BRINGING WATER AND LAND USE TOGETHER

Final Report to the Community Foundation Water Initiative on the Equitable Integration of Water and Land Use

Prepared by The Local Government Commission

January 2019

Local Government Commission Leaders for Livable Communities CONTENTS Executive Summary ...... 1 Defning The Challenge, Identifying Opportunities ...... 1 Equity Considerations ...... 2 Statewide Challenges ...... 2 Regional Diversity ...... 3 Statewide Recommendations ...... 3 Regional Recommendations ...... 4 A Strategy For Achieving Integration ...... 5 V. Introduction ...... 5 Impetus For The Project ...... 5 Background On The Issue ...... 6 Water, Land Use And Equity ...... 7 Situation Analysis Methods ...... 10 VI. Status Of Current Water And Land-Use Integration ...... 14 Challenges And Barriers To Statewide Integration ...... 14 Regional Integration ...... 17 The San Francisco Region ...... 18 The Silicon Valley Region ...... 18 The Central Valley Region ...... 19 The Los Angeles Region ...... 20 The San Diego Region ...... 21 VII. Case Studies ...... 22 Community Engagement ...... 22 Collaboration ...... 23 Planning ...... 25 Funding Strategies ...... 27 Infrastructure ...... 27 VIII. Opportunities And Recommendations For Improving Water And Land-Use Integration ... 28 Statewide Opportunities ...... 29 Statewide Recommendations ...... 30 Statewide Policies For Equitable Integration ...... 35 Regional Opportunities & Recommendations ...... 36 i IX. Bringing Water And Land-Use Together: How To Make It Happen ...... 41 Similarities And Common Ground Across Regions ...... 41 Major Variations Between Regions ...... 42 Greatest Needs Across The State ...... 43 Immediate Next Steps ...... 44 Endnotes ...... 52

ii Bringing Water And Land Use Together EXECUTIVE SUMMARY Defning The Challenge, Identifying Opportunities California is moving toward a more holistic approach to managing our water and land Our current system is failing us. The disconnect resources as the 21st century unfolds. This between how our communities are organized perspective recognizes the interconnectivity and how our natural resources are managed between two traditionally fragmented sectors. is not only inefcient, but harmful to people and nature. Reconnecting water and land In 2005, the California Legislature passed use will ensure vibrant, resilient communities new laws that enable communities to join for all. Unfortunately, the disconnect is far together to adopt Integrated Regional more common across the country than the Water Management (IRWM) policies and integrated approach we so desperately need. practices. This comprehensive planning approach considers water resources in the The obstacles to better alignment are varied. context of an interconnected watershed Population growth and economic development with a network of regional governance, drive political boundaries, institutions and rather than as a combination of fragmented policy. Water supply is critical for economic parts. Unfortunately, the IRWM program is development, but water management tends to dominated by the water sector and in most run on shorter cycles and in response to – not regions has not pursued alignment with land in collaboration with – economic and land- 1 use. use planning. Strong political forces behind housing, production and energy industries Similarly, the Sustainable Communities often confict with ecological water supply Strategies (SCS) mandated through [legislation] and water quality needs.2 Those political establish a framework for aligning land boundaries and institutions are often at use practices (predominantly housing and odds with interdependent hydrologic and transportation) across jurisdictions within a ecologic functions.3 Despite the importance of larger geographic region. Yet very few SCSs integrated water management and land-use have taken water resources into account. planning, these factors illustrate the difculty in accomplishing this goal. While water management and land-use planning remain highly fragmented across Policies that favor sprawl development, the state, we are making progress toward a along with a lack of attention to the natural more integrated approach, especially when functions and limits of our environment, setting new state-level policies, regulations and often lead to degraded ecosystems, guidance. The 2014 Sustainable Groundwater unsustainable communities and exacerbated, Management Act (SGMA) is a leap forward disproportionate impacts on communities in this direction. For the frst time, local land already experiencing disadvantages. use agencies have an opportunity to be full partners with water agencies in shaping Disregard for interconnected systems has groundwater governance. It is too soon to led to segregation of land-use planning determine how well these two sectors are agencies and water management agencies integrating under SGMA, but early results are statewide. Yet, there is a growing awareness promising. and interest in alternative approaches, such as smart growth, integrated regional water management, green infrastructure and “multisolving.”

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“Multisolving” – also known as “multiple beneft and limits the implementation of integrated solutions” – refers to fnding solutions that solutions. Public and private entities compete address multiple issues or priorities with one with one another, instead of coordinating intervention or action, in which multiple sector eforts to maximize overall and shared or interested parties are needed, and each benefts. Developing a coalition of leaders voice matters equally. Multisolving is fexible – for integration, both within and across each it can start small, then scale up in size or out in of California’s major regions, will help realign geography. priorities, shift behavior, and change the existing segregated approach to planning. Climate Interactive, an NGO based in Washington, DC, coined this term as a way Limited Natural Resources to describe acting on climate change while California’s economy and population continue making your community more attractive, to grow at alarming rates. Natural resource livable and equitable.4 This term will be used availability so far is keeping up with demand, throughout this report in place of “multi– much thanks to human ingenuity and beneft” or “multi-purpose.” advances in technology. But these resources are fnite, and must be carefully managed. Equity Considerations Water is a limited resource. California’s The negative impacts of segregated and complex hydrology coupled with its incredibly misaligned planning are not distributed evenly fragmented water governance system across California’s communities. Integrating limits how much water is available to each water management and land-use planning community at any given point in time. is critically important to the resilience of our Conservation, efciency and reuse enable state, but must be achieved through actions regions to grow without increasing water that enhance equity. demand and still provide a reliable supply Inequities arise in the context of all to most of the state’s residents. Yet many public services – here, they often include underserved California communities face toxic pollution that hovers over some regular water shortages or water quality neighborhoods because zoning codes allowed disruptions. If current water infrastructure residential development next door to industrial is not adequately meeting the needs of all facilities; residential water and wastewater Californians, this begs the question of how the pipes skirt a community because the city state will meet future demand. that provides the water and wastewater Land is also a limited resource. Much of services chose not to annex the neighboring the state’s developable acreage is in high community; new towns sprout up where demand for future growth, which threatens existing communities lack basic infrastructure. the protection of agriculture, open space and Equitable planning and management can help natural ecosystems. Smart-growth practices existing communities thrive by giving them and infll development, on the other hand, a voice in decision-making processes and provide signifcant long-term benefts for providing neighborhood amenities such as community resilience and vibrancy. parks and green spaces for all residents. Reaching A Shared Perspective Statewide Challenges A critical component for efective coordination is establishing a set of shared principles, Leadership For Integrated Solutions knowledge and thinking about problems and Overlapping jurisdictional boundaries and opportunities. Technical terminology can stand authority creates tension between sectors 2 Bringing Water And Land Use Together in the way of meaningful conversations, as ¡ population density infuences on housing shared language is essential to more informed strategies; decision-making. Although water and land ¡ use are intrinsically connected, they are often overall cost of living; distinctly separate sectors among government ¡ local water quality and supply factors; and agencies and ofcials who each have their own vocabulary, perspectives and beliefs. ¡ current status of coordinated planning. Traditional sector–based approaches threaten Each of these components are expanded equitable, efcient water and land-use on in the full report; these factors must planning. This mindset is passed down through be considered when determining the best institutions, continuously impeding integrated opportunity for integration or specifc planning eforts. recommendations to pursue. Regional Diversity Statewide Recommendations Eforts to integrate water and land use This report is based on a review of existing must be tailored to the specifc needs and literature, analysis of various policies, priorities of each region. No single, one-size- conversations with countless water and fts-all approach will succeed in every region. land-use experts, and an evaluation of the Important distinctions exist between regions principles and opportunities outlined above. that will afect the guiding principles and Four general recommendations emerged to best practices of local water and land-use provide opportunities that can signifcantly integration. The greatest variations between afect the potential success of integrating regions that impact water and land use water management and land-use planning, integration include the following: while also being politically feasible in a number of situations:

Statewide Recommendations

Upgrade existing infrastructure before building new.

Coordinate land, water, food, fre & climate planning.

Align data and analytics for regional land use & water. Multi-solve through local green infrastructure.

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1. Prioritize infrastructure investments that 3. Incentivize or require cross-sector, support existing communities, especially coordinated planning and management underserved communities, before new of land use, water, fre prevention, food development. mitigation and climate adaptation. 2. Ensure state and local investments are 4. Require additional sophistication and directed toward multi-solving through alignment (better data and analytics) green infrastructure projects developed of growth projections and coordinated at local scales with robust community regional planning for both land-use engagement. planning and water-management agencies at the watershed scale. Specifc action at multiple scales is Regional Recommendations necessary to achieve progress on these four recommendations. More context and activities for each recommendation are outlined further Advocate for water access and afordability for underserved communities. in this report. Regional Recommendations Some actions are more efective when applied at the local or regional scale. Recommendations for community foundations, local agencies and other Develop local leadership in the water and land use sectors. interested parties to implement at the local level to achieve better integration of water and land use include:

¡ Advocate for water access and afordability for community members facing disadvantages. Provide venues for regional leaders to collaborate on water & land use projects. ¡ Provide venues for local leaders in both the water and land-use sectors to interact with one another (to build relationship, share ideas, and eventually collaborate). ¡ Develop regional leaders in both the water and land-use sectors and provide Build political will for alignment between equity, water, and land use. opportunities for them to interact with one another. ¡ Build local political will and understanding around water and land-use integration by Achieve water and convening and educating local leaders. land use integration!

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A Strategy For Achieving Integration These foundations have been advancing Despite the many challenges and barriers social equity, community education and civic to integration, opportunities abound in the engagement, youth empowerment, economic Golden State. Policymakers and practitioners opportunity, public health and environmental are beginning to acknowledge that something sustainability within their communities for needs to change in our state’s collective water decades. They possess the credibility and management and land-use planning. capability to advance progress on complex issues within their region and across the state. California’s community foundations, NGOs and advocacy groups have proven experience in Building on this record, these fve foundations, building partnerships and developing political in partnership with the Bechtel Foundation, will to address local challenges. Interested are striving to build durable capacity stakeholders can leverage these existing skills and institutional knowledge within the to foster water and land-use integration. philanthropic sector to engage in sustainable water management eforts throughout The most efective strategy will be a three- California. pronged approach: (1) engage local elected ofcials (city councils and county commissions) Each partner foundation recognizes the varied who have the decision-making authority, using efects that water has on their communities, state-government guidance and regulatory and approaches the topic from their unique frameworks; (2) educate and empower local institutional perspective. Some focus on residents and businesses to push for better climate adaptation programs, while others integration; and (3) endow water and land- emphasize equity, agriculture, land-use or use practitioners with funding and incentives housing priorities. to do the difcult work of collaborating and Foundation partners connect in person on a integrating their operations quarterly basis to share progress and lessons learned from their individual eforts, and V. INTRODUCTION explore ways to connect local and regional eforts for broader statewide impact. Impetus For The Project Integrating water management and land-use In 2015, the S. D. Bechtel, Jr. Foundation planning emerged as a shared interest area launched the Community Foundation among the Community Foundation Water Water Initiative to build the capacity of Initiative members. The cohort commissioned local foundations to better engage in water this report to help identify and pursue issues within their communities. A handful opportunities at the intersection of integrated of community foundation partners agreed water management and land-use planning to participate, working individually and that advance equity, regional economic collectively to advance sustainable water development, climate adaptation, housing and management solutions. transportation planning. The Community Foundation Water Initiative’s Through this efort, the Community partners currently include The San Francisco Foundation Water Initiative and its members Foundation, the Silicon Valley Community are gaining a robust understanding of water Foundation, the Central Valley Community management needs and opportunities for Foundation, California Community Foundation improved integration with land-use planning (Los Angeles) and The San Diego Foundation. at local, regional and statewide levels. By advocating for and investing in eforts that 5 Bringing Water And Land Use Together efectively integrate water management wasteful actions that result have been well and land-use planning, local community documented.7 foundations will help make all of California’s communities more equitable and resilient. The past half-century of segregated planning and management eforts have led to This report identifes strategies for community innumerable negative impacts to our natural foundations and other local leaders to resources, community health, social well-being leverage the multiple benefts of an integrated, and collective resilience in the face of climate collaborative planning approach. These results change.8 beneft the project’s community and agency stakeholders, and will have a “scaling up” efect As the volume and distribution of water to infuence regional and statewide practices. supply, in particular, becomes a more pressing resource-management issue both locally and Rather than replicate existing reports and regionally (across the state and around the analyses, we seek to connect all of the nation), more attention to integrated planning work already being done at the regional is needed. and state level. This situation analysis and Current Status: How Things Look Now strategy development will help position local community foundations to ignite better The disconnect between water and land use is integration of watershed-scale land-use often framed as a technical problem. However, planning and water management. it is also a political and cultural problem in many parts of the state. Background On The Issue The authority of cities and counties to regulate History: How We Got Here land use in their own jurisdiction is deeply Many experts see the disconnect between anchored in California history and cherished water resources management and land-use by local communities. Local governments focus planning as a signifcant barrier to long- on sustaining a strong economy through land- term community resilience. This divide has a use decisions that contribute to development, long history, beginning with post-World War which in turn generates local government II-era community design that emphasized revenue to cover the costs of community accommodating cars and widespread services. migration to sprawling suburbs.5 Meanwhile, water-management agencies Natural resources management and operate within their own authority, making planning accommodated this urban shift decisions about water-infrastructure by segregating into unique specialties, and investments, pricing and other elements regulatory structures followed suit.6 An era of within their purview to maximize their ability decentralization resulted in a multiplicity of to deliver water and/or treat wastewater (and specialized agencies, departments and bodies thus generate revenue to cover their service of law for each domain – ranging from water costs). Despite overlapping jurisdictions supply and wastewater to transportation, and competing priorities, few governance housing and urban planning. structures or regulatory requirements currently exist to align water management and This formal diferentiation between planning land-use planning. and management philosophy and practice inhibits collaboration and mechanisms The benefts of water and land-use for reaping co–benefts. The inefciencies, coordination are as numerous as the negative duplications, conficting policies, and impacts of the existing fragmented approach.

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Prior research has demonstrated two key down approach mandated by state agencies benefts: (1) improved cost-efectiveness and or completely bifurcated between specialized outcomes for planning and management sectors. of water quality and supply, and (2) better distribution of water between ecosystem and The current political and cultural atmosphere consumptive uses.9 favors a myopic view of challenges and single- issue immediate solutions. As a result, we In recent years, however, the land-use need additional capacity-building in leadership, planning and natural-resources management education and policy change. sectors have undergone a cultural shift toward integrated, collaborative planning. Leaders in Deeply intertwined issues require an water resources and urban planning are calling integrated-systems approach to solutions. for a return to the holistic management of our Through collaboration and integration, water and land resources. “Water should be a practitioners can gain a better understanding core planning theme if we are to be efective of water availability and impacts of in addressing the needs of communities in development (population growth, economic today’s world,” according to the American development and urbanization). They will Planning Association’s Water Task Force.10 then be more likely to choose smarter urban-planning options to decrease negative This approach is gaining momentum and impacts on our natural resources, such as recognition in California, due in part to a infll development, urban water use efciency, heightened sense of urgency as a result of conservation and reuse structures, and climate change, the state’s growing population, preserving open space.12 Local integration can and mounting equity concerns. Integrated then inform state policy. solutions are being implemented across the state, both arising organically and in response Now is the time for community foundations to new policy drivers, such as the Integrated to embrace opportunities for advancing Regional Water Management, Sustainable integrated water management and land-use Groundwater Management Act and the planning. There is no simple solution or single environmental-justice element of city and approach to accomplish this goal. It will take county General Plans. a collection of many actions at multiple scales to equitably integrate water management and Moving Forward: Where We’re Headed land-use planning. As leaders in the integrated Despite recent advancement toward water-management are fond of saying, “There’s integration, there is still a lot of work to be no silver bullet, but a lot of silver buckshot.” done. A comprehensive planning approach at the watershed scale is needed to address Water, Land Use And Equity our natural and built environment as a socio- The Local Government Commission uses the ecological system rather than a collection broad defnition of “equity” based on work by of disjointed parts.11 Water and land-use the D5 Coalition, Racial Equity Tools Glossary management inherently refects geographic and UC Berkeley: diferences, dominant ideologies, political preferences, economic conditions and “Equity is the fair treatment, access, available technology. Thus, the appropriate opportunity, and advancement for all people, scale for change is at local and regional while at the same time striving to identify and levels. Implementation strategies that refect eliminate barriers that have prevented the full watershed-scale processes and conditions will participation of some groups.” be far more efective than a standardized top- 7 Bringing Water And Land Use Together

The equity lens in the context of the report’s Land-use and water-management decisions situation analysis involves each community’s have been infuenced by bias and institutional access to resources, a meaningful voice in racism for generations. Those factors limit the decision-making, and the fair distribution of access of some groups to natural resources, both benefts and negative impacts from the social capital and decision-making, while jurisdiction’s water and land-use practices. disproportionately benefting others. Equity considerations are especially focused on changing water and land-use consequences Planning and decision-making through an for historically disenfranchised and equity lens helps ensure that all communities underrepresented communities. are represented in the planning and decision- making process, and that they will share in California acknowledges that government the benefts from the results. Decisions that action, at both the state and local level, should include an equity lens include (but is necessary to mitigate the potentially are not limited to) development patterns, catastrophic impacts of climate change and afordable housing, fair zoning, infrastructure ensure our communities are resilient enough investments, and adequate water and – and equitably resilient – to adapt to changing wastewater services. conditions. While climate leadership at the federal level is stalled, Californians and their State agencies, local governments, elected leaders are embracing the need for and engaged stakeholders must work strong climate policy. together to address persistent inequities from past decisions, and the subsequent California continues to experience strong inequitable burden these decisions place economic growth while maintaining its on underrepresented communities. State ambitious climate policies. Yet, this economic agencies can improve equity by establishing growth is not evenly distributed across the policies that direct benefts to communities state or its communities. The income gap is facing disadvantages through funding and growing, and cost of living is increasing at an technical assistance. For example, we must alarming rate. prioritize workforce development that benefts residents and policies that prevent Although the average Californian earns 11% displacement. more than their counterparts in the rest of the nation, the state’s cost of living is also Increasing access to opportunity will decrease disproportionately higher, including mortgage the equity gap and help create a resilient payments that are 44% higher.13 future for all of California’s residents. Perhaps the two greatest inequities facing California Income disparities and afordability are at the are: the housing-afordability gap and the forefront of social justice, and closely tied to human right to water. water and housing afordability. Economic development is heavily infuenced by available Communities across California, large and resources and decisions governing how those small alike, are in a housing crisis. Experts resources are used. Who benefts from water say California must build 100,000 more management and land-use decisions, and the houses per year to meet demand. Afordable economic development associated with these housing is especially lacking in the state, decisions, is the heart of the water/land-use/ most acutely in economic centers such as the equity nexus. San Francisco, Silicon Valley and Los Angeles regions. Statewide, California is 1.5 million

8 Bringing Water And Land Use Together housing units short of what it needs, a defcit underrepresented. African Americans are more that makes it extremely difcult for low-income than twice as likely as whites to live without community members to fnd housing they adequate plumbing. Rural, unincorporated and can aford. As their cost of living increases for tribal lands, in particular, often lack basic water housing, transportation, food and other basic and wastewater infrastructure.14 needs, many residents can no longer aford to live in the communities they’ve called home. “Those already burdened by economic, environmental, or health challenges Local governments are struggling to recruit are especially vulnerable. Typically, low developers to build more afordable housing income, communities of color, children, in their communities. As public agencies and and the elderly. The impacts of water developers rush to meet housing demand, stress on physical and mental health, there is a signifcant risk that this new housing child development, and economic mobility stock will follow a sprawl-development pattern, are cumulative, and often compounded rather than meeting the sustainability targets by underlying challenges such as poverty needed to ensure community resilience – and unemployment – two other common such as development that is compact, infll, symptoms of institutionalized racism and walkable and close to transit, and preserves injustice.” permeability and green spaces. – U.S. Water Alliance15 Sprawl patterns reinforce existing inequities by contributing to longer commute times, poor air Communities cannot recruit new businesses quality, increased food risk from stormwater to promote economic growth or expand their runof and increased water costs. Here, we see supply of afordable housing to accommodate how housing and water are inextricably linked. population growth without an adequate and Communities can’t grow without reliable water reliable water supply. Communities that supply, while communities with inadequate lack fnancial resources to invest in water housing often also have inadequate water and infrastructure or purchase water supply from sewer services. other regions will continue to struggle, while communities with sufcient funding to ensure California was the frst state in the nation to adequate water for growth will continue to legislatively acknowledge the “Human Right to grow and thrive. Water.” Assembly Bill 685 requires safe, clean, afordable and accessible drinking water for Communities with restricted resources – the state’s nearly 40 million residents. disproportionally rural or communities of color – also struggle to invest in land-use Though state law recognizes this basic human projects like creekside parks or stormwater right, it does not codify how to meet the needs infrastructure that will improve the quality of of California’s more than one million residents life for residents and preserve clean water for currently lacking access to safe and reliable the ecosystem‘s fora and fauna. Elsewhere, drinking water, or the 1.7 million Californians California’s afuent urban and coastal who don’t have complete plumbing facilities. communities have the resources and the political will to invest in water-infrastructure Not surprisingly, the people without water projects to ensure continued economic growth access often live in the same communities and meet their housing demand. that have been historically disenfranchised or

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The housing-afordability crisis and the coordinated a leadership cohort of local water disparities of water access are closely boardmembers to address the Human Right intertwined inequities that will require great to Water in the San Joaquin Valley. This model efort and better coordination between could be used at the statewide level to improve community advocates, local governments, transparency and accountability of decision- state agencies and policymakers across the makers, encourage information sharing, and state. ensure active participation in the processes that directly afect communities throughout The imperative for equity is gaining emphasis the state. in both public policy and social consciousness. Eforts like these help ensure accountability, This shift is exemplifed through California’s while also identifying existing inequities that Human Right to Water Bill (AB 685), the must be resolved. Successful implementation addition of environmental justice as a will require building trust among historically requirement of the General Plan guidelines underrepresented and underserved (SB 1000) and CEQA’s Tribal consultation communities, building broad coalitions, and requirements (AB 52). investing in water and land-use projects that Despite this progress, more resources refect the voices of all afected parties. and cultural shifts are needed to reverse Situation Analysis Methods institutionalized bias and inequities, and more adequately meet the needs of Purpose And Goals disadvantaged, underserved communities. Beyond conducting a situation analysis and Low-income communities and communities providing recommendations to the Community of color are at greatest risk for economic Foundation Water Initiative, our ultimate and health consequences of climate change. goal in conducting this work is to establish Policymakers must be purposeful in working integrated water and land-use planning as the through an equity lens to implement climate- norm across California. This efort can help resilient policies that don’t exacerbate existing create a bridge between regional situation inequities. analyses, best-practice case studies and scaling-up integration to statewide action. California has an opportunity to address these historic inequities. Water and land-use The Local Government Commission followed decisions are critical components to ending a mixed-methods applied research approach the cycle of poverty and injustice, and can be to identify the primary challenges and barriers primary catalysts for change. State policy that that prevent integration across sectors, and to requires equity in all policies (especially water develop recommendations with the greatest and land-use policy), along with guidance to potential for improving integration between implementing local and regional agencies, will water management and land-use planning in help prevent inequitable policymaking in the California. future. Research Approach Scaling out local equity campaigns and Our approach begins with a literature review grassroots projects, such as the Community and synthesis of the best available ideas about Water Center’s Community Water Leaders integrated water management and land-use Network will help hold local institutions planning, as well as known implementation accountable, while also identifying existing obstacles. With this foundation of knowledge, inequities that must be resolved. The we conducted interviews and focus groups Community Water Leaders Network has with water and land-use experts across 10 Bringing Water And Land Use Together the state to further identify specifc local CalEnviroScreen analyzes environmental, challenges, exemplary case studies and a health and socioeconomic information to menu of potential solutions. We then distilled produce scores for every census tract in the the most efective tools and strategies for state. The tool allowed us to select cities that overcoming the key challenges to integration included the most burdened census tracts at both regional and statewide levels. (95-100th percentile), least burdened (in the 1-5th percentile) and average areas (50-55th Background Research percentile). The Local Government Commission used the existing body of literature, including the The planning-document database includes organization’s own institutional knowledge, links to relevant water management and to inform each phase of the project, such as land-use planning documents for each of the determining interviewees, developing interview selected “representative” communities. Each questions, evaluating planning documents, planning document was reviewed to evaluate and identifying themes for data coding and the degree of collaboration, the degree of analysis. As part of the literature review alignment and to identify opportunities process, we created a compendium of more for integrated planning. The results were than 50 documents relevant to water and land- incorporated into the “current status of use integration. integration” and “strategies, opportunities, and recommendations” sections of this report, as This resource, which includes research reports, well as the fve regional profles. journal articles and guidance documents, is organized by media type and subject area, Our more detailed analysis is included in the and provides a description of the content appendix for reference. and a weblink to the item. This free, curated Creating Regional Profles database will be available as a public resource to help advance water and land-use integration The Local Government Commission compiled across the state, making it easier to share on key features of each part of the state into fve foundation websites and other digital media. regional profles – one for each community foundation partner – as well as online Evaluating Planning Documents story maps. These documents include local The Local Government Commission compiled a demographics, water-management and land- database of all the counties and municipalities use planning data, and information gleaned within each of the fve community foundation from expert interviews and focus groups about regions. This database will also be available to inequities, integration challenges, strategies the public as a reference document. In each and opportunities, and key recommendations. region, one representative county and three representative cities were selected to conduct Information from these profles is integrated an evaluation of major planning documents. throughout the report, and they also supplement this report as stand-alone We used CalEnviroScreen 3.0 scores to identify documents. Brief case studies are included in communities that are disproportionately both the regional profles and this report; they burdened by, and vulnerable to, multiple highlight positive examples of water, land-use pollution sources. and equity integration across the state. These case studies illustrate real-life scenarios that address integrated planning, and add context to this research.

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TABLE 1: CODES USED IN DEDOOSE ANALYSIS

Categories

Case Study Opportunity Strategy Challenge/Barrier Recommendations Need Resource

Themes

Accountability Governance and/or Representation Multiple Benefts Capacity Incentives Planning Collaboration Infrastructure Policy Coordination Integration/Alignment Public Engagement/Education Data and Information/Research Jurisdiction Regulation Disadvantaged Communities/Equity Language Relationships Economics Mindset/Conceptual Understanding Technical Assistance

Topics

Afordability Growth Schools Agriculture Habitat Skills Climate Housing Specifc Plans Conservation and Efciency Implementation Stormwater Development Monitoring Transportation Dialogue/Communication Jobs Unincorporated Areas Drought Land Use Wastewater Economic Leadership Development Water Quality Flood Legislation Water Supply Groundwater Reliability

Please note: Some case studies showcase Conducting Expert Interviews And Focus examples from outside the geographically Groups designated region, but were included because The Local Government Commission conducted the strategy and context are relevant to several interviews with 29 water and land-use experts regions. These too will be available on our and practitioners from across the state to gain website (www.lgc.or/water-land-use) as a free in-depth insights into local water-management resource to further advance water and land- and land-use conditions for each region, as use integration. well as to explore primary challenges and possible solutions to improve integration.

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We talked with two water experts and two We were open and receptive to the voices of land-use experts in each region. Interviewees foundation representatives when determining included practitioners from jurisdictions with coding criteria and analyzing the results. Data exemplary programs and processes that can was frst coded into general categories, then serve as models for other communities, as recurring themes, and fnally into specifc well as from communities needing additional granular topics (see Table 1 below). support to encourage equitable integration. Categories, themes and topics are completely Three focus group discussions supplemented independent of each other, rather than these interviews, and were held during corresponding to one another in a hierarchy. important statewide events to leverage This approach allowed for the greatest opportunities to bring together many complexity in analysis. community leaders around this topic. Codes were analyzed for several factors, Analyzing The Data including high and low frequencies, ratios, All interview and focus group data were co–occurrences and descriptors. This imported into Dedoose, a sophisticated analysis generated case studies, challenges/ qualitative-research application, and barriers, opportunities, strategies and analyzed using coding methods to identify recommendations to highlight for each region commonalities across regions, recurring and the state as a whole. We then relied on themes and possible strategies for improving institutional knowledge and expertise gained integration. Coding criteria were informed by through our research to interpret and present the literature review, background research and the research fndings. institutional expertise.

Governance & Economics Representation Policy Planning Coordination Integration & Alignment $

Figure 1. Top 5 themes from all data analysis 13 Bringing Water And Land Use Together

Data exports from Dedoose (charts, tables In 2005, the California Legislature passed and plots) are included in the appendix for new laws that enable communities to join reference transparency. together to adopt Integrated Regional Water Management (IRWM) policies and practices. The same fve themes emerged across all data This comprehensive planning approach sources in our analysis, including planning; considers water and related land resources as governance and representation; coordination; an interconnected regional system rather than economics; and policy integration and as a combination of fragmented parts. alignment. These themes ofer the greatest challenges or need for water and land-use Local jurisdictions across the state convene integration. Conversely, these themes also as Regional Water Management Groups provide the greatest opportunities for positive to implement their plans. Anticipated and impacts if the integration of water and land realized benefts of IRWM include improved use is to be achieved. These are the areas in cost efectiveness and outcomes for planning which foundations and other stakeholders at and management of water quality and supply, the state, regional and local scale should focus as well as better distribution of water between their eforts. ecosystem and human uses. Although “equity” was highly recurring in the While water management and planning remain analysis, this is primarily due to the Local highly fragmented across the nation, several Government Commission’s guiding questions. states are moving toward this more integrated Most interviewees didn’t raise the topic unless approach, especially when setting new state- frst prompted by the interviewer. Responses level policies, guidance and regulations. sometimes revealed a lack of awareness or At least 20 states currently have some inclusion of equity considerations. Thus, it sort of watershed-oriented organizational can also be inferred that more education and structures,16 and others are following suit. In advocacy is needed in both the water and land- California, examples include the Integrated use sectors to better inform practitioners and Regional Water Management program and the stakeholders of relevant equity considerations. Sustainable Communities Strategy processes. These eforts have been successful in at least Within these themes, the highest-ranking some regions. SGMA is still in its early stages of topics – in order of priority – were water implementation, so results are yet to be seen. supply, development, land use, water quality, groundwater, growth, housing, Challenges And Barriers To Statewide afordability, dialogue and conversation, and Integration implementation and monitoring. Many of the report’s recommendations center around Integrating water and land-use decisions these topics. may easily be misconstrued as simply a matter of cross-sector collaboration. However, integration (or the lack thereof) VI. STATUS OF CURRENT WATER are deeply rooted in past decision-making that purposefully divided water and land-use AND LAND-USE INTEGRATION management conversations. This has set the California is moving toward a more holistic stage for a deeply decentralized system in approach to managing our water and land which water and land use are systematically resources as the 21st century unfolds. This isolated from one another. perspective recognizes the interconnectivity For example, discussions with various state between two traditionally fragmented sectors. experts noted that there are contrary attitudes 14 Bringing Water And Land Use Together about the efectiveness of General Plans to maximize overall and shared benefts. among water and land-use planners. Local Developing a coalition of leaders for governments who adopt the plans tend to view integration – both within and across each them favorably as dynamic tools for planning major region of the state – will help realign and land use because city councilmembers or priorities, shift behavior, and change the county supervisors have the ability to approve predominant institutional culture of California’s general plan amendments. water managers and land-use planners. On the other hand, local residents and Constraints Of Limited Natural Resources environmental advocates often voice Growth is outpacing resource availability in frustration with their local government both the water and land-use sectors across the not implementing the general plan, and state. Communities tend to forget that water amendments are made without adequate is a fnite resource: Only 1% of the freshwater representation of all afected stakeholders. in the world is readily available for use. In addition to the geologic limitation of water, Some interviewees even sited the negative California’s complex hydrology coupled with impacts on their communities from strong its incredibly bifurcated water-governance relationships between decision-makers system limits how much water is available to and particular developers, and the political each community at any given point in time. maneuvering that ensues. This illustrates the California’s current water infrastructure is importance of more efective governance and not adequately serving the state’s current representation. population, which begs the question of how Four primary areas of difculty currently the state will meet its future residential, prevent efective integration of water and commercial and ecological needs. land use: the need for strong leadership; Conservation measures and efciency constraints caused by limited natural improvements have decreased per-capita resources; the socio-political mindset of water water use, but overall demand still challenges and land-use practitioners; and limitations in supply. Improved efciency often raises funding to support integration. concerns of “demand hardening” – the The Need For Leadership concept that water use has been cut to the Achieving social, economic and environmental minimum, so there is little fexibility to reduce equity while integrating water management demand further. For example, a farmer is and land-use planning requires a commitment so efcient with her water use that she is from leaders at all levels – and a commitment only using the exact amount her crop needs. in spirit and a tangible application of capacity, If she is forced to reduce water use, her education, resources and incentives. crop will die and she will lose her economic investment. Yet research and experience Collaboration and coordination between to date counterargues this concern. Water sectors is not adequately incentivized, conservation and efciency eforts reduce which prevents important and necessary waste in the system and set more realistic conversations from occurring. Overlapping water use targets. jurisdictional boundaries and authority creates tension between sectors and limits the Diminishing resource availability due to implementation of integrated solutions. population growth and human-induced pollution restricts access to a basic human Public and private entities compete with necessity – safe drinking water. Concurrently, one another, instead of coordinating eforts water agencies set water rates based on 15 Bringing Water And Land Use Together projected demand. If less water is used, the The growing intensity and urgency of wildfres water agency experiences a revenue loss. further accentuates the divergence between water and land use, as communities grapple California’s water-fnance system therefore with the challenge of rebuilding and water creates a disincentive to conserve. If water agencies must provide water infrastructure for agencies then increase rates to cover their those communities. defcit, these costs are distributed evenly across their customers, regardless of ability to Without equitable institutional controls pay, causing signifcant afordability inequities. in place, the limitations on California’s natural resources will further divide water Land is also a limited resource. California management from land-use planning. encompasses more than 163,000 square miles of mountain, foothills and fat plains, Reaching A Shared Perspective all of which are depended on for ecosystem A critical component for efective coordination services, industry and urban development. is establishing a shared perspective. Technical Much of the state’s developable acreage is terminology stands in the way of meaningful in high demand for future growth, which conversations, as shared language is essential threatens the protection of agriculture, open to informed decision-making. Although water space and natural ecosystems. and land use are intrinsically connected, they are distinctly separate sectors that each have Short-term planning may seemingly relieve the their own vocabulary, perspectives and beliefs. immediate pressure on cities to meet critical Traditional sector-based approaches threaten housing needs and increase revenue from equitable and efcient water and land-use development. Smart-growth practices and planning. This perspective is passed down infll development, on the other hand, provide through institutions, continuously impeding signifcant long-term benefts for community integrated planning eforts. resilience and vibrancy. Patchwork development illustrates the efect Much of California’s current development of conficting perspectives or priorities. is occurring inland, far from the coastal A common perception among land-use areas where most of the state’s job growth practitioners is that quick development of is occurring. This jobs-housing imbalance green space is easier and cheaper than infll increases urban and suburban sprawl, and development. Not only for technical reasons, the myriad negative impacts associated but because developers often face less with it: threats to groundwater recharge, backlash from neighbors who oppose growth overburdened water and transportation in their neighborhoods. infrastructure, degraded air quality, and impaired quality of life for residents. Yet, the numerous unintended consequences of green feld development far outweigh Sprawl-style, low-density development is the perceived benefts, including increased particularly vulnerable to wildfre, as often greenhouse gas emissions from residents occur along the urban fringe and near natural commuting to city centers for work; increased resources prone to fre. Drought conditions infrastructure costs; and more intense exacerbate wildfre risk, as dry forests burn consumption of natural resources. much hotter and faster. Fire management capabilities are also afected because it’s more While developers pay the upfront costs to build difcult to protect sprawling infrastructure the new infrastructure, it is left to cities and than compact infrastructure. other local government entities to maintain that infrastructure in perpetuity. Despite 16 Bringing Water And Land Use Together similar goals among water and land-use Regional Integration professionals, uncoordinated development California is incredibly diverse – in its occurs largely due to a misalignment in socio- geography, climate, culture, governance political perception. Misalignment also exists and infrastructure. The report’s fve regions between who benefts from investments, and – represented by the fve partners in the who bares the costs – especially external costs. Community Foundation Water Initiative – Local governments raise revenue from sprawl are unique. Indeed, there is great diversity development, but the impacts of air pollution, even within each region. While each region congestion, and diminished ecosystem is made up of a collection of cities, counties function are born by all. and unincorporated areas, each with similar Funding Limitations authority and governance structures, the Limited fnancial resources are the root of specifc character of local governance and many challenges facing our communities. decision-making within each region varies This is also true in water management and greatly. Similarly, each region faces its own land-use planning. Local governments often unique water and land-use challenges. lack adequate funding to better plan and Below are brief summaries of the status of integrate across departments. Public agencies integration within each region and the primary often lack adequate fnancial resources to barriers to integration unique to each area. build the integrated projects they envision.

State agencies lack adequate funding to San Francisco provide necessary technical assistance to help Central Valley communities better plan and integrate. Silicon Valley The complexity of California’s system of public Los Angeles fnance can create substantial barriers to San Diego integrated projects that span multiple funding agencies. The current fragmentation of grant Mariposa Marin and long-term funding programs available Madera to local communities further exacerbates San Francisco San Mateo the disconnect between water and land- Alameda use decisions. Bridging this gap requires Tulare communication between cities, water agencies, Santa Clara Merced developers and public stakeholders to identify Fresno opportunities for alignment in funding Kings streams, and advocate for the policy changes needed to do so. Los Angeles Furthermore, if funding mechanisms require equity considerations and integration of water San Diego and land use, the outcomes would maximize benefts for everybody. Financial investments Figure 2. Five regions represented in this study, as defned by are needed at all levels of California’s the Community foundation water initiative cohort governance and infrastructure to ensure a vibrant future. The more investments are integrated, the better potential outcomes.

17 Bringing Water And Land Use Together

The San Francisco Region mentality, thus eroding the trust needed for For the purposes of this project, the San cross-sector collaboration. Francisco region is defned by the area of Little fexibility exists within the San Francisco impact by the San Francisco Foundation. The region’s water supply and demand, as previous region comprises the following fve counties: success in reducing water use “hardened” Alameda, Contra Costa, Marin, San Francisco, demand. In an urban context, “demand and San Mateo; and encompasses 65 hardening” refers to the community and incorporated cities. All data presented herein water agencies already implementing the “low refers to these geographic boundaries. hanging fruit” conservation and efciency Integration In The San Francisco Region mechanisms, thus making future water-use While city councilmembers and county reductions more difcult. San Francisco has supervisors generally have the greatest not yet reached the state of hardened demand, infuence over land-use decisions, two and continues to lead the state in water organizations that advocate for land-use use efciency and reuse. Limited physical planning initiatives in the San Francisco space due to dense urban development region are quite infuential: Shore Up Marin also hampers the application of large scale Coalition and the Bay Area Climate Adaptation landscape green infrastructure projects to Network. Regional water decisions are made integrate water and land use. The region will predominantly by the San Francisco Public have to turn to other multisolving strategies Utilities Commission and the Bay Area Water more suited to water and land-use integration Supply and Conservation Agency, which is a in an urban setting, such as onsite purifcation collective of several water districts. General and direct non-potable reuse. Plans stand as the most important planning The quality of water-service infrastructure documents for land-use decisions in the varies widely from community to community region, with a particular emphasis on the plans’ within the region. Lower-income communities zoning ordinances. are more likely to have aging infrastructure Some integration is occurring in the San with deferred maintenance. This can degrade Francisco region, such as with the Shore Up water quality and result in higher rates of leaks Marin Coalition, the Bay Area Water Supply and at the household scale – which means some Conservation Agency, and Plan Bay Area 2040. communities pay the same price for lower Moving forward, the San Francisco region quality water and wastewater service, or water should focus on aligning future development they are not receiving at all (due to pipe leaks plans with increased housing, transportation on the customer’s side of their water meter). and open-space needs, while also accounting The Silicon Valley Region for accurate water demand forecasting and reliability for population growth. For the purposes of this project, the Silicon Valley Region is defned by the area of WATER AND LAND-USE CHALLENGES IN THE impact from the Silicon Valley Community SAN FRANCISCO REGION Foundation. The region comprises San Mateo Limited staf capacity within agencies inhibits and Santa Clara Counties, and encompasses 35 regional integration of water and land use, as incorporated cities. All data presented herein does the sheer number of local public agencies refers to these geographic boundaries. operating within each jurisdiction. Uncertainty Integration In The Silicon Valley Region about the future reliability of the water In the Silicon Valley region, the county planning supply contributes to fear, and a protectionist commissions, city councils, city planning 18 Bringing Water And Land Use Together departments, and the City/County Association Land-use planning and decision-making in of Governments of San Mateo County are Silicon Valley is highly politicized due to quick- all key land-use decision-makers. Water paced economic growth and accompanying decisions are made by the Santa Clara Valley population growth that adds stress on an Water District, San Francisco Public Utilities already critical housing shortage near urban Commission, the Bay Area Water Supply and centers and mounting housing unafordability. Conservation Agency, private water companies Gentrifcation is occurring rapidly as lower- and various water districts. income and middle-class residents are being priced out of the skyrocketing rental market. Local experts have identifed cross-agency Competition over land and resources for collaboration as the most important tool for housing, agriculture and open space causes improving integration of water and land use. signifcant tension between jurisdictions, Some integration is occurring between water further inhibiting integration. agencies in the region, but this does not extend to local land-use planning eforts. The Central Valley Region Both San Mateo and Santa Clara counties For the purposes of this project, the Central engage in some land-use planning integration Valley Region is defned by the area of activities. For example, the San Mateo County impact from the Central Valley Community Resource Conservation District shares staf Foundation. The region comprises six counties: with the county, and are able to provide input Fresno, Madera, Mariposa, Merced, Tulare, on land-use planning with a strong water and Kings and encompasses 34 incorporated resource perspective. In many parts of the cities. All data presented herein refers to these region, however, there is a lack of emphasis geographic boundaries. or interest in integrated planning. Developing Integration In The Central Valley Region leaders interested in integration, and The Central Valley includes several important strengthening regional collaboration, will help land-use decision-makers, such as city Silicon Valley meet current and future needs councilmembers, county supervisors, the Local for all residents. Agency Formation Commission, city planning WATER AND LAND-USE CHALLENGES IN THE departments and developers. Key water SILICON VALLEY REGION decision-makers include water districts, private water companies, the agriculture industry and Similar to the San Francisco region, the Silicon state entities such as the Department of Water Valley region’s water supply and governance Resources. system is incredibly complex, which hinders multi-agency coordination and alignment. The General plans are the most important variability in water-supply reliability across documents in the region – with community the region and between agencies generates a plans being the most important for protectionist mentality, particularly among the unincorporated communities. Local experts agencies with the greatest certainty in their also highlighted transportation plans, including water supply. Trust is lacking, thus preventing the Sustainable Communities Strategy cross-agency collaboration. Population growth element, as important in the planning process. further strains infrastructure systems and increases pressure on water agencies to meet There is a historic disconnect between water future demand. professionals and city planners in the Central Valley region, which makes integration difcult.

19 Bringing Water And Land Use Together

Some coordination does occur, though, mostly Competition for development funds and in Fresno County. Current initiatives such as natural resources frequently prevents full regional transportation planning and General collaboration between jurisdictions and levels Plan revisions actively encourage integrated of government. Like other regions, increased planning. housing demand has pushed costs up, pricing many families out of their neighborhoods. The Central Valley must also consider These same community members must travel the efects that its planning process will long distances to get to work, increasing their have on the agriculture industry and the transportation costs and afecting their health. region’s signifcant open space. Several organizations have become more active in Many of the region’s communities are the environmental-justice movement and unincorporated, and often lack adequate want to play a greater role in the planning land-use infrastructure and maintenance, process, particularly on the issue of drinking such as adequate parks, roads, sidewalks and water quality, and the lack of development to stormwater management. support existing communities. The Los Angeles Region The creation of Groundwater Sustainability For the purposes of this project, the Los Agencies provides the Central Valley region Angeles Region is defned by the area of with an opportunity to connect water supply impact from the California Community and allocation to population growth and Foundation. The region comprises the entire development boundaries. As a result, local geographic boundary of the County of Los experts identifed planning and coordination Angeles, and encompasses 88 incorporated as the most important integration activities cities. All data presented herein refers to these needed in the region. geographic boundaries. WATER AND LAND-USE CHALLENGES IN THE Integration In The Los Angeles Region CENTRAL VALLEY REGION Land-use decisions are made by the county Lack of a shared vision and leadership for the supervisors, city councilmembers, planning Central Valley region’s future stifes integration. commissions and planning departments in the Coordination and alignment across sectors Los Angeles region. Those decisions are often and between jurisdictions is difcult due to infuenced by nonproft organizations, such the region’s myriad water management and as Climate Resolve, the Mayor’s Ofce and a land-use planning agencies, which is especially number of active homeowner associations. apparent in groundwater management. Water decision-makers include water agencies, Many of the region’s groundwater basins regional water quality boards and local public- are contaminated with nitrates from past works departments. General plans drive most agricultural practices, leaving it unsafe to of the planning discussion in this region, with consume. Other man-made and naturally signifcant importance placed on zoning, occurring chemicals – including arsenic, transportation and signifcant ecological areas. coliform bacteria, pesticides, disinfectant byproducts and uranium – also diminish local With more than 200 water agencies and water quality. According to the State Water overlapping jurisdictions, integration in the Resources Control Board, contaminated Los Angeles region is complex. However, the groundwater is the source of drinking water Los Angeles region has made progress toward for more than one million residents in the integrated planning, as evidenced by plans Central Valley region. completed by the Mayor’s Ofce and the Los Angeles Regional Collaborative. The region’s 20 Bringing Water And Land Use Together next step is to ensure that these plans are The San Diego Region implemented with collaboration and equity in For the purposes of this project, the San mind. Diego Region is defned by the area of impact from the San Diego Foundation. The region WATER AND LAND-USE CHALLENGES IN THE comprises the entire geographic boundary of LOS ANGELES REGION the County of San Diego, and encompasses 18 Fragmented governance and lack of incorporated cities. All data presented herein representation impact already overburdened refers to these geographic boundaries. communities in the Los Angeles region. The region contains more than 200 small Integration In The San Diego Region water agencies, and there is no continuity San Diego’s land-use decisions are made in governance or management between by city and county ofcials, but is heavily neighborhoods. Seven in 10 residents in the infuenced by regional planning through the city of Los Angeles rent their homes, with Sustainable Community Strategy. Planning water bills sent to property owners. Local does not occur at the neighborhood level, water boards are elected by the property which is where inequities are most often owners, who are not necessarily city residents manifested. Most water decisions are themselves. This system tends to discourage made by city departments, where there is low-income residents from participating in a fragmentation of water agencies, and it’s elections, which means water agencies tend to extremely difcult to keep track of jurisdictions be more responsive to property owners – who and responsibilities. may not be representative of all the people who live in the community. Like most regions in California, general plans are the most important planning documents, Afordable housing is the most prominent and conversations surrounding integrated equity challenge in the Los Angeles region. Like planning occur during plan updates and many communities, LA County has not met revisions. Local experts have identifed its Regional Housing Needs Allocation. Due to planning as the most important step towards the LA region’s extremely high cost of living integrated planning in the region. Regional (and high development costs), local developers land-use planning is occurring, but there is are challenged to design projects that meet very little integration at the local level. subsidy and funding program requirements to maintain economic feasibility. Regional climate collaboratives, in particular, are trying to move integrated planning beyond Displacement and homelessness are major city fragmentation. The San Diego region threats to individuals and families in the area. should continue to develop strong leaders and build political will for integration, while working The market demand for single-family homes to streamline and consolidate the planning encourages more sprawl development and process to improve local integration. drives up costs. Water projects in low-income neighborhoods often don’t pass feasibility WATER AND LAND-USE CHALLENGES IN THE analysis, so water agencies are forced to pass SAN DIEGO REGION infrastructure costs onto residents through Fragmented governance and overlapping metering and increased rates – even through jurisdictions with disparate planning processes the region’s poorest households already have inhibits integrated planning and management. some of the region’s highest water bills. San Diego County has 24 retail water

21 Bringing Water And Land Use Together agencies serving 19 jurisdictions. Individual water adding pressure to community members jurisdictions are not integrating water and already burdened by some of the highest land-use planning at the local level, despite water bills in the state, if not the nation. San their regional land-use planning alignment. Diego’s residential water bills are expected to To achieve regional-scale resilience, all increase as a result of the desal plant, when jurisdictions’ plans must be aligned. other more afordable methods of increasing water supply reliability are yet available. Political pressure to develop, combined with notable apathy toward smart-growth priorities in parts of the region, threaten the region’s VII. CASE STUDIES long-term resilience and afordability. The San Diego region is already facing a housing supply This report ofers nine diferent examples of and afordability crisis. Despite a laudable collaboration and applied integration solutions, general-plan update with urban growth with a specifc focus on integrated water boundaries and water-efciency targets, and land-use planning. These case studies some local jurisdictions continue to allow (or cover past, current and upcoming projects even promote) sprawl through general-plan identifed through interviews and focus-group amendments and variances. discussions from around the state and our general research and literature review. The Limited funding availability and misalignment case studies are organized into fve themes: between funding programs for all services community engagement, collaboration, – but especially water infrastructure and planning, funding and infrastructure. The case afordable housing – contributes to the tension studies ofer models that can be used in other between public agencies and the community. regions across the state. Community Engagement Designing Our Own Solutions For Resiliency Planning, The People’s Plan (P+Set) RESILIENT BY DESIGN BAY AREA Every community has residents with the skills, experiences and strategies needed to solve the local and regional problems they face. As part of the Resilient by Design Bay Area challenge, the Permaculture + Social Equity team (P+SET) created a social design process which builds community capacity and climate change literacy to address the challenges of coastal

Figure 3. data analysis of top themes adaptation and resilience planning, particularly highlighted in each region in vulnerable communities that have experienced generations of marginalization and exclusion. Some agencies try to “build their way out of the problem” and pass costs on to their already The P+SET design concept approach is overburdened constituents. Opponents of San a “Community Partnership Process” to Diego’s new Poseidon desalination plant, for establish local leadership across generations example, site the high infrastructure price tag by partnering with residents. This process coupled with the increased cost of desalted specifcally designs programs for individual

22 Bringing Water And Land Use Together communities based on their unique assets and dissolved. The tech boom of the Bay Area then needs. In this process, community members created demands for housing and ofce space are actors with political will and infuence. that saw East Palo Alto become a desirable place for development once again. In order to Local residents, organizations and institutions address this issue, city ofcials began the hunt each bring their unique knowledge, skills to fnd new water sources - which would result and passion to the process. This diversity in in new, groundbreaking partnerships. expertise infuences land use decisions that refect culture, history and community vision. East Palo Alto were already good water Based on community perspectives, P+SET stewards. In 2015-16, the gross per capita provided the technical expertise and education water consumption in the city was 58 gallons to give stakeholders the skills needed to a day, one of the lowest in the region (indeed, interpret and solve immediate challenges (such the state). The city doesn’t have many as fooding in a particular location). Small-scale attractions that are big water users, such as projects will be implemented frst, leading to big parks or golf courses. Therefore, any gains larger, more complex collaborative designs. made by increasing water conservation targets would be very minimal. P+SET piloted this capacity-building program in Marin City, which resulted in a “People’s City ofcials began searching for outside Plan” that refects the residents’ aspirations partnerships. They knew that other cities in and priorities. Participants became “designers” the region had more water than they needed. and identifed six priority projects to help solve They hoped to fnd two municipalities to challenges in the watershed, including an agree to transfer their water to East Palo Alto intergenerational garden, erosion mitigation - something that had never been done before and creek enhancement, rain gardens and in the region. They eventually focused their bioswales. attention on two cities: Mountain View and Palo Alto. This people-powered design process also allowed the community to enhance their East Palo Alto’s partnership with Mountain existing advocacy practices and literacy to View was benefcial to all. Mountain View more efectively engage with municipal, hadn’t used their daily allotment of water in regulatory and regional stakeholders to 30 years, so they had water to spare. For a fnance and implement these projects. one-time fee of $5 million, Mountain View transferred 1 million gallons of their water For more information on the People’s Plan, daily to East Palo Alto. Mountain View saw visit www.resilientbayarea.org an advantage in selling some of their water Collaboration because they had contracts with SFPUC that stipulate purchasing a minimum of 8.9 million 17 Creating Partnerships To Solve A Water Crisis gallons of water per day, and the city was only CITY OF EAST PALO ALTO using 7 million gallons a day. In 2016, the city of East Palo Alto issued a moratorium on development because the city East Palo Alto city ofcials then struck a deal couldn’t guarantee that there would be enough with Palo Alto to collaborate on three diferent water for new projects. East Palo Alto, which projects, one of which was a water transfer has been a historically low-income community, agreement of half a million gallons a day from had only just been incorporated as a city the Palo Alto’s own allocation of water. The other year before. Additionally, the city’s water needs two projects were a bridge project and trafc signal synchronization. Palo Alto did not seek were managed by a county agency that later 23 Bringing Water And Land Use Together payment for the water transfer because the private companies. The collaborative also water deal was part of multiple cooperative works to create a network for public agencies projects between the cities. to learn from each other and to plan for the impacts of climate change. By creating these unique and co-benefcial projects with their neighbors, the city of East SDRCC also provides a venue for cross- Palo Alto can now move forward with the jurisdictional and cross-sectoral dialogue. The sustainable growth plans envisioned in their collaborative organizes regular workshops and General Plan. trainings for local decision-makers on climate- related topics of interest, as well as provides For more information about the East Palo direct technical assistance to jurisdictions Alto water crisis, visit https://currentwater. in the region. In addition to coordinating co/2017/08/21/water-shortage-east-palo-alto- stakeholders and providing networking construction-on-hold opportunities, SDRCC has also helped build Innovative Partnerships And Initiatives new innovative partnerships in furtherance of specifc climate-related goals and initiatives, SAN DIEGO REGIONAL CLIMATE such as the Climate Science Alliance. COLLABORATIVE The San Diego Regional Climate Collaborative For more information on the San Diego Climate (SDRCC) was launched in 2012 as a network Collaborative, see www.sdclimatecollaborative. designed to support public agencies with org preparing for the impacts of climate change 18 and mitigate greenhouse gas emissions. The Interactive Mapping For Regional Solutions San Diego region faces a number of threats SAN JOAQUIN VALLEY GREENPRINT exacerbated by climate change, including The San Joaquin Valley Greenprint project diminishing water supplies, increasing wildfre grew out of the San Joaquin Valley Blueprint risks, rising temperatures, and increasing – after the Blueprint revealed the need for coastal fooding and erosion due to sea-level better regional mapping of the Valley’s non- rise. urban areas to assist land use and resource management decisions. The project is funded SDRCC supports local governments and by a grant from the California Strategic Growth regional agencies across San Diego County to Council to the San Joaquin Valley Policy respond to these impacts, reduce emissions, Council, managed by the Fresno Council of and foster a clean energy and vibrant economy Governments, and guided by the San Joaquin and community. SDRCC was initially formed Valley Greenprint Advisory Committee. The by fve public agencies (the Cities of Chula goal of the project is to promote regional Vista and San Diego, the County of San Diego, collaboration by providing more sophisticated the Port of San Diego, and the San Diego planning data to water and planning Association of Governments, or SANDAG); the professionals – with a focus on sustainability University of San Diego (USD); the region’s and economic development strategies for the energy utility, San Diego Gas & Electric San Joaquin Valley region. (SDG&E); and The San Diego Foundation (TSDF). The Greenprint is primarily a collection of maps, assembled as a comprehensive, The collaborative’s mission is to create regional interactive database that catalogs current partnerships between the region’s residents, conditions and trends related to the region’s local businesses, public service agencies, and resources. The maps and data collected for

24 Bringing Water And Land Use Together the Greenprint are publicly available, and For more information on the San Joaquin are presented in an interactive, easy-to-use Valley Greenprint, see www.sjvgreenprint.ice. online tool. The collection of maps shows how ucdavis.edu resources are interrelated across political boundaries and how they are changing under Planning the infuence of population growth, changing Preserving Land For Natural Groundwater land use practices, resource limitations, and Recharge changing climate. CITY OF FRESNO GENERAL PLAN Phase I of the Greenprint focused on Until very recently, the City of Fresno has been identifying and mapping Valley resources dependent on groundwater for about 88% for the eight counties that comprise the of its water supply. Unfortunately, the rate of San Joaquin Valley, including Kern, Tulare, groundwater recharge has been inadequate Kings, Fresno, Madera, Merced, Stanislaus, to keep up with the amount being withdrawn. and San Joaquin Counties. The compiled Over the past 100 years, the city has lost 100 information includes over 100 datasets related feet of water from the aquifer. to agriculture, biodiversity, energy, and water The City recently struck an agreement to use resources, as well as supplemental datasets Fresno Irrigation District canals to distribute including land use planning, transportation, water to Fresno Flood Control District soils, and land cover. basins throughout Fresno for groundwater Phase II of the Greenprint built on the work recharge during dry months. The City has in Phase I by demonstrating the real world budgeted more than $850,000 to construct utility of this information, as well as fnding the connections and make necessary an appropriate platform for these curated improvements such as fow monitoring to resources, specifcally a host that could provide allow for efcient recharge. a user-friendly interface as well as the capacity The City has had ongoing projects with the to update and maintain the data. The San neighboring city of Clovis, the Fresno Irrigation Joaquin Valley Gateway, hosted by Data Basin, District and the Fresno Metro Flood Control was identifed as the best platform. District for groundwater recharge. This The San Joaquin Valley faces many partnership is delivering an average of about challenges and opportunities associated 60,000 acre-feet of water to underground with the management and conservation of storage every year. water, agricultural, energy, and biological According to its Urban Water Management resources. The SJV Greenprint project was Plan, an ever-increasing volume of rain water developed to provide reliable data in support can no longer soak through the soil to the of the State and Federal agencies; non- groundwater aquifer as urbanization covers governmental organizations; community-based once open land with pavement, roads and organizations; universities and colleges; and buildings. There is enough storage capacity individuals who are working to address these in the aquifer to serve the city’s needs and issues. natural recharge is not able to keep up with The Greenprint was also intended to provide pumping. More active recharge facilities – such a forum for elected ofcials, agencies, local as Managed Aquifer Recharge – are needed to business leaders, and other stakeholders to replace the loss of natural recharge capacity. collaborate on issues that afect the rural areas of the Valley.

25 Bringing Water And Land Use Together

The City’s 2014 General Plan supports the the topography is mostly cement, leaving use of a natural-drainage system in new only a very small percentage of wetlands in development to capture and infltrate water this watershed. Cemented streets have lead on-site. This may be paid for by the City alone to increased runof and pollutant infltration, or in partnership with the Fresno irrigation and which ultimately makes its way to the Ballona food-control districts. Creek, and eventually to the Pacifc Ocean. Most importantly, the new General Plan and Today, more than 95% of Southern California’s development code, for the frst time, limit wetlands have been lost due to human the expansion of growth on undeveloped development – the largest loss of any region in areas and redirects it to existing areas. This is the nation. Wetlands are important for many accomplished through policies that support reasons - they are a rest stop for birds, shelter infll development and that establish minimum for young fsh, a water fltration system, a rather than maximum densities. These policies source of groundwater recharge, air purifer, are projected to slow the urbanization of the and great source of local pride and beauty. city’s sphere of infuence and protect lands currently available for natural recharge for an After the State acquired the land, they released additional 25 years. a study that explored a range of potential infrastructure improvement projects, new Because current groundwater recharge eforts structures and more access and activities for are not keeping up with the current drinking- the public. Partnership were formed in order water needs and are seriously depleted, to investigate the feasibility of features such the City is preparing to augment existing as bike trails, community centers, outdoor groundwater and surface-water supplies classroom and walking paths. by bringing water from the Kings River to a newly constructed southeast surface-water Stakeholders have witnessed progress being treatment facility. The new water treatment made since then, such as the Milton Street plant will soon supply 53% of Fresno residents’ Park project (a $3MM linear park) adjacent needs from treated water drawn from the the bike trail, which has added aesthetic San Joaquin and Kings rivers. It is expected appeal and a much needed rest stop for users that this measure will allow Fresno to meet its of Ballona Creek trail. Signifcant bike path Sustainable Groundwater Management Act improvements in recent years include native requirements. landscaping, artist-designed gates, benches, drinking fountains, murals and other projects Connecting Cities To Nature, Ballona by public agencies and local non-proft Wetlands organizations. Other opportunities include the CULVER CITY integration of an educational component to Numerous studies of the hydrology of the creek, i.e., using the creek as an outdoor wetlands have shown that they are a central classroom. This is the sort of necessary focus of groundwater recharge. The Ballona measures which must be pursued, in order Wetlands sit on land owned by the State of to ensure that the younger generation better California, just south of Marina del Rey. They understands and appreciates what the creek were once a 2,000-acre area overfowing with has to ofer to their neighborhood, but even fsh and waterfowl. Almost 100 years ago, more importantly to the region at large. Ballona Creek was transformed into a nine- For more information on the Ballona mile concrete food protection channel, which Creek Revitalization Plan, see www. blocked the fow of saltwater, and reduced the ballonarestoration.org amount of freshwater in the wetlands. Today, 26 Bringing Water And Land Use Together

Funding Strategies The Resource Conservation District has Recharge Net-Metering Pilot Program contracted for the management of the program with UC Santa Cruz providing the UC SANTA CRUZ technical information needed to perform the In 2016, the University of California-Santa Cruz, recharge net-metering calculations. the Pajaro Valley Water Management Agency (PV Water) and the Resource Conservation Infrastructure District of Santa Cruz County partnered to East Los Angeles Sustainable Median test a program that would help address the Stormwater Capture19 economic challenges of groundwater recharge projects. The result of that partnership is a LOS ANGELES DEPARTMENT OF PUBLIC WORKS fve-year pilot program to incentivize local The East Los Angeles Sustainable Median landowners to build a managed aquifer Stormwater Capture Project is located in the recharge (MAR) system on their property – unincorporated area of East Los Angeles. This where it can recharge underground water project will capture and treat approximately aquifers. 232 acre-feet (AF) of stormwater in an average rainfall year from a 3,000-acre tributary area. PV Water agreed to issue said landowners The water will be captured, then infltrated to rebates to help ofset the costs of installing remove pollutants such as metals and various and operating such a system. Initiated in 2016, bacteria from reaching the Los Angeles River. the frst year of the recharge net-metering Updates to the medians will include drought program was tested on a fve-acre parcel of tolerant landscaping, and other amenities farmland. It was highly successful, and has such as jogging paths and benches – providing since been replicated on other properties. beneft to the nearby residential community. A portion of the funding comes from the State’s The strategy was well-received, as Pajaro Valley Water Quality, Supply, and Infrastructure relies heavily on groundwater, and is currently Improvement Act of 2014 (Proposition 1), experiencing high levels of overpumping and the project partners are Los Angeles and saltwater intrusion. The pilot program County Supervisor Hilda Solis, California the could serve as a model for other regions Natural Resource Agency – Urban Greening experiencing similar groundwater challenges. Grant Program, the State Water Resources This innovative program has occurred through Control Board – Proposition 1 Stormwater the agency’s partnership with the Resource Implementation Grant Program, and the Los Conservation District of Santa Cruz County and Angeles County Flood Control District. As part UC Santa Cruz Professor Andrew Fisher. of meeting the Proposition 1 requirements, the Proposed Project would include educational Fisher’s team has mapped the lands in the signage at the project site. Construction is district that have the hydrologic and geologic expected to begin in Fall 2018 and last for conditions needed to absorb stormwater and approximately 12 months. recharge the aquifer. This multi-beneft project will improve water Some property owners in these areas are quality, increase water supply and enhance being ofered a reduction in the Water District’s recreation and the community. Infltration groundwater pumping fees proportional to the wells and low impact development, such as volume of water that they have captures and bioswales, will divert and infltrate stormwater percolated into the aquifer. This program is runof to help improve the water quality of called “Recharge Net Metering (ReNeM).” our rivers, channels, and ocean. Wells will also divert stormwater runof into underground 27 Bringing Water And Land Use Together aquifers, replenishing our local groundwater captured water was then fltered to minimize supply. Over 300 trees will be planted and pollutants. A “vegetated bioswale” and flter drought tolerant landscaping will enhance bed were also added to further capture and the community space and reduce the efects infltrate runof. of greenhouse gases. Furthermore, passive recreation and educational signage will Other project benefts include a reduction enhance the community space and increase in the volume of storm water and water- public awareness on sustainable development. borne pollutants that could potentially reach the adjacent beach, enhanced aesthetics Multi-beneft projects can help to identify through new landscaping features and trash project partners as projects with multiple enclosures, new curb ramps for improved benefts can help to leverage funding. There accessibility and improved drainage near are opportunities for collaboration and current storm-drain inlets. partnering between the County of Los Angeles and other cities within the watershed area. The $982,000 project was funded with City of San Diego Storm Waste Capital Improvement For more information on the East LA Plan Funds. Construction was completed in Sustainable Median project, see: www.dpw. 2011. lacounty.gov For more information on the Kellogg Park Kellogg Park Green Lot Infltration Project20 Green Lot Project, see: www.sandiegocounty. CITY OF SAN DIEGO gov Green infrastructure and other low impact development techniques help manage VIII. OPPORTUNITIES AND stormwater runof and provide important co- benefts to communities that can align with RECOMMENDATIONS FOR climate-action planning priorities. IMPROVING WATER AND La Jolla hosts two Areas of Special Biological LAND-USE INTEGRATION Signifcance (ASBS), as designated by the California State Water Resources Control The vast majority of strategies, opportunities Board, to prevent pollution of biologically and recommendations from statewide diverse and pristine sections of the California focus-group participants and the community Coast. These two areas include large portions foundations engaged in this project reference of the La Jolla Shores, and prohibit waste “infrastructure.” This illustrates that the need discharge and other pollution under the for infrastructure investment is one of the regulation of the California Ocean Plan. state’s most pressing issues. Inadequate infrastructure impacts communities already Kellogg Park in La Jolla Shores was identifed facing disadvantages more acutely than other by the City of San Diego as an opportunity site communities. for a project to address runof in the ASBS. The Kellogg Park Green Lot project was designed to Identifying and addressing infrastructure remove 18,000 square feet of asphalt concrete needs is also the “low hanging fruit.” – replacing it with permeable pavement that While costly, there is a more direct path to will allow the city to capture large amounts of infrastructure solutions to more ambiguous surface water. They also included elements challenges of softer skill development and that allowed them to capture runof from the institutional change. parking lot and nearby public right-of-way. The Expert interviewees, in contrast with 28 Bringing Water And Land Use Together focus group participants, emphasized needed to achieve integration may vary from “planning” and “regulations” as top themes. region to region, opportunities noted here are Recommendations to address governance applicable statewide. and representation, as well as fnancial recommendations also ranked high. California now has a new governor, as well Topically, recommendations addressed as several new legislators. Community water supply over any other concept. Many foundations and water and planning recommendations also addressed land use, professionals have a rare opportunity to development, and the need for better dialogue engage at the state-policy level early on to gain and communication. traction with the new administration. Interestingly, more strategies and In the early stages of the administration is the recommendations came from land-use perfect time to infuence the new governor experts than water experts. While only and highlight integrated water and land- conjecture, this may illustrate that land-use use planning as a priority for California. planners will be the easier party to catalyze The Strategic Growth Council, in particular, integration between the two sectors. This is composed of members appointed by the further illustrated by the American Planning governor, is an ideal agency to integrate water Association hosting a “Water and Planning management into land-use planning statewide. Connect” conference for this exact purpose. Alignment in stakeholder engagement is an Furthermore, it’s far more common to important strategy for achieving integration. encounter water-themed topics at planning Interest groups and public-service providers events than land use-themed topics at water alike are constantly competing for the same forums. “mindshare” or mental capacity for attention Clearly, a “carrot” and a “stick” approach from their customers. Community members are both necessary to achieve integration. are constantly bombarded with competing Both top–down legislative mandates and messaging via social media and other more community-level organizing and citizen-driven traditional marketing avenues. political engagement are needed to hold A unifed message from multiple sources, decision-makers accountable. targeted to complement rather than compete The following subsections outline with one another for mindshare, is far more recommendations that are considered efective in reaching its intended audience. most important and supported by the Collaboration between agencies for a shared- broadest range of participants from messaging public-engagement campaign is an this study. Strategies, opportunities and “easy win” to start building cross-agency, cross- recommendations are arranged by statewide jurisdictional and cross-sector relationships. or regional actions. All other recommendations These relationships can then form the identifed through this project are included in foundation toward greater integration. the Appendix. Shared data and leveraging resources or Statewide Opportunities joint fnancing of shared technology and innovation provide the next steps in building Data collection and analysis for this project collaborative partnerships that will help foster elicited many opportunities for improved integration. This alignment will also help avoid integration of water management and land- unnecessary duplication of eforts and is a use planning. While the appropriate strategies more competitive approach for grant funding.

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The American Planning Association held its Organizations) to ensure alignment “Water and Planning Connect” conference between development decisions at the city in September 2018. The gathering was the and county level and recommendations in frst of its kind, bringing together water and their respective Sustainable Community land-use planning professionals from the Strategy. public and private sectors. The conference sought to help shape dialogue around the 3. Amend the State Constitution to address intersection of land-use planning and water water fnancing; including Proposition resource management, recognize signifcant 218 reform to enable more fexibility water issues facing the nation (contamination, in addressing our water needs, and a drought and sea-level rise), and provide statewide public-goods charge on water to participants the opportunity to explore new assure the supply of safe drinking water ways to approach water and land-use planning and sanitation to all Californians. issues. The APA closed the conference with Additional recommendations that are perhaps a commitment to regularly hosting these more politically feasible and will still have conversations in the future. This conference a signifcant impact on water and land-use was an important frst step in encouraging integration – the lower hanging fruit – also more collaboration between water and land- emerged: use planning. 1. Require greater sophistication and Statewide Recommendations alignment (through better data and Through review of existing literature, analysis analytics sharing) in growth projections and of various policies and conversations with coordinated planning for both land-use countless water and land-use experts, planning and water management agencies. and review of the above strategies and 2. Promote cross-sector coordinated planning opportunities, three primary needs emerge as and management of land use, water the greatest potential solutions to achieving management, food mitigation and climate the equitable integration of water and land adaptation. use. 3. Direct state and local investments toward These three recommendations are complex multisolving through groundwater and historically controversial. While there recharge and green infrastructure projects is general consensus from both water and developed at local scales with robust land use experts that each is necessary, the community engagement mechanisms by which they are implemented remain contentious – especially whether each 4. Prioritize infrastructure investments that should be optional or compulsory: support existing communities, especially underserved communities, before new 1. Each hydrologic region should establish development. a regional water budget (similar to those being developed for groundwater basins), Specifc action at multiple scales is reviewed and approved by the state, which necessary to achieve progress on these four the region as a whole must maintain in recommendations. Each initiative will be less balance. controversial if resources are provided to support the activity, and if all parties involved 2. Establish stronger guidelines and incentives are assured they will retain their existing for regional planning agencies (Councils authorities. of Governments, Metropolitan Planning 30 Bringing Water And Land Use Together

Additional context and activities for each are ¡ Population allocations used by local outlined below, but a more comprehensive and regional planning agencies (cities, strategy for implementation should be counties, Councils of Governments, developed for each. Metropolitan Planning Organizations, Joint Powers Authorities) should include water Require greater sophistication and availability and reliability analysis, as well alignment (through better data and as other relevant regional factors (sea-level analytics sharing) in growth projections rise for coastal communities, fooding). This and coordinated planning for both land-use will help prevent unsustainable growth planning and water management agencies. where there is inadequate water supply or ¡ One of the primary barriers to interagency water management infrastructure. coordination is limited institutional capacity. ¡ Additional improvements to accurate State (especially the Department of Water growth projections could be made through Resources and the Governor’s Ofce of Sustainable Communities Strategies and Planning and Research) and local agencies General Plans using Urban Footprint or a (city and county planning, stormwater and similar scenario planning tool; Urban Water transportation, local water agencies) should Management Plans relying on real-time invest in increased stafng dedicated to water-use efciency data and Sustainable land-use planning and water management Community Strategies growth projections integration. A unique model is the Los to establish demand forecasting. Angles Mayor’s Ofce of Sustainability hiring a staf position funded in part by a ¡ To ensure cross-sector engagement local philanthropic organization and the Los and better alignment between planning Angles Department of Water and Power. eforts, local and regional agencies should Similarly, the Statewide Energy Efciency provide dedicated seats for planning staf Best Practices Coordinator is funded by on water committees, and vice versa. the California Energy Commission, and Each agency must also allocate adequate managed jointly by three relevant NGOs staf time for meaningful participation. (Local Government Commission, Institute For example, amended Urban Water for Local Government and ICLEI). Management Plans could stipulate who needs to participate, and revisions to the ¡ Historic inequities in development and Sustainable Groundwater Management investments are perpetuated today Act could require land use planners by failing to integrate planning eforts. sitting on technical advisory committees The Strategic Growth Council, Housing for Groundwater Sustainability Plan and Community Development, and development. the Governor’s Ofce of Planning and Research should provide guidance for ¡ State agencies and/or philanthropic regional alignment in planning and housing organizations should provide technical development, to ensure equitable and assistance for communities needing sustainable distribution of increased additional support to implement the housing and growth. Density should be activities proposed above. distributed in accordance with available local resources and existing local context (urban, suburban, exurban, rural).

31 Bringing Water And Land Use Together

Promote cross-sector coordinated planning ¡ The Governor’s Ofce of Planning and and management of land use, water Research should provide leadership, management, food mitigation and climate guidance, and technical assistance to adaptation. support local jurisdictions in conducting a full analysis of their development codes ¡ State and local investments (grants, loans and regulations, seeking opportunities and bond fnancing) should be directed to integrate and streamline permitting toward multisolving – integrated planning processes, so as to enable development and projects developed at local scales of cost-efective, sustainable, equitable with robust community engagement that projects that integrate water and land use. address more than one need and provide a range of public benefts. ¡ The State Legislature should amend Urban Water Management Plan requirements ¡ State funding agencies (Department of to be consistent with Groundwater Water Resources, the State Water Board, Sustainability Plans. Protocols should be and California Fish and Wildlife; Strategic established for determining imported Growth Council, Caltrans, and Housing water, surface water and groundwater and Community Development) should frst supplies are based on the water basin. This integrate across their own programs, and change will help to integrate agricultural then prioritize funding for local and regional and urban water planning for more multisolving. This was attempted under accurate analysis and consistency. the Schwarzenegger administration, but failed due to constraining bond language ¡ The State Legislature should appropriate and statute. A more successful approach adequate budget for the Governor’s Ofce will be to educate legislators and advocates of Planning and Research to: provide about the value of fexible funding language leadership, guidance, and technical that focuses on outcomes and not process. assistance to support local jurisdictions Any new funding legislation should provide in conducting a full analysis of their agencies fexibility in implementing their development codes and regulations, grant programs so long as the intended seeking opportunities to integrate, outcomes are being realized. streamline permitting process, to enable development of cost-efective, sustainable, ¡ Grant programs should require equitable projects that integrate water collaborative, integrated planning and land use. Local jurisdictions across for funding eligibility, and metrics for California should proactively seek to do the tracking collaboration in grant reporting. same, in the absence of state leadership, Department of Water Resources Integrated while also advocating for this support. Regional Water Management Program already does this to some extent, ¡ Many local and regional agencies across particularly through their Disadvantaged the state are eager to better integrate their Community Involvement Program. These water management and land-use planning same agencies should fund technical eforts, but are unclear where to start. assistance and decision support tools State agencies and relevant NGOs should to identify benefts and allocate costs compile existing local structures and best accordingly, for integrated projects. The practices for water/land use integration Proposition 84 Strategic Growth Council into a centralized statewide framework grants are an excellent example of this type and resource guide. This framework of support. should include guidance for state agency 32 Bringing Water And Land Use Together

alignment, policy and regulatory alignment, permitting for integrated, multisolving local integration between sectors, regional projects. integration across jurisdictions, and best ¡ practices for collaboration. Developing The State should invest in a comprehensive such a framework should follow a similar ecosystem services and groundwater yet more robust process as the research recharge agenda developed at local and resulting in this report, or that which was regional scale to statewide standards. followed to develop the general-plan Agencies involved in establishing guidelines. standards should include Department of Water Resources, State Water Resources Direct state and local investments toward Control Board, California Fish and Wildlife multisolving through groundwater Service, Strategic Growth Council, and recharge and green infrastructure projects the Governor’s Ofce of Planning and developed at local scales with robust Research. The statewide agenda can build community engagement. on work already developed by The Nature Conservancy and CA Department of Fish ¡ Stormwater green infrastructure projects and Wildlife. This approach should include are often “low hanging fruit” to achieve a manual of compiled and refned best water/land-use integration, and to gain management practices, decision–support community buy-in. Statewide advocacy and tools and pilot demonstration projects. education about the value of multisolving, through projects that address stormwater ¡ Local and state agencies should compliance while providing other benefts, incentivize or require the identifcation ensures that new public investments and protection of groundwater recharge provide the greatest range of benefts and stormwater infltration areas. This possible to the communities funding them. can be achieved by cities, counties, regional, and state commissions (such as ¡ Natural infrastructure is now mandated Coastal Commissions) setting aside more as an adaptation strategy in General Plan land as habitat conservation area and safety elements (SB 379). Local and state preventing expansion in those areas; or by agencies should ensure they are using mandating general plans and groundwater the same terminology, and expanding sustainability plans coordinate eforts to the defnition of “green infrastructure” identify and zone these areas to prevent beyond stormwater to include all natural development in priority recharge zones. approaches. Guidelines should be strong enough to ¡ There is also new and substantial prevent unsustainable development, opportunity for alignment between water but fexible enough to adapt to changing management and land use planning information. Butte County is an excellent within our forested communities. Forestry example of a region studying the issue, management is one particular multisolving identifying high recharge areas, and then approach with signifcant benefts. having to adjust their decisions as they discovered some of their assumptions were ¡ State and local regulations are often the incorrect. primary barrier to implementing strong integrated green-infrastructure projects. ¡ Rural communities should adopt an State and local public agencies should ordinance that prevents land zoned streamline their respective regulations and for agricultural purposes from being establish “umbrella” or “programmatic” converted to urban development to protect 33 Bringing Water And Land Use Together

foodplain and groundwater recharge Plans to ensure equity in investments, areas. Establishing a fund or trust for and prevent environmental injustice and purchasing agricultural lands from willing negative water and land-use impacts. sellers at a fair market value and converting This can be accomplished by requiring these lands to open space or other passive additional community benefts and a use will protect the economic interest of higher level of community engagement existing agricultural land owners. or public participation prior to approving development projects. Prioritize Infrastructure Investments That Support Existing Communities, Especially ¡ Legislatively establishing an oversight Those Experiencing Disadvantages, Before agency with strong incentives (such as New Development. state funding eligibility) to ensure adequate alignment and consistency among plans Infrastructure investments are often and actions will also help ensure equitable subsidized by federal, state and local funding and sustainable infrastructure investments. sources. Projects that are not aligned with For example, the Alluvial Fan Taskforce state water and climate goals should not recommends the local government receive public funding. Under AB 2800, the (city or county) Planning Department legislature commissioned an Infrastructure as lead, in partnership with local water Resilience Report that evaluates the state’s and food management agencies. State exposure to risk. Results from the AB 2800 entities should continue to administer working group should be used to prioritize the Afordable Housing and Sustainable future infrastructure investments. The Communities Program, provide technical state should codify the working group as a assistance to local agencies interested standing Water and Land-Use Infrastructure in infll development, and distribute best Sustainability and Coordination Commission practices statewide. responsible for preventing unsustainable sprawl development. ¡ Department of Water Resources created an Alluvial Fan Task Force in 2010, which This commission would establish evaluation recommended a Model Ordinance criteria as well as monitoring and reporting approach to protect priority groundwater requirements for local and regional agencies recharge areas. Cities and Counties should to follow in considering infrastructure needs adopt this Model Ordinance approach, and analyzing development proposals. The which does not challenge the existing and commission could serve as a funding and use authority of local governments. technical assistance provider to support local implementation, and also serve as a regulatory ¡ Gentrifcation and displacement are real backstop if the public feels local investments threats to existing communities when are inconsistent with Sustainable Communities infrastructure investments are made. Strategies, General Plans, Groundwater To ensure existing residents receive the Sustainability Plans and other state policies. benefts of infrastructure investments, local agencies (cities, counties, water ¡ Local agencies (cities and counties) should districts) should establish “Community conduct more stringent review of project Stabilization Teams” to work directly with siting to ensure better alignment with communities anticipating development to General Plans, Sustainable Communities ensure they continue to receive adequate Strategies and Regional Transportation services (water, wastewater, transportation, Plans, and Groundwater Sustainability housing) while also preventing 34 Bringing Water And Land Use Together

displacement. The Mission Action Plan 1. Make collaborative, integrated planning 2020, produced by the City of San Francisco, a requirement for funding eligibility, and is an excellent model. A Community Water provide technical assistance and decision- Sustainability Planning Task Force based support tools for integration in state grant on Urban Water Management Plan review projects. and implementation would be an efective adaptation of this model. 2. Require alignment of county and city zoning and land use plans with all water ¡ Funding for infrastructure seems to management plans, similarly to how fre always fall far short of actual need for and food risks were added to the Safety infrastructure improvements. New Element under AB 2140. The state should fnance mechanisms – such as distributed also consider a new fre bill to integrate fre infrastructure bond fnancing and standards across the entire wildlands-urban enhanced infrastructure fnancing districts interface. – should be supported and encouraged. State and local agencies should explore 3. Revise General Plan requirements to opportunities to implement these include analysis of water-supply reliability alternative funding strategies, while also and vulnerability in the adaptation section, striving to overcome existing barriers developed in close collaboration with local to smart public investments, such as water agencies. Alternatively, require water those presented by Proposition 218 and agencies to align water supply reliability Proposition 13 requirements. and vulnerability analysess to local government jurisdictional boundaries for ¡ Chronically failing water systems place inclusion in Hazard Mitigation Plans and constant strain on local communities. While Groundwater Sustainability Plans. the state is providing technical assistance and investments to solve chronic water 4. Establish collaboration commissions at system failures, including consolidation the watershed scale, in which department when appropriate under AB 2050, many heads meet regularly to determine how experts agree that additional support to better integrate their planning and (and possibly stricter enforcement) is still operations, and report regularly to the needed. state. Statewide Policies For Equitable 5. Update “show me the water” legislation (SB 221 and SB 610) to require more Integration comprehensive analysis when a In some instances, legislation is needed to municipality presents a new development make real statewide progress toward the plan (the water agency would explicitly equitable integration of water management state how it will provide the requested and land-use planning. These six policy water, where it will come from, and at what changes would signifcantly improve water cost). As a stopgap measure, grant the State and land-use integration, and are broadly Water Resources Control Board approval/ supported by a wide range of water, land-use denial authority over all new water systems. and equity experts:

35 Bringing Water And Land Use Together

6. Streamline new fnance mechanisms for ¡ SB 623, SB 844 and SB 845, which would water infrastructure and afordability have established a safe drinking-water (such as SB 623, distributed infrastructure fund. fnancing and enhanced infrastructure ¡ fnancing districts); and overcoming existing SB 778, which incentivizes the barriers to smart public investments (Prop consolidation of water agencies where 218 and Prop 13). appropriate. ¡ Community foundations and other engaged SB 1000, which requires General groups are encouraged to advocate for one or Plans for regions that include more of these policies. disadvantaged communities to include an Environmental Justice Element. Regional Opportunities & ¡ $$ Provide venues for local leaders in Recommendations both the water and land-use sectors The statewide strategies, opportunities and to interact with one another; and recommendations described above can also be provide resources (funding and/or staf applied at the regional and local level to help time) to enable their participation. improve integration. Some actions, however, Key participants include city and county are more efective when applied at a local or planning and community development regional scale. departments, COGs and local water agencies. Efective models can be found This section of the report highlights in the Sonoran Institute’s “Growing Water opportunities and recommendations unique Smart” program (https://sonoraninstitute. to each region based on each region’s diverse org/2017/rcw-program-workshops/) and the challenges, needs and strengths. Presented Local Government Commission’s Alliance frst are more detailed recommendations of Regional Collaboratives for Climate that apply to all California regions, followed Adaptation (ARCCA) (arccacalifornia.org). by general opportunities and specifc recommendations that would be most relevant ¡ $$ Develop regional leaders in both the or most impactful for each region. water and land-use sectors and provide opportunities for them to interact with one Recommendations are presented according another. Developing a coalition of informed to rough orders of magnitude in terms of the and passionate local decision-makers will cost to implement, denoted by one-, two- or combat this short-sightedness. The Local three-dollar signs ($). Before implementing Government Commission’s Capital Region any of these recommendations, community Dinner Forums and Water Education for foundations or other stakeholders would Latino Leaders UnTapped Fellowship are need to develop a more comprehensive efective leadership development and implementation strategy with specifc target coalition-building models. The new Water outcomes, actions and budget. Solutions Network is also promising. Recommendations For All Regions ¡ $$ Build local political will and ¡ $ Advocate for water access and understanding around water and afordability for community members land-use integration by convening and facing disadvantages. This includes educating local leaders. Local elected supporting potential legislation similar to ofcials in particular have excessive the following past eforts: demands on their time and many complex issues competing for their attention. 36 Bringing Water And Land Use Together

Without the luxury of time to fully an additional fnancial concern for residents. understanding complex issues, robust Equitable water pricing and housing- planning documents and policies to ensure afordability strategies such as low-income rate resilience are easily bypassed in favor assistance and income-based rent structures of quick fxes in the form of inequitable will greatly assist overburdened residents in sprawl development and big infrastructure the region. projects. Developing a coalition of informed and passionate local decision-makers can RECOMMENDATIONS help combat this short-sightedness. The ¡ $$$ Partner with technology companies, same models listed above for regional policy hubs, and community-based leadership development can be applied organizations to establish workforce here. development opportunities within the housing and water sectors to provide San Francisco Regional Opportunities And living-wage jobs within the community and Recommendations increase diversity across the profession. OPPORTUNITIES Excellent models include the Governor’s The San Francisco region has several Initiative AmeriCorps program CivicSpark; successful multi-jurisdictional collaboratives, the Eastern Municipal Water District’s Youth such as the Bay Area Water Supply and Ecology Corps, and the Fresno Economic Conservation Agency and the San Francisco Opportunities Commission’s Local IRWM, that can be leveraged to increase water Conservation Corps. and land-use integration. Since this signifcant Silicon Valley Regional Opportunities And institutional infrastructure already exists, Recommendations precious capacity and resources should be used to support and engage in these groups. OPPORTUNITIES The Silicon Valley region also has the The San Francisco region also has a unique opportunity to leverage existing institutional opportunity to discover new and exciting infrastructure such as regional collaboratives water conservation and efciency solutions as and integration-focused nonprofts a hub of advanced technology. Imagine H2O, organizations and community service agencies. an international startup accelerator founded Being neighbors to the San Francisco region in 2008 and based in San Francisco, provides allows them to participate in collaborative early-stage water startups with introductions initiatives such as the Bay Area Water Supply to investors, potential partners, product and Conservation Agency and the San users and mentors throughout the early days Francisco IRWM. The City/County Association of of their operations to support their quest Governments of San Mateo County also works to solve water challenges. Maximizing local on several environmental issues, including water supply, such as groundwater, seawater housing and transportation. They encourage and surface water, through technology and cities and counties to collaborate, and even innovation, especially for new property though there isn’t much collaboration between development, is well within reach for this tech water and planning professionals yet, they are hub. well-placed and well-suited to lead the way Another crucial opportunity in the region is the toward more integrated planning. high cost of living. Much is made of the region’s Public transportation options in the lack of afordable housing (one of the most Silicon Valley region are too few, and not expensive housing markets in the country), enough residents take advantage of these and the high cost of water to communities is 37 Bringing Water And Land Use Together systems. Improving convenient, afordable Central Valley Regional Opportunities And transportation options that allow people Recommendations to move across the region more efciently OPPORTUNITIES will improve overall equity and foster more Multi-beneft projects can bring better integrated planning, reduce trafc congestion, coordination and integration to the Central and encourage smart growth. Valley region, where there are so many Like the San Francisco region, the Silicon diferent interest groups – from cities and Valley region is a hub of technology and counties to environmental-justice and innovation. Silicon Valley can encourage agriculture coalitions. Multi-beneft projects progressive research and development of can bring traditionally competitive groups technologies for water conservation. Utility together around a shared vision. For example, and water-conservation experts can work with some Central Valley farmers use on-farm technologists and entrepreneurs to develop fooding for groundwater recharge, which is a wide range of diferent types of solutions. signifcantly more cost-efective than dedicated Silicon Valley investments could draw more groundwater basins – making this a cost-saving attention to water and energy conservation strategy for many farmers. and the changing business models of utility Along with more access to multi-beneft companies, and lead to real change in the projects, strong partnerships and efective energy sector. community engagement eforts are required for project implementation and long-term RECOMMENDATIONS monitoring and sustainability. Engaging all ¡ $ Work with jurisdictions in Santa Clara afected and interested communities in the County to implement the countywide region will foster innovative and integrated climate-adaptation guidebook and solutions to water and land use by using replicate the guidebook for other the historical and institutional knowledge of jurisdictions in the region. The guidebook residents who have been living on the land for maps out explicit steps for the region to many generations. achieve resilience, but success will depend on efective collaboration, alignment and Workforce development in the form of job accountability. training and education programs emphasizing collaboration skills will prepare the workforce ¡ $$$ Partner with technology companies, for more integration between the water policy hubs, and community-based and land use sectors. Improvements and organizations to establish workforce investment in Central Valley communities development opportunities within the has the potential to displace current housing and water sectors to provide residents. Investment in the people and living-wage jobs within the community and anti-displacement policies should always increase diversity across the profession. accompany investment in the infrastructure. Good models include the Governor’s Initiative AmeriCorps program CivicSpark, Compliance with the Sustainable Groundwater the Eastern Municipal Water District’s Youth Management Act provides a perfect Ecology Corps, and the Fresno Economic opportunity to integrate groundwater Opportunities Commission’s Local management with future land use decisions. Conservation Corps. The act can be a wonderful tool for

38 Bringing Water And Land Use Together integration if planners, water managers and multi-beneft projects and provide a steady residents convene to consider the potential revenue stream for necessary operations and opportunities. In particular, the required maintenance. The initiative could help protect creation of a Groundwater Sustainability creeks and streams, build parks, liven up Agency can create a bridge between other concrete landscapes, and create green space agencies in the region. for the community.

RECOMMENDATIONS The Los Angeles region possesses tremendous ¡ $ Engage local communities in long- political power, as well as institutions with range planning and visioning. The Central deep technical expertise and capacity. Its Valley region lacks a sense of shared vision leaders have an opportunity to catalyze cross- and path toward a resilient future in the regional and inter-disciplinary partnerships face of development pressure. Without to advance integration. Implementing the this vision, the region will continue to face human right to water and addressing housing difculty integrating between water and afordability are the two most pressing issues land-use sectors. Bringing communities requiring signifcant political power. together across jurisdictions to determine Cities in the Los Angeles region have an what the Valley’s future will look like is the opportunity to ensure equitable, water-smart frst step toward collaborative, integrated development through stronger incentives planning. and constraints within their general plans ¡ $$$ Provide technical assistance to and zoning codes. Similar to Measure JJJ, cities help communities evaluate agency can provide generous fnancial and process consolidation. The Central Valley is incentives for priority redevelopment and infll plagued with failing small water systems. areas, afordability, aggressive permeability New legislation (AB 2050) establishes a and on-site stormwater capture and reuse, path to consolidate smaller agencies, highly water-efcient buildings and other but many of these agencies – and the positive features. communities they serve – lack the capacity RECOMMENDATIONS and technical skill to adequately evaluate ¡ whether consolidation is the best option. $$$ Invest in grassroots organizing for Additional support to facilitate community- self–advocacy to provide opportunities engaged consolidation evaluations will have for the lowest-income, most-vulnerable a tremendous long-term impact for the communities to have a real voice in region. planning processes. This will require deep engagement to educate the community Los Angeles Regional Opportunities And about the value of integrating water Recommendations management and land-use planning, while OPPORTUNITIES also teaching political engagement and The Los Angeles region has an immediate self-advocacy skills. The Community Water opportunity to capitalize on potential local Center and Self Help Enterprises provide legislation. In November 2018, Los Angeles successful models for building local capacity County residents will vote on a proposed to ensure equity in decision-making. property tax that would fund stormwater capture, treatment and infltration – dubbed the “Safe Clean Water Program.” Passing the stormwater fee will catalyze integrated

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San Diego Regional Opportunities And SANDAG’s technical working group is an ideal Recommendations venue for the region’s planners to convene, OPPORTUNITIES share ideas, and potentially converge around The San Diego region has some excellent a more resilient shared vision for the region’s planning documents, especially the City water and land use. Similarly, San Diego of San Diego’s General Plan update, the Coastkeeper is convening the heads of the Climate Adaptation Plan, the IRWM Plan city’s water and planning departments to align and the Habitat Conservation Plan. These decision-making. plans represent a signifcant opportunity to Many San Diego residents share an interest ensure regional resilience by holding local in open space and natural habitats. jurisdictions accountable to implementing Leveraging these shared principles provides them. A local measure proposed in San an opportunity to engage and educate the Diego would have required a public vote to community about the value and importance of approve any proposed amendments that integrating water management and land-use would change the General Plan or increase planning. density in undeveloped areas of the county did not make it on the November 2018 ballot. RECOMMENDATIONS This would have been a strong mechanism ¡ $ Advocate for strong, local legislation for the community to better hold its leaders that promotes afordable, efcient and accountable. anti–sprawl development and integrated water management. This includes ensuring

Figure 4: Commonalities across regions 40 Bringing Water And Land Use Together

equitable local implementation of the While priorities vary from region to region new Water Use Efciency Standards (AB and strategies for overcoming challenges 1668). Facilitating equitable local water must be tailored to each unique region, the agency consolidation through SB 778 will same common themes emerge regardless of also support long-term integration and the specifc context in which we are striving alignment. The San Diego Region can to integrate water and land use. The general ensure a sustainable water future through barriers to integration and the best practices its land use decision–making. for overcoming those barriers exist regardless of the specifc issues we are trying to address ¡ $$$ Invest in existing integrated through that integration. planning eforts (such as SANDAG’s regional planning technical working group, Similarities And Common Ground San Diego County IRWM and the San Diego Across Regions Climate Action Plan); and ensure plans are implemented. The Sonoran Institute’s Commonalities across regions can help “Growing Water Smart” program is an unify eforts to integrate water and land excellent model for bringing multiple use. The following factors that impact water jurisdictions through the integrated management and land use planning are planning and implementation process. If shared across all fve regions – indeed, all of an unbiased third–party (non–advocacy) California. organization tracks plan implementation Virtually every community in California is through metrics and communicates key facing a housing crisis. They lack sufcient fndings to community stakeholders, housing stock – especially afordable housing jurisdictions will also be held more – to meet current demand and future growth accountable for their decisions. projections. This is especially problematic from an equity perspective, as communities IX. BRINGING WATER AND already facing disadvantages are even more vulnerable to increasing costs. These residents LAND-USE TOGETHER: HOW TO are displaced from their neighborhoods, MAKE IT HAPPEN and then must travel farther distances to their workplaces, thus increasing their California is extremely diverse. Each of the transportation costs and putting greater stress fve regions represented in this study has its on their health and well–being. own unique geography, economy, culture and Communities statewide must also face politics, and each area faces its own unique mounting costs and potential disruption challenges with solutions that work best for it. from failing infrastructure. Years of deferred California infrastructure varies by region, as maintenance and lack of investment at the does their primary water supply. Yet, each local, regional and state level have left us with region is working within the same system of a $500-billion price tag statewide. Regional and state laws and regulations, and dependent on local agencies can reduce costs and service the same statewide hydrologic system. Each disruption by coordinating infrastructure region has its own unique microclimate, which investment across sectors. will infuence their vulnerability to climate- change impacts, but the state as a whole is facing the same changing climate.

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California is made up of thousands of The Silicon Valley and San Diego regions are jurisdictions and special-purpose agencies. relatively built out, but do still have large Various policy and cultural factors contributed swaths of open space available for green over the years to the vast web of overlapping infrastructure. These regions are also less and often misaligned governance structures, densely populated than San Francisco and Los the result of which is inefciency, complexity Angeles, and thus can increase housing stock and an over–abundance of plans. This is a within their existing growth boundaries. challenge for every region across the state. The Central Valley is the least densely California’s regulatory and policy framework developed region and has the most open is equally complex to its governance system. space. This provides an opportunity for Our regulatory process results in a plethora coordinated planning and green infrastructure, of single-purpose laws and policies that rarely and a risk for continued sprawl and patchwork align and sometimes counteract one another. development. This lack of statewide regulatory and policy Cost Of Living drivers for integration is a missed opportunity and a signifcant barrier across the state. A Costs vary greatly by region. The overall cost new guidance document, Creating Sustainable of living is higher in coastal regions than in Communities and Landscapes21, can help local communities inland, and highest in the Los communities overcome this challenge Angeles, San Francisco and Silicon Valley regions. The overall size of the regional In our increasingly busy and distracted society, economy, and by extension the region’s Californians’ attention and interests are ability to bear the burden of infrastructure divided among many priorities. It is easier to investments, correlates with its cost of living. rally support around more seemingly urgent issues than the concept of water and land- Water costs are much higher in Southern use integration. The difculty in illustrating California (Los Angeles and San Diego regions) the importance of integration results in a lack than Northern California (San Francisco and of local and statewide leadership or public Silicon Valley regions), regardless of the size interest in the issue. of the local economy. Overall cost of living is much lower in the Central Valley, but its water Major Variations Between Regions costs are relatively high, and the region’s smaller economy is overburdened by the need Water and land-use integration eforts must be for infrastructure investment. tailored to the specifc needs and priorities of each region – no single approach will succeed Water Supply in every region. The following are important Drinking water quality is the primary issue distinctions between regions that will impact in the Central Valley, but is much less of a local water and land-use integration. problem in the other four regions. Pockets of the San Francisco and Los Angeles regions Density face drinking water quality issues as well, but The San Francisco and Los Angeles regions are these are caused by local infrastructure needs, largely built out, with less open space for green rather than the water supply itself. infrastructure or additional development. Communities in these regions are challenged Water supply reliability is a major issue in the to address population growth and increased Los Angeles and San Diego regions, where local housing needs within their existing footprint. waters sources are extremely limited. Costs for importing and treating water are also higher

42 Bringing Water And Land Use Together in these regions than the others. This is less of consequently lack the capacity to push for an issue in the San Francisco and Silicon Valley integration. regions, where a diversifed water portfolio increases supply reliability. The Central Valley’s Coordination is further complicated by the water supply reliability is more nuanced than sheer number of local and regional agencies. the others. While the region is relatively “water California has 58 counties, 482 municipalities rich,” its agriculture-driven economy is highly and more than 5,000 water-related agencies. water dependent and more vulnerable to Overlapping jurisdiction and conficting changes in water supply. An overreliance on priorities signifcantly inhibit integration. groundwater diminishes local water supply Incentivizing leaders to coordinate with and creates competition between demand for another and supporting local leaders who act residential water use and water for agricultural as champions of integration will encourage irrigation. the breaking down of these barriers. Aligning institutions or consolidating when appropriate Coordinated Planning And Integration can also create opportunities for integration. Water agencies in the San Francisco and Silicon Valley regions are collaborating more than Entities throughout the state must make elsewhere in the state, but these regions are these decisions within the confnes of existing not coordinating with local land-use planning. resources. This includes natural resources as well as the built infrastructure, which can be The Los Angeles and San Diego regions are used to increase the integration of water and integrating water management and land-use land use. Protecting the available resources planning at the broader regional scale more to ensure their sustainability is a key factor than other regions, but not at the local level. when integrating water management decisions with land-use planning. To accommodate Coordination between water management for these limitations, water agencies should and land-use planning varies greatly from be encouraging water use efciency and community to community in the Central Valley, conservation through incentives. On the land with very little regional collaboration. use side, local entities should be pushing Greatest Needs Across The State for infll development using smart growth principles to limit sprawling, patchwork Despite the variation among regions, several development. key needs persist statewide. Since water and land use are intertwined, the decisions made Despite the well-recognized benefts of about each must consider the other. The collaborative and integrated planning, it is question of inequity adds another complex hard work. Collaboration is time and resource factor to the equation. Since local government intensive, requiring signifcant investment are often the ones making the decisions that in relationship-building to garner trust afect water and land use, their role is essential between agencies. Integrating across sectors to ensuring integration. is complicated and requires vulnerability. No one is an expert in everything – that’s why we California’s strong political preference for need representatives from multiple sectors local control can result in misalignment with to rely on one another to achieve the desired state priorities. In the absence of regulation results. Overcoming competing priorities to or statewide guidance, local communities achieve collaboration requires a serious shift in have little incentive to pursue equitable water institutional culture and perspective. and land-use integration. Local communities

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This shared mindset can be achieved through 1. Review all existing and upcoming state- guidance documents and well-publicized best funded programs for opportunities practices that are provided to all sectors for to prioritize integrated planning and equitable integration of water and land use. multisolving projects developed at local This requires rigorous education and outreach scales with robust community engagement. with local elected ofcials, agency leads and This can be accomplished by incorporating the public. Through expanded engagement collaboration and community engagement eforts, integration can become the new criteria in all funding eligibility guidelines. “norm” and the accepted approach to decision- making for both water management and land 2. Create a framework and best practices use planning. for water/land-use integration, following a similar process undertaken Because funding is always an issue in both to develop the General Plan guidelines water management and land-use planning, we and Tribal consultation policy guidelines. need to integrate both. While other challenges The framework could be incorporated are important, the lack of sufcient funding is into the General Plan guidelines to better a consistent, primary barrier that needs to be contextualize water and land use. At the overcome to adequately address the inequities very least, this guidance or framework and lack of integration currently occurring in should include a basic set of overarching both sectors. Tangible ways to secure funding “integration” principles applicable to all include investing subsidies in disadvantaged regions and agencies, as well as specifc communities to ensure access to safe, reliable guidance about which agencies, planning and afordable drinking water. Similarly, processes and the types of projects in land use, developers would need to be are best suited for integration. More incentivized to build afordable housing that robust guidance could include regional considers clean, safe, reliable and afordable analysis and process outline for achieving water supply. integration at various scales. Immediate Next Steps 3. Provide guidance for regional alignment in planning and housing development The needs, challenges, opportunities, to enable development of cost-efective, strategies and recommendations laid out in sustainable, equitable projects that this report may seem daunting. Achieving integrate water and land use. This should equitable integration of water and land use is include technical assistance to help local an ambitious goal, and will take many years jurisdictions conduct a full analysis of their of active engagement to reach. The following development codes and regulations with summary of small steps lays out various the goal of integrating and streamlining stakeholders can take – starting now – to their permitting processes. Any permit advance this efort. streamlining should ensure equitable What The State Can Do and sustainable distribution of increased The State of California, its executive leadership housing and population growth, based and its many agencies and departments, has on distributing density in accordance with tremendous power and resources to bear on available local resources and existing local ensuring equity in integrating water and land context. use. The State could take these useful actions immediately, without needing new legislation:

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4. Evaluate all state level regulations that The following recommendations describe next govern water management and land- steps for community foundations, grouped use planning and establish “umbrella” or into three overarching themes: maintaining “programmatic” permitting for multisolving collective momentum; advocating for state projects that integrate water and land use. level policy change; and investing in local This approach has been highly successful integration. with CEQA permitting programs for habitat- protection and ecosystem-restoration MAINTAIN COLLECTIVE MOMENTUM projects. The Community Foundation Water Initiative is a successful model of coordinated 5. Develop a comprehensive ecosystem investment and network development. By services and groundwater recharge working together as a cohort, the Initiative agenda for state-managed lands and state- built the group’s collective capacity to address funded projects on non-state managed interconnected state-level issues while lands. The Department of Water Resources also building individual capacity of each has already created guidance on measuring participating foundation to support their own ecosystem services, through the California local water-related initiatives. This momentum Water Plan process, and some guidance is just building, and should be nurtured for on groundwater recharge through their further impact. Sustainable Groundwater Management Act implementation team. The Department ¡ Current cohort members should continue of Water Resources, the California Fish meeting together and working on collective and Wildlife Service, California State Parks water/land-use integration projects. and the State Water Board should work ¡ Community Foundation Water Initiative together on a comprehensive approach should share their work broadly and recruit to ecosystem services and groundwater additional California funders to join the recharge. This approach should include network. a statewide manual with refned best management practices, decision-making ¡ The Community Foundation Water Initiative support tools and pilot demonstration should also engage with the national Water projects. Funder Initiative to pursue coordination What Foundations Can Do and broader impact. Community foundations can play a ¡ Community Foundation Water Initiative signifcant role in improving water and land- members should work together to organize use integration. Community foundations and host convenings of regional thought as independent neutral parties are ideal leaders to share the fndings of this report conveners for bringing disparate groups and develop tangible actions for improving together. As a voice for local communities, integration within their regions. community foundations are well equipped to engage in the political arena and advocate ¡ The Community Foundation Water Initiative for necessary change on behalf of their should also develop a coalition of water/ constituents. land-use integration advocates from a broad range of perspectives, to help Community foundations as funders can continue advancing identifed strategies. leverage necessary investment in local eforts directly within the communities they serve.

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ADVOCATING FOR STATE LEVEL POLICY Leadership development should also include CHANGE establishing a basic understanding of the Community foundations can advance water water/land use nexus, shared understanding and land-use integration by advocating of one another’s sectors (water knowledge for for changes in state-level policies. Many land-use planners; planning knowledge for recommendations surfaced during this water managers), as well as basic collaboration research; the six listed in the “Statewide skills. Policies to Push For” section are relatively achievable and would have a signifcant impact Next steps should include collectively exploring toward equitable integration. The Community opportunities to collaborate and integrate Foundation Water Initiative cohort should water and land use in each region. Efective choose one to three of those policies to models include the Water Education for Latino develop and launch an advocacy campaign to Leaders (WELL) UnTapped fellowship program advance those policy initiatives. and the Local Government Commission’s Association of Regional Climate Change INVESTING IN LOCAL INTEGRATION Collaboratives (ARCCA). Community foundations as grant makers COMMUNITY ENGAGEMENT AND EDUCATION and engagement experts can invest in local integration via leadership development, Community foundations can engage local community education, technical assistance, community members and educate them about and project funding. Community foundations the value of integrating water management can also fund legislation that mandates and land-use planning, while also teaching integrated data sharing, consistency, and them political engagement and self–advocacy management across agencies. The Community skills. As a cohort, the Community Foundation Foundation Water Initiative cohort should Water Initiative could invest in a shared choose one of the following strategies to statewide curriculum with regional variations, work on collectively – through coordinated, and simultaneously launch a collective statewide initiatives implemented locally within community engagement campaign. Such a their regions. Once a strategy is selected, campaign will be most efective if centered the cohort should work with key advisors around a specifc local action or policy change. to develop a more specifc implementation The Community Water Center, Self Help plan. Individual cohort members should also Enterprises, and Youth United for Community consider investing independently in the other Action provide successful models for building strategies. local capacity to ensure equity in decision- making. LEADERSHIP DEVELOPMENT TECHNICAL ASSISTANCE TO FACILITATE Community foundations can educate local INTEGRATED PLANNING policymakers about the importance of water and land-use integration, and can convene Community foundations can provide technical cohorts of local water and land use leaders assistance to support water and land use to interact with one another. Leadership integration in pilot communities through the development should be conducted at “Growing Water Smart” community-assistance the basin or watershed scale, as the frst training program model. The program step to integrating water and land use is convenes multi–disciplinary teams from each understanding where your water comes from. participating jurisdiction, educates them about

46 Bringing Water And Land Use Together water and land-use integration, facilitates The Department of Water Resources local visioning and goal-setting, works through Integrated Regional Water Management development of a tangible action plan, and grant program and the State Water Board’s then provides ongoing technical assistance Stormwater Resource Planning grants during plan implementation. are successful examples of incentivizing collaboration. Alternatively, foundations can build relationships directly with jurisdictions willing What Other Stakeholders Can Do to improve integration and fund technical The water-management and land-use planning assistance providers to facilitate the cross- sectors each rely on a wide range of actors jurisdictional collaborative process. Efective to achieve their respective goals. These same models of local technical assistance include actors – state and local agencies, NGOs and the Central Coast Low Impact Development engaged community members – are necessary Initiative for stormwater management and the to achieve integration of the two sectors. CivicSpark AmeriCorps program. The following actions are eforts other PROJECTS THAT INTEGRATE WATER AND LAND stakeholders can take to continue making USE progress toward more equitable integration of Community foundations as local water and land use. grantmakers can provide competitive LOCAL PUBLIC AGENCIES: funding opportunities that require cross- jurisdictional water and land-use integration TAKE INITIATIVE TO START THE CONVERSATION. for project implementation. Similar to the Public-agency staf with a mind toward recommendations above for state funding integration should start regular conversations programs, community foundations should and ad hoc meetings with their counterparts provide project funding that requires in other departments, agencies, or even collaboration and integration of water and jurisdictions. Integration begins with opening land use. For example, community foundations up lines of communication and building could fund joint eforts to advocate for relationships. legislation that would support collaborative For example, San Diego CoastKeeper green infrastructure projects. Los Angeles initiated an ad hoc coordination committee Measure W initiative is a successful example. of city and county department heads who Stormwater green infrastructure projects are meet monthly to discuss planning and the most tangible and straightforward. Larger infrastructure. In Merced, the City’s planning development projects, such as Candlestick and water-conservation departments meet Park and the Los Angeles County Stormwater regularly, and are working closely with Master Plan, will be costlier, but have greater their county colleagues and local irrigation impact. districts to prepare the region’s Groundwater Sustainability Plan. The Community Foundation Water Initiative could launch a collective grant program PRIORITIZING INFRASTRUCTURE INVESTMENTS (competitive or noncompetitive) to implement THAT SUPPORT EXISTING COMMUNITIES. similar projects in each of their regions, such Local communities across California – as multisolving through stormwater green especially low-income communities and infrastructure projects in local parks. communities of color – sufer from deferred maintenance of existing infrastructure.

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Investing infrastructure and development Collaborative projects between multiple dollars in these communities, rather than agencies and/or departments will yield developing new communities, is more the best results (municipal stormwater equitable and more sustainable. This can departments, parks departments, community be accomplished by conducting an internal development departments, transportation audit of existing infrastructure investment agencies, school districts, wastewater agencies, needs, scheduling and budgeting for them, groundwater sustainability agencies and water and requiring more stringent review of project supply agencies). siting to evaluate alignment with general plans and regional Sustainable Communities LEVERAGE THE SUSTAINABLE GROUNDWATER Strategies and Regional Transportation Plans. MANAGEMENT ACT. New Groundwater Sustainability Agencies Local jurisdictions can also provide incentives (GSA) have an incredible opportunity to – such as reducing uncertainties for improve water and land-use integration. developers for afordable housing projects, The Sustainable Groundwater Management and streamlined permitting – for afordable- Act requires consideration of general plans housing development that is located in priority in groundwater sustainability plans, and development areas (for communities that vice versa. SGMA gave any agency with have them) and consistent with both General land use authority eligibility to serve as a Plans and Sustainable Community Strategies. GSA, therefore creating an opportunity for The same applies for infll and redevelopment water managers and land managers to be projects. These actions will help ensure equals at the table. Despite this opportunity, equity, prevent environmental injustices, and many GSAs across the state were formed minimize negative water and land-use impacts. by existing water agencies, without land use agency representation. Communities will be IMPLEMENT MULTISOLVING THROUGH far more resilient if GSAs, cities and counties STORMWATER GREEN-INFRASTRUCTURE proactively collaborate. These agencies should PROJECTS. work together to identify and protect priority Green infrastructure is the most tangible recharge areas, develop green-infrastructure illustration of the water/land-use nexus. projects that promote recharge, and conduct Projects can be implemented at all scales – planning using shared data – especially growth from small pocket parks and street medians projections and demand forecasting. to large regional mixed-use spaces. Regardless of scale, projects can be used to educate Groundwater Sustainability Agencies the community (and other agencies) about (and overdrafted basins operating under water and land use; provide local green adjudications that are exempt from SGMA), economy jobs and job training opportunities; cities and counties should also coordinate and address a range of local infrastructure planning eforts with the metropolitan needs – such as multi-use public spaces, food boundaries (areas of infuence beyond attenuation, water quality and groundwater jurisdictional boundaries), commute-sheds recharge. and Local Agency Formation Commissions of the communities relying on the basin’s Larger development and redevelopment groundwater. projects, such as Hunter’s Point Shipyard and Candlestick Park in San Francisco provide more opportunity for collaboration and integration.

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NGOS AND COMMUNITY MEMBERS 4. Host or sponsor local pilot projects. 1. Educate yourselves and others. The NGOs can serve as important partners frst step in achieving integration is an for local governments to apply for educated populace that understands the grant funding and carry out projects for value and importance of integrating water which public agencies lack the capacity management and land use planning. NGOs or expertise. With their more broad, should seek opportunities to learn more holistic perspective, NGOs can guide about water and land use integration project planning and implementation themselves, and then share that knowledge to ensure equity, collaboration, and with the public in the context of how integration throughout. NGOs can also water and land use decisions impact their help publicize the positive outcomes of communities, and how integration can integrated projects, thus encouraging other improve conditions. Youth United for communities to do the same. One particular Community Action followed a “teach the area ripe for local project participation teacher” model to frst learn themselves, is multisolving solutions to stormwater and then engage other community compliance, especially in communities with members in advocating for a safe, clean, stormwater fees, so as to ensure that public afordable and reliable water supply. A investments provide the greatest range of similar model should be followed for water/ benefts to the communities fnancing that land-use integration. investment. 2. Hold public agencies accountable. City Signs Of Hope councilmembers, county commissioners, California acknowledges water and sanitation water agency board members and state as a basic human right. Ensuring access to legislators are public servants, beholden clean, safe, reliable, and afordable water to their constituents. It is up to the public and wastewater services for all Californians to engage in the local political process – must be the primary objective of any efort voice our concerns and share our priorities to integrate water management and land-use with these governing bodies. NGOs and planning. community members should engage in planning processes (such as general Access to afordable housing and plans, groundwater sustainability plans transportation is inherently interconnected and sustainable community strategies) to with access to drinking water and sanitation advocate for better coordination between services. Infrastructure investments (gray agencies and more equitable distribution of or green), agency consolidation, future investment in infrastructure. development patterns, policy and fnancing mechanisms that encourage integration must 3. Advocate for state policies that ensure include considerations of their positive and integrated planning. State investments negative impacts on all community members, should be directed to multisolving via especially those already facing disadvantages. projects developed at local scales with Costs and benefts should be distributed robust community engagement. Specifc equitably. Afordability evaluations must policy recommendations to advance water include not only costs, but also the ability of and land use integration are outlined community members to pay. Those community above. NGOs should actively engage state members who already face disadvantages and agencies and legislators to push for such are historically underrepresented in decision- policies, and community members should making must be efectively engaged to ensure support such policies. 49 Bringing Water And Land Use Together their needs are met. their Sustainable Community Strategies. Despite the many challenges and barriers ¡ Regional water collaboratives in the San to integration, opportunities abound in the Francisco and Silicon Valley regions unite Golden State. Policymakers and practitioners water retailers (BAWSCA) and wastewater are beginning to acknowledge that something agencies (BAWA), while Plan Bay Area takes needs to change about our state’s water a coordinated look at regional planning for management and land-use planning. future growth. Establishing the Integrated Regional Water ¡ Central Valley COGs have been mapping Management program in 2005 and creating ecosystem services of working lands Metropolitan Planning Organizations to through their San Joaquin Valley Greenprint develop Sustainable Communities Strategies in initiative. 2008 (via SB 375) were two early steps toward ¡ integration. A benefcial next step would be A new NGO, Fresnoland, is working to for Local Agency Formation Commissions to integrate water and land-use planning align municipal service review (MSR) data and within the Central Valley’s largest city. information with Sustainable Communities ¡ In the Los Angeles region, the city and Strategies, and vice versa. county are working together on a massive The 2014 Sustainable Groundwater stormwater capture, treatment, and Management Act (SGMA) is another step infltration project that integrates water toward integrating water and land use. management with multisolving land-use The 2015 requirement to include climate planning. adaptation in General Plan safety element ¡ The San Diego Integrated Regional Water updates (SB 379) is yet another step toward Management Plan is coordinating various integration. The California Economic Summit aspects of water management with land- three 1 Million Challenges integrate housing, use planning across the region. Community jobs and water as critical to ensuring a vibrant foundations and other stakeholders can future for California. learn from and leverage these existing Some coordinated planning and integration eforts to link and expand integration is already happening at both the state and eforts regionally and across the state. regional scale: Successful models exist for integrating water ¡ The California State University System management and land-use planning, from recently submitted a proposal for both within and outside California. In Florida, evaluating opportunities to integrate water which struggles with many of the same water and land use across their campuses. and land-use challenges as California, the state completely restructured its water governance ¡ The Governor’s Ofce of Planning and system around watershed boundaries. Each Research is considering guidance for water-management district sets its regional integrating water into city and county water budget and approves development general plans. projects based on available water supply and infrastructure capacity. Australia followed a ¡ Metropolitan Planning Organizations similar approach amid its historic Millennium (MPOs) and Councils of Governments Drought, but took it one drastic step further (COGs) are already integrating climate – restructuring the island nation’s entire water- resilience, housing and transportation in rights structure.

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Sonoma County and the Sonoma County Water funding for water and land-use practitioners Agency share both geographic boundaries to incentivize the difcult work of collaborating and a board of supervisors. This shared and integrating their operations. governance and authority over both water and land-use planning encourages integrated California is at a critical juncture. Intense planning and management. pressure for further development, shifting hydrologic and ecological conditions, and a California’s community foundations, NGOs and new administration present both signifcant advocacy groups have proven experience in risk and opportunity. We as a state and building partnerships and developing political within each region can either “get it right” will to address local challenges. Interested by equitably integrating water and land stakeholders can leverage these existing skills use, leading to a more resilient and vibrant to foster water and land-use integration. future for all, or “get it wrong” by maintaining the status quo, and perpetuating historic The most efective strategy will be a three- inequities and exacerbating the negative pronged approach: (1) engaging local elected impacts of both climate change and sprawl ofcials (city councils and county commissions) development. Community foundations as whom have the local decision-making leaders, conveners, and funders have a unique authority, using state government infuence opportunity to impact real and lasting change. through regulatory frameworks; (2) educate The recommendations in this report provide and empower local community members to the frst steps for doing so. advocate for better integration; and (3) provide

51 Bringing Water And Land Use Together ENDNOTES 1 Margerum, R.D. (1999). Implementing Integrated Planning and Management: A typology of approaches. Australian Planner, 36:3, 155-161. 2 Lubell, M., & Lippert, L. (2011). Integrated regional water management: a study of collaboration or water politics-as-usual in California, USA. International Review of Administrative Sciences, 77:1, 76-100. 3 Lubell, Mark. (2010). Integrated regional water management: Collaboration or water politics as usual? Technical Completion Reports, University of California Water Resources Center. UC Berkeley. 4 Sawin, E., & McCauley, S. (2018). Multisolving at the Intersection of Health and Climate: Lessons from Success Stories. Climate Interactive. See: https://img.climateinteractive.org/wp- content/uploads/2018/02/Multisolving-at-the-Intersection-of-Health-and-Climate-1.pdf 5 Local Government Commission (LGC). (1991). The Ahwahnee Principles for Resource Efcient Communities. Sacramento. See: http://www.lgc.org/about/ahwahnee/principles 6 Local Government Commission (LGC). (2007). Addressing the Disconnect: Water Resources and Local Land Use Decisions. Sacramento. See: http://www.lgc.org/resources/water 7 Innes, J. E., Connick, S., Kaplan, L., & Booher, D. E. (2006). Collaborative governance in the CALFED program: Adaptive policy making for California water. Berkeley CA: Institute of Urban and Regional Development. 8 Ibid. LGC 1991; Margerum, R.D. (1999). Implementing Integrated Planning and Management: A typology of approaches. Australian Planner, 36:3, 155-161. 9 Najjar, K., and Collier, C. R., Integrated Water Resources Management, Water Resources Impact, 2011 13(3), 3- 10 American Planning Association (APA). (2015). Recommendations and Report of APA’s Water Task Force. See: https://www.planning.org/leadership/agendas/2015/spr/pdf/ WaterTaskForceFinal.pdf 11 Hanak, E., Lund, J. R., Dinar, A., Gray, B., Howitt, R., Mount, J., Moyle, P., & Thompson, B. (2011). Managing California’s Water: From Confict to Reconciliation. Public Policy Institute of California. San Francisco.; Dixon, J. A., Easter, K., & Hufschmidt, M. M. (1986). Watershed resources management: an integrated framework with studies from Asia and the Pacifc. No. 556.18 WAT. 12 Ibid. LGC 1991; ibid. LGC 2007 13 Shellenberger, Michael. “Number One In Poverty, California Isn’t Our Most Progressive State –– It’s Our Most Racist One.” Forbes, Forbes Magazine, 5 June 2018, www.forbes.com/ sites/michaelshellenberger/2018/05/31/number–one–in–poverty–california–isnt–our–most– progressive–state–its–our–most–racist–one/#dcfccbb5cd

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14 US Water Alliance. (2017). An Equitable Water Future: A National Briefng Paper. See: http://uswateralliance.org/sites/uswateralliance.org/fles/publications/uswa_waterequity_FINAL. pdf 15 Ibid. US Water Alliance 2017 16 Alaska, Arizona, California, Delaware, Florida, Georgia, Idaho, Massachusetts, Minnesota, Montana, Nebraska, New Jersey, North Carolina, Oregon, South Carolina, Tennessee, Texas, Utah, Washington. From Nagle, D.G., W. Curey, W. Hall, and J.L. Lape. 1996. Integrating the point source permitting program into a watershed management program. Watersheds 96. Alexandria, VA.: Water Environment Federation. 17 Croft, Jennifer. Water shortage in East Palo Alto and construction is put on hold. Current Water. August 2017. See: https://currentwater.co/2017/08/21/water-shortage-east-palo-alto- construction-on-hold/ 18 http://sjvgreenprint.ice.ucdavis.edu/content/welcome-san-joaquin-valley-greenprint 19 https://dpw.lacounty.gov/wmd/stwq/EastLA.aspx 20 BMP Design Fact Sheets, County of San Diego BMP Design Manual, Appendix E. 2016. See: https://www.sandiegocounty.gov/content/dam/sdc/dpw/WATERSHED_PROTECTION_PROGRAM/ watershedpdf/County_BMPDM_App_E.pdf 21 California Strategic Growth Council, Governor’s Ofce of Planning and Research, and California Association Local Agency Formation Commissions. Creating Sustainable Communities and Landscapes Recommended practices and tools for local collaboration on climate-smart growth. October 2018. See: http://sgc.ca.gov/resources/docs/20181004-Creating_Sustainable_ Communities_and_Landscapes.pdf

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