cts»tes Region VIII December
Environmental Protection Denver, CO 1982
Agency
Water
&EPA Evaluation of Denver's
Water Conservation Program
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"R8
\ioU<3.
EVALUATION OF DENVER'S
WATER CONSERVATION PROGRAM
Prepared By:
Gene R. Reetz, Hydrologist (Evaluation Team Leader)
Dean R. Chaussee, SuDervisory Environmental Engineer
Cecelia Forget, Environmental Protection SDecialist
Jack W. Hoffbuhr, Deputy Director, Water Management Division
Garrett 3. Voerman, Environmental Protection Specialist
Environmental Protection Agency
Region VIII
1360 Lincoln Street
Denver, Colorado 30295
December 1932
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CONTENTS
Page
EXECUTIVE SUMMARY I
CHAPTER I - INTRODUCTION 1
Background 1
Foothills Consent Decree 2
EPA Evaluation Process 2
Acknowledgments 3
CHAPTER II - DENVER'S INSTITUTIONALIZED WATER CONSERVATION PROGRAM 4
Program Development 4
Program Elements 5
Expenditures 14
CHAPTER III - WATER CONSERVATION GOALS 15
Water Use Measurement 15
Denver Water Use Trends 15
Future Water Use 19
Additional Water Use Factors 20
Consent Decree Goals 20
CHAPTER IV - CONCLUSIONS AND RECOMMENDATIONS 21
Conclusions 21
Reconmendations 21
APPENDIX A - WATER CONSERVATION IN OTHER COMMUNITIES 24
APPENDIX B - DENVER WATER CONSERVATION PROGRAM EXPENDITURES 29
APPENDIX C - WATER CONSERVATION BIBLIOGRAPHY 30
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As shown by Table ES-1, actual water use for Denver's service area in
1981, based on the correct data, was 226 GCD. This indicates that the Denver
Water Boara failed to meet the goals established in the Decree. However,
these figures fail to take into account dominant factors that directly
influence water use - precipitation and temperature. The use of a fixed GCD
goal 1s misleading in that it may give the appearance of conservation during
wet years and of lack of conservation during dry years. What should be
measured is conservation, not rainfall.
A realistic analysis of water use and the setting of future goals should
take into account the effects of temperature and precipitation. Therefore,
the Regional Admnistrator recommends that the concept of a normalized demand,
i.e., demand calculated through analysis of historical weather and water use
data be used in the future to measure the progress of the Denver Water Board
in meeting its water conservation goals. Based on 20 years of historical
weather data and using regression analysis, the calculated (normalized) demand
vs. the actual usage is shown in Table ES-2:
Table ES-2
Actual Usage Vs. Calculated Water Use
(GCD)
Year Actual Usage Calculated Demand X Change
1978 248 251 -IX
1979 222 225 -IX
1980 243 253 -4%
1981 226 245 -8%
1983 Recommended Goal -11%
1988 Recommended Goal -17%
The calculated usage is the water use that might have occurred given only
the actual population, temperature, and precipitation. In other words, factors
such as conservation efforts are not considered. Thus, while the goal stated
in the Decree (even using the more accurately calculated goal of 211 GCD) was
not met, the percentage reduction, based on the difference between actual
usage and normally anticipated usage (-8%), at least realized the goals of the
Decree.
Water usage in 1981 was 856 below what would have been expected given
actual weather conditions. Therefore, the Regional Administrator recommends
that the January 1, 1984 goal be an 11% reduction from the calculated demand
(using the normalized demand analysis) given the weather factors during
calendar year 1983. This reflects an additional 3% savings over the 8%
reduction achieved in 1981.
The Regional Administrator further recommends that the goal for
January 1, 1989 be a reduction in actual usage of 17% from the calculated
demand for calendar year 1988.
The Regional Administrator further finds and determines that there is no
evidence of bad faith on the part of the Denver Water Board in attempting to
meet the water conservation goals established in the "Foothills Consent
Decree."
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EXECUTIVE SUMMARY
The controversy surrounding the construction of the Foothills Water
Project L'.ie'j me 1979 "Foothills Consent Decree.0 That Decree
mandated the following responsibilities to the Regional Administrator of the
Enviroriental Protection Agency, Region VIII:
1) Monitor the water conservation program of the Denver Water Board;
2) Evaluate Denver's progress and good faith efforts to attain the
water conservation goals set forth in the decree; and
3) Recommend conservation goals for 1984 and 1989.
Water conservation goals established by the Decree were based on the best
information available at the time, but subsequent findings show that the base
average used to calculate the goals was inaccurate. The average water use for
the base period (1968-1977) was computed to be 209 gallons per capita per day
(GCD). Goals of a 3% reduction by 1982, and a 556 reduction by 1984 were then
established. The Denver Water Board was thus expected to meet a 203 GCD limit
by January 1, 1982, and a 199 GCD limit by January 1, 1984.
The original base (209 GCD) was found to be inaccurate because the
results of 1980 census showed that the population served had been over-
estimated. Additionally, it was discovered that not all water sales had been
accounted for in the water consimption data. Table ES-1 indicates the
original figures and the revised figures using the correct data. Based on
this information, the actual water usage for the base period is 218 GCD and
the goals become 211 GCD for January 1, 1982 and 207 GCD for January 1, 1984,
[3X and 5% reductions as specified in the Consent Decree).
Table ES-1
Denver Water Use
(GCD)
Years(s)
1968-77
(ave.)
1978
1979
1980
1981
(1/1/82)
1983
(1/1/84)
Original
Consent
Decree
209
203
199
Corrected
Using 1980
Population
2l9
249
224
244
227
Corrected
for Water Sold
to Aurora
& Others
218
248
222
243
226
Adjusted
Consent Decree
Fiqures
218
211
(3% reduction)
207
(5% reduction)
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CHAPTER I
INTRODUCTION
This rsoort was orepared by EPA in partial fulfillment of its
res oonsibili ties as SDecified in the 1979 "Foothills Consent Decree." This
Decree was an out-of-court settlement agreement among numerous litigants
involved in the Denver Hater Board's Foothills Project.
Background
The Foothills Project consists of Strontia Sorings Dam in Waterton Canyon,
a 3.4 mile diversion tunnel, and a water treatment Dlant. In reviewing the
DWS's application for a right-of-way permit across federally managed land, the
Deoartment of the Interior determined that an Environmental Impact Statement
was required by Section 102(2)(c) of the National Environmental Policy Act
(NEPA). In addition to the NEPA requirements, right-of-way permits were
required from both the 3ureau of Land Management (BL'-I) and the Forest Service,
and a "404" Dredge and Fill Permit was required from the Corns of Engineers.
The Foothills Project generated considerable controversy over the
environmental impacts, the adequacy of consideration of alternatives,
efficiency of water use in Denver, ootential impacts on development patterns
and subsequently, on ambient air quality in Denver. The original draft
Environmental Impact Statement (EIS) was released in January 1975 but was
determined to be of insufficient scope to comply with NEPA requirements.
A second draft EIS was issued in August, 1977 but still did not resolve
manv of the concerns raised earlier. The final EIS was released in February,
1973 but was still considered inadequate by EPA and consequently, was referred
to the Council on Environmental Quality (CEQ). CEQ basically concurred with
EPA and recommended that the special use permits not be issued and that the
EIS be withdrawn as inadequate.
In resDonse to concerns about the issuance of the required permits, the
City and County of Denver, through the Denver Water Board, and the Homebuilders
Association of Metropolitan Denver filed suit against the Secretary of the
Interior and several agencies (including EPA), organizations and individuals
in order to require issuance of the permits. (City and County of Denver, et.
al. vs. Cecil D. Andrus, et. aK) A counter suit was filed by opoonents of
the Foothills Project in Federal District Court in Washington (National
Wild!ife Federation, et. al_., PIaintiffs, vs. Secretary of the Department of
the Interior, et. al., Defendants).
These two suits were settled out of court in February 1979 through the
signing of the Foothills "Consent Decree", also referred to as the Foothills
"Settlement Agreement". In signing the Consent Decree document, the litigants
basically agreed to permit the Foothills project to proceed and that, among
other requirements, a water conservation program would be implemented by the
Denver Water 3oard.
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Foothills Consent Decree
The Foothills Consent Decree and accomoanying stioulations cover a broad
array of issues which were raised during the course of the debate over the
Foothill riujeuL. jf s^cific interest to this report are the settlement
conditions relative to water conservation.
Denver's responsibilities for water conservation as stated in the Consent
Decree are:
5. a. ...Denver will further institutionalize conservation measures
into its activities. Denver has agreed to develop and intends to
implement a conservation program and, no later than the 56th day
after the dismissal of the claims herein, will present to its water
users the conservation program, which program may be revised by
Denver from time to time, and which is designed to reduce present
average annual consumption within Denver and its treated water
contract service area from 209 gallons oer capita per day (gcd) to a
goal of 203 gcd by January 1, 1982 and to a goal of 199 gcd by
January 1, 1984.
b. In 1984 after the evaluation called for in subDaragraph 5.c., a
further reduction goal in the range of 3 to 5% (from the goal of 199
gcd) to be sought in the five years subsequent to January 1, 1984
will be finally determined according to the procedures set forth in
subparagraDh 5.c. In 1939, again following the subDaragraph 5.c.
evaluation of progress and, in view of the then existing situation,
a further reduction to be sought in the ensuing 10 years will be
finally determined according to the procedures set forth in
subparagraDh 5.c. The parties presently estimate this figure to
fall in the range of 5 to 10%.
The Environmental Protection Agency's requirements are to monitor and
evaluate Denver's Water Conservation program and to recontnend conservation
goals:
5. c. The Regional Administrator of Region VIII of the EPA shall
assume primary responsibility for monitoring the above conservation
program. At the end of each of these periods (January 1, 1982,
January 1, 1934, January 1, 1939), the Regional Administrator of the
EPA shall evaluate Denver's progress and good faith efforts to
attain the goals set forth in subparagraohs 5.a. and b., and
recommend the 1984 and 1989 goals. In the event of disputes between
EPA and Denver, the Army Corps of Engineers (Omaha District
Engineer) shall be the final administrative arbitrator, with its
findings being subject to judicial review.
EPA Evaluation Process
To comoly with requirements in the Consent Decree that EPA evaluate
Denver's "orogress and good faith efforts" to attain the water conservation
goals and also to recommend goals for 1984 and 1339, an Evaluation Team was
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formed with representatives from the Environmental Assessment Branch, Drinking
Water Branch, and the State Programs Management 3ranch. The Office of
Regional Counsel was also involved on an ad hoc basis.
Litigants in the Foothills Consent Decree were notifed by telephone and
also by ^rtt" frtr. tu.c "clonal Administrator that EPA was commencing the
required evaluation. Key local and State political leaders were similarly
notified. Participation in the evaluation was solicited; however, responses
were generally limited to a request to be "kept informed" on the results of
the evaluation.
The principal thrusts of the evaluation centered on a review of status of
the individual elements in Denver's Institutionalized Water Conservation Plan
(discussed in Chapter II) and an examination of water use information
(discussed in Chapter III). Information was obtained through numerous
meetings with appropriate staff from the Denver Water Department.
To obtain broader background knowledge on municipal water conservation
programs and opportunities, a literature review was made. In addition, a
number of communities along the Front Range and selected metropolitan areas in
the West were contacted regarding their water conservation activities
(summarized in Appendix A).
There are several current, ongoing activities which are relevant to EPA's
evaluation responsibilities. In the interest of sharing information and
avoiding unnecessary duplication of efforts, the Evaluation Team contacted the
Denver Water Board Citizen's Advisory Committee (CAC), the Governor's Metro-
politan Water Roundtable, and the U.S. Corps of Engineers. The CAC was
established as a condition of the Consent Decree to provide citizen input to
Water Board Activities. A "Water Conservation-Landscaping Task Force" was
formed by the CAC, and the development of the "E-T" program (see Chapter II)
came primarily from that group. The Roundtable effort is an attempt to
formulate a "consensus" plan for meeting water needs in the Metropolitan
area. A "Water Use Efficiency and Recycling Task Group" prepared a report to
the Roundtable on water conservation opportunities.
Lastly, the Corps of Engineers has accepted the lead in preparing a
"Systemwide Environmental Impact Statement" on the emulative effects of
future water development proposals of the Denver Water Board. Preparing this
assessment is also a stioulation in the Settlement Agreement. Although this
effort is just beginning, it is anticipated that water conservation will be an
integral element of the Systemwide EIS.
Acknowledgments
As noted previously, the major portion of the evaluation effort centered
around information and data obtained from the Denver Water Department (DWD).
Numerous meetings were held with DWD staff and the Evaluation Team very much
appreciates the professionalism, ooenness, and patience of the DWD staff in
assisting EPA in carrying out its responsibilities. In particular, the Evalu-
ation Team acknowledges the assistance of John Wilder, Conservation Officer;
and R. D. Wiley, Manager of General Planning; and Mary Martin, Planner. The
information provided by the DWD staff was critical to this report, however,
EPA alone bears responsibility for contents.
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CHAPTER II
Denver's Institutionalized Water
Conservation Program
The information in this chapter was provided by Denver Water Department
(DVD) staff members through a series of information-gathering meetings with
the EPA Evaluation Team. These meetings were held between May and August,
1982. The Evaluation Team obtained information on the status of each element
In the program in terms of content, implementation, timing, and effectiveness.
The conservation plan elements are addressed in the order in which they appear
1n the Institutionalized Water Conservation Program as written in 1979.
Program Development
Immediately after the Settlement Agreement, a task force was formed,
consisting of representatives from the Denver Water Department (DWD), the
Office of Water Resources and Technology (OWRT), the Denver Regional Counsel
of Governments (DRCOG), the Denver Planning Office, and the Colorado Depart-
ment of Natural Resources. This task force was charged with developing the
conservation program for the DWD. The DWD staff briefed EPA in June 1979, on
the Water Conservation Plan. EPA indicated in a letter dated June 20, 1979
that it had briefly reviewed the executive summary of the Draft Water Conser-
vation Plan and supported the concepts presented therein. The Plan was
presented to and adopted by the Water Board on June 20, 1979. The complete
Plan was then submitted to EPA. Executive Summaries were distributed to
several entities (e.g., DWD suburban contract customers, state legislators,
planning offices, building department, and numerous city agencies). The major
elements of DWD's Water Conservation Plan are listed in Table II-l.
Table II-l
Denver Water Department's Institutionalized Water Conservation Program:
I. Education and Public Information
A) Ongoing TV and Printed News Media Program
B) Daily Watering Graph (E-T Program)
C) RTD Mobile Program
D) Silent Salesman for Building Owners and Managers
E) Real Estate Package for Home Buyers
F) Demonstration House
G) Plumbing Fixture and Aopliance Rating System
H) School Poster Contest
I) Denver Parks Department Notice and Sign Program
J) Water Bill Consumption Program
K) DWD In-School Teacher Program
I) Reassignment of Water Use by Class
II. Retrofit Program
III. Code Regulations and Provisions
IV. Leak Detection Program
V. Pressure Reduction Program Analysis
VI. Universal Metering
VII. Filter Plant Water Measurement
VIII. Denver Water Department Successive Use Program
IX. Conservation through Rate Modification
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Program Elements
I. Education and Public Infomation
The Denver Water Oeoartment's stated purpose with respect to public
education has been to develop a conservation "ethos" rather than impose
"quick-fix solutions". The primary approach for accomplishing this has been
an emDhasis on the economic benefits of water conservation.
A. On-Soinq TV and Printed News Media Program
The Water Board has chosen not to buy TV time, and therefore, has had to
rely on Public Service Announcements (PSAs) to convey their message. The
primary reason for not buying advertising time has been the Water Board's
concern over customer reaction about the propriety of such expenditures. The
Water Oeoartment does not have a schedule for TV, radio, or newspaper ads for
the coming year. They "play it by ear" and "take what they can get" due to
lack of funds allocated to purchase advertising time.
"Water Follies", an animated "short" film depicting instances of common
water wastage and conservation practices is one of the primary audio-visual
materials distributed by the DWD. The DID has developed several public
service "spots" from the film. The film has been purchased by some stations
(and HBO) and EPA. It was not possible to accurately determine how often the
film has been shown or the extent of exposure the PSAs have had. 0VO has
Droduced other films including the "ECH20NERGY House" (1979) which was
essentially a tour of the house and grounds and a discussion of the relevant
water and energy conservation features.
DVD has developed radio "spots" or "drop-ins" (PSA's) and distributed
them to all Denver-area radio stations for use at their discretion. DWD has
distributed the Fred Arthur song on water conservation to the top 15 radio
stations in Denver. These messages were aired by some stations, but the
frequency of air time is uiknown.
DWD staff have appeared on KHOW this year for a talk and phone-in program
which was subsequently divided into several short segments for future use.
They also appeared on the Peter Boyle Talk Show (KOA radio). Additional TV
and radio Drograms Dromoting water conservation include the use of horticul-
tural experts Herb Gundell and Gerry Niederkorn. The Evapo-Transpiration
orogram (see Section 1(B): Daily Watering Graph) went into effect last year
and, in general, the news media have been very cooperative in advertising the
orogram.
DWD distributes conservation messages including information on E-T with
customers' water bills six times per year. The DWD distributes brochures on
Xeriscape and the E-T program to all nurseries and stores selling plants, lawn
and garden equipment, and landscaping materials. Articles have been published
on Xeri scape (see Section XI) and the Water Department's role in the Home and
Garden Show, in "Colorado Green", the Associated Landscaoe Contractors of
Colorado (ALCC) publication (Spring, 1982). These brochures were also distrib-
uted at the Home and Garden Show, the ECHpONERGY II demonstration home and
the Associated Landscaoe Contractors of Colorado trade show.
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The low cost-no cost orogram was a state-wide effort sponsored by the
Oeoartment of Energy with support from DVD and the Public Service Company of
Colorado. It consisted of mailing information and water flow restrictors
state-wide, following a three-week TV and printed news media promotion. This
mailing was preceaea Dy an advertising campai
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C. RTD Mobile Program
The Regional Transportation District (RTD) was contacted in 1979 relative
to carrying water conservation messages on the outside of their buses. RTD
told D'.E t!-,:v r.ot dive special consideration to any group for advertising
and that the back advertising panel on the buses was reserved for transporta-
tion issues. The matter was dropped until this year when RTD Indicated that a
waiver of their rules might be possible. RTD apparently told DWD they could
advertise for water conservation provided: (1) the advertisement was generic
enough to apply in the entire RTD service area, and (2) there was adequate
regional interest by water utilities. DWD developed a proposed poster after
soliciting and obtaining the support of the other 43 metro water suppliers.
RTD apparently took DVO's water conservation idea and transformed it into a
general statement about conserving natural resources. This was unacceptable
to DH), and the project was dropped. Advertising inside the bus was con-
sidered too expensive for the number of people reached. The Water Board feels
that it would be difficult to justify such costs when they feel the conser-
vation message can be delivered to their customers more economically through
other methods.
D. Silent Salesman
The Silent Salesman Proqram (i.e., the provision of stickers or tags
promoting water conservation) for building owners and operators has not yet
gone into effect. DWD has developed the art work for a set of stickers (which
would be placed on walls and mirrors) and plans to approach building managers
beginning this year. DWD will begin with government buildings, motels/hotels,
public buildings, (e.g., Stapleton Airport) and apartment houses.
DWD has approached some nurseries with the idea of tagging stocks of low
water consuming plants. The nurseries are not opposed to the concept, but
would like some idea as to the acceptability by the consumer, of this type of
vegetation in the Denver area. As a result, no tags have yet been placed on
nursery stock.
E. Real Estate Package for Homebuyers
In 1980, over 90% of the metro home builders, in cooperation with DWD and
PSC, sponsored a conservation program for new home buyers. This Drogram rates
a home and gives conservation credits based on the homes construction and
plumbing equioment. Mortgage lenders then allow the home buyer financial
credit toward loan qualification, based on the estimated cost savings from
conservation. There are no statistics on the number of homes sold under this
program. The Denver Board of Realtors has been approached by DWD about extend-
ing the program to resales and they are apoarently receptive to the idea but
feel this is not the aporopriate time to implement the program since the
industry is currently rather depressed.
F. Demonstration House
The first ECH2ONERGY home was shown in late summer to fall of 1979 to
approximately 30,000 people. The house was a joint venture among PSC, DWD and
the Denver Metro Homebuilders Association. The home included minimum grass
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landscaoing, low flush toilets, low-flow shower heads, low water use dish and
clothes washers, and all the latest state-of-the-art conservation devices. As
a result of this and other initiatives, PSC now includes a water use survey as
part of their home energy audit. They also distributed shower flow
restrictors and the brochure, "Forty-four Ways". ECH2ONERGY II, open to the
public in the Spring of 1982, incorporated all internal water-saving devices
and appliances and had a zoned and metered (for demonstration only) irrigation
system. Three different grass types and low use sprinkler systems were used.
(ECH2ONERGY II closed at the end of June 1982 and was visited by
approximately 40,000 people). The water use monitoring results for the
different types of vegetation will be provided early in 1983.
G. Plumbing Fixture and Appliance Rating System
The DVD worked with pltmbing suppliers in the area and promoted the
concept of supplying only water saving olumbing fixtures to builders and
plunbers. Dtf) maintains that only water saving fixtures are now available in
the Denver metro area. Therefore, it has been considered unnecessary to
establish a program to rate plumbing fixtures for their conservation potential.
An attempt was made to rate the water conservation potential of washing
machines and dishwashers. However, most of this equipment is coded and the
code nuuber changes yearly. Consequently, the DVD abandoned the appliance
rating system as ^workable. The DVD encourages buyers to ask for water
saving appliances through talks and literature.
H. School Poster Contest
Begun in the Summer of 1973, the school poster contest is conducted every
other year as a means of fostering conservation awareness. This contest
covers grade levels six through twelve. The posters are displayed at the D'.D
offices and at shoDDing centers.
Another special award program to encourage water conservation is the
"Great Gildersleeve" award. In 1982, this award was presented to Nick Schmidt
for his work on the E-T program. These awards are only given when the Di®
feels that a citizen deserves recognition for an especially noteworthy
contribution to water conservation.
I. Penver Parks Department - Signs and Non-Potable Water Use
This program element consists of identifying, for the public, the source
of park irrigation water and reducing water waste. DWD indicated that the
Denver Parks Department has been very cooperative with their sign program
(begun in 1930) as well as efforts to reduce water waste. (All parks were
metered as of last year).
The Parks Department has problems with watering the median strips on a
nunber of city streets. DWD found that high volimes of vehicular traffic,
vandalism, curb contour and other conditions often develop water waste prob-
lems between the time the staff turns on the sprinkler and when they return to
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shut it off. They would like to eliminate vegetation on some of the narrower
median sections and are interested in changing the irrigation systems to under-
ground and/or drip irrigation where possible. OIC) is testing these systems at
Xeriscape. Switching to new irrigation systems may be hampered by budget
constrai .
J. Water Bill Consumption Program
This program element consists of an inclusion in the bimonthly water bill
comparing the water consumption of the current blling period with that of the
same period for the previous year. It was implemented as of the Spring of
1982 and is available to metered customers only. The expectation by DWD is
that this information will be used by the customer to modify habits and reduce
consumotion. This information could also be helpful to owners and managers of
multi-family type dwelling units by alerting them to the presence of system
leakage.
K. DVD In-School Teacher Program
The DWD employs a fully certified teacher in its community affairs office
to teach school children the "why" of water conservation, and discuss all the
issues surrounding water in Colorado (e.g., the water cycle, East slope/West
slope controversy, water treatment). School visits are made by invitation
only and many schools have been visited numerous times. From 1976 to June 1,
1982, 35,092 students, representing 225 schools in 14 districts, have received
water conservation education. Most requests for talks come from schools
outside of Denver. D'-O also makes contacts through the Teacher Newsletter and
through "Water News", the DVD bill insert.
The Water Department also conducts summer bus tours of the elements of
their system located near the Denver Metro area. One of the tours is for
teachers only. DWD staff will talk to any group about water conservation.
The staff often volunteer to meet with neighborhood groups, community college
classes, or appear at special interest group functions for presentations.
L. Reassignment of Water Use by Class
This element of the water conservation program is intended to identify
water use by sector or class (e.g., residential, commerical, industrial) in
order to design a specific program analysis for each specific class of
customer. Water suppliers initially followed the rate classification system
established nine years ago by the Denver Metro Sewer System. This classifi-
cation is based upon sewage BOD and has led to some misclassifications of
water users. The customer classification system began in February 1981.
Develooing the necessary data base will take 2-3 years.
II. Retrofit Program
The retrofit of city buildings with water-saving devices began two years
ago and has been comDleted wherever possible. All city buildings, hospitals,
city shops and 7200 units of oublic housing have been retrofitted with shower
flow restrictors and, in some cases, sink faucet aerators. The DWD has no
data yet on water savings from the Retrofit Program.
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The federal government buildings have not been retrofitted. The DUD
hooes to approach the federal agencies through the Federal Regional Council
beginning in the Fall of 1932. The State has been contacted. The Retrofit
Program is expected to be complete within two years.
DIO checked on sending out water conservation kits (separate from the
no-cost/low-cost program) and found some communities were dissatisfied with
the kits available. Therefore, the DWD decided against buying conservation
packages. It does advertise flow restrictors at public talks and DWD "44 -Jays"
advises customers on retrofit. Approximately 250,000 restrictors have been
distributed. The program for assisting the elderly and handicapped with
retrofitting their homes has not materialized. DVD has worked with a few
building managers (e.g., University of Denver, Condominium Associations) and
plant engineers on leak detection and retrofitting programs.
III. Code Regulations and Provisions
The revision of code regulations and provisions has not been pursued
because of the multitude of governmental jurisdictions in the service area and
the legal and political difficulty in addressing the retrofitting of existing
residences. Additionally, DVO assunes that since newer buildings will be
fitted with water-saving devices, there would be no need for ordinances. The
Denver Building Department has been approached concerning planning and zoning
changes to regulate lot sizes and landscaDing. However, DID feels there is
little possibility for lot size or landscaping size requirements in the future
due to the political atmosphere and the great number of areas over which the
DVD has no control.
IV. Leak Detection Program
In their leak detection program, the Di/D uses a computer and other equip-
ment which is capable of locating the point of a leak within inches. This
operation has been functioning since June 1930. Because of its accuracy, this
process is also cost-saving by reducing unnecessary labor time and efforts.
DVD does issue notices of leak detection and does a follow-up inspection. It
is studying ways to detect/correct leaks in the raw water side of its system.
The DVD's objective is to survey the entire 2,000 miles of its water
lines. From June of 1980 to June of 1982, they have completed about 400
miles. The estimates in Table 11 -2 were provided by the DID.
Table II-2
Leak Detection Program
Miles
Water Saved Leaks Located Leaks
(Gallons) Non-visual Pin-ooi nt
Sur veyed
1930
1981
1982
90
392
97
32,130,000
8,525,300
36
5
93
48
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The amount of water saved is a "guesstimate", arrived at by measuring the
size of the leak and, through computer program based on a standard 10-day
projected flow, determining an estimate of water lost. The 10-day variable is
a standard projection but will not be used if actual time information is
available
V. Pressure Reduction Program Analysis
In 1930 and 1981, the DVD contracted with Brown and Caldwell to look at
the effect of water pressure reduction on water use. The results of this
study should be available in 1983.
VI. Universal Metering
The Denver Water System encompasses approximately 38,000 unmetered
residential services. A recent comparative study (DWD 3" Meter Study) of
water use in selected areas of the city indicates that 12,500 acre-feet of
water could be saved per year by metering Denver's flat-rate customers.
One of the major obstacles to the implementation of metering has been the
development of a financing arrangement. There are many options for paying for
meters, ranging from the customer making the total payment to the DWD assigning
the estimated S 40 million cost. DWD feels that unmetered customers should be
reimbursed both for the meter installation and for the water they "free-up" as
a result of decreased consumption.
The currently has an internal study underway on methods to pay for
metering. Meter installation is estimated to cost $400-1,500/home. The study
looks at how and from whom the money could be collected. DWD's preferred
option at this time seems to be required meter installation uDon resale of the
home. It is estimated that this would probably complete total metering in
8-11 years.
Any building conversions (from single family residences) or extensive
remodeling are noted by the Denver Building Department and passed on to DWD.
Meter installation is then required. The Conservation Program calls for meter
ing historic buildings within 90 days of application for historic status. No
data is available on the status of this program.
DWD refused money which the State Legislature had appropriated as a low
interest loan for meter installation because the contract required that D'/O
give up ownership and control of the meters (apparently in violation of their
city charter) and because the $5 million offered was only a small part of the
$40 million needed and was not available at one time.
VII. Filter Plant Water Measurement
This element of the Conservation Plan was designed to detect suspected
water loss in the Marston Plant. There are currently three meters measuring
inflow to the plan and eight meters measuring outflow. DWD discovered
discrepancies (plus and minus) in water use measurements and suspected they
were not properly accounting for all water use in the plant (e.g., leaks,
storage, backwashings).
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A plant survey was undertaken and large errors in two meter recorders
were discovered. Low flows in the winter were primarily responsible for the
mistakes. DWD is currently trying to calibrate the meters at Marston so the
problem will be eliminated. They are also investigating the margin of error
in the fiumes ana meters, if greater accuracy is attainable, OVD will study
the cost ettectiveness of replacing or modifying the meters.
The Moffat Plant had sonic meters Installed last year and does not appear
to have a problem.
VIII. Successive Use Program
Under conditions of the Blue River Decree (1955) and Senate Document 80
(Construction Settlement on Dillon Reservoir), Denver was required to look at
successive use of water in its system. In 1959, the University of Colorado
received a grant from the Federal Water Pollution Control Administration to
look at the possibility of starting a pilot reuse plant. In 1970, the pilot
was started and was funded for 10 years by the Denver Water Department.
In 1974, the need for a demonstration plant became evident and CHpM
Hill was retained to develop the design. In 1979, EPA awarded a $7 million
grant for design and construction (DWD is contributing S21 million) of the
successive use plant and health effects testing of the treated water. In
1978, construction of the Denver Water Reuse Demonstration Plant was begun.
Completion is expected by late 1983.
The earliest a full scale (50-60,000 AF/yr) reuse plant selling potable
water for consumption could be on-line would be in about 20 years. The DVO
has conducted four surveys of public reaction and over 50% of the persons
surveyed accept the idea of potable reuse. The guarantee of water quality the
same as the present quality was very important to those surveyed. A major
public education effort will be needed to guarantee the acceptance of the
treated water.
IX. Conservation Through Rate Modification
It should be noted that in the absence of full metering, the use of rate
structure modifications to promote water conservation is limited. This
element of the conservation Drogram was designed to examine the importance of
rate structure modifications on water use. The "philosophy" of the DWD is to
encourage conservation without adversely affecting lifestyles. D!€ is
concerned that an immediate inverse rate structure would not accomplish the
goal of increased conservation unless a conservation ethic has already been
established. DWD staff claims that a rate increase of 2-3 times would be
necessary to see any real conservation because the water bill is such a small
part of the total monthly bill Daid by most people. DVD believes that an
increase of such magnitude would be politically unacceptable. DVO uses this
same reasoning to reject time-of-year rate structures (increased summer rates)
as a water conservation measure or as a means of reducing peaks when the water
restrictions are lifted next year.
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The present water rate schedules are divided into blocks. The width of
the blocks is set so as to (in effect) establish a flat rate for each customer
class. Industry has been given a declining block rate because its smoother
load characteristics help the functioning of the water system. The DUD is
continuing to look at a variety of rate structures including a flat volume
rate for metered residential customers. DWD did a survey to ascertain the
effect of not charging for the first 4,000 gallons and then imposing inverse
or double rates for additional water, in response to the Morris Study (Water
for Oenver, An Analysis of Alternatives, 1980). The findings indicated that
in 80* of the cases apartment users would get free water jmd this "benefit"
would accrue to the wealthy as well as the poor. (It would not target poorer
families to receive this benefit as the Morris Study had suggested). The Dtf)
has not evaluated other combinations of providing "free" water and modifying
rate structures in order to ascertain the viability of such a system.
One change that was implemented in 1979 was a switch from a minimum bill
to a service charge bill. The minimum charge bill had charged a minimum
monthly fee to cover service and standby costs. The service charge bill
lowers the minimum monthly charge (it covers only service) and changes the
flat fee base gallonage from 11,000 to 1,000 gallons. The standby costs are
picked up as the customer pays for each 1,000 gallons used. This rate change
allows the customer to see some economic return for his/her conservation
efforts. This change was based upon a recommendation from the 1979 Black and
Veatch Study. In addition, the DVD instituted a new (higher) customer system
development charge (hook-up fee) which is a front-end fee covering new
supdies, treatment and storage.
X. Water Violation Enforcement
The criteria for determining water waste are somewhat subjective, but in
theory, the Water Board will tolerate no waste. The "water police" employed
by the Water Department consist of students (summer help), servicemen, and
occasionally, night dispatchers and load control Dersonnel. There are three
shifts which Datrol from 4:30 AM to 9:00 PM. The cases they investigate arise
almost exclusively from complaints received at DlC by phone. Unless the first
offense is grossl y flagrant, the DVD water police will issue a warning. This
warning carries no penalties, it simply warns that a continued violation will
result in SDecial charges being included in the next water bill. DWD has a
hotline number to call to report water wastage.
XI. Xeri scape (The Conservation of Water Through Creative landscaping)
The Xeriscape landscaDing concept has been developed to encourage the use
of low water-using vegetation as an alternative to conventional lawns. The
DWD, after consulting with professional horticulturists, established a
Xeriscape garden at its main office building and promotes public tours. The
Water Board has decided to use the Xeriscape concept in landscaping their
Water Reuse Plant.
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XII. ExDenditures
Expenditures for the conservation program as reported by Ditf) are as
follow?-
1979 - $ 830,537
1930 - SI,894,249
1981 - $1,322.844
Total $4,097,730
Over three-fourths of this expenditure went for the successive use plant
and the repair of system leaks. ^ complete listing of these expenditures
aopears in Aopendix B.
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CHAPTER III
Water Conservation Goals
The Foothills Consent Decree soecifies a reduction in the Denver water
use in gallons per capita per day as a measure of the effectiveness of the
Denver water conservation program. This apoears, on the surface, to be a very
easy way to measure that impact. However, this "seemingly simple" method has
many complicating factors and all must be taken into account before comparing
the water use figures before and after the elements of the conservation
program have been implemented.
Water Use Measurement
Gal lons-oer-capita-Der-day (usually designated as GCD or gpcd) has been
used for a number of years to generally describe a community's water use.
GCD is defined as the total amount of water produced for the community
and placed into the distribution system, divided by the total nunber of
persons being served by the water system. 3efore comparing the GCD's of
several water systems or the GCD's for several years on the same water system,
the following factors must be recognized:
Population - Accuracy is critical
Weather - Affects outdoor water use on lawns and other landscaping
Conmuters - Use water but are not counted in the "Population"
Water Use Restrictions - Limits the amount used
Leakage - Some treated water may never reach the consumer but is
still included in the "water used" when calculating GCD.
Public Use (parks, fire fighting, street washing etc.)- may not be
accounted for.
Denver Water Use Trends
Water from the Denver system is used in many ways. The following listing
by class provides an estimate of the percentage used in each category:
The Foothills Consent Decree utilized GCD figures which averaged Denver's
past water use. Based on these figures, orojections were calculated for a
reduction in future water use. At the time of the Consent Decree, the Denver
water use over the previous ten years (1963 to 1977) was comDuted to be an
average of 209 GCD. Goals for water use were then established to be 203 GCD
by January 1, 1932 and 199 GCD by January 1, 1984. These figures represent a
3% and a 5% reduction, respectively.
Single Family Residence
Multi-Family Residence
Commercial & Business
Public Agencies
Parks
Industries & Construction
Water Loss & Fire Protection
58%
10%
7%
8%
6%
5%
6%
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Since 1978, when the Denver GCD was computed for the Consent Decree,
additional information has become available which indicates the original data
were inaccurate. The dominant factor affecting the original computation of
the GCD figures was the estimated DODulation. Population figures were being
drawn from tho 1P74 rpnort. by the Denver Regional Counsel of Governments
(DRCOG) which used the 1970 census data and over-estimated the oopulation
growth of the Denver service area. A comparison of the projected population
used and the adjusted population based upon the 1980 census, are shown in
Table III-l.
Table III-l
Population Projections
(Persons Served By Denver Water System)
Based on
Based on
Year
1970 Census
1980 Census
rm
710,000
1969
756,000
1970
768,000
1971
792,000
782,000
1972
812,000
795,090
1973
333,000
803,000
1974
879,000
808,000
1975
891,000
818,000
1976
904,000
818,000
1977
919,000
825,000
1978
935,000
830,000
1979
952,000
838,000
1930
971,000
846,000
1981
990,000
857,000
The Denver Water Board has recently made an attemDt to more accurately
determine the poDulation of the Denver Water System Service area. Using 1980
Census Block Data, the total population for the years between 1970 and 1930
wei»e then estimated (See Table III-l). These estimates for Denver were not
projected on a straight line basis, but were based upon knowledge of Denver
growth patterns. The population estimates for suburban water districts served
by Denver were projected on a straight line basis.
Another factor not considered in the comoutation of the original consent
Decree GO was the sale of water to other water systems which are not part of
the Denver Service Area. Sales of water to the Cottonwood Water District and
the Cities of Aurora and Thornton during the years 1968 through 1977 were not
originally included. The corrected GCD values shown in Table 111-2 factor out
these water sales and utilize the 1930 census data.
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Table 111-2
Denver Water Use
(SCD)
Corrected
Recommended
Corrected
for Water Sold
Adjusted
Consent Decree
Using 1980
to Aurora
Consent Decree
Year (s)
Fi gures
Popul ation
& others
Fi qures
1968-77
209
219
218
213
(ave.)
1978
249
248
1979
224
222
1980
244
243
1981
203
227
226
211*^
1984
199
207**
~Based on erroneous 1974 population projections and included water sold to
Aurora & others. The 1981 figure is an estimated goal based on a 3% reduction
from the 1968-77 average value.
~~Estimated values based on 3% & 5% reductions resoectively from adjusted
1953-77 value.
The weather is one of the major factors affecting water use during the
irrigation months. The amount of preciDitation received and the maximum
temperature reached each day obviously affects the amount of water customers
use to maintain green lawns and other outdoor vegetation.
In an attempt to account for this important factor in the GCD figures
calculated, the DVO has calculated the monthly water demands by multiple
linear regression analysis. The equations include service area population,
temDerature and precipitation as controlling variables and are based on twenty
years of historical data. The calculated GCD's then better reflect the impact
of other factors, such as water restrictions, on the water use of the
community. GCD's calculated using this method are listed in Table 111 -3.
Table III-3
Denver Water Use
(GCD)
Year Actual Demand Calcul ated Demand^
1978 243 251
1979 222 225
1980 243 253
1981 225 245
* Indicates the calculated water use for the actual weather experienced during
that year. Based on 20 years of historical weather data using regression
analysis.
When calculations are made using an average weather factor, the resulting
figures indicate a very definite increase in per caDita use. (See Figure
III-l).
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tarn huh gam ana on
TOW
Water use restriction may or may not reduce the total amount of water used
bv consumers. For instance, in 1977 when Denver restricted both the days and
number of hours outdoor watering could take olace, calculations suggest a 14*
decrease in total water used during the year. However, in the following vears
when only daily restrictions (watering every third day) have been imposed, the
calculations show that very little water was saved. (See Table III-4). It
should be noted that the 3 day (circle, square, diamond) watering restrictions
were imposed to reduce daily peak water demand and were not intended to be a
water saving/conservati on program.
Table III-4
Effects of Outdoor Water Use
Restrictions on Water Demands*
Annual
Water Demand 1977** 1978 1979 19S0 1981
Calculated (mg) 72,900 75,900 58,700 78,000 76,540
Actual (mg) 62,599 75,451 63,363 76,525 71,052
Water Saved (mg) 10,301 449 337 1,475 5,458
Percent Saved 14% OX OX 2% 7.7%
•Taken from the Denver Water Department unoublished report "Outdoor Water
Use Restrictions" by the Planninq & Water Resources Division (1982)
~~Customers were restricted to only 3 hours of outdoor watering every third
day.
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Water use, measired on a GCD basis, is substantially higher within the
City of Denver than it is in surrounding suburban areas served by the Denver
Water Department. (See Table III-5.) This may be due to a number of factors:
1. ilcQvlcr ifiuustrial water use in Denver,
2. Commuter impact in Denver (Commuters use water during the day but
are not counted as part of the "poDulation" when calculating GCD),
3. Greater percentage of parks in Denver,
4. Full metering in suburbs,
5. Hi^ier cost of water in suburbs.
Table III-5
Denver & Suburban Service Area Water Use
(GCD)
Year Denver Suburban Service Area*
T963 230 149
1969 224 150
1970 237 163
1971 245 151
1972 246 172
1973 243 176
1974 273 197
1975 259 178
1975 258 183
1977 230 176
1978 273 216
1979 247 191
1980 258 212
1981 247 201
1968-77: Average 245 171
~Suburban Water Districts served under contract by Denver.
Future Water Use
In a 1981 reoort for the Denver Water Department, titled "Treated Water
Planning Study", Slack and Veatch projected future per capita water use.
Assuminq that the Denver Water Conservation Plan would be somewhat successful
in achieving a reduction in the GO increase, they extended the projection of
water use to 1985 (201 GCD), 1990 (208 GCD) and 2000 (197 GCD). Black and
Veatch and the Denver Water Department both recognized that the estimated
pooulation figures (based on 1970 census) were a bit high, but they were the
best estimates available at the time.
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Additional Water Use Factors
The three-inch Meter Study provided an excellent opportunity to measure
actual residential SCD consumption within the city. Although the use rates
varied widely, th= study showed overall that metered customers in similar
housing situations were generally more conservative in their water use. For
example, in 1931 the use in metered areas was about 15% less than in similar
flat rate neighborhoods. In another trend analysis conducted by the DWD on
the use per account from 1960-1981, flat rate users were consistently higher
than metered users.
Consent Decree Goals
The problems of accuracy with the original Consent Decree Baseline GCD
have already been discussed in this chapter. Instead of the original 1958-1977
averaqe of 209 GCD, the corrected figure would be 218 GCD fSee Table 111-2).
Therefore, using the Consent Decree suggested reductions of 3% and 5* for
January 1, 1982 and January 1, 1984, the projected values should have been 211
and 207 GCD, resoectively. The summarized 1981 data shows an actual water use
GCD of 226. Therefore, the Denver Water Department fell short of the calcu-
lated goal of 211 GCD. However, the difference between the actual use of 226
GCD and the calculated demand of 245 GCD is a reduction of 19 GCD which may be
attributed to the combined impacts of the DWD's water conservation programs
(See Tables III-3 8. III-4).
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CHAPTER IV
CONCLUSIONS AND RECOMMENDATIONS
Cone! luiuiu
The DVD's Water Conservation Program reflects an effort to foster water
conservation. The program contains innovative concepts to develop a conser-
vation ethic which 1s essential to the goal of more efficient water use. In
particular, the DVD is to be complimented on its E-T and Xeriscape programs as
they both provide practical, cost-effective approaches to promoting water con-
servation. However, the over all program, as implemented thus far, is still
developing and continued emphasis is necessary for the goals of the program to
be fully reall2ed. There is room for program expansion and improvement,
particularly in the areas of public education and awareness.
The DVD has not linked the elements in the Institutionalized Water Conser-
vation Plan to specific water conservation goals. The absence of this correl-
ation could make scheduling implementation of needed conservation measures
more difficult.
The DVD still has not published a schedule to progress toward the Board's
commitment to achieve 100% metering. Metering affords water management bene-
fits far beyond water conservation, but could save 12,000 to 19,000 AF/year.
The absence of total metering also limits DWD's ability to consider potential
rate structure modifications which other communities have found useful for
managing water supplies.
The baseline 209 gallons per-capita per-day (GCD) ten->ear average water
consimption stated in the Consent Decree was based on inaccurate population
estimates and water use which resulted in a goal in 1981 of 203 GCD. When
corrected, the actual 1981 goal should have been 211 GCD. The actual water
use in the Denver system in 1981 was 226 GCD. Measured against this recalcu-
lated goal it is obvious that overall water consumption was not reduced, in
spite of the water conservation effort. However, if weather history and water
use are considered, the expected consumption would have been 245 GCD. This
suggests that the water conservation program may have resulted 1n a 19 GCD, or
about an 8% reduction.
Recommendations
The following recommendations are presented in the interest of making
DWD's water conservation efforts more effective.
Conservation Goals
o The goals in the Decree should take into account the effects of
temperature and precipitation. Therefore, it is recomnended that the
calculated usage (using the normalized demand analysis) be used as a
basis for the 1984 and 1989 goals. It is further recommended that
the actual water use in 1983 (1984 goal) be 11% less than the
calculated demand and that the actual water use in 1988 (1989 goal)
be 17% less than the calculated demand.
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o In recognition of the limitations inherent in GCO figures, an ad hoc
grouD (with reDresentatives from 0WD, EPA, COE and the contractor
working on the Systemwide EIS) should evaluate alternative indices
for measuring water use and water savings. Such an effort would be
consistent witn the Metropolitan Systemwide EIS currently being
preoared for D'/O under the direction of the COE.
Eva! uation
o The DVD should pursue a market survey approach to registering public
opinion of existing conservation activities, i.e., the E-T Program,
Xeriscape, and DroDOsals for future conservation program elements.
Surveys can be utilized to determine the acceptance of the programs
and also solicit new ideas for water conservation.
o The DVD should evaluate (to the extent feasible) the impact that each
element of their conservation program has on water use in their
service area. For examole, an element of this evaluation could
consist of installing water conservation devices in a selected area
and measuring before and after water consumption.
o The DVO should evaluate the linkage between elements in the Conser-
vation Plan and the water conservation goals. This evaluation should
describe how the specific elements will contribute toward achieving
water conservation goals and should permit a more systematic approach
for program imolementation.
Public Awareness
o Since water conservation is an issue which extends beyond Denver, the
DVD should consider a regional, cooperative effort to further the
conservation ethic. Other communities also have recognized the
importance of water conservation and are making efforts to educate
the public. Regional or metro-wide activities could be jointly
SDonsored to foster the conservation message (e.g., a regional water
awareness day, or bumper stickers fostering the conservation message)
through such organizations as the Urban Water Management Group, DRCOG
or the Metropolitan Water Develownent Group. Such a regional effort
would also have an imoact on metropolitan coirmuters.
o The future direction of the QWD's Water Conservation Program should
be to cultivate an on-going public awareness which will result in a
recognition of water conservation benefits. The benefits should
extend beyond financial considerations to include social and environ-
mental asDects. Consumers should be presented the "why's" as well as
the "how's" of water conservation so as to understand the rationale.
o As a means of improving its oublic awareness/oublic education effort,
the O'-O should consider exoanding its current orogram to include
greater utilization of Public Television, emoloyment of government
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access channels on cable TV, more creative emoloyment of commercial
TV public service opDortunities, acquiring time and/or space in the
media, and utilization of consulting services to help develoD and/or
imnlpublic awareness/education programs.
leterinq
o The DWB, working through the CAC, should actively develop a program
to implement their commitment to achieve full metering in the Denver
Service Area. This process could include a wide range of public
education/involvement activities to solicit input on alternative
apDroaches to financing the program.
Xeriscape
o The Xeriscape orogram could be made even more effective by a more
aggressive camoaign to encourage the use of dry landscaping
(Xeriscape) in all residential areas. Promotion of Xeriscape would
be aided by the development of several Xeriscape projects in loca-
tions convenient to DWD customers, e.g., public facilities such as
parks, schools, fire stations, museums, and DVD facilities. The
establishment of a "Xeriscape of the Month" award should also be
con si dered.
o The Dl€ should enlist the aid of nurseries in Dromoting the use of
native landscaping. One method of accomplishing this could be to
coordinate the formation of a nursery co-op. A cooperative arrange-
ment would require limited financial investment from individual
companies while allowing for an adequate supply of low, water-use
vegetation and the use of combined resources to generate a new market
for the product.
Retrofit
o The OVO should consider undertaking a comorehensive retrofit program.
ApproDriate advertisement should precede the distribution of conserva-
tion kits and a follow-up survey should be used to assess the success
of the program. It is highly advisable to try this orogram in a
limited area (e.g., one service district) and to evaluate its impact
before expanding to the entire service area.
Program Revi ew
o The DVD should revise and update its Institutionalized Water Conser-
vation Program and provide for a periodic program review (through the
Citizen's Advisory Committee and/or EPA) so that new, useful program
elements can be added and ineffective elements deleted in a timely
manner.
o To comDly with the Consent Decree requirement that EPA "monitor"
DWD's conservation efforts, periodic meetings between D'.J) and EPA
should be scheduled.
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APPENDIX A
WATER CONSERVATION IN OTHER COMMUNITIES
The criteria, "good faith effort", as stated in the Consent Decree, is
nebulous and subjective. In an effort to compensate for this condition by
providing a more objective frame of reference, a survey of water conservation
literature was conducted. In addition, several water suppliers, both in-state
and out-of-state were contacted to discuss their approaches to water conser-
vation. These efforts provided the Evaluation Team with a broader perspective
on municipal water conservation programs.
Overview of Conservation Programs
The key elements of water conservation programs include public education,
leak detection, metering, rate structure modifications, distribution of
water-saving devices, and restrictions to meet peak load demands.
Of the 13 water suoDliers contacted, 15 provided varying degrees of
public education, 9 have either ongoing or periodic leak detection efforts,
and 15 have imolemented some form of rate modification. These modifications
span a range from fees based on lot size, to inverted rates, penalty rates,
and summer rates. Fifteen of the 18 have metered 100% of their system while
one system is parti ally metered. Eleven suDPliers have at some time distri-
buted water saving devices. Most suppliers have these devices available upon
request, on an on-going basis. The devices generally consisted of shower and
faucet restrictors, toilet dams, toilet bags, and dye tablets to detect leaks.
Seven of the in-state suppliers have implemented use restrictions on a tempor-
ary basis, often as a one-time event. Several of the in-state suppliers are
familiar to some degree with the DVD's conservation program, particularly the
public education element. (See Table A-l).
Public education seems to be a basic component of many water conservation
programs. These educational programs range from newsletters to feature news
stories, publicity, and advertising. Most agencies draw heavily on existing
resources in the comnunity. They utilize the full spectrum of media (i.e.,
radio, TV and print, public libraries) and local community events such as
county fairs and home & garden shows, to disseminate brochures and oamphlets,
as well as water saving devices. Conservation exhibits are displayed in
various oublic locations.
Several commuiities also have some type of water awareness program at all
levels in the schools. Most conmunities contacted felt that metering was an
essential management tool for any public water system as it allowed flexibility
for controlling water use. Most corrmunities felt that the greatest water
savings could be obtained by concentrating on the reduction of outdoor use;
specifically lawn and garden watering. Several communities felt that oublic
surveys (both before and after conservation program implementation) were neces-
sary to effectively implement and properly readjust conservation orograms.
Obviously, all communities have somewhat unique characteristics and a Drogram
that may be aDproori ate for one community may not be suitable for another
oomminity.
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San Diego County Water Authority (SDCWA)
The San Diego scoreboard (professional sports stadium scoreboard) has
been zz-- ivi:1. z.1. z v.'ater Authority conservation messages. Two major
theatre chains have exDressed interest in providing screen time for water
conservation Public Service Announcements. The business community is being
encouraged to develop in-house water awareness programs applicable to their
Individual organizations.
A new concept to provide low water use plants for the area is being
prooosed to local nurseries. They will form a co-op nursery by investing funds
or plant material. The objective is to limit investment in a newly developing
market and yet have sufficient low water-use plant material available. The
Water Authority's role will be coordinator and develoDer of marketing programs.
A weekly water report has been added to the weather report of one of the
local nexsoaoers. Regular visibi 1 ity for water conservation issues and activi-
ties is provided through a brief message or slogan which is direct, easily
understood and remembered. These messages reach some 722,000 consumers.
East Bay Municipal Utilities District (E3MUD)
The East Bay Municipal Utilities District of Oakland, California (EBMJD)
recognizes the importance of generating a voluntary public commitment to a
water conservation ethic. The incentive is based on an awareness of benefits
broader than personal, financial savings, including common benefits such as
the potential reduction or delay in future water supply projects, energy
savings for both the water system and customers, the efficient use of public
resources, and better preparation for any future water shortage emergency.
The District assimes a two-fold responsibility through comnunieating the
benefits of water conservation and providing specific information on methods
to reduce water use.
An initial survey was conducted to establish a data base of customer
attitudes, behavior, and preferences for water conservation. From this infor-
mation, a specific conservation program will be developed.
The Captain Hydro water conservation materials were originated to teach
water awareness in the schools at all grade levels. The State and other water
agencies nationwide use these materials. The District retained a consultant
to revise and update these educational materials.
The District also has an in-house conservation program. Efforts to con-
serve water include backwash reel am at ion at filter plants and wastewater
reclamation at the wastewater treatment plant. Low-use water landscaping has
been installed on District grounds and use of these landscape alternatives are
being encouraged for new city and county developments. Another water conser-
vation innovation by EBMUD is a handbook guide, ("Puddle Stopper's Handbook")
to basic home plumbing.
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Seattle '/later Department
The Seattle Water Oeoartment has been involved in extensive follow-uD to
their water conservation activities. They are surveying consumers to get
feedback on the oublic's level of awareness and cooperation with the water
conservation effort. These surveys have been designed both by the staff and
consultants.
In addition to the savings estimates, actual metered water consumotion
data was analyzed for residents in the parts of Seattle where water
conservation kits were mailed during 1981. Households receiving the kits
consumed 20% less water than the control group.
The Vlater Oeoartment will supply up to 100 kits to multi-family unit
managers or apartnent owners if they will commit to 1Q0S installation.
Subsequent to installation, a 6-month and 12-month follow-up consumption
report will be provided for comparison purposes. Preliminary results indicate
up to 2056 water savings.
An extension of these programs is a retrofit study involving several
samole areas. Household meters will be read to monitor monthly consumption
before and after retrofit. Phone follow-up will be done concerning the use of
the conservation kits. Camouter correlations will be done to calculate the
amount of savings achieved through the retrofit program.
Los Angeles Department of Power & Water
The Los Angeles Department of Water & Power has a five-year Conservation
Plan. They too refer to instilling in the public a "conservation ethic".
They have mailed retrofit kits to all of their consuners. They have fore-
casted a total savings of 76,000 AF/year for the year 2000.
In addition to the commonly used approaches to water conservation, the
Department provides awards and related publicity to members of the business
and industry community whose conservation efforts have resulted in substantial
energy and water savings. Community and metropolitan newspapers, as well as
in-house publications are utilized for recognition of these firms.
A HUD sponsored water conservation study by Brown & Caldwell is underway.
The objective of the demonstration project is to measure the effectiveness of
conservation devices. Additional studies have been conducted by the Oeoartment
to determine water usage goals for commercial, high-rise, multi-family dwell-
ings and other consumers.
Evaluations are made of the effectiveness of on-going programs. In the
first part of 1980, the city was continuing to use about 5% less water than in
the pre 1976-77 drought period. The current total consumotion is less than
that of 10 years ago despite population increases.
A penalty economics system has been imDlemented for both excessive and
prohibited uses, e.g., restaurants are orohibited from serving water unless it
is requested. Outside watering is Drohibited between 10 AM to 4 PM. Viola-
tions of excessive use are responded to by letters and personal visits, both
of which include information on conservation and retrofit devices. An escal-
ating fine, the installation of a flow restrictor (at the consumer's expense),
and susoension of service are the penalties for repeated violations.
-26-
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Appendix B
, DtNVfcA Wl(0 0£fMT1«NT MTU COSSEJtVAT)0M U»ENwi'OftE3
- 1*41
¦¦ ¦ i i ¦ . i . .
¦ an :uu mole atti it aid* i»niti nc:i:tc
nrni MvttirrtM to ltiote - ;aao iooi totil
]9t0 «itn ^ttirvatiei. *• nr«itt(i FMtria kl( : fcoaa
• lil enia («r Ia4 un«l atitr "r "*"1711/19" dfw' 3.S*fc • l.fftO
2i'i ctita for :«ui« mtd« «ui an * $/io/t» opaa ;i.403 .7* w> u.et#
/ '
J6S+ r»(t» t»r urctM.fl j»» • 4/11/70 OH>
CiMur.i, >rcqic
lit. Joat* T* l/l/OJ ftctlfi •
~ 174 .'Dl'.l '•! <«l.a.af« lOMJ'ttV 1/0/01 Actlvt - *
irocawraa *
i:«) :«aia :&f .>»: »aiar ;»naarvatto& * 3/0/01 *c«lvo ...
Mittt :«imt
9414 raiti .'or .)|] Ultaoli * 1/13/42 ictifa -
learatisa XotlU *r«i>
•aeanita, Miiftut
S07*4 Pqtcmu 5C 300 flow ta«tric-t*r* 10/0/0C CIo**d 12/Jl/li - 4.211 19 >4.2)0
Tor :i*t, ir Dapt larvica Ar«t.
4070 :oit> 'of UMircl) and Han. 13/10/7* }y«i 131 * 101
;a»liiint*tioa i( titir .'a*
MiauiN«>i «t 0VC TimcmiI
capita :o*iaaptis*
4145 :«it) for 3-iaca MtatiM * 1J/3I/'* 0*«a - 13,172 IMI) n.Mj
(ar flat Ut« *• MutlM
7>n for (tata of Ooaion a • 0/31/01 ftaktva - - 11,400 14.4*0
Coaatractios oI 'y*m wiata-
lanca Drooaat Tolaraot
Untacapiti !• i OtMrtwnt
facilitiaa iioraaeapo ®a*aaa>
4144 Coat a for traaaara Kialliattin • 11/30/70 Opaa 9)7 711 1.3ft
• -4»>0y Caaiamttaa-aM llwi . . - -. — — — — ... •"
34*9 Itcraaaiva Jaa - IMI. 1/70 Claaa* 4/01 110.SS4 0M.4J9 1M,10? 1.117,004
Daatan Sar*ay. Plara * 0p*ca
>113 Oaccaaai«• jaa - CO* Craat Imrai- 0/70 Claaal 13/09 10.711 33.04* 1.0J0 1ft.790
ilaiaiatratiai ti^aaaa Mat a gc
311] l«o«M«t*a 3aa - Preface • %n% CI—4 13/00 1.40S 3.401 10) ft.«*l
*4»i»of CaaattM Ii^mm
3114 Iiccmiit* om - Daaifa " */*0 =laaa* 11/00 131 11.701 3.9*0 M,M0
Coaa«lt:.*s i*rti eo« A*po
111) |y«iaa«i*t 9a*. Jailr»fiu. " J/70 Cla*i4 ;i/7» 131,011 - 110.000
Istoreiaaei, Sultl.iat.
¦itaritia
4374 • 1/00 ClaaaO 3/01 131.J4J IU 111.113
44] \ 1/11/41 Cloaatf :/34/0: - 117.107 1I?.J4"»
*100 ' * 3/13/03 fcct\«a ...
I:a: !or .»40 in datact^aa Float 1/10/00 Clo*ot 11/11/00 41.70S *¦» 41.0ft:
CAJ 2aat rot .001 Uik Sataotioa * 1/3/01 ClaaaO11/41/01 19 00.403 ftO.OOl
fra^rw
• 043 :aat tor 1013 Un Dataccioo * 1/4/03 Ictlf* - •
lr»|raa
7117 aaaa 40 a*9»a far Ci'-t rarfea * J/ll/41 Cioaac S/31/01 - 1.040 1.040
I>a?i. :e Moaatt i)S Zoaaar-
S312 Ac;jaa.t:a all caaia for traiact MMoo_r _ 4/ 37/00 opaa - ;I* :0.0'4
Cr>j; raxioifia*" J I Worrit - - — - -- .
aaport **it«r ?bc Sonvac - ta
Aaalyata el tbo fcliatoati»aa*
:tiii «ooi ?tccoi roonoLi uutiic to utii couiotatioi
0411 To 4CC«a<..ato ooota of Maat 4/0/02 »r.«« ...
;aa.ota->«f>«») laiiaeapo
C«:aot «t \4a.a. Ooiidiog
9000 .andaeapia^ for Vyaatk.* * 1/37/03 Cyan ...
Olt Ni««« aatiro iraaa at ••aim4 " 1/37.03 ;paa
»:00 >o«ra4a • raaaa4 kttataa kaaarvotr i/;vii <.»«a
• .'oao^Bia* It. ';*;t:al Bill
>C0. 0oao*« itra* raarada, rM*t( »itk " 1/17/03 Sf»tt
AaMard laaarntt
••areata sf all vara oraara so
aatoaaiva so .*at tvara
;u'c "; ar»> .-3inm*::i ric:iM
dm - .>o.
-------
Table A-l
CONSERVATION OVERVIEW
Coron unity
(in-state)
Restrl cti ons
Meterlnq
Public
Education
Rate
Structure
Modification
Leak
Detection
Water
Saving
Devices
Arvarla
Yes
100%
No
Inverted Rate
Yes
*N/A
Aurora
Yes
100%
Yes
Penalty Rate
Yes
Aval 1 able
Upon Request
Boul rler
No
100%
No
F1 at Rate
No
No
Colorado Springs
Yes
100%
Yes
10% Annual
Increase
No
Distributed
Englewood
No
Parti al
No
No
No
Low Cost/
No Cost
Fort Collins
Yes
No
Yes
Fee: Size of
lot
No
By Request
Greeley
Yes
Parti al
Yes
Yes
Yes
No
Love land
No
100%
Yes
Yes
Yes
No
Thornton
Yes
100%
Yes
Sumner Rates
No
By Request
Westminister
No
100%
Yes
Yes
Yes
Distribution
by Request
* Not Available
-27-
-------
Coron unity
(Out-of-state)
Restrl ctlons
Meterlnq
Public
Education
Rate
Structure
Modification
Leak
Detection
Water
Saving
Devices
Albuquerque
No
100*
Yes
Yes
Yes
No
East Bay
Yes
100%
Yes
Considered
Every 3 years
Distribution
Los Angeles
Yes
100*
Yes
Yes
Yes
Yes
Phoenix
Yes
100*
Yes
Flat Rate
Yes
Not Yet
San D1eqo
No
100*
Yes
No
Yes
Distribution
Salt Lake City
No
100*
Yes
Decl1n1ng Block
to Straight Line
Yes
No
Seattle
No
100*
Yes
Yes
Contracted
Distribution
Tucson
No
100*
Yes
Yes
Yes
By Request
-28-
-------
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Black and Veatch/Consulting Engineers, "Report on Water Rates for Tucson
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-30-
-------
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-31-
-------
Flack, J. Ernest, Cutting City Water Demand. (Information Series No. 36)
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-32-
-------
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-33-
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-34-
-------
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