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Home My WebLink AboutMINUTES - 02012000 - D3 9 TO: BOARD OF SUPERVISORS ..' -- .. Contra Costa County' FROM: 1999 TRANSPORTATION, WATER ,•� and INFRASTRUCTURE COMMITTEE •�,� - Supervisor Donna Gerber, Chair Supervisor Mark DeSaulnier DATE: February 1, 2000 SUBJECT: REPORT ON WATER DISTRICT DROUGHT WATER SUPPLY PLANNING ACTIVITIES SPECIFIC REQUEST(S) OR RECOMMENDATION(S) & BACKGROUND & JUSTIFICATION RECOMMENDATIONS Accept report by Contra Costa Water District (CCWD) and the East Bay Municipal Utility District on drought water supply planning activities. BACKGROUND/REASONS FOR RECOMMENDATIONS On October 18, 1999 the Transportation, Water and Infrastructure Committee heard presentations from representatives of the Contra Costa Water District and the East Bay Municipal Utility District on drought water supply planning and related activities. At that time, the TWI Committee felt that the entire Board of Supervisors would have interest in the subject matter, and requested the two water districts to present drought information to the entire Board of Supervisors. CONTINUED ON ATTACHMENT: YES SIGNATURE: RECOMMENDATION OF COUNTY ADMINISTRATOR— RECOMMENDATION OF BOARD COMMITTEE APPROVE OTHER LSIGNATURE(S): ervisor 466Gerber, Chair ___Supervisor Mark DeSaulnier ACTION OF BOARD ON FAbrgm 1, 2000 APPROVED AS RECOMMENDED xx OTHER SEE THE ATTACHED ADDENDUM FOR ACTION. VOTE OF SUPERVISORS I HEREBY CERTIFY THAT THIS IS A xx UNANIMOUS (ABSENT - .- - - - - TRUE AND CORRECT COPY OF AN AYES: NOES: ACTION TAKEN AND ENTERED ON THE ABSENT: ABSTAIN: MINUTES OF THE BOARD OF SUPERVISORS ON THE DATE SHOWN. Contact: Roberta Goulart, CDD (335-1226) ATTESTED Fghrualy 1 , 2000 Orig: Community Development Department PHIL BATCHELOR, CLERK OF cc: THE BOARD OF SUPERVISORS AND CO , TY ADMIN STRATOR B DEPUTY ADDENDUM TO ITEM D. 3 February 1, 2000 Agenda On this date,the Board of Supervisor heard the reports on water district drought water supply planning activities from representatives from East Bay Municipal Utility District (EBMUD) and Contra Costa Water District(CCWD). Roberta Goulart, Community Development Department was present. Gary Brueaux, the Finance Director of East Bay Municipal Utility District presented his report and master plan for water conservation. The Board discussed the issues. Public comment was opened, and the following person presented testimony: Charles Brydon, Water Allocation Through Equitable Rates, (W.A.T.E.R.), 10 Sheri Court, Danville. Al Donner,Public Affairs Director of the Contra Costa Water District presented his report on drought water supply plans. Following further discussion by the Board, the following person presented testimony: Bill Highfield, W.A.T.E.R.,1909 Skycrest Drive, #9, Walnut Creek. 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A 11 QMI "! y r fl' z rtr s 1 (A CIE (D co MOM rMI- CIE M4 YU SEEM CIE Ems � �ti s; U tD (D zs SEEM _ rMIL t C7 CLT i t �MAI E V,�y, n r .�■ rT rT CD � ® 0 rt r� 1 y r MEN onME■ r }kF MEN 0 20, rt CLMEN .T "^UFS- MW Emu "' FMIL0 AL m , EmsS _" iF y M M qcr tr ,�4 0 CL Uj 3 0 ' to fElL (D n CIE 2) � CI (a MIL O j 5 (D C) f ' MI 0�C CD 00).�. rIL raw . m a a 4 `GD . �� E ME MS k CD Meg rnmok M §klft z ?r X , « | . . | | i■| , i \ \ \ ® 2. \ - . . � � . . - s ■ \ . - : z . .. _ East Say Municipal Utility District \ \� \ d\ < Table of OverviewContents Residential Programs Irrigation Programs ICI • s ToiletReplacement Program Device • • Education and Looking Forward fY F�s�c�1 Ye�r� `� ire �2�eviw �'Y9t)w�r�xr}e.rr ul`�r•u��th,eh�u�le,s3rr+� i�;rri�crrrrt hr•u�res�tifr•i%13N1 l:�i)'�Writer Cunsc:rr-.�tiun l�ir�i*rirrr�, lii�;hli;;ltts rel"the�er�r incltrcle: � �rehictecl c�stirxl.►terl w.rtcr�°irt�s of l.� ralil(iuN�t;�rllurrs Rr cl.rr ■ urr trrr�;et to meet 202IJ�w,�ter:;.rvints ;ural ref'�� Ik'l� U ■ rrtet rrr e�r;eecterl fle�E►•1�' ail .�ctivity��u�rls * �,�[>�trhlecl the rlrNtl�?el'ul�r'e'�iIIG'11ti:ll irrlCllt!C fMti irl �'��'� • clutrhlcd tlae ntrnrherrafeluthc*�w�rr�herre�i;rtt�s.r�;in hY'�)�3 trilrlcil thy:rurrirl�et•ut'irri4s►tiat�auclits.rs irr C'1`'�)�3 iaitirrtecl ni:�u rw:rtc�•I�ucl;;r't Irr�►;►r.►m inrl�lerrrerrted ne�rlu��_incr►n�c r�rrulti-harnil�- �1[,�+'I'tlir-cefi in4tall�rtirr;n l�r•r► ;r•arrr ■ attairtc�l 1'rrll eura�hli,rrrce with the st�rt+t�4i�le NIO!1 i:icr•easec!l�rrticil)r�ttit�n irr eurr�cr-�.rtiorr-r•clater!ec►r�u2riticc:ti � irrcrert��.�l ins�rl�°e�rier�t irr er►n�rr�rrrrit��c��+�Rnt�,��-urk�aat�l��, cr►nfrerece�,�resertlrrtic>t1.4 1:1�1TE.7 C)Irrr�;�lura;Iri:�;tur} ��f eurrrTaritttrcrrt to a��rter c'urr�er��rrliur�.�r�tl errrrer�tl� �;ula��►rts unc:�►I'tlae l.rr�;cst�.ur�se�-vrrtiu�r hru�;r�rrars irr�'rrlili�rrai�r< 7"lair.rr�rrrrrtl rela��r•t tin the��';�rtcr•("t�riser°�r.xtitrzr {�IE��ter I'fxtrr l�ru�icle� rrr�►4er-�ie�� Et#'cu�•rcrtt /)i�tr-ict of>rt�er�;rtic►cr pr-<r�;t°{rrrrr;.trrtl<r tii�;iurr fc�r t[rc l�rrtrrre. Overview EBMUD has a long history of commitment to water conservation and currently supports one of the largest conservation programs in California. This annual report on the Water Conservation Master Plan provides an overview of achievements and challenges in FY99, a brief description of conservation programs, and a statement of the Water Conservation Division's vision for the future. WATER CONSERVATION MASTER PLAN In October 1993 the EBMUD Board of Directors approved the updated Water Supply Management Program (WSMP), which set a conservation goal of 33 million gallons a day (MGD) in the year 2020. The Board directed staff to prepare a Water Conservation Master Plan(WCMP)and to report annually on the status of the conservation program. The WCMP was designed to meet 2020 water savings goals through a cost-effective conservation program, while also maintaining the District's long-standing emphasis on voluntary conservation by customers. The programs defined in the WCMP were projected to save 16 MGD in the year 2020 (an additional 17 MGD was expected to result from"natural" replacement of toilets and irrigation equipment). In FY98 the savings goal The WCMP water was increased by 1 MGD to offset demand from anticipated annexations to savings goal for the District's service area. The 2020 conservation savings goal is now 34 conservation in 2020 MGD, 17 of which is expected to result from conservation programs. is now 34 MGD The WCMP includes four basic conservation strategies: ■ incentives (audits,rebates, device distribution); ■ education (publications, presentations, community events, displays); ■ regulation (new-service plan review, enforcement of the District's water waste prohibition); and ■ support (conservation-related committee work, research, database development, program evaluation). At the time of adoption of the WCMP in May 1994,the Board approved a less costly scaled-down"pilot"program for FY95, recognizing that activity levels and expenditures would need to be ramped up in future years. 1 ♦9 Overview In FY98 staff completed an evaluation of the three pilot years of the WCMP and determined that the conservation program was not on target to achieve 2020 water savings goals. Five alternative programs were presented to the Board, which approved a FY99 program that increased the conservation budget by 86 percent and staffing by 46 percent. This expanded program was designed to meet 2020 water savings goals. GOALS AND ACCOMPLISHMENTS FY99 conservation goals and accomplishments for audit and rebate programs are summarized in the table below. All audit and rebate programs exceeded or came close to meeting their FY99 goals and/or budgets except for the ICI and residential landscape rebate programs, which had projects in planning or underway at the end of the fiscal year. An industrial rebate of over$120,000, Nearly all programs Program Goalsand Accomplishments exceeded or came close to meetingtheir }.:::::::::..:..:.:.::::::::::::.::..:.::.:.:::..:... - •.:'•+-.>Y::{.:.:':.:.:::::.;..Y}.i,..:...::...:}::.::}i;;i...:}Y::<;;.:i;{.iiiiii;:,;:.i:::.}:;::.;:;:;::;>"".;:.::::'::" FY99 goals :•:+ •r Y'>••:y';}::••}i}i`}•i'ii.'{;;i:;:;:5::.ii::%: : ':'..?:1:.:::.::.i: ..n:n.:.:. ..:........:.: ........... ....ry .. v,':}:•: y, •'iTF \ .:: :{{. ...,... •::nom.. :.}:v:::iY:.. v•. r}fiF:;r. ...}.;.:{•::is r{:}'•:•::::...:.i.{:.:::i'::::.::.:'.::::.':::.:::::::v. :::............... yy {.i'''f,•Y•i'•ii•i:{fii}}}}'ti+.fi}:moi:{�"v;.}',};:�::iii:�ii:iiiiii:ii::�ii.i:iii is�:ii}iii"}:�:iii ii:?ii:i}:~:::::.::v�•:..::v�:r..:.�.:�:.:.�:::::.:.:.:.:v�:r:�.�::.�.:�� -.:.�.-.��-.:-.�.:J�.:.�.ir�:::::::::::.�:::::i:'w:::: h}:i�::::+:• +. ..:fi;: .;p� � ......: yr w:v:4'•}:?:{{v;;..;:.:..::::::..:........:..�..:....:,....:::::....... ..::::: ..•:;J ...:.... ....:;::?6i;ti}:{::::;iii:;:{iii fi �+. :....:.;{:•}}i}:;p:{.}:{4}i:::..i::•..+:;::::.r..... :{{j ..:;:..... ,r. ..... .:.... ....... v::::::is ........................ �:v4 •$R}W::•:Y.Y.y:.}v::•i:{t:i:':}':•}}}i'{•}:O::is i::v:•iii::ii}:vi:i::v:::::::;�?::ih::.:.:.•i:::::::''.::.•i.::�:�:�::i:ii::�::.�::�:�:.:::.::::n�.v::.vvv::.�::::.:::;�:`..:�::::•�:-�•:��..:.::.�:::::::::::::::::.:.�::::.:,.$.. •:•::h •:vv•.�::::::::v::::::::v.�:::::::::w:::.�.:�::::w :::::.:�.�:::::v:::::;:•::nom::.�::::::::v:....�:::::•:n�::::::•::n::v.:�v::::::::::::.:::•.�:::::{.. �t .;.T•.4:{�:•>ii:�:�ii•::a:{4:-::{::i:.iii};:•}ii::•: .TR:'.:v r :?: :jii:viJ::?:i?:iti:i is i}i:!i:'vii%•::}i:i:i;:±;:;:;:j : twi n A 15$audits, 372 in $i �( jiCi iswJaitQ 000in,reba�ta� { ' Ic _ ..... Industrial Audits 41 audits 43 audits 105 Commercial Audits 158 audits 158 audits 101 Institutional Audits 82 audits 90 audits 110 iCl Rebates $150,000 in rebates.. $12,000 in rebates 8 Dovk" 18,000 devices 23,818 devices 148 a The 12-month direct installation contract calls for 9,000 ULFTs to be installed between January 1, 1999, and February 28, 2000, with 3,600 to be installed by June 30, 1999. b. No goals are set for Customer Assistance Program(CAP)toilet replacements. 2 Ovetview the largest single rebate ever to be awarded by the District, was in progress in the last few weeks of FY99. More than 100 residential landscape rebate applications also were approved, but projects were not completed at that time. ESTIMATED WATER SAVINGS Estimated water savings are shown in the table below. Water savings of 1.2 MGD in FY99 will keep the program on track to reach the WSMP 2020 savings goal. For most programs, the water savings estimate currently is obtained by multiplying (a) annual activity levels by (b) average consumption of program participants over the previous four years by (c) a percent savings rate. The savings rate is derived by comparing changes in consumption of program participants and non-participants before and after the date of the audit or rebate. FY99 Estimated Water Savincis bv Proaram (MGD) -------- Non-Depreciated Savings FY95-99 Not FY99 FY95-98 Tota I Depreciation }/ Al :?:{•. ''sf}}fr:.:O}}:•}:4:J:.}:}}:?:.}}}:::v:ii?}}::}i}:'i}}:{.;}}}i::?:;isi}::•:�:i}}ii:!::}:?l::::i::h:i::.;:4}::.i::i::isC+vi;�}i:}:i? ::::::} C{::::-;+:i:{C:J}}::::;;}:��::+:iiiii'iilii:'i::;:y^:v ify:ii;•.i:: }....n.. On, $'f!#!#1 Audits 0.21 0.211 Gs47 0.14 0.33 lrrigatron R 0,08 0.18: 0,0 IV Industrial Audits 0.22 0.46 0.88 0.23 0.45 Commercial Audits 0.05 0.29 0.34 0.14 0.20 Institutional Audits 0.07 0.37 0.44 0.17 0.27 ICI Rebates 0.01 0.15 0.16 0.00 0.16 aevkes ' 0.04 0.04 0':00 0.04 IYfu 1pls t4tsessrras - 0.02 0.02 001 0.01 FY99 water Subtotal . 2.74 3.98 0.81 savings are Natural RepGacoment 0.88 2.35 3.03 0.00 3.{13 estimated at Total 1.92 5.09 7.01 ' ' 1.25 MGD a Water savings from devices were tracked separately in FY99 but not in FY95-98. b Customers who participated in more than one conservation program were tracked separately in FY95-98 but not in FY99. 3 OvetyieW Because program participants and non-participants are not known to be comparable on a range of characteristics that may affect consumption (e.g., climate, yard size, household size, age of water-using fixtures), the - differences in water use obtained by this method cannot be assumed to result solely from the EBMUD audit or rebate. However, such analyses provide a rough indication of program impact, and it is the same method used in prior years to estimate water savings. A more accurate methodology for calculating water savings is under development. Water savings for toilet replacement currently are estimated using industry standards instead of a savings rate derived from changes in consumption. Per-fixture savings are assumed to be 21.2 gallons per day for single-family residential customers and 36.5 gallons per day for other customer categories. Water savings for industrial, commercial, and institutional rebates currently are estimated using site-specific information on existing water use and reductions in use expected to be achieved by installation of equipment or fixtures that improve water use efficiency. For industrial processes and equipment,these usually are based on engineering estimates. FY99 BUDGET AND STAFFING Funding for Water The FY99 budget for the Water Conservation Division was Conservation approximately $1.8 million for operations and $3.6 million for capital programs increased (rebate programs), for a total budget of$5.4 million. This represents an 86°1 in FY99 86 percent increase over the $2.9 million budget for FY98. Staffing was increased from thirteen to nineteen. These increases were required to Budget Comparison support the increased WCMP FY98-FY99 performance levels mandated by the EBMUD Board for FY99. - I Expenditures for FY99 totaled $3.9 d ------------------ million, -------------- --million, with the largest category -------- ($1.5 million, or 39 percent of total -------- expenditures) being toilet replacement. These costs include j staff salaries administrative J overhead, marketing, contracts for FY98 FY99 `--*-----_.. Operating FY98 FY99 FY98 FY99 Capital Total 4 Overview outside services, and rebates to customers. All other rebate programs FY99 Program Expenditures combined cost$1.1 million, or 27 percent of total expenditures. Audit ($3.9 million) programs accounted for$0.9 million, or 24 percent, and education and outreach programs cost $0.4 million, or 10 percent of total expenditures. Expenditures lagged behind budget in part because of the time required to expand programs and hire and train new staff. Also,two ;n, s positions were not filled in FY99, and the contract for direct t installation of ultra-low-flow toilets in low-income multi-family housing began mid-year in FY99. The FY99 per capita budget for conservation was higher for EBMUD than for other large water retailers in the state. There seems to be a general trend toward larger conservation budgets from FY98 to FY99. Per Capita Conservationrr - FY98 FY99 AGENCY ($ PER CAPITA) ($ PER CAPITA) Fit 147 �.c eia CSp #ennt of tlhr end P 2.7 t 3.#3i EBMU©'s$4.47 per n€ra tr psttict 2, , 2 capita budget for eur#yt trit $Z 2."13 conservation is higher than that of other large of a water retailers in the €ty 5an i�n�> t.29 1.85 state It is important to note that the $4.47 EBMUD per capita figure represents only the Water Conservation Division budget. If District-wide conservation-related budgets, activities, and expenditures (e.g., Public Information Office, Call Center, Field Services, Leak Detection)were included,the per capita figure would be considerably higher. Conservation-related expenditures of the Public Information Office (PIO), for example, were approximately $380,000 in FY99. PIO created and continues to operate the District's award-winning school education program and works closely with Water Conservation to design and produce brochures, posters, billboards, print ads, and theater ads with a conservation theme. 5 3 Overview MARKET PENETRATION STUDY EBMUD will meet the A 1998 District-funded study of market penetration of water-saving fixtures BMP-required market and devices found that 64 to 69 percent of residential dwellings in the - penetration rate for District's service area already had been retrofitted with water-efficient showerheads well ahead of schedule showerheads and aerators. For toilets the market penetration rate was 34 percent, up from 10 percent in 1994 when the Water Conservation Baseline Study was conducted. It is anticipated that the District will meet the 75 percent showerhead penetration rate required by the BMPs within the next few years, well within the ten-year timeframe specified in the MOU. Another market penetration study is planned for FY01. Such studies will be conducted at two-year intervals to provide updated information on the success of conservation measures and the potential for additional water savings in these areas. Depending on the results of future market penetration studies, distribution of free water-saving devices will be scaled back or eliminated at some point. When this occurs, other programs may need to be initiated or expanded to maintain planned rates of conservation. It is likely that clotheswasher rebates will take on increasing importance, especially as high-efficiency models become more available and decrease in price. Water Conservation staff`also will be evaluating the savings potential of other appliances and equipment, such as paint-of-use water heaters, pool/spa covers, and irrigation controllers remotely scheduled in response to weather. EVALUATING COST-EFFECTIVENESS In FY99 the Water Conservation Division took two significant steps to enhance the ability to measure cost-effectiveness of conservation programs: implementation of a more detailed cost-tracking system and initiation of a Water Savings Measurement Work Group. Cast tracking In FY99 activity numbers or project IDs were created for a much wider array of programs and tasks, and staff began tracking costs in greater detail. This system of job cost tracking, initiated in January 1999, provides a more accurate picture of program costs than the estimates developed in prior years. Over time,project cost accounting will become increasingly reliable, and one essential component of cost-effectiveness analysis will be in place. - 6 :YA Overview Water savings measurement The second step toward measuring cost-effectiveness was the creation of an interdepartmental Water Savings Measurement Work Group to determine how savings can be measured more accurately. The group was formed to reach District-wide consensus on a methodology to assess, verify, and report the impacts of individual water conservation programs in support of the WSMP. Water savings from utility conservation programs typically are estimated mechanically using program activity levels, average } consumption of affected customer groups, and ., industry standards or assumptions about savings rates. The mechanical approach gives a rough indication of water savings that can be expected from conservation efforts, but it is not sufficient for determining cost-effectiveness of individual programs or for reliably projecting program impacts on water supply. Staff from several Since establishment of a new Water Conservation database in FY98, efforts District departments have been made to estimate water savings by comparing pre- and post- meet regularly to intervention consumption of program participants and non-participants. discuss water savings However, this approach does not reliably account for the many factors other estimates than program participation that may influence water use (e.g., climate, size and type of landscape, number of occupants, water use behaviors, meter accuracy). A more reliable measure of savings attributable to conservation programs can be obtained by comparing program participants with matched samples of non-participants. Inferences can be drawn about what might have occurred in the absence of conservation programs only if"experimental"and "control" groups are comparable on a variety of characteristics. Several other important factors have not been fully accounted for in WCMP water savings estimates to date, including savings depreciation and the effects of"natural"replacement of water-using fixtures and equipment. Water savings are believed to depreciate over time as a result of limited hardware life and the temporary nature of behavior change. Fixtures and equipment break down or become less efficient, and some people revert to earlier pat- terns of water use. 7 Overview Throughout the water industry, there is a lack of information and research regarding the durability or persistence of water savings from conservation measures. The California Urban Water Conservation Council (CUWCC) has acknowledged that depreciation of savings over time is an important factor in evaluating cost-effectiveness of conservation programs, but few studies have yet been conducted to document depreciation rates. Because actual rates of depreciation are unknown, a second set of assumptions must be applied. Assumptions used in this report are based on industry stan- dards pertaining to hardware life and/or professional judgment regarding the persistence of behavioral changes resulting from conservation programs. The use of assumptions limits the accuracy of projections, but accounting for depreciation yields a more realistic estimate of long-term program impacts and - actual savings rates. High rates of natural There is another phenomenon that will need to be analyzed before cost- replacement promote effectiveness of conservation programs can be evaluated. This relates to the water savings but fact that at some point old fixtures and equipment will be replaced with more may limit the cost- efficient hardware, even if the District does not provide an incentive to replace effectiveness of conservation programs them. This phenomenon, known as "natural replacement," reduces the long- term savings that can be attributed to conservation programs. It does not _ reduce the amount of water saved or the contribution of that savings to future supply, but it impacts the cost-effectiveness of an agency's investment in conservation programs. ISSUES AND CHALLENGES Water Conservation faces a number of challenges, now and in the years ahead. Several of these are briefly discussed below. Promoting lasting change in water use In rainy years it is more During times of drought, EBMUD customers have demonstrated a willingness difficult to convince and ability to dramatically reduce water use. When the drought is over, many customers that long- people revert to earlier patterns of water use. This results in the phenomenon - term water supply is known as "drought rebound." Some conservation continues to occur as a limited result of retrofits of water-using fixtures and equipment. However, attitudes and behaviors are important factors in water use, and, especially in rainy years, it is difficult to communicate the fact that long-term water supply is limited. Overview The challenge is to effect a"sea change" in public attitudes toward the value of water and the importance of using it efficiently even when there is no drought. Accomplishing this change will require a comprehensive and ongoing educational effort that emphasizes the limited supply of potable water and the need to make adjustments now to minimize the damaging effects of shortages in the future. Responding creatively to hardening of demand In the early and mid-1980s many EBMUD customers had high-water-using fixtures, and it was relatively easy to reduce water use through retrofits of showerheads, faucet aerators, and toilets. Fifteen years later,this is no longer true. In part because of the increased efficiency of water-using fixtures on the market, many customers have already reduced interior water use to the point where futher reductions inside the home are more costly or more difficult to obtain. This "hardening of demand"can be expected to increase over time. The challenge is to convince customers to look further for additional ways to Many homes already conserve. In the residential sector the emphasis may shift toward high- have water-efficient efficiency clotheswashers and point-of-use water heaters, as well as retrofits indoor fixtures, so of landscapes and irrigation systems. In commercial and industrial sectors landscaping becomes a primary area for research and technological improvements in water-using equipment and further conservation processes will be required. In all sectors, customers will need to become more informed about landscapes and irrigation practices appropriate for a summer-dry climate. Targeting high users and providing incentives, not rewards The most cost-effective conservation programs are those that reach customers with higher-than-average consumption who, in the absence of the program's incentives or services, would not make the changes necessary to reduce water use. From a purely financial perspective, it is much less cost-effective to offer rebates to customers who have already made these changes or would do so without an incentive. Complicating this seemingly common-sense approach is the fact that it can be Targeting incentive perceived as penalizing customers who have already taken the initiative to programs to high-use conserve. In promoting conservation, therefore, the District must attempt to customers may be balance two sometimes conflicting goals: to extend benefits equally to all perceived as unfair to those who are already customers and to ensure that ratepayer dollars are expended in the most cost- conserving effective manner. 9 ,3 Overview Unlike conservation rate structures, which directly benefit low-use customers through lower rates, financial incentives are not designed as rewards for past behavior. They also are not intended for customers who do not need an incentive to make the desired change. The challenge is to identify and offer incentives to those high-use customers who are least likely to conserve without an incentive, while at the same time providing full service and benefits to all customers, regardless of their water use. Estimating water savings The WCMP set forth a plan for long-term monitoring, evaluation, and continuous improvement of conservation programs to maximize cost- effectiveness (WCMP, Chapter 6). Two important steps have been taken toward this goal, including baseline studies to determine market penetration of water-saving fixtures and development of a Water Conservation database tied to customer consumption histories. Changes in Challenges presented by the effort to measure water savings attributable to consumption are easy individual conservation programs have yet to be satisfactorily addressed to document, but it is within the water industry. Changes in consumption (water"savings") are difficult to isolate the simple to observe and document, but it is difficult to isolate the causes of causes of change observed change. Some of the questions that must be answered before conservation programs can be evaluated are: How much of any observed savings was generated by the program and how much would have occurred anyway (natural replacement)? How long will reductions in consumption persist (savings depreciation)? If a program results in water savings now, how long can it be expected to do so (market saturation)? Working within a statewide conservation framework In 1993 the District signed the Memorandum of Understanding (MOU) Regarding Urban Water Conservation in California. The MOU sets forth Best Management Practices(BMPs) covering a variety of activities designed to promote water conservation. Implementation of the BMPs is voluntary. Two BMPs are not The programs included in the 1994 WCMP were designed to achieve cost-effective for the performance-based 2020 water savings goals and to meet BMP activity-based District:residential targets wherever these were cost-effective for the District. Two program audits and toilet elements were found to be not cost-effective at the activity levels specified in replacement the BMPs: single-family residential audits (BMP 1) and toilet replacement 10 Z � v Overview (BMP 14). In subsequent years the activity-based targets for both programs were increased, but not to the levels specified in the BMPs. The current status of District conservation programs is shown in the table below. Although residential audit and toilet replacement programs currently do not meet specified BMP activity levels, the District is in full compliance with the MOU. An agency is considered in compliance if BMPs not fully implemented are demonstrated to be not cost-effective for the agency (see Memorandum of Understanding, Section 4.5, Exemptions) or if an implemented alternative is judged to be equally effective. EBMUD is in District Conservation ai BMP Compliance full compliance DOESTHE MEET with the MOU DISTRICT BMP HAVE A ACTIVITY BEST MANAGEMENT `i + fi1fE� Y Ali. F Plume 8.00'0 - yr`6s �y#� :3 V AM Z'1 �k'Er :� n and�gj/P�F� -� f �v�! 4 ttsn i fintity R els> s Y." $ Lam.L Ca Pres )Ittt es Y+Bs B ft-Ei�ica�eft hi Machl . 'Y+aa 7 F"t ►f in€ 0--on f�'mgmffi yep ehE #uv frxarns Yap Yep C.aM_�t3rtt;�af'�`f�fu of #� tf sn�(C[l) Y. 9;Q 1ncy nta b r 9 CGrr Y"s 1.3r aWrtte es 14 R khoftl ULF €1.WW*t nt Pr09MM Yes Vis' a EBMUD has applied for an exemption from this BMP because BMP activity levels are not cost-effective for the District. EBMUD is in full compliance with the terms of the MOU and has implemented a number of programs"as effective as"BMPs, including water recycling. b This BMP applies only to wholesalers. The state-federal partnership known as CALFED, and the comprehensive and inclusive planning process that has taken place within it, has raised awareness of the importance of conservation in water supply management. Conservation has increased in visibility at the State capitol and throughout the water industry. It is no longer an activity that is taken seriously only in times of drought. "I 1 Overview With incorporation of the BMPs into the CALFED Water Use Efficiency Program(WUEP), BMP implementation may be moving from a voluntary expectation of MOU signatories toward a requirement for all water agencies seeking access to additional CALFED benefits. Some change in direction is possible, but the effects, if any, are unknown at this time. CALFED is currently considering a process whereby agencies could be "certified"as - complying with the BMPs, and certified agencies could qualify for such benefits as low-cost loans and grants. Water Conservation staff are taking a much more active role in all possible venues for CUWCC and CALFED activities. District staff now chair orartici ate in the following committees and P p g subcommittees: ■ CALFED Water Use Efficiency Program r Strategic Plan ■ Measurement and Evaluation ■ Reporting and Implementation M Commercial, Industrial, and Institutional Programs EBMUD hosted the ■ Public Relations and Communications CUWCC Steering ■ Landscape BMP Committee meeting in ■ Project Advisory Committee for Database Project March 1999 0 Rate Structure ■ Residential and ULFT Programs Balancing Activity and Performance Based Goals The District has an integrated resource plan that includes aggressive water conservation and reclamation programs. Performance-based targets are expressed as a reduction in demand for water in the year 2020. Several of the BMPs, on the other hand, set targets defined solely in terms of activity levels. Higher activity levels Activity-based targets can serve as a useful guide for day-today management actually may result in of conservation programs. However, they should not be allowed to obscure lower water savings the performance-based goal of water savings. Equivalent reductions in demand can be achieved with different levels of activity. For example, 500 audits of single-family homes with large, irrigated landscapes could produce water savings equivalent to several times as many audits of homes on small city lots. Experience has shown that if activity-based targets are given primary emphasis, water savings actually may decrease. 12 ',Residential Programs The Water Conservation Division offers the following services and programs for residential customers in the District's service area. WATER AUDITS The Residential Audit Program offers free on-site surveys of indoor and outdoor water p�: � , . '; A R in.�Wf ra fi use to all single-family and multi-family G smrlOas::0., residential customers in the EBMUD service area. The indoor survey includes a test of showerhead and faucet flow rates, an estimate of toilet flush volumes, and a test for leaks. Free showerheads and faucet aerators are offered if existing fixtures are not low-flow models. The outdoor survey includes a review of the irrigation system, including controller schedules. Customers also are provided with a set of recommendations for improving water use efficiency and a packet of educational materials that includes information on toilet, clotheswasher, and landscape rebate programs. Residential Audit Program activity in FY99 was spread throughout the Cumulative water EBMUD water service area,but the largest concentration(71%)of audits was use is higher west of west of the Oakland hills. This closely reflects the distribution of customer the Oakland hills, but per-account use accounts west(78%) and east(22%) of the hills. However, while there are is higher east of the many more accounts west of the hills, and more water use overall, per-account hills water use is more than twice as high east than west of the hills. Multi-family residential accounts show a similar pattern. Number of Audits Number of Accounts Avg. Baily Consumption Single-Family Single-Family per Single-Family Account FY99 FY99 FY99(GPD) 1,440 300,000 5001 1,2+41 Audits 1, 123 200 243,unt 500 dT8l3PD 250,000 Accounts t,coa 200.000- 480 800 300- i w000 00-150,000 600 609 Audits 226 GPD 200 1011,000 97,412 400 Accounts 100 200 50,000 j 0 East of Hills Vest of Hills East of Hills West of Hills East of HMIs West of Hills 13 Residential Programs Marketing in FY00 To maximize water savings from single-family residential audits, marketing in will target nigh-use FY00 will target customers whose consumption histories show not only high customers with large water use but large differences between winter-time and summer-time use. differences between winter-and summer- These customers typically have large landscapes with significant summer-time time consumption irrigation. Water Conservation staff have found that many people apply two to three times as much water as is necessary to replace that transpired from plants and evaporated from the soil. Targeting residential customers with high water use during summer months can produce greater than average water savings because landscape irrigation is often the most discretionary residential water use. Conservation in these sectors also helps to reduce peak demand in summer months, which can help to contain District costs for pumping, electricity, and new facilities. However, it is difficult to generate customer interest in conservation audits when there is no drought, especially during the rainy season. Special incentives have been needed to increase the number of single-family audits beyond about 500 per year. To stimulate interest in A bill insert in the fall of 1998 offered a free copy of EBMUD's Water- a home water audit, Conserving Plants and Landscapes for the Bay Area to all residential residential customers customers requesting an audit prior to December 31. When stock ran out, staff were offiered a free purchased 1,000 copies of The Low-Water Flower Gardener, and the offer was plant beak in FY99 extended to June 30. - ----� The plant book incentive was highly successful in increasing the number of WAY*RICO*0 aft YIN.0 i�,,,,,�,i- audits completed, but it did not have the desired effect on water savings. - --- FOR TH* RAY ARIA While single-family audit numbers almost doubled over the previous year, average pre-audit consumption of households participating in the audit program decreased from 450 gallons per day for FY98 participants to 298 gallons per day for FY99 participants. i __ _ "------ This effect is not unexpected from efforts to increase activity levels without targeting the highest water users. - Many people who requested an audit in order to receive the free plant book had low consumption or were already using water efficiently. 14 Residential Programs LANDSCAPE REBATES ..................................................... ...................................................... ....................................................... The Residential Landscape Rebate Program was implemented my ,# p February 1998 to promote outdoor water use efficiency in the P+ tt�# �: i single-family residential sector. Owners of single-family homes laxtn . can obtain up to $1,000 for retrofitting landscapes and irrigation systems in ways that Water Conservation staff determine will improve irrigation efficiency or reduce irrigated area. The program covers a portion of the cost of approved irrigation equipment and landscape materials. Labor costs are not rebated. Customers must obtain an audit of internal and external water use prior to participating in the landscape rebate program. ■ Irrigation equipment is rebated at 50 percent of equipment costs, up to a maximum of$500. ■ Landscape materials are rebated up to a$500 maximum. Plants, mulch, rocks, and gravel are rebated at 25 percent of cost. Decks and patios are rebated at a maximum rate of$1 per square foot. Several changes were made to the program in FY99 to encourage the most water-efficient landscape retrofits,to reduce administrative costs, to improve documentation, and to add fiscal controls. The rebate for patios and decks was increased; all rebates except handscape are now calculated on a percent- age of cost instead of landscape area; and customers are given a 90-day window in which to complete their projects. These changes are designed to encourage installation of more permanent unirrigated landscape elements,to relate the rebate amount directly to costs incurred, and to focus customers' attention on project completion. x The Residential Landscape Rebate Program has been popular with customers since its inception. Customers throughout the District have received rebates ' { _ gg for small as well as large landscape projects. Over 100 rebates have been issued, most of them in FY99. The average rebate has remained at ' `y =' M ' approximately $500. Although landscape irrigation is known to be a large component of residential EBMUD's Residential water use, and residential use typically is a dominant component of overall Landscape Rebate demand, few water utilities offer rebates for landscape conversion. The Program has been EBMUD Residential Landscape Rebate Program has been recognized by the recognized by the USBR with$20,000 grants in U.S. Bureau of Reclamation, which has provided $20,000 grants to support it both FY98 and FY99 in both FY98 and FY99. 15 2. Residential Programs More rebate Landscape rebates have been paid to customers in almost all cities in the participants live west of BBMUD service area. More customers west of the Oakland hills have the Oakland hills, but participated in the program, but rebates have been larger east of the hills, more extensive landscape projects where landscapes typically are larger and summer-time water use is greater. have been east of the hills - Rebate Payments Number of Rebates Residential Landscape Rebate Program Residential Landscape Rebate Program FY99 FY99 $30,000 60 $a5,b00 52 Rebates $z5,o0o s23,000 50 $20,000 40 38 Rebates $15,000 - 30 $10,000 20 - $5,000 10 East of Hills West of Hills East of Hills West of Hills Two successful workshops were offered to homeowners in FY99. The first one,Designing Your Landscape for Beauty and Water Efficiency,was held at Heather Farms Garden Center in Walnut Creek in February. The second workshop, Garden Wise/WaterWise, was held in Albany in May. .k I ► Water Conservation staff and other landscape professionals presented information on irrigation techniques, low-water plants, landscape design, and EBMUD's water conservation programs. Both workshops were attended by over fifty District customers and received highly favorable reviews from participants. Conservation staff are now planning a workshop on water- efficient landscape design that will be taken"on the road"to e meetings of homeowners' associations in areas of new development. A slide presentation illustrating the attractiveness of landscape alternatives to turf will be >: u accompanied by sketches of alternative landscape designs for typical front yards in the development where the "16 Residential Programs workshop is conducted Workshop participants and one-on-one learn about water- discussions with efficient landscape participants about their design landscape projects. Water use in new landscapes rebated by the District will be compared to that of projects in the same development that did not participate in the rebate program. CL O THES WA SHER REBATES In a joint venture with PG&E,the District offers a$75 rebate to residential 'Y88 sic#vltt ,76 > customers who purchase energy- and water-efficient clotheswashers. In ' r crf� osl 94 FY99 PG&E offered a rebate of up to $100, depending on the energyy Q ... efficiency of the model purchased. The combined rebate offsets a portion of the cost of high-efficiency clotheswashers, which typically cost several hundred dollars more than conventional models. The Electric & Gas Industries Association(EGIA), a non-profit energy service provider, administers the program for PG&E and fifteen participating water utilities. EGIA develops rebate applications and marketing materials and coordinates the program with appliance retailers. The clotheswasher rebate program is growing € EBMUD adds$75 to rapidly as retail costs of high-efficiency '0each PG&E rebate for clotheswashers decrease and as more purchase of high- customers learn of the rebate program. In efficiency residential FY97,when this program was initiated, s clotheswashers EBMUD paid clotheswasher rebates to 300 customers. Over 3,700 clotheswasher rebates were paid to EBMUD customers in FY99, more than a 1,000 percent increase in only two years. This increase was accomplished in a cost-effective manner. EBWD's administrative costs were $12 per rebate, and :'' ;. the fee paid to EGIA was $4 per rebate. ----------- { 17 Irrigation Programs The Water Conservation Division offers the following services and programs for large-landscape irrigation customers in the District's service area. WATER AUDITS _ The Irrigation Audit and Rebate Program offers free water audits and financial incentives to large-landscape irrigators ,V0 to upgrade irrigation systems. Under this program, any iIIICD .Z1 customer not classified as single-family residential may obtain a free irrigation water audit. To qualify for an irrigation rebate, customers must have a dedicated irrigation meter or install a submeter to measure irrigation water use. Irrigation audits include an evaluation of current and past water use, on-site inspection of irrigation systems, tests for sprinkler uniformity, training of landscape personnel in principles of efficient irrigation, and recommendations _ for increasing water use efficiency. Water auditors also evaluate the site's eligibility for the Irrigation Rebate Program, which provides rebates for irrigation equipment installed to increase water use efficiency. REBATES As in past years,the majority of irrigation rebates went to homeowners' associations,but the most extensive upgrades and largest rebates in FY99 PaM 4 Mt3l a�8.x E.!# ' were for golf courses. In terms of dollars, irrigation rebates were fairly evenly distributed east and west of the Oakland hills, although more accounts were upgraded west of the hills than east. Rebates for the Crow Canyon Golf Club in Danville and the Tony Lema Golf Course in San Leandro were for extensive upgrades involving computerized central control systems, improved sprinkler head spacing, and The most extensive installation of individually upgrades and largest controlled "valve-in-head" rebates were forgolf sprinklers. courses Garden Isle Homeowners Association in Alameda retrofitted irrigation systems on twenty different accounts. Several businesses and institutions also received rebates for irrigation retrofits, including Castlemont High School in Oakland, which installed new sprinklers and an irrigation controller. 18 .v. Irrigation Programs Performance Measures Some program changes are planned for FY00 to encourage customers to in FY00 irrigation maintain water savings achieved by upgrading irrigation equipment. rebates will be tied to Beginning July 1999 the rebate program pays 50 percent of a customer's total the customer's water rebate at the time of project final inspection. The remaining half is paid after budget one year if the customer demonstrates twelve months of water use efficiency. Water use efficiency is established by creating a"water budget" for the site based on irrigated area and climate (evapotranspiration or ET) and comparing actual use to the budgeted amount. A water budget is the maximum amount of water needed to replace that lost to evaporation and transpiration. WATER BUDGETS In FY99 Water Conservation staff began the process of developing water Thlsram. budgets for all accounts with dedicated irrigation meters and a portion of dexelc+ mend. FYSO commercial sites with irrigated landscapes on mixed-use meters. Water g p foals+oar ...:. . n s .......:........... .............:.................... 111.1.1 budgets for these customer groups, and bimonthly notification to customers regarding consumption as compared to budget, are required by BMP 5. Water budgets are based, at a minimum, on landscape area and local weather A water budget is the (real-time evaporation and transpiration, or ET). Where known,the types of upper limit of water plants being irrigated may be used to refine the budget. Water budgets change required to maintain the with the season; that is, the amount of water needed to maintain a site is irrigated landscape of a given site higher in July than in December. Development of water budgets requires that the area of irrigated sites be known. There are several ways in which landscape square footage can be measured or estimated. Sites can be measured manually by customers, by water utility staff, or by consultants. A rough estimate of irrigated area can be obtained from parcel size and square footage of buildings, information that is available from the county assessor's office. A more sophisticated approach is to obtain digital infrared aerial photographs that can be used to distinguish irrigated landscape from all other landscape features, including unirrigated landscape. After researching the alternatives, Water Conservation staff determined that digital imagery offered the best balance between accuracy and cost- effectiveness, especially considering the size of the District's service area (329 square miles). This work will be completed in FY00. 19 Irrigation Programs Vegetated areas No other water utility is appear red in known to have attempted infrared aeric! photographs such a project with in-house staff or on such a large scale. However, Conservation staff concluded that skills and technologies available within the District are sufficient to undertake this project. Several other EBMUD departments make use of Geographical Information System (GIS)technology and have already developed databases that can be layered with information obtained for the water budget program. Also, although most aerial photographs taken for the District are not infrared,the information available from infrared photographs will be useful for other purposes, such as watershed management. Most important, in the process of creating the water budget system,parcel maps will be converted to "intelligent"polygons that can be queried by computer for any District information associated with that parcel. This capability will be useful for many District functions. Two steps of the process were determined to be beyond current District staff District parcel maps expertise and were contracted out: obtaining and classifying infrared aerial will be layered on photos; and "polygonizing"parcel lines. Pacific Meridian, Inc., was selected aerial photos by competitive bid in June 1999 for the first task. Graduate students from the GIS department at California State University, Hayward, demonstrated their ability to handle the second task :'::,:,:.:,:•$:>^<':> :>: :::: by polygonizing all parcels in the city of San Ramon. Staff entered into r negotiations with the university in FY99 to complete the polygonization of District parcel maps covering 4,000 irrigation-only accounts and 3,000 mixed-use commercial accounts. This work will be completed during FY00. 20 IA ICI Programs The Water Conservation Division offers the following services and programs for industrial, commercial, and institutional (ICI)customers in the District's service area. WATER AUDITS Industrial, commercial, and institutional (ICI) audits are ,, , , # surveys of domestic, sanitary,process, and landscape water _.... _.f.4164:.. . use designed to help businesses and institutional customers OD* .0 use water more efficiently. Audits also serve as a means of > identifying opportunities for water use efficiency improvements that qualify for rebates. The ICI audit consists of an interview with the facility manager, an on-site inspection of water-using processes or fixtures most likely to offer opportunities for conservation, and a water use analysis during which conservation opportunities are identified. A successful strategy for the ICI audit program during FY99 was targeting customers with multiple accounts and/or sites with multiple customers. Water audits were completed for 53 schools in the West Contra Costa Unified School District and for 70 separate businesses at the Eastmont Mall Town Center in Oakland. REBATES The availability of rebates serves as an incentive for ICI customers toy vi�t ,ElQO participate in the audit program. Rebates offset a portion of the initial costs of Pertcat. Wit: installing equipment and systems that are expected to result in water savings, ains.#. .1 and they shorten the payback period for the customer's investment in - - equipment upgrades. Rebates are based on estimated water savings and may be up to 50 percent of the installed cost of fixtures or equipment that demonstrate improved water use efficiency. Commercial clotheswashers In FY99 staff piloted.a$300 rebate for installation of coin- or card-operated, The commercial commercial-grade, high-efficiency clotheswashers under the ICI Rebate clotheswasher rebate Program. This was the first technology-specific, standardized rebate offered is the first to commercial customers. In piloting the program, it was learned that the standardized 10 rebate largest market for this technology is the multi-family residential sector. 21 ................................................ .. ICI Programs 1Cl rebates offset a portion of the initial cost of equipment and process upgrades that increase water use efficiency i Ile Water Conservation staff are considering establishing a stand-alone rebate program in FY01 to offer commercial clotheswasher rebates to both commercial and multi-family customers. The district's first third- FY99 saw some unique achievements for the ICI Rebate Program. Working party rebate agreement, with the California Linen Rental Company, a commercial laundry in Oakland, negotiated in FY99, holds and New Logic International, Inc., an equipment leasing company, ICI staff the rebate recipient were successful in negotiating key terms of the District's first third-party responsible for maintaining water rebate participation agreement. Planned for execution in early FY00, this savings over time agreement will be the largest single rebate ever awarded by the District, and the first to hold the customer financially accountable for maintaining water savings over time. Both parties to the rebate agreement will be contractually responsible for returning to the District a portion of the rebate if water savings achieved through the new equipment are not maintained for a period of ten years. ICI program staff participate in the Alameda County and Contra Costa County Green Business programs to identify business sectors with water savings potential. Staff also receive referrals from District Source Control and from Meter Reading regarding commercial customers with conservation potential. Through the District's Business to Business Program, Water Conservation presents conservation awards annually to ICI customers who have shown exceptional commitment to increased water use efficiency. 22 iToilet Replacement Program The District's Toilet Replacement Program consists of two distinct program elements: rebates and direct installation. The Ultra-Low-Flow Toilet(ULFT)Rebate Program is designed to encourage The ULFT Rebate property owners to replace existing high-flow toilets with 1.6 gallon ULFTs. Program credits This is done through cash rebates,usually in the form of credits on the water customers'water bill. (Checks are issued if the person who pays for ULFT replacement is not bills when they replace high-flow the District customer of record.) The rebate program is implemented in- toilets with ULFTs house by Water Conservation staff. The Direct ULFT Installation Program offers free installation of ULFTs to replace higher-flow toilets in low-income,multi-family housing. This program is implemented by a contractor selected by competitive bid. ULFT REBATES The ULFT Rebate Program targets four customer sectors, and the rebate amount varies with the customer classification. Except in the case of CAP � customers, rebates are for hardware only. of foal: • Single-family residential: up to $50 per toilet replaced; ■ Multi-family residential: up to $100 per toilet replaced (the larger amount is offered because multi-family units have been shown to have higher water savings); ■ ICI customers: up to $100 per toilet replaced; ■ CAP customers (low-income single-family customers in the District's Customer Assistance Program): up to $250 per toilet for both hardware and installation costs. In prior years one effective marketing technique was the placement of rebate applications in plumbing stores and home supply centers. In FY99 this approach was discontinued because it was believed to encourage "free ridership"--the payment of rebates to customers who would replace their toilets without an incentive. The situation is different for clotheswasher rebates because available models The point-of-purchase range widely in water use efficiency, and a point-of-purchase rebate offer can rebate offer is most encourage customers to purchase a more efficient model. Offering an cost-effective when incentive to customers who are already shopping for a new toilet is less cost- customers can be effective because, by law, all toilets sold in California must be ULFTs. The guided toward the purchase of higher- point-of-purchase rebate offer may be reintroduced when there is sufficient efficiency models information on relative efficiency of different models to justify incentives for purchasing more efficient ULFTs. 23 r.4�.la Toilet Replacement The FY98 increase in per-fixture rebate maximum from $50 to $100 for multi- family residential customers caught the attention of installation contractors, who began marketing toilet replacement projects to property owners. In FY99 twenty-five multi-family sites received rebates for twenty or more toilet replacements. When contractors purchase toilets in bulk, a $100 rebate can offset all hardware costs and a substantial portion of installation costs. Several contractors reported that the rebate was instrumental in selling low- cost toilet replacement projects to their customers. Increasing the multi- family rebate to$100 made large-scale retrofits cost-effective r� s. .:>.t va: h In FY99 numerous procedural changes were made to the ULFT rebate program to improve fiscal accountability,tighten program eligibility, and - increase reporting requirements. Water bill credits are now issued by Customer Services, rather than by Water Conservation staff who arrange for rebates to be paid. On-site verification is required for all rebates totaling $1,000 or more and for a 15 percent random selection of rebates under$1,000. 24 Toilet Replacement Several additional changes are planned for FY00 to improve the toilet replacement program. Rebates will no longer be flat dollar amounts regardless of purchase cost; instead, they will be equal to the cost of the toilet or the maximum rebate, whichever is less. Rebates also will be issued only to District customers or property owners and not to third-party contractors, even at the customer's request. DIRECT ULFT INSTALLATION In December 1998 the District awarded a$1.6 million contract to CTSI .�, ' Corporation to replace 9,000 higher-flow toilets with UL.FTs, low-flow � aft 1 showerheads, and faucet aerators in low-income, multi-family residential , .....:........:............................................. .......................................................... properties over the calendar year. The contract provides for a turnkey program that includes program marketing, toilet purchase and installation, warranty and customer service, information management, and reporting on program results. The contract also requires that 20 percent of the project work force be composed of employees transitioning from welfare to work and that the contractor enter into an agreement with at least one community-based organization(CBO)to implement marketing aspects of the program. Three CBOs were hired by CTSI to assist with the program in FY99. The Fast Oakland Youth Development Center and the Spanish-Speaking Unity Council conduct program marketing and refer potential sites to CTSI, receiving $10 for each referral that results in a ULFT installation. The Westside Economic Development Corporation provides warehouse storage of toilets awaiting installation. Direct installation of toilets in low-income,multi- EWMY Ads placed in property � MWCVneUnUTYa MCT family residences was initiated in FY99 to '"""' �� owners'trade increase the certainty and quantity of water magazines announced savings. This program provides greater control the direct ULFTinstallation program, as over the quality of toilets installed, as well as well as other District - .w. ensuring that toilets replaced are high-flow and services for multi-family are within the District's service area. Per-toilet .-_.,. v t' and commercial water savings also are higher in multi-family custo'm'ers settings (average 36.5 gpd vs. 21.2 gpd in single- � cst+ttn.a.,n�taaenr�+in�nWrmingNtts family residential), and in low-income residences _.. replacement without an incentive is less likely than In higher-income residences. WATM"VE rr vR wear YC7 LAM 25 Device i • The District has been distributing free low-flow showerheads, faucet aerators, R#r +orf_gct; and other water-saving devices to customers since the early 1980s. Because ..00 devices are distributed primarily during audits, device distribution was not called out as a discrete program of the 1994 Water Conservation Master Plan. In the WCMP, projected savings from device distribution were included in projections for audits. The FY99 program set a BMP-derived distribution target of 16,000 water-saving devices, and almost 24,000 were distributed. Water savings for devices distributed during audits are included in savings estimates for audit programs. An additional 0.04 MGD savings was obtained from devices distributed over the counter from business offices and installed by contractors during direct installations of ULFTs. Multi-family audits accounted for the largest number of devices distributed in FY99. During a multi-family audit, free showerheads, aerators, and toilet retrofit devices are provided �Y. for all units that require them. In FY99, during which 741 multi-family audits were completed, more than 2,300 showerheads, 2,500 kitchen aerators, and 3,300 bath aerators were distributed. The ULFT direct installation program accounted for the second largest number of devices distributed in FY99. Low-flow showerheads and faucet aerators are installed in all multi-family units receiving free ULFTs. Almost 7,000 devices were installed in this manner in FY99. Water savings from these. installations are more certain than for programs in which devices are distributed to customers without verification of their installation. The relatively low number of devices distributed during single-family audits in FY99 may reflect the increasing penetration of low-flow fixtures in single- family homes. A little more than half the single-family homes audited in FY99 were provided with low-flow showerheads, bath aerators, or toilet tank retrofits, and one-third were provided with kitchen aerators. Studies of market Market penetration studies to be conducted in FY01 and at two-year intervals penetration will thereafter will help to determine where device distribution should be determine the future concentrated in future years and how long the program will need to be of the device continued to reach full market saturation. distribution program 26 P • d Outreach Education and public outreach are essential to any effort to influence water ersavinr use, especially in the absence of other driving forces, such as water shortages 0�# rs M. or regulation. Water use is determined by both hardware (water-using are gt .......f fixtures) and behavior(water use habits). The Water Conservation Division uses a variety of approaches to motivate customers to retrofit high-water-using fixtures and to alter their water use habits. Education and outreach support all other programs of the Water Conservation Division and increase customer awareness and acceptance of District conservation efforts. In addition to marketing conservation programs to customers and providing information needed to put conservation principles into practice, education and outreach are designed to promote long-term changes in customer attitudes and behaviors affecting water use efficiency. Education and outreach activities of the Water Conservation Division are of two kinds: broad, general, and designed to promote a lasting conservation ethic; and specific, practical, and designed to help customers become more efficient in the use of water. GENERAL OUTREACH The "general" education approach includes efforts to widely communicate the value of water and the importance of using it intelligently. Examples `�5`� of general outreach activities include: JeipELine ■ displays in EBMUD business offices _. WATER...SAVE IT FOR ■ newspaper/magazine ads WHAT You LOVE Cb.—Wim 4ffldi 1—d".", • radio spots ■ posters H ■ bill inserts (District Pipeline and envelope messages) M. ....._... ■ bumper stickers on all District vehicles ■ billboards ■ business awards ■ promotional items with a conservation message MWATER MA THE The most visible change in general outreach in FY99 was the introduction NEXT CEHTu" of a new"tag line" or slogan designed to remind customers that water is a precious resource used for many of life's most enjoyable activities. 27 Education and Outreach Billboards, newspaper In a coordinated campaign implemented i ads, bumper stickers, jointly by the Water Conservation and posters all feature Division and the Public Information the District's new Office, the message was communicated conservation tag line. "Water--Save It For through ads on two District-owned What You Love" billboards, black-and-white ads in 17 English and seven foreign-language f newspapers, full-color half-page ads in Diablo Magazine and the East Bay Monthly, and ads in movie theaters N, throughout the District's service area. Beginning in January 1999 the > elements of the campaign were timed to run in a repeating sequence of the same message in various media to maximize public visibility and recognition. Once through the series, the billboards were changed, and similar-looking but new ads were run again in newspapers and magazines. The message also appeared in bill inserts and on bill envelopes, on posters and promotional items distributed at community events, in radio traffic sponsorships, and on bumper stickers applied to District vehicles. The campaign is expected to run through F"Y00. '/ savc it for w1latyou lovc. _. €, ° Lila is alwur choir a.Warr is Gra end i Por wvcr-eariq a"mi rmunx.Enjoy it..,^tad use u4 xnJ help, it wiseefy.Fpr waaerbaving idea and 510.2e7-0590. help,call 514-287-0540. 6`� ..... 28 Z) G Education and Outreach TARGETED EDUCATION AND MARKETING The "specific" education approach includes interactions with individual customers or groups of customers to answer questions, provide information, and market Water Conservation programs and services. Targeted education and marketing activities include: ■ publications Conservation ■ direct mailings and program-specific ads programs also are ■ presentations and workshops marketed through ■ Water Education Center the District's ■ conferences and symposiums website at www.ebmud.com ■ articles in Chamber newsletters and trade magazines ■ booths at community events and trade shows ■ brochure distribution stands ■ Landscape Advisory News ■ ET Hotline ■ demonstration gardens, school gardens EBMUD contributed funds to support garden projects at EBMUD funds two schools in FY99. Teachers, students, parents, and T helped teachers, community volunteers made a community garden with students, and raised beds and drip irrigation at Peres Elementary parents build a School in Richmond. This garden project is being community garden Peres incorporated into the school curriculum and also will at Elementary School provide a source of fresh vegetables for families in the in Richmond neighborhood. A similar project was undertaken at the Orinda Union School District's Wagner Ranch Nature Area, where District funds helped to pay for drought- tolerant native plants and drip irrigation. The Water Education Center at the San Leandro Business Office is , popular with elementary school teachers, who bring their students to the Center for guided tours. Students learn basic facts about the source and quality of District water supplies,the distribution system, and the many ways in which water is used, while gaining E an understanding of the need to use it wisely. Water Conservation staff are investigating options for development of new programs specifically for high school students. Guided tours of the ` Water Education v Center are popular with school children 29 .......................................... Education and Outreach Listed in the table below are the key community and professional events in which Water Conservation staff participated in FY99. 'These events keep the District's environmental interests in the public eye, encourage participation in Water Conservation programs, and give customers an opportunity to ask questions and express their concerns to EBMUD representatives one-on-one in a setting conducive to building positive relationships. • • Community EVENT CITY DATE ai 3�i? lle�y Fat F#afftlVal y U. 8� t�ichmond 1StiuWOulturat Festival �t�trfortri 5.00. a r�tla ati Mon ... pown.: tFtaAd ft, S atrnla Hcs�cural Setatjr plant ae#e £`aklattf Mar l9 Sarti FCartt�S G rd �l��tr Sari!"r� da�> wrB ` r�'l ay MOM #Qn Apt Sa�I.aand a�t�etc V'I�t�a#`shed F�st�tal= $n t:e�rncfrcz A�tr 9£+ '. . Tial �t Rare Bs�tani l arde pterrtsale Berkak lg Apt90 tertPt CFE&7Sttt An:M.W.M. ? tn#t Cr.. 0 r .:aa lsta Earli t3y + snort ASt l asay t ny+ e l an 5 �s 008M t1Aa�+ $ : 3 terstany firm sz tai le a - � jo tact .1 a# :t aartftar Fasbwsl San t.ar�ttr� Aur}98 Mar l+t �arantat lrlre lrtut ati r., ........ `.: ut�ty l` t�taasatto�t Alun 8 30 Looking • a • Water conservation is a central component of the 1993 Water Supply Management Program(WSMP). The WSMP seeks to address the full set of issues that impact the reliability of EBMUD's water supply now and in the future. These issues are the risk of seismic damage to the infrastructure that brings water from the Sierra to the East Bay; the need to balance water supply reliability with protection of the aquatic and riparian resources of the Mokelumne River; and the growing demand for water both in the East Bay and in up-country districts with senior rights to the Mokelumne River water supply. Three of the five major programmatic elements of the WSMP are "supply- side" approaches: water supply improvements (including new sources of supply and underground storage of surface water); the Lower Mokelumne River Management Plan(which ensures reliability of supply while protecting and enhancing the river environment); and the Seismic Upgrade Program (which will retrofit Mokelumne aqueducts to minimize down time after an earthquake). The other two elements, conservation and reclamation, are "demand-side" approaches: they impact demand and supply by reducing consumption or by reusing water in appropriate applications. Normal Year Projected(2020)Water Supply Rrdwm6an Conservation as future supply ,.MOD(6R) Looking ahead to the year 2020, the contribution of conservation to water supply is evident from demand projections that show sources of supply for normal years and for years of drought. In normal years, Pardee Reservoir is expected to supply 83 percent of the total projected demand of 277 MGD. It is expected that 12 percent of needed supply will be offset by conservation. If conser- vation fails to meet its 2020 goal of 34 MGD, shortfalls will need to be made up in other ways. Drought Year Projected(2020)Water Supply In drought years, Pardee Reservoir is expected to supply only 39 percent of total projected demand for water. Conservation and reclamation combined are expected to provide 48 MGD, and 58 MGD is expected to come from rationing. The projected shortfall of 62.5 MGD will need to be made up through other"supply-side" options. This view of conservation as an integral component of future supply has provided the main context for EBMUD's Water Conservation Division since development of the Water Conservation Master Plan fuolamNiun... 1/MWOO(0%) 31 Looking Forward in 1994, and conservation efforts in the future will continue to be shaped by this perspective. Looking forward There are many With the information and tools available at this time, projected water challenges that must be savings from conservation programs and "natural" savings are expected to _. addressed in the years reach the 2020 demand reduction goal of 34 MGD. However, there are ahead many challenges that must be addressed in the next few years, and new challenges can be expected to appear over the planning period. To address those challenges that are already known, the Water Conservation Division must: - ■ develop and continuously refine the tools needed to estimate water savings, both those that derive from conservation programs and those that occur naturally; evaluate cost-effectiveness of individual conservation programs; and, based on results of evaluation, continuously refine programs and the overall program mix to optimize cost-effectiveness; ■ maintain currency and promote research and development in water-using fixtures and appliances and in water conservation practices; and ■ exercise initiative and leadership in all arenas that may impact success of the conservation program. Estimating water savings and evaluating cost-effectiveness. Looking forward three to five years, the Water Conservation Division envisions the achievement of one of the major elements of the Water Conservation Master Plan: the ability to evaluate and modify programs based on costs and benefits, including reliable estimates of water savings attributable to individual conservation programs. An enhanced ability to evaluate pro- gram cost-effectiveness and to project water savings over time will facilitate District efforts to manage and plan for future levels of demand. Program evaluation will Over time, program monitoring and evaluation will become more accurate become more and routine. Program success will be measured primarily in terms of cost- accurate over time effective achievement of water savings, rather than activity levels, budgets, or expenditures. 32 Looking Forward Continuous program development and refinement. The WCMP emphasizes the importance of retaining flexibility in program design in order to take advantage of new knowledge and new technologies as they emerge. Some programs have been modified in response to experience in past years, and new programs have been developed. For example, when high-efficiency clotheswashers became more readily available and affordable,the Clotheswasher Rebate Program was created to encourage customers to purchase more water-efficient models. In response to con- cerns that ULFT rebates for single-family homes were not cost-effective, the Direct ULFT Installation Program was established to target low- income multi-family customers less likely to replace toilets without an incentive. Conservation programs will continue to be modified in an effort to maximize water savings and cost-effectiveness and respond creatively to "hardening of demand." A pilot program for single-family residential customers with large landscape water use is currently under development. This program is being evaluated separately from the Single-Family Residential Audit Program because both costs and water savings are expected to be higher and because, other than tests for Priority programs are interior leaks, the new program will focus entirely on exterior water use. identified by evaluating program alternatives in terms of cost-effectiveness Another program change designed to increase cost-effectiveness is the and conservation potential pay-for-performance feature that has been added to both the ICI and Irrigation Rebate programs, whereby financial incentives are based on demonstrated performance to encourage customers to maintain water savings over time. These changes will need to be evaluated to determine whether they decrease incentives to participate in the rebate program and, if so, whether increased water savings fully compensate for reduced levels of participation. The goal is to base program design on quantifiable, measurable, and verifiable water savings and to achieve those savings in a cost-effective manner. Continued refinement of savings measurement methodologies and Water Conservation database and reporting capabilities will be essential to achieving this goal. Promoting research and new technologies. EBMUD will continue to explore new ways of increasing water use efficiency. Water Conservation staff have formed a Research and Technology Work Group to investigate the water-savings potential of new technologies. 33 p Looking Forward Of six grant proposals prepared by Conservation staff in early FY00, two were designed to fund evaluation of new technologies: a comparative study of dual- flush toilets in residential settings and an evaluation of several different approaches to automated weather-based irrigation scheduling. Conservation staff will continue to seek outside funding and opportunities to work with other agencies in researching new technologies and will promote new tech- nologies as information becomes available. Finally, innovative demonstration projects will be developed and implemented to share new concepts with the public, to test new ideas, and to encourage _. creativity in increasing water use efficiency. Leadership and innovation. EBMUD has long been known for leadership and innovation in the field of water conservation. The District was one of the first utilities to develop a water conservation master plan with performance- based measures and quantifiable water savings goals. The EBMUD Water Conservation Division is one of few conservation programs to develop a database that ties information on audits, rebates, and other customer interven- tions to consumption histories in the agency's Customer Information System. The District is leading the way in utilizing GIS technology to measure irrigated landscape for the purpose of preparing water budgets. EBMUD is one of a handful of agencies with residential landscape rebate programs, and it is one of very few agencies developing methodologies for measurement of water savings attributable to individual conservation programs. The District is the only water utility known to have assigned to its conservation unit the responsibility for tracking unaccounted-for water, an important component of demand-side conservation, and it is the only utility known to be attempting to quantify agency-wide conservation-related activities. The District will continue to promote, implement, and expand its aggressive and broad-based water conservation efforts, which consist of more than twenty-five individual measures, including metering of all customers; tired rate pricing; distribution system leak detection and repair; a Water Conservation Master Plan; educational materials and programs; incentives and rebates; regulations; and cooperative research projects with other agencies. The vision for the EBMUD Water Conservation Division is to become known, statewide and throughout the nation, for verifiable cost-effectiveness in meeting performance-based water savings goals, while providing timely and responsive services to District customers. -. 34 Water Conservation Division John A. Coleman, President Katy Foulkes,Vice President Lesa R.McIntosh Frank Mellon William B. Patterson David Richardson Danny W. Wan Dennis M. Diemer, General Manager Artis L.Dawson,Director of Adminstration Richard Harris,Acting Water Conservation Manager For more information about EBMUD's waterconservation programs contact the Water Conservation Division at (510)287-0590. •cif,s ramuo A Y Y mn 0 P* � C� 0 CD 3 ch —• CD0 N) cn Cr 0 CD CD M C - -a =I 0 cn to 0CD r.+ ' 3 o o 0 � � � CD . ala, C, � _ 4 �. O CD 3 c X -� ,-�- CD CD = C CD � cy- � c n 0 3 X ` . CD C 3 cn paw l< C o 5 2: 73 L � o C� .0 C)CD 0 CD CD C/) c l '0 -0 CD CD 0- - CD ` � Cid 0 0-• �, � _� PL) CL 0 cr cn 0 cn (n W r 0.+ CD 3 o 0 C- CD CD 0� �• 0 cn * cy- 0 U) " � � � CD :33 = cn. Cn - + CD Zcn - CCD © �+ .-f- �.,� < = ,." .a W CD CD CD o CL � �: 00 N) CD0 C) cn CDa) 0700 C) >o C CD CD C � 0 10 07 0 C� —. COQL 0-17 cn �I ✓ 3 -• v ' 0 ``' X0 Sv4.i4ap i urJ'py c d V Y Y C7 C7 o cn _. cn 0 � � CD � 0 cn a 0 cn 0 < C.T _. Cn Cl) CD CD C f* c CD CD o � -� -� C Z � � � a a C: =r 5. 1 CD CD ? 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CD d� rs n 1 W.A.T,E.R. 3 (Water Allocation Through Equitable Rates) 696 San Ramon Valley Blvd., Suite 300 t Danville, CA 94526 � DROUGHT RATE OPTIONS To: W.A.T E.R Board of directors Fm: Bill Highfield, President Dtd: February 1999 EBMUD's Single Family Residential (SFR) rate schedule for FY 2000 by units of water consumed is: 0-7 $1.27 7-18 $1.58 16 + $1.94 Drought rates are: 4-8 $1.27 8-16 $1.88 16-32 $2.74 32-48 $3.58 48- + $5.37 Acting as spokesman for the Board, I have recommended that EBMUD agree upon and make public its SFR rate plan Should a drought emergency be declared. I have also publicly recommended that.other options be considered and have suggested that their staff' could predict the fiscal implications of each approach and report these findings directly to the Finance Committee of the EBMUD Board. In a drought and the consequent water shortage condition that results the district will experience a loss in revenue of approximately $16 million dollars for each 25% reduction in use by SFR customers. Since the cost of delivery is almost all a fixed cost, the expense remains but the operating revenue is inadequate. The problem is one of encouraging conservation while still meeting the needs of the operating budget. Here are several options that could be considered: Meter Chane: During the drought emergency levy a uniform fixed meter charge of approximately $4.34 per month so long as needed to produce the short-fall in revenue. Fixed Rate: Charge a flat rate of$►2.04 a unit for all Single Family Customers for the period when revenues are not adequate to meet district operating expenses. Ememencv F_u,nd: Establish a "Drought Emergency Carry-Over Fund," sufficient in amount to carry the district through, one, two or perhaps three years of reduced sales. (Conserve at necessary levels, retain present three rate tiers. ) The district already has $55 million in budget reserves, and $32 million in a separate account. The Board could use existing funds for this purpose, or seek additional funds on a small incremental basis in the same manner employed to cover other acts of nature, such as earthquakes and fire. The necessary retrofits for these contingencies are paid now by all rate- payers based upon the recognition that natural calamities are the responsibility of everyone, not Just those most directly Involved. _ _ e s f�? MEMORANDUM TO: Gary Breaux,Finance Director FR: Richard Lou, OBR SU: Applying the FY88 drought rates to the FY00 rates The following are the rates that would occur if the FY88 drought rate structure were applied to the FY00 Single Family Rates. Further financial analyses would have to be done to determine if this would achieve the desired level of conservation and revenue. FY88 pre brought Single Family Rate $0.709 per Ccf FY88 Drought Single Family Rate— $0.709 (0-8 Ccf) $1.050 (8-16 Ccf) $1.500 (16-32 Ccf) $2.000 (32-48 Ccf) $3.000 (48+Ccf) FY00 Single Family Rate$1.27 (0-7 Ccf), $1.58 (7-16 Ccf), 51.94 (16+ Ccf) FY88 Drought Rates applied to FY00 Single Family Rates $1.27 (0-8 Cef) $1.88 (8-16 Cef) $2.74 (16-32 Cef) $3.58 (32-48 Cef) $5.37 (48+Ccf) Post-IV Fax Note 7671 Date , p 37 ages To f1� 0 From t CoMapt,J Co. Phone# Phone# Fax# Fax# • r . • M1 tom • vy CD L4 t00% rrl 0- 14 tij Ul rri rp ' 0 � � tri �' U1 z A P ' ..._. ..C`� =� 0 El>Z . 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