HomeMy WebLinkAbout2008-06-03 - Public Information-Technology Committee Meeting Agenda Packet
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YORBA LINDA WATER DISTRICT
PUBLIC INFORMATION - TECHNOLOGY COMMITTEE MEETING
Tuesday, June 3, 2008, 4:00 p.m.
1717 E. Miraloma Avenue, Placentia, CA 92870 - Tel: (714) 701-3020
AGENDA
COMMITTEE: STAFF:.
Director Ric Collett, Chair Michael A. Payne, General Manager
Director Michael J. Beverage Pat Grady, Information Technology Director
Alternate: Paul R. Armstrong Cindy Mejia, Management Analyst
INTRODUCTION OF VISITORS AND PUBLIC COMMENTS:
Any individual wishing to address the committee is requested to identify themselves and state the matter on
which they wish to comment. If the matter is on this agenda, the committee Chair will recognize the
individual for their comment when the item is considered. No action will be taken on matters not listed on
this agenda. Comments are limited to matters of public interest and matters within the jurisdiction of the
Water District. Comments are limited to five minutes.
ACTION ITEMS:
This portion of the agenda is for items where staff presentations and committee discussions are needed
prior to formal committee actions.
1. Consider Customer Survey
Recommendation: That the Public-Information-Technology Committee
approve and recommend to the Board of Directors approval of a
customer survey.
DISCUSSION ITEMS:
This portion of the agenda is for matters such as technical presentations, drafts of proposed policies, or
similar items for which staff is seeking the advice and counsel of the Committee Members. This portion of
the agenda may also include items for information only.
2. Re-Branding
a. New Logo PMS Color
b. Layout for Decals, Uniforms, etc.
3. Building Dedication
a. Gift
b. Invitation List
C. Event Program
4. Orange County Grand Jury Report
5. Lobby Furniture Design
a. Video
b. Computer Kiosk
6. GIS update
ADJOURNMENT:
The next meeting of the Public Information Committee is scheduled for June 11,
2008 at 4:00 p.m.
Accommodations for the Disabled;
Any person may make a request for a disability-related modification or accommodation needed
for that person to be able to participate in the public meeting by telephoning Michael A. Payne,
District Secretary, at 714.701.3020 or writing to Yorba Linda Water District, P.O. Box 309, Yorba
Linda, CA 92885-0309. Requests must specify the nature of the disability and the type of
accommodation requested. A telephone number or other contact information should be included
so the District staff may discuss appropriate arrangements. Persons requesting a disability-
related accommodation should make the request with adequate time before the meeting for the
District to provide the requested accommodation.
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ITEM NO. r
i
• AGENDA REPORT
Board Meeting Date: June 3, 2008
To: Public Information-Technology Committee
From: Michael A. Payne, General Manager
Staff Contact: Cindy Mejia, Management Analyst
Reviewed by General Counsel: Yes Budgeted: N/A Total Budget: $ 25,500
Funding Source: Water Operating Fund
CEQA Account No: 124580 Job No:
Compliance: N/A Estimated Costs: $ 25,500 Dept: Admin
Subject: 2008 Customer Survey
SUMMARY:
California is in the midst of a water crisis, with eight of the past ten years meeting drought-
level conditions. Storage in the Colorado River system has recently dropped to fifty-
percent of its total capacity and the California Aqueduct has been restricted by up to
thirty-five percent. The 2007-2008 Orange County Grand Jury has recently released a
.report in response to this growing problem, stating that the best and most immediate
solution is further water conservation. To that end, it is advisable that the Yorba Linda
Water District discover current awareness of this critical situation within its customer base
with a customer survey.
DISCUSSION:
The Yorba Linda Water District will work with Laer Pearce & Associates and Lawrence
Research to conduct a statistically significant telephone poll of a cross-section of approximately
350 District customers. The goal of the survey will be to determine awareness and perception of
the District, perceptions of its current communications, attitudes towards water and
conservation, and responses towards the new Yorba Linda Water District branding.
As an additional option, Laer Pearce & Associates will conduct an ascertainment of selected
regional water industry leaders to gain a more thorough understanding of how the Yorba Linda
Water District is viewed among its peers in its response to the looming water crisis. Staff will
work with Laer Pearce & Associates to prepare a short list of questions and a targeted list of
participants, with whom to conduct the ascertainment interviews. Additionally, a report with
findings and recommendations on how to better position the District as an industry leader will be
presented to Staff.
PRIOR RELEVANT BOARD ACTION(S):
The Board of Directors has approved a customer survey in 1993 and again in 1997. The District
Olas never had an assessment of its effectiveness in public information or public affairs by other
regional water industry leaders
&TAFF RECOMMENDATION:
That the Public-Information Committee approve and recommend the use of both a customer
survey as well as a peer ascertainment to the Board of Directors June 12, 2008.
LAIR PEARL E 1
& Associates
Consultants in Strategic Communications
Project Estimate
To: Michael Payne, Cindy Mejia
From: Ben Boyce
RE: YLWD Survey/Ascertainment Estimate
Date: May 14, 2008
The following estimate outlines anticipated costs for Laer Pearce & Associates to facilitate a
survey of YLWD customers and water industry insiders to better understand sentiments toward
the District as it positions itself as a leader. We propose the following tools:
Customer Survey: LP&A will work with YLWD and Lawrence Research, a multi-lingual
survey firm with extensive water experience, to conduct a statistically significant telephone poll
of a cross-section of approximately 350 District customers. The goal of the survey will be to
determine awareness and perception of the District, perceptions of its current communications,
attitudes towards water and conservation, and responses towards the new messaging. YLWD,
LP&A and the survey firm will collaboratively design the survey instrument, and the survey firm
will complete its work with a detailed report of its findings, with sufficient cross-tabs to provide
thorough understanding of the results.
VIP Ascertainment: As an option to be considered by the District, in addition to the customer
survey, LP&A recommends that it be tasked to conduct an ascertainment of selected regional
water industry leaders to gain a more thorough understanding of how YLWD is viewed among
its peers. LP&A will work with YLWD to prepare a short list of questions and a targeted list of
participants, then will conduct the ascertainment interviews and prepare a report with findings
and recommendations. The results will help us better position YLWD as a leader in the water
industry.
Project Element Descri tion cost
Customer Survey Drafting survey instrument; execution of
telephone survey; preparing report.
Agency Fees $1,200
Vendor Fees $20,300
VIP Ascertainment Drafting survey; compiling list of targets; $4,000
execution of telephone/in-person survey;
re arin rEEort of findings.
,
f Tor
Note: LP&A will require a deposit of $20,300 to begin work, which will cover the vendor costs
associated with the assigned task. If this estimate is approved, it can be billed as a separate
contract or a change order to our existing scope of work.
Terms and Conditions
22892 Mill Creek Dr., Laguna Hills, CA 92653 ® 949.599.1212 ® www.laer.com
Laer Pearce & Associates
YLWD Survey Estimate
Page 2 of 2
You will be invoiced on or about the first of each month for the services provided in the previous
month. Expense and vendor bills may be billed at any time. Fee invoices are due promptly at 30
days. Invoices for vendors may be Net 30 or Net 10, depending on the terms we receive from
our vendors. Late payments may result in the stopping of work on your behalf. Detailed reports
on our activities on your behalf will accompany the invoicing. You will only be billed for work
actually done, not for jobs estimated but not carried out.
This estimate is approximate and is based on the services described above; final costs may vary
10 percent, and will be billed accordingly. This estimate does not include charges for
revisions due to changes in the scope/design/timing of the project after this estimate is approved;
if such changes are necessary, they will be estimated in advance and upon your approval you
agree to pay such charges. Suppliers' estimates, if any, are approximate pending final approval
of logistics or specifications; you will be asked in advance to approve any changes in these
portions of the estimate.
Signature
Please indicate your approval by signing and returning one copy. Your signature gives Laer
Pearce & Associates the authority to undertake the work described in this estimate and to bill in
accordance with the terms stated. Your signature also indicates your acceptance of all costs,
terms and provisions of this estimate. In the event that any disagreement regarding this project
affects timely payment of our invoices, you agree by your signature below to settlement by
arbitration under the rules of the American Arbitration Association, and according to the laws
of, and in the forum of, Orange County, California.
Name Date
Michael Payne, Yorba Linda Water District
Employee Survey Question Master List
1993 and 1997
16997 Survey uestions
1. What do you believe is the biggest issue facing your city?
a. City hall
b. Crime/gangs/safety
c. Infrastructure/roads
d. Traffic growth
e. Education
2. Can you tell me the name of the provider of your water and sewer service?
3. In your opinion, what is the biggest issue facing the YLWD?
4. In general, do you approve or disapprove of the job your local water district is doing? (Is that strongly?)
5. As far as you know, is the YLWD:
a. An independent organization
or
b. A department of the City of YL?
6. Do you remember receiving any communication of mail (other than bills) from your water district?
7. What specifically do you remember?
a. Newsletter
b. Water quality rating
c. Annual reports
d. Rates going up
e. Promoting the tours
8. Did the information you receive help you gain a better understanding of the water district and the water
issues here in the community?
9. What did you like best about the information you received?
a. Very informative
b. Effort made by the company
c. I received it
10. Should your local water district work to improve communication with you and its other customers, even
if it would require additional expenses to the district?
11. I believe my water district cares about my concerns.
12. Please tell me if you agree or disagree:
a. I believe my water district cares bout my concerns.
b. I believe my city council cares about my concerns.
c. I believe the CA Legislature cares about my concerns.
13. Please tell me if you agree or disagree: (or strongly agree/disagree)
a. I believe my water district cares bout my concerns.
b. I believe my city council cares about my concerns.
c. I believe the California Legislature cares about my concerns.
14. Would you support or oppose a merger of the YLWD with the city?
15. According to the most recent analysis of information gathered by the Municipal Water District of
Orange County, all but one city in the county uses its revenue collected on water bills for purposes other
than water and sewer services. YLWD is a special district, not connected with any city, and all water
revenue is used to provide water related service only. Knowing this, would you change your opinion
regarding the suggesting that the water district become part of the city?
16. YLWD serves customers in YL, Placentia, Brea, Anaheim and unincorporated Orange County. Do you
think the district should change its name in order to better reflect the regional nature of its services?
17. Would you support the water district changing its name if the new name better represented the four-city
area the district serves?
18. Would you support a name change if it required an investment of $20,000 or more?
19. Who would you rather have set your water rates?
a. A city council, which manages all city functions, with water being only one of their many
considerations
or
b. An independent local elected board that specialized only in water and sewer services?
20. The YLWD is an independent water district, operated separately from the city of YL. Do you think the
YLWD should:
a. Remain independent from the city of YL
or
b. Become a part of the city of YL?
21. Why should the YLWD become a part of the city of YL?
a. Easier for the city to handle it
b. Politicians have a better feel
c. Give the city control
d. Other
22. Why should the YLWD remain independent?
a. Bad politicians/Do not trust city hall
b. City has too many responsibilities
c. Better Management
d. Too costly for the city
23. What is your age group? (by decade)
24. What source do you rely on most for information about water?
a. Newspaper
b. Water Company
c. Flyers/Mail
25. What source do you rely on most for information about city government?
a. Newspaper
b. T.V.
c. City Council meetings
d. Friends/Neighbors
26. Which of the following methods of voting would make you more likely to vote on water issues?
a. By Mail
or
b. At the polls
27. Please stop me when I reach your age group.
1993 Survey Questions
1. Do you live in Locke Ranch area of Yorba Linda? (if Yes, then terminate)
2. How satisfied are you overall with the service provided by the YLWD?
3. How satisfied are you with the following aspects of the tap water in your home?
1. The overall quality of the water
2. The water pressure
3. The amount of water available for your use
4. The taste of the water.
5. What you pay for the water
is 4. Do you think the water bill is understandable or confusing?
5. How satisfied are you with the format of your water bill?
6. As far as you know, is the YLWD: an independent organization or a dept of the city of YL?
7. Do you think the YLWD should become part of the City of YL or remain independent?
8. Why do you feel the YLWD should become part of the City of YL?
9. Generally speaking, would you say that what you pay for water is higher, about the same or lower than
what you pay for natural gas, electricity, or cable TV?
10. And do you feel the cost of water is too high, about right or too low?
11. The YLWD might offer these following services to its customers. Please say if you favor or oppose
having the Water District offer that service.
1. Bottled water service
2. The maintenance of home water filtration units
3. Provide water-saving, low flow shower heads
4. Encourage its customers to use less water
12. Based on what you may know, where does the YLWD get most of the water that it provides to its
customers like you?
13. As you know, California recently experienced a lengthy drought. I'd like to read you the opinions of 2
people, call them Smith and Jones, about the drought. After I read both statements, please tell me if you
feel more like Smith or more like Jones.
1. Smith feels that water in Yorba Linda is a precious and limited resource. Even though the
drought is over he is going to continue to conserve water.
2. Jones feels that with the drought over there is again plenty of water in Yorba Linda. He's not
really worried about conserving water anymore. With the drought over he plans on using more
water on thinks like landscaping and longer showers.
3. Is your opinion more like Smith or Jones? Is that strongly like (Smith/Jones? Or just somewhat
like (Smith/Jones)
14. Now I'd like to read you 2 services offered by the YLWD.
For each one, please tell me if you are aware of these services.
1. Low-water usage landscaping seminars.
2. Tours of district facilities, including pumps and reservoirs.
15. Do you think the Water District should continue to sponsor low-water usage landscaping seminars?
16. Do you think the Water District should continue to give tours of District facilities, including pumps and
reservoirs?
On a different subject,
17. Have you ever attended a board meeting of the YLWD?
18. The YLWD currently holds its board meetings in the morning. If they changed the meeting times from
the morning to the evening, would you be, likely, very likely, somewhat likely, not very likely, or not at
all likely to attend one of the district's board meetings?
19. Do you favor or oppose these options?
1. Pay as you go by increasing current water rates.
2. Issue bonds that do not require voter approval.
3. Issue a revenue bond which would require 50% approval of all voters in an election.
4. If an election were being held today, would you vote for or against a bond to be used to pay for
the replacement of aging water district facilities?
20. Would you favor or oppose using the reservoir sites as locations for additional parks and recreational
facilities? Would that be strongly or just somewhat (favor/oppose)?
21. About what percent of your water usage is for things inside the house like drinking, cooking, bathing,
laundry, and cleaning?
22. About what percent of your water using is for things outside the house like watering the grass and other
landscaping and washing the car?
23. Still thinking about the water you use, have you ever received a notice of over usage, that is, written
notification that you used more water than you were supposed to use?
24. Generally speaking, did that notice bother you a lot, a little, or not at all?
On a different subject,
25. Do you recall receiving the Water Lines, a newsletter from the YLWD?
26. About how much of the newsletter do you or does someone in your household usually read?
27. Generally speaking, do you approve or disapprove of the way the YLWD Board of Directors is handling
its job? Would that mean strongly or just somewhat?
28. What is your age/sex please?
29. Do you own or rent your home?
30. What is your total family income? Stop me when I read the correct category.
31. What is your zip code?
V
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(F)
470
ITEM NO.
NEWS
• • ORANGE COUNTY GRAND JURY
700 CIVIC CENTER DRIVE WEST ■ SANTA ANA, CALIFORNIA 92701.714/834-3320
May 22, 2008 FAX 7141834-5555
WATER BUDGETS, NOT WATER RATIONING
SANTA, ANA, CALIFORNIA - The 2007-2008 Orange County Grand Jury ,released a report
today regarding Orange County's potential water crisis.
Orange County faces a looming water crisis. A prolonged drought throughout the Wcst, coupled
with a court order curtailing water imports, now threatens Orange County's future ability to
satisfy the thirst of its growing population.
The 2007-2008 Orange County Grand Jury agrees that the best and most immediate solution is
further, water conservation. Past conservation efforts have achieved considerable success through
improved appliance and plumbing technology inside the home, a trend that is expected to
continue as older units are replaced. Yet, a sizeable amount of water is still wasted, especially
outdoors where the greatest opportunity for further conservation. lies. According to water.
agencies, most people water gardens and lawns too often and too much..
The Grand Jury calls upon, water agencies to expand. efforts to motivate and educate residential,
customers to conserve water. It specifically recommends a two-step approach:
• Water agencies should establish, conservation pricing based upon an allotment or water
budget for each household with tiered pricing to encourage conservation from those who
exceed their allotments; and
These agencies must implement more effective ways to motivate and educate the public
on how to water gardens and lawns without wasting water. The Grand Jury identified
several techniques and devices, such, as smart timers and water calculators to improve the
efficiency of residential landscape watering.
For a full, version of this report, as well as others, visit the Grand Jury website at
www.ocRrandiurv org or call (714) 834-3320.
2007-008
NOAn&n.Avery ROUNTY GRA JURY
Andres, man
a part of the Grand Jury process, call. (714) 834-15747 for information and an application,
WATER BUDGETS, NOT WATER RATIONING
SUMMARY
Orange County faces a looming water crisis. A prolonged drought throughout the West,
coupled with a court order curtailing water imports, now threatens Orange County's future
ability to satisfy the thirst of its growing population.
The 2007-2008 Orange County Grand Jury agrees that the best and most immediate solution
is further water conservation. Past conservation efforts have achieved considerable success
through improved appliance and plumbing technology inside the home, a trend that is
expected to continue as older units are replaced. Yet, a sizeable amount of water is still
wasted, especially outdoors where the greatest opportunity for further conservation lies.
According to water agencies, most people water gardens and lawns too often and too much.
The Grand Jury calls upon water agencies to expand efforts to motivate and educate
residential customers to conserve water. It specifically recommends a two-step approach:
• Water agencies should establish conservation pricing based upon an allotment or
water budget for each household with tiered pricing to encourage conservation
from those who exceed their allotments; and
• These agencies must implement more effective ways to motivate and educate the
public on how to water gardens and lawns without wasting water. The Grand
Jury identified several techniques and devices, such as smart timers and water
calculators to improve the efficiency of residential landscape watering.
REASON FOR INVESTIGATION
Water agencies and news accounts warn of a potential water crisis in Orange County
because of a multiyear drought in the Western United States, especially in California, that
contributes to reduced water levels in the Colorado River and a reduced Sierra Nevada snow
pack. A court order to protect an endangered fish, the Delta smelt, has reduced imported
water from the Sacramento-San Joaquin Delta, where levee problems further threaten that
water supply. These developments, plus a growing population, are putting additional strain
on another important Orange County water source, its underground water basin or aquifer.
For these reasons, the Grand Jury felt compelled to review the effectiveness of measures
currently being taken to avert a severe water shortage in the near future.
1
METHOD OF INVESTIGATION
The method of investigation included:
• A review of literature on current and future water needs in Orange County
• A tour of the State Water Project in Oroville and the Sacramento-San Joaquin Delta
• Interviews with representatives of the Orange County Water District, the Municipal
Water District of Orange County, Irvine Ranch Water District and the Fullerton
College Horticulture Program
• A survey of water bills issued by different Orange County water agencies
• A review of questionnaires sent to all retail water agencies in Orange County
• Review of landscape watering principles and practices from various sources
• Review of local Internet sites that promote water conservation
• Inspection of drought-resistant landscaping and water-saving irrigation devices
BACKGROUND AND FACTS
Orange County is a densely populated, semi-arid region which gets relatively little
precipitation. More than half of its water, 53%, is imported by the Metropolitan Water
District of Southern California (MWD), which in turn sells to the Municipal Water District
of Orange County (MWDOC) and three cities. The MWDOC was formed in 1951 to
contract with MWD to acquire this supplemental imported water and to coordinate the water
supply for 29 Orange County water agencies. The cities of Anaheim, Fullerton and Santa
Ana purchase water directly from the MWD, a practice initiated before the MWDOC was
created.
The remaining 47% of the water used in Orange County comes primarily from an
underground basin or aquifer, located under the northern half of Orange County and
managed by the Orange County Water District. The OCWD was formed in 1933 for the
purpose of managing and replenishing this underground basin. Aquifer water is pumped
from wells by 20 Orange County water agencies that are within the basin boundaries,
supplying approximately 74% of their water needs. The actual amount differs with each
member and is adjusted annually on the basis of conditions in the basin.
The following chart demonstrates the distribution of water in Orange County.
2
Metropolitan Water District
MWD
[water imported to Orange County]
Other counties receiving Municipal Water District of
water from MWD: Orange County
LA County MWDOC
San Diego County
Ventura County [manages imported water
Riverside County purchased from MWD]
San Bernardino County
Cities and Water Districts which Orange County
purchase from MWDOC: Water District
[manages underground basin water]
Brea
La Habra
San Clemente
San Juan Capistrano
El Toro Water District Cities which purchase from
Emerald Bay Service District both MWD and Orange
Laguna Beach County Water Dist County Water District:
Moulton Niguel Water District
Santa Margarita Water District Anaheim Fullerton
South Coast Water District Santa Ana
Trabuco Canyon Water District
Cities & Water Districts that purchase from
both MWDOC and OCWD:
Buena Park Fountain Valley
Garden Grove Huntington Beach
La Palma Seal Beach
Tustin Orange
Westminster
City of Newport Beach Water Co
Golden State Water Company
Irvine Ranch Water District
Mesa Consolidated Water District
Serrano Water District
Yorba Linda Water District
East Orange County Water District
3
Reliability of future water supplies
Recent events have generated major concerns about Orange County's ability to meet the
demand for water in the years ahead. Some of the challenges that now face Orange County
and other recipients of MWD imported water are:
• A recent federal court ruling that cut water supplies from the state's two largest
water delivery systems by up to one-third to protect the endangered smelt
• A prolonged drought in the West which has reduced the mountain snow pack, a
critical natural supply of water, and has reduced water levels in the Colorado River
• Extremely low water reserves statewide
• Aging levees in the Sacramento-San Joaquin Delta, at risk of a natural disaster,
could cripple the water deliveries for an extended period of time
• No significant improvements in the statewide water system over the past 30 years
despite California's rapidly growing population
These problems cannot be easily resolved. Solutions will be costly and possibly politically
charged. Reducing water demand through conservation remains the most cost-effective and
timely solution to remedy the looming shortage. Conservation is not a new concept. It has
been promoted for years and has served as a quick resolution in the past when temporary
shortages occurred.
The 10% challenge
In response to this impending shortage, Orange County water agencies are asking the public
to voluntarily conserve. The regional goal for voluntary conservation is 10%. The Grand
Jury found that many Orange County water agencies structure water bills to show customers
current usage compared to usage during the same period the previous year. This is intended
to help customers measure the difference in their current and past water use, but it does not
measure their water-use efficiency. Nor does it tell them how much water they should be
using commensurate with their household and landscape needs.
Why focus on residential water use?
All categories of water users are called upon to conserve. But the primal focus of this
report is on residential customers. Why? Because, as the following data shows, single-
family and multi-family residences are collectively the largest water consumers:
• Single-family residential 49%
• Multi-family residential 14%
• Commercial, industrial and institutional 29%
• Agricultural 1%
• Recycles & non-domestic 7%
' Percentage extrapolated from Orange County Water Agencies Water Rate$ Water Systems Operations and
Financial Information 2006 - Table 5, MDOC, 2006
4
Based on responses to a Grand Jury questionnaire sent to all of the Orange County water
agencies, more than half of this residential water is used outdoors. And it is estimated that
half of outdoor water usage is wasted. Thus, landscape irrigation presents the greatest
opportunity for potential water savings.
The figures shown in the aforementioned countywide data, however, do not reflect the vast
differences in urban design found in Orange County. Historically, central and northern
county communities were developed with single-family homes on large lots. In newer
developments, especially in South County, the emphasis is on communities with small lots
with large greenbelt areas and wide, landscaped boulevards and slopes. Water used to
irrigate greenbelts owned by homeowners associations is generally quantified in the "multi-
family residential" category. City-owned and city-maintained landscaping along boulevards
is included in "the commercial, industrial and institutional category."
Conservation history in Orange County
A memorandum of understanding2 (MOU), developed in 1991 by the California Urban
Water Conservation Council, includes 14 recommended cost-effective best management
practices (BMP) for advancing the efficient use of water. They are:
1. Residential water surveys
2. Residential plumbing retrofit
3. System water audits, leak detection and repair
4. Metering with commodity rates
5. Large landscape conservation programs
6. High-efficiency washing machine rebate programs
7. Public information programs
8. School education programs
9. Commercial, institutional and industrial programs
10. Wholesale agency assistance programs
11. Conservation pricing, or tiered pricing
12. Conservation coordinator
13. Water waste prohibition
14. Residential ultra low-flow toilet replacement programs
The Municipal Water District of Orange County (MWDOC) signed the MOU in 1991 and
agreed to develop, obtain funding for and implement regional BMP programs on behalf of
all retail water agencies in Orange County. Only half of these agencies currently are
signatories to the MOU but, according to MWDOC, all are actively implementing BMP-
based programs.
The public is familiar with many of these practices. Since these programs have been in
effect, water usage has been reduced substantially through conservation. Water agencies
agree that improved plumbing fixtures and water-efficient appliances have contributed to
2 "Memorandum of Understanding Regarding Urban Water Conservation in California", California Urban
Water Conservation Council, 1991
5
v
most of this success. Free exchanges and rebates funded by the water agencies accelerated
the process.
Based on a Grand Jury survey of water bills and responses to a questionnaire, there is one
best management practice that has not been effectively implemented but one that could be
a significant factor toward promoting water reduction. That practice is conservation pricing.
Conservation pricing or tiered pricing
Conservation pricing, also referred to as tiered pricing, promotes conservation by
establishing a base allocation, or water budget, with several levels of pricing for amounts
used above that allotment. Each tier is priced at a more expensive rate than the one below,
sometimes doubling in cost to encourage water conservation.
Tiered pricing has been implemented by 19 of the 30 Orange County retail water agencies.
However, the practice varies widely from agency to agency. The effectiveness of this
strategy may be undermined by the fact that the cost of water is relatively inexpensive. In
Orange County, water costs consumers between $0.0016 and $0.0059 a gallon depending on
the water agency and the amount of water consumed. The retail water agencies sell water in
units of 100 cubic feet, equivalent to 748 gallons. Some agencies sell water on a flat-rate
basis, charging from $1.30 to $2.85 per 100 cubic feet or $0.0017 to $0.0038 per gallon.
Agencies using tiered pricing begin their base-level pricing from $0.49 to $2.27 per 100
cubic feet or $0.0007 to $0.0030 per gallon.
In most cases, the increases in each tier are relatively minor and may have little impact or
effect on a consumer who happens to be more focused on the rising cost of gasoline and
food. Besides the fact that water is inexpensive, another factor that could contribute to
consumer indifference to tiered pricing is that the base-level allotments established by some
agencies, as well as succeeding tiers, may have little relevance to actual need or usage.
Tiered pricing must be based on a fair and reasonable water budget or allotment and a fair
and reasonable rate for that first tier. Higher tiers should then be priced at a sufficiently
increased rate to get customer attention. There is precedent that supports the belief that this
strategy has worked. Water bills issued by the Irvine Ranch Water District, which
implemented tiered pricing in 1991, label each tier ranging from "low volume" to
"conservation," "inefficient," "excessive" and "wasteful." Each tier essentially doubles in
price, penalizing overuse. This projects a very clear picture to the consumer. For tiered
pricing to have the intended impact, it appears that the tiers must be clearly defined on the
water bill.
Restructuring rates is not a simple matter. But if the intent of this best management practice l
is to be met, an effective and equitable tiered-pricing structure must be implemented by all
Orange County water agencies. It must be done in a manner that would preclude the
necessity for raising rates to cover operating costs when consumers do reduce consumption.
Rate increases resulting from reduced demand due to hard-won conservation efforts would
only undermine public commitment to conservation.
6
Establishing a budget/allocation
For residential customers, the process starts with water agencies establishing a base
allocation for the average household within their boundaries. A determination must be
made as to the adequate amount of water needed per person for indoor use for all customers
and for outdoor use by single-family homes.
Indoor water use
The average indoor water use in Orange County is unknown since it is not metered
separately. However, the following table shows commonly-accepted estimates of average
per person indoor water use in the United States, for both non-conserving and conserving
households.
Daily Use per person in Daily Use per person in
Type of Use Gallons/day Non-Conserving Gallons/day Conserving
Toilets 18.5 8.2
Washing Machines 15.0 10.0
Showers 11.6 8.8
Faucets 10.9 10.8
Leaks 9.5 4.0
Other 1.6 1.6
Bath 1.2 1.2
Dishwasher 1.0 0.7
Total 69.3 45.3
From the "Handbook of Water Use and Conservation" by Amy Vickers
Thus, 70 gallons per day per person appears to be an adequate allotment for average daily
indoor use for meeting necessary health requirements. The Irvine Ranch Water District and
the City of San Juan Capistrano both provide allotments to their customers using slightly
different formulas to determine indoor water allowances. The Irvine Ranch Water District
allows 75 gallons per day per person for four occupants per single family resident. The City
of San Juan Capistrano allocates nine units per month (6,732 gallons) per single family
resident, an amount that is equivalent to 70 gallons per day per person for 3.2 occupants.
Outdoor water use
According to information derived from interviews and responses to its questionnaire, the
Grand Jury learned that almost all water used outdoors is for landscaping. Half of that
amount is wasted, with residents watering too much and too often.
7
e
Calculating the appropriate amount of watering (frequency and amount) for landscaping is a
daunting task for most residents. By default, the burden of establishing a fair and reasonable
allocation for outdoor landscape watering falls upon the water agencies if they are
sincerely committed to imFroving water conservation. The calculation for appropriate
watering is weather-based as it takes into account weather conditions, plant species, the size
of the landscape area and irrigation efficiencies. Soil texture is another important parameter
that is necessary for determination of frequency of watering.
The Grand Jury was impressed with the separate approaches taken by two Orange County
water agencies for determining the landscape area. The City of San Juan Capistrano
estimates a landscaped area of 3,636 square feet for lot sizes less than 7,000 square feet. For
those over 7,000 square feet, the square footage of the house is doubled and subtracted from
the lot size. The Irvine Ranch Water District estimates a landscaped area of 1,300 square
feet for every single-family home but allows variances for those who show that their
landscape area is larger. A calculation (based on actual weather data and plant needs) is
then made for how much water that average landscaped area requires.
Regardless of the method used to determine an outdoor allotment for landscaping, the water
agencies must be able to demonstrate that their method is fair and equitable.
Resources currently available for conservation
The objective in assigning allocations and implementing tiered pricing with significantly
increased rates is not to punish customers, nor to earn additional revenue, but to encourage
those who are wasteful to conserve. Water agencies should all be assisting customers with
detecting and correcting the reasons for excessive use of water. Personnel at the Irvine
Ranch Water District indicated that they respond personally to customer requests for help
and will assist them in correcting the problem and will often refund the cost of the penalty
after the problem is corrected.
The following devices and resources can assist or inform motivated gardeners about new
irrigation techniques:
• Smart timers - automatically adjust watering times for different weather, soil and
landscape conditions
• Watering index - provides an index for those having timers equipped with a "water
budget adjustmenti4
• Water calculators - calculates the frequency and duration for watering based on the type
of soil, plants, watering system and its flow rates for residents in Southern California.
• Innovations in irrigation systems - including rotating nozzles for pop-up spray heads and
a new system"for watering turf grass using plastic pipes with drip emitters, are proving
to be much more efficient than conventional sprinklers
• Xeriscape landscaping - drought-tolerant vegetation
3 Water budgeting using evapotranspiration data from CIMIS (California Irrigation Management Information
System) and crop coefficients from WUCOLS (Water Use Classification of Landscape Species).
4 Bewaterwise.com, sponsored by water agencies including those in Orange County
s ibid
8
1
• Synthetic turf- replaces water-guzzling turf with "realistic" manufactured grass
Although these devices are helpful, some knowledge and skill are required to take full
advantage of them. Smart timers and water calculators also require knowledge of the types
of soil and plants involved. To maximize use of the aforementioned resources, additional
information and support must be provided.
Selling conservation
Unfortunately, water agencies cannot stand by passively until residents motivate themselves
to conserve water. Just as those agencies must offer a stick in the form of tiered pricing,
they must offer a carrot to motivate residents to pay more attention to their outdoor watering
practices.
Water agencies certainly promote conservation. The question is, is this enough? The Grand
Jury concluded that they could do more through:
• Public education. While some local water districts provide classes on landscape
watering principles and practices, they indicate that some of these classes are poorly
attended. The classes might draw additional interest if they offer workshops on
determining soil types, using water calculators and demonstrating new devices like
smart timers.
• Promotion. Some water agencies send out mailers with water bills to promote classes
or encourage efficient watering techniques. Press releases may generate brief
announcements of the classes. But effective promotion may require teaming up with
other agencies as well as vendors to provide the resources to attract greater
attendance at classes or garden demonstrations.
• Rebates. Water agencies should continue to offer more rebates for water-saving
devices, such as more efficient landscape sprinklers and controllers outdoors as well
as more efficient indoor appliances and plumbing fixtures.
• Personal assistance. Water agencies should establish a telephone help line staffed by
a person (not a computer) to answer their customers' water-related questions. They
should also make available a countywide soils map that would allow the customers
to approximate soil textures.
CONCLUSION
There is still room for more water conservation, especially in outdoor landscape irrigation.
Water agencies need to help the public better understand the principles and new
technologies to make improvements in landscape irrigation. Customers need
encouragement and assistance. Water agencies must provide clear targets for the customer
and implement tiered pricing in support of the targets.
9
FINDINGS
In accordance with California Penal Code sections 933 and 933.05, each finding will be
responded to by the government entity to which it is addressed. The responses are to be
submitted to the Presiding Judge of the Superior Court. The 2007-2008 Orange County
Grand Jury has arrived at the following findings:
F-1 Opportunities for further water conservation exist especially with regard to
landscape watering.
F-2 Conservation pricing, or tiered pricing, with a fair and reasonable base
allotment, followed by tiers of higher rates, can be an effective tool to motivate
further conservation.
Response to finding F-1 is required from MWDOC
Responses to findings F-1 and F-2 are required from the following Water Districts and
City Water Departments:
East Orange County Water District City of Buena Park
El Toro Water District City of Fountain Valley
Emerald Bay Service District City of Fullerton
Irvine Ranch Water District City of Garden Grove
Laguna Beach County Water District City of Huntington Beach
Mesa Consolidated Water District City of La Habra
Moulton Niguel Water District City of La Palma
Santa Margarita Water District City of Newport Beach
Serrano Water District City of Orange
South Coast Water District City of San Clemente
Trabuco Canyon Water District City of San Juan Capistrano
Yorba Linda Water District City of Santa Ana
City of Anaheim City of Seal Beach
City of Brea City of Tustin
City of Westminster
RECOMMENDATIONS
In accordance with California Penal Code sections 933 and 933.05, each recommendation
will be responded to by the government entity to which it is addressed. The responses are to
be submitted to the Presiding Judge of the Superior Court. Based on the findings of this
report, the 2007-2008 Orange County Grand Jury makes the following recommendations:
R-1 Continue to emphasize methods and availability of tools that assist the
customers in understanding weather-based irrigation practices by:
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• Providing a hotline for assisting the public with landscape irrigation
information
• Providing a countywide soil texture map on the MWDOC website
• Developing an Orange County specific water calculator on the MWDOC
website
R-2a Develop monthly water allocations for each customer based on both of the
following:
• A per person indoor water allotment that satisfies basic needs
• An outdoor water allotment that applies the weather-based method over the
customers' landscaped area
R-2b Develop a tiered-pricing structure with the first tier based on individual
customer water allocation priced at a commodity rate, and subsequent tiers priced
significantly higher to encourage conservation. The pricing shall be structured in a
manner that will preclude the necessity of price increases as a result of reduced water
use.
R-2c Modify water bills to clearly explain customer monthly allotment and monthly
water usage.
Response to recommendation R-1 is required from the Municipal Water District of
Orange County.
Responses to recommendations R-1, R-2a, R-2b, and R-2c are required from following
Water Districts and City Water Departments:
East Orange County Water District City of Buena Park
El Toro Water District City of Fountain Valley
Emerald Bay Service District City of Fullerton
Irvine Ranch Water District City of Garden Grove
Laguna Beach County Water District City of Huntington Beach
Mesa Consolidated Water District City of La Habra
Moulton Niguel Water District City of La Palma
Santa Margarita Water District City of Newport Beach
Serrano Water District City of Orange
South Coast Water District City of San Clemente
Trabuco Canyon Water District City of San Juan Capistrano
Yorba Linda Water District City of Santa Ana
City of Anaheim City of Seal Beach
City of Brea City of Tustin
City of Westminster
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REQUIRED RESPONSES:
The California Penal Code specifies the required permissible responses to the findings and
recommendations contained in this report. The specific sections are quoted below:
§933.05
(a) For purposes of subdivision (b) of Section 933, as to each grand jury finding, the
responding person or entity shall indicate one of the following:
(1) The respondent agrees with the finding.
(2) The respondent disagrees wholly or partially with the finding, in which case the
response shall specify the portion of the finding that is disputed and shall include
an explanation of the reasons therefore.
(b) For purposes of subdivision (b) of Section 933, as to each grand jury
recommendation, the responding person or entity shall report one of the following
actions:
(1) The recommendation has been implemented, with a summary regarding the
implemented action.
(2) The recommendation has not yet been implemented, but will be implemented in
the future, with a timeframe for implementation.
(3) The recommendation requires further analysis, with an explanation and the scope
and parameters of an analysis or study, and a timeframe for the matter to be
prepared for discussion by the officer or head of the agency or department being
investigated or reviewed, including the governing body of the public agency
when applicable. This timeframe shall not exceed six months from the date of
publication of the grand jury report.
(4) The recommendation will not be implemented because it is not warranted or is
not reasonable, with an explanation therefore.
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f
S
DOCUMENTATION
"Orange County Water Agencies Water Rate$: Water System Operations and Financial
Information", Orange County Water Association and Municipal Water District of Orange
County, 2006
"The Residential Runoff Reduction Study", Municipal Water District of Orange County
and Irvine Ranch Water District, July 2006
"2005 Urban Water Management Plan", Municipal Water District of Orange County, 2005
"A Guide to Estimating Irrigation Water Needs of Landscape Plantings in California: The
Landscape Coefficient Method", University of California Cooperative Extension, California
Department of Water Resources, 2000
"Landscape Management for Water Savings: How to Profit from a Water Efficient Future",
Municipal Water District of Orange County, 1998
Stan Sprague, "Orange County's Water Story: Regional Water Issues and the Import
Supply", March 2003
Tom Ash, "Landscape Management for Water Savings", 1998
"Smart Water: A Comparative Study of Urban Water Use Efficiency Across the Southwest",
Western Resource Advocates
"Reclamation: Managing Water in the West - Weather Based Technologies for Residential
Irrigation Scheduling", Technical Review Report, Water District of Orange County, 2004
"Landscape Water Management Principles", The Irrigation Training and Research Center,
1997
"Residential Weather-Based Irrigation Scheduling: Evidence from the Irvine `ET
Controller' Study", June 2006
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i ITEM NO.
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ORANGE COUNTY GRAND JURY
700 CIVIC CENTER DRIVE WEST •SANTA ANA, CALIFORNIA 92701.714/834-3320
FAX 714/834-5555
May 14, 2008
John W. Summerfield, President
Yorba Linda Water District
4622 Plumosa Drive
Yorba Linda, CA 92885
Dear Mr. Summerfield:
Enclosed is a copy of the 2007-2008 Orange County Grand Jury report, "Water Budgets, Not Water
Rationing." Pursuant to Penal Code 933.05(f), a copy of the report is being provided to you at least two
working days prior to its public release. Please note that, "No officer, agency, department, or governing
body of a public agency shall disclose any contents of the report prior to the public release of the final
report." (Emphasis added.) It is required that you provide a response to each of the findings and
recommendations of this report directed to your office in compliance with Penal Code 933.05(a) and
(b), copy attached.
For each Grand Jury recommendation accepted and not implemented, provide a schedule for future
implementation. In addition, by the end of March of each subsequent year, please report on the progress being
made on each recommendation accepted but not completed. These annual reports should continue until all
recommendations are implemented.
It is requested that the response to the recommendations be mailed to Nancy Wieben Stock, Presiding Judge
of the Superior Court, 700 Civic Center Drive West, Santa Ana, CA 92701, with a separate copy and an
electronic format (PDF on CD preferred) mailed to the Orange County Grand Jury, 700 Civic Center Drive
West, Santa Ana, CA 92701, no later than 90 days after the public release date, May 22, 2008, in compliance with
Penal Code 933, copy attached. The due date then is August 20, 2008.
Should additional time for responding to this report be necessary for further analysis, Penal Code 933.05(b)(3)
permits an extension of time up to six months from the public release date. Such extensions should be advised in
writing, with the information required in Penal Code 933.05(b)(3), to the Presiding Judge of the Superior Court,
with a separate copy of the request to the Grand Jury.
We tentatively plan to issue the public release on May 22. Upon public release, the report will be available on the
Grand Jury web site (www.ocgrandjury orgy.
Very truly o s,
very An n
2007-2008 ORANGE UNTY GRAND JURY
AAA: dv
Enclosures
Grand Jury Report
Penal Code 933, 933.05 ONFiDENTIAL"