2011/10/11 City Council Resolution 2011-94RESOLUTION NO. 2011- 94
.A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF ROHNERT PARK
AUTHORIZING AND APPROVING A COOPERATIVE AGREEMENT
BETWEEN AND AMONG SONOMA COUNTY WATER AGENCY, COUNTY OF
SONOMA, CITIES OF COTATI, SANTA ROSA, SEBASTOPOL, ROHNERT PARK,
TOWN OF WINDSOR, AND CALIFORNIA AMERICAN WATER COMPANY
TO PROVIDE FUNDING AND SUPPORT FOR
SANTA ROSA PLAIN GROUNDWATER MANAGEMENT PLAN DEVELOPMENT
WHEREAS, the Santa Rosa Plain Groundwater Basin ( "Basin") covers an area of
approximately 80,000 acres and provides numerous benefits to Sonoma County;
WHEREAS; the Sonoma County Water Agency, County of Sonoma, Cities of Cotati,
Santa Rosa, Sebastopol, Rohnert Park, Town of Windsor, and California American Water
Company ( "Participants ") utilize groundwater from the Basin; and
WHEREAS, Participants wish to develop a groundwater management plan for the Basin.
NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Rohnert
Park that it does hereby authorizing and approving a Cooperative Agreement between and among
Sonoma County Water Agency, County of Sonoma, Cities of Cotati, Santa Rosa, Sebastopol,
Rohnert Park, Town of Windsor, and California American Water Company to provide funding
and support for Santa Rosa Plain Groundwater Management Plan Development.
BE IT FURTHER RESOLVED that the City Manager is hereby authorized and directed
to take all actions to effectuate this agreement for and on behalf of the City of Rohnert Park,
including execution, if necessary, in substantially similar form to the agreement attached hereto
as Exhibit "A," subject to minor modifications by the City Manager or City Attorney.
DULY AND REGULARLY ADOPTED this 11th day of October, 2011.
CITY OF ROHNERT PARK
,.�
ayor
City Clerk )I J %%,c:A F' _s
I AHANOTU: AYE CALLINAN AYE MACKENZIE: AYE STAFFORD: AYE BELFORTE: AYE
AYES: (5) NOES: (0) ABSENT: (0) ABSTAIN: (0)
Exhibit A
to
Resolution No. 2011 -94
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TW 10/11 -127
"Working Today for Water Tomorrow"
The Sonoma County Water Agency's Integrated Management Policy for ISO 9001 and 14001 states that we are committing to always
improving, achieving customer satisfaction, total regulatory compliance, environmental stewardship, and resource management.
Cooperative'Agreement to
Provide Funding and Support for
Santa Rosa Plain Groundwater Management Plan Development
This agreement ( "Agreement ") is between and among Sonoma County Water Agency, a body
corporate and politic of the State of California (hereinafter "Water Agency "), and County of Sonoma,
City of Cotati, City of Santa Rosa, City of Sebastopol, City of Rohnert Park, Town of Windsor, and
California- American Water Company, a California Corporation, (collectively referred to as
"Participants ").
RECITALS
A. The Santa Rosa Plain Groundwater Basin (Basin) covers an area of approximately 80,000 acres and
is home to approximately half of the population of Sonoma County. The groundwater system
beneath the Santa Rosa Plain provides numerous benefits to the region, including rural residential
and municipal water supplies, irrigation water for agriculture, and baseflow to streams and surface
water bodies.
B. The Sonoma County Water Agency, City of Cotati, City of Santa Rosa,.City of Sebastopol, City.of
Rohnert Park, Town of Windsor, and California- American Water Company utilize groundwater
from the Basin for all or part of their municipal water supply.
C. The County of Sonoma has an interest in the groundwater supply in the unincorporated areas of
the Basin.
D. Groundwater is likely to continue to be relied upon in the Santa Rosa Plain for meeting domestic,
municipal, and agricultural water supply demands in the future.
E. As part of a technical study program intended to enhance the current knowledge regarding
groundwater resources within Sonoma County, the United States Geological Survey (USGS) and
the Water Agency initiated a five -year study of groundwater resources within the Basin in.2005.
The cooperative study, which is jointly funded and supported by the Water Agency, USGS, County
of Sonoma, City of Santa Rosa, City of Rohnert Park, City of Sebastopol, City of Cotati, Town of
Windsor, and California- American Water Company, is scheduled for publication in Fall 2011.
F. An integrated strategy being undertaken statewide by many local agencies is to develop and
implement non - regulatory, voluntary groundwater management plans in compliance with 1992's
Assembly Bill 3030 (AB3030) and 2002's Senate Bill 1938 (SB1938). Such plans include public
involvement, groundwater level and quality monitoring, and managemezit strategies. Such a plan
has been successfully developed and implemented in Sonoma Valley and development of such a
plan for the Santa Rosa Plain is one of the immediate actions identified in the Water Agency's
Water Supply Strategy No. Five (Work with Stakeholders to Promote Sound, Information -Based Water
Supply Planning Programs) of the Water Supply Strategies Action Plan.
G. There can be multiple potential benefits to developing and implementing a groundwater
management plan including increased water supply reliability, minimized adverse impacts to
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development 1
groundwater, enhanced local management of groundwater resources, and economic opportunities
through available state grant funding programs. Developing a groundwater management plan will
also further the Basin's ability to meet recent State requirements for groundwater monitoring
(Seventh Extraordinary Session Senate Bill 6 [2009] [SBx7 -61) and salt and nutrient management
planning.
H_ To assess whether stakeholders within the Santa Rosa Plain are interested in pursuing groundwater
management planning, the Water Agency retained the Center for Collaborative Policy (CCP) to
conduct a stakeholder assessment of groundwater users and those interested in groundwater in
2009. Based on the findings of the assessment, CCP concluded that collaborative groundwater
planning for the Basin would require significant. pre- planning steps to lay the foundation for a
phased groundwater management planning process. These steps included convening a small,
representative steering committee to guide pre - planning work and initiating a robust education
effort and outreach campaign on the USGS technical study and the groundwater management
planning process. The CCP's stakeholder assessment report is attached as Exhibit A.
1. Consistent with CCP's recommendations, the Water Agency convened a Steering Committee in
April 2010 to guide preliminary planning and education for groundwater management planning
and develop recommendations on whether groundwater planning should proceed based on these.
activities. The Steering Committee is comprised of representatives from a diverse range of
stakeholder constituency groups, including business, environmental, and commuiuty
organizations; government; municipal water supply; agriculture; and rural residential well owners.
The Steering Committee met six times in 2010, held three educational public workshops involving
approximately 200 members of the public, and conducted briefings with over 20 organizations.
J. Based on understanding and input gained through these outreach activities, in January 2011 the
Steering Committee recommended that stakeholders collaboratively develop a non - regulatory,
voluntary groundwater management plan for the Basin under AB 3030.
K. In May 2011, the Water Agency's Board. directed staff to prepare a work plan for development of a
groundwater management planning process. The Water Agency retained Parker Groundwater,
Inc., to prepare the Work Plan, attached as Exhibit B.
L. The Work Plan recommends convening a Basin Advisory Panel to include stakeholders that.
participate, contribute, and lead the groundwater management planning process.
M. The Water Agency and Participants agree it is in the public interest to work collaboratively with
other entities or individuals whose service areas, boundaries, or properties overlie the Basin.
N. The cost to develop a groundwater management plan is estimated to be approximately $400,000
over a period of two years to fund technical consultants and facilitation to assist in the management
planning process. In -kind services will also be required_ from Participants, as described in
paragraph 7.4 of this Agreement.
O. The Water Agency has secured $250,000 in funding from DWR for developing a groundwater
management plan for the Santa Rosa Plain, comprising: (1) a $220,000 Proposition 84 Planning
Grant through the North Coast Integrated Water Management Program and (2) $30,000 in funding
for facilitation services. The Water Agency is applying $110,000 of the Proposition 84 Planning
Grant it received to fund the technical consultant and facilitation costs which, when combined with
the $30,000 in funding received from DWR for facilitation services, lowers the total cost associated
with this Agreement to $260,000.
P. The purpose of this Agreement is to: (1) provide a funding mechanism for Participants to.
contribute a. not-to-exceed total cost of $260,000 to pay for Years 1 and 2 of the Santa Rosa Plain
groundwater management planning process and (2) establish a working relationship among
technical staff and establish tools and protocols for the groundwater management planning process.
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development 2
In consideration of the foregoing recitals and the mutual covenants contained herein, the parties
hereto agree as follows:
AGREEMENT
1. RECITALS
1.1 The above recitals are true and correct.
2. LIST OF EXHIBITS
2.1 The following exhibits are attached hereto and incorporated herein:
a. Exhibit A: Stakeholder Situation Assessment
b. Exhibit B: Work Plan for Groundwater Management Plan Development
c. Exhibit C: Cost Allocation
2.2 In the event of any conflict between the terms in Exhibit A, B, or C, and the Agreement,
the terms of this Agreement shall control and prevail. The parties agree that any term
contained in Exhibits A, B, or C that adds to, varies or conflicts with the terms of this
Agreement is null and void.
3. COMMUNICATION/DESIGNATED REPRESENTATIVES
3.1 Except as otherwise provided in this Agreement, any notice, submittal or
communication required or permitted to be served on a party, shall be in writing and
may be serried by personal delivery to the person or the office of the person identified
below. Service may also be made by mail, by placing first -class postage, and addressed
as indicated below, and depositing in the United States mail, to:
Water Agency
City of Santa Rosa
Project Manager: Marcus Trotta, P.G., C.Hg.
Project Manager: Glen Wright,
404 Aviation Boulevard
Deputy Director - Engineering Services,
Santa Rosa, California 95403 -9019
City of Santa Rosa, Utilities Department
Phone: 707 - 547 -1978
69 Stony Circle
Fax: 707 - 524 -3782
Santa Rosa, California 95401
Email: Marcus.Trotta @scwa.ca.gov
Phone: 707 -543 -3948
Designated Representative: Jay Jasperse
Fax: 707 -543 -3936
Email: gwright@srcity.org
Designated Representative: Miles Ferris,
Director, Utilities Department,
City of Santa Rosa
City of Rohnert Park
City of Sebastopol
Project Manager: Darrin Jenkins, P.E.
Project Manager: Susan Kelly
130 Avram Avenue
Engineering Department
Rohnert Park, California 94928
714 Johnson Street
Phone: 707 -588 -2243.
Sebastopol, California 95472
Fax: 707- 794 -9242
Phone: 707 -823 -2151
Email: dajenkins @rpdty.org
Fax: 707 - 823 -4721
Designated Representative:
Email: skelly @dtyo£sebastopol.org
Designated Representative: Jack Griffin
vi. J ..-r VaVL1C1 1�V11Ld1CL
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development 3
City of Cotati
Town of Windsor
Project Manager: Damien O'Bid
Project Manager: Craig Scott
201 West Sierra Avenue
PO Box 100
Cotati, California 949314217
Windsor, California 95492
Phone: 707- 792 -4600
Phone: 707 - 838 -5978
Fax: 707- 795 -7067
Fax: 707- 838 -5830
Email: dobid@ci.cotati.ca.us
Email: cscott@townofwindsor.com
Designated Representative:
Designated Representative:
Damien O'Bid
J. Matthew Mullan
County of Sonoma
California- American Water Company
Project Manager: DeWayne Starnes
Project Manager: Andy Soule
2550 Ventura Avenue
4701 Beloit Drive
Santa Rosa, California 95403
Sacramento, California 95838
Phone: 707 - 565 -1900
Phone: 916 - 568 -4212
Fax: 707 - 565 -1103
Fax: 916 - 568 -4286
Email: vstarnes@sonoma- county.org
Email- asoule@amwater.com
Designated Representative: Pete Parkinson
Designated Representative: Edward Simon,
Vice President, Operations
4. COST SHARING
4.1 The estimated cost to complete the two-year planning process is $400,000 to fund
technical and facilitation consultants to assist in the management planning process, with
in -kind staff support from the Water Agency and Participants.
4.2 Applying $140,000 of the grant funding obtained by the Water Agency from DWR
reduces the estimated two -year planning cost to $260,000 (or $130,000 per year).
4.3 Participants and Water Agency shall share in the $130,000 local share for each of the two
years up to the "not to exceed" amounts as listed in Exhibit C and shall, for subsequent
years, consider amending this Agreement to provide the additional funding for
subsequent years.
5. WORK PLAN
. 5.1 The' Work Plan is attached as Exhibit B.
6. WATER AGENCY RESPONSIBILITIES
6.1 Supervise technical consultant and facilitation consultant in the preparation of a
Groundwater Management Plan that complies with AB 3030 and SB 1938_ Act as liaison
With DWR and provide project management, and project coordination. This
responsibility includes coordinating any necessary technical review meetings and
providing status updates to Participants as needed.
6.2 Distribute draft copies of all reports generated as part of the groundwater management
planning process to each Participant, and distribute final copies of all reports to each
Participant.
6.3 Copies of final reports will be made available to the public during the term of the
groundwater management planning process.
6.4 If requested, assist Participants' staffs in making presentations to Participants' governing
boards regarding the groundwater management planning process.
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development 4
6.5 Maintain complete and accurate records of all transactions in compliance with generally
accepted accounting principles for enterprise accounting as promulgated by the
American Institute of Certified Public Accountants and the Governmental Accounting
Standards Board. Maintain complete project files with all correspondence, including
letters and meeting notes. Such records shall be available to each Participant at all
reasonable times for inspection and analysis.
6.6 Water Agency shall submit to Participants written quarterly progress reports, no later
than 30 calendar days after the end of each fiscal year quarter that include work
accomplished during the period, percent of each task completed, and planned effort for
the next period. Fiscal year quarters end on December 31, 2011; March 31, 2012; June 30,
2012; September 30, 2012; December 31, 2012; March 31, 2013; June 30, 2013;
September 30, 2013; December 31, 2013; March 31; 2014; and June 30, 2014.
7. . PARTICIPANT RESPONSIBILITIES
7.1. Within 30 calendar days of notification by Water Agency that it has executed contracts
with the technical and facilitation consultants, each Participant shall deposit with Water
Agency its share of Fiscal Year 11/12 costs, as described in Exhibit C of this Agreement.
7.2 By August 1, 2012, each Participant shall deposit with Water Agency its share of Fiscal
Year 12/13 costs as described in Exhibit C of this Agreement.
7.3 Participants shall have no obligation to provide funding for the plan after Year 2, except
pursuant to a future written amendment of this Agreement.
7.4 Each Participant's Project Manager shall provide technical review and comment on draft
work products and reports, and each Participant shall provide a representative to attend
Basin Advisory Panel meetings and technical meetings, as needed. Participants shall
maintain the confidentiality of any draft report to the extent Water Agency notifies them
that such confidentiality is requested.
8. TERM OF AGREEMENT
8.1 This Agreement shall become effective upon execution by Water Agency and all
Participants and shall expire on July 30, 2014, unless terminated earlier in accordance
with the provisions of Article 9. Work will be complete by June 30, 2014, and the final
progress report submitted by July 30, 2014.
9. TERMINATION
9.1. Any Participant may terminate its participation in this Agreement by giving ninety (90)
calendar days advance written notice to all other parties of its intent to terminate its
participation in this Agreement. Termination shall not relieve the Participant of its
obligation to pay costs due before the effective date of the termination.
10. ADDITIONAL REQUIREMENTS
10.1 Authority to Amend Agreement. Changes to the Agreement may be authorized only by
written amendment to this Agreement, signed by the Designated Representative of each
party or such other representative as is authorized by the governing body of each party.
10.2 No Waiver of Breach. The waiver by any party of any breach of any term or promise
contained in this Agreement shall not be deemed to be a waiver of such term or promise
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development 5
or any later breach of the same or any other term or promise contained in this
Agreement.
10.3 Construction. To the fullest extent allowed by law, the provisions of this Agreement
shall be construed and given effect in a manner that avoids any violation of statute,
ordinance, regulation, or law. The parties covenant and agree that in the event that any
provision of this Agreement is held by a court of competent jurisdiction to be invalid,
void, or unenforceable, the remainder of the provisions hereof shall remain in full force
and effect and shall in no way be affected, impaired, or invalidated thereby.
10.4 Making of Agreement. Participants and Water Agency acknowledge that they have
each contributed to the making of this Agreement and that, in the event of a dispute
over the interpretation of this Agreement, the language of the Agreement will not be
construed against one party in. favor of the other. Participants and Water Agency
acknowledge that they have each had an adequate opportunity to consult with counsel
in the negotiation and preparation of this Agreement.
10.5 No Third -Party Beneficiaries. Nothing contained in this Agreement shall be construed
to create and the parties do not intend to create any rights in third parties.
10.6 Applicable Law and Forum. This Agreement shall be construed and interpreted
according to the substantive law of California, regardless of the law of conflicts to the
contrary in any jurisdiction. Any action to enforce the terms of this Agreement or for the
breach thereof shall be brought and tried in Santa Rosa or in the forum nearest to the
city of Santa Rosa, in the County. of Sonoma.
10.7 Captions. The captions in this Agreement are solely for convenience of reference. They
are not a part of this Agreement and shall have no effect on its construction or
interpretation.
10.8 Merger This writing is intended both as the final expression of the Agreement between
the parties hereto with respect to the included terms and as a complete and exclusive
statement of the terms of the Agreement, pursuant to Code of Civil Procedure Section
1856. No modification of this Agreement shall be effective unless and until such
modification is evidenced by a writing signed by both parties.
10.9 Time of Essence. Time is and shall be of the essence of this Agreement and every
provision hereof.
10.10 Entire Agreement. This Agreement is the entire Agreement between the parties.
11. COUNTERPART SIGNATURES
11.1 This Agreement may be executed in counterpart and each of these executed counterparts .
shall have the same force and effect as an original instrument and as if all of the parties
to the aggregate counterparts had signed the same instrument.
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development
IN WITNESS WHEREOF, the parties hereto have executed this Agreement as of the date last
signed by the parties to the Agreement.
Reviewed as to substance by County of Sonoma:
Department Head
Reviewed as to form:
County Counsel
COUNTY OF SONOMA
Chair, Board of Supervisors
Attest:
Clerk
Reviewed as to funds by Water Agency:
Division Manager - Administrative Services
Reviewed as to substance by Water Agency:
Department Head
SONOMA COUNTY WATER AGENCY
Chair, Board of Directors
Attest:
Clerk of the Board of Directors
CITY OF SANTA ROSA CITY OF COTATI
By: By:
City Manager or Designated Representative
Title:
CITY OF SEBASTOPOL
Attest: By:
Recording Secretary Mayor
Approved as to form: Approved as to form:
City of Santa Rosa Attorney City of Sebastopol Attorney
CITY OF ROHNERT PARK CALIFORNIA- AMERICAN WATER
COMPANY, a California Corporation
By: By:
Mayor Tom Bunosky, Vice President Operations
Authorized by Resolution No.
Attest: TOWN OF WINDSOR
City f Rohnert Park Clerk
� By:
Town Manager
Approved as to form:
Approved as to form:
City of Rohnert Park Attorney
Richard Rudnansky, Town Attorney
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development 7
EXHIBIT A
Stakeholder Situation Assessment
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A -1
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SANTA ROSA PLAIN GROUNDWATER
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Key Themes from Interviews Conducted by
Center for Collaborative Policy
California State University, Sacramento
Center for Collaborative Policy
November 2049
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A -2
CONTENTS
OVERVIEW
APPROACH
INTERVIEW FINDINGS
• Major Concerns
• Infounation CGatliering and Data Analysis
• Interest Group Dynamics
• Insights for Success
• Perspectives on Collaborative Processes
• Conditions for Collaborirntion
RECOMMENDATIONS
• Step 1: Convene a Santa Rosa Plain Steering Committee
• Step 2: Initiate a Robust Public Education and Outreach Campaign on USGS
Technical Study and Groundwater Planning
Step 3: Re- assess Interest in Groundwater Planning and Identify Frey Representatives
Step l: Contingent on Sup 3, Develop Phased Approach ro Groundwater
Planning
CONCLUSION
APPENDIX
A. Persons Interviewed for Assessment Report
B. Interview Questions
C. Center for Collaborative Policy and Assessment Staff
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A -3
OVERVIEW
The Santa Rosa Plain, home to approximately half of the population of Sonoma
County, faces growth in population and demand for water. Tire Russian River and
groundwater resources are the primary sources of that water. The challenge of
increasing demand and other uncertainties necessitates thoughtful water
management. To address this matter and build on the recent progress of the
Sonoma. Valley Groundwater Mi nnaWment Plan, the Sonoma County Water Agency
(Wii.te-r _Agency) directed its sraff to investigate the feasibility of pursuing
groundwater management Cor the Santa Rasa Plain. Staff enlisted the Center for
Collaborative Policy, California State University, Sacramento, (Center) to conduct
an impartial assessment of issues and concerns related to y oundwitter management
and to learn if and how, stakeholders might want to address these issues. The Center
interviewed 55 individuals representing .7 organizations with an interest in
groundwater.
The overall findings indicate competing interpretations on the value and potential
of groundwater management planning as well as a significant lack of technical
understanding ofboth the aquifer underneath the Santa Rosa Plain as well as the
extent of interaction between surface and groundwater resources. While nearly all
interviewees agree thatgaininga better understanding of the condition and status of
local groundwater resources is critical,, many agricultural and ranching interests are
extremely hesitant to participate for a. fear that groundwater planning would result
in increased regulations.and operating costs. IYtoreover, the sheer size and diversity
of both geography and interested parties within the Santa Rosa Plain produce a
darinting and complex challenge to undertake productive groundwater planning.
Not only are there a large number of jurisdictions and competing interests within
the planning area, experiences from past regional planning efforts, recent lawsuits
filed by environmental organizations and municipalities, and current efforts on the
Russian River and in Dry Creek have resulted in extremely high levels of distrust
ainongst.rnany of the,parties arid, in.parucular, of the Water Agency.
Based on these findings, the Center concludes that collaborative groundwater
planning within the Santa Rosa plain would require significant pre-planning steps to
lay the foundation .far a phased groundwater management. planning process. These
steps include convening a small, representative steering committee to guide pre-
planning work and initiating a robust education effort and outreach campaign on
the findings ofthe U.S. Geological Survey (USGS) technical study.
—11= Santa Rosa Plain is a grotuidwvtcr basin botaidcd ou the trorthwcs t by the puddle react of the.
Russian River floodtrlsin and by rnotintains of the 1Nitrtd06n0 R>angr on Ilse rcrttaining western
boundary. The southern end of the Santa Rosa Plain is marked by a series oflow hills, whidi €onn a
drainage divide that separates the Santa Rosa Plain. from tll* Petalturri Valtcy youth or Cotaa. The
Santa Rosa Plain is bounded to the east by the Sonoma Moumiains south of Santa Rosa and the
Mayactnas Moiurtains north ofSanla Rosa. 1he Santa Rosa Plain is drained principally by the Santa
Rosa and Mark West Crocks that flow westxxrd and collect into the Ugwta de Santa Rosa.
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A-4
APPROACH
A professional, impartial facilitation team from the Center worked with the Water
Agency to identify a number of individuals representing key stakeholder interests to
participate initially in the assessment process. Starting with this list, Center
facilitators conducted interviews representinga range of water - related interests and
viewpoints on groundwater. rnanage-ment. As the interview process proceeded, the
Center identified additional individuals to participate based on recurring
recommendations from other participants and to ensure a comprehensive and
broad range of interests contributed to the Center's understanding. In total, the
Center conducted interviews with 55 individuals representing 37 organizations from
February to October 2009. AppendLz A lists participating organizations and
uidividwjs.
To help guide the interviews, the Center generally asked questions identified in an
intern >iew questionnaire (see Appendix B), provided to many participants prior to
the actual interview. The questionnaire covered the following topics:
• Identificaiion of the major technical issues requiting further research;
• Stakeholders' goals and general concerns regarding the Santa Rosa Plain;
• Historic and curcent interpersonal and organizational relationships among
stakeholders;
• Appropriate public participation and outreach techniques for potential use,
• Familiarity with the use of groundwater banking as a water resources
management strategy;
• Knowledge of other efforts undenway that should be considered; and
• Willingness to participate in collaborative planning for the Santa Rosa Plain.
All interviews were confidential, The mediators do riot attribute specific comments
to individuals in this report. They will not share interview data with any agencies or
interest groups. Rather, the Center has summarized and qualitatively evaluated the
information gathered through the assessment to identify stakeholder consensus and
discord and to develop recornmendatioirs related to groundwater management
planning.
INTERVIEW FINDINGS
The interviews provided a wealth of information and insights into the water- related
issues facing the communities within the Santa Rosa Plain. The Center has
summarized issues of concern into categories: major concerns, in
gathering and loth analysis, interest group dynamics, insights for success and
perspectives on collaborative processes.
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Stakeholders lack understanding about the groundwater basin and differ in
opinion about it-, capacity.
Stakeholders from all interest groups articulate a strong need to understand the
groundwater basin and extent and location of recharge. Competing studies exist,
and stakeholders have differing viewpoints as to how the basin actually functions.
Stakeholders question connectivity within the basin, the rate of recharge and where
recharge occurs. Stakeholders would like to better understand the relationship
between riparian areas and groundwater aquifers. They are unclear about the extent
of natural resources' dependence (venial pools, native plants, and terrestrial species)
on groundwater.
Some stakeholders believe that the region's geological complexity snake it difficult,
if not impossible, to do a hydrologic assessment. Several interviewees reported
drilling wells just several feet apart, with one hitting and the other missing water at
similar depths. Stakeholders suggest drat the Water Agency's Environmental Impact
Report on water delivery implies that the Water Agency knows what is happening
on streams flowing into Russian River-However, others lack clarity and have not
seen modeling that demonstrates this.
Many stakeholders are worried about the capacity and .long -tenn sustai lability of
the !�proundwate-r supply. Reports are that w ells are going dry in some areas,
requiring deeper wells by pumpees. Rural residents and agriculnurc are reportedly
being affected by decreasing groundwater levels. Certain areas of the Santa Rosa
Plain are reportedly experiencing a scarcity of groundwater or cones of depression.
Stakeholders suggest that more pumping in drought years increases angst and
tensions.
For these reasons, stakeholders ore looking forward to the USGS study to be
released in late 2010. They hope that it might answer some of these many questions.
Participants question the cumulative effects froru current puxxtping and
sustainable yield from the Santa Rosa Plain basin.
Stakeholders generally are unclear about the height and depth of water tables and
the basin's vulnerability to contamination or depletion. Generally, all stakeholders
agree that the demands on the aquifer are numerous and significant; one
interviewee estimated that there are well over 40,000 wells within Sonoma County.
Stakeholders report that Santa Rosa is considering putting new wells online while
the Water Ab icy may pump more now from existing wells that were supposedly
only for "canergency" use. Interviewees express concern that the Water. Agency has
used these wells continuously for the past few years given restrained surface water
supplies in dry conditions. 'T'he efYect of a potential casino possibly installing wells
and pumping groundwater concerns many.
Despite sensitivities about monitoring many interviewees suggest that groundwater
quality issues and groundwater quantities pumped by urban areas, rural residences,
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Cooperative Agreement io Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A -6
and agriculture should be documented. However, almost everyone agrees that most
water users are adamantly opposed to well metering And, people are generally
ahaid to sham data and well information. However, as one interviewee stated,
"How will we know when we are going to run out of water? We need to understand
how much water is really our. there."
Groundwater quality concerns exist in various parts of the Santa Rosa plain. While
numerous areas have water quality issues, such as inethane, boron, manganese or
arsenic, they are generally isolated, Groundwater quality monitoring does occur
throughout the Santa Rosa Plain, largely through small municipal or private water
companies, public water suppliers and commercial operations who submit water
quality data to the state.
Some stakeholders suggest that the North Coast Regional Water Quality Control
Board is not configured to address groundwater as over - drafting is not perceived as
a form of pollution. The Board is charged with going after polluters to ensure
adequate water duality. No one agency appears to have regulatory orcrsight for
groundwater.
Plasining is critical, but agricultural interests are skeptical.
Environmental, water supply and governmental interests agree that groundwater
management planning is essential to the sustainibility of the resource. "We nre all in
it together;' one stakeholder commented. These interests think that groundwater is
integral to water management and natural resources although suidies could clarify
these relationships. Regardless, the cities, agriculture, private water districts and
rural residential well owners are all relying on groundwater. From these points of
view, planningsnustintegrate differingperspectives, tie in natural resource issues,
create a. portfolio of solutions and plan for the future.
Stakeholders report that they would like to conduct groundwater planning to
achieve the following objectives:
• Ensure that groundwater resources are sustained and protected;
• Replenish the groundwater basut by locating recharge ponds,
• Help to mitigate groundwater overdraft if and when this occurs;
• Sustain storage reserves for use during dry periods;
• Develop monitoring programs that provide data to assist in evaluating and
managing the groundwater basin;
• Identify and evaluate threats to groundwater quality and prevent or mitigate
contamination associated with those threats;
" Manage in the face ofetirnate change and increased efforts to expand carbon
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Cooperative Agreement to Provide Funding and-Support for Santa Rosa Plain Groundwater Management Plan Development A -%
sequestration; and
Increase public awareness of the importance of groundwater and methods for
both conserving water use and protecting water quality.
However, many but not all representatives of agricultural interests express
skepticism and concern about the need to manage. groundwater. They worry about
the implications of groundwater planning. One sGikeholder suggested, "The
situation needs to get much worse before real progress can happen. Need for a
crisis before the issue of groundwater will become salient:" lWany representatives
of agriculture are worried about increased regulation and bureaucracy potentially
associated with groundwater planning. Several agriculture representatives suggested
that if groundwater management planning were to occur, orgtnimrs would need to
articulate potential benefits and outcomes to help agricultural stakeholders
understand why and how groundwater management might provide benefits. Fear of
an adjudicated basin might make a non- regulatory groundwater management plan
attractive.
Stakeholders would like to integrate water management and supply, issues
and land use into overall planning.
Nearly all interviewees desire a better understanding of current water use by various
user types, including urban, agriculture, dairies and. rural well owners. Stakeholders
would like to understand the relative comparison between the volumes being
pumped by various users, including the amount of water being "transported out of
the Santa Rosa Plain and Sonoma County. Stakeholders repeatedly advocate that
die region <xxild realize signifcc -irit water use reduction with more proactive
conservation.
Ma ny interviewees stressed drat surface water issues are inextricably lucked to
groundwater . and, thus, groundwater management planning cannot happen without
discussing surface water issues. Stakeholders question the nature of tiie
interconnections between the groundwater and surface water systems.
Interviewees also suggested that land use should be examined and the impact of
land use planningon groundwater better understood. Vernal pools, wetlands, and
impervious surfaces are subject of stakeholder discussion. Several suggested storm
water reclarge and attempting to enhance recharge areas as potential management
strategies.
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Generally, interviewees were cautious, yet open to exploring groundwater banking,
Capturing excess surface water flows in the wintertime and storing potable water in
its
underground aquifers for titer use during summertime. Stakeholders were curious
about the potential that this might provide, and some viewed it as a favoratble way
to
to accommodate anticipated climate changes with fewer, more extreme storms,
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water for groundwater banking and usi.rtgwinter surf
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have potential contaminants. interviewees raised concerns about the amount of
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A -8
energy that would be required for pumping necessary for groundwater banking.
Another interviewee suggested that recharge should be maximized first since it just
seemed less cosdyand complicated. One concern was that efforts would be made
to extract more water than was banked, which could further stress die aquifer.
The complexity of the region will make collaborative planning very
challenging.
Stakeholders suggest that the number of jurisdictions (multiple cities and the
County) involved increases the difficulty of planning. A few surgrst that the Santa
Rosa Plain is too big and issues are too complicated. Interest group dynamics (see
below) will also make groundwater planning in this region challenging.
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The mediators asked participants about technical information needed to. facilitate
groundwater planning. No consensus exists on the state of the groundwater basin,
the connectivity of the aquifers, groundwater use aiid its impact on the aquifer.
Generally interviewees are awaiting the USGS study, funded by regional water
suppliers, to help clarify some of the questions and misunderstanding. Some water
contractors express frustration that they haven't been more involved in the
development of die USGS study. One interviewee observed, "The biggest challenge
is collecting the relevant data." With this said, participants are interested in a range
of questions, highlighted below.
■ Wliat are existing groundwater levels?
■ What are sustainable groundwater pumping levels?
■ How much water is actually being pumped and by whom?
• ] -Iow does variation in soils and aquifers affect the groundwater system?
■ What is the potential for aquifer storage and where, is recharge. possible? I-low
many recharge ponds would be needed to actually make a difference and where
should recharge ponds be located? How much impervious surface exists? What
effect is impervious surface having on recharge?
• %liat role are pesticides and emerging chemicals playing in groundwater
quality?
• I-Iow is wastewater being handled? What is the potential for increased use of
recycled water?
• What impact are abandoned wells having on groundwater quality?
• What are the sources and potential remedies for methane, manganese, arsenic,
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and boron in groundwater?
■ What is the surface -to- aquifer relationship and what are the physical challenges
and opportunities for additional storage?
■ \krl)at effect is wastewater runoff having on l..aguna de Santa Rosa?
How will pending Total Maximum Daily Load (FINIDL) effort be undertaken by
North Coast ]regional Quality Control Board and what are the potential
outcomes from this effort? Many arc concerned that process would lead to
mandatory well monitoring.
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One of the challenges to groundwater management planning would be interest .
group dynamics. Stakeholders highlight theses issues on several levels.
First, many question the Water Agency's interest. in groundwater planning. While
most stakeholders agree that the Water ;Agency is the obvious choice to organize
groundwater management planning, they question the Water Agency's ability or
willingness to engage: and negotiate in a transparent manner. They urge the Water
Agency to he forthcoming tegardingits interests in groundwater rnanageritent
planning and why iC is important to them and to enlist the assistance of neutral
consttltants to guide the process.
Second, a mnior challenge is the unincorporated area. Sonoma County has an
estimated 40,000 groundwater wells and the highest number of residential wells in a
county in the state (along with Fresno County). These homeowners represent a
major interest in groundwater —they rely on groundwater to live on their property,
and their property has no value without it. Yet, this interest group is not well
organized. Identifying representatives and conducting outreach with this user group
would be a challenge-
S o parties believe that environmental advocates wield too much influence and,
as a result, agriculture and dairy are seen as "culprits ". Others express concern
About negotiating direedy wide some interest groups who have relied on litigation tc
affect water management planning. History has resulted in significant distrust
between various groups and incorporated areas in central and southern portions of
Santa Rosa Clain,
Stakeholders c.Npress concern that blaming one parry or another is neither fair nor
accurate. Agricultural interests fuel that they are often accused of using too much
water when in fact they are striving to conserve. Cities are also accused of drawing
down the aquifer while city representatives highlight conservation success and
responsible management. A few stakeholders suggested that politics influence
everything These dynamics will significantly affect any planning effort.
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Raise interest and highlight success stories.
Interviewees suggest that stakeholders would benefit Etom learning about ana)ogous
success stories and understand how groundwater management planning might
benefit them. Stakeholders reconunend that success stories from other areas,
including Sonoma Valley, be made available before initiating any collaborative
effort for Santa Rosa Plauc. Interviewees suggest drat stakeholders have a need for
education throughout Sonoma County to raise awareness about water issues so
participants can understand what interests of theirs would be met through
groundwater management planning. A number of individuals sue ested that water
bills and other easy -to -read documents be used to help spread the word.
Share information.
Interviewees suggest that the process would. need to be open and allow all issues
and concerns to be discussed. First publishing the USGS study is advisable. Data,
and urban area's pumping volumes would also need to be understood and
discussed. Participants are not clear as to the urgency of planning. Stakeholders
would like to incorporate scientifically based rationale for discussing the "problem"
if ut fact there is a problem with current groundwater use. A few interviewees stated
that there is a strong need for easy -ro- comprehend visual tools to understand mater
levels and usage-
Non: regulatory approach and local control are critical if rural parties are
going to participate.
One of the major concerns associated with groundwater management platning is
the perception that planning will lead to additional regulation. Participants are
extremely hesitant to support any effort that might increase limitations on business
operations or costs of doing business. Stakeholders recommend that the focus for
management strategies consider where the least economic impact will occur and
continue to allow for business expansion. These stakeholders suggest that cost
effective, efficient measures that protect private property rights are critical- A
number of interviewees suggested breaking the outreach and planning effort into
smaller geographic. areas to allow formore focused participation.
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Participants offered a rant of perspectives on participating in a collaborative
process that might be of concern or atlect their ability to participate. To the extent
possible, they suggest that any collaborative that might move forward address these
issues:
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development .A. -11
• Have strongparticipation from interested groups and, ideally, commitment to
not go to litigation and /or adiudication.
• All parties, including Graton Rancheria and non - English speaking communities
should be represented.
• Some parties may have more time than others to participate. in effort; however,
others need to be involved.
• Need to have participants that are not angry and full of strong emotions. people
need to be good listeners and hear the opposing points of virlvs.
• Participants need to understand and accept technical findings and consider
needs of historical uses within arcs.
• "I'he collaborative discussion could serve as a process to develop good science
on issue.
• Unsum how to get the diverse groups to come to consensus; this seems close to
impossible.
• Process must not be dominated by agency people and, in particular, the
Sonoma County Water Agency, but technical staff should be provided to assist
effort.
• Need more ourreach and general public meetings. Disinformation hits not
helped. Weekly update on water would be a great addition to the newspapers.
Neutral facilitation needs to be clear and direct how the process will be run.
The process must be very structured to overcome past problems and the
political nature of this area and topic.
• A champion for a. groundwater management planning effort is essential to its
success.
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The Center's team analyzed the assessment findings it) light of conditions essential
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Fora successful collaborative planuingprocess and outuorne..l7Viiile .many of these E
conditions are met in this case, a few present serious challenges. For the reasons
presented below, the Center concludes that the project does not presently meet all ca
of these conditions. However, there are opportunities for improving relationships �
and building oust amongst the relevant parties that will enable the initiado. of of,
education and planning effort for the Santa Rosa Plain. This approach is
described in the Recornmendations" section of this report
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There are multiple opportunities to create mutually shared value and �
potential areas of agreement.
While many opportunities do exist for creating beneficial outcomes from a �
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collaborative groundwater planning; effort, the current level of mistrust between key p„
parties is acute. As a result, much work has to be done to build better working aT
relationships prior to and through nutiaring a comprehensive planning process.
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A -12
The primary parries are identifiable; however, not all are willing to
participate.
While the key parties have been identified and participated in this assessment, a fens
are very reluctant to participate at this tune. In particular; key agricultural, dairy, and
ranching interests are highly skeptical about groundwater planning and the Water
Agency's motives for wanting to undertake any wager- related planning at this tune.
Each party does not have a legitimate spokesperson.
Representatives from the key urban areas, environmental organizations, and
agriculture exist. However, rural private well owners who live within the
unincorporated areas of Sonoma County do not have a consolidated `voice" that
represents their interests. Hour this large. and dispersed group is brought to the table
is a key question that must be answered.
There is a relative balance of power among the parties.
This condition is challenging as many perceive the environmcntalis'ts as wielding
too much influence. Moreover, some parties question the Water Agency's
motivation and worry that the Water Agency is not being forthcoming as to their
long -term plans for use of additional surface acid ground water.
External pressure to -reach agreement exists.
Some agricultural and ranching interests do not see the need to undertake
groundwater management planning at this time. A number of individuals sta ted that
the water situation will have to get much worse before they want to do anything
proactive. Conversely, other interviewees believe that the area. is "extremely lucky to
have not destroyed the aquifer yet so time is on our side." These voices believe drat
all parties -need to do what we can to protect and preserve groundwater
resources" While shared belief that there is a need to proactively plan at this time
4.,
does not exist, parties are open to learning more abou t. the subject.
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Primary participants share an investment in long -term, cooperative working
relationships.
Some stakeholders highlight a high levct of resentment and animosity between die
agencies and. some environmental interests in the region that will make°
collaboration very difficult. On a positive note, the pending TIaIDL for the Laguna
de Santa Rosa presents an opportunity for both agriculturalists and
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environmentalists to work together and help build better relationships. Additionally,
there appears to be stroragworking relationships between a number of the parties
that could be leveraged to permit discussions between parties that have had a
troubled past.
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There are adequate financial resources to carry out. the collaborative process.
The Water Agency will seek adequate: funds to allow the process to go forward 'fall
parties are willing and committed to working together_ Potential funding may be
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available from various grants that the California Department of Watcr Resources
makes available to local groundwater efforts.
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A -13
RECOMMENDATIONS
Based on the analysis of the assessment findings, the Center concludes that
collaborative groundwater planning within the Santa Rosa Plain would require
significant: pre- planning steps to identify stakeholder representatives and improve
technical understanding of the aquifer. Further, a small planning group or steering
committee would work to identify representative spokespeople and re- assess
agricultural representatives' interest in planning. These efforts could unprove
conditions to be favorable to inmate groundwater management planning. The
Centerrecommends that the following phased education and planning activities be
initiated with the goal of.moving towards a more comprehensive groundwater
I anagement planning effort.
Timefranxe: Early 2010
A Stwflug Committee should he convened to oversee and undertake the public
education and outreach campaign and to work towards building improved
relationships amongst participants to set the stage for groundwater planning.'The
Steering Committee would have the following key tasks:
• Assist in developing scenarios- for the USGS study
• Guide education :acrviti.es on the USGS study and groundwater
management planning frameworks
• Conduct outreach to identify stakeholder representatives and address
concerns relatied to groundwater planning
• Recommend a groundwater planning framework if appropriate
The SteeringCotnmittee would be convened as soon as appropriate to participate
in. developing scenarios for the technical study, possibly organizing a workshop for
a range of input on these scenarios.
The Committee would guide subsequent efforts, specifically the outreach
component of the USGS study release. This education and outreach serves as the
first step toward a more formal and integrated approach to the management of
groundwater within the Santa Rosa Plain. This would also be an opportunity to
meet with trtany rural residential well owners.
Members would conduct focused outreach with agriculture to better understand
and address agricultural representatives' concerns about groundwater planning. The
goal would be to address these concerns so that planning could eventually move
forward in a manner acceptable to all stakeholder interest groups. The Steering
Committee could also provide guidance on who might. need to participate in a
broader stakeholder planning group should one move forward.
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A -14
The Steering Committee would also explore groundwater management planning to
assess what frame\vorks might be appropriate for the Santa Rosa Plain. They would
consider different policy and legal issues that might affect planning lastly, they
would contemplate who should participate in a Basin Advisory Panel should
groundwater management planning progress.
The Water. Agency could provide staff and technical support while neutral
facilitation of die committee would be helpful. Drawing from the ground'\tater
planning experience in Sonoma Valley, a committee work plan, charter, and
operating rules should be developed and reviewed at the group's initial meeting.,
The committee should he consensus - driven and representative of the key interests
within the Santa Rosa Plain. However, considering the initial focus of taus getup`s
effort, the Center recommends that the membership be kept small to help build
strong working relationships and to focus work efforts. Additional organizations
would be added to form a stakeholder planning group at a future time when, and ik,
a groundwater manaa mentplan is initiated.
The Center recommends the following considerations for_composing the Steering
Committee-
Balance and symmetry between public agencies and non - ,governmental
organizations
• Agriculture, cities, environment, groundwater users and water supply interests
represented
• Geographical representation across the Santa Rosa Plain
• Small and focused participation (8 -10 members)
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Time eframe: 2010
49
'I'lre. USGS technical study on Santa Rosa Plain groundwater will contribute
significantly towards building a common understtndingof the groundwater basin. gn
USGS will publish the report in late 2010. Earlier in 2A10, the Center recommends
that USGS begin presenting the preliminary findings to broad rangx of existing a
organizations, local governments and interested parties within the Santa Rosa Plain. �
Once the final report is available, USGS and the Water Agency should distribute it o
widely. As part of the distribution, the Water Agency and USGS should work a
together to create ensy -to- understand information that summarizes the studfs 'r
findings and groundwater basics into a "user - friendly' groundwater primer. The
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study and groundwater primer or summary should be made available on os
appropriate websites and other outlets. The summary should be translated into Nj
Spanish. This information, coupled with existing water conservation literature,
would help educate citizens as to the importance of water conservation and C
protecting and improving overall watershed and aquifer conditions.
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A -15
Lastly, this outreach effort could highlight success stones related to non- regulatory
voluntary groundwater management. This would help stakeholders to understand
the potential benefits ofgroundwate• r planning and provide an opportunity to
address fears and concerns associated with planning.
To guide dsis eflor, the Center recommends that art ed!ic<ation and outreach plan
be developed. This plan would identify a, broad range of stakeholder. groups in the
region, rely on existing social networks, and be tailored to the needs of the various
areas within die planning area. Technical staff could make presentations and local
experts, such as representatives from the California Ground Water Association and
others, could assist to broaden undmunding of the aquifer. The plan would also
detail specific media relations and advertising, internet -based outreach, direct mail i
e -mail, speakers' bureau, and collateral materials to be used in the outreach effort.
Another goal of this outreach effort is to identity potential representatives of
residential well owners who might serve in a collaborative. Lastly, the outreach
efforts would have an emphasis oil working with agricultural interests to
understand the technical information and the potential for groundwater
management.
Tiroeframe:.Fall 2010
This step represents n milestone. The SteeringCommittec, including the Sonoma
County Water Agency and in consultation with others, would have to determine
that; both agricultural and rural residential interests. are willing to participate and
have willing and appropriate representation before collaborative groundwater
management planning could occur.
As discussed in tlse findings, agricultural representatives are hesitant to participate
or support groundwater management planning. Since so many interested parties:
the cities, county, wager suppliers; developers and environmentalists are interested
in addressing groundwater concerns through joint planning, a concerted effort
should be made to negotiate the conditions necessary to assure robust agricultural
participation in any planning effort. As part of the overall outreach effort, staff and
Use steering committee would work Math agricultural leaders to identify and address
concerns with groundwater managenent planning.
The Steering Committee would also confinn that rural residential well owners have
representative spokespeople to participate in it planningefiort
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A -16
Timefranne: Winter 2910 -2411
Initiating a phased approach to groundwater planning is contingent on successfully
completing the previous step. If the Steering Committee is able to.address the
concerns of agriculture to ensure its participation and identify tux-al residential well
owners, then the Center recommends that groundwater planning officidlly
commence.
Phase 1: Orod-anize Basin Advisory Panel to.negotiate groundwater
management platuting
Building on outreach conducted during the previous steps, the Steering Committee
would discuss and develop membership of the collaborative planning body, known
as the Basin Advisory Panel. The Steering Committee would continue to function
to develop proposals and re-dew technical documents for the full Panel's review
and approval. (The Basin Advisory Panel might also recommend a technical
subcommittee to review materials) The Panel would be the primary decision -
mal:ing body, rev iewiugand recommending elements of a. groundwater
management plan.
Basin Advisory Panel participants would include these organizations and interest
groups, and potentially others. Geographical :rcpresenrntion from througliout the
Santa Rosa Plan would also be critical.
Potential Basin Advisory Panel Membership (or 1; Representation)
Governmental
• Suite of California. Department of Ptcblic Health
• SonornLa County Agricultural Preservation & Open Space District
• County of Sonoma Permit and Resource Management Deparunent
• City of cotati
• City of Roltoert Park
• City of Santa Rosa
■ City of Sebastopol
■ Town of kVindsor
Tribal
■ Fadetnted Indians of Groton Ra.ncheria
Envitunmentai
• Laguna do Santa Rosa Foundation
• O.W.L. Foundation
• Occidental Arts and Ecology Center
• Sonoma County Water Coalition
• Sebastopol.Water Information Group (SWIG)
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A -Z 7
Water Supply & GroundwaterTechnicai Issues
• Cal American Water Co.
• California Ground Water Association
• Sonoma County Water Agency
• Small Water Districts (Pettngrove Water District, others from throughout the
area)
Rural Residential Weil Owners
Agricultural
• Sonoma County Farm Bureau
• Sonoma County Winegrape Commissions
• United Winegrowers
• Dairy Farmer
• Rancher(s)
• Fanner f Grower(s)
Business i Developers
• Codding Enterprises
• Cormnercinl Businesses
• North Bay Realtors Association
Other
• Sotoyome and/or Gold Ridge Resource Conservation District
Phase 2: Stakeholder Issues & interests and Technical Issues
As this process moves forward, the Basin Advisory Panel, would educate itself out
succe.ssU groundwater efforts, in- .depth knowledge of the T 1SGS study, and dhe
interests (why groundwater is important) to all the stakeholders.
The Basin Advisory Panel would hear presentations from representatives from
jurisdictions where groundwater management planning has been effectively
undertaken. By doing so, Panel members would become educated as to how
groundwater management planning could be undertaken in a proactive manner that
effectively manages the groundwater basin.
The Panel would increase the depth of its understanding regarding the technical
information available on the Santa Rosa Plain, identifying gaps in technical
information and modeling improvements to be. incorporated into the plan mid
long -range planning and data collection efforts.
The stakeholders would strive to .learn about the interests of all stakeholders
participating on the Panel and would take field traps to see first hand areas of
particular interest. Flits would lay the foundation for negotiating elements of the
Plan.
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A -18
Phase 3. Develop the Groundwater Management Plan
Tile next stage of the planning effort would be to develop plan elements: identify
basin. management objectives; develop management strategies to achieve objectives,
and agree on governance structure and implementation plan. The wal of this phase
would. be a consensus - bascd adopted groundwater management plan.
Phase 4: Advance & Implement Ground,,vater Management Plan
Once [he organizations that developed the plan have adopted it, the Iasi singe
would be to implement the plan. This involves seeking finding and moving
forward the management strategies outlined in the plan. This is an ongoing etTort
that is overseen by the entity identified in the plan itself.
CONCLUSION
Groundwater is critical to the water supply needs of Sonoma County. Therefore, it'
is of the utmost importance that the communities within the Santa Rosa Plain
continue to work together to manage their groundwater resources sustl.inably.
Increased demands and the possibility of reduced Nvatt.t in the; future make efteetive
and efficient management of the groundwater basin essential. Through
collaborative efforts, a plan could be developed that will iderntify how the
management of the groundwater basic could be improved, thereby ensuring that
groundwater resources will continue to be sustained and protected. However,
efforts must be, made before irtifin.tingn planning process to ensure that a plan
could be developed with all the major stakeholders represented.
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development . A -19
A. Interviewees
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= =S ate Cnuntyand Local Governments,- - __...._._.__. �T
Office of California State Senator Patricia Wiggins: [~red F.uphrat
California Department of Public Health: janiee Oakley
North Coast Regional Water Quality Control Board: Luis Rivera, David Evans
County of Sonoma Agricultural Preservation & Open Space District: Andrea
Mackenzie
County of Sonoma Permit and Resource Management Department: Pete Parkinson,
Connie Stravros
City ofCotati: John Guardino, Damien O'Bid, Janet Orchard
City of Rohnert Park: Darrin Jenkins, Jake Mackenzie
City of Santa Rosa: Susan Goriii, Glen Wright, and Gerry Nakmio
City of Sebastopol: Linda Kelley, Sue Kelly
Sotoyome Resource Conservation District: Kara Heckert
Town of Windsor. Richard Bunt, Deborah Fudge, Matt Malian, Craig Scott
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Federated Indians of Graton Rancheria: John Moister (Tribal Counsel)
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California Ground Water Association: Gary Mickelson
Penngrove Water Company: Jirn Downey
Sonoma County Water Agency: Jay Jaspe.rse
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Codding Enterprises: Geof Syphers
Community Alliance of Family Farmers: Terry Harrison
Ocean View Dairy: Marvin Nunez
Dempel Farming Company, Bob Dempel
Quaker Hill Development Corporation: Craig Harrington
Saralee's Vineyards: Saralee Kunde
Sonoma County Farm Bureau: L.ex M. cCorvey, Dominico Ca.rinalli, Ed Grossi, Bob
Muelrath, Mike Strunk, Walt Ryan
Sonoma County Winegrape Commission: Nick Frey
United Winegrowers: Bob Anderson
Ci'ecks Drilling: Charlie judson
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development
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Fred Soares
Blucher Creek Watershed Council and Community Alliance of Family Farmers
Board _Nlember: Steve Howard
California Dative Plant Society: John Herrick
Coast Action Group: Allan Levine
Lama de Santa Rosa Foundation: Christina Sloop
O.W.L. Foundation: H.R. Downs
Occidental Arts and Ecology Center. Brock Dolman
Sebastopol Water Information Group (SWIG): Jane Nielson
Sonoma County Conservation Actiow Dennis Rosatti, Bill Kortum, Guy Connor
Sonoma County Water Coalition: Stephen Fuller-Rowell
Sonoma land Trust- Wendy Elliott (brief consultation /int -n ieiv)
B. Santa Rosa Plain Assessment
Interview Questions
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2.� Please tell rote about yourself and your organization(s) and how you are invoived
in water issues in the Santa Rosa Plain area?
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2.
What concerns and interests do you have regarding water supply in the Santa
Rosa Plain? And groundw iter in pnrticular.? What concerns, if any, do you have
about the future?
3.
What issues might others raise? Are any of these issues hi conflict with yours?
How might these differences be resolved?
4.
What types of coordination currently occur between users? What other
opportunities for coordination would you foresee?
S.
What potential benefits and potential drawbacks do you associate with
developing some type of groundwater management plan?
6.
What issues would a successful groundwater management plan address? Avoid?
a
7_
What obstacles to developing management plan might arise? Igo you have
suggestions to overcome them?
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3.
What are your thoughts about the Sonoma County Water Agenefs
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role /capabilities in developing a. groundwater management plan for the Santa.
Rosa Plain?
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9.
Are you familiar with the use of groundwater banking as a water resources
is
management strategy (i.e., capturing excess surface water flows in the
a
tivintertime and storing the Nvater in undo bound aquifers for later use during
summertime) ?. If so, what are your opinions on its applicability for the Santa
Rosa Plain?
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development A -21
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10. If this effort goes forward, which individuals or groups do you think should be }
involved? How?
11. Who doesn't usually participate in these types of public efforts that you believe
should be involved?
12— Would you oryour organization /agency like to participate in developinga
groundwater management plan if it were to go forward% How would you
envision being involved?
13. Wltat kinds of public outreach would you recommend?
1=1. What information would you like to have orwhat tcchnical questions would
you like answered as part of this effort?
15. Do you feel that you have a good understanding of where Santa Rosa Plain's
water supply comes from and how water is used in the area?
16. What other related efforts are underway that I should know about?
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1 T Do you have any interests or concerns you have not yet mentioned?
18. 1s there anything else you think I should know or any advice you might offer?
19- -Who else, if anyone, do you think I should speak with?
C. Center for Collaborative Policy
The Center for Collaborative Policy is a unit of California State University,
Sacramento. The mission of the Center is to build the capacity of public agencies,
stakeholder groups, and the public to use collaborative strategies to improve policy
outcomes. The Center bas 40 mediators and facilitators working thtoughout tile.
State of Califomia on some Ot its most iexingpolicy dilemi-nas, aronv_csus.edu!cco
Gina Bartlett is a senior mediatorand director of the centces Bay Area Office.
She. facilitates a number ofgroups, including the collaborative implementing the
consensus- based Sonoma Valley Groundwater Management Program. Ms. Bartlett
received her Masters degree ui Conflict Analysis and Resolution from George
Mason University and has worked in the held since 7.991.
Austin. Mclnern.y has worked as a mrdiator on a number of challenging natural
resource management projects over the past dozen years. Mr. Mclnerny has
conducted assessments for the South Bay Silt Pond Restoration Project (the largest
wetland restoration effort to be undertaken on the West Coast), the Upper Klamath
Fusin Working Group Restoration Planning Process, and Desert Tortoise Recovery
Planning Situation Assessment. Mr. Nlclnerny received a Masters in Regional
Planning from Cornell University in 1997 and has published and lectured on
collaborative planningmethods.
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Cooperative Agreement to Provide Funding and Support forSanta Rosa Plain Groundwater Management Plan Development A -22
EXHIBIT B
Work Plan for Groundwater Management Plan Development
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development 13-1
Work Plan for a
Groundwater Management Plan
for the Santa .Rosa Plain., California
Draft
Prepared for the Sonoma Comity Water Agency
May 10, 2011
Prepared by Parker Groundwater
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B-2
Table of Contents
1.0INTRODUCTION .................. ................ ................. ......... .. ......... .. ............. _ ............................ w. ........3
1.1 Purpose .......... ............ .. ................ ..........-..........-............-........._........._._......... ......._...........- _........_3
1.2 Background Infotntation» ..................... .................. .. ... ......................... ......... ..: .... ... ...... . » ............ 4
13 Setting _ .... .. .... » ............ ........... ........................................... ......................... .. ............ ....................... ...4
1.4 Groundwater Management Overview» ................ .. ........... .................................... .......... ........... S
2.0 SANTA ROSA PLAIN PRELIMINARY GROUNDWATER PLANNING ........... ............. ..... ... 6
2.1 Introduction .... . ................... _ ................... :........ .. .......... .............. .. .............................. - ........ ..- ............ 6
2.2 Interviews ..........
_......... ».... » . ............ ..............» ................... ............ ......... ....... ....................... 6
2.3 Interview Findings .............. ......... .... ......... »._ ........ ».... ........ _ ----------
_...- .__..... »......._. ». ».......7
2.4 Recommendations of the Center for Collaborative Policy ..................»... ..............................7
2.5 Summary & Results of Steering Committee Activities ........... _.-. ........ ........ .. ........ ............ 7
3.0 WORK PLAN APPROACH TO DEVELOPMENT OF GROUNDWATER
MANAGEMENT PLAN FOR SANTA ROSH PLAIN......» .....»._._....»........ ..... ...... ... » ........... .... »......8
Task 1.0 Convene Basin Advisory Panel (BAP) and Conduct Organizational Meetings 11
Task 2.0 Enhancement of Basin -Wide Understanding and Vision Development, Public
OutreachPlan ..... ....:...». ...... :.... .... _ .............. ............ ............... .... ............ .» .... _ ............ _ ... .. .... .. ....... 11
Task 3.0 Develop Groundwater Management Goals and Basin Management Objectives
(BMOs) and Adopt Resolution to Prepare GMP.»: ...... _..... ................. ._ .... ............ _ ........ ........ 13
Task 4.0 Develop Basin Monitoring Program and Data Collection Protocol.......... ».......14
Task 5.0 Develop Management Components & Strategies, and Conduct Alternatives
Analysis......... . ........................... ..... »......... ».....,.. »...... ... ......................... »..... . ..... »... »...,...............14
Task 6.0 Develop implementation Approach and Compile and Prepare Groundwater
ManagementPlan .».»:..:»... ........._........_. »._._.....» _....._.__......_ .......... .. ... ......... _. ....... .w_....15
SCHEDULE..» .......................................... ..................... ................»......... .............. ..._....... » »....» .... »......16
REFERENCES......................... .... , ..... _ ............ _ ....... _.»_.............._......_._....... _._._......... ».........._..'16
Schedule»...._ ............ ...... .... _ ............ ».».». .... ... ......... ........ .......... ...:....... ............................ .. .......... ..... 17
APPENDICES ............................... ... .... ... ..... .... ............. .................................. ..................................
... »...'18
Appendix A.1- Required and Recommended Components of Local Groundwater
ManagementPlans .. ............... ».... ..............._....:. ._»................................. ...........»................ »19
Appendix A.2 - Groundwater Management Plans..- ............._....._._....._..... ....,..- ...._...._.........._22
A.2 Groundwater Management Plan Oement s ........... .......... ........ .... ............................ ... _...._23
A.2.1 Groundwater Legal__, _ ..:.................»»..............................._......»...... ................._. ».........23
A.2.2 Reasonable and Beneficial Use.............»..»»............................................... ................».......,.:..24
A.2.3 Legal Character of Groundwater.».».......» ........... .......... ........................ _........__........... »......24
A.2.4 Groundwater Rights .......... ».»......»..».»..:..._ .......... _.» ........ ... ......... .......... ..._.. ...................... 24
A.25 Overlying Rights. .......... .........._.....
A.2.6 Appropriative Rights ............. ................. . ....... ................ .... .. ................... - . ........ ___ ............ 25
A.2.7 Groundwater Rights, Safe Yield and Overdraft ... ...... ............................ :...._...._._.........26
A.2.8 Prescriptive Rights ...... ........ ».._ .................. .» .................. » .......... _.. .......... .......... ............ .... 26
A.Z.9 Groundwater Management Institutions .......... » ........................».............. .............................26
A.2.10 Groundwater Management Act (AB 3030)............... ................ _ ... ......................... .. ...... 28
Appendix B - Santa Rosa Plain Assessment Report and Steering Committee
Recommendation..»........_ . ........................... ......................................... ............... »......... .......... 30
Appendix C - Example Outline for a Groundwater Management Plan .» .. .............................31
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -3
1.0 INTRODUCTION
71iis work plan presents an approach to develop a voluntary, non - regulatory groundwater
management plan for the Santa Rosa Plain Groundwater Basin, Sonoma County,
California.
As there is not a statewide system for regulating or permitting groundwater use in
California, groundwater management has primarily been conducted at the local level. A
recent Framework Document entitled Su stainability from the Ground Up, Groundwater
11anagenient in California developed by the Association of California Water Agencies
describes the many benefits of locally developed groundwater nrartagernent plans in
addressing potential issues, such as declining groundwater levels, constraints on surface
supplies, regulation of storage, water quality degradation, and the expense of litigation or
adjudication (_ACWA, 2011). Many of these potential issues havTe occurred in the Santa
Rosa Plain and future growth in _population and demand for water coupled with
constraints on existing surface water sources are likely to increase stresses on the region's
groundwater resources. In response to these issues, the Sonoma County Water Agency
(water Agency) and its partners, including the California- Amerioan Water District, City
of Cotati, City of Rolarert Park, City of Santa Rosa, City of Sebastopol, County of
Sonoma, and the Town of Windsor, are investigating the feasibility of pursuing
groundwater management plauling for the Santa Rosa Plain Groundivater.Basin.
The work plan is organized into three main sections including an introduction,
groundwater managententoverview, summary of the stakeholder assessment and
activities conducted in Santa Rosa Plain, and the description of tine approach to the
development of a groundwater management plan forthe Santa Rosa plain Groundwater
Basin. Section 1.0, the introduction, includes the purpose, background hifoiination and
setting for Santa Rosa Plain. Provided in Section 2.0 is a summary of the stakeholder
assessment conducted by the Center for Collaborative policy, and subsequent Santa Rosa
Plain Steering Committee formation, activities, and recommendations. Section 3.0,
presents tile proposed approach to developing a groundwater management plan and
includes six tasks and a schedule incorporating three phases to developthe groundwater
rn.apagearrant plan in the Santa Rosa Plain.
1.1 Purpose
The purpose of this work plan is to provide a strategy and approaoh. for developing a
groundwater management plan using a collaborative process in the Santa Rosa Plain
region of Sonoma County, California. The groundwater management plan will be
developed in compliance with the Groundwater. Management Act (Water Code Section
10750 et. seq.) conunonly referred to as Assembly Bill 3030, and Senate Bill 1838 which
amended Water Code Section 10750 (Stirtutes of 2002, Chapter 603). The approacli
proposed in this work plan is non- regulatory, and includes a collaborative, facilitated
Process Through establishing a stakeholder group to provide input to the groundwater
management plan as it is developed. As further described in Section 2.5, this strategy and
approach were recommended bythe Steering Committee formed in 2010 to explore
groundwater management planning and gather input from broad stakeholder interests in
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Cooperative Agreement to Provide Funding and Support for Santa Rasa Plain Groundwater Management Plan Development 14
the Santa Rosa Plain_ Appendix A provides a list of the required and recommended
compon eiiLs of a groundwater management plan.
1.2 Background Information
In order to provide a solid technical foundation upon which to build a groundwater
management planning process and as part of an ongoing program intended to erthance the
current knovledge regarding groundwater resources within Sonoma County, the United
States Geological Sn",ey (USGS) initiated a five -year cooperative study of groundwater
resources within the Santa Rosa Plain Groundwater Basin in 2005. The cooperative
study is being conducted by the USGS in partnership with. the Water Agency, County of
Sonoma, City of Santa Rosa, City of Rohnert Park, City of Sebastopol, City of Cotad.
Town of Windsor, and Cal - American Water, Company. The five-year study is in its final
stages and is scheduled "for publication in 2011. Results from the study will provide .
stakeholders with tools to assist in evaluating the hydrologic impacts of future climate -
change scenarios and alternative groundwater management strategies for the basin,
including the development of a frilly- coupled numerical surface water/groundwater flow
model for the basin. in anticipation of the completion of the USGS study, the Board of
.Directors of the Water Agency directed staffto move forward with preliminary
grou ndwater management planning in the Santa Rosa Plain. The Water Agency
contracted with the Center for Collaborative Policy (CCP) to conduct an assessment of
issues and concerns related. to water supply and groundwater management in the Santa
Rosa Plain and to convene a Steering Committee for preliminary ,groundwater planning
activities.
1.3 Setting
The Santa Rosa Plain area, one of several basins int Sonoma. County that uses a
combination of groundwater and surface water delivered from the Russian River for
supply, is the subject of this work plan_ 7"be Santa Rosa Plain area, like the rest of
Sonoma. County and a good portion of the state, has experienced rapid population growth
and accelerated urbanization i i response to economic expansion over the past few
decades. The Santa Rosa Plaits groundwater basin covers an area of approximately 80,000
acres and is home. to approximately half of the population of Sonoma County. The
groundwater system beneath the Santa Rosa Plain provides numerous benefits to the
region, including rural residential and municipal water supplies,. irrigation water for
agriculture, and baseflow to streams and surface water bodies. The Santa Rosa Plain
groundwater basin has some focused areas of adverse impacts to groundwater, which
include recent and historical areas of declining groundwater levels. potential water
duality degradation, and the potential for impacts to .surface water along watercourses
from groundwater/surface-water interaction. Additionally, limitations on summer time
deliveries from the Russian River may cause a greater reliance on groundwater to
supplement reduced surface water supplies. An effective, locally planned and
implemented basin -wide groundwater management program would provide a tool for the
Santa Rosa Plaits groundwater basin to address these adverse impacts and to achieve
long -term susuninability of groundwater resources.
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development 13-5
1.4 Groundwater il3anagement. Over-Aeiv
In California, groundwater management generally refers to a locally developed and
controlled program that integrates groundwater protection, recharge, extraction and
,monitoring to achieve the long -term sustainability of the resource. Since growndwater
basins vary greatly around the state. local control and supervision allow for the most
effective and careful management of the resource (ACWA, 2011). The Sonoma Malley
Groundwater Management Program represents an example of a local groundwater basin
which has developed an effective groundwater management plan. Some potential benefits
of groundwater management planning can include:
• Helping to effectively resolve significant water - related conflicts within the Santa
Rosa Plain through a non - regulatory process resulting in active local control and
management of the Region's groundwater resources.
• Assisting in effectively addmsing long -terin drought preparedness by
contributing to sustainable water supply and reliability through efficient
groundwater basin management.
• Providing a linkage between water management and land use planning.
• Promotion of tong -term viability of the Groundwater Basin for fixture generations.
• Prevention of aquifer depletion and stabilization of groundwater levels leading to
reduced energy consumption. '
• Environmental benefits (e.g., increase or sustain baseflow to streams).
• .Improved coordination of surface urater and groundwater management to meet
existing and future water demands.
• Assisting the Region in complying with statewide requirements, such as DByR's
California Statewide Groundwater Elevation Monitoring Program (CASGENI).. as
required by Senate Bill SBx7 -6, and Salt and Nutrient Management Planning.
• Integration with other regional studies and planning efforts, including a
groundwater banking feasibility study being conducted by the Water Agency,
City of Colati, City of Rohnert Park, City of Sonoma, To"vrr of Windsor and the
Valley of the Moon Water District and aflood control/groundwater recharge
study being conducted by the Water Agency.
The proposed groundwater management planning etl'orts for the Santa Rosa Plain would
also include strategies that: .
Involve water use efficiency, water conservation, recycling and reuse to help meet
future water demands, increase water supply reliability and adapt to climate
change; and
•
Advance and e-.pand eonjutnctive managetneait of.multiple water supple sources,
which when implemented will address adaptation to climate change:
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Page 5 of 33
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development 13-6
A groundwater management plan is a document that provides the framework to
implement a groundwater management program in a basin or portion of a groundwater
basin. A groundwater management plan may be short or long, simple or complex. A
groundwater management plan is a planning tool thatassists overlying water users in
maintaining a safe, sustainable and high quality groundwater resource within a
groundwater basin. Groundwater management plans are intended to be "living"
documents that are updated and refined over time to reflect changing conditions and to
document progress made in achieving groundwater management objectives.
Groundwater management plans have become a required "baseline" document for
agencies seeking grant funds for water - related projects available from the State of
California. The majority of the populated groundwater basins have some sort of
groundwater management in place, with approximately 150 individual and joint agency
groundwater management plans in California and more are being developed. The Santa
Rosa Plain, Sonoma County, is one of the areas in the state that does not have a
groundwater management plan. An adopted and implemented groundwater management.
plan is a minimum requiretmnt for agencies seeking competitively awarded grant funds
for the planning or Construction ofwater- related project's that involve groundwater- More
infonnation on groundwater management planning approaches is included in Appendix
A.
2.0 SANTA ROSA PLAIN PRELIMINARY GROUNDWATER PLANNING
2.1 Introdfletiout
nie Watcr Agency enlisted the Center for Collaborative Policy,. Sacramento State
University, (CCP) to conduct an assessment of issues and concerns related to .water
supply and groundwater management and to learn if and how stakeholders might want to
address these issues. Tine stakeholder assessment approach and process is summarized
below, and a copy of i]ne report is provided in Appendix B (CCP, November 2009).
The CCP provides impartial mediation services as part of its mission to build capacity of
public agencies, stakeholder groups and the public to use collaborative processes to
improve policy outcomes. CCP has provided the majority of facilitation services utilized
by the DWR on water resources and groundwater management planning.
2.2 Interviews
CCP met with Water Agency staff to identify an initial list of individuals to interview aMd
then relied on interviewees fox additional referrals to ensure a broad range of perspectives
was presented. CCP staff conducted interviews with 55 individuals representing 37
organizations on a range of water - related interests and viewpoints on groundwater
management This consisted of conducting interviews with individuals and small groups
when appropriate, including two meetings conducted with agricultural representatives
PG 01172011 Page 6 of 33
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -%
from the region_ Questions focused on concerts related to water supply, stakeholder
involvement, and information needs.
Sample interview questions included in the CCM,; Santa Rosa .Hain Groundwater
UanAg(,ment Situation Assessment Report (Situation Assessment Report) are provided in
Appendix B.
2.3 Interview Findings
The overall fnndungs of CCP's assessment indicate competing interpretations on the value
and potential of groundwater management planning, as well as a significant lack of
technical understanding of the aquifers underneath the Santa Rosa Plain and the extent of
interaction between surface and groundwater resources. A detailed description of the
interview findings are included in the Situation Assessment Report provided in Appendix
B.
2.A Recommendations of the Center for Collaborative Policy
Based on these findings, CCP concluded that collaborative groundwater planning for the
Santa Rosa Plain Groundwater Basin would require significant pre - planning steps to lay
the foundation for a phased groundwater management planning process. These steps
included convening a st)nall, representative steering committee to guide pre - planning
work and initiating a robust education effort and outreach cannpaign on the USGS
technical study and the groundwater management planning process.
Ilse Situation, Assessment Report also provided insights for success for preliminary
groundwater management planning, which include: 1) raising interest in groundwater
issues and highlighting success stories, including the Sonoma Valley Groundwater
Management Program; 2) Sharing information, in particular providing information from
the USGS. technical study of the Santa Rosa Plain Groundwater Basin as it becomes
available; mid 3) emphasizing the nod-regulatory approach and local control aspects of
groundwater nianagentent planning.
2.5 Summary & Results of Steering Connnrittee Activities
Consistent: with the CCP's recommendations, the Santa Rosa Plain Steering Committee
was convened to address groundwater stakeholder concerns, oversee a public education
and outreach effort to build common understanding about groundwater.. and develop
recommendations on whether groundwater planning should proceed based on these
activities. Activities associated with preliminary groundwater planning in. the Santa Rosa
Plain include the following-
A small, representative Steering eommittee was formed in April 2010 and met six
times through January 2011 to guide pre - planning work and initiate education and
outreach on the USGS technical study and the. groundwater management planning
process. The steering committee is comprised of a broad array of interests, including:
agricultural, environmental, local government/ municipal water purveyors, water well.
drillers and rural residential well owners.
PG 01172011 Page 7 of 33
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B-8
More than 20 briefings at existing organizations were held and three public workshops
.attended by nearly 200 people were /told to build a common understanding of the
Santa. Rosa Groundwater Basin aid benefits and options for groundwater planning,
and receive public input.
In January 2011, the Santa Rosa Plain Groundwater Steeling Committee recommended
that stakeholders eollaboratively.develop a non - regulatory, voluntary groundwater
management plan for the Santa Rosa Plain Groundwater Basin. On May 3, 2011, these
recommendations were presented to the Water Agency's Board of Directors, which
directed staff 'to develop this work plat to .prepare a groundwater management plan and to
negotiate a multi -party agreeincnt with partners in the basin to fund the preparation of a
groundwater management plan.
3.0 WORK PLAN APPROACH TO DEVELOPit IENT Ole A GROUNDWATER
MANAGENENT PLAN FOR SANTA ROSA PLAIN
As envisioned, a businwide groundwater management planning process would
incorporate a wide array of local stakeholders, including municipal, private and small
system water purveyors, agriculture, businessldevelopment interests, enviroiunental
organizations, and rural residential well owners. The process will be led and facilitated i)y
a mediator from the Center for Collaborative Policy.
'Ilia primary core ofthis.facilitated process will be a.Basin Advisory Pastel of
representative stakeholders from the Santa Rosa Plain area. Following the completion of
a Cooperative Funding Agreement for the process, the Water Agency would convene a
broad -based Basin Advisory Panel to develop a consensus -based groundwater plan under
the. Groundwater Management Act (AB 3030). The BAP Mould be the primary decision-
making body in developing the plan; and would consist. of 25 -30 members representing
Key groundwater interests: Agriculture (Dairies, Fainters & Wine Producers); Business 1
Developers; Environmental; Goventntent (Tribal, State, County and Cities); Public
Health; Rural Residential Well Owners; mid Water Supply & Groundwater Technical
Expertise. 'lire Steering Committee recommended that Basin Advisory Panel members
either live in or have jurisdiction in the Laguna de Santa Rosa. watershed. Center for
Collaborative Policy impartial mediators would work with individual organizations to
identify representatives and to assure that the Panel's composition is representative of all
groundwater interest groups.
It is envisioned the Panel will meet. monthly and perhaps more often on occasion over the
approximate two year period of developing the groundwater management plan for Santa
Rosa Plain. A Technical Advisory Committee (TAC) and/or task specific Work Groups,
smaller specialized working committees or groups, may also be formed to conduct some
of the work of the BAP, raider the direction of the BAP.
The development of a groundwater management plan is a somewhat complex process,
and will be completed in phases as recommended by the Center for Collaborative Policy:
PG 01172011 Page 8 of 33
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -9
Phase One
■ Task 1.0 -- Convcne Basin Advisory Panel (BAP) and Conduct Organizational.
Meetings — Months i through 3
Phase Tx.vo
■ Task 2.0 - Enhance Basin -Wide Understanding, Dcvutop Vision.. and Public Outreach
Plan and Workshops — Months 4 through 6
Phase 'Iltree
• Task 3.0 — Develop Groundwater Management Goals and Basin Management
Objectives, Resolution and Hearing to Prepare GMP — Months 7 through 10
• Task 4.0 — Develop Basin Monitoring Program and Data Collection Protocol —
Months 11 throughl4
• Task 5.0 — Develop Management Components & Strategies, and Conduct
Alternatives Analysis — Months 15 through 18
• Task 6.0 — Develop Implementation Approach, Compile and Prepare Groundwater
Management Plan Months 19 through 24
Phase Four, Groundwater Management Plan Implementation, would be conducted
subsequent to groundwater management plan development and adoption.
!\.flow chart illustrates the relationship between tasks below.
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -10
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Task 1.0 Convene Basin Advisong Panel (RAP) and Conduct Organizational
Meetings
Schedule: A-fonths I through 3
Products: Group Charter, Mission, and Ground Rules
'fhe first task of developing a groundwater management Plan for Santa Rosa. Plain will be
to develop a list of representative stakeholders to approach and convene in a Basin
Advisory Panel (BAP). Developing the list of representative stakeholders for
participating in the BAP will be perfornied by CCP and will be based on discussions with
stakeholders and input and information obtained from the numerous briefings and
workshops conducted during the preliminary planning activities. The BAP will meet
monthly initially, and monthly to every other month, as needed, throughout the process of
developing a groundwater management plan and will provide.input to the process on
behalf of their various stakeholder groups. Daring Task 1.0, the BAP will have two to
three organizational meetings to discuss and form consensus on various processes
including decision- making, membership, relationship to decision making entities,
responsibilities for communicating with constituents, media. relations, and overall work,
plan, including objectives and schedule. As mentioned above, the BAP would also
develop recommendations on the public outreach plan. Some of these questions the B.AP
would address during these initial teetings include:
• What subcommittees or technical work groups might best support the Panel's "pork?
• What is the best method to educate the broader community on water supply issues?
• What additional types of financial resources are available and how might the group
obtain them?
■ What structure would best support implementation of a groundwater management
plan.(Lead Agency, Joint Powers Agreement, or Memorandum of Understanding)?
■ What is the binding nature of decisions reached .in the groundwater management
plait?
The BAP might determine that some of these questions would be better answered in a
later phase once the group has a better understanding of the basin or once the basin
mauaget�ae ttt objectives are defined, for example. If so, the group may choose to defer
those questions until the necessary information becomes available.
A series of guiding documents will be developed for the BAP, including a BAP Charter,
Mission, and BAP Meeting Ground Rules and Procedures_ These documents will be
prepared in draft form and made available to the BAP prior to the first initial organizing
meeting. Additionally, CCP will plan and prepare meeting agendas, provide
communications to stakeholders regarding meetings, and materials for meetings.
Task 2:0 Enhancement of Basin -Wide Understanding and Vision Development,
Public Outreach Plan.
Schedule: klontlns 4 through 6
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B-12
Products: workshop Handouts, Update Primer on Santa Rosa Plain
Groundwater, water Resources Secfion of GMP.. Public Outreach Plata;
¢nd Wcbsite Esilamtcements
Public outreach, information dissemination, and enhancing the understanding of the BAP
and local citizens, elected officials, and decision - makers are key to the success of the
process_ As this process moves forward, tlue BAP would educate itself on successful
groundwater el%orts, in -depth knowledge of the USGS study, and the interests (why
groundwater is important) to all the stakeholders. The BAP would hear presentations on
the USGS technical study and from representatives from jurisdictions where groundwater
management planning has been effectively undertaken. The BAP would ncrease the
depth of its understanding regarding the technical information available on the Santa
Rosa Plain, identifying gaps in technical information and modeling improvements to be
incorporated into the plan and long -range planning and data collection efforts. The
stakeholders would strive to team about the interests of all stakeholders participating on
the Panel and would take field trips to see areas of particular interest. This would lay the
foundation for negotiating elements of the. plan.
CCP recommends a public outreach plan be developed and implemented by the BAP,
sUA7 and consull.utts to keep interested parties informed, based on the level of interest in
groundwater in the Santa Rosa Plain and the importance of the BAP's work. Enhanced
understanding and shared infomtation provides tine foundation for building
understanding, trust and consensus. Task 2 includes the development and implementation
of a public outreach plan, enhancing and updating the existing project website,
conducting groundwater workshop(s), and supplementing or modifying the existing
primer on groundwater resources in the Santa Rosa Plain_
The BAP, CCP, Water Agency staff and its consultants will develop a public outreach
and communication plain. The purpose of the- public outreach program. is to:
• Ensure widespread support for tlue groundwater management plan once developed.
• Engage diverse interested parties and encourage informed community feedback while
developing the groundwater management plan and during implementation.
• Enhance understanding and inform the public about water and groundwater resources
in the Santa Rosa Plain and the purpose and need for the Groundwater Management
Program.
■ .Coordinate communication and involvement among agencies, elected officials, and
the general. public in the groundwater management planning and implementation
process.
■
Employ a variety of outreach methods that make public participation easy and
accessible. Hold meetings at convenient times and venues.
• Respond to public concerns and provide accurate and up -to -date information.
• Manage the public outreach program in a manner that. minimizes cost and provides
maximum value to the public.
Opportunities for the public to participate. in the planning process of the Santa Rosa Plain
Groundwater'-Management Program would include:
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -13
Community Group Wiefings - Community group briefing to be provided selectively
Upon request to give an overview of water and groundwater resources mud the
groundwater management planning process, to report on progress, and solicit
feedback. The BAP, CCP, Water Agency staff and consultants could provide some of
these briefuigs.
Community Workshops - Open house style workshops to be held periodically for a
variety of purposes, such as repo ;tins on project progress and soliciting community
feedback at project milestones. In addition, all BAP meetings will be open to the
public.
Interactive Website - Providing the latest news about the project, information on
upcoming activities, and links for contacting with questions and/or comments. Also
include an online form to request email updates and information on upcoming public
participation opportunities. The website is envisioned to be a key communication
media for the groundwater management plan development process.
The existing primer to Santa Rosa Plain groundwater, prepared for the preliminary
planning effort under the Steering Committee, will either be modified or a supplement
will be prepared to include the results oftlie US Geological Survey technical study. This
document will be prepared for distribution in hard copy to the BAP and general public
interested in the project, and also made available for download on the website.'lie
purpose of the guide modification/supplement is to provide basic technical information,
legal and water rights overview, governance options, groundwater management primer,
and basic facts, figures, and frequently- asked - questions (r -AQs) on water and
groundwater resources in the Santa Rosa Plain.
Task 3.0 Develop Groundwater Management Goals and Basin Management
Objectives (BMOs) and Adopt. Resolution to Prep;xre GNIP
Schedule: Months 7 through 10
Products: Santa Rosa Plain Groundwater Management Brief
Once the stakeholder group has enhanced its understanding of the groundwater basin, the
next phase is to define the area to be covered by the plan and decide oil a lead agency,
which then will adopt a resolution and conduct a hearing to prepare a GMP. Prior to
adopting a resolution of intention to draft the groundwater management plan, a hearing
must be conducted by the lead agency to publicly announce its intention to do so. The
hearing must. also properly noticed in the newspaper according to Government Code
section 6066. Subsequent to the conclusion of the hearing, the resolution of intention to
adopt a groundwater management plan will be drafted by the lead agency, adopted and
published appropriately.
The BAY will then set to work to develop the groundwater management goals for the
plan and basin management obiectives, An example groundwater management goal is "to
provide a sustainable groundwater resource for future generations." Basin management
objectives are a required component of groundwater management plan in order to apply .
for specific state fintding. Basin management objectives should incorporate measures
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -14
related to local control, long-term sustainabi lily and reliability, and should address
groundwater levels, groundwater quality degradation, inelastic land surface subsidence,
and changes in surface flow and surface water quality that are somehow related to
groundwater_ These objectives could define the acceptable range of groundwater level
fluctuations that -would be allowed io occur %vithin the management area and the
acceptable range of groundwater quality change. Alternatively, instead of metric values_
these objectives could be qualitative and narrative with a desired result, for example,
maintain groundwater elevations that result in a net benefit to basin groundwater users.
The group may need to conduct a series of briefings with local elected officials and
interested organizations. The purpose would be to educate and seek support of the
groundwater management goals and basin management objectives, including how they
were developed and their content and purpose. Based on the briefings, the BAP might
choose to revise the basin management objectives to reflect insights gained through the
briefings, but no major changes would be anticipated. The BAP would review its goals.
and work plan, evaluate its progress to date, and decide to move to the next phase.
Task 4.0 Develop Basin Monitorlug Program and Data Col)ection Protocol
Schedule: Months ll through 14
Product: Nlonitvring and. Daw Collection Protocol Agreement
Most private landowners who rely upon groundwater clearly identified well monitoring
and data collection, instrumental for understanding groundwater basin levels and storage
capacity, as big issues. For this reason, the way that nionitoriag and data collection
moves forward should be subject to careful discussion and negotiation among the Basin
Advisory Panel. During this phase, ilia Consultant will work with the BAP and/or TAC to
develop protocols and a system for groundwater monitoring and data management.
Participation in the monitoring program is planned to be voluntary, and would likely
follow the approach taken on the Sonoma Valley UNIP. Additionally, the development
of a groundwater -level monitoring program could complement ongoing afforts to comply
with the CASGEM program.
Task 5.0 Develop Management Components & Strategies, and Conduct Alternatives
Analvsis
Schedule: Months 15 through'l8
Product: Management Strategy Narrative -and Metrics, Output from
Hydrologic Alternatives Analysis
Management components will be developed as part of ilia GMP as required in Water
Code Section 10553.7(a)(1) to address the monitoring and management of groundwater
levels, groundwater quality, inelastic land surface subsidence, and changes in.surface
water flow and quality that directly effect groundwater levels or quality caused by
groundwater pumping. Additional management strategies and components may address
conjunctive use, conservation, water use efficiency, recycled water, saline intrusion,
wellhead protection, regulation and remediation of groundwater contamination,
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -15
groundwater replenishment, groundwater level and storage monitoring, well construction
policies, liaison with state and federal agencies, land use coordination. to prevent
groundwater impacts. Management components and strategies will be developed into
management component alternatives for consideration by the BAP and/or TAC and
screened for inclusion into management component alternative analysis for present and
future management scenarios over time.
Hydrologic analysis will be conducted using the USGS GSFLOW model for evaluation
of the potential individual and combined effects of management component alternatives
in the Santa Rosa Plain basin. The efforts in this task may include, but not be limited to,
the analysis of etf'ects of spatially varying groundwater extraction with some differing.
water supply scenarios, various ccmjunctive use scenarios, conservation and water use
efficiency, water recycling, under level of developments as specified in existing local
plans as available. In addition, the etTorts will include analysis of alternative water
supply scenarios to evaluate the effects on the groundwater and surface water resources
in the area. The focus of the alternatives is to evaluate the effects of-the future levels of
development and pumping with different water sit pply scenarios on the groundwater and
surface water resources in the Santa Rosa Plain. groundwater basin. The hydrologic
analysis will be completed as a joint effort of the U SGS with technical input from the
13AP and/or TAC, and the Consulttint
Task 6.0 Develop Implementation Approach and Compile mud Prepare
Groundwater Management Plan
Schedule: Months 18 through 24
Product: Santa Rosa Plain Groundwater Management Plan
In the final task, the drag groundwatermanagement plan will be compiled and prepared
for review by the BAP. The plan will. contain an c::ecutive summary, and sections on the
water resources setting, management goals and basin management objectives, basin
monitoring and data collection program and protocols, management plan components,
component alternatives analysis, implementation approach, schedule, funding and
appendices. An example outline for the plan is included as Appendix C.
The fwal task will also concentrate on developing an implementation approach in the
groundwater management plan and deciding what actions are necessary to respond to
changing conditions in -the groundwater basin. Proactive management will involve a.
developing a menu of planned and/or potential projects, costs, funding options, schedule,
and prioritization, which would be negotiated amongst the BAP_ Adaptive management
would involve decision - making to address issues that arise that were not predictable or
were not planted for, The BAP would lively want to consider some form of dispute
resolution tnechanism should conflicts arise.
The implementation plan and management components would be documented in the
groundwater management plan. For example, the plan might address local agencies'
construc non or operation of recharge, storage, conservation, or water recycling. The plan
PG 01172011 Page 15 of 33
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B-16
could facilitate conjunctive use operations including mutually beneficial regional
groundwater recharge raid recovery projects. The plan would ultimately be a culmination
of all the work completed during the diflbrent phases. Public outrencln would take place
to inform members of the public about ilia overall effort documented in the plan.
Through the GMP development process as conducted in Task 1 -5, the BAP will have
provided input on key areas of the plan including management goals, basin management
objectives, basin monitoring and data collection program and protocols, and the
implementation approacb, project prioritization, schedule, and funding. Additionally, it is
envisioned that there will be a TAC and /or Work Groups of the BAP, which will meet
regularlylas needed to review progress and provide input to the groundwater management
plan as it is developed, although this will be a decision that the BAP will ultimately
make. Developing the groundwater management plan will bean iterative process and
some sections may require multiple iterations to satisfy all stakeholders.
Once the GIVIP is accepted by the BAP and prior to adopting the plan, the Lead Agency is
rewired to will hold a hearing to provide a briefing on the GMP and the opportunity for
public comments. The hearing must be properly noticed and provide the location of .
available copies of the plan for public review. Any landowner within tine local agencies
jurisdictions may file a protest prior to the conclusion of the review hearing, and the local
agencies must consider al l protests. If protests represent more than 50 percent of the
assessed value of land in the Local agency, ii is considered a majority protest and the local
agency may not adopt ilia plan.
Subsequent to the hearing to review the plan, and assuming there is not a majority protest
to the plan, the plan can be adopted.
SCHEDULE
The schedule :for the work plan development is included as EXCEL Project diagram in a.
Gantt style chat[. The schedule is approximately 24 months for the project, and will be
dependent upon the pace and success of the collaborative process for developing the
GIMP.
REFE12ENCES
Center for Collaborative Policy (CCP) 2009. Santa Rosa Plain Groundwater Management
Situation Assessment Report.
Freeze, R.A., and Cherry, 1A. 1979: Groundwater. P47. Prentice Hall, Inc., New Jersey.
Groundwater Resources Association of California (GRA). Second Edition, 2005.
California Groundwater Management.
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -17
Schedule
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development I B-18
Work Plan Tasks, Schedule, and Products
Development of Groundwater Management Plan - Santa Rosa Plain
WorkJlotts
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain.Groundwater Management Plan Development B-19
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C—PI.W
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain.Groundwater Management Plan Development B-19
APPENDICES
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -20
Appendix A.1 - Required and Recommended. Components of Local Groundwater
Management Plans
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -21
Appendix A.1 Required :hnd Recommended Components of Local Groundwater
ii9anagement Plans
Section I0750 ct seq. of the iVater Code, commonly referred to as Assembly Bill 3030, stipulates
certain procedures that must be followed in adopting a groundwater management. plan under this
section. Amendments to Section 10750 et sec). added die requirement that new groundwater
management plans prepared under Section 10750 et seq. must include component 1 below
(SD 1935 (Stars 2002, Ch 603)).
In addition, die amendments mandate that if the agency preparing the groundwater management
plan intends to apply for funding administered by the California Department of Water Resources
(DNVR) for groundwater or groundwater quality projects, the agency must prepare and implement
a groundwater management plan thatineludes components 2, 3, 6, 7 and 9 below. DW`R.
recommends that all the components below be included in any groundwater management plan to
be adopted and implemented by a. local managing entity.
Consideration and development of these components for the specific conditions of the basin to be
managed under the plan will help to ensure effective groundwater management. In developing
these criteria, DWR. recognizes that the goal of a groundwater management. plan and the goal of
an ordinance to manage ;groundwater should be the same— assurance of a long -term, sustainable,
reliable, good quality groundwater supply. Such efforts can benefit greatly from cooperative
management within the basin or region. Drone of the suggested data repot tingin the components
below should be construed as recommending disclosure of information that is confidential under
State Jaw.
I. Include documentation that a written statement was provided to die public "describing the
manner in which interested parties may participate in developing the groundwater
management plan," which may include appointiuhg a technical advisory committee (Water
Code § 10753.E (b)).
2. Include a plan by the managing entity to involve other agencies that enables the local
agency to work cooperatively with other public entities whose scrvicc area or bohuidary•
overlies the groundwater basin." (Water Code § 10753.7 (a)(2)). A local agency includes
"any local public agency that provides water service to all or a portion of its service area"
(Water Code § 10752 (g)).
3. Provide a map showing the area of the groundwater basin, as defined by DAIR Bulletin
115, with the area of the local agency subject to the plan as well as the boundaries of
other local agencies that overlie the basin in which the agency is developing a
groundwater tnatiagcment plant fUlatcr Code § 10753.7(a)(3)).
a. Establish an advisory committee of.stAkwholders.(i.nteressted patties) within. the plan area
that will help guide the development and implementation of the plan and provide a forum
for resolution of controversial issues.
5. Describe the area to be managed under the plan, including:
a. Tlie physical structure and characteristics of the aquifer system underlying die
plan area in the context of the overall basin.
b. A summary of the availability of historical data including, but not limited to, tie
components in Section 7 below.
c. Issues of concern including, but not limited to, issues mlated to the components
in Section 7 below.
d. A general discussion of historical and projected water demands and supplies.
6. establish management objectives (11NiOs) for the groundwater basin that is subject to the
plan. (iiVater Code § 10753.7 (a)(1)),
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development $-22
7. Include components relating to the monitoring and management of groundwater levels,
groundwater quality, inelastic land surface subsidence, and changes in surface flow and
surface water quality that directly affect groundwater levels or quality or are caused by
groundwater pumping. (Water Code § 10753.7 (a)(1)). Consider additional components
listed rte Water Code § 10753.3 (a) through (1).
S. For each M0, describe how meeting the N40 will contribute to a more reliable supply for
long -teen beneficial uses of groundwater in the plan area, and describe existing or
planned management actions to achieve MOs.
9_ Adopt monitoring protocols for the components in Section 7 (Water Code § 10753.7
(a)(4)). Monitoring protocols are not defined in the Water Code, but the section is
interpreted to mean developing a monitoring program capable of tracking changes in
conditions for the purpose of meeting MOs.
10. Describe the monitoring program, including:
a. A map indicating the general locations of any applicable monitoring sites for
groundwater levels, groundwater quality, subsidence stations, or stream gages.
b. A summary of monitoring sites indicating the type (groundwater level,
groundwater quality, subsidence, stream gage) and frequency of monitoring. For
groundwater level and groundwater quality wells, indicate the depth intcrval(s) or
aquifer zone monitored and the type of well (public, irrigation, domestic,
industrial, monitoring).
11. Describe any current or planned actions by the local managing entity to coordinate with
other land use, zoning, or water management planning agencies or activities (Water Code
§ 10753.5 (k), (1)).
12. Provide for periodic report(s) summarizing groundwater basin conditions and
grounAvatcr management activities. The re-port(s), prepared annually or at other
frequencies as determined by the local management agency, should include:
a. Summary of monitoring results, including a discussion of historical trends.
h. Summary of management actions during the period covered by the report.
c. A discussion, supported by monitoring results, of whether management actions
are achieving progress in meeting MOs.
d Summary of proposed management actions for the future.
e. Summary of any plan component changes; including addition or modification of
MOs, during the period covered by the report-
f. Summary of actions taken to coordinate with other water management and land .
use agencies, and other government agencies.
13. Provide for the periodic re- evaluation of the entire plant by the managing entity.
14. For local agencies not overlying groundwater basins, plans should be prepared including
the above listed components and using geologic and hydrologic principles appropriate to
those areas (Water Code § 107533 (a)(5))_
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B-23
Appendix A.2 — Ground-m.iter Management Plans
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Cooperative Agreement to Provide Funding and Support for Sang Rosa Plain Groundwater Management Plan Development B -24
A.2 Groundwater Management Plan Elements
Effective, comprehensive groundwater management requires defining goals and basin
management objectives, plans for action to meet management objectives, and a phut for
implementation. A groundwater mannagement plan provides a road map for solving
problems and new opportunities by outlining the powers, procedures, actions, budget nand
timetable for a groundwater management program. An effectivz groundwater
management plan and program will result in more effective use of the groundwater
resource in conjunction with surface water. The five elentcarts of groundwater
management are:
1. Political — The political process is the collective means to legitimize and prioritize
decision- making and value judgments. The local community makes authoritative
choices among alternatives through political groundwater management. To help
satisfy the political process, a groundwater management plan should be prepared in a
collaborative, consensus -based stakeholder process, with representative stakeholder
input during development of rnattagetnent objectives, conflict resolution, and during
implementation of the resulting groundwater management program.
2. Legal — Water rights, the most controversial, fundamental issue in groundwater
management. is a legal issue. Groundwater rights, and in many cases, surface water
rights must be addressed no matter what groundwater management approach is taken
in a basin. The legal aspects of groundwater management tare very complex a and tire
explained in more detail in subsequent sections.
3. Institutional — The jurisdictional question of who is to govern and how management
will be achieved is key to developing and successfully implementing a groundwater
program. The institutional element of groundwater management is explained in more
detail in subsequent sections.
4. Technical — Understanding the unique physical, chemical, and hydrogeologieal
characteristics is essential to developing an effective groundwater management plan..
The US Geological Survey is conducting a groundwater basin assessment for the
Santa Rosa .Plain, which will :assist in providing a technical understanding of the
Santa Rosa Plain.
5_ Economic — Detemrining and being able to afford the cost of groundwater
management plan implementation is another basic requirement for developing a. good
plan and successfully implementing an effective groundwater management program.
Intricately linked with the "determining and being able to afford the cost of
groundwater m magemoni" is deciding who should pay and how much. Additionally,
economic justification of groundwater management plan impletuetnt4oaa should
always include the cost of not implementing a groundwater management program, a
much more difficult cost to factor.
A.2.1 Groundwater Legal
California has a complex .system ofgroundwater law, rights, and policy that has evolved
through legislative and court battles over the last century and a half. The law has
traditionally differentiated surface water and groundwater rather than regulating water
resources through a system that fully integrates the two, in spite of nature and the Earth's
hydrologic system. This differentiation of surface water and groundwater, regulation. of
surface and non - regulation of groundwater, has made groundwater vulnerable to adverse
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -25
impacts from non - sustainable extraction, making effective and coordinated groundwater
management a necessity in most basins.
A.2.2 Reasonable and Beneficial Use
All water resource use gat California, including groundwater, is subject to the
constitutional requirement of reasonable and beneficial use (California Constitution,
Article 1, Section 2). In general terms, beneficial use has been held to include domestic,
agricultural, industrial, general municipal use, social, recreational, or instremn use. Water
rights holders must demonstrate that the use is both reasonable and beneficial.
A.2.3 Legal Character of Groundwater
"Groundwater" is technically defined as subsurface water that occurs in soils and the pore
spaces or openings in geologic formations that are frilly saturated at a positive pressure
(Freeze and Cherry, 1979). In California, groundwater is classified based on its character
and distribution as either:
1. Percolating groundwater — water that oozes, seeps, or filters through the soil by
gravity; a vast mass of water confined in a basin, always moving toward some stream
or outlet. Percolating groundwater is not subject to permitting by the State Water
resources Control Board (SAFRCB).
2. A subterranean stream flowing through known and defined channels — most
frequently characterized by the State as moving through permeable material, typically
alluvium, which underlies or comprises the bell of a stream in its natural state and is
essential to the existence of the stream; legally considered to be flowing within a.
subterranean stream because the beds and banks surrounding the subsurface channel
deposits are relatively impermeable. Groundwater flowing with a subterranean stream
is subjeetto regulation governing surface tivater and pennitting jurisdiction of the
SWRCB.
Nearly all grotnndwater in California is considered percolating groundwater. By legal
definition, all grotndwater that is not subsurface flow or groundwater within a known
and defined channel is considered to be percolating groundwater. For groundwater to be
classified as a subterranean stream flowing through a known and defined channel, the
S WRCB has generally considered that the following four physical conditions must exist:
1. A subsurface channel must be present;
2. The, channel must have relatively impermeable beds and banks;
3. The course of the channel must be known or capable of being determined by
reasonable inference; and
4. Groundwater must be flowing in the channol.
Absent evidence of the existence of the four physical conditions listed above,
groundwater is presumed to be percolating groundwater, and not a subterraneail stream.
A.2.4 Groundwater Rights
California has developed a unique system of water rights in which overlying,
appropriafive and prescriptive rights are all recognized wider specific conditions. Table 2
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B-26
provides summary information on the principal groundwater, rights in California and
relative priorities of rights.
Table 2
California Groundwater Ri is
Overlying Right
Correlative between overlying owners. Prior and paramount to
appropriative light,
Arise solely from property ownership, and thus are generally not
limited in quintity by the history or fre uency of water use.
Actual historic production maintained against prescription
through doctrine of "self-help."
Appropriative Right
first -in- time, first-in-fight as betweem appropriators_
Junior to overlying Tight.
Defined by the historical quantity of use.
May be forfeited i.e., lost by non -use.
Prescriptive Right
Acquired by actual, open; notorious, adverse, exclusive and
continuous use :fora period of five years.
Cannot be acquired against public utilities, municipalities; or
other public entities.
Limited to extent of maximum annual "self -help' (i.e., production
by overlying owners during prescriptive period).
A.2.5 Oveii3ring Rights
Overlying rights are incidental to the real property and allow the landowner extract
groundwater from beneath the property for use on the overlying parcel. Overlying rights-
arise solely and exclusively from the property ownership, and therefore are not generally
limited by historical record of past groundwater use, nor can they be lost by non -use.
Overlying rights are correlative rights, that is, they are of equal priority to adjacent
landowners, but are superior to appropriatiti-e rights. Basically, California landowners
have a correlative right to extract as much groundwater as they can put to beneficial cue.
No state pen.nit is.required to drill a well and pump groundwater, however, ministerial
permits may be required in regard to the construction of the well, for example from the
Department of Health Services or pursuant. to local building ordinances. Unless the basin
has been adjudicated or other local ordinances apply, no governineotal permission is
required to produce groundwater.
A.2.6 Appropriative. Rights
Appropriative rights involve the act ofdiverting the groundwater front its source and
applying the waiter to a beneficial use, typically for municipal use, and do not attach to
the overlying land. Appropriative rights are not considered overlying rights, and are
junior to overlying rights, meaning that overlying rights have priority over appropriative
rights. Further, the law only allows the appropriation of that quantity of groundwater that
is a surplus in the basin or sub -basin to the present cumulative needs of overlying
groundwater users, if no surplus groundwater exists, overlying landowners may bring
court action to stop the taking of water by appropriators. Priority of rights between
appropriators is based on the rule `fimi-in -time, fist -in- right': when surplus groundwater
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B-27
supplies are exceeded, the most junior (youngest) rights are eAnguished first, and most
senior (oldest) rights are extinguished last. Appmpriative rights are based on the
historical quantity of use and may be forfeited (lost) by non -use.
A.2.7 Groundwater Rights, Safe field said Overdraaft.
The concepts ofsafe yield and overdraft become important when disputes arise within a
groundwater basin, as all groundwater rights,\ whether overlying or appropriative, may be
limited by the concept of "safe yield ". Safe yield, which is a somewhat debated term, is
generally considered to mean "the maximum quantity of water which can be .withdrawn
annually from a groundwater supply under a given set of conditions without causing an
undesirable result" (GRA, 2005). Undesirable results are generally considered to refer to
unwanted changes such as water duality degradation, seawater intrusion, land subsidence,
uneconomic use of groundwater, caused by a gradual lowering of groundwater levels
which. may induce adverse basin impacts.
If the cumulative groundwater production exceeds the basin's safe yield, the basin is
considered to be in a state of overdraft. Overdraft occurs where the trend of historic
groundwater level measurements indicate a continual drop in groundwater levels over
time_ even after. wet year conditions. If the cumulative production does not exceed the
safe yield, the basin is considered to be in a state of surplus.
The concept of safe veld is typically the focal point of groundwater basin. adjudication,
and is used to establish the groundwater rights in the basin, although typically it is after
groundwater levels have dropped significantly and the basin .is in overdraft. Further, sate
yield is the potential trigger for financing replenislunents and the requirement for
establishing prescriptive right-,.
A.2.8 Prescriptive Rights
A party may claim prescriptive right- to gromidwater once the basin. has bcen in it
condition of overdraft for a period of more than five years by showing that the
groundwater use has been actual, notorious, adverse, exclusive and continuous for a
period of at least live years. A prescriptive right is a right acquired by a party who openly
uses the water to which another party has all existing prior right. The estabiishment of a
prescriptive right may provide an appropriator with an equal or superior right to extract
groundwater to that of overlying landowners, based on the record of extractions during
the prescriptive period_ Prescriptive rights cannot be acquired against public utilities,
municipalities, or other public entities. Overlying owners can help preserve their
overlying right by continuing to pump and use water for reasonable and beneficial. uses
under the doctrine of "self-help." Filing in court for "injunctive relief' as soon as
overdraft begins is a legal means to fight prescription, although it can be very expensive
and costrprohibitive to an individual landowner.
A.2.9 Gromidwater Management Institutions
In California, the regulation and management of groundwater has been left to local
control at least partly because of a general preference for local, hands -on management.
Virtually every legislative attempt to manage groundwater at a statewide level over the
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -28
past 100 years has been met with significant opposition. State -level groundwater
management is generally limited to the collection of groundwater level and pumping data
in certain areas and the formulation of well construction and abandonment procedures_
California groundwater management institutions include:
• Groundwater llanagenicnt Plan (AB 3030 Plwi)
• Statutory Authority in the California Water Code and Special Legislation
• City mid County Ordinances
• Coordinated Agreements
• Adjudicated Groundwater Basins
Tlie most conunon form of groundwater management by institution is through the
development of an AB 3030 plan; which is a voluntary and non - regulatory approach.
According to DWR, there are more than 200 agencies that have participated in AB 3030
plans, and more than 120 of those involve coordinated plans with other agencies.
Groundwater management under an AB 3030 plan is the desired approach for the Santa
Rosa Plain, and the procedure and requirements are described in more detail in the next
section.
Another form of groundwater management is through the California Legislature enacting
statutes establisbing sever J special act agencies and groundwater management districts.
These special act agencies and districts can enact ordinances to regulate the amount of
groundwater that is extracted and limit its place of use within the district's boundaries.
There are 22 kinds of general act districts or local agencies identified in the California
Water Code with specific statutory provisions. to manage surface water. Sonte of these
agencies have specific statutory authority to exercise some form of groundwater
management; some have- exercised their authority and others have not.
Cities and counties have the right to regulate groundwater under their police power of the
state, in an effort to promote the health, safety and welfare of citizens. For example, in
one county ordinances were enacted prohibiting the mining of groundwater within the
county_ or extraction of groundwater for export without a permit granted by the County
Board. Ordinances have been enacted in 28 counties.in the state; Sonoma has no such
ordinance.
Groundwater management can be accomplished among local water purveyors ut a basin
through a general coordinated agreement. Technical basin analysis and development of a
groundwater basin model can be completed through such an agreement. Joint capital
projects and joint operational policies can also be accomplished through a coordinated
agreement. Enforcement actions and fee collections may be jointly shared among the
parities of a coordinated agreement.
Several challenges are associated with the coordinated agreement approach. While
coma-actual arrangements are often useful in resolving individual issues between
purveyors, these arrangements are much more difficult to utilize as groundwater
management issues become more complex. More important, however, is the use of
groundwater by other parties in the basin such as overlying owners. Effective
groundwater management may require these parties to also become signatories to the
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -29
coordinated agreement, and overlying owners' groundwater interests are often divergent
from the interests of the purveyors. Consequently, complete representation of all of the
basin users is more difficult tinder a contractual arrangement approach.
Adjudication is that form of groundwater management wherc the courts define the
amount of groundwater that can be extracted under the landowners' correlative rights.
Adjudication occurs when there have already been adverse impacts from extraction in a
groundwater basin or sub -basin and landowner; and other overlying parties have not been
able to settle the dispute over how much groundwater can rightfully be extracted by each
landowner and other party. T1te plaintiffs must pay for court- directed studies using the
available data, in order to arrive at an equitable distribution of the groundwater that is
available on an annual basis. These court- directed processes can be lengthy and very
costly, although some have been resolved with a court - approved negotiated settlement,
called a stipulated judgment.
A.2.10 Groundwater Management Act (AB 3030)
In response to mounting prassure for authorization for groundwater management
legislation, a systematic procedure for an existing local agency to develop a groundwater
management platy was added to the California Water Code Section 10750 et.seq., in 1992..
Tire legislation is commonly referred to as AB 3030 and it provides authority and
encouragement to local agencies to walk cooperatively and engage in groundwater
management programs on a regional or basin -by -basin approach. The legislation is
applicable to all groundwater basins in California with some exceptions: areas previously
subject to managementby a local agency, special act district or water pursuant to court .
order. A local agency thirst first obtain the consent of another local agency water
purveyor, a regulated investor -owned utility, or a mutual water company to manage
groundwater within their boundaries. A groundwater mattagantent plan does not apply to
the extraction of groundwater to serve a single- family residence, except in the case of
basins previously identified as "critically overdrafted" in Department of AVatcr Resources
Bulletin 113 -80.
If a local agency provides water service, the agency may adopt a groundwater
mattagernant plan by resolution or by ordinance and implement the plan within its service
area. Prior to adopting a resolution of intention to draft a groundwater management plan,
the local agency is required to bold a hearing after publishing notice pursuant to
Crovemment Code 6066. The notice must indicate that the agency is considering the
adoption of management plan pursuant to California Water Code Section 10750 ct. seg.
After conducting a hearing, the local agency may then draft a resolution. of intention to
adopt a groundwater management plait. Within two years of the date the initial resolution
is adopted by the agency, the groundwater management plan must be prepared and
adopted. After the plarn is prepared, but prior to final adoption, a second hearing must be
conducted with information available on the plan. If the groundwater management plan is
not prepared and adopted within two years, a new resolution of intention mist be
adopted.
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development . B -30
Tlmere are no legally required components of a groundwater management plan under AB
3030. Voluntary components that the plan may address and procedures for adopting rules
and regulations to implement the plan are provided in California Water Code Section
I0750 et. Seg. (Provided in Appendix A). However, the Amendments to Section 10750 et
scq, (S)31938 [Stars 2002, Ch 603.7) added the requirement that new groundwater
management plans prepared tinder Section 10750 et seq. must include documentation that
a written statement was provided to the public "describing the mariner in which interested
parties may participate in developing the groundwater management plan," which may
include appointing a technical advisory committee (Water Code § 10753.4 (b)).
Tlmere are certain requirements to obtain state funding for groundwater projects. These
requirements are provided in Appendix A, and include:
1) Provide documentation that a written statement was provided to the public
"describing the manner in which interested parties may participate in developing the
groundwater management plan," which may include appointing a technical advisory
committee (Water Code § 10753.4 (b)).
2) Include a plan by the managing entity to "involve other agencies that enables the local
agency to work cooperatively with other public entities whose service area or
boundary overlies the groundwater basin." (Water Code § 10753.7 (a)(2)). A local
agency includes ".umy local public agency that provides water service to all or a
portion of its service area" (Water Code § 10752 (g)).
3) Provide a map showing the area of the groundwater basin, as defined by DWR
Bulletin 118,.with the area of the local agency subject to the plan as well a% The
boundaries of other local agencies that over.] ie the basin in which the agency, is
developing a groundwater management plan (INater Code § 10753.7 (a)(3)j.
4) Establish management objectives (MOs) for the groundwater basin that is subject to
the plan. (Water Code § 10753.7 ki)).
5) Include components relating to the monitoring and management of groundwater
levels, groundwater quality, inelastic land surface subsidence, .umd changes in surface
.flow and surface water- quality that directly affect groundwater levels or quality or are
caused by groundwater punmpin& (Water Code § I0753.7 (a)(1)). Consider additional
components listed in Water Code § 10753.8 (a) through (1).
b) Adopt monitoring protocols for the components in Section 7 (Water Code § 10753.7
(a)(4)). Monitoring protocols are not defined in the Water Code, but the section is
interpreted to mean developing a monitoring program capable of trtaking changes in.
conditions for the purpose of meeting MOs_
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -31
Appendix B - Santa Rosa Plain Assessment Report and Steering Committee.
Reconunendation
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management'Plan Development B -32
Appendix C - Example Outline for a Groundwater Nia nagement Plan
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development 8--33
Example Outline for a Groundwater Alanageinent Plan
Executive Summary
Introduction
Formation of Lead Agency
Preparation of this GMP Cinder the l3asin Advisory Panel
Purpose of the Santa Rosa Plain GMP
Authority to Prepare and Implement a G-W
GIVE, Components
Dater Resources Setting
Groundwater Supplies
Rydrogeologic Setting
Groundwater Quality
Recharge and Extraction of Groundwater
Surface Water Supplies
Water Rights /Contract Entitlements
Surface Water Conditions
Surface Water Quality
Recycled Water Supplies
Existing Facilities and Operations
Groundwater Facilities
Surface Water Facilities
Future Facilities and Operations
Water Year Types
Water Use by Year Type
Management Plan ElcmLnts .
Groundwater Vfanagement Goal
Basin iklanagcment Objectives
Examples:
■ Maintain or improve groundwater quality in the Santa Rosa Plain for the
benefit of basin groundwater users
■ Protect. against adverse impacts to groundwater from Tliennal waters and
seawater intrusion
\•faintain groundwater elevations that result in a net. benefit to basin
groundwater users
■ Protect against adverse impacts to water duality resulting from the interaction
between groundwater and surface water flows in die major. watercourses
Protect against adverse impacts to surface water flows in Sonoma Creek and
other watercourses
Protect against any potential inelastic land surface subsidence
GMP Components
Component Category 1: Stakeholder Involvement
Invoh-ing the public
o Actions
• Public education
o Actions
Involving other agencies, within and adjacent to Santa Rosa Plain
o Actions
• Utilizing advisory committees
C) actions
Developing relationships. with state and federal agencies
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development 13-34
o Actions
pursuing partnership opportunities
o Actions
Component 2: Monitoring Program
• Groundwater elevation monitoring
o Actions
• Groundwater quality monitoring
o Actions
• Land surface elevation monitorina
o Actions r
• Surface water- groundwater interaction monitoring
o Actions
• Protocols for the collection of groundwater data
o Actions
• Data management system
o Actions
Component Category Three: Groundwater Resources Protection
• bell construction policies
o Actions
• Well abandonment and destruction policies
o Actions
• Wellhead protection measures
o Actions
• Protection of recharge areas
o Actions
• Control of the migration and reniediation of contaminated water
o Actions
• Control of saline water intrusion
o Actions
Component Category lour: Groundwater Sustainability
• Demand Reduction
• Water conservation
• Waterreeyciing
• Actions
• Conjunctive management activities
o Actions
Component Five: Planning Integration
■ D- isting integrated planning efforts
• Water Efficiency
• Urban water management
• Regional sanitation
• DWSAP Program
• Land use planning
• Actions
Plan Implementation
Annual GNIP Implementation Report
Component - Action Implementation Schedule List
Future Review of GW
Financing
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Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development B -35
EXHIBIT C
Cost Allocation
ro osad CPM Allotationfor 54Ma Rosa Plan Grov W—Wr Man AymaM Plan DOYQIOemQlrl
t65110KFunding
from MWM PI kmIn
Gantaool'od
toward ramuaarrtcotts
a:d530,000mntr[6utlon
from DWR
comultant costs
SCWA
SR
RP
SE8
Cotatl
Windsor
WAm i
Total
52.0r
16.0%
13.6%
23Ye
2.99t
4.4%
4.5% Z
11(12
S 130,000
S67.600
S20.8W
517,680
S3,640
55,070
5S.720
55,850 S3.1
r 12113
S 130,000 $
67,600 5
70.800 $
17,650 $
3,640 S
5,070 $
5,720 S
S,ESO $ 3,6
mhlned
S 260,000 $ 135,200 $
41,600 5
35,360 S
7,280 S
10,140 S
11,440 5
11,700 57;
Notes:
Assumes facliltatlor, cysts of $9SK per year, technical mnsuhant costs of $10SK per year.
Cooperative Agreement to Provide Funding and Support for Santa Rosa Plain Groundwater Management Plan Development C -1