REPORT TO COUNCIL
SUBJECT
Title
Adopt a Resolution Approving the 2020 Urban Water Management Plan (UWMP) and Adopt a Resolution Approving the Water Shortage Contingency Plan to be Included in the UWMP and Find That These Actions are Exempt From the California Environmental Quality Act (CEQA)
Report
REPORT IN BRIEF
Every urban water agency in California is required to submit an (UWMP) every five years. The UWMP now includes a Water Shortage Contingency Plan (WSCP). UWMPs must include information about water demand, water supply, demand management activities, alternative water supplies, anticipated shortages during dry periods, and contingency plans for addressing those shortages.
The City’s water demand projections are expected to increase over the next 20 years based on projected population and employment increases. However, any increases will still be lower than historical water use and per capita consumption is expected to decrease due to water conservation and efficiency gains. Potable water supply from the City’s suppliers, the San Francisco Public Utilities Commission (SFPUC) and Valley Water (VW), is projected to be adequate during normal years. As per the SFPUC’s UWMP, significant shortfalls are expected from the SFPUC during droughts. Per VW’s UWMP, supplies are not expected to be similarly impacted as long as planned projects are fully implemented. The City also has standby wells that could be utilized during drought events.
Sunnyvale, in collaboration with its partners, continues to seek to maximize water conservation to reduce the impact of dry years. When water supply shortages do occur, Sunnyvale’s WSCP provides for increasingly aggressive steps to reduce use including public outreach and education, rebate programs, water use restrictions, and water allocation processes.
BACKGROUND
The City supplies approximately 19,500 acre-feet (1 AF = 325,000 gallons) through 29,500 service connections comprised of residential, commercial, irrigation and institutional customers. Sunnyvale’s population currently stands at 156,503. Sunnyvale purchases its treated water supply from SFPUC and Valley Water. In addition, Sunnyvale has seven wells that could be used to supplement the treated water supply and also produces recycled water for irrigation and other non-potable applications.
Urban Water Management Plan
California Water Code Sections10608 and 10610-10656 requires that urban water suppliers that either provide over 3,000 acre-feet of water annually or serve more than 3,000 service connections prepare UWMPs every five years. Some of the main topics required in the UWMP include:
• Water supply reliability - Assessment of water source reliability over a 20-year planning period considering future demands, growth, and population to ensure that adequate water supplies are available to meet existing and future water needs.
• Water service reliability and drought risk assessment - Conduct a dry-year water reliability assessment for up to five consecutive dry years.
• Water shortage contingency plan - A WSCP consisting of five drought stages (ranging from normal conditions to 50% water reduction goal).
• The UWMP also describes efficient uses of water, demand management measures, implementation strategy and schedule, and other relevant information and programs.
Sunnyvale last updated its UWMP in 2016 (RTC No. 16-0398, June 21, 2016). The 2020 UWMP (https://sunnyvale.ca.gov/civicax/filebank/blobdload.aspx?t=59410.78&BlobID=27632) is being presented to Council in 2021 consistent with other California water agencies. The State’s Department of Water Resources was late in providing guidelines for the 2020 update. The City must adopt the 2020 UWMP by July 1, 2021 and submit it to the California Department of Water Resources within 30 days of adoption. Council is being asked to adopt a Resolution (Attachment A) approving the 2020 UWMP and a second Resolution (Attachment B) approving the WSCP.
EXISTING POLICY
GOAL EM-1: ADEQUATE WATER SUPPLY
Acquire and manage water supplies so that existing and future reasonable demands for
Water, as projected in the 20-year forecast are reliably met.
ENVIRONMENTAL REVIEW
California Water Code Section 10652 provides that the preparation and adoption of an UWMP is statutorily exempt from review under the California Environmental Quality Act (CEQA). In addition, adoption of the UWMP and WSCP is an administrative action that is not considered a “project” within the meaning of CEQA because it will not result in a physical change to the environment (CEQA Guidelines Section 15378(b)(5)).
DISCUSSION
Water Supply Reliability
During normal non-drought years, Sunnyvale is expected to have adequate water supplies to meet its projected demands through 2040. Table 1 shows Sunnyvale’s projected demands through 2040, which includes population and employment growth from the City’s General Plan, and accounts for reductions in per capita potable water demand and continued use of recycled water. Projected demands from the SFPUC are less than Sunnyvale’s Individual Supply Guarantee (ISG) of 14,100 Acre Feet (AF) per the contract with SFPUC. The amount of water Valley Water supplies Sunnyvale is evaluated and agreed upon on a three-year cycle. The wells can supply up to 8,000 AF annually, however Sunnyvale’s strategy is to utilize the wells when there is an emergency or substantial shortfall in supply from either the SFPUC or Valley Water.
Table 1: 20-Year Projected Water Demands (AF)
|
Water Supply Source |
2025 |
2030 |
2035 |
2040 |
|
SFPUC |
10,263 |
10,418 |
11,990 |
12,811 |
|
Valley Water |
8,912 |
9,109 |
10,799 |
11,463 |
|
Wells |
112 |
112 |
112 |
112 |
|
Recycled Water |
896 |
1,010 |
1,120 |
1,232 |
|
Total |
20,183 |
20,649 |
24,021 |
25,618 |
Bay-Delta Plan
One recent development since the last UWMP was approved in 2016 that could impact the water supply to the SFPUC, is the approval in December 2018 of the Bay-Delta Plan by the State Water Board. The State Water Board oversees the San Francisco Bay/Sacramento-San Joaquin Delta Estuary Water Quality Control Plan (also known as the Bay-Delta Plan) that establishes water quality control measures and flow requirements for beneficial uses in the watershed. Updating the Bay-Delta Plan began in 2009, and requires keeping 30 to 50% of watershed runoff in the lower San Joaquin River and three tributaries - Tuolumne, Merced, and Stanislaus rivers, from February to June to help increase salmon population, thus reducing the amount of water for San Francisco and Bay Area Water Supply and Conservation Agency (BAWSCA) agencies. The Bay-Delta Plan is scheduled to go into effect in 2023. When the Bay-Delta Plan is implemented, SFPUC will be able to meet the Wholesale Customers’ projected water demands, except in drought years when supply shortages are anticipated. Drought years are described as “single” or “multiple” dry years to reflect the severity and duration of a drought. Implementing the Bay-Delta Plan will require rationing in all single dry years and multiple dry years. To help offset long-term impacts, SFPUC is actively pursuing an Alternative Water Supply Program to provide new regional and local water supply and storage projects.
During normal non-drought years, Sunnyvale is expected to have adequate water supplies to meet projected demands through 2040. SFPUC’s water service reliability data with the Bay-Delta Plan shows that Sunnyvale could see SFPUC supply shortages in single dry years or multiple dry years upward of 47%. Such shortages can be mitigated by other sources of supply as discussed later in this report.
Water Service Reliability and Drought Risk Assessment
Table 2 presents the water service supply reliability assessment for a normal water year based on water supply and demand projections. During normal water years, water supplies are adequate to meet projected demands despite expected flow reductions due to Bay-Delta Plan implementation to both Valley Water and SFPUC.
Table 2: Normal Year Supply and Demand Comparison (AFY)
|
|
2025 |
2030 |
2035 |
2040 |
|
Supply Totals |
32,211 |
32,448 |
34,446 |
35,255 |
|
Demand Totals |
20,183 |
20,649 |
24,021 |
25,618 |
|
Difference |
12,028 |
11,799 |
10,425 |
9,637 |
Multiple Dry Years
The SFPUC has indicated that during multiple dry years the Regional Water System can expect cutbacks as high as 47% of normal SFPUC supplies by the fourth year of a five-year drought beginning in 2040. This translates to a 52% cutback for retailers. SFPUC supply and retail cutbacks are detailed in Appendix H of the UWMP.
Valley Water indicated in their 2020 UWMP that with existing and planned projects’ supplies, Valley Water’s diverse water supplies are sufficient to meet demands throughout the full five-year drought in all demand years without having to call for short-term water use reductions. Although Valley Water does not project any shortage in supply in the event of a five dry-year period, the City would actively participate in any voluntary cutbacks in support of local water conservation messaging. Valley Water has acknowledged that if projects produce fewer benefits than currently projected, up to 20% cutbacks may be required.
The City does not anticipate any reduction in groundwater availability during a five-year drought.
Sunnyvale does not utilize its ability and facilities to pump groundwater during normal years. During such years the City relies 100% on imported treated water. The strategy is to keep the basin underutilized until such time it is needed. As such, the City would be able to increase the amount of groundwater pumped to meet reasonably anticipated deficiencies from other sources, thus supply is projected to be sufficient to meet demand through 2040. The City’s groundwater basin is not adjudicated, which means the right to pump groundwater from the basin has not been given by judgment of a court or board. During a critical five dry year event, voluntary and mandatory conservation measures would be expected to reduce potable water demand and therefore, reduce the amount of groundwater needed to supplement supply. Table 3 details the results of the multiple dry year analysis. The demand figures in the table take into account ongoing baseline conservation efforts. However, should a drought be declared, the City Council could enact measures calling for further demand reduction, and the demand figures shown will be further reduced.
Table 3: Multiple Dry Years Supply and Demand Comparison (AFY)
|
Year |
Parameter |
2025 |
2030 |
2035 |
2040 |
|
First year |
Supply totals |
27,135 |
27,372 |
29,370 |
30,038 |
|
|
Demand totals |
20,183 |
20,649 |
24,021 |
25,618 |
|
|
Difference |
6,952 |
6,723 |
5,349 |
4,420 |
|
Second year |
Supply totals |
25,866 |
26,103 |
27,960 |
28,769 |
|
|
Demand totals |
20,183 |
20,649 |
24,021 |
25,618 |
|
|
Difference |
5,683 |
5,454 |
3,939 |
3,151 |
|
Third year |
Supply totals |
25,866 |
26,103 |
27,960 |
28,769 |
|
|
Demand totals |
20,183 |
20,649 |
24,021 |
25,618 |
|
|
Difference |
5,683 |
5,454 |
3,939 |
3,151 |
|
Fourth year |
Supply totals |
25,866 |
26,103 |
27,960 |
27,923 |
|
|
Demand totals |
20,183 |
20,649 |
24,021 |
25,618 |
|
|
Difference |
5,683 |
5,454 |
3,939 |
2,305 |
|
Fifth year |
Supply totals |
25,866 |
26,103 |
27,396 |
27,923 |
|
|
Demand totals |
20,183 |
20,649 |
24,021 |
25,618 |
|
|
Difference |
5,683 |
5,454 |
3,375 |
2,305 |
Actual availability of each supply during any given year depends on hydrology, groundwater recharge operations and conditions, and other factors. The water supply available to individual retailers will ultimately be determined by Valley Water and SFPUC. The City will work closely with Valley Water, SFPUC, and other water retail agencies to implement any stages of action to reduce the demand for water during water shortages. Any supply deficit would be compensated for by increased conservation levels through public outreach and implementation of water use restrictions outlined in the Water Shortage Contingency Plan.
Water Shortage Contingency Planning
Beginning in the 2020 UWMP reporting period, each water supplier is now required to adopt its WSCP as part of its UWMP and as a standalone document that can be refined and updated outside of the five-year UWMP planning cycle. As required by Section10632(a) of the Water Code, the City’s WSCP includes:
• Procedure for conducting and submitting its annual water supply and demand assessment beginning in 2022.
• The legal authority that the City has for implementation and enforcement of its WSCP.
• The water shortage levels of the WSCP and the demand reduction measures, supply augmentation measures, and/or operational changes implemented in each stage as it relates to the five stages required by the Water Code and shown in Table 4 below.
• The methods for monitoring and reporting a water shortage condition and water use reductions.
• The methods for ensuring compliance and enforcing demand reduction measures.
• The protocols for communicating a water shortage condition and the measures implemented.
• The financial consequences of implementing the WSCP and methods for mitigating revenue losses; and
• A summary of the WSCP adoption, submittal, and refinement procedures.
Water supply shortages can occur for a variety of reasons including droughts; loss in ability to capture, divert, store, or utilize local supplies; and/or facility outages. The City has a more collaborative approach in working with Valley Water, including water conservation and recycled water programs. As a wholesale agency, Valley Water does not have direct authority over retail customer water use or retail rates and generally does not employ staff to enforce water restrictions. Therefore, Valley Water’s water shortage response actions are focused mainly on public education and coordination with municipalities and retailers in Santa Clara County. During droughts or shortages, Valley Water considers all available tools including balancing demands for treatment plants and recharge facilities, incentives, or requests for retailers to use either groundwater or treated water, and community outreach to maximize the use of available supplies. The collective response actions between Valley Water, municipalities, and retailers preceding and during a water supply shortage are described below in Table 4. The City Council has the ultimate authority on the stage of a drought that will be implemented (by adopting a corresponding resolution). Unlike with Valley Water, the relationship the City has with SFPUC is more contractual and is focused on delivering a certain volume of water at a given cost that meets water quality standards. During a drought, the SFPUC could impose reduction targets on the City as set in the Water Supply Agreement and request the City reduce its purchases or face excess charges. The SFPUC has no role in managing groundwater supply in the County and does not participate in water conservation programs with the City. Most communications related to the SFPUC are handled by BAWSCA. The City is a member of BAWSCA and works with other members on regional matters that could impact SFPUC water supply.
Table 4: Water Shortage Response Actions
|
Shortage Level |
Demand Reduction Actions |
Reduction in Shortage Gap (%) |
Penalty, Charge, or Enforcement |
|
Normal |
Permanent water use prohibitions please refer to City’s Municipal Code 12.34.020 • Allowing plumbing fixtures to leak • Using potable water in a manner where it floods premises and runoff into the street • Using a hose to wash vehicles without shut off valve. • Using a hose to wash driveways, sidewalks (except for health and safety). • Service of water to restaurants patrons without being requested. • Installation of single pass cooling process in new construction • Sprinkler irrigation between the hours of 9 AM - 6 PM when daylight savings is in effect. • Irrigating for more than 15 minutes per day each station. • Irrigation with potable water during and within 48 hours after measurable rainfall is prohibited. • Irrigation with potable water of ornamental turf on public street medians. • Operators of hotels and motels shall provide guests with the option of choosing not to have towels and linens laundered daily. • Use of decorative fountains1 without recirculation |
≤ 10% |
No |
|
Stage 1 up to 10% |
• All the above • Expand public information campaign which includes water use surveys and promoting available rebate programs such as turf replacement, water use efficiency devices, or conversion to recycled water if available • Enforcement of permanent water use restriction Ordinance (Muni Code 12.34.020) • Decrease hydrant/line flushing (unless for public health or safety) |
10% |
No |
|
Stage 2 up to 20% |
• All the above • Increase water waste patrols and enforcement of permanent water use restriction Ordinance (Muni Code 12.34.020) • Reduce System Water Loss |
20% |
• 1st and 2nd violation: $0 - written warning • 3rd violation: $250 • 4th violation: $500 |
|
Stage 3 up to 30% |
• All the above • Irrigation of ornamental landscapes with potable water more than two days per week is prohibited. • Washing vehicles with potable water except at commercial vehicle washing facility • Implement or modify drought rate structure or surcharge • Increase frequency of meter reading |
30% |
• Fine for non-essential water uses as described in City ordinance: Not to exceed $1,000 • Cost recovery for Installation and removal of flow restricting valves: $100 |
|
Stage 4 up to 40% |
• All the above • Water allocation may be imposed • New installations of lawns. • Irrigating with potable water of golf courses except for tees and greens • Use of decorative fountains1 • New swimming pool or pond construction • Filling or refilling swimming pools |
40% |
• Fine for non-essential water uses and those listed in demand reduction action: Not to exceed $1,000 • Cost recovery for Installation and removal of flow restricting valves: $100 |
|
Stage 5 Up to 50% |
• All the above • Moratorium or net zero demand increase on new connections • New swimming pool or pond construction • Filling or refilling swimming pools • Outdoor watering December through March. • Watering turf, grass or dichondra lawns (can provide minimal water for sports playing fields) |
50% |
• Fine for non-essential water uses and those listed in demand reduction action: Not to exceed $1,000 • Cost recovery for Installation and removal of flow restricting valves: $100 |
|
Stage 6 Greater than 50% |
• All the above • Landscape irrigation with potable water of any City-owned premises or businesses where recycled water is available for connection. • Irrigation of ornamental landscapes with potable water • Watering turf, grass or dichondra lawns with potable water including sports and playing fields and tees and greens for golf courses. |
>50% |
• Fine for non-essential water uses and those listed in demand reduction action: Not to exceed $1,000 • Cost recovery for Installation and removal of flow restricting valves: $100 |
FISCAL IMPACT
There is no fiscal impact for approval of the UWMP or the WSCP. However, the City could incur costs associated with implementing various stages of a declared drought.
PUBLIC CONTACT
Public contact was made by posting the Council agenda on the City's official-notice bulletin board outside City Hall, Sunnyvale Public Library and Department of Public Safety. In addition, the agenda and report are available at Office of the City Clerk, and on the City's website. A Notice announcing this Public Hearing was also posted in the Sunnyvale Sun over a three-week period on May 21, June 4, and June 11, 2021.
ALTERNATIVES
1. Adopt two resolutions approving the 2020 Urban Water Management Plan and the Water Shortage Contingency Plan as presented, and direct staff to forward the Plans to the California State Department of Water Resources, and find that these actions are exempt from CEQA.
2. Do not adopt the two resolutions approving the 2020 Urban Water Management Plan and the Water Shortage Contingency Plan and direct staff to request an extension from the State Department of Water Resources in order for staff to revise the Plans as per Council direction.
STAFF RECOMMENDATION
Recommendation
Alternative No 1: Adopt two resolutions approving the 2020 Urban Water Management Plan and the Water Shortage Contingency Plan as presented, and direct staff to forward the Plans to the California State Department of Water Resources, and find that these actions are exempt from CEQA.
Staff
Prepared by: Mansour Nasser, Water & Sewer Division Manager
Reviewed by: Ramana Chinnakotla, Director, Environmental Services
Reviewed by: Teri Silva, Assistant City Manager
Approved by: Kent Steffens, City Manager
ATTACHMENTS
1. Resolution Adopting UWMP
2. Resolution Adopting WSCP