Delta Region Drinking Water Quality Management Plan
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DELTA REGION DRINKING WATER QUALITY MANAGEMENT PLAN DRAFT FINAL June 2005 Funding for this project was made possible by a CALFED Grant through the Drinking Water Quality Program This document was funded by the CALFED Water Quality Program as an initial effort to create Regional “Equivalent Level of Public Health Protection” Plans and to assist in establishing a uniform framework in such planning. It is not intended to be a final document. California Bay-Delta Authority and CALFED WQP Implementing Agency staff have not had the opportunity to review and comment on this document, and any opinions or interpretations of the CALFED program expressed within the document are solely those of its authors. The CALFED WQP is committed to working with these and other parties to continue development and refinement of Regional Plans. EXECUTIVE SUMMARY In 2004, the CALFED Bay-Delta Program (CALFED) commissioned a pilot program for development of regional drinking water quality management plans (i) to identify the drinking water quality issues and needs of drinking water agencies in different regions of California and (ii) to develop solutions to address those needs. This Delta Region Drinking Water Quality Management Plan (DRDWQMP) was developed jointly by Contra Costa Water District (CCWD), the city of Stockton (COS), and Solano County Water Agency (SCWA). Figure ES-1 shows the Sacramento-San Joaquin Delta (Delta) region, with an outline representing Delta boundaries as defined in California Water Code Section 12220, along with the service areas of the three participating agencies. These three agencies represent the largest urban water users within the Delta region. The objectives of the DRDWQMP include understanding existing water quality conditions (and anticipated future water quality conditions absent proactive actions) at the urban intakes within the Delta, identifying challenges and issues confronting agencies diverting water from the Delta, and developing projects and programs at the local, regional, and statewide level to address these issues and to ensure that in-Delta agencies can meet their water quality goals in the future. Bromide and salinity concentrations in central and south Delta in the fall, which decreased from the mid-1940s to the 1970s, increased appreciably over the past two decades (see Figure ES-2). The fall is when Delta outflows are lowest and salinities are highest. Organic carbon concentrations in the interior Delta remain high and have not shown a significant degradation or improvement. Runoff from the Barker Slough watershed continues to result in high organic carbon and turbidity at SCWA’s in-Delta intake. The decline in Delta water quality has negatively impacted agencies that divert water from the Delta for drinking water purposes. Evidence points to the risk of additional Delta water quality degradation in the future. The majority of the adverse impacts on Delta water quality and the in-Delta diverters are the result of actions by others, outside the control of in-Delta diverters. Population increase, global warming, and the risk of more frequent levee failures will likely continue this degradation trend unless actions are taken. At the same time, the prospect of new operational constraints to protect fish and more stringent drinking water regulations in the future are additional major challenges facing in-Delta drinking water providers. A number of projects and programs are being developed, or are in place, to address Delta water quality degradation at the statewide level through CALFED, and through local and regional projects, such as those discussed in this DRDWQMP. Draft Final ES-1 June 2005 Delta Region Drinking Water Executive Summary Quality Management Plan Figure ES-1 Sacramento-San Joaquin Delta Boundary and Boundaries of Delta Region Drinking Water Quality Management Plan Participating Agencies June 2005 ES-2 Draft Final Delta Region Drinking Water Quality Management Plan Executive Summary 300 Dry Years Wet Years 250 Severe 1977 Drought Long-Term Average 200 150 100 Rock Slough Chlorides (mg/L) Very Wet El Nino Years 50 0 1944 1949 1954 1959 1964 1969 1974 1979 1984 1989 1994 1999 2004 Year Figure ES-2 Fall Chloride Concentration in Rock Slough, 1944 to 2004 Over the last two decades, wet year salinities have been higher in the fall than those experienced during the drier 1960s and 1970s. CALFED BAY-DELTA PROGRAM CALFED has prepared a long-term comprehensive plan that will restore ecological health and improve water quality and water supply for beneficial uses of the San Francisco Bay/Sacramento-San Joaquin Delta system. The August 2000 CALFED programmatic Record of Decision (ROD) identified 11 “action plans.” Some of the action plans will improve drinking water quality for users of Delta water; however, other actions (e.g., wetlands restoration projects and projects to increase exports from the Delta) have the potential to negatively impact Delta water quality. Draft Final ES-3 June 2005 Delta Region Drinking Water Executive Summary Quality Management Plan CALFED WATER QUALITY PROGRAM The specific target of the CALFED Water Quality Program (WQP) is to provide safe, reliable, and affordable drinking water in a cost-effective way by achieving either of the following: a) Average concentrations at Clifton Court Forebay and other central and south Delta drinking water intakes of 50 micrograms per liter (Pg/L) bromide and 3.0 milligrams per liter (mg/L) total organic carbon (TOC), or b) An equivalent level of public health protection (ELPH) using cost-effective combinations of alternative source waters, source control, and treatment technologies (August 28, 2000, CALFED ROD, page 65) The WQP is investing in projects and programs to continuously improve water quality for the more than 23 million Californians who rely on the Delta for their drinking water supply. “EQUIVALENT LEVEL OF PUBLIC HEALTH” (ELPH) MODEL In 2002, the CALFED Bay-Delta Advisory Committee, Drinking Water Subcommittee, developed a framework for drinking water quality management: the “Equivalent Level of Public Health Protection Decision Tree.”1 The ELPH model is a conceptual model of the multibarrier approach needed to fully ensure that the state’s drinking water and public health are protected, and is being used to guide implementation of the CALFED WQP. The ELPH model provides a conceptual representation of the relationships between various water management operations, reduction of contaminant discharges into the Delta and its tributaries, and changes in source water quality to the Delta. The ELPH model, applied at the local, regional, and statewide level, is an excellent tool for identifying potential water management operations to improve Delta water quality and for developing strategies for implementing those operations (including the appropriate role of local, state, and federal agencies). The ELPH model implicitly recognizes that water quality objectives in source waters and water quality regulations protecting consumers are dynamic, and are best met with flexible plans that consider the entire drinking water system from source to tap. The DRDWQMP uses an “in-Delta” version of the ELPH conceptual model to present water quality solutions for the Delta urban agencies (see Figure ES-3). 1 http://calwater.ca.gov/BDPAC/Subcommittees/DrinkingWaterQualitySubcommittee.shtml June 2005 ES-4 Draft Final Delta Region Drinking Water Quality Management Plan Executive Summary Figure ES-3 CALFED Equivalent Level of Public Health Model Adapted to Delta Region POTENTIAL PROJECTS AND PROGRAMS Strategies are currently being implemented or considered locally, regionally, and statewide that would address the challenges and issues presented by the impacts on Delta water quality. DRDWQMP participating agencies, CCWD, City of Stockton Municipal Utility District (COSMUD), and SCWA, have identified potential projects and programs to improve and protect Delta water supplies and to improve the drinking water quality delivered to their customers. Projects, programs, and operational changes currently under consideration that have the potential to improve Delta water quality and/or the quality of water diverted from the Delta for drinking water purposes are presented and discussed below within the construct of the ELPH model developed by CALFED (see Figure ES- 4). Draft Final ES-5 June 2005 Delta Region Drinking Water Executive Summary Quality Management Plan Figure ES-4 Potential Projects and Programs of Delta M&I Water Users in the Equivalent Level of Public Health Model Analysis of existing water quality conditions indicated that CCWD’s primary water quality issue is high bromide concentrations at its Delta intakes. Organic carbon concentrations are generally higher than the CALFED target of 3.0 mg/L, but are currently manageable. CCWD is developing several major projects and programs to protect its future water quality needs and to improve the drinking water quality delivered to its customers: x An “Alternative Intake Project” to evaluate other points of diversion from the Delta for the purpose of improving water quality (both for direct delivery and storage in Los Vaqueros Reservoir for later blending to improve delivered water quality). The new intake will, at times, have lower bromide concentrations than CCWD’s existing intakes, which will help CCWD meet anticipated future drinking water regulations. x Encasement of the Contra Costa Canal to improve source water quality delivered to the Bollman and Randall-Bold water treatment plants (WTPs). This