Growth Management-oriented Water Conservation and Reuse: Operationalizing Integrated Watershed and Water Resources Management Policy in Oregon Presented by : Jamison Cavallaro, Project Manager Cascadia Watershed Planners and Consultants

Pop Quiz (Density of ?… Caused by ? … Solved by ?) Illustration courtesy of OSU Extension Service

Answer Concentration of Water Pollution caused by ? solved by solved by Lessons learned from comprehensive land use and transportation planning in Oregon including federally-required MPOs Operationalizing IWWRM Policy in Oregon (? Need for new, improved implementing legislation ?)

Definitions, Governance, Goals/Statutes/Rules/Codes, and Analytical Framework Watershed-context of Water (Natural) Resources Watershed-context of Water (Natural) Resources All levels of government, stakeholders, and citizens All levels of government, stakeholders, and citizens Regulatory Compliance Process for Intermodal Infrastructure Regulatory Compliance Process for Intermodal Infrastructure RWPC’s (Portland-Metro) 2004 Updated RWSP RWPC’s (Portland-Metro) 2004 Updated RWSP Findings and Recommendations Institutional, technical, education/workforce training, legal and more Institutional, technical, education/workforce training, legal and more Presentation Overview Operationalizing IWWRM Policy in Oregon

…from Concepts to Definitions… Operationalizing IWWRM Policy in Oregon

…from Concepts to Definitions… Operationalizing IWWRM Policy in Oregon In-Stream Need Area Schematic Courtesy of Center for Applied Optimization, U of Florida

Decentralized and Distributed Wastewater Reuse Applications (2009 Workshop Presentation) by Victor D’Amato, PE - Tetra Tech Introduction Introduction - Distributed Systems, Sustainability, and Why Distributed Systems? Technological approaches Technological approaches - Technology options - Integrated resources management and resource-efficient design Decision-support tools Decision-support tools - Green building rating systems and sustainability - Multi-criteria decision models - Full cost accounting Applications: Case study examples Applications: Case study examples - Site, Neighborhood or Community, and Utility scale examples Ongoing Research Projects Ongoing Research Projects - WERF When to Consider Distributed Systems - EPRI Case Studies for New Water Infrastructure Paradigm Operationalizing IWWRM Policy in Oregon

Working Definitions - Prof. Neil Griggs, Colorado State U. Structural and nonstructural (comprehensive plans, zoning, other regulations and review processes, pricing, edu./outreach programs, etc.) measures to control human-made and natural water resources systems for beneficial uses. Structural and nonstructural (comprehensive plans, zoning, other regulations and review processes, pricing, edu./outreach programs, etc.) measures to control human-made and natural water resources systems for beneficial uses. - Human-made struct’l systems like reservoirs, canals, facilities, pipes, etc. - Natural water resources like snowpack, rain, wetland, river, aqif, fplain, etc. In the water-supply field, the term “integrated resources planning” has come into use to express concepts of integration in supply development. Perhaps the most comprehensive concept for water supply is “Total Water Mgmt.” In the water-supply field, the term “integrated resources planning” has come into use to express concepts of integration in supply development. Perhaps the most comprehensive concept for water supply is “Total Water Mgmt.” AWWA Research Foundation, August 1996 Exercise of stewardship of water resources for the greatest good of society and the environment. AWWA Research Foundation, August 1996 Exercise of stewardship of water resources for the greatest good of society and the environment. TWM: Supply is renewable, but limited, and should be managed on a sustainable-use basis. TWM: Supply is renewable, but limited, and should be managed on a sustainable-use basis. Functional Integration: to join purposes of water resources management (w/in a watershed-context) such as to manage supply, sanitary, and stormwater systems as well as critical upland and aquatic habitat, flora, and fauna as a single unit. Operationalizing IWWRM Policy in Oregon

1. 1.Does the State of Oregon presently have the right-sized “Good” Governance and Civil Society engagement mechanisms (and public sector-managed collaborative policy-planning and rule-making processes) for Functional Integration of Watershed-context Water Resources Management? 2. How do we evaluate our transition towards IWWRM, and measure FI? 3. Despite the present climate of uncertainty, how would we know if or when such mechanisms and processes are substantive enough to accelerate the pace of transition and integration to meet federal and state requirements? Operationalizing IWWRM Policy in Oregon Involvement from all levels of government, stakeholder groups, and citizens is key for many reasons. Should the State of Oregon adopt a Goal 20 - IWWRM? Model of Governance for FI: Community Preparedness and/or MPO Model of Governance for FI: Community Preparedness and/or MPO

Statewide Goals, Oregon Admin. Rules, Ordinances and more All most every Statewide Goal (1-19) relates to IWWRM, especially Goals 1-8 and Goal 11 All most every Statewide Goal (1-19) relates to IWWRM, especially Goals 1-8 and Goal 11 * Goal 1: Citizen Involvement * Goal 2: Land Use Planning * Goal 3-8: Natural Res. Goal 11: Public Facilities and Services (OAR ) Goal 11: Public Facilities and Services (OAR ) “To plan and develop a timely, orderly, and efficient arrangement of public facilities and services to serve as a framework for urban and rural development.” “To plan and develop a timely, orderly, and efficient arrangement of public facilities and services to serve as a framework for urban and rural development.” * Goal 11 Public Facilities and Services Guidelines… A. Planning B. Implementation (A.7) “Plans providing for public facilities and services should consider as a major determinant the carrying capacity of the air, land, and water resources of the planning area. The land conservation and development action provided for by such plans should not exceed the carrying capacity of such resources.” (B.5) “Additional methods and devises for achieving desired types and levels of public facilities and services should include but not be limited to the following: 1) tax incentives and disincentives; 2) land-use controls and ordinances; 3) multiple use and joint development practices; 4) fee and less-than-fee acquisition techniques; and 5) enforcement of local health and safety codes.” Operationalizing IWWRM Policy in Oregon

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

(continued) Statewide Goals, OARs, Ordinances, and more OAR Water Management and Conservation Plans OAR Water Management and Conservation Plans (6) Regional cooperation will improve water management and help to facilitate implementation of conservation measures. Water suppliers required under OAR to to prepare WMCPs, and any other suppliers or users, may jointly submit a single plan that addresses the suppliers’ conservation opportunities and water development needs. Operationalizing IWWRM Policy in Oregon Regarding the need to assess Functional Integration and achieve regulatory compliance, the question arises as to how best to evaluate and measure the success(es) of any IWWRM Policy Operationalization and Implementation Strategies…Goal 20 or not. With or without future federal, state, regional, and local MPO legislation for IWWRM (akin to ISTEA), it is still crucial to engage in a review of established regulatory framework(s) for growth management-oriented intermodal transportation infrastructure goal-setting, rule-making, planning processes, management, maintenance, and enforcement.

2004 Regional Water Providers’ Consortium Updated RWSP Targets from Portland Metro Area water purveyors for infrastructure connectivity, demand management, and new albeit conventional supplies. Operationalizing IWWRM Policy in Oregon

(continued) 2004 Consortium’s Updated RWSP The three questions this thesis paper from 2004 addressed: 1.Is it possible for the region to achieve a robust water savings target of 100 million gallons a day (mgd) and 225 mgd by 2025 and 2050, respectively? 2.Is efficacy of water reclamation and conservation strategies reasonable? 3.Does Oregon and the Portland metropolitan region have the market and non-market planning mechanisms to operationalize and implement watershed-context integrated water resource management policies (IWRM)? Operationalizing IWWRM Policy in Oregon

(continued) 2004 Consortium’s Updated RWSP Consortium’s planning efforts indicated that Multnomah, Washington and Clackamas counties needed to more than double 2004 installed capacity. The Target: About 300 Million Gallons a Day (mgd) more than current installed capacity (approx. 500 mgd in 2004) on peak days by the year The projects under consideration to accommodate ’s anticipated demand could cost over one billion in 2004 dollars. Operationalizing IWWRM Policy in Oregon

Pre-1996 Regional Water Supply Plan targets for 2020 and 2050 NOTE: Demand models from the early 1990’s for regional peak- season conservation goals targeted regional gpcd at roughly 237 by 2020 and 238 by The City of Portland, annual gallons per capita daily (gpcd) water use now stands at 125, down from 142 gpcd in 1994 (Rojas-Burke, 2004). What caused this reduction? Which Portland residential and non-residential populations consume above or below the median of 126 gpcd? In terms of gpcd reductions, how much will residential and non-residential customers outside of Portland achieve by year 2020 and 2050? Operationalizing IWWRM Policy in Oregon

(continued) Pre-1996 Regional Water Supply Plan targets Operationalizing IWWRM Policy in Oregon YearPeak Season Targets in gallons per capita daily (gpcd) Peak Season Targets in million gallons daily (mgd) Original Regional Water Savings Targets for Early 1990’s Demand Models

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

Consortium’s 2004 Regional Water Supply Plan Update Operationalizing IWWRM Policy in Oregon SubregionAnnual Conservation Savings (mg) Peak-Season Conservation Savings (mgd) East Clackamas JWC (Westside) TVWD (Westside) Other TOTAL Projected Annual and Peak-Season Conservation in Year 2025

(continued) Consortium’s 2004 RWSP Update Operationalizing IWWRM Policy in Oregon Maximum Annual and Peak-Season Conservation in Year 2025 SubregionAnnual Conservation Savings (mg) Peak-Season Conservation Savings (mgd) East Clackamas JWC (Westside) TVWD (Westside) Other TOTAL

(continued) Consortium’s 2004 RWSP Update Operationalizing IWWRM Policy in Oregon The last two tables identify the next 14 years of results expected from investments in regional demand management mechanisms. The investments range from $23 to 65 million and offer potable water consumption reductions from 18.9 and 34.5 mgd. The target of 34.5 mgd for 2025 did not appear to be robust enough to delay or defer new water source development projects for post-2017 needs (but the Great Recession did). Recall: Why did annual gallons per capita daily (gpcd) water use within the City of Portland drop from 142 gpcd in 1994 to 125 by 2004?

Performance-based Permitting and Growth Management Operationalizing IWWRM Policy in Oregon Federal and State actions ensured potable water use reductions in the early 1990's with plumbing code amendments that required low flow plumbing fixtures. Lorna Stickel, Project Manager at the Consortium and Water Resources Planning Manager at the Portland Water Bureau, stated:... Modernization in the plumbing code was a major contributing factor for the water savings that has occurred in the Portland area since the early 1990's. Another factor that influenced water demands was the enactment of land-use policies that reduced lots sizes and required more multi-family and mixed use zoning within the Portland metro region. If executed properly, growth management can encourage water conservation-oriented development patterns through comprehensive planning and zoning codes that encourage more dense development patterns. Using design review codes that encourage native plantings and water conserving landscaping will result in less outdoor watering per acre inside (Metro’s) Urban Growth Boundary. (Stickel, 2004).

…modernizing the building code is the tip of the iceberg! Operationalizing IWWRM Policy in Oregon

Due, in part, to the Great Recession a reflection on LCP is key Operationalizing IWWRM Policy in Oregon Potential Demand and Supply-side Options for 2017/2025/2050 Horizons TypeProjectExpected Supply (mgd) PotableDam Raise for Bull Run Dam One100 PotableDam Raise for Bull Run Dam Two100 PotableDevelop Bull Run Dam Three270 Non-PotableNewberg/Willamette Pipeline120 PotableDam Raise for Scoggins Dam100 PotableLocal Supplies and Treatment60+ Demand Mgmt.“Natural” and New Conservation126 Demand Mgmt, Potable, and Non-Potable Robust Water Reclamation (including alternative water supplies) and Conservation 225+

Findings and Recommendations Least cost planning (LCP) and/or integrated resource methods have been utilized to assess the feasibility of transportation and energy supply and demand management options. The Oregon Department of Transportation, desiring an efficient transportation system policy framework, were advised by LCP analysts that options such as demand management systems, pricing systems, and land- use systems should be evaluated along with road construction, transit construction, and other supply oriented management systems (Rufolo, Bronfman and Strathman, 1995). The comprehensive nature of the LCP approach offers a tested analytical framework that future water system analysts can attempt to emulate. More central to the thesis of this paper, LCP validates the very idea of evaluating alternatives to conventional water supply construction projects and the potential efficacy of water reclamation and conservation as integral components of functionally-integrated watershed and water resources management in Oregon, throughout the Cascadia Watershed, the West, and across North America…(Summer AWRA Conference in Utah) Operationalizing IWWRM Policy in Oregon

Findings and Recommendations 1.Is it possible for the region to achieve a robust water savings target of 100 million gallons a day (mgd) and 225 mgd by 2025 and 2050, respectively? YES. 2.Is efficacy of water reclamation and conservation strategies reasonable? YES. 3.Does Oregon and the Portland metropolitan region have the market and non-market planning mechanisms to operationalize and implement watershed-context integrated water resource management policies? It depends. Operationalizing IWWRM Policy in Oregon

Findings and Recommendations Operationalizing IWWRM Policy in Oregon Quality/Type of Source Service Irvine Water Dist. In California (2002) ALL Water Dist. In Florida (2002) Portland area In Oregon (2004) Potable478, Reclaimed Wastewater for Non- Potable N/A <1 Reclaimed Urban Rainwater for Potable 21585<1 Other Non-Potable 8N/A40 TOTAL768, % of System from Reclaimed Water 28%7%<1% Percentage of Reclaimed Water Supplies as a System Diversity Baseline (in Million Gallons a Day)

Previous table indicates that multi-supply source/multi- sanitation systems in Florida are almost one order of magnitude more diversified than the Portland metropolitan area’s current system. The State of Oregon could move forward a watershed-context directive with complementary rule-making to operationalize and implement IWWRM to achieve water supply system diversity of 15% by The MPO regions in Oregon may need to target 15-20% by 2025 to facilitate the market and non-market forces that can counteract the negative externalities of conventional, bifurcated water supply, sanitary, stormwater, and natural resource management and conservation planning frameworks. Findings and Recommendations Operationalizing IWWRM Policy in Oregon

Rural to Urban Land Conversion (New Construction) Source: D’Amato; Illustration: Courtesy of Ardent, Conservation Design for Subdivisions Operationalizing IWWRM Policy in Oregon

Figure 1. Entrance inaccessible during low flows (pictured at high flow) Figure 2. High turbulence in fish ladder makes passage difficult Aging Water Supply Diversion Dam (Retrofit) Operationalizing IWWRM Policy in Oregon

(continued) Intake work….but what about fish habitat? Figure 3. Working to improve intake Operationalizing IWWRM Policy in Oregon

(continued) Is it difficult for a community to go IWWRM? Figure 4. Close-up of intake improvement Operationalizing IWWRM Policy in Oregon

There’s plenty of work to be done throughout Oregon. Institutional, Technical, Education/Workforce Training, and Legal Operationalizing IWWRM Policy in Oregon