1974-12-17N398
(12-17-74) Night
An adjourned meeting of the Albemarle County Board of Supervisors was held
on December 17, 1974, at 7:30 P.M. at Piedmont Community College, as requested
by the Thomas Jefferson Planning District Commission. Also present were members
of the Charlottesville City Council. Purpose of this joint session was to
discuss the possibility of initiating a study of the South Rivanna River Reservoir.
Meeting was called to order by Mrs. Nancy O'Brien, of the Thomas Jefferson
Planning District Commission.
PRESENT: (Albemarle County Board of Supervisors) Stuart F. Carwile,
Gerald E. Fisher, J. T. Henley, Jr., William C. Thacker, Jr., Gordon L. Wheeler,
Lloyd F. Wood, Jr.; (Charlottesville City Council) Charles Barbour (Mayor),
Francis Fife, George Gilliam, Jill Rinehart and Mitchell Van Yahres; (Thomas
Jefferson Planning District Commission) Bob Abbott and Nancy O'Brien; and T. M.
Batchelor, Jr. (Albemarle County Executive).
Mrs. O'Brien began the meeting with comments summarizing the purpose of the
meeting. She noted the need to study the South Rivanna River Reservoir, and to
discuss a proposal formulated by an ad hoc technical committee, along with ways
of'funding the study, should it be conducted. She reminded those present that
when the Regional Water Quality Management Plan was adopted, a resolution was
also adopted requesting a study of the Reservoir to evaluate the health and
pollution factors of the Reservoir so t~at the eutrification of the Reservoir
could be reversed. She noted that the Albemarle County Board of Supervisors,
Charlottesville City Council and the Rivanna Water and Sewer Authority all
passed resolutions agreeing that such a study should be done. The State Water
Control Board helped find qualified and interested people for the ad hoc committee.
At this point, Mrs. O'Brien turned the meeting over to Mr. George Wiiliams,
Chairman of the ad hoc committee.
Mr. Williams introduced all the other members of the committee as fotlows:
Mr. Brad Chewning of the State Water Control Board, Dr. Mahlon Kelly of the
University of Virginia Environmental Sciences Department, Dr. Clinton Parker of
the University of Virginia Civil Engineering Department, Mr. Doug Caldwell of
the State Department of Health (Steve Young was present at the meeting sub-
stituting for Mr. Caldwell), J. Harvey Bailey, Albemarle County Engineer, Guy
Agnor, Director of Charlottesville Public Works, George Williams, and Gordon
Y~er, Soil Conservation Service.
Mr. Williams introduced Mr. Gene Potter, Director of Operations of the
Rivanna Water and Sewer Authority. Mr. Potter presented a brief history of the
South Rivanna River Reservoir, it's conception~ construction and costs as well
as the consequent development of waste water treatment plants. Mr. Potter noted
that originally the Reservoir was constructed to serve the City of Charlottesville
only, and that in 1959 service to Albemarle County was added. The addition of
the County to the Reservoir system caused all water consumption predictions to
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become void due to the increased usage. He stated that today, water consumption
from the Reservoir is at a rate originally predicted for the year 1990. Mr.
Potter pointed out that the two water treatment plants on the Rivanna are presently
working at or above rated capacity. He summarized by stating that system expansion
must be acted upon now, and that a water protection plan be established.
Mayor Charles Barbour of the City of Charlottesville, questioned Mr. Potter
as to his statement that the Reservoir is presently being used at a rate originally
predicted for the year 1990. Mr. Potter clarified his statement by saying that
the Reservoir is presently being used at 99% of capacity.
Mr. Williams next introduced Dr. Mahlon~ Kelly of the University of Virginia
Department of Environmental Sciences. Dr. Kelly stated that the Reservoir has
three "symptoms" indicating problems. They are: a) taste and odor problems,
b) high concentration of plants, c) very few spot checks that show zero oxygen
concentration in lower levels of the Reservoir. He stated that the symptoms,
plus the fact that the Reservoir lies just downhill of a town and that there are
two major industrial plants which produce nutrients (which produce algae growth),
causes one to wonder if the excess nutrients are causing the Reservoir's pro-
blems. Dr. Kelly then explained the term eutrification as an excess growth of
plants, stratification of water, and excess bacterial growth on the floor of the
Reservoir due to dying plants etc. on the surface. He further stated that this
excessive plant growth also clogs filtration systems and is very difficult to
remove. Dr. Kelly noted that these symptoms are characteristic of the Rivanna
Reservoir, and that the Reservoir has upstream sources of unknown nutrients.
How to minimize the problem is not known. Even with the best filtration systems,
it is not known if the Reservoir can remain a viable water supply source. There
is evidence that if the rate of nutrient addition is reduced, the problems the
Reservoir is suffering will be reduced. If the nutrients are not reduced there
is a very real possibility that the water supply will become undrinkable.
Dr. Kelly stated that the proposal that is being presented to those present,
is basically for diagnostic tests necessary to determine the course of action in
order to maintain the Reservoir or improve its present water quality.
Question was put to Dr. Kelly as to the expected life of a lake. He stated
that the life depends a great deal upon the watershed area surrounding the lake.
The more heavily forested, the longer the life. It depends entirely upon the
activities upstream of the reservoir itself. Dr. Kelly also noted that another
problem with the Rivanna at the present time is the amount of siltation flowing
into the lake, which may possibly be reducing the Reservoir's capacity. This is
why the Soil Conservation Service is part of the study group. The type of soil
runoff, which may contain concentrations of fertilizers etc., could be one of
the causes of heavy nutrient deposits in the Reservoir.
Mayor Charles Barbour asked what preventative measures could be used to
4 0 0 12-17-7 (Night)
protect the Reservoir ~ithout conducting a study. Dr. Kelly noted that short
term treatments such as copper sulfate or aeration, both of which have already
been tried in the Reservoir. Dr. Kelly further noted that if the nutrient
additions can be slowed or stopped, the Reservoir's problems should lessen.
Mr. J. Harvey Bailey, Albemarle County Engineer noted that a siltation
study had been conducted and that capacity projections had been made. Dr. Kelly
answered by stating that this study was conducted several years ago, and that
there has been no followup. Mr. Potter added that the siltation rate used in
the "Krebbs Report" was 19.6 million gallons per year and that 588 million was
projected to be the accumulated siltation after twenty years. This is not the
actual rate, but the "designed rate". Dr. Kelly pointed out that there have
been a number of major floods, which also bring into a Reservoir large quantities
of silt. ~
Dr. Cl~ton Parker of the University of Virginia Civil Engineering Depart-
ment spoke'next. Dr. Parker read a letter which he wrote to Mr. T. W. Edwards
on January 7, 1971, stating that a study should be conducted to determine the
water quality o~ the Rivanna Reservoir. Another letter dated February 26, 1974,
to George Williams stated that a study program should be initiated. Dr.~ Parker
summarized what a study of the Reservoir should contain. First it should entail
looking at the physical part of the Reservoir including the sediment. Second,
making a material balance of what is going into the Reservoir and what is coming
out~ This would require sample taking stations upstream. Third, weather related
changes. Fourth, the daily life of the reservoir. Fifth, sampling stations
within the Reservoir, that is; high water mark, low water mark, level samplings
and bottom samplings. Sixth, the influence of the nutrient materials on the
bacteria and biological life found in the Reservoir. It would be necessary to
determine where materials that are detrimental to the Reservoir are coming from;
forested land, agricultural., industrial, or urban. Seventh, what treatment
facilities should be capable of doing.
Mr. Francis Fife of the Charlottesville City Council asked if the committee
was therefore suggesting that a moratorium be declared along the tributaries of
the Rivanna River. Dr. Parker stated that as they have not yet conducted the
study, he could not make a recommendation to that effect. Dr. Kelly added that
forested land has the least amount of nutrient input, untended agricultural land
is next, highly fertilized land is next highest, and urbanized and developed
land is highest beyond that. The study may conclude that urban development may
bring the Reservoir over the edge, also that urban development is highly depen-
dent upon the Reservoir, which consequently effects property values.
Mrs. Victoria Craw asked if there were a time element involved in a cure of
the ~Reservoir's problems once the study is done.
Dr. Kelly stated that if the Reservoir were allowed to set and the water-
shed allowed to forest, the cure would probably happen quickly. If the water-
shed area were allowed to be built up heavily, it would probably become unusable
in less than a year. Dr. Parker added that land use has too many variables on
which to predict without a study as to where the problem is coming from. Mr.
Joseph Henley of the Albemarle County Board of Supervisors asked if any other
lake has been studied from which information can be obtained. Dr. Kelly stated
that it might be possible to develop extensively within the Reservoir basin, if
planned carefully. There are a large number of flexible alternatives. Knowing
12-17-74 (Night) 4'01
the cause of the problems in advance is going to make treatment less expensive.
There are some methods which will be impractical and some which are very new
such as "spray~rrigation" which may be feasible. Another example is~to in
planning, or building another water supply.
Mr. Henley stated that the experts must know where all the nutrients are
coming from. Mrs. O'Brien stated that no study has been done yet to determine
this. Mr. Henley asked if the treatment plants now in operation take water
samples every day. Dr.~ Kelly answered that they do sample the water, but not in
the way that is necessary to obtain the information required to determine the
nutrient problem.
Dr. Parker spoke of Federal funding for planning the land and water coord-
ination programs. The bulk of the funds are for the purpose of looking at "non-
point source discharges" that is, those that do not come out the end of a pipe
but from drainage areas. Dr. Parker asked Mrs. O'Brien if the Thomas Jefferson
Planning District Commission would be l~ charge of conducting the study. She
answered that it would depend upon where the source of funding came from.
Mr. George Gilliam of the Charlottesville City Council asked Mrs. O'Brien
if there is any provision either under State or Federal funding for the estab-
lishment of a citizens advisory committee. Mrs. O'Brien stated that they had
hoped that no matter how funding is obtained a citizens advisory committee would
be established. Mr. Gilliam noted that this study could easily become a battle
ground for those who support urban growth and those who oppose it to protect the
Reservoir. Dr. Kelly noted that when the study is completed, he would hope that
results come out so that there was no favoritism either toward or against building
in the Reservoir area.
Mr. Gilliam asked again if unprejudiced objectivity can be accomplished
while conducting the study. Dr. Parker suggested that an independent party
conduct the study thereby avoiding this prejudice problem.
Ms.~ Jill Rinehart of the Charlottesville City Council asked what percentage
of the City's water supply is obtained from the South Rivanna Reservoir. Mr.
George Williams answered that it was approximately 30%. Ms. Rinehart then asked
what would happen if the Rivanna Reservoir had to be closed. Mr. Williams
answered that there is the possibility of damming Buck Mountain and North Fork
Rivers or going to the James River.
Mr. Brad Chewning of the State Water Control Board stated that he was not
speaking for the state. He stated that it could have been predicted the Reservoir
would have problems, due to the natural process of aging. Studies have been
done by the State, but each Reservoir is different, and he would recommend an
individual study. There may be some remedial actions which may be taken other
than the study.
Mr. Gordon L. Wheeler, Chairman of the Albemarle County Board of Supervisors,
asked how most other localities in the State handle similar problems, do they go
out and hire consulting firms or rely on their own personnel? Mr. Chewning
stated that he could not think of any locality that conducted a study themselves.
They always rely on the State Water Control Board or an independent consulting
firm.
Ms. Rinehart asked Mr. Chewning if "208" was planning to hire their own
executive director to oversee the study. Mr. Chewning introduced Mr. Will Estes
who is involved in getting a ',208" area underway in the State. Mr. Estes stat'ed
that "208" is a very extensive study which involved management, financial,
institutional arrangements, etc.
Mr. Gordon Wheeler at this point made a statement saying that he does not
want to see the South Rivanna study become another Crozet project; that is, just
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sit around making studies and getting nothing done. He also noted the possibility
mentioned of Federal or State funding, and commented that this would only delay
the project because of all the red tape involved. He suggested that if the
Reservoir is important enough to the City and County, they will get the money up
to make the study, then take action.
Mayor Charles Barbour stated that the City has always shown a great interest
in the Reservoir even before the suggested "Study" meeting. He added that the
City is ready any time to put up their share of money to get the study going.
Mr. Wendell Wood stated that whenever there are problems with a Reservoir,
building near the Reservoir is always the cause. He disagreed and asked Dr.
Kelly what he felt would be the most undesirable type of development near a
Reservoir. Dr. Kelly stated that the worst possible use around a Reservoir
would be a duck farm! He then stated that there is no doubt in his opinion that
building can be accomplished without harming the land or the water supply, but
that it takes careful control.
Mr. Gordon Wheeler stated to Mr. Wood that this is one reason he personally
is in favor of having a study because no one knows what is causing the damage to
the Reservoir.
Mr. A1 Bowen stated that he agreed that a study should be conducted. He
alSo stated that he was against any moratorium being placed on building in the
area of the Reservoir. He suggested that a fence be built around the Reservoir
to help keep unwanted livestock, etc. out of the Reservoir.
Mayor Barbour stated that he was not proposing a moratorium, but only
stating the fact that housing will not help the present problem. He reiterated
that the City is anxious to get started with the study, and hopes the County
feels the same way.
Mr. William Thacker of the Albemarle County Board of Supervisors asked Mr.
Williams if any figures could be given as to the cost to have a consultant
conduct the study as compared to an in-house study? Mr. Williams answered that
it was discussed, but due to lack of funding commitment, they did not solicit
bids on such a Study. He estimated that proposals from private firms could be
obtained within three or four weeks.
Mr. Gerald E. Fisher of the Albemarle County Board of Supervisors asked if
specifications for this study have been drawn up so they could be sent out for
bid by private consulting firms? Mr. Williams noted that they would need more
details than they presently have before they could solicit bids from anyone.-
Mr. Thacker added that a two year study is only an estimated guess, and asked
for Mr. William's comments. Mr. Williams answered that during the four seasons
of the year, there are distinctive changes in the Reservoir, therefore a minimum
of 12 months sampling time is required. Dr. Parker stated he felt a full year
to analyze results of 12 months of sampling would be needed, and cited an example
of a similar study in Roanoke.
Mr. George Gilliam asked what the time schedule would be in making a "208"
application. Mrs. O'Brien stated that as soon as the County and City decided
that they wanted to go for the "208", they would have to hold public hearings
etc. She therefore estimated nine months.
Ms. Rinehart asked if money would be available from H.U.D. Mr. George
Gillium stated that possibly the staff could come up with some answers as to
possible ways to get State or Federal funding without such long delays, and made
a motion that they conduct a public hearing.
Mr. Michell Van Yahres of the Charlottesville City Council stated that
there are two problems. One is funding; he feels we would not even consider
anything but local funding, this also involves a time element. Second, what is
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the County's position toward land use in the 260 square miles surrounding the
Reservoir. He further stated that everyone is vitally concerned in having water
in this area in the future. He agreed that a total moratorium could not be
placed on the building industry. He feels a proper way to approach this problem
would be for the Mayor and the Chairman of the Board of Supervisors, along with
the City Manager and the County Executive to have a meeting to discuss this
problem and how it should be approached.
Mr. Gordon Wheeler stated that due to the up coming elections, he cannot
speak in terms of two years. He does not feel the County-can say what it's
needs will be in the future. He is willing to meet with the City as suggested,
and hopefully these problems will work out as they go along.
Mrs. O'Brien stated that the first order of business is to decide whether
or not the governments want the study.
Ms. Rinehart agreed that local funding is the best way, because it can be
controlled and it can be done faster. The sooner the study is started, the
sooner the County will be able to decide what type of land use would best suit
the area around the Reservoir.
Mr. Gerald Fisher thought it would be good to inquire from the Rivanna
Water and Sewer Authority if they would be able to help fund this study out of
user charges.
Mr. George Williams stated that they will be able to supply facilities and
equipment As far as funding from user charges, this would be a matter for the
Board of Directors to decide.
Mr. Fisher stated that this is a good direct way of having the users pay
for services they are receiving.
Ms. Victoria Craw asked if it were legally possible for the Authority to
sell revenue bonds? Mr. Williams stated it was, but he was not sure if this
study would be a bona fide capital cost under revenue bonds.
Mr. Wheeler again stated that a decision must be made if the study is going
to be done, and that the Board members and City Council must decide this.
Mr. Fife stated that at the City Council's last meeting he got the impression
that several members would be against spending any more money. He then asked
Mr. Cole Hendrix if the City had any money set aside in their budget specifically
for something like this study. Mr. Hendrix stated that over a two year period
funds could probably be found in the water fund. Mr. Fife again stated that he
personally is in favor of the study. He also stated the Mr. Fisher's idea
deserves looking into as it may help relieve some financial burden.
Mr. Van Yahres made a motion to adjourn the meeting, and stated that he
felt the City and County should decide whether they are for or against conducting
the study, and if they are for it, how it should be funded.
At exactly 9:35 P.M. the meeting was adjourned.
Chairman