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HomeMy WebLinkAbout20241122_CWS Phase II_Project Memo_FINAL barr.com 4300 MarketPointe Drive, Suite 200, Minneapolis, MN 55435 | 952.832.2600 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 \\barr.com\projects\Mpls\23 MN\27\23271913 City Edina Clean Water Strateg\WorkFiles\01_Phase 2_Vision and Goals\Task 3_Final Reporting\20241122_CWS Phase II_Project Memo_FINAL.docx 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 \\barr.com\projects\Mpls\23 MN\27\23271913 City Edina Clean Water Strateg\WorkFiles\01_Phase 2_Vision and Goals\Task 3_Final Reporting\20241122_CWS Phase II_Project Memo_FINAL.docx 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 \\barr.com\projects\Mpls\23 MN\27\23271913 City Edina Clean Water Strateg\WorkFiles\01_Phase 2_Vision and Goals\Task 3_Final Reporting\20241122_CWS Phase II_Project Memo_FINAL.docx 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 \\barr.com\projects\Mpls\23 MN\27\23271913 City Edina Clean Water Strateg\WorkFiles\01_Phase 2_Vision and Goals\Task 3_Final Reporting\20241122_CWS Phase II_Project Memo_FINAL.docx 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 \\barr.com\projects\Mpls\23 MN\27\23271913 City Edina Clean Water Strateg\WorkFiles\01_Phase 2_Vision and Goals\Task 3_Final Reporting\20241122_CWS Phase II_Project Memo_FINAL.docx 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 \\barr.com\projects\Mpls\23 MN\27\23271913 City Edina Clean Water Strateg\WorkFiles\01_Phase 2_Vision and Goals\Task 3_Final Reporting\20241122_CWS Phase II_Project Memo_FINAL.docx 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 \\barr.com\projects\Mpls\23 MN\27\23271913 City Edina Clean Water Strateg\WorkFiles\01_Phase 2_Vision and Goals\Task 3_Final Reporting\20241122_CWS Phase II_Project Memo_FINAL.docx 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 \\barr.com\projects\Mpls\23 MN\27\23271913 City Edina Clean Water Strateg\WorkFiles\01_Phase 2_Vision and Goals\Task 3_Final Reporting\20241122_CWS Phase II_Project Memo_FINAL.docx • 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 \\barr.com\projects\Mpls\23 MN\27\23271913 City Edina Clean Water Strateg\WorkFiles\01_Phase 2_Vision and Goals\Task 3_Final Reporting\20241122_CWS Phase II_Project Memo_FINAL.docx • 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 \\barr.com\projects\Mpls\23 MN\27\23271913 City Edina Clean Water Strateg\WorkFiles\01_Phase 2_Vision and Goals\Task 3_Final Reporting\20241122_CWS Phase II_Project Memo_FINAL.docx • 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 \\barr.com\projects\Mpls\23 MN\27\23271913 City Edina Clean Water Strateg\WorkFiles\01_Phase 2_Vision and Goals\Task 3_Final Reporting\20241122_CWS Phase II_Project Memo_FINAL.docx 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 \\barr.com\projects\Mpls\23 MN\27\23271913 City Edina Clean Water Strateg\WorkFiles\01_Phase 2_Vision and Goals\Task 3_Final Reporting\20241122_CWS Phase II_Project Memo_FINAL.docx 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 \\barr.com\projects\Mpls\23 MN\27\23271913 City Edina Clean Water Strateg\WorkFiles\01_Phase 2_Vision and Goals\Task 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