Introduction

South Carolina is certainly blessed with many resources, from its piedmont region to its coastal plains, which attract many new residents and visitors to the state each year. It is currently one of the fastest growing states in the country having a population of 3.9 million residents; growth projections indicate that at least one million new residents are expected to move to the state within the next 20 years.  Taking into consideration the cumulative impact of its growing residential and tourist populations, one can only imagine the pressures placed on South Carolina’s natural resources.  Local decision makers are at the forefront of having to ensure the sustainability of the many cultural and natural resources that make South Carolina unique.

Growth in South Carolina is seemingly inevitable. The issue is not whether or not growth and development will continue, but rather, how we will permit it to occur and affect us. As communities in South Carolina become more populated, there are increasing pressures to develop previously undisturbed areas. Every day, local elected and appointed officials are making critical decisions pertinent to land use planning and natural resources. These community leaders face considerable challenges when interpreting how activities on the local landscape impact the water quality of nearby streams, lakes, rivers, and estuaries. The South Carolina Nonpoint Education for Municipal Officials (SC NEMO) program, adapted from a highly successful program developed by the Connecticut Cooperative Extension Service in partnership with the Department of Natural Resource Management and Engineering and the Connecticut Sea Grant Program, was introduced to local decision makers in 1999 as an educational means to address these concerns.

This article provides a synopsis of the SC NEMO program, highlighting its purpose and accomplishments.  In summary, the activities under this program have met the goal of educating local officials, but not without considerable difficulties.  This article may serve as guidance to other organizations working in a similar capacity, which may help them overcome many of the obstacles encountered throughout the duration of this program.

Nonpoint Source Pollution:  Why It’s Important

The United States Environmental Protection Agency (EPA) recognizes that nonpoint source pollution (NPS), also referred to as polluted runoff, plays a major role in the degradation of our nation’s water quality.  In fact, EPA considers NPS to be the most significant source of water quality problems in the United States (Devins, 2002, p. 5).  According to the EPA, over one-third of the nation’s waters that have been assessed by states are still impaired, and nonpoint sources of water pollution are the primary reason (GAO, 1999, February, p. 18).  NPS is a major problem in areas experiencing urbanization, and in particular those areas experiencing urban sprawl.

There are a number of pollutants found in polluted runoff:  pathogens, nutrients, sediment, toxic contaminants, and debris.  These pollutants accumulate on hard surfaces such as roads, sidewalks, and parking lots. During rain events, these pollutants are picked up by the wash water and deposited in nearby lakes, streams, rivers, and estuaries. In urban environments these pollutants are usually found in higher concentrations due to increased amounts of impervious surfaces. An impervious surface is any surface that does not allow water to be absorbed into the ground. The primary concern is that impervious surfaces provide an area for pollutants to accumulate, and subsequently contribute to degrading the quality of our water resources. Studies have shown that there is a strong relationship between polluted runoff and impervious cover, and specifically have found that water quality generally begins to suffer or degrade once impervious cover reaches 10% within a watershed (Schueler, 2000).

Thus, there is a need to educate our communities, and in particular our decision makers, about what nonpoint source pollution is, and how to deal with it.  The SC NEMO program was designed to do just this.  It is based on the perspective that since growth is going to occur, there is consequently a high probability that the quality of our water resources may be compromised.  But through innovative land use planning and the use of best management practices, it is possible to sustain cogently a healthy environment, and a healthy place for people to live.

The South Carolina Program

The Connecticut NEMO program has been instrumental in the organization and delivery of all aspects of the South Carolina effort.  Numerous variations of the NEMO program are being implemented in states across the country.  In every instance, the program is a collaborative effort utilizing state, local and private sector resources.   

SC NEMO is a multi-year educational program that provides information to help local decision makers understand the impacts of NPS pollution on water quality, the links between those impacts and land use, and some innovative ways to manage for those impacts.  The program has been developed through a series of EPA Section 319 grants administered by the South Carolina Department of Health and Environmental Control (SC DHEC) and collaborative partnerships among the South Carolina Sea Grant Extension Program, the Clemson University Extension Service (CES), the University of South Carolina’s Institute for Public Service and Policy Research (IPSPR), the University of South Carolina’s Earth Science and Resources Institute (ESRI), the Berkeley-Charleston-Dorchester Council of Governments, the SC DHEC Office of Ocean and Coastal Resource Management, and the Waccamaw Regional Council of Governments. 

The SC NEMO program was developed and implemented based on a simple goal: “To educate elected and appointed local officials about the impacts of land use on water quality and about options available to them for addressing those issues.”  Local officials, including councils, planning commissions, planning staff, and many others play a significant role in the direction taken by a town or county in managing growth and development.  Since land use decisions are typically made at the local level, the NEMO prediction was that with the proper tools and information, these local officials could collectively play a significant role in reducing the degradation of water quality by making knowledgeable decisions regarding land use.  The NEMO program addressed watersheds, but utilized counties as logistical areas of focus (Figure 1).

 Figure 1. Map of targeted watersheds.

The core presentation of SC NEMO is divided into three sections:  mapping technologies, the three-tiered strategy, and technical assistance. First, maps are created illustrating the topography and drainage systems of an area that are used to emphasize the water cycle, the watershed concept and the need for watershed management. Land cover/land use data are interspersed with the topographic and drainage features to show local officials the current land use patterns in their region and the common polluted runoff problems associated with each major type of land use.  Existing land use in critical watersheds is then compared with “build-out” scenarios based on zoning regulations.  The emphasis is on potential increases in the amount of impervious surface, which have been demonstrated in scientific studies to be a key determinant of water quality in receiving water bodies.  This relationship can be used as a simple and unifying principle that town officials can reference in the course of their day-to-day land use decisions.

The three-tiered strategy is a means for simplifying options that are available for managing polluted runoff. The three tiers include natural resource based planning, innovative site design, and best management practices.  Local ordinances and development policies are reviewed in comparison to these strategies. This process is exceptionally useful in helping local officials gauge current policies and determine where gaps exist.

At this point, the technical assistance component of the SC NEMO program becomes imperative for ensuring that alternative policies are being considered and implemented.  For example, after viewing the SC NEMO presentation Anderson County officials requested additional presentations, and requested a review of its development standards.  This resulted in key modifications of local policies including impervious surface ratios, open space requirements, and the use of alternative permeable pavements.   

                                     Figure 2. SC NEMO Presentation in Laurens County.

This only represents one of the many successes of the SC NEMO program.  However, with successes, come a number of challenges.  The following section highlights these successes and challenges.  

Outcomes of the SC NEMO Program

Overall the SC NEMO program has been successful in meeting its goal of educating local decision makers about the relationship between land use and water quality, and the options available for managing nonpoint source pollution.  Over the past five years, the SC NEMO program has been implemented in over 27 counties within eight watersheds, involving more than 500 local officials.  In addition, the SC NEMO project partners have accommodated numerous requests for presentations from nonprofit and citizen organizations and other local agencies. To measure and document how well the program was received, quizzes and evaluations were distributed to participants.  Follow-up efforts were made to document changes in policy that reflect the strategies discussed at the presentation. 

Baseline quizzes were given to participants at the beginning of each workshop to evaluate each group’s knowledge concerning nonpoint source pollution. The quiz results were compiled and analyzed for each workshop. Overall the participants performed well on the baseline quizzes; however, there were certain topics that provided clear evidence of the need for nonpoint source pollution education.  One question pertaining to the participants’ knowledge of where polluted runoff flows yielded a correct response rate of 77%.

Figure 3. Response result regarding location of stormwater flow.

However, nearly one quarter (23%) incorrectly believed that stormwater went to a treatment facility, infiltrated into the groundwater, or entered a large underground reservoir (Figure 3).  A 2000 study commissioned by the SC DHEC entitled “Public Perceptions And Concern About Runoff Pollution” found that a majority of respondents did not know that polluted runoff is deposited directly into nearby waterways; rather, they thought that runoff was routed through a wastewater treatment facility or they simply did not know.  The important point is that many elected and appointed officials have a fundamental misunderstanding of basic stormwater principles.  These and other quiz results confirmed the need for educational programs of this nature.

Following each presentation and workshop, program evaluations were distributed to participants in order to measure the immediate level of the program’s success.  The program evaluation was designed in consultation with the NOAA Coastal Services Center and the National NEMO Network staff in Connecticut.  The objective was to determine whether or not information was retained by participants and the degree to which it was being used in their decision-making processes.   Figure 4 indicates that 97% of attendees rated the overall NEMO presentation as “very good” or “good.”

Figure 4.  Participant response to SC NEMO presentation.

Further, Figure 5 shows that 98% of the respondents agreed that the educational and strategic information provided during the NEMO presentation was “very useful” or “somewhat useful.”  These results indicate that the SC NEMO program was effective in meeting its educational goal.

Figure 5.  Participant response to useful of SC NEMO program.

Perhaps the most important question asked was, “Would you use the information presented today in your decision-making processes?” This question was designed to determine the level to which the individual community leaders, who participated in the NEMO program, would use the information and strategies presented to them.  Figure 6 shows that respondents overwhelmingly indicated—83%—that they would consider community planning, site design, and use of best management practices (BMPs) when they made land use decisions. 

Figure 6.  Participant response to decision-making influence of SC NEMO program.

Furthermore, the results illustrated in Figure 7 reaffirm the usefulness of the SC NEMO program in influencing decision-making, as a large percentage of participants believe that this knowledge may eventually lead to land use changes in their respective jurisdictions. 

Figure 7 .  Participant response to the effectiveness of the SC NEMO program in influencing local decision-Making.

Respondents were also asked whether they believed the SC NEMO program would be beneficial to other members of their communities.  Eighty-six percent indicated they did think such programming would be beneficial in their towns or counties.  However, the most positive reinforcement was shown by the results of the question, “Would you recommend SC NEMO educational workshops to other municipalities and towns?” Ninety-eight percent of those surveyed indicated that they would recommend SC NEMO to others (see Figure 8).  The SC NEMO project partners were very pleased with this particular result.

Figure 8.  Participant response to SC NEMO program recommendation.

As part of the follow-up effort, SC NEMO project partners found that delivery of the program did lead to local policy changes that improved how the county or municipality protected its water resources.  As a direct result of the program, the City of Conway adopted a new zoning ordinance designed to help protect water quality in and around stormwater retention ponds. The new ordinance requires newly constructed on-site retention ponds to utilize native wetland vegetation around their perimeter to help reduce pollutants in stormwater.

Anderson County officials invited the SC NEMO project partners to conduct a follow-up training session based on the SC NEMO program, tailored to address the issues facing Anderson County with regard to water quality, stormwater management, and costs of uncontrolled growth.  The workshop was held as part of a special planning meeting for all members of the Anderson County Council and the Planning Commission.  The elected and appointed officials were meeting to review and vote on adopting new land use development regulations for the county following the NEMO presentations.  Slide show presentations given by NEMO Team members, expanded on the three-tiered strategy of natural resource-based planning, better site design principles, and implementation of stormwater BMPs.  As a result, Anderson County Council established new parking lot standards based on the NEMO principles that were incorporated into its Land Use and Development Standards Ordinance to reduce stomwater runoff.

Additional Outcomes

In 2002, the SC NEMO Web site (www.scseagrant.org/scnemo.htm) was completed and made accessible to the public. The SC NEMO Web site contains a wealth of information representing all targeted watersheds. Information found on the site includes watershed presentations, NEMO Fact Sheets, GIS maps illustrating land cover and water quality impairments, and specific project information on project partners, advisory committees, and workshops. In the spring of 2003, the SC NEMO Web site was awarded the AT&T Communications 1^st Place Award for 2003 from Clemson University. The site has maintained an average of 123 hits per month since its inception. The most important reason for its existence, however, is to provide timely and important information to South Carolina citizens.

To provide support to the SC NEMO program beyond the original grant-funding period, the S.C., the Coastal Community Initiative grant program was initiated by the S.C. Sea Grant Consortium. Proposals were solicited from coastal municipalities and counties to participate in an educational program aimed at assisting communities in the development and implementation of land management policies and practices to reduce polluted stormwater runoff, protect local natural resources, and encourage sustainable development. In 2003, the Town of Edisto Beach in Colleton County and the Town of Bluffton in Beaufort County were the first applicants chosen to each receive a grant award of $2,500. As a provision of the grant, the S.C. Sea Grant Consortium staff provided water quality educational and technical assistance training to the local officials, and provided input and recommendations on best management practices for reducing polluted runoff. These recommendations included information on the newest types of pervious and semi-pervious surfaces and how best to address the issues of erosion controls, subdivision regulations, maintenance of roads and storm drains, open space plans and buffer requirements.

The Town of Edisto Beach incorporated these recommendations in sections of its comprehensive plan addressing new development regulations and water quality recommendations.Since the adoption of the comprehensive plan revisions, the Town of Edisto Beach has adopted some ordinance changes that encourage on-site treatment of polluted runoff with landscaping and buffer requirements and the reduction of impervious surfaces through the use of limitations on lot size and dwelling size. They are in the process of completing an area-wide stormwater management plan and developing further code recommendations for zoning changes to further control runoff.

Faced with overwhelming development pressures, the Town of Bluffton used the grant funding to research and develop a critical resources map and natural resource protection ordinances for wetlands, floodplains, trees, wildlife habitat, and stormwater.

Future of the SC NEMO Program

The scope of the SC NEMO program has been immense.  EPA Section 319 grant money was instrumental in the establishment and implementation of the SC NEMO program throughout the state. The program began with a pilot effort in the Waccamaw watershed and merged with additional projects throughout South Carolina, including those undertaken in the Catawba, Pee Dee, Saluda, Seneca, and Coastal watersheds. To provide long-term stability to the SC NEMO program, additional funds have been leveraged from the U.S. Department of Agriculture and the National Oceanic and Atmospheric Administration. The SC NEMO project partners are confident that their efforts will continue in some capacity beyond the grant’s conclusion.

The SC NEMO project partners gained invaluable experience and new knowledge with the development and implementation of the program in each watershed.  Looking back over the course of the program, several issues surfaced for consideration.  First, where possible, time and other resources should be spent exposing the target audience to components of the program before the formal workshops are delivered. In watersheds where program briefings were delivered at various planning commission and council meetings prior to the formal SC NEMO workshop presentations, workshop participation increased.  Similarly, when the project partners had an opportunity to follow up directly with audience members, the messages could further take root.  Unfortunately, it was not possible to maintain connections with each of the audience members.  To increase the program’s effectiveness, a team of individuals or, at the very least a designated SC NEMO coordinator, should be employed to work full-time on the SC NEMO program to address adequately the demand for resources.

The biggest challenge in the future will be to continue to generate interest from elected and appointed officials.  Our evaluation and survey results illustrate an extraordinary level of education and approval.  Despite these numbers, the most difficult challenge has been to ensure a high percentage of target audience participation in the NEMO programs.  Based on the comments made by the participants, we may also want to expand the scope of the target audience to include private sector professionals, such as developers and realtor associations, to improve the effectiveness of the program.

At this time, there is uncertainty surrounding the SC NEMO program’s future.  Facing limited resource contributions (in terms of time, personnel and funding), another recommendation is to convene an advisory group to provide some direction for future efforts.  Nevertheless, NEMO presentations and materials continue to be requested frequently, which suggests that a program of this nature, even with some modifications, would prove to be valuable to future audiences.

References

Arnold, C. and Gibbons, J. (1999). NEMO fact sheet series. Storrs, CT: University of Connecticut Cooperative Extension Service.

DeSario, J., Faerman, S., and Slack, J. (1994). Local government information and training needs in the 21^st century. Westport, CT: Quorum Books.

Devins, C. (2002). “A common thread.” Tributaries: The Membership Magazine of the South Carolina Aquarium, 9:4-6.

Schueler, T. (2000). “The importance of imperviousness,” in The practice of watershed protection, edited by Schueler, T. and Holland, H. Ellicott City, MD: Center for Watershed Protection.

Slayter, P. and Tyer, C. (2000). Local officials guide to comprehensive planning. Columbia, SC: Center for Governance, Institute of Public Affairs, University of South Carolina.

Streib, G. (1992). “Professional skill and support for democratic principles: The case of local government department heads in Northern Illinois.” Administration & Society. 24:19-40.

University of South Carolina Institute for Public Service and Policy Research.  (2000). “Public perceptions and concern about runoff pollution.”  Summary findings commissioned by the S.C. Department of Health and Environmental Control.

U.S. General Accounting Office. (1999, February).  “Water quality: Federal role in addressing – and contributing to - nonpoint source pollution.” Washington, DC: Government Printing Office, GAO/RCED-99-45.

U.S. General Accounting Office. (1999, April). “Community development:  Extent of ‘urban sprawl’ is unclear.” Washington, DC: Government Printing Office, GAO/RCED-99-87.

About the Authors

April L. Turner, BA, MPR & TM

Heather Landry, BS, MS

April L. Turner is the Coastal Community specialist for the S.C. Sea Grant Extension Program. Ms. Turner is responsible for providing outreach and education programs related to coastal land use planning and development to the public.  She earned her Bachelor of Arts from the University of Colorado and Master of Parks, Recreation, and Tourism Management from Clemson University. She can be reached at (843) 727-2078 or by email at april.turner@scseagrant.org.

Heather Landry is the director of Friends of the Rivers at the LowCountry Institute in Beaufort, South Carolina.  She was the former project manager for the SC NEMO program at the University of South Carolina Institute for Public Service and Policy Research.  Ms. Landry earned both her Bachelor of Science and Master of Science from the University of South Carolina.