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Agenda Item #4.B
DATE: June 1, 2015
TO: Honorable Mayor and Members of the City Council through City Manager
FROM: D S ., CE — Director, Public Works and Utilities
D S
G. alker, P.E. — Environmental Services Manager
SUBJECT: Resolution Authorizing the City Manager to Implement the City's Water Shortage
Contingency Plan, Stage 2 as Amended, as Mandated by the State Water
Resources Control Board within the Area Served by the City of Petaluma Public
Water System and Repeal and Replace Resolution No. 2014 -141 N.C.S.
RECOMMENDATION
It is recommended that the City Council Adopt a Resolution Authorizing the City Manager to
Implement the City's Water Shortage Contingency Plan, Stage 2 as Amended, as Mandated by
the State Water Resources Control Board (SWRCB), within the Area served by the City of
Petaluma Public Water System and Repeal and Replace Resolution No. 2014 -141 N.C.S.
BACKGROUND
California has entered a fourth year of severe drought. On May 5, 2015, new emergency
regulations for water conservation were enacted by the State Water Resources Control Board
(SWRCB) by Resolution No. 2015 -0032 and attached herein. These new regulations expect
California urban water agencies (such as the City) to implement more stringent water
conservation measures than those adopted in 2014 in order to meet a 25% Statewide reduction
from 2013 usage. This action was part of a recent surge of State activity including SWRCB
regulations adopted on March 17, 2015 (Resolution 2015 -0013) and Executive Order B -29 -15
issued by Governor Brown on April 1, 2015, which is also attached.
The Executive Order and the 2015 regulations impose additional requirements on urban water
suppliers. These include:
Beginning June 1, 2015, reduce total potable water use by a specific conservation
standard compared to 2013 usage.
The conservation standard for Petaluma is 16 percent. Compliance with the standard will
be determined monthly and cumulatively based on the City's water production from June
2015 through February 2016. It is important to note that the 16 percent applies to the
total water supplied to the City water distribution system and not to each water
account individually. An urban water supplier's water conservation tier was determined
by the residential water use for June to September 2014. Petaluma's water use for that
period was 89.6 gallons per day per capita.
• Provide prompt notice to a customer whenever the supplier obtains information that
indicates that a leak may exist within the end -users exclusive control.
• Submit a monthly report to the SWRCB that includes the amount of potable water
produced (including water provided by a wholesaler), the population served by the urban
water supplier, the percentage of water produced that is used for the residential sector,
descriptive statistics on water conservation compliance and enforcement efforts, the
number of days that outdoor irrigation. is allowed, and monthly commercial, industrial,
and institutional sector use. The monitoring report shall also estimate the gallons of water
per person per day used by the residential customers it serves.
Additional prohibitions and requirements from the new regulations include:
• The application of potable water to outdoor landscapes during and within 48 hours after
new measurable rainfall is prohibited.
• The serving of drinking water other than upon request in eating or drinking
establishments, including but not limited to restaurants, hotels, cafes, cafeterias, bars, or
other public places where food or drink are served and /or purchased is prohibited.
• Irrigation with potable water is prohibited on landscapes outside of newly constructed
homes and buildings in a manner that is inconsistent with regulations or other
requirements established by the California Building Standards Commission. The
Commission is expected to consider the adoption of emergency regulations on or before
June 1, 2015 that would prohibit landscape irrigation on new buildings that is not
delivered by drip or microspray systems.
• To promote water conservation, operators of hotels and motels shall provide guests with
the option of choosing not to have towels and linens laundered daily. The hotel or motel
shall prominently display notice of this option in each guestroom using clear and easily
understood language.
• Irrigation with potable water of ornamental turf on public street medians is prohibited.
The new regulations and the Executive Order add to the list of activities specifically prohibited
last year by S WRCB except where necessary to address an immediate health and safety need or
to comply with a term or condition in a permit issued by a state or federal agency, as follows:
• The application of potable water to outdoor landscapes in a manner that causes runoff
such that water flows onto adjacent property, non - irrigated areas, private and public
walkways, roadways, parking lots, or structures;
• The use of a hose that dispenses potable water to wash a motor vehicle, except where the
hose is fitted with a shut -off nozzle or device attached to it that causes it to cease
dispensing water immediately when not in use;
• The application of potable water to driveways and sidewalks; and
• The use of potable water in a fountain or other decorative water feature, except where the
water is part of a recirculating system.
W,
The regulations also specify that the failure to comply with the regulations, in addition to any
other applicable civil or criminal penalties, is an infraction punishable by the State, by a fine of
up to five hundred dollars ($500) by the State.for each day in which the violation occurs. On
November 17, 2008, Council adopted a resolution updating the schedule of penalties for
administrative citations for violation of the Petaluma Municipal Code (PMC) that sets penalties
for first, second and third violations at $100, $500, and $1000, respectively. These fines are
applicable to violators of the City's Water Conservation regulations. The Governor introduced,
in a budget trailer bill, a proposal to amend the State Water Code, to allow local agencies to hold
civilly and criminally liable persons violating water conservation ordinances. Proposed criminal
penalties include imprisonment in the County Jail for up to 30 days, and /or a $1,000 fine. Civil
penalties can be imposed, up to $10,000 for violation of water conservation ordinance or
resolution, with an additional penalty of $500 per day for each additional day the violation
continues. The City Council would need to update the City's fines to implement those changes,
if they are adopted into law by the State.
The City Council held a workshop on April 27, 2015 to discuss the drought emergency and
consider water conservation measures necessary to achieve the 16% reduction goal. The subject
Council action is intended to implement Council direction received at the workshop to add the
new State mandates to Stage 2 of the City's Water Shortage Contingency Plan. This will allow
City staff to promote and enhance these measures along with all the standard and Stage 1
measures, which are currently in place. While not subject to the proposed action herein, it should
be noted that the City is enhancing many of its existing incentive, outreach, and internal water
conservation measures in the face of the drought and has budgeted accordingly. The City
Council will have the opportunity to provide direction on these measures during the Council
meeting discussion of this matter.
Additional background on this item includes the following:
• On January 17, 2014, Governor Brown declared a drought state of emergency. On
February 3, 2014 the Water Advisory Committee (WAC) of the Sonoma County Water
Agency (SCWA) adopted a resolution supporting Governor Brown's drought
proclamation. The City of Petaluma, on March 3, 2014, adopted Resolution No. 2014-
045 "Declaring a Water Shortage Emergency and Implementation of Stage 1 of the City's
Water Shortage Contingency Plan".
• On April 25, 2014, the Governor signed an Executive Order calling on the State to
redouble drought actions. Among other things, the Executive Order provides that: "The
Water Board shall direct urban water suppliers that are not already implementing drought
response plans to limit outdoor irrigation and other wasteful water practices such as those
identified in this Executive Order. The Water Board was directed to adopt emergency
regulations as it deems necessary, pursuant to Water Code section 1058.5, to implement
the Governor's directive."
• On July 15, 2014, the SWRCB adopted a resolution enacting emergency regulations
adding Article 22.5, Section 863, 864 and 865, to Title 23 of the California Code of
Regulations. Key provisions of the proposed emergency regulations prohibit certain
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outdoor water use practices and require urban water suppliers to implement "the stage of
its water shortage contingency plan that imposes mandatory restrictions on outdoor
irrigation of ornamental landscapes or turf with potable water." In addition, water
suppliers with 3,000 or more service connections must provide monthly data on water
production.
On September 8, 2014, the City adopted Resolution No. 2014 -141 that replaced previous
resolution No. 2014 -045, required the implementation of Stage 1 of the City's Water
Shortage Contingency Plan, and amended Phase 1 to enact the additional requirements of
the SWRCB emergency regulations. Specifically, the City established a 20 percent
reduction goal and limited outdoor irrigation to the hours of 7:00 PM and 8:00 AM. The
Stage 1 requirements were to be effective until the SWRCB determined emergency
regulations were no longer necessary or renewed the regulations due to continued
drought; absent those actions, the Stage 1 declaration would end on April 25, 2015.
The City Council adopted the Water Shortage Contingency Plan (WSCP) in 2011 with
the Urban Water Management Plan. The WSCP outlines four progressive stages to
achieve water demand reductions during a water supply shortage.
The City achieved a 14% reduction cumulatively from June 2014 through February 2015
compared to the same months in 2013. June 2015 through February 2016 is the period
SWRCB designated for compliance.
DISCUSSION
The recommended Council action endeavors to assure compliance with the SWRCB's recent
Emergency Regulations. Due to continued drought and the new requirements, it is
recommended that Council move from Stage 1 to Stage 2 of the water shortage contingency plan,
with amendments, to reflect State requirements and best practices. The second stage of the City's
Water Shortage Contingency Plan is designed to achieve a 25% reduction although the City is
only required to achieve a 16% reduction. Water conservation is not an exact science and it is
necessary to aim higher to assure compliance with the State mandate.
The City implemented time of day irrigation restrictions last year, to achieve 16% savings each
month, but stricter measures are necessary. The Sonoma Marin Water Savings Partnership, to
which the City belongs, has agreed upon a consistent approach of allowing irrigation no more
than three days per week within the region. With adoption of the proposed resolution
implementing Stage 2 as modified herein, the following mandatory restrictions to outdoor
irrigation and potable water use will be in place. Those indicated as Stage 1 or Petaluma
Municipal Code are currently in effect while those showing Stage 2 or Stage 2 Modified will be
new with the proposed action.
1. Irrigation of landscaping with potable water using automatic sprinkler systems shall be
prohibited except on Tuesdays, Thursdays, and Saturdays during the hours of 7:00 p.m.
to 8:00 a.m. for all customers except City of Petaluma irrigation accounts, which will be
limited to any three days per week. (Stage 2 Modified)
2. Hose -end shut off nozzles required on all garden and utility hoses to include washing
cars, boats, and trailers. (Stage 1)
in
3. No application of potable water for washing down pavement, except for health and safety
including sanitation. (Stage 1)
4. No runoff or overspray caused by outdoor irrigation. (Petaluma Municipal Code (PMC))
5. No water used for non - recycling water features such as fountains. (PMC)
6. Water served in restaurants on request only. (Stage 1)
7. Operators of hotels and motels to provide guests with the option of choosing not to have
towels and linens laundered daily. The hotel or motel shall prominently display notice of
this option in each guestroom using clear and easily understood language. (Stage 2
Modified)
8. The application of potable water to outdoor landscapes during and within 48 hours after
measurable rainfall is prohibited. (Stage 2 Modified)
9. Irrigation with potable water of ornamental turf on public street medians is prohibited.
(Stage 2 Modified)
10. Irrigation accounts cannot exceed allocated water budgets by more than twenty percent.
(PMC)
11. Filling new swimming pools is prohibited, except for pools where an application for
building permit has been submitted by June 1, 2015. (Stage 2 Modified)
12. Prohibit use of potable water for dust control at construction sites when reclaimed water
is available. (Stage 2 Modified)
13. Track customer use and mandate reductions to high use customers who do not reduce
their demand. (Stage 2)
14. To remain consistent with the action taken by the SWRCB, the proposed resolution to
implement Stage 2 of the City's Water Shortage Contingency Plan would end ( "sunset ")
on February 8, 2016 unless Emergency Regulations are extended or ended earlier by the
SWRCB. (Stage 2 Modified)
Items 2, 3, 4, 5, 6, 7, 8 and 9 are substantially the same requirements adopted by the SWRCB in
its Emergency Regulations or specified by the Governor in the Executive Order. With items 1,
10, 11, 12, and 13,, the City is proposing to go further than mandated by the State to set
additional requirements and increase awareness of the severity of the drought to ensure that the
City will achieve a 16% reduction in water demands each month during the compliance period. If
the City fails to meet its conservation standard, the SWRCB may issue conservation orders
requiring additional actions by the City to come into compliance.
In addition to the measures included in the Stage 2 modified declaration, the following water
conservation measures are being proposed. Council input on items designated with an asterisk
( *) is particularly encouraged:
• Stepping up Public Information, including:
• Billing inserts and customer mailers.
• Additional workshops and town hall meetings to address drought tolerant
landscaping and other relevant topics.
o Outreach to HOAs and mobile home parks, in part to assure that management is
not in violation of AB 2100, which prohibits HOAs from penalizing homeowners
for brown lawns during established drought conditions.
o Outreach to commercial, institutional, industrial (CII), and irrigation customers,
including placards to restaurants addressing drinking water prohibition.
• Placards in City shower and restroom facilities encouraging water reductions.
• Speakers' bureau of City officials to present the City Water Conservation Action
Plan to civic and community groups.
• FAQ's and talking points prepared for all City employees who have regular
interactions with the public.
• Customer support, including:
o Water wise house calls with expanded staffing
o Professional irrigation technician and audit services for irrigation and high use CII
and irrigation customers.
• Expand rebate and incentive programs, including:
o Toilet rebates in schools and large commercial users.
o Consider including high efficiency dishwashers to washer rebate program.
o *Consider adding "cash for grass" option to Mulch Madness program.
• City facilities, including:
o Verify retrofit of water efficient fixtures occurred in 2008 and 2011; retrofit any
fixtures that do not meet current standards for water efficiency.
o Water audits of landscaping and continued application of mulch where turf is not
essential.
• Reclaimed water use, including:
o Identify commercial and irrigation users within reasonable proximity of existing
purple pipe and incentivize connection and use of reclaimed water.
o Make "shovel ready" next phase of purple pipe extension and expansion of
tertiary treatment facilities at Ellis Creek Water Recycling Facility.
o Consider providing convenient fill station location to contractors for dust control.
• Billing and Rates, including:
• Evaluate existing water conserving rate structure and expand to all customer
categories if possible.
• Modify bill to include comparison to 2013 base year and allow monthly water use
to be reported to the tenth of a unit, if possible.
• *Modify on -line bill pay system to require customers to acknowledge water
conservation requirements before paying their bill.
• Leak Detection, including pilot program to evaluate efficacy of process.
• Monitoring and Enforcement, including standard reports of
o Significant water users for direct targeting
• Single family customers using over 16 units (12,000 gallons) per month putting
them in the 3rd and 4th tier of the block rates
o Customers with significant increases over same period a year ago to identify
potential leaks on customer side of meter.
• Irrigation customers using over 120% of their water budget. Review water
budgets to assure accuracy.
• Follow up with identified customers with education and incentives, and failing
that provide water budgets to these customers and enforce up to and including
$1,000 (or $10,000) fine and /or shutting water off.
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Legislative, including:
o Revise development code and SPAR guidelines to increase water conservation
effectiveness of landscaping on new projects to meet, at a minimum, requirements
expected to be promulgated by the California new development.
Standards Commission.
o Reduce the percentage of turf allowed
o * Require pre -sale inspection and certification to assure that house or property has
water efficient fixtures including low flow toilets, washing machine, and dish
washer before closing escrow on sale.
Staff will exercise progressive enforcement of the mandatory for irrigation
res the PMin and PMCe
with the 2008 resolution addressing administrative citation
15.16.100, Enforcement and Fees, as follows:
1. Personal contact: Education and technical support prdo ddCustomer fno neg is ven home, a dos or
hanger indicating the nature of the violation p
less as appropriate to mitigate violation.
2. If personal contact is not successful: Provide written notice of the violation including date
when correction must be complete. Copy of notice is sent by certified mail.
3. First violation under administrative penalty resolution: If correction not made in
accordance with written notice, apply fine of $100.
4. Second violation within 36 months under administrative penalty resolution: If correction
not made or recurrence of violation a fine of $500.
5. Third violation within 36 months under administrative penalty
Shut off water Fine of until 000.
o
6. In addition to issuing a notice of violations, if appropriate:
verification of correction is made. Cost of shut off and turn on is an additional $60.
Note that the City's administrative fines are more onerous that those adopted by the SWRCB in
the Emergency Regulations.
The proposed action will meet Council Goal: "Plan for the future ".
FIN ANCIAL IMPACTS
The financial impacts of implementing the Stage 1 plan, as amended include:
1. Reductions of revenue from commodity charges rn strat ve and
2. Implementation of Stage 2 as amended w ill q uire additional admire
environmental service technician resources to in Ce awategwaste monitoring, lmailers to al
for water wise house calls, CII technical assistance,
customers, workshops and enforcement. Staff expects to hire two additional water
conservation specialists and spend an additional $100,000 above a normal year for
temporary labor, advertising, and consulting services through the end of the drought
declaration.
The net fiscal impact of the proposed action appears to be within thrisexfundg budget proposal of
$716,000 for the water conservation cost center of the
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ATTACHMENTS
1. Resolution
2. State Water Resources Control Board (SWRCB) May 5, 2015 Resolution No. 2015 -0032 and
Emergency Regulations
3. April 1, 2015 Executive Order B -29 -15
Attachment 1
RESOLUTION AUTHORIZING THE CITY MANAGER TO IMPLEMENT THE
CITY'S WATER SHORTAGE CONTINGENCY PLAN, STAGE 2 AS AMENDED, AS
MANDATED BY THE STATE WATER RESOURCES CONTROL BOARD WITHIN
THE AREA SERVED BY THE CITY OF PETALUMA PUBLIC WATER SYSTEM AND
REPEAL AND REPLACE RESOLUTION NO. 2014-141 N.C.S.
WHEREAS, the City of Petaluma is a City empowered to provide water service within
certain boundaries; and
WHEREAS, calendar year 2013 was the lowest rainfall year on record in 120 years; and
WHEREAS, due to this water supply shortage, a water shortage emergency exists and a
reduction in demand is required to ensure adequate supply in 2015 and beyond; and
WHEREAS, on January 17, 2014 Gov. Edmund G. Brown, Jr. declared a drought state
of emergency and directed state and local officials to take all necessary actions to conserve
water; and
WHEREAS, the Restructured Agreement for Water. Supply, executed on June 23, 2006,
by and between the Sonoma County Water Agency (SCWA), the Cities of Cotati, Petaluma,
Rohnert Park, Santa Rosa, and Sonoma, the North Marin and Valley of the Moon Water Districts
and the Town of Windsor, collectively known as the Water Contractors, created the Water
Advisory Committee and Technical Advisory Committee; and
WHEREAS, the Water Contractors, along with SCWA and Marin Municipal Water
District, are members of the Sonoma - Marin Saving Water Partnership, through which these
members have joined together to provide a regional approach to water use efficiency; and
WHEREAS, on February 3, 2014, the Water Advisory Committee of the SCWA
approved a Resolution supporting the Sonoma Marin Saving Water Partnership Efforts
and Governor Jerry Brown's Emergency Drought Declaration that includes seeking 20%
voluntary conservation and recommended that all principal SCWA contractors follow suit
with their respective governing boards; and
WHEREAS, on March 3, 2014, the City Council adopted Resolution No. 2014-
045 "Declaring a Water Shortage Emergency and Implementation of Stage 1 of the City's
Water Shortage Contingency Plan "; and
WHEREAS, on April 25, 2014, Governor Edmund G. Brown Jr. issued an Executive
Order to strengthen the State's ability to manage water and habitat effectively in drought
E
conditions and called on all Californians to redouble their efforts to conserve water. The
Executive Order finds that the continuous severe drought conditions present urgent challenges
across the State including water shortages in communities and for agricultural production,
increased wildfires, degraded habitat for fish and wildlife, threat of saltwater contamination, and
additional water scarcity if drought conditions continue into 2015. The National Integrated
Drought Information System reported that nearly 80% of the state was reported to be under
"extreme" drought conditions at the end of June; and
WHEREAS, on July 15, 2014, the State Water Resources Control Board ( SWRCB)
adopted Resolution No. 2014 -0038 enacting Article 22.5, Sections 863, 864 and 865 to Title 23
of the California Code of Regulations, emergency regulations for mandatory statewide urban
water conservation that sets certain requirements for urban water suppliers to meet; and
WEHREAS, on September 8, 2014, the City Council adopted Resolution No. 2014 -141
"Authorizing the City Manager to Implement the City's Water Shortage Contingency Plan, Stage
1, As Amended, As Mandated by the State Water Resources Control Board within the Area
Served by the City of Petaluma Public Water System and Repeal and Replace Resolution No.
2014 -045 N.C.S "; and
WHEREAS, on March 17, 2015, the SWRCB adopted Resolution No. 2015 -0013
enacting revisions to Article 22.5, Sections 863, 864 and 865 to Title 23 of the California Code
of Regulations, which imposed additional emergency regulations for water conservation by the
SWRCB; and
WHEREAS, on April l; 2015, Governor Edmund G. Brown Jr. issued an Executive
Order directing all water agencies to achieve reductions in potable water use of 25% and other
restrictions; and
WHEREAS, on May 5, 2015, the SWRCB adopted Resolution No. 2015 -0032 enacting
revisions to Article 22.5, Sections 863, 864, 865 and 866 to Title 23 of the California Code of
Regulations, which imposed additional emergency regulations for water conservation by the
SWRCB; and
WHEREAS, the City of Petaluma has satisfied the mandates of SWRCB Resolution No.
2015 -00013 through its Water Conservation Ordinance that prohibits water waste for all water
use classifications and implementation of Stage 2 of the City's Water Shortage Contingency
Plan, which establishes a 25% reduction target in water use by all customers served by the City's
potable water distribution system; and
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WHEREAS, the City of Petaluma has adopted a resolution updating the schedule of
penalties for administrative citations for violations of the Petaluma Municipal Code including
violation of the Water Conservation Ordinance; and
WHEREAS, the City of Petaluma has the authority and responsibility to adopt water
demand reduction measures within its area of service.
NOW, THEREFORE, BE IT RESOLVED that the City Council declares that under
the current water shortage conditions, a water shortage emergency continues to exist and in order
to satisfy the water conservation goal of the Executive Order, SWRCB Resolution No. 2015-
0032 and Sections 863, 864, 865 and 866 to Title 23 of the California Code of Regulations, all
requirements and actions of Stage 2 of the City's Water Shortage Contingency Plan will be
immediately re- implemented as amended as follows:
1. Resolution No. 2014 -141 N.C.S. is hereby repealed and replaced with this Resolution.
2. Under the current water shortage conditions, a water shortage emergency exists and Stage
2 of the City's Water Shortage Contingency Plan shall be implemented immediately, with
the following modifications:
a. Irrigation of landscaping with potable water using automatic sprinkler systems
shall be prohibited except on Tuesdays, Thursdays, and Saturdays during the
hours of 7:00 p.m. to 8:00 a.m. for all customers except City of Petaluma
irrigation accounts, which will be limited to any three days per week.
b. The application of potable water to outdoor landscapes during and within 48
hours after measurable rainfall is prohibited.
c. Use of potable water for dust control at construction sites when reclaimed water is
available is prohibited.
d. Operators of hotels and motels shall provide guests with the option of choosing
not to have towels and linens laundered daily. The hotel or motel shall
prominently display notice of this option in each guestroom using clear and easily
understood language.
e. Filling new swimming pools is prohibited, except for pools where an
application for building permit has been submitted by June 1, 2015.
f. Stage 2, as amended, shall remain in effect until the SWRCB determines that the
Emergency Regulations are no longer necessary due to changed conditions or
unless it renews the regulations due to continued drought. In the absence of this,
the Stage 2, as amended, declaration ends on February 8, 2016.
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Attachment 2
STATE WATER RESOURCES CONTROL BOARD
RESOLUTION NO. 2015 -0032
TO ADOPT AN EMERGENCY REGULATION FOR
STATEWIDE URBAN WATER CONSERVATION
WHEREAS:
1. On April 25, 2014, Governor Edmund G. Brown Jr. issued an executive order
(April 2014 Proclamation) to strengthen the State's ability to manage water and habitat
effectively in drought conditions, and called on all Californians to redouble their efforts to
conserve water. The April 2014 Proclamation finds that the continuous severe drought
conditions present urgent challenges across the State, including water shortages in
communities and for agricultural production, increased wildfires, degraded habitat for fish
and wildlife, threat of saltwater contamination, and additional water scarcity, if drought
conditions continue into 2015. The April 2014 Proclamation also suspends the
environmental review required by the California Environmental Quality Act to allow the
emergency regulation and other actions to take place as quickly as possible;
2. The April 2014 Proclamation refers to the Governor's Proclamation No. 1 -17 -2014,
issued on January 17, 2014, declaring a drought State of Emergency to exist in
California due to severe drought conditions (January 2014 Proclamation). The
January 2014 Proclamation finds that dry conditions and lack of precipitation present
urgent problems to drinking water supplies and cultivation of crops, which put farmers'
long -term investments at risk. The conditions also threaten the survival of animals and
plants that rely on California's rivers, including many species in danger of extinction.
The January 2014 Proclamation also calls on all Californians to reduce their water usage
by 20 percent;
3. On December 22, 2014, in light of the continued lack of rain, Governor Brown issued
Executive Order B- 28 -14, which extends the California Environmental Quality Act
suspension through May 31, 2016 for Water Code section 13247 and certain activities
,identified in the January 2014 and April 2014 proclamations;
4. On April 1, 2015, Governor Brown issued a new Executive Order that directs the State
Water Board to impose restrictions on urban water suppliers to achieve a statewide
25 percent reduction in potable urban usage through February 2016; require
commercial, industrial, and institutional users to implement water efficiency measures;
prohibit irrigation with potable water of ornamental turf in public street medians; and
prohibit irrigation with potable water outside newly constructed homes and buildings that
is not delivered by drip or microspray systems; along with other directives;
5. Water Code section 1058.5 grants the State Water Board the authority to adopt
emergency regulations in certain drought years in order to: "prevent the waste,
unreasonable use; unreasonable method of use, or unreasonable method of diversion,
of water, to promote water recycling or water conservation, to require curtailment of
diversions when water is not available under the diverter's priority of right, or in
furtherance of any of the foregoing, to require reporting of diversion or use or the
preparation of monitoring reports ";
Attachment 2
6. On July 15, 2014, the State Water Board adopted an emergency regulation to support
water conservation (Resolution No. 2014 - 0038), and that regulation became effective
July 28, 2014 upon approval by the Office of Administrative Law (OAL);
7. On March 17, 2015, the State Water Board amended and readopted the emergency
regulation to support water conservation (Resolution No. 2015 - 0013), which became
effective March 27, 2015 upon approval by OAL;
8. The current emergency regulation has supported Californians' water conservation
efforts, with over 125 billion gallons saved from August 2014 through March 2015;
however, statewide water use is only nine percent less than the same months in 2013.
Achieving a 25 percent reduction in use will require even greater conservation efforts
across the state. In particular, many communities must dramatically reduce their
outdoor water use;
9. In many areas, 50 percent or more of daily water use is for lawns and outdoor
landscaping. Outdoor water use is generally discretionary, and many irrigated
landscapes will survive while receiving a decreased amount of water;
10. Although urban water suppliers have placed restrictions on outdoor watering, the State
Water Board continues to receive reports of excessive outdoor water use;
11. Water conservation is the easiest, most efficient and most cost - effective way to quickly
reduce water demand and extend supplies into the next year, providing flexibility for all
California communities. Water saved this summer is water available later in the season
or next year, reducing the likelihood of even more severe water shortages should the
drought continue;
12. Education and enforcement against water waste is a key tool in conservation programs.
When conservation becomes asocial norm in a community, the need for enforcement is
reduced or eliminated; -
13. Public information and awareness is critical to achieving conservation goals, and the
Save Our Water campaign, run jointly by the Department of Water Resources (DWR)
and the Association of California Water Agencies, is an excellent resource for
conservation information and messaging that is integral to effective drought response
(http: / /saveourwater.com);
14. Many California communities are facing social and economic hardship due to this
drought. The rest of us can make adjustments to our water use, including landscape
choices that conserve even more water;
15. The California Constitution declares, at article X, section 2, that the water resources of
the state must be put to beneficial use in a manner that is reasonable and not wasteful.
Relevant to the current drought conditions, the California Supreme Court has clarified
that "what may be a reasonable beneficial use, where water is present in excess of all
needs, would not be a reasonable beneficial use in an area of great scarcity and great
need. What is a beneficial use at one time may, because of changed conditions, become
a waste of water at a later time." (Tulare Dist. v. Lindsay Strathmore Dist. (1935) 3
Cal.2d 489, 567.) In support of water conservation, the legislature has, through Water
Code section 1011, deemed reductions in water use due to conservation as equivalent
2
Attachment 2
to reasonable beneficial use of that water. Accordingly, this regulation is in furtherance
of article X, section 2 during this drought emergency. This temporary emergency
regulation is not to be used in any future administrative or judicial proceedings as
evidence or finding of waste and unreasonable use of any individual water user or water
supplier subject to this regulation, and are not to affect or otherwise limit any rights to
water conserved under applicable law, including without limitation, water conserved
consistent with Water Code section 1011;
16. Directive two of the Governor's April 1, 2015 Executive Order directs the State Water
Board to consider the relative per capita usage of each urban water supplier's service
area and require that areas with high per capita use achieve proportionally greater
reductions than areas with low per capita use;
17. On April 7, 2015, the State Water Board issued a draft framework proposing increasing
levels of required water reduction based upon residential per capita per day use
(R -GPCD) for the proposed regulation, and solicited public comments. The Board
received over 300 comments on the framework, primarily relating to the levels of
required water reduction;
18. On April 18, the State Water Board issued draft regulatory language for public comment
based on the April 7 framework and the comments received. The draft regulatory
language reflected careful consideration of all comments including those directed at the
levels of required reduction. Again, the Board received close to 300 comments;
19. On April 28, 2015, the State Water Board issued a final version of draft regulatory
language for comment, followed on April 29 by a formal public notice that it would
consider the adoption of the emergency regulation at the Board's regularly - scheduled
May 5 and 6, 2015 public meeting, in accordance with applicable State laws and
regulations. The State Water Board also distributed for public review and comment a
Finding of Emergency that complies with State laws and regulations;
20. As discussed above, the State Water Board is adopting the emergency regulation
because of the continuing emergency drought conditions, the need for prompt action to
prevent the waste and unreasonable use of water and to promote conservation, and the
specific actions called for in the Governor's April 1, 2015 Executive Order; and
21. Nothing in the regulation or in the enforcement provisions of the regulation precludes a
local agency from exercising its authority to adopt more stringent conservation
measures. Moreover, the Water Code does not impose a mandatory penalty for
violations of the regulation adopted by this resolution, and local agencies retain the
enforcement discretion in enforcing the regulation to the extent authorized. Local
agencies are encouraged to develop their own progressive enforcement practices to
promote conservation.
THEREFORE BE IT RESOLVED THAT:
1. The State Water Board adopts California Code of Regulations, title 23, section 866 and
re- adopts sections 863, 864,and 865, as appended to this resolution as an emergency
regulation;
3
Attachment 2
2. State Water Board staff will submit the regulation to OAL for final approval;
3. If, during the approval process, State Water Board staff, the State Water Board, or OAL
determines that minor corrections to the language of the regulation or supporting
documentation are needed for clarity or consistency, the State Water Board Executive
Director or the Executive Director's designee may make such changes;
4. This regulation shall remain in effect for 270 days after filing with the Secretary of State
unless the State Water Board determines that it is no longer necessary due to changed
conditions, or unless the State Water Board renews the regulation due to continued
drought conditions as described in Water Code section 1058.5;
5. The State Water Board directs staff to provide the Board with monthly updates on the
implementation of the emergency regulation and its effect. These updates shall include
information regarding the progress of the Building Standards Commission, Department
of Housing and Community Development, and other state agencies in the adoption and
implementation of emergency regulations or other requirements that implement
increased outdoor irrigation efficiency for new construction. These regulations and other
requirements will extend existing efficiency standards for new construction to the outdoor
environment and ensure that California's new homes are constructed to meet the
growing demand with the most efficient standards;
6. The State Water Board directs staff to condition funding upon compliance with the
emergency regulation, to the extent feasible;
7. The State Water Board directs staff to work with DWR and the Save Our Water
campaign to disseminate information regarding the emergency regulation; and
8. The State Water Board directs staff to update the electronic reporting portal to include
data fields for the new reporting required by the emergency regulation.
THEREFORE BE IT FURTHER RESOLVED THAT:
9. The State Water Board shall work with DWR, the Public Utilities Commission, and other
agencies to support urban water suppliers' actions to implement rates and pricing
structures to incent additional conservation, as required by directive eight in the
Governor's April 1, 2015 Executive Order. The Fourth District Court of Appeal's recent
Decision in Capistrano Taxpayer Association Inc. v. City of San Juan Capistrano
(G048969) does not foreclose the use of conservation- oriented rate structures;
10. The State Water Board calls upon water suppliers to:
a. ensure that adequate personnel and financial resources exist to implement
conservation requirements not only for 2015, but also for another year of drought
should it occur. Water suppliers that face budget shortfalls due to reduced sales
should take immediate steps to raise necessary revenues in a way that actively
promotes continued conservation;
b. expedite implementation of new conservation programs by minimizing internal
review periods and utilizing emergency authorities, as appropriate;
4
Attachment 2
c. consider the relative water use and conservation practices of their customers and
target those with higher water use to achieve proportionally greater reductions
than those with low use;
d. minimize financial impacts to low- income customers;
e. preserve safe indoor water supplies in areas with very low R -GPCD and where
necessary to protect public health and safety;
f. promote low -water use methods of preserving appropriate defensible space in
fire -prone areas, consistent with local fire district requirements;
g. educate customers on the preservation of trees;
h. promote on -site reuse of water; and
i. promptly notify staff of the supplier's need for an alternate method of compliance
pursuant to resolved paragraph 16.
11. The State Water Board calls upon all businesses within California's travel and tourism
sectors to inform visitors of California's dire drought situation and actions visitors should
take to conserve water;
12. The State Water Board commends wholesale water agencies that have set aggressive
conservation targets for their retail water suppliers;
13. The State Water Board commends water suppliers that have made investments to boost
drought- resistant supplies, such as advanced treated recycled water and desalination.
Those investments help to make communities more resilient in the face of drought;
14. The State Water Board commends the many water suppliers that have already
surpassed their 20x2020 conservation targets. Long -term conservation efforts are
critical to maintaining economic and social well- being, especially in light of the impacts of
climate change on California's hydrology;
15. During this drought emergency, heightened conservation that extends urban resilience is
necessary. The State Water Board's. focus is primarily on immediate reductions in
outdoor water use. Some short -term conservation efforts, such as landscape
conversions, and installation of efficient appliances, will also support long -term
conservation objectives, and are encouraged wherever possible;
16. The State Water Board recognizes that some commercial and industrial customers,
while accounting for a significant portion of total use in a service area, have already
taken steps to significantly reduce their water consumption and cannot further reduce
their use without substantial impacts. However, the Board also recognizes that in many
areas there are significant opportunities for reductions in water use by industries and
commercial enterprises that have yet to take action, especially those with large areas of
non - functional turf. The Board directs staff to respond promptly upon receipt of any
request for alternate enforceable methods of compliance. If the supplier believes the
conservation standard is unachievable due to firm commercial and industrial water use
5
Attachment 2
and residential use reductions that would affect public health and safety, it should
provide any supporting information or documentation for an alternate method of
compliance; and
17. Some water suppliers have called for further refinement of the tiers to reflect a range of
factors that contribute to water use, including but not limited to temperature, lot size, and
income. Others have called for an approach that provides greater recognition for early
investments in conservation, the development of local, drought resistant water supplies,
and health and safety needs. These suggestions and many others are important
considerations in the development of a more comprehensive, and long term,
conservation framework. The State Water Board directs staff to work with stakeholders
on a thoughtful process to devise options for extended and expanded emergency
regulations should the drought continue into 2016.
CERTIFICATION
The undersigned Clerk to the Board does hereby certify that the foregoing is a full, true, and
correct copy of a resolution duly and regularly adopted at a meeting of the State Water
Resources Control Board held on May 5, 2015.
AYE:
Chair Felicia Marcus
Vice Chair Frances Spivy -Weber
Board Member Tam M. Doduc
Board Member Steven Moore
Board Member Dorene D'Adamo
NAY:
None
ABSENT:
None
ABSTAIN:
None
Jeanie Townsend
Clerk to the Board
In
Attachment 2
ADOPTED TEXT OF EMERGENCY REGULATION
Article 22.5. Drought Emergency Water Conservation.
Sec. 863. Findings of Drought Emergency.
(a) The State Water Resources Control Board finds as follows:
(1) On January 17, 2014, the Governor issued a proclamation of a state of
emergency under the California Emergency Services Act based on drought conditions;
(2) On April 25, 2014, the Governor issued a proclamation of a continued state of
emergency under the California Emergency Services Act based on continued drought
conditions;
(3) On April 1, 2015, the Governor issued an Executive Order that, in part,
directs the State Board to impose restrictions on water suppliers to achieve a statewide
25 percent reduction in potable urban usage through February, 2016; require commercial,
industrial, and institutional users to implement water efficiency measures; prohibit
irrigation with potable water of ornamental turf in public street medians; and prohibit
irrigation with potable water outside newly constructed homes and buildings that is not
delivered by drip or microspray systems;
(4) The drought conditions that formed the basis of the Governor's emergency
proclamations continue to exist;
(5) The present year is critically dry and has been immediately preceded by two or
more consecutive below normal, dry, or critically dry years; and
(6) The drought conditions will likely continue for the foreseeable future and
additional action by both the State Water Resources Control Board and local water
suppliers will likely be necessary to prevent waste and unreasonable use of water and to
further promote conservation.
Authority: Section 1058.5, Water Code.
References: Cal. Const., Art., X § 2; Sections 102, 104, 105, and 275, Water Code;
Light v. State Water Resources Control Board (2014) 226 Cal.App.4th 1463.
Sec. 864. End -User Requirements in Promotion of Water Conservation.
(a) To prevent the waste and unreasonable use of water and to promote water
conservation, each of the following actions is prohibited, except where necessary to
address an immediate health and safety need or to comply with a term or condition in a
permit issued by a state or federal agency:
(1) The application of potable water to outdoor landscapes in a manner that causes
runoff such that water flows onto adjacent property, non- irrigated areas, private and
public walkways, roadways.. parking lots, or structures;
(2) The use of a hose that dispenses potable water to wash a motor vehicle, except
where the hose is fitted with a shut -off nozzle or device attached to it that causes it to
cease dispensing water immediately when not in use;
(3) The application of potable water to driveways and sidewalks; and
(4) The use of potable water in a fountain or other decorative water feature,
except where the water is part of a recirculating system;
Attachment 2
(5) The application of potable water to outdoor landscapes during and within
48 hours after measurable rainfall;
(6) The serving of drinking water other than upon request in eating or drinking
establishments, including but not limited to restaurants, hotels, cafes; cafeterias, bars, or
other public places where food or drink are served and /or purchased;
and (7) The irrigation with potable water of ornamental turf on public street medians;
(8) The irrigation with potable water of landscapes outside of newly constructed
homes and buildings in a manner inconsistent with regulations or other requirements
established by the California Building Standards Commission and the Department of
Housing and Community Development.
(b) To promote water conservation, operators of hotels and motels shall provide
guests with the option of choosing not to have towels and linens laundered daily. The
hotel or motel shall prominently display notice of this option in each guestroom using
clear and easily understood language.
(c) Immediately upon this subdivision taking effect, all commercial, industrial and
institutional properties that use a water supply, any portion of which is from a source
other than a water supplier subject to section 865, shall either:
(1) Limit outdoor irrigation of ornamental landscapes or turf with potable water to
no more than two days per week; or
(2) Reduce potable water usage supplied by sources other than a water supplier by
25 percent for the months of June 2015 through February 2016 as compared to the
amount used from those sources for the same months in 2013.
(d) The taking of any action prohibited in subdivision (a) or the failure to take any
action required in subdivisions (b) or (c), is an infraction, punishable by a fine of up to
five hundred dollars ($500) for each day in which the violation occurs. The fine for the
infraction is in addition to, and does not supersede or limit, any other remedies, civil or
criminal.
Authority: Section 1058.5, Water Code.
References: Cal. Const., Art., X § 2; Sections 102, 104, 105, 275, 350, and 10617,
Water Code; Light v. State Water Resources Control Board (2014) 226 Cal.App.4th
1463.
Sec. 865. Mandatory Actions by Water Suppliers.
(a) As used in this section:
(1) "Distributor of a public water supply' has the same meaning as under
section 350 of the Water Code, except it does not refer to such
distributors when they are functioning solely in a wholesale capacity,
but does apply to distributors when they are functioning in a retail
capacity.
(2) "R -GPCD" means residential gallons per capita per day.
FJ1
Attachment 2
(3) "Total potable water production" means all potable water that enters
into a water supplier's distribution system, excluding water placed into
storage and not withdrawn for use during the reporting period, or water
exported outsider the supplier's service area.
(4) "Urban water supplier" means a supplier that meets the definition set
forth in Water Code section 10617, except it does not refer to suppliers
when they are functioning solely in a wholesale capacity, but does
apply to suppliers when they are functioning in a retail capacity.
(b) In furtherance of the promotion of water conservation each urban water
supplier shall:
(1) Provide prompt notice to a customer whenever the supplier obtains
information that indicates that a leak may exist within the end - user's exclusive control.
(2) Prepare and submit to the State Water Resources Control Board by the 15"' of
each month a monitoring report on forms provided by the Board. The monitoring report
shall include the amount of potable water the urban water supplier produced, including
water provided by a wholesaler, in the preceding calendar month and shall compare that
amount to the amount produced in the same calendar month in 2013. The monitoring
report shall specify the population served by the urban water supplier, the percentage of
water produced that is used for the residential sector, descriptive statistics on water
conservation compliance and enforcement efforts, and the number of days that outdoor
irrigation is allowed, and monthly commercial, industrial and institutional sector use.
The monitoring report shall also estimate the gallons of water per person per day used by
the residential customers it serves.
(c)(1) To prevent the waste and unreasonable use of water and to meet the
requirements of the Governor's April 1, 2015 Executive Order, each urban water supplier
shall reduce its total potable water production by the percentage identified as its
conservation standard in this subdivision. Each urban water supplier's conservation
standard considers its service area's relative per capita water usage.
(2) Each urban water supplier whose source of supply does not include
groundwater or water imported from outside the hydrologic region in which the water
supplier is located, and that has a minimum of four years' reserved supply available may,
submit to the Executive Director for approval a request that, in lieu of the reduction that
would otherwise be required under paragraphs (3) through (10), the urban water supplier
shall reduce its total potable water production by 4 percent for each month as compared
to the amount used in the same month in 2013. Any such request shall be accompanied
by information showing that the supplier's sources of supply do not include groundwater
or water imported from outside the hydrologic region and that the supplier has a
minimum of four years' reserved supply available.
(3) Each urban water supplier whose average July- September 2014 R -GPCD was
less than 65 shall reduce its total potable water production by 8 percent for each month as
compared to the amount used in the same month in 2013.
(4) Each urban water supplier whose average July- September 2014 R -GPCD was
65 or more but less than 80 shall reduce its total potable water production by 12 percent
for each month as compared to the amount used in the same month in 2013.
Attachment 2
(5) Each urban water supplier whose average July- September 2014 R -GPCD was
80 or more but less than 95 shall reduce its total potable water production by 16 percent
for each month as compared to the amount used in the same month in 2013.
(6) Each urban water supplier whose average July- September 2014 R -GPCD was
95 or more but less than 110 shall reduce its total potable water production by 20 percent
for each month as compared to the amount used in the same month in 2013.
(7) Each urban water supplier whose average July- September 2014 R -GPCD was
110 or more but less than 130 shall reduce its total potable water production by
24 percent for each month as compared to the amount used in the same month in 2013.
(8) Each urban water supplier whose average July- September 2014 R -GPCD was
130 or more but less than 170 shall reduce its total potable water production by
28 percent for each month as compared to the amount used in the same month in 2013.
(9) Each urban water supplier whose average July- September 2014 R -GPCD was
170 or more but less than 215 shall reduce its total potable water production by
32 percent for each month as compared to the amount used in the same month in 2013.
(10) Each urban water supplier whose average July- September 2014 R -GPCD
was 215 or more shall reduce its total potable water production by 36 percent for each
month as compared to the amount used in the same month in 2013.
(d)(1) Beginning June 1, 2015, each urban water supplier shall comply with the
conservation standard specified in subdivision (c).
(2) Compliance with the requirements of this subdivision shall be measured
monthly and assessed on a cumulative basis.
(e)(1) Each urban water supplier that provides potable water for commercial
agricultural use meeting the definition of Government Code section 51201, subdivision
(b), may subtract the amount of water provided for commercial agricultural use from its
potable water production total, provided that any urban water supplier that subtracts any
water provided for commercial agricultural use from its total potable water production
shall:
(A) Impose reductions determined locally appropriate by the urban water supplier,
after considering the applicable urban water supplier conservation standard specified in
subdivision (c), for commercial agricultural users meeting the definition of Government
Code section 5 120 1, subdivision (b) served by the supplier;
(B) Report its total potable water production pursuant to subdivision (b)(2) of this
section, the total amount of water supplied for commercial agricultural use, and shall
identify the reduction imposed on its commercial agricultural users and each recipient of
potable water for commercial agricultural use;
(C) Certify that the agricultural uses it serves meet the definition of Government
Code section 51201, subdivision (b); and
(D) Comply with the Agricultural Water Management Plan requirement of
paragraph 12 of the April 1, 2015 Executive Order for all commercial agricultural water
served by the supplier that is subtracted from its total potable'water production.
9
Attachment 2
(2) Submitting any information pursuant to subdivision (e)(1)(B) or (C) of this
section that is found to be materially false by the board is a violation of this regulation
Punishable by civil liability of up to five hundred dollars ($500) for each day in which th e
violation occurs. Every day that the error goes uncorrected constitutes a separate
violation. Civil liability for the violation is in addition to, and does not supersede
limit, any other remedies, civil or criminal. or
(t)(1) To prevent waste and unreasonable use of water and to promote water
conservation, each distributor of a public water supply that is not an urban water supplier
shall take one or more of the following actions:
(A) Limit outdoor irrigation of ornamental landscapes or turf with potable water
by the persons it serves to no more than two days per week; or
(B) Reduce by 25 percent reduction its total potable water production relative to
the amount produced in 2013.
(2) Each distributor of a public water supply that is not an urban water supplier
shall submit a report by December 15, 2015, on a form provided by the Board, that either
confirms compliance with subdivision ther
production, by month, from June'through November, 2015, 2015�and total tae Water
production, by month, for June through November 2013. Potable water
Authority: Section 1058.5, Water Code.
References: Cal. Const., Art., X § 2; Sections 102, 104, 105, 275, 35
and 10632, Water Code; Light v. State 0, 1846, 10617
Cal.App.4th 1463, Water Resources Control Board (2014) 226
Sec. 866. Additional Conservation Tools.
(a)(1) To prevent the waste and unreasonable use of water and to promote
conservation, when a water supplier does not meet its conservation standard required b
section 865 the Executive Director, or the Executive Director's designee, may issue
conservation orders requiring additional actions by the supplier to come into co y
with its conservation standard. compliance
(2) A decision or order issued under this article by the board or an officer or
employee of the board is subject to reconsideration under article 2 (commencing with
section 1122) of chapter 4 of part I of division 2 of the California Water Code.
(b) The Executive Director, or his designee, may issue an informational order
requiring water suppliers, or commercial, industrial or institutional properties that receive
any portion of their supply from a source other than a water supplier subject to section
865, to submit additional information relating to water production, water use or w ater
conservation. The failure to provide the information requested within 30 days or any
additional time extension granted is a violation subject to civil liability of up to
$500 per day for each day the violations continues pursuant to Water Code section 1846.
Authority: Section 1058.5, Water Code.
References: Cal. Coast., Art., X § 2; Sections 100, 102, 104, 105, 174, 186, 187 275
350, 1051, 1122, 1123, 1825, 1846, 10617 and 10632, Water Code; Light v. State Water
Resources Control Board (2014) 226 Cal.App.4th 1463, '
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