TOWN OF CARBONDALE WATER EFFICIENCY PLAN SEPT 2, 2014 Municipal Water Efficiency Plan Town of Carbondale, Colorado DRAFT FOR PUBLIC REVIEW ELEMENT Water Consulting & WaterDM December 16, 2014 PAGE 0 MUNICIPAL WATER EFFICIENCY PLAN Town of Carbondale, Colorado PREPARED BY P.O. BOX 140785 DENVER, CO 80214 AND 1339 HAWTHORN AVENUE BOULDER, CO 80304 December 16, 2014 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW TABLE OF CONTENTS ACKNOWLEDGEMENTS ................................................................................................................... 1 EXECUTIVE SUMMARY .................................................................................................................... 2 Profile ........................................................................................................................................ 2 Population ................................................................................................................................... 2 Water Demand Forecasts ........................................................................................................... 2 Water Efficiency Planning Process and Goal Setting .................................................................. 3 Water Efficiency Program ........................................................................................................... 4 Water Efficiency Plan Approval .................................................................................................. 5 Roaring Fork Regional Water Efficiency Plan.............................................................................. 5 1. PROFILE OF EXISTING WATER SUPPLY SYSTEM ...................................................................... 6 1.1 Overview......................................................................................................................... 6 1.2 Regional Setting.............................................................................................................. 7 1.3 Water Supply and Reliability .......................................................................................... 7 1.3.1 Potable Water Supply ................................................................................................. 8 1.3.2 Raw Water Supply ....................................................................................................... 8 1.3.3 Water and Wastewater Treatment ............................................................................ 9 1.3.4 Capacity and Reliability ............................................................................................... 9 1.3.5 Proposed Water Supply Projects ................................................................................ 9 2. WATER DEMANDS AND HISTORICAL DEMAND MANAGEMENT .......................................... 10 2.1 Demographics and Service Area Characteristics .......................................................... 11 2.2 Historical Water Demands ........................................................................................... 11 2.3 Seasonal and Peak Day Demands................................................................................. 18 2.4 System Water Losses .................................................................................................... 18 2.5 Past and Current Demand Management Activities...................................................... 19 2.6 Demand Forecast ......................................................................................................... 19 2.6.1 Population Planning Projections ............................................................................... 20 2.6.2 Demand Forecasts .................................................................................................... 21 2.6.3 Estimated Cost of New Supply Options .................................................................... 26 3. SELECTION OF WATER EFFICIENCY ACTIVITIES ..................................................................... 27 3.1 Summary of the Selection Process ............................................................................... 27 3.2 Demand Management Activities .................................................................................. 28 3.2.1 Foundational Activities ............................................................................................. 29 3.2.2 Targeted Technical Assistance and Incentives ......................................................... 32 3.2.3 Ordinances and Regulations ..................................................................................... 33 3.2.4 Public Education and Information ............................................................................ 34 4. IMPLEMENTATION AND MONITORING PLAN ....................................................................... 35 4.1.1 Monitoring and Evaluation ....................................................................................... 35 4.1.2 Revenue Stability ...................................................................................................... 35 5. ADOPTION, PUBLIC REVIEW, AND APPROVAL OF WATER EFFICIENCY PLAN ....................... 35 PAGE ii TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 6. 7. 8. COMPLIANCE WITH STATE PLANNING REQUIREMENTS ...................................................... 36 6.1.1 Town of Carbondale Compliance .............................................................................. 36 ROARING FORK REGIONAL WATER EFFICIENCY PLAN .......................................................... 39 REFERENCES .......................................................................................................................... 40 LIST OF TABLES Table 1: Population and Annual Water Deliveries (AF/yr) from 2005 to 2012. ........................... 13 Table 2. Residential Indoor and Outdoor Water Deliveries from 8/2010 – 7/2013..................... 15 Table 3: Metered Sectoral and Seasonal Water Deliveries from 8/2010 – 7/2013 (AF/yr). ........ 15 Table 4. Water Losses Based on Comparison of Production and Metered Data. ........................ 19 Table 5: Population Growth Projections from 2015 through 2050. ............................................ 20 Table 6. New and Updated Water Efficiency Activities and Water Savings Estimates. ............... 28 Table 7: AWWA Water Audits and Loss Control Programs. ......................................................... 29 Table 8: Treated Residential Water Rates and Rate Structure Effective January 1, 2014. ......... 31 Table 9: Treated Commercial Water Rates and Rate Structure Effective January 1, 2014. ........ 31 Table 10: Bulk Water Rates. .......................................................................................................... 31 PAGE iii TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW LIST OF FIGURES Figure 1. Changes in Population and Annual Metered Water Deliveries from 2005 through 2012. ............................................................................................................ 14 Figure 2. Average Monthly Demands by Water Use Sector from 8/2010 to 7/2013. .................. 16 Figure 3. Distribution of Sectoral Demands from 8/2010 to 7/2013. .......................................... 16 Figure 4: Distribution of Annual Water Use by Sector in 2012. ................................................... 17 Figure 5. Distribution of Customer Connections in 2013. ............................................................ 18 Figure 6: Actual and Forecast Population from 2000 through 2050. .......................................... 21 Figure 7: Baseline, Passive, and Active Demand Forecasts through 2050. .................................. 23 Figure 8. Water Providers Participating in the Roaring Fork Regional Water Efficiency Plan. ........................................................................................................................... 40 LIST OF ABBREVIATIONS AF AF/yr cfs Carbondale CWCB F GIS gpcd gpd gpm MG MGD Town acre-feet acre-feet per year cubic feet per second Town of Carbondale Colorado Water Conservation Board Fahrenheit Geographic Information System gallons per capita per day gallons per day gallons per minute million gallons million gallons per day Town of Carbondale Report cover photograph of Town of Carbondale taken by Jonny Kloberdanz. PAGE iv TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW ACKNOWLEDGEMENTS The development of the Town of Carbondale Water Efficiency Plan was a collaborative effort funded by a Colorado Water Conservation Board grant as part of the Roaring Fork Watershed Regional Water Efficiency Plan. The project has been supported through the financial and inkind participation of the following stakeholders: City of Aspen; Town of Basalt; Town of Carbondale; City of Glenwood Springs; Snowmass Water and Sanitation District; Colorado Water Conservation Board; Ruedi Water & Power Authority; Roaring Fork Conservancy; Community Office for Resource Efficiency; Colorado River District. Town of Carbondale staff provided access to detailed datasets and system information that facilitated the preparation of this Water Efficiency Plan. The consultant team would like to thank the following staff members for their time and input on this document: Mark O’Meara (Town of Carbondale) PAGE 1 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW EXECUTIVE SUMMARY PROFILE The Town of Carbondale (“Town” or “Carbondale”), Colorado, located in Garfield County along State Highway 133, which intersects Colorado State Highway 82 approximately 11 miles south of Glenwood Springs, is a municipality established in 1887. Carbondale adopted a Home Rule Charter in 2002, and operates under a manager-board governmental structure. Carbondale is located immediately upstream of the confluence between the Crystal and Roaring Fork Rivers at an elevation of approximately 6,200 feet. The Town provides treated water service to a 2.54 square mile area with a current population of approximately 6,600 residents. Carbondale owns and operates its own water and wastewater utilities. Carbondale obtains it potable water supply from surface water sources in the Nettle Creek drainage, a tributary to the Crystal River, and from groundwater sources along the Crystal and Roaring Fork Rivers. The potable supply is supplemented by raw water diversions through various irrigation ditches under the Town’s water rights, and the Town provides raw water for irrigation purposes to a subset of its customers. POPULATION According to the 2010 Census, the population of Carbondale was 6,427 people, up from 5,069 residents as reported in the 2000 Census. This indicates the full-time population has been growing at an average rate of approximately 2.4% per year. The Town uses a growth rate of 2.5% per year for planning purposes, under which the population is forecasted to increase to approximately 11,100 people in 2035 and 16,100 in 2050. WATER DEMAND FORECASTS As part of the water efficiency planning process, three distinct water demand forecasts were prepared. First, a baseline demand forecast starting from 2015 and going out to 2050 was prepared. This baseline forecast did not include the impact of water conservation of any kind, even passive water savings, and was developed only to assess the adequacy of future supplies under reasonable worst case conditions and to demonstrate the impact of anticipated efficiency improvements. Water demand in 2014 (including an estimate of raw water use for irrigation) was 1,208 acre-feet (AF) and under the baseline forecast is expected to increase by 1,731 AF to 2,939 AF in 2050. This represents a 143% increase in water demand over the next 36 years. A second water demand forecast through 2050 includes the impact of passive efficiencies from Colorado legislation, and federal plumbing codes and standards. This forecast found that the Town water demands will increase to 2,395 AF in 2050 (including both potable and raw water demand), or 545 AF less than demands would be under the baseline forecast. PAGE 2 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW A third forecast was prepared that includes the anticipated impact from the Town’s planned water efficiency program measures described in this plan. Under this forecast, potable demand increases to just 1,988 AF in 2050 and raw water use increases to 111 AF for a combined total of 2,099 AF in 2050. Compared with the baseline forecast, if the elements of this plan are fully realized, then it is estimated that water demand at 2050 will be reduced by 840 AF as a result of passive and active water conservation measures in Carbondale. These forecasts form the core of the Water Efficiency Plan and are the forecasts upon which estimated conservation savings are based. The information reviewed as part of this Water Efficiency Plan indicates that the total capacity of the Town’s water treatment plants is 4.0 million gallons per day (MGD); however, the current reliable production capacity ranges from approximately 2.5 to 3.0 MGD depending on the season. If production was limited to 2.5 MGD for the entire year, then the volumetric yield would be approximately 2,800 AF per year. Carbondale’s future demand forecasts in the year 2050 range from 2,099 AF to a maximum of 2,939 AF (including both potable and raw water demand). Based on this analysis, additional wells may need to be drilled if conservation does not take place. Fortunately, the Town’s water rights, including the supplemental supply from Ruedi Reservoir, are sufficient to meet all future forecasts. Climate Change Impact on Water Use Recent climate change forecasts indicate a warming trend in irrigation season temperatures in the Carbondale region. While it is becoming more common to consider potential climate change impacts on water supply planning, the likely impacts on water demands are less well understood. However, some impacts on water demands are already included in the forecasts provided in this plan, because recent water demands are utilized to project future water demand patterns and these recent demands reflect actual consumption patterns based on current climate conditions. Regular updates to these projections and this plan can assist in better understanding both demand-side and supply-side impacts from future climate change. Without conducting a more detailed investigation of potential climate change impacts on both supplies and demands, a sensible approach to water demand forecasting in a changing climate is to regularly update and refine demand projections based on actual current conditions. WATER EFFICIENCY PLANNING PROCESS AND GOAL SETTING The Town carefully developed this Water Efficiency Plan in accordance with the Colorado Water Conservation Act of 2004 so that it meets or exceeds all statutory requirements according to Colorado Revised Statute § 37-60-126. The Town utilized the Colorado Water Conservation Board’s Municipal Water Efficiency Plan Guidance Document dated July 2012 to inform and guide the development of this conservation plan. To fulfill Colorado’s statutory water conservation planning requirements, a series of water conservation program scenarios were developed that incorporated a variety of indoor and PAGE 3 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW outdoor efficiency measures that have been cost-effective when implemented in other Colorado utility service areas. For Carbondale, the following water efficiency measures have been identified as providing a reasonable cost savings for the utility or customers by reducing water demands: Metering, Water loss control, Conservation-oriented water rate structure, Codes and ordinances including the Residential Efficient Building Program (REBP) and the International Green Construction Code, and Mapping, inventory, and management of the raw water system. The Town is committed to the efficient use of its water resources. The Town has established a water efficiency goal of 24 AF (2.0%) savings per year compared with a continuation of current demand. Based on careful analysis of current demands and expected growth, the Town believes this level of savings to be reasonably achievable, assuming funding for raw water monitoring system can be obtained. This goal will be re-evaluated on a regular basis, as Carbondale intends to update the Water Efficiency Plan every seven years. This means that four or more additional plan updates may be completed before 2050, affording ample opportunity to update and refine the Town’s conservation program and goals as needed. WATER EFFICIENCY PROGRAM The Town does not have a dedicated conservation staff member and its conservation 1 program is implemented by the Utilities Director with assistance from other staff members. In addition, the Town periodically hires outside contractors to assist in implementing certain water efficiency program activities such as leak detection. The Town has demonstrated a commitment to water use efficiency, and even without a dedicated staff member, has implemented some of the most essential water conservation program measures including metering, a conservationoriented water rate structure, utility water loss reduction, and public education and information about water efficiency. This is the first Water Efficiency Plan that has been prepared by Carbondale, and is being completed as part of the Town’s participation in the Roaring Fork Watershed Regional Plan. 1 The terms water efficiency and water conservation are used interchangeably throughout this document. PAGE 4 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW WATER EFFICIENCY PLAN APPROVAL THIS SECTION TO BE COMPLETED AFTER PUBLIC REVIEW ROARING FORK REGIONAL WATER EFFICIENCY PLAN The Town’s Water Efficiency Plan has the potential to have a direct effect on flows in the Roaring Fork River as well as the Crystal River, although Carbondale cannot guarantee that water it saves through conservation efforts will benefit the entire downstream reach of the rivers to the extent that other downstream water users may divert that water out of the rivers. The Town is interested in regional partnership to improve water efficiency and is committed to assisting with the implementation of the Roaring Fork Regional Water Efficiency Plan. PAGE 5 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 1. PROFILE OF EXISTING WATER SUPPLY SYSTEM 1.1 OVERVIEW2 The Town of Carbondale (“Town” of “Carbondale”), located along Colorado State Highway 133, which is intersects with Colorado State Highway 82 approximately 11 miles south of Glenwood Springs Colorado, is a municipality that was established in 1887. Carbondale adopted a Home Rule Charter in 2002, and operates under a manager-board governmental structure. Carbondale is located at the confluence between the Crystal and Roaring Fork Rivers at an elevation of approximately 6,200 feet. As with the entire Roaring Fork Valley, initial development was driven by the influx of gold and silver mining prospectors laying claims to parcels near Aspen. Hunters and farmers relied on the fertile lands in the lower valley, including areas in and around Carbondale, to supply food to the booming mining towns. Carbondale became a depot of the newly developed railroad in 1887, and mining, railroad construction and farming attracted a steady stream of new residents. The Town was officially incorporated in 1888 and was named in honor of Carbondale, Pennsylvania, which was the original home of some of the early settlers. The growth of Aspen as a destination resort during the 1960's began to have a major effect on the lower Roaring Fork Valley and Carbondale. Tourism became the driving economic force in the region, and the population has steadily grown since that time. The early 1990's ushered in the most dramatic physical and socio-economic change to affect the Carbondale area since the decline of the mining and oil shale industries. Suddenly, the lower Roaring Fork Valley was feeling the development pressure not yet seen in the area, including Aspen Glen and River Valley Ranch. Carbondale continues to expand and is planning for the population to grow at a rate of approximately 2.5% per year through the 2050 planning period. Based on this assumed rate of growth, the population of Carbondale is projected to increase from approximately 6,600 in 2013 to approximately 11,100 by 2035 and 16,100 by 2050.3 Regardless of whether these projections accurately reflect the forthcoming level of change, it is clear that some growth and change is inevitable. The challenge is how to respond to this inevitability and maintain the Town’s small-town character. The Comprehensive Plan addresses this challenge by offering guidance for how to manage change in the future in a way that maintains and enhances Carbondale’s small-town character (Carbondale, 2013). 2 3 Historical information was obtained from http://www.carbondale.com/town/history. This assumes a growth rate of 2.5% per year through 2050. PAGE 6 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 1.2 REGIONAL SETTING The Roaring Fork Watershed is located within the Colorado River Basin in central Colorado on the west side of the Continental Divide. The watershed includes the Sawatch, Collegiate and Elk Mountain Ranges and 8 peaks exceeding 14,000 feet in elevation. Snowmelt from the mountainous headwaters contributes to the streamflow in three primary rivers (Roaring Fork, Fryingpan, and Crystal) that eventually contribute to the flow in the Colorado River in the City of Glenwood Springs. The drainage area of the Roaring Fork watershed is approximately 1,450 square miles. According to the State Water Supply Initiative (SWSI, 2010), the Colorado River Basin has a projected 2050 M&I water supply gap of 40% with respect to projected water demands. The Colorado River Basin supplies water to over 30 million people in the arid southwest, with the Roaring Fork Watershed contributing about 991,100 AF to the Colorado River per year (USGS, 2013). The Roaring Fork Watershed experiences a wide range of climatic conditions from year-to-year as well as from season to season. Climatological records provide evidence of recurring major droughts in Colorado of various length and intensities. Water suppliers in the West accommodate this uncertainty through reservoir storage, consideration of "firm yields" in estimates of water availability, raw water supply development, and "demand side" strategies such as voluntary or mandatory restrictions on outdoor water usage. Plans to reduce usage are necessary to stretch the available water supply to help meet future demands and sustain periods of drought. Water supply systems in the Roaring Fork Watershed are at risk from possible forest fire, floods, failure of dams/mains/wells, and contamination of all or part of the raw water supply. In order to respond to emergency or drought situations, contingency plans are typically designed for implementation of mandatory measures in stages that minimize impacts to the economy, lifestyles, and environment of the community. 1.3 WATER SUPPLY AND RELIABILITY The Town has three water production facilities along with an extensive ditch system that is used for outdoor irrigation. The ditch system delivers raw water to the parks, golf course, and an estimated 15% to 20% of residential users. The water treatment plants provide treated well water and surface water to the service area. The total capacity of the water treatment plants is 4.0 million gallons per day (MGD); however, the current production ranges from approximately 2.5 to 3.0 MGD depending on the season. Supplemental water is available under a contract from Ruedi Reservoir, which is deliverable through release from the reservoir and then pumping of the well system along the Roaring Fork River as a drought reserve. PAGE 7 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 1.3.1 Potable Water Supply Carbondale obtains it potable water supply from surface water sources in the Nettle Creek drainage, a tributary to the Crystal River, and from groundwater sources along the Crystal and Roaring Fork Rivers. The Town has a total of four wells, with three located in the Roaring Fork alluvial aquifer and one located in the Crystal River alluvial aquifer. Additional details regarding the three water supplies are provided in the following sections. 1.3.1.1 Surface Water Supplies from Nettle Creek Nettle Creek is the principal source of drinking water for the Town. The creek drains approximately five square miles and is a tributary of the Crystal River. A series of collection boxes capture flows ranging seasonally from 400 gpm or 0.58 MGD (approximate baseline) to 900 gpm or 1.30 MGD (representative runoff in a non-drought year), and convey flows to the water treatment plant. Diversions are sourced from high altitude glacial and snowmelt fed lakes, and Town staff report that water is of high quality. 1.3.1.2 Groundwater Supplies The Crystal River Well is completed into the Crystal River alluvium and is capable of withdrawing up to 1.0 MGD. Diversions from the Crystal Well are used to supplement deliveries from Nettle Creek. The well can be operated as needed on a year-round basis and utilizes chlorination for treatment. There is additional capacity which can be utilized, if necessary, by expanding the Crystal River well field and treatment plant. Expansion of these sources will be determined at the time of need, and pending the ground water ruling by the Environmental Protection Agency (EPA) and the Colorado Department of Public Health and Environment (CDPHE). The Roaring Fork wells consist of three developed shallow wells located on minimal use pasture on private property. The wells are used as a tertiary backup supply. Diversions from the Roaring Fork wells are treated via membrane filtration and post chlorination, and the capacity of the treatment plant is currently 1.0 MGD. A total of 10 municipal Roaring Fork wells that have been decreed; the remaining seven wells are not completed at this time, and they will be installed downstream of the existing wells as dictated by the need for additional supplies. The Roaring Fork well field treatment facility has a foundation for an additional 1.0 MGD of capacity. 1.3.2 Raw Water Supply Carbondale’s potable (treated) water system is supplemented heavily during the irrigation season by a network of irrigation ditches which are fed by a series of headgates located along the Crystal River. Raw ditch water is used for irrigation purposes by a subset of the residential customers, as well as in open space, park, school, and sports field areas. The primary ditches which the Town is solely responsible for operating include the Carbondale Ditch (Town Ditch), Bowels and Holland Ditch, and Weaver Leonardy Ditch. In addition, the Town is vested in water PAGE 8 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW delivery from the Ella Ditch, Lowline Ditch, and Rockford Ditch. Water rights associated with the ditch system allow the Town to limit the effects of irrigation demands on the treatment plants and storage facilities during the irrigation season. 1.3.3 Water and Wastewater Treatment The Town owns and operates a dedicated treatment facility for each of the water supply sources: Nettle Creek, Crystal Well, and Roaring Fork wells. The plant that is used to treat the surface water diversions from Nettle Creek has a capacity of 2.0 MGD and uses gravity filtration through a mixed-media filtration system. The plant that is used to treat diversions from the Crystal Well has a capacity of 1.0 MGD and utilizes chlorination treatment technology. The plant that treats diversions form the Roaring Fork wells also has a capacity of 1.0 MGD and uses membrane filtration and post chlorination. The combined treatment capacity from all three plants is 4.0 MGD; however, reliable production capacity is estimated to be around 2.5 to 3.0 MGD, depending on the season. 1.3.4 Capacity and Reliability The Town is fortunate to have physically abundant, high quality water sources. The combination of surface water supplies from Nettle Creek and groundwater supplies from the Crystal River and Roaring Fork River alluvial aquifers provide source diversity and redundancy in the primary supply, with Ruedi Reservoir serving as a reliable backup. Demand forecasts for the 2050 planning horizon are provided in Section 2 below. Based on these projections, the Town’s water rights are sufficient to meet the supply needs of the community beyond 2050, as is the water supply infrastructure including the water treatment plants, transmission mains, and storage facilities. The Town recognizes the potential for contamination of the source of its drinking water, and realizes that it is necessary to develop a protection plan to prevent the contamination of this valuable resource. 1.3.5 Proposed Water Supply Projects The Town has drafted a capital improvement plan to prepare for necessary upgrades to the water supply system. Potential projects include: acquiring additional water rights in the Nettle Creek basin, primarily in the North Nettle Creek drainage; potential expansion of the Crystal well field depending on future regulations; and expanding the Roaring Fork well field along with increasing the filtration capacity at the Roaring Fork water treatment plant. 1.3.5.1 Crystal Well Field The Town is evaluating opportunities to increase the firm finished capacity of the water system by expanding the Crystal well field. The feasibility of this project is dependent on future regulations. PAGE 9 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 1.3.5.2 Rehabilitation of Roaring Fork Well #2 The Town has been experiencing problems with sand being produced from Roaring Fork Well #2. The Town plans to attempt to remedy the situation by rehabilitating the well if the integrity of the casing is sufficient to withstand treatment. 1.3.5.3 Fire Flow Availability Fire flow deficits currently exist at isolated locations within the Town. Development is expected to occur in the vicinity of each of these areas, which will further exacerbate deficits, and so the Town has identified upgrades to provide sufficient flows for fire suppression. 1.3.5.4 Pipe Size Upgrades The Town’s distribution system has a combined length of approximately 28 miles and is composed of pipe sizes ranging from 4-inch to 16-inch. The Town has adopted a minimum 8inch standard pipe size; however, there are currently 1.2 miles of 4-inch and 4.3 miles of 6-inch pipe throughout the Town that are sub-standard and needs replacement. 1.3.5.5 Pipe Velocities Continuous high velocity in a pipeline is undesirable because it increases head loss and required energy consumption, adds stress and wear to fittings and connections, and increases the potential for leaks and main breaks. Under maximum daily demand conditions, the recommended maximum pipe velocity is 5 feet per second (fps). One location has been identified to have flow velocities higher than 5 fps and will be exacerbated by additional demand from development. The Town is currently evaluating options for resolving this issue through updating the Water Master Plan and development in the regions where these limitations exist. Future development within the boundaries of the Town service areas will trigger resolution strategies to alleviate these restrictions. 2. WATER DEMANDS AND HISTORICAL DEMAND MANAGEMENT As part of the water efficiency planning process, three distinct water demand forecasts were prepared. The purpose of these forecasts was to present a range of reasonable estimates of water demand for Carbondale through the year 2050, given anticipated population growth, and to estimate the impact of the water conservation measures that occur both “passively” as a result of national and state plumbing codes and standards and “actively” as a result of specific programs and measures to be implemented by the Town. These forecasts were also used for the important purpose of evaluating the adequacy of Carbondale’s water supply system to meet future demands. PAGE 10 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW The first step in the forecasting process was to gather data and information on the history of water demands and conservation in Carbondale. Through a careful review of these data and information, a baseline demand for Carbondale was established. Next, historical population data were used to establish the baseline population, and the Town’s planning data were used to forecast population growth out to 2050. This section of the Carbondale Water Efficiency Plan describes historical water demands and demand management efforts in the Town. 2.1 DEMOGRAPHICS AND SERVICE AREA CHARACTERISTICS The Town provides potable and raw water service to a 2.54 square mile area with a current population of approximately 6,600 people and approximately 3,000 customer connections. The Town continues to grow, and long-term planning efforts are being based on an average growth rate of 2.5 percent per year through the 2050 planning period. It is estimated that the population of Carbondale will increase to approximately 11,100 by 2035 and 16,100 by 2050.4 To better understand water use among different categories of customers, Carbondale uses the following customer category assignments for its water service accounts. Each water account is assigned one of the category designations below. Residential Commercial, In-Town Commercial, Out-of-Town Commercial, Sprinkler (i.e., irrigation) Customer information is stored in the utility’s customer billing system. 2.2 HISTORICAL WATER DEMANDS Annual metered potable water use in Carbondale from 2005 to 2012 ranged from 857 AF/yr to 979 AF/yr (Table 1). However, there is additional raw water usage for irrigation purposes by a subset of the residential customers as well as in open space, park, school, and sports field areas. This raw water usage is not metered. In order to evaluate residential water usage in the Town, it was necessary to estimate the unmetered usage, as further described below. The Town’s Utilities Director estimates that 15% to 20% of residential connections likely utilize raw ditch water supplies for irrigation. Total monthly metered data and non-residential monthly metered data were available from August 2010 through July 2013. Monthly metered residential water usage was calculated as the difference between the total monthly metered use and the sum of the non-residential metered use (Table 1). Monthly indoor residential use 4 This assumes a constant growth rate of 2.5% per year. PAGE 11 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW was estimated on an annual basis as the average metered wintertime usage from December through February, and all additional usage from March through November was classified as outdoor use for the given year. The estimated metered outdoor residential use was then increased by 20% to approximate the unmetered outdoor usage that is supplied using raw ditch water (Table 1). The results of this analysis show that unmetered residential outdoor use represents only around 6% of total residential use and 4% of total system demands. PAGE 12 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW Table 1: Population and Annual Water Deliveries (AF/yr) from 2005 to 2012. Year 2005 2006 2007 2008 2009 2010 2011 2012 Baseline for Demand Forecast Population 5,748 5,884 6,020 6,155 6,291 6,427 6,470 6,514 Total Metered 857 941 959 979 977 943 895 914 6,600 969 Metered (Treated) Commercial, Commercial, Commercial, In-Town Out-of-Town Sprinkler Residential 132 13 16 733 146 12 19 738 148 13 19 788 Estimated Raw (Ditch) Residential Total 39 45 934 959 46 1,014 PAGE 13 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 7,000 1,000 5,600 800 4,200 600 2,800 400 1,400 200 0 Metered Water Deliveries (AF/yr) Population (#) The population in Carbondale has increased each year; however, the metered water deliveries have generally declined since 2008 (Figure 1). These changes are typical of municipal demand trends across the United States, which have generally declined or held steady in recent years. Fluctuations in Carbondale’s water demand is normal for a municipality of this size and character, located in a region with variable weather conditions and irrigation requirements. 0 2005 2006 2007 Population 2008 2009 2010 2011 2012 Metered Water Deliveries Figure 1. Changes in Population and Annual Metered Water Deliveries from 2005 through 2012. The baseline population and demand shown in Table 1 were selected based on recent demands and the best available understanding of water use in Carbondale moving forward into the future. The baseline demands are an important element of the three demand forecasts developed in this plan. In some cases, baseline demands that exceeded the actual demands in 2012 were chosen because 2012 water use in those categories was less than in other recent years. In particular for the Residential customer category, a baseline metered (potable) demand of 788 AF was selected based on 2008 and 2009 demands. To assess the adequacy of water supplies in the future, it is essential to include a full level of potential future demands that are not biased by the normal fluctuations in demand observed in any individual year. PAGE 14 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW An estimated breakdown of indoor and outdoor historical demands in Carbondale based on the periodic consumption (metered delivery) data provided by the Town are shown in Table 2. Typically, about 70% of the annual water demand in Carbondale is for indoor purposes and 30% is for outdoor irrigation. Table 2. Residential Indoor and Outdoor Water Deliveries from 8/2010 – 7/2013. Year 2010-11 2011-12 2012-13 Baseline Indoor (AF/yr) 534.3 551.0 510.3 551.0 Outdoor (AF/yr) 204.2 237.1 190.3 237.1 % Indoor 72.3% 69.9% 72.8% 69.9% % Outdoor 27.7% 30.1% 27.2% 30.1% Apr to Oct Temp (deg F)* 58.7 60.5 60.0 59.7 *Based on Glenwood Springs #2 Weather Station (No. 53359). Carbondale’s consumption data were further disaggregated by water use sector as shown in Table 3. Indoor and outdoor demands for each category were estimated using a standard average winter consumption (AWC) approach where indoor use from the winter months (January, February, and December), when there is typically no outdoor irrigation occurring, is used to estimate indoor use for the entire year. Indoor use is then deducted from the total to estimate outdoor use. Table 3: Metered Sectoral and Seasonal Water Deliveries from 8/2010 – 7/2013 (AF/yr). Year 2010-11 2011-12 2012-13 Baseline Residential Indoor Outdoor 534.3 551.0 510.3 551.0 204.2 237.1 190.3 237.1 Commercial – In Town Indoor Outdoor 94.9 101.8 107.3 101.8 29.8 46.2 34.8 46.2 Commercial – Out of Town Indoor Outdoor 13.2 13.4 12.3 13.4 0.0 0.0 0.0 0.0 Irrigation Only Indoor Outdoor 0.0 0.0 0.0 0.0 16 18 19 19 Total 892 968 874 969 As with most municipalities in Colorado, Carbondale’s demands are higher during summer months due to outdoor water use. Figure 2 shows the average monthly demands over the past 3 years from August 2010 to July 2013 by water use sector. As expected due to outdoor water use, most water use sector demands increase during summer months from June through October and the residential pattern correlates particularly well with temperature during summer months. The distribution of sectoral demands in Carbondale are also very consistent between years, as shown in Figure 3. PAGE 15 140 80 120 70 60 100 50 80 40 60 30 40 20 20 Average Monthly Temperature (F) Average Monthly Water Demands (AF) TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 10 - 0 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Total Residential - metered Commercial Irrigation Residential - Raw Temperature Figure 2. Average Monthly Demands by Water Use Sector from 8/2010 to 7/2013. 100% Water Demand Distribution (%) 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% 2011 Residential - Metered 2012 Commercial 3-yr Avg. (8/10 to 7/13) Irrigation Residential - Raw Figure 3. Distribution of Sectoral Demands from 8/2010 to 7/2013. PAGE 16 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW In 2012, residential demand (metered and estimated raw ditch usage) accounted for 81.5% of the total demand in Carbondale, commercial (in-Town and out-of-Town) accounted for 16.5%, and commercial sprinkler (i.e., irrigation) accounted for the remaining 1.9%. A pie chart showing the components of the 2012 water usage in Carbondale is presented in Figure 4. Irrigation, 1.9% Commercial, 16.5% Residential, 81.5% Figure 4: Distribution of Annual Water Use by Sector in 2012. A pie chart showing the percentage of customer connections in 2013 by water use sector in Carbondale is provided in Figure 5. There are a total of approximately 3,000 service connection in Town. Residential customers are most prevalent in Carbondale, accounting for 2,726, or 90.9%, of all service connections. Commercial connections account for 8.5% of all connections and are broken down as follows: 253 in-Town (including 5 municipal), and 2 out-of-Town. Additionally, there are 19 dedicated commercial irrigation accounts that represent 0.6% of the connections. Although residential customers make up approximately 90.9% of the customer connections, they comprise only 81.5% of the total annual demand. Commercial customers (8.5% of connections) account for 16.5% of the annual demand. Dedicated irrigation accounts make up 0.6% of the connections but account for 1.9% of the annual demand. PAGE 17 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW Commercial, 8.5% Irrigation, 0.6% Residential, 90.9% Figure 5. Distribution of Customer Connections in 2013. 2.3 SEASONAL AND PEAK DAY DEMANDS The metered consumption data indicated that the average daily demand ranged from approximately 0.76 MGD to 0.86 MGD. The Town’s Utilities Director has indicated that the maximum daily demand is approximately 2.0 MGD. This indicates a peaking factor in the range of 2.3 to 2.6 is reasonable for Carbondale, and a value of 2.6 was selected for the demand forecasts to provide a conservative projection of peak demands. Carbondale has sufficient treatment capacity to meet foreseeable peak day demands. The Town currently has the ability to treat up to 4.0 MGD which provides sufficient treatment capacity for the next 20 years under the highest (and least likely) potential demand forecast. 2.4 SYSTEM WATER LOSSES The Town periodically contracts with a professional leak detection firm that utilizes sophisticated listening equipment to locate leaks. The Town also evaluates losses on an ongoing basis by comparing monthly metered account summaries to the combined water treatment plant deliveries. A comparison of the volume of water produced from Nettle Creek, the Crystal Well, and the Roaring Fork wells versus the total metered consumption suggests that the Town’s losses exceed 20% (Table 4). However, the Town has recently addressed some known leakage issues and uses an “honor system” for the bulk water filling station at the Public Works facility. Given the recent improvements and the unmetered bulk use, Town staff estimate that a more realistic loss value is approximately 10%. PAGE 18 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW Table 4. Water Losses Based on Comparison of Production and Metered Data. Metered Production Consumption Year (AF/yr) (AF/yr) 2011 1,222 895 2012 1,218 914 2013 664 506 Loss (%) 27% 25% 24% 2.5 PAST AND CURRENT DEMAND MANAGEMENT ACTIVITIES The Town Water and Sewer Department currently employs around twelve people including the Utilities Director. Carbondale does not have a dedicated conservation staff member and its conservation program is implemented by the Town’s Utilities Director with assistance from other staff members. The Town promotes the efficient use of water, and even without a staff member dedicated to water conservation, has implemented some of the most essential water efficiency and conservation program measures. While this is Carbondale’s first water efficiency plan, they have already implemented the following initiatives to reduce water use: Water loss reduction and infrastructure upgrade program; Tiered water rate structure; Residential Efficiency Building Program; and Public outreach and education regarding outdoor water use, with more focused promotion during drought periods: o Landscape and irrigation recommendations published in newspaper and played on radio; o Recommended watering schedules; o Recommended landscaping maintenance practices to conserve water, such as mulching and mowing height; and o Promoting the use of rain shutoff devices with automatic irrigation systems. 2.6 DEMAND FORECAST As part of the preparation of the Water Efficiency Plan, three separate demand forecasts were prepared: 1. Baseline Forecast (without conservation) 2. Passive Savings Forecast 3. Passive and Active Savings Forecast PAGE 19 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW The baseline forecasting method used historical demand patterns to establish baseline per capita demand and then to increase these demands with population out to 2050 as if the 2014 per capita water use patterns continue without change to 2050. This is a standard approach to demand forecasting, but it does not take into consideration the expected impacts of water efficiency. The second and third forecasts were developed using a more robust approach, where demands were separated out by water use sector or customer category (e.g. residential, commercial, irrigation, municipal, etc.), with seasonal and non-seasonal demands (outdoor and indoor) disaggregated for each category. Then a separate demand forecast out to 2050 was prepared for indoor and outdoor demand in each of Carbondale’s customer sectors. This allowed the impacts of specific water efficiency measures like high-efficiency toilets and clothes washers to be considered. 2.6.1 Population Planning Projections For water demand forecasting, it is important to consider a reasonably high growth population forecast to ensure that sufficient water supply and infrastructure are in place when needed by the local citizens. The population forecast used in this conservation plan is intended to represent a reasonable “high growth” scenario for Carbondale in which the population grows at an annual 2.5% rate over the next 36 years. The Town estimates that the population of the service area was approximately 6,600 residents in 2013, and anticipates that portion of the population to grow at a rate of approximately 2.5% per year. Table 5 shows the population forecast from 2015 to 2050. These data are shown as a graph in Figure 6. Under this forecast, it is estimated that the population of the Town’s service area will increase to approximately 11,100 by 2035 and 16,100 by 2050. Table 5: Population Growth Projections from 2015 through 2050. Year 2015 2016 2017 2018 2019 2020 2025 2030 2035 2040 2045 2050 Population 6,765 6,934 7,107 7,285 7,467 7,654 8,660 9,798 11,085 12,542 14,190 16,055 PAGE 20 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 18,000 16,000 14,000 Population 12,000 10,000 8,000 6,000 4,000 2,000 0 2005 2010 2015 2020 2025 Historic 2030 2035 2040 2045 2050 Forecast Figure 6: Actual and Forecast Population from 2000 through 2050. Carbondale does not currently have a build-out population planning projection. In the forecasts shown here, a 2.5% annual growth rate is anticipated. The actual growth rate over the past few years has been closer to 0.7% per year. For water and conservation planning purposes, the projections used by the Town and presented here are responsible and appropriate for assessing water supply adequacy. Furthermore, since this plan is scheduled to be updated every seven years, there is ample opportunity to refine these forecasts to better match actual growth trends in Carbondale. 2.6.2 Demand Forecasts As part of the water efficiency planning process, three distinct water demand forecasts were prepared. A description of each scenario and the forecasting methodology is presented below. The costs and benefits associated with these scenarios are considered in the next section of this plan document. 2.6.2.1 Forecast Methodology First, a baseline demand forecast starting from 2015 and going out to 2050 was prepared. This baseline forecast did not include the impact of water conservation of any kind, even future passive water savings, and was developed only to assess the adequacy of future supplies under reasonable worst-case conditions, and to demonstrate the impact of anticipated efficiency PAGE 21 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW improvements. The baseline forecast in based on a combination of anticipated demographic and land use changes in Carbondale. In the baseline forecast, all demands (indoor and outdoor) increase proportionally with the population at the current rate of usage. A second water demand forecast to 2050 was developed that includes the impact of passive efficiencies from Colorado legislation, and federal plumbing codes and standards. A third forecast was prepared that includes the anticipated impact of the Town’s planned water efficiency program measures described in this plan. The second and third forecasts include the impacts of water efficiency and were developed using a more robust approach that considers anticipated changes in each customer sector in Carbondale. To develop these forecasts, demands were separated out by water use sector (e.g. residential, commercial, municipal, etc.), with seasonal and non-seasonal demands (outdoor and indoor) disaggregated for each category as shown in Table 3. Then a separate demand forecast out to 2050 was prepared for indoor and outdoor demand in each of Carbondale’s customer sectors. This allowed the impacts of specific water efficiency measures like highefficiency toilets and clothes washers to be considered. These three forecasts form the core of the water efficiency plan and are the forecasts upon which estimated conservation savings are based. Each forecast shows demand starting in 2015 and going through the planning horizon of 2050 (36 years). The results are provided in and further described in the sections below. Historical and forecasted raw water demands from the Town’s ditch system are also shown in Figure 7. The raw water forecast escalates with population in the same proportion as the baseline forecast, but because it is relatively low to begin with, the increase over time appears less significant. PAGE 22 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 3,000 Annual Water Demand (AF) 2,500 2,000 1,500 1,000 - 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035 2036 2037 2038 2039 2040 2041 2042 2043 2044 2045 2046 2047 2048 2049 2050 500 Historic Potable Baseline Potable Passive Potable Active Potable Historic Raw Ditch Raw Ditch Forecast Figure 7: Baseline, Passive, and Active Demand Forecasts through 2050. Baseline Forecast The concept of the baseline forecast is to exclude conservation of any kind and to simply assume that typical baseline demand patterns (i.e. the water use patterns of 2010-2013) are continued into the future without change. It is also assumed that typical water demands for the Town will change proportionally with increases in population. This assumes new customers joining the system use water identically to the current customer base. The fundamental purposes of the baseline forecast are to assess the adequacy of future supplies under reasonable “worst case” conditions (i.e. no water efficiency gains), and to demonstrate the anticipated impact of water efficiency in Carbondale from both passive and active conservation programs. The baseline forecast is presented in Figure 7. Key assumptions in the baseline forecast include: Baseline water use patterns for Carbondale (Table 1). Population forecast for Carbondale (Table 5). PAGE 23 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW Water use in all sectors both seasonal and non-seasonal changes proportionally with the population. Outdoor water use impacts from temperature and precipitation in 2050 are similar to 2015. Baseline water demand in 2014 (including raw water ditches) was 1,208 acre-feet (AF) and under the baseline forecast is expected to increase by 1,731 AF to 2,939 AF in 2050. This represents a 143% increase in water demand over the next 36 years. Passive Conservation Forecast A second water demand forecast to 2050 that includes the impact of anticipated passive efficiencies from Colorado legislation and federal plumbing codes and standards on a sector-bysector basis for both indoor and outdoor use was prepared. Colorado Senate Bill 2014-103, which was passed in 2014 and phases out the sale of low-efficiency lavatory faucets, showerheads, flushing urinals, and tank-type toilets, is an example of local legislation that is accounted for in the forecast of passive conservation between 2015 and 2050. This forecast found that Town water demands (potable and raw water ditches) will increase to 2,395 AF in 2050. The passive forecast is presented in Figure 7. Key assumptions in the passive conservation forecast include: Baseline water use patterns for Carbondale (Table 1). Population forecast for Carbondale (Table 5). Outdoor water use in all sectors increases proportionally with the population. Outdoor water use impacts from temperature and precipitation in 2050 are similar to 2015. 1% per year decrease in residential indoor per capita water use (from 74.5 gallons per capita per day (gpcd) in 2014 to 51.9 gpcd in 2050), continuing trends of the past 15 years 5. 0.5% per year decrease in per capita commercial indoor use (both in- and out-of- town) from ongoing replacement of fixtures, appliances and equipment and new Colorado legislation (Senate Bill 14-103) assuring high-efficiency plumbing in new construction. The passive conservation forecast hypothesizes a 98.2% increase in water demand over the next 36 years and suggest that more efficient fixtures and appliances could help reduce future demands in Carbondale by 545 AF compared with the baseline. 5 Based on results from the Water Research Foundation Residential End Uses of Water Update (to be published in 2014). PAGE 24 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW Active Conservation Forecast A third forecast was prepared that includes the anticipated impact the Town’s planned water efficiency program measures described in this plan. Under this forecast, potable and raw water demand increases to just 2,099 AF in 2050. Compared with the baseline forecast, if the elements of this plan are fully realized, then it is estimated that water demand at 2050 will be reduced by 840 AF as a result of passive and active water conservation measures in Carbondale. The active conservation forecast is presented in Figure 7. Key assumptions in the active conservation forecast include: Baseline water use patterns for Carbondale (Table 1). Population forecast for Carbondale (Table 5). Outdoor water use in all sectors increases proportionally with the population, but is reduced by 0.5% per year due to a combination of factors including: Carbondale’s conservation-oriented rate structure which charges higher rates for outdoor use, densification as the Town grows, anticipated smaller lot sizes in future developments, irrigation efficiency improvements, ongoing landscape transformation from traditional turf to water-wise plants, and the Town’s ongoing education and information efforts. Outdoor water use impacts from temperature and precipitation in 2050 are similar to 2015. Water loss remains constant at approximately 200 AF per year over the next 36 years. As demand increases in Carbondale, water loss does not increase proportionally. This will require some diligence for Carbondale starting with implementation of the AWWA M36 water loss control audit. 1.0% per year decrease in residential indoor per capita water use (from 74.5 gpcd in 2014 to 51.9 gpcd in 2050), to reflect recent changes to Colorado law under (Senate Bill 14-103), that phases in the sale of only high-efficiency WaterSense labeled fixtures starting in 2016. 0.5% per year decrease in per capita commercial indoor use from ongoing replacement of fixtures, appliances and equipment and new Colorado legislation assuring highefficiency plumbing in new construction. The active conservation forecast hypothesizes a 73.8% increase in water demand over the next 36 years and suggests that more efficient fixtures and appliances could help reduce future demands in Carbondale by 840 AF compared with the baseline. 2.6.2.2 Limited Financial Benefits of Conservation Carbondale has an ample raw water supply to meet current demands, and has the water rights available to address projected future demands over the next 36 years. Carbondale has a total water treatment capacity of 4.0 MGD, with the current production ranging from approximately PAGE 25 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 2.5 to 3.0 MGD depending on the season. Under the baseline forecast, this peak will be exceeded by 2035. Under the active conservation forecast, Carbondale’s peak capacity will not be exceeded until 2046, providing the Town an additional 11 years to expand capacity if necessary. There are no infrastructure projects that could be delayed or eliminated if the Town were to adopt a more aggressive water conservation program. Because of the Town’s fortunate position regarding its water supply and delivery system, the financial benefits of increased water efficiency in Carbondale are essentially non-existent. Some small cost savings might be achieved through reduced chemical costs associated with water treatment, but these would most certainly be offset by the decrease in revenue associated with demand reductions. In Carbondale, there is not a significant financial benefit (from the Town’s perspective) to increased water use efficiency at this time. 2.6.2.3 Climate Change Impact on Water Use Recent climate change forecasts indicate a warming trend in irrigation season temperatures in the Roaring Fork region. For example, one report indicates temperatures for the 2035 to 2064 time period are forecast to increase by an average of approximately 4 degrees F as compared to 1971 to 2000 (CIRES 2014). More frequent and severe heat waves, droughts, and wildfires are projected. While this may increase the uncertainty in outdoor water demand projections, the net effect depends on numerous factors such as the amount and type of landscaping material, irrigation management practices, etc. Furthermore, some of the impacts on water demands are already included in the forecasts provided in this plan, because recent water demand data are utilized to project future water demand patterns. It is important to consider both demand-side, as well as supply-side impacts of future climate change on overall water supply conditions. The forecast methodology provided in this plan, along with regular updates to the demand projections, will assist in this process. 2.6.3 Estimated Cost of New Supply Options Given that Carbondale’s water supply is ample to meet anticipated future demands, and since the Town has no pending water supply infrastructure projects beyond normal maintenance, there are no calculable avoided costs for new supply associated with demand reduction. Consequently, it is not possible to calculate a benefit/cost ratio for any of the conservation activities developed in this plan. For this plan, all required elements were considered, but ultimately the current conservation program, with some additions, was selected as the best option for Carbondale. In spite of the lack of a real financial incentive for water efficiency, the Town of Carbondale remains committed to its current conservation efforts, which include many of the most important and effective measures such as metering and conservation pricing. PAGE 26 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 3. SELECTION OF WATER EFFICIENCY ACTIVITIES Carbondale considered a variety of water efficiency programs and measures before selecting the final components for inclusion in this plan. Efficiency measures were screened using a variety of criteria including: Feasibility and practicality, Water savings and estimated cost per AF, and Watershed benefits. The Town utilized the CWCB’s Municipal Water Efficiency Plan Guidance Document (CWCB 2012) to inform and guide the development of this conservation plan. 3.1 SUMMARY OF THE SELECTION PROCESS The Town implemented a tiered screening and selection process for evaluating potential water efficiency activities. Existing activities were included in the list of measures and unless duplicative, existing activities are expected to continue as part of the ongoing water efficiency program. Cost was a key factor for Carbondale, when considering what efficiency program measures to implement. As noted above, the financial benefits of increased water efficiency in the Town are essentially non-existent. A traditional cost-benefit analysis could not be performed because no financial benefit could be quantified. Conservation program measures were selected with the knowledge and understanding that the Town does not have a designated water conservation budget or dedicated program staff. At the same time, the Town has developed an effective demand management program over time by including core foundational elements like rates and ordinances that are part of the Town’s regular management activities. Initial Screening. An initial screening was conducted by the consultant team, using the CWCB screening and evaluation worksheets (CWCB, 2012) and the Guidebook of Best Practices Guidebook for Municipal Water Conservation in Colorado (CWW, 2010) as the key technical resources, along with professional experience. Activities that made it through the initial screening were assembled and passed along to the staff for screening. Final Screening. The final level of screening and selection of water efficiency activities was made by the Town’s Utilities Director. During the final screening, care was taken to select a suite of activities capable of achieving the level of water savings needed by Carbondale to achieve the stated water efficiency goals. PAGE 27 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 3.2 DEMAND MANAGEMENT ACTIVITIES Table 6 presents the new and ongoing water efficiency activities selected for inclusion in this plan. Each measure is described in more detail in the sections below. Table 6. New and Updated Water Efficiency Activities and Water Savings Estimates. Sectors Impacted Ongoing Activity? Implementation Period of New Activities Projected Water Savings 2015 2050 (AF/yr) Automatic/Remote Meter Reading Installation and Operation Enhanced Water Loss Control All YES 2015-18 50 All YES annual 264 Conservation-Oriented Rates All YES ongoing 100 Water Efficiency Activities FOUNDATIONAL ACTIVITIES TARGETED TECHNICAL ASSISTANCE AND INCENTIVES, AND NATURAL REPLACEMENT OF FIXTURES AND APPLIANCES Fixtures, Appliances, (natural All, indoor YES ongoing/as needed 143 replacement and Incentives) Outdoor Water Efficiency All, outdoor YES ongoing 50 CII YES 2015-2020 25 Commercial, Institutional, and Industrial Water Efficiency ORDINANCES AND REGULATIONS Regulatory Measures Raw Water Use in Place of Potable Waste of Water Ordinance and Future Update Update landscape development regulations for new construction to place emphasis on water efficiency in residential development EDUCATIONAL ACTIVITIES All YES Irrigation YES ongoing 33 All YES ongoing 10 SF & MF residential YES ongoing 50 All YES ongoing/as needed 30 All YES ongoing/as needed 10 Public Information and Education K-12 Education TOTAL SAVINGS THROUGH 2050 (AF/yr) 75 840 PAGE 28 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 3.2.1 Foundational Activities 3.2.1.1 Metering A good metering program is fundamental to the success of water conservation efforts. Colorado statute requires all water providers to meter the water use of their customers and to bill based on metered consumption. In Carbondale, 100% of the potable connections (including all municipal facilities) are metered. Staff read meters on a monthly basis (mid-month) and the Town is in the process of expanding meter reading capabilities from hand-held to remote radio readers. 3.2.1.2 Enhanced Water Loss Control Leak detection and water loss control are also fundamental water efficiency practices for all water utilities. As discussed above in Section 2.4, system leakage in Carbondale is currently estimated to be greater than 20%, which exceeds the 10% threshold that is often estimated as the national average. However, the Town has recently addressed some known leakage issues and uses an “honor system” for the bulk water filling station at the Public Works facility. Given the recent improvements and the unmetered bulk use, Town staff estimate that a more realistic loss value is approximately 10%. The Town budgets for ongoing system leak detection, approximate every 3 years, focusing on older segments of the pipe network and areas of vulnerability to leaks. Conducting an annual system water audit, using the AWWA Water Audits and Loss Control Programs software, will further assist the Town in interpreting available data and managing its water by categorizing all water uses and identifying real losses that directly impact revenue, as shown in Table 7 below. Table 7: AWWA Water Audits and Loss Control Programs. Billed Water Exported Billed Authorized Consumption Billed Metered Consumption (including water exported) Revenue Water Billed Unmetered Consumption Unbilled Authorized Consumption Unbilled Metered Consumption Unbilled Unmetered Consumption Unauthorized Consumption Systematic Data Handling Errors Real Losses Non-Revenue Water Leakage and Overflows at Utility's Storage Tanks Leakage on Service Connections PAGE 29 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW As described in Section 3.2.2 below, Carbondale is also considering implementing a number of technological improvements to the distribution system for both raw and treated water that could enhance understanding of water loss and assist in reducing real and apparent losses. 3.2.1.3 Conservation Oriented Water Rate Structure and Billing System Carbondale fully meters all potable water use and currently bills its customers on a monthly basis. The Town’s computerized billing system includes a residential category, but does not distinguish between single family and multi-family residential customers. Similarly, it does not distinguish between sub-categories of commercial and institutional end users. These additional billing categories, while not essential, would be useful in identifying above-normal water uses, forecasting changes in demand, and in targeting specific conservation programs. Such an effort could be most efficiently undertaken when upgrading the Town’s computerized billing system and the Town plans to revisit the idea of expanding customer categorization at that time. The Town uses a four tier inclining block rate structure for residential water customers as shown in Table 8. In this rate structure, tier 2 represents a 38% increase over tier 1, tier 3 is a 27% increase over tier 2, and tier 4 represents a 21% increase over tier 3. The fixed monthly base charge and the variable usage charges for all tiers are approximately 50% higher for outof-Town customers (Table 8). The 6,000 gallon/month allotment for tier 1 represents a reasonable, if slightly generous, amount of indoor water use for residential sector (the largest customer class in the Town). This sets up tiers 2, 3, 4 as the charges for outdoor use, primarily. Tier 2 is from 6,001 – 15,000 gallons per month and it is anticipated that most normal residential outdoor use will be billed in this tier. Carbondale’s rate structure meets the definition of a “conservation-oriented rate structure” from both the Colorado Best Practices Guide for Municipal Water Conservation and the AWWA/ANSI G480 Water Conservation Program and Management Standard. Carbondale can easily increase the conservation impact of this rate structure at any time by raising the rates, particularly in tiers 3 and 4. Carbondale is also considering the use of landscape water budgets as an informational tool to assist irrigators. While it was determined that tying the current water rate structure to customer-specific water budget is not practical at this time, Carbondale understands the utility of landscape water budgets and may consider using them as part of future rate structure updates. PAGE 30 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW Table 8: Treated Residential Water Rates and Rate Structure Effective January 1, 2014. Rate Tier Tier 1 – up to 6,000 gallons/month Tier 2 – from 6,001 – 15,000 gallons/month Tier 3 – from 15,001 to 40,000 gallons/month Tier 4 – over 40,000 gallons/month Fixed monthly base charge Water Rate Per 1,000 gallons (In Town) $1.59 $2.20 $2.79 $3.37 $17.35 Water Rate Per 1,000 gallons (Outside Town) $2.40 $3.32 $4.18 $5.04 $26.00 The standard schedule of rates and charges for commercial water customers in Carbondale is shown in Table 9. Unlike residential customers, commercial customers are not billed according to an inclining block rate structure. The fixed monthly base charge is 50% higher for out-ofTown commercial customers; however, its usage rate is only 39% higher as compared to inTown customers. To strengthen the conservation signal of the commercial rate structure, Carbondale may consider some form of an inclining block rate or water budget rate for commercial customers. Table 9: Treated Commercial Water Rates and Rate Structure Effective January 1, 2014. Water Rate Per 1,000 gallons (In Town) $2.58 $17.35 Rate Tier NA Fixed monthly base charge Water Rate Per 1,000 gallons (Outside Town) $3.58 $26.00 The schedule of rates for bulk water customers is shown in Table 10. Both potable and nonpotable (raw) water is available for bulk purchase. The rate for potable water is approximately five times higher than for non-potable water; however, the fixed monthly base charge is the same for both supply categories. Table 10: Bulk Water Rates. Rate Tier Water Rate per 1,000 gallons/month Fixed monthly base charge Potable Water $12.76 $30.97 Non-Potable Water $2.57 $30.97 The Town does not currently charge for use of raw water from the ditch system, but acknowledges that there are real costs associated with maintaining and improving the ditches. For example, the Town is interested in lining some ditches to reduce water loss, but funding for this effort is needed. In the future, the Town may consider a fixed service fee for raw water PAGE 31 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW access based on customer category, similar to the way it currently charges for storm water. Establishing a raw water usage fee could be beneficial in helping customers recognize the value of the raw water system, thus improving efficiency while providing operational capital for necessary upgrades and maintenance. The Town will consider options for billing for raw water service in future rate structure updates. 3.2.2 Targeted Technical Assistance and Incentives 3.2.2.1 Fixtures, Appliances, and Incentives As demands increase, Carbondale will continue to face the combination of water supply limitations that occur during periods of peak demand. This means that for Carbondale, there is a substantial value in reducing its non-seasonal, or indoor, water uses. The gradual replacement of inefficient fixtures and appliances and other water using devices is an excellent way to accomplish this objective. In 2007, the Town adopted the Residential Efficient Building Program (REBP) to encourage costeffective and sustainable building methods. The REBP was subsequently updated in 2011 and incorporated in Chapter 15.30 of the Carbondale Municipal Code. The REBP applies to all new construction (single-family, duplex, townhouse, and accessory dwelling units), and the REBP Checklist is used as part of building code enforcement. The REBP requires new construction to achieve a minimum number of “innovation points”, determined based on dwelling size, which can be obtained through the use of various sustainable measures. Innovation points are available for implemented water conservation standards related to high-efficiency fixtures and appliances, hot water recirculation systems, landscape mulching, turf area limitations, irrigation systems including drip irrigation and rain sensors, and resident education regarding outdoor water use. 3.2.2.2 Outdoor Water Efficiency Carbondale experiences high summer peak water demands due in part to the tourism industry, but largely due to irrigation demands from customers. While not a long-term water conservation measure, in the event of a climatological drought that affects the Town’s supply, Carbondale is prepared to implement outdoor watering restrictions to reduce demands pursuant to the “water shortage” and “water crisis” designations as outlined in Chapter 13.28 of the Town Code. The Town has taken a number of steps to help reduce irrigation demands, including the REBP program described above and other customer education initiatives. Outdoor water efficiency education measures include the recommendations developed by the Town’s Board of Trustees, Utilities Department, and Environmental Board that are posted in the newspaper and on the radio as well as an informational water conservation pamphlet that was developed in cooperation with the Community Office for Resource Efficiency (CORE). PAGE 32 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW Carbondale’s staff work to extend available water supplies by using raw ditch water to irrigate parks and other municipal facilities whenever possible. All Town parks, medians, and other irrigated areas that use potable supplies are metered and billed based on their actual consumption. In the future, Carbondale hopes to expand ditch laterals to increase customers/access and ability to irrigate with raw water. This could result in significant reductions in the use of treated potable water for irrigation and could result in substantial cost savings to Carbondale and its rate-paying customers by reducing or eliminating the need to expand water treatment capacity. Carbondale is investigating a number of technological improvements to the raw water distribution system that could assist in optimizing operations. The river headgates are the only locations currently measured on a routine basis; however the Town is aware that a significant amount of tail water can result from current operations used to maintain pressure head throughout the ditch system. Better data and more operational control could reduce the amount of flow necessary to push water through the ditch system. Some of the improvements Carbondale is considering include: Mapping delineation (GIS) and analysis of irrigated area and raw water demands, Metering of tail water in Carbondale ditches to provide improved measurements of customer usage, and Telemetry and additional metering to monitor the raw water ditch system. The estimated cost for these improvements is on the order of $300,000. The Town is considering options to pilot these concepts, starting with a single ditch system as a demonstration of potential raw water management improvements. Other options to reduce conveyance losses, such as ditch lining, are also being considered. 3.2.2.3 Commercial, Institutional, and Industrial Water Efficiency Without a formal water conservation program and accompanying staff, Carbondale seeks to encourage commercial, institutional, and industrial (CII) water efficiency through education and pricing mechanisms. Pricing water services appropriately has been shown to be an effective method for reducing water demands (Mayer et. al. 2008), (Mayer et. al. 2004), (Howe, 1982). In Carbondale, CII customers are currently billed for all water usage at the same rate tier. Billing this customer class on an inclining block rate structure, similar to the approach used for billing the residential customer class, would provide a price signal to commercial, institutional, and industrial users. The Town may consider this modification in the future. 3.2.3 Ordinances and Regulations 3.2.3.1 Regulatory Measures The Town regularly reviews local codes and regulations for opportunities to specify water conservation requirements. The Town has enacted a couple of conservation-oriented PAGE 33 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW regulatory measures including waste of water and water use restrictions as outlined in Chapter 13.28 of the Town Code. The waste of water regulation requires that all water outlets be closed when not in use. The Town Manager has the authority to require water conservation measures when it is determined that a “water shortage” exists. Water shortage restrictions include no watering of impervious areas, no filling of pools and hot tubs, no car washing unless from a bucket, and the implementation of a public awareness program. A “water crisis” may be declared by the Town’s Board of Trustees, and allows for the following more stringent water use reduction measures: requiring the use of hand-held containers for landscape watering, requiring restaurants to serve patrons with disposable materials and utensils, and no filling or refilling of swimming pools. The Town Code also provides mechanisms for the discontinuance of service for premises where water is being wasted. As previously discussed, Carbondale has adopted the REBP for new construction, which includes a strong emphasis on water efficiency. The intent of the REBP is to promote sustainability measures while providing functional, yet efficient landscapes. Landscaping improves air quality, complements the appearance of buildings, buffers potentially incompatible neighboring land uses, mitigates the environmental and visual impacts of surface parking areas, and conserves residential and commercial property values. The Town has adopted the 2012 International Green Construction Code (IGCC) and the 2009 International Plumbing Code (IPC) as a requirement for new construction, which include a number of standard efficiency measures. All new construction requires backflow prevention and a pressure reducing valve (PRV). 3.2.3.2 Raw Water, Water Reuse, and Recycling As previously discussed, the Town has an extensive raw water delivery system that is used to meet a significant component of the Town’s irrigation demand. The Town actively seeks ways to expand use of raw water and making it available to more residents. The Town does not currently have a water reuse or recycling system. While water reuse and recycling may be further considered in the future, it is currently not financially viable and would impede the ability to focus on the raw water system, which is currently a high priority for Carbondale. 3.2.4 Public Education and Information A key component of Carbondale’s water conservation efforts is public education and information. Outdoor water efficiency education measures include the recommendations developed by the Town’s Board of Trustees, Utilities Department, and Environmental Board that are posted in the newspaper and on the radio as well as the informational water conservation pamphlet that was developed in cooperation with the Community Office for PAGE 34 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW Resource Efficiency (CORE). Education efforts focus on both indoor and outdoor water demands. 4. IMPLEMENTATION AND MONITORING PLAN The Town does not have a dedicated conservation staff member or a formal, stand-alone water conservation program. However, the Town is commitment to water use efficiency, and even without a formal program has implemented some of the most essential water conservation program measures. The elements of this program are described in detail in this plan document. 4.1.1 Monitoring and Evaluation Carbondale plans to review and update this water conservation plan at least every seven years, or as needed. The Town monitors water use on a regular basis and will maintain consumption records. Progress towards meeting the conservation goal can be evaluated when the conservation plan is next updated and into the future using empirical data. This tracking analysis will help determine what (if any) additional conservation program measures are necessary to help Carbondale meet its stated goal by 2050. As the plan is updated, new forecasts will be developed and the adequacy of the Town’s water supplies will be compared against forecasted future demand. If necessary, the Town will adopt additional demand management measures. The Town produces monthly and annual demand reports for each customer sector and the system as a whole and keeps close track of demand. Unexpected or abnormal water usage by a customer or sector is quickly identified and investigated. 4.1.2 Revenue Stability The Town’s water rate structure includes a significant fixed charge component and tier sizes designed to promote efficiency and revenue stability. Carbondale does anticipate a growth in water demand over time as the Town’s population grows. Water efficiency as practiced by Carbondale helps ensure water rates remain as low as practical for customers, because efficiency is being achieved at a lower cost than procuring new supplies or constructing new infrastructure. 5. ADOPTION, PUBLIC REVIEW, AND APPROVAL OF WATER EFFICIENCY PLAN THIS SECTION TO BE COMPLETED AFTER PUBLIC REVIEW PAGE 35 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW 6. COMPLIANCE WITH STATE PLANNING REQUIREMENTS Colorado Revised Statute § 37-60-126 requires a covered entity to develop, adopt, make publicly available, and implement a water conservation (efficiency) plan that will encourage its domestic, commercial, industrial, and public facility customers to use water more efficiently. According to the statute, a “covered entity” means a municipality, agency, utility, or other publicly owned entity with a legal obligation to supply, distribute, or otherwise provide water at retail to domestic, commercial, industrial, or public facility customers, and that has a total annual demand for such customers of two thousand acre-feet or more. Even though the water demand forecasting provided under this plan shows that the Town will not reach the covered entity threshold until at least 2046, the Town is committed to implementing a water efficiency plan that meets the statutory plan requirements. Key elements that must be fully evaluated in development of the plan are listed as follows: A. Water-saving measures and programs including: I. water-efficient fixtures and appliances; II. low water use landscapes, drought-resistant vegetation, removal of phreatophytes, and efficient irrigation; III. water-efficient industrial and commercial water-using processes; IV. water reuse systems; V. distribution system leak identification and repair; VI. information and education; VII. conservation-oriented rate structures and billing systems; VIII. regulatory measures designed to encourage water conservation; IX. incentives to implement water conservation techniques including rebates. B. Role of conservation in the entity’s supply planning. C. Plan implementation, monitoring, review, and revision. D. Future review of plan within seven years. E. Estimated savings from previous conservation efforts as well as estimates from implementation of current plan and new plan. F. A 60-day minimum public comment period (or other time period based on local ordinance). The following section of the plan details Carbondale’s compliance with this statute. 6.1.1 Town of Carbondale Compliance The Town developed this conservation plan in order to comply with C.R.S. § 37-60-126 even though it falls below the threshold that would obligate it to comply with this statute. Each element of compliance is documented below. PAGE 36 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW A. Consideration of specific conservation measures. (I) Fixture and appliances – The Town actively promotes the installation of water efficient fixtures and appliances through its conservation education efforts, through its adoption of the International Plumbing Code, and starting in 2016 from the State of Colorado’s new WaterSense fixture legislation. The Town has carefully considered and evaluated the costs and benefits associated with give-aways, rebates, and incentives to encourage more rapid adoption of efficient technology, but no additional expenditures are economically justified at this time because of the ample raw water supply available and the resulting benefit-cost relationship. (II) Low water use landscaping – The Town actively promotes water wise landscaping practices through its regular conservation education efforts and conservation-oriented rate structure, and demonstration of Xeriscape principals in public spaces and trail systems throughout the Town. The Town encourages the installation of water wise landscapes through landscape development ordinances. A significant number of properties in Carbondale are irrigated using raw water and the Town continues to seek new opportunities for raw water irrigation. The Town has carefully considered and evaluated the costs and benefits associated with rebates and incentives to encourage more efficient irrigation and water wise landscaping, but no additional program expenditures are economically justified at this time because of the ample raw water supply available and the resulting benefit-cost relationship. (III) Commercial, Industrial and Institutional (CII) measures – The Town actively promotes CII water conservation through its regular conservation education efforts and conservation-oriented rate structure. The hospitality industry – the biggest CII water users in Carbondale – has voluntarily adopted a variety of water efficiency measures and practices. The Town has carefully considered and evaluated the costs and benefits associated with rebates and incentives to encourage CII retrofits and efficiency, but no additional program expenditures are economically justified at this time because of the ample raw water supply available and the resulting benefit-cost relationship. (IV) Water reuse systems – The Town does not currently have a water reuse or recycling system. While water reuse and recycling may be further considered in the future, it is currently not financially viable and would impede the ability to focus on the raw water system, which is currently a high priority for Carbondale. (V) Water loss and system leakage reduction – The current program includes an active utility water loss and leak detection program that includes contracting with a leak detection firm every three years. The Town plans to start implementing an annual AWWA M36 water loss control audit in 2015. The Town strives to replace aging water mains and reduce water loss wherever possible and will continue to do so. PAGE 37 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW (VI) Information and public education – A key component of Carbondale’ water conservation efforts is public education and information. Outdoor water efficiency education measures include the recommendations developed by the Town’s Board of Trustees, Utilities Department, and Environmental Board that are posted in the newspaper and on the radio as well as the informational water conservation pamphlet that was developed in cooperation with the Community Office for Resource Efficiency (CORE). Education efforts focus on both indoor and outdoor water demands. (VII) Water rate structure – Carbondale currently bills its customers on a monthly basis using a four-tier inclining block rate structure. (VIII) Regulatory measures – Carbondale has regulatory measures in place that encourage the use of raw water and mandate the inclusion of a pressure-reducing valve and a backflow preventer. The Town has enacted a couple of conservation-oriented regulatory measures including waste of water and water use restrictions as outlined in Chapter 13.28 of the Town Code. Carbondale has adopted the Residential Efficient Building Program (REBP) for new construction, which includes a strong emphasis on water efficiency. The Town has adopted the 2012 International Green Construction Code (IGCC) and the 2009 International Plumbing Code (IPC) as a requirement for new construction, which include a number of standard efficiency measures. All new construction requires backflow prevention and a pressure reducing valve (PRV). The Town regularly reviews local codes and regulations for opportunities to specify water conservation requirements. (IX) Incentives – Carbondale promotes the replacement of old and inefficient toilets, showerheads, faucets, and clothes washers through its regular education efforts. B. Role of conservation in Carbondale’s supply planning. This water conservation plan represents Carbondale’s most comprehensive effort to date to integrate water conservation into water supply planning. Through this plan, the Town has clearly established that its raw water supply is sufficient to meet future growth under all current planning scenarios. C. Plan implementation, monitoring, review, and revision. The Town monitors water use on a regular basis and will continue to do so. The Town produces monthly and annual demand reports for each customer sector and the system as a whole, and keeps close track of demand. D. Future review of plan within seven years. Carbondale plans to review and update this water conservation plan every seven years or as needed. During this review, progress towards achieving the stated conservation goal will be evaluated. PAGE 38 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW E. Estimated savings from previous conservation efforts and current plan. Since 2011, it is estimated that Carbondale has conserved 48 AF of water (1.3% per year. The active conservation forecast prepared for this 2014 plan includes the anticipated impact of the Town’s planned water efficiency program measures as well as passive reductions that are likely to occur. Under this forecast, potable and raw water demand increases to 2,099 AF in 2050. Compared with the baseline forecast, if the elements of this plan are fully realized, then it is estimated that water demand at 2050 will be reduced by 840 AF (28% total reduction, 0.82%/year) as a result of passive and active water conservation measures in Carbondale. F. Public comment period. THIS SECTION TO BE COMPLETED AFTER PUBLIC REVIEW 7. ROARING FORK REGIONAL WATER EFFICIENCY PLAN The development of the Town of Carbondale Water Efficiency Plan was a collaborative effort funded by a Colorado Water Conservation Board grant as part of the Roaring Fork Watershed Regional Water Efficiency Plan. The Regional Water Efficiency Plan is published under separate cover and focuses on regional opportunities to increase municipal water efficiency. The Town’s Water Efficiency Plan has potential to directly impact flows in the Roaring Fork River as well as the Crystal River, although Carbondale cannot guarantee that water it saves through conservation efforts will benefit the entire downstream reach of these rivers to the extent that other downstream water users may divert that water out of the rivers. The Town is interested in regional partnership to improve water efficiency and is committed to assisting with the implementation of the Regional Water Efficiency Plan. PAGE 39 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW Figure 8. Water Providers Participating in the Roaring Fork Regional Water Efficiency Plan. Written comments for Draft Water Efficiency Plan shall be sent to: Mark O’Meara Utility Director Town of Carbondale 511 Colorado Avenue Carbondale CO, 81601 momeara@carbondaleco.net 8. REFERENCES Carbondale Comprehensive Plan (2013, January). CIRES Western Water Assessment (2014, August). Climate Change in Colorado: A Synthesis to Support Management and Adaptation, Second Edition. PAGE 40 TOWN OF CARBONDALE MUNICIPAL WATER EFFICIENCY PLAN DECEMBER 16, 2014 DRAFT FOR PUBLIC REVIEW Colorado Water Conservation Board (2012, July). Municipal Water Efficiency Plan Guidance Document. Colorado WaterWise (2010). Guidebook of Best Practices Guidebook for Municipal Water Conservation in Colorado. Mayer, P.W. et. al. (2008, May). Water Budgets and Rate Structures: Innovative Management Tools. Journal of the American Water Works Association. Vol. 100, No. 5. SWSI (2010). Statewide Water Supply Initiative 2010 Final Report, Colorado Water Conservation Board. USGS (2013). Water-Data Report 2013, 09085000 Roaring Fork at Glenwood Springs, CO. http://wdr.water.usgs.gov/wy2013/pdfs/09085000.2013.pdf PAGE 41