1. Alaska Department of Environmental Conservation Division of Water- Water Quality Standards Improving and Protecting Alaska's Water Quality1

2. Webinar instructions: 9 For audio please dial: 1-800-315-6338 9 Access code: 51851 9 Note that all lines will be muted during the presentations 9 Public testimony will be taken at ~11:45 and 4:15 PLEASE BE RESPECTFUL OF ALL PARTICIPANTS Improving and Protecting Alaska's Water Quality2

3. Division of Water Mission Statement: Improve and Protect Alaska’s Water Quality How? 9 Establishes standards for water cleanliness 9 Regulates discharges to waters and wetlands 9 Provides financial assistance for water and wastewater facility construction and waterbody assessment and remediation 9 Trains, certifies, and assists water and wastewater facility system operators 9 Monitors and reports on water quality Improving and Protecting Alaska's Water Quality3

4. 9 Provide technical feedback on issues associated with development of human health criteria (HHC) in state water quality standards 9 Develop a Summary Report 9 Identify key sources of information that may be applicable to the process 9 Ensure a variety of stakeholder voices are heard Improving and Protecting Alaska's Water Quality4

5. Outline 9 Ground Rules and Expectations 9 Introduction to human health criteria (HHC) 9 BREAK for lunch 9 Introduction to HHC formula 9 Introduction to Fish Consumption Rates 9 BREAK 9 DEC Literature Review 9 ADF&G Subsistence data 9 Regional Concept Improving and Protecting Alaska's Water Quality5

6. Ground Rules for Workgroup 9 DEC understands that many different interests will be represented, and that it might not be possible to come up with consensus recommendations. 9 Regardless of the degree of consensus attained, all information and recommendations will be of value to DEC in the process. 9 Be Respectful of all participants at all times- Summary of ground rules in the HHC Technical Workgroup notebook Improving and Protecting Alaska's Water Quality6

7. State Efforts to Address Water Quality Issues Prevention-based toxics reductions Behavioral-based interventions to prevent exposures to toxics DEC: Division of Water Water Quality Standards Toxics Monitoring (water, fish tissue) RISK PREVENTION DEC: Division of Environmental Health DHSS: Fish Consumption Advisory Program RISK MANAGEMENT SystemIntervention StrategyAgency Activities “Upstream” Prevention “Downstream” Safety Net Improving and Protecting Alaska's Water Quality7

8. Foundation of a Water Quality Standard -Defined- 1. Designated Uses – how water is used (e.g. recreational, industrial, aquatic life) 2. Criteria - are numeric or narrative values. Consider how much and how long you may be exposed to a substance or condition 3. Antidegradation –process for protecting high quality waters Improving and Protecting Alaska's Water Quality8

9. What are Water Quality Standards (WQS) 9 The foundation of state/tribal water quality-based pollution control programs under the Clean Water Act (CWA) 9 Are designed to protect public health or welfare (designated use) 9 Provide maximum (generally) concentration of a particular pollutant in the water (criteria) 9 Help identify polluted waters; clean-up polluted water, and make sure our waters don’t get more polluted Improving and Protecting Alaska's Water Quality9

10. Where do Water Quality Standards (and discharge limits) apply? (AS 46.03.900) "Waters" include lakes, bays, sounds, ponds, impounding reservoirs, springs, wells, rivers, streams, creeks, estuaries, marshes, inlets, straits, passages, canals, the Pacific Ocean, Gulf of Alaska, Bering Sea, and Arctic Ocean, in the territorial limits of the state, and all other bodies of surface or underground water, natural or artificial, public or private, inland or coastal, fresh or salt, which are wholly or partially in or bordering the state or under the jurisdiction of the state. (18 AAC 70.020(b)): [t]he water quality standards regulate human activities that result in alterations to waters within the state’s jurisdiction. Improving and Protecting Alaska's Water Quality10

11. Human Health Criteria (HHC) 9 A human health criterion is the highest concentration of a pollutant in surface water that is not expected to pose a significant risk to human health 9 designed to minimize the risk of adverse effects from exposure to different contaminates 9 Based on a chronic (lifetime) exposure to contaminants 9 Includes the ingestion of drinking water from surface water sources and/or 9 The consumption of aquatic life obtained from surface waters. * Improving and Protecting Alaska's Water Quality 11

12. What are HHC (cont.) 9 Human Health Criteria consider two different exposure scenarios 9 Marine Waters (Consumption of aquatic organisms only) 9 Freshwaters (Consumption of aquatic organisms & ingestion of surface water) 9 Several factors to consider… 9 Population of concern 9 Mode of effect of the contaminant (acute v. chronic, carcinogenic, etc.) 9 Definition of “aquatic life” and where does your meal come from? 9 Other exposure issues and sources of contaminants (e.g. air) Improving and Protecting Alaska's Water Quality12

13. When does HHC apply- Designated Use? 9 HHC are tied to the designated use of Recreation 9 AKA: Fishable/Swimmable Clause in the CWA 9 The practical implication is that removal or modification of use and/or criteria may be subject to a high level of scrutiny Improving and Protecting Alaska's Water Quality13

14. Historical Context: National 9 National Toxics Rule promulgated in 1992. Criteria were based on national dietary information (where 6.5 g/day comes from) 9 Original methodology was released in 2000. 9 Updated FCR to 17.5 g/d 9 Subsistence user value of 142.4 g/d 9 New criteria released in June 2015: 9 Includes updated toxicity values for 96 different pollutants 9 Updates to exposure rates 9 No change to actual methodology Improving and Protecting Alaska's Water Quality14

15. How do the 2015-recommended HHC compare with existing HHC? 9 There are 96 freshwater HHC and 94 marine criteria proposed 9 70% of the 2015 HHC are lower concentrations than NTR 9 30% of the 2015 HHC are equal in concentration to NTR 9 Numerous pollutants were not updated at this time (e.g., PCBs, metals) 9 See DEC/EPA section of the Technical Notebook for a list of the chemicals and proposed values. Improving and Protecting Alaska's Water Quality15

16. Why is Alaska interested in the HHC issue? Improving and Protecting Alaska's Water Quality16 9 Clean Water Act requires states to adopt updated criteria when new information is available 9 Alaska is subject to the promulgated National Toxics Rule 9 Not based on Alaska-specific or even Northwest data 9 Criteria must be scientifically defensible

17. What has DEC heard or learned to date? 9 Comments submitted in Triennial Review process call of a revision 9 Existing values are outdated 9 Desire for the state to adopt Alaska-specific values 9 Litigation in Northwest Improving and Protecting Alaska's Water Quality17 9 Concerns from the regulated community that potential revisions may be very difficult to meet in the short term 9 May not be the right mechanism for reducing toxics in the environment 9 $$$$$

18. HHC in the Inorganic Toxics Criteria Worksheet Improving and Protecting Alaska's Water Quality18

19. Goals of this rule-making? 9 Ensure water quality standards are protective of human health so our fish, shellfish, and drinking waters (surface) remain clean and healthy to consume; 9 Apply a regulatory process based on a realistic timeframes to allow dischargers to reduce pollutants and still be in compliance while they are doing their work; and 9 Acknowledge that there are technology limitations and give recognition that non-permitted sources may be a significant part of the problem with being able to meet the criteria. Improving and Protecting Alaska's Water Quality19

20. Questions to be considered by the Workgroup 9 Issue #1: What information about fish consumption and fish consumption rates is available to inform the HHC process? 9 Issue #2: What options does DEC have for developing criteria on a statewide/regional/site specific basis? 9 Issue #2a: What modeling approach(es) should DEC consider (Determinstic v. Probabilistic)? 9 Issue #3: What is the appropriate level of protection for Alaska and its residents? 9 Issue #3a: How should DEC apply bioconcentration v. bioaccumulation factors? 9 Issue #3b: How should DEC address concerns about its carcinogenic risk value? Improving and Protecting Alaska's Water Quality20

21. Questions to be considered by the Workgroup 9 Issue #4a: What species should Alaska include for deriving a fish consumption rate? 9 Marine Fish (i.e., salmon?;) 9 If we include- Can we adjust FCR values based on lipid content? 9 Marine Mammals (AK would be the only state that considers this issue) 9 Issue #4b: What is the role of Relative Source Contribution (RSC) in relation to fish consumption rates and what are Alaska’s options? 9 Issue #5: What are Alaska’s options for implementing the proposed criteria? Existing tools (compliance schedules) and new tools (variances, intake credits) Improving and Protecting Alaska's Water Quality21

22. Who else is working on this issue? 9 Florida: Started this process in 2003. Awaiting EPA response on 2015 package 9 Washington: Began work in 2011. Working on draft package… 9 Idaho: Began work in 2011. Working on a draft package… 9 Maine: HHC were disapproved of in 2015 for not being protective of tribal populations Currently being litigated (Maine v. EPA) 9 EPA-Region 10: May promulgate criteria for WA if state doesn’t meet a September deadline 9 Numerous tribes…both in Alaska and Northwest Improving and Protecting Alaska's Water Quality22

23. Questions? Improving and Protecting Alaska's Water Quality23

24. Improving and Protecting Alaska's Water Quality24

25. Use the EPA HHC Formula! 9 The HHC formula determines the degree of risk 9 Risk = Toxicity * Exposure * Uncertainty Improving and Protecting Alaska's Water Quality25

26. 26Improving and Protecting Alaska's Water Quality Input Variables (2015 recommended) BW = Human Body Weight (adult = 80 kg = 176 lbs DI = Drinking Water Rate (2.4 liters/day) CSF = Cancer Slope Factor (mg/Kg-day) AKA FCR = Fish Intake Rate (? grams/day) BCF/BAF = Bioconcentration v. bioaccumulation factor (L/Kg, chemical specific RfD = Reference Dose, Non-Carcinogens (mg/Kg-day) RL = Risk Level ( 10 -5 ) in Alaska (EPA uses 10 -6 ) RSC = Relative Source Contribution

27. Toxicity 9 Toxicity values are established by EPA 9 RfD = Reference dose (mg/kg-day), values are derived from IRIS or other sources of toxicological data 9 Used to be called the Allowable Daily Intake (ADI) 9 Applies to NON-Carcinogens 9 CSF = Cancer Slope Factor (mg/Kg-day) or Risk-Specific Dose Improving and Protecting Alaska's Water Quality27

28. Reference Dose (NonCancer)/Cancer Slope Factor 9 RfD: An estimate, with uncertainty spanning perhaps an order of magnitude, of a daily oral exposure to the human population (including sensitive subgroups) that is likely to be without an appreciable risk of deleterious effects during a lifetime. 9 EPA’s policy- RfD should not be exceeded Improving and Protecting Alaska's Water Quality28

29. Exposure 9 Exposure = contact between an agent and the visible exterior of a person 9 Exposure considers the magnitude, frequency, and duration of exposure to a particular agent over time (E(mag,freq,dur)/T) 9 HHC Exposure Factors 9 BI= Body weight ( fixed at 70 kg (80kg)) 9 DI= Drinking water intake (fixed 2 liters (2.4 L)) 9 FI = Fish Consumption (varies per state) 9 BAF= Bioaccumulation Factor (varies by trophic level but fixed at specific values) Improving and Protecting Alaska's Water Quality29

30. Body Weight 9 Bodyweight is based on a fixed EPA-recommended value 9 Updated 2015 = 80 kg 9 Update based on NHANES data 9 Little to no reason for Alaska to question this value-may even be higher based on Dept. of Public Health/ANTHC data Improving and Protecting Alaska's Water Quality30

31. Drinking Water Intake 9 Drinking Water is based on an fixed EPA- recommended value. 9 2000: 2 liters per day. Inc. all sources of water (e.g., drinking water, coffee, other beverages/food derived water) 9 2015: Settled on 2.4 liters per day. Consistent with 2011 EPA Exposure Handbook values Improving and Protecting Alaska's Water Quality31

32. Fish Intake Rate/Fish Consumption Rate (FCR) 9 Per EPA: States/Tribes should consider developing criteria to protect highly exposed population 9 Geographic/demographic differences are anticipated 9 EPA hierarchy of data sources 9 EPA default intake rates (22 g/d for general /142.4 g/d for subsistence) 9 Data from national surveys (NHANES or other) 9 Data reflecting similar geography/population groups (Region 10 states (175)) 9 Local Data (Alaska-specific) Improving and Protecting Alaska's Water Quality32

33. FCR Preference Hierarchy, Cont FCR Preference Hierarchy, Cont. 9 Use of Local or Regional Data 9 Use local data for freshwater/estuarine species 9 Use of uncooked weight intake values 9 Use high-end values (90 th or 95 th percentile) or average values for high consuming fish population (if using mean, should base on consumers only). 9 Fairly common practice for states to develop HHC values based on local data (ME, NY, MN, WI, OR, WA (Regional approach), ID (in progress)) Improving and Protecting Alaska's Water Quality33

34. Bioaccumulation Rate 9 Ratio of concentration of a pollutant in fish to the concentration in water (L/Kg) 9 Bioaccumulation accounts for exposure through diet, exposure to pollutants in the water, and trophic position (where in the food chain) 9 No bioaccumulation = BAF of 1 9 BAF can reach into the 1000’s for highly bioaccumulative compounds (e.g., PCBs) 9 Low bioaccumulation = exposure from drinking water 9 High bioaccumulation = exposure from eating fish Improving and Protecting Alaska's Water Quality34

35. Uncertainty 9 EPA addresses uncertainty at various points 9 Toxicity values: uncertainty is incorporated into the base toxicity value (IRIS). 9 May have compounded conservativism issues (10*10*10) you always use the most conservative factor 9 Relative Source Contribution: (0.8 to 0.2) Improving and Protecting Alaska's Water Quality35

36. Relative Source Contribution 9 Meant to account for non-water sources of exposure to non-carcinogens 9 Estimates total amount of exposure from water and FC and potential exposure to other sources (e.g., marine fish) 9 2015: EPA Default value of 0.20 in most cases- the lower the value, the more is attributed to other sources. Can be adjusted up to 0.80 max. 9 Lowering of HHC provides additional room for other sources-but not their regulation. Improving and Protecting Alaska's Water Quality36

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38. Questions? Improving and Protecting Alaska's Water Quality38

39. Issue #1: Fish Consumption Rates 39

40. Fish Consumption Rates 9 Purpose 9 Target 9 Survey Design 9 Representativeness 9 Accuracy 9 Data Analysis 9 Special thanks to Lon Kissinger who developed the information for many of the following slides (EPA Idaho FCR Presentation (02/06/13)) Improving and Protecting Alaska's Water Quality40

41. Fish Consumption for Criteria v. Advisories? 9 Fish consumption in HHC equates to g/day of fish a person consumes on average over a lifetime 9 Fish consumption in a Fish Advisory context 9 (# of meals per time period that is safe for a person to consume) 9 E.g,: two 8oz meals of halibut (of a certain size) per week over a lifetime Improving and Protecting Alaska's Water Quality41

42. It is important to use Fish Consumption in the correct context Development of WQCFish Advisories Sets standards or screening levelsAre the calculated end result “How clean do the fish need to be to always eat?” “How much can I safely eat? Target 90-95 % of consumersApplies to everyone Conservative: 1 X 10 5 or 10 6 Less conservative (use a range of cancer and non-cancer risk values) Does not consider benefits of eating fishBalance of benefit and risk ProactiveReactive Used for determining riskNot intended to determine risk Improving and Protecting Alaska's Water Quality42

43. Purpose of FCR Surveys 1. Determine trends in seafood (aquatic life) consumption 2. Determine fishing pressures on certain waterbodies 3. Assess waterbody or site-specific risks posed by contaminates in seafoods 1. Environmental regulation 2. Fish consumption advisories 1. Identification of waterbodies where fish consumption advisories are needed 2. Determine effectiveness of fish consumption advisories 4. **To support development of water quality criteria** Improving and Protecting Alaska's Water Quality43

44. What does an FCR look like? 9 Meal size * Frequency of Consumption 8oz portions * once every two weeks = ~15 g/day 22 g/day = Value used in EPA 2015 recommendations 9 Units? g/day or mg/Kg-day? (grams of fish per kg of a person’s body weight) 9 Note that kids might eat less but their lower bodyweights influence their overall consumption rates Improving and Protecting Alaska's Water Quality44

45. 45 6.5 Grams works out to ~ one 8 oz serving per month 54 grams is ~one to two meals per week 142 grams is a 5oz serving every day 175 grams is a 6oz serving every day Improving and Protecting Alaska's Water Quality

46. Fish consumption data needed for water quality standards development 1. Representative of population of interest 2. Data required for general population and high consumers 3. Characterizes consumption of desired groups 4. Rates not suppressed due to environmental contamination Improving and Protecting Alaska's Water Quality46

47. Fish consumption data needed for water quality standards development 5. Provides a range of statistics suitable for HHC development (mean, median, 5 th, 90 th, 95 th ) 6. Addresses consumption of relevant species 7. Addresses consumption of relevant fish preparation 8. Identifies sources of fish 9. Accounts for temporal variation in fish consumption Improving and Protecting Alaska's Water Quality47

48. HHC: Population of interest: General or subset? 9 The fish consumption rate (FCR) in the HHC should reflect the rate of consumption by the population of concern 9 (Mean, 90 th, 95 th, 99 th ) Improving and Protecting Alaska's Water Quality48

49. HHC Population of interest: Consumers or Non-Consumers 9 Concept: All populations will have different consumption habits 9 Just because you’re a low consumer doesn’t mean that you’re a non-consumer 9 Mis-classifying low consumers as non-consumers can lead to over-estimation of FCR mean and median values- shifts the mean and median when you trim out nonconsumers. 9 HHC based on consumers only must consider this during the survey and analysis phase to ensure people are accurately identified 9 Consensus among other R10 states and stakeholders for consumers only Improving and Protecting Alaska's Water Quality49

50. Suppression? 9 Suppressed FCR can be attributed to contamination (i.e., polluted water/fish) and/or depletion (lower population) 9 EPA HHC Frequently Asked Questions (2013): “It is also important to avoid any suppression effect that may occur when a fish consumption rate for a given subpopulation reflects an artificially diminished level of consumption from an appropriate baseline level of consumption for that subpopulation because of a perception that fish are contaminated with pollutants.” 9 EPA 2015 does not provide new information or guidance although the Response to Comments does Improving and Protecting Alaska's Water Quality50

51. Establishing a FCR 9 Use of a Food Frequency Questionnaire (paper or computer based) 9 Provides the distribution of long-term estimates of consumption rates 9 Should account for seasonal variations/different species 9 Characterize consumption of general population as well as special populations 9 Use a 24-hour Dietary Recall (Interview method) 9 Considers what you ate over last 24-hr period. 9 Survey will occur on several times over course of the year(s) 9 Identify the Method of Preparation- 9 Key data points are portion per time (e.g., week, month) and portion of uncooked weight Improving and Protecting Alaska's Water Quality51

52. Survey Components Short Term: 24-hr interviewFood Frequency Questionnaire Pros: -Recall over 24-hrs (“yesterday”) is more accurate than over longer periods of time -NCI FCR is more likely to be more accurate than FFQ Pros: -Statistical analysis is straightforward, FCR immediately usable for AWQC development -Data requirements are lower than the NCI method -Can be used to develop FCR for specific fish groups/species Cons: -Complex modeling required -More data needs to be collected than FFQ -Potential issues if not enough repeat sampling (double hits) of respondents occurs -Inability to characterize FCR for fish groups for which sufficient repeat sampling are not avail. Issue: Larger within-person random error Cons: -Uncertainty is greater when recalling Issue: Larger systematic error Improving and Protecting Alaska's Water Quality52

53. EPA Handout: Comparison of data collection approaches for fish consumption surveys 9 Please refer to the handout in your packet. 9 Key Terms 9 Representativeness 9 Accuracy Improving and Protecting Alaska's Water Quality53

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57. Questions? Improving and Protecting Alaska's Water Quality57

58. 9 Identified by DEC as a first step in the HHC process 9 Goal: Identify existing data, identify data gaps, and identify potential research needs 9 Contracted with The Cadmus Group, Inc. in 2014 Improving and Protecting Alaska's Water Quality58

59. Research Methods 9 Conducted telephone interviews with subject matter experts 9 Performed literature review (31+ different papers) 9 Criteria for Inclusion 9 Specific to Alaska 9 Fish or seafood from Alaskan waters (i.e., not tuna or canned sardines) 9 Data sourced for consumption-not commercial sale 9 Included data on collection method & QA/QC (when available) 9 < 20 years old. Improving and Protecting Alaska's Water Quality59

60. Available Dietary Surveys 9 Four Alaska dietary surveys with reported FCR were identified 9 Two surveys conducted in Cook Inlet Region 9 One in Aleutian Region 9 One with statewide sample population 9 Four surveys that may have collected applicable data but did not report FCR in the study Improving and Protecting Alaska's Water Quality60

61. Alaska Dietary Surveys Improving and Protecting Alaska's Water Quality61

62. HHC Literature Review: Peer Review 9 DEC solicited four experts to conduct a peer review 9 Lon Kissinger, Ph.D. U.S. Environmental Protection Agency 9 Elizabeth Nobmann, Ph.D. EDN Nutrition Consulting 9 Angela Matz, Ph.D. U.S. Fish and Wildlife Service 9 Philip Loring, Ph.D. University of Saskatchewan (UAF affiliate faculty) Improving and Protecting Alaska's Water Quality62 9Panel provided: 9Comments on report (e.g., representativeness of findings, seasonal differences) 9Four additional sources to consider

63. Key Points from Peer Review 9 A need to consider ADF&G Harvest data as logistical and fiscal challenges exist 9 Consider inclusion of marine fish, marine mammals, and seaweeds 9 Consider federal data sources 9 Numerous issues with representativeness in the reviewed documents 9 A need to consider sampling of certain high fish consuming populations Improving and Protecting Alaska's Water Quality63

64. Literature Review-what next? 9 Make the document(s) available to the general public for feedback 9 Posting on DEC website 9 Notification to stakeholders via WQS Listserv of 9 Presentation at Statewide workshop 9 Engage with ADF&G and USFWS Subsistence staff to identify additional sources of information 9 Review new sources of data as they become available- Several tribes have indicated an interest in collecting consumption data. Improving and Protecting Alaska's Water Quality64

65. ADF&G Subsistence Harvest Data 9 ADF&G collects harvest data from four defined fisheries 9 Commercial, Sport, Personal Use, and Subsistence 9 Personal Use and Subsistence fishery data may be more predictive of consumption (may not necessarily be true in urban settings) 9 Alaska Subsistence Fisheries Database 9 Total harvest by species, timing, and number of fishery participants 9 Community Subsistence Information System 9 Info on most subsistence food types 9 Includes info on local demographics and economies; description of data collection methods Improving and Protecting Alaska's Water Quality65

66. ADF&G Subsistence Harvest Data cont. 9 Large volume of data to consider 9 Understanding available data sources will require collaboration with ADF&G 9 Additional information on usage, storage, preparation, and community characteristics may be available 9 Methodologies exist to convert harvest data to consumption estimates Improving and Protecting Alaska's Water Quality66

67. Sources of Information: ADF&G Subsistence Division Technical Paper, No. 261 9 Introduces a method for estimating measures of consumption based on annual harvest data from household surveys 9 ADF&G has some consumption rate information (Six statistical measures (e.g., mean, 50 th, 95 th )) for ~220 communities 9 Amount of information is dependent on level of detail (1-3) Improving and Protecting Alaska's Water Quality67

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69. Next Steps 9 Technical Workgroup Meeting #2: What is the appropriate Level of Protection for Alaska (September 29?) 9 FCR: Consumers v. Nonconsumers 9 FCR: General v. Highly Exposed population(s) 9 Other Exposure factors 9 Cancer Risk Value? 9 October Public Workshop (Tech. Workgroup Mtg #3?) Improving and Protecting Alaska's Water Quality69

70. HHC Public Workshop 9 When: October 29-30 9 Where: Anchorage, Alaska Ctr. For Performing Arts 9 Why: Inform stakeholders on the issues, challenges and process Additional details will be made available on DEC-Water website and DEC-Water-Standards listserv Improving and Protecting Alaska's Water Quality70

71. Decisions on HHC and various factors will account for multiple factors Improving and Protecting Alaska's Water Quality Taken from WA State FC Presentation 2012 71

72. Thank you for your time! Improving and Protecting Alaska's Water Quality 72 ADFG 2010

73. Brock Tabor Section Manager (907) 465-5185 brock.tabor@alaska.gov Denise Elston Environmental Program Specialist (907) 465-5018 denise.elston@alaska.gov Division of Water http://dec.alaska.gov/water/index.htm Improving and Protecting Alaska's Water Quality73