Designing Effective Groundwater Sustainability Agencies: Criteria for Evaluation of Local Governance Options

Center for Law, Energy, and the Environment (CLEE) | ?

With the passage of the Sustainable Groundwater Management Act (SGMA)1 in 2014, California took a historic step towards managing the state’s groundwater resources. SGMA

With the passage of the Sustainable Groundwater Management Act (SGMA)1 in 2014, California took a historic step towards managing the state’s groundwater resources. SGMA adopts a state policy of managing groundwater resources “sustainably for long-term reliability and multiple economic, social, and environmental benefits for current and future beneficial uses.”2 Although these ambitious goals are critical to California’s future water security and sustainablility, major questions remain about how to achieve them. Designing institutions for sustainable groundwater management is one of the most pressing challenges for SGMA implementation. Local entities in mediumand high-priority basins must establish Groundwater Sustainability Agencies (GSAs) by June 2017. GSA design and structure will play a critical role in meeting the sustainability goals required by SGMA. Because designing new institutions for good governance is not easy, the need for information and guidance is acute. SGMA leaves great latitude for local decision making. Primary responsibility for groundwater governance lies with GSAs, to be established by local entities in groundwater basins or sub-basins. SGMA does not specify the details for institutional design of GSAs, nor what specific governance actions must be taken to achieve sustainable groundwater management. Instead, the legislation provides an array of regulatory and non-regulatory tools—mostly optional—from which GSAs can choose. Those tools, in addition to existing authorities already available to local agencies, will provide the basis for groundwater governance in each basin. The relatively short timeline for GSA formation requires local governments and other stakeholders to analyze available options and decide, quickly, how to form novel agencies. These agencies should be armed with the tools necessary to meet current and future groundwater challenges. While no governance solution is ever perfect, GSAs will have a greater chance of governing fairly and effectively if their design anticipates some common challenges of shared resource governance. The primary purpose of this document is to assist stakeholders and decision makers in evaluating the design of GSAs. It aims to empower them to think critically about whether proposed GSAs will meet their needs now and in the future, and—if not—which tools may help to achieve these goals. The framework presented here draws on experience in other natural resource management contexts and on research on governance and institutional design to provide lessons learned and illustrative examples.

Designing Monitoring Programs in an Adaptive Management Context for Regional Multiple Species Conservation Plans

U.S. Geological Survey (USGS) | January 1st, 2004

Increasing numbers of regional, multiple species conservation plans have been developed in California since the early 1990s. However, building effective monitoring and ad

Increasing numbers of regional, multiple species conservation plans have been developed in California since the early 1990s. However, building effective monitoring and adaptive management programs to support these plans has remained a challenge. In addition to collecting data on the status of resources and the results of management actions, monitoring programs for these plans need to resolve critical uncertainties and channel information into effective decisionmaking.  Because of the broad goals of many regional conservation plans, monitoring programs need to address ecosystem integrity and biodiversity while also tracking species “covered” by plan permits. In this document we provide a step-by-step procedure for developing effective monitoring programs in an adaptive management context. The guidance provided here has been gleaned from experience with large multiple species plans in southern California. The process begins with clearly defining program objectives, partitioning the program into manageable but meaningful pieces, and developing management-oriented conceptual models of system function. Then, based on the objectives and conceptual models, monitoring recommendations and critical uncertainties can be identified and a coordinated program designed. We include practical examples and insights from programs in southern California and discuss the evolution of monitoring and adaptive management programs through three successive stages: 1) inventorying resources and identifying relationships; 2) pilot testing of long-term monitoring and resolving critical management uncertainties; and 3) implementing long-term monitoring and adaptive management. Ultimately, the success of regional conservation planning depends on the ability of monitoring programs to confront the challenges of adaptively managing and monitoring complex ecosystems and diverse arrays of sensitive species.

Designs for cyanobacterial harmful algal bloom monitoring in the Sacramento–San Joaquin Delta, California

ESS Open Archive | December 5th, 2025

Cyanobacterial harmful algal blooms (CHABs) are a growing concern in freshwater environments. These blooms can lead to degraded water quality, ecosystem disruptions, and

Cyanobacterial harmful algal blooms (CHABs) are a growing concern in freshwater environments. These blooms can lead to degraded water quality, ecosystem disruptions, and public health threats due to the production of potent cyanotoxins. The Sacramento–San Joaquin Delta (the Delta) has experienced CHABs since 1999, including CHABs that produce cyanotoxins at concentrations exceeding recreational advisory threshold levels. The report also describes how data from monitoring can be used to support model development to address management needs.

Detecting community response to water quality violations using bottled water sales

National Academy of Sciences (NAS) | September 30th, 2019

Detection and Measurement of Land Subsidence and Uplift Using Global Positioning System Surveys and Interferometric Synthetic Aperture Radar, Coachella Valley, California, 2010–17

U.S. Geological Survey (USGS) | September 3rd, 2020

Groundwater has been a major source of agricultural, recreational, municipal, and domestic supply in the Coachella Valley of California since the early 1920s. Pumpi

Groundwater has been a major source of agricultural, recreational, municipal, and domestic supply in the Coachella Valley of California since the early 1920s. Pumping of groundwater resulted in groundwater-level declines as large as 50 feet (ft) or 15 meters (m) by the late 1940s. Because of concerns that the declines could cause land subsidence, the Coachella Valley Water District (CVWD) and the U.S. Geological Survey (USGS) have cooperatively investigated subsidence in the Coachella Valley since 1996. Importation of Colorado River water to the southern Coachella Valley began in 1949, resulting in a reduction in groundwater pumping and a recovery of groundwater levels during the 1950s through the 1970s. Since the late 1970s, the demand for water in the valley increased to the point that groundwater levels again declined in response to increased pumping and, consequently, increased the potential for land subsidence caused by aquifer-system compaction. Several management actions to increase recharge or to reduce reliance on groundwater have been implemented since as early as 1973 to address overdraft in the Coachella Valley. The implementation of three particular projects has markedly improved groundwater conditions in some of the historically most overdrafted areas of the valley: (1) groundwater substitution with surface-water imports since 2006 using Colorado River water through the Mid-Valley Pipeline project, which was expanded through 2017; (2) budget-based, tiered rates since 2009; and (3) managed aquifer recharge at the Thomas E. Levy Groundwater Replenishment Facility since 2009. Global Positioning System (GPS) surveying and interferometric synthetic aperture radar (InSAR) methods were used to determine the location, extent, and magnitude of the vertical land-surface changes in the Coachella Valley during 2010–17, updating 1993–2010 information presented in previous USGS reports. The GPS measurements taken at 24 geodetic monuments in August 2010 and September 2015 indicated that the land-surface elevation was stable at 17 monuments but changed at seven monuments during the 5-year period. Subsidence ranged from 0.17 to 0.43 ±0.09 ft (52 to 132 ±28 millimeters, or mm) at three monuments, and uplift ranged from 0.11 to 0.18 ±0.09 ft (33 to 54 ±28 mm) at four monuments between 2010 and 2015. At two of the monuments that subsided, the subsidence rates decreased between 2010 and 2015 from those computed between 2005 and 2010. Data prior to 2010 were not available for the third monument that subsided; thus, the 2010–15 subsidence rate could not be compared to an earlier period. At three of the monuments that uplifted between 2010 and 2015, data collected in 2005 and 2010 indicated stability. Data prior to 2010 were not available for the fourth monument that uplifted; thus, the 2010–15 uplift rate could not be compared to an earlier period. InSAR analyses for December 28, 2014–June 27, 2017, indicated that the land surface uplifted as much as about 0.20 ft (60 mm) near the Whitewater River Groundwater Replenishment Facility in the northern Coachella Valley and subsided as much as about 0.26 ft (80 mm) in the La Quinta area and less in Palm Desert, Indian Wells, and other localized areas in the southern Coachella Valley. These areas were identified as subsidence areas in previous reports covering periods during 1993–2010. The comparison of 2014–17 subsidence rates with those derived for 1995–2010 generally indicated a substantial slowing of subsidence, however. Analyses of deformation in the northern Coachella Valley were not included in the previous reports, so a comparison to deformation during the earlier period could not be made. Water levels in wells near the subsiding geodetic monuments, in and near the three subsiding areas shown by InSAR, and throughout the valley generally indicated seasonal fluctuations and longer-term stability or rising groundwater levels since about 2010. These results mark a reversal in trends of groundwater-level declines during the preceding decades. This trend reversal provides new insights into aquifer-system mechanics. Although many areas have stopped subsiding, and a few have even uplifted, the few areas that did subside during 2010–17—albeit at a slower rate—indicate a mixed aquifer-system response. Subsidence when groundwater levels are stable or recovering indicates that residual compaction may have occurred. At the same time, coarse-grained materials and thin aquitards may have expanded as groundwater levels recovered. The continued valley-wide stabilization and recovery of groundwater levels since 2010 likely is a result of various projects designed to increase recharge or to reduce reliance on groundwater.

Detection and measurement of land subsidence and uplift using interferometric synthetic aperture radar, San Diego, California, USA, 2016–2018

International Association of Hydrological Sciences (IAHS) | April 22nd, 2020

Land subsidence associated with groundwater-level declines is stipulated as an “undesirable effect” in California’s Sustainable Groundwater Management Act (SGMA), a

Land subsidence associated with groundwater-level declines is stipulated as an “undesirable effect” in California’s Sustainable Groundwater Management Act (SGMA), and has been identified as a potential issue in San Diego, California, USA. The United States Geological Survey (USGS), the Sweetwater Authority, and the City of San Diego, undertook a cooperative study to better understand the hydromechanical response of the coastal aquifer system using Interferometric Synthetic Aperture Radar (InSAR) techniques. Three periods of interest were analyzed for this study that correspond to the periods before and after two substantial changes were made to the location and volume of pumpage: (1) April–August 2016 when groundwater levels and land surface elevation were relatively stable during normal pumping, (2) September 2016–May 2017 when groundwater levels recovered and the land surface uplifted during a period of substantially reduced pumping, (3) June 2017–October 2018 when groundwater levels declined and land subsidence occurred when pumpage resumed and expanded to new wells. Spatial and temporal characterization of the hydromechanical response to changes in pumpage is important for managing land subsidence. Further study using InSAR techniques, especially when combined with ground-based geodetic and monitoring-well networks, will provide water managers information to help effectively manage groundwater resources as stipulated in the SGMA.

Detection and Measurement of Land Subsidence Using Global Positioning System Surveying and Interferometric Synthetic Aperture Radar, Coachella Valley, California, 1996–2005

U.S. Geological Survey (USGS) | June 13th, 2013

Land subsidence associated with ground-water-level declines has been investigated by the U.S. Geological Survey in the Coachella Valley, California, since 1996. G

Land subsidence associated with ground-water-level declines has been investigated by the U.S. Geological Survey in the Coachella Valley, California, since 1996. Groundwater has been a major source of agricultural, municipal, and domestic supply in the valley since the early 1920s. Pumping of ground water resulted in water-level declines as large as 15 meters (50 feet) through the late 1940s. In 1949, the importation of Colorado River water to the southern Coachella Valley began, resulting in a reduction in ground-water pumping and a recovery of water levels during the 1950s through the 1970s. Since the late 1970s, demand for water in the valley has exceeded deliveries of imported surface water, resulting in increased pumping and associated ground-water-level declines and, consequently, an increase in the potential for land subsidence caused by aquifer-system compaction. Global Positioning System (GPS) surveying and interferometric synthetic aperture radar (InSAR) methods were used to determine the location, extent, and magnitude of the vertical land-surface changes in the southern Coachella Valley. GPS measurements made at 13 geodetic monuments in 1996 and in 2005 in the southern Coachella Valley indicate that the elevation of the land surface had a net decline of 124 to 9 mm ±54 mm (0.41 to 0.03 ft ±0.18 ft) during the 9-year period. Changes at 9 of the 13 monuments exceeded the maximum expected uncertainty of ±54 mm (±0.18 ft) at the 95-percent confidence level, indicating that subsidence occurred at these monuments between June 1996 and August 2005. GPS measurements made at 20 geodetic monuments in 2000 and in 2005 indicate that the elevation of the land surface changed –192 to +51 mm ±36 mm (–0.63 to +0.17 ft ±0.12 ft) during the 5-year period. Changes at 6 of the 20 monuments exceeded the maximum expected uncertainty of ±36 mm (±0.12 ft) at the 95-percent confidence level—subsidence occurred at five monuments and uplift occurred at one monument between August 2000 and August 2005. GPS measurements at two of the five subsiding monuments for which subsidence rates could be compared indicate that subsidence rates decreased during this period compared with subsidence rates before 2000. InSAR measurements made between May 7, 2003, and September 25, 2005, indicate that land subsidence, ranging from about 75 to 180 millimeters (0.25 to 0.59 foot), occurred in three areas of the Coachella Valley: near Palm Desert, Indian Wells, and La Quinta; the equivalent subsidence rates range from about 3 to more than 6 mm/month (0.01 to 0.02 ft/month). The subsiding areas near Palm Desert, Indian Wells, and La Quinta were previously identified using InSAR measurements for 1996–2000, which indicated that about 35 to 150 mm (0.11 to 0.49 ft) of subsidence occurred during the four-year period; the equivalent subsidence rates range from about 1 to 3 mm/month (0.003 to 0.01 ft/month). Comparison of the InSAR results indicates that subsidence rates have increased 2 to 4 times since 2000 in these three areas. Water-level measurements made at wells near the subsiding monuments and in the three subsiding areas generally indicated that the water levels fluctuated seasonally and declined annually between 1996 and 2005; some water levels in 2005 were at the lowest levels in their recorded histories. The coincident areas of subsidence and declining water levels suggest that aquifer-system compaction may be causing subsidence. If the stresses imposed by the historically lowest water levels exceeded the preconsolidation stress, the aquifer-system compaction and associated land subsidence may be permanent. Although the localized character of the subsidence signals is typical of the type of subsidence characteristically caused by localized ground-water pumping, the subsidence may also be related to tectonic activity in the valley.

Detection and Measurement of Land Subsidence Using Interferometric Synthetic Aperture Radar and Global Positioning System, San Bernardino County, Mojave Desert, California

U.S. Geological Survey (USGS) | July 1st, 2003

Detection and Measurement of Land-Surface Deformation, Pajaro Valley, Santa Cruz and Monterey Counties, California, 2015–18

U.S. Geological Survey (USGS) | October 22nd, 2021

Land-surface deformation (subsidence) caused by groundwater withdrawal is identified as an undesirable result in the Pajaro Valley Water Management Agency’s Basin Manag

Land-surface deformation (subsidence) caused by groundwater withdrawal is identified as an undesirable result in the Pajaro Valley Water Management Agency’s Basin Management Plan and California’s Sustainable Groundwater Management Act. In Pajaro Valley, groundwater provides nearly 90 percent of the total water supply. To aid the development of sustainable groundwater management criteria, the U.S. Geological Survey, in cooperation with the Pajaro Valley Water Management Agency, performed an analysis of land-surface deformation (subsidence and uplift) in Pajaro Valley for 2015–18, using Interferometric Synthetic Aperture Radar and continuous Global Positioning System methods. Land-surface deformation results were then compared with subsurface geology and groundwater altitudes to better understand the hydromechanical response of the coastal aquifer system. The results indicate the land surface is generally stable with only small magnitudes (less than 1 inch) of seasonal land-surface deformation (subsidence in the summer and uplift in the winter) during 2015–18. During this time, the largest magnitude of land-surface deformation was less than 2 inches of subsidence and was localized in one area just north of the city limits of Watsonville, California. Groundwater altitudes during 2015–18 demonstrated seasonal variability and annual to multi-annual increases after reaching historical lows by the mid-1990s. The small magnitudes of land-surface deformation coupled with groundwater-altitude increases in most areas indicate that the subsidence likely is largely elastic and recoverable. The Corralitos-Pajaro Valley groundwater basin contains fine-grained (clay) sediments that have the potential for permanent aquifer-system compaction and resultant land subsidence. However, groundwater altitudes throughout the Pajaro Valley have increased above historical lows, and observed increases in groundwater altitudes coincided with changes in groundwater management activities. Observed relations between groundwater management activities and groundwater altitudes indicate that management of groundwater supplies could minimize the potential for permanent land-surface deformation in Pajaro Valley.

Detection of aquifer system compaction and land subsidence using interferometric synthetic aperture radar, Antelope Valley, Mojave Desert, California

U.S. Geological Survey (USGS) | April 15th, 1998

Interferometric synthetic aperture radar (InSAR) has great potential to detect and quantify land subsidence caused by aquifer system compaction. InSAR maps with h

Interferometric synthetic aperture radar (InSAR) has great potential to detect and quantify land subsidence caused by aquifer system compaction. InSAR maps with high spatial detail and resolution of range displacement (10 mm in change of land surface elevation) were developed for a groundwater basin (103 km2) in Antelope Valley, California, using radar data collected from the ERS-1 satellite. These data allow comprehensive comparison between recent (1993–1995) subsidence patterns and those detected historically (1926–1992) by more traditional methods. The changed subsidence patterns are generally compatible with recent shifts in land and water use. The InSAR-detected patterns are generally consistent with predictions based on a coupled model of groundwater flow and aquifer system compaction. The minor inconsistencies may reflect our imperfect knowledge of the distribution and properties of compressible sediments. When used in conjunction with coincident measurements of groundwater levels and other geologic information, InSAR data may be useful for constraining parameter estimates in simulations of aquifer system compaction.