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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CONTENTS
EXECUTIVE SUMMARY
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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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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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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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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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PART 1
INFORMATION FOR STATES
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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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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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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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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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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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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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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.
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USEPA. Water Conservation Plan Guidelines
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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).
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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.
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USEPA Water Conservation Plan Guidelines
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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.
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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.
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USEP A. Water Conservation Plan Guidelines
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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
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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.
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USEPA. Water Conservation Plan Guidelines
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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.
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USEPA Water Conservation Plan Guidelines
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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).
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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.
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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
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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.
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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
I
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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.
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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)
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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.
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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.
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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.
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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.
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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.
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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
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USEPA Water Conservation Plan Guidelines
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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.
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USEPA Water Conservation Plan Guidelines
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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.
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WaXer Conservation Plan Guidelines
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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
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USEPA Water Conservation Plan Guidelines
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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.
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USEPA. Water Conservation Plan Guidelines
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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:
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Basic Guidelines
[blank page]
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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
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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.
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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.
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USEPA Water Conservation Plan Guidelines
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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).
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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
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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.
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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
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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.
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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?
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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.
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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.
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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.
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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
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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.
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XJSEPA. Water Conservation Plan Guidelines
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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.
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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.
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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.
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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
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\JSEP A. Water Conservation Plan Guidelines
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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.
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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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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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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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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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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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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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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
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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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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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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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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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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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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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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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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
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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]
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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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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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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
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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).
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\JSEPA Water Conservation Plan Guidelines
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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
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USEPA Water Conservation Plan Guidelines
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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.
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\JSBPA "Water Conservation Plan Guidelines
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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
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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.
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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?
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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.
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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).
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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.
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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.
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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
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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.
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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.
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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.
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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]
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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)
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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.
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Worksheet 5-8: Checklist of Conservation Measures
Measure [a]
1
.xi
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USEPA Water Conservation Plan Guidelines
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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.
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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. 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.
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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.
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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.
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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:
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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.
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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.
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\3SEP A. Water Conservation Plan Guidelines
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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.
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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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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.
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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
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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
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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.
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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.
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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.
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\3StPAbater Conservation Plan Guidelines
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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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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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\3SEPA 'Water Conservation Plan Guidelines
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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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USEPA Water Conservation Plan Guidelines
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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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[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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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
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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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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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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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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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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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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.
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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):
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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
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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.
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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:
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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.
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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
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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.
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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.
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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.
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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.
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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
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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.
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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.
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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
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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.
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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.
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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.
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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.
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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.
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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.
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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.
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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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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.
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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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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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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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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
-------
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
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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
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
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\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
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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
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
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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
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
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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
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
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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
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
208
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