U.S. Environmental Protection Agency WATER CONSERVATION PLAN GUIDELINES August 6, 1998 ------- USEPA Water Conservation Plan Guidelines [blank page] ------- USEPA Water Conservation Plan Guidelines CONTENTS Page EXECUTIVE SUMMARY xi PART 1 INFORMATION FOR STATES 1 1. Background and Introduction 3 Introduction 3 The SDWA Provision 3 What is Required 4 How States May Use These Guidelines 4 State Policy Considerations 5 Coordinating State Programs 6 Relationship to SRF 6 2. The Role of Water Conservation in Infrastructure Planning 8 Goals and Perspectives 8 Conservation and Infrastructure 9 Planning and Funding 10 Implementation Scenarios 11 3. Water Conservation Planning Criteria 12 The Guidelines and System Size 12 Climate, Water Availability and Other Factors 14 Criteria for Adapting the Guidelines 14 4. Guidelines and Measures 17 Planning Steps 17 Conservation Measures 18 5. Capacity-Development Approach 21 Conservation by Small Water Systems 21 Capacity Development 21 6. State Roles 24 Policy Issues 24 Technical Assistance for Systems 24 Review and Approval 25 Monitoring, Reporting, and Updates 26 Interagency Coordination 26 7. State Conservation Programs 28 in ------- USEPA Water Conservation Plan Guidelines Page PART 2 OVERVIEW OF THE GUIDELINES 35 1. Water Conservation Guidelines and the SDWA 37 2. Benefits of Conservation and Planning 38 3. Overview of the Planning Process 39 PART 3 BASIC GUIDELINES 43 1. Specify Conservation Planning Goals 45 Planning Goals 45 Community Involvement 45 2. Develop a Water System Profile 47 3. Prepare a Demand Forecast 50 4. Identify and Evaluate Conservation Measures 53 Conservation Measures 53 Review of Measures 53 Budget 54 Summary 55 5. Present Implementation Strategy 58 PART 4 INTERMEDIATE GUIDELINES 61 1. Specify Conservation Planning Goals 63 Planning Goals 63 Community Involvement 64 2. Develop a Water System Profile 65 System Profile 65 System Conditions 65 Current Conservation Efforts 66 3. Prepare a Demand Forecast 70 Demand Forecasting 70 Forecasting Method 70 4. Describe Planned Facilities 73 Supply Forecasting 73 Cost Analysis 73 Estimating Incremental Supply Costs 74 Preliminary Supply-Capacity Forecast 75 IV ------- USEPA Water Conservation Plan Guidelines Page 5. Identify Water Conservation Measures 79 Levels and Measures 79 Identifying Conservation Measures 79 6. Analyze Benefits and Costs 82 Purpose 82 Water Savings 82 Implementation Costs 83 Cost-Effectiveness 83 Net Benefits 83 Comparison of Measures 84 7. Select Conservation Measures 87 Selection Criteria 87 Selecting the Measures 87 8. Integrate Resources and Modify Forecasts 90 Integrating Options 90 Modifying Demand Forecasts 91 Project-Specific Savings 91 Modifying Supply Forecasts 91 Revenue Effects 92 9. Present Implementation and Evaluation Strategy 96 Implementation 96 Implementation of Measures 96 Implementation and Evaluation 97 PART 5 ADVANCED GUIDELINES 101 1. Specify Conservation Planning Goals 103 Planning Goals 103 Community Involvement 104 2. Develop a Water System Profile 105 System Profile 105 System Conditions 105 Current Conservation Efforts 106 3. Prepare a Demand Forecast 110 Demand Forecasting 110 Forecasting Method 110 ------- USEPA Water Conservation Plan Guidelines Page 4. Describe Planned Facilities 114 Supply Forecasting 114 Cost Analysis 114 Estimating Incremental Supply Costs 115 Preliminary Supply-Capacity Forecast 116 5. Identify Water Conservation Measures 120 Levels and Measures 120 Identifying Conservation Measures 120 6. Analyze Benefits and Costs 123 Purpose 123 Water Savings 123 Implementation Costs 124 Analyzing Benefits and Costs 124 Comparison of Measures 125 7. Select Conservation Measures 129 Selection Criteria 129 Selecting the Measures 129 8. Integrate Resources and Modify Forecasts 132 Integrating Options 132 Modifying Demand Forecasts 133 Project-Specific Savings 133 Modifying Supply Forecasts 133 Revenue Effects 134 9. Present Implementation and Evaluation Strategy 138 Implementation 138 Implementation of Measures 138 Implementation and Evaluation 139 APPENDIX A WATER CONSERVATION MEASURES 143 Level 1 Measures 144 Universal Metering 144 Water Accounting and Loss Control 145 Costing and Pricing 146 Information and Education 148 Level 2 Measures 149 Water-Use Audits 149 Retrofits 150 Pressure Management 151 Landscape Efficiency 152 VI ------- USEPA Water Conservation Plan Guidelines Page Level 3 Measures 153 Replacements and Promotions 153 Reuse and Recycling 153 Water-Use Regulation 154 Integrated Resource Management 155 APPENDIX B BENCHMARKS USED IN CONSERVATION PLANNING 163 APPENDIX C ACRONYMS AND GLOSSARY 169 Acronyms 169 Glossary 170 APPENDIX D INFORMATION RESOURCES 177 Guides and Handbooks 177 Integrated Resource Planning 179 Small Systems 180 Forecasting 181 Measures 181 Cost-Effectiveness Analysis 185 Rates and Revenues 186 Public Involvement 189 Internet Resources 191 APPENDIX E FEDERAL FUNDING SOURCES FOR WATER CONSERVATION 193 APPENDIX F STATE CONTACT LIST 199 Tables and Figures Information for States Table Table Table Table Table Table -1 System Size Categories and Applicable Guidelines 12 -2 Potential Criteria for Adapting the Guidelines 15 -3 Cumulative Nature of the Conservation Measures in the Guidelines 20 -4 Common Elements of Capacity Development and Water Conservation Planning 22 -5 State Conservation Planning and SRF Activities (as of Fall 1997) 31 -6 Components of State Water Conservation Plan Guidelines (as of Fall 1997) 33 VII ------- USEPA Water Conservation Plan Guidelines Page Overview of the Guidelines Table 2-1 System Size Categories and Type of Guidelines 39 Table 2-2 Contents of a Comprehensive Water Conservation Plan 41 Table 2-3 Guidelines and Associated Conservation Measures 42 Intermediate Guidelines Table 4-1 Relationship of Water Demand to Supply Facilities 75 Figure 4-1 Sample Graph of Modified Supply and Demand Forecasts Based on Implementing Conservation Measures 90 Advanced Guidelines Figure 5-1 Inputs and Outputs of the IWR-MAIN Forecasting Model 112 Table 5-1 Relationship of Water Demand to Supply Facilities 116 Figure 5-2 Sample Graph of Modified Supply and Demand Forecasts Based on Implementing Conservation Measures 132 Appendixes Figure A-1 Water Accounting System 157 Table B-l Recent Estimates of Indoor Water Use With and Without Conservation 163 Table B-2 Benchmarks for Estimating Residential End Uses of Water 164 Table B-3 Sample Calculation of Water Savings from Showerhead Replacement 165 Table B-4 Benchmarks for Savings from Selected Conservation Measures 166 Table B-5 Water Efficiency Standards Established by The Energy Policy Act of 1992 167 Table B-6 Potential Water Savings from Efficient Fixtures 168 Worksheets Basic Guidelines Worksheet 3-1 Water System Profile 48 Worksheet 3-2 Water Demand Forecast 52 Worksheet 3-3 Budget and Savings for Each Conservation Measure 56 Worksheet 3-4 Selection of Conservation Measures 57 Worksheet 3-5 Implementation Strategy 59 Intermediate Guidelines Worksheet 4-1 Water System Profile 67 Worksheet 4-2 Overview of System Conditions 68 Worksheet 4-3 Current Water Conservation Activities 69 Worksheet 4-4 Preliminary Water Demand Forecast 72 Worksheet 4-5 Anticipated Improvements and Additions 76 Worksheet 4-6 Cost of Supply-Side Facilities 77 Worksheet 4-7 Preliminary Supply-Capacity Forecast 78 Worksheet 4-8 Checklist of Conservation Measures 80 Worksheet 4-9 Analysis of Each Conservation Measure or Group of Measures 85 Worksheet 4-10 Comparison of Benefits and Costs of the Conservation Measures 86 Worksheet 4-11 Selection of Conservation Measures and Estimate of Water Savings 89 Vlll ------- USEPA Water Conservation Plan Guidelines 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 Page 93 94 95 98 99 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- 1 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 107 108 109 113 117 118 119 121 126 127 128 131 135 136 137 140 141 156 158 159 160 161 162 IX ------- USEPA Water Conservation Plan Guidelines [blank page] ------- USEPA Water Conservation Plan Guidelines EXECUTIVE SUMMARY The Safe Drinking Water Act (SOWA, 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 XI ------- USEPA Water Conservation Plan Guidelines 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 a 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). Xll ------- |