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HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 06/08/2021 - SAFE WATER ACTION PLAN.DATE: STAFF: June 8, 2021 Liesel Hans, Interim Deputy Utilities Director WORK SESSION ITEM City Council SUBJECT FOR DISCUSSION Safe Water Action Program. EXECUTIVE SUMMARY The purpose of this work session is to discuss the Safe Water Action Program (SWAP), which is a public health initiative from Fort Collins Utilities to accelerate the identification and replacement any remaining aging galvanized water service lines (utility-owned portion) and lead goosenecks. It is also an effort to educate the public about lead in drinking water, how to identify potential sources of risk, and easy actions anyone can take to reduce risk. While our risk is very low, SWAP protects public health and proactively maintains the safety and reliability of drinking water. GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED 1. Does Council support the public engagement approach and upcoming next steps? 2. What additional information would Council and the community find valuable? BACKGROUND / DISCUSSION Fort Collins Utilities (Utilities) is committed to providing safe, high -quality, reliable drinking water to all customers. We continually monitor our water quality from source to tap and take pride in being able to offer some of the best drinking water in the country. For many decades, public health experts have focused on managing lead exposure through sources like lead paint, which is still the most common and lik ely source. In recent years, however, there has been concern and increasing awareness nationwide about the potential presence of lead in drinking water. More communities are taking steps to identify and address any potential sources of risk. Managing lead in water is a public health responsibility that is shared among water utilities, consumers, manufacturers, regulators, plumbers and more. Lead does not come from our water supplies and there is no lead in the water produced by the Utilities Water Treatment Facility. If it is present in water, it will come from the plumbing leading to or inside a home. While there are related regulations, SWAP is a proactive initiative not currently required by regulation. The Environmental Protection Agency’s (EPA) lead and copper regulations currently under review and the revision may impact our operations. More information about the Lead and Copper Rule (LCR) is included later in this document. SAFE WATER ACTION PROGRAM The Safe Water Action Program (SWAP) will accelerate the identification and replacement of any remaining galvanized water service lines. Galvanized lines are steel pipes coated with zinc to prevent rust or corrosion and need to be replaced due to age and condition. They are increasingly brittle and pro ne to leaks and breaks. All service lines have a short segment called a “gooseneck” or “pigtail” that connects the service line to the water main; these are generally 1.5 to 2 feet long. It is expected that these galvanized service lines will have a gooseneck made of lead, a material that was historically common to use in plumbing for its flexible properties. June 8, 2021 Page 2 These were only installed on ¾-inch or smaller pipes, typically in the residential areas in the Old Town neighborhoods (Attachment 1). Project Goals: • Protect public health, water service and water quality throughout project. • Swap any galvanized lines and goosenecks with safe, durable materials. • Educate public about all sources of lead in drinking water and ways to reduce risk. • Maintain and/or improve trust in Utilities and safety of drinking water. • Inventory service line materials. • Promote equity and inclusion in both processes and outcomes. Strategic Alignment: SWAP directly supports the following City strategic objectives: • ENV 4.4 to provide a reliable, high-quality water supply. • SAFE 5.1 to improve overall community safety while continuing to increase the level of public trust and willingness to use emergency services. • NLSH 1.4 to advance equity for all, leading with race, so that a person’s identity or identities is not a predictor of outcomes. How many service lines need to be replaced? Some water service installations pre-date reliable record-keeping. Further, because property owners, not Utilities, own the water service lines beyond the curb stop, information on what that portion of the service line is made of is inconsistent, unreliable, or unknowable. See a graphic diagram of a water service line with delineation of the ownership and management responsibilities. Note that goosenecks are only on the Utilities-owned and managed portion of the water service line. (Attachment 2) The good news is that we do know that the vast majority (nearly 98%) of Utilities’ ~34,000 water service lines are known to be made of copper, PVC or other materials that do not contain lead. The Utilities-owned portion is solely made of copper. The remaining ~2% of the utilities -owned water service lines are either galvanized (~80) or made of undetermined (~650) materials. Note that we are confident t hat these “undetermined” materials are not lead, but we need to assess if they are copper, PVC or galvanized. Staff has not encountered a lead service line in our decades of service to the City. There is less known about the customer -owned portion of the service lines. To date, Utilities staff estimates that approximately 600 lead goosenecks have already been found and replaced during planned water line replacement or maintenance projects since the 1950’s. Below is additional information and an estimate d timeline of service line materials used in the Fort Collins Utilities service area: • 1883-1950’s: Galvanized pipes • 1950’s-present: Copper pipes • 1980’s: “Blue poly” plastic pipes began to be used on customer portion of service lines, and production stopped in 1996 after material started to fail • 1984: Utilities launched Corrosion Control Program (more information below) • 1992: First year of Utilities lead and copper testing (more information below) • 1999: Utilities started publication of our Drinking Water Quality Report, also known as a Consumer Confidence Report • 2000’s: HDPE/PEX (more durable plastic, commonly called PVC too) began to be used on customer portion June 8, 2021 Page 3 of service lines How can lead get into drinking water? There is no lead in the drinking water produced by the Utilities Water Treatment Facility. In general, lead can enter drinking water when plumbing that contains lead corrodes or deteriorates allowing the lead to seep into the water. This can include pipes or fixtures inside the hom e or solder that connects copper pipes. This is more likely to occur when water sits in pipes for extended periods of time, generally overnight or when water is not used for several hours at a time. A lead gooseneck does not necessarily mean there is ele vated levels of lead in the water, but it may be a contributing factor. Studies have shown that lead goosenecks have little to no measurable impact on lead levels in drinking water due to the small volume of water in a gooseneck. We are working to refine o ur understanding of the risk in our community and anticipate having a better understanding after completing the first phase of SWAP in fall of 2021. This will be a pilot effort to investigate an initial set of homes. The pilot will include testing the wate r quality before any service line investigation and after the replacement if the investigation reveals the presence of a galvanized service line and lead gooseneck. Our most important and effective tool to protect the community is our long -standing corrosion control program. Our corrosion control program has been in place since 1984, before any federal requirements, and includes monitoring and adjusting the pH and alkalinity of the water before it is distributed to customers for consumption. These are the two key properties that determine how corrosive the water is. By keeping the pH and alkalinity stable and at the right level, it keeps pipes from corroding and possibly leaching impurities into the water. Why do we care about lead in drinking water? There is no known safe level of lead exposure, and lead can build up in the body over time. Children younger than six years old are most at risk due to their rapid rate of growth and ongoing brain development. Exposure to lead can cause damage to the brain, nervous system, red blood cells, and kidneys. Lead also has the potential to cause lower IQs, hearing impairments, reduced attention span, hyperactivity, developmental delays, and poor classroom performance. Pregnant women and their fetuses are especially vulnerable to lead exposure since lead can significantly harm the fetus, causing lower birth weight and slowing normal mental and physical developments. The Environmental Protection Agency (EPA) requires all water providers to test a sample of household s annually; more on this is included in the next section below. For reference, the EPA action level is 15 parts per billion (ppb). This is like 15 drops of water in a swimming pool. The Food and Drug Administration (FDA) limit for bottled water is 5 ppb. WATER QUALITY TESTING and REGULATIONS First, here is information and a timeline of relevant drinking water regulations: • 1974: Safe Drinking Water Act. Prior to this there were no federal drinking water standards or regulations. Legislation set national drinking water standards by imposing regulations on contaminants that are detrimental to public health and created reporting requirements and other enforcement standards. • 1986: Amendments to the Safe Drinking Water Act banned the use of lead-containing solders and prohibited the use of pipes, solder or flux that were not “lead free” in public water systems or plumbing in facilities providing water for human consumption. At the time "lead free” was defined as solder and flux with no more than 0.2% lead and pipes with no more than 8%. • 1991: Lead and Copper Rule developed by the EPA to control lead and copper in drinking water. This legislation established action levels for Lead (15 ug/L) and Copper (1,300 ug/L) concentrations, corrosion control treatment for public water systems, customer tap monitoring programs, public education on sources, prevention and health effects, and more. June 8, 2021 Page 4 • 1996: Amendments to the Safe Drinking Water Act required publication of consumer confidence reports, that water facility operators have certain certifications, and that utilities implement source water assessment/protection programs. • 2011 Congress passed the Reduction of Lead in Drinking Water Act (RLDWA) revising the definition of “lead - free” to 0.25% or less by weight. • 2021: An update to the Lead and Copper Rule is expected to be finalized. Staff expects the revised rule may require some new actions and potential changes to the water sampling program. Current Lead and Copper Rule (LCR) Testing Program and Results Since the EPA first enacted the LCR in 1991, Fort Collins has conducted annual testing for lead and copper in customer homes. Because Fort Collins does not have full lead service lines, the State of Colorado (primacy agency) identified single-family homes built between 1983-1986 as the top priority potential source of lead in drinking water due to the fact these homes had high likelihood of having lead-containing solder in the premise plumbing. Based on population served by our water system, we are required to collect 50 samples per year from this subset of homes. All samples are collected at the customer tap and capture the first liter of water following a minimum of a 6-hour stagnation period (typically overnight). This sampling program is designed to test in-home sources of lead and does not test for or consider or provide information about other possible sources of lead in the distribution system, like lead goosenecks. All samples are analyzed at the Fort Collins Water Quality Lab and all results are rep orted to the customer and State of Colorado within 30 days from analysis. Our results have always been far below the EPA Action Levels and are published and shared annual in the Water Quality Report (also sometimes called a “Consumer Confidence Report”). In 2020, the EPA published a proposed Revised Lead and Copper Rule (RLCR). Changes in the new RLCR are focused on enhancing protections for the most impacted areas (those with full lead service lines), strengthening requirements for drinking water treatment and lead service line replacement, improving communication, and protecting children in schools and childcare facilities. When the RLCR is published, Utilities will assess and share any changes to our operations and water sampling programs. Staff anticipa tes that some of the new requirements are already standard practice in Fort Collins. COMMUNITY PARTNERSHIP Managing lead in water is a public health responsibility that is shared among water utilities, consumers, manufacturers, regulators, plumbers and more. Further, homeowners share in the ownership and responsibility to maintain water service infrastructure. Through awareness of the potential risks and working together to ensure our infrastructure is in safe, working condition, we can protect our com munity. What are potential ways lead can get into drinking water? • Plumbing fixtures: Most faucets purchased prior to 1997 were constructed of brass or chrome -plated brass, which contain up to 8 percent lead. The most recent legislation, called “Get the Lead Out,” mandates that after January 4, 2014, all faucets purchased will contain no more than a weighted average of 0.25 percent lead in relation to wetted surface. o Legislation only covers products intended for potable drinking water. Fixtures can c ontain lead if intended for industrial or other non-potable purpose. o Other countries’ products may have different standards than the United States. • Lead Solder: Solder is a metal that is melted and used to join two pieces of pipe. Prior to 1987, lead solder was commonly used in household plumbing. Solder in canned goods is still used in some other countries. • Lead Gooseneck: A gooseneck is a small connector attached to a water service line. Historically, these were made of lead because lead is very flexible and made it much easier to connect to the water main. Goosenecks are typically about 1.5-2 feet long. June 8, 2021 Page 5 • Galvanized Service Line: These pipes can be a long-term source of lead as the “galvanized” surface zinc coating can contain up to 2% lead, and as the pipes corrode, lead particles “upstream” can attach and be released later. However, studies have shown these pipes need to break down significantly and even then, with an appropriate pH level of the water, the lead is highly unlikely to leach out of the coating. Other Sources Some other communities face a greater risk of elevated lead levels due to the presence of full or partial lead service lines. Fortunately, there are no known lead service lines in the Utilities' service area. Other sources include lead paint (homes built before 1978), lead-contaminated soils, and exposure to lead through certain industries. Residents should take time to assess if they may be at risk of exposure from these sources. What precautions can help manage potential risks? Studies show that with an effective corrosion control program, like in Fort Collins, the risk only increases when the water has been sitting for an extended period of time, like overnight. Some steps a resident can take to effectively eliminate risk include: • Run the water. Before drinking or using water for cooking, flush your home's pipes. Let the COLD water run for about two minutes (or until it runs noticeably colder) if water has been sitting in the service line for longer than six hours. A shower or load of laundry would be more than enough to flush the pipes. This water can be collected and used to water plants or landscapes. • Always use cold water to drink, cook and do things like make coffee or baby formula. You cannot boil lead out of water. • Regularly clean faucet aerators/faucet screens. Sediment, debris, and lead particles can collect in your aerator. If lead particles are caught in the aerator, lead can get into your water. • Use a filter. Install a water filter that is designed and certified to remove lead. Read the directions to learn how to properly install and use your cartridge and when to replace it. Using the cartridge after it has expired can make it less effective at removing lead. Never run hot water through the water filt er. Steps to assess level of risk and exposure: • Assess other potential sources of exposure, like lead paint. • Get the water tested. The Water Quality Lab will prioritize tests for homes within the SWAP scope. • Get a blood test. The only way to truly assess any impact from any exposure to lead is to get a blood test. Table 1 below outlines the additional risk-reducing strategies residents can take for each potential source of exposure. Table 1: Potential Sources of Exposure through Drinking Water Source Tailored risk-reducing strategies Does Utilities Corrosion Control Program lower risk? Will SWAP address this risk? Plumbing Fixtures • Replace old fixtures Yes Only via education Lead Solder • Replace old plumbing lines Yes Only via education Lead Gooseneck • Use the SWAP search tool to assess risk Yes Yes Galvanized Service Line • Use the SWAP search tool to assess risk • Replace customer-owned portion of galvanized service line Yes Yes - partially* * Note that while SWAP’s focus is on the Utilities-owned portion of the water service line infrastructure, we want to June 8, 2021 Page 6 support our customers in replacing their portion of the service line if it is a galvanized line. This is ultimately an important home maintenance task, as the increasingly brittle nature could cause breaks or leaks and may result in wasted water and/or property damage. We recognize this may be a significant and unanticipated expense. Staff are exploring a variety of options and intend to be able to provide options in the update in early 2022 as noted in the Next Steps section below. SWAP COMMUNICATIONS and ENGAGEMENT An effective public health initiative must have a thoughtful communications and engagement plan. Three of SWAP’s key goals are to: • Educate the public about all sources of lead in drinking water and ways to reduce risk. • Maintain and/or improve trust in Utilities and safety of drinking water. • Promote equity and inclusion in both processes and outcomes. Throughout 2021, the SWAP Team is developing a comprehensive communications and engagement plan that will provide: 1) general education to the public about our water quality and lead in drinking water; and 2) direct communication with customers who are in the SWAP scope. The plan aims to strengthen trust between customers and the utility, engage a diverse set of stakeholders, and apply an equity lens on engagement and communication tactics. Staff has already started to engage public health experts and has received valuable guidance. For example, two suggestions included: • Do not solely communicate with the potentially impacted households, share the information with everyone and let people know that they do not face the specific risk addressed by SWAP. As a result we intend to provide broad communications and education around lead and drinking water risks, provide a tool for residents to determine their risk, and let key stakeholders like daycares know that they do not need to worry about this specific risk. • Lean on trusted community leaders to help share and reinforce the message. Not everyone will turn to Utilities for information, so by engaging and informing others in the community like pediatricians or faith leaders, we can still ensure the message is shared and information is consistent. Focus Groups: A major next step in the communication and engagement work is to conduct focus groups to gather feedback on communication approaches and tactics. This feedback is especially important to ensure we reach the diverse population in the SWAP area. Initially, we know that there is wide range of incomes levels, some Spanish speakers, and a relatively greater proportion of residents who are renters. The first focus group will be with internal City partners including Environmental Services, Economic Health, Neighb orhood Services, Building Services, and Housing Catalyst. The second focus group will be with external stakeholders like Colorado State University, Poudre School District, local medical offices, faith-based organizations within the SWAP area, and more. SWAP is working on partnering with local community agencies such as religious institutions and local pediatricians’ offices, among others, to provide useful tools that they can utilize as a resource to those directly impacted by the SWAP program. After these focus groups and other conversations with stakeholders, the SWAP team will develop the variety of communications materials, messaging, and other engagement strategies to conduct an effective public health outreach plan. Boards and Commissions: The SWAP team intends to engage boards and commissions and is starting with the Water Commission in June. Equity: The SWAP team is incorporating an equity lens from the beginning of the effort. Some initial ideas that the team is focusing on to ensure the process and outcome is equitable include: June 8, 2021 Page 7 • Prioritize full Spanish translation of all print communications; • Broad communications and education - not just those directly affected by the work; • Broad stakeholder engagement; • Conducting public and staff focus groups for feedback; • Use data like income level, presence of children, and other considerations to inform prioritization of replacements; and • Work to understand types of households that may not trust drinking water. BUDGET and RESOURCES The City’s Budgeting for Outcomes (BFO) 1-year budgeting cycle for 2021 allocated $500,000 to develop a project plan, including a comprehensive communications and engagement plan, and to conduct a pilot project to investigate and replace an initial subset of the service lines. Based on current information and assumptions, and if all ~730 services need to be replaced, we estimate an overall project cost range of $4 - $8 million. The pilot project, planned for Fall 2021, will provide additional information that will allow staff to refine this estimate. We fully expect that we will not need to replace all identified services; we expect to find that some services are already made of a modern material, but we simply do not have the supporting documentation to understan d how many of the ~730 service lines will need to be replaced. Final costs will depend on multiple factors including: • Final number of galvanized lines o Only about 80 are known to be galvanized with the remaining undetermined • Overall timeline and escalation of costs • Ability to conduct investigations and replacements collaboratively with other planned work (e.g. in conjunction with a planned water main replacement project). Staff submitted an offer for the 1-year 2022 BFO cycle for $1 million to continue this work. Overall implementation timeline of the full SWAP Program will be informed by the pilot project. This roll -out schedule will be highly influenced by the number of actual replacements required, based upon the initial information collected during the pilot. After the pilot, staff will recommend a timeline for completion of the estimated remaining service line replacements. NEXT STEPS • June (planned) 2021 o Initial Focus Groups o Communications with SWAP households o Work session with the City Water Commission • Summer 2021 o Develop communications and education materials o Launch public education campaign • Fall 2021 o Launch pilot investigation and replacement program ▪ Conduct water quality sampling before and after any replacements • Early 2022 o Share results of pilot with key stakeholders (including Council) June 8, 2021 Page 8 o Develop Full Implementation Plan ▪ Incorporate new information and lessons learned from pilot program MORE INFORMATION For more information about the Safe Water Action Plan: Website: fcgov.com/swap Email: swap@fcgov.com Voicemail: 970-416-8032, V/TDD 711 ATTACHMENTS 1. Galvanized Line Map (PDF) 2. Ownership, Responsibility, Repair Illustration (PDF) 3. Powerpoint Presentation (PDF) N Auxiliary aids and services are available for persons with disabilities. | 20-22631I-25Fort Collins Growth Management Area HORSETOOTH RESERVOIR SAFE WATER ACTION PROGRAM (SWAP) REPLACING GALVANIZED PIPESUtilities FORT COLLINS UTILITIES WATER SERVICE AREA Prospect Drake Horsetooth Harmony Mulberry Laporte ShieldsCollegeTaft HillOverlandLemayTimberlineZieglerAREAS THAT MAY HAVE GALVANIZED AND UNKOWN WATER SERVICE LINES For more information: FCGOV.COM/SWAP, 970-416-8032 • Galvanized service lines are primarily located in the older parts of town (indicated by orange on the map). Not all homes in these areas are impacted. • Fewer than 1,000 of Fort Collins Utilities’ 34,000 water service lines are of unknown material and 100 or fewer are known to be galvanized. •Homes with galvanized service lines may have lead goosenecks. • The areas highlighted in the map are not all-inclusive. There • The drinking water provided by Fort Collins Utilities does not contain lead. Fort Collins Utilities’ treated drinking water consistently surpasses state and federal standards for purity. If lead is present in water, it comes from the plumbing leading to or inside a home. • Look up individual addresses at fcgov.com/SWAP. N Esta información puede ser traducida, sin costo para usted, 970-212-2900. Auxiliary aids and services are available for persons with disabilities. V/TDD 711 | 20-22631I-25Fort Collins City Limits Fort Collins City Limits HORSETOOTH RESERVOIR SAFE WATER ACTION PROGRAM (SWAP)Utilities FORT COLLINS UTILITIES WATER SERVICE AREA Prospect Drake Horsetooth Harmony Mulberry Laporte ShieldsCollegeTaft HillOverlandLemayTimberlineZieglerAREAS THAT MAY HAVE GALVANIZED AND UNKOWN WATER SERVICE LINES For more information: FCGOV.COM/SWAPUtilities Fort Collins Growth Management Area ATTACHMENT 1 WATER SERVICE Line Ownership and Responsibility WATER SERVICE LINE OUTSIDE METER & SHUT OFF VALVE INSIDE METER & SHUT OFF VALVE Auxiliary aids and services are available for persons with disabilities. 20-22146 GOOSE- WATER SERVICE LINE CURB STOP CURB BOX WATER MAIN ATTACHMENT 2 Safe Water Action Program (SWAP) June 8, 2021 Replacing Galvanized Pipes Dr. Liesel Hans Interim Utilities Deputy Director ATTACHMENT 3 City Strategic Plan Alignment Livability Community Sustainability Provide a high- quality water supply Environmental Health Public Health Safe Community 2 Questions for City Council 1.Does Council support the public engagement approach and upcoming next steps? 2.What additional information would Council and the community find valuable? 3 4 5 What is SWAP ? An effort to “swap” any remaining aging galvanized service lines (utility-owned portion) and short (6-18") connectors, called goosenecks. Some goosenecks may be made of lead. Who? Mostly single-family residences in the Old To wn area. How many? Less than 1,000 (less than 2.5% of all service lines). Why now? Goal is to accelerate the work. It’s the right thing to do. Is the water safe? Current data supports that the risk is very low, and we will seek out additional ways to hone our understanding of the risk. SWAP 6 Safe Water Action Program (SWAP) 7Timeline Water utility started Plumbing code (switch from galvanized to copper) Safe Drinking Water Act (SWDA) Blue Poly used on customer side Launch Corrosion Control Program SDWA amendment banning lead-containing solders & pipes First Lead and Copper Rule (LCR) PEX/HDPE used on customer side Pending changes to LCR 1883 1991 1986 1984 1980s 1974 1950s Present 2000s Fort Collins-specific timeline Federal legislation timeline 8SWAP Goals & Commitments Protect public health, water service and water quality throughout project Swap any galvanized lines and goosenecks with safe, durable materials Educate public about all sources of lead in drinking water and ways to reduce exposure Maintain and/or improve trust in Utilities and safety of drinking water Inventory service line materials Promote equity and inclusion in both processes and outcomes 9Who may be Impacted? 123 Address Street123 Address Street 123 Address Street123 Address Street 123 Address Street 123 Address Street fcgov.com/swap Replacing customer-owned portion Pursuing avenues to support customers in replacing their portion of their service line. Proactive maintenance of critical infrastructure. 10 11 •Public Health and Drinking Water •High quality, safe drinking water •All potential sources of risk & ways to reduce risk Public Engagement •Prioritize Spanish translation of all materials •Consider equity factors in prioritization •Work with internal equity champions and leaders •Learn from industry and public health experts •Initial notification 2021 •Ti mely communications leading up to and during investigation/replacement work •Water quality sampling before and after •Website, email, phone Public Education Campaign Equity SWAP Communications Public Engagement External: •Yo uth, women, family medical practices •Housing partners •Schools, daycares •Community leaders Internal: •Neighborhood Services •Economic Health •Healthy Homes Program •Housing Catalyst •Building Services 12 Focus Groups Resources BFO 2021: $500k •Develop program plan and initial funds to start the “in the ground” work (pilot project fall 2021) If all services need to be replaced: Estimated total cost range = $4M-8M Final costs will depend on: •Number of galvanized lines found •Overall timeline and escalation of costs •Ability to conduct investigations and replacements collaboratively with other planned work Complete timeline will be informed by pilot phase in Fall 2021 13 14Steps to Reduce Exposure and Risk An d: •Replace older fixtures and plumbing lines •Use SWAP search tool •Assess potential exposure from other sources like lead paint If still concerned: •Get a blood test If water has been sitting longer than 6 hours, e.g. overnight 15Next Steps Initial focus groups Contact SWAP households directly Water Commission June Develop outreach materials Launch public education campaign Summer Launch pilot investigation and replacement program Fall Propose full SWAP plan 2022 For More Information, Visit THANK YOU! Fcgov.com/SWAP | swap@fcgov.com | 970-416-8032 | V/TDD 711 16