Fact Sheet Massachusetts Small MS4

Fact Sheet ? Massachusetts Small MS4

UNITED STATES ENVIRONMENTAL PROTECTION AGENCY NEW ENGLAND - REGION I

5 POST OFFICE SQUARE, SUITE 100 BOSTON, MASSACHUSETTS 02109-3912

FACT SHEET

DRAFT GENERAL PERMITS FOR STORMWATER DISCHARGES FROM SMALL MUNICIPAL SEPARATE STORM SEWER SYSTEMS IN MASSACHUSETTS

NPDES PERMIT NUMBERS:

MAR041000 ?Traditional cities and towns MAR042000 ? Non-traditional state, federal, county and other publicly owned systems MAR043000 ? Non-traditional transportation systems

PUBLIC COMMENT PERIOD: September 30, 2014 ? December 29, 2014

Table of Contents

I. INTRODUCTION AND PROGRAM BACKGROUND .................................................. 3

A. PROGRAM BACKGROUND......................................................................................................................................3 B. CONSIDERATION OF OTHER FEDERAL PROGRAMS................................................................................................5

1. Endangered Species....................................................................................................................................5 2. Essential Fish Habitat ................................................................................................................................7 3. Historic Preservation ...............................................................................................................................13 4. Coastal Zone Management Act.................................................................................................................14 C. GENERAL PERMIT AUTHORITY............................................................................................................................14 D. COMMENT PERIOD, HEARING REQUESTS, AND PROCEDURES FOR FINAL DECISIONS ..........................................15 E. EPA CONTACT ...................................................................................................................................................15

II. BASIS FOR CONDITIONS OF THE DRAFT NPDES GENERAL PERMIT .............. 15

A. STATUTORY REQUIREMENTS..............................................................................................................................16 B. AUTHORIZATION UNDER THE PERMIT .................................................................................................................16

1. Limitations on Permit Coverage...............................................................................................................17 2. Allowable Non-Stormwater Discharges ...................................................................................................18 3. Permit Compliance ...................................................................................................................................19 4. Continuation of the Permit .......................................................................................................................19 5. Obtaining Authorization to Discharge .....................................................................................................19 6. Individual and Alternative Permits...........................................................................................................20 C. STORMWATER MANAGEMENT PROGRAM (SWMP).............................................................................................21 1. Funding ....................................................................................................................................................23 2. Qualifying Local Program (QLP) ............................................................................................................25 3. Requirements for New Permittees ............................................................................................................25 D. NON- NUMERIC EFFLUENT LIMITATIONS............................................................................................................26 1. Water Quality Based Effluent Limitations ................................................................................................26 2. Discharges to Waterbodies with an Approved TMDL ..............................................................................29 3. Discharges to Certain Waters Without a TMDL ......................................................................................58

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Fact Sheet ? Massachusetts Small MS4

4. Requirements to Reduce Pollutants to the Maximum Extent Practicable.................................................72 5. Additional Requirements for Discharges to Surface Drinking Water Supplies and Their Tributaries.....94 E. EVALUATION, RECORD KEEPING AND REPORTING ..............................................................................................94 1. Program Evaluation .................................................................................................................................95 2. Record Keeping ........................................................................................................................................95 3. Reporting ..................................................................................................................................................95 4. Monitoring Reporting ...............................................................................................................................95 F. NON-TRADITIONAL AND TRANSPORTATION MS4S..............................................................................................96 G. STANDARD PERMIT CONDITIONS ........................................................................................................................96 H. 401 WATER QUALITY CERTIFICATION ................................................................................................................96

WORKS CITED............................................................................................................. 98 Attachment 1: Charles River Basin Nutrient (Phosphorus) TMDLs, Phosphorus Load Export Rates, and BMP Performance

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Fact Sheet ? Massachusetts Small MS4

I. INTRODUCTION AND PROGRAM BACKGROUND

The Director of the Office of Ecosystem Protection EPA-Region 1 is proposing to reissue three (3) National Pollutant Discharge Elimination System (NPDES) general permits for the discharge of stormwater from Small Municipal Separate Storm Sewer Systems (MS4s) to waters within the Commonwealth of Massachusetts. The General Permit will apply to traditional cities and towns; state and federal MS4s; and state transportation agencies (except for MassDOT-Highway Division). The Draft General Permit consists of the following parts:

Part 1: Introduction Part 2: Non-Numeric Effluent Limitations Part 3: Additional Requirements for Discharges to Surface Drinking Water Supplies and Their Tributaries Part 4: Program Evaluation, Record Keeping and Reporting Part 5: Requirements for Non-Traditional MS4s Part 6: Requirements for Transportation Agencies Appendices: Appendix A ? Definitions, Abbreviations, and Acronyms Appendix B ? Standard Permit Conditions Applicable to All Authorized Discharges Appendix C ? Endangered Species Act Eligibility Guidance Appendix D ? National Historic Preservation Act Eligibility Guidance Appendix E ? Information Required for the Notice of Intent (NOI) Appendix F ? Requirements for MA Small MS4s Subject to Approved TMDLs Appendix G ? Impaired Waters Monitoring Parameter Requirements Appendix H ? Requirements Related to Discharges to Certain Water Quality Limited Waterbodies Appendix I ? EPA New England Bacterial Source Tracking Protocol

A. Program Background

The goal of the Clean Water Act is "to restore and maintain the chemical, physical, and biological integrity of the Nation's waters." Clean Water Act (CWA) ? 101(a), 33 U.S.C. ? 1251(a); see also id. ?? 1251(a)(1) ("national goal that the discharge of pollutants into the navigable waters be eliminated by 1985"), (a)(2) ("national goal that wherever attainable, an interim goal of water quality which provides for the protection and propagation of fish, shellfish, and wildlife and provides for recreation in and on the water be achieved by July 1, 1983").

In 1987, Congress amended the Clean Water Act to better regulate stormwater discharges. Congress enacted Section 402(p) of the Clean Water Act, which requires that "[p]ermits for discharges from municipal storm sewers . . . shall include a requirement to effectively prohibit non-stormwater discharges into the storm sewers; and shall require controls to reduce the discharge of pollutants to the maximum extent practicable...and such other provisions as the Administrator ...determines appropriate for the control of such pollutants." CWA ?? 402(p)(3)(B)(ii)-(iii). EPA"s "Phase II" stormwater regulations, among other things, set forth requirements for stormwater discharges from small municipal separate storm sewer systems, ("small MS4s") which are defined at 40 CFR ? 122.26(b)(16) as follows:

Small municipal separate storm sewer system means all separate storm sewers that are: (i) Owned or operated by the United States, a State, city, town, borough, county, parish, district, association, or other public body (created by or pursuant to State law) having jurisdiction over

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Fact Sheet ? Massachusetts Small MS4

disposal of sewage, industrial wastes, stormwater, or other wastes including special districts under State law such as a sewer, flood control district or drainage district, or similar entity or an Indian tribe or an authorized Indian tribal organization, or a designated and approved management agency under section 208 of the CWA that discharges to waters of United States. (ii) Not defined as "large" or "medium" municipal separate storm sewer systems pursuant to [40 CFR ? 122.26(b)(4) or (b)(7)] or designated under [40 CFR ? 122.26(a)(1)(v)]. (iii)This term includes systems similar to separate storm sewer systems in municipalities such as military bases, large hospital or prison complexes, and highways and other thoroughfares. The term does not include separate storm sewers in very discrete areas, such as individual buildings.

Additional examples of municipal systems that could be subject to regulation include regional school districts and state universities located within an urbanized area.

Part 2.3 of the Draft Permit sets forth the requirements for the MS4 to "reduce pollutants in discharges to the maximum extent practicable, including management practices, control techniques, and system, design and engineering methods..." CWA ? 402(p)(3)(B)(iii). Maximum extent practicable (MEP) is the statutory standard that describes the level of pollutant reduction that MS4 operators must achieve, but also includes a recognition that the effort may be increased under some circumstances. EPA believes implementation of best management practices (BMPs) designed to control stormwater runoff from the MS4 is generally the most appropriate approach for reducing pollutants to satisfy the MEP standard. Pursuant to 40 CFR ? 122.44(k), the Draft Permit requires permittees to control stormwater discharges through BMPs, including development and implementation of a comprehensive stormwater management program (SWMP) as the mechanism to achieve the required pollutant reductions.

Neither the CWA nor the stormwater regulations provide a specific definition of MEP. The lack of a detailed definition allows flexibility in MS4 permitting. EPA views the MEP standard in the CWA as an iterative process. MEP should continually adapt to current conditions and BMP effectiveness. EPA believes that compliance with the MEP requirements (Part 2.3) of this Draft Permit will meet the MEP standard of the CWA and the stormwater regulations. The iterative process of MEP consists of a municipality developing a program consistent with specific permit requirements, implementing the program, evaluating the effectiveness of BMPs included as part of the program, revising those parts of the program that are not effective at controlling pollutants, implementing the revisions, and then evaluating again. This process continues until water quality standards are attained. The changes contained in the draft general permit from the previous permit reflect the iterative process of MEP. Accordingly, the draft general permit contains more specific tasks and details than the previous MS4 permit. These specific changes are discussed later in the fact sheet.

Section 402(p)(3)(B)(iii) of the CWA also authorizes EPA to include in an MS4 permit "such other provisions as [EPA] determines appropriate for the control of ...pollutants." This provision forms a basis for imposing water quality-based effluent limitations (WQBELs), see Defenders of Wildlife v. Browner. 191 F.3d 1159 (9th Cir. 1999): see also EPA's preamble to the Phase II regulations, 64 Fed. Reg. 68722, 68753, 68788 (Dec 8, 1999).

In New England generally, and certainly in Massachusetts, stormwater is a substantial contributor to exceedances of water quality standards in many waterbodies. Implementing MEP-level controls will make substantial progress towards reducing or eliminating many of these exceedances. Absent evidence to the contrary, EPA presumes that a small MS4 program that implements the six minimum measures as required by this permit does not require more stringent limitations to meet water quality standards. However, in a significant number of circumstances, MEP-level controls alone will not suffice to eliminate stormwaterbased exceedances of water quality standards. Consequently, EPA has determined that it is necessary and

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Fact Sheet ? Massachusetts Small MS4

"appropriate" to include WQBELs in this permit. The full explanation of this determination is set forth in Part II.D of this Fact Sheet. Accordingly, Parts 2.1 and 2.2 of the Draft Permit contain the water qualitybased effluent limitations, also expressed in terms of BMPs, which EPA has determined are necessary and appropriate under the CWA.

EPA ? Region 1 issued its first general permit to address stormwater discharges from small MS4s in Massachusetts on May 1, 2003 (MS4-2003 Permit). The MS4-2003 general permit, which expired in 2008, required small MS4s to develop and implement stormwater management programs (SWMP) designed to control pollutants to the MEP and protect water quality. Prior to the issuance of this Draft Permit, EPA issued two Draft Permits in Massachusetts. The North Coastal Draft Permit was available for public comment from February 4, 2010 to March 31, 2010. A public hearing was held on March 18, 2010. The Interstate, Merrimack and South Coastal Draft Permit was available for public comment from November 4, 2010 to March 11, 2011. A public hearing was held on March 9, 2011. EPA received significant comments on both permits. Many of the comments resulted in changes to the originally proposed Draft Permits. EPA has decided, in its discretion, to issue a new Draft Permit pursuant to 40 CFR ?124.10. The new Draft Permit combines the two previous draft permits into one permit and includes changes made in response to public comments on the first Draft Permits; changes made to provide for the changed circumstances since issuance of the previous Draft Permits (e.g. newly approved TMDLs and additional impaired waters listings); and changes made in the scope of coverage and the number of MS4s due to issuance of updated urbanized area delineations based on the results of the 2010 Census.

B. Consideration of Other Federal Programs

When EPA undertakes an action, such as the reissuance of an NPDES permit, that action must be consistent with other federal laws and regulations. Regulations at 40 CFR ? 122.49 contain a listing of Federal laws that may apply to the issuance of NPDES permits. This section discusses four federal Acts that apply to the reissuance of this general permit: the Endangered Species Act (ESA), the National Historic Preservation Act (NHPA), the Magnuson-Stevens Fishery Conservation and Management Act (MSFCMA which addresses Essential Fish Habitat (EFH)), and the Coastal Zone Management Act (CZMA). The requirements of these Acts and EPA's obligations with regard to them are discussed in the following paragraphs.

1. Endangered Species

The ESA of 1973 requires federal agencies, such as EPA, to ensure through consultation with the U.S. Fish and Wildlife Service (USFWS) and the National Marine Fisheries Service (NMFS) (also known collectively as the Services) that any actions authorized, funded, or carried out by the Agency are not likely to jeopardize the continued existence of any federally-listed endangered or threatened species or adversely modify or destroy critical habitat of such species. 16 U.S.C 1536(a)(2), 50 CFR ? 402 and 40 CFR ? 122.49(c)). Section 7 of the ESA provides for formal and informal consultation with the Services. For NPDES permits issued by EPA, Draft Permits and fact sheets are routinely submitted to the Services for informal consultation prior to issuance. EPA initiated an informal consultation with the Services during the previous public notice period of the General Permits. EPA will provide the Services with the new Draft General Permit and fact sheet and will reinitiate informal consultation.

In order to meet its obligations under the CWA and the ESA, and to promote the goals of those Acts, EPA seeks to ensure the activities regulated by this general permit are not likely to adversely

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