U.S. Environmental Protection Agency
WATER CONSERVATION PLAN
GUIDELINES
August 6, 1998
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USEPA Water Conservation Plan Guidelines
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USEPA Water Conservation Plan Guidelines
CONTENTS
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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
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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
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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
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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
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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
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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
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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- 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
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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
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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
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).
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