Georgia's Water Conservation Implementation Plan

Executive SummaryAcknowledgementsAs directed by the Governor’s October 24, 2007, and October 31, 2008,Executive Orders and the Georgia Comprehensive State-wide Water Management Plan(February 6, 2008) the Georgia Department of Natural Resources, EnvironmentalProtection Division developed this Water Conservation Implementation Plan (WCIP) withassistance from a diverse group of stakeholders.The content of the WCIP is the sole responsibility of the EnvironmentalProtection Division, yet many individuals volunteered their time, experience, informationand expertise to the development of this plan. While their participation is not anendorsement of the elements of the WCIP, without their help and cooperation,Georgians would not have such a comprehensive implementation plan. The GeorgiaDepartment of Natural Resources, Environmental Protection Division extends a specialthanks to the following individuals who contributed to the development of this plan:Bruce Adams, EMC EngineersBrooke Anderson, Etowah Water &Sewer AuthoritySara Barczak, Southern Alliance forClean EnergySarah Barlow, City of SavannahStacey Isaac Berahzer, EnvironmentalFinance CenterSally Bethea, Upper ChattahoocheeRiverkeeperJason Bodwell, Georgia EnvironmentalFacilities AuthorityRick Brownlow, CH2M HillMatthew Chappell, University ofGeorgia Horticulture DepartmentJohn Clayton, Hazen & SawyerKen Crowe, University of GeorgiaErnest Crussel, City of DouglasBrad CurreyEmily Davenport, City of ValdostaCharles Davis, City of DouglasJoe Davis, Georgia Department ofHuman ResourcesMary Davis, The Nature ConservancyMaia Davis, Metro Water DistrictGerald DeWitt, Rayonier and City ofJesupDavid Dixon, Miller Brewing CompanyJack Dozier, Georgia Association ofWater ProfessionalsCynthia Dunn, Shaw Industries, IncTodd Edwards, Association CountyCommissioners of GeorgiaDavid Eigenburg, Georgia Soil and WaterConservation CommissionMark Esoda, Atlanta Country Club andGeorgia Golf Course SuperintendentsAssociationBill Evans, Georgia PowerDieter Franz, Brown & CaldwellDouglas Fulle, Oglethorpe PowerCorporationScarlett Fuller, City of GainesvilleJim GaskillTom Gehl, Georgia Municipal AssociationMike Giles, Georgia Poultry FederationDavid Godfrey, Georgia EnvironmentalFacilities AuthorityFrank Green, Georgia ForestryCommissionDouglas Griffin, Carroll County WaterAuthorityKerry Harrison, University of GeorgiaExtension ServiceLaura Hartt, Upper ChattahoocheeRiverkeeperGary Hawkins, University of GeorgiaBiological and Agricultural EngineeringJoy Hinkle, Metropolitan North GeorgiaWater Planning DistrictJenny Hoffner, American RiversJim Hook, University of GeorgiaJon Huffmaster, Georgia Farm BureauAndy Hull, Georgia Green IndustryAssociation11

Water Conservation Implementation PlanTodd Hurt, Georgia Center for UrbanAgricultureAfsaneh Jabbar, City of ValdostaJim James, WeyerhaeuserBarry Jarrett, Milledgeville Water andSewerage DepartmentWilliam Jernigan, Georgia PacificNolton Johnson, GeosyntecGreg Jones, Mohawk Industries, IncBrant Keller, City of GriffinKevin Kelly, Georgia EnvironmentalFacilities AuthorityBrian Kiepper, University of GeorgiaWayne King, Georgia Green IndustryAssociationKatie Kirkpatrick, Metro AtlantaChamber of CommerceEd Klaas, Georgia Irrigation AssociationJoe Krewer, Georgia Department ofCommunity AffairsDavid Kubala, Cherokee County Waterand Sewer AuthorityCharles Lambert, DeKalb CountyMelinda Langston, City of AtlantaDepartment of Watershed ManagementColin LeBalle, Georgia ConservancyLee Lemke, Georgia Mining AssociationJohn MaldonadoDennis Martin, Georgia ForestryCommissionMark Masters, Georgia Water Planning& Policy CenterAaron McWhorter, North Georgia Turf,Inc.Doug Miell, Georgia Chamber ofCommerceTonja Mincey, Henry County Water andSewage AuthorityCarlton Moore, Georgia Department ofAgricultureDebra Myers, Georgia BuildingAuthorityKathy Nguyen, Cobb County WaterSystemSandra L. Neuse, Board of Regents ofthe University System of GeorgiaJason O'Rouke, Council for QualityGrowthJim Patterson, Columbus Water WorksPhil Pauquette, MACTEC Engineering& Consulting, Inc.12Debbie Phillips, Georgia IndustryEnvironmental CoalitionDonnie PhillipsJohn Pierson, Georgia Tech FoodProcessing ProgramGuy Pihera, Clayton County WaterAuthorityMichael Power, American ChemistryCouncilBrandon Reese, Georgia EMCCourtney Reich, Ecological PlanningGroupTony Rojas, Macon Water AuthorityHarvey Rosenzweig, Troutman SandersLeigh Ross, City of Rome Water andSewer DivisionKristin Rowles, Georgia Water Planning &Policy CenterJerri Russell, City of Atlanta Department ofWatershed ManagementSteve Sadler, Post PropertiesBob Scott, Irrigation Consultant ServicesRose Mary Seymour, University of GeorgiaBiological and Agricultural EngineeringTom Shannon, Ewing IrrigationBrian Skeens, CH2M HILLBettie Sleeth, Home Builders Associationof GeorgiaTas Smith, Georgia Farm BureauBrad Spooner, MEAG PowerHaydon Stanley, Fiveash Stanley, Inc.Richard Staughton, Georgia Golf CourseSuperintendents AssociationKathy Stege, StantecFrank Stephens, Gwinnett CountyPat Stevens, Atlanta Regional CommissionJay Sum, WeyerhaeuserBob Tant, Columbus Water WorksTracy Thigpen, Coweta CountyMike Thomas, Clayton County WaterAuthorityBryan Tolar, Georgia Agribusiness CouncilAlex Tomas, Alexander Tomas andAssociatesKenneth Turner, City of GordonShana Udvardy, Georgia ConservancyRudy Underwood, American ChemistryCouncilTroy Virgo, Shaw Industries, IncJoseph Volpe, Golder Associates

AcknowledgementsBryan Wagoner, Georgia Associationof Water ProfessionalsLaura Walker, City of SavannahBurt Wallace, Wallace & Assoc., IncSheri Wilburn, Georgia IndustryAssociationDenise Wood, Mohawk Industries, IncMary Kay Woodworth, Metro AtlantaLandscape and Turf AssociationMark Wyzalek, Macon Water AuthorityJosh Young, American Chemistry CouncilStaff from state agencies involved in water planning and research ably facilitatedcompilation of material and writing for the sector information in the WCIP. Theseindividuals conducted the initial research and information compilation; they engagedrepresentatives from water use sectors; collected ideas and feedback from volunteers;and provided technical assistance throughout the drafting process. Special appreciationis extended to the dedicated efforts of:Deatre Denion, Georgia Department of Community AffairsGil Landry, University of Georgia Urban Agriculture CenterDan Loudermilk, Pollution Prevention Assistance DivisionChuck Mueller, Georgia Environmental Protection DivisionPJ Newcomb, Georgia Environmental Facilities AuthorityMark Risse, University of Georgia Biological and Agricultural EngineeringClint Waltz, University of Georgia Crop and Soil SciencesMarjorie Snook at Newfields, LLC., for technical writing and editingCreation of the WCIP involved the talents of many individuals at the GeorgiaEnvironmental Protection Division. Initial development of the WCIP was guided by thevision and expertise of Dr. Carol Couch, Napoleon Caldwell, and Gail Cowie. LindaMacGregor oversaw plan review. Alice Miller Keyes coordinated the development andprovided the final writing and assembly of the WCIP.13

Water Conservation Implementation Plan14

IntroductionCHAPTER 1:IntroductionGeorgia’s Water Conservation Implementation Plan (WCIP) is designed to foster a cultureof conservation in Georgia. It is a resource to be used by Georgia business owners,farmers, homeowners, water service providers, and government officials to achievegreater water efficiency and help sustain our state’s water resources.Historically, Georgia’s water resources have been viewed as inexhaustible. Inyears with normal levels of rainfall, Georgia’s water resources are plentiful; however,the state’s water supplies are vulnerable to inevitable drought conditions. The state’sgrowing population and economy have intensified this vulnerability, and conflictsregarding water use have arisen. Ongoing droughts, increasing demands, andconflicts over water use will require more careful management so it is possible tomeet water needs while minimizing impacts to the state’s land and water resources.Georgians face the necessity of changing the way we view our waterresources, and we are rising to meet the challenge. Georgians are becoming awareof the need to change water management practices and are more willing than ever toadjust daily routines to help conserve and sustain water resources.1 As thecommitment to sustaining water resources grows, our dependence on restrictionsand emergency water use reductions diminishes. If, for example, Georgians conservewater and use it more efficiently every day, we will be more resilient to dry conditionswhen droughts occur – minimizing the need for emergency cutbacks to maintain finitesupplies.Water conservation is defined as the beneficial reduction of water use, waterwaste and water loss.2 Conservation, implemented as a long-term watermanagement practice, is fiscally responsible and can enhance our ability to grow.Water conservation does not lower our quality of life or deter business. It can lead tomore efficient and effective business operations and help water users recognize thevalue of water. The ultimate goal of water conservation is to maximize the benefitfrom each gallon used, while not preventing water use.1“Understanding the Georgia Public’s Perception of Water Issues and the Motivational Messages towhich they will respond – Final Report.” Conducted for the Georgia DNR P2AD (currently referred toas DNR Sustainability Division) by Responsive Management. Available online athttp://www.p2ad.org/documents/wa messaging.html2Georgia Comprehensive State-wide Water Management Plan (2008). Section 2: Definitions (40) andVickers, A. 2001. Handbook of water use and conservation: homes, landscapes, businesses,industries, farms. WaterPlow Press. 446 pgs.15

Water Conservation Implementation PlanThis water conservation implementation plan (WCIP) is a resource forGeorgia’s diverse water users, regional councils, state-wide associations andorganizations, and state agencies. For most water users, the WCIP helps identifypractical ways to conserve water. For regional water councils, the WCIP helpsevaluate and identify practices appropriate for the water users within their region. Forstate-wide associations, organizations and agencies, the WCIP helps organize watermanagement efforts to achieve common goals.The WCIP is built upon seven foundational water conservation goals that willadvance the water users of the state toward greater efficiency, and will foster aculture of conservation in Georgia. This plan also outlines water conservation goalsthat are specific to each major water use sector in the state (see Chapters 2 through8 for details). All of these goals within the WCIP have been developed withassistance from state agencies and individuals from the major water use sectors.3Water in GeorgiaThe United States Geological Survey (USGS— www.usgs.gov ) estimatesthat Georgians withdrew approximately 5.5 billion gallons of water a day from oursurface waters and aquifers in 20054, enough water to fill about 15 Georgia Domeswith fresh water every day.5 This amount of water supports a state gross domesticproduct (GDP) of about 397 billion6, making Georgia the 10th largest economy in thecountry.7 Water is critical to sustaining this healthy economy and maintaining a highquality of life for Georgia citizens.The water withdrawn from Georgia’s surface waters and aquifers supports abroad range of uses, which this plan categorizes into seven major water use sectors.Although the terms water withdrawal and water use are often used interchangeably,the two have different meanings, especially across sectors. Water withdrawal isdefined as the removal of water from a natural water body, such as river, stream or3For information on the process to develop the WCIP, see Appendix B of the WCIP, and for a list ofindividuals who contributed to the process, see Acknowledgements section of the WCIP.4Fanning, J.L. and Trent V.P., 2009. Water Use in Georgia by County for 2005; and Water-UseTrends, 1980-2005: U.S. Geological Survey Scientific Investigations Report 2009-5002, 186 p., Webonly publication available at http://pubs.usgs.gov/sir/2009/5002. Estimates of state-wide water use forthose sectors not included in USGS were estimated by the Georgia EPD using water use reportssubmitted to the Watershed Protection Branch of Georgia EPD in 2007 and other sources. Details oncalculations and assumptions used in estimates are available in Appendix A of the WCIP.5Personal communication Ashley Boatman, Public Relations Specialist with the Georgia Dome.November 3, 2008.6According to the U.S. Department of Commerce, Bureau of Economic Analysis, GDP by state, or thestate’s value added, is the state counterpart of the Nation's gross domestic product (GDP). GDP bystate is derived as the sum of the GDP originating in all the industries in a state. Data available onlineat http://www.bea.gov/regional/gsp/7U.S. Department of Commerce, Bureau of Economic Analysis. Gross Domestic Product by State(GDP by State) Interactive Map. June 5, 2008. http://www.bea.gov/regional/gdpmap/GDPMap.aspx16

Introductionaquifer.8 Water use is defined as the utilization of water for natural and human uses.9This plan uses the term water use to refer to water for a particular purpose (such asirrigation, washing or cooling). Water that is used or reused may be obtained from adirect water withdrawal from a stream, aquifer or reservoir, or may be obtained from awater provider. After water is used, some portion of that water is usually returned tothe source. Consumptive use is the difference between the total amount of waterwithdrawn from a water body, and the total amount of that withdrawn water that isreturned to that same water body over a specified period of time.10Throughout our state’s history, Georgia’s diverse water users and stateeconomy have benefited from opportunities to withdraw water to meet growingdemands. Between 1980 and 2000, Georgia’s population grew from 5.5 to 8.2 millioncitizens, 11 about a 50% increase. Over the next 20 years, Georgia’s population isprojected to continue this trend of substantial growth.12 With Georgia’s projectedpopulation and economic growth, we can expect greater demands and withdrawalsfrom our water resources.While abundant, Georgia’s water resources are finite. Improperly managedwithdrawals and excessive consumptive use can negatively impact Georgia’s waterbodies, our water uses and the environmental services our waters provide. Becausedrought occurs in Georgia, proper management of water withdrawals is important tohelp optimize flows in rivers and streams. Due to extreme drought conditions, manyof Georgia’s rivers, streams and reservoirs are currently, or have recently been, atrecord lows.13 When stream or reservoir levels fall or when the volume of waterflowing in streams decreases substantially, water bodies lose their capacity to diluteand assimilate pollutants, like wastewater and toxins. This can, in turn, increase thecost of treatment for human use and increase the threats to aquatic and riparianecosystems.Looking ahead Georgians must change the way we use water every day andimprove how we manage our water resources. By prioritizing efforts to conservewater and maximize water efficiency, we can protect our finite resources withoutcausing harm to the economy or the quality of life that current and future Georgiansenjoy.8See O.C.G.A. Section 12-5-31Georgia Comprehensive State-wide Water Management Plan (2008). Section 2: Definitions.10Georgia Comprehensive State-wide Water Management Plan (2008). Section 2: Definitions11U.S. Census Bureau - http://www.census.gov/12Nelson, A. C. 2004. “Toward a new Metropolis: The Opportunity To Rebuild America.” VirginiaPolytechnic Institute and State University. A Discussion Paper Prepared for The Brookings InstitutionMetropolitan Policy Program. December, 2004. 51 pgs.13National Weather Service http://www.srh.noaa.gov/printable.php?pil DGT&sid FFC&date 2009-0311%2020:16:27 and USGS Real Time Water Data for Georgia http://waterdata.usgs.gov/ga/nwis/rt917

Water Conservation Implementation PlanBenefits of Water ConservationWater conservation is no longer considered an incidental component of watermanagement. Case studies, research projects and programs throughout the worldhave documented that water conservation is a powerful demand management toolthat can extend the life of existing supplies, eliminate the need for costly new orexpanded supplies, lower water treatment costs, and preserve water for recreationaland environmental needs and future economic development or environmentalopportunities.14The ultimate goal of water conservation is not to prevent water use, but tomaximize efficiency and the benefit from each gallon used. Efficient water use isconsidered the minimal amount of water that is technically and economically feasibleto achieve an intended water use function.15 Efficient use can be maximized byimplementing water conservation efforts to 1) reduce water waste, which is water thatmeets an intended use, but may not be considered efficient; 2) reducing water loss,which is water that does not make it to an point of intended use, usually due to leaksor faulty equipment, and 3) reducing efficient water use, which when necessary, canbe accomplished through the use of new or high-efficiency technology or changingwater-using behavior. The diagram below demonstrates the general is generalrelationship.Diagram 1A – Water use intended water use (efficient water use waterwaste) water loss.Water WasteWaterUseIntendedWater UseEfficient Water UseWater LossThough conservation does entail some expense, it is a highly cost-effectivewater management practice when compared to major structural practices such asbuilding reservoirs, transferring water and boring new wells. To experience the arrayof benefits water conservation offers, it should be fully integrated into a mix of water14U.S. EPA. 2002. “Cases in Conservation: How Efficiency Programs Help Water Utilities Save Waterand Avoid Costs.” Office of Water EPA832-B-02-003. 2002; Pacific Institute. 2003. Waste Not, WantNot: The Potential for Urban Water Conservation in California www.pacinst.org; AwwaRF and U.S.EPA 2007. Water Efficiency Programs for Integrated Water Management. www.awwarf.org15Georgia Comprehensive State-wide Water Management Plan (2008). Section 2: Definitions, (47)“Water use efficiency”18

Introductionmanagement strategies and implemented as a cost-effective, long-term watermanagement practice.The benefits of water conservation are realized on several levels. Businessescan streamline operations and reduce operating costs through water-conservingtechnologies. Water providers can significantly reduce water treatment andproduction costs when investments are made to address water lost within theirtreatment and del

Brian Kiepper, University of Georgia Wayne King, Georgia Green Industry Association Katie Kirkpatrick, Metro Atlanta Chamber of Commerce Ed Klaas, Georgia Irrigation Association Georgia Department of Georgia Department of