HomeMy WebLinkAbout6 - Final recommendation on accepting the Water Quality Strategic Plan
CITYOF BOULDER
WATER RESOURCES ADVISORY BOARD
AGENDA ITEM
MEETING DATE: April 20, 2009
AGENDA TITLE: Final Recommendation on accepting the Water Quality Strategic
Plan
PRESENTERS: Ned Williams, Director of Public Works for Utilities
Bret Linenfelser, Water Quality Coordinator
Donna Scott, Stormwater Quality Specialist
EXECUTIVE SUMMARY:
A Water Quality Strategic Plan (WQSP) has been developed by city of Boulder (City) Utilities
Division staff in coordination with the City Planning Department. The purpose of the WQSP is
to define the City's goals for protecting water quality, develop strategies to achieve these goals
and planning for future regulations. The WQSP will be implemented by the Water Quality and
Environmental Services (WQES) Group, within the Utilities Division. This memo provides an
overview of the final WQSP, responds to comments received from WRAB members during the
meeting on January 12, 2009 and requests that WRAB accept the WQSP.
COMMUNITY SUSTAINABILITY ASSESSMENTS AND IMPACTS:
Economic: Implementation of the WQSP includes updating relevant City master plans and City
policies to incorporate water quality goals outlined in the plan to protect environmental and
public health. It is unknown at this time what impact this may have on the business community.
Environmental: The WQSP outlines existing City water quality programs and outlines analysis
to incorporate water quality goals into other City planning and policy documents for long-term
water quality protection and enhancement. These efforts should offer environmental benefits
from improved water quality. The WQSP also supports the intent of the Boulder Valley
Comprehensive Plan and its current recommendation to conduct "water quality master planning".
Social: The WQSP offers social benefits to all customers and the community through improved
water quality and protection of public and environmental health, which provide improved quality
of life.
OTHER IMPACTS:
Fiscal: The WQSP was evaluated based on three funding levels - Fiscally Constrained, Action,
and Vision.
AGENDA ITEM # 6 PAGE 1
The most significant challenge the WQES Group faces in implementing the WQSP is
anticipating and preparing for new water quality regulations. The WQSP identifies the funding
gap between the Fiscally Constrained Plan and the Action Plan. The Action Plan investment
program would include a $50,000 one-time budget request, and an adjustment to base of
$57,000. The Action Plan also identifies an additional 0.5 full-time equivalent (FTE) staff
member
OTHER BOARD AND COMMISSION FEEDBACK:
The draft WASP was provided to WRAB at the January 12, 2009 meeting. WRAB members
provided feedback, and generally approved of the approach, water quality goals, and
recommendations. Some comments and questions were received from "AB members and
have been addressed in the revised, current version of the WQSP (see Attachment A).
PUBLIC FEEDBACK:
The January 12, 2009 WRAB meeting was a public meeting and no comments were received
from the public.
STAFF RECOMMENDATION:
Staff requests that IATRAB accept the WQSP.
ANALYSIS:
Purpose of the Water Quality Strategic Plan
The WQSP is the first comprehensive planning effort to address water quality policies and
priorities for the City. The purpose of the WQSP is to develop clear and concise water quality
goals, develop strategies and performance measures to achieve these goals and provide a process
to address current and future water quality challenges.
The WQSP is an on-going plan with a five-year update. The objective of the plan is to:
• Clearly defining the City's water quality goals
• Coordinating water quality-related planning and program services
• Creating a way to assess success in meeting water quality goals
• Providing a framework to effectively manage water quality programs
• Anticipating and planning for new and increasingly complex water quality regulations
and issues
The WQSP supports many of the principles and policies of the Boulder Valley Comprehensive
Plan (BVCP). This strategic plan is designed to fit within the broader framework of the BVCP,
which provides the overall policy direction for planning decisions within the Boulder Valley.
The BVCP also outlines the city's community-wide goals and provides a general statement on
the community's desires for development and preservation in the Boulder Valley, including
protection of water resources.
AGENDA ITEM # 6 PAGE 2
Water Quality Goals
Water quality goals were developed using an inventory of existing water quality goal statements
found in the City's master plans, policies, and regulations, starting with the BVCP. From this
exercise, five goal statements were developed and include:
WATER QUALITY GOALS
1. Provide safe and high quality drinking water.
2. Manage pollutants from wastewater and other point-sources.
3. Manage pollutants from stormwater and other non-point sources.
4. Protect, preserve and restore natural water systems.
5. Conserve water resources.
Meeting these five water quality goals will provide water quality protection, which means clean
water to drink, clean streams and lakes to swim and recreate in, and healthy waterways that
support fish and other wildlife.
Recommendations
The recommendations developed for the WQSP are based primarily on the objective of adopting
citywide water quality goals, and integrating these goals into planning and policy instruments. In
addition, the recommendations address strategies to meet new or proposed federal and state
water quality regulations. The recommendations include:
Recommendation 1: Evaluate and update policies in the Boulder Valley Comprehensive
Plan to incorporate water quality goals. WQES staff will review and recommend updates to
the BVCP to ensure incorporation of water quality goals. The BVCP is scheduled to be updated
in 2010.
Recommendation 2: Perform analyses on city plans, policies and projects to identify gaps in
meeting water quality goals. WQES staff will review relevant plans, policies, and projects,
such as master plans, design and construction standards, and the Boulder Revised Code to: 1)
ensure that the city complies with all state and federal laws and regulations on water quality and
environmental protections; and, 2) meet water quality goals.
Recommendation 3: Develop annual work plans and water quality reports. Annual work
plans and reports will be developed for each of the seven WQES Group programs. These
programs include: Stormwater Quality; Water Quality Education; Water Conservation; Industrial
Pretreatment; Drinking Water Quality; Water Quality Planning; and, Laboratory Services. Staff
will use the work plans to direct program activities specific to the WQSP goals.
Recommendation 4: Prepare for future water quality regulations. WQES staff will prepare
for future water quality regulations, ensure regulatory compliance, and incorporate capital
improvement requirements needed to meet regulations in the City's budget planning process.
AGENDA ITEM # 6 PAGE 3
Investment Program
The WQSP is an on-going plan with five-year updates that will be implemented primarily by the
WQES Group. The investment program is based on annual operating budgets for the WQES
Group programs and does not include capital improvement projects.
The most significant challenge the WQES Group faces is anticipating and preparing for new
water quality regulations. The WQSP identifies the funding gap between the Fiscally
Constrained Plan and the Action Plan. See Table A for a summary of proposed accomplishments
based on the three funding levels.
AGENDA ITEM # 6 PAGE 4
TABLE A
KEG' ACCOMPLISHMENTS OF RECOMMENDATIONS BY FUNDING LEVEL
Fiscally Constrained Plan
Based on current staffing and funding level
Recommendations 1 through 3: The current WQES Group budget is adequate to implement
all Recommendations 1-3, including incorporating water quality goals in the Boulder Valley
Comprehensive Plan and master plans and other policy documents. There will be minimal
policy review of city plans and policies and minimal work plan and annual report development.
These activities will be implemented under a five-year schedule.
Recommendation 4: Staff will anticipate and respond to new and proposed regulations as best
as possible and dependent upon existing budget and workload constraints.
Action Plan
Requires funding and staffing beyond current levels.
Includes: $50,000 one-time budget, adjustment to base of $57,000 annually, and an
additional 0.5 full-time equivalent (FTE staff member
Recommendation 1: Will be completed with Fiscally Constrained Plan funding.
Recommendations 2 and 3: The focus will be on review of city plans and policies and on work
plan and annual report development. These activities will be implemented under a more
proactive three-year schedule.
Recommendation 4: Additional funding for staff and consultants to better and more thoroughly
respond to new and proposed regulations.
Vision Plan
Requires new staffing and funding levels.
Includes: $90,000 one-time budget request, an adjustment to base of $104,000 annually, and
an additional 1.0 full-time equivalent (FTE) staff member.
Recommendation 1 and 2: Will be completed with Fiscally Constrained Plan funding.
Recommendations 3 and 4: This plan allows WQES to:
• Develop focused, goal-oriented annual work plans;
• Produce annual reports on the status of drinking water and wastewater treatment
compliance and performance and on the quality of Boulder's water; and
• Respond proactively to new and proposed regulations to ensure cost-effective regulatory
compliance, environmental preservation, and public health protection.
Implementation of these programs will be completed within one year.
Implementation of the WQSP will be based, in part, on the funding level. At every funding
level, the WQSP calls for the City to commit to adopting the five water quality goals and the
recommendations.
The WQSP is an on-going plan with a five year update, the next being in 2014.
ATTACHMENTS:
Attachment A - April 2009 Water Quality Strategic Plan
AGENDA ITEM # 6 PAGE 5
City of Boulder, Colorado
April 2009
Water Quality Strategic Plan
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Acknowledgements
2009 Water Resources Advisory Board
Robin Byers
William DeOreo
Kelly DiNatale
Susan iott
Chuck Howe (appointed March 2009)
Bart Miller (retired March 2009)
City of Boulder- Public Works Staff
Water Quality and Environmental Services Staff
Robert Harberg, Utilities Planning & Project Management Coordinator
Carol Ellinghouse, Water Resources Coordinator
Annie Noble, Utilities Project Manager
Kim Elkins, Water Resource Specialist
Joe Taddeucci, Utilities Project Manager
City of Boulder- Planning Staff
Bev Johnson, Planning
Chris Meschuk, Planning
Consultants
Carol Adams, StudioTerra, Inc
Kathleen McCormick, Fountainhead Communications, LLC
Thanks to city staff and board members
who contributed significantly to the plan.
Special thanks to Sheila Murphy with the U.S. Geological Survey,
author of "State of the Watershed: Water Quality of Boulder Creek, Colorado";
USCS Circular 1284; 2006.
Table of Contents
Executive Summary ........................................................i
Sidebars Introduction
What is in the WASP? .............................1 The Boulder Creek Watershed ...............................................3
Boulder City Council Environmental Water Quality Trends and Challenges .........................................8
Goal- ............................................1 Boulder's Water Quality Goals .
Water Quality and Environmental Strategic Plan Recommendations and Performance Measures .....................13
Services Group ...............................2 Investment Program .......................................................16
Measuring the Health of Boulder Next Steps ...............................................................18
Creek . ..........................................6-7
Maps/Figures/Tables
Water Quality and Community Values.....8 Figure A - Funding Plans
Proactive Management.-.-.... ..............11 Figure 1 - South Platte River Watershed
Pending or Proposed Water Quality
3
Figure 2 -Boulder Creek Watershed . .4
Regulations ...................................14 Figure 3 - Biological Condition Gradient .7
. . . . . . . . . . .
Water Quality Regulations Trends 15 Table 1 - Investment Program . .........................................17
Award Winning Water Quality Figure A-1 - Listing of Impaired Waters in the Boulder Creek Watershed .................A3
Education ......................................16
Appendix
Recycled Content Paper A Understanding Water Quality Regulations
B Emerging Water Quality Issues
This pant intentionally left blank.
Executive Summary
Boulder Creek is a well-loved recreational, aesthetic and natural asset in the City of Boulder
(Boulder). Boulder Creek and its' tributaries are vital for providing drinking water, agricultural
irrigation water, aquatic habitat, recreation, and power generation, and water quality deter-
mines the suitability of water for most of these uses. Water quality in the Boulder Creek Wa-
tershed is affected by natural factors such as geology, climate, and human-caused factors,
such as wastewater effluent, runoff from roads and urbanized areas, agricultural practices,
and atmospheric contaminants. The relative effect of these factors on water quality has
changed over time and will continue to shift as population and urbanization increase and
more demands are placed on our water resources. Poor water quality and the destruction of
stream habitats can lead to the decline and degradation of this valuable resource and protec-
tive measures need to be taken. The Water Quality Strategic Plan (WASP) outlines actions to
protect and preserve Boulder's water resources.
Purpose of the Water Quality Strategic Plan
The WASP is the first planning effort to address water quality policies and priorities for
Boulder. The purpose of the WQSP is to develop clear and concise water quality goals,
develop strategies and performance measures to achieve these goals, and provide a process
to address current and future water quality challenges.
The WQSP is a five-year plan that supports many of the principles and policies of the Boul-
der Valley Comprehensive Plan (BVCP). The WQSP is designed to fit within the broader
framework of the BVCP, which provides the overall policy direction for planning decisions
within the Boulder Valley, including protection of water resources. The WQSP activities will
be implemented by the City of Boulder's (City's) Water Quality and Environmental Services
(WQES) Group, which is part of the Public Works, Utilities Division.
Water Quality Goals
Water quality goals were developed using an inventory of existing water quality goal state-
ments found in the City's master plans, policies, and regulations, starting with the BVCP.
From this exercise, five goal statements were developed and include:
1. Provide safe and high quality drinking water.
2. Manage pollutants from wastewater and other point-sources.
3. Manage pollutants from stormwater and other non-point sources.
4. Protect, preserve and restore natural water systems.
5. Conserve water resources.
2009 Water Quality Strategic Plan Page i
Recommendations
The recommendations developed for the WQSP are based primarily on the objective of adopting citywide water
quality goals, and integrating these goals into planning and policy instruments. In addition, the recommendations
address strategies to meet an unprecedented number of new or proposed federal and state water quality regula-
tions. The recommendations include:
Recommendation 1: Evaluate and update policies in the Boulder Valley Comprehensive Plan to incorporate
water quality goals. WQES staff will review and recommend updates to the BVCP to ensure incorporation of
water quality goals. The BVCP is scheduled to be updated in 2010.
Recommendation 2: Perform analyses on City plans, policies and projects to identify gaps in meeting water
quality goals. WQES staff will review relevant plans, policies, and projects, such as master plans, design and
construction standards, and the Boulder Revised Code to: 1) ensure that the City complies with all state and fed-
eral laws and regulations on water quality and environmental protections; and, 2) meet water quality goals.
Recommendation 3: Develop annual work plans and water quality reports. Annual work plans and reports will
be developed for each of the seven WQES Group programs. These programs include: Stormwater Quality, Water
Quality Education, Water Conservation, Industrial Pretreatment, Drinking Water Quality, Water Quality Planning
and Laboratory Services. Staif will use the work plans to direct program activities specific to the WQSP goals.
Recommendation 4: Prepare for future water quality regulations. WQES staff will prepare for future water qual-
ity regulations, ensure regulatory compliance, and incorporate capital improvement requirements needed to
meet regulations in the City's budget planning process.
Investment Plan and Funding Options S120,00~
The WQSP will be implemented primarily by the WQES
Group. The investment program is based on annual operating $100,000
budgets for WQES programs, and does not include capital 00
580,00(1
improvement projects. Implementation options are presented
at three funding levels, according to the City's Business Plan
~ Sbo,aoo ~
process, and includes Fiscally Constrained, Action, and a)
Vision plans. Figure A summarizes the funding plans. Z sala,noo N m_
The most significant challenge the WQES Group o
faces in implementing the WQSP is preparing for new water ~ 520000
£
quality regulations. The WQSP identifies the funding gap p.
between the Fiscally Constrained Plan and the Action Plan. so
Fiscally Action Vision Plan
Constrained Plan
Plan
Figure A - funding !'tins
Page ii 2009 Water Quality Strategic Plan
Introduction
What is in the Water Quality The Water Quality Strategic Plan (WQSP) is the first comprehensive plan-
Strategic P1an7 ning effort to address water quality policies and priorities for the city of
The WQSP contains the following
sections: Boulder (City). The WQSP is a five-year plan that will be initiated upon re-
The Boulder Creek Watershed view by the Water Resources Advisory Board (WRAB).
• Water Quality Trends and Chal- The purpose of the WQSP is to develop clear and concise water quality
lenges goals, develop recommendations and performance measures to achieve
• Boulder's Water Quality Goals
• Strategic Plan Recommendations these goals, and provide a process to address current and future water qua]
and Performance Measures ity challenges. The success of the WQSP will be based on the following ac-
Investment Program tions:
• Next Steps
• Clearly defining the City's water quality goals
C • Coordinating water quality-related planning and program services
• Creating a way to assess success in meeting water quality goals
Boulder City Council I . Providing a framework to effectively manage water quality programs
Environmental Goal:
"To enact and enhance city policies . Anticipating and planning for new and increasingly complex water
that cause the Boulder community to i quality regulations and issues
become a nationwide environmental
leader among communities, The City The WQSP supports many of the principles and policies of the Boulder Val-
will be a role model of exemplary
environmental practices." ley Comprehensive Plan (BVCP). The WQSP is designed to fit within the
broader framework of the BVCP, which provides the overall policy
direction for planning decisions within the Boulder Valley. The BVCP also
outlines the City's communitywide goals and provides a general statement
on the community's desires for development and preservation in the Boulder
Valley, including protection of water resources.
Protection and improvement of water quality is specifically discussed in
Section 4 of the 2005 BVCP. In Section 4.26 the BVCP states: "The city and
county will protect, maintain and improve water quality within the Boulder
Creek basin and Boulder Valley watersheds as a necessary component of
existing ecosystems and as a critical resource for the human community."
BVCP Section 4.27 states: "Water resource planning efforts will include such
things as water quality master planning."
The WQSP has been developed, and will be implemented by the City's
Water Quality and Environmental Services (WQES) Group within the city of
Boulder Public Works, Utilities Division. The WQES Group is funded
through the City's Water, Wastewater, and Flood enterprise funds.
2009 Water Quality Strategic Plan Page 1
The WQES Group supports the Utilities Division water services and is
comprised of seven programs:
Stormwater Quality
Water Quality Education
Water Conservation
Industrial Pretreatment
Drinking Water Quality
3 Laboratory Services
3 Water Quality Planning
The primary function of these programs is to protect water quality and en-
sure that the City complies with state and federal water quality regulations,
such as the Clean Water Act and Safe Drinking Water Act. The WQES Group
also provides water quality program management and serves as an in-house
technical resource for the City's Utilities Division and other City depart-
ments. Services include monitoring the performance of wastewater treat-
ment and drinking water treatment processes, monitoring the health of
natural systems such as creeks and lakes, and water conservation and plan-
ning. The WQES Group provides project management services to integrate
water quality enhancement and compliance goals into planning efforts and
City capiial improvement projects.
Water Quality and Environmental Services Group
The Water Quality and Environmental Services (WQES) Group, through environmentally sustainable principles and policies,
supports the City of Boulder Utility's Division's mission by complying with regulations, protecting Boulder's water quality,
maintaining and rehabilitating its aquatic ecosystems, and by implementing innovative risk management. Water Quality and
Environmental Services staff have expertise in aquatic ecology, water chemistry, biology, environmental engineering, limnology,
groundwater hydrogeology, statistical analysis, water conservation, environmental education, and compliance with regulations
and policy.
The WQES Group's objectives are to develop and implement comprehensive, coordinated programs that respond to water
quality issues and ensure regulatory compliance, and to address present and future needs and issues. To achieve these objec-
tives the WQES Group:
• Operates an ambient monitoring network on major streams and lakes. Monitoring activities are conducted at over 50 sites,
which are tested for more than 100 water quality variables. The aquatic community also is assessed at more than 10 sites.
Water chemistry and biological data assist in determining stream health and the impacts of pollution sources.
• Conducts issue-based, site-specific studies, usually by intensive sampling over a short period. Studies assess point and non-
point source pollution impacts, and treatment process optimization for wastewater and treated water facilities.
• Cooperates with industry, regional government entities, and others to protect water duality from impacts arising from
sources such as agriculture, :Wining, forestry, and municipal and industrial discharges.
• Conducts and participates in scientific studies to better understand the impacts of human disturbance on ecosystem struc-
ture and function. Study partners often include the U.S. Environmental Protection Agency, the U.S. Geological Survey, the Col-
orado Division of Wildlife, the University of Colorado, Boulder, the Colorado School of Mines, and Boulder County.
• Develops and recommends water quality standards, policies, objectives, and-guidelines to protect Boulder's water quality.
• Manages and operates high-quality analytical laboratory services for the Utilities Division and manages water quality data in
a secure information system.
Page 2 2009 Water Quality Strategic Plan
The Boulder Creek Watershed
Boulder Creek and its tributaries are vital for providing drinking water, agri-
cultural irrigation water, aquatic habitat, recreation, and power generation
t-: and water quality determines the suitability of water for most of these uses.
l s Water quality in the Boulder Creek Watershed is affected by natural factors
such as geology and climate, and human-caused factors, such as wastewater
effluent, runoff from roads and urbanized areas, agricultural practices, at-
is ,
y mospheric contaminants, and other sources. The relative effect of these fac-
tors on water quality has changed overtime and will continue to shift as
population and urbanization increase and more demands are placed on our
yr s FI water resources.
Strcam habitat along South Boulder Creek
Watershed Physical Features
The Boulder Creek Watershed has great diversity in geology, climate, and
land cover. The Boulder Creek Watershed is located in the larger South
Platte River Watershed and is bordered by the St. Vrain River and Clear
Creek watersheds (see Figure 1). Primary tributaries of Boulder Creek
i
m~ti r
ING 'I NEBRASKA _ _ _ _ K~•
COLORADO - - l'ur'e - -
r_
r.~l:t ~ ti 'r
(ho
ti .P
;
St vri,yiti er
L r
Bounder Creek 1pit r
Watershed C: teUr C - 31
Bear Cr ,c
1'oryFor
11 k r
3
4rIh-
Figure 1 South Plattf River Watershed
2009 Water Quality Strategic Plan Page 3
Fredenae
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~rtst'ad -
r p
- ~ i~ ~ 197 G1C'
3 /6WlrnPaseask5 _ MOUNTAINS PLkM1
- Area ,:l7rk?7Sd~~y YS+. -
. ~hSxstftA
J='ti Cu r_ r ae~a4 Sipgpne
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a 10 WOMETEAS
I 1
1'-iqure 2 Boulder Creek Watershed
y A i
L7`,,~
include the North, Middle, and South Boulder Creeks, Four Mile Creek, ~f `
Coal Creek, and Rock Creek, along with several smaller streams. The ;•r. ,
Boulder Crock Watershed is approximately 447 square miles in area. It Oita-
ranges in elevation from over 13,000 feet in the Silver Lake Watershed to = .y", -
~x
approximately 5,000 feet at the mouth of Boulder Creek as it enters the St.
Vrain River near Longmont, approximately 20 miles northeast of the City of
Boulder (Boulder) (see Figure 2).
Boulder Creek Near the Continental Divide
The Boulder Creek Watershed can be divided into three general areas:
1) the upper watershed from the Continental Divide to the foothills; 2) the
urban watershed, or the transitional zone from the foothills to the plains,
including Boulder; and, 3) the lower watershed, or the area below the City's ~wr
wastewater treatment facility (WWTF) to the confluence with the St. Vrain 4
River. These three areas have great variation in land use, geography, ecosys-
tem type, pollution sources, stream channel characteristics and stream regu-
latory classifications and standards .
The upper watershed is mostly undeveloped, forested land located in the - -
Roosevelt National Forest. Potential water quality impacts include effluent
from sewage treatment plants and septic systems, sedimentation from trans- '
portation activities such as snow removal and road maintenance, ski area i•~
activities and other recreational uses, development, and new and historic Boulder Creek in the Urban Corridor
mining operations.
Page 4 2009 Water Quality Strategic Plan
In the urban portion of the watershed, development increases
impervious surfaces, which results in increased runoff and degradation of
water quality from sediment and other pollutants, increased flood potential
and stream bank erosion, and possible lowering of groundwater levels. The
indirect impact of development on water quality is linked primarily to trans-
portation infrastructure. The Center for Watershed Protection has estimated
that over 80 percent of imperviousness in urban areas is due to transporta-
tion infrastructure such as roads and parking lots needed to support
N development.
In the lower watershed, water quality impacts are dominated by agricul-
13oulder Leek in thengricultmal Reach ture and rural and estate residential development. The City's N 75th Street
8efow the cry WWTF also discharges to Boulder Creek, and during most months of the
year is a primary source of water in Boulder Creek. The WWTF is required to
meet multiple state and federal regulations to control pollutants entering
Boulder Creek.
Water Quality Regulations
The federal Clean Water Act requires states to establish water quality stan-
dards for surface waters. In Colorado, the state agency with responsibility for
establishing stream standards to protect water quality is the Colorado De-
partment of Public Health and Environment (CDPHE). The standards are en-
forced through the Water Quality Control Division and Water Quality
Control Commission. Standards have three minimum components: (1) desig-
nated use classifications; (2) water quality criteria; and (3) policies to protect
against degradation of water quality. These standards are outlined in
Appendix A.
2009 Water Quality Strategic Plan Page 5
Measuring the Health of Boulder Creek
Water Quality: Water quality in the Boulder Creek watershed varies substantially as water moves from the upper, more
pristine sections of the watershed through the urbanized area of Boulder and on to the plains east of Boulder, in general, the
quality of water is better in the high-elevation headwaters, where human activity is limited, or restricted, and there are few
contaminant sources. In addition, water quality tends to decline downstream as diversions remove water from Boulder Creek
and its tributaries. Downstream, water quality declines also with increases in population density and in the number of poten-
tial contaminant sources, including point and nonpoint sources. A comprehensive evaluation of the water quality and function
of the Boulder Creek Watershed is documented in the 2006 U.S. Geological Survey (USGS) report State of the Watershed:
Water Quality of Boulder Creek, Colorado WSC; Circular 1284). This document car. be found
at: http://pubs.usgs.gov/cire/circ1 i
Fish Species: Approximately 50 fisi, :1 ~ stiiii.:L al"w is ate non nafivr, u,,h;rhi1 the
South Platte River Watershed. introduced Species usually fare best in mamnade reservoirs; but in
streams they generally are not successful, because they must compete with species adapted to they - ,r
watershed and fluctuating hydrologic conditions. Nonnative trout are an exception. Rainbow Rainbow Trout (Salmn eairrineri)
trout (Salvo gairdneri), brown trout (Salmo tri.ma), and brook trout (Salvelinus fontinalis) were
stocked in Boulder Creek soon after settlement and are now the principal fish species in the upper portion of the watershed and within Boulder.
In lower Boulder Creek, native white suckers (Catostomus commersoni) and fathead min-
nows (Pimephales promelas), along with nonnative common carp (Cyprinus carpio), are the
most abundant species downstream from the city's N 75th Street WWTF. These fish tolerate ex-
treme variations of temperature, dissolved oxygen, turbidity, and flow. Studies of Coal Creek MayPy Nymph
found til.d native creek chub (Semotilus atromaculatus) and fathead minnow were most abun-
dant.
Measurements of Aquatic Ecosystem Health: The aquatic ecosystem is complex, dy-
namic, and often difficult to evaluate. However, the health of aquatic ecosystems generally can ,.,,..:`ti
be evaluated using biological, chemical, physical indicators of integrity. Brown Trout Oalrno trutta)
Biological Indicators: The term "biological integrity" first appeared in the federal Clean Water Act (CWA). The CWA
sought to "restore and maintain the chemical, physical and biological integrity of the nation's waters." The term was later de-
fined as "the capability of supporting and maintaining a balanced, integrated, adaptive community of organisms having a com-
position and diversity comparable to that of the natural habitats of the region." In other words, biological integrity can be used
to measure the health of the aquatic community.
The city of Boulder (City) has been collecting data on the biological aquatic communities in Boulder Creek since 1999. The
purpose of the data collection is to evaluate the impact of urbanization, and wastewater discharges, and to define baseline con-
ditions. The data is composed of benthic macroinvertebrates (insects) collected during biannual surveys. Stream insects, such
as mayflies and stonetlies, make good indicators of watershed health because they:
• live in the water for all or most of their life
• stay in areas suitable for their survival
• are easy to collect
• differ in their tolerance to the amount and types of pollution
• often live for more than one year
• have limited mobility
Page 6 2009 ~Nater Quality Stralegie Plan
Measuring the Health of Boulder Creek, continued
Bioass--ssnient data is collected a!orrg Boulder Creels at seven sites. One site is above the city and one is at South Boulder
Creek. These two sites make up a "reference" reach since they are relatively not impacted by urban and other development.
The remaining sample sites are located within Boulder, and one is below the urbanized area. In 2005, to evaluate the impact
from wastewater discharges on Boulder Creek, the study was
broadened to include three additional sites above and below the Biological Condition Gradient
city of Boulder WWTF.
Nabnal ! Tic6lr,11, Rrnrbone+, xv3 raronanne irrtegrny l3 P^SerrM
Generally, as pollutants or other "stressors" increase in a
SmMewe as rtwrergn .wwur n naturar rbnrmrmry wror rant aaananal
stream or water system, biological integrity decreases. The U.S. 2 rata a r. n .,r, o nr r+r fent.r an»W er: urns Ar o} na c t rannry
to prseni; rcarysrfni krr! fw2Cmr,ar aIN nWrrWi.al
Environmental Protection Agency (EPA) developed a Biological Fr~Ofn7CM gr3M rntwrr 9rc to lost of son ruse a0r
Condition Gradient as ageneral system to evaluate impairment of o 3 an:anoln sloove+sm4rnct:r~oyyzrrnrk.N/+ncrbn~eny
a nranfahNd fMOUylr rtdunCfnf atfllbuttY o/tr~c ryrfmt
stream systems using biological data (see Figure 3). moo, ~f~,~~rnrr rh,r~rb r..nr
4 of --W- ,DgoI ,M rata br nnrr tallant 1111,
owlatl OeLnclri m"ror6ua'on ol+a ^ar.Kr.e tae:
`a rcofV3r .runr+ronr a^XNnrrntarmf.
Chemical Indicators. Water chemistry is the most commonly U
[Or[mprr rnws sgnf or pn,slpbrffel
measured indicator of water body health and is also used to ° ^+^Lre^°"Ory"'^^~ S ,oust: ecosyrarn,lwraan ,iaurmfuna
O compielrously nntarLnswf r6lurDUlcn of rongkiny•.d rtd"Wi Y,1n" 4
measure compliance with state and federal water quality stan- ii] ^'Mu"J,o"°'r'°niM.1C. 1Y'"..9_"'" 6umopaeapo fof-WdP~,Wz
dards. Monitoring the chemistry of surface waters can be simplis- Ete,nren. ,~3rroctwr... rb esafcaagrs n anonuke~ ow ar Nrgwnt;
utaiaatae i0111paa~0a: frt6far aarawn Rota h cCO5/SY1P 1110" M
tic, focusing on standard field measurements for constituents such naaW ara.re. aryaarmaaao+~oft"°~^r°° rMtq ey srbtd
as pH, temperature, specific conductance, and dissolved oxygen. Low Level of Stressors NIGH
More complex monitoring requires water samples to be collected
and analyzed by a laboratory. Some of the common parameters an- figure 3 -Biological Condition Gradient
alvzed in surface waters include ammonia and other forms of nitrogen, various forms of phosphorus, multiple forms of bacte-
ria, alkalinity, hardness, and multiple metals.
The City implements a comprehensive surface water quality monitoring program within the Boulder Creek Watershed to
support both regulatory and nonregulatory programs. These programs include compliance monitoring for state and federal
regulations and support for protecting the city's drinking water supplies. The City monitors water quality at 30 locations along
Boulder Creek and its tributaries and at point source locations such as wastewater treatment plant discharges. Monitoring is
conducted monthly, with over 100 parameters either measured in the field or analyzed in the laboratory.
Physical Indicators: Physical indicators measure the quality of habitat in an aquatic ecosystem. Habitat quality has pro-
found influences on the aquatic community in a stream and can limit the health of the ecosystem even if the chemistry of the
water indicates good water quality.
To measure the habitat value and the habitat quality of a stream system the City uses the U.S. EPA's Rapid Bioassessment
Protocols for Use in Streams and Wadeable Rivers (EPA 841-B-99-002). The evaluation involves a quantitative measure of
physical parameters that make up a riparian habitat. These measures include a summary of riparian vegetation features, in-
stream parameters (including width, depth, flow, and substrate), and stream type and origin. The parameters are rated and
placed into condition categories that range from "optimal" to "poor."
The purpose of the habitat assessment is to evaluate the physical characteristic of Boulder's riparian areas. The City com-
pleted habitat assessments on Boulder Creek and its major tributaries using the EPA method in 1990, 1995, and 2001. The
habitat information most recently was used to make recommendations in the City's Greenways Master Plan which identify and
prioritize stream restoration projects.
2009 Water Quality Strategic Plan Page 7
Water Quality and
Water Quality Trends and Challenges Community Values
Boulder has a long history of
preserving its local environment and
natural resources. For water r{uality,
Since the passage of the Safe Drinking Water Act (SDWA) and the Clean thus goes beyond regulatory compli-
Water Act (CWA) in the 1970s, there have been tremendous strides in clean- ance. One example is the preservation
ing up our nation's rivers and lakes. These improvements came largely from of Boulder Creek. In 1894 Boulder
controlling pollutants from factories and wastewater treatment plants. In the experienced a 100-year flood, which
damarieI a large portion of the down-
1990s, the CWA was amended to include control of nonpoint source pollu- town area. In 1969 Boulder again
tants from urban stormwater runoff, which lead to further water quality im- experienced amajor flood- After these
provements. However, despite these regulations, 40 percent of the nation's two events, there was a great deal of
rivers in a recent EPA study were still too polluted for fishing or swimming. pressure to protect Boulder from
flooding
One explanation for the shortfall in reaching the "drinkable, swimma- An engineered solution that was a
ble, fishable" goal in the CWA is the complex nature of water quality. Water standard practice at the time would
pollutants come from very diverse sources, such as air pollutants from the have confined Boulder Creek in a
burning of fossil fuels, or from urban and agricultural land uses, which are concrete channel as it traveled
through town. However, the City
difficult to control or regulate. This makes it ever more important to manage made a conscious decision to use non-
source waters to provide safe drinking water, to control pollutants from our structural methods--working with na-
urban areas, and to remove pollutants in our wastewater. ture rather than against it. By
preserving the natural creek corridor
Locally, the USGS report titled State of the Watershed: Water and limiting or removing development
Quality of Boulder Creek, Colorado, outlined water quality changes since in flood-prone areas, the creek's nat-
the early settlement of the Boulder Creek basin. These changes were attrib- ural systems and high water quality
uted to human caused factors, such as mining wastewater effluent, were maintained. Boulder Creek today
is celebrated as a classic trout fishery
stormwater runoff, agricultural practices, and atmospheric contamination. and a community asset for recreation
The report suggested that a clear knowledge of water quality and effective and beauty. The City intends to con-
water resource and land use planning is needed to face future water quality tinue this environmentally protective
challenges. tradition of preserving community-
valued resources.
City of Boulder Operations and Infrastructure
The City maintains and operates substantial infrastructure to meet
SDWA and CWA requirements, protect public and environmental health
i; o
an
d generally enhance water quality. The City is responsible for maintaining
wastewater and stormwater collection system piping and treated water dis-
tribution piping. Throughout the collection and distribution system are mul-
Hamest HOUR" 1964
tipee pump stations that are required to keep water moving through the Boulder Creek flood- 1969
System.
Mechanical treatment facilities are also maintained and operated, in-
cluding one 25 million gallon per day (mgd) wastewater treatment facility
and two water treatment facilities, with a treatment capacity of 40 mgd and
16 mgd. The collection and transport of stormwater is accomplished through
pipes and open channels, with no form of treatment. Stormwater detention
Page 8 2009 Water Quality Strategic Plan
facilities are typically maintained by the City, which allows some regulation
of stormwater flow plus a limited level of treatment.
All of the City's water, wastewater, and stormwater infrastructure and
operational information is documented in multiple master plans and operat-
ing manuals. These master plans and manuals are resources that the WQSP
- = will utilize to meet the City's water quality challenges.
a
Water sampling at Barker Reservoir
2009 Water Quality Strategic Plan Page 9
Boulder's Water Quality Goals
The Boulder Valley Comprehensive Plan (BVCP) outlines the City's environmen-
tal goals. When the BVCP was adopted in 2005, Boulder City Council estab-
lished a goal of becoming a national environmental leader. City Council's
water-related environmental priorities included promoting water conservation.
City Council also aimed to strengthen water quality improvement efforts by pro-
tecting biodiversity and native ecosystems, by managing the City's water sources
through a larger watershed approach, and by reducing pollution sources.
The City must establish strong but achievable water quality goals to protect
the environment and public health, and to address future water quality
challenges. The WQES Group developed water quality goals by first completing
a comprehensive inventory of existing water quality goal statements found in the
City's master plans, policies, and regulations, starting with the BVCP. The group
also reviewed water quality regulatory compliance requirements. The goals
support the city of Boulder, Utilities Division Mission Statement:
Our Mission is to provide quality water services, as desired by the community,
in a manner which emphasizes efficient management of fiscal and natural
resources, and protects human and environmental health.
Goal 1. Provide safe and high-quality drinking water.
The City is required to provide drinking water that meets all state and federal re-
quirements. Drinking water safety cannot be taken for granted. A number of po-
tential threats to drinking water exist within the raw source water and within the
treated water distribution system. Improperly disposed of chemicals, animal and ti3 <P-1
human wastes, pesticides, naturally-occurring substances such as bacteria, can =
Jrssa~0 t+acrarfa lo'volc .
contaminate drinking water and pose a health risk. To ensure the quality of _Oaor crook n,av occ-
.tlime.Fhorelasebnndv--
drinking water, protection strategies must be implemented from "source to tap." not to drink tlh,v,tQ,,
OTICIA IMPORTAty
Goal 2. Manage pollutants from wastewater and other point sources. T 'v~•'=
d:+n t. arm a wf =
The City is responsible for operating the N 75th Street WWTF and meeting Col-
orado Discharge Permit System (CDPS) permit requirements. Adequate waste- 1W
water treatment is critical in protecting public health and the environment.
Currently, the WWTF treats an average of 16 mgd and discharges treated waste- A warning sign posted on Boulder Creek.
Elevated bacteria levels in Boulder Creek can
water into Boulder Creek. A number of smaller wastewater treatment systems, as occur, prompting posting a warning sign for
well as individual septic systems, also discharge into the Boulder Creek Water- public awareness.
shed. These include the Town of Nederland wastewater treatment facility, which
discharges into Barker Reservoir, a source of drinking water for the City.
Page 10 2009 Water Quality Strategic Plan
Proactive Management Goal 3. Manage pollutants from stormwater and other nonpoint sources.
Protecting water quality often entails The City is required to implement programs required under the State of Col-
an overreliance on regulatory orado Municipal Separate Storm Sewer System (MS4) discharge permit to pro-
structures and compliance monitor- tect the quality of stormwater, which is discharged into water bodies such as
ing. As a result, managing water
quality becomes reactive, in response streams. In urban areas, stream and water quality degradation generally are re-
to monitoring that reveals inadequate lated to development. Adding impervious areas such as roads, parking lots, and
water quality. Reactive management i buildings to land that once had natural cover increases surface runoff and re-
can address existing problems but is duces groundwater infiltration, which damages natural stream hydrology and
rarely successful in anticipating new ! aquatic systems. Urban and agricultural runoff containing sediment, fertilizers,
challenges. For water quality and
natural resource management to be and pesticides also can pose a threat to water quality. Protecting water quality
successful, the City must manage means managing pollutants from these diverse sources.
water resources proactively, rather
than reactively. Goal 4. Protect, preserve, and restore natural water systems.
One example of a proactive Natural water systems include riparian and wetlands habitat as well as stream
approach was the City's management
of the ammonia standards for waste- flow. Intact riparian ecosystems provide ecological benefits, which play an
water treatment discharges. In the important role in maintaining water quality, protecting aquatic life, and
early 1980s, the state proposed more preserving the aesthetic, recreational, and economical value of Boulder's
stringent ammonia discharge limits waterways.
for the City's wastewater treatment
facility. In response, the City part-
nered with CU and other municipali-
ties that discharge wastewater in the Conserving water is integral to protecting water quality. Water conservation
region to conduct an extensive study practices can improve water quality by increasing the amount of water flowing
of ammonia levels in stream segments in streams and reducing the amount of treated wastewater discharges. Water
below wastewater facilities. This conservation also diminishes the need to find new water sources and construct
proactive collaboration enabled a
necessary time frame (two N 75th storage facilities. Water conserving landscaping can minimize irrigation runoff,
street WWTr CDPS ly,rmit cycles) reducing impacts to local streams.
while the City collected site-specific
data and created in effective plan for Meeting these five water quality goals will provide water quality protection,
additional ammonia removal which means clean water to drink, clean streams and lakes to swim in, and
measures at the facility. healthy waterways that support fish and other wildlife.
2009 Water Quality Strategic Plan Page 11
This page intentionally left blank.
Page 12 2009 Water Quality Strategic Plan
Strategic Plan Recommendations and
Performance Measures
7i~1 iJ
Is the City's water safe to drink?
Can people swim in Boulder's streams and reservoirs?
Does the City adequately treat wastewater?
The WQES Group developed four recommendations that will allow the City to
meet its water quality goals. The success of the WQES Group in implementing
r ' I the recommendations in the WQSP will be evaluated using the following per-
formance measures listed under each of the recommendations.
The City owns and operates a 25
million gallon per day wastewater treatment Recommendation 1: Evaluate and update policies in the Boulder Valley Com-
facility (WWTF) located east of the city of
prehensive Plan to incorporate water quality goals.
Boulder. completed Majinor W2008 which imhichpchangedrovements the treat- WQES staff wi I I review and recommend updates to the Boulder Valley Compre-
ment process to an activated sludge treat- hensive Plan (BVCP) to ensure incorporation of water quality goals. The BVCP is
,Went process and increased the WWTF scheduled to be updated in 2010.
capacity. The WWTF improvements were Performance Measure: Adoption of the five water quality goals into the Boul-
required to meet new and more stringent
der Valley Comprehensive Plan in 2010.
Irguiations. /
Recommendation 2: Perform analyses on City plans, policies and projects to
identify gaps in meeting water quality goals.
WQES staff will review relevant plans, policies and projects such as master
plans, design and construction standards, and the Boulder Revised Code to: 1)
ensure that the City complies with all state and federal laws and regulation on
water quality and environmental protections and; 2) to meet water quality goals.
The planning analysis includes a prioritization of plans based on water
quality implications and integration of water quality goals into the City's plan-
ning processes. A two-step procedure would include:
Step 1: Create assessment filters to prioritize which City policies, plans and proj-
ects will be evaluated first. These filters, or criteria, will be based on the poten-
tial impact on water quality and regulatory compliance. This screening will help
identify two review categories:
Priority Items: Priority items are "high leverage" documents that include
multiple water quality goals, affect the City's compliance with state or fed-
eral regulations, impact critical water quality issues, and address problems
that pose imminent threats to human health or the environment. These
plans or policies will be reviewed first, with actions to bring the City into
compliance occurring as soon as possible. Strategies will be developed to
implement policy objectives as a stop-gap measure until more permanent
changes can be made during the scheduled plan update. An example of a
priority item could be: When new state regulations require that municipali-
ties have regulations in place that prohibit certain discharges into storm `
2009 Water Quality Strategic Plan Page 13
sewer systems, staff will review and update existing code to comply with Pending or Proposed Water
the new regulations. Quality Regulations
Secondary Items: Secondary items are policies or plans that meet one or Wastewater related regulations
more goals, and address less critical water quality problems. These plans { include temperature and the
presence of mercury; ammonia,
will be reviewed and recommendations developed following scheduled or and emerging pollutants such as
planned updates. An example of a secondary item could be: The City's endocrine disrupting compounds,
current Greenways Master Plan, which addresses a number of water quality or chemicals derived from indus-
goals, is adequate to meet most of the goals, so review will occur with the trial, agricultural, and domestic
next update to the master plan. processes, including those used in
the manufacture of plastics, deter-
The screening `filter to assess plans and policies would be based on rating gents, pesticides, and flame retar-
the degree of potential water quality impacts. Some examples of criteria in- dants, which have the ability to
dude: regulatory compliance, public health risk, pollutant of concern, high disrupt normal hormonal actions
value resource, and critical habitat, in humans and wildlife.
Step 2: Integrate assessment filters and water quality objectives into City plan- Drinking water regulations include
Wing processes. The City currently has a robust planning process to review and those for lead, copper, arsenic, and
disinfection byproducts and
update plans, policies and projects. These include the Master Plan Review emerging pollutants such as
Team, the Community Environmental Assessment Program (CEAP), and the endocrine disrupting compounds.
Boulder Val ley Comprehensive Plan update. These planning activities involve Stream standards and total
assembling interdepartmental review teams and incorporating various objec- maximum daily loads (TMDIs), or
Lives and performance measures into updates to plans, policies and the design calculations of the maximum
amount of pollutants that a
of public projects. waterbody can receive and still
Performance Measures:All policy and master plans reviewed and updated to safely meet water quality
incorporate water quality goals; development of a matrix of water quality in- standards, include standards
dicators and evaluation of plan review based on criteria. related to sediments, aquatic life,
and nutrients such as nitrogen and
Recommendation 3: Develop annual work plans and water quality reports. phosphorus, as well as pathogens
Each year the WQES Group will identify and outline priorities to achieve the like E. coli bacteria.
• Stormwater regulations include
City's water quality goals and to document monitoring, community involve- airborne contaminants, pathogens,
ment, and watershed management efforts and regulatory compliance. The and sediments.
WQES Group will develop annual work plans for each of its seven programs. A more detailed description of water
Staff will use the work plans to direct program activities specific to the WASP quality issues is hated in Appanclix B.
goals. An overall WQES annual work plan summary will be developed regard-
ing major work plan components, planning tasks, and annual operating and CIP
budget recommendations.
This recommendation also calls for the development of an annual report
detailing progress on meeting water quality goals. The annual report will be
based on specific objectives and water quality indicators, and will present water
quality data collected by the WQES Group. The data also can be used by other
Utility Division groups and City departments.
WQES staff would participate in the established planning processes by de-
veloping specific water quality objectives and performance measures based on
water quality goals as they relate to the plan being updated.
Performance Measure: Development of program work plans and annual
reports.
Page 14 2009 Water Quality Strategic Plan
Water Quality Recommendation 4: Prepare for future evader gUillity regulalions.
Regulations Trends The City will anticipate and prepare for future water quality regulations, ensure
The City will be proactive in prepar- regulatory compliance, and incorporate capital improvement requirements in
ing for future water quality regula- the City's budget planning process. The foundation of water quality planning is
tions, ensure regulatory compliance,
and incorporate capital improvement forecasting future water quality criteria and permitting issues related to emerging
requirements in the city's budget water quality issues and new regulations. These issues often surface first on the
planning process. national level and must be evaluated in terms of their potential impact on state
The City has had to respond to an regulatory programs, the City's water quality programs, and regulatory require-
unprecedented number of proposed ments that apply to City facilities, such as the wastewater and water treatment
water quality regulations in recent
years. In the past nine years, for ex- facilities.
ample, there have been eight new reg- The new regulations are anticipated to focus on old and new chemicals that
ulations for drinking water under the are not currently regulated, but can pose a risk to public or environmental
Safe Drinking Water Act. Currently, health. Some contaminants are now being recognized as "emerging pollutants,"
the City faces 23 new or proposed and come from sources such as personal care products and the disposal of
water quality regulations under the
Safe Drinking Water Act and the pharmecueticals. The impact of many emerging pollutants is just beginning to
Clean Water Act. Regulatory trends be understood and regulated. Many emerging pollutants are present in very low
include: concentrations, and with recent improvements in measuring methods, are being
• More complex regulatory re- identified in waters across the nation and the world.
quirements and compliance stan- Future water quality regulations present a significant management
lards, which make it more difficult to achieve compliance challenge vvih potentially cosily consequences, including:
More sophisticated (and some- increased drinking water and wastewater treairnent facility costs,
times costly) treatment required - more stringent land-use controls, and
to address pollutants being regu- d costly stormwater treatment and other pollutant prevention strategies.
lated
• More complicated and more Elements of Recommendation 4
costly chemical and biological an-
alytical and sampling methods To meet current and future water quality challenges the City rnusi develop a sys-
• Lower detection limits required in tematic approach to track and plan for emerging water quality issues. This ap-
laboratory analysis proach represents a refined program initiative for the WQES Group and would
• Higher frequency of sample col- include the following activities:
lection
• Greater number of water treat-
ment and natural systems affected Research and development, including tracking federal and state regula-
• Overlap of treatment systems and tions and evaluating how these regulations impact city operations. To
potentially conflicting needs (for determine possible impacts, special studies, water quality modeling,
example wastewater regulations and possible bench testing will be conducted with environmental con-
may impact drinking water stan- suiting services or through further development of staff and resources.
dards) Partnerships, including institutions and agencies such as USGS, CU,
These new regulatory challenges will EPA, and CDPI IF. These partnerships would research emerging water
require a concerted, significant re- quality issues and potential local impacts. The City would seek funding
sponse. A more detailed description from partner institutions and agencies to conduct research.
of water quality issues is located in Regulatory stakeholder involvement, including federal and state
Appendix B. regulators, in developing water quality policies and regulations.
Regulatory stakeholders might include other entities in the Boulder
Creek Basin, CDPHE, Denver Regional Council of Governments, other
2009 Water Quality Strategic Plan Page 15
committees, commissions, and work groups.
• Water quality education, including community involvement in develop-
ing community standards for drinking water and environmental quality,
and the commitment of individuals to make behavior changes needed
to solve today's complex environmental problems.
Performance Measure. Develop and implement a program to conduct special
studies, track new and proposed regulations, and participate in rule-making
activities.
Award Winning Water
Quality Education
One of the :post effective ways to Protect water quality is pollu- 'Ilk
tion prevention. To build an active, engaged community, the
City provides a number of environmental stewardship and edlt-
cation programs. The education program was initiated in 1992
with a few dozed ele.cnentary students. Today, the pnDgram is
conducted regionally through the Keep It Clean Partnership,
which reaches more than 8,000 students each year. A number
Of programs have been adopted statewide.
School-Based Education:
Cotla'oorating with teacher, and school district a dininistration,
the City developed an engaging "Get to Know Your H2O" cur-
riculutn for K-12 students in fhe Boulder' Valley anti 3t. Vt'airt H2O /o and Flo - the mascot of the Boulder
and Keep it Clean's Partnership water
Valley school districts. The program includes teacher training N.) Quality education program.
nuximire the ninuber cif students reached. It also includes take
home materials so the message does not stop at the school-house door. 'T'he pro-
gram reaches a large number of students through teacher and staff-led programs
and at the annual Children'S Water' festival.
Community Outreach: A Iinpited budget for marketing efforts requires innova-
tion in implementing the water quality outreach Programs. The community is
asked to help protect water quality through a wide range of materials, programs,
;end events. Websites, brochures, and stream tributary signs convey the broader
message of water quality protection, while programs such as Stream Teams and
Neighborhood Stewardship ask for action and commitment from indlVtdl1f11S and
snialler groups.
Page 16 2009 Water Quality Strategic Plan
Investment Program
The WQSP is a five-year plan that will be implemented primarily by the WQES Group. The investment,program is
based on annual operating budgets for the WQES Group programs and does not include capital improvement
projects.
A summary of the recommendations for funding levels is presented in Table 1. Implementation options are
provided at three funding levels, according to the Fiscally Constrained, Action, and Vision plans.
Table 1 - Investment Program Fiscally Constrained Action Plan Vision Plan
Plan The Action Plan is the rlexl step 7'lm Vision Fl,m is tlrc c-rmpletc
'the Fiscally Constrained Plan of service expansion orreston• wtofrrrvi~ciat:,t;atil6lEesttf-
(Current Funding) is a priori- host Ihal should E taken when 1w llt! X011111 1411:'} alld
sized, refocused service plan funding i$ av;nLlblc ether wilhin ;il 4nc,i with „titter 1Vlicits.
within existing budget targets. curwill revenue sources er if "with :dt .rtiat vc it ~lk1S i :o
IIe IV$1?L[t`~'C:~1`l'l0[!l l'. 1L'.nlil131C_ t;ctld tllcttl. - -
Recommendation
1. Adopt the strategic This recommendation will be 'Phis re.ontn;cullatiolt will IV This v,:oonlmcrlJlllio!I will, h-
plan's water quality fully implemented in the next full% implclttcatcd in (tit {text Fulisiir,:Ilumacatt3In iiie next
goals into the 11VCP. BVCP update in 2010. BVCI' ttl~.latc ill 2010. ;s-Lx oj-Ow `lt 'r1
1 - r -
2. Incorporate water Five-year Implementation Thret-year Implementation Qna-ycar.Impicrriantalion
quality goals into Staffing restraints will limit im- dull intrlernentatiorl xill 1o P rl' {t nt:?tnc ai tlslci ivil, Y .
Citywide planning ef- plementation- Only plans or poll- achievcd within thr« }ears wtth :itni r;t wit Ai n1u ;1.{1,11 t+: cm
forts and city regula- cies with updates initiated by an additional S!4,000 per !additional onr-tam ieo of
other City depaitments will be year for three years of cam- ~4ttiCtc O faS . nM;tiS r > rt :ce5-
tions, polices and analyzed whirg scr viccx
procedures. r>-
3. Develop annual work Five-year Implementation Three-year implementation '-01"14-year. Implemenlalion
plans and water Annual work plans and water Nil Implcin ttualianwill In 3:st;.ir.n,cit ii,;I,cvisF
quality reports. quality reports will be fully im- pehtevc,l within thtca }cars with Rcll w;Ii11tl , :iC Y':lr'Wh 111
plemented within five years. an additional one-time fee idditional'ove time fee of
of $20,000 forcons:tltii~g x$50,000 fs'r nsalt ±it~ sgrti tis
services to devctclp to work piar ;fo,aeve;op a eptl+ t,c alld dr.Ift
and watcrqu:tlity re;v t ice( il1C wxwk pian 0 1Id whirr lrua:-
(c111111.11c. by rcrcrt.
4. Prepare for future New Program Initiative New Program Initiative New Frogrsin lnitietive
water quality New and proposed n.'Kulaltons Partial imrIvinentalion will L'e )llil mirtrmcilt, Fi,n k6ili L-L
regulations. will be (rackLd cold ,icklresRd to xh;cvcd with An additional a }ticv ;t with :3r additional'
theexient passible within site O.S FTE and $10,000 per .0 FTE and $10,000 por
ems'ting btu(gct. year for Llbortaory and cc rlslllt- year :or tots 'rtfPtt to d car.=trlt-
inn &crvlcc,, It rarlircx tut iinti °wtYites It req;,ires all
annual adjustment to base annual adjustment to base
of $47,000 ter the 0-5 F T1: of 894,000 ti,r the 1,0 rrF.
roll{{{s{ sai>3ry and l:e:acrw,. slInual 9aivy assts ~n tit-r.
Total Investment $0 beyond current budget Fequires a $50,000 one-time Fequires a $50,000 one-time
budget increase, a $57,000 on- budget increase, a $104,000 on-
going adjustment to base, and an going adjustment to base, and an
additional 0.5 full time cquiva- additional 1.0 full time equiva-
lent staff member (FI•B). lent staff member (FTE).
2009 Water Quality Strategic Plan Page 17
Next- Steps
The most significant challenge the WQES Group faces is anticipating and
preparing for new water quality regulations. The WQSP identifies the funding
gap between the Fiscally Constrained Plan and the Action Plan.
Implementation of the WQSP will be based, in part, on the funding level.
At every funding level, the WASP calls for the City to commit to adopting the
five water quality goals and the recommendations.
The WQSP is a five year plan and will be updated in 2014.
I
Page 18 2009 Wafer Quality Strategic Plan
Appendix A w Understanding Water Quality Regulations
The Colorado Water Quality Control Division (Division) regulates the discharge of pollutants into the state's surface
and ground waters and enforces the Colorado Primary Drinking Water Regulations. The Division is the administrative
agency responsible for developing specific state water quality policies related to those specified in the Colorado
Water Quality Control Act. The Colorado Water Quality Control Commission (Commission) adopts water quality
classifications and standards for surface and ground waters of the state, as well as various regulations aimed at
achieving compliance with those classifications and standards. Standards have three components: designated use
classification, water quality criteria, and anti--degradation policies. The following outlines each of these compo-
nents:
Designated Uses. Designated uses are human and ecological uses that are officially recognized and protected. Col-
orado's designated use categories are:
Recreation:
Class 1 - Primary Contact: Waters suitable for recreational activities when ingestion of water is likely, such
as swimming, kayaking and tubing. There are two subcategories: Class 1 A (existing use) and Class
1 B (potential use).
Class 2 - Secondary Contact: Waters not suitable for primary contact, but suitable for recreational uses such
as wading and fishing.
Agriculture:
Waters suitable for crop irrigation and for livestock watering.
Aquatic Life:
Class 1: Waters capable of sustaining a wide variety of aquatic life, including sensitive species. There are
two subcategories: Cold Water and Warm Water
Class 2: Waters not capable of sustaining a wide variety of cold water aquatic life, including sensitive
species, due to physical habitat, water flows, or uncorrectable water quality conditions, There are
two subcategories: Cold Water and Warm Water
Domestic Water Supply:
Surface waters suitable for drinking water supplies. After standard treatment, these waters will meet
Colorado drinking water regulations.
Surface waters within a watershed are divided into segments, which are then assigned designated uses based on how
the water is currently used and what uses are desired for the future. Several designated uses have been applied to
waters in the Boulder Creek watershed. All of the waters have been classified for Recreation 1 A and agricultural use,
and all except for parts of Coal Creek have been classified for domestic water supply. Aquatic life use classifications
vary depending on water temperature and flow.
2009 Wafer Quality Strategic Plan Page A t
Water Quality Criteria. Water quality criteria are descriptions of the chemical, physical, and biological condi-
tions necessary to achieve and protect a water body's designated uses. For waters with multiple designations, the
criteria must support the most sensitive use. There are both narrative and numeric criteria. Narrative criteria de-
scribe water quality goals and provide protection against contaminants 'that do not have specific numeric stan-
dards. Numeric criteria set an acceptable concentration of a specific contaminant in a surface water or
groundwater.
Anti-degradation Policies. Anti--degradation policies are used to protect water quality. The Division's guidance on
anti--degradation identifies three levels of classification: 1) outstanding waters, for which no degradation is al-
lowed; 2) use-protected waters, where degradation is allowed as long as water quality criteria are met; and 3) re-
viewable waters, where limited degradation is allowed if no reasonable alternatives are available and water
quality standards are still met. In the Boulder Creek watershed, all of the tributaries within the Indian Peaks
Wilderness Area are designated as outstanding waters. In general, Boulder Creek and other tributaries in the
mountains are reviewable waters, where segments on the plains are mostly use-protected. Segment 9 of Boulder
Creek, which is the reach of Boulder Creek that receives treated effluent from the city of Boulder N 75th Street
WWTF, is a reviewable water and requires more stringent effluent limits for some constituents.
Compliance with Water Quality Criteria. States are required by section 305(b) of the Clean Water Act to assess
and report on the quality of the state's waters to Congress through the IJ.S FPA. The state's current (200B) 305(6)
report describes the ways the state measures water quality, the qualiiy of wafer bodies, and pollution control pro-
grams. The State of Colorado 305(b) report, titled Status of Wafer Quality in Colorado, is available from Colorado
Department of Public Health and Environment, at the following link: hitp://www.c(lphe.state.co.u,,/op/wgcc/Re-
source /waterstatus_305_b/305bUpdate08.pdf
hi addition to the 305(b) Report, Section 303(d) of the Clean Water Act requires states to develop a list of
repaired water bodies, called the 303(4) list. When credible data indicate that a water quality standard is not
met, the state is required to propose that the stream segment be placed on the 303(4) list with information pertain-
ing to the constituent(s) that do not meet water quality standards and an assessment of what is causing the impair-
ment. In Colorado, the Colorado Water Quality Control Division develops the 303(d) list every two years and
submits the list to the Colorado Water Quality Control Commission for a public hearing. Once the 303(d) list is
approved, it is provided to U.S EPA Region 8 for review and approval. In the Boulder Creek Watershed, segments
of Boulder Creek and Coal Creek have been listed as impaired for ammonia and/or E. coli, requiring the develop-
nwnt w a total maximwii daily load (TMD1 assessment (see Figure A-1).
Page A2 2009 Water Quality Strategic Plan
TMDL completed for ammonia
On 303(d) list for E. coli; TMDL required.
INlot all uses have On M&E list for aquatic life.
been assessed. r
TMDL completed
On 303(d) list for E. colt; for ammonia. '
TMDL required. On M&E list for
Jr aquatic life.
4.r ~1;: ' _ 'N`^f'! ~ ,~~1 •~J On 303(d) list for
• ! ` ' E colr TMDL required.
On ME list for
_~ti_T 1 11 - Zn M&E list for chromium Vl.
~T selenium and E. coil.
EXPLANATION N
All designated uses are met
0 10 KILOMETERS
Figure A-1 Listing of Impaired Waters in the Boulder Creek Watershed
2009 Water Quality Strategic Plan Page A3
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Appendix B - Emerging Water Quality Issues
To prepare for future water quality regulations, the Water Quality and Environmental Services (WQES) Group within
the city of Boulder (City) Public Works Department, Utilities Division (Division), developed the following synopsis of
emerging water quality issues faced by the City and other municipalities throughout Colorado:
Pending or Proposed Water Quality Regulations and Emerging Issues or Concerns
• Wastewater: temperature and the presence of mercury, ammonia, nitrogen, phosphorus nonylphenol, and
emerging contaminants, such as pharmaceuticals, personal care products, and endocrine disrupting com-
pounds
• Drinking Water: lead, copper, total coliforms, invasive species, disinfection byproducts, and emerging con-
taminants such as pharmaceuticals and personal care products and endocrine disrupting compounds
• Stormwater: airborne contaminants, pathogen (E. coli) TMDLs, and sediment criteria
• Stream Standards and Total Maximum Daily Loads (TMDL): standards changes including sediment criteria,
nutrient criteria, aquatic life criteria, and pathogens (E. coli), plus TMDLs, or calculations of the maximum
amount of pollutants that a waterbody can receive and still safely meet water quality standards, for E. coli.
• Other: climate change impacts
WASTEWATER ISSUES
Emerging Contaminants. Increasingly sensitive chemical analytical technologies have revealed previously unmeasur-
able microconstituents in the water. These microconstituents (emerging contaminents of concern (ECCs)) include en-
docrine disrupting compounds (EDCs), and pharmaceuticals and personal care products (PPCPs). ECCs represent a
variety of compounds including prescription and over-the-counter veterinary and human medicines, household and
industrial cleaning products, herbicides and pesticides, and intermediary manufacturing chemicals. ECCs can be syn-
thetic or natural, such as estrogenic compounds produced by plants like soy.
Recognizing the need to address potential health and environmental concerns, the City's WQES staff has done re-
search and followed developments in this new discipline. The City participates in the Consortium for Research and
Education on Emerging Contaminants (CREEC), an interagency organization. The City recently joined the Water Re-
search Foundation taking an active role in research that will enable utilities to characterize occurrence and potential
public health risks of ECCs and address them proactively.
The Drinking Water Program has initiated screening of source water and treated drinking water for a wide range
of ECCs for which established analytical technology exists. Preliminary results indicate the presence of some ECCs in
both source and treated water. Future monitoring will depend on availability of additional funds.
Endocrine Disrupting Compounds (EDCs). EDCs are natural and synthetic molecules that can interfere with hormone
systems in the bodies of animals. EDCs such as estrogenic pesticides and pharmaceuticals (xenoestrogens) can have
adverse impacts on wildlife, domestic animals, and humans.
Boulder recently received national attention related to EDCs detected during research on Boulder Creek by the
University of Colorado (CU), Boulder, and the U.S. Geological Survey (USGS). The research is evaluating low-level
contaminants that act as endocrine disruptors and have led to a predominance of female fish in the study area.
Although research focused on Boulder Creek, primarily downstream of the City's N 75th Street WWTF, Boulder is not
alone in dealing with the effects of these chemicals on the environment.
2009 Water Quality Strategic Plan Page B1
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Research trailer used by CU and USGS to evaluate Aquaria inside the research trailer used by CU and USGS
impacts of Endocrine Disrupting Compounds. to evaluate impacts of Endocrine Disrupting Compounds,
Little is know about the removal of EDCs in the drinking water and wastewater treatment processes, or the impact
these chemicals may have on human health. The City, in conjunction with the USGS and CU, has initiated monitoring to
evaluate the level of treatment required for specific emerging contaminants at the N 75th Street WWTF and to measure the
effects of these contaminants on Boulder Creek. Evaluation of the effectiveness of treatment at the WWTF and the impacts
on Boulder Creek should continue through cooperation with the USGS and CU. These cooperative efforts could be ex-
panded to assess potential emerging contaminant impacts on the City's raw and treated drinking water. Prevention meas-
ures will be a key component of any control strategy. In 2008, the City completed a one-day pharmaceutical take-back
program with the Boulder County Health Department. The program attracted approximately 300 county residents, who
turned in approximately 300 pounds of pharmaceuticals. These efforts help prevent pharmaceuticals from entering the
City's wastewater treatment facility through the sanitary sewer system and also eliminate improper disposal or use of ex-
cess or expired pharmaceuticals.
Temperature Standard: In 2006, the Colorado Water Quality Control Division (Division) Department of Public Health and
Environment (CDPHE) proposed changes to statewide water temperature standards. A more restrictive and complex set of
temperature standards were adopted in the Colorado Basic Standards and Methodologies for Surface Water. The Division
will evaluate receiving water temperature data and determine whether discharges, such as treated effluent from waste-
water treatment facilities, should have a lower effluent temperature to protect aquatic life (recognizing that temperature
variations result from natural conditions and irreversible human impacts). Possible implications for the City include the
need for cooling towers or refrigerated chi liers to cool effluent from the N 75th Street WWTF.
Mercury Standard: The current mercury water quality standards for the protection of aquatic life are 1.4 ug/L for acute
conditions and 0.01 ug/L for chronic conditions, measured as a water column concentration. The N 75th Street WWTF
effluent limit is set at 0.012 ug/L.
The U.S. Environmental Protection Agency (EPA) recently has focused on revisions to the mercury criteria to better ad-
dress the bioaccumulation of mercury in fish tissue. EPA is revising criteria for the protection of human health from a form
of mercury called methylmercury. Other criteria being developed by EPA is the study of the relationship between fish tis-
Page B2 2009 Water Quality Strategic Plan
sue mercury accumulation and water column concentrations. This relationship is important in determining how compli-
ance with mercury levels will be measured.
The Division has included mercury criteria in the list of constituents to be addressed through the Standards Frame-
work Work Group process. The Work Group meets bimonthly and the City will rernain a member of the Work Group
through the 2010 Basic Standards Hearing.
Ammonia Standard. As part of the N 75th Street WWTF Colorado Discharge Permit System (CDPS) permit renewal
process in 2002, the Division required an ammonia TMDL be completed for Boulder Creek and the St. Vrain Creek basin
to address elevated ammonia concentrations. The TMDL was completed in 2003, and ammonia effluent limits were incor-
porated into the CDPS discharge permit.
In 2007 the Colorado Water Quality Control Commission (Commission) adopted more restrictive ammonia water
quality standards and implemented a new model to calculate WWTF effluent limits for ammonia. Substantial improve-
ments at the N 75th Street WWTF were implemented to prepare for the new ammonia standard, and the possible imple-
mentation of nitrate and nutrient standards.
Additional Boulder Creek ammonia and nitrogen evaluations were completed in 2008 and submitted to the Division.
Preliminary results of the modeling indicate that monthly ammonia effluent limits are substantially lower for specific
months and require enhanced nitrogen removal at the N 75th Street WWTF. Implementation of lower ammonia effluent
limits will be part of the CDPS permit renewal process, which is expected to occur in 2010. Boulder will need to evaluate
further the technical basis used to calculate the low ammonia limits to ensure they are accurate.
Nonylphenol Standard. In 2006, EPA published final aquatic-life chronic criteria for nonylphenol, an organic compound
that is a product of industrial synthesis, particularly in making detergents. The EPA freshwater criteria specified 6.6 ug/L
and an acute criteria of 28 ug/L. As part of the 2007 Commission hearing on Consideration of Revisions to Statewide Or-
ganic Chemical Standards in the Basic Standards and Methodologies for Surface Water, Regulation 931 and in the Basic
Standards for Groundwater, Regulation #41, as well as other proposed revisions to Regulation #41, the Commission
adopted the EPA nonylphenol criteria.
As part of the Commission hearing process, meeting these standards was deferred through 2009 to allow dischargers
time to evaluate the following: approvable analytical procedures for measuring nonlyphenol and its parent compounds;
sources of nonylphenol; ability to limit nonylphenol sources; and, measure the level of nonylphenol in WWTF effluent to
determine the ability to comply with the adopted criteria.
The City is in the process of collecting data on nonylphenol and its parent compounds to characterize sources. The
City has been an active participant with other dischargers on developing an approval analytical method for nonylphenol.
These efforts will need to continue through 2009.
Nutrient Standards. In 2002 the Division released their Nutrient Criteria Development Plan for the development and im-
plementation of nutrient criteria in Colorado. Over the past six years the Division has been working towards developing
nutrient criteria for nitrogen, phosphorus and chlorophyll a. Algae, measured as chlorophyll a, has been identified as the
primary indicator for evaluating the health of lakes and reservoirs. The Division is also evaluating the relationship be-
tween chlorophyll a and nitrogen and phosphorus concentrations. If impairment due to elevated chlorophyll a levels is
identified some level of control for nitrogen and/or phosphorus contributions, from point and non-point sources, will be
required by the Division. For streams and rivers, the Division is focusing on controlling nitrogen and/or phosphorus
contributions based on the health of the aquatic community, specifically macroi nverteb rates. This process looks at the re-
lationship between nutrient concentrations and macro invertebrate populations and diversity.
2009 Water Quality Strategic Plan Page 83
The Division will propose state-wide nutrient criteria to the Commission at the 2010 Basic Standards Hearing. Nutri-
ent criteria development Work Group meetings will continue Through 20099 and in to early 2010 in preparation for the
Hearing. The City is actively participating in the Work Group meetings and will need to decide in late 2009 whether there
is a need to testify at the 2010 Basic Standards Hearing.
Copper Water Quality Standard. The Division is in the process of evaluating methods to develop site-specific copper
standards in Colorado to address the over-conservative nature of the existing copper standards. The Division is evaluating
the use of a Translator following EPA Guidance, plus the use of the Biotic Ligand Model (BLM) to more accurately reflect
site-specific water quality conditions that reduce the level of copper toxicity in natural waters. The Division may provide a
proposal for the 2010 Basic Standards Hearing on which method, or combination of both methods, may be used in
Colorado to develop copper water quality standards. Either method will require additional data collection to support site
specific copper criteria development.
Aquatic Life Standard. The Division initiated the Aquatic Life Work Group in 2000 as part of their process of developing
aquatic life water quality standards, which are expressed as biocriteria. The primary function of biocriteria is to describe
the biological condition that is necessary to support the designated use of the water body, including lakes, reservoirs,
rivers and streams. Bioassessment tools are being developed to quantify the biological condition of an aquatic commu-
nity. The primary intent of biocriteria is not to set a regulatory standard, but will be used to detect impairment in aquatic
life and identifying probable causes of the impairment.
To date, the approach to developing biocriteria has focused on using macroinvertebrate population data, habitat as-
sessments (physical features) and fish population data. One of the main challenges in developing biocriteria is determining
"expected conditions". The expected condition will reflect a range of biological characteristics that are considered "nor-
mal" or "healthy" for a waterbody. Impairment of a waterbody will be based on the comparison of the expected condi-
tion to the actual condition, based on collected data. To date, the City has not been an active participant in the Aquatic
Life Work Group due to limited resources.
STORMWATER ISSUES
Urbanization. As Boulder becomes more urban, much of the land surface becomes covered by buildings and pavement.
These impervious surfaces do not allow rain and snowmelt to soak into the ground. Instead, stormwater runoff is carried
into nearby waterways. The stormwater runoff may carry pollutants such as oil, dirt, chemicals, and lawn fertilizers into
streams and rivers, impacting water quality.
Additional impacts from runoff in urban areas include:
• Stream bank erosion and increased sedimentation
• Loss or degradation of riparian habitat
• Pollution from runoff, including from nitrogen, phosphorus, pathogens, toxic metals, and pesticides
• Loss of aquatic and riparian dependent species
• Reduction in groundwater recharge
The City addresses a number of urban water quality impacts through the Water Quality and Environmental Services
Stormwater Quality Program. The City is regulated by a Municipal Separate Storm Sewer System (MS4) Permit that requires
implementation of stormwater program elements to control runoff and implement prevention strategies. The City's Green-
ways and Wetlands protection programs provide for the protection and restoration of wetlands and riparian areas, which
help to mitigate the effects of increased runoff in urban areas.
Page B4 2009 Water Quality Strategic Plan
The City's stormwater and associated programs address basic problems associated with urban runoff, such as runoff
volume control and pollution prevention. However, a number of emerging stormwater issues will make it more difficult to
meet the City's water quality goals in the future. These issues include:
Air-born contaminants: The U.S. Geological Survey's National Water Quality Assessment program included the first com-
prehensive evaluation of waterways in the U,S. The study identified air-born contaminants as a source of hydrocarbon
pollutants in a surface water, stormwater, and groundwater. These contaminants were likely formed by the burning of fos-
sil fuels. EPA has indicated that these contaminants will be regulated in the future.
Pathogens: Pathogens are another type of pollutant regulated to improve water quality and protect public health.
Currently, E, coli is used as an indicator of contamination by pathogens. Boulder Creek has been listed as impaired be-
cause of level of E. col i. This is discussed in further details in the TMDL section below.
Sediment: The Commission has adopted guidance concerning sediment deposition impacts to aquatic life in streams and
rivers. The guidance document, Provisional Implementation Guidance for Determining Sediment Deposition Impacts to
Aquatic Life in Streams and Rivers" focuses on the application of "expected conditions" with respect to aquatic life classi-
fication, nutrient criteria, and narrative sediment standard issues. The Commission is currently developing sediment regu-
lations, which are expected to be completed by 2011.
TMDL Requirements. The Clean Water Act requires that states develop streams standards for waterways within their juris-
dictions. These stream standards are based on "beneficial uses" of stream segments and include recreation, drinking water,
agricultural and aquatic life standards. New stream standards are often developed to provide additional or improved water
quality protection. The Division is proposing several new stream standards, including those on nutrients, sediment,
aquatic life, and temperature. These standards can affect the N 75th Street WWTF by requiring additional treatment and
the City's stormwater quality program by requiring additional best management practices (BMPs). States also are required
to assess water.quality to determine compliance with all water quality standards. The Clean Water Act requires states to
develop a list of impaired waters, commonly referred to as the "303(4) list." A water body is considered impaired if: a) the
current water quality does not meet the numeric or narrative stream standard; or, b) the designated use that is not being
achieved. Once a waterbody is listed, the state must work with dischargers to those stream segments to develop a TMDL
analysis.
Pathogen (E. coli) TMDL. In 2006, some segments of Boulder Creek were listed on the state's 303(d) list as impaired due
to exceeding the E. coli stream standards. Escherichia soli (E. coh) is a bacteria used as indicators of the possible pres-
ence of pathogenic (disease-causing) bacteria, viruses, and protozoa from sewage contamination. Since it is difficult, time-
consuming, and expensive to test directly for the presence of a large variety of pathogens, water is tested for F. coli
instead. However, recent studies have indicated that E. coli may not be a good indicator of pathogens, because a number
of strains thrive in the environment of soils and natural waterways, unlike the pathogens they indicate.
Monitoring by the City has shown high concentrations of E. coli in some segments of Boulder Creek. The City is work-
ing with the state to identify the sources of E. coli and other indicators to determine the relative health risk in Boulder
Creek.
2009 Water Quality Strategic Plan Page 85
DRINKING WATER ISSUES
The WQES Drinking Water Program addresses water quality issues from the source water through the distribution system.
The source water management programs typically are invaluable in understanding water quality for treatment and protect-
ing the City water supplies, rather than in meeting specific regulatory reporting requirements. This includes tracking
emerging water quality issues, of which water customers are increasingly more aware. Treatment and distribution system
monitoring typically is more focused on regulatory reporting but also provides information on water quality after it leaves
the treatment facilities and when it reaches the City's customers.
Changes to drinking water regulations will continue to affect the City through monitoring, treatment, reporting,
and customer awareness. The EPA must revisit drinking water regulations to address new developments in research related
to human health effects and analytical methods. The trends in drinking water regulations include more complex rules,
more emphasis on treatment techniques, and more complex methods for determining compliance. There also may be
changes in how regulations are determined, such as health endpoints and acute and chronic health effects. In the past two
years, the Division has adopted revisions to significant drinking water regulations related to federal Long-Term 2 Enhanced
Surface Water Treatment Rule and Stage 2 Disinfectants/Disinfection By-Products Rule, and the Groundwater Rule. In the
coming year, the Division also will be required to adopt the Lead and Copper Rule revisions.
The following provides a summary of current and developing changes in drinking water quality management issues:
Backflow Prevention. The Division will be considering revisions to Article 12 of the Colorado Primary Drinking Water
Regulations in 2009. Article 12 governs the installation, maintenance, and annual testing of backflow prevention assem-
blies. Potential changes that could affect the City include: 1) greater inclusion of backflow prevention requirements during
a Sanitary Survey; 2) increased tracking and reporting by the Backflow Prevention Program; 3) inclusion of an educational
component to the Backflow Prevention Program; and 4) more accountability for annual testing/compliance and reporting.
Lead and Copper Rule. The Division will adopt short-term revisions in the rule-making process starting in 2009. Recent re-
visions to the Lead and Copper Rule enhance implementation of monitoring, treatment, and customer awareness. Particu-
lar changes could also require additional reporting requirements. The City is participating in the rule-making process.
Total Coliform Rule. Revisions to the Total Coliform Rule to be proposed by EPA in 2010 will apply treatment technique
concepts implemented in the Long Term 2 Enhanced Surface Water Treatment Rule to treatment and distribution system
operations. Detecting total coliforms as an indicator will trigger assessment requirements including action to correct sani-
tary defects. The Total Coliform Rule Distribution System Advisory Committee defined sanitary defects, for the purpose of
revising the rule, as: "a defect that could provide a pathway of entry for microbial contamination into the distribution sys-
tem or that is indicative of a failure or imminent failure in a barrier that is already in place." The Advisory Committee also
recommended additional research and information sharing about cross connections and backflow, contamination risk in-
volving storage and distribution design, operation and maintenance, biofilm and microbial growth and accumulation and
release of contaminants accumulated in distribution system scales and sediments.
Long-term 2 Enhanced Surface Water Treatment Rule. This rule targets additional protection from disease-causing mi-
croorganisms and contaminants that can form during the drinking water treatment process. Based on monitoring, the City
will be classified in one of four treatment categories (or bins). The bin classification determines whether treatment changes
may be needed to further reduce Cryptosporidium, a protozoan that can cause gastro-intestinal illness with diarrhea in hu-
mans. The City is currently responding to a Division request for additional information and will be submitting a bin classi-
fication in 2008.
Page 86 2009 Water Quality Strategic Plan
Stage 2 Disinfection/Disinfectant Byproduct Rule. This rule set a Maximum Contaminant Level Goal of zero for Cryp-
tosporidium and established treatment technique requirements for all public water suppliers. Additional treatment require-
ments will be based on Cryptosporidium occurrence in source water. The City's treatment requirements will be
determined in 2009 but is already meeting expected additional treatment and monitoring requirements under this rule.
Contaminant Candidate List and Unregulated Contaminant Monitoring Rules. These rules are a foundation for EPA's regu-
latory development process and are developed on a five-year cycle. The City will be conducting Unregulated Contami-
nant Monitoring 2009,
Presence of Invasive Species in Carter Lake Watershed. In 2008, Quagga and Zebra Mussels were detected in Colorado
reservoirs, including west slope reservoirs that feed Boulder Reservoir. The state of Colorado initiated an extensive moni-
toring and education program related to the invasive species. The City's Utilities, Parks and Recreation and Open Space
and Mountain Parks Departments have been developing responses to minimize the introduction of the species into Boul,
der Reservoir. The City also has as begun planning efforts to eliminate or limit the transport of mussels into Boulder Reser-
voir by boats. In addition, the City has initiated planning efforts to respond to potential impacts to infrastructure.
Emerging Contaminants. A 2008 Associated Press investigation, reporting that some major water providers across the
country have found trace amounts of pharmaceuticals in their water supplies, heightened public interest and raised the
question of what the City is doing to monitor pharmaceuticals in the drinking water. Sometimes referred to as emerging
contaminants of concern (FCCs), these microconstituents include endocrine disrupting compounds (EDCs), and pharma-
ceuticals and personal care products (PPCPs). ECCs represent a variety of compounds including prescription and over-the-
counter veterinary and human medicines, household and industrial cleaning products, herbicides and pesticides, and
intermediary manufacturing chemicals. ECCs can be synthetic or natural, such as estrogenic compounds produced by
plants like soy.
Recognizing the need to address potential health and environmental concerns, the City's WQES staff has done re-
search and followed developments in this new discipline. Boulder participates in the Consortium for Research and Educa-
tion on Emerging Contaminants (CREEC), an interagency organization. The City recently joined the American Water Works
Association Research Foundation (AWWARF) to take a more active role in research that will enable utilities to characterize
potential public health risks of ECCs and address them proactively. Over the past six years, the City has been involved in a
joint effort with CU and USGS in evaluating EDCs in Boulder Creek below the N 75th Street WWTF. The location of this
work is downstream of the City's drinking water sources.
CLIMATE CHANGE
One of the biggest factors impacting water quality is the modification of stream flows and groundwater levels. These modi-
fications are due in a large part to increased runoff from urban areas and to diversions and return flows from agricultural
and municipal water demands. This hydrologic modification of the natural stream system leaves little water in the creek to
provide dilution of pollutants, or to maintain habitat and the natural stream channel. These hydrologic conditions may be
further affected by climate change.
In a recent study completed by University of Colorado for the City's Water Resources Group, researchers predict drier
winters, wetter springs with an earlier mountain snow runoff period. These conditions could lead to depleted stream flows
in the winter, threatening aquatic life; and more frequent and severe flooding in the spring, which could lead to acceler-
ated stream bank erosion and degradation of aquatic and riparian habitat. Both conditions could lead to degraded water
quality.
2009 Water Quality Strategic Plan Page 87