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Memorandum
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
1 Project Purpose and Background
The City of Edina (City) engaged Barr Engineering Co. (Barr) to assist in developing a Clean Water
Strategy to guide and align the implementation of clean water services within the city. The overall effort of
developing this Clean Water Strategy was split into multiple phases. Phase I of the project, completed in
June of 2022, was focused on defining the city’s current “State of Clean Water.” This included an analysis
of the city’s previously identified goals and expectations for its water management program versus what it
was accomplishing. Results from Phase I showed that while the City of Edina places a high value on the
management of its water resources and has numerous plans, policies, and programs in place to support
their protection, water quality within these resources remains poor. Recommendations from Phase I
included a reprioritization and further definition of the city’s clean water services goals.
Within Phase II of the project, the city asked Barr to assist with the development of a new vision and
guiding principles for the delivery of clean water services within the City of Edina. The updated vision
statement would 1) clarify where the city is focused with the clean water services that it provides, 2)
reflect the values of the City of Edina as a whole, and 3) help provide direction to staff for developing and
prioritizing future clean water activities. The guiding principles would evolve into a series of clean water
value and goal statements to provide additional details. As part of Phase II, a priority waterbody list was
also created to help inform staff and guide the strategic investment of city resources toward advancing
the new clean water vision. City staff also identified a list of priority pollutants that would be the city’s top
priority within its programs.
2 Developing a Vision for Clean Water
2.1 Draft Vision Statements, Values, and Goals
As an initial step in Phase II, Barr worked with the city to develop a draft vision statement and guiding
principles for clean water through an iterative process. Barr and city staff began by considering the
following questions:
• What is clean water?
• Why is clean water important?
• What is the difference between clean and turbid water in a shallow lake?
• How do shallow lakes function and respond in an urban setting?
Discussions focused on understanding the current services that the city provides, how city staff perform
their work, the beneficial uses and functions of Edina’s water resources, and the desired future resource
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
Page: 2
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conditions. Barr and city staff considered how to define “clean” water to varying audiences and its
relationship to services provided by the city.
The visioning process worked backward towards refining an overarching Clean Water Strategy vision by
first developing a set of clean water value and goal statements. These values and goal statements align
the city’s clean water objectives with existing city goals, regulatory requirements for water resource
management, previous input received from the community, and prior input from city partners. The values
and goals clarify what “clean water” means to the City of Edina, what primary beneficial uses the city
supports within its waterbodies, and how the city will perform its clean water services, emphasizing
innovation. The clean water values and goals were also developed to be consistent with the city’s existing
organizational values (stewardship, equity, health, sustainability) and budget pillars:
Figure 1 City of Edina Budget Pillars (Source: City of Edina 2024-2025 Budget)
The draft clean water value and goal statements were completed in the spring of 2023. Throughout that
summer, city staff shared these drafts with a variety of project stakeholders, as described in Section 3.
Staff provided an update on the Clean Water Strategy effort and associated policy objectives to the City
Council at their August 15, 2023, work session (see Section 3.3). Feedback received throughout the
stakeholder process was considered and used to inform minor updates to the values and goal
statements. The final version of the values and supporting goals follow:
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
Page: 3
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Ecosystems are in a healthy equilibrium; water is clear, and environmental benefits are
sustained.
• Water clarity improves as people use water-friendly practices.
• Water is safe for human contact.
• Waters support native plants, insects, and animals consistent with an urban setting.
• Shorelines are stable and provide shelter for wildlife consistent with urban lands.
City actions align to do the most good towards measurable, desirable, clean water outcomes
leveraging creativity and innovation.
• The city uses an iterative “build, test, learn” model to make progress.
• The city uses a systems approach in its implementation to consider cumulative benefits.
• The city performs active management to improve or maintain water clarity and chemistry at
levels appropriate for urban waters.
• Pollution is managed towards achieving water resource conditions that meet standards and
support community uses.
• In-lake management practices are applied toward achieving conditions that meet standards
and support community uses.
• Clean water goals are pursued with consideration for multiple benefits and available
resources.
People are connected to the land and water in reciprocity, both caring for nature and enjoying
the benefits of a healthy environment.
• People access and interpret knowledge and guidance on urban clean water goals and
behaviors that promote them.
• People pursue activities that promote clean water and natural resource stewardship.
• Waters are restored or maintained in conditions allowing for beneficial uses.
All people have access to water and the cultural values and environmental benefits they
provide.
• Clean water actions prioritize waters with public access.
• Clean water strategies recognize the diverse ways people value and experience the city’s
waters.
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
Page: 4
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Following stakeholder input and based on the values and goals identified above, city staff developed a
clean water vision statement describing the desired condition of the city’s waterbodies and high-level
strategies the city will use to achieve those conditions. City staff presented the draft vision statement to
the City Council in March before finalizing the vision statement in April 2024 (see Section 4.1).
2.2 Priority Waterbodies
As part of this effort, city staff also sought to revise the existing approach to prioritizing waterbodies within
the City of Edina (for city services). The previous prioritization (included in the city’s 2018 Comprehensive
Water Resources Management Plan) was designed to assist city staff in responding to resident requests
for aquatic vegetation management services and focused only on the city’s lakes.
The updated waterbody prioritization framework was modified to include creeks and consider additional
waterbody and watershed characteristics as well as equity and engagement. The city will use the revised
prioritization framework to inform the targeting and implementation of clean water services. Examples of
services targeted using the prioritization framework may include, but are not limited to:
• Enhanced street sweeping
• Waterbody monitoring
• Lake, pond, or wetland sediment phosphorus sequestration treatments
• Placement of stormwater management infrastructure
• Vegetation management
As a first step in developing the priority waterbody list, Barr reviewed other recent similar and/or related
efforts, including:
• The Metropolitan Council’s 2022 Priority Waterbody List (Met Council, 2022)
• The City of Edina Aquatic Vegetation Services Request Lake Prioritization (City of Edina, 2018)
• The Lower Mississippi River Watershed Management Organization Watershed Management Plan
(LMRWMO, 2023)
Barr developed a list of potential prioritization factors related to in-lake or in-stream conditions, physical
characteristics, and public use and access considerations. A technical advisory panel (TAP, see Section
3.1) provided input on an early iteration of potential prioritization factors and considerations for scoring
(see Table 1). Barr revised the draft prioritization criteria based on TAP input and defined draft scoring
criteria for each, resulting in a score of 0 to 1 for each factor for each waterbody. The total priority score
for each assessed waterbody was calculated as the sum of the individual factor scores. Waterbodies
were then grouped into priority tiers based on total score.
Barr and city staff went through several iterations of refining the prioritization factors, scoring criteria, and
resulting tiers. The various iterations of defining tiers for the priority waterbodies considered city resources
and capacity and the city’s stated clean water values and goals (see Section 2.1). The city shared an
early iteration of waterbody prioritization factors and results during community meetings and via a project
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
Page: 5
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webpage over the summer of 2023 (see Section 3.2 and Attachments A and B). Feedback received on
the draft prioritization was considered in future iterations. Section 4.2 presents the final waterbody
prioritization factors, scoring criteria, and tiers determined by the city.
Barr and the city applied the prioritization framework to 22 waterbodies, including those that ranked
highest within the 2018 prioritization, plus Minnehaha Creek and Nine Mile Creek (North Fork and South
Fork). The prioritization process is applied only to natural waterbodies and does not include constructed
systems (e.g., Centennial Lakes).
Table 1 Early Draft of Potential Waterbody Prioritization Factors Presented to the Technical Advisory Panel
Criteria
Category
Potential Prioritization Criteria/Factors
Green shading = likely criterion
No shading = possible criterion
Draft Considerations for Scoring In-Resource Conditions Use Attainability Analysis (UAA) or similar study
complete, including water quality analysis Has a water quality study been completed?
Poor water chemistry
Does the lake exceed applicable standards for
eutrophication, chloride, or other pollutants? If so,
how frequently and by what magnitude?
Impairment status (as listed by the Minnesota
Pollution Control Agency [MPCA]) Is the lake on the MPCA's impaired waters list?
Harmful algal blooms (HABs)
Have HABs been confirmed and/or "no swim"
signage posted? Have indicators of HABs been
observed?
Aquatic invasive species (AIS) of plants or fish Are AIS fish or plants that impact water quality
present (i.e., curlyleaf pondweed, rough fish)? Physical/Geographic Lake size (or stream length for streams) Is the lake larger than a threshold value of 10
acres?
Watershed size How large is the tributary area to the waterbody
(direct and/or total drainage area)?
Managed outlet Does the waterbody have a pumped outlet versus
a passive outlet or no outlet?
Public access and use
Are there parks, trails, or public spaces adjacent
to the waterbody? Is the shoreline privately
owned?
Watershed impervious cover What is the percent impervious area of the direct
watershed draining to the waterbody?
Location relative to vulnerable drinking water
supply management areas (DWSMAs)
Is the waterbody located above DWSMAs of a
minimum vulnerability? Use/Access Opportunities for outreach and engagement/
community service
Does the waterbody have public access or
adjacent public land use? Is there a lake
association or similar organization?
Location relative to areas of concentrated poverty
(ACP) (based on data from the Metropolitan
Council)
Is the waterbody located within or near an ACP?
Is the waterbody located within or near
underserved communities (as identified by other
tools/metrics)?
Proximity to transportation corridors How accessible is the waterbody by public transit?
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
Page: 6
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3 Stakeholder Outreach and Engagement
A critical component of developing Edina’s Clean Water Strategy vision, values, and goals was to engage
with and incorporate feedback from a variety of stakeholders who have an interest in and are impacted by
the protection and improvement of waters within the city. Key stakeholder groups identified to include in
this process included a TAP (including watershed district and adjacent city and regional government
staff), elected officials, lake associations, and the general public.
To help guide this component of the work, city staff developed a Public Participation Plan, which was
presented to and approved by the City Council in December 2022. Figure 2 shows the approved public
participation process for Phase II, which was designed to align with the public engagement level of
“involve” (International Association of Public Participation (IAPP), 2007). IAPP defines the goal for the
“involve” level of engagement as working with the public throughout the engagement process to ensure
that public concerns and aspirations are consistently understood and considered. A copy of the approved
Public Participation Plan is included as an attachment to this memo.
Figure 2 Clean Water Strategy – Phase II Public Participation Process (Source: City of Edina Approved
Public Participation Plan, see Attachment A)
3.1 Technical Advisory Panel
As an early step, the city convened a panel of representatives from other local and regional public
agencies to review and provide input on their initial draft Clean Water Strategy vision, goals, and
concepts for advancing clean water within the City of Edina. The TAP was convened on April 11, 2023. It
consisted of representatives from the City of Plymouth, Minnehaha Creek Watershed District, Nine Mile
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
Page: 7
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Creek Watershed District, and the Metropolitan Council Environmental Services Division. Technical
experts from Barr were also included on the panel.
City staff provided background and an introduction to the Clean Water Strategy effort. They described the
city’s goals of developing a strategy that will help to better align its approach to providing clean water
services with traditional asset management principles. Using these principles, public assets are
assessed, prioritized, and managed using a risk-based approach. This approach includes establishing an
expected level of service for the city’s waterbodies and identifying the consequences of failure to meet
those goals.
City staff presented an initial draft of the proposed clean water values, goals, and desired level of service
for the city’s waterbodies. They made clear that the intent of the values and goals was to be focused on
natural waterbodies and not constructed systems (i.e., engineered stormwater ponds nor
engineered/managed waterbodies such as Centennial Lakes). A first draft of a proposed waterbody
prioritization framework and a list of priority pollutants were also shared.
TAP members were asked to provide feedback on the proposed drafts and were asked to consider the
following questions:
• What are you hearing in your communities/organizations about what people value when it comes
to water resources?
• What do people in your communities expect for service? How do you deliver that service?
• What is working and not working in your communities/organizations?
• How do the criteria and considerations [within the waterbody prioritization framework] align or
differ from those that your organization uses for prioritization?
• How have you weighted your criteria for prioritization?
• What strengths or weaknesses do you see in using this [prioritization] approach? Anything you
think we’re missing?
Key feedback received from the TAP members included:
• Be clear on the city’s expectations and goals for the resources and systems that it’s managing.
o The city can help educate residents on what these resources and systems are and what
a healthy urban shallow lake should look like. It’s important to distinguish between natural
and engineered systems, as the public may not be aware of the differences.
o Clearly identify expected uses. This can inform how the city will be prioritizing and
managing its resources.
• Have clear documentation and policies to help guide implementation. This can be vital in helping
the community understand why certain actions are or are not being taken and/or allowed.
• Draft waterbody prioritization categories are good; they are similar to what other organizations are
using. Getting community input on what the public sees as the most important and highest priority
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
Page: 8
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uses for their waterbodies is important. Use that feedback to help inform the prioritization and
weighting of various factors.
o Review other equity datasets for the waterbody prioritization (Metropolitan Council,
MPCA, and Nine Mile Creek Watershed District all have data) and consider how Edina’s
approach and outcomes align with those.
o Consider incorporating “restorability” into the prioritization. This may allow the city to put
resources toward a waterbody that might otherwise be a lower priority but can be more
easily restored.
3.2 General Public Engagement Activities
Public engagement activities included a series of community meetings held during the summer of 2023,
the development and hosting of a project webpage on the city’s online engagement platform, “Better
Together Edina,” and sending postcards with information on how to learn more to just over 800 riparian
residential properties as well as just over 1,600 non-riparian, randomly selected Edina residences. The
project webpage included information on the project background, updates, and current activities;
educational materials on Edina’s waterbodies and common lake management topics; and links to past
City Council presentations and actions related to the effort. City staff provided regular updates to the
webpage and monitored feedback provided through the “review and comments” section.
In addition to online opportunities to review and comment, four community engagement meetings were
held in late June 2023 to share information related to the CWS effort, answer questions, and gather
community input. The community meetings were all identical in content. They were held at different
locations and at varying times of the day to attract and gain input from as many people as possible.
Meeting locations and times are noted below.
Summer 2023 Clean Water Strategy Community Meetings:
• June 25, 3–5 PM, Walnut Ridge Park Shelter Building
• June 26, 10 AM–12 PM, Rosland Park Pavilion
• June 27, 6–8 PM, Arden Park Shelter Building
• June 29, 4–6 PM, Braemar Golf Course
The community engagement events were hosted using an open-house format, with different information
presented at three separate stations within each venue. Participants were encouraged to freely move
among topics to learn more about the CWS effort and the city’s current clean water services. Information
was also available on the background, current condition, and historical management of several of Edina’s
most popular waterbodies. Each station was staffed by a representative from either the City of Edina or
Barr to present draft results from the CWS effort and gather input. The three stations were as follows:
Station Focus Areas:
• Station #1: Why is the City Developing a Clean Water Strategy? Sharing of the Draft Clean Water
Strategy Vision and Guiding Principles
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
Page: 9
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• Station #2: Draft (updated) Priority Waterbody List
• Station #3: City of Edina Clean Water Services—Principles for Delivery
The draft Clean Water Strategy vision, goals, and a draft of the waterbody prioritization were shared at
the stations. Copies of the public engagement posters created for the event are included as an
attachment to this memorandum. City staff also had handouts of the lake summary sheets and clean
water fact sheets developed in Phase I at each of the events.
City staff prepared a community engagement report to document input and feedback heard throughout
the community engagement process. Key takeaways and themes from that report are noted below:
• People value wildlife, health (of the waterbody), safety and wellness for people, all are able to
access for enjoyment, beauty, open water views, stewardship, and legacy. Non-motorized
boating was mentioned occasionally.
• Concern about aquatic plant type and density. Most were about visual appearance of plants, and
many were negative. We heard people describe aquatic plants as “choking” lakes and ponds. We
heard a concern for algae (green, filamentous), cyanobacteria (often given the misnomer blue-
green algae), curlyleaf pondweed, purple loosestrife, lilypads, cattails, and duckweed.
• Concern about waterbody depth. People were concerned about lakes filling in with sediment and
getting shallower over time.
• Suggestions that the city should take a systems approach. The City should incorporate the
connectedness of waterbodies when establishing priority waterbodies.
• Curiosity about what detailed management actions within various levels of service will look like
including what the level of service is for stormwater ponds.
• Governance
o Emphasize transparency (including with regard to priorities, tradeoffs).
o The policies and programs should be outcome-based.
o Measure and report on performance.
o The strategy should be adequately funded.
• Strategy
o Apply a one-water lens. Think about water conservation, protecting aquifers, connections
to stormwater management, and flood risk reduction.
o Consider connections to land and how development and restoration of land impacts
water resources and soil health.
o Use technology and data in decision making.
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
Page: 10
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• Execution
o Strive for excellence in execution, for example, with erosion and sediment control
programs.
o Apply asset management principles. Define levels of service, costs, risks, and tradeoffs.
• Engagement
o People want to know how lake associations will be considered with the strategy.
o People want to know what they can do, what others can do, what opportunities are
available, how to navigate other agencies and make sense of water resources
governance. Requests and ideas for more communication, information, technical support,
and engagement.
3.3 City Council Meetings and Work Sessions
Updates and policy discussions on the development of the Clean Water Strategy were brought to City
Council on numerous occasions throughout the Phase I and Phase II efforts. Project updates in late 2022
provided the Council with the city’s history and focus on developing a clean water strategy. Updates also
provided background on the status of Edina’s waterbodies and information on Phase I of the Clean Water
Strategy work. The Council provided input and approvals on a proposed approach as staff embarked on
work related to Phase II.
Throughout 2023, staff presented draft results from the Phase II effort and requested Council input on the
draft proposed vision, values, goals, priority pollutants, and priority waterbodies list as they were being
developed.
A list of City Council presentations and touch points from this portion of the work is noted below.
CWS Phase II City Council Meetings and Work Sessions:
• August and December 2022: City Council work session update and policy development guidance
• May 2023: Preview to City Council on vision, values, goals, priorities, and engagement process
• August 2023: City Council work session to discuss policy options
• March 2024: City Council meeting response to August 2023 work session and preview
recommendation for vision, values, and goals
• April 2024: City Council approval of Clean Water Strategy vision, values, and goals
Throughout the Council engagement process, staff heard:
• Strong support for the vision and goals.
• A desire to see progress toward clean water and be proud of what Edina has for water resources.
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
Page: 11
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• Prioritization of health as a strong theme—both in terms of protecting against exposure to harmful
algal blooms and, more generally, access to nature and supporting positive mental health.
• An interest in learning more about the details (budget, time horizons, outcomes) and
accountability measures.
• Support for prioritizing waterbodies and focusing actions.
• An agreement that city actions should be aligned with the vision. Actions need to be specific and
justified with the desired value/goal.
• A desire for the city to engage residents to help do their part and to provide resources for people,
particularly for those who want to take action in areas that aren’t city priorities.
• A desire for more information about the land management program and its crossover with clean
water.
The final Clean Water Strategy vision, values, and goals were presented and approved by the City
Council in the spring of 2024.
4 Final Clean Water Strategy Elements
4.1 Clean Water Vision
The following clean water vision statement was developed as a result of the process described in Section
2.1 and feedback collected from the TAP, City Council, and public stakeholder groups (as described in
Section 3). The final vision statement describes the city’s desired condition for its natural waterbodies and
lists the high-level strategies through which this desired condition will be pursued.
The final vision statement reflects an intent to protect the ecological health of Edina’s waterbodies as well
as the beneficial uses that these waterbodies provide to the community. Achieving both objectives in
shallow lake ecosystems, particularly in urban settings, is challenging (as evaluated in Phase 1 of this
project). The city’s final Clean Water Strategy vision statement is intended to be aspirational and serve as
a guiding post for a long-term strategy toward continued improvement in the health of Edina’s waters.
Edina’s waterbodies are in a healthy ecosystem equilibrium, where waters are clear, safe, and
accessible.
Prevent pollution: We control pollutants at their source and help people do their part.
Mitigate pollution: We build, operate, and maintain infrastructure and take actions to capture and
remove pollutants.
Protect and restore ecological processes: We protect and restore natural ecosystems on land and
in water.
The final clean water values and goals to support this vision are shown in Section 2.1.
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
Page: 12
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4.2 Priority Pollutants and Waterbodies
A final priority waterbody list and list of priority pollutants was established by city staff. The final factors
and scoring criteria for those waters within the priority waterbodies list are shown in Table 2. The final
ranking of city waterbodies is noted in Table 3.
Table 2 Waterbody Prioritization Factors and Criteria
Category Factor Criteria and Associated Scoring In-resource Factors In-lake/in-stream water quality
1/3 = no data
2/3 = eutrophic
1 = very eutrophic
Impairment status 0 = not listed as impaired
1 = listed as impaired
Harmful algal blooms 0 = no closures or HAB indicators
1 = no swim signage and/or HAB indicators
Potential for pet or human contact 0 = limited potential for contact
1 = potential for contact
Aquatic invasive plants or fish
0 = no invasives identified
0.5 = rough fish or curlyleaf pondweed
1 = rough fish and curlyleaf pondweed Physical Characteristics Lake size/stream length 0 = <10 acres or 1 mile
1 = >10 acres or 1 mile
Watershed imperviousness 0 = <30% impervious area
1 = >30% impervious area Public Use and Accessibility Public access and use
0 = no public access
0.5 = adjacent trail
1 = adjacent park
Opportunities for outreach
0 = no association or access
0.5 = association or nearby public areas
1 = adjacent park
Located in an area of equity concern based on
Metropolitan Council datasets
0 = outside area of equity concern
1 = within or bordering area of equity concern
Table 3 City of Edina Priority Waterbodies
High Priority Tier 2 Priority Tier 3 Priority Non-Priority
• Lake Cornelia
• Lake Edina
• Minnehaha Creek
• Nine Mile Creek
(North Fork)
• Arrowhead Lake
• Highland Lake
• Indianhead Lake
• Lake Nancy
• Melody Lake
• Mirror Lake
• Otto Lake
• Lake Pamela
• Mud Lake/Bredesen Park
• Nine Mile Creek (South
Fork)
• Point of France Pond
• Southwest Ponds
• Swimming Pool Pond
• Birchcrest Pond
• Hawkes Lake
• Lake Harvey
• Vernon Ave./View
Lane Pond
• West Garrison Pond
• Ponds <1 acre
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
Page: 13
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Priority pollutants for city services under the Clean Water Strategy are sediments, nutrients (phosphorus
and nitrogen), and chlorides.
5 Next Steps
With the final approval of their Clean Water Strategy vision, values, and goals, city staff is identifying
clean water activities, necessary budgets, and an implementation strategy to begin making progress
toward these goals in 2025 and beyond.
City staff have identified the following as immediate next steps in this process:
• Program clean water activities and coordinate with the capital improvement planning process that
will establish the city’s 2025–2030 Capital Improvement Plan (CIP); the Edina City Council will
consider approving the 2025–2030 CIP in December 2024. New CIP recommendations stemming
from this effort include:
o Lake, pond, and wetland sediment phosphorus sequestration
o Monitoring, and progress tracking and reporting
o Rough fish management
o New clean water infrastructure
• Continue existing CIP items that support clean water goals.
o Flood infrastructure projects
• Pursue quick wins, including providing resources to engage residents in purple loosestrife control.
• Evaluate accountability tools to communicate the Clean Water Strategy, actions, and progress
toward the vision.
To: Jessica Wilson and Ross Bintner, City of Edina
From: Stephanie Johnson, Greg Williams, and Sarah Stratton, Barr Engineering Co.
Subject: Edina Clean Water Strategy (Phase II) – Vision, Values, and Goals
Date: November 22, 2024
Page: 14
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3_Final Reporting\20241122_CWS Phase II_Project Memo_FINAL.docx
6 References
City of Edina. (2018) Appendix E: Aquatic Vegetation Prioritization List. In Comprehensive Water
Resources Management Plan.
City of Edina. (2023) City of Edina, MN Budget 2024-2025.
https://www.edinamn.gov/DocumentCenter/View/14123/2024-2025-Budget-PDF?bidId=
International Association for Public Participation. (2007). Spectrum of public participation. Retrieved from
www.iap2.org/associations/4748/files/spectrum.pdf
Lower Mississippi River Watershed Management Organization. (2023) 2023 Watershed Management
Plan.
Metropolitan Council. (2022) Priority Waters List project. https://metrocouncil.org/Wastewater-
Water/Planning/Water-Resources-Management/Priority-Waters-List.aspx
Attachments
Attachment A: Approved Public Participation Plan
Attachment B: Public Engagement Poster Boards
Attachment C: Approved CWS Vision, Values, and Goals
Attachment A:
Approved Public Participation Plan
PARTICIPATION PLAN I CLEAN WATER STRATEGY – VISION AND GOALS I CITY OF EDINA 1
PARTICIPATION PLAN
PROJECT: CLEAN WATER STRATEGY – VISION AND GOALS
DECISION TO BE MADE
- Establish the vision and goals for the Clean Water Strategy. This policy will drive the strategic approach
and priority waterbodies for achieving clean water outcomes in Edina.
- Staff will draft initial vision and goals, engage with stakeholders, react to input received, and make a
recommendation to City Council. City Council will decide. The outcome will likely lead to a major
amendment to the Water Resources Management Plan.
DECISIONS ALREADY MADE
- The Water Resources Management Plan identifies Lake Cornelia as a focus area for development of the Clean
Water Strategy. The vision and goals will be developed with a variety of waterbodies in mind. A potential
future phase 3 would focus on planning level actions for specific waterbodies.
PROJECT TIMELINE
- Development of draft vision and goals, and engagement materials, Q1 – Q2 2023
- Stakeholder meetings, Summer 2023
- City Council check-in, Summer 2023
- Staff recommendation to City Council, Fall 2023
STAKEHOLDERS
- Lake Nancy Lake Association
- Arrowhead Lake Association
- The Indianhead Lake Association
- Mill Pond Association
- Friends of Melody Lake
- Lake Cornelia Lake Group
- Energy and Environment Commission
- Nine Mile Creek Watershed District
- Minnehaha Creek Watershed District
- General public
DECISION CRITERIA
IN SCOPE
- Vision and goals - Priority waterbodies and pollutants
PARTICIPATION PLAN I CLEAN WATER STRATEGY – VISION AND GOALS I CITY OF EDINA 2
OUT OF SCOPE
- Planning level actions for a specific waterbody
(policy decision must be made first)
OTHER CONSIDERATIONS
- Cost
- Cost/benefit
- Pace of achievement
- Public awareness
- Parks Strategic Plan
- Climate Action Plan
- Sustainability goals
- Minnesota Pollution Control Agency Municipal Separate Storm Sewer System (MS4) General Permit
LEGAL OR TECHNICAL REQUIREMENTS
- Minnehaha Creek Watershed District rules
- Nine Mile Creek Watershed District rules
- Minnesota Department of Natural Resources rules
- Watershed Plans
- Local Water Plan (Water Resources Management Plan)
- Edina Comprehensive Plan
PARTICIPATON LEVEL
INVOLVE
- Goal: To work directly with the public throughout the process to ensure the public concerns and
aspirations are consistently understood and considered.
- Promise: We will work with the public to ensure that concerns and aspirations are directly reflected in the
vision and goals developed and provide feedback on how public input influenced the decision.
TECHNIQUES
- Better Together Edina platform
- Direct Mail
- Community Meetings
PARTICIPATION PLAN I CLEAN WATER STRATEGY – VISION AND GOALS I CITY OF EDINA 3
DECISION PROCESS
Objective Staff will share the initial
vision and goals as well as
detailed engagement
schedule to get Council
input before engaging
with the public.
Staff will present
initial vision and
goals and seek input.
Staff will refine vision
and goals based on
input. Staff will
describe how input
was used.
Staff will make a
recommendation to
City Council. City
Council decides.
Staff will
communicate the
decision to the public.
Staff will archive the
project and process
online. Anticipated Outcomes Council has input on
initial vision and goals
and understanding of
how stakeholders will be
engaged.
People have access
to information.
People have the
ability to provide
their input.
People have access
to information.
People know how
initial input was
used. People have
the ability to provide
their input.
The staff
recommendation is
influenced by
stakeholder input.
People know what
decision was made.
People can view the
information, process,
and decision on the
project webpage. Timeline Summer 2023 Summer 2023 Fall 2023 Fall 2023 Fall/Winter 2023
Close the
loop
Make a
decision
Refine
Vision and
Goals
Share
Initial
Vision and
Goals
Council
Update
Attachment B:
Public Engagement Poster Boards
We’d like your input:
Frequent algal blooms
High suspended sediment
A New Vision for Clean Water
Lakes within the City of
Edina are all considered
“shallow lakes”.
Turbid lakes have excess algae and suspended
sediment that limits the growth of aquatic plants
and the benefits they provide. Unfortunately,
it can be difficult to restore a turbid lake to
a clear-water condition due to the complex
ecology within these systems.
Shallow lakes typically exist in either
a clear-water state or turbid state. In the
clear-water condition, diverse, native plants
communities help to control excess nutrients
and provide valuable habitat.
Ecosystems are in a healthy
equilibrium; water is clear and
environment benefits are sustained.
• Water clarity improves as people use water
friendly practices.
• Waters are safe for human contact.
• Waters support native plants, insects, and
animals consistent with an urban setting.
• Shorelines are stable and provide shelter for
wildlife consistent with an urban landscape.
City actions align to do the most
good towards measurable, desirable
clean water outcomes leveraging
creativity and innovation.
• The City uses an iterative ‘build, test, learn’
model to make progress.
• The City performs active management
to improve or maintain water clarity and
chemistry at levels appropriate for
urban waters.
• Pollution is managed towards achieving
water resource conditions that meet
standards and support community uses.
• In-lake management practices are applied
towards achieving conditions that meet
standards and support community uses.
• Clean water goals are pursued with
consideration for multiple benefits and
available resources.
People are connected to the land
and water in reciprocity, both
caring for nature and enjoying the
benefits of a healthy environment.
• People access and interpret knowledge
and guidance on urban clean water goals
and behaviors that promote them.
• People pursue activities that promote
clean water and natural resource
stewardship.
• Waters are restored or maintained in
conditions allowing for beneficial uses.
All people have access to water
and the cultural values and
environmental benefits they provide.
• Clean water actions prioritize waters with
public access.
• Clean water strategies recognize the
diverse ways people value and experience
the city’s waters.
3
2
1
What do you value most
about Edina’s lakes,
streams, and wetlands?
What adjustments are
needed to this draft vision
to reflect those values?
What positive impacts
do you expect from
this initiative?
Who might benefit?
What negative impacts
do you expect and
who’s impacted?
What does “clean water”
mean to you?
Clear Turbid
Numerous and diverse native plants
Healthy habitat for invertebrates and fish
vs.2 4
1
1
3
3
4
2
Waters in Edina are currently not healthy.
A new plan for achieving clean water is necessary
to incorporate the latest scientific knowledge
about urban waterbodies and to help us meet
community expectations by ensuring that our
waters are safe, accessible, and well-managed.
The city has developed initial vision themes
(values and goals) and is seeking input from
the community.
Why is the City developing
a Clean Water Strategy?
Learn more and
provide feedback
online at:
BetterTogetherEdina.org/
clean-water-strategy
3
1
2
How do you engage
with Edina’s lakes,
creeks, and wetlands?
What barriers and
access are being created
with this proposal?
What are the benefits or
trade-offs of the factors
and considerations being
proposed for the ranking
of waterbodies? What
other factors need to be
considered?
Who else needs to
share their experience
and perspective?
We’d like your input:
Learn more and
provide feedback
online at:
BetterTogetherEdina.org/
clean-water-strategy
• Waterbody condition and impairments
Poor water quality can limit or impair clean water benefits.
• Lake size or creek length (within the City limits)
• Watershed impervious cover
Impervious areas typically generate more stormwater
runoff and higher pollutant loading.
• Opportunities for outreach, engagement, or service
Opportunities for outreach and environmental stewardship
increase connections to nature.
• Public access and use
Waters with public access may be enjoyed by
a greater number of residents and visitors.
• Areas of relative disparity
Access to environmental benefits may be limited in
areas of socio-economic disadvantage or vulnerability.
• Harmful algal blooms
Some types of blue-green algae can contain toxins which
can be harmful if ingested.
• Aquatic invasive species (AIS)
Some invasive plants and fish negatively impact water
chemistry or other functions.
• Does the lake or stream have excess nutrients,
chloride, and/or sediment?
• Is it a natural waterbody greater than 1-acre in size? Is
the lake area greater than 10-acres or stream length
greater than 1-mile?
• Is the adjacent watershed greater than 30% impervious?
• Does the waterbody have public access or adjacent public
land use? Is there a lake association or similar organization?
Are there nearby schools or public institutions?
• Are there parks, trails, or other public spaces adjacent
to the waterbody?
• Is the waterbody located within or near an area of
disadvantage relative to access to transportation,
household income, and/or access to green space.
• Have harmful algal blooms been confirmed and/or
no contact warnings been issued? Have indicators of
harmful algal blooms been observed? Is there high
potential for contact by people and pets?
• Are aquatic invasive fish or plants that impact water
quality present? This includes curlyleaf pondweed,
goldfish, and/or carp.
Draft Prioritization Factors and
Considerations for Ranking
Public
Use and
Accessibility
Physical
Characteristics
Waterbody
Conditions
DRAF
T
Establishing Priority Waterbodies
There are over 200 waterbodies in Edina. The current approach is to treat them
all the same which spreads resources thin. It takes sustained effort and significant
resources to restore and protect a waterbody. The clean water vision would
prioritize waterbodies so that resources may be focused on meaningful activities to
achieve clean water outcomes. Tier 1 priority waterbodies would be actively managed
for transition to clean water. The remainder would be nonpriority waterbodies and
would receive a lower tier of service.
Priority Waterbodies
Lake
Cornelia
Southwest
Ponds
South Branch
Nine Mile Creek
Indianhead
Lake
Lake
Pamela
Otto Pond
Lake
Nancy
Harvey
Lake
Minnehaha
Creek
North Branch
Nine Mile Creek
Highlands
Lake
Hawkes
Lake
Melody
Lake
Mirror
Lake
Arrowhead
Lake
Lake Edina
100
169
62
Lake Harvey
Hawkes Lake
Lake Pamela
Lake Nancy Otto Pond
Nine Mile Creek
South Branch
Southwest Ponds
Highlands Lake
Mirror Lake
Indianhead Lake
Arrowhead Lake
Melody Lake
Lake Cornelia
Lake Edina
Minnehaha Creek
Nine Mile Creek
North Branch
Highest Priority Tier 2 Tier 3
Edina Clean Water Services and Priority Pollutants
Edina’s Approach for Moving Towards Clean Water
• Source control: Working to reduce pollutants
such as chloride, fertilizer, and pesticides at
the source and educating property owners on
source control practices.
• Keeping it clean: Street sweeping, regulating
erosion and sediment control at construction
sites, encouraging smart residential lawn care
and smart salting, and supporting the adopt-a-
drain program.
Prevent Pollution
• Infrastructure: Install practices to capture
and treat polluted stormwater runoff, inspect
and maintain assets to ensure proper function,
implement smart technology and innovative
solutions to maximize benefits.
• Illicit discharge detection and elimination:
Identify and mitigate illicit discharges to the
storm sewer system and waterbodies.
Mitigate Pollution
Edina Clean Water
Partnerships:
• Control invasive species: Control invasive
aquatic plants like curlyleaf pondweed and
remove invasive rough fish to restore
ecological processes.
• Control internal loading of phosphorus:
Utilize alum and iron to reduce the release of
nutrients from lake sediments.
• Land Management: Restore natural areas.
Restore Ecological Processes
2
3
1 What pollutants are
you concerned about?
Which clean water
services have you
observed to be most
beneficial to your
community and
the environment?
What actions can
you take to help
Edina reach its clean
water vision?
We’d like your input:
Eutrophication is the process by
which a body of water becomes
enriched in dissolved nutrients
(phosphorus and nitrogen)
that stimulate the growth of
aquatic plants and algae, usually
resulting in the depletion of
dissolved oxygen. The largest
sources of nutrients within Edina’s
waterbodies are stormwater
runoff and phosphorus that’s
accumulated and then released
from lake sediments.
Chloride is a common deicing chemical that
makes water more saline and can limit the ability
for freshwater plants and animals to survive and
reproduce. The primary source of chloride in
Edina’s waterbodies is deicing salts applied to roads,
sidewalks, and parking lots for winter maintenance.
Sediment is material that’s broken down by
processes of weathering and erosion and is carried
to waterbodies where it settles to the bottom.
Sediment clogs waterways and stormwater
systems, creates cloudy water, and transports
nutrients. The most common source of sediment
in urban settings is from construction activities.
Priority Pollutants
Chloride
Phosphorus and nitrogen Sediment
Learn more and
provide feedback
online at:
BetterTogetherEdina.org/
clean-water-strategy
Attachment C:
Approved CWS Vision, Values, and Goals
April 16th, 2024
CITY COUNCIL
Jessica Wilson, CFM, Water Resources Manager
Approve Clean Water Strategy Vision (Values and Goals)
Information / Background:
Staff previewed the Clean Water Strategy vision (values and goals) at the City Council’s March 19th, 2024
regular meeting. Staff is recommending that Council approve the Clean Water Strategy Vision as well as the
supporting values and goals. These are unchanged from the Council’s preview last month. This staff report
also provides a summary of key takeaways from the March 19th meeting discussion and next steps. Clean Water Strategy Vision
The proposed clean water vision is:
Edina’s waterbodies are in a healthy ecosystem equilibrium, where waters are clear,
safe, and accessible.
Prevent pollution: We control pollutants at their source and help people do their part.
Mitigate pollution: We build, operate, and maintain infrastructure and take actions to capture and
remove pollutants.
Protect and restore ecological processes: We protect and restore natural ecosystems on land
and in water. Values and Goals
The proposed Clean Water Strategy vision was developed from these values and goals.
Ecosystems are in a healthy equilibrium; water is clear and environmental benefits are
sustained.
• Water clarity improves as people use water friendly practices.
• Water is safe for human contact.
• Waters support native plants, insects, and animals consistent with an urban setting.
• Shorelines are stable and provide shelter for wildlife consistent with urban lands.
STAFF REPORT Page 2
City actions align to do the most good towards measurable, desirable clean water
outcomes leveraging creativity and innovation.
• The city uses an iterative ‘build, test, learn’ model to make progress.
• The city uses a systems approach in its implementation to consider cumulative benefits.
• The city performs active management to improve or maintain water clarity and chemistry at
levels appropriate for urban waters.
• Pollution is managed towards achieving water resource conditions that meet standards and
support community uses.
• In-lake management practices are applied towards achieving conditions that meet standards
and support community uses.
• Clean water goals are pursued with consideration for multiple benefits and available
resources.
People are connected to the land and water in reciprocity, both caring for nature and
enjoying the benefits of a healthy environment.
• People access and interpret knowledge and guidance on urban clean water goals and
behaviors that promote them.
• People pursue activities that promote clean water and natural resource stewardship.
• Waters are restored or maintained in conditions allowing for beneficial uses.
All people have access to water and the cultural values and environmental benefits they
provide.
• Clean water actions prioritize waters with public access.
• Clean water strategies recognize the diverse ways people value and experience the city’s
waters.
Key Takeaways
Key takeaways from the March 19th meeting;
• Strong support for the vision and goals.
• Desire to see progress toward clean water and be proud of what we have for water resources.
• Health was a strong theme – both in terms of exposure to harmful algal blooms and more generally
in terms of access to nature and mental health.
• Interest in details (budget, time horizons, outcomes) and accountability measures.
• Support for prioritizing waterbodies and focusing actions.
• Actions should be aligned with the vision. Actions need to be specific and justified with the desired
value/goal.
• Help people do their part. Engage residents. Provide resources for people, particularly for those that
want to take action in areas that aren’t city priorities.
• More information about the land management program and its crossover with clean water is
desired.
STAFF REPORT Page 3 Next Steps
Staff will take the following next steps;
• Finalize the Clean Water Strategy report.
• Program Clean Water activities and coordinate with the capital improvement planning process in
2024.
• Pursue quick wins including resources for engaging residents in purple loosestrife control in 2024.
• Evaluate accountability tools to communicate the clean water strategy, actions, and progress toward
the vision.
Links to past conversations on this topic
March 19, 2024 – Clean Water Strategy Vision (Values and Goals) Preview
August 15, 2023 – Clean Water Strategy Phase 2: Vision (Values and Goals) and Priorities Discussion
May 16, 2023 - Clean Water Strategy Phase 2: Vision (Values and Goals) and Priorities Update
December 20, 2022 – Request for Purchase: Clean Water Strategy Professional Services Phase 2 and
Participation Plan
August 3, 2022 – Work Session – Clean Water Strategy Summary
March 5, 2019 – Work Session – Water Resources Management – Morningside Neighborhood Flood Risk
Reduction Strategy, Lake Cornelia Clean Water Strategy, and Chloride Pollution Prevention
September 5, 2018 – Adoption of 2018 Comprehensive Water Resources Management Plan
April 3, 2018 – Work Session – Comprehensive Water Resources Management Plan – Implementation
Discussion
January 17, 2018 – Authorize Staff to Submit Draft Comprehensive Water Resources Management Plan for
Agency Review
November 21, 2017 – Work Session – Draft 2018 Comprehensive Water Resources Management Plan
Presentation for Review and Comment