Final Basin 8 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 Winooski 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 2018 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)

The Winooski River basin (Basin 8) encompasses 1,080 square miles in Vermont. The entire watershed spans fifty towns covering six counties: major parts of Washington and Chittenden County and lesser parts of Lamoille, Orange, Caledonia, and Addison counties. The Winooski River begins its 94-mile journey in Cabot and terminates at its confluence with Lake Champlain in Colchester. The river basin comprises 24 sub-basins which include the Huntington, Mad, Dog, and Little Rivers, the Kingsbury, Stevens, Jail, and North Branches, and many other smaller Winooski River tributaries. Detailed information about each of these rivers and other smaller watersheds within the Basin can be found in previous  individual basin assessment reports  and the  2018 Winooski River Tactical Basin Plan . The draft 2023 Winooski River Tactical Basin Plan is available to review on the  Winooski Tactical Basin Planning webpage .

River Reclassification Candidates

Biomonitoring assessments by the WSMD identified 11 surface waters as consistently and demonstrably attaining a higher level of quality than Class B(2), meeting Class B(1) draft criteria for aquatic biota. 2 other surface waters consistently attain a higher level of quality than Class B(1), meeting Class A(1) draft criteria. An additional 36 streams meet 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 2 Class 1 wetlands in the Winooski basin (Chickering Fen and Peacham Bog [which drains to two basins]), 1 candidate Class 1 wetland (Lanesboro Bog), and 6 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 the Winooski basin through 2022-- 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. Shelburne Pond and Waterbury Reservoir are also listed as altered waters for invasive species (Eurasian water milfoil) and altered flows, respectively.

Impaired rivers across the Winooski basin through 2022

Yellow represents streams that are on the 303(d) list and salmon color represents streams that are on Part D of the Priority Waters List and have an EPA approved TMDL. 26 stream segments are listed in the Winooski basin for a variety of reasons (e.g., E. coli: 10 segments; stormwater pollutants or road salt runoff: 12 segments) and are described in more detail in the draft plan. 8 additional stream segments below large dams, snowmaking operations, or water supply withdrawals have altered flows. A full list of the impaired and altered segments can be found in the Chapter 3 of the draft Tactical Basin Plan.

Lake Champlain covers 373 square miles with a watershed that extends across 8,234 square miles, draining nearly half the land area of Vermont (56%), as well as portions of northeastern New York (37%) and southern Quebec (7%). The large land to water ratio (20:1) has resulted in significant phosphorus loading from land-use activity in the watershed, a predominant source of the lake’s phosphorus impairment ( LCBP 2021 ). The excessive phosphorus in the lake has impaired aquatic life and reduced recreational use due to cyanobacteria blooms, unpleasant odors, and low dissolved oxygen concentrations.

A cleanup plan, called a Total Maximum Daily Load (TMDL) was developed for Lake Champlain in 2016 to identify how phosphorus loading could be reduced across 12 Vermont segments of the lake to meet water quality targets for these segments. As required, the plan is a phased approach over a 20-year period and includes an accountability framework to ensure pollution reduction targets are achieved across contributing land-use sectors. The 2023 Tactical Basin Plan includes an updated Phase 3 implementation plan to meet the goals of the  Lake Champlain Phosphorus Total Maximum Daily Load (TMDL) .

This implementation plan describes the progress achieved in phosphorus reductions from farm, developed lands, and natural resource sectors since 2016. The plan projects sector-specific target reductions for the next 5 years, reports on reduction requirements across all sectors within the basin, including regulatory and non-regulatory actions, and identifies gaps in strategy implementation. An  online interactive report  (example graphic to the left) has been created to show loading estimates and reduction targets from the TMDL for each sub-watershed for all Vermont's basins that drain to Lake Champlain.

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 212.4 metric tons per year as shown in Chapter 4 of the  2022 annual performance repor t that is available online.

A summary of agricultural practices implemented since 2016 in specific subwatersheds across the Winooski basin is available in this  online interactive report  and a second  online interactive report  displays the progress in meeting agricultural reduction targets in each sub-watershed as shown below. This analysis shows that several sub-watersheds have large remaining agricultural phosphorus reduction goals. These sub-watershed are identified as priorities for agricultural outreach and implementation efforts in the draft tactical basin plan.

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 2036) achieved. The totals are not cumulative, and the same volume of reduction must be achieved each year to maintain the 2036 target.

About 12% of the total 2036 phosphorus reduction target for the Winooski basin has been achieved to date, mainly through reductions in the agricultural sector (about 23% of the agricultural target had been met in 2022).

An accelerated pace of phosphorus reduction is expected in the coming years as existing regulatory programs are fully implemented, non-regulatory projects receive funding through new Clean Water Service Provider networks (see below) and other funding sources, and the phosphorus reduction benefits of agricultural, natural resource, and developed lands projects are better tracked and accounted for with new tools and data collection methods.

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 the Winooski Basin is the Central Vermont Regional Planning Commission. More information on Winooski basin CWSP operations is available on the  CVRPC CWSP 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 cover makes up 9.5% of the land cover in the Winooski basin including 8.8% in hay or pasture and 0.7% in cultivated crops. Agricultural runoff constitutes 18.8% of the Winooski basin’s estimated TMDL baseline total phosphorus loading to Lake Champlain. As described in the earlier section on the Lake Champlain Total Maximum Daily Load, most of the phosphorus reductions in the Winooski basin to date have been achieved by the implementation of agricultural best management practices.

• Muddy Brook, lower Winooski River, Headwaters Little River, Headwaters Winooski River, Headwaters Stevens Branch, Nasmith Brook, Huntington River, Jail Branch, Stevens Branch

• Target field Best Management Practice implementation in high priority watersheds.
• Maintain annual practices like cover cropping through education, outreach, and/or enrollment in applicable conservation programs.
• Identify and determine information needs of Small Farm Operations to encourage BMP implementation.
• Support farm teams, conservation equipment programs, soil health assessments, and farmer participation in the pay for phosphorus program.

Developed lands make up about 2.7% of the land cover in the Winooski basin, with locally higher concentrations in the Headwaters Stevens (4.5%), Muddy Brook (7.4%), Stevens Branch (7.1%), and Lower Winooski (11.6%) sub-watersheds. These lands include the general land use classes of urban, residential, and industrial areas, as well as paved and unpaved roads. Stormwater runoff (precipitation that flows over the land during or after a storm event or snowmelt) from developed lands is a significant threat to water quality in Vermont.

Phosphorus loading from developed lands account for approximately 25.1% of all phosphorus loading from the Winooski basin to Lake Champlain. Stormwater runoff is also a partial cause of 50% of the 24 stream impairments identified in the basin, contributing excess sediment, chloride, nutrients, bacteria, temperature, and other pollutants to surface waters.

Stormwater mapping (interactive map to the left), Indirect Discharge Detection and Elimination studies and Stormwater Master Plans are the tools used to identify stormwater actions needed to address stormwater-related water resource impairments.Basin stakeholders have been actively participating in voluntary actions and implementing priority projects and municipalities are working on meeting regulatory requirements and are working to remediate identified discharges.

30 towns with existing stormwater plans (see Table 16 of draft Tactical Basin Plan)

• Support the prioritization, design, and implementation of stormwater projects found in various stormwater planning assessments.
• Develop stormwater mapping reports, stormwater master plans (SWMPs), and illicit discharge and detection studies to identify priority stormwater projects.
• Promote and, where appropriate, coordinate existing campaigns to raise awareness of residential stormwater management approaches (e.g.,  Rethink Runoff ,  Storm Smart ,  Lawn to Lake ,  Blue BTV ).
• Educate towns, businesses and contractors on winter maintenance strategies that reduce use of chlorides.

It is estimated that more than 75% of Vermont roads were constructed prior to any requirements for managing stormwater runoff. Where road networks intersect stream networks, roads and their ditches effectively serve as an extension of the stream system. Roads can increase stormwater runoff, and, in this basin, unpaved roads are an important source of sediment to receiving waterbodies. In the Lake Champlain TMDL, unpaved roads are estimated to contribute 29.6% of the phosphorus loading from the developed lands sector.

Tactical basin planning engages local, regional, and federal partners to accelerate the implementation of transportation-related practices to meet the state’s clean water goals. Two regulatory programs, the Municipal Roads General Permit (MRGP) and the Transportation Separate Storm Sewer System Permit (TS4) are driving road water quality implementation efforts in the basin.

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

Stowe, Northfield, Montpelier, Barre Town, Calais, Plainfield, Moretown, Berlin, Cabot, Duxbury, and Middlesex, Barre City, Montpelier, Stowe, Northfield, Morristown, and Waterbury

• Assist municipalities in updating REI and prioritizing and implementing roads projects to meet the Municipal Roads General Permit.
• Pilot a GIS road segmentation and private REI to identify, prioritize, develop, and implement private road restoration projects.

Wastewater discharges to surface waters or ground waters represent a regulated and readily measurable and controlled source of pollutants, including pathogens and phosphorus. Vermont addresses these discharges primarily through implementation of the National Pollutant Discharge Elimination System and Indirect Discharge (NPDES) permit program as well as state permit programs. DEC provides financial assistance and technical assistance to municipalities and other permittees to upgrade wastewater treatment infrastructure and along with partners supports the community’s development of community onsite systems and maintenance of residential onsite systems. 

The TBP includes a summary of permit requirements for the wastewater treatment facilities in the Winooski basin (example to the left). An overarching consideration for the Agency’s issuance of NPDES permit is the 2016 Lake Champlain Phosphorus TMDL. Because of the TMDL, the permitted loading for all Winooski basin WWTFs was collectively reduced by 15.4 MT/yr or 63.4% from the baseline 2016 estimates of wastewater-derived phosphorus loads.  

WWTFs: Barre City, Burlington, Cabot, Essex Junction, Marshfield, Montpelier, Northfield, Plainfield, Richmond, South Burlington, Stowe, Waterbury, Williamstown, Winooski

Community wastewater solutions and/or wastewater workshops: Huntington, Waitsfield, Warren, Middlesex, Moretown, Calais, Woodbury, Stowe

• Support municipalities pursuing WWTF phosphorus optimization, expansion projects, and upgrades to meet TMDL allotments, phosphorus optimization and CSO requirements.
• Assist communities in addressing inadequate individual on-site wastewater treatment on small, challenging sites (e.g., ANR Village Wastewater Solutions)
• Educate onsite septic owners about septic system maintenance and alternative systems through local outreach and education programs such as Wastewater Workshops.

Forest lands cover approximately 73% of the basin. As the dominant land cover, forests are important for safeguarding many high-quality surface waters. Yet, 22.3% of phosphorus runoff is shown to originate from forestlands in the Winooski basin. Reducing runoff and erosion from forests is important to meeting the state’s clean water goals. Forest management activities offer many benefits, maintaining healthy forest communities, improving wildlife habitat, addressing non- native invasive species, contributing to the working landscape economy, and remediating poor legacy road infrastructure. Improving management and oversight of harvesting activities by following the Acceptable Management Practices (AMPs) and providing educational outreach and technical assistance to forest landowners and land managers are basin priorities.

State and town forests, and headwaters of: Little River, North Branch, Mad River, Huntington River, Stevens and Jail Branches, and Winooski headwaters

• Pilot the identification and prioritization of forest road segments with water quality impacts via the pending Forestland Erosion Assessment tool and subsequent forest REIs.
• Identify and implement feasible forest gully projects using new critical source area mapping tools.
• Support the use of skidder bridges through rental and incentive programs.
• Encourage forest conservation and potential Use Value Appraisal enrollment wherever landowners express interest, and especially in Source Protection Areas.

Legacy and present-day impacts, such as development within riparian corridors, channel straightening, berm and dam construction, removal of riparian vegetation, and construction of undersized crossing structures, have contributed to stream instability and degraded geomorphic conditions (left). A key consequence of these activities is the loss of resilience and the ecosystem services provided by rivers that achieve dynamic equilibrium. In the Winooski basin, loss of river equilibrium is the major contributor of TP loading to Lake Champlain (33.8% of the total load, see Chapter 3). Therefore, the plurality of the TMDL reduction goal for this basin (38.7%) is expected to be met through river regulatory reductions and voluntary projects.

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. 

Furthermore, the  Functioning Floodplains Initiative  now provides a method for tracking and accounting for the water quality benefits achieved by implementing a variety of river restoration project types.

Winooski headwaters, Dog River, Stevens and Jail Branches, Little River headwaters, Joiner Brook, and other partner priorities

• Pilot a process to update existing River Corridor Plans and prioritize additional Stream Geomorphic Assessment fieldwork.
• Pilot the identification, design, and implementation of low tech, process-based restoration projects.
• Develop and implement high priority dam removal, streamside berm removal, and culvert replacement projects.
• Provide support for municipalities to update flood hazard bylaws and to consider adoption of river corridor protections with new Federal Emergency management Agency (FEMA) maps.
• Support outreach to towns on opportunities to reclassify waters.

There are 46 lakes and ponds in the Basin that are ten acres or greater. Of the nine lakes in the Basin over 100 acres, five have dams that are managed by hydroelectric facilities: Waterbury Reservoir (869 acres), Molly’s Falls Reservoir (402 acres), Peacham Pond (347 acres), Wrightsville Reservoir (181 acres), and Thurman W. Dix Reservoir (125 acres). Berlin Pond (290 acres) and Thurman W. Dix Reservoir serve as drinking water supplies for the cities of Montpelier and Barre, respectively. The three remaining large ponds are Shelburne Pond (479 acres), Sabin Pond (148 acres), and Forest Lake (135 acres). Most lakes and ponds in the Basin (including these largest lakes) are impounded by dams.

Preventing and mitigating water quality degradation, preserving and enhancing lake habitat and shoreline stability and ensuring recreational uses of lakes and ponds are priorities for the basin. Recommendations included are guided by data from the  VT Inland Lakes Scorecard  depicting the condition of lakes and ponds, along with input from the Lakes and Ponds Management Program and basin stakeholders.

Sabin Pond, Forest Lake, Shelburne Pond, Curtis Pond, Lake Greenwood, Peacham Pond, Buck Lake, Lake Mirror, Waterbury Reservoir, Mollys Falls Reservoir, Wrightsville Reservoir

• Initiate Next Generation Lake Assessments, Lake Wise assessments, and/or Lake Watershed Action Plans on priority lakes, depending on the complexity of the water quality need and the opportunity for community engagement.
• Develop, design, and implement priority projects identified through various lake assessments.
• Increase protections for high-quality lakes through reclassification.

During the Tactical Basin Planning process a list of priority waters for monitoring were identified. These include Sabin Pond and Forest Lake, where monitoring is needed to understand increasing phosphorus trends, and Wrightsville, Mollys Falls, and Waterbury Reservoirs where monitoring is needed to understand decreasing clarity trends in high-use recreational lakes. 14 other ponds are recommended to assess general reclassification eligibility.

Tributaries to Shelburne Pond, Sabin Pond, and Forest Lake are priorities for chemical monitoring to identify sources of phosphorus that may augment the high internal phosphorus loads in the lake (Shelburne) or contribute to increasing nutrient trends (Sabin and Forest).

49 streams without any recent biological data (right) have been prioritized for monitoring based on the size of their unmonitored watershed and either it's percent forest cover (sites with high forest cover are more likely candidates for reclassification) or it's percent agricultural and developed lands (sites with high ag/developed cover are more likely to experience degraded water quality).

Nine streams (below) have been identified as needing additional biological monitoring to evaluate attainment of Aquatic Biota use criteria.

Twelve streams (below) have been identified as needing additional monitoring to evaluate reclassification based on aquatic biota use.