HomeMy WebLinkAbout2016-09-14 PACKET 05.1.MmCottage
Grove
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TO: Environmental Commission
FROM: John Tingley, Management Intern
DATE: August 4, 2016
RE: Discussion of Water Conservation Plan
The City of Cottage Grove finds itself in a building boom with increasing numbers of residents and
businesses moving to Cottage Grove. The availability of clean water is a key ingredient to a creat-
ing a vibrant community and maintaining Cottage Grove's high quality of life for current and future
generations. If the City wishes to position itself for future growth, our supply of clean water must
not be taken for granted. Conservation of our groundwater supply to ensure its availability for
future generations has become an increasing concern among many in the east metro area,
including the Minnesota Department of Natural Resources (DNR) and the Metropolitan Council.
The DNR and Metropolitan Council regulate groundwater usage in the Twin Cities area including
Washington County and the City of Cottage Grove. The City of Cottage Grove draws its water
supply from 11 municipal wells pumping water from the Jordan/Prairie Du Chien Aquifer.
The Metropolitan Council and DNR require Master Water Supply Plans be created and submitted
to the DNR and Council by each public water utility serving 1,000 or more residents every 10
years. Cottage Grove's is due December 2016. In conjunction with the Master Water Supply
Plan, the City has created a Water Conservation Plan as a guide to water conservation opportuni-
ties to meet the objectives laid out for the City in the Master Water Supply Plan. This Water Con-
servation Plan was put together with research of best practices for water conservation throughout
Minnesota and the United States. The plan includes background into the history of water conser-
vation and plans by the City of Cottage Grove.
In 2015, the DNR created the North and East Metro Groundwater Management Area to deal with
declining aquifer and lake levels. The purpose of the Area is to guide DNR actions in managing
the appropriation and use of groundwater within the area over a five-year period after adoption.
Most lakes, streams, and wetlands are hydraulically connected to underground aquifers. Most
communities in the Area are strictly dependent on groundwater for their drinking, manufacturing,
and agricultural needs, including Cottage Grove. White Bear Lake is an example of a hydrau-
lically connected lake to a declining underground aquifer. White Bear Lake and other lakes in the
North & East Metro have seen lake level declines coinciding with declining underground aquifers.
The Groundwater Management Area is seeing a growing population and increasing water use
within its boundaries. Even though Cottage Grove hasn't seen sharp declines in aquifer levels like
other cities, being that Cottage Grove draws from the Jordan aquifer for its water supply which is
the same as White Bear Lake, Cottage Grove has been included in the Area. Being that we are
included in the Area, we expect to receive greater scrutiny from the DNR.
The City of Cottage Grove has a history of being proactive when it comes to water conservation.
Environmental Commission
Discussion of Water Conservation Plan
August 4, 2016
Page 2 of 3
The City has already implemented:
• Metering for all water users and replacing meters greater than 20 years old.
• Monthly billing cycles to enable earlier detection of leaks and enable changes to water
consumption sooner.
• Annual leak detection of the City's water supply system.
• Conservation -minded rate structure.
• An odd -even sprinkling restriction.
• Some public education measures.
In December, a Local Water Supply Plan will be due to the DNR and Metropolitan Council for re-
view. In this Supply Plan, the DNR will look at what actions the City has taken to conserve water
and meet the objective set forth by the DNR. The DNR guidelines and current status are:
• Reduce Unaccounted (Non -Revenue) Water Loss to Less than 10%: Achieved
• Achieve Less than 75 Residential Gallons per Capita Demand (GPCD): In Progress
• Achieve a Decreasing Trend in Total Per Capita Demand: In Progress
• Reduce Peak Day Demand so that the Ratio of Average Maximum day to the Average
Day is less than 2.6: In Progress
• Implement a Conservation Water Rate Structure and/or a Uniform Rate Structure with a
Water Conservation Program: Achieved
• Achieve at least a 1.5% per year water reduction for Institutional, Industrial, Commercial,
and Agriculture GPCD over the next 10 years or a 15% reduction in 10 years: In Progress
There are many opportunities for the City to encourage the conservation of water and limit non-
essential water use. Greater utilization of the City's website and social media accounts to push
out water conservation tips and ideas will help educate the public.
Currently the City has one universal tiered rate structure for water usage in the City. This includes
residential, commercial, industrial, irrigation systems, and public buildings. By creating three
multi -tiered rate structures (Residential, Commercial, and Industrial) we will be able to achieve
water conservation measures more effectively and bill customers more efficiently. Many sur-
rounding cities do this, even going as far as billing irrigation separately. This will also allow the
City to have the opportunity to use water as an economic development tool. Other opportunities
include increasing the public awareness of the benefits of water conservation techniques such as
using rain barrels and water conserving landscapes at their residences.
There are opportunities to receive grants for water conservation through various agencies such
as the Minnesota Department of Health, Metropolitan Council, and the Minnesota Board of Soil
and Water Resources. The City of Cottage Grove recently was awarded and used a Metropolitan
Council Water Efficiency Grant to meter all municipal buildings.
Environmental Commission
Discussion of Water Conservation Plan
August 4, 2016
Page 3 of 3
Some recommendations include:
• More proactive enforcement — utilizing a summer intern to hang education door hangers on
residences offending for first and second offenses. Hiring a code enforcement officer to ticket
for subsequent violations. Create a template letter to be sent to commercial businesses about
water conservation and ways to reduce water usage.
• Voluntary Water Audits — residents to complete voluntary water audits to make them eligible
for rebates and retrofitting through the City.
• Creating separate billing structures for Commercial and Industrial categories
• Pilot program for pressure reducing valves
• Adjust ordinance to require separate irrigation meters
• Explore water re -use opportunities for irrigation of River Oaks and ball fields
• Explore opportunities to use recycled water for industrial purposes
The City of Cottage Grove finds itself at a crossroads. Being on the cusp of significant growth, the
City will need to make sure the City's water supply is available for future generations. It is also
important to be in compliance with the DNR as the DNR has the regulatory power to reduce water
appropriations to communities if water conservation practices are not being implemented.
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Table of Contents
Introduction........................................................................................................................3
Background.........................................................................................................................4
City Water Supply Components......................................................................................5
HistoricalWater Use.........................................................................................................6
WaterUse by Category.........................................................................................6
Maximum Day Water Demand.............................................................................6
Water Usage Forecast.......................................................................................................6
Existing Water Conservation Measures..........................................................................7
Metering................................................................................................................... 7
MonthlyBilling.........................................................................................................7
Leak Detection and Repair.....................................................................................7
Conservation Water Rates.....................................................................................8
Regulation................................................................................................................8
Education.................................................................................................................8
Green -Step City.......................................................................................................9
Water Conservation Opportunities.................................................................................9
PublicEducation......................................................................................................9
Water Use Accountability.....................................................................................9
Enforcement..........................................................................................................10
WaterAudits..........................................................................................................11
Water Pressure Reduction in High Pressure Areas..........................................11
Creation of Different Rate Categories: Residential, Commercial and
Industrial................................................................................................................12
PA
Water Rates Adjustment......................................................................................13
Rebates, Promotions and Other Financial Incentives......................................14
Effectof Water Revenue......................................................................................14
Irrigation Meters and Irrigation Systems...........................................................15
Xeriscaping and Water Conserving Landscapes...............................................15
Using Alternative Grasses and Native Plants....................................................15
TurfOrdinance.......................................................................................................16
Rain Barrels and Rain Gardens............................................................................17
MoistureSensors..................................................................................................17
Reuse of Stormwater for Industrial and Irrigation Purposes ..........................17
North & East Groundwater Management Area Plan..................................................18
Findings from the Twin Cities Regional Water Billing Analysis by the Metropolitan
Council...............................................................................................................................18
Metropolitan Council Water Efficiency Grant Program..............................................19
Drinking Water Revolving Loan Fund............................................................................19
CleanWater Fund Grants................................................................................................20
Environmental and Natural Resources Trust Fund (ENRTF) Grants ..........................20
WaterConservation Grants............................................................................................20
Example use of funds: Shoreview Water Consumption and Groundwater
AwarenessProject................................................................................................20
Recommendations...........................................................................................................21
Bibliography......................................................................................................................21
Introduction
The Metropolitan Land Planning Act (amended 1995) requires local governments within the
seven -county metro area to submit comprehensive plans to the Metropolitan Council to
determine the consistency with the Metropolitan Council Comprehensive Plan. One element of
these plans must address municipal water systems. Minnesota Statute 473.859 requires Water
Supply Plans, also referred to as Water Emergency and Conservation Plans, to be completed by
all water suppliers serving more than 1,000 people within the seven -county metropolitan area
as part of the local comprehensive planning process. Additionally Minnesota Statute 103G.291
require all public water suppliers that serve more than 1,000 water users to have a Water
Supply Plan approved by the Minnesota Department of Natural Resources. An approved Water
Supply Plan is also a requirement to obtain a Water Appropriations Permit Amendment from
the Department of Natural Resources. The City of Cottage Grove in December of 1995 adopted
its first Water Conservation Plan. The first plan was prepared by a Task Force made of two
council members, City staff and the City's engineering consultant Bonestroo, Rosene, Anderlik
and Associates, Inc. The plan targeted the maximum day water demand. As a means to reduce
water consumption and possibility eliminate the need for two planned production wells, which
would save an approximate $1 million in 1995 dollars.
The City of Cottage Grove realizes the importance of water
and its effect on jobs and economic development. The City is
committed to working with commercial and industrial
businesses in helping them find ways to conserve water. The
rationale for the development of this plan is not motivated
by widespread water shortages or crises but rather to create
a response to the recognized benefits of developing and
maintaining a plan that supports current and future
populations without adverse impacts to natural and economic resources. The benefits of water
conservation planning apply to all current and future residents in the community by protecting
the community's water supply, and having long-term benefits. The following Water
Conservation Plan for the City is intended to increase the efficiency of water usage within the
City to fall in line with water use requirements set by regulators, and increase educational
efforts to improve the efficiency of residential water usage to ensure the availability of this
precious resource for future generations.
The Metropolitan Council must approve the Water Conservation Plan to make assure its
conformance with the ThriveMSP 2040, the Metro region's Comprehensive Plan. The City
updated its Water Conservation Plan again in 2007 as part of the City's Comprehensive Water
Supply Plan update. The deadline to submit the Water Supply Plan to the Metropolitan Council
and DNR is December 2016.
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Background
Minnesota historically has been considered to be "water -rich" when compared to many other
states, especially in the southwestern United States. However, what was believed to be an
almost endless underground water supply is starting to show significant signs of strain and
over -use. The Twin Cities north and east metro area has been identified as having emerging
concerns related to water supply issues by the State of Minnesota and Metropolitan Council.
These issues have caused a number of studies to be undertaken to investigate the issues and
potential solutions.
The Metropolitan Council released a report in December of 2014 Feasibility Assessment of
Approaches to Water Sustain ability in the Northeast Metro, examining the groundwater supply
in the Northeast Metro. This study is just one of many that have been undertaken since the
2005 Minnesota Legislature directed the Metropolitan Council to carry out planning activities
addressing the water supply needs of the metropolitan area. The report studies the relative
costs and implementation of different approaches to water sustainability. The Minnesota
Legislature requested that this study be conducted due to continued concern over lake levels
and the relationship between the Prairie du Chien -Jordan Aquifer and surface waters, especially
White Bear Lake.
Other studies currently underway include the
United States Geological Survey's Characterizing
Groundwater and Surface Water Interaction in
Northeast Metro Area Lakes, MN with funding
from the Metropolitan Council through a Clean
Water Fund grant. This will allow for better
understanding of how proposed approaches will
mitigate low lake levels. They study is expected to be completed by September 2016. The
Metropolitan Council is completing a feasibility assessment of potential aquifer recharge and
reuse of stormwater in the North and East Metro Groundwater Management Area. The
University of Minnesota Technical Assistance Program (MnTAP) is identifying opportunities for
industrial water users in the North and East Metro area to reduce their water consumption,
while the Department of Natural Resources (DNR) is completing a management plan for the
North and East Metro Groundwater Management Area. The plan outlines resources of
significance, groundwater monitoring activities, assessment of water use sustainability, and
addressing future water appropriations.
The Minnesota Department of Natural Resources has set target conservation requirements for
Minnesota cities to adhere to:
• The reduction of unaccounted water loss to less than 10%
• The reduction of residential use to less than 75 gallons per capita per day
• The reduction of peak demand water usage to less than 2.6 times the average demand
• The implementation of a water conservation rate structure; and
• The reduction of institutional, industrial, commercial, and agricultural water use by
1.5%.
These targets are for cities to use as benchmarks in their water conservation processes.
Because of this, the DNR requires public water suppliers of over 1,000 customers complete a
Water Supply Plan to help with cities conservation efforts and to qualify cities for funds from
the Minnesota Department of Health's Drinking Water Revolving Fund. Also, cities will not be
eligible to have their water permit amended unless an approved Supply Plan is in place.
City Water Supply Components
The City of Cottage Grove obtains its raw water supply from deep wells in the Prairie Du
Chien/Jordan Aquifer. The Prairie Du Chien -Jordan Aquifer is part of a larger network of
bedrock aquifers in East-Central and Southeast Minnesota. The City has 11 active municipal
wells it uses for its water supply. The water is pumped directly into the distribution system
following chlorination and fluoridation at each well house.
The City has seen steady growth over the years, from a population of 4,850 in 1960 to a current
population of 35,399. As the population has increased, water usage has been on a steady
increase as well. An example of the magnitude of increase
is in the peak day water demand. In 1992 the peak day -ottage1.\
water demand was 9.0 million gallons (MG), compared to
10.2 MG in 2013.
An important part of the water system is storage facilities,
which are the reservoirs used throughout the system to
store water for use during emergencies and peak 3
conditions. Water from storage is fed into the system by
gravity or pumping from a booster station. There are two
types of reservoirs, a ground reservoir tank or an elevated tank.
The next part of the system is the distribution system which consists of trunk water mains
(primarily 12 inches or larger in diameter), lateral water mains (4 to 8 inches in diameter),
service pipes, valve, hydrants, and all appurtenances necessary to convey water from the
supply sources and reservoirs to the points of demand. The City works diligently to maintain the
water supply system in good working order to ensure high quality water is delivered to
customers and there is minimal water loss in the system itself. The City works to assure the
accountability of the City's water system by continually evaluating and monitoring the
effectiveness the City's policies and procedures.
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Historical Water Use
Water Use by Category
Currently, the City of Cottage Grove only has one categorical rate structure which residential,
commercial, industrial and institutional are billed. Within that one rate structure are three
different tiers of pricing depending on water usage. The more water a customer uses, the
higher the price tier for which they will be included. Many cities have separate rate structures
for residential, commercial/industrial, and irrigation. Separate rate structures can make billing
more equitable as well as more efficient. The City is looking into establishing additional
categories in addition to the current residential rate structure. The residential category has
historically been the largest, consuming roughly 70% of City water pumped in Cottage Grove.
On average over the last 10 years, residential users have consumed 961 million gallons of water
annually and 80.1 gallons per capita per day.
Maximum Day Water Demand
The rate of water consumption varies over different
periods of the year and during different hours of the
day. Several characteristic demand periods are
critical factors in the design and operation of the
City's water system. Among the demand types used
to design the Cottage Grove water system were;
average day, maximum day and maximum hour.
The average day demand is calculated by dividing the
total amount of water pumped by 365. The maximum day demand is the critical figure in the
design of many elements within the water supply system. The maximum day demand is the
amount of water used on the highest usage date of the year. This has historically happened
anytime between the months of June and September. The elements affected by the maximum
day demand levels are: supply of available water, raw water facilities, and water storage
requirements. The raw water supply facilities (wells, transmission lines, etc.) must be adequate
to supply enough water to meet the maximum day demand rate. Water must be stored to
meet the hourly demands in excess of the supply.
Water Usage Forecast
The Metropolitan Council in its most recent comprehensive plan, ThriveMSP 2040, has
projected the population of Cottage Grove will grow from 34,589 in 2010 to 49,300 in 2040.
With that increase of population, the Council projects the City will increase its projected
average day water use (MGD) from 3.3 in 2010 to 5.7 in 2040. This increase of usage from the
11 City -owned wells pumping water from the aquifer, may put further stress on the already
scarce supply. Minnesota DNR observation wells has shown that the groundwater supply
beneath the City has been slightly decreasing.
Existing Water Conservation Measures
The City of Cottage Grove has progressively implemented new strategies and conservation
measures as technology and capabilities change to improve water reduction strategies
throughout the community.
1. Metering: Currently all water users are metered and will continue to be metered. The
City checks, repairs, calibrates, and replaces meters on a rotating basis. The City has
been proactive to conduct water meter replacements on residential properties. The City
in 1993 replaced a substantial amount of residential meters. Then starting again in 2013,
the City started a four year program to replace all water meters which are over 20 years
old. All public buildings and public irrigation systems have now been metered thanks to
a Water Efficiency Grant from the Metropolitan Council and Clean Water Fund.
2. Monthly Billing: The City moved from quarterly billing to monthly billing in 2008. This
has been a key means to communicate on a regularly basis to residents and businesses
how much water is being consumed. This monthly billing enables early detection of
leaks within a home or business. It also enables residents and businesses to see the
effects of lawn watering in the summer months, and enables changes to occur in
watering practices to reduce the amount consumed.
3. Leak Detection and Repair: Unaccounted for water is the difference between the
volume of water sold and the volume of water withdraw from the source. According to
recent pumping records, unaccounted for water use makes up 9.9% of all pumped
water. The target established by the DNR is 10%. This value has had significant
variations over the years. This can be due to many things, such as the amount of
construction activities, watermain breaks, fires, and watermain flushing. Maintaining
annual records of unaccounted for water is another method the City uses to monitor the
condition of the water system. It is critical for the City to monitor these types of losses in
order to have early detection of leaks and other unaccounted for water use volume.
The City performs leak detection annually on the City's water supply system. The leak
detection inspections have shown the system to be good condition. Also the negative
findings of the leak detection would indicate that unaccounted water loss from leaks are
minimal.
The City since 1994 has undergone a pavement management program in which streets
are rehabilitated and the watermain system is reviewed thoroughly. In 2008, six blocks
of watermain were replaced, the watermain was replaced due to numerous watermain
breaks. Typically in a pavement management area the gate valves are inspected and
replaced as needed. Bolts of the watermain bends and fittings are inspected for
corrosion and section loss. If needed the bolts are replaced on the associated fitting.
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4. Conservation Water Rates: The City first utilized a tiered rate structure in 1971, and
since then has continued to make modifications to the rate structure to promote more
water conservation. In 2015, the rate structure changed to the following structure:
Cottage Grove Residential Water Usage Rates
per 1,000
gallons
Base Charge Per Month
$1.50
Monthly Usage up to 10,000 gallons
$1.30
Monthly Usage from 10,001 to 20,000 gallons
$1.90
Monthly Usage over 20,000 gallons
$2.15
5. Regulation: The City relies on the state and federal plumbing codes, which require the
installation of low -flow, water efficient fixtures in all new homes and retrofit of existing
homes.
The City has an odd -even sprinkling restriction in place. Then in 2012, City moved to
further restrict the hours of lawn watering from noon to 4pm. Research has shown that
evaporation from watering in the peak heat of the day is significant and less effective.
Research has found that watering in the early morning hours is the most effective time.
During the time of a water emergency, the Mayor or assigned designee may impose
emergency water usage regulations by limiting the times and hours, or completely
prohibiting water use of the city's water system for sprinkling lawns, landscaping and
gardens, irrigation, and other uses. The Mayor or assigned designee must give notice by
publication or by posting in the city hall and other public places.
The City requires certain soil preparations be made and requiring 4" of top soil to reduce
nitirates and other runoff containments from entering storm water management areas.
6. Education: The City uses many types of media and events to educate the public on
water conservation.
Educational efforts to promote conservation are as follows:
a. Water quality reports
b. Website
c. Monthly newsletter articles
d. Public service announcements on local cable channels
e. Booths at Strawberry Fest and Public Works Open House
f. Educational banners
g. Billing inserts
h. Environmental Commission water conservation topics and presentations
City Hall rainwater harvesting system and interpretive signage
Elementary school theater productions
Green -Step Cities
The City of Cottage Grove is currently in the process of completing the third step to become a "green -
step" city. The GreenStep Cities challenge is a program run by the Minnesota Pollution Control Agency.
The free continuous program is based on 29 -best practices that address topics like Transportation,
Buildings and Lighting, Land Use, Transportation, Environmental Management, Economic and
Community Development. It is a program designed to help create sustainable cities and recognize cities
who are doing a great job.
Water Conservation Opportunities
There are many conservations measures that the City can look to implement to reduce water
consumption on a per capita basis. The goal is to find strategies that will work effectively with
the general population, are cost effective to implement, and are not burdensome to City
resources.
Public Education
Public education and outreach on the issue of water usage can be an effective tool to achieving
sustainable water usage levels to ensure availability for future generations.
1. Website. Develop water conservation content on the City website to include relevant,
up-to-date information. Provide links to water conservation websites and information
available for residents to educate themselves on water conservation practices. Also, in
the same spot, the City should have the list of enforcement mechanisms that could be
used if residents don't comply.
2. Social Media. Use the City's social media accounts (Facebook, Twitter, and Instagram) to
help educate residents and send out reminders if it is a peak usage day. It can also be
used to administer information if a water emergency takes place.
3. Greater Utilization of Monthly Billing Inserts. In the water bill, the bill should show, in
addition to cost:
• Consumption in gallons
• Current and previous years monthly water use
• Average water use in City of Cottage Grove
• Potential savings by adapting water conservation techniques
• Water Conservation Tips
The billing insert itself could include notices such as the end of growing seasons, a
citywide annual conservation report, and educational flyers and potential savings by
adapting smarter water conservation practices.
Water Use Accountability
Increases in accountability within the water system by using practices and policies to assure
City efforts of water conservation are being effectively implemented. Enforcement is
10
paramount to the success the conservation policies have in achieving the water supply
outcomes designated by the City, Met Council and DNR. Here are ordinances passed by the City
of Cottage Grove that enforcing the City's water conservation measures:
• The City of Cottage Grove reserves the right to discontinue service to any customer of
the water and sanitary sewer system without notice when necessary for repairs,
additional connection or reconnection, for nonpayment of charges or bills, or for
disregard of any rules or regulations in connection with the use or operation of such
system. Whenever any service has been discontinued for nonpayment of the charges or
bills, for disregard of any rules or regulations, or for any other purpose, it shall not be
resumed except upon payment of the charges or bills accrued, together with interest
thereon, or upon compliance with the rules and regulations previously violated and
payment to the city of a restoration fee established by council ordinance. (Ord. 783, 2-
15-2006)
• In the event a water or sewer bill is unpaid at the end of the calendar quarter or the
billing period under which the billing is sent out, the billing shall be considered
delinquent, the service may be discontinued, and the city council may cause the charges
noted in such billing to become a lien against the property served by certifying to the
county auditor the amount of such delinquent bill in accordance with the statutes of the
state. (Ord. 672, 11-17-1999; amd. 2000 Code)
• Emergency Regulations: The Mayor or assigned designee may impose emergency water
usage regulations by limiting the times and hours, or completely prohibiting water use
of the city's water system for sprinkling lawns, landscaping and gardens, irrigation, and
other uses. The mayor or assigned designee must give notice by publication or by
posting in the city hall and other public places.
The City already requires water meters be used by all customers and routinely replaces water
meters on a rotating basis. Water meter testing regularly by water employees can assure the
accountability of the existing meters.
Enforcement
The hiring of an Enforcement Officer would be crucial to enforcing these measures. Currently
the City does not have a dedicated staff member to work in the field to actively enforce water
conservation ordinances. Instead, existing staff resources are used when complaints are filed
and time is available to contact the home -owner in violation. Warnings can be given out for the
first offense with water conservation educational material, followed by a ticket for the second
and continuous violations. Some cities, such as Woodbury, have hired a specific code
enforcement officer on a seasonal basis to enforce water ordinances. Oakdale splits an
employee between the code enforcement and building division to enforce seasonal watering
ordinances. Other cities do not proactively patrol. Currently, the City of Cottage Grove does not
have a dedicated code enforcement officer to enforce water conservation measures, however
the public works department will give a warning or a ticket if they see someone violating a
11
water conservation ordinance or receive a complaint. A part-time or seasonal employee to
enforce water ordinances could be beneficial if they city felt there was a need.
Water Audits
Water audits would be a great way to understand the existing consumption rates and patterns
to determine the amount that can be conserved. It is a valuable tool that allows a utility to
quantify water consumption and water losses that occur in the distribution system and
management process. The water audits can then help track progress of conservation efforts
and provide information as to what policies may or may be as effective as desired. This could
increase personnel and administrative costs to the City to properly administer the audits as it
would increase staff time needed. This could become off -setting with new revenue being
brought in by the audits or rate increases. Drinking Water Revolving Loan Funds are available
through the EPA and state partnerships to provide financial support to water systems. Auditing
of residential meters on a rotating basis can be a way to identify leaks and unaccounted for
water loss. Residential audits can include many different things in addition to residential meter
checks. Some bigger cities like Albuquerque, New Mexico conduct:
• Free review of the home's water use patterns and billing
• Free leak check using the home's water meter
• Free leak check of toilets
• Free outdoor landscape and sprinkler assessment
• Free installation of high -efficiency devices such as shower heads, auto shutoff hose
nozzles
Having a better in-house process of leak detection and enforcement could help reduce the
length of leaks going unnoticed or length of leaks going unfixed. Leak detection equipment can
be purchased to help find underground leaks.
Water Pressure Reduction in High Pressure Areas
The City of Cottage Grove currently has areas within the City which water pressure exceeds 80
pounds per square inch (PSI). 80 PSI or higher can be damaging to appliance and can allow for
the excess use of water. The Minnesota State Plumbing Code requires pressure reducing valves
be placed on homes and businesses to reduce pressure to 80 psi or below. With the City
hovering around 80 gallons/per capita/per day (gpcd) for residential use, 5 gpcd over the
threshold set by the DNR, this could be a major contributor to getting the City in compliance. A
program would have to be created to start putting a pressure reducing valve on to residential
and commercial properties within the identified high pressure areas (80 psi or greater). There
are 2,374 parcels of property, or 20% of total parcels in the City receive 80 psi or greater in
water pressure when water storage facilities are full. Of the 2,374 parcels with high water
pressure, 567 parcels receive water pressure of 90 psi or greater. According to the AWWA,
pressure reducing valves can reduce water used in homes by 3% to 6%.
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The overlaying of the water meter replacement program with the high pressure areas could be
a possibility. Reductions in pressure should not compromise the integrity of the water system
or service quality for customers. Figure 1 shows pressures levels throughout the City. Could see
a reduction of 27 million gallons of water used in residential properties at 3% and a reduction of
54 million gallons of water used in residential properties at 6%.
Figure 1: Parcels with High Water Pressure.
Creation of Different Rate Categories: Residential, Commercial and Industrial
The creation of set definitions for these three categories similar to Minnesota DNR definitions
for each category should be considered to improve conservation efforts and more efficiently bill
customers. Other cities in the Metro area have started to adopt separate rates for commercial
and industrial users from residential users. Commercial customers pay a monthly base fee
determined by the size of their water meter or set administrative fee, similar to residential. This
is something the City could look at. Up to this point, the City has billed water usage as one
category, residential. This included commercial water users and separate irrigation meters.
The City uses OPUS software to categorize water customers and send out water bills. Creating
additional categorical rate structures is well within the capacity of the software and would not
create an extra burden on billing or public works.
The following are the DNRs recommendations for defining categories of water use for billing
purposes:
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Residential- "Water used for normal household purposed such as drinking, food preparation,
bathing, washing clothes and dishes, flushing toilets, and watering lawns and gardens. Should
include all water delivered to single family private residences, multi -dwelling family dwellings,
apartment building, senior housing complexes mobile home parks, etc."
Commercial- "Water used by motels, hotel, restaurants, office buildings, commercial facilities
and institutions (Both civilian and military)."
Industrial- "Water used for thermonuclear power (electric utility generation) and other
industrial use such as steel, chemical and allied products, paper and allied products, mining,
and petroleum refining."
Water Rates Adjustment
Minnesota law requires all water providers to bill all water customers on a conservation -based
inclining block rate structure (tiered rates). This means that the more water consumed, the
resident will need to pay more per gallons. Demand side initiatives consist of implementing and
enforcing planning to encourage customers to modify their level of water usage and usage
patterns. Fundamental to demand-side management is the conservation of water through
reduced customer demand to benefit customers, the water supply and the environment. Water
rates in Minnesota and Wisconsin have been historically lower than other parts of the country.
The adding of additional tiers will increase the deterrence of heavy watering. Instituting
seasonal rates or drought surcharges can help deter overwatering while only penalizing the
heavy users and not the conservation -minded users. Roseville and Maplewood, in particular,
implement summer rates during the peak watering months above winter rates. Some summer
rates may run from June through August while others start in May and run through October.
An increasing tier rate structure may not be considered conserving if the changes in tiers does
not create incentives to customers to conserve. Full cost pricing covers the full cost of building
and maintaining appropriate infrastructure. An economically efficient water fee would recover
the water utility's full cost of service to ensure financial sustainability. This is to create more
efficient water use by residents while ensuring the resource will be available for use by future
generations. Fixing the water rate structure may limit the amount of revenue lost by residents
conserving more water and allowing for the funding for water conservation programs.
The chart below shows the cost to residents of other cities compared to Cottage Grove when
they consume 5,000, 15,000, 25,000 and 35,000 gallons during a month.
14
Water Rates to Residents per Month by Usage
City
5,000 Gallons
15,000 Gallons
25,000 Gallons
35,000 Gallons
Cottage Grove
$8.00
$24.00
$44.25
$65.75
Woodbury
$5.73
$19.53
$43.33
$77.13
St. Paul Park
$14.10
$23.98
$48.78
$76.28
Lake Elmo
$18.33
$48.23
$91.44
$145.34
Richfield
$17.10
$53.43
$93.67
$134.47
Apple Valley
$12.12
$26.27
$45.28
$59.55
Hugo
$13.17
$33.92
$58.92
$83.92
Shoreview
$16.50
$56.30
$105.80
$155.30
Roseville
$28.45
$52.20
$77.20
$102.20
Inver Grove Heights
$14.58
$42.87
$73.67
$104.47
Oakdale
$11.75
$29.82
$50.27
$70.97
Mahtomedi
$16.02
$46.86
$86.16
$125.46
North St. Paul
$24.49
$60.79
$107.54
$162.94
Lino Lakes
$12.68
$33.13
$60.01
$90.34
Rebates, Promotions, and Other Financial Incentives
Effect on Water Revenue
A decrease in Water Usage will result in a decrease in revenue to the Water Enterprise Fund
unless offset by a revenue enhancement or cutting of costs. There would be long -run cost
savings in the decreased need to add new capacity to the existing water system to meet
demand. Being that water infrastructure projects are not cheap, it could save a noticeable
amount of taxpayer dollars.
The city will need to do an analysis of revenue projections and the ability of the City to pay for
conservation programs. Applying for grants through the identified sources later in the paper, or
searching for other grant funds to help kick start conservation programs. Fixing the water rate
design by creating more up-to-date categories may remedy this.
The City could offer incentives or rebates promotions to
residential and commercial customers who switch to high -
efficiency toilets, washers, irrigation systems and
showerheads. A rebate would be a monetary value the City
';�'
D
would give to a customer after they have shown the necessary
paperwork. Money from the utility fund, or a grant would need
to be won to fund the rebate program. Other cities, such as
COWhite
Bear Lake have offered rebates to residents for the
purchase of Energy Star -rated water -efficient appliances and
for the purchase of EPA WaterSense-labeled products. The
rebates included washing machines, dishwashers, shower heads, toilets and irrigation systems.
Effect on Water Revenue
A decrease in Water Usage will result in a decrease in revenue to the Water Enterprise Fund
unless offset by a revenue enhancement or cutting of costs. There would be long -run cost
savings in the decreased need to add new capacity to the existing water system to meet
demand. Being that water infrastructure projects are not cheap, it could save a noticeable
amount of taxpayer dollars.
The city will need to do an analysis of revenue projections and the ability of the City to pay for
conservation programs. Applying for grants through the identified sources later in the paper, or
searching for other grant funds to help kick start conservation programs. Fixing the water rate
design by creating more up-to-date categories may remedy this.
Xeriscaping and Water Conserving Landscapes
Across the country, landscape irrigation is responsible
for roughly one-third of residential water use.
Traditional landscapes may incorporate one or two
principles of water conservation, but xeriscaping uses
mulch, planting of suitable plants, minimal irrigation,
and are designed to limit the amount water needed to
keep things looking good. Xeriscaping limits external
maintenance needs while presenting an attractive
appearance. Xeriscaping benefits includes: 1) Saving
Water 2) Less Maintenance 3) No Fertilizers or
Pesticides 4) Improves Property Value 5) Pollution Free. The principles of Xeriscaping: 1) Water
Conservation 2) Soil Improvement 3) Create Limited Turf Areas 4) Low -maintenance.
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Irrigation Meters and Irrigation Systems
Irrigation meters are separate from regular residential water meters and measure outdoor
water usage such as lawn or garden irrigation. Irrigation billing are usually tiered differently
than regular water users. These meters are usually available for large water irrigation users
such as commercial users or homeowner associations.
New irrigation systems can be required to be
inspected by the City to help identify irrigation
systems issues and leaks. Minnesota statute
103.G298 states that all new landscape irrigation
systems should have moisture sensors to prevent
the use of the system during periods of sufficient
moisture. Many cities require the use of a building
permit and a final inspection for the installation of
an irrigation system.
Using Alternative Grasses and Native Plants
Natural prairie grasses and alternative grasses such as
fescue varieties require a fraction of the water that turf
grasses require. Fescue -blend grasses require roughly 30
percent of the water needed for present-day lawns. Fescues
can also make for easier care lawns, requiring less attention
and care than Kentucky bluegrass. This can easily be covered
by natural rainfall. These grasses also do not require
fertilizer, which might wash into lakes and streams,
contributing to algae blooms. These grasses can grow as long as 5 inches. Native grasses and
plants are adapted to the local climate and require little or no water to survive and thrive.
Native grasses and plants have deeper roots that penetrate easily in quality soil. Managing
quality soil and building soil structure can reduce soil erosion, reduce chemical runoff, and
reduce the need for landscape irrigation.
Turf Ordinance
Creating a turf ordinance to limit the types of turfs
could help the City reduce water consumption.
These tools could help:
• Outlawing certain types of turfs which
require large amounts of water.
• Prohibiting turf to be laid on slopes of 25%
or greater.
• Not allowing the cutting of turf grasses
where the slope is steeper than three feet horizontal to one foot vertical (3:1).
• Requiring a certain percentage of a landscape area of single family residential, multi-
family residential, mixed use and institutional use be landscaped with water -wise plants
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or landscaping that don't require watering.
• Turf Education Seminars
Rain Barrels and Rain Gardens
Rain barrels are containers designed to collect rain water from the
roof of a building from the gutter and downspout. The barrel is
attached to the downspout, which is cut to place the end of the
downspout at the top of the rain barrel. The water can be used for
tasks such as watering gardens, plants or lawns, washing cars and
other outdoor water uses. Harvesting rain water protects water
supplies by reducing use during peak summer months. In addition,
rain water harvesting reduces volume of stormwater being delivered
to downstream water bodies. Using rain water instead of municipal
water results in cost savings by reducing municipal water bill.
Information on rain barrels and rain gardens can be conveyed to residents through the website,
social media or the monthly billing insert.
17
A rain garden is a sunken garden bed that
captures stormwater runoff from hard
surfaces like rooftops, sidewalks and
driveways, and allows it to soak back into the
ground naturally. Rain gardens are usually
planted with hardy, native perennials that
filter pollutants. Rain gardens help recharge
groundwater supplies and protect streams
and rivers by filtering sediments and
nutrients from runoff during rain events.
The South Washington County Watershed
District and East Metro Water Resource
Education Program gives spring landscape
workshops in April and May every year that teach residents how to create more sustainable
urban and rural landscapes. The South Washington Watershed District provides grants to
homeowners to plant rain gardens in their yards that reduce runoff and increase groundwater
infiltration.
Moisture Sensors
Revise outdoor irrigation installation codes to require high efficiency systems in new
installations or system replacements such as moisture sensors and programmable watering
areas. This can reduce unnecessary watering during wet periods and more efficiently watering
areas of lawns that need the water than the whole yard at once. Also, more efficient ways to
identify and address broken sprinkler heads that may be leaking water.
Reuse of Stormwater for Industrial and Irrigation Purposes
With the City of Cottage Grove already utilizing a rainwater harvesting system at City Hall, the
City could use this proactive approach for other facilities throughout the City. Reusing
stormwater for irrigation of municipal parks and buildings could save the city countless gallons
of water. The City of Centerville recently implemented an irrigation system for ball fields
utilizing stormwater. The City of St. Anthony Village which captures stormwater from city
streets, treats it, and then uses it for irrigating the St. Anthony City Hall and Municipal Park
saves the city about 4.6 million gallons of water per year. The project cost was $1.3 million with
annual O&M costs of $3,000. Overall, it's a similar concept to rain barrels but on a larger scale.
Golf Courses are another opportunity to reuse stormwater for irrigation. Oneka Ridge Golf
Course in Hugo, Eagle Valley and Prestwick Golf Courses in Woodbury all have water reuse
systems that capture stormwater and urban runoff to irrigate the golf courses.
The reuse of gray water and the process of water recycling are becoming more popular and
cost effective as clean, cheap water sources run dry in certain areas. Recycled water is
recovered from domestic, municipal and industrial wastewater treatment plants that treat
18
water to standards that allow safe reuse. Water reuse and recycling practices reduce
productions demands on the water system as a whole. Recycled water can be used for some
industrial purposes, agricultural purposes, groundwater recharge, and direct reuse.
Water use and reuse applications are managed and regulated by multiple state agencies such as
the Minnesota Department of Health (MDH), Minnesota Pollution Control Agency (MPCA),
Minnesota Department of Natural Resources (DNR) and Metropolitan Council if located within
the seven -county metro area.
North & East Metro Groundwater Management Area Plan
In the north and east Metro, underground aquifers which are relied on as sources of water are
under pressure to meet current and future demands for domestic water supplies and other
uses. Being that groundwater, lakes and wetlands are interconnected, we can see this strain
showing up in area lakes with lower water levels. Even though Cottage Grove may not be near
White Bear Lake, where the sharpest drop of lake levels have occurred, we still rely on the same
aquifer (Prairie Du Chien -Jordan Aquifer) as our water supply. The Management area includes
all of Washington and Ramsey Counties and includes Southeastern Anoka and Northeastern
Hennepin Counties. The DNR has established the North & East Metro Groundwater
Management Area (GWMA) Plan working over the last two years with local government
representatives and agencies. The Plan concludes that lower water levels in areas where
ground water use as substantially increased over the last 20 years appears to reflect a
combination of climate and pumping effects. There are two other designation Groundwater
Management Areas by the DNR in the State: Bonanza Valley GWMA; Straight River GWMA.
Northeast Metro GWMA differs in how the aquifer is being used from the others even though
all are addressing lowered aquifer levels and growing and potentially unsustainable water
usage. The Bonanza Valley and Straight Rivers GWMAs mostly are keen on addressing
agriculture irrigation usage while the Northeast Metro GWMA may potentially address
municipal usage.
Findings from the Twin Cities Regional Water Billing Analysis by the
Metropolitan Counci
• As the median household income increases, the residential water use per capita
increases as well.
• As the average number of people per household increases, the residential per capita
water use tends to also increase.
• As the equivalent monthly water bill of 8,000 gallons increases, the amount of
residential water used per capita tends to decrease.
• As the percent of a household's income spent on water increases, the residential per
capita water tends to decrease
19
• A conservation driven rate structure should result in the average water user volume
falling in the second or third tier of tiered rate structure.
• No significant pattern was found between the municipal per capita water use and the
number of rate structures offered by cities. Similarly, no significant pattern was found
between the municipal per capita water use and the number of tiers within the rate
structure.
Metropolitan Council Water Efficiency Grant Program
• Effective September 30, 2015 to June 30, 2017
• $250,000 total given out per year to encourage implementation of water demand
reduction measures to ensure the reliability and protection of drinking water supplies.
• New constructions and new developments are not eligible.
• Grant payments to the municipality will be for 75% of approved rebate or grant program
amounts. The municipality must provide the remaining 25% of the program cost.
• Qualified activities include:
o Toilet replacements
o Residential washing machine replacements
o Irrigation system audits that result in Irrigation system controller requirements
o Irrigation system controller replacements only.
• Preference will be given to communities who:
o Have a total per capita water use of 90 gallons per capita per day (gpcd) or
residential per capita water use is greater than 75 gpcd based on 2013 water
data reported to the DNR
o Are supplied with 100% groundwater
o Are located within groundwater management areas
o Have a high ratio of peak monthly water use to winter monthly water use based
on 2013 water data reported to the DNR.
Drinking Water Revolving Loan Fund
• Provides below market rate loans for public water supply improvements.
• Average interest rate for fiscal year 2014 was 1.15%
• Approximately $50 million can be provided in loans annually.
• Funding priority goes to projects that: Protect public health; Provide adequate water
supply; assist communities with financial needs.
• Publicly owned municipal water systems are among the eligible.
• For more information and how to apply, go to
http://www.health.state.mn.us/divs/eh/water/dwrf/
20
Applying for Clean Water Fund Grants
• Cities in the seven -county metropolitan area are eligible if they have a water plan that
has been approved by a watershed district or watershed management organization as
provided under Minn. Stat. 103B.235.
• A non -State match equal to at least 25% of the amount of Clean Water Funds requested
is required.
• Primary purpose of activities funded with grants associated with the Clean Water Fund
is to restore, protect and enhance water quality.
• Cannot be used by municipalities for municipal wastewater treatment systems or
drinking water supply facilities.
Applying for Environment and Natural Resources Trust Fund Grants
(ENRTF)
• Proposals are submitted to the Legislative -Citizen Commission on Minnesota Resources.
• The LCCMR then makes funding recommendations to the Minnesota Legislature for
special environment and natural resources projects.
• The Environment & Natural Resources Trust Fund (ENRTF) has provided approximately
$500 million to over 1,000 projects across the state to protect, conserve, and preserve
the state's air, water, land and other natural resources.
Water Conservation Grants
Grants have been available in the past from the Metropolitan Council and the Minnesota Board
of Soil and Water Resources, and the Minnesota Department of Natural Resources. The
Minnesota Pollution Control Agency gives out Environmental Assistance Grants which could
help the City promotes and achieve its water conservation objectives and goals. The MPCA
grants:
• Are due every spring with applications being accepted starting in February.
• Financial Assistance Grant Applications can be found at www.pca.state.mn.us/about-
mpca/environmental-assistance-grants
As part of the Clean Water, Land and Legacy Amendment, funds are available from the Clean
Water Fund and administered by the Minnesota Board of Soil and Water Resources.
Example use of funds: Shoreview Water Consumption and Groundwater Awareness
Project
With funds from the ENRTF, the project provides 400 residential households with a free
wireless Badger Meter readers for two years which will display water use in the participants'
home. The project will provide 26 times more meter readings to 400 households by making
them available on a bi-weekly basis through the City's utility billing website or email. This would
help the City of Shoreview provide feedback to water customers, reduce water usage, and
21
promote conservation efforts through increased awareness of when and where water is being
used.
Recommendations
More Proactive Enforcement
Taking a more proactive enforcement position could help as a better public education measure.
Piloting a project using a summer intern to lookout for water ordinances offenders and put
educational door hangers on doors of the offender for the first or second offenses. The pilot
project would include:
• Developing educational door hangers that act as friendly reminders of the City's
watering ordinances.
• Ticketing on the third and subsequent violations by a code enforcement officer.
• Creating a database of all offending addresses to track repeat offenders.
• Creating a template letter to be sent to commercial businesses about water
conservation and ways to reduce water usage.
• Looking for grant to offset the seasonal intern position.
Voluntary Water Audits
Administering a program for residents to complete voluntary water audits for the City and
make them eligible for rebates and retrofitting through the City.
• Hire a company to conduct 20 voluntary water audits for homeowners and businesses.
• Completing a water audit would allow that home or business to qualify for retrofitting
and/or rebates from the City.
Creating Commercial and Industrial Billing Structures
The creation of commercial and industrial billing structures in addition to the residential billing
structures would more efficiently bill customers, increase the competitiveness of business
opportunities in Cottage Grove and improve conservation efforts. Many cities throughout the
metro area have separate rate structures for residential, commercial and industrial.
Following the DNR definitions for industrial and commercial will better streamline our system
and allow for more accurate billing. When setting rates for the new categories, rate makers
should make sure that rates are at least revenue -neutral.
Pilot program for Pressure reducing valves
With Cottage Grove having over 2,374 properties with at least 80 psi or greater, there is
opportunity to reduce water usage by looking into pressure reducing valves on homes and
buildings in those areas. Within that area is Park Senior High School, the City's third largest
water user. By creating a pilot program for installing pressure reducing valves in Park High and
other homes and businesses wish to voluntarily participate, the City could reduce millions of
22
gallons of water otherwise wasted each month. Also residences will realize cost savings on their
monthly bill due to reduced consumption.
The program would consist of:
• Teaming with Park High School to determine how many valves would be needed and the
amount of water possibly saved.
• Setting a budget for how many valves the City would like replaced.
• Using that budget, determining how many residences could be replaced and open it up
for voluntary replacement.
The program would then allow the City to determine the water savings it produces and the
feasibility of requiring them for all residents and businesses within the high water pressure
areas.
Adjust ordinance to require separate irrigation meters
Adjusting City Ordinance to require separate irrigation meters for irrigation systems in homes,
businesses, and homeowner associations would help track water usage for lawn watering and
allow the City to better enforce irrigation ordinances and codes.
Water Reuse for Public Irrigation and Commercial/Industrial Purposes
The reuse of storm water for watering of ball fields and River Oaks is a realistic option that
could save countless gallons of water. Cottage Grove already utilizes rain water from the
rooftop of City Hall to irrigate the landscape surrounding it. There are numerous golf courses
throughout the metro the utilize storm water to irrigate at least parts of the golf course. Storm
water does not need to be treated, unlike drinking water.
In addition, encouraging water reuse for commercial and industrial purposes could save water
and save businesses money in the process. The reuse of gray water and recycled water,
wastewater that has been treated to just below drinking water standards, can limit the amount
of water a manufacturer would need for its process. It would instead rely on water it has
already used to that has been cleaned enough to not hamper the manufacturer's process.
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