[Federal Register Volume 59, Number 31 (Tuesday, February 15, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-3432]


[[Page Unknown]]

[Federal Register: February 15, 1994]


-----------------------------------------------------------------------

ENVIRONMENTAL PROTECTION AGENCY
[FRL-4837-7]

 

Review of Lake Superior Lakewide Management Plan

AGENCY: Environmental Protection Agency.

ACTION: Notice of availability.

-----------------------------------------------------------------------

SUMMARY: This document provides opportunity for comment on the proposed 
Stage 1 Lakewide Management Plan (LaMP) for Lake Superior. This Stage 1 
LaMP, when finalized, will serve to satisfy the obligations of the 
United States Environmental Protection Agency (EPA or Agency) under 
Section 118 of the Clean Water Act (CWA). It also serves as a report on 
progress under the Binational Program to Restore and Protect Lake 
Superior. This proposed LaMP was developed through a binational process 
involving EPA, Environment Canada, the Province of Ontario, and the 
States of Michigan, Minnesota and Wisconsin under the ongoing 
implementation of the Binational Program. EPA puts forward this 
proposed LaMP for public comment in the United States on behalf of the 
agencies involved in the Binational Program.
    The proposed Lake Superior LaMP describes a selected list of 
Critical Pollutants causing or contributing to adverse impacts on the 
Lake Superior ecosystem based on information available as of January 1, 
1991, and informs the public of the variety of actions that Federal, 
State, Provincial, Tribal, and local governments and private 
organizations are taking, will take, or could take to reduce the amount 
of these pollutants entering the waters of the Lake Superior System. In 
addition, the proposed Lake Superior LaMP proposes candidate Critical 
Pollutants for evaluation in future revisions of the LaMP. Due to its 
length and format, the proposed Lake Superior LaMP is summarized in 
this notice, rather than published in full. As described in this 
notice, EPA is making copies of the entire LaMP available to the 
public. Furthermore, EPA is soliciting comments on all aspects of the 
proposed LaMP. In particular, EPA seeks comments regarding the proposed 
list of Critical Pollutants for Lake Superior, the proposed list of 
causal pollutants (candidate Critical Pollutants) and the actions 
available to Federal, State, and local agencies, as well as the public, 
to reduce the release of Critical Pollutants from all sources and the 
presence of these substances in the waters of the Lake Superior System.

DATES: EPA will accept comment on the proposed Lake Superior LaMP until 
May 16, 1994. Comments received after this date may not be considered. 
In addition, EPA has considered materials submitted by the public prior 
to today's notice in the development of the proposed LaMP. These 
materials contain comments on draft elements that have been superseded 
by today's proposal and EPA will not consider them in the development 
of the final LaMP. Further, EPA cannot ensure consideration of comments 
submitted to other agencies or entities other than EPA in the 
development of the final LaMP. Accordingly, EPA advises the public that 
for the purposes of exhaustion of administrative remedies, all comments 
must be submitted to EPA based on today's notice.

ADDRESSES: To obtain a copy of the proposed Lake Superior LaMP please 
contact Jeanette Morris-Collins, Environmental Protection Assistant, 
Water Quality Branch, U.S. EPA, Region 5 (WQ-16J), 77 West Jackson 
Blvd., Chicago, Illinois, 60604, (telephone: 312-886-0152). Copies of 
the proposed Lake Superior LaMP may also be obtained from the following 
offices: Jean Hude, Michigan DNR, Surface Water Quality Division, P.O. 
Box 30273, Lansing, Michigan, 48909, Telephone: 517-335-6970; Carrie 
Losi-Hansen, Minnesota PCA, Division of Water Quality, 520 Lafayette 
Road, St. Paul, MN, 55155, Telephone: 612-296-9134; Danielle 
Valvasorri, Wisconsin DNR, Bureau of Water Resources, P.O. Box 7021, 
Madison, WI, 53707, Telephone: 608-266-9276.
    The proposed Lake Superior LaMP will also be available for viewing 
by the public at the following locations:
    U.S. Environmental Protection Agency, Region 5 Library, 77 W. 
Jackson Blvd., Chicago, Illinois, 60604 (312-886-9056).
    Michigan: Library of Michigan, Government Documents Service, 717 
West Allegan, Lansing, Michigan, 48909 (517-373-1300); Detroit Public 
Library, Sociology and Economics Department, 5201 Woodward Avenue, 
Detroit, Michigan, 48902 (313-833-1440).
    Minnesota: Minnesota Pollution Control Agency, Library, 320 
Lafayette, St. Paul, Minnesota (612-296-7719).
    Wisconsin: Water Resources Center, University of Wisconsin-Madison, 
2nd floor, 1975 Willow Drive, Madison, Wisconsin (608-2620-3069).

FOR FURTHER INFORMATION CONTACT: Susan M. Gilbertson, Project Manager, 
Water Quality Branch, U.S. EPA, Region 5 (WQ-16J), 77 W. Jackson Blvd., 
Chicago, Illinois, 60604 (telephone: 312-353-2190).

SUPPLEMENTARY INFORMATION:

I. Background

    In Article VI, Annex 2 of the Great Lakes Water Quality Agreement 
(GLWQA), as amended in 1987, the United States and Canadian Governments 
agreed to develop and implement Lakewide Management Plans (LaMPs) for 
each of the five Great Lakes. EPA interprets LaMPs as management tools 
designed to: (1) Integrate Federal, State and local programs to reduce 
loadings of toxic substances (including discharges from point and 
nonpoint sources); (2) assess whether these programs will ensure 
attainment of water quality standards and beneficial uses; and (3) 
recommend any media-specific program enhancements necessary to reduce 
toxic loadings in waters currently not attaining water quality 
standards and/or beneficial uses. LaMPs provide an opportunity for 
regulatory authorities to design cost-effective approaches for meeting 
water quality standards and/or beneficial uses.
    EPA believes the primary goal of LaMPs is to reduce both point and 
nonpoint source loadings and ambient levels of critical pollutants, 
those pollutants which are causing, or have the potential to cause, 
exceedances of water quality standards or impairments of beneficial 
uses of the Great Lakes. By addressing pollutants that might impair 
waters that currently meet water quality standards and/or beneficial 
uses, LaMPs incorporate a pollution prevention approach. Traditional 
regulatory programs, as well as non-traditional voluntary programs, are 
considered in the LaMP process.
    EPA intends to periodically update LaMPs to reflect progress in 
implementing media-specific programs and attendant reductions in 
loadings of Critical Pollutants, to incorporate advances in the 
understanding of the Great Lakes ecosystem based on new data and 
information, and to include any necessary program specific adjustments.
    When finalized, EPA intends the Lake Superior LaMP to serve as the 
basis for development and submission of State Water Quality Management 
Plans (WQM Plans) developed in accordance with sections 208 and 303(b) 
of the CWA, as implemented through the requirements of 40 CFR 130.6. 
These WQM plans establish a process for continuing water quality 
planning which focuses on priority issues and geographic areas and on 
the development of water quality controls leading to implementation 
measures. Such plans draw on water quality assessments to identify 
priority point and nonpoint water quality problems, consider 
alternative solutions and recommend control measures. In this way, EPA 
and the States will ensure reasonable progress in the overall 
improvement of Great Lakes water quality and attainment of water 
quality standards and beneficial uses. Further, EPA expects any new 
loadings data obtained during the development of LaMPs to be 
incorporated by the States when establishing or revising Total Maximum 
Daily Loads (TMDLs) and Waste Load Allocations (WLAs) for waters of the 
Great Lakes System.
    LaMP development for Lake Superior began as a component of the Bi-
National Program to Restore and Protect the Lake Superior Basin. Lake 
Superior has not experienced the intense development, urbanization and 
pollution characteristic of the lower Great Lakes and has remained 
relatively pristine. The Program recognizes the unique, relatively 
pristine nature of the Lake Superior ecosystem and the commitment of 
the Federal, State and Provincial governments to developing new and 
innovative approaches to pollution prevention and zero discharge of 
certain persistent, bioaccumulative toxic pollutants. The focus of the 
Lake Superior LaMP, therefore, is on using Lake Superior as a 
demonstration area for new and innovative approaches to pollution 
prevention and zero discharge.

II. Binational Program to Restore and Protect Lake Superior

    On September 30, 1991, the United States Environmental Protection 
Agency, Environment Canada, the States of Michigan, Minnesota and 
Wisconsin, and the Province of Ontario announced the ``Binational 
Program to Restore and Protect the Lake Superior Basin''. This program 
represents the response of the Federal, State and Provincial 
governments to the recommendation of the International Joint Commission 
that ``* * * [Lake Superior be designated] as a demonstration area 
where no point source discharge of any persistent toxic substance be 
permitted''.
    This Binational Program encompasses two major areas. The first is a 
zero discharge demonstration program devoted to the goal of achieving 
zero discharge or emission of nine designated persistent toxic 
substances. The second is a broader program of identifying beneficial 
use impairments, and restoring and protecting the Lake Superior Basin 
ecosystem. The ultimate goal of the Lake Superior Binational Program is 
to protect, and where necessary, restore the integrity of Lake 
Superior's ecosystem through pollution prevention, enhanced regulatory 
measures, and remedial programs.
    The goal of the Lake Superior zero discharge demonstration program 
is ``to achieve zero discharge and zero emission of certain designated 
persistent bioaccumulative toxic substances, which may degrade the 
ecosystem of the Lake Superior Basin''. This goal is to be pursued 
through actions in three key areas--waters of the Lake Superior Basin 
will be designated for special protection and antidegradation 
requirements, and reductions in existing loadings will be achieved 
through both voluntary pollution prevention actions and enhanced 
control and regulatory efforts.
    In the United States, the Binational Program commits the State 
Governments of Michigan, Minnesota and Wisconsin to designate 
appropriate areas of the Lake Superior Basin as Lake Superior 
Outstanding International Resource Waters (LS-OIRW), or as Lake 
Superior Outstanding National Resource Waters (LS-ONRW). Under the LS-
OIRW designation, increased discharges of designated persistent 
bioaccumulative toxic pollutants will not be allowed without an 
adequate antidegradation demonstration which includes application of 
best technology for process and treatment. Under the LS-ONRW 
designation, any new or increased discharges of designated persistent 
bioaccumulative pollutants from point sources will be prohibited. EPA 
included provisions for the LS-ONRW and LS-OIRW designations in the 
proposed Great Lakes Water Quality Guidance (58 FR 20803) on behalf of 
the Lake Superior States. EPA anticipates publishing the final Guidance 
in the Federal Register by March 13, 1995.
    In the United States, it is the goal of the Clean Water Act that 
the discharge of pollutants to the waters of the nation be eliminated. 
(Pub. L. 92-500, as amended by Pub. L. 100-4) Further, it is national 
policy that the discharge of toxic pollutants in toxic amounts be 
prohibited, and that programs be developed and implemented to meet the 
goals of the Act through the control of both point and nonpoint sources 
of pollution. Over the last twenty years, tremendous progress has been 
made in improving the water quality of the Great Lakes System, and 
encouraging continued progress towards zero discharge of pollutants to 
the waters of the Great Lakes System.
    To ensure such progress continues, the United States commits to 
improved point source and nonpoint source controls through upgraded 
technology based requirements and water quality standard requirements, 
implementation of best management practices, and application of 
technology based air emission standards to ensure achievement of water 
quality criteria, including air emission standards for Great Lakes 
pollutants of concern.
    Pollution prevention measures are the preferred approach to 
eliminate or further reduce persistent bioaccumulative toxic substances 
at their sources. In the United States, the Pollution Prevention Act of 
1990 declares as national policy that pollution prevention is the 
preferred approach to environmental protection (United States Public 
Law 101-508). When preventing pollution is not feasible, recycling in 
an environmentally safe manner is the next preferred option, followed 
by treatment. Disposal or other release into the environment should be 
the management option of last resort, and should only be done in an 
environmentally protective manner.
    A comprehensive multi-media pollution prevention strategy has been 
developed by EPA and Michigan, Minnesota and Wisconsin. The strategy 
focuses on the nine designated zero discharge pollutants and identifies 
sources and pollution prevention alternatives for reducing loadings 
from these sources. Implementation of the strategy encompasses 
technical assistance, education, special programs, legislative and 
regulatory recommendations, and financial incentives.
    EPA views LaMPs as dynamic, action-oriented processes encompassing 
a number of components. These include an evaluation of beneficial use 
impairments and pollutants contributing to those impairments; a summary 
of sources and loads of these critical pollutants; identification of 
ongoing prevention, control and remediation actions as well as 
additional efforts needed to reduce pollutant loads and restore 
beneficial uses; and monitoring activities to evaluate the 
effectiveness of program actions. This approach for developing and 
implementing LaMPs is an evolutionary and iterative process for 
identifying and reducing loadings of Critical Pollutants from all 
sources.
    While the focus of a LaMP is on toxic pollutants, the Federal, 
State and Provincial agencies participating in the LaMPs recognize that 
issues associated with beneficial use impairments, such as habitat 
quality and quantity, and endangered or threatened species, are 
significant factors in addressing the overall ecological health of the 
Great Lakes System. As the Lake Superior LaMP develops, participating 
Agencies will identify opportunities for addressing these issues in 
conjunction with toxic load reduction activities. In this manner the 
LaMP for Lake Superior will further the broader goal of the Binational 
Program of identifying beneficial use impairments, and restoring and 
protecting the Lake Superior Basin ecosystem.
    Certain elements of this broader program are already underway, 
including a Binational Habitat Project to identify and rank critical 
habitat sites for protection and restoration, and special designations 
establishing protected management areas such as parks, reserves, and 
wildlife refuges.

III. Management Process

    The development and implementation of LaMPs is an enormous 
undertaking in terms of the technical complexity of the issues, the 
geographic scope encompassed by the LaMP, and the extensive 
coordination required amongst Federal, Provincial, State, Tribal and 
local governments, and the public. EPA and the participating agencies 
believe LaMPs should be developed with full participation by all 
interested parties.
    The Binational Program management structure serves as the 
management framework for the Lake Superior LaMP. The Binational Program 
is directed by the Lake Superior Task Force, a steering committee 
comprised of senior managers of Federal, Provincial, State and Tribal 
agencies. The Task Force is responsible for: (1) Providing overall 
policy direction to the program, defining program priorities and 
ensuring program implementation through application of all relevant 
programmatic and statutory authorities; (2) convening technical work 
groups composed of Federal, State, Provincial and other representatives 
as necessary to develop recommendations for actions; (3) reviewing and 
approving the LaMP or specific elements of it, technical workgroup 
products, and recommendations; (4) ensuring public participation and 
review; and (5) securing resources to support LaMP development and 
implementation.
    The Lake Superior Workgroup (SWG), comprised of technical and 
scientific staff, reports to the Task Force and is responsible for 
program implementation.
    The Lake Superior Forum is a public participation group consisting 
of 22 U.S. and Canadian members from academia, industry, 
municipalities, environmental organizations and concerned citizens 
representative of basin stakeholders.
    Public participation in the development and implementation of the 
Binational Program is accomplished through three tiers of activity: (1) 
General public education through workshops, public presentations, and 
the distribution of fact sheets and other written materials, (2) public 
notices to provide the opportunity for broad public review of the LaMP 
and progress on implementation on an ongoing basis; and (3) the Lake 
Superior Forum. Representatives of the Forum are invited to: (1) 
Participate as observers in both Task Force and technical-level 
committee meetings; (2) develop recommendations for Task Force and 
Workgroup consideration; and, (3) comment on recommendations and 
documents of the Binational Program. The Forum does not substitute for 
the activities described in tiers 1 or 2. Forum members are encouraged 
to be representative of various constituencies within the Basin, and to 
provide the Task Force with their views and concerns on Binational 
Program activities.

IV. Lake Superior Lakewide Management Plan

    The proposed Lake Superior LaMP embodies a process for implementing 
an ecosystem-focussed approach to environmental protection. The process 
consists of the following steps:
    (1) Monitoring the environment and reviewing available data to 
determine existing ecological or use impairments and any potential 
threats to the Lake Superior System;
    (2) Identifying the pollutants associated with impairments or 
threats;
    (3) Identifying the sources of these pollutants;
    (4) Measuring or estimating the quantity of pollutants being 
released by those sources and the amount reaching the waters of the 
Lake Superior System (i.e., the ``loading'' of the pollutants);
    (5) Establishing load reduction targets that will allow for the 
restoration and protection of the ecological health of the Lake 
Superior ecosystem;
    (6) Developing and implementing specific strategies to reduce the 
levels of pollutant loadings and/or ambient levels in the waters of the 
Lake Superior System;
    (7) Monitoring reductions from pollutant sources;
    (8) Evaluating ecosystem response, through monitoring of ecosystem 
indicators, in order to measure progress towards restoration of 
beneficial uses and ecosystem health and integrity, and to detect 
emerging problems; and,
    (9) Revising the LaMP to reflect the results of load reduction 
actions, incorporate additional data on the status of beneficial use 
impairments and identify the next series of priority actions.
    The development and implementation of a Lakewide Management Plan is 
an iterative process, a series of actions leading to environmental 
improvements and protection and restoration of beneficial uses. EPA and 
the binational partners view the LaMP as a series of dynamic, 
interrelated actions, rather than a static document. As more 
information becomes available, additional load reduction activities 
will be initiated by the participating agencies. As the effectiveness 
of ongoing efforts are evaluated, EPA and the participating agencies 
will establish new priorities as appropriate. The Agency believes 
development and implementation of the LaMP will enhance the ability of 
participating agencies to respond to emerging environmental problems 
quickly and effectively. Activities underway through the LaMP are not 
necessarily sequential; activities specific to each step likely will be 
ongoing simultaneously.
    Acquisition of more complete information regarding the association 
between critical pollutants and beneficial uses, sources and loads of 
pollutants, and achievement of ecosystem objectives will be a long-term 
process. The binational partners intend to move forward by reducing 
pollutant loads while simultaneously improving their understanding of 
the relationships between beneficial use impairments and pollutant 
loadings and sources. This refinement will be realized through more 
comprehensive data management, research, and monitoring efforts.
    Finally, the LaMP will improve the environmental protection efforts 
of the participating agencies by:
     Providing a lakewide context for activities undertaken in 
support of the Great Lakes program in order to facilitate efforts 
focussed on the entire basin or on specific tributary subbasins;
     Coordinating Federal, Provincial, State, local, and tribal 
activities to avoid duplication of effort, ensure that ongoing 
activities are complimentary, and identify opportunities to add value 
to ongoing efforts;
     Communicating information among all levels of government 
and the public in order to keep the public informed of ongoing and 
proposed activities and provide a forum for public input and comment;
     Providing a vehicle for linking agency pollution control 
activities to environmental results; and
     Identifying and evaluating gaps in existing programs and 
authorities which represent impediments to complete restoration of Lake 
Superior, and making recommendations on how to fill those gaps.

V. Critical Pollutants

    Critical Pollutants are defined by Annex 2 of the Great Lakes Water 
Quality Agreement as substances that persist at levels that, singly or 
in synergistic or additive combination, are causing, or are likely to 
cause, impairment of beneficial uses despite past application of 
regulatory controls due to their: (1) Presence in open lake waters; (2) 
ability to cause or contribute to a failure to meet Agreement 
objectives through their recognized threat to human health and aquatic 
life; or (3) ability to bioaccumulate.
    As discussed above, the Lake Superior Binational Program has 
designated nine chemicals for zero discharge. The SWG proposes these 
nine pollutants be designated as Critical Pollutants in the Lake 
Superior LaMP: chlordane, DDT and metabolites, dieldrin, 
hexachlorobenzene, octachlorostyrene, PCBs, 2,3,7,8-TCDD, toxaphene and 
mercury.
    The SWG has evaluated pollutants which are causally linked to 
lakewide impairments of beneficial uses, exceedances of chemical 
criteria, standards or objectives, or impairments of ecosystem 
objectives. The SWG proposes these pollutants as candidate Critical 
Pollutants. These causal pollutants (candidate Critical Pollutants) 
are:

                                                                        
        Organics                  Metals                  Others        
                                                                        
alpha-BHC                 arsenic                 bark                  
heptachlor epoxide        cadmium                 BOD                   
PAH's                     chromium                fibre                 
furans & dioxins          copper                  phosphorous           
                          lead                    pulp mill effluent    
                          iron                                          
                          manganese                                     
                          nickel                                        
                          zinc                                          
                                                                        

    The Superior Workgroup will evaluate the list of causal pollutants 
for evidence of point or nonpoint discharges of these pollutants to the 
waters of the Lake Superior System. In addition, the causal pollutants 
will be evaluated on the basis of their potential to cause significant 
damage to the health of the Lake Superior ecosystem. This evaluation 
will form the basis for designating Critical Pollutants which currently 
impact Lake Superior.
    The Lake Superior Forum has developed a list of pollutants which 
the Forum believes should be subject to preventative measures in the 
basin. The Forum believes that identifying these substances as critical 
pollutants will enhance the level of protection afforded the Lake 
Superior ecosystem, and is consistent with the goals of the Binational 
Program. EPA puts forward these Forum proposals to further public 
discussion on this issue, and request comments on the scope and 
adequacy of the Forum proposal.
    The SWG proposes that Critical Pollutants will be targeted for: (1) 
Zero discharge; (2) lakewide load reductions; and/or, (3) preventative 
measures, based upon their characteristics, such as persistence, 
bioaccumulative potential, toxicity and potential for future 
introduction to the basin. Using such a categorization process will 
strengthen the ability of Federal, Provincial and State agencies to 
develop and apply appropriate environmental protection strategies.
    EPA finds merit with these proposals of the SWG and puts them forth 
in the United States in today's notice on behalf of the binational 
partners. EPA requests specific comments on the proposal to designate 
the substances listed above as Critical Pollutants for Lake Superior. 
EPA requests proposals for pollutants other than those listed above to 
be added to the Critical Pollutant list. EPA further requests any 
information on the ambient concentrations of a pollutant in the water 
or sediments of Lake Superior, or in the tissues of the aquatic life, 
wildlife, or humans that are dependent on Lake Superior for food or 
water, which suggests that a substance should be considered a critical 
pollutant for Lake Superior. In addition, EPA requests any additional 
information on any sources and loadings of these and any other 
substances that may currently cause, or have the potential to cause, 
impairments of beneficial uses of the Lake Superior ecosystem.

VI. Source Identification and Load Quantification

    Today's proposed Lake Superior LaMP focuses on the nine designated 
zero discharge pollutants which have been designated as Critical 
Pollutants. As of January 1, 1991, 43 major surface water dischargers 
to the waters of the Lake Superior System have been identified. 
Existing industrial sources include 27 facilities, including forest 
products manufacturers, mines and metals processing facilities, 
electrical generating stations, a wood preserving industry, an oil 
refinery, and a food processor. Sixteen municipal wastewater treatment 
facilities were evaluated. Of these 43 sources, available data indicate 
that 16 discharged detectable levels of TCDD, OCS, HCB, PCBs and 
mercury. The most commonly detected pollutant was mercury, identified 
in 14 of the 43 sources. Detailed descriptions for these 43 sources are 
included in Appendix 5 and detailed loadings estimates in Appendix 6. 
Available loadings and process information were used to assess each 
source against a proposed blueprint for zero discharge. The results of 
this assessment are included in Appendix 7. In only a few cases could 
loads be estimated by direct measurement of pollutant concentration 
multiplied by total flows.
    EPA requests comments on the accuracy and completeness of these 
source evaluations. EPA further requests any additional information on 
the discharges of critical pollutants, or other pollutants which may 
adversely affect beneficial uses, to the waters of Lake Superior System 
from these or any other point or nonpoint sources.
    EPA and the binational partners recognize that no direct method of 
measuring zero discharge exists due partly to the limits of analytical 
science as well as the lack of an authoritative definition of zero. 
Therefore, to assess the progress of the zero discharge demonstration 
program and the LaMP, today's proposed LaMP includes a framework, or 
blueprint, for assessing zero discharge. This blueprint utilizes an 
approach of assessing chemical use, production, or potential for 
release in contrast to solely utilizing analytical detection. Such a 
staged approach accommodates evaluation of sources within as well as 
outside of the Lake Superior basin which cause or have the potential to 
cause impairments of beneficial uses.
    EPA concurs with this proposed approach for Lake Superior, and puts 
forward this proposed blueprint for public review and comment in the 
United States on behalf of the binational partners. EPA requests 
comments on the suitability of such an approach in assessing progress 
towards zero discharge in Lake Superior, as well as other alternatives 
for assessing progress.

VII. Ecosystem Objectives and Indicators

    In Annex 1 of the Great Lakes Water Quality Agreement, the U.S. and 
Canadian governments, in consultation with State and Provincial 
governments, agreed to develop ecosystem objectives for the waters of 
the Great Lakes System, as the state of knowledge permits. In addition, 
the Agreement specifies the following objective for Lake Superior - 
``the Lake should be maintained as a balanced and stable oligotrophic 
ecosystem with lake trout as the top aquatic predator of a cold water 
community and the Pontoporeia hoyi as a key organism in the food 
chain.''
    EPA views ecosystem principles and objectives as an integral 
component of LaMPs consistent with the general principles of Annex 2 of 
the Agreement that LaMPs embody a systematic and comprehensive 
ecosystem approach to restoring and protecting beneficial uses. EPA 
intends to incorporate ecosystem principles and objectives, and 
ultimately, ecosystem indicators, into the Lake Superior LaMP. The 
public will be provided opportunities to participate in the development 
of ecosystem indicators for Lake Superior, including review and comment 
on proposed ecosystem indicators. When finalized and adopted into the 
Lake Superior LaMP, EPA believes ecosystem principles, objectives and 
indicators will serve to further the goals of the Binational Program as 
well as the broader goals of the Agency's Great Lakes program.
    The proposed Lake Superior ecosystem principles and objectives were 
drafted by representatives of Federal, State and Provincial agencies in 
consultation with the Lake Superior Forum. EPA puts forward the 
proposed Lake Superior ecosystem principles and objectives for public 
review and comment in the United States on behalf of the binational 
partners. Comments received from the public on todays proposal will be 
considered by the binational partners in finalizing and adopting Lake 
Superior ecosystem principles and objectives. EPA requests comments on 
all aspects of todays proposal, including: (1) A Vision for Lake 
Superior adopted by the Lake Superior Forum; (2) general objectives; 
(3) aquatic community objectives; (4) terrestrial wildlife objectives; 
(5) habitat objectives; (5) human health objectives; and, (6) 
objectives for sustainable development. In addition, EPA requests 
comments on the proposed framework for developing ecosystem indicators 
for Lake Superior.
    The Great Lakes Water Quality Guidance, when finalized, will 
establish water quality criteria and goals to protect aquatic life, 
wildlife, and human health in the Great Lakes Basin. The water quality 
criteria and values proposed in the Guidance apply to all the ambient 
United States waters of the Great Lakes System, regardless of the 
source of pollutants to those waters. In this manner, the proposed 
water quality criteria and values provide the basis for integrating 
actions carried out under the range of environmental programs available 
to both Federal, State and Tribal regulators to protect and restore the 
Great Lakes ecosystem. EPA intends to use the water quality criteria 
and values, when finalized, as indicators of the health of the Lake 
Superior ecosystem. EPA requests comments on this approach.

VIII. Management Strategies and Actions

    A wide range of actions are being undertaken by Federal, Provincial 
and State agencies through the Binational Program. These include 
specific actions intended to reduce pollutant loadings to the Lake 
Superior System, and further the goals of zero discharge. These 
include:
     Implementation of a comprehensive pollution prevention 
strategy for the nine designated zero discharge pollutants.
     Assessment and analysis of financial/economic tools and 
incentives to encourage virtual elimination and sustainable development 
throughout the Lake Superior Basin as mechanisms to achieve zero 
discharge.
     Basinwide educational programs to raise consumer 
consciousness regarding hazardous wastes and the impact of such wastes 
on the water quality.
     Load reductions through existing and expanded 
environmental programs at the Federal, Provincial and State levels.
     Development of specific procedures for LS-OIRW and LS-ONRW 
designations including candidate lists of waters.
     Investigation and remediation of contaminated sediments in 
targeted sites
     Public workshops and meetings throughout the Lake Superior 
Basin to discuss both the proposed LaMP and the Binational Program.
     Development of a comprehensive monitoring program designed 
to quantify loads and identify sources of critical pollutants on a 
priority basis.
    EPA Requests public comment on the scope, adequacy, and timing of 
the actions described in the proposed Lake Superior LaMP. EPA requests 
proposals or information from the public on local actions to reduce 
loads of toxic pollutants to the waters of the Lake Superior System, on 
any other action which may reduce loads of toxic pollutants to the 
waters of the Lake Superior System, support the zero discharge 
demonstration program, further public participation and involvement in 
the Binational Program, or in any other way serve to protect and 
restore the Lake Superior ecosystem.


    Dated: February 1, 1994.
Robert Springer,
Acting Regional Administrator.
[FR Doc. 94-3432 Filed 2-14-94; 8:45 am]
BILLING CODE 6560-50-P