States
ffice"OTWater
flfonmental Protection
                          Washington DC 20460



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U.S. Environmental Protection Agency
WATER CONSERVATION PLAN
GUIDELINES
August 6, 1998

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USEPA Water Conservation Plan Guidelines
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USEPA Water Conservation Plan Guidelines
CONTENTS
EXECUTIVE SUMMARY
                                                                                   Page
 XI
PART 1 INFORMATION FOR STATES

1.  Background and Introduction
       Introduction
       The SDWA Provision
       What is Required
       How States May Use These Guidelines
       State Policy Considerations
       Coordinating State Programs
       Relationship to SRF

2.  The Role of Water Conservation in Infrastructure Planning
       Goals and Perspectives
       Conservation and Infrastructure
       Planning and Funding
       Implementation Scenarios

3.  Water Conservation Planning Criteria
       The Guidelines and System Size
       Climate, Water Availability and Other Factors
       Criteria for Adapting the Guidelines

4.  Guidelines and Measures
       Planning Steps
       Conservation Measures

5.  Capacity-Development Approach
       Conservation by Small Water Systems
       Capacity Development

6.  State Roles
       Policy Issues
       Technical Assistance  for Systems
       Review and Approval
       Monitoring, Reporting, and Updates
       Interagency Coordination

7.  State Conservation Programs
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 USEPA Water Conservation Plan Guidelines
 PART 2 OVERVIEW OF THE GUIDELINES

 1.  Water Conservation Guidelines and the SDWA
 2.  Benefits of Conservation and Planning
 3.  Overview of the Planning Process
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 PART 3 BASIC GUIDELINES

 1.  Specify Conservation Planning Goals
        Planning Goals
        Community Involvement

 2,  Develop a Water System Profile

 3.  Prepare a Demand Forecast

 4.  Identify and Evaluate Conservation Measures
        Conservation Measures
        Review of Measures
        Budget
        Summary

 5.  Present Implementation Strategy
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PART 4 INTERMEDIATE GUIDELINES

1.  Specify Conservation Planning Goals
       Planning Goals
       Community Involvement

2.  Develop a Water System Profile
       System Profile
       System Conditions
       Current Conservation Efforts

3.  Prepare a Demand Forecast
       Demand Forecasting
       Forecasting Method

4.  Describe Planned Facilities
       Supply Forecasting         :
       Cost Analysis
       Estimating Incremental Supply Costs
       Preliminary Supply-Capacity Forecast
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5.  Identify Water Conservation Measures
       Levels and Measures
       Identifying Conservation Measures

6.  Analyze Benefits and Costs
       Purpose
       Water Savings
       Implementation Costs
       Cost-Effectiveness
       Net Benefits
       Comparison of Measures

7.  Select Conservation Measures
       Selection Criteria
       Selecting the Measures

8.  Integrate Resources and Modify Forecasts
       Integrating Options
       Modifying Demand Forecasts
       Project-Specific Savings
       Modifying Supply Forecasts
       Revenue Effects

9.  Present Implementation and Evaluation Strategy
       Implementation
       Implementation of Measures
       Implementation and Evaluation
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PART 5 ADVANCED GUIDELINES

1.  Specify Conservation Planning Goals
       Planning Goals
       Community Involvement

2.  Develop a Water System Profile
       System Profile
       System Conditions
       Current Conservation Efforts

3.  Prepare a Demand Forecast
       Demand Forecasting
       Forecasting Method
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 4.  Describe Planned Facilities
        Supply Forecasting
        Cost Analysis
        Estimating Incremental Supply Costs
        Preliminary Supply-Capacity Forecast

 5.  Identify Water Conservation Measures
        Levels and Measures
        Identifying Conservation Measures

 6.  Analyze Benefits and Costs
        Purpose
        Water Savings
        Implementation Costs
        Analyzing Benefits and Costs
        Comparison of Measures

 7.  Select Conservation Measures
        Selection Criteria
        Selecting the Measures

 8.  Integrate Resources and Modify Forecasts
        Integrating Options
        Modifying Demand Forecasts
        Project-Specific Savings
        Modifying Supply Forecasts
        Revenue Effects

9.  Present Implementation and Evaluation Strategy
        Implementation
        Implementation of Measures
        Implementation and Evaluation
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APPENDIX A  WATER CONSERVATION MEASURES

    Level 1 Measures
       Universal Metering
       Water Accounting and Loss Control
       Costing and Pricing
       Information and Education

    Level 2 Measures
       Water-Use Audits
       Retrofits
       Pressure Management
       Landscape Efficiency
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    Level 3 Measures
       Replacements and Promotions
       Reuse and Recycling
       Water-Use Regulation
       Integrated Resource Management
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APPENDIX B   BENCHMARKS USED IN CONSERVATION PLANNING
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APPENDIX C   ACRONYMS AND GLOSSARY
       Acronyms
       Glossary
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APPENDIX D   INFORMATION RESOURCES
       Guides and Handbooks
       Integrated Resource Planning
       Small Systems
       Forecasting
       Measures '
       Cost-Effectiveness Analysis
       Rates and Revenues
       Public Involvement
       Internet Resources
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APPENDIX E   FEDERAL FUNDING SOURCES FOR WATER CONSERVATION
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APPENDIX F   STATE CONTACT LIST
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Tables and Figures

Information for States
Table 1-1        System Size Categories and Applicable Guidelines
Table 1-2        Potential Criteria for Adapting the Guidelines
Table 1-3        Cumulative Nature of the Conservation Measures in the Guidelines
Table 1 -4        Common Elements of Capacity Development and
                Water Conservation Planning
Table 1-5        State Conservation Planning and SRF Activities (as of Fall 1997)
Table 1-6        Components of State Water Conservation Plan Guidelines (as of Fall 1997)
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  USEPA Water Conservation Plan Guidelines
  Overview of the Guidelines
  Table 2-1        System Size Categories and Type of Guidelines
  Table 2-2        Contents of a Comprehensive Water Conservation Plan
  Table 2-3        Guidelines and Associated Conservation Measures

  Intermediate Guidelines
  Table 4-1        Relationship of Water Demand to Supply Facilities
  Figure 4-1        Sample Graph of Modified Supply and Demand Forecasts
                  Based on Implementing Conservation Measures

  Advanced Guidelines
  Figure 5-1        Inputs and Outputs of the IWR-MAIN Forecasting Model
  Table 5-1         Relationship of Water Demand to Supply Facilities
  Figure 5-2        Sample Graph of Modified Supply and Demand Forecasts
                  Based on Implementing Conservation Measures
 Appendixes
 Figure A-1
 Table B-l
 Table B-2
 Table B-3
 Table B-4
 Table B-5
 Table B-6
 Water Accounting System
 Recent Estimates of Indoor Water Use With and Without Conservation
 Benchmarks for Estimating Residential End Uses of Water
 Sample Calculation of Water Savings from Showerhead Replacement
 Benchmarks for Savings from Selected Conservation Measures
 Water Efficiency Standards Established by The Energy Policy Act of 1992
 Potential Water Savings from Efficient Fixtures
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 Worksheets
 Basic Guidelines
 Worksheet 3-1
 Worksheet 3-2
 Worksheet 3-3
 Worksheet 3-4
 Worksheet 3-5
 Water System Profile
 Water Demand Forecast
 Budget and Savings for Each Conservation Measure
 Selection of Conservation Measures
 Implementation Strategy
Intermediate Guidelines
Worksheet 4-1
Worksheet 4-2
Worksheet 4-3
Worksheet 4-4
Worksheet 4-5
Worksheet 4-6
Worksheet 4-7
Worksheet 4-8
Worksheet 4-9
Worksheet 4-10
Worksheet 4-11
Water System Profile
Overview of System Conditions
Current Water Conservation Activities
Preliminary Water Demand Forecast
Anticipated Improvements and Additions
Cost of Supply-Side Facilities
Preliminary Supply-Capacity Forecast
Checklist of Conservation Measures
Analysis of Each Conservation Measure or Group of Measures
Comparison of Benefits and Costs of the Conservation Measures
Selection of Conservation Measures and Estimate of Water Savings
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Worksheet 4- 12
Worksheet 4-13
Worksheet 4- 14
Worksheet 4- 15
Worksheet 4-16

Modified Demand Forecast
Project-Specific Savings
Modified Supply Forecast and Estimated Total Savings
Implementation Schedule for Measures
Implementation Strategy
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Advanced Guidelines
Worksheet 5-1
Worksheet 5-2
Worksheet 5-3
Worksheet 5-4
Worksheet 5-5
Worksheet 5-6
Worksheet 5-7
Worksheet 5-8
Worksheet 5-9
Worksheet 5-10
Worksheet 5- 11
Worksheet 5-12
Worksheet 5- 13
Worksheet 5-14
Worksheet 5-15
Worksheet 5- 16
Worksheet 5-17
Appendixes
Worksheet A-l
Worksheet A-2
Worksheet A-3
Worksheet A-4
Worksheet A-5
Worksheet A-6
Water System Profile
Overview of System Conditions
Current Water Conservation Activities
Summary of Preliminary Water Demand Forecast
Anticipated Improvements and Additions
Present Value of Planned Supply-Side Facilities
Preliminary Supply-Capacity Forecast
Checklist of Conservation Measures
Program Costs for Each Conservation Measure or Group of Measures
Analysis of Each Conservation Measure or Group of Measures
Comparison of Benefits and Costs of the Conservation Measures
Selection of Conservation Measures and Estimate of Water Savings
Modified Demand Forecast
Project-Specific Savings
Modified Supply Forecast and Estimated Total Savings
Implementation Schedule for Measures
Implementation Strategy

Metering
Water Accounting and Loss Control
Strategies for Reducing Water Losses
Evaluating Effects of Water Rate Changes
Checklist for Information and Education
Checklist for a Residential Water Audit
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TJSEPA "Water Conservation Plan Guidelines
EXECUTIVE SUMMARY
The Safe Drinking Water Act (SDWA, 42 U.S.C. 300J-15), as amended in 1996, requires the
United States Environmental Protection Agency (EPA) to publish guidelines for use by water
utilities in preparing a water conservation plan. At their discretion, states may require water
systems to prepare a plan consistent with the guidelines as a condition of qualifying for a loan
under the Drinking Water State Revolving Loan Fund (SRF).

These Water Conservation Plan Guidelines are addressed to water system planners but use of
the Guidelines is not required by federal law or regulation. States decide whether or not to
require water systems to file conservation plans consistent with these or any other guidelines.

Although voluntary, the Guidelines may help bring conservation into the mainstream of water
utility capital facility planning.  The infrastructure needs of the nation's water systems are
great. Strategic use of water conservation can help extend the value and life of infrastructure
assets used in both water supply and wastewater treatment, while also extending the beneficial
investment of public funds through the SRF and other programs.

This document is organized into six parts. The first part of the document introduces the
Guidelines and provides information to the States about their nature and possible use.  A
number of topics are addressed: integrating water conservation and infrastructure planning,
water conservation planning criteria, guidelines and measures, State roles, and current State
programs.  Also discussed is a capacity-development approach for very small systems
suggesting that conservation planning and implementation assistance be  provided as part of a
State's capacity building efforts required by SDWA. The  second part of the document, written
for water systems, is an overview to the organization, content, and use of the Guidelines.

The next three parts contain the water conservation plan Guidelines: Basic, Intermediate, and
Advanced.

       a   The Basic Guidelines are designed for use by water systems serving populations of
           10,000 or fewer. Some water systems, especially those serving fewer than 3,300
           people, may be included in a capacity-development approach, described above,
           instead of having a plan requirement.  Systems should check with their state
           primacy agency for information and guidance  about capacity development.

       a   The Intermediate Guidelines are designed for water systems serving between
           10,000 and 100,000  people.

       a   The Advanced Guidelines are designed for water 'systems serving more than
           100,000 people.

The Basic Guidelines contain five simplified planning steps. The Intermediate and Advanced
Guidelines follow nine planning steps (with some variations in the scope of analysis and level
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 of detail requested): Specify Conservation Planning Goals, Develop Water System Profile,
 Prepare Demand Forecast, Describe Planned Facilities, Identify Conservation Measures,
 Analyze Benefits and Costs, Select Measures, Integrate Resources and Modify Forecasts, and
 Present Implementation and Evaluation Strategy.

 A three-leveled structure is presented for water conservation measures. Level 1 contains four
 categories of measures that are recommended for consideration, at a minimum, in the Basic
 Guidelines. Additional measures and categories are added for Levels 2 and 3, and
 recommended for consideration in the Intermediate and Advanced Guidelines, respectively.
 Listed below are the three levels and the categories included in each:

        Level 1 Measures
           a  Universal metering
           a  Water accounting and loss control
           a  Costing and pricing
           a  Information and education

       Level 2 Measures
          a  Water-use audits
          D  Retrofits
          a  Pressure management
          a  Landscape efficiency

       Level 3 Measures
          a Replacements and promotions
          a Reuse and recycling
          a Water-use regulation
          a Integrated resource management

Six appendixes to the Guidelines provide supporting information: detailed descriptions of
conservation measures (Appendix A), conservation benchmarks (Appendix B), acronyms and
a glossary (Appendix C), information resources (Appendix D), funding sources (Appendix E),
and state contacts  (Appendix F).
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                                        Information for States
I
      \  U.S. Environmental Protection Agency

         Water Conservation Plan Guidelines
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       •«•
PART 1

INFORMATION FOR STATES

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                                                                                Information for States
USEPA Water Conservation Plan Guidelines
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VSEPA Water Conservation Plan Guidelines
                                                                  Information for States
 1.    BACKGROUND AND INTRODUCTION
                                                   The SDWA requires the U.S.
                                                   EPA to publish water
                                                   conservation plan guidelines
                                                   that states may use in
                                                   conjunction with their SRF
                                                   programs. The law leaves
                                                   implementation decisions up to
                                                   the states.
Introduction

The purpose of this part of the document is to
introduce the Guidelines and provide information to
the states about their nature and possible use. The
1996 Amendments to the Safe Drinking Water Act
recognized the potential value of water conservation in
infrastructure funding programs such as the Drinking
Water State Revolving Fund (SRF). When water
systems need to build facilities, the benefits of water
conservation are greatly enhanced. Properly planned and implemented, water conservation
programs can defer, reduce, or eliminate the need for not only water supply facilities but
wastewater facilities, as well. Significant capital cost savings can result, which in turn
translates to smaller loan amounts for SRF Programs.  This frees up money in limited loan
funds to finance more projects to help achieve a state's compliance and public health goals.

While the capital cost savings effects of water conservation are compelling enough, the
potential benefits do not end there and also apply to customers. Water conservation extends
water supplies, of course, but can also reduce utility operating costs. Energy use by
customers and utilities can be reduced, which saves money and reduces greenhouse gas
emissions. Reducing water withdrawals also helps improve water quality, maintain
ecosystems, and protect water resources.


The SDWA Provision
The SDWA states:

     Sec. 1455. (a) Guidelines.--Not later than 2 years after the date of enactment of the Safe
     Drinking Water Act Amendments of 1996, the Administrator shall publish in the
     Federal Register guidelines for water conservation plans for public water systems
     serving fewer than 3,300 persons, public water systems serving between 3,300 and
     10,000 persons, and public water systems serving more than 10,000 persons, taking into
     consideration such factors as water availability and climate.

     (b) Loans or Grants.—Within 1 year after publication of the guidelines under subsection
     (a), a State exercising primary enforcement responsibility for public water systems may
     require a public water system, as a condition of receiving a loan or grant from a State
     loan fund under section 1452, to submit with its application for such loan or grant a
     water conservation plan consistent with such guidelines.

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                                                                       Information for States
                                     Benefits of Water Conservation

                                     In order to meet the needs of existing and future
                                     populations and ensure that habitats and ecosystems are
                                     protected, the nation's water must be sustainable and
                                     renewable. Sound water resource management, which
                                     emphasizes careful, efficient use of water, is essential in
                                     order to achieve these objectives.

                                     Efficient water use can have major environmental,
                                     public health, and economic benefits by helping to
                                     improve water quality, maintain aquatic ecosystems, and
                                     protect drinking water resources. As we face increasing
                                     risks to ecosystems and their biological integrity, the
                                     inextricable link between water quality and water
                                     quantity becomes more important.  Water efficiency is
                                     one way of addressing water quality and quantity goals.
                                     The efficient use of water can also prevent pollution by
                                     reducing wastewater flows, recycling industrial process
                                     water, reclaiming wastewater, and using less energy.
                                     Source:  EPA Office of Water, Statement of Principles
                                     on Efficient Water Use (December 1992).
 This provision suggests parameters
 for water conservation policy in
 terms of the development of federal
 guidelines, the potential use of
 conservation guidelines for states in
 connection with the SRF, and the
 primacy role of the states in program
 implementation.

 What is Required

 The SDWA requires the U.S. EPA
 to publish conservation plan
 guidelines within two years of the
 Act's passage. The  guidelines must
 take into account system size, water
 availability, and climate. The
 SDWA provides that states may
 require public water systems
 applying for SRF loans to submit a
 conservation plan consistent with the
 guidelines; there are no statutory
 mandates for states or municipalities
 in this section of the SDWA. The provision extends to SRF applicants and not to all water
 utilities under EPA and state primacy agency jurisdiction.  Current federal SRF guidelines do
 not address the water conservation provision. States can choose to extend the use of the
 guidelines to systems other than SRF applicants.

 How States May Use These Guidelines

 The SDWA makes clear that using the conservation guidelines is at the discretion of the
 states. The states may decide whether to use the guidelines at all, whether to use the
 guidelines in conjunction with their SRF programs, and whether or not to tailor the guidelines
 to specific state needs or goals. Use of these water conservation guidelines with the SRF will
 necessitate consultation and coordination with federal SRF guidelines.  States might also need
 to formulate a formal procedure for adopting the guidelines, depending on existing statutes
 and regulations governing the SRF and water conservation.  States also can adopt the
 guidelines for use in other state programs in accordance with the rules governing those
programs.  Tribes and Territories are not states for the purposes of the SRF but can use the
 Guidelines to implement programs under their own laws.

An important implementation issue for states, as well as water utilities, is to define needs and
goals with respect to water conservation. State goals might be defined narrowly in terms of
infrastructure funding policy, or more broadly in terms of long-term water resource

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management.  The guidelines could be used in a wide range of contexts.  Each state's goals
should serve to shape the contents of water system plans and programs for implementation.
States are encouraged to work with stakeholders from different regions and perspectives in
formulating state water conservation goals.  Public meetings and other forums are useful for
this purpose.

State Policy Considerations

Water conservation must compete with other policy goals with respect to drinking water, and
drinking water must compete with other community policy concerns.  States should be
cognizant of the implications of water conservation for environmental justice and other broad
policy concerns. States should be aware of how implementation of conservation and other
programs affect relevant groups and stakeholders in terms of the safety and affordability of
drinking water.

Several specific areas of state policy are relevant to achieving water conservation goals.
States are encouraged to closely examine state policies  that might be at cross purposes with
the goals of water conservation and impede beneficial conservation by community water
systems.

The first area of concern is water rights.  State systems  for managing water rights and
withdrawal permits sometimes provide that rights are lost to the extent less water is used,
including where water is saved through conservation. The loss of water rights can be a
significant disincentive to conserve and can undermine  the achievement of the state's water
efficiency goals. Recognizing that water users are less  likely to  conserve if future rights to
use water are jeopardized, some state laws now authorize users to retain rights in the water
they conserve (sometimes called the "conserved surplus") if it is put to beneficial use (for
example, applied to other lands or uses, or transferred).  In the absence of laws permitting
such results, water systems will be forced to choose between complying with water
conservation planning requirements (in which case the water right might be lost) and not
complying (in which case SRF funding might be lost).

The second area of concern is economic regulatory policy.  Typically regulated by state public
utility commissions, investor-owned water utilities face potentially strong disincentives for
conservation. The traditional model of utility regulation favors supply-side investment over
demand-side investment in terms of cost recovery.  Regulated utilities also might require
approval to implement conservation measures, especially changes in rate design. Modern
water conservation practices  and these Guidelines recognize the salient role of pricing in
water conservation, including the reconsideration of "promotional" rates that encourage use
over conservation.

These Guidelines also recognize that conservation by customers can adversely affect the
utility's financial condition because of the intrinsic relationship among sales, revenues, and
profits.  Regulators have tools to address these concerns if they have a clear policy basis for
doing so. Clarification and coordination of state policies should include the role of the state

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Information for States
 public utility commissions and the potential incentives for conservation that regulators could
 provide to investor-owned and other jurisdictional utilities.

 Coordinating State Programs

 Use of these Guidelines by some states might constitute the first and only state policy related
 to conservation planning by water systems.  Many states, however, already have water
 conservation policies and programs in place (as discussed in Section 7 of this Part). In either
 case, the states should adapt the Guidelines to their needs. For the states that already have
 conservation programs in place, the Guidelines (or specific parts) could be used to supplement
 existing efforts.  Similarly, states might choose to use existing requirements in lieu of all or
 part of these Guidelines.

 Regardless of the approach taken, coordinating state programs and policies will enhance
 effectiveness, while avoiding redundant or excessive requirements on water systems.  The
 intent of these Guidelines is not to have water systems prepare, nor to have states review,
 more than one water conservation plan for a system.

 State agencies should find ways to coordinate requirements, as well as plan review and
 approval processes, so that water systems can comply efficiently. Similarly, water systems
 that prepare conservation plans to meet Bureau of Reclamation requirements could be allowed
 by states to use those plans to satisfy SRF planning requirements. In other words, one water
 conservation plan could satisfy the requirements of state primacy, resource, and revolving
 fund agencies, as well as those of federal agencies.

 Implementing a water conservation program can be a significant challenge, including a
 commitment of state staff and other resources.  As discussed below, some funding for
 technical assistance to water systems may be available through the SRF. Resource needs vary
 with the level of detail expected in water conservation plans and the extent of review and
 approval by the states.  Although the resource implications of implementing a conservation
 program may be significant, many states have found that the investment in water conservation
 policy and planning yields important benefits.

 Relationship to  SRF

 The SDWA refers specifically to the potential use of the Guidelines by the states in
 conjunction with the SRF.  In 1997, EPA issued SRF program guidelines that do not address
 Section 1455 of the Act. However, several parts of the Act are relevant to the development
 and use of water conservation guidelines in relation to the SRF.

By suggesting that states may require SRF applicants to submit a conservation plan, Congress
identified water conservation as a potential screening criterion for use in the SRF priority list
process. The use of the SRF priority list process to encourage water conservation planning is
 at the discretion of the states.

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USEPA Water Conservation Plan Guidelines
Information for States
At a state's option, water conservation plan preparation is eligible for SRF funding.  States
should consult current federal guidelines governing the use of SRF funds to determine
whether conservation measures are eligible for funding.

These guidelines are intended to supplement, not supplant, state policies and programs in the
area of water conservation, in furtherance of the broad objectives of the Safe Drinking Water
Act and the SRF.

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 USEPA Water Conservation Plan Guidelines
                                                                  Information for States
 2.   THE ROLE OF WATER CONSERVATION IN
       INPRASTRUCTURE PLANNING	
 Goals and Perspectives
                                                   The Water Conservation Plan
                                                   Guidelines emphasize goal-
                                                   oriented planning -which can
                                                   help water systems improve
                                                   their capacity to provide safe
                                                   and reliable water service, as
                                                   well as to eliminate, downsize,
                                                   or delay infrastructure projects.
 These Guidelines are intended to help systems plan
 and implement effective and goal-oriented water
 conservation strategies. The Guidelines highlight the
 conservation goal of long-term reductions in capital
 facility costs. They provide a methodology for
 systems that are planning capital improvements
 (namely, SRF applicants) to incorporate conservation
 into their plans.  The conservation plan can aid
 systems in making adjustments to planned capital improvements and demonstrating the
 system's commitment to efficient water supply operations.

 Conservation planning can be beneficial to most water systems, not just those with an
 impending capital project. Even systems that consider supplies plentiful and facilities
 adequate find that conservation planning helps use existing resources more efficiently and
 save resources over the long term.

 The planning approach reflected in these Guidelines is consistent with the idea of integrated
 resource planning (IRP), which emphasizes a balanced consideration of supply-management
 and demand-management options in meeting a water system's needs.1  According to this
 perspective, conservation can help water systems avoid supply-side costs through cost-
 effective demand-side management strategies.  Ideally, integrated planning combines the
 utility's best efforts in supply and demand management.

 The benefits and costs associated with water conservation can be measured from a variety of
perspectives: water suppliers, water customers, and society at large. For practical reasons,
the Guidelines emphasize the perspective of the water supplier. Systems following the
Advanced Guidelines are encouraged to examine conservation from other perspectives,
including the broader societal viewpoint.
1 Janice A. Beecher, "Integrated Resource Planning Fundamentals." Journal American Water Works Association
(June 1995); Gary Fiske, Integrated Resource Planning: A Balanced Approach (Denver, CO: American Water
Works Association, 1996).

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USEPA. Water Conservation Plan Guidelines
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Conservation and Infrastructure

Conservation may be viewed as a supplemental or even an alternative technology for meeting
safe drinking water needs. Conservation should be implemented as part of a long-term
strategy for providing safe and reliable drinking water.

Many water utilities already are experiencing the beneficial effects of efficiency through the
standards in the Energy Policy Act of 1992 (see Appendix B).2  Efficiency standards for
plumbing fixtures and other conservation measures have long-lasting implications for water
demand.  Conservation planning can help water systems and the states recognize these effects
and accelerate the pace of efficiency improvements.

One of the chief purposes of conservation is to avoid, postpone, or reduce capital costs
associated with new facilities.  Some hypothetical examples illustrate this point:

       a   The water source used by a small water utility becomes contaminated.  Developing
           a new source would be very costly and withdrawal permits are backlogged;
           construction of a transmission main for purchasing wholesale water from a nearby
           community would be more affordable.  However,  available quantities of wholesale
           water  are limited. A comprehensive conservation program could reduce water
           requirements to a level that would make the wholesale option feasible.

       a   A medium-sized water utility with a stable population base experiences "needle
           peaks" every summer, caused by intense lawn watering; average-day demand is
           well within the system's capacity.  The community's older water treatment facility
           is being replaced with a state-of-the art facility.  A public education campaign
           focusing on water-efficient landscaping principles, coupled with a seasonal water
           rate, facilitate cost-effective load management so that the new facility can be
           designed for optimal year-round performance.

        a   A large  water system faces a series of capital projects throughout a regional
           service territory, including projects to remediate substantial water leakage that
           threatens both quality and quantity. Per-capita water use varies substantially
           throughout the area, as does the ability of consumers to afford their water bills.  A
           comprehensive and integrated plan of supply and demand management, including
           conservation focused on the needs of low-income customers, allows the utility to
           adjust the timing and sizing of facilities and save both water and construction
           expenditures.

        a   A community's water system enjoys a reasonable margin of capacity, but its
           wastewater treatment system is increasingly short on capacity and faces potential
           violations of discharge permits. Working together, the managers of the two
 2 Amy Vickers, "The Energy Policy Act: Assessing its Impact on Utilities" Journal American Water Works
 Association (August 1993).

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  USEPA Water Conservation Plan Guidelines
                                                                      Information for States
            systems devise a long-term conservation strategy for the community that will help
            extend the useful life of both kinds of facilities and significantly downsize the
            capacity requirements of a planned wastewater treatment plant.

 As the last scenario indicates, many communities may find that the potential to reduce
 wastewater treatment costs is among the most compelling reasons to implement water
 conservation.  Wastewater collection and treatment, like water supply, is a rising-cost
 industry. Reductions in wastewater flows can save treatment costs as well as provide
 substantial environmental benefits hi terms of reduced discharges.

 Water and wastewater systems often are separately owned; even when these services are
 jointly provided the need for more coordinated infrastructure planning is great. Joint planning
 might provide opportunities for program partnerships and cost sharing.  This model also can
 be extended to include regional partnerships and collaboration among water and wastewater
 utilities in order to achieve both economies of scale and efficiency. While emphasizing
 planning by water utilities, the Guidelines will clearly accommodate the consideration of
 wastewater issues and costs.  Water utilities are encouraged to expand their analysis to include
 the wastewater perspective whenever feasible.

 Planning and Funding

 A major component of the reauthorized SDWA is the provision of funding to improve the
 nation's aging water delivery infrastructure. Conservation activities may alter the timing and
 sizing of new water system facilities, including source-of-supply, transmission, treatment, and
 storage facilities.  Conservation can save water resources and financial resources used to
 support the cost of the water delivery system.  In no case should the planning and
 implementation of a water conservation program be allowed to delay a project needed
 immediately to achieve compliance or public health goals.

 In keeping with the spirit of the law and to  enhance the beneficial impact of conservation on
 infrastructure planning, the Guidelines are crafted specifically for use in conjunction with
 capital funding, including  the SRF. The guidelines can help SRF decision-makers make
 critical determinations about the system from an efficiency and conservation perspective:

       a  Is the water system reasonably efficient, given system size, climate, water
          availability and other factors?
       a  Is the water system expected to become more efficient over time through the
          implementation of conservation measures?
       a  Is the public's investment in the water system sound given the system's level of
          commitment to water conservation?

Implementation of the conservation plan might help some systems reduce or delay costs
associated with the supply facility project for which SRF funding is sought. In many cases,
however, conservation savings will materialize over a longer planning horizon.
                                          10

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USEPA. Water Conservation Plan Guidelines
                                                                     Information for States
Implementation Scenarios

These Guidelines allow several different state implementation scenarios.  States may or may
not establish conservation or planning requirements; states also may or may not require SRF
applicants to provide a conservation plan. Also, state water conservation plan guidelines or
planning requirements may or may not be consistent with EPA's Guidelines.  The result of
combining these possibilities is four different implementation scenarios.

In one scenario, a state requires conservation or planning and a conservation requirement also
is included in the SRF application process. However, the SRF conservation requirement may
be distinct from other requirements.  In a second scenario, a state requires conservation or
planning but does not require SRF applicants in particular to provide a conservation plan.
Some states, for example, may believe that existing permitting, planning, or other
requirements include sufficient conservation provisions. In fact, these processes may be more
comprehensive than the SRF process, which covers only SRF applicants.

In a third scenario, a state does not have general planning or conservation requirements but
includes conservation in the SRF application process.  A state in this situation may want to
use the SRF to institute a rudimentary conservation or efficiency policy.  Finally, a fourth
scenario suggests that a state may have neither a general conservation policy nor a specific
conservation requirement in the SRF.

Another complexity is that implementation also will vary according to the correspondence, if
any, between state conservation requirements (in general or as used with the SRF), and the
EPA Guidelines.  State conservation guidelines may be identical to the EPA Guidelines or
largely different in content or scope.  State guidelines may incorporate only parts of the EPA
Guidelines. States may impose mandatory conservation requirements or use voluntary
approaches. States may or may not use the size, climate, and water availability distinctions
used in the EPA Guidelines or differentiate requirements based on these or other factors.

Many states already implement water conservation and planning requirements, although these
requirements generally are implemented by state water resource agencies. Oversight of the
SRF  generally rests with the state drinking water primacy agencies, although some states also
establish funding authorities to administer the SRF Program together with the primacy agency
(an example is the Pennsylvania Infrastructure Investment Authority, or PENNVEST).
                                           11

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  USEPA Water Conservation Plan Guidelines
                                                                Information for States
  3.    WATER CONSERVATION PLANNING CRITERIA
 The Guidelines and System Size
 Three sets of water conservation planning guidelines
 are provided—Basic, Intermediate, and Advanced—
 based generally on system size. The three size
 categories specified in the Act refer to the service
 population of the community water system, not to
 customer connections or the general population (as
 defined by a census region or other designation).

 A refinement of the SDWA-defined size categories
 was adopted for the purpose of developing the
 guidelines (see Table 1-1). The categories can be further refined according to the needs and
 capabilities of states and water systems. For example, states might find it appropriate to use
 different size categories or nonsize criteria to determine the appropriateness of the guidelines
 to some or all of their water systems.
The SDWA specifies three
system-size categories for use in
designing the guidelines, and
also states that the guidelines
should consider climate and
water availability. These and
other factors also can be used to
design a framework for
adapting the guidelines to state
needs and purposes.
 Table 1-1:  System Size Categories and Applicable Guidelines
System Size Category (SDWA)
Serves fewer than 3,300 people
Serves between 3,300 and 10,000 people
Serves more than 10,000 people
Applicable Guidelines
Basic Guidelines
or
Capacity-Development Approach
Basic Guidelines
Up to 10,000 people served
Intermediate Guidelines
Up to 100,000 people served
Advanced Guidelines
More than 100,000 people served
For many smaller systems (serving fewer than 3,300 people), preparing a water conservation
plan is a considerable challenge. Although many small systems are capable of following the
Basic Guidelines, an optional approach also is available for very small systems. The
Capacity-Development Approach (see Section 5) integrates water conservation assistance
(planning and implementation) with the state's general capacity-development program.
                                      12

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USEPA Water Conservation Plan Guidelines
Information for States
Capacity development includes a variety of strategies to ensure the technical, managerial, and
financial capacity of water systems. Many of the key indicators of water system capacity bear
strong linkages to conservation and efficiency. States are encouraged to use a capacity-
development approach to assist small systems in developing and implementing basic
conservation measures in lieu of a plan requirement. States may use funds from the 10%
capacity-development set-aside of their SRF allocation to provide systems with water
conservation assistance if those systems have been identified in the state's capacity-
development strategy.

The category of systems serving more than 10,000 persons is subdivided to better address the
different needs and capabilities of medium-sized and larger systems. As discussed in the next
section, the Basic, Intermediate, and Advanced Guidelines vary in terms of the conservation
measures recommended for consideration in the planning process.

Any size cutoff used to prepare guidelines for planning will be arbitrary. The size categories
are not meant to suggest precise distinctions or to preclude the application of the intermediate
and advanced approaches to smaller systems. Many smaller systems implement a wide range
of conservation measures, including measures not classified under the Basic Guidelines.

These guidelines encourage all systems to consider the fullest range of planning methods and
conservation measures that is practical.  States can encourage or require systems to go
beyond the parameters of the Guidelines.  Specifically, systems that fall into the Basic
category can be asked to complete a plan under the Intermediate Guidelines; systems that fall
into the Intermediate  category can be asked to complete a plan under the Advanced
Guidelines.

The Basic Guidelines provide water systems with simple tools for gathering information and
planning.3  The intention of the Guidelines is not to burden systems, especially very small
("micro") or resource-constrained systems, with unnecessary steps or details.4 Rather, the
Guidelines are intended to provide a straightforward means of planning and implementing
generally accepted conservation practices.

The Intermediate and Advanced Guidelines introduce additional analytical tools and
conservation measures to enhance water conservation planning efforts.  The Intermediate
approach builds substantially on the Basic approach, while also introducing additional
planning concepts and conservation measures. The Advanced Guidelines take planning a step
further, and depend on a sufficient level of planning and implementation resources. The
Advanced Guidelines also recognize that larger utilities with more resources  can develop
models and methods  that are appropriate to their specific needs.
 3 The Guidelines also are generally consistent with the capacity-development provisions of the SDWA that
 apply to small water systems.
 4 States can consider exempting severely constrained systems from planning requirements. However, even small
 water systems can benefit from planning and implementing certain conservation measures.
                                            13

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  USEPA Water Conservation Plan Guidelines
                                                                      Information for States
  Climate, Water Availability and Other Factors

  In addition to the consideration of system size, Section 1455 of the SDWA also requires the
  Guidelines to take into account climate and water availability. These variables have obvious
  relevance to water supply planning and conservation. Climate, particularly precipitation rates
  and temperature, affects both water supply and water demand. Water availability further
  addresses the capacity and condition of ground water and surface water supplies, which vary
  with climate as well as many other factors.  These factors are not limited to natural or
  ecosystem circumstances; water availability might be affected by patterns of usage, pollution
  and other factors affecting water quality, and public policies concerning water management
  and regulation.

  Climate and water availability vary among states and -within states. States often are in a better
 position than the federal government to judge the extent to which climate and water
 availability should play a role in water conservation planning, and whether recommendations
 or requirements should vary within their jurisdictions. Thus, the Guidelines only suggest how
 to consider climate and water availability. States may adapt the Guidelines to their particular
 needs.

 The Guidelines include one-page worksheets that systems can use to prepare a basic System
 Profile and an overview of System Conditions.  The worksheet on Water System Conditions
 can be used to identify climate, water availability, and other relevant planning considerations.
 Systems also are encouraged to elaborate on other system characteristics, conditions, or
 factors relevant to water conservation planning.

 Criteria for Adapting the Guidelines

 Table 1-2 provides a number of criteria that can be used to adapt the Guidelines to the specific
 needs of a state or particular systems within a state; these criteria correspond to the Worksheet
 on System Conditions in Section 2 of the Guidelines.

 Criteria classified as "other factors" can be determined by the states.  These criteria might
 include:  planning capacity and experience of systems, past water conservation achievements,
 size of planned capital improvements, amount of requested SRF funding.

Within each area, several specific indicators are provided. These indicators can be used to
identify water systems that have particular planning needs. The Worksheet provides only a
general, qualitative method of assessment (for example, low-moderate-high). These values
can be substituted with numeric values at each state's discretion. States are encouraged to
develop quantified state-appropriate benchmarks for any of the indicators used.
                                         14

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USEP A. Water Conservation Plan Guidelines
                                  Information for States
Table 1-2: Potential Criteria for Adapting the Guidelines
                                            Criteria suggesting the potential use of:
Conditions
     Basic
  Guidelines
Intermediate
Guidelines "=!>
Advanced
Guidelines
     CLIMATE AND WATER AVAILABILITY
Al
A2
A3
A4
A5
A6
A7
A8
A9
Average precipitation
Average temperatures
Critical supply areas
Competing water uses
Environmental constraints
Quality/quantity concerns
Seasonal variations in climate
Instream flow problems
Shortage or emergency frequency
High
Low
No
No
No
No
Low
Low
Low
Moderate
Moderate
At risk
Possibly
Possibly
Possibly
Moderate
Moderate
Moderate
Low
High
Yes
Yes
Yes
Yes
High
High
High
B    INFRASTRUCTURE CONDITIONS
Bl
B2
B3
B4
B5
B6
B7
B8
B9
BIO
Age of the system
General condition of system
Water losses and leaks
Unaccounted-for water
Safe yield of supply exceeded
Wastewater discharges exceeded
Wastewater capacity exceeded
Potential for recycling and reuse
Improvement plans
Anticipated investment
Newer
Good
Low
Low
No
No
No
Low
Low
Low
Middle
Fair
Moderate
Moderate
At risk
At risk
At risk
Moderate
Moderate
Moderate
Older
Poor
High
High
Yes
Yes
Yes
High
High
High
      SYSTEM DEMOGRAPHICS
Cl
C2
C3
C4
C5
C6
Rate of population growth per year
Rate of demand growth per year
Rate of economic growth per year
Per capita water use (by class)
Ratio of peak to average demand
Presence of large- volume users
Low
Low
Low
Low
Low
Low
Moderate
Moderate
Moderate
Moderate
Moderate
Moderate
High
High
High
High
High
High
D    OTHER FACTORS
Dl
D2
D3
 [a]    Specific (quantified) benchmarks for these indicators may be provided by the state, as in the following
 example:
 Example:
 Bl    Age of the system
Newer < 5 years    Middle 5 to 15 years  Older >15 years
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 USEPA Water Conservation Plan Guidelines
                                                                      Information for States
 Planning requirements can be adjusted in accordance with system conditions.  For example,
 some states might want to require all systems in a state-designated critical water-use area to
 prepare plans that follow the Intermediate Guidelines at a minimum.  Some states might
 recommend the Basic Guidelines for all systems.  Other states might choose to exempt some
 systems from filing plans, based on specified system conditions.

 No attempt is made to "weight" various criteria in terms of their importance to the water
 conservation planning process. However, states might want to assign special weight or
 consideration to certain system conditions.  For example, the following characteristics tend to
 suggest a strong rationale for conservation planning:

        a   State-designated critical water or stressed areas
        a   Frequent droughts, supply emergencies, or safe yield problems
        a   Excessive water leakages or losses
        a   Entrance into major construction program
        a   Rapid growth in water demand

 States might want to develop  and use a simple screening method, based on these or other
 criteria, to adjust planning requirements to system conditions (in addition to or instead of the
 system-size criterion). The screening process can be used to relax planning requirements for
 some systems, as well as to expand or limit requirements based on system conditions.

 For example, a state might expand or relax planning requirements based on one or more of the
 following conditions:  system size (particularly with respect to very small systems), amount of
 loan application, volume of water withdrawals, amount of nonaccount or accounted-for water,
 and the state's determination of whether conservation will appreciably improve efficiency in
 relation to capital facility planning or funding.  Some states might want to allow more tune for
 small systems to complete their plans (as long as capital funding for priority projects is not
jeopardized).

 States can select screening criteria that they believe is most suited to their planning goals.
 States might consider  state-wide water conditions in terms of whether it might be appropriate
to exempt some systems from planning or to identify a minimal planning approach for all
water systems.
                                          16

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USEPA. Water Conservation Plan Guidelines
                                                                    Information for States
4.    GUIDELINES AND MEASURES
                                                    The Guidelines follow the same
                                                    essential process, although the
                                                    scope and content of
                                                    conservation plans will vary
                                                    with the level of planning. The
                                                    number and scope of
                                                    conservation measures
                                                    recommended for consideration
                                                    increases from the Basic to the
                                                    Intermediate to the Advanced
                                                    Guidelines.
Planning Steps

The Intermediate and Advanced Guidelines suggest
nine basic planning steps that apply generically to
water conservation planning:

   1.  Specify Conservation Planning Goals
   2.  Develop a Water System Profile
   3.  Prepare a Demand Forecast
   4.  Describe Planned Facilities
   5.  Identify Water Conservation Measures
   6.  Analyze Benefits and Costs
   7.  Select Conservation Measures
   8.  Integrate Resources and Modify Forecasts
   9.  Present Implementation and Evaluation Strategy

The Basic Guidelines contain five simplified steps.

Treat these steps as separate sections of a water conservation plan.  Most of the steps include
worksheets that  can be used to simplify the planning process. Water systems also can provide
additional information as needed throughout the planning process, including qualitative and
quantitative data. In some cases, systems might want to substitute another format for the
requisite worksheet.  This generally will not present a problem, as long as the information is
sufficient for later steps in the planning process.  Information in several of the earlier
worksheets is needed for later calculations.

The underlying logic and analytical approach are parallel for the Basic, Intermediate, and
Advanced Guidelines. The methods of analysis presented in the Basic and Intermediate
Guidelines are simplified to make them easier to use. A cost-effectiveness analysis is optional
in the Basic Guidelines. The Advanced Guidelines encourage more sophisticated methods in
forecasting and analysis. For advanced systems, more detailed approaches are provided for
forecasting demand and supply capacity, analyzing the cost-effectiveness and net benefits of
various conservation measures, and integrating selected measures into the utility's resource
mix.

Throughout the Guidelines, system managers have opportunities to incorporate existing
information (such as a demand forecast prepared for another purpose) and tailor their plans to
system-specific needs and conditions.  Additionally, the states may adapt the content of the
Guidelines and worksheets to their needs and goals. States also might require systems to
attach various kinds of supporting documentation as part of the conservation plan, including
documents related to regulatory requirements.
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 USEPA Water Conservation Plan Guidelines
Information for States
 Conservation Measures

 Conservation measures are an integral part of the planning process. Like the Guidelines,
 measures are organized into three broad categories—Level 1, Level 2, and Level 3—each of
 which is further subdivided as follows:

        a  Level 1 Measures
           • Universal metering
           • Water accounting and loss control
           • Costing and pricing
           » Information and education

        a  Level 2 Measures
           • Water audits
           • Retrofits
           • Pressure management
           • Landscape efficiency

        a   Level 3 Measures
           • Replacements and promotions
           • Reuse and recycling
           • Water-use regulation
           " Integrated resource management

The organization of the measures is pragmatic, not prescriptive. It is not meant to preclude
consideration of any measure by any type of water system, but rather to provide a logical
framework for planning and management.  Nor should this method of organizing the
measures be construed as placing a higher value or priority on some measures over others.
All conservation measures available now and in the future should be given due consideration
based on the needs and capabilities of water systems.

Appendix A to the Guidelines provides a more detailed description of each measure
recommended for consideration. The Appendixes provide additional resources for use in
planning as well.  States should include the complete set of Appendixes together with other
appropriate supporting information with each set of Guidelines provided to water systems.

As illustrated in Table 1-3, the measures included in the Guidelines are cumulative, based
very roughly on the level of knowledge and resources required for implementation.  The Basic
Guidelines suggest that Level  1 measures be considered at a minimum. These Level 1
Measures are widely—even universally—accepted by water industry professionals and
regulators, not just in terms of conservation but in terms of prudent water utility management.
The lists of measures contained in the Intermediate and Advanced Guidelines are also
suggested to be considered at a minimum.  The Intermediate Guidelines include an expanded
list of Level 1 Measures plus the Level 2 Measures. The Advanced Guidelines include further
expansion of the Level 1 and Level 2 Measures plus Level 3 Measures. The Level 3
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USEPA Water Conservation Plan Guidelines
Information for States
Measures under the Advanced Guidelines are mostly applicable to larger systems, systems
with substantial planning capability, and/or systems that have acute water conservation needs.
The Level 3 Measures are particularly "proactive" in terms of the system's role in water
conservation.

Together, the Guidelines and the measures recommended for consideration within them form
a continuum of conservation strategies.  This framework recognizes that the list of measures
considered minimally appropriate will expand with the size and capability of the water utility,
as well as with the conditions affecting the utility (such as climate, water availability, and
other factors). In other words, conservation measures considered fundamental are not the
same for very small systems as for much larger systems.

While each set of Guidelines suggests that water systems consider at least the listed measures,
managers should consider as many measures as practical given their capability and the
conditions they seek to address. Water systems may not necessarily implement every
measure. The Guidelines suggest that systems give careful consideration to each measure; if
systems choose not to implement measures considered minimally appropriate, they should
provide an explanation.

As with other elements of the Guidelines, states may adapt or modify the list of conservation
measures to fit their needs.  States also could make some conservation measures mandatory
and/or some conservation measures optional.

The categories used to organize the measures are based on current knowledge and experience
in water conservation. Most specific conservation measures can be classified within this
framework.  Although the measures represent a broad spectrum of approaches, they are not
necessarily comprehensive. The number of effective conservation measures will continue to
expand.  It will be important for water systems to stay current with available technologies and
approaches to conservation.
                                          19

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 USEPA Water Conservation Plan Guidelines
               Information for States
 Table 1-3:  Cumulative Nature of the Conservation Measures
 in the Guidelines [a]	
                                  Basic
                                Guidelines
Intermediate
 Guidelines
Advanced
Guidelines
 LEVEL 1 MEASURES
 Universal metering
 Water accounting and loss control
Costing and pricing
Information and education
LEVEL 2 MEASURES
Water-use audits

Retrofits

Pressure management

Outdoor efficiency


LEVEL 3 MEASURES
Replacements and promotions

Reuse and recycling

Water-use regulation

Integrated resource management
[a] See the Guidelines and Appendix A for the specific conservation measures recommended for
consideration within each of the levels and categories.
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USEPA Water Conservation Plan Guidelines
                                                                  Information for States
5.    CAPACITY-DEVELOPMENT APPROACH
                                                  For very small water systems,
                                                  conservation planning can be
                                                  accomplished in part through
                                                  the state's capacity-development
                                                  strategy.  Strategies to improve
                                                  the technical, managerial, and
                                                  financial capacity of water
                                                  systems are required under the
                                                  SDWA. States can provide
                                                  conservation planning
                                                  assistance to small systems as
                                                  part of their capacity-
                                                  development efforts.
Conservation by Small Water

Systems

States should consider several factors when deciding
whether to require small water systems to plan for
water conservation. States can determine the
appropriate approach to conservation planning for
small water systems on a statewide or case-by-case
basis.

Small water systems can benefit from efficiency and
conservation as well as larger systems. In fact, the
potential for eliminating, downsizing, or postponing
capital projects through strategic supply and demand
management may be more important for smaller systems given financial and other constraints.
However, small systems face many competing challenges and their ability to devote resources
to conservation planning may be very limited.

For systems serving under 3,300 people (approximately 1,000 connections), a Capacity-
Development Approach is suggested. Use of the Guidelines could be based on each state's
assessment of the needs and capabilities of their small water systems. The key component of
this approach is to link conservation planning for small systems to state capacity-development
strategies.  Those systems identified as needing assistance could receive assistance from the
state in planning and implementing a basic water conservation program as outlined below.
Those small systems not identified in the state's capacity-development strategy could be
required to submit a plan.  The Basic Guidelines would be appropriate for those systems not
being assisted by the state under the  Capacity-Development Approach.

Capacity Development

Section 1420 (c) of the SDWA requires that, by August 6, 2000, in order to avoid withholding
of SRF funds, states must develop and implement a strategy to assist public water systems in
acquiring and maintaining technical, managerial, and financial capacity.5
5 U.S. Environmental Protection Agency, Information for the Public on Participating with States in Preparing
Capacity Development Strategies (Public Review Draft, EPA 816-D-97-003, January 8, 1998).
                                       21

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 USEPA Water Conservation Plan Guidelines
Information for States
 The three aspects of capacity have been defined in EPA Guidance as follows:6

       a  Technical capacity is the physical and operational ability of a water system to meet
           SDWA requirements.  Technical capacity refers to the physical infrastructure of
           the water system, including the adequacy of source water and the adequacy of
           treatment, storage, and distribution infrastructure. It also refers to the ability of
           system personnel to adequately operate and maintain the system and to otherwise
           implement requisite technical knowledge.

       n  Managerial capacity is the ability of a water system to conduct its affairs in a
           manner enabling the system to achieve and maintain compliance with SDWA
           requirements.  Managerial capacity refers to the system's institutional and
           administrative capabilities.

       a  Financial capacity is a water system's ability to acquire and manage sufficient
           financial resources to allow the system to achieve and maintain compliance with
           SDWA requirements.

 Within the each area of capacity—technical, financial, and managerial—are several specific
 elements. Several basic conservation practices can be directly linked to these basic elements
 of capacity, as summarized in Table 1-4.
Table 1-4:  Common Elements of Capacity Development and
Water Conservation Planning
Type of
Capacity
Technical


Managerial

Financial

Elements of
Capacity Development [a]
• Source-water adequacy
• Infrastructure adequacy
• Technical knowledge and
implementation

Staffing and organization
Effective external linkages
Ownership accountability
Revenue sufficiency
Fiscal management and controls
Credit worthiness
Elements of
Basic Water Conservation
Universal meterine
• Source-water metering
• Service-connection metering and
reading
• Meter public-use water
Water accounting and loss control
• Account for water
• Repair known leaks
Information and education
• Understandable water bill
• Information available
Costing and pricing
• Cost-of-service accounting
« User charges
• Metered rates
[a] Elements with direct relevance to water conservation appear in bold face.
6 U.S. Environmental Protection Agency, Guidance on Implementing the Capacity Development Provisions of
the Safe Drinking Water Act Amendments of 1996 (August 6, 1998).
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ViSES? A. Water Conservation Plan Guidelines
Information for States
As these linkages suggest, the conservation measures identified as basic actually can be
interpreted much more broadly. These practices are considered reasonably appropriate for all
community water systems because they correspond to some of the basic elements of capacity
as well.

Under the Capacity-Development Approach states encourage and assist small water systems
in making a variety of conservation-oriented improvements. States should provide technical
assistance to water systems to help them implement at least the basic elements of a
conservation program as shown in Table  1-4. As stated previously, systems that are not
capacity-limited or that are interested in a more comprehensive planning approach may use
the Basic Guidelines.

The Safe Drinking Water Act provides up to a 10% set-aside from a state's SKF allotments
that can be used by states to develop and implement a capacity-development strategy for
water systems.  States may use part of those funds to assist water systems to develop water
conservation programs as part of its capacity-development efforts.
                                          23

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 USEPA Water Conservation Plan Guidelines
                Information for States
 6.    STATE ROLES
 Policy Issues

 If states choose to use the guidelines, a number of
 specific decisions or actions may be needed to place
 the guidelines within the context of existing state
 policy and/or introduce new planning requirements for
 water systems. Among other policy determinations,
 the states should:
Implementing the water
conservation plan guidelines
will be a challenge for the
states, as well as for water
systems. State implementation
issues include policy; technical
assistance; plan review and
approval; monitoring, reporting
and updates; and coordination.
       a  Clarify state goals with respect to water
           conservation.
       a  Specify the role of conservation planning in SRF and other programs.
       a  Determine eligibility for public fUnding for conservation planning.
       a  Identify which water systems are expected to file water conservation plans, and
           under what circumstances.
       a  Decide whether any elements of the Guidelines should be made mandatory or
           permissive, based on specified system profiles and conditions.
       a  Provide state guidance manuals and other technical assistance.
       D  Provide state-specific benchmarks and standards for use by water systems in
           preparing plans.
       a  Review water rights laws and other potential disincentives to water conservation.
Technical Assistance for Systems

For many states, the availability of technical assistance for water system managers determines
the success of water conservation planning efforts. Obviously, greater levels of assistance
require a greater resource commitment on the part of the state.  States may reduce these costs
by coordinating efforts with existing programs, activities, and resources, such as the Bureau
of Reclamation in the western states.

Systems using the Basic Guidelines  might require more technical assistance, particularly if
they have never prepared a conservation plan.  As previously mentioned, some funding for
technical assistance may be available through the SRF, particularly for small systems in
conjunction with state capacity-development programs. Systems using the Intermediate and
Advanced Guidelines may require less technical assistance in order to prepare plans, but they
may ask states to respond to more complex technical questions.  States can provide technical
assistance in a number of ways, including workshops and training sessions; manuals,
workbooks, and templates;  and one-on-one assistance.
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USEPA. Water Conservation Plan Guidelines
                                                                     Information for States
Workshops and Training Sessions

Workshops and training sessions are a useful means to acquaint utilities with SDWA
provisions, including SRF procedures and conservation planning. Training sessions can focus
on the steps in the planning process and the methodologies used in planning (such as demand
forecasting and cost-effectiveness analysis).

In addition to state-sponsored programs, states should encourage systems to take advantage of
industry-based technical training opportunities. Rural water associations, university
agricultural extension offices, the American Water Works Association and sections, and other
organizations also offer a network of resources and expertise to aid systems in water
conservation planning.

Manuals, Workbooks, and Templates

Although the Guidelines are designed to be relatively comprehensive, supplemental materials
may be needed to provide background and information to make their use easier and more
effective. Materials on water conservation planning are widely available in published form
(see Appendix D).

States can make planning easier for systems by providing additional materials, including
workbooks, templates, guidebooks, sample plans, or responses to frequently asked questions.
States also can help systems with some of the estimates required in the guidelines by
providing accepted estimates for certain inputs (such as projected population data for
forecasting).  These materials can be made available through published documents, interactive
computer software, or the internet. Care should be taken that the provided materials are
consistent with state-adopted guidelines.

One-On-One Assistance

Providing one-on-one assistance to water systems for conservation requires an investment of
resources on the part of the state, but it can be highly effective. States can provide one-on-one
assistance on site, at state offices, or through telephone calls and electronic mail. For small
systems, the one-on-one approach has been used to help managers prepare a basic business
plan.

A variation of the one-on-one approach is to design a hands-on workshop  for smaller systems.
During the course participants would actually complete the conservation plan described in the
Basic Guidelines.

Review and Approval

States may take various approaches to review and approval of conservation plans.  The level
and nature of the review and approval process might depend on state goals related to water
conservation and the role of system plans in furthering these goals. States could simply
                                          25

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  USEPA Water Conservation Plan Guidelines
                                                                      Information for States
  require systems to have a plan on file, or impose a formal review and approval process.
  Reviewing agencies could provide feedback on water conservation plans and suggest
  revisions. Loans, permits, or other approvals may depend on the state's review and approval
  of the conservation plan.

  Responsibility for plan approval generally will rest with the agency requiring the plan. In
  some cases, a state agency that does not otherwise implement water resource or conservation
  policies might adopt the planning requirement. This might be the case, for example, if the
  agency administering the SRF adopts the guidelines for use. In such instances, the state
  should set up an interagency review and approval process.

 Monitoring, Reporting, and Updates

 Under the Guidelines, systems describe their intentions for evaluating and updating their
 water conservation plans. States may impose additional monitoring and reporting
 requirements, including a more specific schedule for updating plans.

 State monitoring may be informal or formal.  A more formal approach is to audit
 implementation and results at some water systems. States can provide systems with feedback
 and technical assistance during the audit process.

 States may also ask water systems to file routine reports on their progress in meeting water
 conservation planning goals, in which case the states should be specific about what kinds of
 data and what level of detail are needed to fulfill reporting requirements. This could be a
 simple progress report, in the form of a Worksheet, or a more detailed analysis.

 The states should determine the frequency of plan updates. For example, the Guidelines
 suggest regular five-year intervals. The frequency of updates could vary for water systems
 depending on state-specified criteria: systems using the Basic Guidelines could update their
 plans on a three-year schedule; systems following the Intermediate Guidelines could update
 their plans on a two-year schedule; and systems following the Advanced Guidelines could
 update their plans on an annual basis.  Other system characteristics or circumstances could be
 used as well. States could link other approvals, including future funding applications, to plan
 updates.

 Interagency Coordination

 These guidelines should enhance state water management efforts, not create unnecessary or
 duplicative requirements on water systems.  Coordination of state requirements and programs
will help ensure effective water conservation efforts on the part of utilities.

As mentioned earlier in this information document, coordination of state water conservation
planning will reduce redundancy and lower planning costs. States can use a number of
techniques to share information and coordinate activities among state agencies with diverse
                                         26

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USEPA. Water Conservation Plan Guidelines
                                                                      Information for States
responsibilities.  One approach is to conduct a joint review and approval process which can
help close information gaps and avoid confusion. A less formal approach is for agencies to
hold regular meetings to exchange information about water systems' progress in meeting
planning and other regulatory requirements.

Another very useful technique for promoting interagency coordination is to adopt a
Memorandum of Understanding (MOU), in which signatory agencies agree on their separate
and joint responsibilities for implementing requirements. An MOU between the state SRF
and resource agencies, for example, could help clarify roles and responsibilities for states that
require conservation planning by SRF applicants. For example, the SRF agency might need
the resource agency to review plans and assist in the priority ranking prior to granting loans.
Coordination also would be helpful for technical assistance and plan monitoring purposes.
                                           27

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  USEPA Water Conservation Plan Guidelines
                                                                      Information for States
  7.    STATE CONSERVATION PROGRAMS
                                                     Many states already implement
                                                     •water conservation programs.
                                                     Experience with these programs
                                                     provides a wealth of information
                                                     from which to draw when
                                                     designing state water
                                                     conservation policies.
 State experience with water conservation is
 substantial, although planning approaches and
 requirements vary considerably from state to state.
 Planning requirements across state and federal
 jurisdictions were analyzed using published
 documents and other secondary research sources.  As
 of late 1997, eighteen jurisdictions had instituted some
 kind of formal conservation planning guidelines for     ,	___^	
 water utilities.  Table 1-5 provides an overview of water conservation planning requirements,
 as well as conservation-oriented requirements under the state SRF programs.

 Many states have water conservation planning guidelines or other requirements embedded in
 existing statutes or rules.  For example, conservation planning might be required in
 connection with obtaining a water withdrawal permit, or some types of state funding. States
 that have conservation requirements do not necessarily incorporate existing requirements into
 their SRF programs. Several states, however,  specify that compliance with existing
regulations, including conservation-related regulations, is a prerequisite for loan applications.

EPA selected twelve jurisdictions for more detailed study of planning guidelines and related
documents:7
       a   Arizona
       a   California
       a   Connecticut
       a   Kansas
       a   Massachusetts
       a   Nevada
                                            New Jersey
                                            New York
                                            Rhode Island
                                            Texas
                                            Washington
                                            U.S. Bureau of Reclamation (BOR)
These states and BOR represent substantial diversity in terms of location, water resource
needs and issues, and approaches to water conservation planning. The conservation
guidelines in these jurisdictions were reviewed along four key dimensions:

       a  Authority and agencies.  What is the basis of authority for water conservation or
          conservation planning? When was this authority enacted? What agencies are
          involved in implementing and reviewing water conservation plans?
 Several of these guidelines also were included in a recent study by the American Water Works Association.
See American Water Works Association. Model Guidelines for Water Conservation Plans: Guidance for State
Water Conservation Plans (WITAF Project #559).  Denver: AWWA, November 1997. Prepared by Maddaus
Water Management, et al.
                                         28

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      Water Conservation Plan Guidelines
                                                                     Information for States
       a  Planning requirements.  What are the requirements for water conservation plans?
          Who must submit plans? What triggers the requirement for planning? What
          variations are there in the planning requirement, especially in terms of utility size
          and water availability?
       n  Format and content. What issues are required or recommended for consideration
          in the plan? Are specific goals addressed in the plan? Does the plan provide a
          description and data for the water system?  Is the plan required to analyze future
          needs and emergency management? What specific conservation measures are
          included in the plan?
       o  Implementation and evaluation.  How will the plan be implemented? Are
          revisions and updates required? How are the plans enforced and can penalties be
          imposed? Is there a means to evaluate the plans?

A key finding of the review is that water conservation planning varies considerably among the
jurisdictions. Conservation planning also is a relatively recent phenomenon in these states, in
most cases less than ten years old.  In these states, authority for conservation planning tends to
be vested in the state water resource agency. Water conservation planning can either be a
general requirement or triggered by a permit application. Only three of these states
specifically require planning for a state revolving fund loan.

The states also address system size very differently in planning requirements. In five of the
states, all water providers are included in the requirements; in the other states, certain size
thresholds trigger plan submission. States use different units when considering system size,
such as water volume or number of customers.  Only three of the states (Kansas, Texas, and
Washington) significantly vary their water conservation planning requirements according to
system  size.

State planning requirements differ most in terms of the format and content of plans. Most
guidelines and statutes require or recommend that plans include a description of the service
area and supply systems; quantification of past, current, and future water use and supply;
emergency or contingency planning; and an implementation schedule. However, the
importance placed on these items varies.

All of the states and the BOR suggest that plans discuss particular water conservation
measures, although specific requirements vary. The conservation measures most frequently
mentioned in the statutes and guidelines  are:

        a  Metering and meter repair,
        a  Leak detection and repair,
        a  Rate design and conservation pricing,
        a  Plumbing retrofits and promotion of water-saving fixtures,
        a  Public information and  education, and
        o  Landscaping.
                                           29

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 USEPA Water Conservation Plan Guidelines
                                                                       Information for States
 Table 1-6 provides a summary of components of conservation planning in terms of whether
 these and other measures are suggested for consideration, must be addressed in the plan, or
 are required.  All planning guidelines surveyed, however, require that utilities address public
 education, leak detection and repair, metering, and pricing.

 Most of the state water conservation, planning guidelines and associated statutes mention the
 need for an implementation schedule and revisions or updates. Connecticut provides a
 detailed form for this purpose.  Most states that require revisions or updates specify five-year
 intervals.

 Enforcement and penalties are not highly developed in most jurisdictions. A few states have
 the authority to levy fines for failure to submit or implement a conservation plan. However,
 most do not have rigorous enforcement procedures.  Evaluation procedures also vary
 considerably; Massachusetts and the BOR mention the need for evaluation, while California
 specifies a relatively comprehensive approach.

 In sum, flexibility in the planning process is suggested by many of the existing approaches.
 In particular, most jurisdictions seem to exercise discretion in terms of evaluating plans based
 on size, water availability, and other water system characteristics. However, the diversity of
 state experience in this area provided a wealth of information from which to draw in crafting
these Guidelines. Also, attention to existing state and federal approaches help ensure that the
federal Guidelines are complementary to these ongoing efforts.
                                         30

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USEPA Water Conservation Plan Guidelines
[blank page]
                                            34

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USEPA Water Conservation Plan Guidelines
Overview of the Guidelines
         U.S. Environmental Protection Agency
     ^t 1 Water Conservation Plan Guidelines
PART 2
OVERVIEW OF THE GUIDELINES
                        35

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USEPA Water Conservation Plan Guidelines
Overview of the Guidelines
[blank page]
                                              36

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USEPA Water Conservation Plan Guidelines
Overview of the Guidelines
1.   WATER CONSERVATION GUIDELINES AND THE

      SDWA	

Section 1455 of the Safe Drinking Water Act (SDWA) requires the U.S. Environmental
Protection Agency to publish these guidelines:

      Sec. 1455. (a) Guidelines.—Not later than 2 years after the date of enactment of the
      Safe Drinking Water Act Amendments of 1996, the Administrator shall publish in the
      Federal Register guidelines for water conservation plans for public water systems
      serving fewer than 3,300 persons, public water systems serving between 3,300 and
      10,000 persons, and public water systems serving more than 10,000 persons, taking
      into consideration such factors as water availability and climate.
      (b) Loans or Grants.—Within 1 year after publication of the guidelines under
      subsection (a), a State exercising primary enforcement responsibility for public water
      systems may require a public water system, as a condition of receiving a loan or grant
      from a State loan fund under section 1452, to submit with its application for such loan
      or grant a water conservation plan consistent with such guidelines.

The guidelines are addressed to water system managers. Use of the guidelines is not required
by federal law or regulation; however, water systems can benefit from conservation planning,
whether or not it is required by law.  It is up to each State to decide whether or not to require
water systems to file conservation plans consistent with these or any other guidelines. It is
very important that water system managers understand and comply with their own state,
regional, or local regulatory requirements.
                                       37

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 USEPA Water Conservation Plan Guidelines
                             Overview of the Guidelines
 2.    Benefits of Conservation and Planning	

 Water conservation consists of any beneficial reduction in -water losses, -waste, or use. In the
 context of utility planning, the term "beneficial" usually means that the benefits of an activity
 outweigh the costs. Conserving water can be beneficial in many ways, but one important
 reason for conservation is that it can help systems avoid, downsize, or postpone water and
 wastewater projects. The facilities used to treat and deliver drinking water (and to collect and
 treat wastewater) are sized to meet demand; if the level of demand is inflated by wasteful use,
 people pay more in both capital and operating costs than necessary to provide safe and
 adequate water supply and wastewater services. Moreover, when the cost of supplying
 drinking water and processing wastewater is reduced, financial resources can be used to meet
 other needs.
 In connection with infrastructure
 funding, the value of conservation is
 appropriately assessed in terms of
 supply, treatment, and distribution
 costs that can be avoided because of
 planned reductions in water demand.
 Conservation becomes more
 valuable over time because future
 water supplies and the facilities
 needed to deliver them are expected
 to cost more (even when adjusting
 for inflation).  In other words,
 permanent conservation savings that
 are realized today will have
 increasing value into the future.
Benefits of Water Conservation

In order to meet the needs of existing and future
populations and ensure that habitats and ecosystems are
protected, the nation's water must be sustainable and
renewable. Sound water resource management, which
emphasizes careful,  efficient use of water, is essential in
order to achieve these objectives.

Efficient water use can have major environmental,
public health, and economic benefits by helping to
improve water quality, maintain aquatic ecosystems, and
protect drinking water resources. As we face increasing
risks to ecosystems and their biological integrity, the
inextricable link between water quality and water
quantity becomes more important. Water efficiency is
one way of addressing water quality and quantity goals.
The efficient use of water can also prevent pollution by
reducing wastewater flows, recycling industrial process
water, reclaiming wastewater, and using less energy.
Source: EPA Office of Water, Statement of Principles
on Efficient Water Use (December 1992).
Planning is a means of anticipating
the future and organizing activities
in response. Conservation planning
can help water system managers
take inventory of their existing
efforts and identify new
opportunities. Planning can help
utilities manage competing goals and rising costs, such as those associated with SDWA
compliance, infrastructure improvement, and meeting demand growth. The investment that
water system managers make in conservation planning should yield savings that can be
measured in terms of water and dollars.

The planning approach suggested by these Guidelines is designed to be accessible and
relatively inexpensive. It is very important for utilities to know exactly what planning
requirements apply in their states and how other plans already prepared by the system might
be used in conjunction with these Guidelines.
                                          38

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USEPA. Water Conservation Plan Guidelines
Overview of the Guidelines
3.    Overview of the Planning Process	

These Guidelines provide a framework that water managers can use to assess the cost-
effectiveness of conservation, as well as the value of conservation in avoiding, lowering, or
postponing supply-side capital and operating costs.
Table 2-1:  System Size Categories and Type of Guidelines
System Size Category (SDWA)
Serves fewer than 3,300 people
Serves between 3,300 and 10,000 people
Serves more than 10,000 people
Applicable Guidelines
Basic Guidelines
or
Capacity-Development Approach [a]
Basic Guidelines
Up to 10,000 people served
Intermediate Guidelines
Up to 100,000 people served
Advanced Guidelines
More than 100,000 people served
[a] States also can promote water conservation planning by small water systems through their
   capacity-development strategies. Some states may provide assistance to small systems in the
   planning and implementation of water conservation programs through their capacity-development
   strategies.
EPA has prepared three sets of Guidelines (as summarized in Table 2-1):

       a  The Basic Guidelines are designed for use by water systems serving populations of
          10,000 or fewer. Some water systems, especially those serving fewer than 3,300
          people, may be included in a Capacity-Development Approach, which addresses
          water conservation through state capacity-development strategies required by the
          SDWA. (See Section 5 of Part 1.) Systems should check with their state primacy
          agency for information and guidance about capacity development.

       a  The Intermediate Guidelines are  designed for water systems serving between
          10,000 and 100,000 people.

       a  The Advanced Guidelines are designed for water systems serving more than
          100,000 people.
                                        39

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 USEPA Water Conservation Plan Guidelines
Overview of the Guidelines
 Which Guidelines are appropriate also may depend on various factors and conditions
 affecting water systems and their need for conservation planning. For example, smaller
 systems with constrained water supply resources may want to follow the Intermediate
 Guidelines.  Water system managers should check with their own state's rules, regulations,
 and recommendations about which Guidelines to follow.

 Each of the Guidelines follows a similar framework for the planning process; however, the
 Basic, Intermediate, and Advanced Guidelines vary in terms of the scope of the analysis and
 the amount of detail required when preparing a conservation plan.  The Basic Guidelines
 provide a very simplified planning approach. The Intermediate and Advanced Guidelines
 lead to a comprehensive conservation plan, as outlined in Table 2-2. The outline may be
 adapted to better meet system needs and state requirements.

 Many of the worksheets refer to gallons as the unit for measuring water quantity. However,
 water systems should use the unit of measurement that they typically use for planning,
 reporting, and other purposes. Water systems also should use available information resources
 (such as current demand forecasts) whenever feasible in order to expedite preparation of the
 conservation plan and avoid duplication of other efforts.

 The Guidelines also focus on the benefits of conservation for water systems. It may be
 appropriate for many systems to expand the analysis to include wastewater systems,
 particularly in the assessment of benefits and costs. Conservation can help communities
 reduce the cost of wastewater facilities, as well as water facilities, and the Guidelines can
 provide a framework for making this assessment.

 One important distinction among the Guidelines is the number of conservation measures
 recommended for consideration by managers. The Guidelines reflect a cumulative approach
 to conservation measures, which are organized into three levels (see Tables  1-3 and 2-3).
 Each level includes additional categories of measures.  For example, the Intermediate
 Guidelines include more measures than the Basic Guidelines and the Advanced Guidelines
 include more measures than the Intermediate Guidelines. This framework recognizes the
 general continuum of conservation measures available to water systems with different needs
 and capabilities.

This organization of measures should not be interpreted to place a higher value on some
measures over others. Water system managers and planners are strongly encouraged to
consider the full range of conservation measures, which are described in Appendix A.
                                         40

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USEPA Water Conservation Plan Guidelines
                                                                     Overview of the Guidelines
Table 2-2:  Contents of a Comprehensive Water

Conservation Plan	


1.  SPECIFY CONSERVATION PLANNING GOALS
    a  List of conservation planning goals and their relationship to supply-side planning
    a  Description of community involvement in the goals-development process

2.  DEVELOP A WATER SYSTEM PROFILE
    a  Inventory of existing facilities, production characteristics, and water use
    a  Overview of conditions that might affect the water system and conservation planning

3.  PREPARE A DEMAND FORECAST
    a  Forecast of anticipated water demand for future time periods
    a  Adjustments to demand based on known and measurable factors
    a  Discussion of uncertainties and "what if (sensitivity) analysis

4.  DESCRIBE PLANNED FACILITIES
    a  Improvements planned for the water system over a reasonable planning horizon
    a  Estimates of the total, annualized, and unit cost (per gallon) of planned supply-side improvements and
       additions
    a  Preliminary forecast of total installed water capacity  over the planning period based on anticipated
       improvements and additions

5.  IDENTIFY WATER CONSERVATION MEASURES
    a  Review of conservation measures that have been implemented or that are planned for implementation
    a  Discussion of legal or other barriers to implementing recommended measures
    a  Identification of measures for further analysis

6.  ANALYZE BENEFITS AND COSTS
    o  Estimate of total implementation costs and anticipated water savings
    a  Cost effectiveness assessment for recommended conservation measures
    a  Comparison of implementation costs to avoided supply-side costs

7.  SELECT CONSERVATION MEASURES
    a  Selection criteria for choosing conservation measures
    a  Identification of selected measures
    a  Explanation for why recommended measures will not be implemented
    a  Strategy and timetable for implementing conservation measures

8.  INTEGRATE RESOURCES AND MODIFY FORECASTS
    o  Modification of water demand and supply capacity forecasts to reflect anticipated effects of conservation
    a  Discussion of the effects of conservation on planned water purchases, improvements, and additions
    a  Discussion of the effects of planned conservation measures on water utility revenues

9.  PRESENT IMPLEMENTATION AND EVALUATION STRATEGY
    a  Approaches for implementing and  evaluating the conservation plan
    o  Certification of the conservation plan by the system's governing body
                                             41

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  USEPA Water Conservation Plan Guidelines
                           Overview of the Guidelines
  Table 2-3: Guidelines and Associated Conservation
  Measures [a]
Measures
< 	 	 	 Advanced Guidelines 	 	 	 _ — >
<— Basic Guidelines 	 >
LEVEL 1 MEASURES
Universal metering
IB]
Water accounting
and loss control
[A]
Costing and pricing
[B]
Information and
education [B]
Source-water metering
Service-connection
metering and reading
Meter public-use water
Account for water
Repair known leaks
• Cost-of-service
accounting
« User charges
• Metered rates
• Understandable water
bill
• Information available
LEVEL 2 MEASURES
Water-use audits
IB1
Retrofits [A]
Pressure
management [A]
Landscape
efficiency [P]




LEVELS MEASURES

• Fixed-interval meter reading
• Meter-accuracy analysis
Analyze nonaccount water
Water system audit
Leak detection and repair
strategy
Automated sensors/ telemetry
Cost analysis
Nonpromotional rates
Informative water bill
Water-bill inserts
School program
Public-education program

Audits of large-volume users
Large-landscape audits
Retrofit kits available
• Systemwide pressure
management
» Promotion of landscape
efficiency
• Selective irrigation submetering


• Test, calibrate, repair, and
replace meters
• Loss-prevention program
• Advanced pricing methods
• Workshops
• Advisory committee

• Selective end-use audits
" Distribution of retrofit kits
• Targeted programs
• Selective use of pressure-
reducing valves
• Landscape planning and
renovation
• Irrigation management

promotions [B]
Reuse and
recycling [B]
Water-use
regulation [B]


Integrated resource
management [B]   	
[a]  See Appendix A for a description of the measures.
    listed under the guidelines applying to them.
[A] measure affects average-day demand
[P]  measure affects maximum-day (peak) demand)
[B]  measure affects both average and peak demand
                       Rebates and incentives
                       (nonresidential)
                      • Rebates and incentives
                       (residential)
	• Promotion of new technologies
                      • Industrial applications
                      • Large-volume irrigation
                       applications
                      • Selective residential
	applications	
                      • Water-use standards and
                       regulations
                      • Requirements for new
	developments	
                      • Supply-side technologies
                      • Demand-side technologies	
Water systems should consider at least the measures
                                              42

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USEPA Water Conservation Plan Guidelines
                                   Basic Guidelines

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     U.S. Environmental Protection Agency
     Water Conservation Plan Guidelines
PART 3
BASIC GUIDELINES FOR
PREPARING WATER CONSERVATION PLANS
                    43

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USEPA Water Conservation Plan Guidelines
                                                                        Basic Guidelines
                                             ^——^^^^^^^™^^^««I™B^^BII^MB
 These Basic Guidelines are designed for use by water systems serving populations of
 10,000 or fewer.  Some water systems, especially those serving fewer than 3,300 people,
 may be included in a Capacity-Development Approach, which addresses water
 conservation through state capacity-development strategies required by the SDWA.  (See
 Section 5 of Part 1.) Systems should check with their state primacy agency for information
 and guidance about capacity development.

 Which Guidelines are appropriate also may depend on various factors and conditions
 affecting water systems and their need for conservation planning. For example, smaller
 systems with constrained water supply resources may want to follow the Intermediate
 Guidelines.  Water system managers should check with their own state's rules, regulations,
and recommendations about which Guidelines to follow.
                                       44

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     . Water Conservation Plan Guidelines
                                                                      Basic Guidelines
1.    Specify  Conservation Planning Goals
                                                    Specify conservation planning
                                                    goals in terms of expected
                                                    benefits for the 'water system
                                                    and its customers.  Involve
                                                    affected members of the
                                                    community in the development
                                                    of conservation planning goals
                                                    and throughout the
                                                    implementation process.
Planning Goals

Planning goals can be developed from different
perspectives.  These Guidelines emphasize a water
supplier perspective. Lowering water demand can help
water suppliers avoid, downsize or postpone the
construction and operation of supply-side facilities.

Customers and society at large also benefit from
conservation.  Conservation benefits society by
preserving environmental resources.  Conservation can
benefit customers by lowering energy and long-term water costs.  Water conservation reduces
demands on wastewater systems; in fact, the need to reduce wastewater treatment costs can be
a strong rationale for water conservation. The Guidelines and the worksheets can be used to
simultaneously address the potential effects of conservation on water and wastewater
operations.

Water systems should state their goals in specific terms. Measurable goals are useful for
evaluation purposes. For example, many water systems identify a specific water-use
reduction goal (as a percentage of current water usage).  Water conservation planning goals
may include:

       a  Eliminating, downsizing, or postponing the need for capital projects.
       a  Improving the utilization and extending the life of existing facilities.
       a  Lowering variable operating costs.
       a  Avoiding new source development costs.
       a  Improving drought or emergency preparedness.
       a  Educating customers about the value of water.
       a  Improving reliability and margins of safe and dependable yields.
       a  Protecting and preserving environmental resources.

Managers should revisit the goals section before finalizing the conservation plan and
periodically thereafter, because goals and the means to achieve them will evolve. As the
water system accomplishes certain conservation goals, new objectives may emerge.

Community Involvement

The process of developing goals should involve community representation. Modern resource
planning emphasizes an open process that gives all affected groups an opportunity to express
their interests and concerns. Involving  the community in goal development and
implementation also serves an important public education function, and can greatly enhance
                                         45

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  USEPA Water Conservation Plan Guidelines
                                                                           Basic Guidelines
  the success of conservation programs.  Members of the community who might be interested in
  water conservation include:
         Q
         a
         D
         Q
         Q
         Q
         Q
Residential water consumers
Commercial water consumers
Industrial water consumers
Wholesale customers
Environmental groups
Civil rights groups
Indian tribes
Q
a
a
a
a
a
Labor groups
Business and commerce groups
Recreational water users
Agricultural users
Educational institutions
Government agencies
  In addition to helping the water system specify planning goals, community participants also
  may have an ongoing role in a system's conservation program. Ongoing involvement helps
  maintain and build support for achieving conservation goals and "getting the word out" about
  the conservation effort.  Participants can act as a focus group for exploring specific
  conservation measures (discussed in Section 4), and also can provide valuable linkages to key
  groups—consumers, businesses, and institutions—involved in implementing certain
  conservation measures.  Participants also can offer input on the level of satisfaction with the
  system's programs. Finally, community groups can assist the water system in monitoring
  results and adjusting program implementation.

 For many water systems, involving the community in water system planning will be a new
 experience.  Community involvement does not have to consume excessive time or resources.
 Even a few "town hall" meetings or "brainstorming" sessions can be helpful.  Most system
 managers will find that involving members of the community in developing goals,
 implementing programs, and evaluating results is a very worthwhile investment. Fortunately,
 guidance on this approach is available.
1 See Public Involvement Strategies: A Manager's Handbook (Denver, CO: American Water Works Association
Research Foundation, 1996).
                                         46

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USEPA Water Conservation Plan Guidelines
                                                                       Basic Guidelines
2.    DEVELOP A WATER SYSTEM PROFILE
                                                     Summarize the service and
                                                     operating characteristics of the
                                                     water system.  Provide an
                                                     overview of conditions and a
                                                     description of climate, water
                                                     availability, or other factors
                                                     that might affect water
                                                     conservation planning.
Developing a system profile by taking inventory of
existing resources and conditions helps systems assess
their present circumstances and design strategies to
meet emerging needs. Most systems should maintain
the information necessary for building a profile. Much
information may already have been compiled for a
facility plan or for other purposes.

Systems can use Worksheet 3-1 to compile and present
a system profile. The profile may be expanded to
include additional information, for example, data on trends for some characteristics (such as
supply and demand measures) that help describe the system.  The first part of the worksheet
lists system characteristics.

The second part of the worksheet provides an overview of conditions that might affect the
conservation planning effort. This checklist can be used to review conditions affecting the
supply or demand for water, focusing on conditions that most affect your system. The
conditions outlined in the worksheet suggest the need for water conservation planning.  While
all water systems can benefit from efficiency improvements, water conservation is especially
beneficial for systems experiencing water shortages or rapid  increases in demand.

For some conditions, states might provide benchmark measures that water systems can use for
comparison purposes. For example, a state might have specific criteria for defining critical
use or stressed areas, for classifying per-capita water use, or  for identifying the age of
systems.  Systems should try to compare significant conditions using generally accepted
measures.

The last part of the  worksheet is provided so that water systems can describe their current
water conservation activities and programs.
                                         47

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 USEPA Water Conservation Plan Guidelines
                                                             Basic Guidelines
 Worksheet 3-1:  Water System Profile
 SUMMARIZE SYSTEM CHARACTERISTICS
A
1
2
B
3
C
4
5
6
C
V
8
9
10
11
12
D
13
14
F
15
16
17
G
18
19
20
SERVICE CHARACTERISTICS
Estimated service population
Estimated service area (square
miles)
Number


ANNUAL WATER SUPPLY
Total annual water supply
SERVICE CONNECTIONS
Residential, single-family
Other
Total connections
WATER DEMAND
Metered residential sales
Metered nonresidential sales
Other metered sales
Unmetered sales
Nonaccount water [a]
Total system demand (total use)
AVERAGE & PEAK DEMAND
Average-day demand
Maximum-day demand
PRICING
Residential rate
Nonresidential rate
Other rate
PLANNING
Capital, facility, or supply plan
Drought or emergency plan
Water conservation plan
Annual volume






Volume


Rate structure [b]



Prepared a
plan 0



Annual volume

Connections



Percent of total






Total supply
capacity


Metering
schedule [c]



Date



Percent metered
%
Percent metered
%
%
%
Per connection






Percent of total
capacity
%
%
Billing
schedule [c]



Filed with state 0



(Worksheet continues)
                                  48

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USEPA. Water Conservation Plan Guidelines
                                    Basic Guidelines
Worksheet 3-1 (continued)
SUMMARIZE SYSTEM CONDITIONS
H
21
22
23
24
25
PLANNING QUESTIONS
Is the system in a designated critical water supply
area?
Does the system experience frequency shortages or
supply emergencies?
Does the system have substantial unaccounted-for
and lost water?
Is the system experiencing a high rate of population
and/or demand growth?
Is the system planning substantial improvements or
additions?
Yes





No





Comment





SUMMARIZE CURRENT CONSERVATION ACTIVITIES
Water conservation measures
Approximate
annual
water savings
[if known]
                Is continued
 Implemented   implementation
jiince (date)    planned?	
[a]  Nonaccount water is water not metered and sold to customers (including authorized and unauthorized uses).
    See Appendix A, figure A-7 and Worksheet A-2.
[b]  Uniform, increasing-block, decreasing-block, seasonal, or other.
[c]  Quarterly, monthly, or other.
                                          49

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USEPA Water Conservation Plan Guidelines
                                                                        Basic Guidelines
3.   PREPARE A DEMAND FORECAST
                                                   Prepare a forecast of
                                                   anticipated water demand for
                                                   selected time periods. To the
                                                   extent practical, the planner
                                                   should take into account
                                                   variations in demand based on
                                                   type of water usage, as well as
                                                   perform a "what if" (sensitivity)
                                                   analysis.
 Forecasting water use (or demand) can range from
 simple projections based on anticipated population
 growth to complex models. Forecasts can be made for
 the water system as a whole; however, forecasts are
 more accurate when they are prepared for separate
 classifications of water use.

 Prepare forecasts for five-year and ten-year time
 points. Additional tune points can be used as well.
 The longer the planning horizon, the greater will be
 the uncertainty of the forecast. Forecasts should be
 revisited and updated on a regular basis.

 The demand forecast should recognize the effects of conservation measures already
 implemented. However, for the purposes of this conservation plan, anticipated demand
 effects from measures contemplated in the plan should not be included.

 This section of the plan is optional if the population served by the water system is not growing
 at a rate of more than 2 percent per year (or another population-growth benchmark specified
 by the state). Additionally, it is not necessary for systems to prepare a separate forecast for
 the purposes of this plan if a forecast has already been prepared for the system within the
 suggested time frame. Managers should include the results of such forecasts in this plan.

 Worksheet 3-2 provides a simple water demand forecasting methodology based on
 population. This method is reasonable for water systems that have little variation within their
 service populations (such as systems that serve only single-family residential customers in
 comparable housing) and stable water-use characteristics. The method calculates per capita
 water use and multiplies the result by projected population levels. Projected water use is
 compared to system capacity to calculate the anticipated surplus or shortage. Any
 adjustments to the forecasts for known and measurable factors that might affect demand
 should be explained. Worksheet 3-2 also provides a method for estimating average-day and
 maximum-day demand.

 An alternative to calculating water use on a per-capita basis is to calculate water use on a per-
 connection (or per-household) basis. (Managers often use the median number of persons per
 household to make conversions.) For forecasting purposes, per-connection water use is
multiplied by the number of current and projected connections (such as residential
households). It may be easier to project households based on land-use planning data and
construction estimates.
                                       50

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USEPA Water Conservation Plan Guidelines
Basic Guidelines
Care should be taken in using the per-capita or per-connection approach to forecasting,
particularly if the service population is varied. Separate forecasts should be prepared for
large-volume water users (such as a large industrial plant). When one large-volume user
begins, changes, or terminates service from a relatively small utility, the effects can be felt
throughout the utility's operations. Plant managers can be consulted about projected water
needs for the industrial sector.

The per-capita and per-connection methods of forecasting have limitations.  They assume that
water use is essentially a function of population or changes in the number of connections and
that usage patterns will not change with time. For example, customers are not expected to
install water-saving fixtures or respond to future changes in rates. For this reason, managers
should include a brief assessment of factors that could affect the level or pattern of demand in
their service territory.
                                           51

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 USEPA Water Conservation Plan Guidelines
                                                                           Basic Guidelines
 Worksheet 3-2: Water Demand Forecast [a]
 Line
 Item
Current
 Year
                                                                   5-Year
                                                                   Forecast
10-Year
Forecast
        TOTAL ANNUAL WATER DEMAND
        Current total annual water demand (from Worksheet 3-1)
        fa]	
        Current population served [b]
        Total water demand per capita (line 1 divided by line 2)
        M
        Projected population [b]
       Projected total annual water demand (line 3 multiplied by
       line 4)	
       Adjustments to forecast (+ or -) [c]
       Adjusted total annual water demand (line 5 plus line 6)
       Current annual demand (line 1) and adjusted annual water
       demand forecast (line 7 for forecast years)	
       Current and projected annual supply capacity (from
       Worksheet 3-1) [d]
  10
Difference between total annual water demand and total
annual supply capacity (+ or -) (subtract line 8 from line 9)
  B
AVERAGE-DAY AND MAXIMUM-DAY DEMAND
  11
  12
  13
  14
  15
  16
Current and forecast average-day demand (line 8 divided
by 365)	
Current maximum-day demand (from Worksheet 3-1)
Maximum-day to average-day demand ratio (line 12
divided by line 11)	
Projected maximum-day demand (line 13 multiplied by
line 11 for all forecast years)	
Adjustment to maximum-day demand forecast [c]
Current (line 12) and adjusted maximum-day demand
forecast (add lines 14 and 15)
  17
Daily supply capacity (line 9 divided by 365)
  18
Ratio of maximum-day demand to daily supply capacity
(line 16 divided by line 17)
[a]  Separate forecasts should be prepared for large-volume users, as well as for nonaccount water (water
    not billed to customers) if nonaccount water is a significant amount (such as more than 10 percent of
    total production).
[b]  Managers can use connections instead of population and per-connection water use instead of per-capita
    water use.
[c]  Please explain adjustments to your forecast (lines 6 and 15), including effects of installed conservation
    measures and rate changes.
[d]  Supply capacity should take into account available supplies (permits), treatment capacity, or
    distribution system capacity and reflect the practical total supply capacity of the system, including
    purchased water.
                                              52

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USEPA Water Conservation Plan Guidelines
                                                                    Basic Guidelines
4.    IDENTIFY AND EVALUATE CONSERVATION
       MEASURES
                                                   Identify the conservation
                                                   measures that have been
                                                   implemented, are planned, or
                                                   are not planned. Provide an
                                                   explanation for why
                                                   recommended measures are not
                                                   planned for the -water system.
                                                   For each measure chosen,
                                                   estimate total implementation
                                                   costs (dollars) and anticipated
                                                   water savings (volume) and
                                                   assess the cost effectiveness of
                                                   the measure.
Conservation Measures

Water systems have a wide selection of specific
conservation measures at their disposal. These
measures include both supply-side and demand-side
management techniques for saving water, and range
from relatively simple educational tools to advanced
water-efficient technologies. Use of any particular
measure depends on whether it meets cost-effectiveness
and other planning criteria and whether its use complies
with applicable laws and regulations, including state
and local plumbing codes.

The conservation measures identified in Table 2-3 of
the Overview are organized into three levels: Level 1, Level 2, and Level 3. Each level
includes four categories of measures. Specific water conservation measures are identified
within each category. The number of specific measures included in each level expands from
the Basic to the Intermediate and from the Intermediate to the Advanced Guidelines.  In other
words, the measures are cumulative. Appendix A provides additional information and several
worksheets on the conservation measures.

All water systems, regardless of their size or the conditions under which they operate, should
consider the very fundamental and widely accepted practices identified under Level 1. The
measures in Levels 2 and 3 generally are considered appropriate for  systems with significant
conservation needs and interests. Managers are encouraged to explore the full range of
potential conservation measures for their systems. Many systems will find it beneficial to
expand their conservation programs beyond the minimum set of measures.

Review of Measures

The minimum list of measures recommended for consideration appears in Worksheet 3-4.
Systems should use the checklist to review and summarize the measures that are currently
implemented, planned, or not planned at this time. Managers also can identify additional
measures and practices as they develop their conservation plans

Measures should be selected on the basis of how well they can help the system achieve water
savings, program costs, and other factors that are important to the water system. The planning
document should discuss the criteria used in selecting the conservation measures and provide
a summary of the results in terms of the measures planned for actual  implementation.
                                       53

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 USEPA Water Conservation Plan Guidelines
                          Basic Guidelines
 The first step in the selection process is to identify criteria for evaluating the conservation
 measures. The cost-effectiveness of the measures is one criterion, but other factors should be
 considered as well. Managers are free to consider as many selection criteria as they believe
 are appropriate, but the relevance of the criteria should be explained in the conservation plan.
 The criteria that can be used in selecting conservation measures for implementation may
 include:
        a  Program costs                    o
        a  Cost-effectiveness                 a
        o  Ease of implementation            a
        D  Budgetary considerations          a
        a  Staff resources and capability       a
        a  Environmental impacts            o
        a  Ratepayer impacts                 a
Environmental and social justice
Water rights and permits
Legal issues or constraints
Regulatory approvals
Public acceptance
Timeliness of savings
Consistency with other programs
 For each selection criterion, managers should identify whether, how, and why the factor
 affects the feasibility of implementing one or more conservation measures. Some factors
 might be more important than others. Planners also may want to bear in mind that techniques
 can be used to mitigate adverse effects and improve acceptance of measures.  A cost-effective
 conservation measure should not be dismissed without careful consideration of how barriers
 to implementation might be overcome.
Budget
Developing a budget for each conservation measure is an invaluable part of the planning
process. A simplified cost-effectiveness analysis can also be used to compare alternative
conservation measures in terms of dollars per gallon of water saved. For example, one
measure might produce savings at the rate of $.25/1,000 gallons while another produces
savings at a cost of $.50/1,000 gallons.

Worksheet 3-3 should be completed for each planned conservation measure. In some cases,
managers may want to combine measures based on the conservation program they envision.
All interrelated measures that are expected to result in an identifiable amount of water
savings should be combined and treated as one measure in order to avoid counting the
planned -water savings more than once in the analysis.

Worksheet 3-3 begins with an open-ended description of the measure. The anticipated life
span for the measure should be indicated.  Managers also should indicate whether the measure
is targeted toward reduction in average-day demand, maximum-day demand, or both. A
method for summing the total budget needed for implementing the measure is provided. All
costs associated with implementation should be included. Managers should ascertain
reasonable cost estimates by potential vendors whenever possible. Several different types of
costs as indicated on the worksheet should be analyzed.  When estimating costs, a realistic
                                         54

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USEPA Water Conservation Plan Guidelines
Basic Guidelines
implementation schedule should be considered. Any special circumstances affecting the
schedule or cost of implementing the proposed measures should be discussed in the plan.

Worksheet 3-3 also includes a method for estimating annual water savings and total life-span
savings that can be achieved by the measures.  For each measure, the method used to calculate
anticipated water savings should be provided.  This might include, for example, a formula for
converting daily per capita savings to annual savings. In some cases (such as a leakage
control program), it might not be feasible to estimate savings for each unit, in which case total
annual savings for the entire measure are sufficient.  Cost per gallon of water saved can be
used to compare conservation measures and to compare conservation to supply-side options.

If a system chooses not to implement any of the minimum measures, a complete explanation
should be provided in the plan. If perceived costs and benefits are among the reasons for
rejecting a measure a supporting analysis should be provided. This  analysis can be based on a
comparison of implementation costs to the system's average annual cost of production (or
revenue requirements). Planners can consult the Intermediate Guidelines for more
information about benefit-cost and cost-effectiveness analysis.

Conservation measures that affect the demand side of the water system have the effect of
reducing water sales and utility revenues usually are a function of the quantity of water sold
and the rate charge (per unit of water sold). Because revenue sufficiency plays an important
role in ensuring the capacity of the water system, managers should consider conservation
effects on revenues. The conservation plan should briefly address how planned conservation
measures will affect water utility revenues (based on reduction in sales) and discuss strategies
for addressing these revenue effects.

Summary

The plan should summarize and describe in general terms the range  of conservation measures
planned for implementation and the anticipated benefits, including effects on planned capital
facility projects (if applicable). Measures planned for implementation can include Level 2
and Level 3 measures.  The plan should discuss whether conservation can help the system
avoid, downsize, or defer capital expenditures. The Intermediate Guidelines also provide
some guidance on this issue.

The process of selecting measures can be summarized in Worksheet 3-4. For each
recommended measure, managers should indicate whether the measure was selected for
implementation. Managers also should identify the primary reason or reasons for selecting or
rejecting the measure. Special conditions or actions that are required before a selected
measure can be implemented (such as an approval from regulators) should be noted.  In some
cases, managers may conclude that a measure (or measures) cannot be implemented because
of a constraint that exists in the short term.  Conservation measures that might be planned  for
future implementation, once constraints are resolved, should be discussed in the plan.
                                          55

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 USEPA Water Conservation Plan Guidelines
                                  Basic Guidelines
 Worksheet 3-3:   Budget and Savings for Each Conservation
 Measure		

 Describe planned conservation measure:
 Typical water savings from the measure:
 Number of planned installations:
 Anticipated life span for the measure:

 The measure is designed to reduce:
                per
                years
Average-day demand
Maximum-day demand
Both average-day and maximum-day demand
Line
A
1
2
3
4
5
6
7
8
B
9
10
11
12
13
14
Item
BUDGET FOR EACH MEASURE [a]
Materials
Labor
Rebates or other payments
Marketing and advertising
Administration
Consulting or contracting
Other
Total program cost for the life of the measure (add lines 1
through?) [c]
TOTAL SAVINGS
Number of units to be installed [d]
Anticipated annual water savings per unit in gallons [e]
Total annual savings for the measure in gallons (multiply
line 9 by line 10)
Expected life span for the measure in years
Total life span savings for the measure in gallons (multiply
line 1 1 by line 12)
Cost per gallon of water saved (divide line 8 by line 13)
Amount
Per unit [b]
$


HH1
^^^B
^^•B









Amount
Total cost of the
measure
$






$






$ /gallon
[a]  A separate analysis should be performed for each conservation measure, but measures can be combined if
    they jointly produce water savings.
[b]  Examples of a unit are a toilet, a retrofit kit, and an audit.  A unit estimate may not be appropriate for eac
    measure, in which case total program water savings and costs for the measure can be used.
[c]  Include all recurring operation and maintenance costs over the life of the measure.
[d]  Units can be individual product units (such as toilets) or groups of products (such as household retrofits), a
    long as the analysis is consistent. Leave blank if unit values do not apply.
[e]  For example, water savings per retrofit. See Appendix B for benchmarks and sample calculations. Leave
    blank if unit values do not apply.
                                            56

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      WaXer Conservation Plan Guidelines
                                                                      Basic Guidelines
Worksheet 3-4:  Selection of Conservation Measures




Line






Measure


S
H
a

I
i
1

B

1
0
o
1
P-i




Primary criteria for selecting or rejecting
the conservation measure for
implementation [a]

Universal metering FBI
1
2
3
Source-water metering
Service-connection metering
Meter public-use water









Water accounting and loss
4
5
Account for water
control

FA1

Repair known leaks






Costin
6
7
8
g and pricing [B]
Cost-of-service accounting
User charges
Metered rates









Information and education fBl
9
10
Understandable water bill
Information available






Other Measures Fbl
11
12
13
14
15
16
17
18
19
20...








































    obstacles to its use that preclude further consideration.
 [b] See Appendix A for additional information on water conservation measures.
 [A] =  measure affects average-day demand
 [P] =  measure affects maximum-day (peak) demand)
 [B] =  measure affects average and peak demand
                                         57

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  USEPA Water Conservation Plan Guidelines
                                                                        Basic Guidelines
  5.    Present Implementation Strategy
  In this final step in the conservation planning process,
  the water system specifies its strategy and timetable for
  implementation. It can be emphasized, however, that
  conservation planning will require an ongoing effort on
  the part of water utility managers. Ongoing planning
  and implementation will go hand in hand.
Present a strategy and timetable
for implementing and assessing
conservation measures and
other elements of the
conservation plan.
 In the implementation strategy, managers should make note of any specific factors or
 contingencies that might affect or prevent the implementation of specific measures. For
 example, if a measure cannot be implemented prior to obtaining a special permit or other
 authority, this fact should be noted along with an explanation of the strategy for obtaining the
 necessary authority.  Some measures might require implementation actions that take place
 over several years (in order to sustain conservation savings).  The plan should provide
 sufficient detail to understand the utility's strategy with regard to implementing such
 measures.

 Worksheet 3-5 is a simple template for summarizing the water system's implementation and
 evaluation strategy for the conservation plan. A plan for public involvement should discuss
 how and when the water system intends to involve members of the community in the
 development and implementation of the conservation plan. Systems may want to plan regular
 communications (meetings and mailings) with community groups to keep them informed of
 the system's progress in meeting goals.

 A plan for monitoring and evaluation should address data  collection, modeling, and other
 issues that will be important in tracking the effects  of water conservation on demand over
 time. The system may want to collect new kinds of data for monitoring purposes as well as
 for future forecasting needs. Many systems might find, for example, that more detailed data
 on demand by customer class are needed, including more detail on contributions to average-
 day and maximum-day demands.  More detailed data might also be needed  to assess trends in
 nonaccount water.

 A plan for updates and revisions will help keep the system's conservation plan current over
 time and account for the system's actual experience with conservation. Updating forecasts of
 water demand and supply capacity as new data become available is especially important. In
 some cases, the system might want to revise or expand its planning goals. Many systems
 update plans every five years. However, changing conditions or other concerns might justify
more frequent updates.  The schedule of updates and revisions might be affected by state or
local requirements for conservation planning by the water system.

The conservation planning document also should include a record of the plan's adoption by
the water system's governing body (such as a Board of Directors or City Council), as
appropriate.
                                        58

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USEPA. Water Conservation Plan Guidelines
Basic Guidelines
Worksheet 3-5: Implementation Strategy
A. PUBLIC INVOLVEMENT
Describe plan for public involvement:
B. MONITORING AND EVALUATION
Describe plan for monitoring and evaluation:
Describe plan to collect water demand data:
C. PLAN UPDATES
Describe plan for updates and revisions:
D. ADOPTION OF THE PLAN
Date plan completed:
Date plan approved:
Approved by [governing body]:
Signature:
                                     59

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USEPA Water Conservation Plan Guidelines
                                                                                   Basic Guidelines
[blank page]
                                              60

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USE.P A. Water Conservation Plan Guidelines
                         Intermediate Guidelines
I
\
LU
03
•<*
   . Environmental Protection Agency

Water Conservation Plan Guidelines
 PART 4

 INTERMEDIATE GUIDELINES FOR

 PREPARING WATER CONSERVATION PLANS
                    61

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USEPA Water Conservation Plan Guidelines
                                                                    Intermediate Guidelines
 These Intermediate Guidelines are designed for water systems serving between 10,000 and
 100,000 people.  Which Guidelines are appropriate may depend on various factors and
 conditions affecting water systems and their need for conservation planning. For example,
 mid-sized systems with constrained water supply resources may want to follow the
 Advanced Guidelines. Water system managers should check with their own state's rules,
 regulations, and recommendations about which Guidelines to follow.
                                        62

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USEPA. Water Conservation Plan Guidelines
                                                                 Intermediate Guidelines
 I.    SPECIFY CONSERVATION PLANNING GOALS
                                                   Specify conservation planning
                                                   goals in terms of anticipated
                                                   benefits for the water system
                                                   and its customers.  To the extent
                                                   practical, involve affected
                                                   members of the community in
                                                   the development of conservation
                                                   planning goals and throughout
                                                   the implementation process.
Planning Goals

Planning goals can be developed from different
perspectives.  These planning Guidelines, including
the analysis of the benefits and costs of conservation
activities, emphasize a water supplier perspective.
The value of conservation is defined primarily in terms
of avoided supply-side costs to the water system.
Lowering the level of water demand can help water
suppliers avoid, downsize, or postpone the
construction and operation of costly supply-side
facilities.

The benefits of conservation also can be understood from the perspectives of customers, as
well as society at large.  Conservation benefits society by preserving environmental resources.
Conservation can benefit customers by lowering energy and long-term water costs. Water
conservation reduces demands on wastewater systems; in fact, the need to reduce wastewater
treatment costs can be a strong rationale for water conservation. The Guidelines and the
worksheets can be used to simultaneously address the potential effects of conservation on
water and wastewater operations.

Conservation planning goals can take many forms. Water systems should state their goals in
specific terms. Measurable goals are useful for evaluation purposes. For example, many
water systems identify a specific water-use reduction goal (as a percentage of current water
usage).

Water conservation planning goals may include:

       a  Eliminating, downsizing, or postponing the need for capital projects.
       a  Improving the utilization and extending the life of existing facilities.
       a  Lowering variable operating costs.
       a  Avoiding new source development costs.
       a  Improving drought or emergency preparedness.
       a  Educating customers about the value of water.
       a  Improving reliability and margins of safe and dependable yields.
       a  Protecting and preserving environmental resources.
                                                     \
Planners should plan on revisiting the goals section before finalizing the conservation plan
and periodically thereafter, because goals and the means to achieving them will evolve.  As
the water system accomplishes certain conservation goals, new objectives may come into
focus.
                                        63

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 USEPA Water Conservation Plan Guidelines
                                                         Intermediate Guidelines
 Community Involvement

 The process of developing goals can involve representatives of various groups in the
 community (or stakeholders) who may be concerned about a water system and its future.
 Modern resource planning (such as integrated resource planning) emphasizes an open process
 that involves all affected groups so that they can have an opportunity to express their interests
 and concerns.

 Involving the community in goal development also serves an important public education
 function. Moreover, it is widely believed that involving the community in developing goals,
 as well as in the implementation process, can greatly enhance the success of conservation
 programs.

 Members of the community who might be interested in water conservation include:
       a
       a
       a
       a
       a
       a
       a
Residential water consumers
Commercial water consumers
Industrial water consumers
Wholesale customers
Environmental groups
Civil rights groups
Indian tribes
a
a
a
a
a
a
Labor groups
Business and commerce groups
Recreational water users
Agricultural users
Educational institutions
Government agencies
In addition to helping the water system specify planning goals, community participants also
can have an ongoing role in a system's conservation program.  Ongoing involvement can help
maintain and build support for achieving conservation goals and "get the word out" about the
conservation effort. Participants can act as a focus group for exploring specific conservation
measures (discussed in Section 4). Participants also can provide valuable linkages to key
groups—consumers, businesses, and institutions—who might be involved in implementing
certain conservation measures.  Participants also can provide input on the level of satisfaction
or dissatisfaction with the system's programs. Finally, community groups can assist the water
system in monitoring results and adjusting program implementation.

For many water systems, involving the community in water-system planning will be a new
experience.  However, most system managers will find that involving members of the
community in developing goals, implementing programs, and evaluating results is a very
worthwhile investment.  Fortunately, guidance on this approach is available.1
1 See Public Involvement Strategies: A Manager's Handbook (Denver, CO: American Water Works Association
Research Foundation, 1996).
                                         64

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USEPA Water Conservation Plan Guidelines
                                                                 Intermediate Guidelines
2.    DEVELOP A WATER SYSTEM PROFILE
                                                   Summarize the service and
                                                   operating characteristics of the
                                                   water system.  Provide an
                                                   overview of conditions and a
                                                   description of climate, water
                                                   availability, or other factors
                                                   that might affect water
                                                   conservation planning.
System Profile

Taking inventory of existing resources and conditions
is an important step in the planning process. A water
system profile can help systems assess their present
circumstances and design strategies to meet emerging
needs.

Most water systems should maintain the data and
information necessary for building a system profile.
Much information may already have been compiled
for a facility plan or for other purposes.  Worksheet 4-1 profiles a relatively simple summary
table that systems can use to compile and present key system characteristics. The system
profile can be expanded to include additional information.  For example, systems may want to
present data on trends for some characteristics (such as supply and demand measures).
Systems should include in their profile additional characteristics or details considered relevant
for understanding the nature of the system.

System Conditions

Worksheet 4-2 provides a very simple overview of planning conditions that might affect the
water system and its conservation planning effort. This checklist can be used to make a
general review of conditions affecting the supply or the demand for water. For planning
purposes, it is important to identify and focus on the conditions that most affect a particular
system.

The conditions outlined in the worksheet suggest the need for water conservation planning.
While all water systems can benefit from efficiency improvements, water conservation can be
especially beneficial for systems experiencing water shortages or rapid increases in demand.
For example, water systems facing one or more of the following conditions are strongly urged
to consider the fullest range of conservation measures available to them in accordance with
these guidelines:

      a   Systems in state-designated critical water or stressed areas
      a   Systems experiencing frequent droughts, emergencies, or safe yield problems
      a   Systems with excessive unaccounted-for water or water losses
      a   Systems entering into major construction cycles
      a   Systems anticipating rapid growth in water demand

For some conditions, states might provide benchmark measures that water systems can use for
comparison purposes. For example, a state might have specific criteria for defining critical
                                        65

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USEPA Water Conservation Plan Guidelines
Intermediate Guidelines
use or stressed areas, for classifying per-capita water use, or for identifying the age of
systems. When practical, systems should try to compare significant conditions using
generally accepted measures.

In addition to the summary worksheet, planners also should prepare a brief written discussion
of the significant conditions affecting their systems.  Particular attention can be paid to
climate and water availability, but other factors affecting the system can be considered as
well.  This information can be used to help systems identify problems and opportunities
throughout the planning process.

Current Conservation Efforts

Worksheet 4-3 is provided so that water systems can describe their current water conservation
activities and programs.  For each conservation measure implemented, planners can indicate
the approximate  annual water savings achieved, when implementation for the measure began,
and whether continued implementation is planned. Any other pertinent information on
current efforts and their effectiveness can be provided in the plan as well.
                                         66

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USEPA Water Conservation Plan Guidelines
                                                                  Intermediate Guidelines
Worksheet 4-1 :  Water System Profile
A   SERVICE CHARACTERISTICS
                                                          Number
 1   Estimated service population
 2   Estimated service area (square miles)
 3   Miles of mains
 4   Number of treatment plants
 5   Number of separate water systems
 6   Interconnection with other systems
B   ANNUAL WATER SUPPLY
                                     Annual volume
                                                     Number of intakes     Percent
                                                      or source points      metered
7 Groundwater
8 Surface water
9 Purchases: raw
10 Purchases: treated
1 1 Total annual water supply





%
%
/Q
/Q
/O
C   SERVICE CONNECTIONS
                                      Connections
                                                        Water sales
                                                                         Percent
                                                                         metered
12 Residential, single-family
13 Residential, multi-family
14 Commercial
15 Industrial
16 Public or governmental
17 Wholesale
18 Other
19 Total connections








/O
/O
/Q
%
/Q
%
%
/Q
D   WATER DEMAND
                                     Annual volume
                                                      Percent of total    Per connection
20
21
22
23
24
25
26
E
27
28
29
F
30
31
32
G
33
34
35
Residential sales
Nonresidential sales
Wholesale sales
Other sales
Nonaccount water: authorized uses
Nonaccount water: unauthorized uses
Total system demand (total use)














Total supply Percent of total
AVERAGE & PEAK DEMAND Volume capacity capacity
Average-day demand
Maximum-day demand
Maximum-hour demand



%
%
%
Metering Billing
PRICING Rate structure frequency frequency
Residential rate
Nonresidential rate
Other rate






Prepared a Filed with state
PLANNING planlZI Date 0
Capital, facility, or supply plan
Drought or emergency plan
Water conservation plan
1





                                        67

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USEPA Water Conservation Plan Guidelines
Intermediate Guidelines
Worksheet 4-2:  Overview of System Conditions [a]
Line
A
1
2
3
4
5
6
7
8
9
B
10
11
12
13
14
15
16
17
18
19
C
20
21
22
23
24
25
D
26
27
28
Increasing
Conditions

Check
need for conservation-*-*-*
applicable
description
0

Don't
know 0
CLIMATE AND WATER AVAILABILITY
Average precipitation
Average temperatures
Critical supply areas
Competing water uses
Environmental constraints
Quality/quantity concerns
Seasonal variations in climate
Instream flow problems
Shortage or emergency frequency
High
Low
No
No
No
No
Low
Low
Low
a
a
a
a
a
a '
a
n
a
Moderate
Moderate
At risk
Possibly
Possibly
Possibly
Moderate
Moderate
Moderate
n
n
n
n
n
n
n
a
a
Low
High
Yes
Yes
Yes
Yes
High
High
High
n
n
a
a
a
n
a
a
a
n
a
a
a
a
a
• a
n
a
INFRASTRUCTURE CONDITIONS
Age of the system
General condition of system
Water losses and leaks
Unaccounted-for water
Safe yield of supply exceeded
Wastewater discharges exceeded
Wastewater capacity exceeded
Potential for recycling and reuse
Improvement plans
Anticipated investment
Newer
Good
Low
Low
No
No
No
Low
Low
Low
a
a
a
n
a
a
a
a
n
n
Middle
Fair
Moderate
Moderate
At risk
At risk
At risk
Moderate
Moderate
Moderate
a
a
a
a
a •
a
a
n
a
a
Older
Poor
High
High
Yes
Yes
Yes
High
High
High
a
n
a
a
a
a
a
a
a
a
a
n
a
a
a
a
a
n
a
n
SYSTEM DEMOGRAPHICS
Rate of population growth per year
Rate of demand growth per year
Rate of economic growth per year
Per capita water use (by class)
Ratio of peak to average demand
Presence of large-volume users
Low
Low
Low
Low
Low
Low
a
a
a
a
a
a
Moderate
Moderate
Moderate
Moderate
Moderate
Moderate
a
a
a
a
a
a
High
High
High
High
High
High
a
a
a
a
. a
a
n
a
a
a
a
a
OTHER FACTORS
a
a
a
[a] Specific (quantified) benchmarks for these indicators may be provided by the state.
                                      68

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USEPA. Water Conservation Plan Guidelines
                           Intermediate Guidelines
Worksheet 4-3:  Current Water Conservation Activities
Summarize the system's current water conservation activities/programs:
Water conservation measures
Approximate
annual
water savings
[if known]
             Is continued
Implemented  implementation
since (date)    planned?
                                    69

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 USEPA Water Conservation Plan Guidelines
             Intermediate Guidelines
 3.   PREPARE A DEMAND FORECAST
 Demand Forecasting

 Forecasting water use (or water demand) is a critical
 part of the planning process. Forecasts can range from
 simple projections based on anticipated growth in the
 population to complex models using several variables to
 explain variations in water use. Forecasts can be made
 for a water system as a whole; however, forecasts are
 considered more accurate when they are prepared for
 separate classifications of water use or sectors.
Prepare a forecast of
anticipated water demand for
selected time periods.  To the
extent practical, the planner
should take into account
variations in demand based on
type of water usage, as well as
perform a "what if" (sensitivity)
analysis.
 The Guidelines suggest that planners prepare forecasts for five-year, ten-year, and twenty-
 year intervals. Additional time points can be used as well.  The longer the planning horizon,
 the greater will be the uncertainty of the forecast. Forecasts should be revisited and updated
 on a regular basis.

 The forecast should recognize the effects of conservation measures already implemented. The
 forecast also should recognize the demand effects of plumbing efficiency standards
 established under the 1992 Energy Policy Act (see Appendix B, Tables B-5 and B-6).2 New
 construction and renovations will not contribute as much to total demand as in the past;
 systems that are not experiencing growth might detect declines in demand due to these effects.
 For the purposes of this conservation plan, anticipated demand effects from measures
 contemplated in the plan should not be included. A revision to the demand forecast based on
 implementing the planned conservation measures is made in Section 8 (Worksheet 4-12).

 It is not necessary for systems to prepare a separate forecast for the purposes of this plan if a
forecast has already been prepared for the system within a reasonable time frame.  Planners
 should include the results of their forecasts in this plan.

 Forecasting Method

 Systems following the Intermediate Guidelines should use, at a minimum, the forecasting
 technique provided in Worksheet 4-4. This approach separates (at a minimum) residential
 and nonresidential customers.  The forecast can be made on a per-capita or per-connection
 basis. However, for the nonresidential sector, planners should use employees, jobs, or another
 appropriate explanatory variable.
2 A method for estimating the demand effect of efficient fixtures can be found in Amy Vickers, "The Energy
Policy Act: Assessing its Impact on Utilities." Journal American Water Works Association (August 1993): 56-
62.
                                         70

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USEPA. Water Conservation Plan Guidelines
Intermediate Guidelines
The water demand forecast can be refined by considering customer classifications. For
example, the nonresidential class can be subdivided into the commercial and industrial classes
(as well as wholesale water customers). A separate forecast also should be prepared for
nonaccount water, or water that does not produce revenues for the system. Nonaccount water
includes authorized uses of water, as well as losses and leaks.  (Worksheet A-2 in Appendix A
can be helpful in understanding nonaccount water and water losses).  Planners also should
estimate average-day and maximum-day demand over the planning horizon. As discussed in
Section 4, different types of supply-side facilities are designed to meet water demands (peak
or average), and various conservation measures target different types of demand.

Each of the forecasts should be subjected to a basic "what if analysis to address potentially
important changes in the level or pattern of water demand. The forecasts should take into
account and the plan should explain any known, planned, or measurable changes that will
affect demand, with the exception of the conservation measures contemplated in these
guidelines. Adjustments to the forecast based on expected savings from conservation will be
made in Section 8 (Worksheet  4-12).

This method of forecasting also is very simple and limited. While it takes into account
variation in water-use by customer class, the method  also assumes that unit use (use per
person, household, place of business, and so on) does not vary over time.
                                          71

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 USEPA Water Conservation Plan Guidelines
                                                                         Intermediate Guidelines
 Worksheet 4-4: Preliminary Water Demand Forecast  [a]
 Line
 Item
Current
 year
 5-year
forecast
10-year
forecast
20-year
forecast
  B
  10
        RESIDENTIAL DEMAND
        Current annual water residential sales (total gallons)
        Current population served [b]
        Residential sales per capita (line 1 divided by line 2) [b'
        Projected population [b]
        Projected annual residential water demand (line 3
        multiplied by line 4)	
 NONRESIDENTIAL DEMAND [C]
        Current annual water nonresidential sales (total gallons)
        Current number of employees or jobs [c]
        Water use per employee or job (line 6 divided by line
        Projected number of employees or jobs
 Projected annual nonresidential water demand (line 8
 multiplied by line 9)	
        NONACCOUNT WATER (WATER NOT SOLD TO CUSTOMERS)
  11
 Current and forecast amount [d]
  12
  13
  14
  15
        WATER SYSTEM TOTAL DEMAND
 Current total annual water demand (add lines 1,6, and
ID	
Projected total annual water demand (add lines 5,10,
11)	
Adjustments to forecast (+ or -)
Current (line 12) and adjusted total annual water demand
forecast (add lines 13 and 14) [e]
  16
Current and projected annual supply capacity [fj
  17
Difference between total use and total supply capacity (+-
or-) (subtract line 12 from line 15)	
  E
AVERAGE-DAY AND MAXIMUM-DAY DEMAND
  18
  19
  20
  21
  22
 23
Average-day demand (line 15 divided by 365)
Current maximum-day demand
Maximum-day to average-day demand ratio (line 20
divided by line 19)	
Projected maximum-day demand (line 18 multiplied by
line 20 for all forecast years)	
Adjustment to maximum-day demand forecast [e]
Current (line 19) and adjusted maximum-day demand
forecast (add lines 21 and 22)
 24
Daily supply capacity (divide line 16 by 365)
 25
Ratio of maximum-day demand to daily supply capacity
(divide line 23 by line 24)	
[a]  Separate forecasts should be prepared for large-volume users.
[b]  Planners can chose to use service connections or households instead of population and per-connection water use
    instead of per-capita water use.
[c]  Explanatory variables other than employees or jobs can be used as appropriate.  The forecast should be
    disaggregated by sector of water use to the greatest extent possible (for example, commercial and industrial wate
    use and nonaccount water) and a qualitative sensitivity analysis ("what if) should be performed for each sector's
    forecast.
[d]  Please provide an explanation of the forecast of nonaccount water, including all relevant assumptions.
[c]  Please provide an explanation of adjustments to your forecasts, including all relevant assumptions.
[f]  Supply capacity should take into account available supplies (permits), treatment capacity, and distribution syste
    capacity and reflect the practical total supply capacity of the system, including purchased water.
                                                 72

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USILPA. Water Conservation Plan Guidelines
                                                                  Intermediate Guidelines
4.    DESCRIBE PLANNED FACILITIES
                                                     Describe improvements planned
                                                     for the water system over a
                                                     reasonable planning horizon,
                                                     identify the types of
                                                     improvements proposed, and
                                                     estimate the total, annual, and
                                                     unit cost of the improvements.
                                                     Prepare a preliminary forecast
                                                     of installed capacity.
Supply Forecasting

In this part of the conservation plan, planners are asked
to prepare an estimate of supply costs based on meeting
the level of water demand specified in the unadjusted
demand forecast (that is, unadjusted for additional
conservation).  This is a critical part of the analysis
because it establishes the anticipated cost of supply-side
improvements and additions and this cost estimate will
be used to represent the value of conservation or
demand-side activities.
Because the benefits of conservation extend into the future it is important to take a forward-
looking approach to supply costs. The concept of marginal or incremental cost captures the
idea that the "true" value of a supply resource can be measured in terms of the cost of the next
increment of supply.  If only high-cost supplies are available, the marginal or incremental cost
will be high. For many communities, future increments of supply will be very costly.  The
value of a conserved amount of water at a future point in time will be equivalent to the most
costly supply option available at that future time point, because that is the supply option being
displaced by conservation.

Cost Analysis

A reasonable accounting of anticipated supply costs is needed in order to compare the cost of
supply-side measures to the cost of demand-side or conservation measures (on a cost-per-
gallon basis). Planners should choose an appropriate time horizon; a twenty-year or other
suitable period can be used. The choice of time frame should be consistent with the  demand
forecast (Section 3), as well as the other planning considerations.

Planners should begin by preparing an estimate of major improvements and additions that will
be required over the planning horizon in order to meet anticipated demand (including a safe
reserve margin). Detailed cost estimates may be available from facility plans or other
planning documents.  Worksheet 4-5 can be used to summarize improvements and additions,
which are disaggregated into three categories:  source of supply, transmission and treatment,
and distribution. (Additional  categories can be used as needed.)

Planners should consider all capital facility improvements and additions. Improvements
include renovations and expansions needed to maintain or enhance  safety or reliability within
existing facilities. Additions consist of new facilities.  Routine maintenance improvements
should not be included. Anticipated water purchases and costs also should be recorded on
Worksheet 4-5. For this part of the analysis, the effects of conservation measures currently
                                         73

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 USEPA Water Conservation Plan Guidelines
Intermediate Guidelines
 being implemented should be considered, but the effects of new conservation measures on the
 need for supply capacity or water purchases should be excluded. (These effects are addressed
 in Section 8.)

 If no capital improvements and additions are planned, "0" values can be entered and the
 estimate of supply costs can be based on operating costs (including the cost of energy,
 chemicals, and purchased -water).


 Estimating Incremental Supply Costs

 Worksheet 4-6 provides a method for placing a value on supply-side improvements and
 additions.  Improvements and additions are separated into categories: source of supply, water
 treatment facilities, treated water storage, and major transmission lines. Water purchases are
 separately recorded.  Capital costs over the useful life of the anticipated projects (including
 financing costs) are annualized and reported on a per-gallon basis.  Financing costs can be
 incorporated into the calculation of annualized cost by using the expected interest rate for
 financing the project(s) or the system's overall cost of capital.

 Added to the annualized capital cost forecast is the variable operating cost-per-gallon of
 production for existing and planned facilities, including costs associated with energy,
 chemicals, and existing and new water purchases. The resulting estimates of total annual
 incremental costs by type of facility (peak and average) can be used by planners to arrive at a
 simple estimate of incremental supply costs, which can later be compared to the unit cost of
 implementing conservation measures.

 Supply-side facilities are  designed to meet different types of water demand (as summarized in
 Table 4-1); similarly, different conservation measures affect different types of water demand.
 Planners should identify,  as reasonably possible, the extent to which improvements and
 additions are needed to meet average and/or peak demand.

 Capital-cost reductions associated with conservation will depend on the extent to which
 supply-side facilities can be eliminated, postponed, or downsized.  The effect of conservation
 on the need for facilities will depend on the demand pattern of the individual utility, as well as
 its construction cycle (that is, the timing of facilities currently under development).
 Conservation can be particularly beneficial for systems that have a sufficient planning horizon
to integrate conservation with conventional resource options. In some cases, capital costs
cannot be avoided but conservation can still yield savings in operating expenditures. A
degree of analyst judgment is required in order to evaluate incremental costs and to integrate
supply-side and demand-side resources.
                                          74

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XJSEPA. Water Conservation Plan Guidelines
Intermediate Guidelines
Table 4-1:  Relationship of Water Demand to Supply Facilities
Type of Water Demand
Average-day
Maximum-day (peak)
Maximum-hour [a]
Type of Water Supply Facility
Source of supply facilities, including raw water
storage facilities (such as reservoirs)
Water treatment plants
Major transmission lines
Treated water storage facilities
Distribution mains [b]
Pumping stations [b]
Source: Adapted from Charles W. Howe and F. Pierce Linaweaver, "The Impact of Price on
Residential Water Demand and its Relationship to System Design and Price Structure, Water
Resources Research 3 (First Quarter 1967): 13-32.

[a] Maximum-day demand plus fire-flow requirements.
[b] These facilities should be considered in the analysis if they could be affected by such conservation
   measures as leak detection and repair, pressure management, or integrated resource management.
This approach produces a very rough estimate of the value of supply-side options. Costs are
not escalated (to account for the increasing value of water-supply resources over time),
discounted (to account for the time value of money), or adjusted for inflation. The Advanced
Guidelines address these adjustments.

Preliminary Supply-Capacity Forecast

Based on the anticipated improvements and additions, planners also can present a preliminary
forecast of total supply capacity over the planning period.  Worksheet 4-7 is provided for this
purpose. The forecast, which can be presented in a table or graph, can be used to indicate
when changes to capacity are expected to occur. The total supply forecast should reflect both
additions to capacity and retirements.  Improvements that allow the system to maintain
capacity can be indicated with entries under both additions (to reflect the improvement) and
retirements (to reflect the facilities taken out of service). A similar analysis can be used for
wastewater facilities.

The supply forecast is preliminary because it can and will be revised later in the plan to reflect
the effect of conservation on water supply needs.
                                         75

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 USEPA Water Conservation Plan Guidelines
                          Intermediate Guidelines
 Worksheet 4-5:  Anticipated Improvements and Additions
 Describe planned improvements and additions:
 Describe time frame for planned improvements and additions (years):
 Type of Project [a]
Improve-
ment   Addition State date
                    End date
 Source of supply
 Water treatment facilities
 Treated water storage
 Major transmission lines
 Other
Need for Projeet(s) (Check all that apply)
  n
  a
  a
  a
  a
n
a
a
a
a
                Notes
Enhance compliance with regulations

Replace older equipment or facilities

Meet average-day demand

Meet maximum-day demand

Meet future growth needs

Other
  n
  n
  n
  n
  a
  n
Funding
                Interest rate
Cost of financing

Overall cost of capital [if known]


Water purchases	
  n
  a
Anticipated future water purchases

Cost of water purchases
                    (gallons per year)

                    (dollars per gallon)
[a] Comprehensive plans can include wastewater facilities.
                                      76

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\3SEPA. Water Conservation Plan Guidelines
                                                                               Intermediate Guidelines
Worksheet 4-6:  Cost of Supply-Side Facilities
 Line
Item
                              Facilities
                             for meeting
                              average-
                                day
                              demand
Source of
 supply
                                    Facilities for meeting maximum-day
                                              demand [a]
 Water
treatment
facilities
Treated
 water
storage
 Major
transmis-
sion lines
                                                  Water
                                                purchases
                                                needed to
                                                  meet
                                                demand [b]
                                               Estimate of
                                                 simple
                                               incremental
                                               supply cost
                                                ($/gallon)
  B
  10
  11
       SUPPLY CAPACITY IN ANNUAL GALLONS [c
       Current installed
       capacity o
       purchases
       Planned
       improvem
       additions
       Future installed
       capacii
       (line 1
       line 3)
died
vater
tsand
-ements
led
mrchases
ine 2 less

























COST OF PLANNED IMPROVEMENTS AND ADDITIONS
       Approximate total
       cost of planned
       improvements and
       additions identified in
       line 2 (including
       financing costs)
       Expected life of new
       facilities (years)
        Estimated annual
        capital costs (line 5
        divided by line 6)
        Estimated annual
        operating costs [d]
        Estimated total
        annual costs (line 7
        plus line 8) [e]
Per unit cost of new
facilities (line 9
divided by line 2)
Simple incremental
supply cost (add all
entries from line 10
 [a] Additional facilities or capital equipment can be included as appropriate.
 [b] The plan should indicate whether purchases are needed to meet average-day or maximum-day demand or both.
 [c] Planners should select a reasonable planning horizon for supply facilities and use the same time frame for all
    facilities.
 [d] Annual variable operating cost (including energy, chemicals, and water purchases).
 [e] This calculation of simplified value does not include a discount rate, an escalation rate, or an adjustment for
    inflation. This analysis also can be extended to include the incremental cost of wastewater collection and
    treatment.
                                                 77

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USEPA Water Conservation Plan Guidelines
                                                            Intermediate Guidelines
Worksheet 4-7: Preliminary Supply-Capacity Forecast
    Year
Additions (+)
Retirements (-)
Total supply capacity
   for the system
  (annual or daily)
 =a^^Bmi^=:^m^B3ir=^^mKKcaQCK^a^Hm«
      3
     10
     11
     12
     13
     14
     15
     16
     17
     18
     19
     20
                                    78

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\JSEP A. Water Conservation Plan Guidelines
                                                                Intermediate Guidelines
5.    IDENTIFY CONSERVATION MEASURES
                                                   Review the list of conservation
                                                   measures recommended for
                                                   consideration and identify
                                                   measures that have been
                                                   implemented, are planned, or
                                                   are not planned.  Provide an
                                                   explanation for why any
                                                   measure is not planned for the
                                                   water system.
Levels and Measures

Water systems have a vast array of specific
conservation measures at their disposal. These
measures include both supply-side and demand-side
management techniques for saving water and range
from relatively simple educational tools to the
promotion of advanced water-efficient technologies.
Use of any particular measure depends on whether it
meets cost-effectiveness and other planning criteria and
whether its use complies with applicable laws and
regulations, including state and local plumbing codes.

The conservation measures are organized into three levels: Level 1, Level 2, and Level 3.
Each level includes four categories of measures.  Specific water conservation measures are
identified within each category. Appendix A provides additional information and several
worksheets on the conservation measures. Planners are encouraged to explore the full range
of potential conservation measures for consideration in their conservation programs.

Identifying Conservation Measures

Worksheet 4-8 summarizes all measures and highlights the minimum set of measures
recommended for consideration in the Intermediate Guidelines, Systems should use the
checklist to review and summarize the measures that are currently implemented, planned, or
not planned at this time. Planners also can identify additional measures and practices as they
develop their conservation plans.

Water systems following the Intermediate Guidelines are expected to implement the very
fundamental and widely accepted practices highlighted under Level 1. If Level 1 measures
are not in place and not planned for implementation, planners should submit a strong
justification, including a cost-effectiveness analysis if it is the basis for not implementing the
measure.

Planners can screen the measures in terms of general feasibility. In some cases, it may not be
possible for a system to implement a measure because of legal restrictions or for other
compelling reasons.  The conservation plan should provide an explanation if a measure cannot
be implemented for the period of time covered by the plan. It is not necessary to prepare a
cost effectiveness analysis for measures that cannot be implemented.
                                        79

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 USEPA Water Conservation Plan Guidelines
                                                             Intermediate Guidelines
 Worksheet 4-8: Checklist of Conservation Measures
[a]
                                   SI
Measure [a]
*i
1
o E
*•• 
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USEPA Water Conservation Plan Guidelines
        Intermediate Guidelines
Worksheet 4-8 (continued)
Measure [a]
Comments [b]
LEVEL 2 MEASURES
Water-use audits [B]
Audits of large-volume users                d   d
Large-landscape audits                     d   d
Selective end-use audits   /                d   d

Retrofits [B]          /
Retrofit kits available/                     d   d
Distribution of retrofit kits                  d   n
Targeted programs                         d   d

Pressure management [A]
Systemwide pressure regulation             d   d
Selective use of pressure-reducing valves     d   d

Landscape efficiency [P]
Promotion of landscape efficiency           d   d
Landscape planning and renovation          d   d
Selective irrigation submetering             d   d
Irrigation management                     d   d

LEVEL 3 MEASURES
Replacements and promotions [B]
Rebates and incentives (nonresidential)       d    d
Rebates and incentives (residential)          d'   d
Promotion of new technologies              d    d

Reuse and recycling [B]
Industrial applications                     d    d
Large-volume irrigation applications         d    d
Selective residential applications            d    d

Water-use regulation [B]
Water-use standards and regulations         d    d
Requirements for new developments          d    d

Integrated resource management [B]
Supply-side technologies                   d    d
Demand-side technologies                  d    d
[a]   For more information about measures see Appendix A. Non-italicized measures should be considered at a
     minimum.
[b]   Note special issues related to the measure, including legal or other obstacles precluding implementation.
Note: Measures can affect average-day demand [A], maximum-day (peak) demand [P], or both [B], as indicated.
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6.   ANALYZE BENEFITS AND COSTS
                                                   For each identified water
                                                   conservation and other
                                                   measures of interest, estimate
                                                   total implementation costs
                                                   (dollars) and anticipated -water
                                                   savings (volume), assess the
                                                   cost-effectiveness of the
                                                   measure, and compare the cost
                                                   of conservation to benefits
                                                   (measured in terms of the
                                                   incremental cost of supply).
 Purpose

 In this section, an analysis of benefits and costs is used
 to aid the comparison and selection of measures.
 Planners will consider criteria other than efficiency in
 Section 7 and estimate actual effects of conservation
 on planned capital facilities in Section 8.

 Analyzing benefits and costs is an invaluable part of
 the planning process. A cost-effectiveness analysis can
 be used to compare alternative conservation measures
 in terms of dollars per gallon of water saved. For
 example, one measure might produce savings at a cost
 of $.25/1,000 gallons while another produces savings at a cost of $.50/1,000 gallons. Cost-
 effectiveness analysis also can be used to compare conservation measures to supply options.
 A simple net benefit analysis can be used to determine whether the benefits of implementing a
 measure outweigh the costs.

 Water  Savings

 Worksheet 4-9 should be completed for each conservation measure identified in Section 5.  In
 some cases planners may want to combine measures based on the conservation program they
 envision. All interrelated measures that are expected to result in an identifiable amount of
 •water savings should be combined and treated as one measure in order to avoid counting the
planned water savings more than once in the analysis.

 The worksheet begins with an open-ended description of the measure and an estimate of water
 savings. The anticipated life span for the measure should be indicated. Planners also should
 indicate whether the measure is targeted toward reduction in average-day demand, maximum-
 day demand, or both.  Estimates of potential water savings should be as realistic as possible,
based on system and regional considerations. For some measures, particularly those
 dependent on customer responses (such as information and education programs), the
 estimation will reflect a high degree of uncertainty. Planners can choose to use a range of
estimates under these circumstances.

The plan should indicate typical water savings from the measure, the number of planned
installations, and the anticipated life span for the measure, as well as whether the measure is
expected to reduce average-day or maximum-day demand (or both).
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USEPA Water Conservation Plan Guidelines
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 Implementation Costs

 Worksheet 4-9 includes a method for summing the total cost of implementing the measure.
 All costs associated with implementation should be included. Planners should obtain
 reasonable cost estimates by potential vendors whenever possible. The types of costs that
 should be analyzed include:
          Materials
          Labor
          Rebates or other payments
          Marketing and advertising
a  Administration
a  Consulting or contracting
D  Other
A realistic implementation schedule should be considered. Any special circumstances
affecting the schedule or cost of implementing the proposed measures should be discussed in
the plan.

Each worksheet also includes a place to estimate annual unit water savings (that is, savings
per measure or "unit"), total annual water savings, and total life span water savings for the
measure. For each measure, the method used to estimate water savings should be provided.
This might include, for example, a formula for converting daily per capita savings to annual
savings.  In some cases (such as a leakage control program), it might not be feasible to
estimate savings for each unit, in which case total annual savings for the entire measure are
sufficient.

Cost-Effectiveness

The analysis of cost-effectiveness for each measure builds on the identification of supply-side
costs in Section 4.  Using this analysis, the cost of conservation (for example, $.50 per 1,000
gallons saved) can be compared to the simple incremental cost of supply (for example, $2.00
per 1,000 gallons produced).  The difference between the per-gallon cost of conservation and
the per-gallon cost of supply is a simple indicator of the potential benefits  (or cost savings)
from conservation.

It is not necessary for planners to prepare a cost-effectiveness or net benefit analysis of Level
1 measures if those measures are already implemented or planned for implementation. An
analysis should be presented if cost-effectiveness is the basis for rejecting  a Level 1 measure.
If the analysis of Level 1 measures leads the planner to conclude that a proposed measure is
not cost-effective or that it fails to meet other criteria for implementation, the plan should
include an explanation of these findings and conclusions in Worksheet 4-11 (Section 7).

Net Benefits

These Guidelines take a somewhat narrow view of benefits and costs, both of which are
considered from the perspective of the water supplier. The analysis excludes other potentially
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important perspectives: water consumers, society, and the environment. Planners should
keep in mind that this approach may somewhat understate certain types of benefits and costs.
The value of implementing a conservation measure is estimated by using the simple
incremental cost of supply. In other words, the benefits of conservation can be measured in
terms of the potential to avoid supply-side costs.

The net benefit from implementing the measure is shown by subtracting total program costs
from total program benefits (the dollar value of water saved). When benefits exceed costs
(assuming that costs and benefits are adequately specified), a measure is considered
reasonably  efficient and a good candidate for implementation. However, as discussed in
Section 7, the selection of measures can be based  on additional considerations.

Comparison of Measures

Worksheet  4-10 can be used to compare the individual analyses of conservation measures in
Worksheets) 4-9. Worksheet 4-10 can be used to screen measures for implementation on the
basis of the relative cost-effectiveness  and net benefits associated with each measure.
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USEPA Water Conservation Plan Guidelines
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Worksheet 4-9:   Analysis of Each Conservation Measure or
Group of Measures	
Describe conservation measure:
Typical water savings from the measure:
Number of planned installations:
Anticipated life span for the measure:

The measure is designed to reduce:
                                                            per
                                                            years
                                           CJ Average-day demand
                                           n Maximum-day demand
                                           D Both average-day and maximum-day demand
 Line   Item
                                                                Amount
     Amount
       COST OF THE CONSERVATION MEASURE fa]
                                                              Per unit [b]
Total cost of the
    measure
       Materials
                                                            $
       Labor
       Rebates or other payments
       Marketing and advertising
_5_

T
       Administration
       Consulting or contracting
       Other
 8

~B~
       Total program costs for the life of the measure (add lines 1
       through 7) [c]	
       ESTIMATED SAVINGS
       Number of units to be installed [d]
  10
      Estimated annual water savings per unit in gallons [e]
  11
      Total estimated annual savings for the measure in gallons
      (multiply line 9 by line 10)	
  12
      Expected life span for the measure in years
       .Bxpecrea me span ror me measure m years	
       Total life span estimated savings for the measure in gallons
       (multiply line 11 by line 12)	
       A MAT VCTC fYv rrtvr irinrirr"TT\n?ivrircc
 13
       ANALYSIS OF COST EFFECTIVENESS
                                                                                Amount
 14
      Cost of water saved by the measure (line 8 divided by line 13)
          /gallon
 15
      Simple incremental cost of water supply [fj
          /gallon
 16
      Cost comparison (line 15 less line 14)
          /gallon
 D
      NET BENEFIT OF CONSERVATION
   Amount
 17
      Estimated value of water saved by the measure based on incremental supply cost
      (line 13 multiplied by line 15)	
 18
      Net value of water saved by each measure (line 17 less line 8)
$
[a]  This analysis is used to aid the comparison and selection of measures. Planners will estimate actual effects
    of conservation on planned capital facilities in Section 8. A separate analysis should be performed for each
    conservation measure, but measures can be combined if they jointly produce water savings.
[b]  Examples of a unit are a toilet, a retrofit kit, and an audit. A unit estimate may not be appropriate for each
    measure, in which case total program water savings and costs for the measure can be used.
[c]  Include all recurring operation and maintenance costs over the life of the measure.
[d]  Units can be individual product units (such as toilets) or groups of products (such as household retrofits), as
    long as the analysis is consistent. Leave blank if unit values do not apply.
[e]  For example, water savings per retrofit.  See Appendix B for benchmarks and sample calculations. Leave
    blank if unit values  do not apply.
[fj  From Worksheet 4-6, line 11.
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USEPA Water Conservation Plan Guidelines
Intermediate Guidelines
Worksheet 4-10:  Comparison of Benefits and Costs of the
Conservation Measures
Line
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20...
Conservation measure
Fa]




















Total program
cost for the
measure
[b]
$



















Anticipated
annual water
savings in
gallons [c]




















Cost of water
saved by the
measure
($/gallon)
[d]
$



















Net benefit of
implementing
the
measure(s)
Tel
$



















[a] =  Combined measures that produce joint conservation savings should be treated as one measure to avoid
      duplicate counting.
[b] -  From Worksheet 4-9, line 8.
[c] -  From Worksheet 4-9, line 11.
[d] -  From Worksheet 4-9, line 14.
[e] =  From Worksheet 4-9, line 18. This estimate of net benefit does not consider societal benefits and costs.
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USEPA Water Conservation Plan Guidelines
                     Intermediate Guidelines
7.    SELECT CONSERVATION MEASURES
Selection Criteria

The first step in the selection process is to identify
criteria for evaluating the conservation measures. The
cost-effectiveness of the measures (from Section 6) is
one criterion, but other factors should be considered as
well. Planners are free to consider as many selection
criteria as they believe are appropriate, but the
relevance of the criteria should be explained hi the
conservation plan.
       Describe the process by which
       conservation measures were
       selected for implementation,
       including identification of
       selection criteria. Summarize
       the selected measures and total
       anticipated program costs for
       implementation.
Criteria that can be used in selecting conservation measures for implementation include:
      a  Program costs
      a  Cost-effectiveness
      a  Ease of implementation
      a  Budgetary considerations
      a  Staff resources and capability
      a  Environmental impacts
      a  Ratepayer impacts
a  Environmental and social justice
a  Water rights and permits
a  Legal issues or constraints
a  Regulatory approvals
a  Public acceptance
n  Timeliness of savings
a  Consistency with other programs
For each selection criterion used, planners should identify whether, how, and why the factor
affects the feasibility of implementing one or more conservation measures. Different factors
might be assigned different weights.  Planners also may want to bear in mind that techniques
can be used to mitigate adverse effects and improve acceptance of measures. A cost-effective
conservation measure should not be dismissed without careful consideration of how barriers
to implementation might be overcome.

Selecting the Measures

Worksheet 4-11 provides a simple format for summarizing the selection of measures. For
each measure, planners should indicate whether the measure was selected for implementation.
Planners also should identify the primary reason or reasons for selecting or rejecting the
measure. Special conditions or actions that are required before a selected measure can be
implemented (such as an approval from regulators) should be noted.

In some cases, planners may conclude that a measure (or measures) cannot be implemented
because of a constraint that exists in the short term. Conservation measures that might be
planned for future implementation, once constraints are resolved, should be discussed in the
plan.  Planners should briefly discuss their implementation strategies with respect to such
measures.
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For the conservation measures selected for implementation, planners should estimate the
expected reductions in average-day and maximum-day demand.  These estimates will be used
in the next section of the plan to integrate conservation savings with the system's plans for
supply-side facilities.
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USEPA Water Conservation Plan Guidelines
                                                        Intermediate Guidelines
Worksheet 4-11:  Selection of Conservation Measures and
Estimate of Water Savings
Line
Measure
                           H
                           1
                           •3
                           GO
                            Primary criteria
                         for selecting or rejecting
                       the conservation measure for
                            implementation
Average-day
  demand
  Estimated reduction in
   demand for selected
       measures
   (gallons per day) [a]
Maximum-
day demand
 10
 11
 12
 13
 14
 15
 16
 17
 18
 19
20...
 [a] Based on Worksheet 4-9, line 11. Planners will need to convert estimates of annual water savings to
   estimates of reductions in average-day and maximum-day demand for each measure or group of measures.
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USEPA Water Conservation Plan Guidelines
                                                                 Intermediate Guidelines
8.   INTEGRATE RESOURCES AND MODIFY
      FORECASTS
                                                  Modify -water demand and
                                                  supply-capacity forecasts to
                                                  reflect the anticipated effects of
                                                  conservation. Indicate whether
                                                  and how water savings from
                                                  conservation will allow systems
                                                  to eliminate,  downsize, or
                                                  postpone supply-side projects or
                                                  water vurchases.
 Integrating Options

 In this section, planners can revise the demand and
 supply-capacity forecasts made in earlier sections of
 the plan based on anticipated conservation savings.
 Pay particular attention to the effects of conservation
 on specific supply-facility projects.

 Planners should be cautious to avoid counting
 demand-side or supply-side resources more than once
 in the analysis. Anticipated savings from conservation
 should be based on realistic estimates of savings associated with the planned measures.
 Similarly, supply projects that involve multiple facilities should be considered in terms of the
 total water supply capacity that is made available through those combined facilities. Timing
 is another issue. The plan should address how different supply-side and demand-side projects
 involve different life spans and implementation schedules. One twenty-year supply-side
project, for example, might be offset by a series of conservation measures that begin and end
at different times.

Some conservation plans use a graph to display anticipated annual supply capacity and
demand without and with the implementation of conservation measures. Figure 4-1 is an
example of this type of graph for a twenty-year planning horizon.
           a
           Q
                                     Figure 4-1
                   Sample Graph of Modified Supply and Demand Forecasts
                       Based on Implementing Conservation Measures
                           7   9   11   13

                             Planning Year
                                            15   17   19
                                                           • Supply
                                                             without
                                                             conservation
                                                           • Supply with
                                                             conservation

                                                           -*- Demand
                                                             without
                                                             conservation
                                                           »- Demand with
                                                             conservation
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\5 SEP A "Water Conservation Plan Guidelines
                                                                  Intermediate Guidelines
Modifying Demand Forecasts

Planners should use Worksheet 4-12 to collate information from previous worksheets and
analyses in order to revise the demand forecasts made in Worksheet 4-4. Revisions should
reflect changes based on the introduction of new conservation measures. The effects of
measures already being implemented should be included in the original demand forecast.

Modifying the demand forecast requires a considerable degree of judgment, particularly in
estimating the effects of conservation on average-day and maximum-day demand.  The plan
should include an explanation of the approach used in revising the demand forecasts.

Project-Specific Savings

Planners should identify the anticipated effects of conservation on planned supply-side
improvements and additions (as specified in Section 4). Worksheet 4-13 is provided for this
purpose. A worksheet should be completed for separable  supply projects as appropriate.
Ideally,  water conservation strategies that reduce demand  will translate into supply-side
savings  through one or more of the following actions:

       a  Eliminating a project for the foreseeable future
       a  Downsizing a project based on reduced capacity needs
       a  Postponing a project into the future
       a  Eliminating, reducing, or postponing water purchases

Adjustments to supply-capacity planning must be realistic, especially in terms of complex and
sometimes competing goals. Supply projects cannot be eliminated, downsized, or postponed if
doing so would compromise public health or safety, reduce operational efficiency,  or inflate
costs beyond a reasonable amount. Some systems (including systems that currently operate
with inadequate or unreliable supply reserves) may not be able to translate all demand
reductions into supply-capacity reductions.  Planners should identify and describe such
circumstances. On the other hand, supply projects that are not needed or oversized place an
unnecessary burden on systems and their customers.

Modifying Supply Forecasts

The supply-capacity forecast is revised in Worksheet 4-14. The revision to the supply-
capacity forecast should be based on Worksheet(s) 4-13 and consistent with accepted supply-
capacity planning practices. The modification of forecasts should reflect reasonable
assumptions about anticipated implementation schedules,  which are summarized in Section 9.
Planners also can indicate the anticipated capacity reserve (the difference between  forecast
supply capacity and demand).

Worksheet 4-14 also provides a method of summarizing savings in capital and operating
costs, based on reductions in supply capacity.  Planners also should estimate reductions in
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 USEPA Water Conservation Plan Guidelines
Intermediate Guidelines
 operating costs at existing facilities that will occur with demand reductions (apart from
 operating costs associated with planned facilities). The total program cost of conservation can
 be compared with the savings in total capital and annual operating costs.

 As recognized throughout these Guidelines, water conservation also has nonmonetary
 benefits. Planners should discuss, as appropriate, how implementation of the conservation
 program will help their system cope with any of the conditions identified in Section 2
 (Worksheet 4-2). For example, the planned measures might help a system address problems
 related to safe yields or drought management.

 Revenue Effects

 The conservation plan should briefly describe how planned conservation measures will affect
 water utility revenues (based on reduction in sales) and discuss strategies for addressing these
 revenue effects. Reductions in water usage will affect the revenues of the water utility.
 Conservation will help the water utility reduce variable costs (such as energy, chemical, and
 purchased water costs).  In the long term, conservation also will help the utility reduce fixed
 costs (associated with new capital facilities). In the short term, reductions and sales can lead
 to a shortfall in revenues needed to cover fixed costs and sustain the financial viability of the
 water system.

 The planner can estimate the effect of conservation on revenues by multiplying current water
 rates by the adjusted level of sales  (for the variable portion of the water bill). The adjusted
 level of sales should include the anticipated effects of conservation. Conservation-oriented
 rate  structures have direct revenue  effects that should be considered. Worksheet A-4 in
 Appendix A can be used to evaluate the revenue effects of rate changes.

 Conservation planners should work closely with financial planners in order to integrate their
 analyses, identify potential revenue shortfalls, and devise strategies to ensure that the utility
 will  meet its revenue requirements.

Adjustments to water rates may be needed.  For some utilities, a change in rates requires
 approval from an oversight board or state public utility commission. When rate increases are
offset by usage reductions, customer bills and utility revenues can be maintained.  Customers
and utilities eventually will realize  savings from conservation through long-term reductions in
costs.
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USEPA Water Conservation Plan Guidelines
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Worksheet 4-12: Modified Demand Forecast
Line
Item
                                                          YearS
                                                             Year 10
Year 20
  8
      Average-day demand before conservation [a]
      Reduction in average-day demand (line 1 less
      line 2) [b]	
      Average-day demand after conservation
      Maximum-day demand before conservation [a]
      Reduction in maximum-day demand (line 4 less
      line 5) [b]	
      Maximum-day demand after conservation
      Ratio maximum-day to average-day demand
      before conservation (line 4 divided by line 1
Ratio maximum-day to average-day demand
after conservation (line 6 divided by line 3)
[a]  From Worksheet 4-4, line 6.
[b]  Based on Worksheet 4-11.
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 USEPA Water Conservation Plan Guidelines
                                                                        Intermediate Guidelines
 Worksheet 4-13: Project-Specific Savings
 DESCRIPTION OF PROJECT [a]
 Describe the supply-side project(s):
 Project was scheduled to begin:

 Purpose of the project:

 The project is designed to meet:

 Type of project:
                              d Improvement

                              D Average-day demand

                              n Source of supply
                              O Water treatment facilities
                              D Treated water storage
                              n Major transmission lines
                              CJ Purchased water
                              CJ Other
      D Addition

      CJ Maximum-day demand
 CHANGES TO PROJECT fb]
  Line
 Item
 Project
 supply
capacity
 (daily)
                                                                         Project Costs
 Total
 capital
costs ($)
 Annual
operating
costs ($)
        CAPITAL PROJECT IS ELIMINATED
        Original project
        Savings from elimination (equals line 1)
   B
CAPITAL PROJECT IS DOWNSIZED
        Original project
        Downsized project
        Savings from downsizing (line 3 less line 4)
        CAPITAL PROJECT IS POSTPONED
        Present value of original project
        Present value of postponed project
        Savings from postponement (line 6 less line 7)
  D
NEED FOR PURCHASED WATER IS REDUCED
       Original estimate of purchases
  10
  11
Revised estimate of purchases (can be "0")
Savings from reduced purchases (line 9 less line 10)
J REDUCED

')
;ss line 10)
cl



[a]  Comprehensive plans can include wastewater facilities.
[b]  Based on Worksheet 4-12 estimates of reductions in demand.
[c] For purchased water, report only annual operating costs and include costs associated with take-or-pay
    contract provisions. Transmission facilities needed to transport purchased water should include capital
    and operating costs associated with such facilities and reported as a capital project.
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\3SBPA "Water Conservation Plan Guidelines
                                                                   Intermediate Guidelines
Worksheet 4-14:  Modified Supply Forecast and Estimated
Total Savings
MODIFIED SUPPLY FORECAST
Line
A
1
2
3
B
4
Item
Current
Year
YearS
Year 10
Year 20
Forecast Supply Capacity (Daily)
Supply capacity before conservation program
[a]
Planned reduction in supply capacity [b]
Supply capacity after conservation (line 1 less
line 2)
Capacity Reserve
Supply capacity less demand (line 3 less line 2
on Worksheet 4-12)
•














ESTIMATED TOTAL SAVINGS
 Line
Item
 Supply
capacity
 (daily)
                                                                   Project Costs
                                                             Total capital
                                                               costs ($)
 Annual
operating
costs ($)
  C
Total Estimated Savings from Changes to
Supply Projects [c]
       Cost of supply projects before conservation
       Cost of supply projects after conservation
       Savings (line 1 less line 2)
  D
Total Estimated Savings from Reduced
Operating Costs at Existing Facilities [d]
       Operating costs before conservation
       Operating costs after conservation
       Savings (line 4 less line 5)
  E
Conservation Program Costs
                           Total
                          program
                          costs ($)
       Total cost of implementing selected
       conservation measures [e]	
[a]  From Worksheet 4-7.
[b]  BasedonWorksheet(s)4-13.
[c]  BasedonWorksheet(s)4-13.
[d]  Based on annual variable operating cost (including energy, chemicals, and water purchases).
[e]  Based on Worksheet 4-10.
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USEPA Water Conservation Plan Guidelines
                                                              Intermediate Guidelines
9.    PRESENT IMPLEMENTATION AND
      EVALUATION STRATEGY
                                                Present a strategy and timetable
                                                for implementing conservation
                                                measures and other elements of
                                                the conservation plan. Describe
                                                proposed approaches for
                                                implementing and evaluating
                                                planned conservation measures.
 Implementation

 In this final step in the conservation planning process,
 the water system specifies its strategy and timetable
 for implementation. It can be emphasized, however,
 that conservation planning will require an ongoing
 effort on the part of water utility managers. Ongoing
 planning and implementation will go hand in hand.
 The implementation strategy should include a
 preliminary schedule for monitoring and evaluating program results and revisiting the plan for
 updates and modifications.

 Implementation of Measures

 Worksheet 4-15 is a simple template for summarizing the water system's implementation and
 evaluation schedule for the conservation measures. For each measure, the schedule can
 identify significant implementation actions, a beginning date, and a completion date.
 Implementation actions include:

       a Securing budgetary resources
       a Hiring of staff
       o Procurement of materials
       a Agreements with suppliers or consultants
       a Acquisition of permits or other approvals from regulatory agencies
       a Legislative actions (for changes in water-use regulations)
       a Activity milestones (for example, system audits or distribution of retrofit kits)

Planners should make note of any specific factors or contingencies that might affect or
prevent the implementation of specific measures.  For example, if a measure cannot be
implemented prior to obtaining a special permit or other authority, this fact should be noted
along with an explanation of the strategy for obtaining the necessary authority.

Some measures might require implementation actions that take place over several years (in
order to sustain conservation savings). The plan should provide sufficient detail to understand
the utility's strategy with regard to implementing such measures.
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C/SEPA Water Conservation Plan Guidelines
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Implementation and Evaluation

Worksheet 4-16 provides a very simple summary of the water system's general
implementation and evaluation strategy for the conservation plan.  Three areas are
highlighted:

       a  Public involvement
       a  Monitoring and evaluation
       a  Updates and revisions

A plan for public involvement should discuss whether and when the water system intends to
involve members of the community in the implementation of the conservation plan.  Some
systems may want to schedule regular meetings with community groups to keep them
informed of the system's progress in meeting goals.

A plan for monitoring and evaluation should address data collection, modeling, and other
issues that will be important in tracking the effects of water conservation on demand over
tune.  The system may want to plan to collect new kinds of data for monitoring purposes as
well as for future forecasting needs. Many systems might find, for example, that more
detailed data on demand by customer class are needed, including more detail on contributions
to average-day and maximum-day demands. More detailed data might also be needed to
assess trends in nonaccount water.

A plan for updates and revisions will help keep the system's conservation plan current over
time and account for the system's actual experience with conservation. Updating forecasts of
water demand and supply capacity as new data become available is especially important. In
some cases, the system might want to revise or expand its planning goals. Many systems
update plans every five years.  However, changing conditions or other concerns might justify
more frequent updates. The schedule of updates and revisions might be affected by state or
local requirements for conservation planning by the water system.

The conservation planning document also should include a record of the plan's adoption by
the water system's governing body (such as a Board of Directors or City Council), as
appropriate.
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USEPA Water Conservation Plan Guidelines
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Worksheet 4-15: Implementation Schedule for Measures
Line
1
2
3
4
5
6
7
8
9
10
11
12
Measure












Required action




































Beginning
date




































Completion
date




































Notes




































                                98

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USEPA Water Conservation Plan Guidelines
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Worksheet 4-16: Implementation Strategy
A. PUBLIC INVOLVEMENT
Describe plan for public involvement:
B. MONITORING AND EVALUATION
Describe plan for monitoring and evaluation:
Describe plan to collect water demand data:
C. PLAN UPDATES
Describe plan for updates and revisions:
D. ADOPTION OF THE PLAN
Date plan completed:
Date plan approved:
Approved by [governing body]:
Signature:
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[blank page]
                                               100

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USEPA Wafer Conservation Plan Guidelines
Advanced Guidelines
        u.S. Environmental Protection Agency
      \ Water Conservation Plan Guidelines
      ta
PARTS
ADVANCED GUIDELINES FOR
PREPARING WATER CONSERVATION PLANS
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USEPA Water Conservation Plan Guidelines
Advanced Guidelines
 These Advanced Guidelines are designed for water systems serving more than 100,000
 people. Which Guidelines are appropriate may depend on various factors and conditions
 affecting water systems and then* need for conservation planning.  Water system managers
 should check with their own state's rules, regulations, and recommendations about which
 Guidelines to follow.
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USEPA Water Conservation Plan Guidelines
                                                                    Advanced Guidelines
 1.    Specify Conservation Planning Goals
                                                    Specify conservation planning
                                                    goals in terms of anticipated
                                                    benefits for the water system
                                                    and its customers.  To the extent
                                                    practical, involve affected
                                                    members of the community in
                                                    the development of conservation
                                                    planning goals and throughout
                                                    the implementation process.
Planning Goals

Planning goals can be developed from different
perspectives.  These planning guidelines, including the
analysis of the benefits and costs of conservation
activities, emphasize a water supplier perspective.
The value of conservation is defined primarily in terms
of avoided supply-side costs to the water system.
Lowering the level of water demand can help water
suppliers avoid, downsize, or postpone the
construction and operation of costly supply-side
facilities.
The benefits of conservation also can be understood from the perspectives of customers, as
well as society at large. Conservation benefits society by preserving environmental resources.
Conservation can benefit customers by lowering energy and long-term water costs. Water
conservation reduces demands on wastewater systems; in fact, the need to reduce wastewater
treatment costs can be a strong rationale for water conservation. The Guidelines and the
worksheets can be used to simultaneously address the potential effects of conservation on
water and wastewater operations. Utilities using the Advanced Guidelines also are
encouraged to expand the analysis of benefits and costs to consider the customer and societal
perspectives, if only in very general terms.

Conservation planning goals can take many forms. Water systems should state their goals in
specific terms. Measurable goals are useful for evaluation purposes. For example, many
water systems identify a specific water-use reduction goal (as a percentage of current water
usage).

Water conservation planning goals may include:

       a   Eliminating, downsizing, or postponing the need for capital projects.
       a   Improving the utilization and extending the life of existing facilities.
       a   Lowering variable operating costs.
       n   Avoiding new source development costs.
       o   Improving drought or emergency preparedness.
       o   Educating customers about the value of water.
       a   Improving reliability and margins of safe and dependable yields.
       o   Protecting and preserving environmental resources.

Planners should plan on revisiting the goals section before finalizing the conservation plan
and periodically thereafter, because goals and the means to achieving them will evolve. As
                                        103

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 USEPA Water Conservation Plan Guidelines
                Advanced Guidelines
 the water system accomplishes certain conservation goals, new objectives may come into
 focus.

 Community Involvement

 The process of developing goals can involve representatives of various groups in the
 community (or stakeholders) who may be concerned about a water system and its future.
 Modem resource planning (such as integrated resource planning) emphasizes an open process
 that involves all affected groups so that they can have an opportunity to express their interests
 and concerns.

 Involving the community in goal development also serves an important public education
 function.  Moreover, it is widely believed that involving the community in developing goals,
 as well as in the implementation process, can greatly enhance the success of conservation
 programs.

 Members of the  community who might be interested in water conservation include:
       a   Residential water consumers
       a   Commercial water consumers
       a   Industrial water consumers
       a   Wholesale customers
       a   Environmental groups
       D   Civil rights groups
       a   Indian tribes
Labor groups
Business and commerce groups
Recreational water users
Agricultural users
Educational institutions
Government agencies
In addition to helping the water system specify planning goals, community participants also
can have an ongoing role in a system's conservation program.  Ongoing involvement can help
maintain and build support for achieving conservation goals and "get the word out" about the
conservation effort. Participants can act as a focus group for exploring specific conservation
measures (discussed in Section 4). Participants also can provide valuable linkages to key
groups—consumers, businesses, and institutions—who might be involved in implementing
certain conservation measures. Participants also can provide input on the level of satisfaction
or dissatisfaction with the system's programs. Finally, community groups can assist the water
system in monitoring results and adjusting program implementation.

For many water systems, involving the community in water-system planning will be a new
experience. However, most system managers will find that involving members of the
community in developing goals, implementing programs, and evaluating results is a very
worthwhile investment. Fortunately, guidance on this approach is available.1
1 See Public Involvement Strategies: A Manager's Handbook (Denver, CO: American Water Works Association
Research Foundation, 1996).
                                         104

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\JSEPA Water Conservation Plan Guidelines
                                                                   Advanced Guidelines
2.    DEVELOP A WATER SYSTEM PROFILE
                                                    Summarize the service and
                                                    operating characteristics of the
                                                    -water system. Provide an
                                                    overview of conditions and a
                                                    description of climate, water
                                                    availability, or other factors
                                                    that might affect water
                                                    conservation planning.
System Profile

Taking inventory of existing resources and conditions is
an important step in the planning process. A water
system profile can help systems in terms of assessing
their present circumstances and designing strategies to
meet emerging needs.

Most water systems should maintain the data and
information necessary for building a system profile.
Much information may already have been compiled for a facility plan or for other purposes.
Worksheet 5-1 profiles a relatively simple summary table that systems can use to compile and
present key system characteristics. The system profile can be expanded to include additional
information. For example, systems may want to present data on trends for some
characteristics (such as supply and demand measures). Systems should include in their profile
additional characteristics or details considered relevant for understanding the nature of the
system.

System Conditions

Worksheet 5-2 provides a very simple overview of planning conditions that might affect the
water system and its conservation planning effort.  This checklist can be used to make a
general review of conditions affecting the supply or the demand for water. For planning
purposes, it is important to identify and focus on the conditions that most affect a particular
system.

The conditions outlined in the worksheet suggest the need for water conservation planning.
While all water systems can benefit from efficiency improvements, water conservation can be
especially beneficial for systems experiencing water shortages or rapid increases in demand.
For example, water systems facing one or more of the following conditions are strongly urged
to consider Ihe fullest range of conservation measures available to them in accordance with
these guidelines:

       a  Systems in state-designated critical water or stressed areas
       a  Systems experiencing frequent droughts, emergencies, or safe yield problems
       a  Systems with excessive unaccounted-for water or water losses
       n  Systems entering into major construction cycles
       a  Systems anticipating rapid growth in water demand

For some conditions, states might provide benchmark measures that water systems can use for
comparison purposes. For example, a state might have specific criteria for defining critical
                                        105

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 USEPA Water Conservation Plan Guidelines
                                                                     Advanced Guidelines
use or stressed areas, for classifying per-capita water use, or for identifying the age of
systems. When practical, systems should try to compare significant conditions using
generally accepted measures.

In addition to the summary worksheet, planners also should prepare a brief written discussion
of the significant conditions affecting their systems. Particular attention can be paid to
climate and water availability, but other factors affecting the system can be considered as
well.  This information can be used to help systems identify problems and opportunities
throughout the planning process.

Current Conservation Efforts

Worksheet 5-3 is provided so that water systems can describe their current water conservation
activities and programs. For each conservation measure implemented, planners can indicate
the approximate annual water savings achieved, when implementation for the measure began,
and whether continued implementation is planned. Any other pertinent information on
current efforts  and their effectiveness can be provided in the plan as well.
                                        106

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\JSBPA "Water Conservation Plan Guidelines
                                                                                 Advanced Guidelines
Worksheet 5-1: Water System Profile
A
1
2
3
4
5
6
B
7
8
9
10
11
r
12
13
14
15
16
17
18
19
n
20
21
22
23
24
25
?,6
F,
27
28
29
F
30
31
3?
G
33
34
35
SERVICE CHARACTERISTICS Number
Estimated service population
Estimated service area (square miles)
Miles of mains
Number of treatment plants
Number of separate water systems
Interconnection with other systems
Number of intakes Percent
ANNUAL WATER SUPPLY Annual volume or source points metered
Groundwater
Surface water
Purchases: raw
Purchases: treated
Total annual water supply





%
%
%
%
%
Percent
SERVICE CONNECTIONS Connections Water sales metered
Residential, single-family
Residential, multi-family
Commercial
Industrial
Public or governmental
Wholesale
Other
Total connections








%
%
%
%
%
%
%
%
Per connection
WATER DEMAND Annual volume Percent of total
Residential sales
Nonresidential sales
Wholesale sales
Other sales
Nonaccount water: authorized uses
Nonaccount water: unauthorized uses
Total system demand (total use)














Total supply Percent of total
AVERAGE & PEAK DEMAND Volume capacity capacity
Average-day demand
Maximum-day demand
Maximum-hour demand



%
%
%
Metering Billing
PRICING Rate structure frequency frequency
Residential rate
Nonresidential rate
Other rate






Prepared a Filed with state
PLANNING plan0 Date 0
Capital, facility, or supply plan
Drought or emergency plan
Water conservation plan






                                                 107

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 USEPA Water Conservation Plan Guidelines
                                                                Advanced Guidelines
 Worksheet 5-2:  Overview of System Conditions  [a]
Line
A
1
2
3
4
5
6
7
8
9
B
10
11
12
13
14
15
16
17
18
19
c
20
21
22
23
24
25
D
26
27
28
Conditions
= 	 •- -i 	
Increasing need for conservation-»-»-»
Check applicable description 0
CLIMATE AND WATER AVAILABILITY
Average precipitation High
Average temperatures Low
Critical supply areas No
Competing water uses No
Environmental constraints No
Quality/quantity concerns No
Seasonal variations in climate Low
Instream flow problems Low
Shortage or emergency frequency Low
n Moderate
O Moderate
n At risk
O Possibly
n Possibly
n Possibly
O Moderate
n Moderate
CJ Moderate

n
n
n
n
a
a
a
a
a

Low
High
Yes
Yes
Yes
Yes
High
High
High

a
a
a
n
n
a
a
o
a
Don't

a
a
a
n
a
a
a
n
a
INFRASTRUCTURE CONDITIONS
Age of the system Newer
General condition of system Good
Water losses and leaks Low
Unaccounted-for water Low
Safe yield of supply exceeded No
Wastewater discharges exceeded No
Wastewater capacity exceeded No
Potential for recycling and reuse Low
Improvement plans Low
Anticipated investment Low
O Middle
H Fair
n Moderate
CJ Moderate
CJ At risk
01 At risk
Cl At risk
O Moderate
CJ Moderate
CJ Moderate
n
n
a
n
n
a
a
n
n
a
Older
Poor
High
High
Yes
Yes
Yes
High
High
High
a
a
a
a
n
n
a
n
a
a
n
a
a
a
a
a
a
a
a
a
SYSTEM DEMOGRAPHICS
Rate of population growth per year Low
Rate of demand growth per year Low
Rate of economic growth per year Low
Per capita water use (by class) Low
Ratio of peak to average demand Low
Presence of large-volume users Low
CJ Moderate
d Moderate
O Moderate
CJ Moderate
O Moderate
O Moderate
a
a
a
a
n
a
High
High
High
High
High
High
a
a
a
a
a
a
n
a
a
a
n
a
OTHER FACTORS
O
a
a
[a] Specific (quantified) benchmarks for these indicators may be provided by the state.
                                      108

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USEPA Water Conservation Plan Guidelines
                                                             Advanced Guidelines
Worksheet 5-3:  Current Water Conservation Activities

Summarize the system's current water conservation activities/programs:	
Water conservation measures
Approximate
annual
water savings
[if known]
             Is continued
Implemented  implementation
since (date)    planned?	
                                     109

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  USEPA Water Conservation Plan Guidelines
                                                                     Advanced Guidelines
  3.    PREPARE A DEMAND FORECAST
 Demand Forecasting

 Forecasting water use (or water demand) is a critical
 part of the planning process. Forecasts can range from
 simple projections based on anticipated growth in the
 population to complex models using several variables to
 explain variations in water use. Forecasts can be made
 for a water system as a whole; however, forecasts are
 considered more accurate when they are prepared for
 separate classifications of water use or sectors.
Prepare a forecast of
anticipated -water demand for
selected time periods.  To the
extent practical, the planner
should take into account
variations in demand based on
type of water usage, as well as
perform a "what if" (sensitivity)
analysis.
 The Guidelines suggest that planners prepare forecasts for five-year, ten-year, and twenty-
 year intervals.  Additional tune points can be used as well. The longer the planning horizon,
 the greater will be the uncertainty of the forecast. Forecasts should be revisited and updated
 on a regular basis.

 The forecast should recognize the effects of conservation measures already implemented. The
 forecast also should recognize the demand effects of plumbing efficiency standards
 established under the 1992 Energy Policy Act (see Appendix B, Tables B-5 and B-6).2 New
 construction and renovations will not contribute as much to total demand as in the past;
 systems that are not experiencing growth might detect declines in demand due to these'effects.
 For the purposes of this conservation plan, anticipated demand effects from measures
 contemplated in the plan should not be included. A revision to the demand forecast based on
 implementing the planned conservation measures is made in Section 8 (Worksheet 5-13).

 // is not necessary for systems to prepare a separate forecast for the purposes of this plan if a
forecast has already been prepared for the system within a reasonable time frame. Planners
 should include the results of their forecasts in this plan.

 Forecasting Method

 Systems following the Advanced Guidelines should prepare a demand forecasting model
 appropriate to their capabilities and needs. Many systems in this category already employ
 advanced forecasting techniques.  Current and reasonable forecasts already prepared by the
 system, including forecasts prepared under other planning or regulatory requirements, will be
 in accordance with the purpose of these guidelines.
 A method for estimating the demand effect of efficient fixtures can be found in Amy Vickers, "The Energy
Policy Act: Assessing its Impact on Utilities." Journal American Water Works Association (August 1993): 56-
62.
                                        110

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USEPA Water Conservation Plan Guidelines
Advanced Guidelines
Advanced water demand forecasting generally involves:

       a  Disaggregated forecasts by customer class or other relevant groups, by average-
          day and maximum-day demand, and by off-peak and peak season.
       n  Multivariate models that seek to explain variations in water demand in terms of
          variations in other factors, such as climate, income, and price.
       n  Quantified sensitivity ("what if) analysis, which allows systems to address
          uncertainty by varying inputs and assumptions.

Disaggregating forecasts by customer class is important because of the different load factors
that groups of customers present. Disaggregating forecasts according to type of demand is
relevant for advanced demand management techniques that take into account how different
types of demand affect the utility's functional costs. As discussed in Section 4, different types
of supply-side facilities are designed to meet average-day or maximum-day water demands,
and various conservation measures target different types of demand.

Multivariate models recognize that demand is dynamic and can change with changes in other
variables. Sensitivity analysis helps planners deal explicitly with uncertainty that goes along
with these dynamics.  Addressing uncertainty is a very important part of advanced
forecasting. With larger and more diverse service territories, uncertainties are greater;
uncertainty also grows with the time horizon of the forecast.  Contingency planning can help
utilities cope with uncertainty.

Several computer models are available for advanced forecasting, many of which can be used
in accordance with these guidelines. An example of an advanced forecasting tool is the
widely-used IWR-MAIN model, which was developed by the U.S. Army Corps of
Engineers.3  Figure 5-1 is an illustration of the inputs and outputs of the model.  The key
features of IWR-MAIN are:  spatial disaggregation, seasonal disaggregation, sector
disaggregation, multiple determinants of water demand, user-added categories, and sensitivity
analysis. The current version of the model also allows planners to incorporate the effects of
demand-management into various planning scenarios. Use of empirical models, including but
not limited to IWR-MAIN, clearly is consistent with the purpose of these guidelines.

The conservation plan should include a detailed summary of the forecast, results by customer
class, and a description of the forecasting methodology used. Any adjustments to the
forecasts should be explained in the plan. Worksheet 5-4 provides a template for
summarizing the systemwide results of the forecast.
3 Duane D. Baumann., John J. Boland, and W. Michael Hanemann. Urban Water Demand Management and
Planning (New York: McGraw Hill, 1998).
                                          Ill

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USEPA Water Conservation Plan Guidelines
                                                                       Advanced Guidelines
     Housing
     Employment
     Price
     Income
     Housing density
     Weather
     Industrial productivity
   • Plumbing code
   • Efficiency end-uses
   » Conservation programs
   " Drought restrictions
 IWR-
 MAIN
Model and
knowledge
   base
     Utility cost structure
     Capacity
     External costs
                     Water Demand Forecast
                       Average daily
                       Low-use season
                       High-use season
                       Maximum-day
                       Sewer contribution

                     By Sector
                     • Residential (subcategories)
                     • Nonresidential (subcategories)
                     • Nonaccount water
Water Savings
• Passive conservation
• Active savings
» Price impacts
• Emergency savings
                     Benefits and Costs
                       Net present value
                       Benefit-cost ratio
                       Discounted payback
                       Level ized cost
                       Life-cycle revenue impact for
                        -Utility
                        -Participants
                        -Ratepayers
                        -Community
                        -Society
        Figure 5-1.  Inputs and Outputs of the IWR-MAIN
                              Forecasting Model

Source: Duane D. Baumann, John J. Boland, and W. Michael Hanemann, Urban Water Demand Management
and Planning (New York: McGraw-Hill, 1998):  109.
                                         112

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C/SEPA Water Conservation Plan Guidelines
Advanced Guidelines
Worksheet 5-4: Summary of Preliminary Water Demand
Forecast	

Summary Results of Advanced Forecasting Model [a]
Line
A
1
2
3
4
5
6
7
8
B
9
10
11
12
13
Item
Current
year
5-year
forecast
10-year
forecast
20-year
forecast
TOTAL ANNUAL WATER DEMAND
Current and projected total annual water sales to
the residential sector [b]
Current and projected total annual water sales to
the nonresidential sector [b]
Current and projected total annual water sales to
the wholesale buyers [b]
Current and projected total annual water sales to
others [b]
Current and projected total annual nonaccount
water (authorized and unauthorized) [c]
Current and projected total annual water demand
in gallons (add lines 1 through 4) [d]
Current and projected annual water supply
capacity [e]
Difference between total demand and total supply
capacity (+ or -) (line 3 less line 2)
































AVERAGE-DAY AND MAXIMUM-DAY DEMAND
Current and projected average-day demand [f]
Current and projected maximum-day demand [g]
Ratio of maximum-day to average-day demand
(line 5 divided by line 4)
Daily supply capacity (divide line 7 by 365)
Ratio of maximum-day demand to daily supply
capacity (divide line 10 by line 12)




















[a] This Worksheet presumes that the system has prepared a detailed demand forecast using an
   appropriate model. Include in the conservation plan a description of the forecasting methodology
   used and a detailed summary of the forecast.
[b] Current year corresponds to Worksheet 5-1, lines 20 through 23.
[c] Current year corresponds to Worksheet 5-1, lines 24 through 25.
[d] Current year corresponds to Worksheet 5-1, line 26.
[e] Supply capacity should take into account available supplies (permits), treatment capacity, and
   distribution system capacity and reflect the practical total supply capacity of the system, including
   purchased water.
[fj Current year corresponds to Worksheet 5-1, line 27.
[g] Current year corresponds to Worksheet 5-1, line 28.
                                          113

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 USEPA Water Conservation Plan Guidelines
                Advanced Guidelines
 4.    DESCRIBE PLANNED FACILITIES
 Supply Forecasting

 In this part of the conservation plan, planners are
 asked to prepare an estimate of supply costs based on
 meeting the level of water demand specified in the
 unadjusted demand forecast (that is, unadjusted for
 additional conservation).  This is a critical part of the
 analysis because it establishes the anticipated cost of
 supply-side improvements and additions and this cost
 estimate will be used to represent the value of
 conservation or demand-side activities.
Describe improvements planned
for the water system over a
reasonable planning horizon,
identify the types of
improvements proposed, and
estimate the total, annual, and
unit cost of the improvements.
Prepare a preliminary forecast
of installed capacity.
 Because the benefits of conservation extend into the future it is important to take a forward-
 looking approach to supply costs. The concept of marginal or incremental cost captures the
 idea that the "true" value of a supply resource can be measured in terms of the cost of the next
 increment of supply. If only high-cost supplies are available, the marginal or incremental cost
 will be high.  For many communities, future increments of supply will be very costly (that is,
 the marginal cost of developing new water sources will be high). The value of a conserved
 amount of water at a future point in time will be equivalent to the most costly supply option
 available at that future time point, because that is the supply option being displaced by
 conservation.

 Cost Analysis

 A reasonable accounting of anticipated supply-side costs is needed in order to compare the
 cost of supply-side measures to the cost of demand-side or conservation measures (on a cost -
 per-gallon basis). Planners should choose an appropriate time horizon; a twenty-year or other
 suitable period can be used. The choice of time frame should be consistent with the demand
 forecast (Section 3), as well as the other planning considerations.

 Planners should begin by preparing an estimate of major improvements and additions that will
 be required over the planning horizon in order to meet anticipated demand (including a safe
 reserve margin).  Detailed cost estimates may be available from facility plans or other
 planning documents. Worksheet 5-5 can be used to summarize improvements and additions,
 which are disaggregated into three categories: source of supply, transmission and treatment,
 and distribution.  (Additional categories can be used as needed).

Planners should consider all capital facility improvements and additions.  Improvements
include renovations and expansions needed to maintain or enhance safety or reliability within
existing facilities. Additions consist of new facilities. Routine maintenance improvements
should not be included. Anticipated water purchases and costs also should be recorded on
                                        114

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USE?A Water Conservation Plan Guidelines
Advanced Guidelines
Worksheet 5-5. For this part of the analysis, the effects of conservation measures currently
being implemented should be considered, but the effects of new conservation measures on the
need for supply capacity or water purchases should be excluded. (These effects are addressed
in Section 8.)

If no capital improvements and additions are planned, "0" values can be entered and the
estimate of supply costs can be based on operating costs (including the cost of energy,
chemicals,  and purchased water).

Estimating Incremental Supply Costs

The Advanced Guidelines recommend a method for determining the present value of supply-
side costs.  This analysis should be calculated separately for (1) improvements and additions
needed to meet average demand, and (2) improvements and additions needed to meet peak
demand so that the results can be compared to corresponding conservation measures.  As
illustrated in Worksheet 5-6, this spreadsheet method provides the planner with a year-by-year
accounting of costs.

The resulting estimates of total annual incremental costs by type of facility (peak and average)
can be used by planners to estimate the incremental cost of supply associated with meeting
average or peak demand on a system-specific basis.

Supply-side facilities are designed to meet different types of water demand (as summarized in
Table 5-1); similarly, different conservation measures affect different types of water demand.
Planners should identify, as reasonably possible, the extent to which improvements and
additions are needed to meet average and/or peak demand.

Two adjustments can be made to costs: one for the annual escalation rate and one for the
discount rate.  The escalation rate is used to ensure that the benefits of conservation are not
undervalued.  By using an escalation rate, the analyst assumes that incremental costs of
supply measured at a future point in time will be greater than present incremental costs.
Many planners, for example, believe that future water supplies will be much more costly to
secure and  develop, even in real-dollar (inflation adjusted) terms. In addition to supply costs,
other infrastructure costs are expected to escalate with time. In general, the escalation rate
will be higher for areas experiencing supply or other constraints that will put pressure on total
system costs.  Choosing the appropriate escalation rate requires analyst judgment; however,
planners may want to investigate past escalation trends relevant to their system.

The second adjustment involves applying a discount rate, which is used to estimate the.
present value of costs that extend into the future. The discount rate reflects the time value of
money (or opportunity costs) and can be based on the system's overall cost of capital.
                                         115

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 USEPA Water Conservation Plan Guidelines
Advanced Guidelines
 Table 5-1:  Relationship of Water Demand to Supply Facilities
Type of Water Demand
Average-day
Maximum-day (peak)
Maximum-hour [a]
Type of Water Supply Facility
Source of supply facilities, including raw water
storage facilities (such as reservoirs)
Water treatment plants
Major transmission lines
Treated water storage facilities
Distribution mains [b]
Pumping stations [b]
 Source: Adapted from Charles W. Howe and F. Pierce Linaweaver, "The Impact of Price on
 Residential Water Demand and its Relationship to System Design and Price Structure, Water
 Resources Research 3 (First Quarter 1967): 13-32.

 [a] Maximum-day demand plus fire-flow requirements.
 [b] These facilities should be considered in the analysis if they could be affected by such conservation
    measures as leak detection and repair, pressure management, or integrated resource management.
Planners should note that discounting is not the same as adjusting for inflation. In order to
simplify the presentation, Worksheet 5-6 does not include an adjustment for inflation. It is
not necessary to convert nominal to real (inflation-adjusted) dollars for the purpose of
assessing benefits and costs. However, if planners choose to represent costs in real dollars,
the escalation rate and the discount rate also should be expressed in real dollar terms.

Given the uncertainty associated with the recommended adjustment factors, planners using
the Advanced Guidelines also are encouraged to conduct a sensitivity analysis to establish a
range of values based on different assumptions for the three adjustments.

Preliminary Supply-Capacity Forecast

Based on the anticipated improvements and additions, planners also can present a preliminary
forecast of total supply capacity over the planning period. Worksheet 5-7 is provided for this
purpose. The forecast, which can be presented in a table or graph, can be used to indicate
when changes to capacity are expected to occur. The total supply forecast should reflect both
additions to capacity and retirements. Improvements that allow the system to maintain
capacity can be indicated with entries under both additions (to reflect the improvement) and
retirements (to reflect the facilities taken out of service).  A similar analysis can be used for
wastewater facilities.

The supply forecast is preliminary because it can and will be revised later in the plan to reflect
the effect of conservation on water supply needs.
                                         116

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USEPA. Water Conservation Plan Guidelines
       Advanced Guidelines
Worksheet 5-5: Anticipated Improvements and Additions

Describe planned improvements and additions:  	
Describe time frame for planned improvements and additions (years):
                                   Improve-
Type of Project [a] ment Addition State date End date
Source of supply
Water treatment facilities
Treated water storage
Major transmission lines
Other
Need for Project(s) (Check all that apply)
Enhance compliance with regulations
Replace older equipment or facilities
Meet average-day demand
Meet maximum-day demand
Meet future growth needs
Other
Funding
Cost of financing
Overall cost of capital [if known]
Water purchases
n n
n n
n n
n n
n a
Notes
a
a
a
n
a
n
Interest rate
n
n

Anticipated future water purchases
Cost of water purchases
(gallons per year)
(dollars per gallon)
[a] Comprehensive plans can include wastewater facilities.
                                    117

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USEPA Water Conservation Plan Guidelines
                                                                         Advanced Guidelines
Worksheet 5-6:  Present Value of Planned Supply-Side
Facilities  [a]
Year
P>]
0
1
2
3
4
5
6
7
8
9
10...
20
Total
Annual
incremental
capacity
from
improve-
ments/
additions
M
gallons













Annualized
incremental
capital cost
[d]
$













Annual
operating
cost
[e]
$













Un-
discounted
total
annualized
incremental
cost
M
$













Escalated
value of
supply cost
in nominal
dollars
[g]
$













Present
value of
supply cost
in nominal
dollars
[h]
$













Present
value of
supply cost
Per gallon
in nominal
dollars
PI
$/gallon













Source: Adapted from Pekelney, Chesnutt, and Hanemann (1996).  See Glossary (Appendix C) for
definitions.
[a]  =
M
[c]
[d]
      This analysis should be calculated separately for (1) improvements and additions needed to
      meet average demand, and (2) improvements and additions needed to meet peak demand so
      that the results can be compared to corresponding conservation measures.  The analysis also
      can be expanded to include the incremental cost of wastewater collection and treatment.
      The number of years should correspond to the anticipated useful life of the project(s).
      Total gallons of capacity made available through the project(s).
      Annualized incremental capital cost (K):
      K =  C x  i X  (1 + D" where: K
             (l+i)n-l              C
                                   n
                                   i
                                        annualized capital costs
                                        total expenditures required
                                        the useful service life of the capital expenditure (see [b])
                                        the appropriate interest or financing rate
W
m
[g]
   = Annual variable operating cost (including energy, chemicals, and water purchases).
      [fj X (1 + s)' where s is the selected annual escalation rate and t is the year. The escalation rate
      can be tailored to the nature of capital expenditures.
[h] = [g]/(l + r)1 where r is the selected annual discount rate and t is the year. The escalation rate can
      be tailored to the nature of capital expenditures.
[i] = rh]/[c]
                                            118

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\3SEWv Water Conservation Plan Guidelines
Advanced Guidelines
Worksheet 5-7: Preliminary Supply-Capacity Forecast
Year
0
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
Additions (+)
HHHHHHl




















Retirements (-)
••••MM




















Total supply capacity
for the system
(annual or daily)





















                                 119

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USEPA Water Conservation Plan Guidelines
                                                                  Advanced Guidelines
5.   IDENTIFY CONSERVATION MEASURES
                                                   Review the list of conservation
                                                   measures recommended for
                                                   consideration and identify
                                                   measures that have been
                                                   implemented, are planned, or
                                                   are not planned.  Provide an
                                                   explanation for -why any
                                                   measure is not planned for the
                                                   water system.
 Levels and Measures

 Water systems have a vast array of specific
 conservation measures at their disposal. These
 measures include both supply-side and demand-side
 management techniques for saving water and range
 from relatively simple educational tools to the
 promotion of advanced water-efficient technologies.
 Use of any particular measure depends on whether it
 meets cost-effectiveness and other planning criteria and
 whether its use complies with applicable laws and
 regulations, including state and local plumbing codes.

 The conservation measures are organized into three levels: Level 1, Level 2, and Level 3.
 Each level includes four categories of measures.  Specific water conservation measures are
 identified within each category.  Appendix A provides additional information and several
 worksheets on the conservation measures. Planners are encouraged to explore the full range
 of potential conservation measures for consideration in their conservation programs.

 Identifying Conservation Measures

 Worksheet 5-8 summarizes the minimum set of measures recommended for consideration in
 the Advanced Guidelines.  Systems should use the checklist to review and summarize the
measures that are currently implemented, planned, or not planned at this time. Planners also
 can identify additional measures and practices as they develop their conservation plans.

Water systems following the Advanced Guidelines are expected to implement the very
 fundamental and widely accepted practices under Level 1.  If Level 1 measures are not  in
place and not planned for implementation, planners should submit a strong justification,
including a cost-effectiveness analysis if it is the basis for not implementing the measure.

Planners can screen the measures in terms of general feasibility. In some cases, it may  not be
possible for a system to implement a measure because of legal restrictions or for other
compelling reasons. The conservation plan should provide an explanation if a measure cannot
be implemented for the period of time covered by the plan. It is not necessary to prepare a
cost effectiveness analysis for measures that cannot be implemented.
                                      120

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USEPA Water Conservation Plan Guidelines
Advanced Guidelines
Worksheet 5-8:  Checklist of Conservation Measures



Measure [a]
1
.xi
1g 
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  USEPA Water Conservation Plan Guidelines
                                                                              Advanced Guidelines
 Worksheet 5-8 (continued)
 Measure [a]
                                                  a
                                                el
                                                if-
                                                £ .5
Comments [b]
 LEVEL 2 MEASURES
 Water-use audits [B]
 Audits of large-volume users                CJ    n
 Large-landscape audits                     n    Cl
 Selective end-use audits                     CJ    CJ

 Retrofits [B]
 Retrofit kits available                       CJ    CJ
 Distribution of retrofit kits                   n    n
 Targeted programs                         n    G

 Pressure management [A]
 Systemwide pressure regulation              D    D
 Selective use of pressure-reducing valves      CJ    D
Landscape efficiency [P]
Promotion of landscape efficiency           D
Landscape planning and renovation         CJ
Selective irrigation submetering             n
Irrigation management                     n

LEVEL 3 MEASURES
                                               CJ
                                               CJ
 Replacements and promotions [B]
 Rebates and incentives (nonresidential)       CJ   n
 Rebates and incentives (residential)          CJ   CJ
 Promotion of new technologies              n   O

 Reuse and recycling [B]
 Industrial applications                      D   n
 Large-volume irrigation applications         O   CJ
 Selective residential applications             n   n

 Water-use regulation [B]
 Water-use standards and regulations          HI   n
 Requirements for new developments         CJ   D

 Integrated resource management [B]
 Supply-side technologies                    n   CJ
 Demand-side technologies                  O   CJ
[a]   For more information about measures see Appendix A.
[b]   Note special issues related to the measure, including legal or other obstacles precluding implementation.
Note: Measures can affect average-day demand [A], maximum-day (peak) demand [P], or both [B], as indicated.
                                              122

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USEPA. Water Conservation Plan Guidelines
                                                                   Advanced Guidelines
6.    ANALYZE BENEFITS AND COSTS
                                                    For each identified -water
                                                    conservation and other
                                                    measures of interest, estimate
                                                    total implementation costs
                                                    (dollars) and anticipated water
                                                    savings (volume), assess the
                                                    cost-effectiveness of the
                                                    measure, and compare the cost
                                                    of conservation to benefits
                                                    (measured in terms of the
                                                    incremental cost of supply).
Purpose

In this section, an analysis of benefits and costs is used
to aid the comparison and selection of measures.
Planners will consider criteria other than efficiency in
Section 7 and estimate actual effects of conservation
on planned capital facilities in Section 8.

Analyzing benefits and costs is an invaluable part of
the planning process. Use a cost-effectiveness analysis
to compare alternative conservation measures in terms
of dollars per gallon of water saved. For example, one
measure might produce savings at a cost of $.25/1,000
gallons while another produces savings at a cost of $.50/1,000 gallons. Cost-effectiveness
analysis also can be used to compare conservation measures to supply options. Use a net
benefit analysis to determine whether the benefits of implementing a measure outweigh the
costs.

It is not necessary for planners to prepare a cost-effectiveness or net benefit analysis of Level
1 measures if those measures are already implemented or planned for implementation. An
analysis should be presented if cost-effectiveness is the basis for rejecting a Level 1 measure.
If the analysis of Level 1 measures leads the planner to conclude that a proposed measure is
not cost-effective or that it fails to meet other criteria for implementation, the plan should
include an explanation of these findings and conclusions in Worksheet 5-12 (Section 7).

Water Savings

Worksheet 5-9 should be completed for each conservation measure identified in Section 5.  In
some cases planners may want to combine measures based on the conservation program they
envision. All interrelated measures that are expected to result in an identifiable amount of
water savings should be combined and treated as one measure in order to avoid counting the
planned water savings more than once in the analysis.

The worksheet begins with an open-ended description of the measure and an estimate of water
savings. The anticipated life span for the measure should be indicated. Planners also should
indicate whether the measure is targeted toward reduction in average-day demand, maximum-
day demand, or both. Estimates of potential water savings should be as realistic as possible,
based on system and regional considerations. For some measures, particularly those
dependent on customer responses (such as information and education programs), the
estimation will reflect a high degree of uncertainty. Planners can choose to use a range of
estimates under these circumstances.
                                         123

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  USEPA Water Conservation Plan Guidelines
                                                                     Advanced Guidelines
 The plan should indicate typical water savings from the measure, the number of planned
 installations, and the anticipated life span for the measure, as well as whether the measure is
 expected to reduce average-day or maximum-day demand (or both).

 Implementation Costs

 Worksheet 5-9 includes a method for summing the total cost of implementing the measure.
 All costs associated with implementation should be included. Planners should ascertain
 reasonable cost estimates by potential vendors whenever possible. The types of costs that
 should be analyzed include:
           Materials
           Labor
           Rebates or other payments
           Marketing and advertising
a  Administration
n  Consulting or contracting
a  Other
 A realistic implementation schedule should be considered. Any special circumstances
 affecting the schedule or cost of implementing the proposed measures should be discussed in
 the plan.

 Each worksheet also includes a place to estimate annual unit water savings (that is, savings
 per measure or "unit"), total annual water savings, and total life span water savings for the
 measure.  For each measure, the method used to estimate water savings should be provided.
 This might include, for example, a formula for converting daily per capita savings to annual
 savings. In some cases (such as a leakage control program), it might not be feasible to
 estimate savings for each unit, in which case total annual savings for the entire measure are
 sufficient.

 Analyzing Benefits and Costs

 Worksheet 5-10 also provides a detailed and relatively precise method for calculating the cost
 effectiveness and net benefit of each conservation measure.  The  spreadsheet format allows
 planners to incorporate year-to-year changes in benefits and costs. The number of years
 represented in the spreadsheet will vary with the anticipated life span of the measure.

 For some water conservation measures, savings will be constant from year-to-year. The same
 value will appear for each year. However, the spreadsheet also allows the analyst to
 recognize changes in the effectiveness of the conservation measures over time.

The benefits of conservation are displayed in terms of the incremental cost of supply (from
Worksheet 5-6). The estimate of benefits should reflect differences in savings  from reduction
in average-day demand versus reductions in maximum-day demand. This can be
accomplished by using the disaggregated estimates of capital in the calculation of benefits.
                                        124

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USEPA Water Conservation Plan Guidelines
Advanced Guidelines
For example, benefits from measures that reduce only average-day demand can be adjusted to
include only the incremental capital cost of source facilities, plus annual operating costs; both
are measured on a per gallon basis.  The method also allows the planner to incorporate
incremental additions and improvements at different years.

The costs are represented in terms of total program costs for the measure.  Most conservation
program costs take the form of one-year (year 0) expenditures; costs in the subsequent years
drop to zero.  However, some measures may require recurring expenditures. When this is the
case, the same discount rate used in the estimation of supply costs (in Worksheet 5-6) should
be applied to the conservation expenditures.

The net present value of conservation is simply the difference between net present benefits
and net present costs. The spreadsheet uses nominal dollars to represent net present value.
The worksheet reports only nominal dollars.  However, planners can adjust their estimates of
benefits and costs for anticipated inflation and convert nominal to real (inflation-adjusted)
dollars. If real dollars are reported, the escalation rate and discount rate should be expressed
in real dollar terms as well.

Comparison of Measures

Worksheet 5-11 can be used to compare the individual analyses of conservation measures in
Worksheet(s) 5-10. Worksheet 5-11 can be used to screen measures for implementation on
the basis of the relative cost-effectiveness and net benefits associated with each measure.
                                         125

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  USEPA Water Conservation Plan Guidelines
                                                                          Advanced Guidelines
 Worksheet 5-9:  Program Costs for Each Conservation
 Measure or Group of Measures
 Describe conservation measure:
 Typical water savings from the measure:
 Number of planned installations:
 Anticipated life span for the measure:

 The measure is designed to reduce:
                                                           per
                                                           years
                                         n Average-day demand
                                         O Maximum-day demand
                                         D Both average-day and maximum-day demand
 Line  Item
                                                              Amount
                                                                                Amount
       COST OF THE CONSERVATION MEASURE [al
                                                            Per unit [b]
Total cost of the
    measure
       Materials
       Labor
       Rebates or other payments
       Marketing and advertising
       Administration
       Consulting or contracting
       Other
       Total program costs for the life of the measure (add
       lines 1  through 7) [c]	
  B
     ESTIMATED SAVINGS
       Number of units to be installed [d]
  10
     Estimated annual water savings per unit in gallons [el
  11
     Total estimated annual savings for the measure in gallons
     (multiply line 9 by line 10)
  12
     Expected life span for the measure in years
       cxpecreu me span tor me measure m years	
       Total life span estimated savings for the measure in gallons
       fmnltinlv linp 11 hv linp. 191
13
     (multiply line 11 by line 12)
[a]  A separate analysis should be performed for each conservation measure, but measures can be combined if
    they jointly produce water savings.
[b]  Examples of a unit are a toilet, a retrofit kit, and an audit. A unit estimate may not be appropriate for each
    measure, in which case total program water savings and costs for the measure can be used.
[c]  Include all recurring operation and maintenance costs over the life of the measure.
[d]  Units can be individual product units (such as toilets) or groups of products (such as household retrofits), as
    long as the analysis is consistent.  Leave blank if unit values do not apply.
[e]  For example, water savings per retrofit. See Appendix B for benchmarks and sample calculations. Leave
    blank if unit values do not apply.

Notes on analysis:  	
                                            126

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USEPA. Water Conservation Plan Guidelines
                                                                        Advanced Guidelines
Worksheet 5-10: Analysis of Each Conservation Measure or
Group of Measures
Year [a]
0
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
Totals
Average
annual
savings [h]
Annual water
savings from
the
conservation
measure
[b]
gallons
0






















Source: Adapted in part from I
Present value
of supply cost
per gallon in
nominal
dollars
M
$/gallon
$




















'ekelney, Chesm
Undiscounted
cost of the
conservation
measure
[d]
$/gallon
$




















•1
itt, and Hanemar
Present value
cost of
conservation
in nominal
dollars
[e]
$/gallon





















•1
in (1996).
Net savings
from
conservation
in nominal
dollars
ffl
$/gallon
$




















•
Net benefit
from
implementing
the measure
[g]
$
$




















•
[a]
[b]
[c]
[d]
M
[g]
[h]
      The number of years analyzed should cover the expected useful life of the measure.
      Anticipated annual conservation savings. Include attrition or rebound effects if applicable.
      From corresponding column in Worksheet 5-6 (last column).
      Recurring expenditures should be included in the table at the appropriate year.
      [d]/(l + r)' where r is the selected discount rate and t is the year. The discount rate should be the same
      used in Section 4. This column assesses the per-gallon cost of each measure.
      [c]-[e].
      [fj X [b]. This column assesses the total net benefit of the measure.
      Based on the total number of years in the planning horizon.
                                           127

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 USEPA Water Conservation Plan Guidelines
Advanced Guidelines
 Worksheet 5-11: Comparison of Benefits and Costs of the
 Conservation Measures
Line
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20...
Conservation measure
Fal




















Total program
cost for the
measure
[b]
$



















Anticipated
annual water
savings in
gallons [c]




















Cost of water
saved by the
measure
($/gallon)
[d]
$



















Net benefit of
implementing
the
measure(s)
[e]
$



















[a] =  Combined measures that produce joint conservation savings should be treated as one measure to avoid
      duplicate counting.
[b] =  Based on Worksheet 5-9, line 8.
[c] «  Based on Worksheet 5-10, average annual water savings from the conservation measure.
[d] =  Based on Worksheet 5-10, present value of supply cost in nominal dollars.
[e] =  Based on Worksheet 5-10, net benefit from implementing the measure. This estimate of net benefit does
      not consider societal benefits and costs.
                                         128

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\3SEP A. Water Conservation Plan Guidelines
                                                                   Advanced Guidelines
1.    SELECT CONSERVATION MEASURES
Selection Criteria

The first step in the selection process is to identify
criteria for evaluating the conservation measures. The
cost-effectiveness of the measures (from Section 6) is
one criterion, but other factors should be considered as
well.  Planners are free to consider as many selection
criteria as they believe are appropriate, but the
relevance of the criteria should be explained in the
conservation plan.
      Describe the process by -which
      conservation measures were
      selected for implementation,
      including identification of
      selection criteria. Summarize
      the selected measures and total
      anticipated program costs for
      implementation.
Criteria that can be used in selecting conservation measures for implementation include:
      a  Program costs                    o
      n  Cost-effectiveness                 o
      a  Ease of implementation            n
      a  Budgetary considerations           a
      a  Staff resources and capability       n
      a  Environmental impacts             a
      a  Ratepayer impacts                 n
Environmental and social justice
Water rights and permits
Legal issues or constraints
Regulatory approvals
Public acceptance
Timeliness of savings
Consistency with other programs
For each selection criterion used, planners should identify whether, how, and why the factor
affects the feasibility of implementing one or more conservation measures. Different factors
might be assigned different weights. Planners also may want to bear in mind that techniques
can be used to mitigate adverse effects and improve acceptance of measures. A cost-effective
conservation measure should not be dismissed without careful consideration of how barriers
to implementation might be overcome.

Selecting the Measures

Worksheet 5-12 provides a simple format for summarizing the selection of measures. For
each measure, planners should indicate whether the measure was selected for implementation.
Planners also should identify the primary reason or reasons for selecting or rejecting the
measure. Special conditions or actions that are required before a selected measure can be
implemented (such as an approval from regulators) should be noted.

In some cases, planners may conclude that a measure (or measures) cannot be implemented
because of a constraint that exists in the short term.  Conservation measures that might be
planned for future implementation,  once constraints are resolved, should be discussed in the
plan.  Planners should briefly discuss their implementation strategies with respect to such
measures.
                                        129

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USEPA Water Conservation Plan Guidelines
Advanced Guidelines
For the conservation measures selected for implementation, planners should estimate the
expected reductions in average-day and maximum-day demand. These estimates will be used
in the next section of the plan to integrate conservation savings with the system's plans for
supply-side facilities.
                                         130

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USEPA. Water Conservation Plan Guidelines
                                                          Advanced Guidelines
Worksheet 5-12: Selection of Conservation Measures and
Estimate of Water Savings
 Line
Measure
                            H
                            Primary criteria
                         for selecting or rejecting
                        the conservation measure for
                            implementation
  Estimated reduction in
   demand for selected
       measures
   (gallons per day) [a]
Average-day
  demand
Maximum-
day demand
 10
 11
 12
 13
 14
 15
 16
 17
 18
 19
20...
[a]  Based on Worksheet 5-9, line 11. Planners will need to convert estimates of annual water savings to
    estimates of reductions in average-day and maximum-day demand for each measure or group of measures.
                                          131

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USEPA Water Conservation Plan Guidelines
                                                                  Advanced Guidelines
8.   INTEGRATE RESOURCES AND
      MODIFY FORECASTS
                                                  Modify -water demand and
                                                  supply-capacity forecasts to
                                                  reflect the anticipated effects of
                                                  conservation. Indicate whether
                                                  and how water savings from
                                                  conservation will allow systems
                                                  to eliminate, downsize, or
                                                  postpone supply-side projects or
                                                  water vurchases.
Integrating Options

In this section, planners can revise the demand and
supply-capacity forecasts made in earlier sections of
the plan based on anticipated conservation savings.
Pay particular attention to the effects of conservation
on specific supply-facility projects.

Planners should be cautious to avoid counting
demand-side or supply-side resources more than once
in the analysis. Anticipated savings from conservation
should be based on realistic estimates of savings associated with the planned measures.
Similarly, supply projects that involve multiple facilities should be considered in terms of the
total water supply capacity that is made available through those combined facilities. Timing
is another issue. The plan should address how different supply-side and demand-side projects
involve different life spans and implementation schedules. One twenty-year supply-side
project, for example, might be offset by a series of conservation measures that begin and end
at different tunes.

Some conservation plans use a graph to display anticipated annual supply capacity and
demand without and with the implementation of conservation measures. Figure 5-2 is an
example of this type of graph for a twenty-year planning horizon.

                                     Figure 5-2
                    Sample Graph of Modified Supply and Demand Forecasts
                        Based on Implementing Conservation Measures
           I
           p
           £•

           '!
           U
           "5.
           00
                                                            I Supply
                                                             without
                                                             conservation
                                                            I Supply with
                                                             conservation

                                                            - Demand
                                                             without
                                                             conservation
                                                             Demand with
                                                             conservation
                           7   9   11   13
                             Planning Year
                                            15   17   19
                                      132

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C/SEPA Water Conservation Plan Guidelines
Advanced Guidelines
Modifying Demand Forecasts

Planners should use Worksheet 5-13 to collate information from previous worksheets and
analyses in order to revise the demand forecasts made in Worksheet 5-4. Revisions should
reflect changes based on the introduction of new conservation measures. The effects of
measures already being implemented should be included in the original demand forecast.

Modifying the demand forecast requires  a considerable degree of judgment, particularly in
estimating the effects of conservation on average-day and maximum-day demand.  The plan
should include an explanation of the approach used in revising the demand forecasts.

Project-Specific Savings

Planners should identify the anticipated effects of conservation on planned supply-side
improvements and additions (as specified in Section 4). Worksheet 5-14 is provided for this
purpose. A worksheet should be completed for separable supply projects as appropriate.
Ideally, water conservation strategies that reduce demand will translate into supply-side
savings through one or more of the following actions:

       a  Eliminating a project for the foreseeable future
       a  Downsizing a project based on reduced  capacity needs
       a  Postponing a project into the future
       a  Eliminating, reducing, or postponing water purchases

Adjustments to supply-capacity planning must be realistic, especially in terms of complex and
sometimes competing goals. Supply projects cannot be eliminated, downsized, or postponed if
doing so would compromise public health or safety, reduce operational efficiency, or inflate
costs beyond a reasonable amount.  Some systems (including systems that currently operate
with inadequate or unreliable supply reserves) may not be able to translate all demand
reductions into supply-capacity reductions. Planners should identify and describe such
circumstances.  On the other hand, supply projects that are not needed or oversized place an
unnecessary burden on systems and their customers.

Modifying Supply Forecasts

The supply-capacity forecast is revised in Worksheet 5-15. The revision to the supply-
capacity forecast should be based on Worksheet(s)  5-14 and consistent with accepted supply-
capacity planning practices.  The modification of forecasts should reflect reasonable
assumptions about anticipated implementation schedules, which are summarized in Section 9.
Planners also can indicate the anticipated capacity reserve (the difference between forecast
supply capacity and demand).

Worksheet 5-15 also provides a method of summarizing savings in capital and operating
costs, based on reductions in supply capacity. Planners also should estimate reductions in
                                        133

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 USEPA Water Conservation Plan Guidelines
Advanced Guidelines
 operating costs at existing facilities that will occur with demand reductions (apart from
 operating costs associated with planned facilities). The total program cost of conservation can
 be compared with the savings in total capital and annual operating costs.

 As recognized throughout these Guidelines, water conservation also has norimonetary
 benefits. Planners should discuss, as appropriate, how implementation of the conservation
 program will help their system cope with any of the conditions identified in Section 2
 (Worksheet 5-2). For example, the planned measures might help a system address problems
 related to safe yields or drought management.

 Revenue Effects

 The conservation plan should briefly describe how planned conservation measures will affect
 water utility revenues (based on reduction in sales) and discuss strategies for addressing these
 revenue effects. Reductions in water usage will affect the revenues of the water utility.
 Reductions in water usage will affect the revenues of the water utility.  Conservation will help
 the water utility reduce variable costs (such as energy, chemical, and purchased water costs).
 In the long term, conservation also will help the utility reduce fixed costs (associated with
 new capital facilities).  In the short term, reductions and sales can lead to a shortfall in
 revenues needed to cover fixed costs and sustain the financial viability of the water system.

 The planner can estimate the effect of conservation on revenues by multiplying current water
 rates by the adjusted level of sales (for the variable portion of the water bill). The adjusted
 level of sales should include the anticipated effects of conservation. Conservation-oriented
 rate structures have direct revenue effects that should be considered. Worksheet A-4 in
 Appendix A can be used to evaluate the revenue effects of rate changes.

 Conservation planners should work closely with financial planners in order to integrate their
 analyses, identify potential revenue shortfalls, and devise strategies to ensure that the utility
 will meet its revenue requirements.

Adjustments to water rates may be needed.  For some utilities, a change in rates requires
 approval from an oversight board or state public utility commission. When rate increases are
offset by usage reductions, customer bills and utility revenues can be maintained. Customers
and utilities eventually will realize savings from conservation through long-term reductions in
costs.
                                          134

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USEPA Water Conservation Plan Guidelines
                                                             Advanced Guidelines
Worksheet 5-13: Modified Demand Forecast
Line
Item
YearS
                                                                  Year 10
                                                                      Year 20
  8
      Average-day demand before conservation [a]
      Reduction in average-day demand (line 1 less
      line 2) fb]        	
      Average-day demand after conservation
      Maximum-day demand before conservation [a]
      Reduction in maximum-day demand (line 4 less
      line 5) [b]	_____
      Maximum-day demand after conservation
      Ratio maximum-day to average-day demand
      before conservation (line 4 divided by line 1)
Ratio maximum-day to average-day demand
after conservation (line 6 divided by line 3)
[a] From Worksheet 5-4, line 6.
[b] Based on Worksheet 5-12.
                                        135

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 USEPA Water Conservation Plan Guidelines
                                                                   Advanced Guidelines
 Worksheet 5-14:  Project-Specific  Savings
 DESCRIPTION OF PROJECT [a]
 Describe the supply-side projects):
 Project was scheduled to begin:

 Purpose of the project:

 The project is designed to meet:

 Type of project:
O Improvement

O Average-day demand

O Source of supply
n Water treatment facilities
O Treated water storage
O Major transmission lines
O Purchased water
n Other
                                                        n Addition

                                                        d Maximum-day demand
 CHANGES TO PROJECT [b]
  Line
Item
                    Project
                    supply
                    capacity
                    (daily)
                                                                         Project Costs
 Total
 capital
costs ($)
 Annual
operating
costs ($)
        CAPITAL PROJECT IS ELIMINATED
        Original project
        Savings from elimination (equals line 1)
   B
CAPITAL PROJECT IS DOWNSIZED
        Original project
        Downsized project
        Savings from downsizing (line 3 less line 4)
        CAPITAL PROJECT IS POSTPONED
       Present value of original project
       Present value of postponed project
       Savings from postponement (line 6 less line 7)
  D
NEED FOR PURCHASED WATER IS REDUCED fc]
       Original estimate of purchases
  10
  11
Revised estimate of purchases (can be "0")
Savings from reduced purchases (line 9 less line 10)
[a]  Comprehensive plans can include wastewater facilities.
[b]  Based on Worksheet 5-13 estimates of reductions in demand.
[c]  For purchased water, report only annual operating costs and include costs associated with take-or-pay
    contract provisions. Transmission facilities needed to transport purchased water should include capital
    and operating costs associated with such facilities and reported as a capital project.
                                           136

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\3StPAbater Conservation Plan Guidelines
                                                                   Advanced Guidelines
Worksheet 5-15: Modified Supply Forecast and Estimated
Total Savings	
MODIFIED SUPPLY FORECAST
Line
A
1
2
3
B
4
Item
Forecast Supply Capacity (Daily)
Supply capacity before conservation program
Fal
Planned reduction in supply capacity [b]
Supply capacity after conservation (line 1 less
line 2)
Capacity Reserve
Supply capacity less demand (line 3 less line 2
on Worksheet 5-13)
Current
Year


•
•


YearS






Year 10






Year 20






ESTIMATED TOTAL SAVINGS
 Line
Item
 Supply
capacity
 (daily)
                                                                  Project Costs
                                                            Total capital
                                                             costs ($)
 Annual
operating
costs ($)
       Total Estimated Savings from Changes to
       Supply Projects [c]
       Cost of supply projects before conservation
       Cost of supply projects after conservation
       Savings (line 1 less line 2)
  D
Total Estimated Savings from Reduced
Operating Costs at Existing Facilities [d]
srating costs before conservation
;rating costs after conservation
ings (line 4 less line 5)



  E
Conservation Program Costs
       Total cost of implementing selected
       conservation measures [e]	
 [a] From Worksheet 5-7.
 [b] Based on Worksheets) 5-14.
 [c] Based on Worksheets) 5-14.
 [d] Based on annual variable operating cost (including energy, chemicals, and water purchases).
 [e] Based on Worksheet 5-11.
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                                                                 Advanced Guidelines
9.    PRESENT IMPLEMENTATION AND
      EVALUATION STRATEGY
                                                 Present a strategy and timetable
                                                 for implementing conservation
                                                 measures and other elements of
                                                 the conservation plan. Describe
                                                 proposed approaches for
                                                 implementing and evaluating
                                                 planned conservation measures.
 Implementation

 In this final step in the conservation planning process,
 the water system specifies its strategy and timetable for
 implementation.  It can be emphasized, however, that
 conservation planning will require an ongoing effort on
 the part of water utility managers. Ongoing planning
 and implementation will go hand in hand. The
 implementation strategy should include a preliminary
 schedule for monitoring and evaluating program results
 and revisiting the plan for updates and modifications.

 Implementation of Measures

 Worksheet 5-16 is a simple template for summarizing the water system's implementation and
 evaluation schedule for the conservation measures. For each measure, the schedule can
 identify significant implementation actions, a beginning date, and a completion date.
 Implementation actions include:

       a  Securing budgetary resources
       a  Hiring of staff
       a  Procurement of materials
       a  Agreements with suppliers or consultants
       n  Acquisition of permits or other approvals from regulatory agencies
       a  Legislative actions (for changes in water-use regulations)
       a  Activity milestones (for example, system audits or distribution of retrofit kits)

Planners should make note of any specific factors or contingencies that might affect or
prevent the implementation of specific measures. For example, if a measure cannot be
implemented prior to obtaining a special permit or other authority, this fact should be noted
along with an explanation of the strategy for obtaining the necessary authority.

Some measures might require implementation actions that take place over several years (in
order to sustain conservation savings). The plan should provide sufficient detail to understand
the utility's strategy with regard to implementing such measures.
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                                                                    Advanced Guidelines
Implementation and Evaluation

Worksheet 5-17 provides a very simple summary of the water system's general
implementation and evaluation strategy for the conservation plan. Three areas are
highlighted:

       a  Public involvement
       o  Monitoring and evaluation
       a  Updates and revisions

A plan for public involvement should discuss whether and when the water system intends to
involve members of the community in the implementation of the conservation plan. Some
systems may want to schedule regular meetings with community groups to keep them
informed of the system's progress in meeting goals.

A plan for monitoring and evaluation should address data collection, modeling, and other
issues that will be important in tracking the effects of water conservation on demand over
time. The system may want to plan to collect new kinds of data for monitoring purposes as
well as  for future forecasting needs. Many systems might find, for example, that more
detailed data on demand by customer class are needed, including more detail on contributions
to average-day and maximum-day demands. More detailed data might also be needed to
assess trends in nonaccount water.

A plan for updates and revisions will help keep the system's conservation plan current over
time and account for the system's actual experience with conservation. Updating forecasts of
water demand and supply capacity as new data become available is especially important. In
some cases, the system might want to revise or expand its planning goals. Many systems
update plans every five years. However, changing conditions or other concerns might justify
more frequent updates.  The schedule of updates and revisions might be affected by state or
local requirements for conservation planning by the water system.

The conservation planning document also should include a record of the plan's adoption by
the water system's governing body (such as a Board of Directors or City Council), as
appropriate.
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Worksheet 5-16: Implementation Schedule for Measures
Line
1
2
3
4
5
6
7
8
9
10
11
12
Measure
















Required action




































Beginning
date




































Completion
date




































Notes




































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                                                             Advanced Guidelines
Worksheet 5-17:  Implementation Strategy
A. PUBLIC INVOLVEMENT
Describe plan for public involvement:
B. MONITORING AND EVALUATION
Describe plan for monitoring and evaluation:
Describe plan to collect water demand data:
C. PLAN UPDATES
Describe plan for updates and revisions:
D. ADOPTION OF THE PLAN
Date plan completed:
Date plan approved:
Approved by [governing body]:
Signature:
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                                                                              Advanced Guidelines
[blank page]
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\3SBY A. Water Conservation Plan Guidelines
Appendix A
APPENDIX A

WATER CONSERVATION MEASURES	

This Appendix to the EPA Guidelines for Preparing Water Conservation Plans describes the
water conservation measures that water utilities can use in designing water conservation
programs. As part of their conservation plans, planners should consider, at a minimum, each
of the measures specified in the Basic, Intermediate, or Advanced Guidelines, depending on
which set of Guidelines apply to the water system.

The measures are organized into three general categories: Level 1, Level 2, and Level 3.
Within each level are four subcategories that are used to organize a variety of specific
conservation measures:

       a  Level 1 Measures
          •  Universal metering
          •  Water accounting and  loss control
          •  Costing and pricing
          •  Information and education

       a  Level 2 Measures
          •  Water-use audits
          •  Retrofits
          •  Pressure management
          •  Landscape efficiency

       n  Level 3 Measures
          •  Replacements and promotions
          •  Reuse and recycling
          •  Water-use regulation
          »  Integrated resource management

This system of organizing the conservation measures recognizes that the measures considered
can vary with the size and capability of the system. Water systems are strongly encouraged to
explore the fullest range of conservation measures practical, including measures beyond the
minimum measures suggested in the Guidelines that they are following. Many smaller and
middle-sized utilities have been very  successful in implementing a wide range of beneficial
conservation programs.

What follows is a description of each of the twelve subcategories of measures. The
Guidelines provide checklists that planners can use in reviewing measures. However,
planners are encouraged to consider as many measures as practical given their capability and
the conditions they seek to address. In some cases, planners may choose to consider and
implement selected measures beyond those minimally recommended for consideration.
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                                                                             Appendix A
 Although this list of conservation measures is relatively current and comprehensive, planners
 should not limit their analysis only to the measures mentioned here. Planners also should
 consider new technologies and approaches as they become available. Letters next to each
 category indicate whether the measures hi that category are considered particularly useful in
 reducing average-day demand [A], maximum-day or peak demand [P], both [B].  Worksheets
 for some of the conservation measures are provided at the end of this Appendix.
 Level 1 Measures

 Universal Metering [B]
Measures
Universal metering
PI
.



<— Basic Guidelines 	 >
• Source-water metering
• Service-connection
metering and reading
• Meter public-use water
• Fixed-interval meter reading
• Meter-accuracy analysis
• Test, calibrate, repair, and
replace meters
 Metering is a very fundamental tool of water system management and conservation.
 Worksheet A-l can be used by systems to assess their metering practices.

 Source-water metering.  Both the supplier and the customer benefit from metering.  Source
 metering is essential for water accounting purposes.

 Service-connection metering. Service-connection metering is needed to inform customers
 about how much water they are using; suppliers use metering data to more accurately track
 water usage and bill customers for their usage.

 Public-use water metering. All water provided free of charge for public use should be
 metered and read at regular intervals. This will allow the utility to more accurately account
 for water.  Lack of metering undermines loss control, costing and pricing, and other
 conservation measures.

 Fixed-interval meter reading. A program of fixed-interval meter reading is essential to
 determine the amount of nonrevenue-producing water. Source meters and service connection
 meters should be read at the same relative time in order to facilitate accurate comparisons and
 analysis. Readings generally should occur at regular intervals, preferably monthly or
 bimonthly. Estimated bills should be kept at a minimum, subject to state and local
 regulations.

Meter accuracy. Water meters can be damaged and deteriorate with age, thus producing
 inaccurate readings. Inaccurate readings will give misleading information regarding water
                                         144

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Appendix A
usage, make leak detection difficult, and result in lost revenue for the system.  All meters,
especially older meters, should be tested for accuracy on a regular basis. The system also
should determine that meters are appropriately sized. Meters that are too large for a
customer's level of use will tend to under-register water use.

Meter testing, calibration, repair, and replacement. After determining the accuracy of the
metering system, the utility should provide a schedule of activities necessary to correct meter
deficiencies.  Meters should be recalibrated on a regular basis to ensure accurate water
accounting and billing.
Water Accounting and Loss Control [A]
Measures
Water accounting
and loss control
[A]
< 	 Auvaiiccu vjuiuumius 	 -r
<— Basic Guidelines 	 »
• Account for water
• Repair known leaks
• Analyze nonaccount water
• Water system audit
• Leak detection and repair
strategy
• Automated sensors/ telemetry
• Loss-prevention program
In many respects, water conservation begins on the supply side. All water systems will
benefit from a water accounting system that helps track water throughout the system and
identify areas that may need attention, particularly large volumes of nonaccount water.
Nonaccount water includes water that is metered but not billed, as well as all unmetered
water. Unmetered water may be authorized for such utility purposes (such as operation and
maintenance) and for certain public uses (such as fire hydrant maintenance).  Unmetered
water also includes unauthorized uses, including losses from accounting errors,
malfunctioning distribution system controls, thefts, inaccurate meters, or leaks. Some
unauthorized uses may be identifiable.  When they are not, these unauthorized uses constitute
unaccounted-for -water.

Implementing a system of water accounting is a necessary first step in developing strategies
for loss control. A system of water accounting is provided in Figure A-l. This system for
tracking water begins with total water produced and ends with unaccounted-for water.
Worksheet A-2 (which follows figure A-l) and Worksheet A-3 can assist water systems in
developing a water accounting and loss control strategy.

Account for water.  All water systems, even smaller systems, should implement a basic
system of water accounting (as appears  in Worksheet A-3). This accounting exercise
provides a basis for a strategy to control losses over time.

Repair known leaks. The cost of water leakage can be measured in terms of the operating
costs associated with water supply, treatment, and delivery; water lost produces no revenues
for the utility.  Repairing larger leaks can be costly, but it also can produce substantial savings
in water and expenditures over the long run.
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Appendix A
 Water accounting is less accurate and useful when a system lacks source and connection
 metering. Although the system should plan to meter sources, unmetered source water can be
 estimated by multiplying the pumping rate by the time of operation based on electric meter
 readings.

 Analysis ofnonaccount water. Nonaccount water use should be analyzed to identify
 potential revenue-producing opportunities, as well as recoverable losses and leaks. Some
 utilities might consider charging for water previously given away for public use or stepping
 up efforts to reduce illegal connections and other forms of theft.

 System audit. A system audit can provide information needed to make a more accurate
 analysis ofnonaccount water.

 Leak detection and repair strategy. Systems also should institute a comprehensive leak
 detection and repair strategy. This strategy may include regular on-site testing using
 computer-assisted leak detection equipment, a sonic leak-detection survey, or another
 acceptable method for detecting leaks along water distribution mains, valves, services, and
 meters. Divers can be used to inspect and clean storage tank interiors.

 Automated sensors/telemetry. Water systems also consider using remote sensor and
 telemetry technologies for ongoing monitoring and analysis of source, transmission, and
 distribution facilities. Remote sensors and monitoring software can alert operators to leaks,
 fluctuations in pressure, problems with equipment integrity, and other concerns.

 Loss-prevention program.  This may include pipe inspection, cleaning, lining, and other
 maintenance  efforts to improve the distribution system and prevent leaks and ruptures from
 occurring. Utilities might also consider methods for minimizing water used in routine water
 system maintenance procedures in accordance with other applicable standards.
Costing and Pricing [B]
Measures
Costing and pricing
[B]
.



<— Basic Guidelines 	 >
• Cost-of-service
accounting
• User charges
• Metered rates
• Cost analysis
• Nonpromotional rates
• Advanced pricing methods
Costing and pricing are conservation strategies because they involve understanding the true
value of water and conveying information about that value, through prices, to water
customers. The use of user charges often is considered a necessary (but not always sufficient)
part of a water conservation strategy.  Many resources are available on how to account for
costs and design water rates.
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Cost-of-service accounting.  Water systems should use cost-of-service accounting, consistent
with generally accepted practices. Many resources are available for this purpose.
Understanding and tracking system costs also is a capacity-development strategy for small
systems.

User charges. Once costs are established, systems can develop more accurate user charges
(or rate structures).

Metered rates.  Metered rates should be used so that the customer's water bill corresponds to
their water usage. For many systems, change in water rates must be approved by regulators or
other oversight bodies.  It is important for water systems to communicate with regulators
about costs and the need for cost-based pricing.

Cost analysis.  Systems should conduct a cost analysis to understand what types of usage
drive system costs. For example, systems should analyze patterns of usage by season and
class of service.

Nonpromotional rates. Systems also should consider whether their current rate structures  ,
promote water usage over conservation; nonpromotional rates should be implemented
whenever possible in order to enhance the conservation signal of rates.

Systems seeking to encourage conservation through their rates should consider various issues:
the allocation between fixed and variable charges, usage blocks and breakpoints, minimum
bills and whether water is provided in the minimum bill, seasonal pricing options, and pricing
by customer class.

Systems also should consider the effect of introducing a new rate structure on revenues.
Worksheet A-4 is provided for this purpose. Conservation-oriented pricing requires planners
to make certain assumptions (based on the available empirical evidence) about the elasticity
of water demand, or the responsiveness of water usage to a change in price.  Elasticity is
measured by the ratio of a percentage change in quantity demanded to a percentage change in
price.  Changes in the rate structure should allow the system to achieve demand reduction
goals recovering water system costs. In allocating costs, the impact of the rate structure on
user demand and revenues for specific customer classes should be considered.

Advanced pricing methods.  Advanced pricing methods generally allocate costs by customer
class and/or type of water use.  Advanced pricing might consider seasonal variations or other
methods for pricing indoor and outdoor usage based on differing contributions to system
peaks. The conservation orientation of the rate structure can be enhanced by considering the
elasticity factors for different classes of water use. Marginal-cost pricing, which considers the
value of water relative to the cost of the next increment of supply, can be considered as well.
Systems also can consider special ratemaking provisions (such as cost-recovery or lost-
revenue mechanisms).  Potential revenue instability can be addressed with additional rate
structure modifications (such as revenue-adjustment mechanisms).
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 USEPA Water Conservation Plan Guidelines
Appendix A
 Obviously, the pricing strategy must be consistent with overall system goals and approved by
 regulatory or other governing bodies.
 Information and Education [B]
Measures
Information and
education [B]




<— Basic Guidelines 	 >
• Understandable water
bill
• Information available
• Informative water bill
• Water-bill inserts
• School program
• Public-education program
• Workshops
• Advisory committee
 Information and education are critical to the success of any conservation program.
 Information and education measures can directly produce water savings, as when customers
 change their water-use habits. These savings can be difficult to estimate. Also, public
 education alone may not produce the same amount of sustained water savings as other, more
 direct approaches (such as leak repairs and retrofits).

 But educational measures also can enhance the effectiveness of other conservation measures.
 For example, it is widely believed that information plays a role in how water consumers
 respond to changes in price.  More generally, customers that are informed and involved are
 more likely to support the water system's conservation planning goals. Worksheet A-5 is
 provided for systems to use in assessing their information and education programs.

 Understandable water bill. Customers should be able to read and understand their water
 bills.  An understandable water bill should identify volume of usage, rates and charges, and
 other relevant information.

 Information available.  Water systems should be prepared to provide information pamphlets
 to customers on request.  Public information and education are important components of
 every water conservation plan. Consumers are often willing to participate in sound water
 management practices if provided with accurate information. Furthermore, providing
 information and educating the public may be the key to getting public support for a utility's
 water conservation efforts. An information and education program should explain to water
 users all of the costs involved in supplying drinking water and demonstrate how water
 conservation practices will provide water users with long term savings.

Informative water bttL An informative water bill goes beyond the basic information used to
 calculate the bill based on usage and rates.  Comparisons to previous bills and tips on water
 conservation can help consumers make informed choices about water use.

 Water bill inserts.  Systems can include inserts hi their customers' water bills that can provide
information on water use and costs. Inserts also can be used to disseminate tips for home
water conservation.
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\3SEPA "Water Conservation Plan Guidelines
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School program. Systems can provide information on water conservation and encourage the
use of water conservation practices through a variety of school programs. Contacts through
schools can help socialize young people about the value of water and conservation techniques,
as well as help systems communicate with parents.

Public education program. Utilities can use a variety of methods to disseminate information
and educate the public on water conservation. Outreach methods include speakers' bureaus,
operating booths at public events, printed and video materials, and coordination with civic
organizations.

Workshops. Utilities can hold workshops for industries that might be able to contribute to
water conservation efforts. These might include, for example, workshops for plumbers,
plumbing fixture suppliers, and builders or for landscape and irrigation service providers.

Advisory committee. A water conservation advisory committee can involve the public in the
conservation process; potential committee members include elected officials, local business
people, interested citizens, agency representatives, and representatives of concerned local
groups. The committee can provide feedback to the utility concerning its conservation plan
and develop new material and ideas about public information and support for conservation hi
the community. Of course, to be meaningful, the utility must be receptive to ideas offered by
the committee.
Level 2 Measures
Water-Use Audits [B]
Measures
Water-use audits
PI



A ,1., „-,„„,! /->.,: j_i:_=n




<— Basic Guidelines 	 >


• Audits of large- volume users
« Large-landscape audits
• Selective end-use audits

Water-use or end-use audits can provide water systems and their customers with invaluable
information about how water is used and how usage might be reduced through specific
conservation strategies.

Audits of large-volume users. Utilities can facilitate water audits for large-volume users,
both commercial and industrial.  Water audits should begin by identifying the categories of
water use for the large-volume user.  These may include process, sanitary, domestic, heating,
cooling, outdoor, and other water uses. Second, a water audit should identify areas in which
overall water use efficiency can be improved through alternative technologies or practices.

Large-landscape audits. Water audits can be used for outdoor usage, as well as for indoor
processes.  Audits of irrigation practices can provide large-volume commercial, industrial,
and public users with information about usage and usage-reduction techniques.  These audits
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 USEPA Water Conservation Plan Guidelines
Appendix A
 can be used in conjunction with irrigation submetering and other landscaping efficiency
 practices.

 Selective end-use audits.  Water audits can be widened to include selective end-use audits by
 customer class, focusing on typical water-use practices within each class. An audit program
 can be selective in terms of targeting customer groups that have particular needs or for which
 water conservation could be particularly beneficial. Audits targeted to older housing, for
 example, can be particularly beneficial in terms of identifying and fixing plumbing leaks.

 End-use audits also can be tailored to the usage practices within user groups.  For example,
 residential water audits may focus on plumbing fixtures, lawn and garden water practices, and
 customer behavior. Residential water audits can be used to make immediate repairs and
 retrofits. Worksheet A-6 summarizes the components of a residential water audit.  All water
 audits should include a written report to the customer that  includes specific ideas for
 conservation. Water audits can be planned and implemented in conjunction with electric
 power companies or others interested in promoting conservation practices.
Retrofits [A]
Measures
Retrofits [A]
f



v

<— Basic Guidelines 	 >


• Retrofit kits available •
• Distribution of retrofit kits
• Targeted programs
Water systems can promote conservation through a retrofit program. Retrofitting involves
making an improvement to an existing fixture or appliance (versus replacement) in order to
increase water-use efficiency. Retrofit programs usually target plumbing fixtures.

Retrofit kits available. A basic retrofit kit may include low-flow faucet aerators, low-flow
showerheads, leak detection tablets, and replacement flapper valves. Retrofit kits may be
made available free or at cost.

Calculating the savings from a retrofit program requires planners to make a number of
assumptions about water use and savings. Some of the assumptions used in retrofitting are:1

    a  Toilets (4-6 flushes per person per day)
    a  Showerheads (5-15 shower-use minutes per person per day)
    a  Bathroom Faucets (.5-3 faucet-use minutes per person per day)
    a  Kitchen Faucets (.5-5 faucet-use minutes per person per day)
1 Duane D. Baumann, John J. Boland, and W. Michael Hanemann, Urban Water Demand Management and
Planning ( New York: McGraw Hill, 1998): 254.
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Many useful textbooks and manuals are available to help planners estimate typical water use
and potential savings from retrofits (See Appendixes B and D.)

Distribution of retrofit kits. Water systems can actively distribute retrofit kits directly or
through community organizations. Retrofit kits also can be distributed in conjunction with
audit programs.

Targeted programs.  Utilities might institute targeted programs for different customer classes
(residential, commercial, industrial, public buildings, and so on). Retrofits of industrial
premises can include facilities used by the public and employees, as well as facilities used for
production purposes. A program to retrofit low-income housing units may conserve
considerable water in older residential housing units with inefficient plumbing fixtures.
Targeted programs also could be designed in cooperation with community organizations.  An
active retrofit program might be part of a residential water-use audit program. It is important
that planners ensure that retrofit programs conform to local plumbing codes and ordinances.
Pressure Management [A]
Measures
Pressure
management [A]

	 /\uvaiiucu uuiuuiiuvs 	 r
4- Basic Guidelines 	 >


• Systemwide pressure
management
• Selective use of pressure-
reducing valves
Reducing excessive pressures in the distribution system can save a significant quantity of
water. Reducing water pressure can decrease leakage, amount of flow through open faucets,
and stresses on pipes and joints which may result in leaks.  Lower water pressure may also
decrease system deterioration, reducing the need for repairs and extending the life of existing
facilities. Furthermore, lower pressures can help reduce wear on end-use fixtures and
appliances.

Systemwide pressure management. For residential areas, pressures exceeding 80 psi should
be assessed for reduction.  Pressure management and reduction strategies must be consistent
with state and local regulations and standards, as well as take into account system conditions
and needs. Obviously, reductions in pressure should not compromise the integrity of the
water system or  service quality for customers.

Pressure-reducing valves.  A more aggressive plan may include the purchase and installation
of pressure-reducing valves in street mains, as well as individual buildings. Utilities might
also insert flow restrictors on services at the meter. Restrictors can be sized to allow for
service length, system pressure, and site elevation. Utilities can consider providing technical
assistance to customers to address their pressure problems and install pressure-reducing
valves to lower the customers' water pressure.  This may be especially beneficial for large-use
customers.
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 Landscape Efficiency [P]
Measures
Landscape
efficiency [P]


<- Basic Guidelines 	 »


• Promotion of landscape
efficiency
• Selective irrigation submetering
• Landscape planning and
renovation
• Irrigation management
 Outdoor water usage drives maximum-day demand, which in turn drives requirements for
 transmission and treatment facilities.  Reducing outdoor usage can thus be a very effective
 conservation strategy.  Outdoor water use can be reduced through efficiency-oriented
 landscaping principles.

 Promotion of landscape efficiency. Utilities can promote the development of water
 conserving principles into the planning, development and management of new landscape
 projects such as public parks, building grounds, and golf courses. Utilities can also promote
 low water-use landscaping by residential and nonresidential customers, especially those with
 large properties. Utilities can cooperate with local nurseries to ensure the availability of water
 conserving plants.

 Water systems may promote Xeriscaping™, an efficiency-oriented approach to landscaping
 that encompasses seven essential principles:

       a  Planning and design
       a  Limited turf areas
       a  Efficient irrigation
       a  Soil improvement
       a  Mulching
       a  Use of lower water demand plants
       a  Appropriate maintenance

Selective irrigation submetering.  Selective submetering for irrigation water can be used to
improve irrigation management, as well as to introduce irrigation pricing.

Landscape planning and renovation. Existing landscapes can be renovated to incorporate
water-conserving practices. Public parks, for example, could be managed to incorporate
water-efficient landscaping and reduce or eliminate irrigation. Utilities can work with
commercial and industrial customers to plan and renovate landscaping in accordance with
water conserving practices.

Irrigation management. Irrigation management systems, using metering, timing, and water-
sensing devices, also can be promoted by the water utility for large-volume customers.
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Level 3 Measures

Replacements and Promotions [B]
Measures
Replacements and
promotions [B]
< 	 : 	 Advanced Guidelines 	
<- Basic Guidelines 	 >

• Rebates and incentives
[nonresidential]
• Rebates and incentives
[residential]
• Promotion of new technologies
Rebates and incentives. In order to accelerate the replacements of older fixtures, utilities can
offer rebates and other incentives. Utilities can install water-efficient fixtures by providing
fixtures at no cost, giving a rebate for consumer purchased fixtures, or arranging suppliers to
provide fixtures at a reduced price. Utilities can design incentive rebate programs that are
targeted to the nonresidential and residential sectors, and to indoor and outdoor uses.

The feasibility and effectiveness of replacements may depend on state and local plumbing
codes. A program to accelerate replacements, coupled with high-efficiency standards, can
yield substantial water savings.

Promotion of new technologies.  Utilities also can get involved with promoting new
technologies by manufacturers and distributors of fixtures and appliances. Demonstrations
and pilot programs, and even contests, can be used to introduce and promote new products
(such as high-efficiency washing machines).
 Reuse and Recycling [B]
Measures
Reuse and
recycling [B]
< 	 	 	 Advanced Guidelines 	
<— Basic Guidelines 	 >

• Industrial applications
• Large-volume irrigation
applications
• Selective residential
applications
 Industrial applications. An alternative water source for some systems is "graywater," or
 treated wastewater for nonpotable water uses. Water reuse and recycling practices reduce
 production demands on the water system. Water utilities should work with their
 nonresidential customers to identify potential areas for reuse or recycling. Some industries
 can substantially reduce water demand through water reuse (or multiple use) in manufacturing
 processes. Recycled wastewater can be used for some industrial purposes, agricultural
 purposes, groundwater recharge, and direct reuse.
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                                                                              Appendix A
 Large-volume irrigation applications.  Reuse and recycling can be encouraged for large-
 volume irrigation.

 Selective residential applications. In some areas, reuse and recycling can be used in
 residential applications. Water systems will need to check with local plumbing codes and
 ordinances for possible conditions and restrictions.
 Water-Use Regulation [B]
Measures
Water-use
regulation [B]






<— Basic Guidelines 	 »
• Water-use standards and
regulations
• Requirements for new
developments
 Water-use standards and regulations. Regulations should be in place to manage water use
 during droughts or other water-supply emergencies. In some cases, utilities may find it
 desirable to extend water-use regulations to promote conservation during nonemergency
 situations. Examples of water-use regulations are:

    a  Restrictions on nonessential uses, such as lawn watering, car washing, filling
       swimming pools, washing sidewalks, and irrigating golf courses.
    a  Restrictions on commercial car washes, nurseries, hotels, and restaurants.
    a  Standards for water-using fixtures and appliances (in addition to the federal efficiency
       standards, which can be found at the end of this Appendix).
    a  Bans or restrictions on once-through cooling.
    a  Bans on non-recirculating car washes, laundries, and decorative fountains.
    a  Bans on certain types of water use or practice.

Requirements for new developments. Another type of regulation is to impose standards on
new developments with regard to landscaping, drainage, and irrigation practices.

Many water systems, including privately owned systems, lack authority to implement this
measure. Systems that have such authority must exercise it carefully. In general, restrictions
on water use should be justified by the system's circumstances and should not unduly
compromise the customer's rights or quality of service.
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Integrated Resource Management [B]
Measures
Integrated resource
management [B]




«- Basic Guidelines- 	 >
• Supply-side technologies
• Demand-side technologies
Supply-side technologies. The idea of integrated resource management is that water often is
used jointly with other resources. Systems following the Advanced Guidelines might have
opportunities to consider and implement measures that can accomplish integrated resource
management, where water conservation is jointly accomplished with the conservation of other
resources.  On the supply-side, the utility can institute operating practices (including various
automation methods, strategic use of storage, and other practices) that achieve energy,
chemical, and water savings. Source-water protection strategies, including land-use
management methods, can be used to conserve water resources and avoid costly new supplies.
Water and wastewater utilities can jointly plan and implement conservation programs to
realize savings and share in the benefits.

Demand-side technologies.  Integrative practices also can be accomplished on the demand
side.  Water and energy utilities can conduct comprehensive end-use audits  and jointly
promote conservation practices by end-users. Large-volume users can work with the utility to
make adjustments to processes that reduce water and energy usage and wastewater flows,
while saving other resources as well.  Utilities that provide wholesale water can work with
wholesale customers to design a water conservation program that will be mutually beneficial.
                                          155

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  USEPA Water Conservation Plan Guidelines
                                                                                    Appendix A
 Worksheet A-1:  Metering
 A. BASIC GUIDELINES
 Source metering
 What percentage of source withdrawals is metered?

 Connection metering
 Percent of connections metered bv customer class:
 Residential
 Industrial
 Commercial
 Public
 Other
                                                    Percentage of meters that are outdoors:
Number of meters needed:
Residential     	
Industrial       	
Commercial     	
Public         	
Other
                                                    Estimated cost/meter     Estimated total cost
 B. INTERMEDIATE GUIDELINES [Basic Guidelines above plus the following]	

                                                    Billing frequency        Estimated bills/year
Frequency of meter reading
Residential      	
Industrial       	
Commercial     	
Public          	
Other
Are authorized uses of nonaccount water metered?
Schedule for testing source water meters:

Schedule for testing connection meters: _

Are meters correctly sized? 	
C.  ADVANCED GUIDELINES [Basic and Intermediate Guidelines above plus the following]

Describe the systems' program to test, calibrate, repair, and replace meters (including schedules): 	
                                             156

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USEPA Water Conservation Plan Guidelines
                             Appendix A
                               Total Water Produced
                           Adjusted for source-meter accuracy and
                               source and transmission losses
         Account Water
      Water metered and billed to
   residential, commercial, industrial,
      and public sector customers
     Nonaccount Water
Metered and unmetered uses and losses
      not billed to customers
    Metered and Accounted-for
           but not Billed
         Selected public-use water
    Other water metered but not billed to
               customers
          Unmetered Water
            Not metered or billed
                      Authorized Uses
                    Operation and maintenance
                     Selected public-use water
            Unauthorized Uses
               Identifiable Unauthorized Uses
                     Accounting procedure errors
               Malfunctioning distribution system controls
                     Illegal connections and theft
                         Meter inaccuracy
                   Avoidable and unavoidable leaks
                 Unaccounted-
                    for Water
                Water losses and leaks
                  not accounted for
                       Figure A-1.  Water Accounting System
                                           157

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 USEPA Water Conservation Plan Guidelines
                                                                                          Appendix A
 Worksheet A-2:  Water Accounting and Loss Control
 Line
 2A
 2B
 2C
 2D
 5A
 SB
 5C
 5D
 5E
 10
 II
 11A
 11B
 12
 12A
 12B
 12C
 13
 ISA
 13B
 13C
 13D
 13E
 14
 14A
 14B
 14C
15
16
17
17A
17B
17C
17D
17E
17F
18
19
 Item
Volume
 gallons)
        Total Source Withdrawals and Purchases
  %of
Amount
in Line 1
        Adjustments to source water supply [a]
 Adjustment for source meter error (+ or -)
 Adjustment for change in reservoir or tank storage (+ or -)
 Adjustment for transmission line losses (-) [a]
 Adjustments for other source contributions or losses (+ or -) [a]
        Total adjustments to source water (add lines 2A through 2D))
        Adjusted Source Water (subtract line 3 from line 1)
        Metered Water Sales
 Metered residential sales
 Metered commercial sales
 Metered industrial sales
 Metered public sales
 Other metered sales
        Total metered sales (add lines 5A through 5D)
        Adjustment for meter reading lag time (+ or -)
        Adjustment for meter errors (+ or -) [a]
        Adjusted total meter sales (add lines 6 through 8)
 Nonaccount Water (subtract line 9 from line 4)
 Metered and accounted-for but not billed
 Public-use water metered but not billed
 Other water metered but not billed
Authorized unmetered water: operation and maintenance
Main flushing
Process water at treatment plant
Water quality and other testing
Authorized unmetered-water: public use
 Storm drain flushing
 Sewer cleaning
Street cleaning
Landscaping in large public areas
Firefighting, training, and related maintenance
Other authorized unmetered use
Swimming pools
Construction sites
Other unmetered uses
Total authorized unmetered water (add lines 11A through 14C)
Total Unauthorized Losses (subtract line IS from line 10)
Identifiable water losses and leaks
Accounting procedure errors [a]
Malfunctioning distribution system controls
Illegal connections and theft
Vfeter inaccuracy
Unavoidable water leaks
Avoidable water leaks
Total identifiable water losses and leaks (add lines 17A through 17F)
LJnaccounted-For Water (subtract line 18 from line 16)
[a] Methodology subject to industry and regulatory standards.
                                                158

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USEPA Water Conservation Plan Guidelines
Appendix A
Worksheet A-3: Strategies for Reducing Water Losses
A. TRANSMISSION LOSSES                      	
Describe strategy for reducing transmission line losses:
Estimated annual water savings:
B. NONACCOUNT WATER
Describe strategy for reducing authorized unmetered uses:
Estimated annual water savings:
C. LOSSES AND LEAKS
Describe strategy for reducing identifiable leaks:
Estimated annual water savings:
D. UNACCOUNTED-FOR WATER
Describe strategy for reducing unaccounted-for water;
 Estimated annual water savings:
                                      159

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 USEPA Water Conservation Plan Guidelines
                                                                  Appendix A
 Worksheet A-4: Evaluating Effects of Water Rate Changes
Line
1
2
3
4
5
6
7
8
9
10
11
12
13
14
Item
Current price per gallon
Current revenue-producing gallons (or cubic feet)
Current annual revenues (line 1 multiplied by line 2)
Conservation goal (reduction in water use)
Conservation goal as percentage of current annual revenue-producing
gallons (line 4 divided by Iine2)
Estimate price elasticity of demand (by customer class and/or type of
use if applicable)
Percentage change in price needed to induce conservation (line 5
divided by line 6)
Calculate revised price level (line 1 multiplied by (1.00 plus line 7))
Revised annual water usage (line 1 less line 4)
Revised revenues (line 8 multiplied by line 9)
Annualized fixed costs
Annual variable costs for revised water usage
Revised revenue requirements
Net revenue effect (line 10 less line 13)
Value
$

$


gallons

gallons
%
%
%
$

$
gallons

$
$
$
$
Note: Prepare for each customer class to the extent feasible.
                                   160

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USEPA. Water Conservation Plan Guidelines
Appendix A
Worksheet A-5:  Checklist for Information and Education
BASIC GUIDELINES
Understandable water bill
Understandable information about water rates and usage
Information available
Pamphlet on basic home water conservation practices
Pamphlet on plumbing retrofits and replacements

Pamphlet on summer lawn watering and conservation landscaping
      a
      a
      a
INTERMEDIATE GUIDELINES [Basic Guidelines above plus the following]	0_

Informative water bill	..       	

Compare to past usage (previous month, same period previous year)                                 d

Flag unusually high recorded uses and notify customers                                            O

Information tailored to customer class                                                          O


Water-bill inserts
Information on the cost and value of water

Basic water conservation tips
Information on conservation programs


School program	
      a
      a
      n
Visit classrooms
Distribute curriculum materials, such as worksheets and coloring books

Show short information films or slide shows
Field trips to water system facilities
Contests and recognition for posters, ideas, etc.


Public-education program	
      n
      n
      n
      n
      n
Press releases, public space advertising, and public service announcements (various media)
Conservation information centers and mobile information booths
Speakers bureau, films, and slide shows for community organizations
Coordination with civic and professional organization resources
Special events, such as water conservation fairs
Displays at home shows, garden shows, fairs, libraries, and town halls
Cooperation with retail plumbing to promote conservation

Recognize conserving businesses and industries	
      n
      n
      n
      n
      n
      n
      a
      a
ADVANCED GUIDELINES [Basic and Intermediate Guidelines above plus the following]	0_

Workshops          	^^^^^^^^^^^^^^^^^^
Workshops for plumbers, plumbing fixture suppliers, and builders
Workshops for landscape and irrigation service providers


Advisory committee	
      n
      n
Creation of a public advisory committee
                                              161

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 USEPA Water Conservation Plan Guidelines
                Appendix A
 Worksheet A-6: Checklist for a Residential Water Audit
 Service Meter
   Calibration/flow test
   Leak test
   Report findings to maintenance personnel

 Kitchen
        n
        n
        n
  Check faucet flow rate
  Offer to install aerator or flow restrictor
  Check for drips and leaks

 Bath
        a
        a
        a
        0
 Shower
  Check showerhead flow rate
  Offer to install low-flow showerhead or flow restrictor
  Check for drips and leaks

 Sinks
  Check faucet flow rate
  Offer to install aerator or flow restrictor
  Check for drips and leaks

 Toilets
  Check for leaks (dye test)
  Clean or replace flapper
  Check the adjustment of the float arm
  Offer to install retrofit devices
  Provide information on available rebates

 Outside Water Use (Irrigation Season)
       n
       n
       n
       n
       o
       n
       n
       a
       a
       a
       a
       0
Measure the flow rate of sprinklers
Check for leaks in the sprinkler, hose, or sprinkler system
Check the position of sprinklers
Instruct homeowner on efficient water techniques
Recommend a watering schedule based on:
  • Any water restrictions imposed by local government
  • Best time of day for watering
  • Frequency of watering
  • Length of time for watering
Provide information about water-efficient landscaping practices
       a
       a
       a
       a
       a
a
a
a
a
Source:  Adapted from American Water Works Association, Pacific Northwest Section, Water
Conservation Guidebook for Small and Medium-Sized Utilities (August 1993). Appendix B.
                                          162

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USEPA Water Conservation Plan Guidelines
Appendix B
APPENDIX B
BENCHMARKS USED IN CONSERVATION PLANNING
Table B-l:  Recent Estimates of Indoor Water Use With and
Without Conservation

Type of Use
Toilets
Clothes washers
Showers
Faucets
Leaks
Baths
Dish washers
Total indoor water use
Without conservation
Amount
(gpcd)
18.3
14.9
12.2
10.3
6.6
1.2
1.1
64.6
Percent of
total
28.4%
23.1%
18.8%
16.0%
10.2%
1.9%
1.6%
100%
With conservation
Amount
(gpcd)
10.4
10.5
10.0
10.0
1.5
1.2
1.1
44.7
Percent of
total
23.2%
23.4%
22.4%
22.5%
3.4%
2.7%
2.4%
100%
Savings
44%
30%
18%
2%
77%
0%
0%
31%
Source: AWWA WaterWiser, "Household End Use of Water Without and With Conservation, " 1997
Residential Water Use Summary - Typical Single Family Home
(http://www.waterwiser.org/wateruse/tables.html).

gpcd = gallons per capita per day

Note: These data are provided for illustrative purposes only and may not be applicable to a given situation. T
the extent practical, planners use systems-specific assumptions and estimates.
                                 163

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 USEPA Water Conservation Plan Guidelines
                                                  Appendix B
 Table B-2:   Benchmarks for Estimating Residential End Uses
 of Water
Type of use
Units
Likely range of
average values
INDOOR USES
Average household size | Persons
2.0-3.0
Frequency of toilet flushing
Flushing volumes
Fraction of leaking toilets
Flushes/person/day
Gallons/flush
Percent
4.0-6.0
1.6-8.0
0-30
Showering frequency
Duration of average shower
Shower flow rates
Showers/person/day
Minutes
Gallons/minute
0-1.0
5-15
1.5-5.0
Bathing frequency
Volume of water
Baths/person/day
Gallons/cycle
0-0.2
30-50

Washing machine use
Volume of water
Loads/person/day
Gallons/cycle
0.2-0.5
45-50

Dishwasher use
Volume of water
Loads/person/day
Gallons/cycle
0.1-0.3
10-15

Kitchen faucet use
Faucet flow rates
Minutes/person/day
Gallons/minute
0.5-5.0
2.0-3.0

Bathroom faucet use
Faucet flow rates
Minutes/person/day
Gallons/minute
0.5-3.0
2.0-3.0

OUTDOOR USES
Average lot size[a]
Average house size[a]
Landscape area[a]
Fraction of lot size in turf[a]
Water application ratesfa]
Square feet
Square feet
Square feet
Percent
Feet/year
5000-8000
1200-2500
4000-5000
30-50
1-5
Percent of homes with pools
Pool evaporation losses
Frequency of refilling pools
Percent
Feet/year
Times per year
10-25
3-7
1-2
Frequency of car washing
1
Times/month
1-2
Source: Duane D. Baumann, John J. Boland, and W. Michael Hanemann, Urban Water Demand Management
and Planning (New York: McGraw Hill, 1998), 254.

[a] Reflects single-family averages.

Note: These data are provided for illustrative purposes only and may not be current or applicable.  To the extent
practical, planners should regionally appropriate or system-specific assumptions and estimates.
                                         164

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USEPA Water Conservation Plan Guidelines
                                                                        Appendix B
Table B-3:   Sample Calculation of Water Savings from
Showerhead Replacement	

The following calculations represent the water savings expected as the result of a showerhead
retrofit program. The savings rate represents a difference in average winter water use
between homes with low-flow showerheads and homes without low-flow showerheads.
       Nonconserving showerhead flow rate = 3.4 gallons/minute
       Low-flow showerhead flow rate =1.9 gallons/minute
       Estimated showering time = 4.8 minutes/person/day
       Average winter household water use = 200 gallons per household per day
       Average household size = 2.5 persons
       Water use with nonconserving showerhead = (3.4 gal/min) X (4.8 min/person/day) = 16.3 gpcd
       Water use with low-flow showerhead = (3.4 gal/min) x (4.8 min/person/day) = 9.1 gpcd
       Water savings = 16.3 gpcd - 9.1 gpcd = 7.2 gpcd
a
o
At an average household size of 2.5 persons, the savings rate would be 18.0 gallons per
household per day (2.5 persons x 7.2 GPCD).  The formula for calculating the reduction
factors representing the fraction of, for example, single-family winter water use is

R = (18.0 GPHD)/(200 GPHD during whiter) = 0.09 (or 9 percent)
Source: Duane D. Baumann, John J. Boland, and W. Michael Hanemann, Urban Water Demand
Management and Planning (New York: McGraw Hill, 1998): 255.

Note: These data are provided for illustrative purposes only and may not be current or applicable.  To the extent
practical, planners should regionally appropriate or system-specific assumptions and estimates.
                                         165

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 USEPA Water Conservation Plan Guidelines
Appendix B
 Table B-4:  Benchmarks for Savings from Selected
 Conservation Measures
Category
Measure
Reduction in
end use
Life span
(years)
 LEVEL 1 MEASURES
Universal metering
Water accounting and loss control
Costing and pricing
Information and education
Connection metering
Submetering
System audits and leak detection
10% increase in residential prices
10% increase in nonresidential prices
Increasing-block rate
Public education and behavior changes
20 percent
20 to 40 percent
Based on system
2 to 4 percent
5 to 8 percent
5 percent
2 to 5 percent
8 to 20
8 to 20
na
na
na
na
na
LEVEL 2 MEASURES
End-use audits
Retrofits
Pressure management
Outdoor water-use efficiency
General industrial water conservation
Outdoor residential use
Large landscape water audits
Toilet tank displacement devices (for
toilets using > 3.5 gallons/flush)
Toilet retrofit
Showerhead retrofit (aerator)
Faucet retrofit (aerator)
Fixture leak repair
Governmental buildings (indoors)
Pressure reduction, system
Pressure-reducing valves, residential
Low water-use plants
Lawn watering guides
Large landscape management
Irrigation timer
10 to 20 percent
5 to 10 percent
10 to 20 percent
2 to 3 gpcd
8 to 14 gpcd
4 gpcd
5 gpcd
0.5 gpcd
5 percent
3 to 6 percent of
total production
5 to 30 percent
7.5 percent
15 to 20 percent
10 to 25 percent
10 gpcd
na
na
na
1.5
1.5
1 to 3
1 to 3
1
na
na
na
10
na
na
4
LEVEL 3 MEASURES
Replacements and promotions
Reuse and recycling
Water-use regulation
Integrated resource management
Toilet replacement, residential
Toilet replacement, commercial
Showerhead replacement
Faucet replacement
Clothes washers, residential
Dishwashers, residential
Hot water demand units
Cooling tower program
Landscape requirements for new
developments
Graywater reuse, residential
Planning and management
16 to 20 gpcd
16 to 20 gpcd
8.1 gpcd
6.4 gpcd
4 to 12 gpcd
1 gpcd
10 gpcd
Up to 90 percent
10 to 20 percent
in sector
20 to 30 gpcd
Energy, chemical,
and wastewater
treatment costs
15 to 25
10 to 20
2 to 10
10 to 20
12
12
na
na
na
na
na
Source: Compiled from various sources. Actual water savings can vary substantially according to a number of
factors. These data are provided for illustrative purposes only and may not be current or applicable.  To the
extent practical, planners should regionally appropriate or system-specific assumptions and estimates.
na = not available
                                       166

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USEPA. Water Conservation Plan Guidelines
                         Appendix B
 Table B-5:   Water Efficiency Standards Established by The
 Energy Policy Act of 1992	
  Faucets.  The maximum water use allowed by any of the following faucets manufactured after
  January 1, 1994, when measured at a flowing water pressure of 80 pounds per square inch, is as
  follows:
  Faucet type
     Maximum flow rate
(gallons per minute or per cycle)
  Lavatory faucets
  Lavatory replacement aerators
  Kitchen faucets
  Kitchen replacement aerators
  Metering faucets
          2.5 gpm
          2.5 gpm
          2.5 gpm
          2.5 gpm
          0.25 gpc
  Showerheads. The maximum water use allowed for any showerhead manufactured after January 1,
  1994, is 2.5 gallons per minute when measured at a flowing pressure of 80 pounds per square inch.

  Water Closets. (1) The maximum water use allowed in gallons per flush for any of the following
  water closets manufactured after January 1,1994, is as follows:
  Water closet type
     Maximum flush rate
      (gallons per flush)
  Gravity tank-type toilets
  Flushometer tank toilets
  Electromechanical hydraulic toilets
  Blowout toilets
           1.6gpf
           1.6gpf
           1.6gpf
           3.5 gpf
  (2) The maximum water use allowed for any gravity tank-type white two-piece toilet which bears an
  adhesive label conspicuous upon installation of the words "Commercial Use Only" manufactured
  after January 1, 1994 and before January 1, 1997, is 3.5 gallons per flush.

  (3) The maximum water use allowed for flushometer valve toilets, other than blowout toilets,
  manufactured after January 1, 1997, is 1.6 gallons per flush.

  Urinals. The maximum water use allowed for any urinals manufactured after January 1, 1994, is 1.0
  gallons per flush.


Note: These standards were developed in 1992. New and emerging technologies can increase the cost
effectiveness of conservation measures, affect demand forecasts, and eventually lead to the establishment of new
standards.
                                           167

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 USEPA Water Conservation Plan Guidelines
Appendix B
 Table B-6:  Potential Water Savings From Efficient Fixtures
Fixture [a]
Fixture capacity [b]
Water use (gpd)
Per capita
2.7-person
household
Water savings (gpd)
Per capita
2.7-person
household
Toilets fc|
Efficient
Low-flow
Conventional
Conventional
1.5 gallons/flush
3.5 gallons/flush
5.5 gallons/flush
7.0 gallons/flush
6.0
14.0
22.0
28.0
16.2
37.8
59.4
75.6
na
8.0
16.0
22.0
na
21.6
43.2
59.4
Showerheads fd|
Efficient
Low-flow
Conventional
2.5 [1.7] gal/min
3.0 to 5.0 [2.6] gal/min
5.0 to 8.0 [3.4] gal/min
8.2
12.5
16.3
22.1
33.8
44.0
na
4.3
8.1
na
11.7
22.0
Faucets [e]
Efficient
Low-flow
Conventional
2.5 [1.7] gal/min
3.0 [2.0] gal/min
3.0 to 7.0 [3.3] gal/min
6.8
8.0
13.2
18.4
21.6
36.6
na
1.2
6.4
na
3.2
17.2
Toilets, Showerheads, and Faucets Combined
Efficient
Low-flow
Conventional
Not applicable
Not applicable
Not applicable
21.0
34.5
54.5
56.7
93.2
147.2
na
13.4
33.5
na
36.4
90.4
Source: Amy Vickers, "Water Use Efficiency Standards for Plumbing Fixtures: Benefits of National
Legislation," American Water Works Association Journal. Vol. 82 (May 1990): 53.

na = not applicable
[a]  Efficient = post-1994
    Low-flow = post-1980
    Conventional = pre-1980
[b]  For Showerheads and faucets: maximum rated fixture capacity (measured fixture capacity). Measured
    fixture capacity equals about two-thirds the maximum.
[c]  Assumes four flushes per person per day; does not include losses through leakage.
[d]  Assumes 4.8 shower-use-minutes per person per day.
[e]  Assumes 4.0 faucet-use-minutes per person per day.
                                           168

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\JSEPA. Water Conservation Plan Guidelines
Appendix C
APPENDIX C
ACRONYMS AND GLOSSARY
Acronyms

AWWA     American Water Works Association
BAT        Best available technology
BMP        Best management practice
BuRec       United States Bureau of Reclamation
DOI        United States Department of the Interior
DSM        Demand-side management
EPA        United States Environmental Protection Agency
gpcd        Gallons per capita per day
gpf         Gallons per flush
gpm        Gallons per minute
IRP         Integrated resource plan (or planning)
mgd        Million gallons per day
MOU       Memorandum of understanding
NAWC      National Association of Water Companies
SRF        State Revolving Fund
SDWA      Safe Drinking Water Act
ULFT       Ultra-low-flush toilet
                                    169

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  USEPA Water Conservation Plan Guidelines
                                                                              Appendix C
  Glossary
  appropriation. The right to withdraw
  water from its source.

  audit (end-use).  A systematic accounting
  of water uses by end users (residential,
  commercial, or industrial), often used to
  identity potential areas for water reduction,
  conservation, or efficiency improvement.

  audit (system).  A systematic accounting
  of water throughout the production,
  transmission, and distribution facilities of
  the system.

  available supply.  The maximum amount
  of reliable water supply, including surface
  water, groundwater, and purchases under
  secure contracts.

  average-day demand.  A water system's
 average daily use based on total annual
 water production (total annual gallons or
 cubic feet divided by 365); multiple years
 can be used to account for yearly
 variations.

 avoided cost. The savings associated with
 undertaking a given activity (such as
 demand management) instead of an
 alternative means of achieving the same
 results (such as adding supply); can be
 used to establish the least-cost means of
 achieving a specified goal. Can be
 measured in terms of incremental cost.

 baseline. An established value or trend
 used for comparison when conditions are
 altered, as in the introduction  of water
 conservation measures.

 beneficial use. A use of water resources
that benefits people or nature.  State law
may define beneficial use.
  benefit-cost analysis.  A comparison of
  total benefits to total costs, usually
  expressed in monetary terms, used to
  measure efficiency and evaluate
  alternatives. See also cost-effectiveness
  and avoided-cost.

  best management practice. A measure or
  activity that is beneficial, empirically
  proven, cost-effective, and widely accepted
  in the professional community.

  block. A quantity of water for which a
 price per unit of water (or billing rate) is
  established.

 budget (water-use).  An accounting of
 total water use or projected water use for a
 given location or activity.

 capital facilities. Physical facilities used
 in the production, transmission, and
 distribution of water.

 commodity charge.  See variable charge.

 community water system. According to
 the SDWA, a drinking water conveyance
 system serving at least 15 service
 connections used by year-round residents
 of the area served by the system or
 regularly serving at least 25 year-round
 residents.

 conservation (water).  Any beneficial
 reduction in water losses, waste, or use.

 conservation pricing.  Water rate
 structures that help achieve beneficial
reductions in water usage. See
nonpromotional rates.
                                         170

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UST1P A. Water Conservation Plan Guidelines
                               Appendix C
consumptive use. Use that permanently
withdraws water from its source.

cost-effectiveness.  A comparison of costs
required for achieving the same benefit by
different means. Costs are usually
expressed in dollars, but benefits can be
expressed in another unit (such as a
quantity of water).  See net benefits.

customer class. A group of customers
(residential, commercial, industrial,
wholesale, and so on) defined by similar
costs of service or patterns of water usage.

decreasing-block (or declining-block)
rate. A pricing structure for which the
dollar amount charged per unit of water
(such as dollars per gallon) decreases with
the amount water usage.

demand forecast.  A projection of future
demand that can be made on a systemwide
or customer-class basis.

demand management. Measures,
practices, or incentives deployed by water
utilities to permanently reduce the level or
change the pattern of demand for a utility
service.

demographic. Having to do with
population or socioeconomic conditions.

discount rate.  A percentage that is used
to adjust a forecast of expenditures to
account for the time value of money or
opportunity costs; it can be based on the
utility's cost of capital.

distribution facilities. Pipes, treatment,
storage and other facilities used to
distribute drinking water to end users.
drought.  A sustained period of inadequate
or subnormal precipitation that can lead to
water supply shortages, as well as
increased water usage.

end use. Fixtures, appliances, and
activities that use water.

end user.  Residential, commercial,
industrial, governmental, or institutional
water consumer.

escalation rate. A percentage that is used
to adjust a forecast of expenditures to
account for the increasing value of a good
or service over time (apart from the
discount rate and inflationary effects).

evapotranspiration. Water losses from
the surface of soils and plants.

fixed charge.  The portion of a water bill
that does not vary with water usage.

fixed costs. Costs associated with water
service that do not vary with the amount of
water produced or sold.

graywater. Treated wastewater used for
nonpotable purposes, such as irrigation.

increasing-block (or inclining-block)
rate. A pricing structure for which the
dollar amount charged per unit of water
(such as dollars per gallon) increases with
the amount water usage.

incremental cost.  The additional cost
associated with adding an increment of
capacity.

instream flow. River and stream waters
that maintain stream quality, aquatic life,
and recreational opportunities.
                                           171'

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  USEPA Water Conservation Plan Guidelines
                                                                             Appendix C
  integrated resource planning. An open
  and participatory planning process
  emphasizing least-cost principles and a
  balanced consideration of supply and
  demand management options for meeting
  water needs.

  investor-owned utility.  A private utility
  owned by investors and typically regulated
  by a state public utility commission.

  irrigation scheduling. An automated
  method for optimizing outdoor water use
  by matching the watering schedule to plant
  needs.

  large-volume user. A water customer,
  usually industrial or wholesale, whose
  usage is substantial relative to other users;
  large-volume users may present unique
 peaking or other demand characteristics.

 leak detection.  Methods for identifying
 water leakage in pipes and fittings.

 life span. The expected useful life of a
 supply-side or demand-side project,
 measure, or practice.  (The life span may
 not be identical to useful life for tax
 purposes.)

 load management. Methods for
 managing levels and patterns of usage in
 order to optimize system resources and
 facilities.

 losses (water). Metered source water less
 revenue-producing water and authorized
 unmetered water uses.

 low water-use landscaping. Use of plant
 materials that are appropriate to an area's
 climate and growing conditions (usually
native and adaptive plants). See
Xeriscape.™
  market penetration. The extent to which
  an activity or measure is actually
  implemented compared to all potential
  uses or markets.

  marginal-cost pricing. A method of rate
  design where prices reflect the costs
  associated with producing the next
  increment of supply.

  master metering.  A large meter at a point
  of distribution to multiple uses or users
  that could be further submetered. Includes
  metered wholesale sales.

  maximum-day demand.  Total production
  for the water system on its highest  day of
 production during a year.

 meter.  An instrument for measuring and
 recording water volume.

 mixed-use meter.  A meter measuring
 water use for more than one type of end
 use (such as indoor and  outdoor use).

 needle peaks.  Persistent levels of peak
 demand that drive the capacity needs of a
 water system despite reductions in average
 demand.

 net benefits. The numerical difference
 between total benefits and total costs, both
 of which must be expressed in the same
 unit (usually dollars). See  cost-
 effectiveness.

 net present value. The present value of
 benefits less the present value  of costs.

 nominal dollars. Forecast dollars that are
not adjusted for inflation.

nonaccount water.  Metered source water
less metered water sales.
                                         172

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\3SET? A. Water Conservation Plan Guidelines
                              Appendix C
nonconsumptive use. Water withdrawn
and returned to the source.

nonpromotional rates.  Rates that do not
encourage additional consumption by
water users.

nonresidential customer. A commercial
or industrial utility customer.

normalization. Adjustment of a variable
to a "normal" level based on averaging
over an accepted period of time; used in
forecasting.

opportunity cost. The value of a foregone
opportunity that cannot be pursued because
resources are taken up by a chosen activity.

peak demand. The highest point of total
water usage experienced, by a system,
measured on an hourly and on a daily
basis.

per-capita use. Total use divided by the
total population served.

per-capita residential use.  Residential
use divided by the total population served.

precipitation rate (sprinkling). The
surface application rate for landscape
watering, usually expressed in inches per
hour.

present value.  Future expenditures
expressed in current dollars by adjusting
for a discount rate that accounts for
financing costs.

pressure regulator. A post-meter device
used to limit water pressure.

price elasticity of demand.  A measure of
the responsiveness of water usage to
changes in price; measured by the
percentage change in usage divided by the
percentage change in price.

rationing. Mandatory water-use
restrictions sometimes used under drought
or other emergency conditions.

raw water.  Untreated water.

real dollars. Forecast dollars that are
adjusted for inflation.

retrofit.  Replacement of parts in an
existing plumbing fixture or water-using
appliance in order to improve its
operational efficiency.

revenue-producing water. Water
metered and sold.

reuse (water).  Beneficial use of treated
wastewater.

Safe Drinking Water Act (SDWA).
Federal drinking water quality legislation
administered by the U.S. Environmental
Protection Agency (EPA) through state
primacy agencies; amended in 1996.

safe yield. The maximum reliable amount
that can be withdrawn from a source
without compromising quality or quantity,
as defined by hydrological studies; can be
based on acceptable withdrawals during a
critical supply period or drought with a
specific probability of occurrence.

seasonal rate. A pricing structure for
which me^dollar amount charged per unit
of water (such as dollars per gallon) varies
by season of use; higher rates usually are
charged in the season of peak demand.
                                          173

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  USEPA Water Conservation Plan Guidelines
                                                                              Appendix C
  sensitivity analysis. An analysis of
  alternative results based on variations in
  assumptions; a "what if analysis.

  service territory. The geographic area
  served by a water utility.

  source-of-supply. Facilities used to
  extract and/or store raw water prior to
  transmission and distribution.

  source meter.  A meter used to record
  water withdrawn from a surface water or
  groundwater source, or purchased from a
  wholesale supplier.

  State Revolving Fund (SRF). State loan
  funds for water utilities established under
  the Safe Drinking Water Act.

 supply management Measures deployed
 by the utility that improve the efficiency of
 production, transmission, and distribution
 facilities.

 submetering.  Metering for units
 comprising a larger service connection,
 such as apartments in a multifamily
 building.

 surcharge. A special charge on a water
 bill used to send customers a specific
 pricing signal and recover costs associated
 with a particular activity.

 system (water).  A series of
 interconnected conveyance facilities
 owned and operated by a drinking water
 supplier; some utilities operate multiple
 water systems.

 take-or-pay. A contract provision
 obligating a purchaser to pay for a
 commodity whether or not delivery is
taken.
  tariff. The schedule of a utility's rates and
  charges.

  toilet tank displacement device. A
  plastic bag or dam installed in a toilet tank
  to reduce flush volume.  Considered
  effective only for fixtures using more than
  3.5 gallons per flush.

  toilet flapper. Valve in the toilet tank that
  controls flushing.

  transfers (water). Exchange of water
  among willing buyers and sellers.

 transmission facilities.  Pipes used to
 transport raw or treated water to
 distribution facilities.

 treated water. Water treated to meet
 drinking water standards.

 ultra-low-flush toilet. A toilet that uses
 not more than 1.6 gallons per flush.

 unaccounted-for water. The amount of
 nonaccount water less known or estimated
 losses and leaks.

 uniform rate. A pricing structure for
 which the dollar amount charged per unit
 of water (such as dollars per gallon) does
 not vary with the amount of water usage.

 universal metering.  Metering of all
 water-service connections.

 unmetered water. Water delivered but
not measured for accounting and billing
purposes.

user class. See customer class.
                                         174

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\5SEPA Water Conservation Plan Guidelines
Appendix C
variable charge. The portion of a water
bill that varies with water usage; also
known as a commodity charge.

variable cost. Costs associated with water
service that vary with the amount of water
produced or sold.

water right. A property right or legal
claim to withdraw a specified amount of
water in a specified time frame  for a
beneficial use.

watershed. A regional land area, defined
by topography, soil, and drainage
characteristics, within which raw waters
collect and replenish supplies.

weather-adjusted. Water demand,
revenues, or other variables adjusted to a
"normal" weather year; also known as
weather normalization.

wholesale water. Water purchased or sold
for resale purposes.

Xeriscape.™ Landscaping that involves
seven principles: proper planning and
design; soil analysis and improvement;
practical turf areas; appropriate plant
selection; efficient irrigation; mulching;
and appropriate maintenance.
                                           175

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USEPA Water Conservation Plan Guidelines
                                                                                     Appendix C
[blank page]
                                            176

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USEPA. Water Conservation Plan Guidelines
Appendix D
Appendix D
Information Resources
Note: Inclusion on this resource list does not constitute an endorsement by the U.S.
Environmental Protection Agency.

Guides and Handbooks

American Water Works Association. Before the Well Runs Dry. Volume I. A Handbook for
  Designing a Local Water Conservation Plan. Denver, CO: American Water Works
  Association, 1984.

	. Evaluation of State Guidelines: Guidelines for State Water Conservation Plans
  (WITAF Project #559). Denver, CO: American Water Works Association, August 1997.
  Prepared by Maddaus Water Management, et al.

           . Model Guidelines for Water Conservation Plans: Guidance for State Water
   Conservation Plans (WITAF Project #559). Denver, CO: American Water Works
   Association, November 1997. Prepared by Maddaus Water Management, et al.

Baumann, Duane D., John J. Boland, and W. Michael Hanemann. Urban Water Demand
   Management and Planning. New York: McGraw Hill, 1998.

California Department of Water Resources. Urban Drought Guidebook. Sacramento, CA:
   Department of Water Resources, March 1991.

California Urban Water Conservation Council. Memorandum of Understanding Regarding
   Urban Water Conservation in California. Sacramento, CA: California Urban Water
   Conservation Council, as amended April 8, 1998.

California Urban Water Management Planning Act. Established AB797, 1983, Amended AB
   2661, 1990; AB11X, 1991; AB  1869,1991; AB 892,1993; SB 1017,1994; AB 2853,1994;
   AB 1845, 1995; SB 1011, 1995.

Colorado State Office of Water Conservation.  Sample  Water Conservation Plan for Cherry
   Creek Valley Water & Sanitation District. Denver, OWC, not dated. Prepared with
   AquaSan, Network, Inc.

Connecticut Department of Environmental Protection, et al. Water Companies Planning
   Guidance for Water Conservation. Connecticut Department of Environmental Protection,
   Connecticut Department of Health Services, Connecticut Department of Public Utility
   Control, Connecticut Office of Consumer Counsel, Connecticut Office of Policy and
   Management, December 1990.
                                      177

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 USEPA Water Conservation Plan Guidelines
Appendix D
 Dziegielewski, Benedykt, Eva M. Opitz, Michael Hanemann, and David L. Mitchell. Urban
    Water Conservation Programs,  Volume III: Experience and Outlook for Managing Urban
    Water Demands. Carbondale, IL: Planning and Management Consultants, Ltd., 1995.

 Kansas Water Office. Water Conservation Planning Guidelines. Topeka, KS: Kansas Water
    Office, 1986.

           _. Municipal Water Conservation Plan Guidelines. Topeka, KS: Kansas Water
   Office, November 1990.

 Massachusetts Water Resources Commission.  Guidelines for Preparing a Concept Plan for
   the Protection and Management of Water Resource. Boston, MA: Massachusetts Water
   Resources Commission, January 1990.

 	. Water Conservation Standards for the Commonwealth of Massachusetts.
   Boston, MA: Executive Office of Environmental Affairs, Massachusetts Water Resources
   Commission, October 1992.

 New York Department of Environmental Conservation.  Water Conservation Manual for
   Development of a Water Conservation Plan. Albany, NY: Bureau of Water Resources,
   DEC, Division of Water, January 1989.

          _. Water Conservation Program Form. Albany, NY: Bureau of Water Resources,
   DEC, June 29,1989.

Phoenix Water Conservation and Resources Division. Water Conservation Planning Guide.
   Phoenix, AZ: City of Phoenix Water Conservation and Resources Division, November,
   1990.

Ploeser, Jane H., J. Douglas Kobrick, and Betsy A. Henderson. "Non-Residential Water
   Conservation in Phoenix: Promoting the Use of Best Available Technologies," 1990
   Annual Conference Proceedings; American Water Works Association. Denver, CO:
   American Water Works Association, 1990.

Pontius, Frederick W. and Albert E. Warburton. "Conservation Legislation," Journal of the
   American Water Works Association Vol. 33, No. 10 (October 1991): 10-12.

Rhode Island Department of Environmental Management. Rules and Regulations for Water
   Supply Management Planning, Regulation DEM-DWSM-01-92. Providence, RI:
   Department of Environmental Management, Division of Water Supply Management.
   Amended August  13,1992.

Rocky Mountain Institute.  Water Efficiency: A Resource for Utility Managers, Community
   Planners, and Other Decisionmakers. Snowmass,  CO: The Water Program, Rocky
   Mountain Institute, November 1991.
                                       178

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USEPA Water Conservation Plan Guidelines
Appendix D
Shelton, Theodore B. and Susan E. Lance. Designing a Water Conservation Program, An
   Annotated Bibliography of Source Materials. New Brunswick, NJ: Rutgers Cooperative
   Extension, Rutgers University Cook College. U.S. Environmental Protection Agency,
   Office of Water, September 1993.

U.S. Bureau of Reclamation. Achieving Efficient Water Management, A Guidebook for
   Preparing Agricultural Water Conservation Plans.  Washington, DC: Bureau of
   Reclamation, U.S. Department of the Interior, December 1996. Prepared by Hydrosphere
   Resource Consultants. http://209.21.0.235/documents/index.htm

           _. 1996 CVPIA Criteria for Water Management Plans. Washington, DC: Bureau
   of Reclamation, U.S. Department of the Interior, 1996.
   http://209.21.0.235/documents/index.htm

	. CVPIA Water Management Planning Guidebook. Washington, DC: Bureau of
   Reclamation, U.S. Department of the Interior, 1997.
   http://209.21.0.235/documents/index.htm

	.      Reclamation Policy for Administering Water Conservation Plans Pursuant to
   Statutory and Contractual Requirements. Washington, DC: Bureau of Reclamation, U.S.
   Department of the Interior, 1996.

Watson, Montgomery. Water Conservation Guidebook for Small and Medium-Sized Utilities.
   Denver, CO:  American Water Works Association, Pacific Northwest Section Water
   Conservation Committee, August 1993.

Washington State Department of Ecology and Department of Health. Conservation Planning
   Requirements, Guidelines and Requirements for Public Water Systems Regarding Water
   Use Reporting, Demand Forecasting Methodology, and Conservation Programs. Olympia,
   WA: Ecology Publication #94-24 and Health PUB 331-008, March 1994.

Wescoat, James L., Jr. Integrated Water Development: Water Use and Conservation Practice
   in Western Colorado.  Chicago, IL: University of Chicago, Department of Geography,
   1984.
Integrated Resource Planning

Beecher, Janice A.  "Integrated Resource Planning Fundamentals," Journal American Water
   Works Association (June 1995): 34-48.
                                                    i
Beecher, Janice A. and Patrick C. Mann. Integrated Resource Planning for Water Utilities.
   Columbus, OH: National Regulatory Research Institute, 1992.
                                        179

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 USEPA Water Conservation Plan Guidelines
Appendix D
 Call, Chris. "Demand Management as a Component of IRP: The Long and Winding Road,"
   Proceedings ofConserv96:. Responsible Water Stewardship. Denver, CO: American Water
   Works Association, 1996.

 Domenica, Michael F., ed. Integrated Water Resources Planning for the 21st Century:
   Proceedings of the 22nd Annual Conference, Cambridge, Massachusetts, May 7-11, 1995.
   Cambridge, MA: American Society of Civil Engineers, 1995.

 Fiske, Gary. Integrated Resource Planning: A Balanced Approach. Denver, CO: American
   Water Works Association, 1996.

 Melendy, Cynthia A. "Integrated Resource Planning Overview and Benefits," Proceedings of
   Conserv 96: Responsible Water Stewardship. Denver, CO: American Water Works
   Association, 1996.
 Small Systems

 American Water Works Association, Pacific Northwest Section. Water Conservation
   Guidebook for Small and Medium-Sized Utilities.  Denver, CO: American Water Works
   Association, (Prepared by Montgomery Watson, Inc. under the direction of the Water
   Conservation Committee), August 1993.

 Community Resource Group, Inc. Small Systems Guide to Developing and Setting Water
   Rates. Springdale, Arkansas.

 Male, J.W., J.B. Moriarty, T.H. Stevens, and C.E. Willis.  "Water Supply Costs for Small
   Private Utilities," Water Resources Bulletin Vol. 27, No. 3 (June 1991): 521-526.

 Rhorer, Kyle. "Small Systems -- Conservation: It's Not Just for Big Systems," Journal
   American Water Works Association. May 1996.

 Rural Community Assistance Program. Household Water Conservation. Leesburg, VA. (Not
   dated.)

 	.  Leak Detection and Repair. Leesburg, VA.  (Not dated.)

	.  Small Community Water Conservation.  Leesburg, VA. (Not dated.)

	.  Water Audits. Leesburg, VA. (Not dated.)

	.  Water Reuse. Leesburg, VA. (Not dated.)
Trauth, K.M., BJ. Claborn, and L.V. Urban. "Water Resources Audit for Small
   Communities," Journal of the American Water Works Association Vol. 79, No. 5 (May
   1987): 48-51.
                                       180

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USEPA Water Conservation Plan Guidelines
Appendix D
Forecasting

 Billings, Bruce R. and C. Vaughan Jones. Forecasting Urban Water Demand. Denver, CO:
  American Water Works Association, 0-89867-827-7, 1996.

Darmody, John, William Maddaus, Russell Beatty, Les Taylor, and Watana Yuckpan. "Water
  Use Surveys-An Essential Component of Effective Demand Management," 1996 Annual
  Conference Proceedings; American Water Works Association Water Resources. Denver,
  CO: American Water Works Association, 1996.

Davis, W.Y. "Forecasting Municipal Water Demand and Conservation Evaluation: The IWR-
  MAIN System 5.1," Water-Use Data for Water Resources Management: Proceedings of a
  Symposium.  American Water Resources Association, 1988: 787-795.

Feather, Timothy D. and Nick Braybrooke. "Conservation Planning, End-Use Analysis, and
  the Impacts on Maximum-Day Demand," Proceedings ofConserv96: Responsible Water
  Stewardship. Denver, CO: American Water Works Association, 1996.

Nieswiadomy, Michael and Thomas P. Fox. "Calculating Water Savings Using a Spreadsheet
  Program," Proceedings ofConserv96: Responsible Water Stewardship. Denver, CO:
  American Water Works Association, 1996.

Planning and Management Consultants, Ltd.  IWR-MAIN Water Demand Analysis Software
   Version 6.0 (copyright): User's Manual and System Description, Carbondale, IL: Planning
  and Management Consultants, Ltd., June 1994.

Weber, J.A. "Forecasting Demand and Measuring Price Elasticity," Journal of the American
   Water Works Association Vol. 81, No. 5 (May 1988): 57-65.
Measures

Ahlstrom, Scott B. "Obstacles to Implementing Reuse Projects," Municipal Wastewater
   Reuse: Selected Readings on Water Reuse. (EPA 430/09-91-022), September 1991.

American Water Works Association. Water Audits and Leak Detection, Denver, CO:
   American Water Works Association, 1990.

           . The Water Conservation Manager's Guide to Residential Retrofit Denver, CO:
   American Water Works Association, 1993.

           .  Water Meters - Selection, Installation, Testing, and Maintenance. Third
   Edition, Denver, CO: American Water Works Association, 1986.
                                        181

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 USEPA Water Conservation Plan Guidelines
                                                                           Appendix D
 Arizona Department of Water Resources.  Water Conservation Alternatives Inventory.
    Tucson, AZ: Arizona Department of Water Resources, July 1990.

 Asano, Takashi and Richard A. Mills. "Planning and Analysis for Water Reuse Projects,"
    Journal of the American Water Works Association. (January 1990): 38-47.

 Baghdadi, A.H.A. and H.A. Mansy.  " Mathematical Model for Leak Location in Pipelines,"
    Applied Mathematical Modeling Vol. 12, No. 12 (February 1988): 25-30.

 Ball, Ken. Xeriscape™. Programs for Water Utilities.  Denver, CO: American Water Works
    Association, 1990.

 Beecher, Janice A. and Ann P. Laubach. Compendium on Water Supply, Drought, and
    Conservation.  Columbus, OH: National Regulatory Research Institute, 1989.

 Bennett, Richard E. and Michael S. Hazinski.  Water Efficient Landscape Guidelines. Denver,
    CO: American Water Works Association, 1993.

 Borland, Dorothy, Liz Inman, Jill Kotewicz, Mark Leese, and Mark Upshaw. Landscape
   Design and Maintenance Guidelines for Water Conservation. January 1993.

 California Department of Water Resources. Water Conservation Reference Manual Urban
    Conservation Measures. Sacramento, CA: California Department of Water Resources,
   office of Water Conservation, March 1984.

 Chaplin, Scott Whittier. Water-Efficient Landscaping, A Guide for Utilities and Community
   Planners.  Snowmass, CO: Rocky Mountain Institute Water Program, 1994.

 Chesnutt, Thomas W., Anil Bamezai  and Casey McSpadden. Mapping the Conserving Effect
   of Ultra Low Flush Toilets: Implications for Planning. Santa Monica CA: A&N Technical
   Services, Inc., June 1992.

 Culpin, C.  "Revenue Analysis of a Water Meter System," Journal of the New England Water
   Works Association Vol. 102, No. 4 (December 1988): 249-253.

 Dean, Robert B. and Edda Lund. Water Reuse: Problems and Solutions. New York:
   Academic Press, 1981.

 DeHart, D. "Conservation: A Benefit  of Good Management," Journal of the New England
   Water Works Association Vol. 105, No. 1 (March 1991): 43-45.

Easton, W.P.  "What is a Water Audit?" Journal of the New England Water Works
   Association Vol. 104, No. 2 (June 1990): 141-145.

Feucht, James R. Xeriscaping. A Series of Reports, Colorado State University Cooperative
   Extension, No. 7.228-7.232, June 1987.
                                        182

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USEPA Water Conservation Plan Guidelines
Appendix D
Fiske, Gary S. and Ronnie Ann Weiner. A Guide to Customer Incentives for Water
   Conservation. Barakat & Chamberlin, Inc.  California Urban Water Agencies, California
   Urban Water Conservation Council and U.S. Environmental Protection Agency, February
   1994.

Flory, John E. and Thomas Panella. Long-Term Conservation & Shortage Management
   Practices. Tabors Caramanis & Associates. California Urban Water Agencies, February
   1994.

Gadbury, D. "Metering Trials for Water Supply," Journal of the Institution of Water and
   Environmental Management Vol. 3, No. 2 (April 1989): 182-187.

Hanke, S.H. "Water Metering and Conservation," Water/Engineering and Management Vol.
   128, No. 10 (1981): 57-59.

Kiefer, Jack. "Issues in the Estimation of Water Savings: Case Studies from Plumbing
   Retrofit Programs in Southern California," Proceedings ofConserve93. December 1993:
   1439-1454.

Laird, Colin. Water-Efficient Technologies, A Catalog for the Residential/Light Commercial
   Sector. Snowmass, CO: Rocky Mountain Institute Water Program, 1991.

Lund, J.R.  "Metering Utility Services: Evaluation and Maintenance," Water Resources
   Research Vol. 24, No.6 (June 1988): 802-816.

Maddaus, William O. Water Conservation. Denver, CO: American Water Works
   Association,  1987.

Maloney, Stephen W. Preventing Water Loss in Water Distribution Systems: Money Saving
   Leak Detection Programs. Washington, DC: US Army Corps of Engineers, Construction
   Engineering Research Laboratory (Technical Report, N-86/05), 1986.

Metcalf & Eddy, Inc. Wastewater Engineering: Treatment, Disposal, and Reuse. Third
   Edition. New York: McGraw Hill, 1991.

Miller, K.J.  "U.S. Water Reuse: Current Status and Future Trends," Water, Environment, and
   Technology Vol. 2, No. 11 (November 1990): 83-89.

Moyer, Ellen E. Economics of Leak Detection - A Case Study Approach. Denver, CO:
   American Water Works Association, 1985.

Ploeser, J.H., C.W. Pike, and J.D. Kobrick. "Nonresidential Water Conservation: A Good
   Investment," journal of the American Water Works Association Vol. 84, No. 10 (October
   1992): 65-73.
                                         183

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 USEPA Water Conservation Plan Guidelines
                                                                           Appendix D
 Rathnau, N.M. "Submetering = Water Conservation," Water Engineering and Management
   Vol. 138, No. 3 (1991): 24-37.

 Shuval, H.I. "Development of Health Guidelines for Wastewater Reclamation," Water,
   Science,  and Technology Vol. 24, No. 7 (1991): 149-155.

 Slater, William and Peter Orzechowski. Drought Busters. Los Angeles: Living Planet Press
   1991.

 Smith, R.G. and M.R. Walker. "Water Reclamation and Reuse," Research Journal of the
   Water Pollution Control Federation Vol. 63, No.4 (June 1991): 428-430.

 Southworth, W.P.  "What is a Water Audit?" Journal of the New England Water Works
   Association Vol. 104, No. 2 (June 1990): 141-145.

 Sullivan, J.P. and E.M. Speranza.  "Proper Metering Sizing for Increased Accountability and
   Revenue,' 'Journal of the American Water Works Association Vol. 84, No. 7 (July 1992V
   53-61.

 U.S. Environmental Protection Agency.  Cleaner Water Through Conservation. Washington,
   DC: USEPA (EPA/841/B/95/002), April 1995. http://www.epa.gov/OW/vou/intro.html

            .. Fact Sheet: 21  Water Conservation Measures for Everybody. Washington, DC:
   USEPA, Office of Water (EPA 570/9-91-100), 1991.

  	.  Guidelines for Water Reuse. Cincinnati: USEPA Municipal Environmental
   Research Laboratory (EPA 600/88-80-036), 1980.

           ..  Manual: Guidelines for Water Reuse. Washington, DC: USEPA, Office of
   Water (EPA/625/R-92/004), 1992.

           _. Xeriscape Landscaping, Preventing Pollution and Using Resources Efficiently.
   Washington, DC: USEPA, Office of Water (EPA/840/B/93/001), 1993.

Vickers, Amy. "Conservation Matters: What Makes a True Conservation Measure?" Op/low
   June 1996: 8-9.

           .. "The Emerging Demand-Side Era in Water Management." Journal of the
  American Water Works Association. October 1991: 38-43.

          _. "The Energy Policy Act: Assessing its Impact on Utilities." Journal of the
  American Water Works Association Vol. 85 no. 8 (August 1993): 56-62.

 	. Handbook of Water Use and Conservation.  New York: Lewis Publishing, 1999.
                                        184

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USEPA Water Conservation Plan Guidelines
Appendix D
Vickers, Amy and EJ. Markus.  "Creating Economic Incentives for Conservation," Journal of
   the American Water Works Association Vol. 84, No. 10 (1992): 42-45.

Wallace, Lynn P. Water and Revenue Losses: Unaccounted for Water. Denver, CO: American
   Water Works Association, 1987.

Walker, Robert E. and Gary F. Kah. Landscape Irrigation Auditor Handbook. Irrigation and
   Research Center, California Polytechnic State University, Version 5.5, June 1990.
Cost-Effectiveness Analysis

Andrews, Laurel, Bill Gavelis, Steve Scott, and Mike King.  Cost-Benefit Analysis of Water
   Conservation Measures, Part I & II. Synergic Resources Corporation and Gary Kah
   Agtech, SRC Report, No. 7363-R6, July 1988.

Baumann, D.D., JJ. Boland, and J.H. Sims. The Evaluation of Water Conservation for
   Municipal and Industrial Water Supply: Procedures Manual.  Carbondale, IL: Planning
   and Management Consultants,  Ltd. (Army Engineer Institute for Water Resources Contract
   Report 80-1), April 1980.

Boland, John, Benedykt Dziegielewski, Duane Baumann, and Chuck Turner.  Analytical
   Bibliography for Water Supply and Conservation Techniques. Carbondale, IL: Planning
   and Management Consultants,  Ltd. (U.S. Army Engineer Institute for Water Resources,
   IWR Contract Report 82-C07), January 1982.

Brown and Caldwell Consultants. Assessment of Water Savings from Best Management
   Practices. Walnut Creek, CA: Brown and Caldwell Consultants, April 1991.

California Urban Water Conservation Council.  Guidelines to Conduct Cost-Effectiveness
   Analysis of Best Management Practices for Urban Water Conservation. Los Angeles, CA:
   Californian Urban Water Conservation Council. Prepared by A&N Technical Services.
   September 1996.

Campen, James T. Benefit, Cost and Beyond: The Political Economy of Benefit-Cost Analysis.
   Cambridge, MA: Ballinger Publishing, 1986.

Davis, William Y. and Ben Dziegielewsi. "Estimating the Benefits and Costs of Implementing
   Conservation Measures," Proceedings of CONSERV90: The National Conference and
   Exposition Offering Water Supply Solutions for the 1990s.  Phoenix, AZ, 1990.

Dziegielewski, Benedykt, Duane D. Baumann, and John J. Boland. The Evaluation of
   Drought Management Measures for Municipal and Industrial Water Supply.  Institute for
   Water Resources, U.S. Army Corps of Engineers, CR 83-C-3, December 1983.
                                        185

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 USEPA Water Conservation Plan Guidelines
Appendix D
 Dziegielewski, B., E. Opitz, J. Kiefer, and D. Baumann. Evaluating Urban Water
   Conservation Programs: A Procedures Manual.  Carbondale, IL: Planning and
   Management Consultants, Ltd. (California Urban Water Agencies and American Water
   Works Association), 1993.

 Macy, P.P. and William O. Maddaus. "Cost-Benefit Analysis of Conservation Programs,"
   Journal of the American Water Works Association Vol. 81, No. 3 (March 1989): 43-47.

 Maddaus, William O. "Evaluating the Benefits and  Costs of Proposed Water Conservation,"
   Proceedings ofCONSERV90: The National Conference and Exposition Offering Water
   Supply Solutions for the 1990s, Phoenix, AZ, 1990.

 Maddaus, William O. and Peter P. Macy. Benefit and Cost Analysis of Water Conservation
   Programs. Pleasant Hill, CA: Brown and Caldwell Consulting Engineers, 1989

 O'Grady, Kevin L., Eva M. Opitz, and Benedykt Dziegielewski. Evaluating Urban Water
   Conservation Programs: Workbook. Carbondale, IL: Planning and Management
   Consultants, Ltd. (Metropolitan Water District of Southern California), February/March
   1994.

 Pekelney, David M., Thomas W. Chesnutt, and W. Michael Hanemann. Guidelines to
   Conduct Cost-Effectiveness of Best Management  Practices for Urban Water Conservation.
   Sacramento, CA: California Urban Water Conservation Council, 1996.

 Pekelney, David M. and Thomas W. Chesnutt.  Reference Document: Program Design Tool
   and Savings Estimates. Sacramento, CA: California Urban Water Conservation Council,
   1996.

 Sakrison, Rodney G.  Water Supply Source Selection Criteria: Determination of Cost-
   Effectiveness Thresholds. Olympia, WA: Washington Department of Ecology.
Rates and Revenues

Agthe, Donald E. and Bruce Billings.  "Equity, Price Elasticity, and Household Income Under
  Increasing Block Rates for Water," American Journal of Economics and Sociology Vol. 46
  (July 1987): 273-286.

American Water Works Association. Water Rates and Related Charges. Denver, CO:
  American Water Works Association, 1986.

          _. Managing the Revenue and Cash Flow Effects of Conservation, Denver, CO:
  American Water Works Association, 0-89867-845-5, 1996.
                                       186

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USEPA Water Conservation Plan Guidelines
Appendix D
Beecher, Janice A., Patrick C. Mann, Youssef Hegazy, and John D. Stanford.  Revenue Effects
   of Water Conservation and Conservation Pricing: Issues and Practices.  Columbus, OH:
   National Regulatory Research Institute, 1994.

Beecher, Janice A. and Patrick C. Mann. "The Role of Price in Water Conservation Evidence
   and Issues," Proceedings ofConserv96: Responsible Water Stewardship. Denver, CO:
   American Water Works Association, 1996.

Beecher, Janice A., Patrick C. Mann, and James R. Landers. Cost Allocation and Rate Design
  for Water Utilities. Columbus, OH: National Regulatory Research Institute, 1990.

Bhatt, N.R. and C.A. Cole. "Impact of Conservation on Rates and Operating Costs," Journal
   of Water Resources Planning and Management Vol. Ill, No. 2 (April 1985): 192-206.

California Department of Water Resources.  Water Conservation Guidebook No. 9 -
   Guidebook on Conservation-Oriented Water Rates. Sacramento, CA: State of California
   Department of Water Resources, October 1988.

California Urban Water Conservation Council. Handbook for the Design, Evaluation, and
   Implementation of Conservation Rate Structures.  Los Angeles, CA: Californian Urban
   Water Conservation Council, (Prepared by Thomas W.  Chesnutt, A&N Technical Services,
   et al.), September 1996.

Caswell, M., E. Lichtenberg, and D. Zilberman. "Effects Of Pricing Policies on Water
   Conservation and Drainage," American Journal of Agricultural Economics Vol. 72, No. 4
   (November 1990):  883-890.

Chestnutt, Thomas W., Casey McSpadden, and John Christiansen. "Revenue Instability
   Induced by Conservation Rates," Journal American Water Works Association. (January
   1996): 52-63.

Chesnutt, Thomas W., John Christiansen, Anil Bamezai, Casey N. McSpadden, and W.
   Michael Hanemann.  Revenue Instability and Conservation Rate Structures. Denver, CO:
   American Water Works Association, 0-89867-818-8,1995.

Chicone, David L., Steven C. Deller, and Ganapathi Ramamurthy.  "Water Demand
   Estimation Under Block Pricing: A Simultaneous Equation Approach," Water Resources
   Research Vol. 22 (June 1986): 859-863.

Comer, D. and R. Beilock. "How Rate Structures and Elasticities Affect Water
   Consumption," Journal of the American Water Works Association Vol. 74, No. 6 (June
   1982): 192-206.

Cuthbert, R.W. "Effectiveness of Conservation-Oriented Water Rates in Tucson," Journal of
   the American Water Works Association Vol. 81, No.3 (March  1989): 65-73.
                                         187

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 USEPA Water Conservation Plan Guidelines
Appendix D
 Deming, J.L. "Establishing an Income Based Discount Program," Journal of the New England
    Water Works Association Vol. 106, No. 3 (September 1992): 203-205.

 Farnkopf, John W. "Dissecting Rate Structures: Identifying Where Further Refinements are
    Warranted," Proceedings of Conserv96: Responsible Water Stewardship. Denver, CO:
    American Water Works Association, 1996.

 Fox, Thomas P. "Analysis, Design and Implementation of a Conservation Rate Structure"
    Proceedings ofConserv96: Responsible Water Stewardship. Denver, CO: American Water
    Works Association, 1996.

 Griffith, P.P. "Peak Use Charge: An Equitable Approach to Charging for and/or Reducing
    Summer Peak Use," Canadian Water Resources Journal Vol. 9, No. 3 (November 1984):
    17-21.

 Hasson, D.S. and D.G. Ovard. "Using Peaking Factors to Update Water Rates," Journal of the
   American Water Works Association Vol. 79, No. 6 (June 1987): 46-51.

 Mann, Patrick C. and Don M. Clark. "Marginal-Cost Pricing: Its Role in Conservation,"
   Journal of the American Water Works Association". August 1993.

 Martin, W.E., H.M. Ingram, N.K. Laney, and A.H. Griffin. Saving Water in a Desert City.
   Washington, DC: Resources for the Future, 1984.

 Martin, W.E. and S. Kulakowski. "Water Price as a Policy Variable in Managing Urban
   Water Uses: Tucson, Arizona," Water Resources Research, Vol. 27, No. 2 (1991): 157-
   166.

 McNeill, Roger and Donald Tate. Guidelines for Municipal Water Pricing. Ottawa, Canada:
   Environment Canada, Social Science Series No. 25, 1991.

 Mui, E.G., K.W. Richardson, and J.F. Shannon. "What Water Utility Managers Should Know
   About Developing Water Rates," Water Engineering and Management, Vol. 138, No. 12
   (1991): 18-20.

Nieswiadomy, MX.  "Estimating Urban Residential Water Demand: Effects of Price
   Structure, Conservation, and Education," Water Resources Research, Vol. 28, No. 3
   (1992): 609-615.

Ozog, Michael T. "Price Elasticity and Net Lost Revenue," Proceedings ofConserv96:
   Responsible Water Stewardship. Denver, CO: American Water Works Association, 1996.

Renshaw, E.F. "Conserving Water Through Pricing," Journal of the American  Water Works
   Association Vol. 74, No. 1 (January 1982): 2-5.
                                        188

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\3SBPA 'Water Conservation Plan Guidelines
Appendix D
Sang, W. H. "The Financial Impact of Water Rate Changes," Journal of the American Water
   Works Association Vol. 74, No. 9 (September 1982): 466-469.

Schlette, T.C. and D.C. Kemp. "Setting Rates to Encourage Water Conservation," Water
   Engineering and Management Vol. 138, No. 5 (May 1991): 25-29.

U.S. Bureau of Reclamation. Incentive Pricing Handbook for Agricultural Districts.
   Washington, DC: Bureau of Reclamation, U.S. Department of the Interior, April 1997.
   Prepared by Hydrosphere Resource Consultants. http://209.21.0.235/documents/index.htm

	.  Incentive Pricing Best Management Practice for Agricultural Irrigation
   Districts. Washington, DC: Bureau of Reclamation, U.S. Department of the Interior, June
   1998. http://209.21.0.235/documents/index.htm
Public Involvement

American Water Works Association Research Foundation. Public Involvement Strategies: A
  Manager's Handbook. Denver, CO: American Water Works Association Research
  Foundation, 1996.

Baumann, D.D. "Information and Consumer Adoption of Water Conservation Measures,"
  Proceedings of the National Water Conservation Conference on Publicly Supplied Potable
  Water. June 1982:179-190.

Bickel, Blaine W., Hoback, Paul E., and Lamb, Conrad. "Match Your Vision and Image - A
  Lee's Summit, Missouri Case Study," 1995 Annual Conference Proceedings; American
  Water Works Association; Management and Regulations. Denver, CO: American Water
  Works Association, 1995.

Chaplin, Scott.  Water Efficiency Sampler. Snowmass, CO: Rocky Mountain Institute Water
  Program, December 1991.

Darilek, Alice. "Forming a State Water Conservation Program through Public Involvement, "
  Proceedings ofConserv93: The New Water Agenda. Denver, CO: American Water Works
  Association, 1993.

DeHart, D.  "Conservation: A Benefit of Good Management," Journal of the New England
  Water Works Association Vol. 105,No.l (March 1991): 43-45.

Dyballa, Cynthia. "Water Conservation Education and Outreach in the U.S.," Hydrology and
  Water Resources Education, Training and Management, Water Resources Publication.
  Littleton, CO: 1991.
                                        189

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USEPA Water Conservation Plan Guidelines
Appendix D
Henning, Richard W. "How to Obtain and Maintain Public Involvement: The Key to
   Successful Conservation Programs," Proceedings ofConserv96: Responsible Water
   Stewardship. Denver, CO: American Water Works Association, 1996.

National Wildlife Federation. A Citizen's Guide to Community Water Conservation.
   Washington, DC: U.S. Environmental Protection Agency, 1989.

U.S. Environmental Protection Agency. Building Support for Increasing User Fees.
   Washington, DC: Office of Water, 1989.
                                        190

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USE? A. Water Conservation Plan Guidelines
Appendix D
Internet Resources

American Water Works Association
    B http://www.awwa.org/

American Water Works Association WaterWiser: The Water Efficiency Clearinghouse
    53 http://www.waterwiser.org/

American Water Works Research Foundation
    B http://www.awwarf.com/

American Water Resources Association
    B http://www.uwin.siu.edu/orgs/awra.html

American Society of Plumbing Engineers
    B http://www.aspe.org

Association of Metropolitan Water Agencies
    H http://www.amwa-water.org/water

Bureau of Reclamation, U.S. Department of the Interior.
    H http://www.usbr.gov/tcg/written/wc.html

Eco Watch
    H http://www.eacvision.com/Home_Page/accounts/vut/toilet/htm

Green Seal
    B http://www.greenseal.org

Institute for Water Resources, U.S. Army Corps of Engineers
    H http://www.wrsc.usace.army.mil/iwr/

National Drinking Water Clearinghouse
    B http://www.estd.wvu.edu/ndwc/

National Drought Mitigation Center
    B http://enso.unl.edu/ndmc

National Ground Water Association
    B http ://www.h2o-ngwa.org/

National Watershed Network
    B http://www.ctic.purdue.edu/watershed/US_watersheds_8digit.fatml

Natural Resource Conservation Service, U.S Department of Agriculture.
    B http://www.nrcs.usda.gov/
                                         191

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 USEPA Water Conservation Plan Guidelines
Appendix D
Rural Community Assistance Program
     B http://www.rcap.org/

Rural Water Association
     B http://www.ruralwater.org

Universities Council on Water Resources
     B http://www.uwin.sin.edu/ucowr.index.html

U.S. Department of Agriculture, Natural Resource Conservation Service
     B http://www.nrcs.gov/

U.S. Environmental Protection Agency
     H http://www.epa.gov/owm/genwave.htm

U.S. Geological Survey
     B http://www.usgs.gov

U.S. Water News
     H http://www.uswaternews.com

Water Education Foundation
     H http ://www.water-ed. org

Water Environment Federation
     B http://www.wef.org

Water Online
     fi http://www.wateronline.com/

Water Quality Association
     B http://wqa.org/

Water Share, U.S. Department of the Interior, Bureau of Reclamation
     B htto://www.watershare.usbr.gov
                                         192

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USEPA Water Conservation Plan Guidelines
Appendix E
APPENDIX E
FEDERAL FUNDING SOURCES FOR WATER
CONSERVATION
Agency
U.S.
Environmental
Protection
Agency




U.S.
Environmental
Protection
Agency






Elements
Program
National contact
Regional contacts
Type of assistance
Eligibility
Eligible activities
Eligible measures
Program
National contact
Regional contacts
Type of assistance
Eligibility
Eligible activities
Eligible measures


Information
Drinking Water State Revolving Fund (DWSRF) Program
Jamie Bourne, (202) 260-5557
Each state has an agency that administers the program. See Appendix
F. Contact information can be found at
www.eDa.aov/oewdw/dwsrf.html
Primarily loans.
Drinking water systems including public and private community
water systems and non-profit non-community water systems.
Construction of facilities which will facilitate compliance with
national primary drinking water regulations or further the health
protection objectives of the Safe Drinking Water Act.
Residential water meters are eligible for DWSRF funding if part of an
eligible project.
Clean Water State Revolving Fund (CWSRF) Program
Richard Kuhlman, (202) 260-7366. Also see CWSRF website at
www.epa.eov/OWM/finan.htm
Each state has an agency that administers the program. For state
contact call (202) 260-7359.
EPA capitalizes state revolving loan funds. States issue or refinance
loans, purchase or guarantee local debt, or purchase bond insurance.
Eligibility varies according to each state's program and priorities.
Eligible recipients generally include communities, individuals,
citizen's groups, non-profits, Indian Tribes, and others.
Eligible projects may include a wide range of water-quality projects,
such as:
municipal wastewater treatment facilities
agricultural, rural, and urban runoff control
estuary improvement projects
wet weather flow control
groundwater protection projects
At a state's option, the following publicly-owned water conservation
measures may be eligible for loan funding:
Structural Measures
Meters
Plumbing fixture retrofits or replacements
Efficient landscape irrigation equipment
Gray water recycling
Wastewater reuse
>fonstructural Measures
Incentive wastewater service charges
Water use ordinances or regulations
Public education programs
                      193

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USEPA Water Conservation Plan Guidelines
Appendix E
Agency
Bureau of
Reclamation,
U.S.
Department of
the Interior
Rural Utilities
Service, U.S.
Department of
Agriculture
Elements
Program
National contact
Regional contacts
"type of assistance
Eligibility
Eligible activities
Eligible water
conservation
measures
Program
National contact
Regional contacts
Type of assistance
Eligibility
Eligible activities
Eligible water
conservation
measures
Information
Water Conservation Field Services Program/Efficiency Incentives
Program
Cindy Dyballa (202) 208-7589. Also, see the Bureau's Watershare
website at www.watershare.usbr.eov
Reclamation has five regional offices and 21 area offices located in
the 17 western states. For contact information visit the Bureau's
Watershare website (see above).
Grants are awarded but each program office may administer the
program differently.
Eligible recipients generally include water systems that contract for
water supplies through the Bureau of Reclamation.
Eligible projects may include a wide range of water conservation
projects, including planning, education, demonstration of innovative
technologies, and implementation of measures.
The following water conservation measures may be grant eligible:
Structural Measures
• Meters
» Leak detection and control equipment
• Plumbing fixture retrofits or replacements
• Water efficient appliances (e.g. clothes washers)
» Efficient landscape irrigation equipment
• Gray water recycling
• Commercial/institutional conservation equipment
• Industrial reuse or recycling
• Wastewater reuse
Nonstructural Measures
» Conservation or non-promotional rate structure
• Water use ordinances.or regulation
• Public education programs
Rural Utilities Service, Water and Wastewater Loan/Grant Program
Richard Mansfield (202) 690-2670
USDA has an office in each state; contact information can be found
on the RUS website www.usda.eov/rus/water
Grants and loans (loans are more common).
Cities and towns with populations less than 10,000 that cannot find
private funding.
The program primarily funds the construction of drinking water and
wastewater infrastructure (approximately 60% of assistance is
allocated to drinking water improvements).
Structural Measures
• Meters
• Leak detection and control equipment
» Gray water recycling
• Wastewater reclamation and reuse
                                             194

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13SEPA. Water Conservation Plan Guidelines
Appendix E
Agency
Rural Business-
Cooperative
Service, U.S.
Department of
Agriculture
National
Resources
Conservation
Service, U.S.
Department of
Agriculture
Elements
Program
National contact
Regional contacts
Type of assistance
Eligibility
Eligible activities
Eligible water
conservation
measures
Program
National contact
Regional contacts
Type of assistance
Eligibility
Eligible activities
Eligible water
conservation
measures
Information
Rural Economic Development Loans and Grants
Director, Specialty Lenders Division (202) 720-1400
Consult phone directory for the number of the local Office of Rural
Development
Direct loans (most often) and project grants
Electric and phone utilities that have current loans with the Rural
Utilities Service (RUS) or Rural Telephone Bank loans can apply for
zero interest loans or grants, and can in turn offer loans to local
businesses, nonprofit organizations, etc.
Establishment or expansion of rural businesses or community
development projects with job creation, including water and sewer
industrial development parks and other infrastructure.
Structural Measures
• Meters
« Leak detection and control equipment
• Plumbing fixture retrofits or replacements
• Water-efficient appliances
• Commercial/institutional conservation measures
• Industrial reuse or recycling
• Wastewater reclamation and reuse
Resource Conservation and Development
Terry D'Addio, National Program Manager, 202-720-2241
Each state has a Natural Resources Conservation Service Office.
Advisory service and counseling, project loans and grants possible
when funding levels allow. The program can offer technical support
in the form of a coordinator for adopted projects (including activities
pertaining to water management). While funds are not awarded, the
agency can help projects find additional funding elsewhere.
Applicants must be state or local governments and nonprofit
organizations with the authority to plan or carry out activities relating
to resource use and development in multi-jurisdictional areas
(including Puerto Rico, Virgin Islands, Guam, and Northern Marina
Islands). Beneficiaries must be located in a designated resource
conservation and development area.
Resource conservation and development
Indirect support for both structural and nonstructural measures maybe
obtained.
                                                195

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USEPA Water Conservation Plan Guidelines
Appendix E
Agency
Economic
Development
Administration,
U.S.
Department of
Commerce




Appalachian
Regional
Commission





Elements
Program
National contact
Regional contacts
Type of assistance
Eligibility
Eligible activities
Eligible water
conservation
measures
Program
National contact
Regional contacts
Type of assistance
Eligibility
Eligible activities
Eligible water
conservation
measures
Information
Economic Development Administration's Public Works and
Development Facilities Grants Program
David Mcllwain (202) 482-5265
Each state has a representative; contact information can be found on
the Commerce Department website www.doc.eov/eda
Grants only.
Activities to assist in the economic development of economically
distressed areas (high unemployment or low income). Most grants
are made to rural communities, but urban communities are eligible as
well.
The program funds public works infrastructure and development
facilities, including improvements to drinking water systems and
wastewater systems (especially industrial wastewater). Projects that
provide immediate assistance will receive special emphasis. Funds
may not be used for residential systems.
Structural Measures
Meters
Leak detection and control equipment
Plumbing fixture retrofits or replacements
Gray water recycling
Commercial/institutional conservation measures
Industrial reuse or recycling
Wastewater reclamation and reuse
Appalachian Regional Commission Grant Program
Harry Roesch (202) 884-7774
Each state has a representative; contact information can be found on
the Appalachian Regional Commission website (www.arc.gov).
Grants only.
Activities that expand infrastructure to encourage economic
development and meet state environmental statutes in economically
distressed areas in Appalachian states from Northeast to Mississippi.
Program needs federal agencies (for example RUS, HUD, and
Tennessee Valley Authority) to administer funds and requires at least
a partial match from either federal, state, or local sources. States
make final decisions on whether projects are eligible for funding.
The program funds public works infrastructure only, including
improvements to drinking water systems and wastewater systems.
The water conservation measures can be funded only if they are part
of a larger economic-development package.
Structural Measures
Meters Leak detection and control equipment
Gray water recycling
Commercial/institutional conservation measures
Industrial reuse or recycling
Wastewater reclamation and reuse
                                             196

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\3SEPA "Water Conservation Plan Guidelines
                                                                      Appendix E
Agency
I Elements
Information
U.S.
Department of
Housing and
Urban
Development
Community
Planning and
Development,
U.S.
Department of
Housing and
Urban
Development
Program
National contact
Regional contacts
Type of assistance
Eligibility
Eligible activities
Eligible water
conservation
measures
Program
National contact
Regional contacts
Type of assistance
Eligibility
Community Development Block Grants
Yvette Aidara (202) 708-1322 ext. 4378
Each state has a HUD office; contact information can be found on the
HUD website www.hud.gov
Grants and loans (loans are more common).
Intended to primarily assist low to moderate income communities.
Approximately 70% of the total money goes directly to urban areas,
mostly low to moderate income; the remaining 30% is allocated to
state programs that target nonentitled low to moderate income areas
(population less than 50,000/county population less than 200,000).
All kinds of activities are eligible, including planning and
management efforts, as long as they are a part of a community
economic development project. State programs may choose to
prioritize infrastructure funding.
Structural Measures
• Meters
• Leak detection and control equipment
• Plumbing fixture retrofits or replacements
• Water-efficient appliances
• Water-efficient landscaping or irrigation equipment
• Gray water recycling
• Commercial/institutional conservation measures
• Industrial reuse or recycling
« Wastewater reclamation and reuse
Nonstructural Measures
• Development of nonpromotional water rate structures
• Developing water use regulations or wastewater ordinances
Empowerment Zones Program (Urban)
National Office of Community Planning and Development (202) 708-
6339, 1-800-998-9999
Directors of Community Planning and Development at regional HUD
Grants related to revitalization planning.
An applicant must be nominated by a local government or state where
the area is located. Applicants on behalf of nominated beneficiaries
may also include, but are not limited to, state and local governments,
regional planning agencies, non-profit organizations, community-
based organizations, or partnerships of community members and
other entities. The beneficiary (urban area) is eligible if it (1) meets
certain population requirements; (2) is an area of pervasive poverty,
unemployment, and general distress; (3) does not exceed 20 square
miles, and (4) meets other locative requirements. While Round I
Zones have been selected, Congress has authorized the selection of 15
additional urban Empowerment Zones.
                                              197

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USEPA Water Conservation Plan Guidelines
Appendix E
Agency

U.S.
Department of
Health and
Human Services
Pacific
Northwest
Laboratory,
U.S.
Department of
Energy


Elements
Eligible activities
Eligible water
conservation
measures
Program
National contact
Regional contacts
Type of assistance
Eligibility
Eligible activities
Eligible water
conservation
measures
Program
National contact
Regional contacts
Type of assistance
Eligibility
Eligible activities
Eligible water
conservation
measures
Information
Potential Empowerment Zones submit creative plans for revitalization
and, if chosen, receive grants to help execute these plans.
Structural Measures
• Meters
• Leak detection and control equipment
• Plumbing fixture retrofits or replacements
» Water-efficient appliance
• Water-efficient landscaping or irrigation equipment
• Gray water recycling
• Commercial/institutional conservation measures
• Industrial reuse or recycling
• Wastewater reclamation and reuse
Empowerment Zones Program (Rural)
Victor Vasquez (202) 619-7980
Jim Gatz (202) 260-0397 can help identify appropriate state agencies.
Project grants
A rural applicant must be nominated by a local government or state
where the rural area is located. Applicants on behalf of nominated
beneficiaries may also include, but are not limited to, state and local
governments, regional planning agencies, non-profit organizations,
community-based organizations, or partnerships of community
members and other entities. An area is eligible if it (1) has a
maximum population of 30,000; (2) is an area of pervasive poverty,
unemployment, and general distress; (3) is smaller than 1,000 square
miles; and (4) meets other locative requirements. Round I zones have
been selected, 5 additional zones have been authorized by Congress.
Potential Empowerment Zones submit creative plans for revitalization
and, if chosen, receive grants to help execute these plans.
Structural Measures
» Meters
• Leak detection and control equipment
• Plumbing fixture retrofits or replacements
• Water-efficient appliance
» Water-efficient landscaping or irrigation equipment
• Gray water recycling
• Commercial/institutional conservation measures
• Industrial reuse or recycling
• Wastewater reclamation and reuse
Pacific Northwest National Laboratory
Michael Baechler (503) 417-7553. www.Dnl.eciv/eneravstar
STot applicable
Market transformation.
Bulk purchase of water-efficient clothes washers by high volume
purchasers, including multifamily residential units, builders, utilities,
energy commissions, and developers, but not retailers.
The program provides access to a specific model of high performance
water-conserving clothes washers selected in a national competition.
Structural Measures
» Water-efficient appliances
                                            198

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VJSE.P A. Water Conservation Plan Guidelines
                                                                    Appendix F
APPENDIX F
STATE CONTACT LIST
State
Primacy Agency
Drinking Water SRF
Agency
Water Resource Agency
Alabama
Water Division
Department of Environmental
Management
P.O. Box 301463
Montgomery, AL 36130-
1463
334-271-7774 or 334-271-
7823
http://www.adem.state.al.us/
Department of Environmental
Management
1751 Cong. WM Dickinson
Drive
P.O. Box 301463
Montgomery, AL 36130-
1463
334-271-7773
http://www.adern.state.al.us/
Office of Water Resources
Department of Economic and
Community Affairs
Montgomery, AL 36130
334-242-5499
http://www.state.al.us/govern
/adeca3.html
Alaska
Drinking Water Program
Division of Environmental
Health
Department of Environmental
Conservation
555 Cordova Street
Anchorage, AK 99501-2617
907-269-7647
http://www.state.ak.us/local/a
kpages/ENV.CONSERV/deh
/dec denh.htm
Facility Construction and
Operations Division
Department of Environmental
Conservation
410 Willoughby Avenue,
#105
Juneau,AK  99801-1795
907-465-5136
http://www.state.ak.us/local/a
kpages/ENV.CONSERV/deh
/dec denh.htm
Water Resources Section
Division of Mining and
Water
Department of Natural
Resources
3601 C Street, Suite 200
Anchorage, AK 99503-5929
907-269-8400
http://www.dnr.state.ak.us/mi
ne wat/water/wrfact.htm
Arizona
Department of Environmental
Quality
3033 North Central Avenue
Phoenix, AZ 85012
602-207-2300
http://www.adeq.state.az.us/
Drinking Water Section
Department of Environmental
Quality
3033 North Central Avenue
Phoenix, AZ  85012-2809
602-207-4617
Department of Water
Resources
500 N. Third Street
Phoenix, AZ 85004
602-417-2408
Arkansas
Department of Health
4815 W. Marham
Little Rock, AR  72205
501-661-2623
http://health.state.ar.us/
Department of Health
4815 W. Marham
Little Rock, AR  72205
501-661-2623
http://health.state.ar.us/
Soil and Water Conservation
Commission
101 East Capitol Street
Little Rock, AR 72201
California
Division of Drinking Water
and Environmental
Management
Department of Health
Services
601 North 7th Street, MS 92,
Sacramento, CA 95814
Mail: P.O. Box 942732,
Sacramento, CA 94234-7320
916-323-6111
http://www.dhs.cahwnet.g6v/
prevsrv/ddwem/index.htm
Division of Drinking Water
and Environmental
Management
Department of Health
Services
P.O. Box 942732
Sacramento, CA 94234-7320
916-323-4344
Department of Water
Resources
1020 9th Street, 3rd Floor
Sacramento, C A 95814
916-327-1655
http://wwwdwr.water.ca.gov/
                                             199

-------
  USEPA Water Conservation Plan Guidelines
                                                                                         Appendix F
  State Contact List (continued)
 State
 Primacy Agency
 Drinking Water SRF
 Agency	
                                                                         Water Resource Agency
 Colorado
 Water Quality Control Div.,
 Department of Public Health
 and Environment
 4300 Cherry Creek Drive S.
 Denver, CO 80222-1530
 303-692-3500
 http://www.state.co.us/gov d
 Water Quality Control
 Division
 Department of Public Health
 & Environment
 4300 Cherry Creek Drive
 Denver, CO  80222-1530
 303-692-3554
                                                                         Division of Water Resources,
                                                                         Dept. of Natural Resources
                                                                         1313 Sherman St., Rm. 818
                                                                         Denver, CO 80203
                                                                         303-866-3586
                                                                         http://water.state.co.us/defaul
                                                                         thtm
                ir/cdphe  dir/wq/wqhom.html
 Connecticut
 Div. of Environmental
 Health, Bureau of Regulatory
 Services, Dept. of Public
 Health
 410 Capitol Avenue, P.O.
 Box 340308
 Hartford, CT 06134-0308
 860-509-8000
 http://www.state.ct.us/dph/
 Water Supplies Section
 Department of Public Health
 P.O. Box 340308
 450 Capitol Avenue (MS# 51
 WAT)
 Hartford, CT 06134-0308
 860-509-7333
                                                                         Bureau of Water
                                                                         Management, Department of
                                                                         Environmental Protection
                                                                         79 Elm Street
                                                                         Hartford, CT 06106-5127
                                                                         860-424-3704
                                                                         http://dep.state.ct.us/water/wa
                                                                         trhome.htm
 Delaware
 Health Systems Protection
 Division of Public Health
 Health and Social Services
 P.O. Box 637
 Dover, DE 19903
 302-577-4501
 http://www.state.de.us/gover
 Division of Public Health
 Department of Health &
 Social Services
 P.O. Box 637
 Dover, DE 19903
 302-739-5410
                                                                         Division of Water Resources,
                                                                         Department of Natural
                                                                         Resources
                                                                         and Environmental Control
                                                                         302-739-4860
                                                                         http://www.dnrec.state.de.us
                n/agencies/dhss/irm/dph/hsp.
                him.
Florida
Division of Water Facilities
Dept. of Environmental
Protection
Twin Towers Building,
2600 Blair Stone Road, Mail
Station #70
Tallahassee, FL 32399
904-488-2996
http://www.dep.state.fl.us:80/
 Bureau of Local Government
 Wastewater Financial
 Assistance, Dept. of
 Environmental Protection
 Twin Towers Building 2600
 Blair Stone Road
 Tallahassee, FL 32399
 850-488-8163
 http://www.dep.state.fl.us:80/
                                                                        Office of Water Policy
                                                                        Dept. of Environmental
                                                                        Protection
                                                                        Twin Towers Building
                                                                        2600 Blair Stone Road
                                                                        Tallahassee, FL 32399
                                                                        850-488-1554
                                                                        http://www.dep.state.fl.us:80/
                                                                        ecosvstem/waterpol/
Georgia
Water Resources Branch
Environmental Protection
Division, Dept. of Natural
Resources
1152 East Tower
205 Butler Street, SE
Atlanta, GA 30334
404-656-4807
ittp://www.Georgianet.org/d
               nr/environ/
Environmental
Protection Division
Drinking Water Permitting &
Engineering Program
Department of Natural
Resources
Floyd Towers East, Suite
1362
205 Butler Street, SE
Atlanta, GA  30334
404-656-0719
Water Resources Branch,
Environmental Protection
Division
Department of Natural
Resources
1152 East Tower
205 Butler Street, SE
Atlanta, GA  30334
404-656-4807
ittp://www.Georgianet.org/d
                                                                        nr/environ/
                                               200

-------
USEPA. Watev Conservation Plan Guidelines
                                                                        Appendix F
State Contact List (continued)
State
Primacy Agency
Drinking Water SRF
Agency
Water Resource Agency
Hawaii
Safe Drinking Water Branch,
Environmental Management
Division, Environmental
Health Administration,
Department of Health
919 Ala Moana Blvd.
Honolulu, HI 96814
808-586-4258
http ://www.hawaii.gov/health
/sdohpg61.htm
Safe Drinking Water Branch,
Environmental Management
Division, Environmental
Health Administration,
Department of Health
919 Ala Moana Blvd. (308)
Honolulu, HI 96814
808-586-4258
http://www.hawaii.gov/health
/sdohpg61.htm
Division of Water Resource
Management
Land and Natural Resources
Department
1151 Punchbowl Street
Honolulu, HI  96813
808-587-0214
http://www.hawaii.goV/dlnr/d
wrm/dwrm.html
Idaho
Division of Environmental
Quality
Department of Health and
Welfare
1410 North Hilton
Boise, ID 83706-1255
208-373-0502
http://www.state.id.us/dhw/h
wgd www/home.html
Bureau of Drinking Water
and Wastewater
Division of Environmental
Quality
Department of Health and
Welfare
1410 North Hilton
Boise, ID 83706-1255
208-373-0291
http://www.state.id.us/dhw/h
wgd www/home.html
Department of Water
Resources
1301 N. Orchard Street
Boise, ID  83706
208-327-7910
http://www.idwr.state.id.us/id
wr/idwrhome.htm
Illinois
Bureau of Water
Environmental Protection
Agency
2200 Churchill Road,
Springfield, IL 62794-9276
217-782-1654
http://www.epa.state.il.us/org
/bow/
Division of Public Water
Supplies
Environmental Protection
Agency
P.O. Box 19276
Springfield, IL 62794-9276
217-785-8653
http://www.epa.state.il.us/org
/bow/
Office of Water Resources,
Department of Natural
Resources
310 South Michigan Avenue,
Room 1606
Chicago, IL  60604
312-793-3129
http://dnr.state.il.us/ildnr/offi
ces/water.htm
Indiana
Office of Water Management
Department of Environmental
Management
100 N. Senate
P.O. Box 6015
Indianapolis, IN 46206-6015
317-232-8476
http://www.ai.org/idem/owm.
html                  	
Drinking Water Branch
Department of Environmental
Management
100 North Senate Avenue
P.O. Box 6015
Indianapolis, IN 46206-6015
317-308-3281
http://www.ai.org/idem/owm.
html                  	
Division of Water
Department of Natural
Resources
402 West Washington Street,
Indianapolis, IN 46204.
317-232-4161
http://www.dnr.state.in.us/wa
ter/index.htm
Iowa
Water Supply Section
Water Quality Bureau
Environmental Protection
Division, Dept. of Natural
Resources
Wallace State Office Bldg.
DesMoines, IA50319
http://www.state.ia.us/govern
ment/dnr/organiza/epd/wtrq/
wtrqbur.htm
Water Quality Bureau
Department of Natural
Resources
Wallace Office Building
900 East Grand Street
DesMoines, IA 50319
515-281-8869
Water Resources Section
Water Quality Bureau
Environmental Protection
Division, Department of
Natural Resources
Wallace State Office Bldg.
DesMoines, IA 50319
http://www.state.ia.us/govern
ment/dnr/organiza/epd/wtrq/
wtrqbur.htm
                                                201

-------
  USEPA Water Conservation Plan Guidelines
                                                                                        Appendix F
  State Contact List (continued)
 State
 Primacy Agency
 Drinking Water SRF
 Agency
                                                                        Water Resource Agency
 Kansas
 Bureau of Water
 Department of Health and
 Environment
 Forbes Field, Building 283
 Topeka, KS 66620
 785-296-5500
 http://www.state.ks.us/public/
                kdhe/bow.html
 Public Water Supply
 Supervision
 Bureau of Water
 Department of Health &
 Environment
 Forbes Field, Building 283
 Topeka, KS 66620
 785-296-5503
 http://www.state.ks.us/public/
                                                                        Kansas Water Office
                                                                        109 S.W. Ninth Street
                                                                        Suite 300
                                                                        Topeka, KS 66612-1249
                                                                        785-296-3185
                                                                        http://www.ink.org/public/kw
                                                                        o/
                                            kdhe/bow.html
 Kentucky
 Drinking Water Branch
 Natural Resources and
 Environmental Protection
 Cabinet
 14 Reilly Road
 Frankfort, KY 40601
 502-564-3410
 http://www.state.kv.us/agenci
 Division of Water
 Drinking Water Branch
 Department of Natural
 Resources & Environmental
 Protection Cabinet
 14 Reilly Road
 Frankfort, KY 40601
 502-564-3410
                es/nrepc/nrhome.htm
 Division of Water, Water
 Resources Branch
 Natural Resources and
 Environmental Protection
 Cabinet
 14 Reilly Road
 Frankfort, KY 40601
 502-564-3410
 Louisiana
 Office of Public Health
 Department of Health and
 Hospitals
 1201 Capitol Access Road,
 P.O. Box 629
 Baton Rouge, LA 70821-
 0629
 504-342-9500
 http://204.58.127.20/dhh/
 Municipal Facilities Division
 Department of Environmental
 Quality
 P.O. Box 82215
 Baton Rouge, LA 70884-
 2215  '
 504-765-0810
                                                                        Office of Water Resources,
                                                                        Department of Environmental
                                                                        Quality
                                                                        P.O. Box 82215
                                                                        Baton Rouge, LA 70884
                                                                        http://www.deq.state.la.us/ow
                                                                        r/owr.htm
Maine
 Department of Human
 Services
 221 State Street
 Augusta, ME 04333
 207-287-3707
 http://www.state.me.us/dhs/rn
 ain/welcome.htm
Department of Human
Services
10 State House Station
157 Capitol Street
Augusta, ME 04333-0010
207-287-5685
                                                                       Water Resource Regulation
                                                                       Division
                                                                       Bureau of Land and Water
                                                                       Quality
                                                                       Department of Environmental
                                                                       Protection
                                                                       17 State House Station
                                                                       Augusta, ME 04333-0017
                                                                       207-287-7789
                                                                       http://www.state.me.us/dep/!
                                                                       &w.gif
Maryland
Water Management
Administration
Department of the
Environment
2500 Broening Highway
Baltimore, MD 21224
410-631-3567
ittp://www.mde.state.md.us/
Public Drinking Water
Program
Department of the
Environment
2500 Broening Highway
Baltimore, MD 21224
410-631-3702
tttp://www.mde.state.md.us/
               wma/water.html
Water Management
Administration
Department of the
Environment
2500 Broening Highway
Baltimore, MD 21224
410-631-3567
ittp://www.mde.state.md.us/
                            wma/water.html
                                                                       wma/water.html
                                              202

-------
\3SEPA Water Conservation Plan Guidelines
                                                                        Appendix F
State Contact List (continued)
State
Primacy Agency
Prinking Water SRF
Agency
Water Resource Agency
Massachusetts
Water Resources
Commission
Department of Environmental
Protection
1 Winter Street
Boston, MA 02108
617-292-5948
http://www.magnet.state.ma.
Department of Environmental
Protection
1 Winter Street
Boston, MA 02108
617-292-5529
http://www.magnet.state.ma.
us/dep/dephome.htm
Water Resources
Commission
Department of Environmental
Protection
1 Winter Street
Boston, MA 02108
617-292-5948
http://www.magnet.state.ma.
                us/dep/dephome.htm
                                                        us/dep/brp/dws/dwspubs.htm
Michigan
Drinking Water and
Radiological Protection
Division
Department of Environmental
Quality
P.O. Box 30630
Lansing, MI 48909
517-335-9218
http://www.deq.state.mi.us/d
                wr/
Drinking Water and
Radiological Protection
Division
Department of Environmental
Quality
P.O. Box 30630
Lansing, MI 48909
517-335-8326
http://www.dea.state.mi.us/d
wr/
Department of Environmental
Quality
P.O. Box 30630
Lansing, MI 48909
517-373-7917
http://www.deq .state.mi.us/d
Minnesota
Department of Health
121 East Seventh Place
St. Paul, MN 55101
612-215-0700.
http://www.health.state.mn.us
Drinking Water Protection
Section
Department of Health
121 7th Place East
Suite 220
St. Paul, MN 55164-0975
612-215-0746
http://www.health.state.mn.us
Division of Waters
Department of Natural
Resources
500 Lafayette Road
Saint Paul, MN  55155
612-297-2835
Mississippi
Office of Health Regulation
State Department of Health
2423 North State Street.
P. 0. Box 1700
Jackson, MS 39215-1700
601-960-7518
http://www.msdh.state.ms.us/
Division of Water Supply
State Department of Health
P.O. Box 1700
Jackson, MS 39215-1700
601-960-7518
http://www.msdh.state.ms.us/
Office of Land and Water
Resources
Department of Environmental
Quality
P.O. Box 10631
Jackson, MS 39289
http://www.deq.state.ms.us/
Missouri
Public Drinking Water
Program
Division of Environmental
Quality
Department of Natural
Resources
P.O. Box 176
Jefferson City, MO 65102
 573-751-5331
http ://www.state.mo.us/dnr/d
ea/pdwp/homepdwp.htm
Public Drinking Water
Program
Department of Natural
Resources
P.O. Box 176
Jefferson City, MO 64102
573-751-5331
http://www.state.mo.us/dnr/d
ea/wDCP/home wpc.htm
Department of Natural
Resources
P. O. Box 176,
Jefferson City, MO 65102
1-800-334-6946
http://www.state.mo.us/dnr/d
eq/pdwp/homepdwp.htm
                                                203

-------
  USEPA Water Conservation Plan Guidelines
                                                                                        Appendix F
  State Contact List (continued)
 State
 Primacy Agency
 Drinking Water SRF
 Agency
                                                                         Water Resource Agency
 Montana
 Department of Environmenta
 Quality
 P.O. Box 200901
 Helena, MT 59620-0901
 406-444-2544
 http://www.deq.mt.gov/
 Technical and Financial
 Assistance Bureau
 Department of Environmental
 Quality
 P.O. Box 200901
 Helena, MT  59620-0901
 406-444-6776
                                                                         Water Resources Division
                                                                         Department of Natural
                                                                         Resources and Conservation
                                                                         48 N. Last Chance Gulch
                                                                         Helena, MT 59620-2301
                                                                         406-444-6601
                                                                         http://www.dnrc.mt.gov/wrd/
                                                                         home.htm
 Nebraska
 Division of Environmental
 Health
 Department of Health and
 Human Services
 301 Centennial Mall South
 P.O. Box 95007
 Lincoln, NE 69509
 402-471-2541
 http://www.hhs.state.ne.us/en
 Department of Health &
 Human Services
 301 Centennial Mall South,
 3rd Floor
 P.O. Box 95007
 Lincoln, NE  68509-5007
 402-471-2541
 http://www.hhs.state.ne.us/en
                                                                         The Nebraska Natural
                                                                         Resources Commission
                                                                         301 Centennial Mall South
                                                                         Lincoln, NE 68509
                                                                         402-471-2081
                                                                         http://www.nrc.state.ne.us/
                                            h/index.htm
                h/index.htm
 Nevada
 State Health Division
 Department of Human
 Resources
 505 East King Street, Room
 203
 Carson City, NV 89706-
 7921
 702-687-3600
 http://www.state.nv.us/health
 /bhps/sdwp.htm
 Bureau of Health Protection
 Service
 State Health Division
 Department of Human
 Resources
 1179FairviewDrive
 Carson City, NV 89701-
 5405
 702-687-6615
 http://www.state.nv.us/health
                                                                        Division of Water Planning,
                                                                        Department of Conservation
                                                                        and Natural Resources
                                                                        1550 E. College Parkway,
                                                                        Suite 142
                                                                        Carson City, NV 89706-
                                                                        7921
                                                                        702-687-3600
                                            /bhps/sdwp.htm
New
Hampshire
Division of Water Resources
Department of Environmental
Services
64 No. Main Street
Concord, NH 03301-4913
603-271-3406
http://www.state.nh.us/des/bi
                owrd.htm
Water Supply Engineering
Bureau
Department of Environmental
Services
6 Hazen Drive
P.O. Box 95
Concord, NH 03302-0095
603-271-3503
Division of Water Resources
Department of Environmental
Services
64 No. Main Street
Concord, NH 03301-4913
603-271-3406
http://www.state.nh.us/des/bi
                                                                        owrd.htm
New Jersey
Office of Water Policy
Analysis
Department of Environmental
Protection
CN-426
Trenton, NJ 08625
609-292-7219
ittp://www.state.ni.us/dep/
Water Supply Element
Department of Environmental
Protection
CN426
401 E. State Street, 3rd Floor
Trenton, NJ 08625
609-292-7219
ittp://www.state.ni.us/dep/
Bureau of Water Allocation,
Department of Environmental
Protection
CN-426
401 E. State Street, 3rd Floor
Trenton, NJ 08625
609-292-2885
ittp://www.state.ni.us/dep/
                                               204

-------
USEPA Water Conservation Plan Guidelines
                                                                       Appendix F
State Contact List (continued)
State
Primacy Agency
Drinking Water SRF
Agency
Water Resource Agency
New Mexico
Drinking Water Compliance
Section, Field Operations
Division, Drinking Water and
Community Services Bureau
Environment Department
525 Camino de los Marquez,
Suite 4
Santa Fe, NM 87502
505-827-7536
http://www.nmenv.state.nm.u
s/field  op.html	
Drinking Water Bureau
Environment Department
525 Camino De Los Marquez
Suite 4, P.O. Box 26110
Santa Fe,NM 87502
505-827-7536
Office of the State Engineer
Interstate Stream
Commission
P.O. Box 25102
Santa Fe, NM 87504-5102
505-827-6175
http://www.seo.state.nm.us/
New York
Bureau of Public Water
Supply Protection, Div. of
Environmental Protection
Department, of Health
50 Wolf Rd., Room 302
Albany, NY  12233-3505
518-458-6423
http://www.health.state.nv.us/
Bureau of Public Water
Supply Protection
Department of Health
2 University Place, Room
410
Albany, NY 12203-3313
518-458-6731
http://www.health.state.nv.us/
Division of Water
Department of Environmental
Conservation
50 Wolf Rd., Room 302
Albany, NY  12233-3505
518-457-2470
North
Carolina
Public Water Supply Section
Div. of Environmental Health
Department of Environment,
Health and Natural Resources
P.O. Box 29536
Raleigh, NC 27626
919-733-2321
http://www.deh.ehnr.state.nc.
us/pws/index.htm
Public Water Supply Section
Department of Environment,
Health & Natural Resources
P.O. Box 29536
Raleigh, NC 27626
919-733-2321
http://www.deh.ehnr.state.nc.
us/pws/index.htm
Division of Water Resources,
Department of Environment,
Health and Natural Resources
512N. Salisbury Street
Raleigh, NC 27604
919-715-3047
http://www.dwr.ehnr.state.nc.
us/home.htm
North Dakota
Div. of Municipal Facilities
Environmental Health
Section
Department of Health
1200 Missouri Ave.
P.O. Box 5520
Bismarck, ND 58506-5520
701-328-5150
http://www.ehs.health.state.n
d.us/ndhd/environ/homepage.
htm
Division of Municipal
Facilities
Department of Health
1200 Missouri Avenue
Bismarck, ND  58506
phone: (701)328-5211
http://www.ehs.health.state.n
d.us/ndhd/environ/homepage.
htm
North Dakota State Water
Commission
900 E. Boulevard Avenue
Bismarck, ND  58505
701-328-4989
http://water.swc.state.nd.us/
Ohio
Division of Drinking and
Ground Waters
Environmental Protection
Agency
1800 Watermark Drive
P.O. Box 1049
Columbus, OH 43216-1049
614-644-2752
http://www.epa.ohio.gov/dda
gw/ddagwmain.html
Division of Drinking Water/
Groundwater
Environmental Protection
Agency
P.O. Box 1049
1800 Watermark Drive
Columbus, OH 43216-1049
614-644-2752
http ://www.epa.ohio. gov/dda
gw/dwsrf.html
Department of Natural
Resources
Building E-2
1939 Fountain Square Court
Columbus, OH 43224
614-265-6610
http://www.dnr.state.oh.us/od
nr/soil+water/soil+water.html
                                               205

-------
 USEPA Water Conservation Plan Guidelines
                                                                        Appendix F
 State Contact List (continued)
 State
 Primacy Agency
 Drinking Water SRF
 Agency	
 Water Resource Agency
 Oklahoma
 Water Quality Division
 Department of Environmental
 Quality
 1000 Northeast 10th Street
 Oklahoma City, OK 73117-
 1212
 405-271-5205
 http://www.deq.state.ok.us/w
 ater.html
 Water Quality Division
 Department of Environmental
 Quality
 1000 Northeast Tenth Street
 Oklahoma City, OK 73117-
 1212
 405-271-5205
 http://www.deq.state.ok.us/w
 ater.html
 Water Resources Board
 3800 North Classen Blvd.
 Oklahoma City, OK 73118
 405-530-8845
 Oregon
 Drinking Water Program
 Health Division
 Department of Human
 Resources
 500 Summer Street, NE -
 Salem, OR 97310-1012
 503-731-4010
 http://www.hr.state.or.us/
 Health Division
 Department of Human
 Resources
 800 NE Oregon Street
 P.O. Box 14360
 Portland, OR 97293-0460
 503-731-4010
 http://www.hr.state.or.us/
 Water Resources Department
 Commerce Building
 158 12th Street
 Salem, OR 97310
 503-378-3739
Pennsylvania
 Bureau of Water Supply
 Management
 Office of Water Management
 Department of Environmental
 Protection
 P.O. Box 8467
 Harrisburg, PA  17105
 717-787-5017
 http://www.dep.state.pa.us/de
 Municipal Financial
 Assistance Division
 Department of Environmental
 Protection
 P.O. Box 8467
 Harrisburg, PA  17105-8467
 717-772-4054
                p/deputate/watermgt/wsm/ws
               m-htm
 Bureau of Watershed
 Conservation
 Office of Water Management
 Department of Environmental
 Protection
 P.O. Box 8467
 Harrisburg, PA  17105
 717-787-5267
 http://www.dep.state.pa.us/de
 p/deoutate/watermgt/wc/wc.h
 tm
Rhode Island
Division of Drinking Water
Quality
Department of Health
Three Capitol Hill,
Providence, RI02908-5097
401-277-2231
http://www.state.ri.us/stdept/s
Drinking Water Quality
Division
Department of Health
3 Capitol Hill
209 Cannon Building
Providence, RI 02908
401-277-6867
Water Supply Management
Division
Department of Environmental
Management
235 Promenade Street
Providence, RI 02908
401-277-4700
               d29.htm
South
Carolina
Bureau of Water
Department of Health and
Environmental Control
26 Bull Street
Columbia, SC 29201
803-734-5342
http://www.state.sc.us/dhec/e
Water Pollution Control
Department of Health and
Environmental Control
2600 Bull Street
Columbia, SC 29201
803-734-5283
Water Resources Division,
Department of Natural
Resources
1201 Main Street, Suite 1100
Columbia, SC 29201
803-737-0800
http://water.dnr.state.sc.us/wa
               qcburea.htmff
                                                       ter/index.html
                                              206

-------
USEPA Water Conservation Plan Guidelines
                                                                        Appendix F
State Contact List (continued)
State
Primacy Agency
Drinking Water SRF
Agency
Water Resource Agency
South Dakota
Drinking Water Division
Department of Environment
and Natural Resources
523 E. Capitol Avenue
Pierre, SD 57501-3181
605-773-3754
http://www.state.sd.us/state7e
xecutive/denr/denr.html
Water and Waste Funding
Assistance
Department of Environment
& Natural Resources
Joe Foss Building
523 East Capitol
Pierre, SD 57501-3181
605-773-4216
http://www.state.sd.us/state/e
xecutive/denr/denr.htmi
Drinking Water Division
Department of Environment
and Natural Resources
523 E. Capitol Avenue
Pierre, SD 57501-3181
605-773-3754
http://www.state.sd.us/state/e
xecutive/denr/denr.html
Tennessee
Texas
Division of Water Supply
Department of Environment
and Conservation
L and C Tower, 6th Floor
401 Church Street
Nashville, TN 37243
615-532-0191
http ://www.state.tn.us/enviro
ntnent/
Division of Water Supply
Department of Environment
& Conservation
401 Church Street, 6th Floor
L&C Tower
Nashville, TN 37243-1549
615-532-0155
Division of Water Supply
Department of Environment
and Conservation
L and C Tower, 6th Floor
401 Church Street
Nashville, TN 37243
615-532-0191
http://www.state.tn.us/enviro
nment/
Public Drinking Water
Section of the Water Utilities
Division
Natural Resource
Conservation Commission
P.O. Box 13087
Austin, TX 78711-3087
512-239-1000
http://www.tnrcc.state.tx.us/
Natural Resources
Conservation Commission
P.O. Box 13087
Austin, TX 78711-3087
512-239-6020
Water Development Board
P.O. Box 13231, Capitol
Station
Austin, TX 78711
512-463-8061
Utah
Division of Drinking Water,
Department of Environmental
Quality
P.O. Box 144830
Salt Lake City, UT  84114-
4830
801-536-4188
http://www.eq.state.ut.us/eqd
w/welcome.htm       	
Division of Drinking Water,
Department of Environmental
Quality
P.O. Box 144830
Salt Lake City, UT  84114-
4830
801-536-4197
http://www.eq.state.ut.us/eqd
w/welcome.htm
Board of Water Resources
P.O. Box 146201
Salt Lake City, UT  84114-
6201
801-538-7299
http://www.nr.state.ut.us/wtrr
esc/brddivbf.htm
Vermont
Water Supply Division
Department of Environmental
Conservation
Agency of Natural Resources
103 South Main Street
Waterbury, VT  05671-0403
802-241-3600
http://www.anr.state.vt.us/
Water Supply Division
Department of Environmental
Conservation
Old Pantry Building
103 South Main Street
Waterbury, VT 05671-0403
802-241-3400
Water Resources Board,
Environmental Board
National Life Records Center
Building, Drawer 20
Montpelier, VT  05602
802-828-3309
http://www.state.vt.us/wtrboa
rd/index.htm
                                               207

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 USEPA Water Conservation Plan Guidelines
                                                                        Appendix F
 State Contact List (continued)
 State
 Primacy Agency
 Drinking Water SRF
 Agency
 Water Resource Agency
 Virginia
 Division of Water Supply
 Engineering
 Office of Water Programs
 Department of Health
 Room 109
 1500 East Main Street,
 Richmond, VA 23219
 804-371-2885
 http://www.vdh.state.va.us/o
 wp/water supply.htm
 Division of Water Supply
 Engineering
 Department of Health
 1500 East Main Street, Room
 109-31
 Richmond, VA  23219
 804-786-1768
 http://www.vdh.state.va.us/o
 wp/water supplv.htm
 Department of Environmental
 Quality
 629 East Main Street
 Richmond, VA 23240
 804-698-4471
 http ://www.deq .state.va.us/en
 vprog/watqual.html
Washington
 Division of Drinking Water
 Department of Health
 Airdustrial Way, Building 3
 P.O. Box 47822
 01ympia,WA 98504-7822
 360-586-5207
 http://l 98.187.0.42:80/default
 Division of Drinking Water
 Department of Health
 Airdustrial Way, Building 3
 P.O. Box 47822
 01ympia,WA 98504-7822
 360-236-3093
 http://198.187.0.42:80/default
 Department of Ecology
 Water Resources Program
 PO Box 47600
 Olympia, WA 98504-7600
 360-407-6602
 http://www.wa.gov/ecology/
 wr/wrhome.html
West Virginia
 .htm	
 Bureau for Public Health
 Environmental Engineering
 Division
 Office Of Environmental
 Health Services
 304-558-2981
                                            .htm
Bureau for Public Health
Office of Environmental
Health Services
815 Quarrier Street #418
Charleston, WV 25301-2616
304-558-2981
Office of Water Resources
Division of Environmental
Protection
1201 Greenbriar Street
Charleston, WV 25311
304-558-2108
http://charon.osmre.goV/wr/w
                                                                        r.html
Wisconsin
Bureau of Drinking Water/
Groundwater
Department of Natural
Resources
P.O. Box 7921
Madison, WI53707
608-266-0821
http://www.dnr.state.wi.us/ea
Bureau of Drinking Water/
Groundwater
Department of Natural
Resources
P.O. Box 7921
Madison, WI  53707-7921
608-267-7651
http://www.dnr.state.wi.us/ea
               /wq/dw/
Water Management
Department of Natural
Resources
101 South Webster Street,
WT-2
Madison, WI 53707
608-267-2375
http://www.dnr.state.wi.us/
                            /wq/dw/
Wyoming
Water Quality Division
Department of Environmental
Quality
Herschler Building
122 West 25th Street
Cheyenne, WY' 82002-0600
307-777-7075
Water Quality Division
Department of Environmental
Quality
Herschler Building
122 West 25th Street
Cheyenne, WY 82002-0600
307-777-7075
State Engineer Office
Herschler Building, 4 East
Cheyenne, WY 82002
307-777-5927
http://www-
wwrc.uwvo.edu/wrds/seo/seo
                                                                       .html
                                                                       Water Development Comm.
                                                                       4 West Herschler Building
                                                                       Cheyenne, WY 82002
                                                                       307-777-7626
                                                                       http://www-
                                                                       wwrc.uwvo.edu/wrds/wwdc/
                                                                       wwdc.html
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