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HomeMy WebLinkAbout4725_CCv0001.pdf RESOLUTION NO. 4725 A RESOLUTION OF THE CITY OF REDLANDS, AUTHORIZING FILING OF THE URBAN WATER MANAGEMENT PLAN WHEREAS, Section 10610 et.seq. of Division 6 of the California Water Code, relating to water conservation requires development and filing of an updated Urban Water Management Plan by urban water suppliers with more than 3000 service connections by December 31, 1990; and WHEREAS, the City of Redlands recognizes that the waters that make up the water supply of the City of Redlands are a limited and renewable resource subject to increasing demands; that the conservation and efficient use of urban water supplies are of statewide concern; but that planning for that use and the implementation of those plans can best be accomplished at the local level; and WHEREAS, the City of Redlands believes it is in the best interests of its citizens to conserve the highest quality water reasonably available to it for domestic use by its water users; and WHEREAS, the City of Redlands has developed the Urban Water Management Plan to achieve water conservation and efficient use of water and a sustainable lifestyle consistent with Redlands' unique heritage and community goals; and WHEREAS, a public hearing has been held on the Urban Water Management Plan pursuant to Section 6066 of the Government Code, NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF REDLANDS AS FOLLOWS: That the Urban Water Management Plan is adopted as prepared and modified following the Hearing and the Draft Plan shall be filed by the Utilities Resources Manager with the California Department of Water Resources; and That the City of Redlands will implement the Plan adopted in accordance with the schedule set forth in the Plan; and That the City of Redlands shall file a copy of its final plan with the Department of Water Resources not later than 30 days after adoption.. ADOPTED, SIGNED AND APPROVED, this 28th day of December, 1990. kf mayor, tyrjdfrr :Rd dlands City'Clem, City ofA-edlands 1, lMorrie Poy er, City Clerk of the City of Redlands, hereby certify that the foregoing resolution was duly adopted by the City Council at an adjourned regular meeting thereof, held on the 28th day of December 1990, by the following vote. AYES: Councilmembers Beswick, Cunningham, Larson, Milson; Mayor De irjyn ICES None ABSENT: Non ABSTAIN: None w City Cle k, 6ty, l_ edlands RESD475 Mage THE URBAN WATER MANAGEMENT PLAN FOR THE CITY OF REDLANDS MUNICIPAL UTILITIES DEPARTMENT pENHILL DECEMBER 1990 CONTENTS 1 Introduction 1-1 City of Redlands Municipal Utilities Department 1-1 2 Water Supply 2-1 3 Water Management Accomplishments of the Last 5 Years 3-1 Existing Programs 3-1 Review of 1985 UWMP 3-6 4 Implementation Program 4-1 General Program Information 4-1 Schedule 4-1 Management Programs 4-2 5 Programs Considered but not Chosen 5-1 Appendix A. Using WaterPlan to Evaluate Water Conservation Programs EXHIBITS 1 Population Projection 1-3 2 Past and Projected Population 1-4 3 Per Capita Water Consumption 1-5 4 Per Capita Water Demand 1-6 5 Potable Water Demand 1-7 6 Potable Water Demand, Past and Projected 1-8 7 Existing Water Sources 2-2 8 Total Water Demand 2-3 9 Total Water Demand 2-4 10 Additional Water Sources 247 11 Existing Management Practices 3-2 12 Estimated Water Savings of Existing Management Practices 3-3 "1\41 051,51 Section I INTRODUCTION This is an updated Urban Water Management Plan (U P) for the City of Redlands (City) prepared in compliance with Assembly Bill (AB) 797. AB 797, known as the Urban Water Management Planning Act, is part;of the. California Water Code (Section` 106610 et seq.). The bill became law during the 1983-84 Regular Session of the California Legislature. The provisions of AB 797 were to remain in effect until January 1, 1991. However, AD 2661 adopted in 1990 deletes the termination date and revises the required elements of a UWMP. Linder AB 797, urban water suppliers with more than 3,000 service connections or water use of more than 3,000 acre-feet ac-ft) per year were required to submit a UW by December 31, 1985. The City filet] a MP in December 1985 to meet the original deadline. AJB 797 requires that an updated UWMP must be developed and filed with the California. Department of Water Resources by December 31, 1990. This document is the updated UWMP required by AB 797: This plan update will be submitted to the California Department of Water Resources within 30 days of approval by the City Council, CITY OF REDLANDS MUNICIPAL UTILITIES DEPARTMENT The City of Redlands .Municipal Utilities Department provides water to a population of approximately 66,000 via approximately 17,500 water connections. The amount of water used is metered and billed on a bimonthly basis. The City of Redlands water utility service area generally` coincides with the area designated by the Local Area Formation Commission ( CO) sphere of influence. The service area encompasses 50 square 'les. 34 square miles inside the City's corporate boundaries and 16 square miles of surrounding unincorporated land. PUI TION Population growth in Redlands can be projected within the limitations of Measure N Measure N, a local ballot measure approved November 3, 1987, established the annual maximum number of dwelling units both inside and outside the City limits. Measure 1 amends a previous growth limiting initiative, Proposition R, approved November 7, 1978. Measure N limits new residential development to a maximum of 550 dwelling units in any calendar year: 400 inside the City limits and no more than 150 outside the City limits. In any given year, if fewer units are approved or constructed, the unused number is not carried forward to any future year. tA0 t 12_0"_5 t 1- The future population is projected based on Measure N's dwelling limits and the average occupancy per dwelling unit. The average occupancy per dwelling unit used for population projections is 2.77 used on data for the period 1980 through 1989. The total dwelling units within the City limits have increased an average of 494 units per year since 1980 (Annual Planning Commission Reports, 1980-1988). For future popu- lation projections, the Measure N annual limit of 400 dwelling units within the City limits is used to provide the total of 550 dwelling unit per year total increase for areas in and out of the City limits. Therefore, the annual population increase within the service area is estimated at 1,524 people for the purposes of the UWW. The total projected population through the year 2000 is shown in Exhibit 1. By the year 2000, the City water service area projected population is 82,600, an increase of 36,350 over 1980. Exhibit 2 presents the past and projected population for the years 1980 through 2000. WATER DENIAND Water demand varies from year to year depending on many external factors. The major contributing factor for this fluctuation is the weather. However, in the long term, potable water demands in the City service area will increase proportionally with the population growth. In contrast, agricultural water demands in the water service area will most likely decrease as land is taken out of agricultural production for development. For the purposes of the UWMP, the agricultural and potable water demands have been separated. Agricultural demand has been estimated to be 3,300 ac-ft in 1990 (City of Redlands Water Production Summary, 1980-1989). For the purposes of the UWMP, it is pro- jected to decrease each year until it is halved at 1,650 ac-ft in the year 2030. Potable water demand projections are estimated based on historical per capita water demand and the projected population. For the past 10 years, the average daily per capital water demand has varied between 276 and 361 gallons per day (gpd). The average over this period was 331 gpd. For future baseline projections, it is assumed that the average daily per capital water demand is 330 gpd. Exhibits 3 and 4 illustrate the City's past and projected per capita demand. Based on a growth rate of 1,524 people per year and an average water consumption of 120,450 gallons per year per person (330 gpd times 365 days), the City will annually require an additional 183 million gallons of water (563 ac-ft). Exhibit 5 illustrates the projected water demand on the City's system. Exhibit 6 summarizes the same data. LA02989801\412044,51 1-2 12-5-90 90,000— PAST POPULATION PROJECTED POPULATION 80,000 70,000--1 z 60,000- 0 50,000— :D . . . . . . CL . . . . . . . . . . . . . . . . . cL40,000. . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30,000 20,000— . . . . . . . -RLANNiNG- PERIOD 10,000 f --j-- 80 81 82 83 84 85 86 87 88 89 90 91 92 93 94 95 96 97 98 99 2000 YE A R EXHIBIT 1 POPULATION PROJECTION CITY OF REDLANDS MUNICIPAL UTILITIES DEPARTMENT U.W.Wp, 01\0NE'-RNildal� Exhibit 2 Past and Projected Population Year Population' 1980 46,250 1981 51,117 1982 52,890 1983 53,889 1984 54,934 1985 56,930 1986 57,567 1987 60,156 1988 62,200 1989 65,833 1"5 75,M 2" 82,644 LPast population from City Clerk Official Records +6,000 outside city limits. LAO 28888\DIW12004.51 b 00'7 9 PAST DEMAND PROJECTED DE #AND 400 -- Q> Ci.70 «...Q 0 300 .,, �{ 200 .... .. loo ., ..., 80 81 82 83 84 85 86 87 88 89 90 91 92 93 94 95 98 97 98 99 2000 Y E A R EXHIBIT PER CAPITA WATER CONSUMPTION CITE` OF REDLANDS MUNICIPAL UTILITIES DEPARTMENT u.w.M,P. Exhibit Per Capita Water Demand Water Produced Unit Water Demand Year (Ac-Ft) (gpd per person 1984 16,945 327 1981 20,216 353 1982 17,664 298 1983 16,652- 276 1984 21,185 344 1985 20,682 324 1986 22,093 342 1987 22,273 330 1988 25,169 3+61. 1989 26,189 355 1995 27,700 3311 2000 30,500 3311 JU,'Projected LAt '\Dl\4121113.51 Exhibit 6 Potable 'Water Demand Past and Projected Potable Water Use Year (Ac-Ft) 1980 16,945 1981 20,216 1982 17,664 1983 16,652 1984 21,185 1985 20,682 1986 22,093 1987 22,273 1988- 25,169 1989 26,189 1995 27,7001 2 X1,5001 'Projected i LA0 1%412_005.51 t Section 2 WATER SUPPLY The City of Redlands uses a number of sources to satisfy its water demands. The major sources include local surface water and groundwater and some imported water from the State Water Project. Redlands also utilizes some very effective management practices that reduce consumption and help bridge the gap between water demand and water available for use. The City's policy is to completely utilize the sources with the highest quality before using other sources. The order of use is local surface waters first; local groundwater second; and, as a supplementary source, imported water from the State Water Project. Typically, the local surface water is used to supply base demand, and groundwater and State water are used to meet seasonal and peak demands. FMSTING WATER SOURCES A list of water supplies currently used by Redlands is shown in Exhibit 7. This table lists the sources and compares the cost and quality of each. Exhibit 8 illustrates the contribution of each source to fulfilling total water demand. Exhibit 9 is a tabulation of the data used to create Exhibit 8. The second column of Exhibit 9 is the estimated Potential Water Demand. The Management Practices column estimates the reduction in Potential Water Demand induced by the City's management practices. The Baseline Water Demand column indicates the amount of water actually used by the consumers and corresponds to the water demand presented in the previous section. These three columns in Exhibit 9 illustrate the estimated difference between the potential water demand and the actual demand (referred to as Baseline Water Demand for the UWMP). The difference is the amount of water not required due to the City's existing management practices. Groundwater Groundwater supplies to Redlands can be classified as either untreated or treated. Untreated groundwater is of sufficient quality that no treatment is required after it is pumped and can be discharged directly into the potable water distribution system. Untreated groundwater is much less expensive than treated groundwater and thus much more of it is utilized. The safe yield of the local groundwater basin isnot well defined at this time. Due to the existence of nitrate, fluoride, TCE, DBCP, and other chemicals in portions of the groundwater basin, some of the groundwater is not suitable for consumption without treatment. Technology now exists for removal of some of these contaminants at a reasonable cost. As a supply source, treated groundwater is considered less desirable than surface water or untreated groundwater due to the cost of treatment. LA028MDIWII 045M 2-1 Exhibit 7 Existing Water Sources �u Unit Cost Water Quality mill geek: LOW Excellent Santa Ana River LOW Excellent Gr un Ater (untreated) Moderate Very Good it Groundwater Create Hilt Excellent Manage�inent Practices Low t€� High N/A State W titer Project Him : cerate LA0288WW412 017.51 I 40,000 jF 30,000 „ . ... ��� 'CATER gp� Et tNc PRojE� --� 25,000 MAN -8 MEN` �- -" TATE ® 20,000 . ..., . ... PLA. ..... . �4 fir 15,000 URP.A E. WATEE .`. INC-KLE1Y P'L"'T 10,000 5,000 GROUNDWATER PLANNING PRM + 1980 81 82 83 84 85 86 87 88 89 90 91 92 93 9495 96 97 98 59 2000 Y E A R EXHIBIT 8 1 SEE EXHIBIT 12 TOTAL WATER DEMAND CITY GSE REDLANDS MUNICIPAL UTILITIES DEPARTMENT « BASED ' N WATER PRODUCTION SUMMARIES 1980-1989 1989 U,W,M.P. Exhibit 9` Total Water Demand Potential, Baseline3 Surface Water' 'Nater Management, Water (.fie-Ft Demand Practices Demand Tnte3 Hiackley3 +Groundwater3 Year 7 (Ac-Ft) (Ac-Ft) (Ac-Ft) Plant Plant (Ac-Ft) 1980 22,245 5,300 16,945 9,834 0 7,11.1 1981 26,516 6,300 20,216 9,577 0 10,639 1982 23,164 5,500 17,664 9,563 0 8,101 1983 21,852 5,200 16,652 9,031 0 7,621 1984 27,785 6,600 21,185 10,693 0 10,492 1.98.5 27,082 6,400 20,682 101383 0 10,299 1986 29,043 61950 22,093 11,636 0 10,457 1987 29,223 6,950 22,273 9,541. 1,964 10,768 1,988 32,869 7,700 25,169 7,731. 5,543 11,895 1989 34,989 8,800 26,189 6,110 6,725- 13,354 'Management practices plus total water use Estimates (See Exhibit 12) 3 From Water Production Summaries Fate Plant from 1980 to 1987 treated Mill Creek, Santa Ana River, and State Water Project water. Presently gate treats primarily Mill Creek water. Hinckley Plant treats primarily Santa Ana River water and State Water Project water. Mill Creek The City has long identified its local surface waters from Mill Creek as being its preferred water resource due to its high quality and location relative to the Redlands water service area. It is the City's policy to use its surface water supply that enters the water system at a high elevation or to take advantage of the economy and reliability provided by a gravity feed system. Mill Creek lies northeast of the City of Redlands and is situated between the Santa Ana Canyon to the west and Spoor Canyon to the southeast. The drainage area for the creek covers approximately 50 square miles, most of which is in the San Bernardino National Forest. Flows in the creek are dependent upon annual precipitation with a general reduction in stream flow during the summer and fall months. Water is diverted from the stream at two points high in the watershed and is stored in two aqueducts operated by Southern California Edison (SCE) for power generation. A pipeline conveys the water from the SCE Hydro Unit No. 1 to the Tate Water Filtration Plant, from where it is introduced into the City's potable water distribution system. The waters from Mill Creek are generally of the highest quality available to the City. This source provided approximately 6,100 ac-ft to the City in 1989, representing 18 percent of consumption that year. Mill Creek also provides some of the least expensive water available to the City. Santa Ana River The upper portion of the Santa Ana River lies north of Redlands with a drainage area greater than 200 square miles of the San Bernardino National Forest. The quality of Santa Ana River water is generally comparable to that of Mill Creek. This source is obtained by Redlands through stock ownership in several water companies that have water rights to the Santa Ana River. Typically, water from this source is treated at the Hinckley Water Treatment Plant before it is introduced into the City's distribution system. Water from the Hinckley WTP provides approximately 19 percent of consumer needs. Most of the water at the Hinckley WIT comes from the Santa Ana River, while the rest is imported water from the State Water Project. Like Mill Creek, Santa Ana River water is also some of the least expensive water available to the City. State Water Project Redlands obtains some State Water Project water imported to the area by the San Bernardino Valley Municipal Water District (SBMWD). The State Water Project is a massive system of darns, canals, and pump stations that captures, stores, and transports water from Northern California throughout the rest of the state. Water delivered by the State Water Project flows through the Sacramento-San Joaquin Delta. Treatment requirements of this water can be different than local surface water supplies available to Redlands. LA0299WM412045.51 In the past few years, Redlands has experienced difficulties in obtaining a reliable supply of water from the State Water Project. Recently, the City experienced a 2-month supply disruption due to facilities construction at the Devil's Canyon Forebay. Also, limited water has been available for use as groundwater recharge in the Mentone Basin for the past two winters. There is also the possibility of future interruptions due to natural disaster or facility shutdown. Additionally, State Project Water is relatively expensive when compared to the cost of local supplies. For the dual reasons of supply reliability and treatment requirement concerns, the State Water Project is rated the least desirable water supply that Redlands has available. Exchange Water In May 1976, the City of Redlands joined nine, other entities in creating the Santa Ana River-Mill Creek Cooperative Water Project Agreement or "Exchange Agreement" as it is only referred to. The purpose of this endeavor is to provide for: —beneficial use of existing local water and available imported water supplies on an integrated basis utilizing various exchanges and transfers in order to provide the most economical, efficient, and dependable supply possible; at a minimum expense to water users and taxpayers; and to conserve energy. Interconnected facilities allow the entities to exchange water to the benefit of each party. Typically, Redlands will deliver water to Yucaipa in exchange for water from another entity or for State Water Project water delivered by the SBVM)A(D. Two types of exchanges are permitted as part of the Exchange Agreement: simultaneous exchanges and deferred exchanges. A simultaneous exchange occurs when the delivery of water to one party and the reception of a like quantity of water from another party occur substantially at the same time. A deferred "change is when a delivery of water is made to others in exchange for future receipt of water. In the latter case, a deferred credit for the amount of water delivered is earned by the exchanging party. Belonging to the exchange program provides Redlands with increased flexibility of supply and access to a greater water supply pool. ADDITIONAL WATER SOURCES To meet the growing demand for water, it may be necessary to acquire additional water sources in the future. Existing sources can be developed to a greater extent or new sources of water can be tapped into. Exhibit 10 lists the potential future water sources for the City of Redlands and provides a preliminary estimate of the relative cost and quality of each source. LA0 2$89901\412045:51 2-6 Exhibit l Additional Water Sources Source cost Quafity MW Creek Low Excellent Santa Ana River LOW Excellent Groundwater (untreated) Moderate Very Good Groundwater (treated) Hid Excellent Exchanged Water LOW Moderate to Excellent Reclaimed Water High Moderate Management practices Low to High N/A State 'dater Project Hlgb Moderate is The best source to acquire water depends on many factors, including water, quality, economics, social and political factors, and environmental and health impacts. An order-of-magnitude estimate to develop additional water from the above sources has been performed and is tabulated in Exhibit 10. In this way the sources can be compared economically on an equal basis. The cost to obtain and develop additional water from the source is presented in terms of dollars per acre-foot ($/AF) to facilitate this comparison. As shown in Exhibit 10, initially the local surface waters of Mill Creek and the Santa Ana River would be the least costly sources to develop. State Water Project water and reclaimed water are most likely to be the most costly additional sources to obtairL This order of economic priority fortunately also tends to match the priorities established by Redlands for water quality and treatment related issues. Mill Creek Additional water can be obtained from Mill Creek using existing diversion, conveyance, and treatment facilities, The capacity of the treatment plant is the limiting factor in the amount of additional water that can be obtained. The Tate WTP has a capacity of 12 million gallons per day (mgd). In its peak year of use, 1986, the year before the Hinckley WTP came online, the Tate WTP produced almost 12,000 ac-ft of water. In 1988 and 1989, treating almost exclusively Mill Creek water, the plant annually produced approximately 7,000 ac-ft of water. Thus, approximately 5,000 additional ac-ft of Mill Creek water can be used by the existing facilities, when creek water is available. However, during drought periods, additional water would probably not be available directly from the Creek. The cost of developing additional water up to a maximum of about 5,000 ac-ft from Mill Creek is relatively low. Most of the expense is accounted for in the treatment of the water. However, any amount needed beyond 5,000 ac-ft would require more diversion, conveyance, and treatment facilities. Santa Ana River Santa Ana River water is obtained through stock ownership in various water companies. The water is diverted from the river and conveyed to the Hinckley WTP from where it enters the City's distribution system. To increase the amount of water obtained, additional shares of stock must be purchased from the individual companies. The stock prices vary, and the amount of water obtained for each share of stock varies from company to company and from year to year, depending upon the total amount of water in the river. Preliminary estimates indicate that the cost to acquire and treat additional water from the Santa Ana River is similar to the cost of Mill Creek water, which is relatively low. LA028888\M412045.51 2-8 Groundwater Groundwater has historically provided a major source of water for the City of Redlands and it is expected to continue in the future. New supplies can be tapped by drilling new wells or reopening old wells that are not currently used due to water quality issues. Because the Mentone Basin, from which Redlands obtains most of its groundwater supply, is unadjudicated and the City has no official policy on basin management, there is currently no imposed limit on the amount of water it can pump from the basin. The costs involved in obtaining additional sources of groundwater are the capital costs of drilling a new well or opening an existing well and, if required, the treatment costs to meet water quality standards. In addition, there are the normal operations and maintenance costs of a wellfield. Preliminary analyses indicate that the cost to drill and operate a new well that does not require any treatment is moderately more than the cost of local surface water. To reopen an existing well and provide treatment is costly- Management Practices Management practices can be viewed as a new source of water in that the needs of the water service area can be met<without actually obtaining additional sources of water. Many management practices have been recognized as successful and are currently employed by other water purveyors in California to decrease water consumption. The next section discusses management practices in detail. Reclaimed Water , Reclaimed water is a new source that many water-short communities are now evaluating. A reclaimed water system uses effluent that is treated to a high standard set by the California Department of Health Services and then distributes it to the end users. Some efforts are being made by other water purveyors to develop reclaimed water as.a potable supply either by a high degree of treatment and direct injection into the potable water system or by injecting or percolating the treated effluent into a groundwater basin for later recovery and reuse. However, the more common use of reclaimed water is direct nonpotable reuse, such as for irrigation purposes. Nonpotable reclaimed water is distributed by a dual distribution system separate from the potable distribution system to such end users as agriculture, highway medians, and large turf areas (e.g., golf courses, parks, and school yards). Currently, Redlands is investigating projects to supply reclaimed water to a 100-acre orchard and to freeway landscaping. Due to the stringent discharge requirements that have been set on the Santa Ana River Basin, most wastewater dischargers have to treat their effluent to a quality that meets criteria for reuse by irrigation. However, most wastewater reclamation plants are located at the low point of the service area to facilitate a gravity collection system. This works against the reclaimed water system if there are major pumping needs to get LA0288WOI\412045n 2-9 the water back uphill to the end users. For the City of Redlands, it is estimated that the unit costs would be in the range of $200 to $2,000 per ac-ft. Exchange Water The City of Redlands, as noted previously, is a member of the Santa Ana-Mill Creek Cooperative Water Project Agreement or "Exchange Agreement." Exchange water can be viewed as a new source of water if a water volume is allowed to be used by other agencies during a period of when the supply exceeds Redlands' demands and the water volume is reimbursed at a later time when Redlands' demand exceeds its supply. An example of this would be a deferred exchange during the winter when demand is low and supplies are high. Mill Creek water that would otherwise flow undiverted down the creek could be exchanged away for water returned in the summer when demand is high and supplies are low. The exchange credits earned during the winter act as a ""reservoir"" of water that could be recalled as needed during the high use summer months. According to the Exchange Agreement, there are no exchange charges levied for simultaneous exchanges: There are to be no charges made by the Project Manager to any Party for Simultaneous Exchange Water under the terms and conditions of this Agreement. Charges levied for deferred exchanges are spelled out in the Exchange Agreement as: The charge to be made by the Project Manager to any Party to this Agreement for Deferred Exchange Water shall be the amount of all additional costs required to deliver water on the Deferred Exchange basis over and above the amount of the costs for making said deliveries on a Simultaneous Exchange basis. Thus, according to the Exchange Agreement, charges that would apply to a deferred exchange are minor costs such as the pumping cost differential due to increased power rates in the summer. The additional cost of exchange water would be normal treatment costs that are also incurred by Mill Creek water. Therefore, the total cost for new water acquired through a deferred exchange would only be slightly higher than Mill Creek water. State Water Project Additional supplies of water from the State Water Project can be obtained from the SBVMWD. The cost to buy, transport, and treat state water has been estimated to be on the order of $327 per ac-ft, which is expensive when► compared to local surface water. Due to the relative expense of this source, the potential of limited reliability, LA0 11 _ 5.51 2-10 and potential treatment issues, the City has determined State Project Water to be the least desirable supply source. SUPPLY DEFICIENCIES Redlands has not experienced any shortfall in water supply during the recent drought years. At this time, the City does not project a deficiency in the next 5 years. During the last major drought period of 1976-77, Redlands did not experience any significant shortages. The largest threat to the City's water supply is the existence of contamination in the Mentone groundwater basin. The contamination has caused Redlands to shut down several of its wells. However, new wells have been drilled and other sources pursued to make up any effect the well closings may have had on the supply outlook. Redlands appears to have an adequate supply of water available to meet drought shortages and increasing demand for the next 5 years. t. LA0288MIt412 045.51 2-11 Section 3 WATER MANAGEMENT ACCOMPLISHMENTS OF THE LAST FIVE YEARS Water management practices provide an alternative approach to the problems of increasing water demand and finding new sources to meet that demand. Water management practices can help close the gap between water available to a utility and its water demand. EXISTING PROGRAMS The City of Redlands currently employs some effective management programs that are responsible for an estimated 25 percent decrease in potential Water Demand to the Baseline Water Demand shown in the previous sections (see Exhibit 11 and Exhibit 12). This represents a yearly savings of approximately 8,000 ac-ft of water. The City of Redlands currently uses or has used the following management practices to encourage water savings and reduce water demand: • Deliver water conservation kits • Provide developer incentives to reduce water use • Install metered services on all connections Employ an increasing block rate structure Provide public information and education on water conservation Perform a large meter replacement program Manage system pressures WATER CONSERVATION KITS Water conservation kits provide residents with an opportunity to reduce water consumption in their homes. The program is voluntary and requires very little time and effort. The kits contain two toilet tank displacement bags, two shower head flow restrictors, and two leak detection tablets. Complimentary water conservation kits were delivered to each Redlands household by local Boy Scout troops in 1988. Toilet displacement bags can save more than 1,2100 gallons of water per toilet per year. Plastic bags filled with water are hung from the inside of the toilet tank, next to the intake pipe. The bag of water displaces the water level in the tank which lessens the amount of water used to flush. The use of shower head flow restrictors can save up to 5 gallons of water per minute. These restrictors result in a savings of approximately 3,650 gallons per person per year. An added benefit is the utility savings to heat the water: Since less water is used, less energy is required. A circular disk with a small hole in the center is placed over the existing pipe LAWSM801k412 0401 3-1 before the shower head attachment. The restrictor permits a smaller amount of water to flow through the shower head. Toilet leaks can be detected using special dye tablets. The tablets are dropped in the tank, ma the water a bright color; brightly colored water in the toilet bowl indicates a leak. The appropriate toilet part(s) can then be fixed or replaced to stop unnecessary water from flowing into the toilet bowl. DEVELOPER INCENTIVES Developer incentives are used to incorporate water saving practices in construction project plans. When built, the projects will combine with other water management efforts to reduce water consumption. Redlands uses two types of developer incentives: a point system for water-saving efforts that are voluntary and mandatory requirements. Since 1988, the City has used a point system for proposed developments. The Residential Development Allocation (RDA) process is used to give proposed developments points for water conservation efforts. Extra points are given for drought-tolerant landscaping (also referred to as xeriscaping). During the City's review process, the developments are ranked, and only those projects with the highest points are approved for construction. The City also has water-saving requirements that developers of commercial and multifamily residences must adhere to. These requirements are stated in the Requirements adopted by the planning commission for each development case and include use of separate water meters for landscaping and indoor use, use of fountains that recycle water, and use of drought-tolerant plants. Developer fees for water use are included with the above requirements. These fees include a water source acquisition charge and water capital improvement charge. The monies collected from the water source acquisition charge are for the cost to obtain additional water rights and water sources to serve the development. The monies collected from the water capital improvement charge are for the cost of capital production, construction of conveyance>and delivery facilities that serve the development, and the costs of management practices that help decrease water demand. METERED SERVICES Water meters measure the amount of water used during a specific period. Coupled with per unit pricing structures, customers are encouraged to use water wisely. Nonmetered customers have no economic incentives to conserve water since they can use as much water as desired and be charged a flat rate. The City of Redlands has used water meters for many years. The California Department of Water Resources (DWR) reviewed many studies on the impact of metering on water use and found reported demand reductions in the range of 13 to 45 percent after meters were installed. After this review, the DWR concluded that a 20 percent reduction in water use is a good estimate of the effects of metering. LAOM38801Al2 W.51 3-4 INCREASING BLOCK RATES Increasing black (increments of water used) rates, in conjunctionwith water teeters, is a billing incentive to encourage customers to use less water. As consumption rises, customers are charged more per unit of water. Customers can reduce their eater use, and their bills„ by using water wisely and installing water-saving devices, such as those mentioned in the water conservation kits. The City has used this method for quite some time. First, customers are assessed a water availability charge, based on the meter size. Usage charges are then added at the rate of$0.27 per 100 cubic feet for the first 1,000 cubic feet. The rate increases to $0.60 per 100 cubic feet after the initial 1,000 cubic feet. INFORMATION/EDUCATION Information campaigns concerning water management are designed to increase customers' awareness of water scarcity and habits that waste water in and around the home. The intent' of these campaigns is to snake customers aware of the need to conserve water. The campaign can include print media, radio, and television to disseminate the desired. information. These can be in the forte of free public service announcements, paid advertising, or news stories. In addition, the material can be bilingual or multilingual. Other forms of communication include'brochures,bill staffers,tours,and seminars. The City of`Redlands has used a wide variety of informational/education materials to encourage consumers to use less water. These include seminars hosted by the Redlands League of Women Voters, newspaper articles and advertisements, water conservation and xeriscape literature,bili stuffers, participation in numerous forums, Water Awareness Week activities, and school programs. School campaigns include water awareness materials designed for children, Water Awareness 'meek poster contest and display of pasters at Redlands ball, field trips to Hinckley hater Treatment Plant (500-600 kids tour annually), and classroom presentations. The goal of these programs is to educate school children aboutwherewater comes from, how it is used, and ways to conserve water. LARGETER REPLACEMENT This program replaces old and wom out water meters used by large water users. Many old meters were not accurately measuring the amount of water used. By replacing these meters, customers can monitor grater use and the City can recover water costs. In 1988, the City identified and replaced 30 large water meters. To date, the recovery costs to the City for actual water consumption versus cost of the program is 2,1 MANAGING_SYSTEM_ PRESSURES Pressure-reducing valves Delp conserve water by lowering the household water pressure. The valves reduce the volume of water flow from household water fixtures. The reduced pressure does not affect toilets, dishwashers, and washing machines, since they use a fixed volume of water. The I.T.S. Department of Housing and Urban Development conducted a> study involving paired sets of homes in three major cities to measure the effectiveness of pressure-reducing valves on lowering`household water consumption. The study showed a o P412 .5i 3-5 3 percent reduction in water consumption. Redlands has required pressure-reducing valves on some water service connections for many years. REVIEW OF 1985 UWMP The 1985 Redlands I included nine water management programs in a proposed 2-year implementation plan. Each program is listed below and is indicated if planned activities were implemented. L Contract for leak detection survey and use of City crews to repair or modify the distribution system in an effort to reduce the amount of unaccounted water. The survey may also disclose unauthorized water connections that are unmetered. The program was not implemented. 2- Increase water rates to fund necessary new construction of major water facilities and normal operation and maintenance costs. Increased rates would result in water conservation by some of the consumers. This program was implemented. 3. Develop a demonstration water conservation garden (landscape) at a City park. This program was not implemented. 4. Purchase and distribute home retrofit plumbing kits. This program was implemented. -5. Investigate feasibility of using reclaimed waste water for irrigation purposes. This program continues to be studied although no reclamation occurs at this time. 6. Provide additional water consumption information on water bills. This program was not implemented. 7. Implement program to replace inaccurate water meters of all sizes. This program has been initiated. & Obtain and distribute water conservation literature to the public. This program was implemented. Sao 288W01Al2_0"_51 3-6 Exhibit 11 Existing Management Practices Approximate Approximate Annual 'later Annual Cost Savings Unit Cost &enefit/Cost Management Practice (Ac-Ft) (Ac-Ft); Ratio Water Conservation lits 12,52+6 55 224 1. Developer incentives 8,062 36 224 1.4 Metered Services unavailable 5,500 unavailable unavailable Increasing Black Rates 291,116 1,297 224 1.4 Information/Education 57,553- 78 734 0.4 Large e I'v(eter Replacement 28,000 unavailable unavailable 2.0 Pressure; Management System Mbit 1 Estimated Water Savings of Existing Management Practices (in Ac-Ft) Year Total M anagement etices 1985 1986 1"7 1988 1989 [tiKits 56 56 280 Developer Incentives 12 24 36 48 60 180 Metered Services 5,000 5,500 5,500 6,250 6,500 28,750 Increasing Block Rates 1,297 1,297 1,297 1,297' 1,297 6,485 Information/Education 75 77 78 80 82 392 Large Meter ReplacementIunknown unknown unknown Manage System Pressures Total 6,384 6,898 1.6,9 7,731 8,795 36,187 C,�ca� `��I�-fit; co�t►,�t Section 4 IMPLEMENTATION PROGRAM GENERAL PROGRAM INFORMATION Eight new or enhanced water management programs listed below are programmed for implementation in the next 5 years. Wastewater Reclamation Nonpotable Water Use Development Requirements Customer Billing Information/Water Management Information System Water Audits/Drought Planning Water Policy/Rights City Water Conservation Water Rate Structure/Pricing Policy SCHEDULE The schedule for implementation of projects to implement the management programs identified is as follows. 1991: 1. Initiate projects for use of reclaimed wastewater for irrigating agriculture and freeway medians near the wastewater treatment plant. 2. Construct first two phases of nonpotable system. Phase 1: construct hydro-pneumatic system well 36 to supply nonpotable water to irrigate Hillside Cemetery (CIP FY 90/91). Phase 11: construct hydro-pneumatic system Ford well for nonpotable irrigation of Ford Park (CIP FY 90/91). 3. Establish development requirements for: recycling fountains, separate landscaping and building use meters, and drought tolerant landscaping. 4. Implement a water supply and groundwater management policy. D velopp a water resources master plan. 5. Initiate City conservation efforts at city parks, buildings, and grounds. LA0 11 03.51 4-1 1992: 1. Initiate development of a system to provide additional water consumption information on water bills. 2. Develop a program of water audits and drought planning. 3. Construct Phase III of nonpotable system: Construct 500,000 gallon reservoir to service Country Club Reservoir ( IP FY 91/92). 1993-1995: 1. Construct last two phases of nonpotable system: Phase IV: Construct hydro-pneumatic system well 37 for nonpotable irrigation system at Sylvan Park (CIP FY 92/93). Phase V: Construct hydro-pneumatic system well 35 for nonpotable irrigation system at CounityPark (CIP FY 93/94). 2. Install a system to provide water use information on customer billings. MANAGEMENT PROGRAMS An evaluation of the water management programs to be implemented follows. The programs are analyzed with respect to economic, environmental, social, health, customer, and technological impacts. LA.0288WM412 M51 4-2 MANAGEMENT PROGRAM: WASTEWATER RECLAMATION SUMMARY: The City will initiate projects to utilize its wastewater resource by authorizing a feasibility study that will determine potential customers and the most effective uses of reclaimed water. DESCRIPTION: The City of Redlands has a potential reclaimed water supply of approximately 6,500 acre-feet per year. A wastewater reclamation study would identify potential uses- for sesfor this water. For example, a .l acre orange grove using approximately 250 acre-feet of potable water per year has already been identified as a possible recipient. Other potential users include Caltrans' freeway medians, parks, schoolyards, landscaping in the East Valley Corridor, and other agricultural users. Reclaimed water not distributed to customers could be sent to spreading grounds for recharge of the groundwater basin. IMPACTS: Economic: The Redlands wastewater treatment plant currently treats sewage effluent to< tertiary treatment levels. This level of treatment typically satisfies most requirements for non- contact uses such as irrigating orchards or freeway medians. Increasing the treatment level to include contact uses such as landscaping, schools, parks, and row crops will be evaluated as part of the study. The feasibility study will also determine the most cost-effective uses for reclaimed water. Environmental: Reclaimed water use will reduce the level of nitrogen released into the Santa Ana River. Promoting reclaimed water will also increase the City's water supply by decreasing dependence on other sources. Social: Reclaimed water use will reduce demand on future water supplies. Public concerns about health related issues need to be addressed before implementing the program. Health: All reclaimed water systems must be approved by the Department of Health Services, and must meet guidelines established by the Regional Water Quality Control Board. These requirements are aimed at protecting the health and welfare of the public. To protect potable supplies, LA02888801412039.51 4-3 Management Program: Was ter Reclamation (Continued) reclaimed water will be distributed in a separate delivery system. Customers: There are many potential customers who would benefit from a constant source of reclaimed water. Ile nutrients in reclaimed water are an additional benefit to agricultural and landscaping customers. Groundwater and reclaimed water may also be blended to increase reclaimed supplies. TECHNOLOGY: Many cities such as Los Angeles, Santa Barbara, and Santa Rosa currently have reclaimed water systems operating. The technology to accomplish reclaimed systems is in place and has proven to be reliable. The most complicated por- tion of a system is the tertiary treatment process which is already operating at the Redlands treatment plant. RATING.- The feasibility study will include a benefit-to-cost ratio analysis of reclamation and will rank various reclamation options within the City's sphere of influence. The feasi- bility study is a necessary first step to establish reclamation programs. WATER SAGS-; It is possible to realize the entire 6,500 acre-foot reclaimed water potential if a reclamation program is completely implemented. PROGRAM: The City should contract for a feasibility study of recla- mation uses. A program to encourage reclaimed water use by agricultural and large landscape users should be implemented. The City should contract for a feasibility study to be completed in the 1991 calendar year. The City should allocate $30,000 for the feasibility study. LA028888\D11412039.51 4-4 MANAGEMENT PRCGRAM: NONPOTABLE WATER USE SUMMARY: The City, through the Capital Improvement Program CjIP has funded a 4-year program to soppy" approximately 1,600 acre-feet of nonpotable water to a cemetery, three City parks,;and ai golf course. DESCRIPTION: Some of the groundwater available to the City of Redlands is not suitable for potable use. However, many other uses exist for this wafer source such as agriculture, freeway medians, parks, sehoolyrds, landscaping in the East galley Corridor, or blending with reclaimed wastewater. Several specific projects have been identified and are included in the recent CIP. Projects include nonpotable wells and distribution systems for Hillside Cemetery for Ford, Sylvan, and Community Park, and a reservoir at the Country Club. no is This program will supplement Redlands existing supplies at a relatively modest cost. For example, the Hillside Cemetery project will supply approximately 400 acre-feet per year for an initial cast of S ,000. The estimated annualized cost of water for this project is $92.00 per acre- foot. Environmental: This program has positive benefit to the environment. Less potable water will be used for large turf irrigation projects reducing demand on our water supply. Social: Less water used will reduce the demand on future water supplies. Society benefits because the efficiency of water use is increased, "thereby, reducing the marginal costs of new supply.. Health: alternative has no known health impacts. Customers: Many potential customers exist for nonpotable water. Any tie of irrigation;use located near a nonpotable source is a candidate. There are no known negative customer impacts for nonpotable water use. TECHNOLOGY: There are no particular technology factors for this pro- gram. 1` onpotable groundwater is pumped and distributed in the same manner as potable water. LAS&" 11\:4#, .S 4- Management Program: Nonpotable Water Use (Continued) TECHNOLOGY: ere are no particular technology factors for this pro- gram. Nonpotable groundwater is pumped and distributed in the same manner as potable water.. RATING: Very high. The annualized costofthe nonpotable water is much less than the revenues it will command. The payback' period is less than one year. The benefit-to-cost ratio for the program is approximately 19..2 to the agency. WATER R SA SGS. The water savings estimated for the proposed program is 1,600 acre.-feet. This program can be expanded in future year to increase the water savings. PROGRAM: The: City will establish separate nonpotable water supply systems to irrigate Hillside Cemetery, the Country Club Golf Course, and Forel, Sylvan, and Community Parks.. Additional sites suitable for nonpotable water use win be; investigated The first two nonpotable water systems in the City of Redlands, Hillside Cemetery, and Ford Park, will be estab- lished in the 1990/91 fiscal year. Country Club Reservoir' will be implemented in FY 1991,x. Ile Sylvan Parte system will be established in FY 1992/93 and the Community Park system in FY 1992/93. The FY 90/91 to F ' 94/95 includes these projects in the budget. The HWside Cemetery project is funded for $60,000 in this year's budget.; The Ford, Sylvan, and Community Park projects will cost $70,000, $100,000, and; $90,000, respectively, and the Country Club Reservoir $350,000. L. 8 1\41 51 4-6 ti MANAGEMENT PROGRAM: DEVELOPMENT REQUIREMENT'S SUMMARY: The City will implement development requirements resulting in drought tolerant landscaping, dual metering, and recycling fountains. DESCRIPTION: Developer requirements for new construction can positively impact landscape designs; reduce water, fertilizer, and pesticide use; and provide accurate customer billing infor- mation. Drought-tolerant landscaping requirements, water recycling fountains, and separate meters for landscape and building use are the requirements to be implemented. IMPACTS: Economic: Minimal impact because all new construction has to be landscaped anyway, so there should not be additional costs to customers who landscape within water-efficient land- scape guidelines. The customer will have the cost of installing an extra meter for the separate water systems. Savings from water recycling fountains can meet or exceed the costs to install recycling equipment. The benefit-to-cost ratio for this program is 1.4 for the agency. This is based on findings from the Department of Water Resources, evapotranspiration rates, and other data tailored to Redlands' climate and service area characteristics, and based on water rates and the marginal cost of new water supply. Environmental: This program will provide a positive benefit to the environ- ment. Water required for landscape and fountains will decrease; less fertilizers and pesticides will be needed. Combined with adequate supply acquisition, this program will reduce future water supply deficiencies. Social: Society benefits from lower water use in new construction and improved efficiency of water use. The demand for future water acquisitions will decrease as a result of this program. Health.- Water efficient landscapes and fountains have no known adverse health effects. LAWWWtet 2_041.51 4-7 Management Program: Development Requirements (Continued) Customers: These requirements will be mandatory for all new develop- ments. Possible customer dissatisfaction would be based on personal landscaping preferences. TECHNOLOGY: No technological barriers exist to the implementation of this program. All facets of the program are in widespread use in many portions of the country and exist in Redlands. RATING: Ffigh. There is little cost to the agency for administering this program. The cost to the customer is also low because water efficient landscaping costs the same to install as higher water using landscapes. Future positive benefits will be realized due to lower water use. WATER SAVINGS: A 7.5 percent savings compared to previous water use is expected from the landscaping portion of this program. The amount of water saved by the fountain portion of the program varies with the size and number of fountains installed. PROGRAM: The City will implement developer requirements for all new developments. Plans will be reviewed to ensure that drought tolerant landscaping is used, separate meters for landscaping and building use are installed, and that fountains are of the recycling Mv. The development requirements will be finalized and imple- mented during the 1991 calendar year. No budgetary impacts are expected. Plan checking will be performed by existing employees already responsible for these duties. LA02MMI\412041.51 4-8 MANAGEMENT PROGRAM: CUSTOMER B11-LING INFORMATION/WATER MANAGEMENT INFORM TION SYS"T"EM SUMMARY. The City will implement a billing system providing water use information on customer billings. The system will provide the utility with water use information necessary for implementing, managing, and monitoring conservation programs; and for comprehensive system-wide management. DESCRIPTION.- Water use information on billings increase customers' awareness of water habits which waste water. This same information can be used by the Utility to identify water consumption patterns by customer class (residential, commercial, industrial, governmental, and agricultural), to aide in comprehensive management of the system and in creating future conservation programs, and monitoring the effectiveness of these programs. Billing information would provide the customer monthly water use for the past 2 months. IMPACTS: S: Economic: The major east of a new billing system; is the staff` or consultant time needed for preparation and implemen- tation m lemen-tation of a new system. Cance the system is on line actual staff time to operate the system will remain constant. Environmental There are no direct environmental impacts of including water use information on billings. Positive long-term benefits will ensue from a decrease in water use. Social: An increase in water use information will subtly influence d enhance water "consciousness" by focusing more atten- tion on personal water use. Health: This program has no adverse health effects.. Customers: Providing additional information to customers will increase their water awareness. Consumptive habits can be analyzed and improved upon.. There are no known disad- vantages of this program: from the customers' perspective, TECHNOLOGY: The technology to devise and implement billing information systems is well established. 0 Ott t . t 4w9 Management Program: Customer Billing Information/Water Management information Systems (Continued) TECHNOLOGY: The technology to devise and implement billing information systems is well established. RATING: Very High. Increased consumer awareness and increased management capabilities resulting from this program are two strong positives. Accurate monetary benefits and costs have not been determined. WATER SAVINGS: little direct water savings are expected to be realized from this program. The largest savings wili result from long-term increases in management efficiency and public awareness. PROGRAM: A financial consultant will be contacted to determine the alternative billing systems available that meet the City's needs. A specific system will be identified and implemented. An appropriate billing system wiff be identified by the end of the 1992 calendar year. The system will be implemented in the following year. The 1992 project will be performed by a member of the existing staff on a part-time basis. Budgetary needs for the following year will be determined during 1992. LA028888%DI\412042.51 4-10 MANAGEMENT PROGRAM: WATER AUDITS/DROUGHT AUDITS/DROUGHTPLANNING SUMMARY- The City will implement a program of water audits, 'leak detection, main replacement, and drought planning by staffing the Fater Auditor position. The Water Auditor duties will also include implementation and enforcement of water management programs. DESCRIPTION: A comprehensive position is needed to implement and enforce the many new and ongoing water conservation programs, to perform water audits on City and customer water systems, to perform a systematic leak detection and repair program, and to aid in creating and implementing drought planning. Water audits monitor the fate of water flowing in a system. The system monitored could be the entire; utility distribu- tion network, a commercial or industrial enterprise, a residence, are irrigation system, or a specific government building. A water auditor identifies water waste,and losses and uses the management tools and conservation treasures available to modify e3dsting practices. A systematic leak detection survey of the utilities distribu- tion system will be performed as part of a system-wide water audit. Leaks which are discovered will be repaired. If leaks are discovered on the customers' side of the teeter, a notice will be left. Water system leak detection will be ongoing. The water auditor will be responsible for the implementa- tion and enforcement of the City's water conservation programs and requirements. The auditor will aid in the creation of a drought plan- and is responsible for its implementation should the situation arise, IMPACTS: Economic: This program is cast effective, due to the estimated water losses from undetected leaf. It is estimated that about 1,400 acre-feet t\402 043.51 -ll Management Program: Water Audits/Drought Planning (Continued) per year can be saved. The annual costs of a water audit position and a leak detection and repair program are projected as follows: Water Audit position $ 42,000 Leak Detection Survey - Equipment 3,000 - Vehicles 1,000 - Training 1,000 - Labor 25,000 Lead Repairs - Labor and materials 28,000 TOTAL $100,000 Environmental: Water audits and leak detection programs assess existing circumstances, so they do not have environmental impacts. This project is largely nonintrusive to the water system and the residents of the community. The repair of leaks in the distribution system has positive environmental impacts, since there will be water savings, which reduces future new water development impacts. Other positive impacts include reduced potential for landslides in hilly areas where leaks may saturate the soils, and reduced repair operations at unscheduled hours. Negative impacts may include inconvenience to residents, if traffit has to be rerouted. Social: This alternative has no known social impacts. Health: This alternative has no known health or safety impacts. Customers: Customers benefit due to improved operational efficiency of the water agency and reduced future water development impacts. LA02388WI\412043.51 4-12 Management m Water Audits/Drought Planting (Continued) TECHNOLOGY: There are no particular technological factors for this alternative. Water audits and leak detections use readily-available equipment,; leak repairs are already conducted by the City's staff; RATING: Very High. Operating costs may be reduced, and the potential payback period is less than one year. Costs of leak detection will vary with location, severity, and pipe dimension, and are estimated to cost $28,000 per year. WATER SAVINGS:S: The last comprehensive system water audit was reported in the 1975 Water Master Flan. After discounting unmetered agricultural services, reservoir overflow, and known faulty meters, the resulting "unaccounted far" water was 11 per- cent—typical of many municipal water systems. According to the Department of Water Resources, up to 50 percent of an agency's "unaccounted far" water losses are attributable to correctable leakage. For Redlands this; represents 1,400 acre-feet per year. PROGRAM: The City will conduct water audits, leak detection, and main replacement programs on a continual basis. A Water ,Auditor will perform the bulk of these programs. Also, the auditor will implement conservation programs, and drought planning. The position of Water auditor will be filled during the 1992 calendar year and the program will be implemented immediately afterwards. This program cost is low. About $42,000 per year is required for the water audit position, and $58,000 for leak detection and, repair, D \412 043. 1 4-1 MANAGEMENT PROGRAM: WATER POLICY/RIGHTS SUMMARY: The City will implment a water supply and groundwater basin management policy in the 1991 calendar year, DESCRIPTION: In February 1990,, Redlands took the first step in creating a comprehensive City water policy by adapting a progressive water duality policy. The policy outlines the water quality goals and analyzes each water source within the bounds set by the policy.. To provide a complete management framework, the City will adopt a water supply and groundwater basin management policy statement, and complete a drought study and draught plan. These efforts will be addressed in a comprehensive water resources master plan. A water supply policy will. establish the reliability of the City's supply to meet demands in drought years. The groundwater basin management policy will set guidelines for basin management and groundwater withdrawal. drought study will determine the effects of drought on City supplies, the reliable yield of each surface water source, and the safe yield of the groundwater basin, a drought plan will set the framework for implementation of appropriate measures in response to a supply shortfall.: IMPACTS: Economic: Adapting this program, wiltnot have any direct economic effects on the City ether than the consultant cost to prepare the water resources plan. Implementation of comprehensive set of water policies will create a more efficient and effective utility, positively benefiting all sectors of society. Err . ental. Positive environmental benefits result from reduced chances of water deficiencies. Social: An adequate supply of water benefits society by decreasing the possibilities of water deficiencies. This program will help ensure that an adequate supply is available. More efficient and effective management also benefits society. Health. This alternative has no known health impacts. LAC► 811\41 1 4-14 Management ram. Weer Policy/Rights (Continued) Customers. Customers benefit due to unproved: operational efficiency of the water agency and clue to decreased possibilities of supply deficiency. TECHNOLOGY: There are no particular technological factors for this alternative. Many types of water supply policies, groundwater basin policies, and water resource roaster plans have been successfully implemented in the past. RATING: Very high. Minimal cost impact with lame positive impact upon City operations and planning. WATER SAVINGS: o decrease in water use will result from this program. The main benefit is determining that the City has secured` adequate supply and is operating the system, in an efficient manner. PR A water resources roaster plan will be conducted resulting in a water supply policy statement, a groundwater basin management policy statement, a drought study, and drought plan. The policy statements will supplement the existing water quality policy statement. The water resources roaster plan will be initiated in the 1991 calendar year. Water supply and groundwater basin management policy statements will be developed and adopted in the 1991 calendar year. A budget of $92,000 has been previously approved for the water resources master planning efforts, 10 111412 . 1 4-15 MANAGEMENT PROGRAM: CITY WATER CONSERVATION SUMMARY: The City will identify and implement water conservation measures in and around its own facilities. The purpose is to be a leader in the water conservation field. DESCRIPTION: The City's own water use is a highly visible portion of total water use. To encourage others to conserve water, Redlands must set the example by implementing extensive and innovative conservation programs for its own facilities. The nonpotable water systems previously outlined for cemeteries and parks are a good example of conservation measures that will provide the City with credibility. Other efforts wffl include drought-tolerant plantings and efficient gation practices at parks and building grounds and water efficient fixtures including low flow toilets inside public buildings. IMPACTS: Economic: The economic cost of this program will be born by the City departments responsible for the various facilities. The parks department will be responsible for parks and building grounds, other departments will be responsible for retrofitting the buildings they occupy. Environmental: This program will provide a positive benefit to the environment. City water use for landscaping and buildings will decrease reducing the demand for future water supply acquisition. Social: Society benefits from lower water use by the City. The program will reduce future water supply deficiencies. Health.- Drought-tolerant plantings, efficient irrigation practices, and low flow fixtures have no adverse health effects. Customers. This program will assure customers that all segments of society are actively participating in the effort to conserve water. TECHNOLOGY: No technological barriers exist to the implementation of this program. All facets of the program are in widespread use in many portions of the country and presently exist in one form or another in Redlands. LA0288MI\412049.51 4-16 Management Program: City Water Conservation (Continued) RATING: Very high. This program is essential for maintaining positive public support of other management programs. WATER SAVINGS: Water savings are variable depending upon the number and amount of practices that are employed. PROGRAM: Water conserving measures will be instituted throughout City facilities. Each department will identify water conserving measures to be implemented. Special attention will be placed on high visibility practices such as landscape irrigation and drought tolerant plantings. The City will immediately activate this program. Departments will identify conservation measures and implement them in the 1991 calendar year. As part of the effort to identify conservation measures each department will also determine the budgetary impacts. 1\412 449,51 4-17 MANAGEMENT PROGRAM: WATER RATE STRUCTURE/PRICING POLICY SUMMARY: The City will implement seasonal and peak demand charges and update the e)dsting increasing block rate charges. Pricing policy will be adjusted accordingly to maintain a zero net increase in revenues. DESCRIPTION: A seasonal rate structure increases rates in the summer season when consumption is high due to landscape irrigation. This encourages conservation during the summer season when water supplies are typically at their lowest. Peak demand charges increase rates during the hours of highest use. Off-season and nonpeak rates will be adjusted to balance out the other increases. This program is possible only after a new billing system is installed. IMPACTS: Economic: This program will have no net effect on revenues. Rate increases and decreases will be balanced. A one time cost to implement the new rate structure will be realized. There is no additional cost to operate this program once the new rate structure is in place. Environmental: Positive benefit to the environment. Less water will be used for landscaping especially during the summer months when supplies are typically at their lowest. This program will reduce future water supply deficiencies. Social.. Less water use will reduce demand on future water supplies. Society benefits because of improved efficiency of water use and lower water use during the summer months. Health.- This program has no adverse health impacts. Customers: Perceived disadvantages by some customer groups due to impacts on present water use practices. TECHNOLOGY: This program is not implementable until a new billing system is installed. No technological barriers es t to the implementation of a new billing system. LA0288M1\412050.51 4-18 Management Program: Water to Structure/Pricing Policy (Continued) RATING: Very High. Water is used more efficiently at relatively little cost to the agency and no net cost to society. Future positive benefit, because water use will be lower than otherwise would be expected. WATER SAVINGS: An estimated decrease in water use of 3 percent is expected to result from this program. This represents 800 ac-ft of water per year. PROGRAM: Once the new billing system is installed, Redlands will implement a new rate structure with seasonal rates, peak demands rates, and updated increasing block rates. The new rate structure along with the new billing system will be installed in 1993. The cost of the new rate structure is the staff time needed to design the rates, and predict revenue and use impacts. It will cost approximately $8,200 to complete the program. LA02888"1412 050.51 4-19 Appendix USING WATERPLAN TO EVALUATE WATER CONSERVATION PROGRAMS Section 5 PROGRAMS CONSIDERED BUT NOT CHOSEN VOLUNTEER RESIDENTIAL RETROFIT While seemingly viable, this program's effectiveness has been diluted by past manage- ment programs such as the distribution of water conservation kits. The Water Auditor will be able to implement a retrofit effort without creating a separate program. The City finds that it is more effective to implement another series of water conservation kit distributions than to implement this program. SYSTEM PRESSURE REGULATION The City of Redlands has no specific system pressure control program at this time. The optimal norm, which the City strives to operate within, is a minimum pressure of 50 pounds per square inch (psi) and a maidinum, of 120 psi. With pressure over 80 psi, a pressure regulator is required at the services. During high water consumption, the pressures could temporarily drop. Specific system pressure control is not a design criteria used in our distribution system. WATER USE REGULATIONS Water use regulations include a water waste ordinance, mandatory retrofit programs, and low-flow plumbing codes for new construction or renovation. The City wishes to emphasize voluntary programs and, therefore, will not include these mandatory regula- tions as part of the implementation plan. LA0 288W01\412_047.51 5-1 USING WATERPLAN TO EVALUATE CONSERVATION PROGRAMS To assist municipalities in the preparation of 1990 Urban Water Management Plans, the California State Department of Water Resources (DWR) developed Waterplan, a computer software package which evaluates alternative water conservation programs. Waterplan is useful to municipalities and other water providers who have not yet developed aggressive water conservation programs because it provides a systematic, consistent framework in which to organize conservation data, and compare the economic and financial aspects of alternative water conservation plans. Water agencies with more aggressive programs will likely have their own evaluation methods, or rely on more complex software models, such as the IWR-MAIN system developed by the Corps of Engineers.' One of the primary advantages of WaterPlan, mentioned above, is that it organizes the important water use data, water conservation data, and financial data required to analyze individual programs; and subsequently performs the analysis, summarizing it in a useful format. This advantage is important because it allows individuals and administrators to assess conservation program potential with a fraction of the effort needed to conduct a manual analysis. However, the convenience and user-friendliness of the model is partially off-set by two shortcomings: WaterPlan is not well-suited for evaluating water pricing issues and it assumes that conservation programs are additive. Neither shortcoming can be easily corrected in the model without adding to its complexity. In itself, evaluating water use response to water price increases and changes in water rate structures is a difficult task, since it requires the careful application of the concept of price elasticity; discussed in the text of this report as being a measure of consumer responsiveness to change in prices. Assuming that the results of conservation programs are additive is a recognized shortcoming, but exactly how to correct it is not well documented in the literature. For example, assume the implementation of one program, say the retrofit of water meters to older residential housing, yields a 20 percent reduction in their water use; and the implementation of second program, say changing rate structure to increasing blocks, yields a 10 percent reduction. Should the savings resulting from implementing both of these programs together be 30 percent, the sum of the two? WaterPlan assumes it is. Intuition would say that there are probably diminishing returns to each additional conservation measure. Otherwise, the agency could implement 10 programs, each yielding a 5 percent reduction in water use, and reduce overall use by 50 percent. In reality, this is unlikely. WaterPlan uses three types of data to perform program evaluation: service area data, water conservation measure data, and conservation program data. Each data type is subsequently discussed in the context of a municipality considering implementing a simple conservation program: ultra-low-flow (ULF) toilets. A simplified example of the 'Krouse, Michael R. The History and Development of the AVR-AMIN Water Use Forecasting ystem. Proceedings of CON SERV' 90, August 1990. LAOCOM4/124k.51-1 calculations performed with the data is then presented. Service Area_ That This type of data describes the agency's service area and states some of the financial parameters used later in the evaluation routine. The financial data includes. 1. Discount rates. Discount rate measure the time value of money, and are similar in concept to interest rates. The higher the discount rate, the less important are future benefits of conservation. Discount rates need to be specified for the residential, commercial, and industrial sectors; the agency itself (in many cases this can be viewed as the cast of borrowing money), and society. 2 Cost escalation rates. This specifies the rate of growth in overall capital costs (in this case the annual cost increase expected for ULF toilets), installation costs, operations and maintenence costs, and adimiitrative costs: The service area data applies to all demand sectors, including the residential, commercial, industrial, and Cather sectors. The "other" category could include irrigation or other special categories the agency may have. Service area data.. includes; 1. Number of days in peak season. 2. Number of customers. 3. Average use per customer (ecf/year 4. Total water consumption (ccf). . Ahnual rate of growth in consumption (percent). 6. Average and peak period water rates ( (cc 7. Marginal cost of water. This is the cost of obtaining additional supplies f. Secondary rates. This includes electricity rates, natural gas rates, and sewer' rates. Water conservation can indirectly save the consumer money by reducing his or her water heating bill and discharges into the sewer system. 9. Water heater characteristics. Indirect cost savings due to less use of the water heater vary by type of water heater. Conservation Measure Data Measurement data presents estimates of water savings expected from individual conservation measures and their corresponding costs in terms of capital cost, operation and maintenence, installation, installation, and salvage value. Ideally, a user of WaterPlan will have a good idea of the general magnitude of the above parameters for their specific service area. If not, WaterPlan supplies the user with reasonable default values of the parameters. Data required (or supplied by default values) includes: 1. Useful life and salvage value of the conservation device. In this case, the ULF toilet is assumed to have a useful life of 15 years and a 0 salvage value. 2. Capital cost, operation and maintenence, and installation costs. The capital cost of ULV toilet is assumed to be approximately $300; installation is $40, and O&M is $0. 3. Who pays for the conservation measure. In this case, the residential customer pays for the ULF toilet. In the overall program, however, the agency can offer a cash rebate to the customer. 3. Water savings data. A ULV toilet uses about 1.5 gallons per flush; a conventional toilet about 6 gallons per flush. Assuming 6 flushes per day, 27 gallons of water are saved per day and 9,855 gallons are saved annually. Multiplying this by the number of households implementing this measure yields the total annual water savings from installing ULV toilets. Multiplying the water savings times the cost of water yields the annual cost savings for the residential customer. 4. Secondary benefits. The toilet will result in less sewage and reduce the volume of water needing treatment. This, in turn, results in long term savings in water treatment costs. Conservation Program Data Waterplan defines conservation programs as either a conservation measure or a combination of conservation measures. This example assumes that the single conservation measure considered, ULF toilets, is a conservation program in itself. In reality, the City of Redland's conservation program is a combination of several measures including metering, increasing block pricing, conservation kits, voluntary retrofit measures, xeriscape promotion, and several other individual measures. It is important to note the distinction between individual conservation measures and conservation programs. The latter is usually a combination of several measures. LAOCOM4/124k.51-1 WaterPlan can compare the benefits and costs of many different programs simultaneously. However, a program is more than simply a combination of measures. There are administrative costs of implementing a program and other considerations. These include: 1. Time frame of the program. This specifies how long the agency will promote this program. Since UWMP's are required every 5 years, this analysis was conducted using a 5-year time horizon. 2. Number of"packages" delivered. This parameter is most easily interpreted in the case of water conservation kits. It states how many kits will be delivered in each year over the 5-year period. 3. Cost of implementing. This the costs, usually administrative, of implementing the program. 4. Delivery cost. This is also best illustrated by the water conservation kit example. This is the cost, per package, of delivering the kits. Redlands has historically used Boy Scouts to deliver the kits, resulting in a very low distribution cost. 5. Incentives. Many water agencies provide cash rebates to customers who voluntarily implement conservation programs or measures. The City of Denver, Colorado, for instance, provides a $100 rebate to customers purchasing and installing ULF toilets. 6. Program specifics. This specifies the range of individual conservation measures comprising the program. It also estimates their market "penetration", or the percent of customers who actually carry out the program. Estimating Benefits and is of Conservation Programs Putting the above information together to estimate the benefit/cost ratio of alternative conservation program can be a tedious process without WaterPlan. The calculations themselves are not particularly complex, but since the many simple calculations must be organized in a systematic fashion, computer software such as WaterPlan or Lotus 1-2-3, is generally needed to assist the analyst. In addition, each set of calculations is performed 3 times: from the perspective of a water customer, from the perspective of the water agency, and from the perpective of society. The customer and water agency results can be quite different even though their long range goals to save water and money are the same. For instance, the ULF toilet needs time to pay for itself. That is, it may be several years before the customer recoups the higher costs associated with the ULF toilet. However, the agency will experience immediate benefits since water consumption LAOCOMQ124k.51-4 will go down immediately after installation. Therefore it makes economic sense for the agency to offer rebates for installation of these devices and pass some of their benefits back to the customer. In terms of the societal perspective, nearly all water conservation plans have net benefits because water is being saved. Since there is not a specific agency representing "society", this category of benefit/cost calculations is somewhat nebulous. Following the ULF toilet example, a simplified illustration of how WaterPlan estimates the benefit cost ratio of installing 50 ULF toilets is presented on a year by year basis over a 5 year planning horizon. It is viewed from the residential perspective and does not include indirect benefits accruing to water treatment facilities. Year 1. Install 50 ULF toilets @$140 ($100 for toilet and $40 installation), totalling $7,000. Water savings of 492,750 gallons experienced (4.5 gal/flush savings, 6 flush/day, 365 days/year, 50 units), totalling 659 ccf annually. At a water rate of $1.25/cef, the cost savings total $824. Years 2 through S. Assuming no inflation of water rates, $494 will be saved each of the next 4 years. However, the total savings over this period is not $3,296 (4 years x $824/year), but is something less due to the discount rate. At the 15 percent residential discount rate (used as a default parameter in WaterPlan) the present day value of the savings is $2,762. Total cost savings due to installation of ULF toilets totals $3,586 (824 in year 1 plus $2,762 in years 2 through 5). Total costs equal $7,000. Therefore, the benefit cost ratio is .51, indicating a poor investment for the residential customer. However, since the water agency experiences cost savings (although unknown at this point), they can offer a rebate equal to their cost savings and improve the benefit cost ratio. Although simple, the above example illustrates the accounting and economic procedures used by WaterPlan. If the user has the time and patience, all results can be duplicated by manual calculations. Since the customer will need a toilet regardless of whether it is of the ULF type or not, the difference in cost between a ULF and a conventional cost is the relevant cost figure. Assuming a conventional toilet costs $200, an incremental cost of $100 is assigned. LAOCOM4/124k.51-5