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
                                            IV

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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
                                            VI

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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
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
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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
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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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