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HomeMy WebLinkAboutItem 8.1 StatusDroughtPropWtrRationg (2) · , CITY OF DUBLIN \ AGENDA STATEMENT City Council Meeting Date: March 25, 1991 SUBJECT: EXHIBITS ATTACHED: RECOMMENDATION: ~/6) FINANCIAL STATEMENT: Status Report on Drought and Proposed Water Rationing (Report by Public Works Director Lee Thompson) 1) Potential Impacts and Solutions for Parks 2) Potential Impacts and Solutions for Streets 3) Potential Impacts and Solutions for Buildings 1) Direct Staff to take measures to address reductions requested in voluntary Stage 1 rationing (i.e., adjust water pressure, install water conservation signs, landscape irrigation modifications, and additional aeration). Review and provide input regarding proposed Staff comments to the Dublin San R~mon Services District Board. Direct Staff to investigate the possibility of postponing the landscaping on San Ramon Road Phase IV. Consider deferring the Dublin High School Baseball and Athletic Fìeld project. Direct Planning and Building Inspection Staffs to pursue changes to private development landscaping requirements and prepare a report to the City Council regarding these issues. If it appears that wells are feasible and necessary, authorize Staff to prepare plans and specifications for development of wells. Review priority list for total irrigation shutdown and provide direction to Staff. - Direct Staff to continue monitoring drought restrictions and to research solutions, and to report back to the City Council as changes occur. 2) 3) 4) 5) 7) 8) The cost of the initial solutions will be offset by reduced water bills. If and when additional funds are needed, Staff will return to the City Council with a detailed report and request a transfer of funds OR include a request for funding as part of the preliminary budget for FY1991-92. DESCRIPTION: Until this year, the City of Dublin has not experienced any mandatory rationing of water from its local supplier, the Dublin San Ramon Services District (DSRSD). DSRSD water is supplied, for the most part, by the State Water Project through the Alameda County Flood Control and Water Conservation District (Zone 7). The State has recently announced that it will cut off all water allocations to Zone 7 (after the 10% Zone 7 has already received), requiring that all domestic water be then pumped from existing Zone 7 wells and augmented by available water in the Del Valle reservoir. There is approximately five to ten years of water reserve in the ground; however, the ability to deliver it is based on the capacity of the well pumping systems. DSRSD Staff has informed City Staff that mandatory rationing will likely occur this summer, and that the City may experience a 75% reduction in irrigation water because of Zone 7's pumping limitations. This mandate could have a severe impact on City-owned landscaping, parks, and recreational facilities. This report discusses the impact, options to lessen the impact, and costs involved if such a rationing program is imposed by the District. The costs contained within this report are initial estimates, and actual costs may vary significantly as more information is received from DSRSD. The savings from reduced water usage may offset DSRSD's recent large increase in water rates, as well as costs to lessen the impact of the cutback. ---------------------------------------------------------------------------- ITEM NO&!- COPIES TO:d'k /OOO-Ç3G POTENTIAL DSRSD RESTRICTIONS DSRSD has scheduled a public hearing for March 26, 1991, to consider a water rationing plan. Staff has met with DSRSD representatives to discuss their proposed cutbacks. DSRSD Staff is proposing a phased program which allows them to implement staged reductions depending on the availability of water. The District is proposing to establish monthly limits of a specified number of gallons in order to reduce consumption. The limit for a particular location will be established based upon the size of the water meter (i.e., 1 inch vs. 2 inch meter). The proposed stages are as follows: Stage 1: Voluntary 25% Reduction: Buildings 15%; Irrigation 50% Stage 2: Mandatory 40% Reduction: Buildings 25%; Irrigation 75% Stage 3: Mandatory 50% Reduction: Buildings 31%; Irrigation 92% Stage 4: Mandatory Emergency curtailment: Stage 3 plus selected meter shutdowns to achieve minimum fire flow pressure. As shown in the proposed rationing program, a greater reduction is required from irrigation sources than from building sources. It is believed that irrigation uses are more easily reduced and typically utilize greater amounts of water. If the allotments are exceeded, a sliding scale of increased water charges will be imposed which can increase the cost per unit by up to 600%. The current staff proposal which will be presented to the DSRSD Board of Directors would allow entities with more than one meter to pool their allocation. This is extremely important in addressing the reductions at public facilities. It will allow the City the flexibility to potentially plan for some facilities to go without water while applying that allocation to a facility of higher priority. These types of decisions will depend on the severity of cutbacks implemented by DSRSD. DSRSD Staff will recommend that Stage 1 drought reductions begin April 1st as a voluntary program and that mandatory Stage 2 reductions begin May 1st and end September 30, 1991. Stage 1 would not include any penalty or credits, and the only incentive would be the moral issue and to save water costs. The time periods would be subject to change due to continuing rainfall in California; however, for purposes of examining the City's situation with respect to current facilities and Capital Improvement Projects, it is assumed that the City will experience a 75% reduction in irrigation water during the period of May 1 to September 30, 1991. CITY STAFF COMMENTS ON DSRSD PROPOSAL Staff recognizes the need to conserve water, and this issue is considered in the design and installation of capital projects as well as in a regular irrigation maintenance program. However, it is important that the DSRSD Board of Directors be aware of concerns with the proposal, which will be considered on Tuesday, March 26, 1991. First, it is important that customers with multiple meters be allowed to pool their allocations. As discussed, this would allow the City flexibility in applying our allocation to facilities with the highest priority. The second area of concern is with the assumed reductions vs. the gallons allotted per meter. Late in the week of March 18th, DSRSD provided usage data for City facilities during 1990. Staff has conducted a preliminary analysis of the figures, and it appears that the imposed reductions will be much more severe for City facilities than assumed by DSRSD. For example, Kolb Park has a two-inch water meter which would result in an allocation of 2,280 gallons per day during Stage 2. According to DSRSD records, the 1990 use at this location averaged about 24,000 gallons per day during the period of June 1, 1990, to October 10, 1990. Therefore, if Stage 2 were implemented, this would result in a 91% reduction at this facility. The DSRSD projections had assumed that this stage would result in a 75% reduction. Staff recommends that the City Council authorize drafting a letter to be presented at the DSRSD hearing on March 26th. The letter will encourage allowing the pooling of allocations for customers with multiple meters and recommend that DSRSD reconsider their allocation per meter based on our -2- preliminary review of the data. As shown above, it appears that if the current limits are imposed, reductions on City facilities will substantially exceed the projections presented by DSRSD Staff. The City Council may wish to identify other issues or concerns which would be appropriate to present at the public hearing. Also, the City Council may wish to consider whether an elected official should attend the hearing. ANALYSIS OF RATIONING IMPACTS The following analysis is based upon the percentage which is stated as a goal by DSRSD. If actual gallons allowed results in a greater reduction, the impacts will be more significant than described in this analysis. Stage 1 Impacts (Voluntary) Buildings: The effects of all stages on City buildings will be minimal. Building Maintenance Staff will reduce the pressure on wash basins, adjust toilet flushing mechanisms, and install water conservation signs. Compared to the irrigation water usage, the building water usage is negligible. The only additional cost involved would be about $1,000 for the purchase·of signage and flow restrictors (for areas where valves cannot be adjusted). Staff anticipates that the pool and pool house would remain open during all stages by using flow restrictors on showers, toilet tank displacement bags, and signing. Staff has already shut off the City's fountains; however, the pumps must be run for a short time each day in order to avoid water contamination, to keep the equipment functional, and to save future repair costs. Irrigation: In parks, median landscaping, and assessment district landscaping, the proposed irrigation cutbacks to 50% of normal water will, in general, cause stress to the City's landscapes. The turf in both City parks and street landscaping will have poor color and an increased likelihood of insect damage, disease, and damage from normal use. However, with additional turf aeration, reduced nitrogen fertilization, and increased mowing heights, these turf areas will remain usable. The cost for two additional aerations may range from $15,000 to $27,000. Mulching of existing tree wells in both parks and streets, at a cost of about $5,000, would also aid in maintaining soil moisture. Landscaping such as some assessment district slopes and median ground covers, already damaged by frost this past winter, will have trouble surviving on the 50% reduction. Staff proposes to change the irrigation systems in the median ground cover beds (Dublin Boulevard, Amador Valley Boulevard, and some parts of Village Parkway) to drip systems and water only shrubs and trees. Many of the ground covers in these medians are significantly damaged by frost and would require an unusually large amount of water to recover. Staff recommends changing these systems to drip irrigation at a cost of about $2,500 to $3,500 and using the water saved to add more irrigation water to the Stagecoach Road slopes where an established ground cover is required to maintain slope stability. The use of a water truck with recycled water could provide additional water where needed and where accessible to the truck. The cost for trucked water is generally $60.00 per hour. Capital Improvement Projects: Staff recommends that the Dublin High School Baseball and Athletic Fields project be delayed. The establishment of turf during the cutbacks would likely use more water than the School District can guarantee to provide. Because of this, the success of this project would be at risk, and the project should be delayed. This recommendation is the subject of a separate item on this agenda. Staff recommends pursuing the postponement of San Ramon Road Phase IV landscaping until after the restrictions are lifted. Some additional cost may be incurred if the contractor is requested to come back at a later date to install the plants. Additional information will need to be obtained on the impact to the contract and grant funding which is already in place. -3- Stage 2 Impacts (Mandatory) Buildings: This stage proposes a mandatory 25% reduction in water usage for buildings. It is Staff's determination that measures used in Stage 1 will still be sufficient to meet the Stage 2 reduction. Parks, Medians, and Assessment District Landscaping: Stage 2 reductions will not only turn all turf areas brown but may impact the normal use of some facilities. The Dublin Sports Grounds and the Dublin High School Football Field may have extensive damage to turf because of organized athletic use. The extent of water available to the football field is solely at the discretion of Dublin Unified School District. Areas of turf already under stress from a 75% reduction in water may not survive if exposed to athletic use. The fields may, in fact, become hazardous due to loss of grass causing tripping hazards during Stage 2 and possible extending into the fall soccer seasons depending on the extent of restrictions. One solution being explored is the installation of wells at the Dublin Sports Grounds and at Shannon Park. The feasibility of wells is governed by the quantity and quality of available ground water, the longevity of wells in the area, and the cost. Drilling a well for this summer season would require beginning the design work immediately and approving a waiver of the formal bidding procedure to shorten the process. DSRSD Staff is researching their old well files to provide the City with records of wells in the vicinity of these two parks. A preliminary well development cost estimate is $45,000 for a 500-foot-deep well. The net savings from water charges for the Dublin Sports Grounds alone would be about $30,000 per year. The use of a well at the Dublin Sports Grounds would allow for increased usage at other park locations. The long-term implications of reliance on wells would need to be more fully evaluated prior to pursuing this option further. A more long-term solution that is being researched for Dublin Sports Grounds water is the re-use of waste water from the treatment plant in Pleasanton. Additional treatment would need to be performed on this waste water to make it safe for personal contact. The prelminary cost of this new treatment facility would be $300,000; however, because of the lead time for installation, the City would not be able to use it this summer season. Additionally, Stage 2 reductions may force the City to let certain lawn areas go dormant and just water enough to keep the root systems of turf areas alive. The cost to reseed an acre of turf is approximately $2,500 to $3,500 with a slit seed operation. This would allow for a quicker recovery after restrictions are lifted. In turn, the water saved from allowing a facility to go dormant could be used to augment the water available to higher priority facilities. Stage 3 and 4 Impacts (Mandatory) Stage 3 and 4 impacts are combined because the reductions are the same; however, Stage 4 allows DSRSD to temporarily shut down meters to maintain adequate pressure on their system for fire protection. Buildings: In addition to Stage 1 and 2 impacts and solutions, some maintenance activities requiring the use of water may have to be deferred or reduced to assure compliance. These activities may include window washing and mopping, but not to the extent that public safety is compromised. If a Stage 4 shutdown occurs, facilities that operate kitchens or restrooms where public health is involved may have to shut down or severely limit normal activities. Parks, Medians, and Assessment District Landscapes: The proposed DSRSD Stage 3 reduction is approximately 92% for irrigation meters. Stage 4 may involve a complete temporary shutdown. This will have a devastating effect on all existing landscapes. In addition to measures that could be implemented in Stage 2, certain facilities or types of landscapes would have to be shut down in order to save other facilities. This may greatly impact soil erosion control in the assessment districts and some parks, as well as the ability to provide safe and usable athletic fields and parks. -4- Priorities for Stage 3 and 4 Reductions: A suggested priority list for total water shutdown and the estimated costs of plant replacement for each area is provided on Page 3 of Exhibit 1. Staff recommends that the City Council review the priority list and provide input. PRIVATE DEVELOPMENT MEASURES THAT THE CITY CAN IMPLEMENT The Planning Department, in conjunction with the City's Building Department, has suggested some potential water conservation conditions and measures for private development projects that come under City review. Implementation of these measures would require future revisions to the Zoning Ordinance and/or internal policies. 1) Require developers to install water-conserving irrigation systems. 2) Require developers to install drought-tolerant, water-conserving plants and landscape features. 3) Allow developers with approved landscaping plans to delay installation of plants during a drought if the developer provides adequate security to guarantee installation of the plants after the drought. 4) Require water-conserving devices in new developments. 5) Require large users to install parallel water lines, where practical, to allow for use of reclaimed water. This is a side issue to the restrictions on City facilities but one that needs to be addressed to complete the City-wide policy on water usage. Staff recommends that additional Staff research be done on this phase of the policy and that a report be provided to the City Council at a future meeting. SUMMARY As additional information is obtained from DSRSD and others regarding restrictions, costs of wells, and other implementation measures, the nature of impacts will become more evident. Costs included in this report are initial estimates and may be subject to significant change. The City Council should review this report and make comments and/or provide direction. Staff will have additional information from DSRSD following its March 26 Board meeting when the mandatory reduction plan is proposed to be finalized. Staff is reviewing an account analysis from DSRSD that will assist in determining the impact on our current utility budget, as well as providing an historical use of each facility. Final recommendations may hinge upon the content of that analysis. The intent of this report is to inform the City Council and the public on the very recent and possibly significant events that are occurring as a result of the drought, to preliminarily outline the City's alternatives as the drought shapes the near future of Dublin's public landscaping, and to begin the process of developing a water policy as directed by the City Council in the recently-approved Goals and Objectives. Staff recommends that the City Council direct Staff to continue to monitor the restrictions and explore solutions to reduce the impacts of water cutbacks. It is further recommended that Staff return to the City Council with additional information as it becomes available. -5- POTENTIAL IMPACTS AND SOLUTIONS FOR PARKS LOCATION TURF ACREAGE BEDDING ACREAGE Stagecoach Park Kolb Park Dolan Park Alamo Creek Park Dublin Sports Grounds Mape Park Shannon Park Swim Center Civic Center Dublin High School Football Field .41 2.97 2.90 4.62 17.47 2.79 3.47 2.20 2.71 3.06 .22 .46 1.95 .50 1.00 .21 .48 .04 1.27 .04 STAGE 1 (50% IRRIGATION REDUCTION) IMPACT SOLUTION POTENTIAL COST Turf will turn brown - Increase mowing height. No cost Reduce nitrogen in fertilizer. No cost Aerate turf in April & June, in addition to routine aeration in August. $300/acre/time Newly planted material may die - Defer planting any new material until a later date Frost-damaged material may die Use recycled water trucked in $60/hour/truck _ Convert irrigation systems $2,000 to $4,000 in bedding areas where ground cover is already weak to drip systems to protect shrubs and trees; bank the water saved to use at athletic field turfs (DSG and High School). - Deep water trees more frequently. Impacts of Stage 1 reductions will be greatest on the athletic fields (Dublin Sports Grounds and the Dublin High School Stadium). Consideration should be given to limiting the use of the fields for practice during Stage 1 to protect the turf areas from extensive damage. Bedding areas most affected are Dolan Park and Shannon Park. Dolan has a large acreage of ground cover which is recovering from frost damage. Shannon Park was recently planted. EXHIBIT 1 PARKS PAGE 1 STAGE 2 (67% TO 75% IRRIGATION REDUCTION) IMPACTS SOLUTIONS POTENTIAL COSTS Turf will be brown, root systems will be damaged. Allow turf to go dormant at all non-athletic use areas and water to protect roots. *Possible reseed- ing at $2,500 to $3,500/acre. Install wells at DSG and Shannon Park ** $50,000 to $60,000 per well including piping Newly planted material will die - Install well at Shannon $50,000 to $60,000 including piping Existing groundcovers will probably die Increase use of trucked recycled water where possible. $60/hour/truck Existing shrubs and trees probably will show stress Deep water into root zone; use trucked recycled water $60/hour/truck * Costs are for re-seeding the entire area of turf. When a lawn is allowed to go dormant, the idea is to use the available 25% of water to protect the root system of the turf areas. It is likely that the turf would recover anywhere from 75% to 100% in the fall when the restrictions are lifted. ** The City would not be billed for the use of well water; consequently, the annual cost of water used at the Sports Grounds and Shannon Park could be subtracted from the City's annual water cost, potentially saving approximately $40,000 per year, or allowing the City to use the water saved to provide additional irrigation water to other facilities during Stage 3 or Stage 4 restrictions. For Stage 2 reductions, if a well is not installed at the Dublin Sports Grounds, the result will be severe damage to the turf due to organized athletic use. Conditions and liabilities may warrant consideration of suspending organized use of DSG as well as the Dublin High School Stadium to prevent injuries due to the condition of the fields. STAGE 3 (92% IRRIGATION REDUCTION) All Stage 2 impacts apply; however, the extent of damage will be much greater. At this stage, serious consideration should be given to closing turf and bedding areas to the general public to minimize damage. Any watering that could be done would be accomplished solely to protect the root zones of various trees and turf areas. This minimal watering may be the difference in only having to re-seed a park in the fall or having to completely renovate a turf area. EXHIBIT 1 PARKS PAGE 2 STAGE 4 (EMERGENCY CURTAILMENT) All Stage 3 impacts would occur; however, if curtailments are extended for periods of time, the City could expect to have to renovate some landscapes. Portions of parks would have to be closed for safety and liability reasons. PRIORITIES FOR FACILITY SHUTDOWN (STAGE 3 AND 4) Following is a suggested priority for total water shutdown at park facilities, ranked from first priority to last priority: COST OF POTENTIAL ESTIMATED LOCATION RENOVATION AREA REPLACEMENT COST 1) Park Groundcovers .20 .30/SF 3.00 acres $26,000 to $40,000 2) Park Turf .30 .40/SF a) Civic Center 2.71 acres $35,000 to $47,000 b) Mape Park 2.79 acres $35,000 to $47,000 c) Stagecoach Park .41 acre $ 5,000 to $ 7,200 d) Kolb Park 2.97 acres $38,000 to $50,000 e) Dolan Park 2.90 acres $38,000 to $50,000 f) Dublin Swim Ctr. 2.20 acres $28,000 to $38,000 g) Alamo Creek Park 4.62 acres $60,000 to $80,000 h) Shannon Park 3.47 acres $45,000 to $60,000 i) Dublin Sports Grounds 17.47 acres $228,000 to $304,000 Costs for renovating turf area are reflective of allowing the entire turf area to go dry and having to renovate soil. EXHIBIT 1 PARKS PAGE 3 POTENTIAL IMPACTS AND SOLUTIONS FOR MAJOR STREET LANDSCAPING AND ASSESSMENT DISTRICTS LOCATION TURF ACREAGE BEDDING ACREAGE Major streets (Dublin 1.88 Boulevard, San Ramon Road, Amador Valley Blvd., Amador Plaza Road, Regional Street) 5.11 Stagecoach Assessment District 5.38 Dougherty Assessment District 1.24 2.39 DESCRIPTION Major Streets: The landscaping on the major streets includes median turf and bedding, sidewalk street trees, and sidewalk bedding areas. Stagecoach Assessment District: This maintenance assessment district includes landscaping along Stagecoach Road and the "interior slopes" on Agate Way and Coral Way. The cost of maintenance including utilities, is paid by the property owners of the Dublin Hills Estates development and the Amador Lakes Apartments. Dougherty (Villages) Assessment District: This maintenance assessment district includes street-side and median landscaping along Dougherty Road (Amador Valley to Fall Creek), Amador Valley Boulevard (Dougherty to Wildwood), Wildwood Road, Fall Creek Road, and Willow Creek Drive. The cost of maintenance is paid by the property owners within the Villages at Willow Creek development. STAGE 1 (50% IRRIGATION REDUCTION) IMPACTS SOLUTION POTENTIAL COST Turf will be brown Aerate turf in April & June in addition to routine aeration in August. $300/acre/time Increase mowing height. No cost Reduce nitrogen in fertilizer No cost Existing groundcovers, shrubs, trees damaged by frost may die Convert irrigation systems drip wherever possible to provide more water to shrubs and trees. $2,500 to $3,500 Use trucked recycled water. $60/hour/truck EXHIBIT 2 STREET LANDSCAPING, PAGE 1 IMPACTS SOLUTION POTENTIAL COST Frost damaged material, cont'd Additional deep watering for trees. No cost Install additional mulch to protect trees. $5,000 Newly planted material may die Use trucked recycled water. $60/hour/truck Defer planting. No cost The most significant Stage 1 impact will be in trying to recover the damaged gazania in the Stagecoach Assessment District. These sloped areas were heavily damaged by frost. Sufficient water could probably be saved by converting as many of the major street medians as possible to drip systems and using that water for the Stagecoach Assessment District; however, the ground cover in the converted street medians would die as a result. Most of these ground covers on Dublin Boulevard, Amador Valley Boulevard, and Village Parkway, were too significantly damaged by frost to waste water trying to save them now. STAGE 2 (67% TO 75% REDUCTION) IMPACT SOLUTION POTENTIAL COST Turf will be brown and root systems will be damaged. Allow turf to go dormant. Water only to protect roots. Possible re- seeding at $2,500 to $3,500/acre. All existing ground- covers may die. Increase use of trucked recycled water. $60/hour/truck Estimated use is 12 hours/week or $720/week. Existing trees and shrubs weakened by frost or other causes may die. Increase use of trucked recycled water (Same as above) Impacts will severely affect all locations. dead from Stage I restrictions will probably All groundcovers not be damaged or die in damaged or Stage 2. Costs for reseeding are for an entire area of turf. When a lawn is allowed to go dormant, the idea is to use the available 25% of water to protect the root system of the turf areas. It is likely that the turf would recover anywhere from 75% to 100% in the fall when the restrictions are lifted. STAGE 3 (92% IRRIGATION REDUCTION) All Stage greater. estimated 2 impacts apply; however, the extent of Turf and ground cover areas will likely cost of renovation is as follows: damage will be much need to be renovated. The EXHIBIT 2 STREET LANDSCAPING, PAGE 2 COST OF POTENTIAL ESTIMATED LOCATION RENOVATION AREA REPLACEMENT COST 1) Median Groundcover $ .20 .30/SF 3.00 acres $26,000 to $40,000 2) Median Turf .30 .40/SF 1. 88 acres $25,000 to $32,000 3) Assess. Dist. Turf .30 .40/SF 1. 24 acres $16,000 to $22,000 4) Assess. Dist. Ground- cover .20 .30/SF 2.39 acres $21,000 to $31,000 STAGE 4 (92% + POSSIBLE SHUTDOWN) Stage 3 impacts apply. Certain areas may need to be closed to the general public for safety and liability reasons such as fire, erosion control, and tripping hazards. EXHIBIT 2 STREET LANDSCAPING, PAGE 3 POTENTIAL IMPACTS AND SOLUTIONS FOR BUILDINGS CITY BUILDINGS Civic Center Shannon Community Center Dublin Senior Center Dublin Swim Center/Bathhouse Corporation Yard STAGE 1 15% REDUCTION STAGE 2 = 25% REDUCTION STAGE 3 31% REDUCTION STAGE 4 31% REDUCTION AND POSSIBLE TEMPORARY SHUTDOWNS Stage 1 and 2 reductions can be met by re-adjusting all sinks, toilets, etc., to minimum amounts of flow yet still maintain operation. The cost would be about $1,000 to purchase low flow restrictors for locations where volumes cannot be adjusted, and to purchase signage to promote water conservation measures. As Stage 3 and 4 restrictions occur, it may become necessary to defer certain maintenance and janitorial functions or reduce the frequency of activities such as window washing and mopping. If water is shut down during Stage 4 for more than a few hours, some buildings may have to close for health reasons. EXHIBIT 3 BUILDINGS, PAGE 1