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HomeMy WebLinkAbout6 - Boulder Reservoir Master Plan Update CITY OF BOULDER WATER RESOURCES ADVISORY BOARD AGENDA ITEM MEETING DATE: April 19, 2010 AGENDA TITLE: Boulder Reservoir Master Plan Update PRESENTERS: Michelle Wind, Drinking Water Program Supervisor Alice Guthrie, Recreation Superintendent Bret Linenfelser, Water Quality and Environmental Services Coordinator EXECUTIVE SUMMARY: In August 2009, staff presented an initial summary of the Boulder Reservoir Master Plan (BRMP) development process including a draft vision statement and goals. The Parks and Recreation Department is leading the BRMP development with assistance from Utilities Department staff and other City Departments. At the August 2009 WRAB meeting the role of the Utilities Department was discussed, which included advising WRAB, the Parks and Recreation Advisory Board (PRAB) and City Council on Utilities Department goals, policies and challenges that need to be addressed in the BRMP as they relate to recreational use and natural land management at the Boulder Reservoir. Utilities Department staff will present a status update on the BRMP focusing on water quality and water management related issues that will be considered in the BRMP. This Agenda Item is informational, and staff is not requesting a recommendation from WRAB. Staff will introduce draft policy options for water quality related issues that will be evaluated as part of the BRMP and request input and comment from WRAB. Specific items for discussion will include draft policy options for boating and general recreational activities, including swimming, at Boulder Reservoir. Future water quality monitoring to evaluate potential recreational impacts to Boulder Reservoir water quality will also be discussed. Recent public comments regarding water quality impacts on Boulder Reservoir from current recreational activities were addressed with City Council through the March 2, 2010 Weekly Information Packet (WIP). The WIP is provided in Attachment 1. On May 11, 2010, City Council will hold a study session on the policy options for the BRMP. Staff will analyze the options and conduct public outreach in June, then return to City Council on July 20 (tentative date) for direction on the preferred policy and management options for the plan. SUMMARY OF BOULDER RESERVOIR MASTER PLAN STATUS: The BRMP will establish management goals and objectives for the Parks and Recreation Department in the management of both land and water-related activities at the Boulder Reservoir, including Tom Watson Park and Coot Lake. These goals and objectives will guide long-term recreational activities and investment strategies at Boulder Reservoir. An interdepartmental BRMP team, led by the Parks and Recreation Department, has been developed which includes representatives from multiple City Departments, including the Utilities Department. WRAB Agenda Item, Page I The BRMP process includes the following three phases: Phase I: Vision, Goals and Key Challenges (completed) Phase II: Policy and Plan Options (in progress) Phase III: Draft and Final Master Plan (July -September 2010) The team completed Phase I in 2009 (Attachment 2). Phase II involves the development and analysis of alternatives for key elements of the plan. The preliminary management areas and uses are described in Attachment 3. In 2010 staff will perform an alternatives analysis for all options confirmed by City Council, which will include evaluating impacts on water resources, including water quality. Attachment 4 includes how staff proposes to evaluate the alternatives. Staff has recently drafted policy options as part of Phase II, and a specific policy related to water quality is boating and boating-related aquatic nuisance species (Attachment 5). Boating on Boulder Reservoir has drawn public attention due to noise and potential water quality impacts from motorized boats. Water quality impact concerns are related to fuel-related pollution to drinking water and direct impact to swimmers in Boulder Reservoir. In August 2009, a Boulder Reservoir user survey was conducted to solicit input from the public at the Reservoir and other facilities in the study area. The complete survey can be found on the City's website (www.bouldercolorado.gov/Boulder Reservoir/brmp/User Surve.pdf). Select responses related to water quality and water resource management included: ■ Rating of the reservoir water condition varied by the interview location of the users. A `very good' rating ranged from 25% of respondents at the south shore beach to 67% of respondents at Coot Lake/Tom Watson. For all locations, the condition of the water in the reservoir was rated as follows: (Very Good) 2 3 4 (Very Bad) Don't Know 30% 29% 22% 3% 2% 14% ■ Regarding conflicts observed (e.g., noise, traffic, boating), 5% of respondents identified pollution/water quality as a conflict. ■ 1% of respondents commented to `reduce oil from swimmers in water', and all these respondents were from the north shore area. The City Council received the survey information for the December 2009 study session when City Council provided feedback on the draft vision and goals. More detailed information on water quality testing was included in the March 2, 2010 WIP (Attachment 1). NEXT STEPS: Staff is requesting comment and input from the WRAB on the BRMP as it relates to water quality, including boating options to consider for Boulder Reservoir. Comments and input will be forwarded to PRAB and City Council for consideration at future meetings. WRAB Agenda Item, Page 2 Future public meetings include: ■ April 26, 2010 Parks and Recreation Advisory Board Study Session ■ May 11, 2010 City Council Study Session ■ July 20, 2010 City Council meeting ■ Sept. - Dec. 2010 Final acceptance of BRMP In the third quarter of 2010, staff will ask the WRAB to review a draft Boulder Reservoir Master Plan and consider a recommendation to City Council on acceptance of the final master plan. ATTACHMENTS: 1. City Council WIP (March 2, 2010) 2. Boulder Reservoir Master Plan Vision and Goals 3. Preliminary Management Areas 4. How Options Will Be Evaluated 5. Boating Policy Options WRAB Agenda Item, Page 3 ATTACHMENT 1 MARCH 2, 2010 CITY COUNCIL WEEKLY INFORMATION PACKET MEMORANDUM To: Mayor Osborne and City Council From: Jane Brautigam, City Manager Paul Fetherston, Deputy City Manager Maureen Rait, Executive Director of Public Works Ned Williams, Director of Public Works for Utilities Kirk Kincannon, CPRP, Director of Parks and Recreation Alice Guthrie, Recreation Superintendent, Parks and Recreation Bret Linenfelser, Water Quality Coordinator, Utilities Michelle Wind, Drinking Water Program Supervisor, Utilities Bev Johnson, Project Manager for the Boulder Reservoir Master Plan Date: March 2, 2010 Subject: Information Item: Update on the Boulder Reservoir Master Plan EXECUTIVE SUMMARY: The purpose of this memorandum is to provide information about water quality monitoring in Boulder Reservoir and an update on the Boulder Reservoir Master Plan Project schedule. Concerns have been expressed by the public about water quality impacts of motorized boating on the Boulder Reservoir. The primary water quality concerns associated with fuel-powered boating include the introduction of volatile organics (BTEX) from gasoline and polycyclic aromatic hydrocarbons (PAH) from oil into the raw water. Results of the city's water quality monitoring in 2009 showed no evidence that BTEX compounds are in the water supply, based on current analytical techniques and detection limits. The city will continue to monitor for BTEX compounds during the 2010 boating season. If BTEX compounds are detected, the city could consider modifying motorized boating activities on the reservoir to address the water quality issue. PAH compounds typically sink and would be found in reservoir sediment. The city, however, does not monitor the quality of the sediments for any PAH compounds due to sampling and analytical complications and the fact that there are very few two-cycle engines (primary source of PAH) in use on Boulder Reservoir. The city's recreational boating policy will be addressed in the Boulder Reservoir Master Plan and will include a protocol for water quality monitoring and a response plan in the case of fuel spills or detection of BTEX in the water. Staff has begun the second phase of the project which involves development and selection of options to address major policy areas including boating, event management, access, parking, circulation and trail use. The next public meeting on the master plan is scheduled for Wednesday, April 7, 2010 from 5:30 to 8:30 p.m. at the Calvary Bible Church, 3245 Kalmia Ave. The purpose of this meeting will be to gather input from the general public and reservoir stakeholders on the preliminary policy options. City Council will have the opportunity to discuss the policy options WRAB Agenda Item, Page 4 at a study session on Tuesday, May 11, 2010. Several additional public meetings (including board and council hearings) will be scheduled over the next seven months to allow the public to weigh in on the preferred options and the draft and final master plan. ANALYSIS: Concerns have been raised about the potential impacts of motorized boating on water quality and public health in the reservoir and the drinking water from the Boulder Reservoir Water Treatment Facility (BRWTF). Motorized boating has the potential to impact water quality by introducing fuel-related chemicals to the water in the reservoir. Specifically, the two primary water quality concerns associated with fuel-powered boating on the reservoir are: 1. Introduction of Benzene, Toluene, Ethyl Benzene and Xylene (BTEX) from gasoline. 2. Introduction of Polvcvclic Aromatic Hydrocarbons (PAHs) from oil. The Colorado Water Quality Control Commission establishes water quality standards for state surface waters to ensure water is suitable for beneficial uses (e.g., drinking water supply and recreation) and treated drinking water standards to enforce the standards set by the federal Safe Drinking Water Act (SDWA). Under the SDWA and State of Colorado Primary Drinking Water Regulations, BTEX compounds are regulated in drinking water but PAH compounds are not regulated. Under the SDWA, drinking water Maximum Contaminant Level (MCL) standards and goals were developed for BTEX. The city follows federal and state water quality standards for either BTEX or PAH compounds. MCL standards, goals, health concerns and analytical detection limits for BTEX compounds are listed in the table below. Method detection limits for the BTEX compounds are less than MCL and MCL goals except in the case of benzene. Cancer causing compounds like benzene always have an MCL goal of zero. State of Colorado Basic Standards and Methodologies for Surface Water also identifies standards for BTEX and 13 PAHs. The surface water standards include the MCLs and lower standards for fish consumption. BTEX Compound Drinking Water MCLs and Health Concerns MCL MCL Goal Surface Water Standard Method Compound (mg/L) (mg/L) for Water Supply and Fish Reporting 2 Health Concern Ingestions (mg/L) Limit (mg/L) Benzene 0.005 0.0 0.0022 0.0005 Cancer Ethyl Benzene 0.7 0.7 0.53 0.0005 Kidney and Liver function Kidney, Liver and Toluene 1.0 1.0 0.51 0.0005 Nervous System function Xylene 10.0 10.0 0.001 Nervous System function lower limit of cluantitation 2 mg/L = milligrams per liter concentration. The city's Department of Public Works - Utilities Division (Utilities) monitors Boulder Reservoir water quality to help inform the operation of the BRWTF and to evaluate potential impacts of recreation and other activities on or around Boulder Reservoir. Utilities monitors water quality on a monthly basis in the reservoir tributaries near the water treatment facility intake. Monitoring includes WRAB Agenda Item, Page 5 physical (e.g., temperature, oxygen, pH, clarity), chemical (e.g., nutrients, metals, alkalinity, organic carbon), and biological (e.g., E. coh, algae) components. This source water monitoring is not required or regulated. In addition, Utilities monitors finished drinking water for all constituents regulated under the Colorado Primary Drinking Water Regulations. In 2009, Boulder Reservoir water samples were collected for BTEX analysis prior to the boating season, before and after the 4th of July weekend and in September, just after the Labor Day weekend. Samples were collected just below the water surface at the following locations: 1) marina area; 2) above the water intake structure for the BRWTF; 3) raw water influent pipe to the BRWTF; and 4) finished (treated) water from the BRWTF. Results of the BTEX analyses were "non detectable" for all samples collected in 2009. This means the 2009 monitoring showed no evidence that BTEX compounds are in the water supply based on current approved analytical techniques and detection limits. The city will continue to monitor for BTEX compounds during the 2010 boating season. The cities of Fort Collins and Westminster monitor for BTEX in Horsetooth and Standley reservoirs and have detected these compounds, at times, where boats are launched. Neither Fort Collins or Westminster detect these compounds in the surface water above their reservoir intakes or in the raw water entering the treatment facility; so under normal boat operations, it is unlikely that Boulder would observe BTEX compounds in Boulder Reservoir above the treatment facility intake. BTEX compounds could be detected in Boulder Reservoir, most likely near the marina where boats launch and engines are started. BTEX compounds are volatile and evaporate when exposed to air. BTEX compounds also have a tendency to float, and the Boulder Reservoir water treatment intake near the reservoir bottom provides another barrier against these compounds entering the treatment facility. If BTEX compounds are detected, motor boat operations could be temporarily modified to determine the source, increase monitoring frequency, and to temporarily monitor treatment operations (e.g., shut down or change source). PAH can be introduced into the water from oil-burning two-cycle engine emission. PAH is considered to be a health concern because it is a known carcinogen. The U.S. Environmental Protection Agency has designated 16 PAH compounds as priority pollutants, but none of these compounds are regulated in drinking water. There is a tendency for PAH compounds to sink and accumulate in lake sediments. Currently, the city does not monitor the quality of Boulder Reservoir sediments for any regulated or unregulated PAH compounds due to sampling and laboratory analytical complications and the fact that there are very few two-cycle engines in use on Boulder Reservoir. All newer outboard motor boats are four- cycle engines and create less pollution than older two-cycle engines. NEXT STEPS: The next public meeting on the master plan is scheduled for Wednesday, April 7, 2010 from 5:30 to 8:30 p.m. at the Calvary Bible Church, 3245 Kalmia Ave. The purpose of this meeting will be to gather input from the general public and reservoir stakeholders on the preliminary policy options, including options for motorized boating policy. City Council will have the opportunity to discuss the policy options at a study session on Tuesday, May 11, 2010. Several additional public meetings (including board and council hearings) will be scheduled over the next seven months to allow the public to weigh in on the preferred options and the draft and final master plan. WRAB Agenda Item, Page 6 ATTACHMENT 2 BOULDER RESERVOIR MASTER PLAN VISION AND GOALS Vision for the Boulder Reservoir Area: Recognizing that the Boulder Reservoir is first and foremost a source of clean water and valuable natural resources, the community envisions a reservoir where high quality and appropriate recreation activities are managed and sustained in a manner consistent with preserving and enhancing the environment. Goals for the Boulder Reservoir Master Plan: 1. Balance multiple city goals in the sustainable development and use of the reservoir area including: • Waste reduction; • Carbon emissions reduction; • Water conservation; and • Reduction of single occupancy auto trips, encouragement of alternative transportation options and management of parking. 2. Provide for a range of high-quality recreational uses, events, facilities and services that support the local community. 3. Identify sensitive wildlife and plant species and protect, enhance and restore their natural habitat. 4. Develop and implement strategies and partnerships to reduce and manage the risks of aquatic nuisance species infestation. 5. Identify and minimize water pollutant sources from recreational uses. 6. Promote and support the safety of visitors to the reservoir area. 7. Develop and implement a business model for long-term sustainable management of the reservoir area, including the use of public/private partnerships. 8. Endeavor to be a good neighbor to adjacent properties. 9. Promote visitor and community awareness and stewardship of the reservoir through on- going education and outreach. 10. Ensure the security and maintenance of the facilities and infrastructure in the reservoir area. 11. Collaborate with other agencies and departments to effectively leverage resources to accomplish mutual goals. WRAB Agenda Item, Page 7 ATTACHMENT 3 BOULDER RESERVOIR MASTER PLAN PROJECT PRELIMINARY MANAGEMENT AREAS What are Management Areas? Management areas are land use categories that identify key objectives and permitted uses for different areas around the reservoir. They are based on the physical opportunities and constraints of the study area. The primary purposes of a management area approach are to create: 1) a common understanding of the priority uses and management objectives for each area around the reservoir, and 2) a framework for developing and prioritizing strategies for facility improvements and service delivery. What is Passive Recreation? Passive recreation is defined as non-motorized activities that: • Offer constructive, restorative, and pleasurable human benefits that foster an appreciation and understanding of the natural environment and its purposes • Do not significantly impact natural, cultural, scientific or scenic values of the land • Require only minimal facilities and services directly related to safety and minimizing passive recreational impacts Examples of passive recreational uses include hiking, dog-walking, bird watching, bicycling (non-motorized), and horseback riding What is Active Recreation? Active recreation is defined as activities that require infrastructure or built facilities, or do not fit the criteria for passive recreation. Examples of active recreational uses include boating, softball, tennis, and volleyball. WRAB Agenda Item, Page 8 t~ Open Space and Mountain Parks IVI Open Space and Mountain Parks 1B Coot Lake I t hOr ~ T m Watsbn~~ l Park I North Dam ' Boulder Reservoir r .West Shore 6Zrg St. ter Treatnient t 3 } Facility South South 1Sh~' t Danz r i kSub.ivisian. _ 13 * UICCG~ South Shore - Active Use Area Management Emphasis: • Provision of high quality facilities and services to support a diversity of water and land based recreational uses • Provision of facilities and services for large and small, public and private organized events, outdoor entertainment, recreational programs and camps. • Management of aquatic nuisance species inspection program Recreational Uses: Picnicking, swimming, motorized and non-motorized boating, running, biking, special events, programs and camps, skydive landing, fishing, commuter bike route, volleyball courts, food concessions, public restrooms, playground, horseshoes, group shelter, ropes course, boat inspection and boat storage, and outdoor performance venues. North Shore/Coot Lake - Passive Use Area Management Emphasis: • Balancing increasing levels of passive recreational use with wildlife habitat and resource protection • Maintenance and enhancement of trails, trailheads and other facilities to support passive recreational use and adjacent multi-use trail system connections • Protection and enhancement of sensitive wetland areas WRAB Agenda Item, Page 9 Passive Recreational Uses: Hiking, running, biking, horseback riding, dog walking, wildlife viewing, picnicking, public restrooms, fishing and access to a potential Lyons-to-Boulder regional trail system North and South Dams - Limited Use Area Management Emphasis: • Provision of a pedestrian and bicycle link between the north and south shores • Support for the security of the water utility and fire training facilities • Management of access to the South Shore recreational facilities • Road access for permitted special events • Protection and enhancement of wildlife and wetland habitat areas Recreational Uses: Pedestrian and bicycle trail connection, fishing and wildlife viewing West Shore - Habitat Conservation Area Management Emphasis: • Protection, enhancement and restoration of wetland, grassland and aquatic habitat areas and functioning ecological systems • Protection of nesting areas for bird species of concern • Protection of drainage areas to minimize water pollutant sources Recreational Uses: Wildlife viewing, fishing and aeromodelling Tom Watson Park - Active Use Area Management emphasis: • Provision of high quality facilities and services to support active and passive recreational uses. • Management of wetland and prairie dog habitat Uses: Softball, volleyball, tennis, hiking, bicycling, picnicking, group shelter, basketball, pottery kiln, playground, handball, parking, group and special events, public restrooms, storage building and prairie dog conservation VVRAB Agenda Item, Page 10 ATTACHMENT 4 HOW STAFF PROPOSE TO EVALUATE OPTIONS 1. How does each option help to achieve the city's environmental, economic and social sustainability goals? 2. How does each option help to achieve the vision and goals for Boulder Reservoir Area? 3. What are the impacts to capital facilities and infrastructure of each option? (relative to capital needs identified or planned under current master plans)? 4. What are the services or operating needs resulting from each option? 5. What additional facilities and services would be needed to meet current service standards under each option? 6. What would the cost of those added facilities and services be and would current revenue sources adequately pay for those facilities? 7. What are the impacts to other existing or planned services (transportation, utilities, police, fire, open space, etc.)? WRAB Agenda Item, Page I I ATTACHMENT 5 BOULDER RESERVOIR MASTER PLAN PROJECT BOATING POLICY OPTIONS Objectives for Boating Policy • Provide for a diversity of water-based recreational activities • Balance water quality protection with boating opportunities • Reduce risk of Aquatic Nuisance Species (ANS) infestation • Manage visitor conflicts and ensure safety of all visitors on the water • Protect sensitive aquatic and wetland habitat areas Strategies to Meet Objectives • Limit types of watercraft and engines allowed • Limit number of boats on the water at any one time • Balance "no-wake" and "wake allowed" time periods and locations • Control watercraft access Option 1: Status Quo No limitation on engine size Current "No Wake" periods: o Tuesdays, 5:30 am - 10:00 am (city adaptive ski programs) o Wednesdays, 5:30 am - 9:00 am o Thursdays, 5:30 pm - 9:00 pm Limitations on number of motor boats on the water at any one time at discretion of staff based on: o Safety o Weather o Programming or other events taking place Option 2: Limitations Limitation on engine size: Maximum 500 hp Limitation on number of watercraft on water at one time: Maximum 20* - Class I watercraft (No limitation on all other watercraft) *roughly equivalent to one boat/ 15 ac of surface water Limitation on size and type of watercraft allowed: Class A and Class I watercraft only Motorized Personal Watercraft prohibited - except Lake Patrol and City programs - current permits grandfathered in WRAB Agenda Item, Page 12 Additional "No-Wake" periods added to current Expanded "No-Wake" zone into jet ski cove Option 3: Prohibitions Either: • All watercraft or • Fuel-powered watercraft only Under All Options... • No refueling on the water • No watercraft launching from the North Shore • No watercraft in Coot Lake (including belly boats) • Water quality monitoring thresholds • Phase out of two-stroke engines that do not meet current EPA exhaust emission standards (Two-stroke engines that meet EPA standards would be permitted) • "Jet Ski Cove" eliminated and "No Wake" area at Dry Creek inlet expanded WRAB Agenda Item, Page 13