Sheboygan River Area of Concern

Background 

The Sheboygan River Area of Concern (AoC) encompasses the lower Sheboygan River downstream from the Sheboygan Falls Dam, including the entire harbor and nearshore waters of Lake Michigan . The AoC serves as a sink for pollutants carried from three watersheds: the Sheboygan River, Mullet River and Onion River. Pollutants of concern, both conventional and toxic, have been identified as suspended solids, fecal coliform bacteria, phosphorus, nitrogen, polychlorinated biphenyls (PCBs), Polynuclear Aromatic Hydrocarbons (PAHs) and heavy metals. The Sheboygan River Basin is located in portions of five counties. Industrial, agricultural and residential areas line the rivers of the basin. Agriculture is the dominant land use in the area, totaling 67%. The Sheboygan, Onion and Mullet River Basins contain three cities, eleven villages and seven towns. The cities of Sheboygan and Sheboygan Falls and the Village of Kohler are all located within the AoC.

The Sheboygan River and Harbor Superfund Site includes the lower 14 miles of the river from the Sheboygan Falls Dam downstream to, and including, the Inner Harbor. For purposes of remediation, the U.S. EPA divided the river into three sections. The Upper River extends from the Sheboygan Falls Dam downstream four miles to the Waelderhaus Dam in Kohler. The Middle River extends seven miles from the Waelderhaus Dam to the former Chicago & Northwestern (C&NW) railroad bridge. The Lower River extends three miles from the C&NW Bridge to the Pennsylvania Avenue Bridge in Sheboygan. The Inner Harbor includes the section from the Pennsylvania Avenue Bridge to the river’s outlet to the Outer Harbor.

Sheboygan River priorities include remediation of contaminated sediments, nonpoint source pollution control, brownfield and waterfront restoration, and habitat protection and restoration.
 

Beneficial Use Impairments 

In 1985, the lower Sheboygan River and Harbor were designated an AoC because of water quality and habitat problems associated with the historical discharge of pollutants into the AoC and the potential adverse effect the pollutants could have on Lake Michigan. The high levels of nutrients, solids and toxics entering the river had caused a series of problems including nuisance algal blooms, fish consumption advisories and contaminated sediments. The pollutant discharges also were suspected of contributing to the degradation of wildlife, fish, benthos and plankton populations and the reduction in fish and wildlife habitat.

For further information and details on all of the BUIs, see a corresponding Sheboygan River Beneficial Use Impairments (PDF 63Kb 2 pages) document and the Remedial Action Plan (RAP) documents listed in the Significant RAP Milestones section below.

Delisting Targets 

The Wisconsin Department of Natural Resources (WDNR) and Sheboygan River Basin Partnership (formerly the Sheboygan River Basin Land and Waters Partners) are working together to develop a process to establish delisting targets. In 2004, SRBP members formed an AoC Committee to coordinate with local, State, and Federal agencies and other interested parties to implement the RAP. A goal of this committee is to develop and lead a citizen-based approach to delist the Sheboygan River.

RAP Development and Status

The WDNR and Sheboygan River Basin Partnership (SRBP) are working together to update the RAP. An inventory of projects completed within the basin is in progress. An analysis of the current situation, including any new information regarding the BUIs, is needed in order to determine what still needs to be done and to develop science-based delisting targets that can have wide community acceptance.

In 1994, a revised RAP was prepared by WDNR and other stakeholders which outlined activities targeted for implementation and progress toward development of a comprehensive strategy for restoring water quality, fisheries, recreational uses and other benefits of the Sheboygan River Basin. The 1994 RAP was published in October 1995 and distributed for review at 51 libraries statewide, including the Mead Public Library in Sheboygan and the Memorial Library in Sheboygan Falls. Three work groups (Water quality, Biota and Information and Education) were formed to recommend remedial actions for Stage Two RAP development.

A two-year cooperative effort of Wisconsin Department of Natural Resources (WDNR), other agencies, researchers and the citizens of the Sheboygan area resulted in the completion of a Sheboygan River and Harbor Stage One RAP in 1989. All of these groups worked together to identify management goals for the river and harbor for the year 2000 and specific management strategies to control existing sources of pollution, abate environmental contamination and restore beneficial uses. The RAP goals and objectives describe the "desired future state" of the Sheboygan River ecosystem. The Sheboygan County Water Quality Task Force served as the Citizens Advisory Committee (CAC) for Stage One development. The CAC included representatives from industry, government, fishing and conservation groups and others, and was instrumental in facilitating information exchange between environmental agencies and the public. An intergovernmental Technical Advisory Committee was utilized for review purposes.

Significant RAP Milestones  

• 2006: RAP Update in progress.
• 1998: Sheboygan River Basin Partnership  (formerly Sheboygan Land and Waters Partners) formed.
• 1995: Sheboygan River Remedial Action Plan  (PDF 933KB 127pp) progress report with 29 Stage II recommendations completed.
• 1989: Sheboygan River Remedial Action Plan Stage I report completed.

RAP Implementation

Recent Progress and Achievements

• In 2006, Sheboygan County adopted an erosion control and stormwater management ordinance.
• In 2005, WDNR and the Sheboygan County Land and Water Conservation Department worked with a local farmer to relocate a barnyard and grazing area along the banks of Otter Creek. Otter Creek is a tributary to the Sheboygan River and is listed as a 303d impaired waterway primarily due to bacteria contamination. Grant dollars for the state portion came from Wisconsin's Environmental Damages Compensation Fund. The county and the landowner also shared in the cost of the project.
• In 2004, Pollution Risk Services (PRS) completed Phase I of the Sheboygan Superfund Site cleanup of the Upper River. All PCB hot spots on the upland portion of the riverbank at the former Tecumseh plant site have been remediated and a trench has been dug to intercept and test groundwater exiting the site.
• The Sheboygan County Planning and Resources Department and Bay-Lake Regional Planning Commission completed the Sheboygan County Natural Areas and Critical Resources Plan in 2004. This plan provides general background information on the issues and opportunities related to agricultural, natural and cultural resources and proposes future programs and policies for the county to pursue. These programs and policies were developed through a thorough process involving the public and various stakeholders in the county.
• The Sheboygan County Land and Water Conservation Department worked with WDNR and others on an update to the Sheboygan County Land and Water Resources Management Plan in 2004. This plan is required by the State of Wisconsin for the use of funds for the implementation of agricultural best management practices. The plan includes some joint strategies for implementing the state nonpoint pollution regulations and establishes priorities for agricultural runoff practices near impaired waters and outstanding or exceptional waters in the county.
• In 2004, municipal WPDES stormwater permits were issued for the Village of Kohler, Town of Sheboygan, and Town of Wilson. All of these communities are taking actions to control urban runoff in accordance with their permits.
• WDNR staff worked closely with the City of Sheboygan and their consultants on the redevelopment of the former C. Reiss Coal Peninsula on Lake Michigan and the Sheboygan River. Elements of the project, which was completed in 2004, included permitting for seawall reconstruction on the Sheboygan River, remedial action plan for site cleanup, site grading permit, review of Lake Michigan revetment plans and a dune re-creation project. The city installed engineered stormwater devices to treat runoff from the newly developed areas on the peninsula. The city received a grant through WDNR for a trail and fish cleaning station.
• In 2004, WDNR staff completed two Onion River trout stream restoration projects. They also completed trout population surveys at six locations on the Onion River and its tributaries. Those surveys indicate that a newly instituted fishing regulation change on the Onion River has protected many fish from harvest. The hope is that more adult trout will be available to boost natural reproduction of trout in the system.
• WDNR staff completed a small wetland restoration in the Onion River watershed in 2004.
• A consent decree was signed by U.S. EPA, U.S. DOJ and Tecumseh Products Company in 2003. This agreement requires Tecumseh to clean up the upper portion of the Sheboygan River Superfund site including ground water at the Tecumseh facility, floodplain soil, and river sediment.
• In 2003, WDNR staff conducted a stream monitoring workshop for the public that was concentrated on a small waterway named Willow Creek that is tributary to the Sheboygan River. The workshop included information on monitoring streams for habitat, water quality and biological community. This small stream supports a cool/cold water fishery including evidence of spawning by brook trout and Coho salmon from Lake Michigan. The watershed is located in an area that will likely experience rapid urban development within the next decade.
• A drawdown of the Sheboygan Marsh occurred in 2002. Sheboygan County and WDNR worked together to collect data during the drawdown including high quality color air photography before and after the drawdown. WDNR also worked with local conservation groups to establish a carp trap in the marsh.
• The Broughton Sheboygan Marsh Strategic Management Plan 2001 was completed in 2001 and approved by the Sheboygan County Resources Committee in February 2002. This plan outlines mutually agreed upon responsibilities between the different units of government responsible for resource management throughout the marsh. A broad public process with representatives from local and county government, non-profit organizations, the WDNR and citizens at large were responsible for completing the plan.

Current Projects and Outlook

• In 2006, Pollution Risk Services (PRS) will complete Phase II of the Sheboygan Superfund Site clean up of the Upper River, including the removal, dewatering, and disposal of 35,000 cubic yards of PCB-contaminated sediment and armored materials.
• With support from the Great Lakes National Program Office (GLNPO), a research team led by the University of Illinois and the Northeast-Midwest Institute (NEMW) is collecting property transactions data and household information for a study of the economic benefits of remediation of the AoC. This study provides an opportunity to inform the public and galvanize community support for delisting the AoC.
• The soil cleanup phase of the Camp Marina Manufactured Gas Plant site along the Sheboygan River in the City of Sheboygan was implemented in 2001. Wisconsin Public Service Corporation and their consultant, Natural Resources Technology, continue to work with WDNR to develop the plan for the river cleanup phase.
• Since the removal of the Franklin Dam on the Sheboygan River in 2000, WDNR staff have been working with community members regarding the next dam downstream in Johnsonville. It was discovered that this dam did not have an established owner. Many local citizens are concerned about dam removal because they believe it prevents ice jams from forming downstream of their town.
• The Sheboygan County Land and Water Conservation Department continues to implement their stream buffer program for water quality improvement. Since the project began in 2000, the Land and Water Conservation Department has contracted with 53 landowners and installed 95 acres of buffer strips that reduce the amount of sediment and agricultural runoff from entering streams.
• The Sheboygan River Basin Partnership (SRBP) has embarked with WDNR on an information gathering effort for Willow Creek. Willow Creek is a small tributary to the Sheboygan River that has its confluence in the AoC. The creek receives annual runs of trout and salmon from Lake Michigan. Recent fish surveys discovered the presence of young brook trout and salmon, which seemed to indicate at least some amount of natural reproduction. The stream has some remnant habitat areas that appear suitable for spawning. It is about five miles long and a fairly significant amount of this small watershed will likely be developed in the next decade. It appears that stream improvements are possible in some of the degraded sections. SRBP recently applied for a grant from the U.S. Fish & Wildlife Service. In addition, the partnership has started an information and education effort and has been meeting with landowners and local municipal officials.

RAP-Related Publications  

Sheboygan River Resources and Reference Materials (PDF 21Kb 5 pages) - an alphabetized list of documents relating to the Sheboygan River.

• 2005: Estimating Sources of PAHs in Sediments of the Sheboygan River, Wisconsin, by a Chemical Mass Balance Model, (JGLR).
• 2005: PCB Congeners and Dechlorination in Sediments of Upper Sheboygan River, Wisconsin, (JGLR).
• 2005: Evidence of Fine-Grained Sediment Transport and Deposition in Sheboygan River, Wisconsin, Based on Sediment Core Chemical Tracer Profiles, (Water Resources Research).
• 2000: Sheboygan River Food Chain and Sediment Contaminant Assessment
• 1998: Sheboygan River and Harbor Aquatic Ecological Risk Assessment (PDF 696Kb 142 page)  
• 1997: Contaminant Exposure, Biochemical and Histopathological Biomarkers in White Suckers from Contaminated and Reference Sites in the Sheboygan River, (JGLR).
• 1996: PCB Accumulation by Salmonine Smolts and Adults in Lake Michigan and its Tributaries and its Effect on Stocking Policies, (JGLR).
• 1995: PCB Accumulation by Salmonid Smolts and Adults and its Effects on Stocking Policies, WDNR Southeast District Report.

More information on these publications can be obtained by contacting the individuals listed in the Sheboygan River AoC Contacts section below.

Community/Local RAP Group Involvement 

The Sheboygan River Basin Partnership (SRBP) is an alliance of volunteers from conservation and environmental groups; local businesses; local, state and federal agency staff; and individuals working together on natural resource issues in the Sheboygan River Basin. The SRBP Board of Directors and Advisors is comprised of stakeholders representing:

• University of Wisconsin-Extension
• Glacierland RC&D
• Wisconsin Department of Natural Resources (WDNR)
• Bay-Lake Regional Planning Commission
• Natural Resources Conservation Service
• Earth Tech, Inc.
• Sheboygan County Conservation Association (3000 members/33 local conservation organizations)
• Sheboygan County Planning & Resources Department
• Ozaukee County Land Management & Planning
• Sheboygan County Lakes Association
• Miller Engineers & Scientists
• International Great Lakes Coalition
• Crystal Lake Sportsman's Club

Partners and Stakeholders

• Great Lakes Commission 
• International Joint Commission 
• Sheboygan River Basin Partnership 
• U.S. Environmental Protection Agency
• U.S. EPA - Great Lakes National Program Office
• Wisconsin Department of Natural Resources

Sheboygan River AoC Contacts

U.S. EPA RAP Liaison:
John Perrecone, RAP Coordinator
U.S. EPA - Region 5
77 W. Jackson Boulevard (G-17J)
Chicago, IL 60604
Tel:  (312) 353-1149
Fax: (312) 353-2018
Email: perrecone.john@epa.gov

State RAP Contact:
Victor C. Pappas
Sheboygan River Basin Supervisor
Wisconsin Department of Natural Resources
1155 Pilgrim Road
Plymouth, WI 53073
Tel:  (920) 892-8756, ext. 3012
Fax: (920) 892-6638
Email: victor.pappas@dnr.state.wi.us

Local RAP Contact:
Jon Gumtow
Sheboygan River AoC Committee
Natural Resources Consulting, Inc.
675 Wolf Road
P.O. Box 304
Random Lake, WI 53075-0304
Tel:  (920) 994-9703
Email: jgumtow@nrc-inc.net