United States
Environmental Protection
Agency
How to Support Water System Partnerships
Water System Partnerships Handbook
Steps for Identifying, Assessing, and Launching Partnerships
STEP 1:
Identify PWSs in Need
STEP 2:
Determine How
Partnerships Could
Improve Compliance
STEP 3:
Assess Practicality of
Potential Partnership
Activities
STEP 4:
Identify on
the Ground Support
STEP 5:
Develop a
Communications Plan
STEP 6:
Approach PWSs
About Partnerships
This document is intended to be used as a tool for state drinking water programs to identify, assess, and implement water system
partnerships. Technical assistance providers may also find this tool useful for the same purposes in the communities they support.
Overview
Public water systems (PWSs) are required to provide safe drinking water to their customers that meet all federal and
state regulations. In order to maintain consistent service at full-cost pricing with the resources they have available and
consistently comply with these regulations, PWSs must have technical, managerial, and financial (TMF) capacity. Small and
mid-size PWSs may face unique challenges in providing drinking water that meets federal and state regulations. These
challenges can include:
•	Undertrained and retention of drinking water
operators,
•	Persistent compliance issues,
•	Aging infrastructure,
•	Limited resources,
•	Economies of scale, and
•	Water quality and/or quantity issues.
Resources are available to help build TMF capacity, and PWSs
can overcome some of these challenges by developing
partnerships with other PWSs. Partnerships encompass a
1	How to Support Water System Partnerships
range of opportunities for PWSs to work together to protect
public health by leveraging existing resources. "Water
system partnership" is an umbrella term used to define
any informal or formal relationship or agreement that PWSs
engage in. Partnerships can be as basic as providing aid during
a crisis, or as intricate as creating a new entity to manage a
group of existing PWSs. The most successful partnerships
are those that benefit all participating PWSs by addressing a
shared challenge or by matching PWSs with complementary
strengths and expertise and that have the support of the
communities involved.

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Benefits
Types of Partnerships
When a PWS enters into a partnership there are immediate
and long-term benefits for the PWS, state drinking water
program, and PWS customers. PWSs that engage in
partnerships can experience improved economies of
scale, long-term savings, improved customer service,
and increased TMF capacity. In addition, when PWSs are
able to alleviate immediate concerns and improve public
health protection, PWSs are able to better understand their
existing operations and maintenance (O&M) and capital
improvement costs to plan forfuture operations. When PWSs
engage in partnerships that are designed to help overcome
specific challenges, the state drinking water program may
see enhanced compliance, resource savings, and improved
customer relations. Finally, partnerships can help provide
drinking water customers with improved water quality and
increased reliability of water service.
The type of partnership a PWS forms should be tailored to
address the PWS's unique challenges and strengths, as well
as the community's culture and existing relationships.
A	1
Resources
Visit The EPA's water system partnerships website
for more information about:
•	Programs and policies implemented in each
state that encourage water system partnerships
and
•	Water system partnership case studies.
The EPA's water system partnership website also
contains additional information on partnerships,
information about upcoming events, and
stakeholder-specific guides.
For the system
9
Šjy
o
Economies of scale
Long-term savings
Improved customer service
Planning forfuture
II operations
' LJLH Increase technical, financial,
and/or managerial capacity
Public health protection
Partnership Benefits
For the state program

Improved compliance
Potential reduction in number
of regulated systems
©
Resource savings
Improved customer relations
Public health protection
For the customer
Improved water quality
Increased reliability
-~J of supply
Public health protection
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There are four general types of partnerships. PWSs can also use several types of partnerships in a layered approached to
improve efficiency and provide safe drinking water. For partnership examples, visit the EPA's Interactive Partnerships Case
Studies Map.
: PWSs coordinate with other PWSs without contractual obligations. Examples and Advantages.
: PWSs contract with other PWSs or service providers. The PWSs remain independent, but certain
functions are contracted out to increase efficiency. Examples and Advantages.
: A group of PWSs create a new management entity designed to serve the PWSs that formed it. Examples and
Advantages.
: PWSs engage in mergers, mutual transfer of existing entities, or creation of a new entity. Examples
and Advantages.
/ Water system
partnerships
encompass a range of
opportunities for systems
to worktogether in order
to sustainably provide
drinking water services.
Increasing Transfer of Responsibility
Work with other systems,
but without contractual
obligations.
Creation of a new entity
by several systems that
continue to exist as
independent entities.

Takeover by existing or
newly created entity.
Requires a contract,
but contract is under
system's control.
Funding Partnerships
The EPA offers several financial resources to assist PWSs in
accessing information and identifying potential funding
sources, including:
Drinking Water State Revolving Fund Eligibility
Handbook: This document contains a compilation
of examples of funded projects that demonstrate
the exceptional flexibility inherent to the Drinking
Water State Revolving Fund (DWSRF) program in
funding infrastructure projects.
Analysis of Uses of Drinking Water State Revolving Fund
Set-Asides: The DWSRF set-asides support activities
necessary to ensure safe and affordable drinking water
by providing states with flexible tools to assist PWSs
with training, technical assistance, and pre-construction
activities to help ensure that PWSs have the technical,
managerial and financial capacity to obtain a loan and
to effectively maintain their resources. This document
provides an analysis and examples of the multiple
uses of the DWSRF set-asides in promoting capacity
development efforts.
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•	Water Finance Clearinghouse: The Water Finance
Clearinghouse is an easily navigable web-based
portal to help communities locate information and
resources that will assist them in making informed
decisions for their drinking water, wastewater, and
stormwater infrastructure needs.
•	If a PWS is interested in conducting a feasibility study
to consider and weigh partnership options, funds
could come from the state or other federal agencies
such as the U.S. Department of Agriculture (USDA) or
the U.S. Economic Development Administration (EDA).
Additionally, groups such as Rural Community Assistance
Partnership (RCAP) or National Rural Water Association
(NRWA) can provide training, technical assistance, and
facilitation to support the process of creating a water
system partnership.
The Role of the State Drinking Water
Program in Developing Partnerships
There are many roles needed to support a water system
partnership, from initiation through implementation.
State drinking water programs, PWS owners and boards,
and associations must work together to provide the best
support possible to create and maintain partnerships. State
drinking water programs can play a role in encouraging,
fostering, and supporting partnerships.
The steps in this document can help state drinking water
program staff identify when and how to approach a PWS
about partnership opportunities. Using this document, you
and your team will be able to:
•	Identify PWSs in need (Step 1).
•	Determine how partnerships could improve
compliance (Step 2).
•	Assess practicality of identified partnerships and
partners (Step 3).
•	Identify project champions and on the ground
support (Step 4).
•	Develop a communications plan (Step 5). and
•	Approach PWSs about partnerships (Step 6).
State drinking water program staff may also choose to approach
PWSs earlier in the process based on existing relationships
and the PWS's knowledge, concerns, and priorities related to
partnerships. The steps in this document can help identify
and categorize PWSs in need of partnerships. State drinking
water programs can adjust steps or the order of actions
based on what works best with their PWSs.
©
€
Establishing Your Team
Developing partnerships takes time, collaboration, and coordination between PWSs. Depending on the type of
partnership, the partnership can also benefit from coordination and collaboration from organizations that provide
support and technical assistance to PWSs. State drinking water program staff, including staff from the Capacity
Development program, Operator Certification program, compliance, enforcement, and DWSRF can work together
to help identify PWSs that might benefit from a partnership, discuss partnership implementation challenges, and
determine the most effective way to collaborate with PWSs. Utilizing data, knowledge about specific PWSs, and
existing efforts and relationships will strengthen your team's ability to assess partnership options and support PWSs.
Using this Document
Thisdocument is intended to be used as a tool for state drinking water programs to identify, assess, and implement
water system partnerships. Throughout the various steps of this handbook, you will be prompted to fill in sections.
These tillable sections will help guide you and your team through the process of identifying PWSs, assessing
partnership options and feasibility, and developing a plan for implementation. Technical assistance providers may
also find this tool useful for the same purposes in the communities they support.
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STEP!:
IDENTIFY PWSS IN NEED
The purpose of this step is to begin identifying PWSs with compliance issues by reviewing your state's drinking
water compliance and TMF capacity data. As you and your team review your state's data, you should consider the
following questions:
Are there geographic patterns or areas within your state where many PWSs violate drinking water regulations?
Yes | | No
Where are the compliance problems concentrated (select all that apply)?
Rural Areas ~ Suburban Areas | | Urban Areas
Are there areas of PWSs with similar problems?
Yes | | No
Do PWSs using ground water or surface water have more violations?
Ground Water | | Surface Water | | Equal
How many PWSs in the state are publicly-owned? How many are privately/investor-owned?
Publicly-owned:	Privately/1 nvestor-owned:
Are compliance challenges correlated with ownership type?
Yes | | No
Are the highest number of violations related to monitoring or reporting?
Monitoring ~ Reporting ~ Equal ~ Other (e.g., MCL)
From the above questions, record any patterns you notice with your compliance and TMF capacity data. For example, the
northwestern part of the state has multiple surface water PWSs in rural areas with monitoring violations. In addition, some
of the PWSs in this area also have managerial-related challenges.
These answers can start to determine what common challenges PWSs are facing. Using the responses above, complete the
table below to identify specific PWSs that might benefit from a partnership.
~
~
~
~
~
~
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General



Do they
Are there




similar
PWSID or
Location
Type of
Ownership
PWS
have health-
Reason for Violations characteristics
PWS Name
in the
Water Used
Type
Size
based
to other
PWSs?

State



violations?
PWS 000123 Northwest- Surface Water Public
ern part of
the state
Small (popu- Yes
lation about
3,000)
Multiple monitoring violations Yes
Groundwater Public
Surface Water .
Private
Yes
No
Yes
No
Groundwater Public	Yes	Yes
Surface Water
Private	No	No
Groundwater Public	Yes	Yes
Surface Water _ .
Private	No	No
Groundwater Public	Yes	Yes
Surface Water
Private	No	No
Groundwater Public	YeS	YeS
Surface Water _ .
Private	No	No
Groundwater pub|jC	YeS	YeS
Surface Water
Private	No	No
Groundwater pub|jC	YeS	YeS
Surface Water
Private	No	No
HiBllAMlifiifl You now have a list of PWSs that could benefit from a partnership. In the next step, you will review the
PWSs identified and brainstorm what types of partnerships may help PWSs overcome the identified challenges.
STEP 2: DETERMINE HOW PARTNERSHIPS COULD IMPROVE COMPLIANCE
This step is intended to provide general guidelines to help your state drinking water program consider whether a water
system partnership could support a PWS and help them address compliance challenges identified and documented under
Step 1. There are several factors you should consider when first determining if a partnership might be a viable option for
the identified PWSs. The factors to consider include:
Technical Factors: If the challenge is that the PWS cannot find or keep a certified operator, then contracting out
O&M could be an option. The PWS would need to identify an appropriate provider of contract O&M services, including a
certified operator, and determine whether the PWS can afford these services. If the PWS's challenge is related to the water
quality or quantity, or failing infrastructure, joint power agency or ownership transfer partnership options may offer a more
appropriate solution.
Administrative Factors: If a PWS's challenge is maintaining compliance with drinking water regulations, the PWS
can compare the costs of possible solutions, including partnership options. Educating PWSs on viable alternatives can
encourage discussion and induce change. States may be able to encourage partnerships as a way to cost-effectively
improve compliance.
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Community Factors: Communities may consider their PWS and provision of their own drinking water to be part of
their community's local control, identity, and self-sufficiency. Acknowledging these values and finding partnership options
that respect community structure and history can help build trust. Many partnership options, particularly those under
informal cooperation or contractual assistance, can provide the PWS and community with the support they need without
removing the PWS from the community's control or identity. Ensuring communities understand the importance of safe
drinking water and the challenges their PWS might be facing should be highlighted. In other situations, communities may
be overwhelmed with the responsibilities associated with owning and operating a PWS, making ownership transfer or joint
power agency the best solution.
Solutions to challenges should consider technical, administrative, and community factors, or a combination of factors,
when addressing the challenges. Keep these in mind while considering other factors and what partnership types and
activities are attainable for each situation, PWS, and community.
If the partnership option under consideration requires geographic proximity, make sure the geographic area considered is
broad enough to include multiple options for potential partners, but limited enough to make a partnership feasible. Some
partnership options, such as contracting management services like payroll and billing, may not necessarily rely on geographic
proximity and consideration can include partners outside the region.
See below for additional questions to consider when deciding whether certain partnership options may be effective for
a particular PWS. The following questions are optional, but answers may help your team identify PWSs that could benefit
from partnership activities and improve compliance.
What is the physical condition of the facility?
Have there been any recent renovations? Yes ~ No ~
Are there concerns about aging infrastructure? Yes ~ No ~
Were any significant deficiencies identified during the last sanitary survey? Yes ~ No ~
What is the current service area and where are the existing facilities? If necessary, consult a map that shows the service
area, existing/proposed facilities, site plan, etc.
Is the supply quantity or quality adequate for demand? Yes ~ No ~
If not, are supply concerns about source quantity or quality? quantity | | quality | |
What is the current level of technical expertise within the PWS?
What areas of technical skill or expertise should be improved?
Are there any unique or specific technical capabilities/needs at the PWS (existing or currently lacking)?
Is there an available asset management plan? Yes ~ No ~
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What is the PWS's current financial status?
Does the PWS have any active grants and/or loans, including funding amounts and stipulations?
What are some of the technical, administrative, or political barriers that may exist?
Are there options to contract O&M? Yes | | No | |
If so, what are those options and has the PWS engaged in any previous activities to contract O&M?
How could contracting O&M provide the support the PWS is looking for?
Are there other PWSs that might be able to acquire or merge with the PWS? Yes | | No
If so, have any discussions already occurred with these PWSs?
How will a merger or acquisition provide the support the PWS is looking for?
Has the PWS considered forming a new PWS or management group to oversee multiple existing PWSs? Yes
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Are there other PWSs that might be interested in collaborating? Yes ~ No
If so, which PWSs might be interested?
What are the current conditions at these PWSs?
Have the PWSs or communities worked together on any projects before?
~
Do franchises or exclusive service areas currently exist in the area? Yes ~ No ~
If so, how might these impact potential partners or applicable partnership options?
Acknowledging and documenting PWSs'strengths and challenges can highlight opportunities for PWSs partnerships that
may improve TMF capacity, compliance, and the ability to provide safe drinking water. Using the PWSs identified under
Step 1 and the information presented in this step, consider how you could group PWSs together by possible partnerships
to help them address their challenges. Are there trends for the PWSs that need support? If you group PWSs by shared
challenges or comparable strengths and weaknesses, can you think of partnership solutions that might benefit all PWSs?
Are they in the same general area? Did any of the PWSs have similar compliance challenges? If so, what were they? Did
they have comparable strengths or challenges? How could their strengths or weaknesses contribute to a partnership?
Review of Partnership Types
•	Informal Cooperation: PWSs coordinate with other PWSs without contractual obligations.
•	Contractual Assistance: PWSs contract with other PWSs or service providers. The PWSs remain independent,
but certain functions are contracted out to increase efficiency.
•	Joint Power Agency: PWSs create a new management entity designed to serve the PWSs that formed it.
•	Ownership Transfer: PWSs engage in mergers, mutual transfer of existing entities, or creation of a new entity.
For more information, review the Types of Partnerships section for examples, and partnership benefits.
Use the table below to brainstorm how these PWSs could work together to help overcome their challenges. You can start by:
•	Assigning a grouping number in the first column,
•	Listing the names or PWS ID that could be part of the partnership in the second column, and
•	Filling in the "Reason PWS Fits in Grouping" column with information about why certain PWSs might work together.
9	How to Support Water System Partnerships

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•	Next, consider the different roles/strengths the PWSs might have in these groups and the partnership type that
would best suit them in the fourth column. Use additional rows if more space is needed.
•	In the fifth column, assign the appropriate partnership type.
•	In the last column, assign grouping titles that relate to the foundation of the grouping. Doing so will help you
and your team consider and keep multiple possible groupings organized. Remember that PWSs can be considered
for multiple partnerships and more than two PWSs can make-up a grouping. A grouping could also include
non-PWS service providers. In Step 3, you will consider the feasibility of these potential partnerships and explore
potential challenges.
Consider the points above while brainstorming possible partnership options in the table below:
Grouping
PWS Name
or ID
Reason PWS Fits in
Grouping
Role in Partnership/
Strengths
Identified
Partnership
Solution (Type)
Grouping
Foundation/Title
1
000123
Similar area and
monitoring violations
Needs access to a
part-time certified
operator
Contractual
Assistance
Northwestern
Surface Water PWSs
1
123000
Similar area and
monitoring violations
High operator turn-
over, cannot keep an
operator on full-time
Contractual
Assistance
Northwestern
Surface Water PWSs
1
2
3
4



Informal Cooperation
Contractual Assistance
Joint Power Agency
Ownership Transfer

1
2
3
4



Informal Cooperation
Contractual Assistance
Joint Power Agency
Ownership Transfer

1
2
3
4



Informal Cooperation
Contractual Assistance
Joint Power Agency
Ownership Transfer

1
2
3
4



Informal Cooperation
Contractual Assistance
Joint Power Agency
Ownership Transfer

1
2
3
4



Informal Cooperation
Contractual Assistance
Joint Power Agency
Ownership Transfer

3
4
5



Informal Cooperation
Contractual Assistance
Joint Power Agency
Ownership Transfer

Clear Form
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STEP 3:
PRACTICAL ASSESSMENT OF IDENTIFIED PARTNERSHIP
TYPES AND PARTNERS
In Step 3, you will consider partnership development and the implementation process. At the end of Step 3, you and your
team will have a list of potential partnerships that have been vetted against factors, such as:
Are there physical limitations that impact partnership options?
What are the possible unintended consequences for partners?
Are there available resources and incentives to support the
partnership?
At this stage, partnerships with the lowest perceived risk should
emerge to the top of the list. Things to consider are the physical
condition of the partnering PWSs, any geographic impacts, and the
adequacy of supply.
©
Reminder
The PWSs identified in Step 1 are those
that might benefit from partnership
activities. Under Step 2, the identified
PWSs were reviewed to determine if
there were groupings of PWSs that
could benefit from partnerships.
Using the information from Steps 1 and 2, consider the potential
benefits and challenges of implementing partnership activities. Consider the partnership options you brainstormed under
Step 2, are there combinations you and your team should explore further?
Fill in the tables below by identifying the specific activities that could occur under the partnerships. Determine if there are
challenges to implementing activities and how those challenges may impact the feasibility of the partnership. You and
your team should focus on the PWSs and possible relationships identified in Step 2 and identify any shortcomings, barriers,
or limitations.
Information entered in the previous tables will auto-populate in the tables below. If you do not see the Grouping
Foundation/Titles or PWS Names and IDs previously entered, click in and out of each cell to reset the fields.
Grouping
Foundation/Title:
Partnership Type: O Informal Cooperation O Contractual Assistance O Joint Power Agency O Ownership Transfer
PWSs Included
in the Partnership
~

~

~

~

~

~

~

1 Possible Partnership
1 Activities
How does this solve the
PWSs'violations identified in
Step 1?
What are the possible
challenges to partnership
implementation?
1


I


1


|


Do any of the challenges (e.g., geographic location) make this partnership type unfeasible? Yes O NoO
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Grouping
Foundation/Title:
Partnership Type: Qlnformal Cooperation ^^Contractual Assistance Qjoint Power Agency Ownership Transfer
PWSs Included
in the Partnership
~

~

~

~

~

~

~

Possible Partnership
Activities
How does this solve the
PWSs'violations identified in
Step 1?
What are the possible
challenges to partnership
implementation?
1











Do any of the challenges (e.g. geographic location) make this partnership type unfeasible? Yes	No O
Grouping
Foundation/Title:
Partnership Type: O Informal Cooperation O Contractual Assistance O Joint Power Agency O Ownership Transfer
PWSs Included
in the Partnership
P

~

~

~

~

~

~

Possible Partnership
Activities
How does this solve the
PWSs'violations identified in
Step 1?
What are the possible
challenges to partnership
implementation?
1








~1


Do any of the challenges (e.g. geographic location) make this partnership type unfeasible? Yes O No o
Grouping
Foundation/Title:
Partnership Type: O Informal Cooperation O Contractual Assistance Joint Power Agency O Ownership Transfer
PWSs Included
in the Partnership
P

~

~

~

~

~

~

Possible Partnership
Activities
How does this solve the
PWSs'violations identified in
Step 1?
What are the possible
challenges to partnership
implementation?
1








~~1


Do any of the challenges (e.g. geographic location) make this partnership type unfeasible? Yes o No o
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Grouping
Foundation/Title:
Partnership Type: Informal Cooperation O Contractual Assistance Q Joint Power Agency O Ownership Transfer
PWSs Included I	How does this solve the	What are the possible
in the Partnership |	ossi e artners ip pwss'violations identified in	challenges to partnership
	1	Activities _	,
I	Step 1?	implementation?
Do any of the challenges (e.g. geographic location) make this partnership type unfeasible? Yes o No o
Grouping
Foundation/Title:
Partnership Type: O Informal Cooperation O Contractual Assistance O Joint Power Agency O Ownership Transfer
PWSs Included I How does this solve the	What are the possible
in the Partnership | ossi e ar ners ip pwss'violations identified in challenges to partnership
I Activities	.
Step 1?	implementation?
Do any of the challenges (e.g. geographic location) make this partnership type unfeasible? Yes o No o
Clear form )>>
At this point, you may have multiple partnership options that you would be interested in pursuing. Consider which of the
partnerships above are most likely to succeed. Partnership success can be impacted by many factors including existing
relationships, community cultures, interest, and support structures. A successful partnership can serve as the foundation
for future efforts with the partnering PWSs to improve compliance and build capacity.
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States should consider the availability of support and the incentives in place for PWSs to collaborate. For example, if a PWS
needs staff training, you and your team should consider:
•	Does a partnering PWS have capacity to provide mentoring or share training resources?
•	What incentive does the mentoring PWS have to help another PWS?
•	How receptive would the PWS receiving support be?
The availability of support is one important factor for PWSs working together to solve complex challenges. Building
support and relationships takes trust, understanding, and a willingness to work together to benefits all PWSs in areas that
are valuable to them.
You and your team should focus on the PWSs' needs and should address the boundaries and population of the service
area, the current and future demand on the community's resources, the adequacy of existing infrastructure and equipment,
and available financing options. You should also consider the financial implications of partnership solutions. Solutions
should focus on the long-term TMF capacity and work to improve the sustainability of participating PWSs over time.
Initiating partnership activities, like the ones you identified in the form above, involves planning, engagement,
communications, and follow-through. As you consider why the PWSs should or would consider engaging in partnerships,
you should also consider what the PWSs need in order to build and maintain these new relationships and continue the
partnership in the future. Different partnership types will require varying degrees of involvement and accountability.
Making the relationship part of the PWSs' culture and internal policies is significant to the sustainability and growth for
any partnership.
What short- and long-term incentives are available and can be used to promote partnerships with the PWS(s)? List
available incentives (e.g., economies of scale):
Based on the questions you answered and the form you completed under this step, identify which of the potential
partnerships and partnership activities are most feasible to pursue. Take into consideration how partnership activities
could address PWSs'needs and barriers to success.
Communicating the benefits of partnerships can be challenging depending on the state's existing relationship with
the PWSs. Understanding and analyzing barriers to change and involving trusted members of the community can help
regulators and community stakeholders develop a plan to overcome challenges through partnership.
Often, the final partnership type and activities are chosen and agreed upon with the full participation of a project
champion, local officials, and PWS management. If you believe that a water system partnership is a viable option for the
identified PWSs, you and your team can engage champions and technical assistance providers to develop a full plan.
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Incentivize Partnership
Partnership incentives include the inherent benefits and additional financial or outreach-related benefits
that the state offers to PWSs that engage in partnerships. The most effective way that you can promote
partnerships is to ensure that PWSs:
•	Recognize partnership potential,
•	Raise awareness of challenges, and
•	Consider the options available to PWSs to improve operations and provide safe drinking water to their
customers.
You and your team can help PWSs benefit from partnerships by:
•	Educating PWSs on how partnership options can help achieve and maintain compliance, and
•	Creating incentives that help PWSs consider new ways of maintaining compliance.
Enforcement as an Incentive
Keeping the PWS informed of their compliance status, including notice of violations and enforcement,
can help improve communication and understanding. Prior to working with PWSs to determine the
partnership options that are right for them, ensure that the state has the necessary legislation in place to
support those decisions.
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STEP 4: IDENTIFY PROJECT CHAMPIONS AND ON THE GROUND SUPPORT
The purpose of Step 4 is to help improve communication and partnership oversight. This can be done by engaging with
various stakeholders and interest groups to build relationships and gain support for the partnership.
Champions, Allies,
and Stakeholders:
Unique Perspectives
and Support
Stakeholders
Examples:
-	Water system customers
-	Water system owners and staff
-	Schools and childcare facilities
-	Seniors centers and community centers
-	Local or state health departments
Allies
Examples:
-	Community organizing group
-	A technical assistance provider
-	Senior centers or community
centers
-	Local chamber of commerce
-	Schools and childcare facilities
Stakeholders
Customers and other groups who may be
mpacted by the pursuance of the partnership
Impacts can be financial, social, or
environmental and may be related to
mplementation of the partnership or success
of the water system.
Champion
Examples:
-	A citizens'committee
-	A technical assistance provider
-	Another system interested in
partnership
-	The owner of the water system
-	A county or regional government
Champions
Local champions can be strong proponents of partnerships. They are also critical for the long-term success of partnerships.
The champion, preferably a local stakeholder, can propose, endorse, encourage, and defend the partnership ideas. A natural
champion may emerge out of the initial challenge that created the need for a water system partnership. If a natural champion
does not emerge, you could encourage a person or group to become the champion. Possible champions could include.
A citizens' committee,
A technical assistance provider,
Another PWS interested in partnership,
The owner of the PWS,
A county or regional government,
Volunteer support groups, or
A financial aid program.
Consider possible champions for the partnership you identified as most feasible under Step 3.
Do any of the communities or PWSs have strong champions already identified? Yes ~ No ~
Who are they?
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Engaging with these individuals or organizations early and often in the development and planning stages can help keep
momentum and can also aid in early communications with PWSs and communities.
Are there PWSs that do not have identified champions? Yes ~ N° ~
If so, use the list of possible champions above to identify possible champions for the partnership:
While a local representative or group is the ideal champion for the partnership proposal, a local government entity may
be able to encourage several PWSs to partner. Volunteer support groups, such as service organizations and economic
organizations, can be advocates for establishing a partnership. Technical assistance providers understand PWSs'challenges
and can be effective promoters and communicators when it comes to a water system partnership.
Community politics may come into play when identifying a strong champion. This, along with other community cultural
and political factors, should be considered when identifying and engaging a champion.
Allies
Partnership allies are stakeholders interested in the partnership's success. Allies can help the PWSs approach the community
and other stakeholders about partnership benefits. It is best if allies are organizations or individuals who already have the
public's trust or are already working closely with the PWSs. These organizations and individuals often are diverse and have
different needs and interests from one another. Having multiple allies who can speak to various needs and benefits can
be particularly helpful.
Possible allies include:
•	Community groups,
•	Customers,
•	Entity staff, operators, and managers,
•	Elected officials,
•	County judges and commissioners,
•	Technical assistance providers,
•	Drinking water regulatory agency staff,
Senior centers or community centers,
Local or state health departments,
Local chamber of commerce,
Local business owners,
Public Utilities Commissions,
State Department of Education,
Tribes,
Faith-based organizations,
Recreational departments,
Tourism bureaus,
Regional planning committees,
Public Service Commissions,
Schools and childcare facilities, and
The media.
Stakeholders
Not all stakeholders will be project allies, or proponents of the partnership. Facilitating discussions between all stakeholders,
including partnership opponents, early on in the partnership development helps understand all perspectives, builds trust,
and ensures transparency. Champions and allies can be utilized to present messages that show the value of partnerships
to stakeholder groups who may not initially see the benefits. Identifying key categories of stakeholders is important before
communicating specific partnership ideas. Drawing on the experiences, expertise, and influence that champions and allies
have will help you overcome political and social barriers when communicating with PWSs about partnerships.
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Working with the State Public Utilities Commission
Most Public Utilities Commissions (PUCs) have jurisdiction over publicly-owned and privately/investor-owned
PWSs and PWSs serving outside their municipal boundaries. The number of PWSs under PUC jurisdiction varies
by state, but regardless of their specific reach, they can be effective in promoting partnerships within the state.
The PUCs can grant or refuse rate relief and revoke certifications through their audit process, which can drive
PWSs to partnerships. PUCs can also make mergers or acquisitions more attractive by marketing the partnerships
to privately-owned PWSs that might consider a partnership if they felt they could earn the necessary return on
their investment. The PUC should consider an acquisition adjustment or a slightly greater rate of return as an
incentive for privately/investor-owned PWSs to acquire other PWSs.
STEP 5: DEVELOP A PLAN FOR COMMUNICATING WITH STAKEHOLDERS
In Step 5, a plan for communicating with stakeholders will be developed. Once partnership options and groupings have
been considered and vetted against practicality and your team of supporters has been identified, the communications
plan should help you and your team work with the PWSs and stakeholders.
A communications plan should include how, when, and what you plan to share with the PWSs and stakeholders. You
should consider any potential communication challenges PWSs could face when trying to establish a partnership.
Identifying the Right Messenger
Identifying if there is someone at the state level who talks
to the PWSs on a continuous basis, such as a sanitarian,
regulatory person, or engineer to use existing lines of
communication when approaching the PWS can help
open the subject in a less formal way; and may improve
the willingness of the PWS to participate. While developing
the communications plan and approaching the PWSs,
remember the two tasks that need to be completed: for
the PWSs to listen to the proposition about engaging
in a partnership and for the PWSs and stakeholders to
understand the partnership benefits.
The project champion should be consulted while the
communications plan is being developed. They can
provide insights about how to communicate the message
and can be a good messenger for you and your team.
Other potential messengers include other state personnel
who already have working relationships with the PWSs or
communities.
Your state drinking water program and the project
champion should engage with various stakeholders to
build relationships and to gain support for actions that
will improve compliance. To fulfill this role, you and your
team may need to communicate with PWS owner(s),
boards of directors, town councils, and citizens'groups. Any
one of these groups may become the critical group that
leads the partnerships.
Notificationand education enable effective communication
with PWSs and other groups. You and your team
should tailor your approach to the interests of the groups
with whom you are meeting. Communities are more
likely to invest in partnerships if they consider themselves
to be stakeholders and can see the direct benefit of
the partnerships.
Communicating the Significance of
Partnerships
Communicating the need for partnerships to PWS owners,
operators, and customers is a critical part of the partnership
process. The following challenges and opportunities
could be shared with stakeholders and included in the
communications plan:
• A serious public health concern. PWSs that
have persistent violations of drinking water regulations
create a serious public health concern.
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•	Compliance is required at the state and
federal levels. Enforcement actions might be taken
for persistent violations of drinking water regulations.
•	The cost of failing to return to compliance.
There are costs of inaction. For example, a PWS may
lose a grant or loan if they fail to implement changes
that would have improved compliance.
•	Benefits. Communicate to PWS owners, operators,
and customers the benefits of establishing a
partnership.
•	Improved public health protection.
Communicate the benefits of access to safe and
reliable drinking water to the customers. Explain
the reduction in risk and focus on public health.
•	Long-term cost reduction. Partnerships are
often the most cost-effective way to meet drinking
water regulations and to meet the water demands
of customers. PWSs may find some costs, such as
fire insurance and emergency connections, can be
reduced by implementing partnerships.
•	Increased reliability of service. Establishing
a partnership can enhance customer service and
ensure a dependable water supply, especially to
customers who have previously experienced water
leaks or outages.
Addressing Community Concerns
The communications plan should include how you and your
team plan to address any concerns over loss of autonomy
the community might have depending on the partnership
type. Encourage local officials to define concerns and explain
what a loss of autonomy means to the community.
•	Is it a loss of jobs? Often showing that the partnership
will not impact personnel salaries or hours can alleviate
concerns.
•	Is it a loss of control over rates? If a PWS is being
purchased or joining a joint power agency, a rate
agreement with the partnering PWSs or managing
body may help to ease these concerns.
•	Is it fear of a loss of political control? Encouraging
community members to participate and become
involved stakeholders can assure citizens that they will
still have a voice in the future of their PWS.
•	Is it a fear of the loss of community identity? Sometimes
the PWS functions as the only quasi-governmental
organization that the community can identify with,
particularly in unincorporated rural communities.
Ensuring that the community will still have its own
separate identity can help alleviate these concerns.
Addressing these concerns is a unique challenge as these
topics may be sensitive to communities. Having a plan for
what to say, how to say it, and who will say it can help
you and your team plan around challenges. Some loss
of control or community identity may occur, depending
on the partnership type (e.g., ownership transfers). In
these cases, communicating that control is exchanged
for safer drinking water can help create the business case
for stakeholders.
Communicating Community Benefits
Benefits of partnerships need to be clearly stated and
communicated to the public. For example, there are
benefits when a community has a reliable source of safe
drinking water. A PWS that is consistently able to provide
safe drinking water can support the public health of their
community, which is also critical for the community's
economic vitality.
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Document Stakeholders
If not already developed during Step 4, develop a full list of potential stakeholders for the project. While developing the
list, consider the following:
What are the stakeholder groups that may be affected (positively or negatively) by a change in the current operation of
the PWS?
• Who would be impacted if a PWS were to engage in a partnership?
• Who would be impacted if the PWS were to become inoperable?
Grouping/Foundation Title:
Partnership Type
Point of Contact or
Existing Connection
Primary concerns or
reason to get involved?
Role (Champion,
Ally, Stakeholder)
Best method and
forum to engage or
communicate?
Informal Cooperation
Contractual Assistance
Joint Power Agency
Ownership Transfer


Champion
Ally
Stakeholder

Informal Cooperation
Contractual Assistance
Joint Power Agency
Ownership Transfer


Champion
Ally
Stakeholder

Informal Cooperation
Contractual Assistance
Joint Power Agency
Ownership Transfer


Champion
Ally
Stakeholder

Informal Cooperation
Contractual Assistance
Joint Power Agency
Ownership Transfer


Champion
Ally
Stakeholder

Informal Cooperation
Contractual Assistance
Joint Power Agency
Ownership Transfer


Champion
Ally
Stakeholder

Informal Cooperation
Contractual Assistance
Joint Power Agency
Ownership Transfer


Champion
Ally
Stakeholder

Clear Form
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STEP 6:
APPROACH PWSs ABOUT PARTNERSHIPS
You and your team have several ways that you can inform
and educate PWSs and stakeholders on partnerships. The
EPA has developed resources for states, federal agencies,
PWSs, and technical assistance providers, which can help
plan and implement various types of partnerships.
Steps 1-3 helped identify PWSs that could benefit from
partnerships and the partnership activities that would be
beneficial for the participating PWSs. Steps 4 and 5 helped
identify stakeholders, develop messaging, and engage with
champions, allies, and stakeholders. You and your team can
use information from the previous steps to put together a
message tailored to each PWS and situation. The messages
should be tailored to the PWSs and stakeholders and work
best when based off of the intended roles and relationships.
The way you meet with the project champion, allies,
stakeholders, and PWSs to convey information should
be considered. Consider the following when developing
communication techniques and methods:
What types of communication already exist that
are successful (e.g., websites, monthly meetings,
local newspaper)?
What meeting location would work best for the
stakeholders (e.g., public library, coffeeshop, city hall)?
What input can local officials or stakeholders offer to
help plan the time and location of meetings?
Have there already been studies or regional
planning efforts that could provide information for
the communities on water sources, availability, and
quality issues?
Have the entities, engineering, or financial
consultants completed any preliminary studies on
options or costs?
Can the regulatory agencies or technical assistance
providers help conduct feasibility studies and/or
consolidation assessments?
Are the PWSs already engaging in partnerships
that might serve as helpful examples? PWSs may
have informal partnerships that are a routine
operation and the PWS may not think of them
as "partnerships." Highlighting these successes
could be helpful in starting a conversation about
additional partnerships.
Are there examples of other partnerships in the area
(or in the state) that might be helpful?
Can you and your team help set up a workshop
or training with the champions or allies (such as
the Environmental Finance Centers or technical
assistance providers)?
Would a meeting facilitator be helpful?
When approaching the PWS, who should be
approached first?
Who will the message resonate with?
Who are the decision-makers?
If there are potential challenges with PWS personnel,
how can the messaging or how the information is
shared help overcome those challenges?.
The table below includes examples of the approvals,
funding, and technical assistance that a PWS may need to
acquire before formally implementing a partnership. Review
this table with PWSs and explain which of the items below
you and your team may provide assistance with. Make sure
PWSs understand that all steps do not necessarily apply to
each partnership type or partnership activity. For specific
partnership examples please visit the EPA's Water System
Partnership website. This list is not exhaustive and should
be reviewed and added to depending on the situation.
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Example of Partnership
Actions
Your Role
PWS Role
Obtaining the necessary
approvals
Inform PWSs of approval requirements
and help them navigate the process.
If any of the participating PWSs are
privately/investor owned, state PUC
approval may be required.
Obtaining financing
Provide information on available grants
and loans that can be used to fund
partnerships. Educate PWSs on funding
procedures. Help PWSs make the case
to funding agencies that partnerships
promote compliance.
Secure grants or loans to help facilitate
partnerships. Investigate financing
sources to minimize the impact on the
local ratepayer. Understand funding
procedures and how other PWSs have
utilized funding for partnership.
Approving plans and
specifications
Educate the PWS on plan reviews and
encourage them to use an impartial
technical assistance provider to improve
the likelihood of success.
If part of the partnership involves
engineering changes, a plan review is
usually required.
Finding sources of
technical assistance
Help PWSs make connections with
technical assistance providers in the State
(such as NRWA or RCAP).
Contact and obtain necessary technical
assistance from providers who are willing
to help in the partnership effort.
Supporting regional
planning activities
Attend community meetings to show
support for partnerships.
Hold community meetings to gain buy-in
for partnership options and to educate
others on how the partnership will help
the PWSs overcome present and future
challenges.
Plans and specifications
for construction-related
projects
Approve engineering plans and
specifications.
Complete engineering plans and
specifications and submit them to the
state.












Clear Form
Office of Water (4606M) EPA 810-B-19-002
December 2020

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