EPA
WaterSense
Water Efficiency in the Commercial and Institutional
Sector: Considerations for a WaterSense Program
August 20, 2009
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of
The U.S. Environmental Protection Agency (EPA) established WaterSense® with the goal of
saving water for future generations. By transforming the market for water-efficient products,
services, and practices, WaterSense is helping to relieve the strain of expanding water supply
and wastewater infrastructure. Since 2006, the WaterSense label has helped consumers
identify products and services that meet EPA's criteria for water efficiency and performance.
In an effort to further this mission, EPA is now considering expansion of WaterSense to include
partnership and participation options for users in the commercial and institutional (Cl) sector.
Wth this in mind, EPA is seeking input from its partners and other stakeholders on the current
state of data related to water use in the Cl sector as well as potential program options.
The following white paper summarizes the current state of knowledge regarding water use in the
Cl sector. While there are gaps in the currently available data, this paper attempts to summarize
the best available resources that EPA can use as a basis for future decision-making regarding a
national Cl program. The paper also includes a discussion of the various forms that a Cl
focused component of WaterSense could take.
EPA is seeking broad input to be used as guidance in developing the WaterSense Cl sector
program. In particular, EPA is interested in hearing the responses of stakeholders in the
following areas and questions:
Data Gaps and Research Needs
• What research needs to be done or data collected on the Cl sector? What information
gaps exist?
• Are you aware of any reliable data that is not cited in this paper and could add
substantially to our understanding of water use in the Cl sector?
• If EPA were to set a water use percent reduction target for the Cl sector as a whole or
for specific subsectors, what should EPA use as the water use baseline and what
percent reduction should be targeted?
• What impact could a national sector water-efficiency program have on the revenue and
rate structure of drinking water utilities?
• What issues and barriers stand in the way of a national Cl sector water-efficiency
program? How can EPA overcome them?
Program Design Options
• Should EPA address all subsectors together or separately?
• Are the factors for choosing a subsector appropriate?
• What are the pros and cons of each program structure presented?
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i J " Water Efficiency in the Commercial and Institutional Sector:
' ;"'" b'CI'V Considerations for a WaterSense Program
• What program structure do you think EPA should adopt and why?
• Is it important to have WaterSense labeled Cl sector facilities?
• If a certification and labeling scheme is preferred, should EPA have a single-tiered or
multi-tiered program? Should certification be third-party or self declaration? Should a
specification include percentage reduction requirements, best management practices
(BMP) implementation requirements, or both?
• If EPA chose a partnership-commitment program structure, what should the commitment
be? What reporting should be required?
• If EPA offered technical assistance, what should it be and in what form should it be
offered?
• If a subsector-specific approach is chosen, should EPA's efforts focus on the largest
overall users of water, or on the largest individual accounts?
• If a subsector-specific approach is chosen, what factors should be considered in
prioritizing different subsectors?
• Should EPA offer an awards program?
• What other incentives should EPA offer for participating in the program?
EPA is welcoming comments on the above questions and the following white paper. Comments
may be submitted to watersense-ci@erg.com through September 20, 2009.
WaterSense will also be holding a meeting to discuss potential Cl program options in
conjunction with the WaterSmart Innovations conference in Las Vegas, Nevada. If you are
interested in attending this meeting please contact the WaterSense Helpline at (866) WTR-
SENS (987-7367) orwatersense@epa.gov.
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Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
CONTENTS
Page
I. Background and Purpose 1
II. Overview of the Commercial and Institutional Sector 2
II.A Defining the Cl Sector 2
II.B Cl Subsectors 3
II.C End Uses of Water 5
II.D Potential Water Savings and Benchmarks 10
II.E Water-Efficient Practices and Technologies 11
III. Existing Commercial and Institutional Efficiency Programs 13
111.A National Programs 13
III.A.i EPA's Water Alliances for Voluntary Efficiency (WAVE) Program 13
III.A.ii EPA's Water Efficiency Leaders (WEL) Awards Program 13
III.A.iii ENERGY STAR® Buildings and Plants 14
III.A.iv Leadership in Energy and Environmental Design (LEED) 14
III.A.v Federal Facilities Under Executive Order 13423 15
III.B Regional and Local Programs 16
III.B.i East Bay Municipal Utility District 16
III.B.ii San Antonio Water System 16
III.B.Hi City of Austin 17
I II.C Subsector-Specific Programs 17
III.D International Programs 18
IV. Key Stakeholder Groups 19
V. WaterSense Commercial and Institutional Program Design Options 20
V.A Scope and Eligibility 21
V.B Program Structure 22
V.B.i Certification and Labeling Program 22
V.B.ii Partnership Commitment 24
V.B.iii Education and Outreach 26
VI. Information Gaps and Outstanding Questions 27
VII. Next Steps 28
VIII. References 29
APPENDIX A: Cl Water Use by Subsector
APPENDIX B: Data on End Use Application of Water by Subsector
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i * Water Efficiency in the Commercial and Institutional Sector:
'• ,,-!•,, ' "jv "'* Considerations for a WaterSense Program
LIST OF TABLES
Page
Table 1. Estimated Percent Commercial Water Use in the United States by Subsector 4
Table 2. Examples of Potential End Uses of Water in Cl Facilities 6
Table 3. Potential Water Savings in Cl Subsectors 11
LIST OF FIGURES
Page
Figure 1. Estimated Distribution of Water Use From Public Supplies in the United States
in 1995 1
Figure 2. Estimated Distribution of Cl Water Use in the United States in 1995 by Subsector 5
Figure 3. End Uses of Water in Hospitals 7
Figure 4. End Uses of Water in Office Buildings 7
Figure 5. End Uses of Water in Schools 8
Figure 6. End Uses of Water in Restaurants 8
Figure 7. End Uses of Water in Hotels and Motels 9
Figure 8. End Uses of Water in Laundries 9
Figure 9. End Uses of Water in Car Washes 10
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EPA
WaterSense
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
i.
Background and Purpose
To help American consumers and businesses use water more efficiently, in 2006, U.S.
Environmental Protection Agency (EPA) launched WaterSense, a voluntary partnership
program that aims to protect the future of our nation's water supply. While to date WaterSense
has focused on the residential sector, EPA is considering adding a program to promote water
efficiency in the commercial and institutional (Cl) sector as well. As a first step, EPA has written
this white paper to summarize information gathered to date on the Cl sector and to discuss all
potential facets of the program. The purpose of this paper is to solicit input from partners,
stakeholders, and the general public that WaterSense can use as a foundation for developing a
Cl sector program.
The Cl sector consumes a significant portion of the publicly supplied fresh water in the United
States. The U.S. Geological Survey (USGS) collects data on publicly supplied water as part of
its periodic survey of estimated water uses in the United States, and, until 1995, had broken out
data on Cl uses from publicly supplied water. In those earlier surveys, it defined the Cl sector to
include hotels, motels, restaurants, office buildings, other commercial facilities, and civilian and
military institutions. Public water supplied to golf courses was also included, as were fish
hatcheries in some states. In the last water use report containing Cl data (compiled in 1995),
USGS estimated that the sector utilized 17 percent of water drawn from public water supplies in
the United States, as shown in Figure 1. (1)
Figure 1. Estimated Distribution of Water Use From Public Supplies in
the United States in 1995
Commercial 17%
Domestic 56%
Public Use and
Losses 15%
Industrial 12%
Mining 1%
Thermoelectric 1%
Livestock 1%
I— Irrigation 1%
Source: Modified from USGS Estimated Use of Water in the United States in 1995
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i * Water Efficiency in the Commercial and Institutional Sector:
'• ,,-!•,, ' "jv "'* Considerations for a WaterSense Program
A 2000 report, Commercial and Institutional End Uses of Water, estimates that combined water
use of all Cl customers constitutes approximately 15 to 25 percent of total municipal water
demand. That report also describes an American Water Works Association (AWWA) survey of
331 large water agencies, which estimates that nonresidential users account for 44 percent of
total metered urban water use. Elsewhere, the report includes information on an independent
survey of 28 agencies in Southern California that estimate commercial and public uses account
for 18.8 percent and 5.1 percent of metered urban water use, respectively (3). Despite some
variability, all studies indicate that the Cl sector is a substantial consumer of water in the United
States.
One reason why it's difficult to accurately determine how much publicly supplied water the Cl
sector consumes is because the definition of the sector varies among water utilities and in water
use literature. In most cases, the Cl sector is defined as any business establishment or
institution other than a manufacturing or industrial plant. See Section II for more on the definition
and scope of the Cl sector.
Regardless of the definition used for Cl sector, it's becoming clear that increased efficiency in
this sector will be vital as water resources grow scarcer. EPA considers the data presented in
this paper to be the best available regarding water use and efficiency in the Cl sector.
II. Overview of the Commercial and Institutional Sector
The Cl sector consists of a large number of subsectors that vary greatly in how they function
and in how they use water. While some water utilities have water efficiency and conservation
initiatives targeting the Cl sector, as a whole it has received less attention than the residential
sector, largely due to a lack of data on water use within Cl subsectors. This section presents Cl
sector definitions, classifies Cl subsectors, highlights key end uses of water in Cl subsectors,
and discusses water-efficient practices and technologies.
II.A Defining the Cl Sector
Literature on urban water efficiency shows several definitions of the "nonresidential" sector. The
sector containing the industrial, commercial, and institutional users of urban water is designated
as the ICI or CM sector. Where significant industrial customers are not present, the term Cl is
often used. As mentioned earlier, the definitions of the Cl sector vary between water utilities and
from study to study. For example, some agencies define the Cl sector as all business accounts
in the commercial sector, which may include manufacturing and governmental facilities, while
others may separate industrial and institutional sectors. In addition, residential complexes such
as apartment buildings or mobile home parks, for which accounts may be registered in the
name of a business entity, are often considered commercial accounts (3).
The California Urban Water Conservation Council (CUWCC) adopts the following definition of
commercial water users (7):
Commercial customers include customers that provide or distribute a product or service,
such as hotels, restaurants, office buildings, or commercial business, and other places of
commerce. Also included are establishments dedicated to public service, including
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i * Water Efficiency in the Commercial and Institutional Sector:
'• ,,-!•,, ' "jv "'* Considerations for a WaterSense Program
schools, courts, churches, hospitals, and government facilities. All facilities serving these
functions are included regardless of ownership.
The Pacific Institute report Waste Not, Want Not defines the CM sector as follows (4):
• Commercial: Private facilities providing or distributing a product or service, such as
hotels, restaurants, or office buildings. This description excludes multi-family residences
and agricultural uses.
• Institutional: Public facilities dedicated to public service including schools, courthouses,
government buildings, and hospitals.
• Industrial: Facilities that mostly manufacture or process materials as defined by the
Standard Industrial Classification (SIC) code numbers 2000 through 3999.1
Studies of Cl water use often group Cl users of water together for analytical purposes, since the
distinction between what is considered commercial (e.g., a private school) and what is
considered institutional (e.g., a public school) is somewhat arbitrary (4).
For the purposes of this paper, EPA is defining Cl users as any use other than residential
accounts and those that can be clearly classified as industrial accounts.
II.B Cl Subsectors
Within the Cl sector, water use varies by customers (or "customer types"), which can be
grouped into subsectors. See Section II.C for a discussion of the various end uses of water by
subsectors. Using EPA's definition in Section II.A, subsectors that fit into the Cl sector include:
• Office Buildings
• Schools/Educational Complexes
• Restaurants and Fast Food Outlets
• Commercial and Retail Centers
• Hotels and Motels
• Grocers/Food Stores
• Hospitals
• Laboratories
• Laundries
• Vehicle Washes
• Bakery/Pastry Shops
• Auto Service and Repair Shops
• Fuel Service Stations and Convenience Stores
• Golf Courses
• Churches/Sanctuaries
1 Note that the North American Industrial Classification System (NAICS) replaced the SIC system in 1997, and the
new NAICS codes do not correspond to the old SIC codes. The water industry has not integrated the new
classification system into general practice yet (3).
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Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
• Correctional Facilities
• Meeting and Recreation Facilities
• Utilities and Infrastructure
• Other
Cl water use varies from region to region, due to climate and economic factors that affect the
amount of seasonal water use (e.g., landscape water use and cooling needs in warmer
months). Cl water use can even vary among water utilities in the same region, depending on the
major Cl customers and the end uses of water in each service area.
While distribution of water use among these Cl subsectors has been studied, there remains
some uncertainty since their classification is not uniform across utilities, and this data is not
collected and maintained regularly. For example, some utilities classify hotels/motels and
restaurants as two separate Cl subsectors, while others categorize them together as
"hospitality." Though some studies have classified Cl water use by subsector for specific states,
cities, or water utilities, this type of analysis has not been done at the national level. See
Appendix A for a summary of the research available.
To evaluate water usage by subsector and to identify which ones typically demonstrate the
highest levels of consumption, EPA analyzed data available from three primary sources on the
percent of water use by subsector. (1, 4, 7) Table 1 displays data compiled from all three
sources for subsectors where substantial parity exists between subsector definitions. Despite
some variation, all available studies indicate that office buildings, schools, hospitality, and
healthcare facilities are likely to be the largest water uses when looking at a national breakout.
Table 1. Estimated Percent Commercial Water Use in the United States by Subsector
Cl Subsector
Hospitals/Healthcare
Facilities
Office Buildings
Schools
Hospitality
Laundries
Car Washes
Range
Identified
From All Three
Primary
Sources a
2-20
8-17
5-13
6-16
1-4
0-2
Range Reported
in 1997 Survey"
7-12
9-12
5-8
9-21
1-4
0-1
Weighted Avg. °
7.32
9.2
5.88
14.8
1.73
0.28
Source: Compiled and summarized from: Peter H. Gleick, et. al., Waste Not, Want Not: The Potential for Urban
Water Conservation in California, November 2003; Dziegielewski, et. al., Commercial and Institutional End Uses of
Water, 2000; U.S. EPA, Study of Potential Water Efficiency Improvements in Commercial Businesses, Grant CX
823643-01-0 with the State of California Department of Water Resources, April 1997.
b Source: Idem.
c Source: Dziegielewski, op. cit. (Originally derived from U.S. EPA, op. cit.)
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EPA
Water Sense
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
EPA found that the Study of Potential Water Efficiency Improvements in Commercial
Businesses completed in April 1997 provided the most complete data for comparing water use
by subsectors nationwide. (7, 3) This study is based on commercial water use broken down by
subsector at a dozen water utilities across the United States. The data presented in Figure 2
also indicates that hospitality (restaurants and overnight lodging), office buildings, healthcare
facilities, and educational facilities are likely the largest water users in the Cl sector.2 These
results represent the largest national data sample to date, and are consistent with other
available studies regarding subsector water usage within the Cl sector.
Figure 2. Estimated Distribution of Cl Water Use in the
United States in 1995 by Subsector
Health Care, 7%
Education, 6%
Hospitality, 15%
Warehousing
12%
Utilities and
Infrastructure,
24%
Sales, 5%
Miscellaneous
Commercial,
6%
^Irrigation, 6%
Offices, 9%
Source: Dziegielewski, et. al., Commercial and Institutional End Uses of Water, 2000 (originally derived from U.S.
EPA, Study of Potential Water Efficiency Improvements in Commercial Businesses, Grant CX 823643-01-0 with the
State of California Department of Water Resources, April 1997.)
II.C End Uses of Water
Despite the differences between subsectors and the factors contributing to their water needs,
many have similar end uses for water (see Table 2). For example, domestic water use for
plumbing fixtures such as toilets, faucets, showerheads, and urinals represents from one-
quarter to one-half of all water use within most of these facilities. (3) Many of these facilities also
Although the percent of water use associated with them is high, EPA did not consider water use associated with the
categories of "utilities and infrastructure" and "warehousing" because of the inconsistent definitions of these types of
facilities from study to study and utility to utility.
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"'; " Water Efficiency in the Commercial and Institutional Sector:
,.! , ' 'j r '~ j v* Considerations for a WaterSense Program
utilize a significant portion of their water for irrigation and landscaping. Finally, at least half of the
facilities use a significant amount of their water for heating and cooling purposes.
Table 2. Examples of Potential End Uses of Water in Cl Facilities
Indoor/Domestic Water
Kitchens, Cafeterias, Staff Rooms
o Faucets
o Distilled/drinking water
o Dishwashing machines
o Ice machines
o Garbage disposals
o Food preparation
o Frozen yogurt and ice cream machines
Restrooms and showers
o Faucets
o Toilets and urinals
o Showers
• Laundry
o Washing machines
• Sanitation
o Facility cleaning
o Sterilizers/autoclaves
o Equipment washing
o Dust control
o Container washing
• Process
o Photographic and x-ray processing
Cooling and Heating
Outdoor Water Use
Cooling towers
Evaporative coolers
Boilers and steam systems
Once-through cooling
o Air conditioners
o Air compressors
o Hydraulic equipment
o Degreasers
o Rectifiers
o Vacuum pumps
• Irrigation
• Pools and spas
Decorative water feature
The WaterSmart Guidebook: A Water Use Efficiency Plan Review Guide for New Businesses,
developed by East Bay Municipal Utility District (EBMUD) in 2008, details end uses of water for
20 Cl and industrial subsectors. The manual also provides information for users to determine
the most efficient water practices and equipment for these specific subsector types. Water use
in restaurants and fast food chains breaks down as kitchen (47 percent), domestic and
restrooms (33 percent), other (13 percent), landscape (5 percent), and cooling and heating (2
percent). Kitchen uses include cooking and serving systems (combination ovens, pasta cookers,
steamers), scullery operations (pre-rinse spray valves, dishwashing), ice machines, and more.
This example shows how specific end uses of water can be identified within a specific
subsector. For some subsectors, EBMUD could not determine the specific distribution in end
water uses, but could identify what those uses were. Understanding end uses is crucial for
determining water-efficiency and conservation opportunities. (5)
In an effort to better understand the nature of end uses in the Cl sector, EPA has summarized
the end use data for those subsectors where significant data is available and there is significant
parity among various studies to reasonably compare results. The following figures are based on
the average results from a number of sources as cited for each individual subsector below. See
Appendix B for a more detailed discussion of these data sources.
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EPA
Water Sense
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Figure 3. End Uses of Water in Hospitals
Other, 7%
Laundry, 9%
Kitchen, 7%
Domestic /
Restroom, 35%
Landscaping, 7%
Source: Created from analyzing data in: New Mexico Office of the State Engineer, Water Conservation Guide for
Commercial, Institutional, and Industrial Water Users, July 1999 (original source: City of San Jose Environmental
Services Department); Dziegielewski, et. al., Commercial and Institutional End Uses of Water, 2000; East Bay
Municipal Utility District, WaterSmart Guidebook: A Water Use Efficiency Plan Review Guide for New Businesses,
2008; American Waterworks Association, Helping Businesses Manage Water Use, A Guide for Water Utilities.
Figure 4. End Uses of Water in Office Buildings
Landscaping, 22%
Domestic /
Restroom, 37%
Cooling and
Heating, 28%
Source: Created from analyzing data in: New Mexico Office of the State Engineer, Water Conservation Guide for
Commercial, Institutional, and Industrial Water Users, July 1999 (original source: City of San Jose Environmental
Services Department); Dziegielewski, et. al., Commercial and Institutional End Uses of Water, 2000; East Bay
Municipal Utility District, WaterSmart Guidebook: A Water Use Efficiency Plan Review Guide for New Businesses,
2008; American Waterworks Association, Helping Businesses Manage Water Use, A Guide for Water Utilities.
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EPA
Water Sense
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Figure 5. End Uses of Water in Schools
Laundry, 3%^otner> 5%
Kitchen, 7%
Swimming Pools,
1%
J
Landscaping, 28%
Domestic /
Restroom, 45%
Cooling and
Heating, 11%
Source: Created from analyzing data in: New Mexico Office of the State Engineer, Water Conservation Guide for
Commercial, Institutional, and Industrial Water Users, July 1999 (original source: City of San Jose Environmental
Services Department); Dziegielewski, et. al., Commercial and Institutional End Uses of Water, 2000; East Bay
Municipal Utility District, WaterSmart Guidebook: A Water Use Efficiency Plan Review Guide for New Businesses,
2008; American Waterworks Association, Helping Businesses Manage Water Use, A Guide for Water Utilities.
Figure 6. End Uses of Water in Restaurants
Domestic /
Restroom, 31%
Kitchen, 48%
Cooling and
Heating, 1%
Landscaping, 4%
Source: Created from analyzing data in: Dziegielewski, et. al., Commercial and Institutional End Uses of Water, 2000;
East Bay Municipal Utility District, WaterSmart Guidebook: A Water Use Efficiency Plan Review Guide for New
Businesses, 2008; American Waterworks Association, Helping Businesses Manage Water Use, A Guide for Water
Utilities.
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EPA
WaterSense
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Figure 7. End Uses of Water in Hotels and Motels
Swimming Pools,
1%
Other, 12%
Domestic /
Restroom, 30%
Laundry, 16%
Kitchen, 14%
Landscaping,
Source: Created from analyzing data in: New Mexico Office of the State Engineer, Water Conservation Guide for
Commercial, Institutional, and Industrial Water Users, July 1999 (original source: City of San Jose Environmental
Services Department); Dziegielewski, et. al., Commercial and Institutional End Uses of Water, 2000; East Bay
Municipal Utility District, WaterSmart Guidebook: A Water Use Efficiency Plan Review Guide for New Businesses,
2008; American Waterworks Association, Helping Businesses Manage Water Use, A Guide for Water Utilities.
Figure 8. End Uses of Water in Laundries
Other, 4%
Cooling and
Heating, 6%
Laundry, 86%
Source: Created from analyzing data in: Dziegielewski, et. al., Commercial and Institutional End Uses of Water, 2000;
East Bay Municipal Utility District, WaterSmart Guidebook: A Water Use Efficiency Plan Review Guide for New
Businesses, 2008; American Waterworks Association, Helping Businesses Manage Water Use, A Guide for Water
Utilities.
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EPA
WaterSense
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Figure 9. End Uses of Water in Car Washes
Domestic /
Restroom, 5%
Process, 95%
Source: Modified from East Bay Municipal Utility District, WaterSmart Guidebook: A Water Use Efficiency Plan
Review Guide for New Businesses, 2008.
II.D Potential Water Savings and Benchmarks
While some information is available regarding water use and end uses within Cl facilities, data
on potential water savings in the sector is scarce, especially on a national scale. The Pacific
Institute's report Waste Not, Want Not: The Potential for Urban Water Conservation in California
provides some of the only estimates of water savings available. The report used data surveys
and sector-level water studies to estimate that water use in the Cl sector could be reduced by
approximately 40 percent from 2000 levels in the state or 317 billion gallons of water per year.
(4) Although these estimates are specific to California, the substantial savings could be
achieved in other areas of the country using similar technologies and practices. These
significant savings highlight the enormous potential for a national-level program. Additional data
is necessary to fully define the potential impact of a national water-efficiency program for the Cl
sector.
In addition to the overall 40 percent reduction, the potential savings can be broken down into
several subsectors as follows:
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Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Table 3. Potential Water Savings in Cl Subsectors
Cl Subsector
Hospitals/Healthcare
Facilities
Offices
Schools
Restaurants
Hospitality
Laundries
Total Commercial
Total Potential Savings (Thousand
Acre-Feet)
15
133
116
48
10
15
714
Total Potential Savings
(Gallons)
4,887,771
43,338,240
37,798,766
15,640,869
3,258,514
4,887,771
232,657,920
Source: Modified from the best estimate of practical savings in the Cll sector from Peter H. Gleick, et. al., Waste Not,
Want Not: The Potential for Urban Water Conservation in California, November 2003.
Although the potential savings have been defined in some areas of the country, benchmarks for
facility water use are even more difficult to determine. The Commercial and Institutional End
Uses of Water report attempts to develop efficiency benchmarks for facilities in each of the five
subsectors studied-restaurants, hotels and motels, supermarkets, schools, and office buildings-
breaking end use into the categories of indoor water use, cooling water use, and irrigation water
use. While these efficiency benchmarks are based on a small amount of available data, they
suggest water use in various units that could be achieved by efficient facilities. (3)
Additional data and information is needed to create viable benchmarks for Cl facilities on a
national scale. The development of such metrics is not only difficult due to a lack of data, but it
is further complicated by differences in the structure and categorization of facilities that affect
the normalization factors (e.g., gallons per square feet, gallons per employee per day) that could
be used to compare water use between differently sized facilities. Because facilities contain
different components, it is almost impossible to define a subsector-wide benchmark without
more specific data than what is currently available. Further information would be necessary to
develop these efficiency metrics for each particular subsector under a national Cl program.
II.E Water-Efficient Practices and Technologies
Despite the variety of end uses in Cl subsector establishments, water savings opportunities
have been identified that are applicable across the Cl sector and specific subsectors. There is a
significant amount of literature detailing water-efficiency and conservation projects applicable to
Cl facilities, including the documents: A Water Conservation Guide for Commercial, Institutional
and Industrial Users (6), EBMUD's WaterSmart Guidebook: A Water-Use Efficiency Plan
Review Guide for New Businesses (5), Increasing Water Efficiency in California's Commercial,
Industrial, and Institutional (Cll) Sector (12), Waste Not, Want Not (4), Water Efficiency Guide
for Business Managers and Facility Engineers (13), and many more resources.
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i * Water Efficiency in the Commercial and Institutional Sector:
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Examples of water savings opportunities by end use include, but are not limited to:
• Indoor/Domestic Water
o Install high-efficiency dishwashing equipment and run only when full. Install high-
efficiency pre-rinse spray valves.
o Install a garbage strainer instead of a garbage disposal.
o Use air-cooled flake ice machines.
o Retrofit restrooms with high-efficiency toilets, urinals, lavatory faucets, and
showerheads.
o Install high-efficiency clothes washing machines in laundry operations and run
only when full.
o Assure that steam sterilizers are equipped with tempering water flow controls.
• Cooling and Heating
o Optimize cooling tower performance to achieve the maximum cycles of
concentration.
o Consider alternative sources of water for cooling tower makeup.
o Eliminate the use of single-pass cooling.
o Return steam condensate to the boiler.
• Outdoor Water Use
o Use a weather-based irrigation control or soil moisture sensor for automatic
irrigation system control.
o Choose native, drought-resistant plants for landscaping.
o Audit and optimize irrigation systems to achieve maximum distribution uniformity
of water.
According to a McGraw-Hill Construction market report, the most-used water-efficiency
practices in the Cl sector are automatic irrigation systems, high-efficiency urinals, water-saving
bathroom sink faucets, water-saving showerheads, and less water-intensive plant species in
landscaping. (14)
Market research conducted by McGraw-Hill Construction on water use in buildings has found
that water efficiency is growing in the Cl sector. The study found that most building engineers
are motivated by the reduction in energy use and utility bills that is coupled with many water-
efficient practices. In the next five years, McGraw-Hill Construction estimates that 50 percent of
building managers will incorporate water-efficient practices into half of their building portfolio.
McGraw-Hill Construction calls for benchmark setting, government drivers, and education to
continue to push Cl sector water efficiency. (14)
Changes made in the Uniform Plumbing Code and local plumbing codes have mandated
reductions in water use in plumbing fixtures such as toilets, faucets, wash basins, and urinals.
These codes have significantly reduced water demand in newer buildings or renovations.
Additional efforts are needed to incentivize retrofits of older buildings that were grandfathered
into these codes. Significant water savings are possible by focusing on replacing the older,
inefficient plumbing fixtures in these buildings.
In addition, local governments around the country have enacted restrictions and ordinances to
reduce water use throughout the municipality during times of drought. These efforts often
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i * Water Efficiency in the Commercial and Institutional Sector:
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include restrictions on outdoor water use, water efficiency requirements on fixtures, and
mandatory use of certain BMPs. Overall, these ordinances have been effective in reducing
water demand during times of strained supply. Unfortunately, behavior changes are not often
sustained, as many people return to their old water-using behaviors as soon as the restrictions
are lifted. Additional efforts are needed to educate consumers on the importance of water use in
all situations, not just during drought. Water conservation and efficiency programs should make
an effort to create some distance between the programs' efforts and the drought restrictions so
that consumers do not automatically associate the two. This education may be easier in
traditionally arid regions but will remain important to conduct in water rich areas too.
III. Existing Commercial and Institutional Efficiency Programs
WaterSense intends to learn from the success and challenges faced by historical and existing
programs, including national, regional, local, subsector-specific, and international Cl sector
efficiency programs discussed in this section.
III.A National Programs
A few national-level programs do exist that challenge the Cl sector to save water and/or energy.
WaterSense can learn from these programs by closely evaluating the program structures that
are applicable at a national level.
III.A.i EPA's Water Alliances for Voluntary Efficiency (WA VE) Program
The WAVE program was established by EPA's Office of Water in 1992. Its mission was to
encourage commercial businesses and institutions to reduce water consumption while
increasing efficiency, profitability, and competitiveness. The program provided education to the
hospitality industry, office buildings, schools, and universities on water conservation through
water use tracking software and other tools. It also provided some marketing support to its
partners while allowing them to use the WAVE program logo.
Over several years, many partners, supporters, and endorsers participated in WAVE and
achieved many successes. While the program assisted numerous facilities in reducing their
water consumption, unfortunately, the program structure was unsustainable over a longer
timeframe. The majority of the program's funding concentrated on developing software for each
subsector. While this software was very useful to the participating partners, few resources were
left to support implementing the program itself. Eventually, this hindered the program's ability to
respond to participants' needs, so while the WAVE software is still distributed by request, the
program has been phased out over the last few years.
III.A.ii EPA's Water Efficiency Leaders (WEL) Awards Program
EPA initiated the WEL awards in 2006 to recognize those organizations and individuals who
provided leadership and innovation in promoting water-efficient products and practices. WEL's
stated goal was to help foster a nationwide ethic of water efficiency, as well as to inspire,
motivate, and recognize efforts to improve water efficiency. WEL award recipients were selected
from a nomination process and had to be located within the United States and fit into one of four
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i * Water Efficiency in the Commercial and Institutional Sector:
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categories: corporate/industry, organizations/teams/institutions, individuals, and
government/military.
The WEL program is currently on hiatus while EPA evaluates the relationship between WEL and
the WaterSense program. At a minimum, the awards and recognition efforts of the two
programs will be more focused and coordinated.
III.AJH ENERGY STAR® Buildings and Plants
ENERGY STAR is a joint program of EPA and the U.S. Department of Energy (DOE) that is
working to help businesses and consumers save money and protect the environment through
energy-efficient products and practices. ENERGY STAR for Buildings and Plants gives
organizations of all types the tools to track and improve their energy performance. The program
has many components, including a certification and labeling aspect, subsector-specific technical
assistance documents and tools, awards, and challenges. (8)
Under the labeling program, ENERGY STAR benchmarks existing commercial facilities using a
1 to 100 point rating system to measure the energy use of a building relative to its peers while
accounting for location and climate. Buildings achieving a score of 75 or higher and verified by a
professional engineer are eligible to earn the ENERGY STAR label. The facility-specific
information is collected through ENERGY STAR'S Portfolio Manager tool, which allows
organizations to input their information directly online. New construction can be designed to
receive the ENERGY STAR label. Architectural firms must submit documentation to ENERGY
STAR to receive the label. Once facilities earn the ENERGY STAR label, they are eligible to
apply for annual awards and receive other public recognition during media building spotlights.
ENERGY STAR'S Web site keeps a comprehensive list of labeled facilities, including a list of the
top 25 cities with the most ENERGY STAR labeled buildings. (8)
ENERGY STAR'S Buildings and Plants program has significant technical resources available for
the entire Cl sector and specific information by subsector. Tools and resources are available on
energy management guidance, assessing building and plant energy efficiency, assessing
commercial building designs, improving building performance, and cost-benefit calculators. In
addition, facilities can find a list of service providers who can assist them in meeting the
ENERGY STAR labeling requirements for buildings. The energy performance of the facility is
verified by a professional engineer to ensure that it is accurately measured. The ENERGY
STAR Web site also provides a list of energy efficiency programs that offer technical and
financial assistance to the Cl and industrial sector. In addition, subsector-specific guidance is
available to help commercial facilities in many subsectors get started with energy efficiency. (8)
An additional component, the ENERGY STAR Challenge, is an ongoing program to encourage
facilities to reduce their energy consumption by 10 percent. More specific challenges are also
offered. For example, architects can take the ENERGY STAR Challenge to design a building for
the ENERGY STAR label. (8)
III.A.iv Leadership in Energy and Environmental Design (LEED)
LEED, a third-party certification program sponsored by the U.S. Green Building Council, is a
rating system for all building types. The LEED program works to reduce a building's
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i * Water Efficiency in the Commercial and Institutional Sector:
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environmental impact throughout its life cycle including its design and construction, operations
and maintenance, tenant fitout (or customized interior construction for occupying tenants), and
significant retrofits. Separate LEED rating systems address new construction, core and shell,
schools, healthcare, retail, commercial interiors, retail interiors, existing buildings, and existing
schools. Each type of LEED certification program has its own resources and checklist of actions
needed to achieve a LEED rating. LEED takes a multi-faceted approach to recognize
performance in five areas of sustainability: sustainable site development, water efficiency,
energy efficiency, materials selection, and indoor environmental quality. Every improvement
adds a designated number of points, which determine the level of certification the building
receives, whether it is simply certified, or achieves silver, gold, or platinum. Water efficiency
makes up five of the possible 70 points a building may receive to be certified. Each point can be
earned for an overall percent reduction in water usage or the implementation of a best practice
such as the use of recycled water for landscape irrigation. Although this model is successful in
improving the overall environmental performance of a building, it does not necessarily ensure a
reduction in all areas of environmental impact. For example, because architects and/or building
owners are able to choose which projects to implement, a building may be certified with no
water-efficient practices implemented at all. (9)
III.A.v Federal Facilities Under Executive Order 13423
Nationwide, federal facilities have been working to reduce their water use for many years under
a series of executive orders (E.O.s). Most federal facilities are categorized as institutional
buildings with some exceptions for military operations and repair facilities. Because of the large
number of facilities owned and operated by the federal government, there is enormous potential
for water reduction. E.O. 13423, "Strengthening Federal Environmental, Energy, and
Transportation Management," defines specific water conservation requirements for all federal
facilities. According to E.O. 13423, beginning in FY 2008, agencies must reduce water
consumption intensity (on a gallons per gross square foot basis), relative to the baseline of the
agency's water use intensity in FY 2007, through life cycle cost-effective measures by 2 percent
annually or 16 percent total by the end of FY 2015. (10) Several options are available for federal
facilities to utilize when implementing this requirement, including water assessments,
development of water management plans, and purchase of water-efficient fixtures. The
WaterSense program worked with the Federal Energy Management Program (FEMP) to
develop BMPs to assist federal facilities in implementing this E.O. (28)
Each federal agency designs its internal water-efficiency program to meet this E.O. requirement.
For example, EPA developed a comprehensive water conservation strategy to assure that it
meets its goals. (29) EPA's strategy entails assessing each of its facilities, using the FEMP
BMPs as a guideline, to develop a water use baseline and identify facility-specific water savings
opportunities. From the assessments, water management plans are developed for each facility
that indicate the facility's benchmark and provide a path for water savings. Facilities are
encouraged to complete projects identified during the assessments, which may include installing
water-efficient fixtures, optimizing cooling tower performance, collecting air handler condensate
and using it as cooling tower makeup water, or discontinuing single-pass cooling and
unnecessary tempering water use. In addition, EPA sets facility-specific water reduction targets
annually to encourage facilities to practice continual improvement and meet each facility's own
potential.
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Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
I.B Regional and Local Programs
Cl programs have been operating at the local level for many years. Local utilities and
governments have focused their efforts on the Cl sector utilizing a combination of water audits
and rebates to achieve results with their customers. Prominent programs include those
sponsored by Seattle Public Utilities, EBMUD, the Massachusetts Water Resources Authority,
the Metropolitan Water District of Southern California, the City of San Jose Environmental
Services Department, the City of Austin and Austin Water, the City of Phoenix, and Denver
Water. Case studies and presentations by staff from these organizations outline some of the
successes achieved by the programs. All significantly reduced the water used by their Cl
customers. Three prominent programs are discussed in detail below, though many more are
offered nationwide.
///.B.i East Bay Municipal Utility District
EBMUD's WaterSmart Non-Residential Conservation Program seeks to reduce Cl and industrial
sector water use through a variety of program options. EBMUD offers financial incentives in the
form of rebates to customers in these sectors for installing high-efficiency clothes washers in
multi-family properties and coin laundry stores, high-efficiency water brooms, and high-
efficiency toilets. Open rebates are also offered for up to one-half of the installed cost of
equipment that improves water efficiency, such as retrofitting cooling towers and replacing
single-pass cooling. Several incentives are offered with regards to irrigation. EBMUD offers free
irrigation surveys to all commercial customers. It also offers rebates for matched precipitation
rate sprinkler heads, rotating nozzles, moisture sensors, weather-based controllers, and sub-
meters as long as the site was surveyed and water savings opportunities were identified. Under
the Irrigation Reduction Information System, free customized water budgets are printed on
customers' water bills. EBMUD also offers free product give-a-ways during water surveys or to
be picked up from the utility's office. Free products include 2.0 gallons per minute (gpm)
showerheads, 1.0 gpm bathroom faucet aerators, 1.5 kitchen faucet aerators, toilet tank
displacement bags, and hose nozzles. EBMUD will replace conventional pre-rinse spray valves
in commercial kitchens with high-efficiency models through its direct-install program. It also
offers the WaterSmart Guidebook (5), workshops, events, and links to many water-efficiency
resources as part of its education and outreach program. (24)
III.B.ii San Antonio Water System
The San Antonio Water System (SAWS) has a Commercial Conservation Rebates and Audits
Program to assist commercial customers with water conservation. Ten percent of SAWS
customer base are commercial customers, and they account for 40 percent of SAWS annual
water sales. The large-scale rebate offered by SAWS will rebate up to 50 percent of the cost of
new water-saving equipment. The rebate is determined by the actual water savings, the life of
the equipment, and the installed cost. SAWS also has a high-efficiency toilet distribution
program, in which high-efficiency toilets are provided to commercial customers for free and
installed in nonprofit organizations for free. The program also boasts free cooling tower audits
and optimization suggestions.
In addition, SAWS has two certification programs—one for car washes and one for restaurants.
The Certified WaterSaver Program for car washes requires interested car washes to meet
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i * Water Efficiency in the Commercial and Institutional Sector:
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certain criteria during an inspection. They are then eligible to receive the signage indicating that
they are a "Recognized WaterSaver Partner." They must reapply each year and are subject to
random inspection throughout the year. If discrepancies are found, they have 30 days to fix the
discrepancy. Partners are eligible to receive a 10 percent discount on their monthly sewer bill
and are required to sponsor some charity car washes. The Restaurant Certified WaterSaver
Program requires three simple things—pre-rinse spray valves must be 1.6 gpm or less, toilets
must be 1.6 gallons per flush (gpf) or less, and all ice machines must be air-cooled. If a
restaurant does not meet the requirements, it can receive pre-rinse spray valves and high-
efficiency toilets free of charge if it would like to become a Certified WaterSaver. Rebates for air-
cooled ice machines are for 50 percent of the product cost.
Finally, SAWS also has a program called "Gold Fore SA." Golf courses are evaluated on water
conservation, water quality, wildlife habitat and open spaces, and community outreach. There
are four levels of achievement—par, birdie, eagle, and double eagle—and each level has
increasingly more difficult program requirements for each of the four evaluation categories. The
golf course must pledge to commit to the program, evaluate the course based on program
criteria, develop a three-year plan for continuous improvement, and meet schedules and
milestones. Golf courses that meet birdie level or better receive the "Good Housekeeping Seal."
(25)
III.B.iii City of Austin
Similar to the other programs, the City of Austin provides several rebates to commercial
customers, including high-efficiency toilets, high-efficiency urinals, high-efficiency clothes
washers, rain barrels, larger capacity rainwater harvesting systems, and pressure-regulating
valves. The program offers rebates to commercial laundries for the purchase of ozone and
water reuse equipment. The amount of the rebate is equal to the amount of water saved, equal
to $1 per gallon saved per day or up to half of the equipment cost, whichever is less. Similar to
SAWS, it offers free water evaluations for commercial customers to identify water savings
opportunities and eligibility for rebates. The city offers rebates to Cl and industrial customers
that install new equipment and processes that conserve water in existing facilities. Projects must
be approved and customers can receive up to $100,000. The city offers free irrigation audits
and rebates for implementing recommendations made during the audit, as well as educational
resources, programs, and newsletters. (26)
III.C Subsector-Specific Programs
Different subsectors have developed initiatives focused on improving sustainability, many of
which include elements on water efficiency. Examples include the Laboratories for the 21st
Century (Labs21) program operated by EPA and DOE (30), Practice Greenhealth (formerly
Hospitals for a Healthy Environment) (31), and the new Sustainability Tracking, Assessment &
Rating System (STARS) effort (32) managed by the Association for the Advancement of
Sustainability in Higher Education.
Several water-efficiency initiatives have been implemented throughout the years in hotels and
restaurants. Some of the most successful so far have been the efforts to reduce the
environmental impact of hotels. Many hotels have created systems to reduce the number of
times the linens are washed during a customer's stay. These efforts have significantly reduced
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•£\t;
i(\/
i > • ' Water Efficiency in the Commercial and Institutional Sector:
;"l , ^ti"*j'' Considerations for a WaterSense Program
water use through their laundry and cleaning operations. In some areas of the country, these
practices have been required under a city ordinance or plumbing codes, especially during times
of drought and water restrictions. Organizations such as the "Green" Hotels Association offer
membership opportunities and provide free literature detailing conservation opportunities for
those hotels willing to make sustainable choices. (2)
Efforts dedicated to promoting green restaurants have also been on the rise. The nationwide
Green Restaurant Association (GRA) provides environmental assessments, environmental
consulting, and certification of green restaurants using its Green Restaurant® 4.0 standards.
The standards allow restaurants to collect points in the following areas: water efficiency, waste
reduction and recycling, sustainable furnishing and building materials, sustainable food, energy,
disposables, and chemical and pollution reduction. The program is a tiered structure offering
two-, three-, and four-star ratings, but each restaurant must meet minimum points in every
category. There are three types of certification options: existing restaurants, new builds, and
events. GRA verifies each step with invoices and other documentation to ensure that each
restaurant has reached the minimum points for certification. Recertification occurs each year if a
restaurant maintains good standing with Green Restaurant® 4.0. (22)
In addition to the GRA at the national level, the Environmental Law and Policy Center of the
Midwest developed an organization to recognize green restaurants in Chicago. The Web site
(www.greenrestaurants.org/index.php) provides a detailed guide for how to become a green
restaurant, calling out specific areas to save water and energy and practice other sustainable
business operations in restaurants. Although a list of green restaurants in Chicago is provided,
the method for determining how they are green is not clear on the Web site. (23)
III.D International Programs
Internationally, regional or national Cl sector water programs have been developed in Canada,
Australia, and the United Kingdom (UK).
The province of Ontario, Canada is operating under a June 2009 Blueprint fora Comprehensive
Water Conservation Strategy. (15) The blueprint describes the need for a comprehensive water
conservation plan and outlines the elements of a successful plan that Ontario will follow. The
elements include: oversight, targets and plans, measuring progress, water budgets and baseline
data, benchmarks, BMPs, financial incentives, social and technical capacity, market
transformation, and education.
The City of Toronto has its own Cl program called the WaterSaver Program, which offers high-
efficiency toilet and clothes washer rebates, in addition to an extensive water buy-back program.
Under the buy-back program, the city provides a one-time financial incentive of 30 cents per liter
per day (e.g., $1.14 per gallon) to businesses that make permanent and measurable water
reducing changes to their operations. City staff works collaboratively with businesses to identify
areas where water is wasted and offers solutions that will permanently reduce water use and
wastewater discharge. The goal of this program is to help reduce water use citywide by 15
percent by 2011. Businesses reap rewards with lower water bills and utility costs and receive a
cash incentive from the city that pays for a portion of their costs to install water-saving fixtures
and equipment. (16)
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i * Water Efficiency in the Commercial and Institutional Sector:
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In Australia, the state of New South Wales (NSW) offers a Green Business Program. The NSW
Green Business Program provides $30 million throughout five years for projects that will save
water and energy in business operations locally. Round one of the Green Business
Program allocated $11.7 million to 24 water and energy projects, saving an estimated 164
million liters (e.g., 43 million gallons) of drinking water and 36,000 tonnes (e.g., 39,700 tons) of
greenhouse gas emissions a year.
South Australia Water's Business Water Saver Program works with top water users throughout
South Australia to identify opportunities to reduce water consumption and minimize wastewater
production. For interested businesses that use more than 50 million liters (e.g., 13 million
gallons) of water annually, South Australia Water provides water-efficiency audits, water-
efficiency reporting, education and training, monitoring, and ongoing support. (18)
The Australian Capital Territory (ACT) has a program called Think Water, Act Water, which
offers up to $20,000 for commercial bathroom retrofits. ACT also operates under a water
conservation strategy and implementation plan, which sets a goal of reducing water use by 12
percent by 2013 and 25 percent by 2025. The plan calls for a variety of programs, including
rebates, subsidies, purchasing labeled products (under the Water Efficiency Labeling and
Standards Scheme, 19), education, outreach, and more. (20)
Waterwise is a nonprofit, nongovernmental organization focused on decreasing water
consumption in the UK and building the evidence base for large-scale water efficiency.
Waterwise set up the Saving Water in Scotland Network, a partnership seeking to identify and
implement water-efficiency strategies. Waterwise awards the Marque award annually to water-
using products that highlight water efficiency or reduce water waste and work with UK water
companies on large-scale water-efficiency projects, ranging from water audits to domestic
retrofit schemes. The organization also provides technical information and assistance to
businesses and the government, among others. (21)
IV. Key Stakeholder Groups
WaterSense can learn from the experiences of other Cl sector programs but also seeks to
engage partners and other stakeholders in the Cl sector program development process. After
reviewing possible stakeholder categories, seven major categories of stakeholders have
emerged to potentially participate in program development: managers and implementers of
existing Cl programs; water, wastewater, and energy utilities; manufacturers and distributors of
commercial water-efficient products; commercial builders, developers, specifiers, and architects;
experienced Cl water auditors; leaders, building owners, facilities managers, and water-
efficiency specialists from all Cl sector organizations; and federal agency water-efficiency
leaders. These groups represent the likely decision-makers and target audiences of a national
Cl sector program.
• Existing Program Contacts. Managers and implementers with first-hand experience
developing and implementing a Cl sector program can offer extensive input on potential
and real implementation issues, as well as identify ways to overcome barriers.
• Water, Wastewater, and Energy Utilities. Water utilities are likely to serve a critical role in
promoting a national program, and their input should be solicited during the development
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i * Water Efficiency in the Commercial and Institutional Sector:
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phase of the program to ensure buy-in. A broad geographic representation of major
utilities can help identify regional or local issues of concern. Utilities can be represented
individually and/or by organizations such as the Alliance for Water Efficiency and
AWWA. In addition to water utilities, wastewater and energy utilities serve as valuable
stakeholders because water efficiency, reduced wastewater discharge, and energy
efficiency are co-benefits to any Cl water-efficiency effort. Energy utilities may also have
experience to share about their Cl programs.
• Manufacturers and Distributors. Manufacturers (along with members of their distribution
chain) of appliances, plumbing fixtures and systems, irrigation systems, etc. can become
strong allies for a national water-efficiency program for the Cl sector. Their support is
critical to program success and early buy-in should be solicited. They can be present as
individual companies (e.g., American Standard) and/or be represented by trade
associations such as the Plumbing Manufacturers Institute.
• Commercial Builders, Developers, Specifiers, and Architects. Commercial builders and
developers are a key target audience and should assist with Cl program development.
Builders, developers, specifiers and architects can provide EPA with critical input on
specifications that they can/would be willing to meet. This audience can be individuals or
be represented by a trade association.
• Experienced Cl Water Auditors. Not all facilities receive water audits to determine their
water balance and identify water-efficiency and conservation opportunities. Water
auditors should be engaged in the Cl program development process as they understand
Cl sector water use and end water uses.
• Leaders, Building Owners, Facilities Managers, and Water-Efficiency Specialists From
all Cl Sector Organizations. Leaders, building owners, facilities managers, and water-
efficiency specialists with office corporations, schools, hotels/motels, and all Cl sector
organizations know the ins and outs of their Cl subsectors and facilities and can
determine what program components and structures are reasonable and attainable.
They can provide EPA with further input on subsector baselines, end uses of water, and
potential barriers to implementation. They may be individuals and/or be represented by a
larger corporate body or trade association.
• Federal Agency Water-Efficiency Leaders. Federal agencies currently working to
optimize their facilities to meet E.O. 13423 requirements may have useful insight for a
national Cl program structure.
V. WaterSense Commercial and Institutional Program Design Options
In designing a national Cl sector water-efficiency program, WaterSense will need to consider
the types of organizations to which program would apply and how the program will be
structured, e.g., a labeling program versus a voluntary commitment program. This section
presents several design options and key issues to consider.
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Water Efficiency in the Commercial and Institutional Sector:
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V.A Scope and Eligibility
WaterSense could develop a Cl program that would be applicable to the entire Cl sector or
phase in one subsector at a time.
• Developing a broad Cl sector program. Under this approach, all Cl organizations would
be eligible to participate in this program. EPA could take advantage of subsector-specific
strategies to promote end use water efficiency while targeting subsectors through
portions of the program, but all subsectors would be included in the program from the
outset. Under a broad approach, EPA could structure the program around common end
uses that are applicable across most sectors, e.g., domestic water use, landscape water
use, and heating and cooling. EPA could link tools and guidance to BMPs for each type
of end use. The BMPs could be focused on the highest consumptive end uses to
achieve the greatest results; for example, cooling tower optimization and sanitary fixture
retrofits. EPA could broadly distribute this information among the different types of
organizations and implement the program simultaneously.
Advantages:
• Economies of scale gained by working with a large number of organizations on
similar issues.
• Encourages information sharing between different types of participating
organizations.
• Cross-sector applicability—solutions implemented in one area may be applicable
to many others who have not considered it.
Challenges:
• Target decision-makers, operating procedures, and investment styles vary by
sector.
• Specific technologies or practices may not be transferable to another
organization.
• Other barriers to implementation may exist in particular sectors.
• Phased subsector-by-subsector approach. EPA could initiate a Cl water-efficiency
program one subsector at a time. This approach would allow EPA to focus initially on
subsectors that have a high potential for improvements in water efficiency and to
develop tools and resources specific to their needs. As the WaterSense Cl program
expands, EPA could expand into new subsectors and tailor the program and resources
as necessary. By implementing a subsector-based approach, a national-level program
will be able to provide specific information targeted to each type of organization in the Cl
sector. BMPs can be tailored to standard operating styles and procedures to increase
implementation rates. Outreach materials and participation incentives can be targeted to
the key decision-makers in each type of organization. If the highest water-using
organizations are targeted first, large water reductions may be possible, fueling further
results.
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i * Water Efficiency in the Commercial and Institutional Sector:
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Advantages:
• Focusing limited resources (i.e., staff and funding) may make implementation
more effective.
• Targeted information and resources may increase program adoption rates and
improve results.
• Large water reductions may be possible in certain sectors, creating momentum
for further results.
Challenges:
• Coordination between types of organizations may be difficult due to differences in
operating styles and structures as well as adoption rates.
• Certain organizations may fall within multiple subsectors, complicating
implementation.
• All subsectors will not receive immediate attention, and it may take many years to
reach all subsectors. EPA could miss out on immediate and impactful water
savings opportunities in some subsectors using this approach.
If choosing a subsector to target, EPA would utilize a combination of factors to ensure that the
program is implemented as effectively as possible to reduce implementation barriers and
maximize results. In the Cl sector, the following factors would most likely be considered:
• Relative water use within Cl sector.
• Water use intensity.
• Water-efficiency potential.
• Wllingness to participate in a water-efficiency program.
• Concentration of customers in a subsector.
• Possible connections to existing efforts and programs (i.e. green hotel
associations, local conservation programs).
• Cross-sector applicability of tools and resources.
• Measurability of results.
V.B Program Structure
EPA is considering several basic program structure options for a potential WaterSense Cl
program including: certification and labeling, partnership commitment, or education and
outreach. This section describes each of these program structure options including a discussion
of key design issues that need to be addressed. While these programs are discussed
separately, combinations of program structures are possible depending on the scope of the
program and the stakeholders involved. Regardless of the structure created, EPA would want to
design tools to effectively target the identified barriers to implementation of water efficiency in
these sectors.
V.B.i Certification and Labeling Program
EPA could create a national-level certification and labeling program by developing specifications
for facilities in the Cl sector. Upon meeting the specification, the facility would receive the
WaterSense label. Similar programs include ENERGY STAR Buildings and Plants and LEED.
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Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Key Design Issues to Consider
Third-Party Certification Versus Self-Declaration
Under this program structure, EPA would have to determine if a facility's performance would be
verified by a third-party or through a self-declaration process. Several of the national-level
resource conservation programs, including ENERGY STAR, use a self-declaration system. In
the case of ENERGY STAR, information is entered into a tracking system and approved by a
staff engineer at the facility. Other programs such as LEED require facility inspections. EPA
could require third parties to conduct inspections in order to mirror the rigor of other parts of the
WaterSense program. In fact, networks of inspectors may already exist through building
inspection and code enforcement requirements that could be tapped to provide such
verification. Alternatively, a tool such as ENERGY STAR'S Portfolio Manager could be used to
track facility performance. While a third-party certification system would be the most resource
intensive, it would provide the most accurate and tangible water use reductions.
Single-Tiered Versus Multi-Tiered Rating Program
EPA could apply a certification and labeling structure using a single-tiered or a multi-tiered
rating system. Under a single-tiered system, organizations could meet the specification, but
there would be no differentiation among levels of achievement. Conversely, a tiered rating
system would allow organizations to earn points by implementing certain BMPs or achieving
water reduction levels, and the organization would receive an overall score based on the sum of
its points. Many existing programs use this tiered model to reward the highest achievers, but
make the program accessible to a broader range of facilities. The LEED model has been widely
adopted with excellent results verified by inspectors. Other programs use more informal rating
systems that do not require inspection. A tiered system that rewards various levels of water
conservation could aim to complement similar national-level programs. While a tiered system
would increase participation, it also could be more resource intensive and complicated to
implement.
New Construction Versus Existing Facilities
EPA would consider whether the program would include new commercial facility construction or
new and existing facilities. Certain technologies lend themselves better to new construction
rather than retrofits. Older facilities may have additional opportunities for saving water by
updating equipment, fixing leaks, and other measures that new facilities might not find
necessary for water efficiency. Specifications could allow for a facility to be built or retrofit to
meet the same specification, or separate specifications could be considered similar to the LEED
framework. While working with new facilities could be easier, existing buildings may have
greater potential for water-efficiency improvements.
Labeling Criteria
Labeling criteria would be outlined in a specification that could include requirements for water
use or water consumption intensity (on a gallons per gross square foot basis) percentage
reduction and/or BMP implementation.
23
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Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
The percentage reduction approach would require the facility to determine baseline water use
with metered data or other mechanisms, and a data collection procedure would need to be
developed. EPA could require that facilities reduce their water use or water use intensity by a
certain percentage within a specified number of years in order to receive the label. In order to
reflect subsectors with different end uses and water consumption patterns and levels of
engagement in existing water-efficiency programs, WaterSense could set percent reduction
targets by subsector. Using this approach, WaterSense could survey each subsector to
determine an appropriate baseline and percentage reduction target. This flexibility could
maintain realistic, yet rigorous standards for each subsector while encouraging the participation
of more facilities.
In a specification, EPA could also require the implementation of BMPs by participating facilities.
Facilities could be measured based on the implementation of technologies, water use reduction
strategies, or other best practices. The program could require facilities to meet a set of specified
BMPs or allow them to choose from a broad list of BMPs or water use reduction strategies
developed by WaterSense in order to receive the label. The BMPs could apply to the entire Cl
sector or could be subsector-specific. BMPs could also be provided as a guide to meeting
percent reduction targets discussed.
V.B.ii Partnership Commitment
Under a partnership program option, organizations would partner with WaterSense to improve
the water efficiency of their facilities. Using a commitment-based approach, organizations could
sign up as WaterSense partners and commit to undertaking specific actions. There would be no
labeling process but organizations could be required to report their annual activities and water
use savings. While this program structure is not necessarily as rigorous as a facility specification
and certification, it could result in extensive water savings if combined with technical assistance
or third-party verification.
Programs utilizing this structure have been under increasing scrutiny lately to demonstrate
results. If using this program structure, WaterSense would need to ensure that the performance
of participating facilities is independently verified along with the progress toward meeting their
commitments. Regulatory flexibility would not be included in the program structure and
mechanisms would be created to remove non-performing facilities from the program on a
regular basis.
Key Design Issues to Consider
Program Commitment
Under a partnership-commitment program, organizations could commit to reducing their water
use or water use intensity by a certain percentage. Alternatively, they could only commit to
implementing BMPs at their facility.
Commitments could be selected by EPA or self-defined by the facility. Either percentage
reduction or BMP commitments outlined by WaterSense could be for the entire Cl sector or
subsector-specific. Alternatively, EPA could choose to allow facilities to set completely
24
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i *"*' " Water Efficiency in the Commercial and Institutional Sector:
,'"•', , b>C i * j's Considerations for a WaterSense Program
customized goals for water reduction. This option allows the organization to decide a
reasonable goal to achieve that may most benefit their facility.
Technical Assistance
In order to assist facilities in meeting their partnership commitments, EPA could partner with
other organizations to provide onsite assistance to help organizations identify facility-specific
goals and implement projects to achieve them.
In order to facilitate this structure, a network of state and local technical assistance providers
from existing water and pollution prevention programs could be tapped to provide assistance to
buildings in their area. These partner organizations could either provide the technical assistance
themselves or train individual providers to support the water-efficient design, operation, and
maintenance of Cl facilities in a similar manner to they system set up for WaterSense Single-
Family New Homes.3 Providers could be trained and certified to assist in the implementation of
water-efficiency audits, BMPs, fixture retrofits, and other water conservation assistance. The
training would have to be developed by a reputable source, such as EPA or the U.S. Green
Building Council, and administered through trade associations or other large organizations. The
trained and certified providers could be centrally listed and promoted in multiple locations.
Similar networks of technical assistance providers currently exist through several energy
programs, but none is specifically focused on water conservation. The ENERGY STAR program
lists energy providers on its Web site, while LEED uses qualified inspectors to inspect and
certify buildings on a multimedia basis. It may be possible to utilize many of the same providers
to deliver water-efficiency assistance at the same time they are promoting energy conservation.
DOE conducts a similar program through its Industrial Assessment Centers, which train and
qualify providers to assist companies in reducing their energy usage. DOE's training is quite
extensive, allowing providers to focus on particular end uses at facilities. Some of these
trainings may be easily adapted to include water components as well as energy. One example
would be the section focused on heating and cooling systems, which providers could use to
advocate multiple-pass cooling systems and other water-saving measures. This connection
between the energy providers and water efficiency is especially appropriate, due to the
extensive amounts of energy used to heat and pump water throughout a facility.
In addition to technical assistance programs focused on energy, many pollution prevention
programs exist around the country which already assist Cl facilities to reduce their overall
environmental impact. Because these technical assistance programs have very different levels
of resources and areas of focus, specific resources would be needed to assist these programs
in talking about the WaterSense program and facilitate their work with facilities to improve their
water efficiency. Overall, the extensive expertise of these established programs and their
existing relationships with Cl facilities may be very useful in spreading information about a
WaterSense Cl program while also improving the effectiveness of its implementation.
3 For more information about the structure of the WaterSense New Homes program, please visit the WaterSense
Web site at www.epa.qov/watersense/pp/new homes.htm.
25
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Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Reporting Requirements and Verification
To track water saved through the program, EPA could require organizations to submit an annual
report to WaterSense on the progress made toward their goals, be it percentage reduction
commitments, BMP implementation, or facility-defined goals. Under this approach, EPA could
use data provided by the facilities to approximate water savings through use of online tools such
as ENERGY STAR'S Portfolio Manager. Third-parties such as water utilities could verify the
reductions.
V.B.iii Education and Outreach
WaterSense could choose to develop an education and outreach program that would focus on
educating decision-makers (e.g., product specifiers, facility managers, building owners,
corporate leaders) on WaterSense program concerns (e.g., the value of water-efficient products
and practices).
Key Design Issues to Consider
Level of Technical Assistance
This type of program could include technical assistance resources developed by WaterSense,
as well as technical assistance provided through partnerships with regional, state, and local
organizations, as well as universities. EPA could provide centralized access to tools and
resources relevant to reducing water use in the Cl sector. These resources could include BMPs
applicable to different types of facilities as well as specific technologies that could be utilized to
gain reductions. Many similar technical assistance resources are currently available through
different vehicles, but some may need to be modified to be applied to Cl facilities. Tools could
guide facilities through water use audits, cost-benefit analyses, water use projections, leak
detection and repair, and other useful topics. Training manuals and guidance documents could
be created along with new calculators and online tools such as ENERGY STAR'S Portfolio
Manager.
Motivation and Incentives
Since this program is neither a labeling program nor a partnership program, WaterSense would
need to put incentives in place to motivate Cl sector participation. Experience has shown that
formal national recognition through an awards program and the media spurs action. Programs
using this method, such as Green Chemistry and WEL, publicly recognize organizations that
excel in achieving results aligned with program goals. WaterSense could combine its efforts with
the WEL program to specifically create a Cl awards program in which organizations submit
project descriptions and water savings results. EPA could define award criteria to drive certain
activities, and awards could be given on an annual or semi-annual basis. It should be noted that
such an awards program could be a component of any program design that might be developed
by EPA.
26
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i * Water Efficiency in the Commercial and Institutional Sector:
'• ,,-!•,, ' "jv "'* Considerations for a WaterSense Program
VI. Information Gaps and Outstanding Questions
WaterSense is interested in any data or information on the Cl sector that is not presented in this
report or included as a reference. EPA can consider information from studies that are more local
or regional in scope; however, the Agency will need to be able to roll up the results to paint a
national picture that can used for developing a national program. If WaterSense should choose
a subsector approach, research will be needed to determine the current state of some
subsectors and their water use baseline and water conservation potentials.
Specific research and data needs include:
• Subsector specific data, such as:
o Water usage by facility and end use
o Existing benchmarks with which to set targets
o Capacity and resources available of potentially participating facilities
• Economic data, such as:
o Capital versus long-term operating costs
o Other economic considerations in commercial facilities
o Impacts of commercial rate structures on efficiency
o Other potential incentives
Information is also requested on potential partners who may assist WaterSense in distributing
information, analyzing sector data and potential participation, and providing technical assistance
to facilities.
WaterSense would like its partners and stakeholders to be involved in development of a Cl
sector program and asks stakeholders to consider WaterSense's national scope and program
goals when submitting comments. WaterSense in particularly interested in receiving feedback
on the following areas and questions:
Data Gaps and Research Needs
• What research needs to be done or data collected on the Cl sector? What information
gaps exist?
• Are you aware of any reliable data that is not cited in this paper and could add
substantially to our understanding of water use in the Cl sector?
• If EPA were to set a water use percent reduction target for the Cl sector as a whole or
for specific subsectors, what should EPA use as the water use baseline and what
percent reduction should be targeted?
• What impact could a national sector water-efficiency program have on the revenue and
rate structure of drinking water utilities?
27
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i J " Water Efficiency in the Commercial and Institutional Sector:
' ;"'" b'CI'V Considerations for a WaterSense Program
• What issues and barriers stand in the way of a national Cl sector water-efficiency
program? How can EPA overcome them?
Program Design Options
• Should EPA address all subsectors together or separately?
• Are the factors for choosing a subsector appropriate?
• What are the pros and cons of each program structure presented?
• What program structure do you think EPA should adopt and why?
• Is it important to have WaterSense labeled Cl sector facilities?
• If a certification and labeling scheme is preferred, should EPA have a single-tiered or
multi-tiered program? Should certification be third-party or self declaration? Should a
specification include percentage reduction requirements, best management practices
(BMP) implementation requirements, or both?
• If EPA chose a partnership-commitment program structure, what should the commitment
be? What reporting should be required?
• If EPA offered technical assistance, what should it be and in what form should it be
offered?
• If a subsector-specific approach is chosen, should EPA's efforts focus on the largest
overall users of water, or on the largest individual accounts?
• If a subsector-specific approach is chosen, what factors should be considered in
prioritizing different subsectors?
• Should EPA offer an awards program?
• What other incentives should EPA offer for participating in the program?
VII. Next Steps
EPA is welcoming comments on the above questions and the following white paper. Comments
may be submitted to watersense-ci@erq.com through September 20, 2009.
WaterSense will also be holding a meeting to discuss potential Cl program options in
conjunction with the WaterSmart Innovations conference in Las Vegas, Nevada. If you are
interested in attending this meeting please contact the WaterSense Helpline at (866) WTR-
SENS (987-7367) orwatersense@epa.gov.
28
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i - ' Water Efficiency in the Commercial and Institutional Sector:
V V.'" SC Considerations for a WaterSense Program
VIM. References
1. Solley, Wayne, Robert Pierce, and Howard Perlman. Estimated Use of Water in the
United States in 1995. U.S. Geological Survey Circular 1200. 1998.
2. "'Green' Hotels Association." Copyright 1995-2009.
3. Dziegielewski, Benedykt, et. al. Commercial and Institutional End Uses of Water.
American Water Works Association Research Foundation. 2000.
4. Gleick, Peter, et. al. Waste Not, Want Not: The Potential for Urban Water Conservation
in California. Pacific Institute. November 2003.
5. East Bay Municipal Utility District. WaterSmart Guidebook: A Water Use Efficiency Plan
Review Guide for New Businesses. 2008.
6. Schultz Communications. A Water Conservation Guide for Commercial, Institutional, and
Industrial Users. New Mexico Office of the State Engineer. July 1999.
7. U.S. Environmental Protection Agency. Study of Potential Water Efficiency
Improvements in Commercial Businesses. Completed through grant by State of
California Department of Water Resources. April 1997.
8. U.S. Environmental Protection Agency. "ENERGY STAR Program."
9. U.S. Green Building Council. "LEED Rating System." Copyright 2008.
10. Bush, George W. Executive Order 13423: Strengthening Federal Environmental,
Energy, and Transportation Management. Issued January 24, 2007.
11. deMonsabert, Dr. Sharon, P.E. and Barry L Liner. WATERGY: A Water and Energy
Conservation Model for Federal Facilities. Presented at Conserv'96. January 6, 1996.
12. Cohen, Ronnie, et. al. Increasing Water Efficiency in California's Commercial, Industrial,
and Institutional (Cll) Sector. National Resources Defense Council. 2009.
13. California Department of Water Resources. Water Efficiency Guide for Business
Managers and Facility Engineers. October 1994.
14. McGraw Hill Construction. SmartMarket Report, Water Use in Buildings: Achieving
Business Performance Benefits Through Efficiency
15. Maas, Carol, P.E. H2Ontario: A Blueprint for a Comprehensive Water Conservation
Strategy, Version 1.0. Water Sustainability Project, POLIS Project on Ecological
Governance. June 4, 2009.
29
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Water Efficiency in the Commercial and Institutional Sector:
•f-"' ', V". '-'? Considerations for a WaterSense Program
16. City of Toronto. "WaterSaver Program." Copyright 1998-2009.
17. New South Wales Government, Department of Environment and Climate Change. "New
South Wales Green Business Program." Last updated March 26, 2009.
18. Government of South Australia. "Business Water Saver Program."
19. Australian Government. "Water Efficiency Labeling and Standards (WELS) Scheme."
Last updated December 24, 2008.
20. ACT Government. "Think Water, Act Water." Last updated June 26, 2009.
21. Waterwise Program. Copyright 2009.
22. Green Restaurant Association,
23. "Going Greener." Green Restaurants Program. Environmental Law and Policy Center of
the Midwest,
24. East Bay Municipal Utility District, WaterSmart Non-Residential Conservation.
25. San Antonio Water System Commercial Conservation Rebates & Audits. Copyright
2009.
26. Austin City Connection, City of Austin and Austin Water, Water Conservation. Copyright
1995.
27. Helping Businesses Manage Water Use, A Guide for Water Utilities, American Water
Works Association.
28. Federal Energy Management Program, Federal Water Efficiency Best Management
Practices.
29. U.S. Environmental Protection Agency. EPA's Comprehensive Water Conservation
Strategy. Last updated 24 March 2009.
30. U.S. Environmental Protection Agency and U.S. Department of Energy. Laboratories for
the 21st Century Program.
31. Practice Greenhealth.
30
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Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
32. Association for the Advancement of Sustainability in Higher Education. Sustainability
Tracking, Assessment & Rating System (STARS) program,
31
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I !'-\
WaterSense
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
A:
Cl Use by
-------
"'; " Water Efficiency in the Commercial and Institutional Sector:
,.! , ' 'j r '~ j v* Considerations for a WaterSense Program
While data regarding water use in the Cl sector is not regularly collected and monitored, studies
have been done on the regional and national level. The following is a summary of the best
available studies on this subject.
The Waste Not, Want Not study examined Cl subsector water use in California in 2000. (4)
Table A1 presents these findings.
Table A1. Commercial Water Use in California in 2000
Cl Subsector
Offices
Schools
Golf Courses
Restaurants
Retail
Hospitals
Hotels
Laundries
Unexamined Commercial
Percent of Cl Sector Water Use
18.3
13.5
12.4
8.8
8.3
2.0
1.6
1.6
33.5
Source: Modified from Peter H. Gleick, et. al., Waste Not, Want Not: The Potential for Urban Water Conservation in
California, November 2003
According to this study, offices, schools, golf courses, restaurants, and retailers account for
most of the Cl sector water consumption in the state of California. Similar analysis has been
done at the water utility level, but little other data exist to classify Cl subsector water use at the
state level.
The State of California Department of Water Resources, under a grant from EPA, surveyed a
dozen water utilities in the United States to categorize water consumption from various Cl
subsectors in 1997. Table A2 summarizes the commercial and institutional water use of the
participating utilities. (7)
The data presented in Table A2 have several anomalies because the individual utilities
categorized their customers differently. The 1997 EPA grant study found that the largest water
using subsectors are largely the same subsectors as those identified for the state of California
from Table A1. In the 1997 study, hotels and motels were grouped with restaurants into a
hospitality subsector that comprised approximately 15 percent of the water demand in the 12
communities studied. Additional significant water users in this study included offices (9 percent),
healthcare (7 percent), education (5 percent), and a sales category that includes grocery and
convenience stores (5 percent). (3)
As presented in the study Commercial and Institutional End Uses of Water (2000), billing
information of five water agencies in Southern California and Arizona for a single year was
evaluated. The study summarized the water use of facilities in 11 different subsectors which
A-1
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i * Water Efficiency in the Commercial and Institutional Sector:
'• ,,-!•,, ' "jv "'* Considerations for a WaterSense Program
were common to at least two of the five agencies (Table A3). The study further analyzed five of
these categories to further disaggregate water uses and attempt to develop benchmarks. (3)
The results of this study were very similar to the evaluation completed in the EPA study in 1997.
Of note is that the 1997 study had several additional categories that may overlap with the 11
categories of the Commercial & Institutional End Uses of Water study. This difference highlights
the difficulties in comparing the results of multiple studies. (3, 7)
Some of the disparities in the results from the two studies could be attributed to differences in
the conditions at the locations examined. Several economic, technological, and climatic factors
contribute to water consumption in these types of facilities. Economically, the growth or
recession of local industry can change the demand for the services at a particular facility in the
group. This will not only affect the water used by employees, but also the amount of water used
by patrons who visit the facility. In addition to the changes in the overall demand of water within
the facility, the price of water will also affect the amount of water used. Facilities will be more
likely to reduce their water consumption if their water rates increase.
Similarly, the technologies used within the facilities will also affect the water use rates. Areas
with newer buildings and more efficient technologies will have significantly lower water
consumption rates than older buildings. Finally, the climate of the area can significantly affect
the amount of water needed to operate a facility by changing the amount of water needed for
irrigation and cooling. For example, the Commercial and Institutional End Uses of Water study
only utilized information from facilities in California and Arizona, which may have higher
irrigation needs than a group of communities from a more diversified set of locations. All of
these factors combine to change the water consumption rates in different facilities making it
almost impossible to make an equitable comparison.
A-2
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Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Table A2. Distribution of Cl Water Use by Subsector in Selected Cities as Reported in 1997
Subsector
Austin
TX
1992
Buffalo
NY
1995
Burbank
CA1995
EBMUD
CA1994
Glendale
CA1995
Miami
FL
1995
Orlando
FL1995
Portland
OR 1995
San
Diego
CA
1995
Santa
Monica
CA
1995
St.
Paul
MN
1994-
1995
Santa
Rosa
CA
1994
Weighted
Average
1992-1995
Percent of All Reported Cl Water Use
Commercial Water Use by Subsector
Hospitality a
Warehousing
Offices b
Irrigation c
Miscellaneous
Commercial d
Sales e
Services f
Laundries
Vehicle Dealers
and Services
Meeting and
Recreation 9
Communication
and Research
Landscape h
Transportation
and Fuels
Car Wash
Passenger
Terminals
13.26
1.79
13.97
2.18
6.82
5.64
0.90
0.96
0.11
0.05
0.45
20.94
10.83
15.81
5.13
18.15
0.22
3.41
3.39
0.06
2.26
1.15
2.15
1.17
11.75
11.37
9.36
0.59
3.52
0.24
2.48
27.84
1.01
1.17
2.31
7.94
30.77
7.09
21.94
3.91
2.61
2.53
0.59
2.13
0.15
0.42
1.40
0.38
13.45
0.45
12.78
5.12
3.54
4.97
4.17
9.59
7.77
0.58
0.40
0.05
17.53
6.73
12.29
31.05
8.29
2.89
0.95
0.26
34.86
30.94
9.7
0.8
0.45
2.32
0.45
2.13
2.11
0.53
1.04
0.15
0.74
0.20
0.01
5.45
2.78
5.69
1.57
2.99
0.75
1.10
0.50
0.01
1.63
0
0.30
34.28
0.03
7.59
4.25
0.06
7.23
13.07
2.63
2.17
2.97
0.77
0.22
38.55
10.32
6.59
3.91
0.57
3.14
1.43
2.54
0.33
15.96
16.87
13.03
3.12
0.46
11.97
0.21
3.37
4.98
0
0.61
1.24
0.16
28.12
0.25
15.4
0.3
7.54
0.43
5.88
4.83
0.44
0.26
0.3
1.12
1.23
14.80
12.40
9.20
6.15
5.72
5.48
2.36
1.73
1.15
1.11
0.72
0.58
0.43
0.28
0.20
>
CO
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Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Table A2. Distribution of Cl Water Use by Subsector in Selected Cities as Reported in 1997
Subsector
Austin
TX
1992
Buffalo
NY
1995
Burbank
CA1995
EBMUD
CA1994
Glendale
CA1995
Miami
FL
1995
Orlando
FL1995
Portland
OR 1995
San
Diego
CA
1995
Santa
Monica
CA
1995
St.
Paul
MN
1994-
1995
Santa
Rosa
CA
1994
Weighted
Average
1992-1995
Institutional Water Use by Subsector
Utilities and
Infrastructure '
Health Care J
Education k
Church
Nonprofit
Service and
Organizations '
Military
32.34
5.83
11.14
1.43
2.42
0.67
12.03
0.97
0.31
1.42
0.77
16.73
10.19
0.67
1.88
5.62
8.30
2.34
8.49
18.21
7.16
2.70
0.59
11.5
7.33
1.18
5.59
4.8
1.55
0.70
0.76
0.02
73.04
3.5
0.27
0.42
0.98
10.94
11.41
1.19
0.20
20.43
11.96
0.21
0.06
17.18
8.55
1.49
0.78
2.86
16.36
11.06
2.79
0.5
0.33
22.76
7.32
5.88
0.73
0.66
0.27
Source: Dziegielewski, et. al., Commercial and Institutional End Uses of Water, 2000 (originally derived from U.S. EPA, Study of Potential Water Efficiency
Improvements in Commercial Businesses, Grant CX 823643-01-0 with the State of California Department of Water Resources, April 1997)
a - Hospitality includes restaurant/bar, overnight accommodations, and other group shelter.
b - Office includes finance, insurance, real estate, and government.
c- Irrigation includes parks, gardens, botanical, zoological, cemeteries, and open land.
d - Miscellaneous commercial includes warehousing, warehouse-cold storage, and boat dock.
e - Sales include grocery stores, convenience stores, and dry goods.
'-Services include miscellaneous repair services, crematories, funeral homes, laboratories, and printing.
g - Meeting and recreation include convention center, recreation and theaters, and amusement parks.
h - Landscape includes landscape horticultural service, agriculture, soil preparation, crop services, veterinary, equestrian, livestock, poultry, and game
propagation.
' - Utilities and infrastructure include police and fire station, public works/utility, electric steam, natural gas, gas production and distribution, sanitary collection and
disposal, construction, fumigating, and septic tank cleaning.
1 - Health care includes health services, hospitals, and nursing homes.
k - Education includes schools, museums and libraries, colleges/other schools, and social services.
1 - Nonprofit service and organizations include professional, labor, civic, and political social organizations except churches.
-------
Water Efficiency in the Commercial and Institutional Sector:
':'Li " .y^ """'• i Considerations for a WaterSense Program
Table A3. Characteristics of Significant Cl Subsectors in Five Participating Agencies
Subsector
Urban Irrigation
Office Buildings
Schools and
Colleges
Restaurants
Hotels and Motels
Laundries and
Laundromats
Hospitals and
Medical Offices
Food Stores
Auto Shops
Membership
Organizations
Car Washes
Average
Annual Daily
Use (gpdc)3
2,596
1,204
2,117
906
7,113
3,290
1,236
729
687
629
3,031
Percent of Total
Cl Use (%)
28.48
10.19
8.84
8.83
5.82
3.95
3.90
2.86
1.97
1.95
0.82
Percent of Cl
Customers (%) b
30.22
11.67
4.79
11.18
1.92
1.38
4.19
5.20
6.74
5.60
0.36
Scaled Average
Daily Use (gpdc) °
739.0
123.0
187.0
80.0
414.0
130.0
48.0
21.0
14.0
12.0
25.0
Source: Modified from Dziegielewski, et. al., Commercial and Institutional End Uses of Water, 2000
a - gpdc = gallons per day per customer
b - "Percent of Cl customers" pertains to Cl customers in agencies utilizing the particular subsector.
c - Scaled average daily use = average annual daily use in subsector x percent of total Cl use attributed to the
subsector.
A-5
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Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Appendix B:
Data on End Use Application of Water by Subsector
-------
EPA
AA/aterSense
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Due to the diverse range of subsectors within the Cl sector, generalizing the end use of water
can be difficult. By looking at end uses on a subsector level, however, there are a great number
of patterns regarding end use that can be established. This appendix summarizes the best
available data on the end uses of water on a Cl subsector basis.
Cl sector water use in Denver was broken out by end use in 1991 (see Figure B1). (11) The
figure displays that domestic water use and cooling and heating are among the main water end
uses in the Cl sector.
Figure B1. End Uses of Water in the Cl Sector in Denver (1991)
Other, 10%
Cleaning, 6%
Process, 10%
Kitchen and
Laundry, 9%
Landscaping,
Domestic /
Restroom, 25%
Cooling and
Heating, 32%
Source: Modified from Sharon deMonsabert and Barry L. Liner, WATERGY: A Water and Energy Conservation Model
for Federal Facilities, January 1996
Waste Not, Want Not characterized Cl end uses in California, consolidated in Figure B2. In
California, due to climate, water use for landscaping takes precedent over some other end uses.
Water use for restrooms and cooling remain significant end uses. (4)
B-1
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EPA
AA/aterSense
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Figure B2. Estimated Water Use in the CM Sector by End Use in California in 2000
Other, 9%
Domestic /
Restroom, 16%
Process, 17%
Laundry, 2%
Kitchen, 6%
Cooling and
Heating, 15%
Landscaping, 35%
Source: Modified from Peter H. Gleick, et. al., Waste Not, Want Not: The Potential for Urban Water Conservation in
California, November 2003
These models characterize the end uses in the entire Cl sector and begin to demonstrate that
Cl water use varies among geographic locations. In addition, the specific end uses of water in
the Cl sector vary depending on the nature of the business and the levels of technology and
water use efficiency in different business establishments. End use water distribution in the Cl
subsectors described in Section II.B varies widely. Some potential end uses in Cl subsectors
include:
• Indoor/Domestic Water
o Kitchens, cafeterias, staff rooms
• Faucets
• Distilled/drinking water
• Dishwashing machines
• Ice machines
• Garbage disposals
• Food preparation
• Frozen yogurt and ice cream machines
o Restrooms and showers
• Faucets
• Toilets and urinals
• Showers
o Laundry
• Washing machine
o Sanitation
• Facility cleaning
• Sterilizers/autoclaves
• Equipment washing
B-2
-------
, V
! •'
"' ': •>
1 'f Water Efficiency in the Commercial and Institutional Sector:
:' __; «i *_'""*, - Considerations for a WaterSense Program
• Dust control
• Container washing
o Process
• Photographic and x-ray processing
• Cooling and Heating
o Cooling towers
o Evaporative coolers
o Boilers and steam systems
o Once-through cooling
• Air conditioners
• Air compressors
• Hydraulic equipment
• Degreasers
• Rectifiers
• Vacuum pumps
• Outdoor Water Use
o Irrigation
o Pools and spas
o Decorative water feature
Commercial and Institutional End Uses of Water presents information on the end water uses for
several subsectors. Many unique variables apply to each subsector that can create a large
degree of variability in terms of how much water is used in those facilities. (3) For example:
• Restaurants: number of meals served; seating capacity; operating hours; type of
restaurant; type of kitchen operations; type of meals; etc.
• Hotels and motels: number of rooms; number of occupants; presence of restaurant,
kitchen, laundry, swimming pool, and/or spa; type of icemakers; etc.
• Supermarkets: sales; number of aisles; number of public restrooms; mist sprayers on
vegetables; hours of operation; presence of deli, meat shop, and/or photo finishing; etc.
• Schools: number of pupils; number of showers; cafeteria/kitchen equipment; hours
occupied; number of sporting events; etc.
• Office buildings: number of employees; type of business; number of visitors; presence of
eating establishment; type of cooling installation; hours occupied; etc.
While the available data lacks the specificity needed to benchmark Cl facilities based on these
variables, significant information regarding their typical end uses exist. Tables B1 through B6
present an allocation of end uses in hospitals, schools, hotels, commercial office buildings,
commercial laundries, and restaurants, as reproduced from Commercial and Institutional End
Uses of Water (3). This collection of data is based on measurements and estimates from water
audits of six U.S. service areas.
B-3
-------
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Table B1. End Uses of Water in Hospitals (Percent of Total Hospital Use)
General Purpose
Domestic
Cooling
Process rinses
Cleaning
Sanitation
Laundry
Water treatment
Landscape
Miscellaneous
Number of establishments
Average water use per
establishment (gpd)c
Specific Purpose
Plumbing3
Kitchen
Cooling tower
Evaporative coolers
Boilers
Photo processing
Product water
Plant cleaning
Sterilizers/autoclaves
Ingredients cleaning
Phoenix
24.33
8.5
27.43
5.08
2.32
2.00
NA
NA
6.04
NA
7.68
3.42
13.16
0.04
3
314,640
Denver
39.7
4.53
7.22
8.8
3.61
4.91
5.43
4.78
4.91
NA
12.33
NA
3.77
NA
4
160,550
Mesa
22.95
2.86
32.63
7.76
3.25
13.99
0.58
NA
NA
NA
NA
2.4
9.35
4.22
2
154,000
Ventura
37.87
4.51
8.11
NA
1.02
3.42
NA
NA
16.95
0.31
8.43
6.48
11.59
1.30
1
73,330
Los
Angeles
18.65
6.51
31.29
NA
0.31
7.26
10.85
NA
4.65
NA
0.5
16.18
3.3
0.50
2
159,320
Weighted
Average b
27.05
6.04
23.66
4.88
2.24
5.78
3.12
0.89
5.42
0.03
5.91
5.22
8.77
0.97
12
172,390
Source: Dziegielewski, et. al., Commercial and Institutional End Uses of Water, 2000 (originally adapted from Journal ofAWWA, vol. 84, no. 10 [October 1992], by
permission, Copyright© 1992, American Waterworks Association)
NA- Information not available
3 - Plumbing includes lavatory faucets, toilets, urinals, and showerheads.
b - The average is weighted by the proportion of each service area in the combined total use of this category.
c- Gallons per day.
-------
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Table B2. End Uses of Water in Schools (Percent of Total School Use)
General Purpose
Domestic
Cooling
Process rinses
Sanitation
Laundry
Landscape
Number of establishments
Average water use per establishment (gpd)c
Specific Purpose
Plumbing3
Kitchen
Cooling tower
Evaporative coolers
Boilers
Photo processing
Ingredients cleaning
Phoenix
33.14
6.27
1.51
0.16
0.80
2.09
NA
1.92
54.11
4
36,390
Denver
47.79
5.35
5.21
NA
NA
5.30
2.93
3.88
29.54
5
87,110
Weighted Average"
43.47
5.32
4.13
0.05
0.24
4.35
2.07
3.30
36.77
9
61,770
CD
01
Source: Commercial and Institutional End Uses of Water, Dziegielewski, et. al., 2000 (originally adapted from Journal ofAWWA, vol. 84, no. 10 [October 1992], by
permission, Copyright© 1992, American Waterworks Association)
NA- Information not available
a - Plumbing includes lavatory faucets, toilets, urinals, and showerheads.
b - The average is weighted by the proportion of each service area in the combined total use of this category.
c- Gallons per day.
-------
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Table B3. End Uses of Water in Hotels (Percent of Total Hotel Use)
General Purpose
Domestic
Cooling
Process rinses
Sanitation
Laundry
Water treatment
Landscape
Miscellaneous
Number of establishments
Average water use per establishment (gpd)c
Specific Purpose
Plumbing3
Kitchen
Cooling tower
Evaporative coolers
Product water
Ingredients cleaning
Phoenix
17.08
18.31
0.64
0.25
NA
4.67
16.82
0.71
41.32
0.20
4
202,140
Denver
30.62
9.96
18.43
NA
6.41
17.25
3.10
NA
NA
14.25
2
153,070
Ventura
33.72
NA
NA
NA
3.62
29.76
22.65
NA
10.25
NA
1
38,940
Weighted Average"
23.97
13.26
7.49
0.13
2.85
12.03
12.07
0.37
22.2
5.63
7
131,390
Source: Commercial and Institutional End Uses of Water, Dziegielewski, et. al., 2000 (originally adapted from Journal ofAWWA, vol. 84, no. 10 [October 1992], by
permission, Copyright© 1992, American Waterworks Association)
NA- Information not available
3 - Plumbing includes lavatory faucets, toilets, urinals, and showerheads.
b - The average is weighted by the proportion of each service area in the combined total use of this category.
c- Gallons per day.
-------
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Table B4. End Uses of Water in Office Buildings (Percent of Total Office Building Use)
General Purpose
Domestic
Cooling
Process rinses
Sanitation
Laundry
Water treatment
Landscape
Miscellaneous
Number of establishments
Average water use per establishment (gpd)c
Specific Purpose
Plumbing3
Kitchen
Cooling tower
Evaporative coolers
Boilers
Photo processing
Product water
Cleaning ingredients, containers
Phoenix
22.35
1.54
56.05
1.77
0.68
0.25
NA
0.23
1.54
4.13
12.87
0.13
13
55,930
Denver
40.39
NA
20.97
1.61
5.24
0
0.10
NA
NA
NA
21.60
NA
3
261,850
Weighted Average"
37.21
0.27
27.15
1.64
4.44
0.04
0.08
0.04
0.27
0.73
20.06
0.02
16
139,150
Source: Commercial and Institutional End Uses of Water, Dziegielewski, et. al., 2000 (originally adapted from Journal ofAWWA, vol. 84, no. 10 [October 1992], by
permission, Copyright© 1992, American Waterworks Association)
NA- Information not available
3 - Plumbing includes lavatory faucets, toilets, urinals, and showerheads.
b - The average is weighted by the proportion of each service area in the combined total use of this category.
c- Gallons per day.
-------
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Table B5. End Uses of Water in Commercial Laundries (Percent of Total Commercial Laundry Use)
General Purpose
Domestic
Cooling
Process rinses
Sanitation
Water treatment
Miscellaneous
Number of establishments
Average water use per establishment (gpd)c
Specific Purpose
Plumbing3
Cooling tower
Evaporative coolers
Product water
Ingredients cleaning
Phoenix
2.49
6.42
1.97
NA
80.73
8.26
0.13
13
76,300
Denver
3.53
0.31
1.58
0.31
89.78
NA
4.34
3
51,850
Weighted Average"
2.92
3.95
1.81
0.19
84.38
4.91
1.84
16
64,090
ro Source: Commercial and Institutional End Uses of Water, Dziegielewski, et. al., 2000 (originally adapted from Journal ofAWWA, vol. 84, no. 10 [October 1992], by
00 permission, Copyright© 1992, American Waterworks Association)
NA- Information not available
a - Plumbing includes lavatory faucets, toilets, urinals, and showerheads.
b - The average is weighted by the proportion of each service area in the combined total use of this category.
c- Gallons per day.
-------
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Table B6. End Uses of Water in Restaurants (Percent of Total Restaurant Use)
General Purpose
Domestic
Cooling
Sanitation
Laundry
Landscape
Other
Unaccounted
Number of establishments
Average water use per establishment (gpd)f
Specific Purpose
Plumbing3
Kitchen
Cooling tower
Evaporative coolers
Ingredients cleaning
Denver
27.75
48.48
0.10
3.20
4.40
0.70
4.30
2.30
8.70
3
7,524
Tri-county Fl_d
35.33
50.00
0
0
0.22 b
0
2.45
12.03C
0
6
5,800
Weighted Average6
31.05
49.14
0.06
1.81
2.58
0.40
3.49
6.54
4.91
9
6,773
Source: Commercial and Institutional End Uses of Water, Dziegielewski, et. al., 2000 (originally adapted from Journal ofAWWA, vol. 84, no. 10 [October 1992], by
permission, Copyright© 1992, American Waterworks Association)
NA- Information not available
a - Plumbing includes lavatory faucets, toilets, urinals, and showerheads.
b - Also included laundry.
c-Also included unaccounted use.
d -Tri-County area includes Hillsborough County, Pasco County, and Pinellas County.
e - The average is weighted by the proportion of each service area in the combined total use of this category.
'-Gallons per day.
-------
EPA
AA/aterSense
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
In A Water Conservation Guide for Commercial, Institutional, and Industrial Water Users
prepared by the New Mexico Office of the State Engineer in July 1999, water usage estimates
were developed for several Cl subsectors as displayed in Figures B3 through B6. (6)
Figure B3. Water Usage in Office Buildings
Other, 9%
Kitchen, 1%
Landscaping,
22%
Domestic /
Restroom, 40%
Cooling and
Heating, 28%
Source: Modified from New Mexico Office of the State Engineer, Water Conservation Guide for Commercial,
Institutional, and Industrial Water Users, July 1999 (original source: City of San Jose Environmental Services
Department)
Figure B4. Water Usage at Hospitals
X-ray Process, 6%
Sterilizers, 10%
Other,
Laundry, 10%
Domestic /
Restroom, 40%
Kitchen, 8%
Landscaping, 5%
Cooling and
Heating, 13%
Source: Modified from New Mexico Office of the State Engineer, Water Conservation Guide for Commercial,
Institutional, and Industrial Water Users, July 1999 (original source: City of San Jose Environmental Services
Department)
B-10
-------
EPA
AA/aterSense
Water Efficiency in the Commercial and Institutional Sector:
Considerations for a WaterSense Program
Figure B5. Water Usage at Hotels and Motels
Swimming Pools,
1%
Laundry, 20%
Kitchen, 25%
Guest Rooms,
30%
Cooling and
Heating, 15%
Source: Modified from New Mexico Office of the State Engineer, Water Conservation Guide for Commercial,
Institutional, and Industrial Water Users, July 1999 (original source: City of San Jose Environmental Services
Department)
Figure B6. Water Usage at Schools
Kitchen, 10%
Swimming Pools,
1%
Landscaping, 25%
Domestic /
Restroom, 45%
Cooling and
Heating, 20%
Source: Modified from New Mexico Office of the State Engineer, Water Conservation Guide for Commercial,
Institutional, and Industrial Water Users, July 1999 (original source: City of San Jose Environmental Services
Department)
B-11
-------
1 'f Water Efficiency in the Commercial and Institutional Sector:
:' __; «i *_'""*, - Considerations for a WaterSense Program
These figures further illustrate that end use varies by subsector—in type and distribution.
Because water use is so variable among the Cl subsectors, it is difficult, or nearly impossible, to
compare facilities from one subsector to another. Water use must be normalized per some
unit—number of customers, number of employees, total output, facility area, number of
seats/chairs, or other units. Even using normalized data, it is not reasonable to compare some
subsectors that have different purposes and end uses to one another.
B-12
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