by the EPA has also led to new activities for the SWP Grant to fund. As stated previously, the BGMA plan is the first in the nation to focus on ground water instead of surface water. Because most Nebraska communities use groundwater as a source for their drinking water, those communities were not included in earlier watershed management plans nor were they eligible for funding on their own. In response to the EPA approval of the BGWMA plan, the NDEQ is working with communities and the EPA to develop Drinking Water Protection Management (DWPM) Plans. These plans will be similar to the BGMA plan in that they will primarily be groundwater focused plans that specifically target WHP areas. These plans will:

• Meet EPA requirements for alternative 9-element watershed management plans
• Increase WHP area delineations from 20 to 50 year delineations using three-dimensional groundwater models
• Include strong implementable Information and Education programs
• Use community based planning processes to develop the plan

Currently three Nebraska communities are in the process of developing DWPM plans. Two through the 2016 SWP Grant and one proposed project that will combine available 319 planning money and other grant sources. The ability to independently qualify for 319 project funding would provide a much needed funding stream to the many struggling communities in Nebraska. These new opportunities would not be possible without the innovative work that was done on the BGMA plan. The NDEQ looks forward to working with Nebraska communities to protect and improve their drinking water.

A special thanks to the BGMA stakeholders and the many individuals from various local, state, and federal organizations for their contributions to the development of this plan.

You can view the plan at http://deq.ne.gov/publica.nsf/pages/16-013 and learn more about Drinking Water Protection Management Plans by visiting http://deq.ne.gov/NDEQProg.nsf/OnWeb/SWPGMain. Select the Invitations for 2016 Source Water Protection link and open the fact sheet PDF.

Sources:

EPA, 2016. Polluted Runoff: Nonpoint Source Pollution Webpage, https://www.epa.gov/nps/319-grant-program-states-and-territories

NDEQ, 2015. 2015 Nebraska Groundwater Quality Monitoring Report, 5 p. http://deq.ne.gov/publica.nsf/PubsForm.xsp?documentId=8DE603FF6ACDF2C086257F1100578674&action=openDocument.

NDEQ. 2016. Bazile Groundwater Management Plan, 42 p, http://deq.ne.gov/publica.nsf/pages/16-013.

BLOG: Protecting Groundwater Through Personal Contact and Best Management Practices

by Chris Barnett, Executive Director, Lawrence Community Development Corporation, Lawrence, Indiana

Indianapolis-Marion County, Indiana has been a Groundwater Guardian Community since 1998.  We recognized the value of The Groundwater Foundation’s programs even before that:  in the early 1990s, when the original team was helping to write our first Wellfield Protection Zoning Ordinance, the Foundation was able to provide us with examples of ordinances and regulations from other communities.

Our team is an all-volunteer board, which is legally structured as a 501c3 not-for-profit “supporting organization” to city-county government.  We contract with an environmental consulting firm to take care of two main responsibilities:  keeping a registry of the “potential contaminant sources” (commercial locations that use and store potential contaminants) in our seven wellfield protection areas, and working with those businesses to employ best practices and minimize risks to the water supply.  Our third main responsibility, which the board undertakes in cooperation with our consultant, is providing speakers and task force members to advise citizens and city-county government on a wide range of topics around groundwater protection.  Our association with The Groundwater Foundation and our long-time Groundwater Guardian recognition adds credibility to our message.  We highlight our Guardian status in presentations, reports, our website, and the printed materials we distribute to businesses.

Our universe is large.  Marion County is an urbanized county of approximately 400 square miles with an estimated population of 939,000.  The vast majority of residences and commercial establishments are served by the municipal water systems of Citizens Water, Lawrence Utilities, and Speedway Water Works.  The rest utilize private wells.  The City of Lawrence and its 47,000 residents are 100% groundwater-dependent.  The Town of Speedway, home to about 13,000 residents and the Indianapolis Motor Speedway, switches from part-surface to all-groundwater in winter when its surface water source becomes unreliable.  About 20-25% of Citizens Water production is groundwater, and that figure is growing with population and new connections.

Our program is voluntary and advisory, as local zoning ordinances can impose design and construction requirements but not operating requirements on businesses.  So our audience is generally limited to commercial/industrial property owners and operators, as well as city government and public health officials.   We stress personal contact and utilizing best management practices to reduce groundwater contamination risk within our wellfield protection districts.

The wellfield districts are set by ordinance as the 5-year time of travel zones around the public water supply wells in the county.  The wellfields encompass about 15% of the county’s land area.  On the map above, the 5-year TOT boundary is the white area; the dark gray area is the 1-year TOT.  Within these areas, there are 2,645 non-residential sites.  About half of the sites are judged to pose little or no risk to groundwater; 696 properties are regulated (or formerly-regulated) sites, and 681 more are unregulated but have commercial operations that could potentially pose a threat to groundwater.  Tracking the commercial uses and maintaining the registry database is a large undertaking, as is the effort to establish face-to-face communication with those businesses.

MCWEC consultant John Mundell addresses the
Riverside Area Superfund informational meeting.

Earlier in 2016, MCWEC directors and consultants mobilized to help organize and present information in a community meeting to address a proposed Superfund site in the midst of a high-production wellfield area.  Historic contamination suspected to be from commercial or industrial uses has been detected in raw water samples at production wells of Citizens Water.  The Indiana Department of Environmental Management worked with USEPA to study the issue, and the result was a proposed Superfund NPL designation.  Such designation in a drinking water protection area overlaid with a combination of residences and businesses carries both advantages and disadvantages.  We believe that the information presented by MCWEC helped community members who were present to better understand how they might respond to the proposed designation.

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Chris Barnett is the Executive Director of the Lawrence Community Development Corporation, as well as the team leader for the Indianapolis-Marion County Groundwater Guardian Team, the Marion County Wellfield Education Corporation. Chris also serves on The Groundwater Foundation's board of directors. Reach Chris at cbarnett.lcdc@gmail.com.

The views expressed in this blog are those of the authors and do not necessarily represent the view of The Groundwater Foundation, its board of directors, or individual members.