A Critical Review of the GVWD Long Term Water

A Critical Review of the GVWD Long Term Water Supply Plan January 1994 Misty MacDuffee, Mehdi Najari Sierra Club of Western Canada, Western Canada Wilderness Committee 2nd edition A Critical Review of the GVWD Long Term Water Supply Plan Table of Contents Executive Summary 1. Introduction 1.1 Water supply 1.2 Increasing population 1.3 Water quality 1.4 Long term water supply 2. Solutions Proposed by the Consultant Team 3. Concerns about Option A 3.1 Increasing surface area of the lake 3.2 Increasing nutrient concentrations 3.3 Wave action 3.4 Submerging organic soils 3.5 Concerns about logging in the coastal Douglas fir zone 3.6 Concerns about continued logging operations by the GVWD 3.7 Design criteria 3.8 Economic concerns 4. Background to WaterConservation 4.1 The benefits of water conservation 5. Implementing a Utility-based Conservation Program 5. 1 True cost pricing 5.2 Rate structuring and metering 5.3 Pressure reduction 5.4 Leak detection and repair 5.5 Plumbing code by-laws 6. Implementing a Customer-based Conservation Program 6. 1 Technical improvements to plumbing 6.2 Fixing leaks 6.3 Washing machines 6.4 Water efficient landscaping 7. Recommendations for long term water supply in Greater Victoria 8. Citizens Advisory Committee 8. 1 Terms of Reference 8.2 ' Failures with the Citizen's Advisory Committee 9. References 10. Appendix A Critical Review of the GVWD Long Term Water Supply Plan Tables and Figures List of figures 1. Map of Greater Victoria Water District 2. Logging in Goldstream watershed 3. Logging in Deception Creek watershed 4. Shallow areas in Sooke Lake Reservoir 5. Algae growth in Sooke Lake Reservoir 6. Effect of wave action in Goldstream Lake 7. Soils of the Sooke Lake Region 8. Average household water consumption in countries around the world List of Tables 1. Summary of Alternative A/Sooke Lake expansion costs 2. Advantages & disadvantages to raising/lowering Sooke Lake Reservoir 3. Water rate structures 4. Water consumption levels in Canadian cities 5. Monthly consumption ratios for the municipalities of Greater Victoria 6. Breakdown of Oak Bay water consumption according to different user groups 7. Breakdown of Western Communities water consumption according to different user groups Appendix Components A. Historical footnote: Amory Lovins B. a) Memo from J.Hull b) Memo from Bill Maddaus presentation C. Ad for retail suppliers of low flush toilets in Victoria D. a) CRD population changes b) CRD concerns for the long term water supply plan 2 Executive Summary There are many outstanding health, economic and environmental concerns affiliated with the GVWD's proposed Sooke Lake expansion project. Raising Sooke Lake Reservoir and the subsequent impact on water quality has not been adequately addressed. Increased surface area, higher temperatures, wave action, and logging and flooding of organic soils, can all give rise to increasing nutrients levels in the lake. Because of water quality deterioration in 1988, the Sooke Lake Reservoir is sensitive to nutrient input. It is possible that even small increases in the level of reservoir nutrients would be sufficient to stimulate further algal growth and deteriorate water quality. The GVWD proposed Sooke Lake expansion project and planned facilities will cost the residents of Greater Victoria an estimated 346 million (1994) dollars. Many components of the plan are unnecessary. The plan also requires over-building in advance of real need. It caters to unplanned growth levels and a wasteful consumption of water. The proposal also places heavy financial expectations on the continuation of these growth levels. A widely pursued option for many North American cites faced with increasing demand on water supply is a comprehensive Demand Management (water conservation) program. Demand management can supply water 2 to 4 times cheaper than the proposed engineering option. It prevents wasteful use of water resources, it reduces energy use, it reduces the cost of water treatment, operational and sewage treatment facilities, and it has far less social and environmental impact. In fact, water conservation should be the cornerstone of any long term water plan for Greater Victoria. The average per capita water consumption in Greater Victoria (568 litres/day) is almost double the national average (350 litres/day), with most of the consumption occurring in the home. Yet no independent analysis of the potential for a water conservation program has been done. Only capital intensive engineering solutions have been proposed by the consultants and the GVWD. The combined storage capacity of Sooke Lake, Goldstream and Waugh Creek Reservoirs is 70.2 million cubic metres. Using present consumption rates, the GVWD should be able to supply water for a population of 405, 032. With a modest Demand Management program (409 1pcd), the present storage capacity of the GVWD reservoirs can supply a population of 562,544. Our analysis shows that implementing a comprehensive water conservation program that lowers consumption levels to the national average, could supply 657,611 people. One of many examples that demonstrates the success with water, conservation is Goleta, California, where technical improvements to plumbing (such as low flush toilets, high efficiency shower heads) and rate structure changes led to a reduction in water use of 50%, thus eliminating the need to build a multi-million dollar treatment expansion. Time and money could be much better spent by delaying unnecessary capital expenditures and using the next several years to initiate a vigorous conservation program that eliminates the need for supply expansion and would be in the best economic, social and environmental interests of Greater Victoria residents. ure 1. Greater Victoria Water District 1 . 0 Introduction 1.1 Water Supply The Greater Victoria Water District (GVWD) supplies water to approximately 294,000 Greater Victoria residents. Water is supplied in bulk to the 4 municipalities of Oak Bay, Saanich, Victoria and Esquimalt, the CRD as agents for Saanich Peninsula, and directly to consumers in View Royal, Colwood, Langford, Metchosin, and Sooke (fig.!). The main source of water for the Greater Victoria region is the Sooke Lake Reservoir which supplies approximately 80% of the area's water. A secondary source is the Goldstream and Waugh watersheds which supply the remaining 20% (Malone, 1991). The Sooke Lake Reservoir has a usable volume of about 50 million m3. This can be increased to 56.6 m3 if the water level is raised to the top of the flashboards. The average annual yield of the Sooke Lake watershed is about 80 million m3 (GVWD, 1993). - The secondary source, Goldstream and Waugh watersheds have a total capacity of about 13.6 million m3. 1.2 Increasing Population Increasing population in Greater Victoria and high rates of unplanned growth have prompted the district to make projections about the areas water requirements and the capacity of the Sooke Lake Reservoir. Since the 1960's, the long term water supply plan for the region, was based on the concept of increasing the capacity of the system by raising Sooke Lake Reservoir and diverting water from the Leech River and Deception Creek. These sources would provide enough water for a population well over 550,000 with a consumption of 591-682 litres/capita/day (130-150 gallons/ capita/day) (GVWD, 1992). 1.3 Water Quality Historically, the GVWD has paid little attention to water quality. Water quality in the Sooke Lake Reservoir was not monitored until 1988. As well, logging activities in the watershed continued until 1992 with little or no regard for the possible impact on water quality (fig. 2). Canadian Pacific Forest Products (CPFP) is still logging in the Deception Creek watershed, a sub-drainage of the Sooke Lake watershed (fig. 3). CPFP logging activities, including aerial spraying of chemical fertilizers and herbicides, contributed to the deterioration of water quality in Deception Creek and Reservoir. Because of the lack of monitoring, there is no data to track any compositional deterioration or changes in water quality. However, the bad odor, colour and taste that developed in 1988 indicate that these compositional changes have occurred. The GVWD claims that there is no evidence that logging in the water district has affected water quality. 6 Figure #2 Goldstream Watershed Logged by the GVWD, December 1992 Figure # 3 Deception Creek Watershed Logged by Canadian Pacific Forest Products January 1993 They can make this claim because no adequate monitoring of water quality was done. Testing of the water in Deception Creek and Reservoir shows high nutrient concentrations and biological growth. The consultant team reported to the Citizen's Advisory Committee on July 9, 1993 that: "Deception Creek and Reservoir show high turbidity and colour as well as elevated nutrient levels. The latter would foster algal growth that could lead to taste and odor problems". Although Deception Creek and the Deception Creek Reservoir have always been part of the long term water supply plan, the deterioration of water quality and corresponding bad taste and smell has reached a point where the GVWD does not wish to use this water source in the near future. There has also been a steady rise in the amount of disinfectant required in the water supply. Increased particulate matter, which can result from logging and other human activities, increases the need for disinfectant. Chlorine and chloramination treatment have doubled in the past 10 years, increasing from 0.6 ppm in 1981 to 1.2 ppm in 1991. There is growing concern about the toxic, mutagenic and carcinogenic health hazards associated with these by-products. In 1992, more than 64 Greater Victoria physicians petitioned the municipal government and the water board to halt all industrial activity, including logging, in the water district. 1.4 Long-Term Water Supply In response to growing public concern about water quality and supply, Dayton and Knight were hired in 1992 to develop a plan for the future of Victoria's water supply. An advisory committee was struck in the winter of 1993 to critically review and evaluate the consultant's proposal for long-term water supply. The advisory committee consisted of members of the public, the water board and district, and other stakeholders such as municipality representatives, labour and environmental groups. 2. Solutions Proposed by the Consultant Team The solution put forward by the consulting team was to increase the capacity of the Sooke Lake Reservoir area. Six options were recommended, all of which involve raising/ lowering Sooke Lake and diverting potential sources of water into the reservoir. The potential sources include Leech River, Koksilah River, Deception Gulch, Jordan River and Bear Creek. The recommended option from the consulting team was option A (table 1). Option A involves the diversion of water from the Leech River through the Upward tunnel, then via pipeline into the northern end of Sooke Lake. The consultants and GVWD officials are hoping 8 Table #1. Summary of Alternative A Costs. Source: Dayton & Knight Consultants Estimated 1994 cost Schedule of work Proposed Work $/million a) Rehabilitate upper three Goldstream 9.0 million Mainly 1994-2000 Reservoir dams and connect to Kapoor Tunnel outlet for use during emergencies and tunnel maintenance. g) Complete Leech River diversion works 7.0 million to 7900Mi/s (280 cfs) capacity discharging 0.8 million some 3000 m northerly into Sooke Res. (bypass Deception Reservoir) Pilot test water filtration for Leech River/ Sooke Reservoir water integration b) Enhanced disinfection by ozonation at tunnel inlet c) Decommission Japan Gulch and Humpback Intakes/ Reservoirs d) Connect Kapoor tunnel to No. 1 and No. 3 mains e) Raise Sooke Reservoir top water to provide another 50 m3 of storage and provide to isolate Deception Reservoir f) Langford to Sooke community main j) Progressively replace No.1 main with larger diameter steel system sub-total Mainly 2000-2045 interval h) Plan 3 work in Victoria to increase supply to south West Victoria, Oak Bay, and south East Saanich I) filtration plant at Kapoor Tunnel inlet g) Leech River diversion-stage 2 for 15,800( MI/s (560cfs. Pressurize Leech Tunnel to increase hydraulic capacity k) Provide deep intake in northern end of Sooke Reservoir. I) Second major transmission system from Sooke Reservoir m) increase storage volume n) Diversion of Upper Goldstream Res. to the Sooke Reservoir Estimated Alternative A GVWD cost Work not common to all alternatives downstream of GVWD Facilities Total Estimated Cost 9 12.2 million 0.8 million 5.8 million 14.9 million 13.5 million 17.7 million 81.7 million 8.7 million 120 million 7.9 million 17.8 million 41.5 million 17.0 10.0 million 304.6 million 41.6 million 346.2 million that the mixing of Sooke Lake Reservoir with the lower quality water coming from Leech River will not jeopardize water quality to the point where filtration is needed. However, construction of a filtration plant is already planned for the year 2006. The proposed filtration plant is a three year project that will cost 40 million dollars a year for" a total of 120 million dollars. There are however, components of Option A that may be necessary to upgrade the performance of the water supply system. These include the following: 1. Rehabilitation of Goldstream reservoirs/dams. There are many questions about the condition of these dams, ie. the magnitude of earthquake they can sustain, the magnitude of earthquake they should be able to sustain, etc. 2. Proposal to replace the #1 main with a larger diameter steel pipe. Preliminary investigation indicates that the #1 main is in a very deteriorated state. Even sand blasting for cleaning has created holes in the pipe. It is possible that leakage from this pipe is as high as 10-15%. 3. Proposal for disinfection by ozone. This is necessary if ozonation will drastically reduce the concentration of chlorine in tap water to level around 0.2mg /litre . 4. Proposal for a Langford to Sooke community main if the Sooke community wishes to join the GVWD water supply system. Sooke community would have to cover the cost of a pipeline from Langford to Sooke. 3. Concerns about Option A and the Raising of Sooke Lake Reservoir There has been no information provided about the possible impacts of raising Sooke Lake on water quality. In the draft report the consultants briefly mention the advantages /disadvantages associated with the raising/lowering of the Sooke Lake Reservoir(table 2). There are however, many other considerations affiliated with flooding the reservoir that are not presented by the consultant team. It is likely that logging and clearing of the trees around the lake will create many adverse effects that will lead to the deterioration of water quality to the extent where filtration could be required. Further, the completion date for the Sooke Reservoir expansion is around the year 2000. Time and money could be better spent by delaying this unnecessary capital expenditure and using the next several years to initiate a vigorous conservation program that would eliminate the need for supply expansion. 10 Table #2. Advantages & Disadvantages of Raising/Lowering Sooke Lake Reservoir Source: Dayton & Knight Consultants Raising Sooke Dam Advantages 1. More natural purification in an enlarged body of water and the consequent ability to defer relatively high cost filtration. 2. No need to provide and maintain large pumping stations. 3. Little fluctuations in Sooke Reservoir level until filtration is provided in the distant future. Disadvantages 1. Higher cost. 2. Shallow water withdrawals. 3. Need to provide Saddle Dams which may not be necessary if filtration plant was provided before more Sooke Reservoir storage is required. Lowering Sooke Reservoir Advantages 1. Lower cost 2. Ability to select best depth for water withdrawal. 3. Availability of water in extreme seismic event Disadvantages 1. Complex pumping/intake installation 2. Not easy access to intake. 3. High reservoir level fluctuations and possible water quality problems. 11 Figure #4. Shallow areas in Sooke Lake Reservoir during summer draw down. August 1992 Figure # 5. Algae growth in the Sooke Lake Reservoir during summer draw down. September 1992 3.1 Increasing Lake Surface Area The raising and expansion of the reservoir will increase the surface area of the lake by at least 27%. Many of these new flooded areas will contain very shallow waters (fig 4). The affiliated rise in temperature that comes from these conditions can encourage algae growth (fig. 5). Algae growth is often indicated by bad odor, taste, and colour. This condition may necessitate the immediate building of a filtration plant. 3.2 Increasing Nutrient Concentrations Logging and flooding of the lake will also introduce nutrients, bacteria -and algae from the recently flooded areas into the reservoir. The water quality problems of 1988 were caused by a combination of algae and bacteria. According to the investigative report, the alterations in the algae community were a response to the nutrient enrichment from: -soil disturbance at the Leech River tunnel construction site -retention of water in Deception Gulch -flooding of 30 acres of shoreline -channeling project in the head waters of Rithet Creek Because Sooke Lake Reservoir is sensitive to nutrient enrichment, it is possible that even a small increase in nutrients would be sufficient to stimulate production among the native algae population (Larrett, 1988). 3.3 Wave Action The shoreline of Sooke Lake Reservoir contains stumps from trees removed during reservoir construction. Considerable soil has eroded from the shoreline, exposing the roots that were formerly buried (fig.6). Repeated draw down cycles and wave action have exposed this unprotected shoreline to erosional processes. This will add further nutrients into the Sooke Lake Reservoir. 3.4 Submerging Organic Soils Some of the areas that will be submerged by the Sooke Reservoir expansion contain various deposits of organic soils, specifically around the north and north east shores of the reservoir in the vicinity of Begbie Lake and Judge Creek (fig.7). Limnologist Heather Larratt identified these areas as potential problems if they were to be flooded. If flooding is to occur, Larratt recommended that the soil either be removed, or if the organic soil deposit is too deep, it should be isolated with a 10" layer of gravel that could reduce the leaching of organic soils. (Larrett, 1985). 13 3.5 Concerns for Logging in the Coastal Douglas Fir Zone The old growth coastal Douglas fir (CDF) found in Victoria's watershed is the largest remnant of original coastal Douglas fir on Vancouver Island. This forest type is the most threatened in BC, with less than 1% of the original forest remaining. According to Richard Hebda of the Royal BC Museum, this ecosystem is one of the smallest distinct biotic units in Canada and contains an unusually high diversity of life forms. Hebda estimates that approximately 150 rare species of vascular plants occur in association with the coastal Douglas fir ecosystem. This likely represents 20 -25% of all BC's rare plant species (Searle, 1993). In the fall of 1992, the administration board passed two resolutions that help to address the concern for these forests. One, was to place a permanent moratorium on the logging of all catchment lands and another, was not to log the old growth stands in the off catchment lands. The consultant's recommendation requires the lifting of the logging ban currently in place for the catchment lands. Logging around the lake will have adverse effects on the CDF that is now buffered by the wind firm trees on the shoreline. Blow down in the forested areas could occur because of the disappearance of the wind firm shoreline forests. No Environmental Impact Assessment has been done, or is planned, to determine the sensitivity of the Sooke Lake aquatic and terrestrial ecosystem. 3.6 Concerns for Continued Logging Operations by the GVWD There has been past public concern about the reluctance of the GVWD to disband the forestry division from water district operations. Currently, there are no logging plans for the 1994 season, however crew and equipment are still employed by the GVWD. Usually by January, a logging plan and budget would have been submitted and approved. Yet to date, no logging plan has been submitted. It would appear that the forestry division is therefore planning to be logging/clearing around Sooke Lake Reservoir, despite the fact that the final report from the consultant team, and the CAC, have yet to be submitted. In the minds of the forestry division the issue would appear 'fait accompli'. Repeatedly, we have witnessed logging interests in the GVWD attempt to maintain their foothold in the watershed. The public has demonstrated their desire to see the GVWD out of the logging business and focussing solely on supplying quality water to Greater Victoria. 3.7 Design Criteria The consultants design criteria for the future capacity of the GVWD water system is based on the continued per capita consumption of 591-682 litres (130-150 gallons) per day. These figures are not only far above the reported national average of 350 litres (77 gallon) but completely ignore the effects of a comprehensive water conservation program. 14 Figure #6. Effects of wave action in Goldstream Lake. June 1992 15 I Figure #7. Soils of the Sooke Lake Region. Source: Larratt, 1985. 15 The consultants have proposed a plan based on the present high rate of growth and projected population increases for Greater Victoria. Neither the rate of growth nor the rate of consumption are a given. Essentially, the consultants and the GVWD are proposing to build a facility in advance of real need, that caters to unplanned levels of growth and a wasteful consumption of water. Deception Reservoir and the Leech River tunnel are past examples of building in advance of real need and without proper planning. Forecasting energy levels in the U.S.A. during the 1970's proved to be far in excess of actual need (App. A). 3.8 Economic Concerns The cost of Option A to the residents of Victoria is estimated to be 346 million (1994) dollars. The consultants have further stated that this cost can increase or decrease by 50% and 30% respectively. This would place the total cost of Option A between 242 to 519 million dollars. The cost of some facilities, such as the ozonation plant, can be expected to increase well above the estimated cost. On July 9, 1993 J. Watkins of the consulting team told the Citizen's Advisory Committee .... that the estimated costs in his presentation are for treatment plants only, and do not take into account additional factors such as location, construction of clear wells, building of pumping stations or provision of a power supply..............He further emphasized that the estimated costs were for treatment plants of different sizes only and did not include associated costs. For example, a contractor would revise his bid upward depending upon the remoteness of plant location. Other considerations, like ozone production, require a lot of electrical power that would have to be considered in choosing the most suitable alternative. The cost of a filtration plant is estimated to be $120 million based on 1994 dollars. The cost of financing at a 6% interest rate is $7.2 million annually. The cost of maintenance and repairs of such a facility is $2.9 million annually. The total cost to the taxpayers is over $10 million annually in interest and repairs. Economically, this proposal will impose a heavy and unnecessary burden on the people of Greater Victoria. The GVWD claims that $58.9 million of $90.5 million necessary for the first 5 year phase will be obtained from development charges. However, there is no supporting document for this claim. The GVWD proposal is based on projected high rates of growth, yet is it desirable to cater to uncontrolled growth rates in order to pay for the cost of unnecessary facilities? The proposal also places heavy financial expectations on this growth. Further, making huge capital investments in supply expansion and then implementing a water conservation program would not be economically practical. Water conservation alone can eliminate the need for this capital expenditure. 17 4 . Background to W a t e r Conservation Generally, there are two basic elements in developing a plan for long term water supply. The first and traditional approach has always been to engineer technical solutions to meeting the demand. The second approach is to lower the high level of water consumption. Water conservation (also called demand management) focuses on reducing demand as a first priority instead of increasing supply. The slower the demand for water consumption, the longer capital expenditures in engineering infrastructure and filtration facilities, can be delayed. This approach is becoming a widely pursued option for many North American cities facing increased demands on water supplies, especially as engineering costs and concerns for the future of water resources, increase. Water conservation can be implemented with no impact on level of services or quality of life. Pursuing a water conservation strategy is in the best economic, environmental and social interest of Greater Victoria residents and should be the cornerstone of a long range plan for the GVWD. 4.1. The Benefits of Water Conservation 1. Reduce and delay capital costs of increased water supply. Most conservation measures have a payback period of 3-5 years. In general, conservation programs cost 2-4 times less than capital intensive programs (App. B). 2. Prevent over calculation of demand far into the future. 3. Reduce energy use in: a) water heating b) operation of water supply and waste water facilities 4. Reduce operation costs and the cost of future waste water treatment plant. 5. Delay and reduce the cost of water treatment due to less water being in the system. 6. Reduce water, sewer and energy bills to the customer. 7. There is a public desire/acceptance for water conservation programs (App.B). 8. Minimize environmental impacts. 9. End the wasteful use of water and embark on a wise use approach to the consumption/ protection of valuable and finite resources. 18 Table 3. Water Rate Structures Table 4. Per Capita Water Consumption for some Canadian Cities 19 5 . Implementing a Utility-based Water Conservation Program Utility-based efficiency measures include metering, improved rate structures, leak detection and repair programs, and pressure-reduction programs. These measures are generally the first water efficiency programs implemented in communities. 5.1 True cost pricing: Pricing must reflect the true cost of supplying water. Waste is inevitable if water is subsidized. Pricing should be based upon an increasing block structure that reflects an acceptable level of water consumption (table 3 ). 5.2 Rate structuring and metering: Encourage customers to use less water and not to waste the resource. Many communities are revising their rate structures to signal that future supply will cost more than present supply, and that peak supply costs more than base supply. To make higher rates more palatable customers should be provided with information on how to reduce their bills. Case study Palo Alto, California, relies almost entirely on temporary/emergency rate structure and educational programs to achieve its temporary water saving goals. The goal for Palo Alto has been a 25% reduction over the year, and a 3040% reduction in the summer. In addition to price signals through rate structures, the city hires students to distribute information and advise home owners on how to reduce water use. In 1989, a drought year, Palo Alto reduced its water consumption by 27% of the 1987 level (RMI, 1992). 5.3 Pressure reduction: Over pressurized water systems can result in inefficient use. Pressure within the lines should be kept between 50-60 psi for maximum efficiency. 5.4 Leak detection and repair: Finding and repairing leaks usually yields a big pay off, especially in older cities. As urban water systems deteriorate because of age or lax maintenance, water can be lost through broken pipes in the distribution network. A preliminary investigation of Main #1 serving Victoria and Oak Bay indicated the pipe was in a very deteriorated state and in need of repairs or replacement. According to the GVWD, even sand blasting for cleaning and clearing Main #1 created holes in the pipe. In such a condition, it is highly probable that 10% -15% of the water is being lost in the system to leaks. The rates of water consumption in both Victoria and Oak Bay are much higher than that of Saanich and the Western Communities. Leakage in the system may explain the higher consumption. 5.5 Plumbing code by-laws: The BC government is planning plumbing codes for 1996. However, plumbing codes could be passed now, through the Municipal Act. To date, repeated requests from citizens for municipal by-law changes that enforce water efficient plumbing have not been brought forth. Municipalities should be acting pro-actively in this initiative. 20 Case study At a cost of 2.1 million dollars , the Massachusetts Water Resources Authority's leak detection program cut system wide demand in greater Boston by about 10 % making it one of the most cost effective measures in the city's conservation strategy (RMI, 1992). Case study New York City has an ongoing leak detection program. The goal is to survey all 33.6 million feet of water mains with computerized electronic equipment. As of September 1 1989, survey crews had examined over 31 million feet of water mains and eliminated the loss of an estimated 89 million gallons per day in leaks (RMI, 1992) 6. Implementing a Customer-based Water Conservation Program Residential water use represents over 70% of the total system demand. Achieving reductions in domestic water use is therefore a major component in an efficient water conservation program. In almost every case, successful efforts to curb domestic water use include some combination of economic incentives, regulations and public outreach programs to promote the use of water saving technologies and behaviors in the home. Examples of these measures include installing water efficient household fixtures, fixing leaky toilets, faucets and pipes, making outdoor watering more efficient, installing water efficient landscaping, and correcting wasteful water habits. 6.1 Technical improvements to plumbing fixtures: There is the potential to reduce the consumption of water in the home by 40% or more with little or no effect on lifestyle, simply by making technical improvements to plumbing fixtures. Toilets: Replacing a 20 litre flush toilet with an ultra low volume (ULV) 6 litre toilet represents a 70% reduction in the amount of water flushed and will reduce indoor water use by about 30%. At 20 litres per flush and assuming at least 4 flushes per day, over 30,000 litres of clean fresh water is used annually to dispose of 650 litres of body waste. A 6 litre ULV toilet will use only about 9000 litres to do the same task. Low flush toilets are readily available in Victoria and retail for between $80.00 - $180.00 (Appendix C). Shower heads: After toilets, showers and baths consume the largest amount of water in the home. Low flow shower heads can reduce the water flow by 50% without effecting shower performance. Faucet aerators: Efficient faucets which replace conventional aerators can save 3-5% of total indoor water use. Aerators are inexpensive and easy to install. 6.2 Washing machines: Front loading washing machines use 40% less water than top loading. 21 Case study In Goleta, California, over 17,000 ultra low-flush toilets have been installed in the last few years, most with a $50-80 rebate from the local utility. The utility has also distributed 35,000 high efficiency shower heads, implemented rate structure changes, and conducted on-site water use surveys. These measures, in addition to some emergency drought measures, led to a reduction in water use of 50% and reduction in sewage flow of over 50%, thus eliminating, for now, the need to build a multi-million dollar treatment expansion (RMI, 1991) . Case study The Lenox Hotel in Boston, Mass. has reduced its average water demand by about 40% by replacing conventional fixtures in its 220 rooms with a 6 litre flush toilets (1.6 imp gallons), 9.5 litre per minute shower heads(2.5 imp gallons) and 9.5 litre per minute faucet aerators. This represents 13.6 million litres (3.6 million imp. gallons) per year water savings and 15,0(X) dollars annual cost savings. These savings have been enjoyed with no reduction in fixture performance or customer satisfaction (RMI , 1991). Case study To help conserve supplies and reduce loads on the Hyperion waste water treatment plant, the city of Santa Monica, California has initiated a program to replace 12,000 conventional toilets with low flush fixtures; anticipated savings are 3,796,000 litres /day (835,000 g/d ). The city plans to use the old toilets to construct an artificial off shore reef to increase habitat for marine life (Vickers, 1990). Case study In Liano, Texas thirty three housing units of a pre -1970 senior citizen housing project were replaced in November 1989. The new units were fitted with 1.6 gal/flush toilets. Water savings in the first month were 16,000 gal or about 15-20 gpcd, and there have been no complaints to date (Vickers, 1990). Case study Faced with a falling groundwater table and rising costs for waste water treatment, the city of Sebastopol, California (population 6,000) has required 1.5 gallon per-flush or less toilets in all construction and renovation since May 1988. Sebastopol also requires a developer to retrofit as many old units as he proposes to build (RMI , 1991). 6.3 Fixing leaks: A leaky toilet can waste an average of 3,050 litres (750 gallons) of water per month. A leaky faucet can waste an average of 1336.5 litres (300 gallons) per month. An American Water Works Association Study indicates that toilet leakage of 109 litres (24 gallons) /capita/day is not uncommon in multi-family housing. Case study New York City has begun a door to door inspection program to examine residential, commercial, and industrial plumbing systems to discover water leaks. In the first 15 months of the program, six crews of inspectors from the Bureau of Water Register have finished 70,000 inspections, correcting 10,000 leaks, and saving a total of 3.2 million gallons of water each year (RMI, 1991). 22 6.4 Landscaping/ gardening: The use of vegetation that is native to a particular area should be chosen as an alternative to grasses. Grasses require incredible amounts of water to keep green, especially in dry summer months. In dry regions, lawn sprinkling accounts for anywhere from 1/3 to 1/2 of residential water demand. Other watering conservation measures include timers, water gauges, cycle irrigation, drip irrigation and subsurface trickle irrigation. Efficient landscaping measures include limited grass areas, soil improvements, mulches, and low water use plants. Case study John Nelson, a leader in implementing outdoor water efficiency in North Marin California, suggests using a range of 10-15% year round savings as the amount of water that can be saved using efficient outdoor watering methods, not including grass area. By adding reduced grass area to a program, year round outdoor water savings can be increased to 30% or more. A study of outside water use in multi-dwelling homes in California showed that 90% of all outside water use was applied to grass, even though those grass areas constituted only 40% of the total irrigated landscape areas (RMI,1992). Case study Novato, California found that the newer more efficient landscaping methods cut water use by 54%, fertilizer by 61% and herbicides by 22% (Postel,1993). Case study In 1991, Tuscon, Arizona forbid any new developments from having more than 10% of their landscape areas planted in grass (Postel 1993). 7. Recommendations for Long Term Water Supply in Greater Victoria The initial answer to long term water supply in Victoria lies in implementing a comprehensive water conservation program. North American water consumption is the highest and most wasteful in the world (fig. 8). The preliminary data on water use in Greater Victoria indicates that water consumption of 568 litres per capita per day is one of the highest in the country (table 4). Table 5 shows that Victoria and Oak Bay have the highest daily consumption rates with 650 litres (143 gallons) and 641 litres (141 gallons) per capita respectively. Saanich has the lowest with 514 litres (113 gallons) per capita. Most of the water used in Greater Victoria is in residential households. In Oak Bay, household usage comprises 80.5 to 86.5% of total water use. In the Western Communities, household water consumption is about 73% of the total water use (table 6 & 7). This data indicates that the best strategy for an effective water conservation program is to target domestic water use. A comprehensive program for changing existing toilets and shower heads in each household and for implementing of a conservation-based rate structure, would guarantee a drastic reduction in water use . 23 Figure 8. Average Daily Water Consumption in Households Around the World. Source: Environment Canada, Conservation & Protection fact sheet # 4. Greater Victoria has a current population of 294,000 people. The average daily consumption rate is about 568 litres (125 gallons) per capita for a total of about 55 million cubic metres per year. The current capacity of the Sooke Lake Reservoir is about 56.6 million cubic metres. The current capacity of the Goldstream Reservoir is about 13.6 million cubic metres. The total capacity the both systems is 70.2 million cubic metres. The following calculations are based on the reservoir being full on March 1.* (70.2 x 106 m3) x (1000 litres/m3) = 405,032 305 days x 568 l/p/c/d Based on current consumption levels, we have enough water to supply 405,032 Greater Victoria residents with water until 2011 (see Appendix D' for Greater Victoria population projections). If, over the next 5 years, only half of the capacity of Goldstream and Waugh Creek watershed is available ( 56.6 + 6.8 = 63.4 million m3 ) then we would have enough water to supply 365,798 residents with water until 2003. (63.4 x 106 m3) x (1000 litres/m3) = 365,798 people 305 days x 568 1pcd *According to Peter Malone, chief engineer for the GVWD, a spillway occurs from March to the end of May/early June (in a normal year). Assuming that the reservoir is full on March 1, using a figure of 305 days to calculate the consumption requirements is a very realistic and conservative assumption. 24 Table 5. Monthly Consumption Ratio for Municipalities of Greater Victoria 25 Table 6. Breakdown of Oak Bay Water Consumption According to Different User Groups. 26 Table 7: Breakdown of Western Communities Water Consumption According to Different User Groups. 27 With a comprehensive water conservation program, the consumption levels can be easily reduced to 409 1pcd or less. 409 1pcd is the current rate of consumption of the Kitchener-Waterloo region in Ontario. This level of consumption was achieved by a very limited and inefficient conservation program. Much more can be achieved with a comprehensive water consumption program. Using 409 1pcd and a current storage capacity of 70.2 million cubic metres, we would have water for a population of 562,544. This figure far exceeds the projected population for the year 2020. (70.2 x 106m3) x (1000 litres/m3) = 562,544 people 305 days x 409 1pcd If we could reduce the water use per capita to 350 1pcd (the Canadian average), we have enough water, at present storage capacity, for a population of 657,611. (70.2 x106m3) x (1000 litres /m3) = 657,611 people 305 days x 350 1pcd It therefore seems possible to delay huge capital expenditures if we use the next several years to initiate a vigorous water conservation program. Imperative improvements to the system such as a new #1 main should proceed. It would be imprudent to decide on major water supply facilities before a comprehensive water conservation program is designed and put into place with realistic goals, funding and staff for consideration as a first step in developing a long term water supply plan. Based on the above evidence, it is difficult to understand why the GVWD is intent on pursuing their engineering options. According to a researcher with the Waterloo water conservation program, the reason may lie in resistance to change by water system managers: "As may be expected whenever new ideas and approaches are proposed, the most powerful initial barrier is the ignorance and inertia of the immediate decision makers. Water system managers who are comfortable with the established ways of meeting water requirements by ensuring adequate supply, distribution, collection and treatment are naturally inclined to neglect the demand management alternatives" (Benninger, 1992) 8. Citizen's Advisory Committee The Citizen's Advisory Committee (CAC ) was set up by the Administration Board at its meeting on October 23, 1992. The committee was established to advise on arid evaluate the development of the long term water supply plan for the Greater Victoria Region. The committee held 12 meetings and several workshops over the last year to consider the material being presented by the consulting team, Dayton and Knight. The CAC consisted of the GVWD's Chief Commissioner, the Chairman of the GVWD Administration Board, representatives of the municipalities, the public, and labour and environmental groups. 28 8.1 Citizens Advisory Committee Terms of Reference: 1. To review long tern' water supply options 2. To take into consideration the social and environmental impacts in the review of the options 3. To critically evaluate the detailed information being presented by the consulting team 4. To ensure all relevant issues are being considered 5. To attend and participate when required in public meetings 6. To communicate the issues being considered to the groups represented by the CAC members and report comments and concerns back to the technical team and /or the GVWD. 7. To reach consensus through constructive discussion on all issues 8. To formulate recommendations to be taken to the board by the committee chair 8.2 Failures of the Citizen's Advisory Committee Unfortunately, the CAC failed to adequately fulfill 6 of the 8 responsibilities in the Terms of Reference. Specific areas of concern with each of the Terms of Reference are as follows: 1. There was no independent evaluation of the technical and economic merits of the consultant's recommendations. There was no economic comparison of the engineering approach vs. demand management alternatives. 2. The Advisory Committee failed to evaluate social and environmental impacts of the consultant's recommendation. This was identified by the committee members and stated on page 10 of the CAC Report; "the consultants have provided no criteria for environmental assessment and social considerations". 3. The Advisory Committee was unable to critically evaluate material presented by the consulting team. For example, the cost of a secondary supply line for the northern route, which involves a pipeline up the Malahat to Mill Bay, across the Saanich Inlet, and over to the Saanich peninsula, was underestimated when compared with other routes. The CRD engineers developed a series of questions about the northern pipeline route and its cost. Members of the CAC repeatedly asked for written answers to the CRD's questions and concerns ( Appendix D). M. Najari asked if committee members could have [GVWD] comments to the concerns noted in the correspondence from the CRD. J. Hull stated that the CRD's concerns had been passed on to the consultants who will review them. Also, the cost estimates will be evaluated by another consultant to make sure the figures are reliable. CAC workshop minutes Sept. 14,1993 29 CRD concerns: M.Najari requested written responses to the concerns expressed by the CRD. J.Hull reported that no written reply had been made because these concerns had been dealt with at the meetings of the Technical Liaison Committee. CAC meeting minutes October 8, 1993 M.Najari asked for written answers to the concerns raised by the CRD. J.Hull stated that these had been dealt with by the Municipal Technical Liaison Committee. M.Najari said the CRD was not satisfied with the answers to their concerns. CAC workshop minutes October 12, 1993 To date, the CAC members have not yet received answers to the questions raised by the CRD's engineering staff. 4. The Advisory Committee was unable to consider all relevant issues and was denied access to information that would have furthered understanding and clarified concerns. For example, a request was made to visit the area containing the organic soils around Begbie Lake because of the concern for water quality once these soils were flooded. The request was declined by the Chief Commissioner. J. Hull invited committee members to look at revised maps showing the areas to be inundated if Sooke Reservoir is raised The 190 m contour mentioned at one of the workshops is the line to which the reservoir sides will be cleared High water level is 187 metres. The extra 3 metres will be cleared in places where vegetation will be adversely affected by the high water level. If clearing to 190 metres is not needed it will not be done. Each site has not been evaluated. The 190 metre level has simply been marked. If it is decided to raise the reservoir, more detailed site studies will be carried out. J.Hull stated the work has already begun on studying the Begbie Lake area. Soil samples will be tested to ensure there are no problems similar to those in Deception Reservoir. He pointed out that this water already enters Sooke Reservoir and no problems have been experienced. M. Najari requested a visit to the Begbie Lake site. The chair stated this was off topic. Minutes from CAC meeting October 8, 1993 5. Responsibility to attend and participate in meetings was generally fulfilled, however many CAC members missed meetings. 6. Many members of the Advisory Committee did not adequately convey all relevant materials to constituencies mainly because they did not have an adequate or clear picture of the proposal being presented. The draft consultant report provided in November of 1993 should have been provided much earlier in the process. 7. The Advisory Committee failed to reach consensus on the long term water supply proposal. 8. The Advisory Committee was able to formulate recommendations on long term water supply, however there was no consensus on these recommendations. 30 A fundamental problem with the Advisory Committee was the fact that GVWD officials had control over the meeting and the process. Most of the information provided came from the consultants. Both the District and the consultants were clearly in support of the proposed plan. Drawbacks and negative aspects of the supply plan (such as concerns for water quality associated with raising Sooke Lake) were not addressed b y District. The District officials in many cases often led or directed committee members. R. Docking asked why we would need to raise Sooke Reservoir or divert Leech River if such sign ant savings in water could be realized. J.Hull replied that timing was a factor. Consumption would not be reduced over night... J. Hull explained that demand management programs take time to show results and even with such a program, overall consumption would still increase. C CAC Meeting minutes October 8, 1993 However, according to the chief commissioner, the engineering option for Sooke Reservoir expansion will take at least 5 years. Another example of an unresolved issue brought forward by the CAC members is as follows: J.Hull used over head diagrams to illustrate sedimentation. There are several factors to be considered when evaluating how effective a sedimentation basin is. Gravity, the vertical component, pulls particles to the bottom. There is also a horizontal component ie, the rate at which water flows through the basin. The faster he rate of flow, the less time the particles have to settle. This needs to be considered when deciding whether to raise or draw down Sooke Reservoir. If it is decided to draw down the reservoir each year, the flow of water will be more rapid and the natural settling action hampered. Diminution of this natural process will have to be weighed against a nutrient pulse that may be experienced if the reservoir is raised. M. Najari stated that the reservoir is drawn down every summer and water quality problems are not experienced. He suggested that it will be safer from a water quality standpoint to draw the reservoir down than to raise it. J. Hull explained that presently the section of the reservoir bed exposed each summer is shallow, however tithe deeper end of Sooke Lake Reservoir is drawn down steeper sides would be exposed. This could lead to increased erosion and water quality problems in the fall when heavy rains begin. M. Najari asked if we could physically measure the effect of raising the reservoir. J. Hull stated that there are no risks to both options. The University of Victoria fears there could be problems at the microbiological level if the reservoir is drawn down. M. Najari asked to see this information from the University. J.Hull stated that this assessment by the University was not available in written form. Citizens Advisory Committee meeting minutes November 19,1993 The "University of Victoria" as a body, would not make a statement such as this about water quality. Mr Hull should be able to provide the specific name/names of the individuals who made this claim. Other concerns for endorsing the Advisory Committee's report are based in the inherent dichotomy within the CAC's recommendations. On one hand, the CAC makes a strong case for the implementation of a demand management program, yet this is only meaningful if it is employed prior to commencement of any water supply capital expenditures. "Large capital investment in supply facilities should be delayed as long as possible" 31 on the other hand, it also recommends that "the administration board approve the combination of supply measures represented by alternative A while stressing the long term water supply plan requires a parallel implementation of demand management recommendations 1, 2, 3, 4, and 19". Another inherent contradiction in the report is recommendation #2 which addresses the current ban on logging activities in the GVWD catchment lands because of the concern for water quality. The CAC on one hand supports halting the logging activity in GVWD by recommending: ...through continuation of the ban on logging in the catchment area already put in place by the Water District Board the committee strongly supports the decision by the Administration board for reasons of sound water pricing, protection of water quality and quantity, and preservation of forest cover on the South Island. All possible means of ending logging within the watershed area by private corporations should be explored for the same reasons. On the other hand. the CAC recommends raising Sooke Lake Reservoir which requires lifting of the ban on logging in the watershed area. Some of the recommendations that appeared in the final report are old and new initiatives of the GVWD that did not originate from Advisory Committee members. Recommendation #14 on public meetings, recommendation # 15 on swapping old growth areas in Niagara watershed for logged over lands (by Fletcher Challenge & CPFP) in the catchment area, and recommendation # 16 concerning the land management of Leech River watershed are all examples of these past initiatives. 32 31 References Benninjer, BA,. 1992. "Water Conservation: The untapped potential". Alternatives. Vol. 12, No. 1 pp 20. Chaplin, S. 1991. Water Efficiency Sampler. Rocky Mountain Institute Water Program Snomass, Colorado. Collie, D., Goertzen, C. 1993. "Kitchener pilot project: Water efficient homes." Final Report to Regional Municipality of Waterloo. Dayton & Knight. 1993. "GVWD:Long Term Water Supply Plan". Draft Report. November 1993. Dayton & Knight. 1992. "GVWD Work plan for long term water supply plan". Greater Victoria Water District. 1993. Water supply area: Background Information: GVWD. Greater Victoria Water District. 1992. Request for proposal. Long Term Water Supply Plan Jenkins, L., 1993. "Canadian water conservation survey". Public Works Water Branch Larratt, H.M. 1985. "Greater Victoria Water Supply: Water quality study" Report to GVWD Larratt, H.M. 1988. "GVWD: Taste and Odor Problem June - October 1988". Report to GVWD. Malone, P. 1991. "Greater Victoria Water District: Long term Development Plan". GVWD. Postel, S. 1993. "Water Tight". World-Watch. Vol. 6 No. 1 pg 19 Rocky Mountain Institute. 1991. Water Efficiency: A resource for utility managers, community planners and other decision makers. Rocky Mountain Institute. Searle, R., Tanaka, T. 1993. "Paradise Paved". Nature Canada. Vol. 15. Summer 1993. Vickers, A., 1990. "Water-use efficiency standards for plumbing fixtures: Benefit of National Legislation". AWWA Journal. Vol 2 No. 5. Vickers, A., Markus, Edward T. 1992. "Creating economic incentives for conservation" AWWA Journal. Vol. 4, No. 10. Woodwell, John, C. 1991. Water Efficiency: for your home. Rocky Mountain Institute. Snomass, Colorado. Appendix A: Historical Footnote. Amory Lovins "Energy Strategy: The Road Not Taken" Foreign Affairs 55 (1): 65-96, Fall 1976. 34 Appendix B: a) Memo to J. Hull from P. Malone Re: Water Conservation Convention Feb. 10, 1993 b) Presentation -Water conservation - Bill Maddaus, Montgomery Watson Citizens' Advisory Committee Meeting Minutes - May 14, 1993 pg 2&3 479 ISLAND HIGHWAY. VICTORIA BRITISH COLUMBIA. V9B 1H7 TELEPHONE FAX (604) 474-9600 (604) 474-4012 MEMORANDUM 10 February 1993 TO: J. A. (Jack) Hull, MBA, P.Eng. Chief Commissioner FROM: P. Malone, P. Eng., Head Engineering & Planning Division WATER CONSERVATION CONVENTION WINNIPEG, MANITOBA, FEBRUARY 3 - 6, 1993 REPORT. The convention was attended by approximately 400 delegates and was one of the best, most focused conventions I have attended. Some salient points from my notes are: 1. Water conservation or Demand Management is no longer just a crisis management issue, but must be part of a long term strategy, demonstrating an economically responsible approach to meet future water needs. 2. Most of the larger communities in Canada are incorporating or planning to incorporate Demand Management into their long term plans; not because of a shortage of water, but to delay upgrading of infrastructure. 3. A Demand Management Program must have an overall plan, be adequately funded and staffed. 4. Education, technology, pricing structure and enforcement do not work alone, but must be integrated. 5. Seventeen (17) states and one (1) province (Ontario) have changed building codes to require water efficient toilets and showers. 6. Unaccounted for water can be one of your biggest savings. 7. Most conservation measures have a payback period of 3 - 5 years. In general, conservation programs cost 2 - 4 times less than capital programs for the same savings. 8. Some private water suppliers in the USA have been loathe to promote conservation because of losses in revenue. Convention - Page 1 9. Price increases are only effective in the short term because as people get used to the new prices they slowly gravitate to their old consumption rates. 10. Public education is very effective. Communication begins with information. We need the public as partners, therefore they must recognize the need. One of the first challenges is to change internal thinking, i.e., staff, politicians. 11. City of Winnipeg is just about to embark on a program costing $680,000, of which $380,000 is for public education in the first year. 12. 98% of housing is existing, 2% added each year. Therefore biggest opportunity is in existing houses. 13. The additional cost of installing a low flow toilet in a new house can be recovered in the first year. 14. Telephone surveys to see if retrofit kits have been installed are not always accurate - some people will say they have installed the fixtures when they haven't. 15. In Waterloo, Ontario, approximately 58% of the people receiving kits installed them. 16. Education Programs: Characteristics of Successful Programs: ► easy to understand. ► useful information. ► low cost. ► target right audience (if Grade 4, then write material for Grade 4). ► involve audience (hands on). Characteristics of Unsuccessful Programs: ► ► ► ► ► ► ► ► did not fit curriculum. lack of current information. not cost effective. no rewards for use. too "preachy" or "gimmicky". no follow up. wrong audience. not enough promotion. Convention Page 38 RECOMMENDATIONS The District should have an overall Demand Management Policy and Plan that has been approved by the Administration Board. Key elements in the plan should include: 1. A demand study - where do we use our water, including unaccounted for water? 2. Establish goals. 3. Identify options. 4. Conduct a benefit cost analysis. 5. Review rates. 6. Public Education. 7. Leadership needed by municipalities (park irrigation, etc.). 8. Lobby for new codes. PM/rr Convention Page 39 The meeting was called to order at 9:00 a.m. with Tom Jenkinson in the Chair. 1. APPROVAL OF AGENDA Motion: Moved by E. Nyland and Seconded by J. Pendray that: "The agenda be approved." Carried 2. APPROVAL OF MINUTES OF MARCH 12, 1993 C. Yorath pointed out an error in the notes regarding the seismicity presentation by Dr. Garry Rogers. The Queen Charlotte fault is not a continuation of the San Andreas fault. It is similar in that it lies along the continental slope of British Columbia just as the San Andreas lies along the continental slope of California. Motion: Moved by R. Mitchell and Seconded by P. Bardal that: The Minutes of the March 12, 1993 meeting be approved as amended." Carried 3. BUSINESS ARISING FROM THE MINUTES T. Young expressed his appreciation for the Watershed Tour of Thursday, April 8, 1993. He felt that he gained a great deal of insight into the District's operations. T. Jenkinson, on behalf of Committee members, thanked the Chief Commissioner for organizing the tour. 4. PRESENTATION - WATER CONSERVATION - BILL MADDAUS, MONTGOMERY WATSON J. Hull introduced Bill Maddaus of the consulting firm of Montgomery Watson who gave a presentation regarding water conservation. Major points covered in the presentation were: (Note: quantities in Mr. Maddaus' report are shown in US gallons). ► Water conservation should be integrated into water supply plans. This should be done because: a) Cost will be reduced or delayed. b) Environmental impacts will be lessened. c) The public desires water efficiency. W ► What steps need to be taken to integrate conservation into water supply plans? a) Forecast water demand. b) Identify non-structural alternatives: conservation, reclamation, exchange/transfer. c) Compare cost of conservation promotion with new supply costs. d) Find a balance between supply and conservation. ► How do you discover what the potential is for water conservation? a) Break customers down into classes (industrial, residential, etc.) b) Target the largest users. c) Discover where greatest savings m that class could be made. For example, in the home the bathroom accounts for greatest interior water use. By targeting that area savings can be made (in some cases water-use has been lowered by 33%). Greatest residential exterior use is in irrigation. Citizens' Advisory Committee Meeting Minutes - May 14, 1993 Page 2 Appendix C: Copy of ad promoting low flush toilet sales in a Victoria retail store 42 Appendix D: a) Component of Population Change for Capital Regional District b) CRD: Areas of Concern on GVWD Long Term Water Supply Plan 44 CAPITAL REGIONAL DISTRICT AREAS OF CONCERN ON GREATER VICTORIA WATER DISTRICT LONG TERM SUPPLY PLAN TASK 5.12 - SUPPLY SYSTEM DEVELOPMENT SPECIFIC AREAS OF CONCERN: 1. The Sooke Main No.1 seems to have been omitted from the cost estimate for Alternative 4. This item was estimated to be $9,500,000 in Alternative 2. The northern supply route from Sooke Lake to Dean Park Reservoir, as shown in Figure 5-12. 4, appears to be about 39km instead of the 30km length used in the cost estimate. This is based on the assumptions that the damsite was used as a common starting point for all four alternatives because of its potential as the future treatment plant site and that it includes the crossing of Saanich Inlet (ie. $2.3M is listed as an "extra" cost for the submarine work). In Figure 5-12.d, the distances from Sooke Lake (damsite) to McTavish Reservoir and Haliburton Reservoir are shown as 29.5km and 37km respectively. These distances are more in range of 38km and 52km. Also, the distances from McTavish Reservoir to the purposed Bear Hill Reservoir and Haliburton Reservoir are shown as about 4.5km and 7.5km respectively. These distances are more in the order of 10km and 14km. These additional lengths could have a significant effect on the hydraulic grade lines, pipe sizes and estimated pipeline costs for Alternative 4. 2. 3. No cost allowance appears to have been included in Alternative 4 for a head tank at the 210m highpoint on the northern supply route which is needed to support the operation of the 50 mgpd pump station. In Alternative 2, the Japan Gulch and Humpback Treatment Plants can continue to be used to disinfect the water supplied to the District (at least for the immediate future). No cost allowance has been included in Alternatives 1, 3 & 4 for another disinfection plant at Sooke Lake . to provide the same' level of water treatment as would be supplied by Alternative 2. The estimated costs used for the future upgrading of the Saanich Peninsula Water System ( SPWS) have been increased from $39,153,000 to $42,000,000, presumably to allow for inflation. The SPWS Water Management Plan estimates already include a 62% allowance for soft costs such as inflation, contingencies (construction, design and scope change), engineering, administration, rights-of-way and land acquisition, cost of issue and interim borrowing costs. It is not clear what soft costs are included in the other items in the various Alternatives . 4. 5. Of the $39,153,000 estimated for future upgrading of the SPWS through to 2012, approximately $5,154,000 of upgrading work has already been completed. The estimated costs for future upgrades to the SPW system under the four alternatives are as follows (ie. the estimates in brackets do not include the 62% allowance for soft costs): 1993 - 1996 2004 - 2012 Alt. 1/2/3 $15,446,000 ($ 9,535,000) $18,553,000 ($11,452,000) Alt. 4 $14,192,000 ( $8,760,000) nil nil The estimates for the four Aternatives should include the same soft cost allowances for all items. 6. In Alternative 2, the District will be able to derive a significant benefit from the Jack Lake pipeline by utilizing the Goldstream Watershed as a backup source or to assist in the recovery of Sooke water levels annually. Alternatives 1, 3 & 4 do not provide similar benefits to the system. These benefits have a monetary value to the District and should therefore be addressed in the cost comparison of the four Alternatives. A preliminary present worth analysis of the four Alternatives shows a significant shift in their relative costs when the proposed construction dates are taken into account. This is due to the high initial costs in the early stages of some of the Alternatives. A preliminary review indicates that the difference in capitalized pumping costs between Alternatives 1, 2 & 3 and Alternative 4 for Saanich and Saanich Peninsula should be more in the range of $9M $10M, rather than the $18M and $21.5M used in the summary of costs. Item 1 (1994-95) in Alternative 3 appears to include a $10,000,000 allowance for appurtenances. This is a large enough amount to warrant some further detail. Connecting the tunnel to No.1 and No.3 Mains in Alternatives 2 & 3 is estimated to cost $4,000,000, whereas in the previous report entitled "Additional Flow Studies Affecting Plans 3 and 4 For Updated Population Projections - Particularly in Saanich Peninsula ( October, 1992)" a figure of $5,500,000 was used. This is a significant reduction in cost which affects the cost comparison of the four Alternatives. 7. 8. 9. 10. GENERAL AREAS OF CONCERN: 1. A preliminary review suggests that some of the estimated costs may be low, as indicated by the following examples. Hub Excavating Ltd. recently completed a 1200mm diameter, welded steel, lined and coated water transmission pipeline along a previously cleared cross country route for the Greater Nanaimo Water District. T h e i r construction cost for supply and installation of the pipeline $903 per metre. The estimated cost used for a larger 1500mm diameter pipeline in Alternative 4 is $900 per metre, which presumably is intended to at least include some allowance for engineering costs. The cost estimates used for the 25 mgpd and 50 mgpd pump stations up at Sooke Lake are $2.2M and $2.0M respectively. These also seem low, considering the remoteness of the location, and cost of bringing 3-Phase power to the site. 2. Sufficient allowances should be included to cover all anticipated soft costs such as inflation, contingencies (construction, design, and scope change), engineering, administration, cost of issue, short term borrowing, and G.S.T.. 3. The proposed 1994-1995 timetable for some of the major works seems overly optimistic. Projects of this magnitude usually take considerable time to initiate (ie. acquisition of political and environmental approvals, permits, rights-of-way, lands, financing and cost sharing agreements), design, tender and construct. In a letter dated 11 February 1992, the Saanich Peninsula Water Commission requested that " the maximum day water allocation to the Peninsula be increased to 90.9 dam3/d (20 migpd), not to 32.8 migpd, as appears to have been used by Dayton 'and Knight Ltd. 4. DT/ July 15, 1993 w: wpftle:\dtelford\gvrd-ltp.we2