Talbert Watershed - Reports & Studies
	Medium-Range Plan

I. Introduction

This report is intended to describe a medium-range strategy for addressing ocean water quality offshore of Huntington Beach. Recreational waters along six miles of shoreline were closed to public contact between July 1 and September 3, 1999, due to high levels of bacterial indicators. Although the dramatically high bacteria levels detected during the summer of 1999 have abated, this stretch of shoreline continues to experience sporadic but chronic bacteria contamination. A number of subsequent investigations and modifications to local infrastructure have been carried out within the watershed draining into this portion of the Pacific Ocean. Despite some improvement in the resulting water quality, ocean waters in this area fail to consistently meet satisfactory public health standards.

Orange County has been fortunate enough to be the site of three watershed studies led by the U.S. Army Corps of Engineers. Studies are underway on the watersheds of Aliso Creek, San Juan Creek, and San Diego Creek. These efforts are long-range, comprehensive analyses of not only water quality but also habitat restoration, flood protection, recreation, and water conservation. However, they are reliant on federal involvement and can take five to ten years before specific improvement projects are designed and built. Our long-range plan is to gain federal approval for a federally-led watershed process for the Talbert-Lower SAR Watershed and other areas of Orange County.

Until such time as a formal watershed study is initiated for the Talbert-Lower SAR Watershed, short- and medium-range plans have been developed. In spring of 2000, the County of Orange formally entered into an agreement with the City of Huntington Beach and the Orange County Sanitation District to address the continuing problems with ocean water quality. The County of Orange is involved in watershed and water quality issues throughout the region and is taking the lead in the effort.

Jointly the three agencies implemented the Summer 2000 Action Plan as well as this plan. The Summer 2000 Action Plan constituted short-range measures specifically geared to urban runoff and limited to the peak beach recreation season. This report was developed to set forth a medium-range plan that local agencies could pursue without the considerable resources that a federal effort could lend to the problem. Both the short-range and medium-range plans are described in more detail in the next section.

Back to Top

II. Background

A. Talbert-Lower SAR Watershed

The Talbert-Lower SAR Watershed is 16,575 acres covering portions of Santa Ana, Fountain Valley, Costa Mesa, Newport Beach, and Huntington Beach. Its eastern side is drained by the Greenville-Banning Channel and the Santa Ana River, which conveys flows to the Pacific Ocean. On its western side it is drained by a network of flood control channels (Huntington Beach Channel, Talbert Channel, and Fountain Valley Channel) that flow through the Talbert Marsh before reaching the ocean just north of the Santa Ana River.

B. AB 411

Assembly Bill 411 ushered in new testing and notification protocols for heavily used ocean recreational waters beginning June 1999. First, it required testing for three bacterial indicators: total coliform, fecal coliform, and enterococcus. Secondly, it set new thresholds for determining contamination that cover a single day's sample results as well as 30-day averages. Third, it increased the frequency of sampling to be performed. Lastly, it set new requirements for notifying the public that either (a) waters were unhealthful for human contact or "posted", or (b) waters were off-limits entirely in the event sewage was detected or suspected or "closed'.

C. Summer 1999

1. Closures and Investigations
In July, routine monitoring of ocean waters revealed a pattern of bacteria suggesting a sewage leak of considerable magnitude. For this reason, the Orange County Sanitation District took the lead on what became a three-month investigation to discover the source. Although minor breaks were discovered and repaired in the State Beach's sewer line and one section of OCSD's trunk line 1.5 miles inland, water quality did not improve commensurately. Other examinations that were conducted were closed circuit examinations of sewer pipes and the wastewater outfall line; groundwater sampling; and radar, sonar, and infrared imaging to detect unmapped underground pipes. No transport mechanism for bacteria could be detected.
Later in August the profile of bacterial indicators at the beach changed from one of total and fecal coliform to predominantly enterococcus, suggesting urban runoff as a source. Initial tests using grapefruit showed a pattern of wave current moving from the Talbert Marsh and the Santa Ana River to the contamination area although bacteria counts could not be correlated between the two sites. Four pump stations within the watershed were tested and found to have high levels of all three bacterial indicators. However, some bacteria continued to appear even when the pump stations were not discharging.

2. Sea Grant Panel
USC Sea Grant, at the request of the Orange County Sanitation District, conducted an independent review of the scientific studies and management actions taken during and subsequent to the 1999 ocean water closure. Eleven invited experts from various scientific and technical disciplines conducted a three-day workshop from February 28 to March 1, 2000.
The panel felt the evidence was strong, but not definitive, that storm water from the Talbert Marsh and/or Santa Ana River was the source of bacteria rather than a sewage leak as originally suspected. It also encouraged Orange County officials to set up a more comprehensive watershed-based monitoring program in order to understand the links between coastal and estuarine processes; the potential impacts of stormwater diversions in the sewer system; and the role of the marsh in bacterial dynamics. The panel's final report is expected to be released in November, 2000.

3. Regional Water Quality Control Board Action
On October 15, 1999, the Santa Ana Regional Water Quality Control Board issued a request to the County of Orange and cities in the watershed for a technical report concerning the investigation of bacteriological water quality impairments in the Talbert Channel, Lower Santa Ana River, and Greenville-Banning Channel. Pursuant to Section 13267 of the California Water Code, the Regional Board requested a technical report that provided a plan to identify, characterize, and control sources that contribute to the coliform bacteria problems in the Huntington Beach area.
The Technical Report submitted in November contained two elements. First, it provided water quality data collected during the investigation as requested. Second, it reported on a study to be undertaken that would examine the role, if any, that urban runoff played in the elevated bacterial levels of coastal waters. The study is described in more detail below.
In responding to the RWQCB, the County and cities also highlighted that data from the mouths of both Talbert Channel and the Santa Ana River demonstrated conformance with the fecal coliform objective set forth in the Basin Plan. The permit held jointly by the County and cities allow stormwater discharges into channels and the river within this objective.

D. Coastal Runoff Impact Study

A multi-phased study, co-sponsored by the National Water Research Institute, was designed to address two questions:

1. Can microbial pollutants in the runoff survive the relatively long trip from the upstream sources (pump stations, permitted discharges, and street drains) to the ocean?

2. Are the upstream sources of sufficient magnitude to account for the elevated levels of bacteria recorded in the nearby surf zone?
The initial stage of the investigation focused on the tidal transport of bacteria between the Talbert Watershed and the ocean. Data were collected over a two-week period in December 1999. Based on the findings of this phase, additional phases would examine the Lower Santa Ana River Watershed, with longer-term investigations to be focused on the role of microbes in sediment as a potentially significant and separate cause of contamination bursts. The phasing of investigations was designed primarily to provide initial results that might aid short-term actions to mitigate a reoccurrence of Summer 1999's contamination levels.
While the December Talbert study advanced our understanding of the bacteria contamination, it left many questions still unanswered. It was important in that it established urban runoff as a contributing factor to the bacterial indicators detected in ocean waters. Second, it revealed that bacteria counts were amplified as flows moved through the marsh although it could not establish the exact cause of the amplification. Third, it discovered that urban runoff and the marsh were not the only sources. Further research was needed to pinpoint the exact causes.

E. Memorandum of Understanding

In April, the County of Orange, City of Huntington Beach, and Orange County Sanitation District entered into a cooperative agreement to develop a remediation plan of regional measures aimed at urban runoff and/or unique geophysical factors contributing to excessive bacteria levels in local coastal waters. Together the three agencies would manage the research studies that were in process, conduct other investigations as needed, and develop specific corrective actions. In addition to a formal pledge to work together, the MOU established that the coastal water quality problems were regional in nature and required action coordinated from a variety of entities.
Roles for each of the three entities were defined in the MOU. All partners committed to providing a fair share of financial support for the combined efforts, supporting watershed planning, and educating the public about urban runoff. In addition, the County of Orange was designated as the lead agency in coordinating with NPDES co-permittees on urban runoff issues, developing a remediation plan, and educating the public, agency staff, and elected official about the impacts of urban runoff. The City's specific responsibilities were remediation for city infrastructure and education on urban runoff for city and special district staff. OCSD pledged to coordinate with its member agencies on urban runoff issues and work cooperatively to support requests for dry season diversions.

F. Summer 2000 Action Plan

1. Purpose

Summer 2000 Action Plan was developed and implemented in an effort to prevent a recurrence of the bacterial problems that occurred during 1999. Its primary aim was to prevent all urban runoff in the Talbert-Lower Santa Ana River Watershed from reaching the ocean untreated. All the necessary approvals were obtained to build diversion berms within the major channels and pump the runoff to OCSD's treatment plant. Combined with the city-owned pump stations that were already diverting, nearly all runoff was treated before being released to the ocean.
A second objective of the Summer 2000 Action Plan was to mitigate extreme tidal exchange between marsh areas and the ocean. During the December 1999 study, surf zone bacteria levels increased during times when an extremely high tide followed was followed by an extremely low tide. It was proposed that during specified tidal conditions sand berms be constructed to block ocean water access to the Talbert Marsh and to the Santa Ana River, two locations of significant marsh habitat. However, this action did not receive permits from the necessary agencies in time for it to be implemented during the summer. The analysis and documentation of the potential environmental impacts required more time than was available for the duration of the project.

2. Results

In general, bacterial contamination was improved during the diversion period as compared with the previous summer. Although other testing was not conducted, it is assumed that ocean water quality was improved by the removal of any non-bacterial contaminants that may have been present in urban runoff during the period.
Despite the diversions, however, bacterial indicators were high enough to cause postings off and on throughout the summer. (summarize days of postings, comparison with previous time period)

3. Policy Impacts

The Summer 2000 Action Plan provided a trial basis for the Orange County Sanitation District to accept urban runoff diversions. During the summer, OCSD formed an ad hoc committee to examine future policy directions on diversions. As a result, it adopted a new policy in September to accept urban runoff diversions that address a public health or environmental problem that cannot be otherwise economically or practically controlled. Among the conditions set forth in this policy are:

a. a limit of ten million gallons per day in aggregate

b. an exclusion for "wet weather", any period during which measurable rainfall occurs in any portion of OCSD's service area, since its facilities do not have the capacity to treat the quantity of flows from storms

c. a wavier on fees for the first four million gallons per day on a monthly average as an incentive for dischargers to address source control
Over the next three years OCSD intends to evaluate the sources of dry weather urban runoff; the quality and quantity of dry weather urban runoff discharges to the sewerage system; and (3) its costs associated with such discharges. OCSD anticipates that this policy may be revised as a result of such evaluation.

G. Grand Jury Reports

1. West Orange County Watershed Activities

The Grand Jury issued a report on May 15, 2000, recommending that PFRD establish a West Orange County Watershed Coordinating Committee. Its purpose was to "serve as a clearinghouse for all organizations and individuals and to operate as a round-table forum to facilitate the sharing of information between persons, agencies, and organizations with an interest in water quality in the West Orange County area." The Grand Jury cited the success of the watershed committees working on Upper Newport Bay and Aliso Creek as models.

2. The Rainy Season's 'First Flush' Hits the Harbors of Orange County

On May 17, 2000, the Grand Jury issued another report on macro-level pollution contaminating harbors and marinas throughout Orange County. While most storms and even dry season nuisance flows can carry trash to the harbors, the Grand Jury drew particular attention to the first significant rainfall of the winter. This 'first flush' tends to collect the greatest quantity of debris as well as chemicals accumulated on streets and yards during the dry season. Specific recommendations to the County included more debris screening devices, maintenance, public education, and restrictions on the use of disposable plastics and styrofoam by eating establishments in Orange County.

Back to Top

III. Medium Range Strategy

A. Purpose:

1. to address specific water quality problems in the Talbert-Lower SAR Watershed related to bacterial contamination

2. to address watershed issues in northwest portions of Orange County in anticipation of, and in preparation for, a formal watershed study process by the U.S. Army Corps of Engineers

B. Management Structure and Participants

1. Current Structure
Recent water quality efforts for the Talbert-Lower SAR Watershed have been managed by the three agencies in the Memorandum of Understanding: the County of Orange, the City of Huntington Beach, and the Orange County Sanitation District. Periodic policy meetings have also been held with a limited group of stakeholders, including the Santa Ana Regional Water Quality Control Board, Coastal Commission, State Department of Parks & Recreation, U.S. Fish & Wildlife Service, and the Huntington Beach Wetlands Conservancy. A Technical Committee, comprised of the stakeholders mentioned above and the various investigators conducting research, has assembled on an ad hoc basis.
One of the cornerstones of the successful watershed efforts elsewhere in Orange County has been the active participation of a broad group of stakeholders. Watershed activities underway for San Juan Creek, Aliso Creek, and San Diego Creek-Upper Newport Bay have all advanced significantly using this type of forum and the Grand Jury has recommended the creation of a similar group for West Orange County. At this time, a committee of this type is needed for the continuing efforts within the Talbert-Lower SAR Watershed.

1. Committee Structure

a. Executive Committee

¨ Roles: Manage the overall watershed activities, administer the committee structure, recommend policy initiatives, communicate with elected officials, general executive duties; will meet as needed;
¨ Members: County of Orange: Vicki Wilson, chair; OCSD: Bob Ghirelli; City of Huntington Beach: Ray Silver; National Water Research Institute: Ron Linsky

b. Policy Committee

¨ Roles: Forum for discussion of potential remediation actions and policy initiatives, advise Executive Committee on watershed activities

¨ Members: County of Orange, chair; Cities of Fountain Valley, Santa Ana, Huntington Beach, Costa Mesa, Newport Beach, and Huntington Beach; O.C. Sanitation District; Santa Ana Regional Water Quality Control Board; California Department of Fish & Game; Coastal Commission; State Department of Parks & Recreation; U.S. Fish & Wildlife Service; U.S. Army Corps of Engineers Planning Division; Huntington Beach Wetlands Conservancy; other stakeholders and interested parties

c. Technical Committee

¨ Roles: address more technical aspects of ongoing activities, particularly as they relate to study design, research findings, and specific remediation measures; to meet on an ad hoc basis as directed by the Executive Committee or Policy Committee
¨ Members: generally staff of the entities comprising the policy committee with expertise from technical and professional disciplines; chaired by the County of Orange

C. Methods

1. Diversions of non-storm flows in northwest Orange County

a. New diversion projects with approved funding for FY 2000-01
Funding has been approved in the state budget for five new capital projects in fiscal year 2000-01. In three regional flood control channels, year-round diversion dams and pump systems will be installed to divert non-storm flows to sewer treatment plants. Inflatable rubber dams will be placed in channels and activated during non-storm periods to capture and divert runoff. In addition, funding has been approved for two year-round pump station diversions. These projects, in order of priority, are as follows:
¨ Huntington Beach Pump Station
¨ Talbert Channel
¨ Greenville-Banning Channel
¨ Santa Ana River
¨ Seal Beach Pump Station

b. City pump stations continue in diversion mode
The City of Huntington Beach operates nine pump stations for local drainage purposes within the Talbert-Lower SAR Watershed. These pump stations have been diverted beginning April, 2000 to the OCSD treatment plant. Plans are to continue these diversions for up to three years except when rain in excess of 3/4 inches is predicted.

c. New diversion projects with potential funding
The County has identified additional diversion projects based on their potential for improving ocean water quality. Funding is being pursued for the following projects:
¨ East Garden Grove-Wintersburg Channel
¨ Cypress Pump Station
¨ Los Alamitos Pump Station

2. Ocean Outlet Management

Urban runoff, one of the known contributing factors to ocean water degradation, flows from the Talbert-Lower Santa Ana River Watershed to the ocean through two primary outlets. Because the sources and transport mechanisms for bacteria are not yet fully understood, actions affecting these outlets could impact ocean water quality in this area. Outlet management practices may impact the dynamics of tidal exchange or potential bacterial storage in sediment, for example, so it is addressed here as a consideration.

a. Talbert Ocean Outlet
The County of Orange is responsible for maintaining the outlet between the Talbert Marsh and the Pacific Ocean per an agreement between the County, the Huntington Beach Wetlands Conservancy, Department of Fish & Game, U.S. Fish & Wildlife Service, and the U.S. Army Corps of Engineers. Maintenance work is permitted only during the months of March and October. Pursuant to its agreement, the County has scheduled maintenance of the outlet during October 2000.

b. Santa Ana River
The U.S. Army Corps of Engineers is planning to dredge the mouth of the Santa Ana River beginning in late 2000. At this time, exact dates are not available. Although the Corps' work is outside the scope of this Plan, it is mentioned here as it may relate to the water quality investigations and/or interventions contemplated in this Plan.

3. Research Program

a. Current Studies
¨ Sanitary Surveys: a survey was taken throughout the watershed to identify where non-storm flows were originating and to test the bacterial content of these flows
¨ Subsurface and Groundwater Transport Study: sampling of soil and groundwater onshore to identify potential sources and transport mechanisms of bacteria to ocean waters
¨ Dye Dispersion Tests: examine the movement of water from the Talbert Marsh and Santa Ana River to examine potential dispersal patterns for bacteria
¨ Surf Zone Monitoring: water quality samples collected at ankle and waist depth every hour during a two-week period in May 2000 primarily in the near-shore waters with other sampling further offshore
¨ Oceanographic Study: create a computer-simulated model of ocean water movement
¨ Coastal Runoff Impact Study: characterize the coastal pollution impacts and dynamics of bacteria from an urban watershed and study; particular emphasis on the effects of Talbert Marsh
¨ End-of-Pipe Treatment Feasibility Study: investigate the feasibility and cost-efficiency of various technologies to treat runoff for bacteria within channels

b. Blue Ribbon Panel
The National Water Research Institute convened an independent panel of experts to review the studies and assist in evaluating their results, interpreting conclusions, and recommending future actions. In August the panel issued a preliminary report outlining specific analyses and observations. Since then, data from across the various studies was integrated and analyzed. In October the panel will convene again to review the results. Its final report is expected in November.

c. Future studies
¨ Bacteria source identification study: Research studies by UCI have indicated that urban runoff may be a contributor to the high levels of bacteria in Huntington Beach coastal waters but is probably not the primary source. Studies to date have pointed to the possibility that Talbert Marsh could be a significant source of some bacterial indicators. It is unclear at this time, however, whether the cause of these bacterial indicators is from urban runoff, wildlife, or other point sources.

Sanitary surveys are currently being conducted including water and sediment within the marsh to confirm theories that the marsh could be a potential source of bacteria. As the Summer 2000 Action Plan showed, bacterial contamination is still present at times in the near-shore zone even when urban runoff is diverted. Further characterization of bacteria will be necessary to design solutions for the problem. This will entail DNA testing to determine if the cause of bacteria in the Talbert Marsh is human, wildlife, or non-point source urban runoff.

¨ Santa Ana River Study
A study is planned that will examine the role of urban runoff and wetlands habitat entering the Pacific Ocean through the Santa Ana River. The study is intended to replicate, in part, many of the hypotheses posed for the Talbert Marsh. However, the study design will not be finalized until the results from the Talbert Marsh study are evaluated.

¨ EPA-NFS-USDA Study
The U.S. Environmental Protection Agency, and National Science Foundation, and U.S. Department of Agriculture have commissioned an extensive three-year study of the Talbert-Lower SAR Watershed. It will examine issues such as microbial transport mechanisms, marsh dynamics, and pump station operations in more detail and year-round that will add considerably to both general scientific knowledge and conditions specific to this local area. Although this study is outside the purview of this plan and of local agencies here, it is mentioned here because of its importance on a national scale.

D. Timeframe

This plan covers a period of time beginning in Fall of 2000. Its duration will be impacted by some external, and as yet unknown, influences including the initiation of a federally funded watershed study. Given known elements at this date, the following is a general timeline for activities outlined in this plan.

1. Deactivation of Summer 2000 Action Plan: September 18 - 31, 2000

2. Maintenance Clearing of Talbert Ocean Outlet: October, 2000

3. Five year-round diversion projects (staggered implementation):

a. Preliminary engineering: in process

b. Design and permitting: November 2000 - February 2001

c. Contract bidding and construction: December 2000 - May 2001

d. Target implementation date: May 25, 2001

4. Blue Ribbon Panel Final Report: November 2000

E. Costs

1. Projects with approved funding

a. Bacteria Source Identification Study 250,000

b. Huntington Beach Pump Station Diversion $ 250,000

c. Talbert Channel Diversion 376,000

d. Greenville-Banning Channel Diversion 345,000

e. Santa Ana River Diversion 50,000

f. Seal Beach Pump Station Diversion 250,000

$ 1,521,000

2. Proposed projects not yet funded

a. East Garden Grove-Wintersburg Channel Diversion $ 485,000

b. Cypress Pump Station Diversion 250,000

c. Los Alamitos Pump Station Diversion 250,000

$ 985,000

F. Funding Sources

1. Approved Funding

Funding for seven projects in the Talbert-Lower SAR Watershed has been approved in the FY 2000-01 budget. Projects specified for this funding include $190,000 to finance the Summer 2000 Action Plan and $1,521,000 for the six projects listed above. Of the $1,711,000 total, $1 million is designated from the State General Fund and another $711,000 from Proposition 12 bond monies.

2. Future Funding

a. Proposition 13

b. County of Orange and other local agencies cost sharing

Back to Top

IV. Long Range Strategy: formal watershed process by the Corps of Engineers

A. Goals

The federal process is the long-range strategy for all major watersheds in Orange County. It has become the standard because it is the most comprehensive process and brings resources to the table beyond the capacity of local government. Its goals are: water quality, habitat restoration and preservation, flood protection, recreation, water conservation, and infrastructure protection. By comparison, the current plan is limited in scope to only water quality and is focused primarily at bacteria as opposed to other potential contaminants.

B. Process

The U.S. Army Corps of Engineers typically follows a standard, three-part process for watersheds. First, a Reconnaissance Study is conducted. It establishes a federal interest, generally takes about one year to complete, and is funded by the federal government. Second, a Feasibility Study is performed and is typically a three-year process. This phase undertakes a thorough analysis of baseline conditions and problems in the watershed and develops solutions that address its entire spectrum of issues. Half the expenses are provided by the federal government and half are provided by local agencies.
A critical component of this process is stakeholder participation, in the form of a watershed committee. This forum provides a broad range of expertise and resources to the process and is vital for the development of consensus solutions. Stakeholder participation also allows numerous parties working together to achieve more than could alone by sharing costs and responsibilities.
At this time, a Reconnaissance Study covering the portion of Orange County west of the Santa Ana River is being requested for the federal budget year that begins October 2000. However, funding is uncertain at this time and if it is not approved, it will be pursued in the following budget year. It is anticipated that at the Feasibility Study stage, separate studies will be initiated for each individual watershed in this portion of the county.

C. Outcomes

At the conclusion of the federal process, local agencies will have a comprehensive watershed management plan established. In addition, projects will have been identified that address the specific problems of that watershed. The Corps of Engineers becomes the lead agency on those projects that meet a federal mandate although 35 percent of the funding for these projects is expected to come from local sources. Other projects need to be funded entirely with non-federal monies.