growth management-oriented water conservation and reuse: operationalizing integrated watershed and...

Growth Management-oriented Water Conservation and Reuse:

Operationalizing Integrated Watershed and Water Resources

Management Policy in Oregon

Presented byPresented by::Jamison Cavallaro, Project ManagerJamison Cavallaro, Project Manager

Cascadia Watershed Planners and ConsultantsCascadia Watershed Planners and [email protected] [email protected]

www.cascadiawatershed.comwww.cascadiawatershed.com

Pop Quiz (Density of ?… Caused by ? … Solved by ?) Pop Quiz (Density of ?… Caused by ? … Solved by ?)

Illustration courtesy of OSU Extension ServiceIllustration courtesy of OSU Extension Service

AnswerAnswer Concentration of Water Concentration of Water

PollutionPollutioncaused bycaused by

??solved bysolved by

Lessons learned from comprehensive land use and transportation planning in Oregon

including federally-required MPOs

Operationalizing IWWRM Policy in Oregon

(? Need for new, improved implementing legislation ?)(? Need for new, improved implementing legislation ?)

Definitions, Governance, Goals/Statutes/Rules/Codes, Definitions, Governance, Goals/Statutes/Rules/Codes, and and

Analytical Framework Analytical Framework • Watershed-context of Water (Natural) Resources Watershed-context of Water (Natural) Resources • All levels of government, stakeholders, and All levels of government, stakeholders, and

citizenscitizens• Regulatory Compliance Process for Intermodal Regulatory Compliance Process for Intermodal

InfrastructureInfrastructure• RWPC’s (Portland-Metro) 2004 Updated RWSPRWPC’s (Portland-Metro) 2004 Updated RWSP

Findings and RecommendationsFindings and Recommendations• Institutional, technical, education/workforce Institutional, technical, education/workforce

training, legaltraining, legal and moreand more

Presentation Overview


……from Concepts to from Concepts to Definitions…Definitions…


……from Concepts to from Concepts to Definitions…Definitions…


In-Stream In-Stream Need Area Need Area

Schematic Courtesy of Center for Applied Optimization, U of FloridaSchematic Courtesy of Center for Applied Optimization, U of Florida

Decentralized and Distributed Wastewater Reuse Decentralized and Distributed Wastewater Reuse ApplicationsApplications(2009 Workshop Presentation) by Victor D’Amato, PE - (2009 Workshop Presentation) by Victor D’Amato, PE - Tetra TechTetra Tech IntroductionIntroduction

- Distributed Systems, Sustainability, and Why Distributed - Distributed Systems, Sustainability, and Why Distributed Systems?Systems?

Technological approachesTechnological approaches- Technology options- Technology options- Integrated resources management and resource-efficient design- Integrated resources management and resource-efficient design

Decision-support toolsDecision-support tools- Green building rating systems and sustainability- Green building rating systems and sustainability- Multi-criteria decision models- Multi-criteria decision models- Full cost accounting- Full cost accounting

Applications: Case study examplesApplications: Case study examples- Site, Neighborhood or Community, and Utility scale examples- Site, Neighborhood or Community, and Utility scale examples

Ongoing Research ProjectsOngoing Research Projects- WERF When to Consider Distributed Systems- WERF When to Consider Distributed Systems- EPRI Case Studies for New Water Infrastructure Paradigm- EPRI Case Studies for New Water Infrastructure Paradigm


Working Definitions - Prof. Neil Griggs, Colorado State U. www.waterencyclopedia.com/Hy-La/Integrated-Water-Resources-www.waterencyclopedia.com/Hy-La/Integrated-Water-Resources-Management.htmlManagement.html

• Structural and nonstructural (comprehensive plans, zoning, other regulations Structural and nonstructural (comprehensive plans, zoning, other regulations and review processes, pricing, edu./outreach programs, etc.) measures to and review processes, pricing, edu./outreach programs, etc.) measures to control human-made and natural water resources systems for beneficial uses. control human-made and natural water resources systems for beneficial uses. - Human-made struct’l systems like reservoirs, canals, facilities, pipes, etc.- Human-made struct’l systems like reservoirs, canals, facilities, pipes, etc.- Natural water resources like snowpack, rain, wetland, river, aqif, fplain, etc.- Natural water resources like snowpack, rain, wetland, river, aqif, fplain, etc.

• In the water-supply field, the term “integrated resources planning” has come In the water-supply field, the term “integrated resources planning” has come into use to express concepts of integration in supply development. Perhaps the into use to express concepts of integration in supply development. Perhaps the most comprehensive concept for water supply is “Total Water Mgmt.”most comprehensive concept for water supply is “Total Water Mgmt.”

• AWWA Research Foundation, August 1996 Exercise of stewardship of water AWWA Research Foundation, August 1996 Exercise of stewardship of water resources for the greatest good of society and the environment. resources for the greatest good of society and the environment.

• TWM: Supply is renewable, but limited, and should be managed on a TWM: Supply is renewable, but limited, and should be managed on a

sustainable-use basis.sustainable-use basis.

Functional Integration:Functional Integration: to join purposes of water resources to join purposes of water resources management (w/in a watershed-context) such as to managemanagement (w/in a watershed-context) such as to managesupply, sanitary, and stormwater systems as well as critical supply, sanitary, and stormwater systems as well as critical

upland and aquatic habitat, flora, and fauna as a single unit.upland and aquatic habitat, flora, and fauna as a single unit.


1. Does the State of Oregon presently have the right-sized “Good” Governance and Civil Society engagement mechanisms (and public sector-managed collaborative policy-planning and rule-making processes)

for

Functional Integration

of

Watershed-context Water Resources Management?

2. How do we evaluate our transition towards IWWRM, and measure FI?

3. Despite the present climate of uncertainty, how would we know if or when such mechanisms and processes are substantive enough to accelerate the pace of transition and integration to meet federal and state requirements?


Involvement from all levels of government, stakeholder groups, and Involvement from all levels of government, stakeholder groups, and citizens is key for many reasons. Should the State of Oregon adopt a citizens is key for many reasons. Should the State of Oregon adopt a Goal 20 - IWWRM?Goal 20 - IWWRM?

Model of Governance for FI: Community Preparedness Model of Governance for FI: Community Preparedness and/or MPOand/or MPO

Statewide Goals, Oregon Admin. Rules, Ordinances and more• All most every Statewide Goal (1-19) relates to IWWRM, All most every Statewide Goal (1-19) relates to IWWRM,

especially Goals 1-8 and Goal 11especially Goals 1-8 and Goal 11 * Goal 1: Citizen Involvement * Goal 2: Land Use Planning * Goal 3-8: Natural Res.* Goal 1: Citizen Involvement * Goal 2: Land Use Planning * Goal 3-8: Natural Res.

http://www.oregon.gov/LCD/docs/goals/goalssummary.PDF

• Goal 11: Public Facilities and Services (OAR 660-015)Goal 11: Public Facilities and Services (OAR 660-015) “ “To plan and develop a timely, orderly, and efficient arrangement of public facilities To plan and develop a timely, orderly, and efficient arrangement of public facilities

and services to serve as a framework for urban and rural development.”and services to serve as a framework for urban and rural development.”* Goal 11* Goal 11 Public Facilities and ServicesPublic Facilities and Services Guidelines… A. Planning B. ImplementationGuidelines… A. Planning B. Implementation(A.7) “Plans providing for public facilities and services should consider as a major (A.7) “Plans providing for public facilities and services should consider as a major determinant determinant the carrying capacity of the air, land, andthe carrying capacity of the air, land, and water resources water resources of the of the planning areaplanning area. The land conservation and development action provided for by such . The land conservation and development action provided for by such plans should not exceed the carrying capacity of such resources.”plans should not exceed the carrying capacity of such resources.”

(B.5) “Additional methods and devises(B.5) “Additional methods and devises for for achieving desired achieving desired types and levels of types and levels of public facilities and servicespublic facilities and services should include but not be limited to the following: 1) should include but not be limited to the following: 1) tax incentives and disincentives; 2) tax incentives and disincentives; 2) land-use controls and ordinancesland-use controls and ordinances;; 3) 3) multiple use and joint development practicesmultiple use and joint development practices; 4) fee and less-than-fee acquisition ; 4) fee and less-than-fee acquisition techniques; and 5) enforcement of local health and safety codes.”techniques; and 5) enforcement of local health and safety codes.”


http://www.oregon.gov/LCD/docs/goals/goalssummary.PDF

(continued) Statewide Goals, OARs, Ordinances, and more• OAR 690-086 Water Management and Conservation PlansOAR 690-086 Water Management and Conservation Plans

-0010 Purpose (1)-0010 Purpose (1) “WR Commission has adopted a statewide policy on “WR Commission has adopted a statewide policy on Conservation and Efficient Water Use (OAR 690-410-0060)…Conservation and Efficient Water Use (OAR 690-410-0060)… WRC shall evaluate WRC shall evaluate implementation of these rules w/in every three years and every three year implementation of these rules w/in every three years and every three year thereafter. thereafter. (2)(2) Many regions of Oregon face periodic and increasingly frequent Many regions of Oregon face periodic and increasingly frequent water shortages during summer periods.water shortages during summer periods. In addition, many communities are In addition, many communities are faced faced with the need to reduce their impacts on the resourcewith the need to reduce their impacts on the resource in response to state in response to state or federal listings of stream-flow dependant species as sensitive, threatened or or federal listings of stream-flow dependant species as sensitive, threatened or endangered, water quality problem, and other flow issuesendangered, water quality problem, and other flow issues. . It is increasingly It is increasingly important to the state’s economy toimportant to the state’s economy to maintain adequate stream flows to support maintain adequate stream flows to support aquatic life, provide recreational opportunities and maintain water quality. aquatic life, provide recreational opportunities and maintain water quality. Continued implementation of conservation measuresContinued implementation of conservation measures can helpcan help restore restore streamflows, stabilize water supplies and provide for future needsstreamflows, stabilize water supplies and provide for future needs for economic for economic development and growth. (4) development and growth. (4) Effective water management requiresEffective water management requires an an evaluation of the evaluation of the adequacy of water suppliesadequacy of water supplies to meet current and future needsto meet current and future needs, , identification of planned modifications in water systems, and development of new identification of planned modifications in water systems, and development of new water supplies. However, the approval of a water management and conservation water supplies. However, the approval of a water management and conservation plan plan shall not substitute forshall not substitute for compliance with Statewide Planning Goals or compliance with Statewide Planning Goals or any other comprehensive land use planning requirementany other comprehensive land use planning requirement or constitute or constitute approval of applications for water rights, reservations, storage, transfers, permit approval of applications for water rights, reservations, storage, transfers, permit amendments/time ext.” amendments/time ext.”


(continued) Statewide Goals, OARs, Ordinances, and more• OAR 690-086 Water Management and Conservation OAR 690-086 Water Management and Conservation

PlansPlans-0010 (6) -0010 (6) Regional cooperationRegional cooperation will improve water management and will improve water management and help to facilitate implementation of conservation measureshelp to facilitate implementation of conservation measures. Water . Water suppliers required under OAR 690-086-0010 to 690-086-0920 to prepare suppliers required under OAR 690-086-0010 to 690-086-0920 to prepare WMCPs, and WMCPs, and any other suppliers or users, any other suppliers or users, may jointly submit a single may jointly submit a single planplan that addresses the suppliers’ conservation opportunities and water that addresses the suppliers’ conservation opportunities and water development needsdevelopment needs..


Regarding the need to assess Functional Integration and Regarding the need to assess Functional Integration and achieve achieve regulatory complianceregulatory compliance, the question arises as to , the question arises as to how best to evaluate and measure the success(es) of any how best to evaluate and measure the success(es) of any IWWRM Policy Operationalization and ImplementationIWWRM Policy Operationalization and Implementation StrategiesStrategies…Goal 20 or not. …Goal 20 or not.

With or without future federal, state, regional, and local With or without future federal, state, regional, and local MPO legislation for IWWRM (akin to ISTEA), it is still crucial MPO legislation for IWWRM (akin to ISTEA), it is still crucial to engage in a review of established regulatory to engage in a review of established regulatory framework(s) for growth management-oriented framework(s) for growth management-oriented intermodalintermodal transportation transportation infrastructureinfrastructure goal-setting, rule- goal-setting, rule-making, planning processes, management, maintenance, making, planning processes, management, maintenance, and enforcement. and enforcement.

2004 Regional Water Providers’ Consortium Updated RWSPTargets from Portland Metro Area water purveyors for infrastructure connectivity, demand management, and new albeit conventional

supplies.


(continued) 2004 Consortium’s Updated RWSP

The three questions this thesis paper from 2004 addressed:The three questions this thesis paper from 2004 addressed:

1.1. Is it possible for the region to achieve a robust water savings target of Is it possible for the region to achieve a robust water savings target of 100 million gallons a day (mgd) and 225 mgd by 2025 and 2050, 100 million gallons a day (mgd) and 225 mgd by 2025 and 2050, respectively?respectively?

2.2. Is efficacy of water reclamation and conservation strategies reasonable?Is efficacy of water reclamation and conservation strategies reasonable?

3.3. Does Oregon and the Portland metropolitan region have the market and Does Oregon and the Portland metropolitan region have the market and non-market planning mechanisms to operationalize and implement non-market planning mechanisms to operationalize and implement watershed-context integrated water resource management policies watershed-context integrated water resource management policies (IWRM)?(IWRM)?


(continued) 2004 Consortium’s Updated RWSP

Consortium’s planning efforts indicated that Multnomah, Washington and Clackamas counties needed to more than double 2004 installed capacity.

The Target: About 300 Million Gallons a Day (mgd) more than current installed capacity (approx. 500 mgd in 2004) on peak days by the year 2050. The projects under consideration to accommodate 2017-2025’s anticipated demand could cost over one billion in 2004 dollars.


Pre-1996 Regional Water Supply Plan targets for 2020 and 2050

NOTE: Demand models from the early 1990’s for regional peak-season conservation goals targeted regional gpcd at roughly 237 by 2020 and 238 by 2050.

The City of Portland, annual gallons per capita daily (gpcd) water use now stands at 125, down from 142 gpcd in 1994 (Rojas-Burke, 2004). What caused this reduction?

Which Portland residential and non-residential populations consume above or below the median of 126 gpcd? In terms of gpcd reductions, how much will residential and non-residential customers outside of Portland achieve by year 2020 and 2050?


(continued) Pre-1996 Regional Water Supply Plan targets


Year Peak Season Targets in gallons per capita daily

(gpcd)

Peak Season Targets in million gallons

daily

(mgd)1990 0.0 0.0

2000 8.0 11.0

2010 12.0 18.5

2020 14.0 23.5

2030 16.0 29.0

2040 18.0 34.8

2050 20.0 40.9

Original Regional Water Savings Targets for Early 1990’s Demand Models

1996 Regional Water Supply Plan targets


The 1996 Regional Water Supply Plan (RWSP) increased earlier targets. The 1996 RWSP emphasizes that by the year 2050, reductions in water use from both naturally occurring* and new outdoor conservation programs, 60.8 and 65.2 mgd respectively, will provide the region with 126 mgd of water that can be reallocated on a peak season basis. Reallocation of existing supplies due to water-efficient conservation programs is called water savings.

* The 1996 RWSP states that the cause of naturally

occurring conservation is either market, legislative or code changes.

Consortium’s 2004 Regional Water Supply Plan Update


Subregion Annual ConservationSavings

(mg)

Peak-Season Conservation Savings

(mgd)

East 2747 11.5

Clackamas 472 1.7

JWC (Westside) 539 1.9

TVWD (Westside) 630 2.1

Other 490 1.7

TOTAL 4878 18.9

Projected Annual and Peak-Season Conservation in Year 2025

(continued) Consortium’s 2004 RWSP Update


Maximum Annual and Peak-Season Conservation in Year 2025

Subregion Annual ConservationSavings

(mg)

Peak-Season Conservation Savings

(mgd)East 4176 16.2

Clackamas 1630 5.6

JWC (Westside) 1246 4.6

TVWD (Westside)

1038 3.7

Other 1211 4.5

TOTAL 9302 34.5

(continued) Consortium’s 2004 RWSP Update


The last two tables identify the next 14 years of results expected from investments in regional demand management mechanisms. The investments range from $23 to 65 million and offer potable water consumption reductions from 18.9 and 34.5 mgd.

The target of 34.5 mgd for 2025 did not appear to be robust enough to delay or defer new water source development projects for post-2017 needs (but the Great Recession did).

Recall: Why did annual gallons per capita daily (gpcd) water use within the City of Portland drop from 142 gpcd in 1994 to 125 by 2004?

Performance-based Permitting and Growth Management


Federal and State actions ensured potable water use reductions in the early 1990's with plumbing code amendments that required low flow plumbing fixtures.

Lorna Stickel, Project Manager at the Consortium and Water Resources Planning Manager at the Portland Water Bureau, stated:

. . . Modernization in the plumbing code was a major contributing factor for the water savings that has occurred in the Portland area since the early 1990's. Another factor that influenced water demands was the enactment of land-use policies that reduced lots sizes and required more multi-family and mixed use zoning within the Portland metro region. If executed properly, growth management can encourage water conservation-oriented development patterns through comprehensive planning and zoning codes that encourage more dense development patterns. Using design review codes that encourage native plantings and water conserving landscaping will result in less outdoor watering per acre inside (Metro’s) Urban Growth Boundary. (Stickel, 2004).

…modernizing the building code is the tip of the iceberg!


Due, in part, to the Great Recession a reflection on LCP is key


Potential Demand and Supply-side Options for 2017/2025/2050 Horizons

Type Project Expected Supply

(mgd)Potable Dam Raise for Bull Run Dam One 100

Potable Dam Raise for Bull Run Dam Two 100

Potable Develop Bull Run Dam Three 270

Non-Potable Newberg/Willamette Pipeline 120

Potable Dam Raise for Scoggins Dam 100

Potable Local Supplies and Treatment 60+

Demand Mgmt. “Natural” and New Conservation 126

Demand Mgmt, Potable, and Non-Potable

Robust Water Reclamation (including alternative water supplies) and Conservation

225+

Findings and Recommendations

Least cost planning (LCP) and/or integrated resource methods have been utilized to assess the feasibility of transportation and energy supply and demand management options.

The Oregon Department of Transportation, desiring an efficient transportation system policy framework, were advised by LCP analysts that options such as demand management systems, pricing systems, and land-use systems should be evaluated along with road construction, transit construction, and other supply oriented management systems (Rufolo, Bronfman and Strathman, 1995).

The comprehensive nature of the LCP approach offers a tested analytical framework that future water system analysts can attempt to emulate. More central to the thesis of this paper, LCP validates the very idea of evaluating alternatives to conventional water supply construction projects and the potential efficacy of water reclamation and conservation as integral components of functionally-integrated watershed and water resources management in Oregon, throughout the Cascadia Watershed, the West, and across North America…(Summer AWRA Conference in Utah)



1.1. Is it possible for the region to achieve a robust water Is it possible for the region to achieve a robust water savings target of 100 million gallons a day (mgd) and savings target of 100 million gallons a day (mgd) and 225 mgd by 2025 and 2050, respectively?225 mgd by 2025 and 2050, respectively?YES.YES.

2.2. Is efficacy of water reclamation and conservation Is efficacy of water reclamation and conservation strategies reasonable?strategies reasonable?YES.YES.

3.3. Does Oregon and the Portland metropolitan region have Does Oregon and the Portland metropolitan region have the market and non-market planning mechanisms to the market and non-market planning mechanisms to operationalize and implement watershed-context operationalize and implement watershed-context integrated water resource management policies?integrated water resource management policies?It depends.It depends.




Quality/Type of Source Quality/Type of Source ServiceService

Irvine Water Dist.

In California(2002)

ALL Water Dist.

In Florida(2002)

Portland area

In Oregon(2004)

PotablePotable 47 8,000 505

Reclaimed Wastewater for Reclaimed Wastewater for Non-PotableNon-Potable

N/A N/A <1

Reclaimed Urban Rainwater Reclaimed Urban Rainwater for Potablefor Potable

21 585 <1

Other Non-PotableOther Non-Potable 8 N/A 40

TOTALTOTAL 76 8,585 546

% of System from Reclaimed Water

28% 7% <1%

Percentage of Reclaimed Water Supplies as a System Diversity Baseline Percentage of Reclaimed Water Supplies as a System Diversity Baseline (in Million Gallons a Day)(in Million Gallons a Day)

Previous table indicates that multi-supply source/multi-sanitation systems in Florida are almost one order of magnitude more diversified than the Portland metropolitan area’s current system.

The State of Oregon could move forward a watershed-context directive with complementary rule-making to operationalize and implement IWWRM to achieve water supply system diversity of 15% by 2025. The MPO regions in Oregon may need to target 15-20% by 2025 to facilitate the market and non-market forces that can counteract the negative externalities of conventional, bifurcated water supply, sanitary, stormwater, and natural resource management and conservation planning frameworks.



Rural to Urban Land Conversion (New Rural to Urban Land Conversion (New Construction)Construction)

Source: D’Amato; Illustration: Courtesy of Source: D’Amato; Illustration: Courtesy of

Ardent,Ardent, Conservation Design for Conservation Design for

SubdivisionsSubdivisions Operationalizing IWWRM Policy in Oregon

Figure 1. Entrance inaccessible during low flows (pictured at high flow)

Figure 2. High turbulence in fish ladder makes passage difficult

Aging Water Supply Diversion Dam (Retrofit)Aging Water Supply Diversion Dam (Retrofit)


(continued) Intake work….but what about fish habitat?

Figure 3. Working to improve intake


(continued) Is it difficult for a community to go IWWRM?

Figure 4. Close-up of intake improvement


There’s There’s plenty of plenty of

work to be work to be done done

throughouthroughout Oregon.t Oregon.

Institutional, Technical, Education/Workforce Training, and LegalInstitutional, Technical, Education/Workforce Training, and Legal


growth management-oriented water conservation and reuse: operationalizing integrated watershed and...

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