october 2015 sustainable groundwater management in ca ... · pdf filesustainable groundwater...
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Sustainable Groundwater Management in CA Agriculture
Thomas Harter University of California Davis
http://groundwater.ucdavis.edu
October 2015
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Photo: Justin Sullivan / Getty Images
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Veronica Rocha / Los Angeles Times
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Lake Mendocino, 12/2013 Jay Jasperse / SCWA
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Brad Zweerink for Earth Justice
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Jim Wilson/ The New York Times
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Jim Wilson/ The New York Times
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Jim Wilson/ The New York Times
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Annual P [inches]
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Annual P [inches]
Tri-annual P [inches]
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California DWR, 2015
DRIEST
WETTEST
Cumulative Precipitation October - September
1923-1924 (driest)
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California DWR, 2015
DRIEST
WETTEST
Cumulative Precipitation October - September
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Drought History
California Department of Water Resources; Drought Response Update Fall 2014
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Space and Time Disconnect between Water Supply and Water Use
WATER USERS
RAIN
< 5 in
> 50 in
~15 in
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California’s Water Users
Irrigated Agriculture 9.5 million acres
(4 million ha)
applied water use: 27 – 35 MAF (35 – 45 km3)
MAF = million acre-feet
Population 38 million people
water use:
8 MAF (10 km3)
CDFA, 2003
Environment &
protected streams, wetlands:
45 MAF (55 km3)
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California Water Infra-structure: Bridging the Spatial and Temporal Disconnect between SUPPLY and USE
Cal
ifor
nia
Wat
er P
lan,
Bul
leti
n 16
0-20
05
Total reservoir storage: 40 MAF
(50 km3)
about 9 M
irrigated acres
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Central Water Hub: Sacramento – San Joaquin Delta
California Water Plan, Bulletin 160-2005
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fractured bedrock of California’s mountain ranges
Sediments => result of erosion, water, wind, lake deposition, ocean bay deposition
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Monthly Landscape Water Budget October – September Tule River Basin, Tulare County
1980 - NORMAL
Ruud, Harter et al., 2003, 2004
groundwater extraction
river water rain
crops/plants
recharge
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Monthly Landscape Water Budget October – September Tule River Basin, Tulare County
1980 - NORMAL
Ruud, Harter et al., 2003, 2004
groundwater extraction
river water rain
crops/plants 1998 - WET
recharge
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Monthly Landscape Water Budget October – September Tule River Basin, Tulare County
1977 - DRY
1980 - NORMAL
Ruud, Harter et al., 2003, 2004
groundwater extraction
river water rain
crops/plants 1998 - WET
recharge
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From: DWR California Water Plan 2013 - Draft (Bulletin 160-2013)
DRY YEAR
WET YEAR
extraction
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Estimating Groundwater Flows Across Subbasin / Political Boundaries
Ruud et al,. 2003; http://groundwater.ucdavis.edu/files/136420.pdf
recharge map
Groundwater Imports
water districts
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Groundwater Levels during Drought
10 ft/y 10 ft/y 15 ft/y
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40 ft/y
Groundwater Levels during Drought
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Water Level Change Spring 2005 – Spring 2015
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Water Level Change Spring 2014 – Spring 2015
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Change in Groundwater Level Record Low 20th Century to Drought 2008-2014
http
://w
ww
.wat
er.c
a.go
v/w
ater
cond
ition
s/do
cs/D
roug
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espo
nse-
Gro
undw
ater
_Bas
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April
30_F
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_BC.
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Change in Groundwater Storage in the Central Valley, 1920 - 2010
from
: Les
ter
Snow
, CA
Wat
er F
ound
atio
n
-150 km3
(-130 MAF)
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Consequences of Groundwater Overdraft…
• Seawater intrusion
• Increased pumping cost & cost of drilling new wells
• Land subsidence
• Water quality degradation
• Surface water depletion
• Impact to groundwater dependent ecosystems
…Long Before Running Out of Groundwater!
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Salinas Valley 180 Foot Aquifer
Salinas Valley 400 Foot Aquifer
Brown & Caldwell, MCWRA, January 2015
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California Groundwater Rights: Background
• Correlative Rights Doctrine – safe yield of groundwater basin shared by overlying users
o Katz v. Wilkinshaw, 1908
• California constitutional mandate for beneficial use (1928)
• Special districts (20 different types, about 2,300 districts)
o Water districts, irrigation districts, private water companies, reclamation districts, water conservation
districts, water replenishment districts, water storage districts, etc.
• County police power – controls groundwater exports
o Baldwin vs. Tehama County, 1994
• The Courts: basin adjudication / “physical solution” – controls extraction
o Many Southern California (sub)basins, mid 20th century
o City of Barstow vs. Mojave Water Agency, 2000:
• Right of water users to negotiate physical “equitable, practical” solution, regardless of water rights
• Individual water rights holders cannot be forced into a voluntary agreement
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California Groundwater Rights: Background
• Correlative Rights Doctrine – safe yield of groundwater basin shared by overlying users o Katz v. Wilkinshaw, 1908
• California constitutional mandate for beneficial use (1928) • Special districts (20 different types, about 2,300 districts)
o Water districts, irrigation districts, private water companies, reclamation districts, water conservation districts, water replenishment districts, water storage districts, etc.
• County police power – controls groundwater exports o Baldwin vs. Tehama County, 1994
• The Courts: basin adjudication / “physical solution” – controls extraction o Many Southern California (sub)basins, mid 20th century o City of Barstow vs. Mojave Water Agency, 2000:
• Right of water users to negotiate physical “equitable, practical” solution, regardless of water rights
• Individual water rights holders cannot be forced into a voluntary agreement • State groundwater management:
o Voluntary local groundwater management plans: AB 3030 (1992) o Financial incentives for local groundwater management: SB 1938 (2002) o Sustainable Groundwater Management Act of 2014: mandatory & expanded local control
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Sustainable Groundwater Management Act of 2014
SEC. 2.
Section 113 is added to the Water Code, to read:
113.
It is the policy of the state that groundwater resources be managed
sustainably for long-term reliability and multiple economic,
social, and environmental benefits for current and future beneficial uses.
Sustainable groundwater management is best achieved locally through the
development, implementation, and updating of plans and programs based on the best available
science.
[emphasis added]
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Sustainability = No “Undesirable Results” 10721. Unless the context otherwise requires, the following definitions govern the construction of this part:
(u) “Sustainable groundwater management” means the management and use of groundwater in a manner that can be maintained
during the planning and implementation horizon without causing undesirable results.
(w) “Undesirable result” means one or more of the following effects caused by groundwater
conditions occurring throughout the basin (Section 10721 (w)):
(1) Chronic lowering of groundwater levels indicating a significant and unreasonable depletion of supply
if continued over the planning and implementation horizon. Overdraft during a period of drought is not sufficient to
establish a chronic lowering of groundwater levels if extractions and recharge are managed as necessary to ensure that
reductions in groundwater levels or storage during a period of drought are offset by increases in groundwater levels or
storage during other periods.
(2) Significant and unreasonable reduction of groundwater storage.
(3) Significant and unreasonable seawater intrusion.
(4) Significant and unreasonable degraded water quality, including the migration of contaminant plumes that
impair water supplies.
(5) Significant and unreasonable land subsidence that substantially interferes with surface land uses.
(6) Surface water depletions that have significant and unreasonable adverse impacts on beneficial uses of the
surface water. [emphasis added]
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So What Exactly Will Happen?
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So What Exactly Will Happen?
• First Step: forming a Groundwater Sustainability Agency
(GSA) o By June 2017
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Medium and High Priority Groundwater Basins
California Department of Water Resources, 2015
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Existing Groundwater Management Plans: Inventory and Assessment (No or Limited Implementation)
California Department of Water Resources, 2015
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Who can be a GSA?
• Exempt: o Adjudicated basins (mostly in southern CA)
o Functional equivalent of a GSA, adjudicated basin
• Any local public agency o Cities
o Counties
o Water / irrigation districts
o Other public agencies with responsibility for: • water supply, • water management, or • land use
o NEW special acts districts (created by legislature, then CEQA, LAFCO, public
vote) => Paso Robles
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GSA Formation: Next Steps
• County: Groundwater Advisory Committee
• Stimulate dialogue / communication among local agencies, key
stakeholders (e.g., Farm Bureau)
• Engage broad range of interested parties
• Gather information about the basin / find out where the information is /
what is available
• Understand what Groundwater Sustainability Planning entails
• Look over the fence and see what’s happening elsewhere
• Transparency, transparency, transparency
• DEADLINE: June 30, 2017
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So What Exactly Will Happen?
• First Step: forming a Groundwater Sustainability Agency (GSA)
o By June 2017
• Second Step: developing a Groundwater Sustainability Plan
(GSP) o Within 5 years of GSA formation
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Key Elements of (Local/regional) California Groundwater Management Plans
• Context / Basin Description • Public and agency involvement • Basin management objectives • Monitoring • Accountability and review
Sustainable Groundwater Mgmt Act:
• Enforcement mandate • Empowerment for demand management (in addition to supply management) • Integration with surface water management • Integration with water quality management (source control, remediation,
containment) • Integration with landuse planning • Local control / enforcement, with state oversight / enforcement
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Groundwater Management Portfolio: Overview
• Data collection, monitoring, modeling, assessment
• Supply management
• Demand management
• Stakeholder engagement and management
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Monitoring and Assessment
Groundwater Sustainability Agencies have discretionary authority to: • Conduct studies • Register & monitor wells • Set well spacing requirements • Require extraction reporting • Regulate extractions • Implement capital projects • Assess fees to cover costs
Some exemptions for smaller private well owners
COURTESY - Marcus Trotta, Sonoma County Water Agency, 2015
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Supply Management: Seawater Intrusion Barriers
Ted Johnson, Water Replenishment District, 2007
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Seawater Intrusion
Orange County Water District, 2014
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Recycled Water Reuse - Pajaro Valley -
Photo: J.D. Hillard
Photo: Californian Salinas
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Irrigation with Recycled Water to Offset Groundwater Pumping
-125 -115 -105 -95 -85 -75 -65 -55 -45 -35 -25 -15 -5 5
15 25 35 45 55 65 75 85 95
1973 1978 1983 1988 1993 1998 2003 2008
Gro
undw
ater
Ele
vatio
n (fe
et m
sl)
Groundwater-Level Hydrograph Irrigation Well
Carneros Subarea
Q18-01 Sea Level
Recycled water used for irrigation in lieu of groundwater begins in early 90’s – Groundwater levels recover
Groundwater used for irrigation beginning in late 1980’s – Declining groundwater levels
Well Location
COURTESY - Marcus Trotta, Sonoma County Water Agency, 2015
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DWR, California Water Plan Update 2013
From: Ted Johnson, WRD 2013
Water Banking
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Local Recharge Basins/ Managed Aquifer Recharge
Photos : George Sakkestad, Mercury News, 2015
Santa Clara County
Coachella Valley (Colorado River water)
Phot
o: K
elly
M. G
row
, Dep
t Wat
er R
esou
rces
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Orange County: Groundwater Recharge Portfolio
Orange County Water District, 2014
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Seawater Intrusion
Orange County Water District, 2014
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Storage for Local Use: Santa Clara Valley Water District
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Sonoma County: Integrated Water Management Portfolio
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M E T R I C
T R I G G E R (s)
• Healthy
• Ill
• Critically ill
• Death
• Sustainable Groundwater
• Reversible undesirable impacts
• Major undesirable impacts
• Groundwater unusable/unavailable
T H R E S H O L D (s)
Health Maintenance • Nutrition • Exercise
• Relationships/social engagement • Monitoring & Assessment
Groundwater Management • Adaptive supply management
• Adaptive demand management • Stakeholder engagement • Monitoring & Assessment
Treatment Mode • Medication / therapy
• Additional monitoring & Doctor’s assessment
Extraordinary Measures • Supply enhancement / demand
reduction • Additional monitoring & assessment
Emergency Mode • Emergency Room
• Surgery
Emergency Mode • SGMA Chapter 11
• Probationary Status
Thomas Harter, Univ. of California, 2015
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Undesirable Result & Measurable Objective
Metric Possible Threshold
Chronic lowering of groundwater levels: maintain desired range
Water level at key locations
• No less than at any time AFTER earlier mitigation of undesirable results and PRIOR to 2015, OR
• No less than at any time prior to 2015, OR • No less than at any time prior to 2042, OR • Any fixed level arrived at through local/state political consensus
about “significant and unreasonable”, driven by economic cost: • Significant and unreasonable increase in pumping cost • Significant and unreasonable cost of new well installation / well
deepening
Reduction in groundwater storage: maintain desired range
Water level at key locations
Seawater intrusion: Stop or reverse water quality degradation
Water level at key locations or GW Salinity
Identify seawater intrusion threat via geologic and geochemical characterization & modeling => define safe water level thresholds for land subsidence. Threshold: • Higher than land subsidence-driven threshold or any of the
above, whichever is higher
Degraded water quality: no harm to SWRCB regs
Porter-Cologne/ anti-degradation
• set by current and future RWB regulations • Use modeling and assessment to link groundwater
management actions to RWB objectives
Land subsidence: stop or minimize subsidence
Water level at key locations
Identify subsidence threat via geologic characterization & modeling => define safe water level thresholds for land subsidence. Threshold: • Higher than land subsidence-driven threshold or any of the
above, whichever is higher
Depletion of interconnected surface water & adverse impacts on SW beneficial uses: minimum required streamflow
Water level at key locations (within 1 mile of stream?), surface critical low flows at key locations & times
Use modeling and assessment to link impact of groundwater management/use to beneficial uses of surface water => set thresholds • No less than at any time AFTER earlier mitigation of
undesirable results and PRIOR to 2015 => no further assessment needed
• Higher than surface water beneficial use-driven thresholds or any of the above, whichever is higher
Thomas Harter, Univ. of California, 2015
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Relationship between Measurable Objectives (MO) and Management Practices
M E T R I C
T H R E S H O L D (s)
Groundwater Sustainability Plan • Monitoring & Assessment • Stakeholder engagement
• Adaptive supply management • Adaptive demand management
Measurement / Monitoring
Management Impact
Uncertainty
Certainty
Thomas Harter, Univ. of California, 2015
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Relationship between Measurable Objectives (MO) and Management Practices
M E T R I C
T H R E S H O L D (s)
Groundwater Sustainability Plan • Monitoring & Assessment • Stakeholder engagement
• Adaptive supply management • Adaptive demand management
Measurement / Monitoring
Management Impact
Uncertainty
Certainty
Thomas Harter, Univ. of California, 2015
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Core Link between Local Planning Effort and State Oversight: Monitoring & Modeling/Assessment
GW STATUS
T H R E S H O L D (s)
Desirable
Undesirable
Thomas Harter, Univ. of California, 2015
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Well Near a Stream
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Well Near a Stream
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Well Near a Stream
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Well Near a Stream
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Well Near a Stream
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Well Near a Stream
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Well Near a Stream
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Well Near a Stream
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Well Near a Stream
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Well Near a Stream
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Well Near a Stream
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Well Near a Stream
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Well Near a Stream
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Well Near a Stream
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Groundwater Banking for Environmental Flows: Scott Valley, Siskiyou County
Foglia et al., WRR 2013
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Groundwater Management Tools for Regional Organization • Limiting Groundwater Use / Mandates:
o Limit extraction o Mandate reductions in current pumping o Limit construction of new wells o Requiring water conservation measures o Fees to support management/infrastructure/communication efforts
• Infrastructure measures: o Water efficiency projects o Wastewater treatment and recycling o Importing water o Conjunctive use of surface water and groundwater o Groundwater banking o Monitoring networks, data collection, and data analysis/modeling
• Communication and networking measures o Facilitate stakeholder participation o Education o Data analysis and reporting o Secure funding (grants, project applications,….) o Inform landuse decisions by county or cities
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Role of the State: Carrot
• Department of Water Resources has a key role:
o Technical assistance and funding (Prop 1: $100 million for SGMA)
o Regulation
• Groundwater basin boundary adjustments • Minimum guidelines for appropriate GSP
o Control
• Review and approve GSPs • Review implementation
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Role of the State: Carrot & Stick
• Department of Water Resources has a key role: o Technical assistance and funding (Prop 1: $100 million for SGMA)
o Regulation
• Groundwater basin boundary adjustments • Minimum guidelines for appropriate GSP
o Control
• Review and approve GSPs • Review implementation
• State Water Resources Control Board: o Enforcement where local control fails (after 2017)
• “pobabationary status” • Public hearing and 180 days to fix the problem
o After 180 days: SWRCB poses as interim GSA
• Groundwater extraction reporting mandatory • Possibly temporary control of groundwater extraction • Development and implementation of interim GSP
o When locals are ready: get authority back from state
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California Groundwater Rights: Background
• Correlative Rights Doctrine – safe yield of groundwater basin shared by overlying users o Katz v. Wilkinshaw, 1908
• California constitutional mandate for beneficial use (1928) • Special districts (20 different types, about 2,300 districts)
o Water districts, irrigation districts, private water companies, reclamation districts, water conservation districts, water replenishment districts, water storage districts, etc.
• County police power – controls groundwater exports o Baldwin vs. Tehama County, 1994
• The Courts: basin adjudication / “physical solution” – controls extraction o Many Southern California (sub)basins, mid 20th century o City of Barstow vs. Mojave Water Agency, 2000:
• Right of water users to negotiate physical “equitable, practical” solution, regardless of water rights
• Individual water rights holders cannot be forced into a voluntary agreement • State groundwater management:
o Voluntary local groundwater management plans: AB 3030 (1992) o Financial incentives for local groundwater management: SB 1938 (2002) o Sustainable Groundwater Management Act of 2014: mandatory & expanded local control
• => if local/regional control fails: State Water Resources Control Board • The Courts
o Streamlined adjudication (legislation in 2015: AB 1390 & SB 226)
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So What Exactly Will Happen?
• First Step: forming a Groundwater Sustainability Agency (GSA) o By June 2017
• Second Step: developing a Groundwater Sustainability Plan (GSP) o Within 5 years of GSA formation
• Third Step: implementing Groundwater Sustainability Plan o achieve sustainable management no later than 2042
o DWR may grant up to two 5-year extensions upon showing of
good cause and progress
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Legal Control of Water Resources
o Who owns how much water? • Surface water rights • Groundwater rights
o Water quality protection • Federal framework • California’s implementation of the federal framework
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The Babylonic Tower of Water Quality Regulations
Federal
State
County
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Federal Framework
• National Environmental Policy Act (NEPA, 1970)
• Clean Water Act (CWA, 1972)
• Marine Protection Research and Sanctuaries Act (MPRSA, 1972)
• Safe Drinking Water Act (SDWA, 1974)
• Federal Insecticide, Fungicide, and Rodenticide Act (FIFRA, 1972)
• Toxic Substances Control Act (TSCA, 1976)
• Resource Conservation and Recovery Act (RCRA, 1974)
• Comprehensive Environmental Response, Compensation, and Liability Act
(CERCLA, 1980) “Superfund Act”
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The Federal Framework …. …and the California Framework
Clean Water Act, 1972
* point source (NPDES)* nonpoint source regulation* BMP mandate* TMDL (total max. daily load)
State Water Resources Control Board&
Regional Water Res. Control Boards
[Porter-Cologne Water Quality Control Act]
Safe Drinking Water Act, 1974
* drinking water standards* wellhead protection program* source water assessment* source water protection* annual reporting to customers
Dep. Health Services
Federal Insecticide, Fungicide,and Rodenticide Act
(FIFRA, 1972)
* registration of pesticides* use of pesticides
Dep. Pesticide Regulations
Water WellStandards
Dep. Water Resources
CaliforniaEnvironmental QualityAct, CEQA;
Porter-Cologne Act
SWRCB / RWQCB / local
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Toxic Substances Control Act(TSCA, 1976)
* registration program for toxic substances (other than pesticides)
Dep. Of Toxic Substances Control
Resource Conservation andRecovery Act(RCRA, 1976)
*cradle to grave monitoring of hazardoussubstances* guidelines for managing nonhazardouswaste facilities* mandates standards for all handlers ofhazardous waste (generators,transporters, and treatment, storage, anddisposal facilities ("TSDFs"))
Dep. Toxic Substances Control
Superfund (CERCLA, 1980)
* cleanup and cost recovery programfor contaminated groundwater sites
Dep. Toxic Subst. Control & RegionalWater Res. Control Boards
The Federal Framework …. …and the California Framework
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NEPA/CEQA:EIR process for newpermitsfield / subfield scale
USDA:Comprehensive NutrientManagement Plans(guideline only)farm / field scale
EPA:Permit Nutrient Plans(under revised NPDESregulations)farm / field scale
CWA:Effluent limitation guidelines(under revised NPDESregulations)farm scale
12/2002 sunset of 1982 CEQA ageffluent waiver (Porter-Cologne)* waste dicharge requirements
(e.g. dairy WDR)* waiver of waste discharge (e.g. Irrigated Lands
Conditional Waiver)farm / field scale
FIFRA:pesticide usefarm / field scale
CWA: TMDLswatershed scale
Major Water Quality Regulations related to Farming
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Dubrovsky et al., USGS, 2010
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Nitrate: Impacted regions within the Central Valley red dots: wells above MCL for nitrate
CVSALTS, Tasks 7 and 8 – Salt and Nitrate Analysis for the Central Valley Floor Final Report, December 2013 Figure 7-14
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Nitrate: Funding and Regulatory Framework
Treatment / Alternative Supply
N Loading Reductions
Groundwater Remediation
Decade(s) later
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Regulating Water Pollution Sources
Surface Water Quality
Ground Water Quality
Point Sources of Pollution
Nonpoint Sources of Pollution
1970s - now Clean Water Act: NPDES Permits
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Regulating Water Pollution Sources
Surface Water Quality
Ground Water Quality
Point Sources of Pollution
Nonpoint Sources of Pollution
1970s - now Clean Water Act: NPDES Permits 1980s - now
Superfund, TSCA, RCRA, FIFRA
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Regulating Water Pollution Sources
Surface Water Quality
Ground Water Quality
Point Sources of Pollution
Nonpoint Sources of Pollution
1970s - now Clean Water Act: NPDES Permits
2000s - now Clean Water Act: TMDL
1980s - now Superfund, TSCA, RCRA, FIFRA
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Focus: Enforcement Monitoring
Example of Working with a Regulation: Speed Limit
Management Tool: Brakes
Feedback: Speedometer
Enforcement: Radar Controls
Responsible Party: Driver
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Why is Nonpoint Source Pollution Different from Point Source Pollution of Groundwater?
• Scale
o Millions of acres vs. 1-10 acres
• Intensity
o Within ~1 order magnitude above MCL vs. many orders of magnitude above
MCL
• Hydrologic Function
o Recharge vs. non-leaky
• Frequency
o Ongoing/seasonally repeated vs. incidental
• Heterogeneity & Adjacency
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Focus: Enforcement Monitoring
Applying Point Source Approach to Nonpoint Source:
Management Tool: $$$ “agronomic”
Feedback: missing
Enforcement: Monitoring Wells
Responsible Party: Landowner
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Focus: Enforcement Monitoring
Alternative Monitoring Approach to Nonpoint Source:
Management Tool: Water and Nutrient Management
Feedback: Nutrient/Water Monitoring
& Assessment
Enforcement: Annual Nitrogen Budget
+ Management Practice
Assessment +
Regional Trend Monitoring
Responsible Party: Landowner
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Regulating Water Pollution Sources
Surface Water Quality
Ground Water Quality
Point Sources of Pollution
Nonpoint Sources of Pollution
1970s - now Clean Water Act: NPDES Permits
1980s – now CA pesticide contamination prevention act 2010s - future CA Porter-Cologne: Dairy Order ILRP/Ag Orders CV-SALTS
2000s - now Clean Water Act: TMDL
1980s - now Superfund, TSCA, RCRA, FIFRA
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Future of Groundwater Management in Agricultural Regions: Opportunity for creative solutions to simultaneously address
• groundwater supply enhancement
• groundwater quality improvement
• drinking water protection
• economic viability of agriculture
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Online Resources
• http://groundwater.ucdavis.edu/sgma
• http://groundwater.ucdavis.edu/calendar
• http://www.water.ca.gov/groundwater/casgem/ (California DWR
groundwater level monitoring program
• http://www.water.ca.gov/waterconditions/drought/# (California DWR
drought information)
• http://www.waterboards.ca.gov/gama/geotracker_gama.shtml (California
groundwater quality information)
• http://groundwater.ucdavis.edu/links_California/ (miscellaneous
groundwater information sources)
• Contact Dr. Thomas Harter at [email protected]
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