AGENDA REPORT
TO: Honorable Mayor & City Council FROM: Councilmember Kaplan,At-Large SUBJECT: 2019 Plumbing Code, Appendix M DATE: 2/2/23
RECOMMENDATION
Councilmember Kaplan Recommends That The City Council Adopt an Ordinance:
Amending The OaklandMunicipal Code ToAddSection15.04.3.5065ToAdopt AppendixMOf The2022CaliforniaPlumbingCode,CaliforniaCodeOfRegulations,Title24,Part5,Peak Water Demand Calculator; And Adopting Appropriate California EnvironmentalQuality Act Findings EXECUTIVE SUMMARYThis Ordinance would voluntarily adopt Appendix M of the 2022 California Plumbing Code, the WaterDemand Calculator (WDC), a tool for calculating peak water demand for new residential developments.The method for estimating the demand load in Appendix M is the first significant update of water pipesizing in buildings in over 80 years.With the adoptionof Appendix M, the City of Oakland would furtherimprove pipe sizing and reduce existing inefficiencies in the interests of affordable development andpublic welfare.
BACKGROUND / LEGISLATIVE HISTORYTitle 24, the California BuildingStandards Code, of the California CodeofRegulations isabroadsetofrequirements for construction regarding plumbing, fire andpanic safety, andsustainability. These codesare updated every three years and, depending on the section of the code, are based on national andinternational standards. The 2022 California Building Standards Code was recently adopted and iseffective as of January 1, 2023.
State law allows local governments to adopt amendments to the California Building Standards Code,includingthe optional appendices of the Code. AppendixMof the California PlumbingCodeauthorizesthe use of the Water Demand Calculator, developed by the International Association of Plumbing &Mechanical Officials (IAPMO) as a tool for calculating peak water demand of new residentialdevelopments if authorized by local ordinance.
The method for estimating the demandloadinAppendixMis the first significant update of water pipesizinginbuildings inover80years.WiththeadoptionofAppendixM,theCityofOaklandwouldfurtherimprove pipe sizing and reduce existing inefficiencies in the interests of affordable development andpublic welfare.
ANALYSIS AND POLICY ALTERNATIVESAppendixMof the California PlumbingCode (CPC) provides a methodfor estimatingthe demandloadfor the building water supply and principal branches for single- and multi-family dwellings with City CouncilFebruary 7, 2023
Honorable Mayor & City CouncilSubject:Date: February 2, 2023 Page2 water-conserving plumbing fixtures, fixture fittings, and appliances. The International Association ofPlumbing & Mechanical Officials (IAPMO) developed the Peak Water Demand Calculator (WDC) torespondtotheincreaseduseofwater-conservingplumbingfixturesandthesubsequentdecreaseddemandfor water in residences. 1 The WDCis the first significant codifiedmodificationtoestimatingpeakindoorwaterdemandsincethedevelopment of Hunter’s curve 80 years ago. Flow rates currently are based on data and plumbingfixtures from the 1930s. As a result, the plumbing systems in single- and multi-family dwellings areoversized, which results in:● Increased water aging and declining water quality● Wasted energy and water● Longer hot water delivery times; and● Unnecessary material and labor costs during construction The WDC was developed specifically to address the water quality and water and energy efficiencyproblems associated with oversized building water pipes. However, the use of the WDCalsoprovidessignificant cost-saving efficiencies. Smaller pipes are more compatible withmodernfixtures, whichcanhelp save water for utilities andtheir customers. For everydecrease inpipe size, less energyis requiredfor water circulationpumps andwater heaterstotransferandheatwaterthroughoutabuilding,leadingtoenergy savings for bothutilities andconsumers. Byshrinkingpipe size requirements, the manufacturerscanreduce their carbonfootprint. Inaddition, smaller pipes meanfewerresourcesandenergyareneededper pipe, lowering the carbon footprint of each new pipe produced.
AppendixMof the CPCThe CityofOaklandfindsthattheadoptionofAppendixMasanamendmenttothe OaklandMunicipal Code section15.04.3.5065isnecessarytoaddresslocalclimaticconditionsandtoprovide for the construction and retention of buildings and facilities in Oakland.
PUBLIC OUTREACH / INTERESTPlanning and Building staff shared that prior to implementation, informing customers and providingproper forms and check boxes for the permit application will play an essential role in ensuring the use ofAppendix M. In addition, providing staff training at permit, plan, review, and inspections will benecessary for enforcement.
COORDINATIONStaff have reached out to East Bay Municipal Utility District to keep coordinating stakeholders abreast ofthis potential change.
SUSTAINABLE OPPORTUNITIES
Economic:The use of the WDC will provide significant cost-saving efficiencies. Smaller pipes are morecompatible with modern fixtures, which can help save water for utilities and their customers. For everydecrease in pipe size, less energy is required for water circulation pumps and water heaters to transfer andheat water throughout a building, leading to energy savings for both utilities and consumers. 1 Muchberger, Steven, et al. “Peak Water Demand Study: Probability Estimates for Efficient Fixtures in Single andMulti-Family Residential Buildings.” Jan. 2017.
Community and Economic Development CommitteeFebruary 2, 2023 Honorable Mayor & City CouncilSubject:Date: February 2, 2023 Page3 Environmental: The adoption of Appendix M will allow for the implementation of a more accurate pipesizing methodology for new residential development, which will, in turn, improve water-use efficiencythrough the subsequent implementation of smaller piping, helping to address drought-related water supplyimpacts.
The City’s adoption of Appendix Mwould further strengthen the City’s alignment withexistingwaterefficiencylegislationsuchas AB1668(2018) andSB606(2018), whichtasktheStateWaterResourcesControl boardtoestablishlong-termurbanwater use efficiencystandards. The enactedlegislationsets atarget of 55gallons per capita per dayfor indoor water use, andgiventhatthetargetwillbecomefurtherrestrictive come January2030, theadoptionofAppendixMwillprovidetheCitywiththenecessarytoolsto meet the future target for per capita water use.
Byshrinkingpipe sizerequirements,manufacturerscanreducetheircarbonfootprint.Inaddition,smallerpipes mean fewer resources and energyare neededper pipe, loweringthe carbonfootprint of eachnewpipe produced.
Race & Equity: No direct Race & Equity opportunitieshave been identified related to this ordinance.
CALIFORNIA ENVIRONMENTAL QUALITY ACT (CEQA)This ordinanceisexemptfromCEQApursuanttoCEQAGuidelines§15061(b)(3)asaprojectthathasnopotential for causinga significant effect onthe environment givenit simplyadoptsanexistingPlumbingCode standard. This ordinance is also exempt from CEQAbecause its adoption is a measure for theprotection of the environment pursuant to CEQA Guidelines section 15308
ACTION REQUESTED OF THE CITY COUNCIL
Councilmember Kaplan Recommends That The City Council Adopt an Ordinance:Amending The OaklandMunicipal Code ToAddSection15.04.3.5065ToAdopt AppendixMOf The2022CaliforniaPlumbingCode,CaliforniaCodeOfRegulations,Title24,Part5,Peak Water Demand Calculator; And Adopting Appropriate California EnvironmentalQuality Act Findings For questions regarding this report, please contact Christine Miyashiro, Policy Director forCouncilmember Kaplan, at [email protected].
Respectfully submitted,
Councilmember KaplanAt-Large
Prepared by:Christine Miyashiro, Policy DirectorOffice of Councilmember At-Large Rebecca Kaplan Attachments (1): Appendix M of the 2022 California Plumbing Code Community and Economic Development CommitteeFebruary 2, 2023