Algae Overload

Algae Overload Excess Nutrients Cause Foul Waters
by Rebecca Leighton Katers, Clean Water Action Council

Lake Winnebago, Little Lake Butte des Morts and Green Bay were awfully green in the summer of 1997. In fact, at its peak, the algae growth was so thick and foul that lake recreation was impossible. If the wind was right (or wrong, depending on your sensibilities) the odor was noticeable blocks inland.

Worst Year on Record

Many long-time residents believe 1997's algae was the worst they've ever seen. Summer storms washed nitrogen and phosphorus into the lakes and stirred up rich sediments on the bottom. When hot, still days followed, conditions were perfect for exploding algae growth.

The trouble was increased for some communities when winds pushed the algae against the shores to create continuous mats of decaying, smelly green stuff --- thick enough for ducks to walk on.

Contributing Causes

It's unlikely that just one factor caused the algae problem, and many different actions will be needed to safeguard against repeat summer performances by the algae in the years to come.

Land Run-Off

Rain and melting snow carry large amounts of fertilizing chemicals (primarily phosphorus and nitrogen) off the land into the water from:

livestock manure;
dog and cat droppings;
rich topsoil from exposed gardens and farm fields;
construction site run-off;
eroding stream banks trampled by livestock;
street run-off, including air pollution fallout, lawn fertilizers, and home car-washing.

Wetland Losses

Lake levels have been raised as much as 3 feet on Lake Winnebago, to improve recreational opportunities for boaters and shoreline property owners on this shallow lake.

Unfortunately, the high water has submerged hundreds of acres of wetland marshes which once lined the lake shore. This caused a dramatic drop in the ability of the lake system to filter nutrients out of the water. Because shoreline plants no longer use up phosphorus and nitrogen, the floating algae are happy to take their place.

Discharge Pipes

Many industries, paper mills, food processors, and municipal sewage treatment plants still dump significant quantities of phosphorus and nitrogen into Lake Winnebago and Little Lake Butte des Morts, and their tributaries, such as the Wolf River and Upper Fox River.

The Wisconsin Department of Natural Resources (DNR) allows each of these dischargers "rights to pollute" (called Wasteload Allocations) and argues that rivers can handle a certain level of pollution without violating state water quality standards, because flowing water carries pollution "away."

But these allocations don't solve the problem of accumulation of phosphorus and nitrogen in lakes and impoundments. Over the long term, this build-up will make algae blooms more frequent and severe, unless some method for removing phosphorus and nitrogen is found.

The Wisconsin Paper Council recently admitted that paper industries have increased their phosphorus discharges by 26% in recent years, and the DNR is currently proposing 5-year permits which will allow them to continue discharging phosphorus at twice the recommended standard. (See "Pollution Permit Under Scrutiny")

"Many long-time residents believe 1997's algae was the worst they've ever seen."

Rich Sediments

The bottom muds in Lake Winnebago and Little Lake Butte des Morts are already very fertile from a century of phosphorus and nitrogen accumulation dating back to the erosion caused by cutting down the great Pine and Hardwood Forests of Northeast Wisconsin, and the following agricultural and urban uses.

Even if no new land run-off or discharges occurred, the existing sediments would fertilize algae. Storms, boat traffic, and bottom-feeding fish like carp all stir up the sediments and make nutrients more easily available for algae growth. The system will likely stay at least somewhat fertile because of this.

Some fertility is good, because it feeds Lake Winnebago's outstanding fisheries and wildlife.

Shoreline Development

More people are building homes and businesses along the waterfront. Too frequently, well-meaning owners "improve" their property by building walls, sandy beaches, or stone piles along the water's edge. This eliminates all the shoreline plants which used to filter phosphorus and nitrogen pollution out of the water.

In addition, too many shoreline property owners install heavily fertilized and chemically treated grass lawns right up to the water's edge. The fertilizers add "fuel to the fire" of algae growth.

Possible Algae Solutions

Fund Non-point Control Programs

State and federal programs for controlling land run-off need stronger public support. This run-off pollution is referred to as "Non-point Source" pollution to distinguish it from "Point Source" pollution which comes from discharge pipes.

Non-point pollution is one of the most serious environmental problems facing Wisconsin, partly because control programs are under funded and unmandated. Watersheds like Lake Winnebago's and Green Bay's need much more attention.

Severe Budget Cuts Hurt Progress

Despite increasing needs, funding levels have been cut over the past 3 budget cycles. Eighteen million dollars was cut from the contingency bonding appropriations (like a "savings account" set aside) for the non-point pollution program five years ago in 1993 Biennial Budget. Then, three years ago when the state's 1995 Biennial Budget was passed, the Republicans, in a straight party-line vote, cut $4.6 million from the DNR's $6.4 million Non-point Pollution Control program. In addition, Republicans cut bonding authority from $24 million to $20 million for Priority Watershed Projects. (These projects provide comprehensive planning and cost-sharing for voluntary clean-up of serious run-off sources, such as livestock manure piles.)

As a result, the Priority Watershed Program faced a $5 to $7 million shortfall. This hurt several projects to clean up Lake Winnebago and several other watersheds in Northeast Wisconsin.

In the 1997 Budget cycle, the Republicans added some money back to the Priority Watersheds, but took away the $10 million raised through the $7.50 non-point pollution motorist user fees which had helped pay for non-point programs over the past several years. (They gave this money to the Dept. of Transportation, which already has a grossly inflated budget.) In the final hour, the Democrats managed to ensure that equal amounts of General Purpose Revenue were allocated for the non-point program (though this funding is more vulnerable to future budget cuts).

In all, Democrats successfully pushed for an additional $4 million in funding authorizations, more than half the $6.8 million in increased funding provided for non-point grants in the budget.

The non-point budget survived the worst of the proposals --- but the final outcome is that Priority Watershed Projects, the most desperate areas needing clean-up, all face a 10% cut over the coming two years. This has a direct impact on several projects in Northeast Wisconsin.

Worse yet, many of these projects would have been cut by 25% if not for creative shifting and cutting of other budgets within the non-point program. All contingency funds will be used up in the coming 2 years, leaving the programs much farther behind than the budget appears.

This means the next budget cycle will be critically important to the survival of the non-point program --- yet DNR staff are already planning for significant cuts in the next biennium.

"Too many shoreline property owners install heavily fertilized and chemically treated grass lawns right up to the water's edge. The fertilizers add "fuel to the fire" of algae growth."

Fund Sustainable Agriculture Training

Three years ago when the state's 1995 Biennial Budget was passed, the Republicans, in a straight party-line vote, eliminated all the staff overseeing Wisconsin's nationally renowned Sustainable Agriculture Program. The program had helped farmers reduce dependence on expensive energy, fertilizer and chemical usage, and to conserve top soil and adopt other environmentally sound practices. It was a small, low-cost program which would have helped to reduce non-point pollution and helped small family farmers.

In the 1997 Budget, the Republicans completely eliminated the last $200,000 available for farmer-to-farmer education projects promoting sustainable agriculture. This program needs to be restored.

Support Erosion Controls at Construction Sites

In the 1997 Biennial Budget, the Republican's proposed to exempt construction sites from any non-point pollution control standards established by the DNR or local government ordinance.

One or two family homes are regulated by the Dept. of Commerce, but larger construction sites such as subdivisions would not have been regulated as required by federal law. These sites are a major source of soil erosion and water quality degradation, as nutrients cause excessive algae blooms and the soil clogs fish spawning beds, boat harbors, and shipping channels. It's not fair to hold farmers to a high standard for protecting water quality, while giving developers a green light to allow tons of soil to run off building sites.

Fortunately, this provision was removed from the budget before it was passed.

Protect and Restore Wetlands

Wetlands filter nutrients out of water, therefore increased wetland plants growing along the shoreline would help reduce algae blooms.

One strategy used on some lakes is a temporary draw down of water levels to allow the sediments to dry out, oxidize, and become compacted. This also allows wetland plants to regenerate. After one season, the water is allowed back and often dramatic water quality improvements are seen which persist for many years. The increased wetlands also support increased fish and waterfowl populations, so sporting opportunities increase.

The obvious drawback is the loss of one boating, swimming and fishing season --- a huge impact in an area the size of Lake Winnebago. The impacts on the Fox River would also have to be considered carefully.

In any case, wetlands which exist now along the lake shore should be guarded as the treasures they are.

Tighten Wasteload Allocations

The Wisconsin DNR should tighten discharge standards for the paper industry, sewage treatment plants and other dischargers of nutrients, especially when a lake or stream is obviously suffering from severe over-fertilization as Lake Winnebago, Little Lake Butte des Morts, and Green Bay are suffering.

Water quality modeling in Green Bay shows that the Fox River allocations are not working, because we're getting algae and low dissolved oxygen violations in Green Bay.

Buffer Strips and Livestock Fencing

Experts agree that when natural vegetation is maintained along our waterways, this does a superb job of reducing stream bank erosion and filtering pollutants out of run-off before the storm water reaches the stream.

We need statewide policies which fund or mandate "buffer strips" along waterways, with fencing to keep livestock away from the water. The start-up costs may be substantial, but the long-term maintenance would be low. Water quality could improve dramatically for some degraded areas, which has already been proven in some watersheds.

"Wetlands filter nutrients out of water, therefore increased wetland plants growing along the shoreline would help reduce algae blooms."

Support Strong Non-point Standards

DNR and DATCP have been told to start developing performance standards for controlling non-point pollution. At best such rules usually take 2 years, but if the non-point programs are under funded, they could take longer.

The rules may include proposals of the Animal Waste Advisory Committee, from a year and a half ago:

no overflow of manure storage structures;
no unconfined manure piles within Water Quality Management Areas;
no direct runoff from feedlots or stored manure to waters of the state;
no unlimited livestock access to waters of the state, where high concentrations of animals prevent adequate sod cover maintenance.

Unfortunately, up to now the state legislature (which must approve the final rules) has been unwilling to mandate non-point controls for farmers, and lobbyists from the Farm Bureau have pushed hard in opposition.

After years of education and cost-sharing assistance on a voluntary basis, most farmers manage their manure well --- but a minority of bad actors are still out there causing serious water quality problems. Strong enforcement measures are needed to finally convince this minority to protect the public's water quality downstream.

Citizen Involvement

It's clear that citizens who care about water quality must get more involved if progress is to be made. Special interest groups have blocked good non-point rules for years, and only a strong outpouring of public demand will make a difference.

Public hearings will be held and citizen comment letters will be needed when the rules are finally proposed --- but the DNR and DATCP are not the decision-makers. State legislators and Governor Thompson are the ones setting policy in our state. The agencies only follow their orders. Citizens need to direct their attention, letters and comments to these decision-makers to make progress on this issue.