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PART 2: SAN JUAN COUNTY CHARACTERIZATION REPORT

CHAPTER 4: SOURCES OF POLLUTION

Chapter 4: Sources of Pollution

Ground and surface water can be polluted from either point or nonpoint pollution sources. Point source pollution is pollution that enters waters of the state through a pipe or conduit from a specific activity. Activities or sources would include discharges from wastewater treatment plants, commercial activities, and industry. Nonpoint source pollution, on the other hand, is pollution that enters waters of the state from any dispersed land-based or water-based activities or sources, including farm practices, storm water and erosion, on-site sewage disposal, forest practices, marinas and boats, atmospheric deposition, garbage, and other residential, commercial, and industrial sources.

Point sources are generally regulated by the Washington State Department of Ecology through the National Pollution Discharge Elimination System (NPDES) and other types of water quality permits. There are currently eight NPDES permitted point source discharges in San Juan County; six are for discharge from sewage treatment plants, one for the Town of Friday Harbor's water treatment plant, and one for a fish processing plant. The sources have quantity and quality limits placed on the pollutants being discharged. In past years the Friday Harbor sewage treatment plant experienced high loadings during the summer tourist season, but is currently in compliance. Other Department of Ecology permits include boatyards, sand and gravel operations, asphalt and concrete plants, bulk storage for fuel, and sites where toxic materials are routinely used.

Until the late 1960s there was little public awareness of nonpoint source pollution, which is difficult to quantify and regulate. Nonpoint sources are not easily monitored at their source of origin, and are often difficult to identify and track. Nonpoint pollution is cumulative, the result of actions by individuals as well as businesses, and can vary depending on seasons, geography, and geology. In San Juan County nonpoint pollution can vary from seasonal impacts such as summer tourism or winter storm events. Managing the impact of nonpoint pollution requires a much more complex approach than a regulation that requires a discharge permit. On an individual basis it calls for education, technical assistance, and good management practices; and on a community basis it calls for a management perspective that includes the entire watershed. This chapter discusses the potential sources of nonpoint pollution in San Juan County.

Sewage Disposal and Management

Sewage generated from residential and commercial development must be treated and disposed either by municipal sewage treatment plants or on-site sewage treatment and disposal systems (septic systems). In San Juan County there are only five sewage treatment plants serving the communities of Friday Harbor, Roche Harbor, Eastsound, Orcas Village, Rosario, and a portion of Lopez Village. These communities represent approximately one-quarter of San Juan County's population. The remaining population utilizes septic systems to treat and dispose of sewage.

Septic systems are an effective tool for treating and disposing of sewage. Systems that are properly sited, designed, installed, operated and maintained provide a level of treatment and disposal that meets or exceeds that of most municipal sewage treatment plants (WSDOH 1990). Septic systems are regulated by Chapter 246-272 WAC, On-Site Sewage Systems Rules and Regulations. Permits for sewage disposal systems are divided into three categories based on designed daily flows. In San Juan County, on-site systems with design flows under 3,500 gallons per day are regulated by the San Juan County Department of Health and Community Services. Larger community systems, 3,500 to 14,500 gallons per day, are regulated by San Juan County Health and Community Services under an agreement with the State Department of Health. Systems over 14,500 gallons per day fall under the jurisdiction of the Department of Ecology.

Over ninety percent of the septic systems in San Juan County are individual systems under 3,500 gallons per day. These systems are divided into two types, conventional and alternative. A conventional system is a gravity flow system consisting of a septic tank and subsurface soil adsorption field (drainfield, see Figure 4-1). Alternative systems generally include a treatment component, such as a sand filter, mound, or aerobic unit.

Looking at recent septic permit applications (1998 through June of 1999), sixteen percent are conventional gravity systems, with the remaining 84 percent involving some kind of treatment or mechanical device. Sand filters are currently the most common forms of treatment system. In the 1980s, mound systems were commonly installed where conventional systems were not feasible. Improved technology and stricter regulations have almost completely eliminated the use of mound systems in the county.

A third category of septic systems are experimental systems. Experimental systems are systems that do not have State Department of Health approved guidelines or specifications. These systems can be designed and installed provided an area exists where an approved system can be installed and the system has on-going testing and monitoring. No experimental systems have been installed in San Juan County in recent years. However, several inquires have been made recently regarding utilizing drip irrigation to dispose of treated wastewater. Currently, the State regulations only allow the use of drip irrigation to dispose of treated graywater. Disposing of combined flows, graywater from sinks and laundry and blackwater from toilets, is not allowed. This type of system, drip irrigation for combined flows, would be beneficial given the county's limited freshwater supplies.


Treatment of sewage occurs in the septic tank, treatment unit (alternative systems only) and drainfield. The septic tank provides a minimal level of treatment including, anaerobic decomposition of organic matter and separation of heavier solids from floating solids to produce a somewhat clarified effluent. In alternative systems, a treatment unit further "purifies" the effluent . The drainfield then receives either the clarified effluent from the septic tank (conventional system) or treated effluent from the treatment unit (alternative system) and provides final treatment in the soil through physical, chemical and biological actions. The treatment and disposal capabilities of the soil depend upon soil depth, soil permeability, slope and susceptibility to flooding.

Soil depth determines the type of system required. Effective treatment is dependent upon septic systems having adequate vertical separation. Vertical separation is the depth of unsaturated soil that exists between the bottom of the drainfield trench and a restrictive layer such as a water table, bedrock, hardpan, or excessively permeable material (WSDOH 1990). Vertical separation provides for the treatment of sewage effluent through degradation of organic matter and removal of bacteria and viruses. Washington State requires three feet of vertical separation for conventional gravity systems. In order to maintain three feet of vertical separation, a minimum of four feet of original undisturbed soil is needed. Pressure distribution systems require two feet of vertical separation or three feet of original undisturbed soil. Where there is less than one to two feet of vertical separation, installation of a treatment unit is required. Washington State regulations prohibit installation of septic systems in areas that have less than one foot of original undisturbed soil.

Soil permeability determines the rate at which the soil can accept and treat septic effluent. As the soil permeability increases, the size (square footage) of the septic system decreases. However, infiltration rates can be too excessive (greater than 6 inches per hour) or too slow (less than 0.6 inches per hour) for adequate treatment. Excessive infiltration rates cause the effluent to pass too quickly through the soil column, limiting the necessary contact time between the soil particles and sewage effluent. Slow infiltration rates will cause the effluent to pond and prematurely surface.

Other factors including slope and flooding susceptibility also affect septic systems ability to treat and dispose of sewage. Excessive slope can cause groundwater mounding and lateral seepage. Washington State prohibits installation of septic systems on slopes in excess of 24 percent to 45 percent. Flooding enables effluent to bypass treatment in the soil column and moves it to the nearest stream, pond, or other water body.

Based on soil ratings established by the Soil Conservation Service (Natural Resource Conservation Service, NRCS), very little area in San Juan County is suitable for conventional on-site septic systems. Maps of these soil characteristics are included in Appendix B, Figure B-5, Soil Conditions.

Soils with limitations for on-site disposal generally require that alternative systems be installed. Alternative systems provide an additional level of treatment; however, these systems must have regular maintenance to insure proper function. Septic systems, conventional and alternative, are an effective tool for treating and disposing of sewage. However, septic systems can fail and pollute surface and ground water with pathogens, nutrients, and chemicals. Failures occur for a variety of reasons including improper siting, design, installation, operation or maintenance. San Juan County Department of Health and Community Services is responsible for insuring that failed systems are repaired. Table 4-1 shows the number of repair permits issued county-wide per year since 1996 (HCS 1999). Repair permits are issued for drainfield failures, so these numbers do not reflect the extent of component failure, such as pumps, switches, and filters.

Sanitary Surveys (Westcott/Garrison & Shoal bays)

In 1998, San Juan County Health and Community Services applied for and received a Special On-site Shellfish Grant from the Department of Ecology. The goal of the grant was to identify and provide funds to repair failed septic systems in shellfish growing areas. Westcott/Garrison Bay was the primary area to be surveyed. If funds remain, additional surveys are to be completed in Shoal, Buck, Mud/Hunter, and Eastsound bays, respectively.

Surveys were completed in Westcott/Garrison and Shoal bays in 1998. The survey areas included all developed shoreline parcels and upland parcels that bordered drainage-ways that had the potential to adversely affect marine receiving waters. All property owners were mailed a description of the program and asked to grant permission to inspect their septic system. In addition to the mailings, two workshops were held in each community to discuss the scope of the project and inform residents that funds were available to help pay for repairs, if necessary.

In Westcott/Garrison Bay, surveys were completed on 90 septic systems between June and October 1998. Of the 90 system surveyed, 9 failures (10%) were identified. In addition, 9 individuals did not grant permission to inspect their system. Surveys were completed in Shoal Bay in December 1998 and yielded similar results. A total of 76 parcels were identified in the survey area. Surveys were completed on 33 systems with 1 failure identified (3%). Permission was denied from 3 property owners. The remaining lots were either undeveloped or had seasonal use.

Additional surveys are scheduled to be completed in the winter of 1999.

Table 4-1. Repair Permits Issued
Year Number of Repair Permits Percent of All Septic Permits
1996 63 23%
1997 48 16%
1998 55 14%

Agricultural Operations

The dynamics of agriculture in San Juan County are changing. Chapter 2 describes how the number, size and type of farms have changed since 1920. Smaller operations and more intensive uses are taking the place of larger farms. Animal husbandry is the primary agriculture activity including raising sheep, cattle, horses, llamas, alpacas, and poultry. There are many small operations raising vegetables and specialty crops for market produce. While all agricultural activities can affect water quality, this section mainly focuses on livestock operations.

The Department of Ecology assumes the primary enforcement role to ensure that agricultural operations do not degrade water quality. Ecology's enforcement is triggered by documented water quality degradation, and usually initiated by a complaint. Generally enforcement actions are used as a last resort only. Farm owners are encouraged to work with the Natural Resources Conservation Service (NRCS) and the local Conservation District to develop and implement farm plans and Best Management Practices (BMPs) to protect water quality.

If not properly managed, agriculture operations can pollute ground and surface water. Pollution can include, but is not limited to, sediment from soil erosion, and water quality degradation through nutrient loading, bacteriological contamination, and chemical (pesticides and herbicides) contamination. Farming activities that that can cause water quality problems include poor pasture management, poor management of animal wastes, unlimited animal access to surface waters, and over grazing in wetlands and other sensitive terrestrial habitats.

Proper pasture management is crucial for eliminating or reducing soil compaction, soil erosion, sedimentation and waste run-off. Pasture management involves managing hay production and animal grazing. Both of these management techniques depend upon the capabilities and limitations of the soil to sustain pasture. The Natural Resources Conservation Service has determined the soil suitability for pastures based on the diversity and estimated average acre yield. Maps of agricultural soils can be found in Appendix B. Figure B-5, Soil Conditions.

With the average acre yield for a given soil type, management techniques can be established to optimize crop yield and protect water quality. Rates for the number of livestock can be established once the estimated crop yield and months available for grazing are calculated. Many of the soils with good to excellent pasture suitability have other limitations that can affect pasture management. For example, the majority of the soils with excellent pasture suitability ratings are hydric (water holding) soils, many of which are wetlands, and require artificial drainage before they can be used for forage crops. The banks of drainage ditches and ponds, if not protected and managed, can erode and carry pollutants to surface water.

Animal access to surface water and wetlands can be detrimental to water quality through loss of protective vegetation, bank erosion, nutrient loading, and bacteriological contamination. Animal access refers to livestock having unlimited access to surface water (i.e., no fences or barriers). This does not mean that surface water should not be used for stock watering. If done correctly, stock watering sites can be constructed with minimal impacts on water quality.

Animal waste management is another crucial factor in protecting water quality. Animal wastes, the solids and liquids, contain large quantities of nitrogen, phosphorous, potassium, and bacteria. If not properly managed, these wastes can enter surface water and cause eutrophication. Figure 4-2 summarizes the amount of waste products produced by different animals.

Grazing of wetlands can also be detrimental to water quality. With proper management, some wetlands can be safely grazed during dry periods when animals won't sink in and the nutrients from waste will be utilized by plant uptake. During periods when the soils are saturated and there is excess water over the soil the stock should rotated to drier pastures.

Visual surveys conducted in 1997 and 1998 documented occurrences of all of these adverse activities on farms in San Juan County. Actual farm surveys including animal counts and incidents of poor farming practices were not completed. Therefore, the extent of water quality problems resulting from agricultural practices is unknown. Although San Juan County has limited use of chemicals compared to other counties (SJC Extension), it is safe to assume that the potential for water quality degradation from other agricultural practices does exist.

 

Forestry Practices

Forest lands comprise over 70% of the land area in San Juan County (see Appendix B, for maps of both landcover and parcels that are managed as forestlands) Chapter 2 elaborates on the amount, ownership, and type of these forestlands. Local timber harvested is used as sawlogs, pulpwood, export logs and firewood. Without proper management, timber harvesting and subsequent site preparation activities have the potential to adversely affect water quality through increased soil erosion and sedimentation, soil compaction, and water temperature increases, as thermal cover is removed.

Forest cover intercepts rainfall, absorbing the energy of the individual raindrops and reducing the erosive potential. Vegetation stores moisture in cells, releasing some of that moisture to the atmosphere through transpiration. Other moisture is retained on the surfaces of the vegetation and reenters the atmosphere as evaporation. When the forest cover is reduced during logging or clearing operations, rainfall can enter the soil profile directly, contributing to saturated conditions that are conducive to surface water run-off and erosion.

Haul roads, skid trails, and log landings create permanent and temporary surface areas with reduced permeability and interrupt natural surface drainage patterns. Run-off from these surfaces combined with run-off from interrupted drainages is often concentrated into ditches and culverts. This concentrated run-off can cause increased surface and streambank erosion, sediment transport and deposition, channel scouring, and downstream flooding. Soil erosion and sediment transport and deposition in the San Juan Islands commonly ends up degrading the marine waters surrounding the Islands.

Under RCW 84.34, the County has the authority to regulate timer harvest under the Timber-Open Space program. The County also has land use authority in the conversion of forest land to residential and other uses. For a discussion of these current use tax programs, see Chapter 2.

Standards for logging operations are addressed through Chapter 76.09 RCW, Washington Forest Practices Act. The Act created the Forest Practices Board which promulgates Forest Practice Rules and Regulations under Chapter 222-10-010 WAC. The Department of Natural Resources has the authority to administer these rules and regulations to protect the public resources of the State of Washington. The broad definition of "public resources" includes fish, water, and capital improvements of the state.

There are four classes of forest practices that apply to the harvest of timber. Complete definitions of these classes can be found in Chapter 222-10-010 WAC. A brief description of each class is listed below.

Activities under the Class I category are the only activities that can lawfully take place without a Forest Practice Permit issued by the Department of Natural Resources.

Table 4-3 is a record of forest harvest permits issued in the San Juan Islands by the Department of Natural Resources from 1989 through 1996. This table is based upon data compiled by the Sedro-Woolley office of DNR. The majority of these permits were Class IV - General, which will be discussed in the Land Use Conversion section. The notable increase observed in 1992, 1993, and 1994 may be a direct result of increased log prices for export logs bound for Asia, and/or the increase in land conversions for residential use. The areas recorded as "partially cut, selectively logged or salvage logged" may represent areas whose land cover has dramatically changed. Technically these may still be forested lands but their hydrologic characteristics may have been seriously compromised.


Table 4-3 Forest harvest permits issued between 1989 and 1996.
Year Permits Acres clearcut as part of forest practice permit Acres partially cut, selectively
or salvage logged		 New road
miles built
1989 10 24 731 .4
1990 11 15 226 0
1991 18 0 602 .1
1992 38 20 738 1.8
1993 70 88 1218 2.6
1994 44- 41 1085 3.1
1995 21 10 573 1.4
1996 24 46 577 .1

Accurate comprehensive statistics on all logging activities occurring in the county are difficult to obtain because the amount of harvesting taking place without permits is unknown. Compliance with the Forest Practice Act to protect public resources is administered by an employee of the Department of Natural Resources who resides on Whidbey Island.

Washigton State's Forest Practices Rules and Regulations are written to address logging operations state-wide. However, the San Juan Islands have unique characteristics that are worth noting. First, Chapter 222-3-110 WAC, Timber Harvesting on Islands, applies to all of San Juan County. This regulation restricts clearcut harvesting within 200 feet of a marine shoreline and limits clearcuts to a maximum of 40 acres with 200 foot between adjacent harvest units in the San Juans. Many of the streams and creeks in the San Juan Islands did not meet the Forest Practice Act protection minimums based upon stream types. According to the Forest Practices division of the Washington State Department of Natural Resources, emergency rules governing Class IV and V streams are currently in effect. These rules require that all Class IV and V waters that are two feet or wider between ordinary high water marks and have a gradient of less than sixteen percent be treated as Class III streams. These emergency rules apply to waters that have not been shocked to determine the presence or absence of fish. These emergency rules will continue to be renewed until a set of final stream protection rules is written and accepted. Finally, implementing wetland management zones and associated requirements is difficult as a large percentage of the wetlands have not been identified or mapped (see Chapter 2, Wetlands, Lakes and Streams).

Because several species of salmon found in the waters of the State of Washington have been given protection under the Endangered Species Act (ESA), the Forests and Fish legislation was passed by the State legislature to meet requirements of the ESA. The Forest Practices Division of the Department of Natural Resources is currently (May 1999) writing rule language that will be incorporated into the Forest Practices Act. According to a spokesperson from DNR, the issues that must be addressed in riparian areas are very complex and not easily understood. These newly amended rules to the Forest Practices Act will probably have an impact on timber harvesting in the San Juan Islands.

 

Land Use Conversions

The population in the San Juans continues to increase rapidly and increases are projected to continue for several years, heightening the demand for land suitable for residential use. (Chapter 2 discusses the population increases.) Conversion of forest, wetland, and agricultural property to residential and/or commercial use has the potential to negatively impact water quality. Tree-covered properties, especially those with saltwater or mountain views, are prime locations for land conversions to residential development. Conversion impacts can include increased run-off, soil erosion, and interruption of hydrologic flows. Mitigation measures can lessen the negative impacts, but development will generally degrade of water quality.

When land is converted from resource lands such as forests, wetlands, or farmlands to a more intensive land use such as residential or commercial, a typical series of events transpire. Vegetation is removed from the building site, an access road is constructed, and utilities are installed. Earthwork, including cuts and fills, may be shaped for the building site or roads. The building is constructed, the final grade is established, and landscaping is undertaken.

Each of these activities causes changes in the hydrologic cycle. Existing vegetation was acting as above ground storage for rainwater, delaying run-off from the site and creating conditions conducive to ground water recharge. Removal of the vegetative cover increases surface water run-off, soil erosion, and sediment transfer and deposition. Access roads and driveways with hard surfaces, ditches, and culverts may radically change the flows of water within a watershed. Both surface and subsurface drainages are altered and diverted by these structures.

These alterations decrease the time it takes run-off to flow into drainageways and streams, resulting in concentration of run-off. The concentration of run-off in a condensed time frame usually leads to increased peak flows, higher stream velocities, bank erosion, and increased flooding. All of these factors set up circumstances for erosion and sediment transport. In addition, by altering existing overland and subsurface flows, the effectiveness of wetlands and waterbodies for water storage and treatment is diminished.

Where vegetative cover is replaced with impervious surfaces, such as roofs, roads, driveways, and lawns, concentrated run-off becomes a permanent condition, which is labeled stormwater run-off. This run-off may also contain petroleum by-products, further contaminating the receiving waters. As with soil erosion and deposition, nonpoint pollution from impervious surfaces in the San Juan Islands frequently is deposited in the marine waters surrounding the islands.

Land use conversions and their accompanying modifications of an area appear minimal on individual sites. However, the cumulative effects of land use conversions can be permanently damaging to natural systems in a watershed. There is no current water quality data available to determine the cumulative effects of land use conversions on water quality.


Table 4-4. Forest land conversion permits issued through Oct.1997.
*Permit totals through 10/97.

Year

Permits

Acres clearcut as part of land conversion permit

Acres partially cut

New road miles built

1989

10

2

37

.7

1990

9

2

0

0

1991

2

0

0

0

1992

31

5

316

3.8

1993

33

9

416

1.7

1994

24

65

89

1.2

1995

11

1

63

2.3

1996

9

20

40

.3

1997*

18

37

603

1.0

The areas listed as partially cut in this table may represent a dramatic modification in the forested land cover and its hydrologic functions.

Under rules adopted December 1991, by the Forest Practices Board, counties can identify forest lands that are "likely to convert." Forest Practice Applications (FPA) in these areas will be upgraded to Class IV- General, unless the land is designated as "Open Space Timber." The "likely to convert" designation grants the county primary responsibility for the State Environmental Policy Act (SEPA) compliance. The designation also gives the county opportunity to review, recommend, and/or set conditions for any forest practice application on forestland identified for conversion.

Chapter 222-20-050 establishes a review procedure for timber harvest applications associated with the conversion of forestland to non-forest use. The procedure, Conversion Option Harvest Plan (COHP), is designed to assist in the identification of potential impacts on drainage courses and critical areas prior to the issuance of the permit by the Department of Natural Resources (DNR). The procedure establishes the opportunity for county review and modification of the permit. Modifications will be made based upon existing county ordinances and policies, including the county comprehensive plan and the shoreline management plan. The County has 30 days to review COHP applications and recommend modifications that must meet guidelines under Chapter 222-20-040 WAC.

When the COHP process has been completed, DNR can more promptly issue Forest Practice Permits. The COHP procedure allows the DNR to modify applications using county guidelines, after reviewing Department of Natural Resource standards. DNR is responsible for site inspections and compliance with the Forest Practice Rules and the conditions of the COHP. The county can also inspect permitted areas and invoke penalties for violations of the COHP as described in the COHP ordinance.

The Conversion Option Harvest Plan is a voluntary plan, developed by the landowner and approved by the County, limiting the timber harvest area, road locations and open space. This jointly developed plan is submitted to DNR as part of a Class II, III or IV Forest Practices Application. The plan is attached to and becomes a part of the conditions on the permit. If the requirements of the COHP are continuously met by the landowner, the COHP maintains the landowner's option to convert to a use other than commercial forest production.

Conversions of forestlands to residential or commercial land use is regulated by the Washington Forest Practice Rules and Regulations. Class IV General Permits defined in the forestry section, are issued by the Department of Natural Resources to landowners who indicate their intentions to convert forest lands to other uses. With the exception of COHP, this class of forestry is the only one subject to county review and approval. Table 4-4, above, indicates the number of permits, total acres involved and miles of new roads built between 1989 and 1997, as part of a land use conversion from forest to residential use.


Solid and Hazardous Waste Management

As the population of San Juan County increases so will the volume of solid and hazardous waste generated. These wastes, if not managed correctly, can pollute surface and groundwater with hydrocarbons, heavy metals, toxic organic chemicals, and/or pathogens. Proper management is essential for reducing or eliminating the potential water quality pollution from these waste streams. Management includes the use, collection, storage, transportation, transfer, treatment, and disposal of the waste material.

The State Solid Waste Management Act, Chapter 70.95 RCW, assigns solid waste management to local governments. To insure effective management, the County and Town of Friday Harbor jointly developed both a Solid Waste and a Hazardous Waste Management plan. These plans are reviewed and approved by the Department of Ecology. Each plan is required to be updated every six years to insure effective waste management. For more information see, San Juan County's Solid Waste Management Plan and Household and Hazardous Waste Management Plan.

Solid Waste

Solid waste includes all putrid and nonputrid solid and semisolid waste including but not limited to garbage, rubbish, ashes, industrial wastes, swill, demolition and construction debris and abandoned vehicles. San Juan County currently relies on "long-hauling" all its sold waste off the islands for disposal. Transfer stations located on Lopez, Orcas and San Juan islands collect and store the waste until the material is transported to the mainland for disposal. The volume of solid waste handled at these facilities continues to increase. Table 4-5, below, shows the volume of waste deposited at each of these facilities (Stuhr 1999).


Table 4-5. Volume of Garbage Received (Tons/yr)
 Year  Lopez  Orcas  San Juan
1996 1,065

3,015
 3,015
1997 1,400 3,300 3,300
1998 1,400 3,300

3,300

These transfer stations are issued permits by the San Juan County Department of Health and Community Services and inspected annually to insure the material is handled properly and any leachate (contaminated runoff) is contained.

Long-hauling all of the solid waste off the islands has been occurring since April, 1994. Prior to that, the county operated landfills on Lopez and Orcas islands and the Town of Friday Harbor operated an incinerator and landfill on San Juan Island. In 1980, the State Department of Ecology reviewed county dump sites for listing under the Federal Conservation Recovery Act of 1976, which triggered the need for permits and costly monitoring procedures. This resulted in the county's Lopez landfill closing in 1980, although a septage lagoon continues to be used there. Several local landfills, including Roche Harbor and Blakely Island, also ceased operations at this time. Several smaller community landfills have also been utilized, but the number and location of these sites is unknown.

The Orcas landfill is approximately eight acres in size and was closed in 1994. A transfer station and septage lagoon continue to operate at the site. Operation of the incinerator and landfill by the Town of Friday Harbor ceased in 1995 and a transfer station is located at this site now. The map at the end of this chapter shows the approximate location of the transfer stations and closed landfills.

Septage lagoons on Lopez and Orcas are an ongoing problem for the county. Septic tank waste and other septage can only be disposed at these two sites, a costly problem for San Juan and other island septic pumpers and residents. These lagoons are overused and prone to overflowing. In 1999, a solar greenhouse treatment system was engineered and approved for San Juan Island. When constructed, this facility should take some pressure off the lagoons, and save conscientious septic system owners on San Juan the cost of sending waste to other islands. Septage is considered solid waste under State law.

Groundwater monitoring at the Orcas and Friday Harbor landfills has been occurring quarterly since the early 1990s. Post-closure monitoring will continue for 20 years or until the site becomes stabilized (i.e., little or no settlement, gas production, or leachate generation). Monitoring wells are located both above and below the sites to determine if the landfills are impacting water quality. To date, no contamination has been identified in the groundwater.

Unfortunately, not all solid waste ends up in the transfer stations. Illegal dumping of solid waste, albeit minor compared to other areas, exists in San Juan County. The San Juan County Department of Health and Community Services is responsible for investigating illegal dumping activities. The county receives and investigates approximately twenty complaints per year.

Hazardous Waste

Hazardous wastes are defined as all flammable, toxic, corrosive, and reactive waste generated by residences and businesses. These wastes must be properly disposed to prevent surface and groundwater from becoming severely contaminated with heavy metals, hydrocarbons, and other toxic compounds. Hazardous waste should not be disposed with the regular trash, down the drain, or on the ground. Instead the waste should be separated and taken to the county operated hazardous waste collection facility at the San Juan Island transfer station. The county and town offer regular hazardous waste round-up, allowing individuals to properly dispose of these wastes for free or at a minimal cost.

Businesses that routinely generate hazardous waste are defined as Small Quantity Hazardous Waste Generators. They include school district facilities, bulk petroleum stations, vehicle maintenance service centers, and the University of Washington Marine Laboratory.

Marinas and Recreational Boating

San Juan County is a very popular boating destination. Each year thousands of boats flock to the San Juan Islands to explore the many coves and inlets. While boaters are important to the economy of San Juan County, if uneducated they also can pollute the marine and fresh water environments. Pollution from boating activities can include illegal sewage discharges, oil and/or gas spills, and spilled solvents, antifoulants, and paints used to maintain the vessels.

Recreational Boating

Recreational boating is increasing steadily in the San Juan Islands. In the more popular bays for anchoring, such as Garrison Bay, as many as 100 boats have been observed anchoring over busy holiday weekends. This popularity is also shown by the expansion of marinas at Roche Harbor, Friday Harbor, West Sound, and Fisherman Bay. In addition to power boating, kayak touring has become a booming business in the county. The extent that these many recreational visitors adequately dispose of waste by using boat pump-outs and other sanitary facilities is unknown.

Washington State Parks Department surveyed over 3000 boat owners in 1988 and found that over 75 percent discharged sewage directly overboard. Nineteen percent of all respondents had no toilet facilities onboard their boat and/or used a bucket. Almost 20 percent had a direct discharge marine toilet and another 19 percent had a portable toilet. About 35 percent of boats surveyed had an approved Marine Sanitation Device (MSDs) with holding tanks. The remaining seven percent of boaters had an MSD with a macerator and treatment system.

Even the boats with MSDs routinely discharged sewage overboard. Boaters with Type 3 MSD's (holding tanks with "Y" valves) were asked when discharge overboard took place. The survey indicated that about 35 percent of boats had "Y" valves on their holding tanks. Of these, almost 15 percent kept the "Y" valve open all the time (5 percent of all boaters). Eighteen percent discharged their waste when at least three miles offshore (6 percent of all boaters). Thirty eight percent discharged holding tanks when in the major channels of Puget Sound (14 percent of all boaters).

Fecal coliform pollution in the marine waters of Friday Harbor and San Juan Channel resulted in San Juan Channel being proposed for listing in 1996, as a waterbody needing management actions to attain water quality standards under the Federal Clean Water Act, Section 303(d). In 1983, investigators for Department of Ecology concluded the fecal coliform bacteria concentrations in Friday Harbor waters and shellfish were a direct result of poor effluent disinfection and improper boater waste disposal. Boat waste discharges were considered a significant contributor to violations of bacteria criteria (Determan and Kendra 1986).

Boats are prohibited from discharging untreated sewage into the waters of the United States (within three miles of the U.S. Coast) by the Federal Clean Water Act of 1972 (and as amended). Enforcement of this regulation is under the jurisdiction of the U.S. Coast Guard. The Coast Guard admits that catching someone in the act of discharging raw sewage overboard is very difficult given that the discharge usually occurs below the water line.

Marinas

There are 13 commercial marinas in San Juan County as well as numerous public and private docks and ramps. Table 4-6, below, lists the marinas, including the number of slips and whether pump-out facilities or restrooms are available. See map at the end of this chapter, for marina locations.


Table 4-6. Commercial marinas in San Juan County
Occupancy of moorage slips varies seasonally among marinas.
Marina Location Approx. Total Moorage Pumpout Facilities Restrooms Available
Cayou Quay Marina Deer Harbor

~35

no

yes
Deer Harbor Marina Deer Harbor

90

yes

yes
Rosario Resort Marina East Sound

35

planned

yes
Island's Marine Center Fisherman's Bay

96

yes

yes
Lopez Islander Marina Fisherman's Bay

50

no

summer only
Capron's Landing Friday Harbor

62

yes

yes
Port of Friday Harbor Friday Harbor

464

yes

yes
Shipyard Cove Friday Harbor

200

no

yes
Bay Head Marina Harney Channel

70

no

no
Snug Harbor Resort Mitchell Bay

80

no

yes
Brandt's Landing President's Channel

~30

no

portable
Roche Harbor Resort Roche Harbor

377

yes

yes
West Sound Marina West Sound

160

yes

yes

The presence of a marina does not necessarily indicate the presence of pollution. If properly sited, designed, operated, and maintained, a marina can greatly reduce boat related nonpoint source pollution. However, the pollution potential is significant enough that the State Department of Health considers any site adjacent to an active marina as prohibited for shellfish harvesting. Activities at marinas that have the potential to cause pollution include sewage discharges, fuel spills, and use of toxic cleaning compounds.

Boat Yards & Maintenance

As with all types of vehicles, boats require on-going maintenance. Maintenance is normally performed at boat yards and/or marinas. Maintenance involves the use of a wide variety of chemicals to repair, fix, clean, paint, and restore boats. Detergents and paints are associated with hull cleaning and painting. Solvents and other chemicals such as fiberglass resins, acetone and acids and are commonly associated with hull and engine repairs. These chemicals must be used, stored and disposed of properly to prevent water pollution.

Six boat yard and marine repair facilities are located in San Juan County. These facilities include a variety of services, including haul-out, engine repair, boat refinishing and refurbishing, and storage. See the map at the end of this chapter, for these locations.

These facilities are regulated by the Washington State Department of Ecology (DOE) through general water quality permits. The permits require the boatyards to contain, collect, and treat all pressure wash water and monitor all discharges. Ecology's Northwest Regional Office in Bellevue monitors pollution control at boatyards and commercial operations in San Juan County. Boatyards in the county are currently in compliance with pollution control regulations as required by federal law

Stormwater

Stormwater is defined as run-off from residential, commercial, and urban areas. The quantity of stormwater will grow as the county's population increases and the amounts of impervious surface expand. Pollution from stormwater can be separated into two categories, quantity and quality.

Increased quantities of stormwater can cause flooding and soil erosion. These increased quantities are a result of run-off being channeled through hydrologically efficient systems of ditches, pipes, and drainage ways. These efficient systems allow rainwater to accumulate as surface run-off more quickly than vegetated ground covers, and decrease the time it takes for rainwater to enter creeks, rivers and surrounding marine waters. This reduced time concentrates run-off and causes increased peak flows, higher stream velocities, bank erosion, flooding and sediment deposition.

Stormwater is a primary transport mechanism for other nonpoint source pollution. Pollution enters a stormwater drainage system as contaminants washed by rain falling on impervious surfaces. As a result, stormwater quality can be contaminated with petroleum products, heavy metals, toxic organic substances, fertilizers, herbicides and pathogens.

Stormwater is addressed in San Juan County by two principal sets of regulations. In 1998, the county adopted the Department of Ecology's "Stormwater Management Manual for Puget Sound Basin" (SSM) as a part of the county's Unified Development Code. Under county regulations, all new development and redevelopment must conform with the SSM. Class IV General and COHP forest practices must meet the stormwater requirements of the county's Unified Development Code. "Small parcel developments" that create less than 5000 square feet of impervious surface must develop an erosion and sediment control plan or illustration, and utilize Best Management Practices to deal with stormwater. All other regulated developments under county jurisdiction are required to prepare and submit to the county a Stormwater Site Plan that analyzes potential water quality impacts, the effectiveness of proposed Best Management Practices, and an erosion and sediment control plan.

The Town of Friday Harbor formed a stormwater utility in 1992 and adopted a Stormwater Management Plan in 1997. This plan describes deficiencies in the existing stormwater system, recommends system improvements, and identifies Best Management Practices for new developments. The Town funds improvements to the stormwater system through an assessment of landowners with developed parcels.

Some of the adverse effects of stormwater can be minimized through proper management techniques. Site plans that address erosion and sedimentation are a component of stormwater management. Best Management Practices such as infiltration trenches, wet ponds, biofiltration swales and vegetative filter strips can be utilized to prevent flooding and improve the quality of discharged stormwater.

The need for stormwater management is likely to increase significantly as more land is developed and urban centers continue to grow. Currently, stormwater quality problems were evident in the urban zones of Friday Harbor and Eastsound. Recent water quality monitoring results, reported in Chapter 5, indicate degraded water quality at culverts in Friday Harbor and Eastsound. Similar results were identified at Eastsound in 1995 (Parsons and Ogier 1995). While these samples are not conclusive, they do indicate potential water quality problems and the need for control and protection of stormwaters in the county.

Atmospheric Pollution

Suspended solids in the air can be deposited in surface water, thereby adding to pollution problems. All air pollution sources and emissions in the county must comply with the general emission standards contained in Chapter 173-400 WAC. Most federal air pollutant emission standards apply only to industrial point sources larger than those in San Juan County. Point and area sources of air pollutants in San Juan County have been identified in Chapter 173-400 WAC. The Friday Harbor incinerator and Friday Harbor Sand and Gravel have been the only sources of air contaminants in the county documented in the state emission inventory, both of which are now closed.

Water quality and air quality issues are also affected by aerated waste lagoons and land application of sludges and wastewaters. The Washington Clean Air Act provides for the formation of local air pollution control authorities for each county of the state. San Juan County was part of a multi-county local air authority: Northwest Air Pollution Authority (NWAPA), but the county left the Authority in 1988. Air quality regulation in San Juan County is now done through the Northwest Regional Office of the Department of Ecology.

Large point sources of air pollutants that are listed within specific industrial categories are required to register each year with Ecology under Chapter 173-400-100 WAC. Most of the listed point sources in San Juan County are small enough to avoid registration, but some, such as the Friday Harbor incinerator, and gasoline retailers that pump more than 360,000 gallons of gasoline per year, are required to register.

A review is required for construction of any new point source, or for any modification of a listed existing source. To date, the only sources that have gone through new source review are the Friday Harbor incinerator, Island Asphalt (now a portable unit owned by Lakeside Industries), and closures of the Friday Harbor and Orcas Island landfills (Garland 1996).

 


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