HARMFUL ALGAL BLOOM ACTION PLAN PALMER LAKE www.dec.ny.gov EXECUTIVE SUMMARY SAFEGUARDING NEW YORK’S WATER Protecting water quality is essential to healthy, vibrant communities, clean drinking water, and an array of recreational uses that benefit our local and regional economies. 200 NY Waterbodies with HABs Governor Cuomo recognizes that investments in water quality 175 protection are critical to the future of our communities and the state. 150 Under his direction, New York has launched an aggressive effort to protect state waters, including the landmark $2.5 billion Clean 125 Water Infrastructure Act of 2017, and a first-of-its-kind, comprehensive 100 initiative to reduce the frequency of harmful algal blooms (HABs). 75 New York recognizes the threat HABs pose to our drinking water, 50 outdoor recreation, fish and animals, and human health. In 2017, more 25 than 100 beaches were closed for at least part of the summer due to 0 HfoAr Bthse, iar ncdo msommuen iltaiekse sw tehraet tsherervaete anse tdh eb yp rHimAaBrsy fdorri nthkein gfir wsta ttimere s.ource 2012 2013 2014 2015 2016 2017 GOVERNOR CUOMO’S FOUR-POINT HARMFUL ALGAL BLOOM INITIATIVE FOUR-POINT INITIATIVE In his 2018 State of the State address, Governor Cuomo announced a $65 million, four-point initiative to aggressively combat HABs in PRIORITY LAKE IDENTIFICATION Upstate New York, with the goal to identify contributing factors fueling 1 Identify 12 priority waterbodies that HABs, and implement innovative strategies to address their causes represent a wide range of conditions and protect water quality. and vulnerabilities—the lessons learned will be applied to other impacted Under this initiative, the Governor’s Water Quality Rapid Response waterbodies in the future. Team focused strategic planning efforts on 12 priority lakes across New York that have experienced or are vulnerable to HABs. The 2 REGIONAL SUMMITS Convene four Regional Summits to team brought together national, state, and local experts to discuss bring together nation-leading experts the science of HABs, and held four regional summits that focused on with Steering Committees of local conditions that were potentially affecting the waters and contributing stakeholders. to HABs formation, and immediate and long-range actions to reduce ACTION PLAN DEVELOPMENT the frequency and /or treat HABs. 3 Continue to engage the nation-leading experts and local Steering Committees to Although the 12 selected lakes are unique and represent a wide complete Action Plans for each priority range of conditions, the goal was to identify factors that lead to waterbody, identifying the unique factors HABs in specific water bodies, and apply the information learned fueling HABs—and recommending to other lakes facing similar threats. The Rapid Response Team, tailored strategies to reduce blooms. national stakeholders, and local steering committees worked together ACTION PLAN IMPLEMENTATION collaboratively to develop science-driven Action Plans for each 4 Provide nearly $60 million in grant of the 12 lakes to reduce the sources of pollution that spark algal funding to implement the Action Plans, blooms. The state will provide nearly $60 million in grant funding to including new monitoring and treatment implement the Action Plans, including new monitoring and treatment technologies. technologies. TO LEARN MORE ABOUT HABs, VISIT: on.ny.gov/hab www.health.ny.gov/HarmfulAlgae PALMER LAKE Putnam County Palmer Lake, a 14-acre manmade lake in Putnam County, is one of the 12 priority lakes impacted by HABs. The lake is a part of the Croton System of New York City water supply reservoirs and is a tributary to the Croton Falls Reservoir. There are no public beaches on the lake, but private club members have access to seasonal swimming and water recreation on the lake. Based on historical data and water quality monitoring conducted in 2016-17, Palmer Lake was designated as an “impaired waterbody” due to excessive nutrients, algal growth, and reduced water clarity, which could impact recreational uses in the lake. The significant sources of phosphorus loading in the lake are: • Phosphorous inputs associated with septic system discharge; and • Nonpoint source nutrient inputs from the contributing watershed. There has been one confirmed HAB in the lake, a localized occurrence in 2017. It is not known if other HABs have occurred in the lake. Although the causes of HABs vary from lake to lake, phosphorus pollution—from sources such as wastewater treatment plants, septic systems, and fertilizer runoff—is a major contributor. Other factors likely contributing to the uptick in HABs include higher temperatures, increased precipitation, and invasive species. With input from national and local experts, the Water Quality Rapid Response Team identified a suite of priority actions (see Section 13 of the Action Plan for the complete list) to address HABs in Palmer Lake, including the following: • Construct a wastewater treatment plant (WWTP) and install infrastructure required to connect 300 houses or a subset of residences; • Dredge bottom sediment to reduce re-sedimentation and introduction of legacy, sediment-bound phosphorus; and Palmer Lake • Continue to improve stormwater management within the watershed. ¯ The black outline shows the lake’s watershed area: all the land area where rain, snowmelt, streams or runoff flow into the lake. Land uses and activities on the land in this area have the potential to impact the lake. PALMER LAKE CONTINUED NEW YORK’S COMMITMENT TO PROTECTING OUR WATERS FROM HABS New York is committed to addressing threats related to HABs, and will continue to monitor conditions in Palmer Lake while working with researchers, scientists, and others who recognize the urgency of action to protect water quality. Governor Cuomo is committed to providing nearly $60 million in grants to implement the priority actions included in these Action Plans, including new monitoring and treatment technologies. The New York State Water Quality Rapid Response Team has established a one-stop shop funding portal and stands ready to assist all partners in securing funding and expeditiously implementing priority projects. A description of the various funding streams available and links for applications can be found here: https://on.ny.gov/HABsAction. This Action Plan is intended to be a ‘living document’ for Palmer Lake and interested members of the public are encouraged to submit comments and ideas to [email protected] to assist with HABs prevention and treatment moving forward. NEW YORK STATE RESOURCES Drinking Water Monitoring and Technical Assistance: The state provides ongoing technical assistance for public Pea soup appearance water suppliers to optimize drinking water treatment when HABs and toxins might affect treated water. The U.S. EPA recommends a 10-day health advisory level of 0.3 micrograms per liter for HAB toxins, called microcystins, in drinking water for young children. Public Outreach and Education: Floating dots or clumps The Know It, Avoid It, Report It campaign helps educate New Yorkers about recognizing HABs, taking steps to reduce exposure, and reporting HABs to state and local agencies. The state also requires regulated beaches to close swimming areas when HABs are observed and to test water before reopening. Spilled paint appearance Research, Surveillance, and Monitoring: Various state agencies, local authorities and organizations, and academic partners are working together to develop strategies to prevent and mitigate HABs. The state tracks HAB occurrences and illnesses related to exposure. Water Quality and Pollution Control: Streaks on the water’s surface State laws and programs help control pollution and reduce nutrients from entering surface waters. State funding is CONTACT WITH HABs available for municipalities, soil and water conservation CAN CAUSE HEALTH EFFECTS districts, and non-profit organizations to implement projects Exposure to HABs can cause diarrhea, nausea, or that reduce nutrient runoff. vomiting; skin, eye or throat irritation; and allergic reactions or breathing difficulties. Contents List of Tables ................................................................................................................... 3 List of Figures .................................................................................................................. 3 1. Introduction .............................................................................................................. 5 1.1 Purpose .......................................................................................................... 5 1.2 Scope, Jurisdiction and Audience ................................................................... 5 1.3 Background ..................................................................................................... 6 2. Lake Background ..................................................................................................... 6 2.1 Geographic Location ....................................................................................... 6 2.2 Basin Location ................................................................................................ 7 2.3 Morphology ..................................................................................................... 7 2.4 Hydrology ........................................................................................................ 8 2.5 Lake Origin ..................................................................................................... 9 3. Designated Uses ...................................................................................................... 9 3.1 Water Quality Classification – Lake and Major Tributaries .............................. 9 3.2 Potable Water Uses ........................................................................................ 9 3.3 Public Bathing Uses ...................................................................................... 11 3.4 Recreation Uses ........................................................................................... 11 3.5 Fish Consumption/Fishing Uses ................................................................... 12 3.6 Aquatic Life Uses .......................................................................................... 12 4. User and Stakeholder Groups ................................................................................ 12 5. Monitoring Efforts ................................................................................................... 13 5.1 Lake Monitoring Activities ............................................................................. 13 5.2 Tributary Monitoring Activities ....................................................................... 13 6. Water Quality Conditions ....................................................................................... 14 6.1 Physical Conditions ....................................................................................... 15 6.2 Chemical Conditions ..................................................................................... 17 6.3 Biological Conditions ..................................................................................... 20 6.4 Other Conditions ........................................................................................... 22 7. Summary of HABs .................................................................................................. 23 7.1 Ambient Lake HABs History .......................................................................... 24 1 | HABS ACTION PLAN - PALMER LAKE 7.2 Drinking Water and Swimming Beach HABs History .................................... 24 7.3 Other Bloom Documentation ......................................................................... 26 7.4 Use Impacts .................................................................................................. 27 8. Waterbody Assessment ......................................................................................... 27 8.1 WI/PWL Assessment .................................................................................... 27 8.2 Source Water Protection Program (SWPP) .................................................. 28 8.3 CSLAP Scorecard ......................................................................................... 28 9. Conditions triggering HABs .................................................................................... 29 10. Sources of Pollutants triggering HABs ................................................................ 31 10.1 Land Uses ..................................................................................................... 32 10.2 External Pollutant Sources ............................................................................ 33 10.3 Internal Pollutant Sources ............................................................................. 34 10.4 Summary of Priority Land Uses and Land Areas .......................................... 34 11. Lake Management / Water Quality Goals ............................................................ 34 12. Summary of Management Actions to Date .......................................................... 35 12.1 Local Management Actions ........................................................................... 35 12.2 Funded Projects ............................................................................................ 36 12.3 NYSDEC Issued Permits .............................................................................. 36 12.4 Research Activities ....................................................................................... 37 12.5 Clean Water Plans (TMDL, 9E, or Other Plans) ........................................... 37 13. Proposed Harmful Algal Blooms (HABs) Actions ................................................ 38 13.1 Overarching Considerations ......................................................................... 38 13.1.1 Phosphorus Forms ...................................................................................... 39 13.1.2 Climate Change .......................................................................................... 39 13.2 Priority Project Development and Funding Opportunities ............................. 40 13.3 Palmer Lake Priority Projects ........................................................................ 43 13.3.1 Priority 1 Projects ........................................................................................ 43 13.3.2 Priority 2 Projects ........................................................................................ 45 13.4 Additional Watershed Management Actions ................................................. 45 13.5 In-Lake Management Actions ....................................................................... 47 13.6 Monitoring Actions ........................................................................................ 48 13.7 Research Actions .......................................................................................... 48 2 | HABS ACTION PLAN - PALMER LAKE 13.8 Coordination Actions ..................................................................................... 50 13.9 Long-term Use of Action Plan ....................................................................... 51 14. References .......................................................................................................... 52 Appendix A. Wind Patterns ........................................................................................... 57 Appendix B. Waterbody Classifications ......................................................................... 58 Appendix C. WI/PWL Summary .................................................................................... 60 Appendix D. NYSDEC Water Quality Monitoring Programs .......................................... 62 Appendix E. Road Ditches ............................................................................................ 63 List of Tables Table 1. Regional summary of average surface total phosphorus (TP) concentrations (mg/L, ± standard error) for New York State lakes (2012-2017, CSLAP and Lake Classification and Inventory (LCI)), and the average surface TP concentration (± standard error) in Palmer Lake (2016-2017, CSLAP). .................................................. 15 Table 2. New York State criteria for trophic classifications (NYSFOLA 2009) compared to average (± standard error) Palmer Lake values in 2016 and 2017 (CSLAP). ........... 15 Table 3. Dissolved oxygen (mg/L) total phosphorus (mg/L) and soluble reactive phosphorus (mg/L) measurements from September 2008. Data are representative of cursory base flows prior to discharges from the Kent Manor WWTP (Princeton Hydro LLC 2008b). .................................................................................................................. 22 Table 4. HABs guidance criteria. ................................................................................... 26 Table 5. WI/PWL severity of use impact categorization (Source: NYSDEC 2011). ....... 28 List of Figures Figure 1. Location of Palmer Lake within New York State. .............................................. 7 Figure 2. Political boundaries within the Palmer Lake watershed. .................................. 8 Figure 3. Palmer Lake transparency, measured as Secchi depth (m), in 2013 (LCI) and 2016 and 2017 (CSLAP). .............................................................................................. 16 Figure 4. Surface water temperatures (°C) in Palmer Lake, in 2013 (LCI) and 2016 and 2017 (CSLAP). .............................................................................................................. 17 Figure 5. Total phosphorus (TP) concentrations (mg/L) in Palmer Lake from 2013 (LCI), and 2016 and 2017 (CSLAP). ....................................................................................... 18 3 | HABS ACTION PLAN - PALMER LAKE Figure 6. Total nitrogen (TN) concentrations (mg/L) in Palmer Lake from 2013 (LCI), and 2016 and 2017 (CSLAP). ....................................................................................... 19 Figure 7. Total nitrogen (TN) to total phosphorus (TP) ratios in Palmer Lake from 2013 (LCI), and 2016 and 2017 (CSLAP). ............................................................................. 20 Figure 8. Chlorophyll-a concentrations (mg/L) from Palmer Lake in 2013 (LCI). ........... 22 Figure 9. Palmer Lake 2017 CSLAP scorecard. ............................................................ 29 Figure 10. Land uses and percentages in the Palmer Lake watershed. ........................ 32 Figure 11. (a) Watershed land use and (b) septic system density for Palmer Lake. ..... 33 Figure 12. Locations (depicted in red) of either hydric, very poor, or poorly drained soils in the Palmer Lake watershed. Note the hydric soil locations presented are non- overlapping with National Wetland Inventory (NWI) mapped wetlands. ........................ 47 4 | HABS ACTION PLAN - PALMER LAKE 1. Introduction 1.1 Purpose New York State's aquatic resources are among the best in the country. State residents benefit from the fact that these resources are not isolated, but can be found from the eastern tip of Long Island to the Niagara River in the west, and from the St. Lawrence River in the north to the Delaware River in the south. These resources, and the plants and animals they harbor, provide both the State and the local communities a wealth of public health, economic, and ecological benefits including potable drinking water, tourism, water-based recreation, and other ecosystem services. Harmful algal blooms (HABs), primarily within ponded waters (i.e., lakes and ponds) of New York State, have become increasingly prevalent in recent years and have impacted the values and services that these resources provide. This HABs Action Plan for Palmer Lake has been developed by the New York State Water Quality Rapid Response Team (WQRRT) to: • Describe existing physical and biological conditions • Summarize the research conducted to date and the data it has produced • Identify the potential causative factors contributing to HABs • Provide specific recommendations to minimize the frequency, duration and intensity of HABs to protect the health and livelihood of its residents and wildlife. This Action Plan represents a key element in New York State's efforts to combat HABs now and into the future. 1.2 Scope, Jurisdiction and Audience The New York State HABs monitoring and surveillance program was developed to evaluate conditions for waterbodies with a variety of uses (public, private, public water supplies (PWSs), non-PWSs) throughout the State. The Governor’s HABs initiative focuses on waterbodies that possess one or more of the following elements: • Serve as a public drinking water supply • Are publicly accessible • Have regulated bathing beaches. Based on these criteria, the Governor’s HABs initiative has selected 12 New York State waterbodies that are representative of waterbody types, lake conditions, and vulnerability to HABs throughout the State. Palmer Lake, with its swimming beach, recreational opportunities, and proximity to the New York City drinking water supply, was selected as one of the priority waterbodies, and is the subject of this HABs Action Plan. The intended audiences for this Action Plan are as follows: 5 | HABS ACTION PLAN - PALMER LAKE • Members of the public interested in background information about the development and implications of the HABs program • New York State Department of Environmental Conservation (NYSDEC), New York State Department of Health (NYSDOH), and New York State Department of Agriculture and Markets (NYSDAM) officials associated with the HABs initiative • State agency staff who are directly involved in implementing or working with the NYS HABs monitoring and surveillance program • Local and regional agencies involved in the oversight and management of Palmer Lake (e.g., Putnam County Soil and Water Conservation District [SWCD], Departments of Health [DOH], and the New York City Department of Environmental Protection [NYCDEP]). • Lake residents, managers, consultants, and others that are directly involved in the management of HABs and water quality in Palmer Lake. Analyses conducted in this Action Plan provide insight into the processes that potentially influence the formation of HABs in Palmer Lake, and their spatial extents, durations, and intensities. Implementation of the mitigation actions recommended in this HABs Action Plan are expected to reduce the likelihood of blooms in Palmer Lake. 1.3 Background Harmful algal blooms in freshwater generally consist of visible patches of cyanobacteria, also called blue-green algae (BGA). Cyanobacteria are naturally present in low numbers in most marine and freshwater systems. Under certain conditions, including adequate nutrient (e.g., phosphorus) availability, warm temperatures, and calm winds, cyanobacteria may multiply rapidly and form blooms that are visible on the surface of the affected waterbody. Several types of cyanobacteria can produce toxins and other harmful compounds that can pose a public health risk to people and animals through ingestion, skin contact, or inhalation. The NYSDEC has documented the occurrence of HABs in Palmer Lake, and has produced this Action Plan to identify the primary factors triggering HAB events, and to facilitate decision-making to minimize the frequency, intensity, and duration of HABs. 2. Lake Background 2.1 Geographic Location Palmer Lake is a 14-acre man-made lake located in Putnam County, approximately 50 miles north of New York City, and approximately seven miles west of the New York/ Connecticut state line (Figure 1). Portions of Palmer Lake and its watershed are within the limits of two towns, Carmel and Kent (Figure 2). The Lake and its surrounding lands are currently managed by the residents of the Hill and Dale Country Club with deeded lake rights. 6 | HABS ACTION PLAN - PALMER LAKE