U.S. Environmental Protection Agency

WATER CONSERVATION PLAN 

GUIDELINES 

August 6, 1998
USEPA Water Conservation Plan Guidelines 

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USEPA Water Conservation Plan Guidelines 

CONTENTS 

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EXECUTIVE SUMMARY xi

PART 1 INFORMATION FOR STATES 1

1. Background and Introduction 3

Introduction 3

The SDWA Provision 3

What is Required 4

How States May Use These Guidelines 4

State Policy Considerations 5

Coordinating State Programs 6

Relationship to SRF 6

2. The Role of Water Conservation in Infrastructure Planning 8

Goals and Perspectives 8

Conservation and Infrastructure 9

Planning and Funding 10

Implementation Scenarios 11

3. Water Conservation Planning Criteria 12

The Guidelines and System Size 12

Climate, Water Availability and Other Factors 14

Criteria for Adapting the Guidelines 14

4. Guidelines and Measures 17

Planning Steps 17

Conservation Measures 18

5. Capacity-Development Approach 21

Conservation by Small Water Systems 21

Capacity Development 21

6. State Roles 24

Policy Issues 24

Technical Assistance for Systems 24

Review and Approval 25

Monitoring, Reporting, and Updates 26

Interagency Coordination 26

7. State Conservation Programs 28

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USEPA Water Conservation Plan Guidelines 

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PART 2 OVERVIEW OF THE GUIDELINES 35

1. Water Conservation Guidelines and the SDWA 37

2. Benefits of Conservation and Planning 38

3. Overview of the Planning Process 39

PART 3 BASIC GUIDELINES 43

1. Specify Conservation Planning Goals 45

Planning Goals 45

Community Involvement 45

2. Develop a Water System Profile 47

3. Prepare a Demand Forecast 50

4. Identify and Evaluate Conservation Measures 53

Conservation Measures 53

Review of Measures 53

Budget 54

Summary 55

5. Present Implementation Strategy 58

PART 4 INTERMEDIATE GUIDELINES 61

1. Specify Conservation Planning Goals 63

Planning Goals 63

Community Involvement 64

2. Develop a Water System Profile 65

System Profile 65

System Conditions 65

Current Conservation Efforts 66

3. Prepare a Demand Forecast 70

Demand Forecasting 70

Forecasting Method 70

4. Describe Planned Facilities 73

Supply Forecasting 73

Cost Analysis 73

Estimating Incremental Supply Costs 74

Preliminary Supply-Capacity Forecast 75

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Page 

5. Identify Water Conservation Measures 79

Levels and Measures 79

Identifying Conservation Measures 79

6. Analyze Benefits and Costs 82

Purpose 82

Water Savings 82

Implementation Costs 83

Cost-Effectiveness 83

Net Benefits 83

Comparison of Measures 84

7. Select Conservation Measures 87

Selection Criteria 87

Selecting the Measures 87

8. Integrate Resources and Modify Forecasts 90

Integrating Options 90

Modifying Demand Forecasts 91

Project-Specific Savings 91

Modifying Supply Forecasts 91

Revenue Effects 92

9. Present Implementation and Evaluation Strategy 96

Implementation 96

Implementation of Measures 96

Implementation and Evaluation 97

PART 5 ADVANCED GUIDELINES 101

1. Specify Conservation Planning Goals 103

Planning Goals 103

Community Involvement 104

2. Develop a Water System Profile 105

System Profile 105

System Conditions 105

Current Conservation Efforts 106

3. Prepare a Demand Forecast 110

Demand Forecasting 110

Forecasting Method 110

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USEPA Water Conservation Plan Guidelines 

Page 

4. Describe Planned Facilities 114

Supply Forecasting 114

Cost Analysis 114

Estimating Incremental Supply Costs 115

Preliminary Supply-Capacity Forecast 116

5. Identify Water Conservation Measures 120

Levels and Measures 120

Identifying Conservation Measures 120

6. Analyze Benefits and Costs 123

Purpose 123

Water Savings 123

Implementation Costs 124

Analyzing Benefits and Costs 124

Comparison of Measures 125

7. Select Conservation Measures 129

Selection Criteria 129

Selecting the Measures 129

8. Integrate Resources and Modify Forecasts 132

Integrating Options 132

Modifying Demand Forecasts 133

Project-Specific Savings 133

Modifying Supply Forecasts 133

Revenue Effects 134

9. Present Implementation and Evaluation Strategy 138

Implementation 138

Implementation of Measures 138

Implementation and Evaluation 139

APPENDIX A WATER CONSERVATION MEASURES 143

Level 1 Measures 144

Universal Metering 144

Water Accounting and Loss Control 145

Costing and Pricing 146

Information and Education 148

Level 2 Measures 149

Water-Use Audits 149

Retrofits 150

Pressure Management 151

Landscape Efficiency 152

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Level 3 Measures 153 

Replacements and Promotions 153 

Reuse and Recycling 153 

Water-Use Regulation 154 

Integrated Resource Management 155 

APPENDIX B BENCHMARKS USED IN CONSERVATION PLANNING 163 

APPENDIX C ACRONYMS AND GLOSSARY 169 

Acronyms 169 

Glossary 170 

APPENDIX D INFORMATION RESOURCES 177 

Guides and Handbooks 177 

Integrated Resource Planning 179 

Small Systems 180 

Forecasting 181 

Measures 181 

Cost-Effectiveness Analysis 185 

Rates and Revenues 186 

Public Involvement 189 

Internet Resources 191 

APPENDIX E FEDERAL FUNDING SOURCES FOR WATER CONSERVATION 193 

APPENDIX F STATE CONTACT LIST 199 

Tables and Figures 

Information for States 

Table 1-1 System Size Categories and Applicable Guidelines 12 

Table 1-2 Potential Criteria for Adapting the Guidelines 15 

Table 1-3 Cumulative Nature of the Conservation Measures in the Guidelines 20 

Table 1-4 Common Elements of Capacity Development and 

Water Conservation Planning 22 

Table 1-5 State Conservation Planning and SRF Activities (as of Fall 1997) 31 

Table 1-6 Components of State Water Conservation Plan Guidelines (as of Fall 1997) 33 

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USEPA Water Conservation Plan Guidelines 

Page 

Overview of the Guidelines 

Table 2-1 System Size Categories and Type of Guidelines 39 

Table 2-2 Contents of a Comprehensive Water Conservation Plan 41 

Table 2-3 Guidelines and Associated Conservation Measures 42 

Intermediate Guidelines 

Table 4-1 Relationship of Water Demand to Supply Facilities 75 

Figure 4-1 Sample Graph of Modified Supply and Demand Forecasts 

Based on Implementing Conservation Measures 90 

Advanced Guidelines 

Figure 5-1 

Table 5-1 

Figure 5-2 

Appendixes 

Figure A-1 

Table B-1 

Table B-2 

Table B-3 

Table B-4 

Table B-5 

Table B-6 

Inputs and Outputs of the IWR-MAIN Forecasting Model 112 

Relationship of Water Demand to Supply Facilities 116 

Sample Graph of Modified Supply and Demand Forecasts 

Based on Implementing Conservation Measures 132 

Water Accounting System 157 

Recent Estimates of Indoor Water Use With and Without Conservation 163 

Benchmarks for Estimating Residential End Uses of Water 164 

Sample Calculation of Water Savings from Showerhead Replacement 165 

Benchmarks for Savings from Selected Conservation Measures 166 

Water Efficiency Standards Established by The Energy Policy Act of 1992 167 

Potential Water Savings from Efficient Fixtures 168 

Worksheets 

Basic Guidelines 

Worksheet 3-1 

Worksheet 3-2 

Worksheet 3-3 

Worksheet 3-4 

Worksheet 3-5 

Water System Profile 48 

Water Demand Forecast 52 

Budget and Savings for Each Conservation Measure 56 

Selection of Conservation Measures 57 

Implementation Strategy 59 

Intermediate Guidelines 

Worksheet 4-1 

Worksheet 4-2 

Worksheet 4-3 

Worksheet 4-4 

Worksheet 4-5 

Worksheet 4-6 

Worksheet 4-7 

Worksheet 4-8 

Worksheet 4-9 

Worksheet 4-10 

Worksheet 4-11 

Water System Profile 67 

Overview of System Conditions 68 

Current Water Conservation Activities 69 

Preliminary Water Demand Forecast 72 

Anticipated Improvements and Additions 76 

Cost of Supply-Side Facilities 77 

Preliminary Supply-Capacity Forecast 78 

Checklist of Conservation Measures 80 

Analysis of Each Conservation Measure or Group of Measures 85 

Comparison of Benefits and Costs of the Conservation Measures 86 

Selection of Conservation Measures and Estimate of Water Savings 89 

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Worksheet 4-12 Modified Demand Forecast 93

Worksheet 4-13 Project-Specific Savings 94

Worksheet 4-14 Modified Supply Forecast and Estimated Total Savings 95

Worksheet 4-15 Implementation Schedule for Measures 98

Worksheet 4-16 Implementation Strategy 99

Advanced Guidelines 

Worksheet 5-1 Water System Profile 107 

108 

109 

113 

117 

118 

119 

121 

126 

127 

128 

131 

135 

136 

137 

140 

141 

Worksheet 5-2 Overview of System Conditions 

Worksheet 5-3 Current Water Conservation Activities 

Worksheet 5-4 Summary of Preliminary Water Demand Forecast 

Worksheet 5-5 Anticipated Improvements and Additions 

Worksheet 5-6 Present Value of Planned Supply-Side Facilities 

Worksheet 5-7 Preliminary Supply-Capacity Forecast 

Worksheet 5-8 Checklist of Conservation Measures 

Worksheet 5-9 Program Costs for Each Conservation Measure or Group of Measures 

Worksheet 5-10 Analysis of Each Conservation Measure or Group of Measures 

Worksheet 5-11 Comparison of Benefits and Costs of the Conservation Measures 

Worksheet 5-12 Selection of Conservation Measures and Estimate of Water Savings 

Worksheet 5-13 Modified Demand Forecast 

Worksheet 5-14 Project-Specific Savings 

Worksheet 5-15 Modified Supply Forecast and Estimated Total Savings 

Worksheet 5-16 Implementation Schedule for Measures 

Worksheet 5-17 Implementation Strategy 

Appendixes 

Worksheet A-1 Metering 156 

158 

159 

160 

161 

162 

Worksheet A-2 Water Accounting and Loss Control 

Worksheet A-3 Strategies for Reducing Water Losses 

Worksheet A-4 Evaluating Effects of Water Rate Changes 

Worksheet A-5 Checklist for Information and Education 

Worksheet A-6 Checklist for a Residential Water Audit 

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USEPA Water Conservation Plan Guidelines 

EXECUTIVE SUMMARY

The Safe Drinking Water Act (SDWA, 42 U.S.C. 300j-15), as amended in 1996, requires the 

United States Environmental Protection Agency (EPA) to publish guidelines for use by water 

utilities in preparing a water conservation plan. At their discretion, states may require water 

systems to prepare a plan consistent with the guidelines as a condition of qualifying for a loan 

under the Drinking Water State Revolving Loan Fund (SRF). 

These Water Conservation Plan Guidelines are addressed to water system planners but use of 

the Guidelines is not required by federal law or regulation. States decide whether or not to 

require water systems to file conservation plans consistent with these or any other guidelines. 

Although voluntary, the Guidelines may help bring conservation into the mainstream of water 

utility capital facility planning. The infrastructure needs of the nation’s water systems are 

great. Strategic use of water conservation can help extend the value and life of infrastructure 

assets used in both water supply and wastewater treatment, while also extending the beneficial 

investment of public funds through the SRF and other programs. 

This document is organized into six parts. The first part of the document introduces the 

Guidelines and provides information to the States about their nature and possible use. A 

number of topics are addressed: integrating water conservation and infrastructure planning, 

water conservation planning criteria, guidelines and measures, State roles, and current State 

programs. Also discussed is a capacity-development approach for very small systems 

suggesting that conservation planning and implementation assistance be provided as part of a 

State’s capacity building efforts required by SDWA. The second part of the document, written 

for water systems, is an overview to the organization, content, and use of the Guidelines. 

The next three parts contain the water conservation plan Guidelines: Basic, Intermediate, and 

Advanced. 

� The Basic Guidelines are designed for use by water systems serving populations of 

10,000 or fewer. Some water systems, especially those serving fewer than 3,300 

people, may be included in a capacity-development approach, described above, 

instead of having a plan requirement. Systems should check with their state 

primacy agency for information and guidance about capacity development. 

� The Intermediate Guidelines are designed for water systems serving between 

10,000 and 100,000 people. 

� The Advanced Guidelines are designed for water systems serving more than 

100,000 people. 

The Basic Guidelines contain five simplified planning steps. The Intermediate and Advanced 

Guidelines follow nine planning steps (with some variations in the scope of analysis and level 

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USEPA Water Conservation Plan Guidelines 

of detail requested): Specify Conservation Planning Goals, Develop Water System Profile, 

Prepare Demand Forecast, Describe Planned Facilities, Identify Conservation Measures, 

Analyze Benefits and Costs, Select Measures, Integrate Resources and Modify Forecasts, and 

Present Implementation and Evaluation Strategy. 

A three-leveled structure is presented for water conservation measures. Level 1 contains four 

categories of measures that are recommended for consideration, at a minimum, in the Basic 

Guidelines. Additional measures and categories are added for Levels 2 and 3, and 

recommended for consideration in the Intermediate and Advanced Guidelines, respectively. 

Listed below are the three levels and the categories included in each: 

Level 1 Measures 

� Universal metering 

� Water accounting and loss control 

� Costing and pricing 

� Information and education 

Level 2 Measures 

� Water-use audits 

� Retrofits 

� Pressure management 

� Landscape efficiency 

Level 3 Measures 

� Replacements and promotions 

� Reuse and recycling 

� Water-use regulation 

� Integrated resource management 

Six appendixes to the Guidelines provide supporting information: detailed descriptions of 

conservation measures (Appendix A), conservation benchmarks (Appendix B), acronyms and 

a glossary (Appendix C), information resources (Appendix D), funding sources (Appendix E), 

and state contacts (Appendix F). 

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USEPA Water Conservation Plan Guidelines Information for States 

U.S. Environmental Protection Agency

Water Conservation Plan Guidelines 

PART 1 

INFORMATION FOR STATES 

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USEPA Water Conservation Plan Guidelines Information for States 

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USEPA Water Conservation Plan Guidelines Information for States 

1. BACKGROUND AND INTRODUCTION

Introduction 

The purpose of this part of the document is to 

introduce the Guidelines and provide information to 

the states about their nature and possible use. The 

1996 Amendments to the Safe Drinking Water Act 

recognized the potential value of water conservation in 

infrastructure funding programs such as the Drinking 

Water State Revolving Fund (SRF). When water 

systems need to build facilities, the benefits of water 

conservation are greatly enhanced. Properly planned and implemented, water conservation 

programs can defer, reduce, or eliminate the need for not only water supply facilities but 

wastewater facilities, as well. Significant capital cost savings can result, which in turn 

translates to smaller loan amounts for SRF Programs. This frees up money in limited loan 

funds to finance more projects to help achieve a state’s compliance and public health goals. 

The SDWA requires the U.S. 

EPA to publish water 

conservation plan guidelines 

that states may use in 

conjunction with their SRF 

programs. The law leaves 

implementation decisions up to 

the states. 

While the capital cost savings effects of water conservation are compelling enough, the 

potential benefits do not end there and also apply to customers. Water conservation extends 

water supplies, of course, but can also reduce utility operating costs. Energy use by 

customers and utilities can be reduced, which saves money and reduces greenhouse gas 

emissions. Reducing water withdrawals also helps improve water quality, maintain 

ecosystems, and protect water resources. 

The SDWA Provision 

The SDWA states: 

Sec. 1455. (a) Guidelines.--Not later than 2 years after the date of enactment of the Safe 

Drinking Water Act Amendments of 1996, the Administrator shall publish in the 

Federal Register guidelines for water conservation plans for public water systems 

serving fewer than 3,300 persons, public water systems serving between 3,300 and 

10,000 persons, and public water systems serving more than 10,000 persons, taking into 

consideration such factors as water availability and climate. 

(b) Loans or Grants.--Within 1 year after publication of the guidelines under subsection 

(a), a State exercising primary enforcement responsibility for public water systems may 

require a public water system, as a condition of receiving a loan or grant from a State 

loan fund under section 1452, to submit with its application for such loan or grant a 

water conservation plan consistent with such guidelines. 

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USEPA Water Conservation Plan Guidelines Information for States 

This provision suggests parameters 

for water conservation policy in 

terms of the development of federal 

guidelines, the potential use of 

conservation guidelines for states in 

connection with the SRF, and the 

primacy role of the states in program 

implementation. 

What is Required 

The SDWA requires the U.S. EPA 

to publish conservation plan 

guidelines within two years of the 

Act’s passage. The guidelines must 

take into account system size, water 

availability, and climate. The 

SDWA provides that states may 

require public water systems 

applying for SRF loans to submit a 

conservation plan consistent with the 

guidelines; there are no statutory 

mandates for states or municipalities 

in this section of the SDWA. The provision extends to SRF applicants and not to all water 

utilities under EPA and state primacy agency jurisdiction. Current federal SRF guidelines do 

not address the water conservation provision. States can choose to extend the use of the 

guidelines to systems other than SRF applicants. 

How States May Use These Guidelines 

The SDWA makes clear that using the conservation guidelines is at the discretion of the 

states. The states may decide whether to use the guidelines at all, whether to use the 

guidelines in conjunction with their SRF programs, and whether or not to tailor the guidelines 

to specific state needs or goals. Use of these water conservation guidelines with the SRF will 

necessitate consultation and coordination with federal SRF guidelines. States might also need 

to formulate a formal procedure for adopting the guidelines, depending on existing statutes 

and regulations governing the SRF and water conservation. States also can adopt the 

guidelines for use in other state programs in accordance with the rules governing those 

programs. Tribes and Territories are not states for the purposes of the SRF but can use the 

Guidelines to implement programs under their own laws. 

An important implementation issue for states, as well as water utilities, is to define needs and 

goals with respect to water conservation. State goals might be defined narrowly in terms of 

infrastructure funding policy, or more broadly in terms of long-term water resource 

Benefits of Water Conservation 

In order to meet the needs of existing and future 

populations and ensure that habitats and ecosystems are 

protected, the nation’s water must be sustainable and 

renewable. Sound water resource management, which 

emphasizes careful, efficient use of water, is essential in 

order to achieve these objectives. 

Efficient water use can have major environmental, 

public health, and economic benefits by helping to 

improve water quality, maintain aquatic ecosystems, and 

protect drinking water resources. As we face increasing 

risks to ecosystems and their biological integrity, the 

inextricable link between water quality and water 

quantity becomes more important. Water efficiency is 

one way of addressing water quality and quantity goals. 

The efficient use of water can also prevent pollution by 

reducing wastewater flows, recycling industrial process 

water, reclaiming wastewater, and using less energy. 

Source: EPA Office of Water, Statement of Principles 

on Efficient Water Use (December 1992). 

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USEPA Water Conservation Plan Guidelines Information for States 

management. The guidelines could be used in a wide range of contexts. Each state’s goals 

should serve to shape the contents of water system plans and programs for implementation. 

States are encouraged to work with stakeholders from different regions and perspectives in 

formulating state water conservation goals. Public meetings and other forums are useful for 

this purpose. 

State Policy Considerations 

Water conservation must compete with other policy goals with respect to drinking water, and 

drinking water must compete with other community policy concerns. States should be 

cognizant of the implications of water conservation for environmental justice and other broad 

policy concerns. States should be aware of how implementation of conservation and other 

programs affect relevant groups and stakeholders in terms of the safety and affordability of 

drinking water. 

Several specific areas of state policy are relevant to achieving water conservation goals. 

States are encouraged to closely examine state policies that might be at cross purposes with 

the goals of water conservation and impede beneficial conservation by community water 

systems. 

The first area of concern is water rights. State systems for managing water rights and 

withdrawal permits sometimes provide that rights are lost to the extent less water is used, 

including where water is saved through conservation. The loss of water rights can be a 

significant disincentive to conserve and can undermine the achievement of the state's water 

efficiency goals. Recognizing that water users are less likely to conserve if future rights to 

use water are jeopardized, some state laws now authorize users to retain rights in the water 

they conserve (sometimes called the "conserved surplus") if it is put to beneficial use (for 

example, applied to other lands or uses, or transferred). In the absence of laws permitting 

such results, water systems will be forced to choose between complying with water 

conservation planning requirements (in which case the water right might be lost) and not 

complying (in which case SRF funding might be lost). 

The second area of concern is economic regulatory policy. Typically regulated by state public 

utility commissions, investor-owned water utilities face potentially strong disincentives for 

conservation. The traditional model of utility regulation favors supply-side investment over 

demand-side investment in terms of cost recovery. Regulated utilities also might require 

approval to implement conservation measures, especially changes in rate design. Modern 

water conservation practices and these Guidelines recognize the salient role of pricing in 

water conservation, including the reconsideration of “promotional” rates that encourage use 

over conservation. 

These Guidelines also recognize that conservation by customers can adversely affect the 

utility’s financial condition because of the intrinsic relationship among sales, revenues, and 

profits. Regulators have tools to address these concerns if they have a clear policy basis for 

doing so. Clarification and coordination of state policies should include the role of the state 

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USEPA Water Conservation Plan Guidelines Information for States 

public utility commissions and the potential incentives for conservation that regulators could 

provide to investor-owned and other jurisdictional utilities. 

Coordinating State Programs 

Use of these Guidelines by some states might constitute the first and only state policy related 

to conservation planning by water systems. Many states, however, already have water 

conservation policies and programs in place (as discussed in Section 7 of this Part). In either 

case, the states should adapt the Guidelines to their needs. For the states that already have 

conservation programs in place, the Guidelines (or specific parts) could be used to supplement 

existing efforts. Similarly, states might choose to use existing requirements in lieu of all or 

part of these Guidelines. 

Regardless of the approach taken, coordinating state programs and policies will enhance 

effectiveness, while avoiding redundant or excessive requirements on water systems. The 

intent of these Guidelines is not to have water systems prepare, nor to have states review, 

more than one water conservation plan for a system. 

State agencies should find ways to coordinate requirements, as well as plan review and 

approval processes, so that water systems can comply efficiently. Similarly, water systems 

that prepare conservation plans to meet Bureau of Reclamation requirements could be allowed 

by states to use those plans to satisfy SRF planning requirements. In other words, one water 

conservation plan could satisfy the requirements of state primacy, resource, and revolving 

fund agencies, as well as those of federal agencies. 

Implementing a water conservation program can be a significant challenge, including a 

commitment of state staff and other resources. As discussed below, some funding for 

technical assistance to water systems may be available through the SRF. Resource needs vary 

with the level of detail expected in water conservation plans and the extent of review and 

approval by the states. Although the resource implications of implementing a conservation 

program may be significant, many states have found that the investment in water conservation 

policy and planning yields important benefits. 

Relationship to SRF 

The SDWA refers specifically to the potential use of the Guidelines by the states in 

conjunction with the SRF. In 1997, EPA issued SRF program guidelines that do not address 

Section 1455 of the Act. However, several parts of the Act are relevant to the development 

and use of water conservation guidelines in relation to the SRF. 

By suggesting that states may require SRF applicants to submit a conservation plan, Congress 

identified water conservation as a potential screening criterion for use in the SRF priority list 

process. The use of the SRF priority list process to encourage water conservation planning is 

at the discretion of the states. 

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USEPA Water Conservation Plan Guidelines Information for States 

At a state’s option, water conservation plan preparation is eligible for SRF funding. States 

should consult current federal guidelines governing the use of SRF funds to determine 

whether conservation measures are eligible for funding. 

These guidelines are intended to supplement, not supplant, state policies and programs in the 

area of water conservation, in furtherance of the broad objectives of the Safe Drinking Water 

Act and the SRF. 

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USEPA Water Conservation Plan Guidelines Information for States 

2. THE ROLE OF WATER CONSERVATION IN 

INFRASTRUCTURE PLANNING 

Goals and Perspectives 

These Guidelines are intended to help systems plan 

and implement effective and goal-oriented water 

conservation strategies. The Guidelines highlight the 

conservation goal of long-term reductions in capital 

facility costs. They provide a methodology for 

systems that are planning capital improvements 

(namely, SRF applicants) to incorporate conservation 

into their plans. The conservation plan can aid 

systems in making adjustments to planned capital improvements and demonstrating the 

system’s commitment to efficient water supply operations. 

The Water Conservation Plan 

Guidelines emphasize goaloriented planning which can 

help water systems improve 

their capacity to provide safe 

and reliable water service, as 

well as to eliminate, downsize, 

or delay infrastructure projects. 

Conservation planning can be beneficial to most water systems, not just those with an 

impending capital project. Even systems that consider supplies plentiful and facilities 

adequate find that conservation planning helps use existing resources more efficiently and 

save resources over the long term. 

The planning approach reflected in these Guidelines is consistent with the idea of integrated 

resource planning (IRP), which emphasizes a balanced consideration of supply-management 

and demand-management options in meeting a water system’s needs.1 According to this 

perspective, conservation can help water systems avoid supply-side costs through costeffective demand-side management strategies. Ideally, integrated planning combines the 

utility’s best efforts in supply and demand management. 

The benefits and costs associated with water conservation can be measured from a variety of 

perspectives: water suppliers, water customers, and society at large. For practical reasons, 

the Guidelines emphasize the perspective of the water supplier. Systems following the 

Advanced Guidelines are encouraged to examine conservation from other perspectives, 

including the broader societal viewpoint. 

1

 Janice A. Beecher, “Integrated Resource Planning Fundamentals.” Journal American Water Works Association 

(June 1995); Gary Fiske, Integrated Resource Planning: A Balanced Approach (Denver, CO: American Water 

Works Association, 1996). 

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USEPA Water Conservation Plan Guidelines Information for States 

Conservation and Infrastructure 

Conservation may be viewed as a supplemental or even an alternative technology for meeting 

safe drinking water needs. Conservation should be implemented as part of a long-term 

strategy for providing safe and reliable drinking water. 

Many water utilities already are experiencing the beneficial effects of efficiency through the 

standards in the Energy Policy Act of 1992 (see Appendix B).2 Efficiency standards for 

plumbing fixtures and other conservation measures have long-lasting implications for water 

demand. Conservation planning can help water systems and the states recognize these effects 

and accelerate the pace of efficiency improvements. 

One of the chief purposes of conservation is to avoid, postpone, or reduce capital costs 

associated with new facilities. Some hypothetical examples illustrate this point: 

� The water source used by a small water utility becomes contaminated. Developing 

a new source would be very costly and withdrawal permits are backlogged; 

construction of a transmission main for purchasing wholesale water from a nearby 

community would be more affordable. However, available quantities of wholesale 

water are limited. A comprehensive conservation program could reduce water 

requirements to a level that would make the wholesale option feasible. 

� A medium-sized water utility with a stable population base experiences “needle 

peaks” every summer, caused by intense lawn watering; average-day demand is 

well within the system’s capacity. The community’s older water treatment facility 

is being replaced with a state-of-the art facility. A public education campaign 

focusing on water-efficient landscaping principles, coupled with a seasonal water 

rate, facilitate cost-effective load management so that the new facility can be 

designed for optimal year-round performance. 

� A large water system faces a series of capital projects throughout a regional 

service territory, including projects to remediate substantial water leakage that 

threatens both quality and quantity. Per-capita water use varies substantially 

throughout the area, as does the ability of consumers to afford their water bills. A 

comprehensive and integrated plan of supply and demand management, including 

conservation focused on the needs of low-income customers, allows the utility to 

adjust the timing and sizing of facilities and save both water and construction 

expenditures. 

� A community’s water system enjoys a reasonable margin of capacity, but its 

wastewater treatment system is increasingly short on capacity and faces potential 

violations of discharge permits. Working together, the managers of the two 

2

 Amy Vickers, “The Energy Policy Act: Assessing its Impact on Utilities” Journal American Water Works 

Association (August 1993). 

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USEPA Water Conservation Plan Guidelines Information for States 

systems devise a long-term conservation strategy for the community that will help 

extend the useful life of both kinds of facilities and significantly downsize the 

capacity requirements of a planned wastewater treatment plant. 

As the last scenario indicates, many communities may find that the potential to reduce 

wastewater treatment costs is among the most compelling reasons to implement water 

conservation. Wastewater collection and treatment, like water supply, is a rising-cost 

industry. Reductions in wastewater flows can save treatment costs as well as provide 

substantial environmental benefits in terms of reduced discharges. 

Water and wastewater systems often are separately owned; even when these services are 

jointly provided the need for more coordinated infrastructure planning is great. Joint planning 

might provide opportunities for program partnerships and cost sharing. This model also can 

be extended to include regional partnerships and collaboration among water and wastewater 

utilities in order to achieve both economies of scale and efficiency. While emphasizing 

planning by water utilities, the Guidelines will clearly accommodate the consideration of 

wastewater issues and costs. Water utilities are encouraged to expand their analysis to include 

the wastewater perspective whenever feasible. 

Planning and Funding 

A major component of the reauthorized SDWA is the provision of funding to improve the 

nation's aging water delivery infrastructure. Conservation activities may alter the timing and 

sizing of new water system facilities, including source-of-supply, transmission, treatment, and 

storage facilities. Conservation can save water resources and financial resources used to 

support the cost of the water delivery system. In no case should the planning and 

implementation of a water conservation program be allowed to delay a project needed 

immediately to achieve compliance or public health goals. 

In keeping with the spirit of the law and to enhance the beneficial impact of conservation on 

infrastructure planning, the Guidelines are crafted specifically for use in conjunction with 

capital funding, including the SRF. The guidelines can help SRF decision-makers make 

critical determinations about the system from an efficiency and conservation perspective: 

� Is the water system reasonably efficient, given system size, climate, water 

availability and other factors? 

� Is the water system expected to become more efficient over time through the 

implementation of conservation measures? 

� Is the public’s investment in the water system sound given the system’s level of 

commitment to water conservation? 

Implementation of the conservation plan might help some systems reduce or delay costs 

associated with the supply facility project for which SRF funding is sought. In many cases, 

however, conservation savings will materialize over a longer planning horizon. 

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USEPA Water Conservation Plan Guidelines Information for States 

Implementation Scenarios 

These Guidelines allow several different state implementation scenarios. States may or may 

not establish conservation or planning requirements; states also may or may not require SRF 

applicants to provide a conservation plan. Also, state water conservation plan guidelines or 

planning requirements may or may not be consistent with EPA’s Guidelines. The result of 

combining these possibilities is four different implementation scenarios. 

In one scenario, a state requires conservation or planning and a conservation requirement also 

is included in the SRF application process. However, the SRF conservation requirement may 

be distinct from other requirements. In a second scenario, a state requires conservation or 

planning but does not require SRF applicants in particular to provide a conservation plan. 

Some states, for example, may believe that existing permitting, planning, or other 

requirements include sufficient conservation provisions. In fact, these processes may be more 

comprehensive than the SRF process, which covers only SRF applicants. 

In a third scenario, a state does not have general planning or conservation requirements but 

includes conservation in the SRF application process. A state in this situation may want to 

use the SRF to institute a rudimentary conservation or efficiency policy. Finally, a fourth 

scenario suggests that a state may have neither a general conservation policy nor a specific 

conservation requirement in the SRF. 

Another complexity is that implementation also will vary according to the correspondence, if 

any, between state conservation requirements (in general or as used with the SRF), and the 

EPA Guidelines. State conservation guidelines may be identical to the EPA Guidelines or 

largely different in content or scope. State guidelines may incorporate only parts of the EPA 

Guidelines. States may impose mandatory conservation requirements or use voluntary 

approaches. States may or may not use the size, climate, and water availability distinctions 

used in the EPA Guidelines or differentiate requirements based on these or other factors. 

Many states already implement water conservation and planning requirements, although these 

requirements generally are implemented by state water resource agencies. Oversight of the 

SRF generally rests with the state drinking water primacy agencies, although some states also 

establish funding authorities to administer the SRF Program together with the primacy agency 

(an example is the Pennsylvania Infrastructure Investment Authority, or PENNVEST). 

11
USEPA Water Conservation Plan Guidelines Information for States 

3. WATER CONSERVATION PLANNING CRITERIA

The Guidelines and System Size 

Three sets of water conservation planning guidelines 

are provided—Basic, Intermediate, and Advanced— 

based generally on system size. The three size 

categories specified in the Act refer to the service 

population of the community water system, not to 

customer connections or the general population (as 

defined by a census region or other designation). 

A refinement of the SDWA-defined size categories 

The SDWA specifies three 

system-size categories for use in 

designing the guidelines, and 

also states that the guidelines 

should consider climate and 

water availability. These and 

other factors also can be used to 

design a framework for 

adapting the guidelines to state 

needs and purposes. 

was adopted for the purpose of developing the 

guidelines (see Table 1-1). The categories can be further refined according to the needs and 

capabilities of states and water systems. For example, states might find it appropriate to use 

different size categories or nonsize criteria to determine the appropriateness of the guidelines 

to some or all of their water systems. 

Table 1-1: System Size Categories and Applicable Guidelines 

System Size Category (SDWA) 

Serves fewer than 3,300 people 

Serves between 3,300 and 10,000 people 

Serves more than 10,000 people 

Applicable Guidelines 

Basic Guidelines 

or 

Capacity-Development Approach 

Basic Guidelines 

Up to 10,000 people served 

Intermediate Guidelines 

Up to 100,000 people served 

Advanced Guidelines 

More than 100,000 people served 

For many smaller systems (serving fewer than 3,300 people), preparing a water conservation 

plan is a considerable challenge. Although many small systems are capable of following the 

Basic Guidelines, an optional approach also is available for very small systems. The 

Capacity-Development Approach (see Section 5) integrates water conservation assistance 

(planning and implementation) with the state’s general capacity-development program. 

12
USEPA Water Conservation Plan Guidelines Information for States 

Capacity development includes a variety of strategies to ensure the technical, managerial, and 

financial capacity of water systems. Many of the key indicators of water system capacity bear 

strong linkages to conservation and efficiency. States are encouraged to use a capacitydevelopment approach to assist small systems in developing and implementing basic 

conservation measures in lieu of a plan requirement. States may use funds from the 10% 

capacity-development set-aside of their SRF allocation to provide systems with water 

conservation assistance if those systems have been identified in the state’s capacitydevelopment strategy. 

The category of systems serving more than 10,000 persons is subdivided to better address the 

different needs and capabilities of medium-sized and larger systems. As discussed in the next 

section, the Basic, Intermediate, and Advanced Guidelines vary in terms of the conservation 

measures recommended for consideration in the planning process. 

Any size cutoff used to prepare guidelines for planning will be arbitrary. The size categories 

are not meant to suggest precise distinctions or to preclude the application of the intermediate 

and advanced approaches to smaller systems. Many smaller systems implement a wide range 

of conservation measures, including measures not classified under the Basic Guidelines. 

These guidelines encourage all systems to consider the fullest range of planning methods and 

conservation measures that is practical. States can encourage or require systems to go 

beyond the parameters of the Guidelines. Specifically, systems that fall into the Basic 

category can be asked to complete a plan under the Intermediate Guidelines; systems that fall 

into the Intermediate category can be asked to complete a plan under the Advanced 

Guidelines. 

The Basic Guidelines provide water systems with simple tools for gathering information and 

planning.3 The intention of the Guidelines is not to burden systems, especially very small 

(“micro”) or resource-constrained systems, with unnecessary steps or details.4 Rather, the 

Guidelines are intended to provide a straightforward means of planning and implementing 

generally accepted conservation practices. 

The Intermediate and Advanced Guidelines introduce additional analytical tools and 

conservation measures to enhance water conservation planning efforts. The Intermediate 

approach builds substantially on the Basic approach, while also introducing additional 

planning concepts and conservation measures. The Advanced Guidelines take planning a step 

further, and depend on a sufficient level of planning and implementation resources. The 

Advanced Guidelines also recognize that larger utilities with more resources can develop 

models and methods that are appropriate to their specific needs. 

3

 The Guidelines also are generally consistent with the capacity–development provisions of the SDWA that 

apply to small water systems. 

4

 States can consider exempting severely constrained systems from planning requirements. However, even small 

water systems can benefit from planning and implementing certain conservation measures. 

13
USEPA Water Conservation Plan Guidelines Information for States 

Climate, Water Availability and Other Factors 

In addition to the consideration of system size, Section 1455 of the SDWA also requires the 

Guidelines to take into account climate and water availability. These variables have obvious 

relevance to water supply planning and conservation. Climate, particularly precipitation rates 

and temperature, affects both water supply and water demand. Water availability further 

addresses the capacity and condition of ground water and surface water supplies, which vary 

with climate as well as many other factors. These factors are not limited to natural or 

ecosystem circumstances; water availability might be affected by patterns of usage, pollution 

and other factors affecting water quality, and public policies concerning water management 

and regulation. 

Climate and water availability vary among states and within states. States often are in a better 

position than the federal government to judge the extent to which climate and water 

availability should play a role in water conservation planning, and whether recommendations 

or requirements should vary within their jurisdictions. Thus, the Guidelines only suggest how 

to consider climate and water availability. States may adapt the Guidelines to their particular 

needs. 

The Guidelines include one-page worksheets that systems can use to prepare a basic System 

Profile and an overview of System Conditions. The worksheet on Water System Conditions 

can be used to identify climate, water availability, and other relevant planning considerations. 

Systems also are encouraged to elaborate on other system characteristics, conditions, or 

factors relevant to water conservation planning. 

Criteria for Adapting the Guidelines 

Table 1-2 provides a number of criteria that can be used to adapt the Guidelines to the specific 

needs of a state or particular systems within a state; these criteria correspond to the Worksheet 

on System Conditions in Section 2 of the Guidelines. 

Criteria classified as “other factors” can be determined by the states. These criteria might 

include: planning capacity and experience of systems, past water conservation achievements, 

size of planned capital improvements, amount of requested SRF funding. 

Within each area, several specific indicators are provided. These indicators can be used to 

identify water systems that have particular planning needs. The Worksheet provides only a 

general, qualitative method of assessment (for example, low-moderate-high). These values 

can be substituted with numeric values at each state’s discretion. States are encouraged to 

develop quantified state-appropriate benchmarks for any of the indicators used. 

14
________ 

USEPA Water Conservation Plan Guidelines Information for States 

Table 1-2: Potential Criteria for Adapting the Guidelines

Criteria suggesting the potential use of: 

Conditions Basic Intermediate Advanced 

Guidelines � Guidelines � Guidelines 

A CLIMATE AND WATER AVAILABILITY

A1 Average precipitation High ________ Moderate ________ Low ________ 

A2 Average temperatures Low ________ Moderate ________ High ________ 

A3 Critical supply areas No ________ At risk ________ Yes ________ 

A4 Competing water uses No ________ Possibly ________ Yes ________ 

A5 Environmental constraints No ________ Possibly ________ Yes 

A6 Quality/quantity concerns No ________ Possibly ________ Yes ________ 

A7 Seasonal variations in climate Low ________ Moderate ________ High ________ 

A8 Instream flow problems Low ________ Moderate ________ High ________ 

A9 Shortage or emergency frequency Low ________ Moderate ________ High ________ 

B INFRASTRUCTURE CONDITIONS 

B1 Age of the system Newer ________ Middle ________ Older ________ 

B2 General condition of system Good ________ Fair ________ Poor ________ 

B3 Water losses and leaks Low ________ Moderate ________ High ________ 

B4 Unaccounted-for water Low ________ Moderate ________ High ________ 

B5 Safe yield of supply exceeded No ________ At risk ________ Yes ________ 

B6 Wastewater discharges exceeded No ________ At risk ________ Yes ________ 

B7 Wastewater capacity exceeded No ________ At risk ________ Yes ________ 

B8 Potential for recycling and reuse Low ________ Moderate ________ High ________ 

B9 Improvement plans Low ________ Moderate ________ High ________ 

B10 Anticipated investment Low ________ Moderate ________ High ________ 

C SYSTEM DEMOGRAPHICS 

C1 Rate of population growth per year Low ________ Moderate ________ High ________ 

C2 Rate of demand growth per year Low ________ Moderate ________ High ________ 

C3 Rate of economic growth per year Low ________ Moderate ________ High ________ 

C4 Per capita water use (by class) Low ________ Moderate ________ High ________ 

C5 Ratio of peak to average demand Low ________ Moderate ________ High ________ 

C6 Presence of large-volume users Low ________ Moderate ________ High ________ 

D OTHER FACTORS 

D1 

D2 

D3 

[a] Specific (quantified) benchmarks for these indicators may be provided by the state, as in the following 

example: 

Example:

B1 Age of the system Newer < 5 years Middle 5 to 15 years Older >15 years

15
USEPA Water Conservation Plan Guidelines Information for States 

Planning requirements can be adjusted in accordance with system conditions. For example, 

some states might want to require all systems in a state-designated critical water-use area to 

prepare plans that follow the Intermediate Guidelines at a minimum. Some states might 

recommend the Basic Guidelines for all systems. Other states might choose to exempt some 

systems from filing plans, based on specified system conditions. 

No attempt is made to “weight” various criteria in terms of their importance to the water 

conservation planning process. However, states might want to assign special weight or 

consideration to certain system conditions. For example, the following characteristics tend to 

suggest a strong rationale for conservation planning: 

� State-designated critical water or stressed areas 

� Frequent droughts, supply emergencies, or safe yield problems 

� Excessive water leakages or losses 

� Entrance into major construction program 

� Rapid growth in water demand 

States might want to develop and use a simple screening method, based on these or other 

criteria, to adjust planning requirements to system conditions (in addition to or instead of the 

system-size criterion). The screening process can be used to relax planning requirements for 

some systems, as well as to expand or limit requirements based on system conditions. 

For example, a state might expand or relax planning requirements based on one or more of the 

following conditions: system size (particularly with respect to very small systems), amount of 

loan application, volume of water withdrawals, amount of nonaccount or accounted-for water, 

and the state’s determination of whether conservation will appreciably improve efficiency in 

relation to capital facility planning or funding. Some states might want to allow more time for 

small systems to complete their plans (as long as capital funding for priority projects is not 

jeopardized). 

States can select screening criteria that they believe is most suited to their planning goals. 

States might consider state-wide water conditions in terms of whether it might be appropriate 

to exempt some systems from planning or to identify a minimal planning approach for all 

water systems. 

16
USEPA Water Conservation Plan Guidelines Information for States 

4. GUIDELINES AND MEASURES

Planning Steps 

The Intermediate and Advanced Guidelines suggest 

nine basic planning steps that apply generically to 

water conservation planning: 

1. Specify Conservation Planning Goals 

2. Develop a Water System Profile 

3. Prepare a Demand Forecast 

4. Describe Planned Facilities 

5. Identify Water Conservation Measures 

6. Analyze Benefits and Costs 

7. Select Conservation Measures 

The Guidelines follow the same 

essential process, although the 

scope and content of 

conservation plans will vary 

with the level of planning. The 

number and scope of 

conservation measures 

recommended for consideration 

increases from the Basic to the 

Intermediate to the Advanced 

Guidelines. 

8. Integrate Resources and Modify Forecasts 

9. Present Implementation and Evaluation Strategy 

The Basic Guidelines contain five simplified steps. 

Treat these steps as separate sections of a water conservation plan. Most of the steps include 

worksheets that can be used to simplify the planning process. Water systems also can provide 

additional information as needed throughout the planning process, including qualitative and 

quantitative data. In some cases, systems might want to substitute another format for the 

requisite worksheet. This generally will not present a problem, as long as the information is 

sufficient for later steps in the planning process. Information in several of the earlier 

worksheets is needed for later calculations. 

The underlying logic and analytical approach are parallel for the Basic, Intermediate, and 

Advanced Guidelines. The methods of analysis presented in the Basic and Intermediate 

Guidelines are simplified to make them easier to use. A cost-effectiveness analysis is optional 

in the Basic Guidelines. The Advanced Guidelines encourage more sophisticated methods in 

forecasting and analysis. For advanced systems, more detailed approaches are provided for 

forecasting demand and supply capacity, analyzing the cost-effectiveness and net benefits of 

various conservation measures, and integrating selected measures into the utility’s resource 

mix. 

Throughout the Guidelines, system managers have opportunities to incorporate existing 

information (such as a demand forecast prepared for another purpose) and tailor their plans to 

system-specific needs and conditions. Additionally, the states may adapt the content of the 

Guidelines and worksheets to their needs and goals. States also might require systems to 

attach various kinds of supporting documentation as part of the conservation plan, including 

documents related to regulatory requirements. 

17
USEPA Water Conservation Plan Guidelines Information for States 

Conservation Measures 

Conservation measures are an integral part of the planning process. Like the Guidelines, 

measures are organized into three broad categories—Level 1, Level 2, and Level 3—each of 

which is further subdivided as follows: 

� Level 1 Measures 

� Universal metering 

� Water accounting and loss control 

� Costing and pricing 

� Information and education 

� Level 2 Measures 

� Water audits 

� Retrofits 

� Pressure management 

� Landscape efficiency 

� Level 3 Measures 

� Replacements and promotions 

� Reuse and recycling 

� Water-use regulation 

� Integrated resource management 

The organization of the measures is pragmatic, not prescriptive. It is not meant to preclude 

consideration of any measure by any type of water system, but rather to provide a logical 

framework for planning and management. Nor should this method of organizing the 

measures be construed as placing a higher value or priority on some measures over others. 

All conservation measures available now and in the future should be given due consideration 

based on the needs and capabilities of water systems. 

Appendix A to the Guidelines provides a more detailed description of each measure 

recommended for consideration. The Appendixes provide additional resources for use in 

planning as well. States should include the complete set of Appendixes together with other 

appropriate supporting information with each set of Guidelines provided to water systems. 

As illustrated in Table 1-3, the measures included in the Guidelines are cumulative, based 

very roughly on the level of knowledge and resources required for implementation. The Basic 

Guidelines suggest that Level 1 measures be considered at a minimum. These Level 1 

Measures are widely—even universally—accepted by water industry professionals and 

regulators, not just in terms of conservation but in terms of prudent water utility management. 

The lists of measures contained in the Intermediate and Advanced Guidelines are also 

suggested to be considered at a minimum. The Intermediate Guidelines include an expanded 

list of Level 1 Measures plus the Level 2 Measures. The Advanced Guidelines include further 

expansion of the Level 1 and Level 2 Measures plus Level 3 Measures. The Level 3 

18
USEPA Water Conservation Plan Guidelines Information for States 

Measures under the Advanced Guidelines are mostly applicable to larger systems, systems 

with substantial planning capability, and/or systems that have acute water conservation needs. 

The Level 3 Measures are particularly “proactive” in terms of the system’s role in water 

conservation. 

Together, the Guidelines and the measures recommended for consideration within them form 

a continuum of conservation strategies. This framework recognizes that the list of measures 

considered minimally appropriate will expand with the size and capability of the water utility, 

as well as with the conditions affecting the utility (such as climate, water availability, and 

other factors). In other words, conservation measures considered fundamental are not the 

same for very small systems as for much larger systems. 

While each set of Guidelines suggests that water systems consider at least the listed measures, 

managers should consider as many measures as practical given their capability and the 

conditions they seek to address. Water systems may not necessarily implement every 

measure. The Guidelines suggest that systems give careful consideration to each measure; if 

systems choose not to implement measures considered minimally appropriate, they should 

provide an explanation. 

As with other elements of the Guidelines, states may adapt or modify the list of conservation 

measures to fit their needs. States also could make some conservation measures mandatory 

and/or some conservation measures optional. 

The categories used to organize the measures are based on current knowledge and experience 

in water conservation. Most specific conservation measures can be classified within this 

framework. Although the measures represent a broad spectrum of approaches, they are not 

necessarily comprehensive. The number of effective conservation measures will continue to 

expand. It will be important for water systems to stay current with available technologies and 

approaches to conservation. 

19
USEPA Water Conservation Plan Guidelines Information for States 

Table 1-3: Cumulative Nature of the Conservation Measures 

in the Guidelines [a] 

Basic Intermediate Advanced 

Guidelines Guidelines Guidelines 

LEVEL 1 MEASURES 

Universal metering 

Water accounting and loss control 

Costing and pricing 

Information and education 

LEVEL 2 MEASURES

Water-use audits 

Retrofits 

Pressure management 

Outdoor efficiency 

LEVEL 3 MEASURES

Replacements and promotions 

Reuse and recycling 

Water-use regulation 

Integrated resource management 

[a] See the Guidelines and Appendix A for the specific conservation measures recommended for 

consideration within each of the levels and categories. 

20
USEPA Water Conservation Plan Guidelines Information for States 

5. CAPACITY-DEVELOPMENT APPROACH

Conservation by Small Water 

Systems 

States should consider several factors when deciding 

whether to require small water systems to plan for 

water conservation. States can determine the 

appropriate approach to conservation planning for 

small water systems on a statewide or case-by-case 

basis. 

Small water systems can benefit from efficiency and 

conservation as well as larger systems. In fact, the 

potential for eliminating, downsizing, or postponing 

capital projects through strategic supply and demand 

management may be more important for smaller systems given financial and other constraints. 

However, small systems face many competing challenges and their ability to devote resources 

to conservation planning may be very limited. 

For very small water systems, 

conservation planning can be 

accomplished in part through 

the state’s capacity-development 

strategy. Strategies to improve 

the technical, managerial, and 

financial capacity of water 

systems are required under the 

SDWA. States can provide 

conservation planning 

assistance to small systems as 

part of their capacitydevelopment efforts. 

For systems serving under 3,300 people (approximately 1,000 connections), a CapacityDevelopment Approach is suggested. Use of the Guidelines could be based on each state’s 

assessment of the needs and capabilities of their small water systems. The key component of 

this approach is to link conservation planning for small systems to state capacity-development 

strategies. Those systems identified as needing assistance could receive assistance from the 

state in planning and implementing a basic water conservation program as outlined below. 

Those small systems not identified in the state’s capacity-development strategy could be 

required to submit a plan. The Basic Guidelines would be appropriate for those systems not 

being assisted by the state under the Capacity-Development Approach. 

Capacity Development 

Section 1420 (c) of the SDWA requires that, by August 6, 2000, in order to avoid withholding 

of SRF funds, states must develop and implement a strategy to assist public water systems in 

acquiring and maintaining technical, managerial, and financial capacity.5 

5 U.S. Environmental Protection Agency, Information for the Public on Participating with States in Preparing 

Capacity Development Strategies (Public Review Draft, EPA 816-D-97-003, January 8, 1998). 

21
USEPA Water Conservation Plan Guidelines Information for States 

The three aspects of capacity have been defined in EPA Guidance as follows:6 

� Technical capacity is the physical and operational ability of a water system to meet 

SDWA requirements. Technical capacity refers to the physical infrastructure of 

the water system, including the adequacy of source water and the adequacy of 

treatment, storage, and distribution infrastructure. It also refers to the ability of 

system personnel to adequately operate and maintain the system and to otherwise 

implement requisite technical knowledge. 

� Managerial capacity is the ability of a water system to conduct its affairs in a 

manner enabling the system to achieve and maintain compliance with SDWA 

requirements. Managerial capacity refers to the system’s institutional and 

administrative capabilities. 

� Financial capacity is a water system’s ability to acquire and manage sufficient 

financial resources to allow the system to achieve and maintain compliance with 

SDWA requirements. 

Within the each area of capacity--technical, financial, and managerial--are several specific 

elements. Several basic conservation practices can be directly linked to these basic elements 

of capacity, as summarized in Table 1-4. 

Table 1-4: Common Elements of Capacity Development and 

Water Conservation Planning 

Type of 

Capacity 

Elements of 

Capacity Development [a] 

Elements of 

Basic Water Conservation 

Technical � Source-water adequacy 

� Infrastructure adequacy 

� Technical knowledge and 

implementation 

Universal metering 

� Source-water metering 

� Service-connection metering and 

reading 

� Meter public-use water 

Water accounting and loss control 

� Account for water 

� Repair known leaks 

Managerial � Staffing and organization 

� Effective external linkages 

� Ownership accountability 

Information and education 

� Understandable water bill 

� Information available 

Financial � Revenue sufficiency 

� Fiscal management and controls 

� Credit worthiness 

Costing and pricing 

� Cost-of-service accounting 

� User charges 

� Metered rates 

[a] Elements with direct relevance to water conservation appear in bold face.

6

 U.S. Environmental Protection Agency, Guidance on Implementing the Capacity Development Provisions of

the Safe Drinking Water Act Amendments of 1996 (August 6, 1998). 

22 
USEPA Water Conservation Plan Guidelines Information for States 

As these linkages suggest, the conservation measures identified as basic actually can be 

interpreted much more broadly. These practices are considered reasonably appropriate for all 

community water systems because they correspond to some of the basic elements of capacity 

as well. 

Under the Capacity-Development Approach states encourage and assist small water systems 

in making a variety of conservation-oriented improvements. States should provide technical 

assistance to water systems to help them implement at least the basic elements of a 

conservation program as shown in Table 1-4. As stated previously, systems that are not 

capacity-limited or that are interested in a more comprehensive planning approach may use 

the Basic Guidelines. 

The Safe Drinking Water Act provides up to a 10% set-aside from a state’s SRF allotments 

that can be used by states to develop and implement a capacity-development strategy for 

water systems. States may use part of those funds to assist water systems to develop water 

conservation programs as part of its capacity-development efforts. 

23
USEPA Water Conservation Plan Guidelines Information for States 

6. STATE ROLES

Policy Issues 

If states choose to use the guidelines, a number of 

specific decisions or actions may be needed to place 

the guidelines within the context of existing state 

policy and/or introduce new planning requirements for 

water systems. Among other policy determinations, 

the states should: 

� Clarify state goals with respect to water 

conservation. 

� Specify the role of conservation planning in SRF and other programs. 

� Determine eligibility for public funding for conservation planning. 

� Identify which water systems are expected to file water conservation plans, and 

under what circumstances. 

� Decide whether any elements of the Guidelines should be made mandatory or 

permissive, based on specified system profiles and conditions. 

� Provide state guidance manuals and other technical assistance. 

� Provide state-specific benchmarks and standards for use by water systems in 

preparing plans. 

� Review water rights laws and other potential disincentives to water conservation. 

Technical Assistance for Systems 

For many states, the availability of technical assistance for water system managers determines 

the success of water conservation planning efforts. Obviously, greater levels of assistance 

require a greater resource commitment on the part of the state. States may reduce these costs 

by coordinating efforts with existing programs, activities, and resources, such as the Bureau 

of Reclamation in the western states. 

Systems using the Basic Guidelines might require more technical assistance, particularly if 

they have never prepared a conservation plan. As previously mentioned, some funding for 

technical assistance may be available through the SRF, particularly for small systems in 

conjunction with state capacity-development programs. Systems using the Intermediate and 

Advanced Guidelines may require less technical assistance in order to prepare plans, but they 

may ask states to respond to more complex technical questions. States can provide technical 

assistance in a number of ways, including workshops and training sessions; manuals, 

workbooks, and templates; and one-on-one assistance. 

Implementing the water 

conservation plan guidelines 

will be a challenge for the 

states, as well as for water 

systems. State implementation 

issues include policy; technical 

assistance; plan review and 

approval; monitoring, reporting 

and updates; and coordination. 

24
USEPA Water Conservation Plan Guidelines Information for States 

Workshops and Training Sessions 

Workshops and training sessions are a useful means to acquaint utilities with SDWA 

provisions, including SRF procedures and conservation planning. Training sessions can focus 

on the steps in the planning process and the methodologies used in planning (such as demand 

forecasting and cost-effectiveness analysis). 

In addition to state-sponsored programs, states should encourage systems to take advantage of 

industry-based technical training opportunities. Rural water associations, university 

agricultural extension offices, the American Water Works Association and sections, and other 

organizations also offer a network of resources and expertise to aid systems in water 

conservation planning. 

Manuals, Workbooks, and Templates 

Although the Guidelines are designed to be relatively comprehensive, supplemental materials 

may be needed to provide background and information to make their use easier and more 

effective. Materials on water conservation planning are widely available in published form 

(see Appendix D). 

States can make planning easier for systems by providing additional materials, including 

workbooks, templates, guidebooks, sample plans, or responses to frequently asked questions. 

States also can help systems with some of the estimates required in the guidelines by 

providing accepted estimates for certain inputs (such as projected population data for 

forecasting). These materials can be made available through published documents, interactive 

computer software, or the internet. Care should be taken that the provided materials are 

consistent with state-adopted guidelines. 

One-On-One Assistance 

Providing one-on-one assistance to water systems for conservation requires an investment of 

resources on the part of the state, but it can be highly effective. States can provide one-on-one 

assistance on site, at state offices, or through telephone calls and electronic mail. For small 

systems, the one-on-one approach has been used to help managers prepare a basic business 

plan. 

A variation of the one-on-one approach is to design a hands-on workshop for smaller systems. 

During the course participants would actually complete the conservation plan described in the 

Basic Guidelines. 

Review and Approval 

States may take various approaches to review and approval of conservation plans. The level 

and nature of the review and approval process might depend on state goals related to water 

conservation and the role of system plans in furthering these goals. States could simply 

25
USEPA Water Conservation Plan Guidelines Information for States 

require systems to have a plan on file, or impose a formal review and approval process. 

Reviewing agencies could provide feedback on water conservation plans and suggest 

revisions. Loans, permits, or other approvals may depend on the state’s review and approval 

of the conservation plan. 

Responsibility for plan approval generally will rest with the agency requiring the plan. In 

some cases, a state agency that does not otherwise implement water resource or conservation 

policies might adopt the planning requirement. This might be the case, for example, if the 

agency administering the SRF adopts the guidelines for use. In such instances, the state 

should set up an interagency review and approval process. 

Monitoring, Reporting, and Updates 

Under the Guidelines, systems describe their intentions for evaluating and updating their 

water conservation plans. States may impose additional monitoring and reporting 

requirements, including a more specific schedule for updating plans. 

State monitoring may be informal or formal. A more formal approach is to audit 

implementation and results at some water systems. States can provide systems with feedback 

and technical assistance during the audit process. 

States may also ask water systems to file routine reports on their progress in meeting water 

conservation planning goals, in which case the states should be specific about what kinds of 

data and what level of detail are needed to fulfill reporting requirements. This could be a 

simple progress report, in the form of a Worksheet, or a more detailed analysis. 

The states should determine the frequency of plan updates. For example, the Guidelines 

suggest regular five-year intervals. The frequency of updates could vary for water systems 

depending on state-specified criteria: systems using the Basic Guidelines could update their 

plans on a three-year schedule; systems following the Intermediate Guidelines could update 

their plans on a two-year schedule; and systems following the Advanced Guidelines could 

update their plans on an annual basis. Other system characteristics or circumstances could be 

used as well. States could link other approvals, including future funding applications, to plan 

updates. 

Interagency Coordination 

These guidelines should enhance state water management efforts, not create unnecessary or 

duplicative requirements on water systems. Coordination of state requirements and programs 

will help ensure effective water conservation efforts on the part of utilities. 

As mentioned earlier in this information document, coordination of state water conservation 

planning will reduce redundancy and lower planning costs. States can use a number of 

techniques to share information and coordinate activities among state agencies with diverse 

26
USEPA Water Conservation Plan Guidelines Information for States 

responsibilities. One approach is to conduct a joint review and approval process which can 

help close information gaps and avoid confusion. A less formal approach is for agencies to 

hold regular meetings to exchange information about water systems’ progress in meeting 

planning and other regulatory requirements. 

Another very useful technique for promoting interagency coordination is to adopt a 

Memorandum of Understanding (MOU), in which signatory agencies agree on their separate 

and joint responsibilities for implementing requirements. An MOU between the state SRF 

and resource agencies, for example, could help clarify roles and responsibilities for states that 

require conservation planning by SRF applicants. For example, the SRF agency might need 

the resource agency to review plans and assist in the priority ranking prior to granting loans. 

Coordination also would be helpful for technical assistance and plan monitoring purposes. 

27
USEPA Water Conservation Plan Guidelines Information for States 

7. STATE CONSERVATION PROGRAMS

State experience with water conservation is 

substantial, although planning approaches and 

requirements vary considerably from state to state. 

Planning requirements across state and federal 

jurisdictions were analyzed using published 

documents and other secondary research sources. As 

of late 1997, eighteen jurisdictions had instituted some 

kind of formal conservation planning guidelines for 

Many states already implement 

water conservation programs. 

Experience with these programs 

provides a wealth of information 

from which to draw when 

designing state water 

conservation policies. 

water utilities. Table 1-5 provides an overview of water conservation planning requirements, 

as well as conservation-oriented requirements under the state SRF programs. 

Many states have water conservation planning guidelines or other requirements embedded in 

existing statutes or rules. For example, conservation planning might be required in 

connection with obtaining a water withdrawal permit, or some types of state funding. States 

that have conservation requirements do not necessarily incorporate existing requirements into 

their SRF programs. Several states, however, specify that compliance with existing 

regulations, including conservation-related regulations, is a prerequisite for loan applications. 

EPA selected twelve jurisdictions for more detailed study of planning guidelines and related 

documents:7 

� Arizona � New Jersey 

� California � New York 

� Connecticut � Rhode Island 

� Kansas � Texas 

� Massachusetts � Washington 

� Nevada � U.S. Bureau of Reclamation (BOR) 

These states and BOR represent substantial diversity in terms of location, water resource 

needs and issues, and approaches to water conservation planning. The conservation 

guidelines in these jurisdictions were reviewed along four key dimensions: 

� Authority and agencies. What is the basis of authority for water conservation or 

conservation planning? When was this authority enacted? What agencies are 

involved in implementing and reviewing water conservation plans? 

7

 Several of these guidelines also were included in a recent study by the American Water Works Association. 

See American Water Works Association. Model Guidelines for Water Conservation Plans: Guidance for State 

Water Conservation Plans (WITAF Project #559). Denver: AWWA, November 1997. Prepared by Maddaus 

Water Management, et al. 

28
USEPA Water Conservation Plan Guidelines Information for States 

� Planning requirements. What are the requirements for water conservation plans? 

Who must submit plans? What triggers the requirement for planning? What 

variations are there in the planning requirement, especially in terms of utility size 

and water availability? 

� Format and content. What issues are required or recommended for consideration 

in the plan? Are specific goals addressed in the plan? Does the plan provide a 

description and data for the water system? Is the plan required to analyze future 

needs and emergency management? What specific conservation measures are 

included in the plan? 

� Implementation and evaluation. How will the plan be implemented? Are 

revisions and updates required? How are the plans enforced and can penalties be 

imposed? Is there a means to evaluate the plans? 

A key finding of the review is that water conservation planning varies considerably among the 

jurisdictions. Conservation planning also is a relatively recent phenomenon in these states, in 

most cases less than ten years old. In these states, authority for conservation planning tends to 

be vested in the state water resource agency. Water conservation planning can either be a 

general requirement or triggered by a permit application. Only three of these states 

specifically require planning for a state revolving fund loan. 

The states also address system size very differently in planning requirements. In five of the 

states, all water providers are included in the requirements; in the other states, certain size 

thresholds trigger plan submission. States use different units when considering system size, 

such as water volume or number of customers. Only three of the states (Kansas, Texas, and 

Washington) significantly vary their water conservation planning requirements according to 

system size. 

State planning requirements differ most in terms of the format and content of plans. Most 

guidelines and statutes require or recommend that plans include a description of the service 

area and supply systems; quantification of past, current, and future water use and supply; 

emergency or contingency planning; and an implementation schedule. However, the 

importance placed on these items varies. 

All of the states and the BOR suggest that plans discuss particular water conservation 

measures, although specific requirements vary. The conservation measures most frequently 

mentioned in the statutes and guidelines are: 

� Metering and meter repair, 

� Leak detection and repair, 

� Rate design and conservation pricing, 

� Plumbing retrofits and promotion of water-saving fixtures, 

� Public information and education, and 

� Landscaping. 

29 
USEPA Water Conservation Plan Guidelines Information for States 

Table 1-6 provides a summary of components of conservation planning in terms of whether 

these and other measures are suggested for consideration, must be addressed in the plan, or 

are required. All planning guidelines surveyed, however, require that utilities address public 

education, leak detection and repair, metering, and pricing. 

Most of the state water conservation planning guidelines and associated statutes mention the 

need for an implementation schedule and revisions or updates. Connecticut provides a 

detailed form for this purpose. Most states that require revisions or updates specify five-year 

intervals. 

Enforcement and penalties are not highly developed in most jurisdictions. A few states have 

the authority to levy fines for failure to submit or implement a conservation plan. However, 

most do not have rigorous enforcement procedures. Evaluation procedures also vary 

considerably; Massachusetts and the BOR mention the need for evaluation, while California 

specifies a relatively comprehensive approach. 

In sum, flexibility in the planning process is suggested by many of the existing approaches. 

In particular, most jurisdictions seem to exercise discretion in terms of evaluating plans based 

on size, water availability, and other water system characteristics. However, the diversity of 

state experience in this area provided a wealth of information from which to draw in crafting 

these Guidelines. Also, attention to existing state and federal approaches help ensure that the 

federal Guidelines are complementary to these ongoing efforts. 

30
USEPA Water Conservation Plan Guidelines Information for States 

Table 1-5: State Conservation Planning and SRF Activities (as of Fall 1997)

States or States with 

States with Planning Guidelines 

Guidelines by Guidelines by Planning as an Conservation Criteria Nature of Conservation Criteria in SRF

Agencies Planning Water System Water SRF in SRF 

Guidelines Size Availability/ Requirement or 

Conditions Prerequisite 

Alabama No Not applicable None planned Not applicable 

Alaska No Not applicable None planned Not applicable 

Arizona Yes No No No Considered elsewhere Not applicable 

Arkansas No Not applicable None planned Not applicable 

California Yes No No No None planned Not applicable 

Colorado Yes No No Yes Yes Ranking and planning 

Connecticut Yes No Generally Yes Yes Ranking criterion 

Delaware No Not applicable Yes Bonus points 

Florida Yes No No No None planned Not applicable 

Georgia Yes No No Yes Yes Planning compliance a prerequisite 

Hawaii No Not applicable None planned Not applicable 

Idaho No Not applicable Yes Planning compliance a prerequisite 

Illinois No Not applicable None planned Not applicable 

Indiana No Not applicable Yes Ranking criterion likely 

Iowa No Not applicable Yes Plan required (SRF specific) 

Kansas Yes Yes No Yes Yes Plan required 

Kentucky Yes No No Yes Yes Plan required 

Louisiana No Not applicable None planned Not applicable 

Maine No Not applicable None planned Not applicable 

Maryland No Not applicable None planned Not applicable 

Massachusetts Yes No No Yes Yes Planning requirement likely 

Michigan No Not applicable None planned Not applicable 

Minnesota Yes No No Yes Yes Planning requirement likely 

Mississippi No Not applicable Yes Planning compliance a prerequisite 

31 
USEPA Water Conservation Plan Guidelines Information for States 

Table 1-5 (continued) 

States or States with 

States with Planning Guidelines 

Guidelines by Guidelines by Planning as an Conservation Criteria Nature of Conservation Criteria in SRF

Agencies Planning Water System Water SRF in SRF 

Guidelines Size Availability/ Requirement or 

Conditions Prerequisite 

Missouri No Not applicable None planned Not applicable 

Montana No Not applicable Yes Ranking criteria 

Nebraska No Not applicable None planned Not applicable 

Nevada Yes No Generally No No Not applicable 

New Hampshire No Not applicable Yes Bonus points 

New Jersey Yes Yes No No Considered elsewhere Not applicable 

New Mexico No Not applicable Possible Not applicable 

New York Yes No No No Yes Bonus points 

North Carolina No Not applicable None planned Not applicable 

North Dakota No Not applicable Yes Ranking criteria 

Ohio No Not applicable Yes Bonus points 

Oklahoma No Not applicable None planned Not applicable 

Oregon Recommended No No No Considered elsewhere Not applicable 

Pennsylvania No Not applicable Not quantified Not applicable 

Rhode Island Yes No No No Considered elsewhere Not applicable 

South Carolina No Not applicable None planned Not applicable 

South Dakota No Not applicable None planned Not applicable 

Tennessee No Not applicable None planned Not applicable 

Texas Yes No (SRF) Generally Yes Yes Plan required 

Utah Recommended No No Yes Yes Planning compliance a prerequisite 

Vermont No Not applicable None planned Not applicable 

Virginia No Not applicable None planned Not applicable 

Washington Yes Yes Generally Yes Yes Plan required 

West Virginia No Not applicable Yes Planning compliance a prerequisite 

Wisconsin No Not applicable Yes Bonus points likely 

Wyoming Not applicable 

BuRec Yes No No No Not applicable 

Delaware RBC Yes No No No Not applicable 

32 
USEPA Water Conservation Plan Guidelines Information for States 

Table 1-6: Components of State Water Conservation Plan Guidelines (as of Fall 1997)

Pricing 

and 

Rates 

Metering Audits Leak 

Repair 

Retrofitting Landscaping Reuse Public 

education 

Pressure 

Control 

Other 

Arizona Goal-oriented planning--specific measures are not required 

California P P P P P P P 

Colorado P P P P P P 

Connecticut S S S S R S R S S 

Florida S S S S S S S S 

Georgia P P P P P P 

Kansas P P P P P P P P 

Kentucky R R 

Massachusetts S S S S 

Minnesota R P P P P R P 

Nevada R R S R R R R R R 

New Jersey R R R P P P 

New York S S S S S S S 

Oregon* P P P P P P P P 

Rhode Island R R R R R R 

Texas P P P P S S S P S S 

Utah* S S S S S S 

Washington P R P P P P R 

Bureau of Reclamation S S S S S S S S S 

Delaware River Basin P P P P 

Key: 

S = suggested consideration 

P = plan must address 

R = program or measures are required 

* Water conservation plans are recommended, not required except under specified circumstances.

33 
USEPA Water Conservation Plan Guidelines 

[blank page] 

34 
USEPA Water Conservation Plan Guidelines Overview of the Guidelines 

U.S. Environmental Protection Agency

Water Conservation Plan Guidelines 

PART 2 

OVERVIEW OF THE GUIDELINES 

35
USEPA Water Conservation Plan Guidelines Overview of the Guidelines 

[blank page] 

36
USEPA Water Conservation Plan Guidelines Overview of the Guidelines 

1. WATER CONSERVATION GUIDELINES AND THE 

SDWA 

Section 1455 of the Safe Drinking Water Act (SDWA) requires the U.S. Environmental 

Protection Agency to publish these guidelines: 

Sec. 1455. (a) Guidelines.—Not later than 2 years after the date of enactment of the 

Safe Drinking Water Act Amendments of 1996, the Administrator shall publish in the 

Federal Register guidelines for water conservation plans for public water systems 

serving fewer than 3,300 persons, public water systems serving between 3,300 and 

10,000 persons, and public water systems serving more than 10,000 persons, taking 

into consideration such factors as water availability and climate. 

(b) Loans or Grants.—Within 1 year after publication of the guidelines under 

subsection (a), a State exercising primary enforcement responsibility for public water 

systems may require a public water system, as a condition of receiving a loan or grant 

from a State loan fund under section 1452, to submit with its application for such loan 

or grant a water conservation plan consistent with such guidelines. 

The guidelines are addressed to water system managers. Use of the guidelines is not required 

by federal law or regulation; however, water systems can benefit from conservation planning, 

whether or not it is required by law. It is up to each State to decide whether or not to require 

water systems to file conservation plans consistent with these or any other guidelines. It is 

very important that water system managers understand and comply with their own state, 

regional, or local regulatory requirements. 

37
USEPA Water Conservation Plan Guidelines Overview of the Guidelines 

2. Benefits of Conservation and Planning

Water conservation consists of any beneficial reduction in water losses, waste, or use. In the 

context of utility planning, the term “beneficial” usually means that the benefits of an activity 

outweigh the costs. Conserving water can be beneficial in many ways, but one important 

reason for conservation is that it can help systems avoid, downsize, or postpone water and 

wastewater projects. The facilities used to treat and deliver drinking water (and to collect and 

treat wastewater) are sized to meet demand; if the level of demand is inflated by wasteful use, 

people pay more in both capital and operating costs than necessary to provide safe and 

adequate water supply and wastewater services. Moreover, when the cost of supplying 

drinking water and processing wastewater is reduced, financial resources can be used to meet 

other needs. 

In connection with infrastructure 

funding, the value of conservation is 

appropriately assessed in terms of 

supply, treatment, and distribution 

costs that can be avoided because of 

planned reductions in water demand. 

Conservation becomes more 

valuable over time because future 

water supplies and the facilities 

needed to deliver them are expected 

to cost more (even when adjusting 

for inflation). In other words, 

permanent conservation savings that 

are realized today will have 

increasing value into the future. 

Planning is a means of anticipating 

the future and organizing activities 

in response. Conservation planning 

can help water system managers 

take inventory of their existing 

efforts and identify new 

opportunities. Planning can help 

utilities manage competing goals and rising costs, such as those associated with SDWA 

compliance, infrastructure improvement, and meeting demand growth. The investment that 

water system managers make in conservation planning should yield savings that can be 

measured in terms of water and dollars. 

The planning approach suggested by these Guidelines is designed to be accessible and 

relatively inexpensive. It is very important for utilities to know exactly what planning 

requirements apply in their states and how other plans already prepared by the system might 

be used in conjunction with these Guidelines. 

Benefits of Water Conservation 

In order to meet the needs of existing and future 

populations and ensure that habitats and ecosystems are 

protected, the nation’s water must be sustainable and 

renewable. Sound water resource management, which 

emphasizes careful, efficient use of water, is essential in 

order to achieve these objectives. 

Efficient water use can have major environmental, 

public health, and economic benefits by helping to 

improve water quality, maintain aquatic ecosystems, and 

protect drinking water resources. As we face increasing 

risks to ecosystems and their biological integrity, the 

inextricable link between water quality and water 

quantity becomes more important. Water efficiency is 

one way of addressing water quality and quantity goals. 

The efficient use of water can also prevent pollution by 

reducing wastewater flows, recycling industrial process 

water, reclaiming wastewater, and using less energy. 

Source: EPA Office of Water, Statement of Principles 

on Efficient Water Use (December 1992). 

38
USEPA Water Conservation Plan Guidelines Overview of the Guidelines 

3. Overview of the Planning Process

These Guidelines provide a framework that water managers can use to assess the costeffectiveness of conservation, as well as the value of conservation in avoiding, lowering, or 

postponing supply-side capital and operating costs. 

Table 2-1: System Size Categories and Type of Guidelines 

System Size Category (SDWA) 

Serves fewer than 3,300 people 

Serves between 3,300 and 10,000 people 

Serves more than 10,000 people 

Applicable Guidelines 

Basic Guidelines 

or 

Capacity-Development Approach [a] 

Basic Guidelines 

Up to 10,000 people served 

Intermediate Guidelines 

Up to 100,000 people served 

Advanced Guidelines 

More than 100,000 people served 

[a] States also can promote water conservation planning by small water systems through their 

capacity-development strategies. Some states may provide assistance to small systems in the 

planning and implementation of water conservation programs through their capacity-development 

strategies. 

EPA has prepared three sets of Guidelines (as summarized in Table 2-1): 

� The Basic Guidelines are designed for use by water systems serving populations of 

10,000 or fewer. Some water systems, especially those serving fewer than 3,300 

people, may be included in a Capacity-Development Approach, which addresses 

water conservation through state capacity-development strategies required by the 

SDWA. (See Section 5 of Part 1.) Systems should check with their state primacy 

agency for information and guidance about capacity development. 

� The Intermediate Guidelines are designed for water systems serving between 

10,000 and 100,000 people. 

� The Advanced Guidelines are designed for water systems serving more than 

100,000 people. 

39
USEPA Water Conservation Plan Guidelines Overview of the Guidelines 

Which Guidelines are appropriate also may depend on various factors and conditions 

affecting water systems and their need for conservation planning. For example, smaller 

systems with constrained water supply resources may want to follow the Intermediate 

Guidelines. Water system managers should check with their own state’s rules, regulations, 

and recommendations about which Guidelines to follow. 

Each of the Guidelines follows a similar framework for the planning process; however, the 

Basic, Intermediate, and Advanced Guidelines vary in terms of the scope of the analysis and 

the amount of detail required when preparing a conservation plan. The Basic Guidelines 

provide a very simplified planning approach. The Intermediate and Advanced Guidelines 

lead to a comprehensive conservation plan, as outlined in Table 2-2. The outline may be 

adapted to better meet system needs and state requirements. 

Many of the worksheets refer to gallons as the unit for measuring water quantity. However, 

water systems should use the unit of measurement that they typically use for planning, 

reporting, and other purposes. Water systems also should use available information resources 

(such as current demand forecasts) whenever feasible in order to expedite preparation of the 

conservation plan and avoid duplication of other efforts. 

The Guidelines also focus on the benefits of conservation for water systems. It may be 

appropriate for many systems to expand the analysis to include wastewater systems, 

particularly in the assessment of benefits and costs. Conservation can help communities 

reduce the cost of wastewater facilities, as well as water facilities, and the Guidelines can 

provide a framework for making this assessment. 

One important distinction among the Guidelines is the number of conservation measures 

recommended for consideration by managers. The Guidelines reflect a cumulative approach 

to conservation measures, which are organized into three levels (see Tables 1-3 and 2-3). 

Each level includes additional categories of measures. For example, the Intermediate 

Guidelines include more measures than the Basic Guidelines and the Advanced Guidelines 

include more measures than the Intermediate Guidelines. This framework recognizes the 

general continuum of conservation measures available to water systems with different needs 

and capabilities. 

This organization of measures should not be interpreted to place a higher value on some 

measures over others. Water system managers and planners are strongly encouraged to 

consider the full range of conservation measures, which are described in Appendix A. 

40
USEPA Water Conservation Plan Guidelines Overview of the Guidelines 

Table 2-2: Contents of a Comprehensive Water 

Conservation Plan 

1. SPECIFY CONSERVATION PLANNING GOALS 

� List of conservation planning goals and their relationship to supply-side planning 

� Description of community involvement in the goals-development process 

2. DEVELOP A WATER SYSTEM PROFILE 

� Inventory of existing facilities, production characteristics, and water use 

� Overview of conditions that might affect the water system and conservation planning 

3. PREPARE A DEMAND FORECAST 

� Forecast of anticipated water demand for future time periods 

� Adjustments to demand based on known and measurable factors 

� Discussion of uncertainties and “what if” (sensitivity) analysis 

4. DESCRIBE PLANNED FACILITIES 

� Improvements planned for the water system over a reasonable planning horizon 

� Estimates of the total, annualized, and unit cost (per gallon) of planned supply-side improvements and 

additions 

� Preliminary forecast of total installed water capacity over the planning period based on anticipated 

improvements and additions 

5. IDENTIFY WATER CONSERVATION MEASURES 

� Review of conservation measures that have been implemented or that are planned for implementation 

� Discussion of legal or other barriers to implementing recommended measures 

� Identification of measures for further analysis 

6. ANALYZE BENEFITS AND COSTS 

� Estimate of total implementation costs and anticipated water savings 

� Cost effectiveness assessment for recommended conservation measures 

� Comparison of implementation costs to avoided supply-side costs 

7. SELECT CONSERVATION MEASURES 

� Selection criteria for choosing conservation measures 

� Identification of selected measures 

� Explanation for why recommended measures will not be implemented 

� Strategy and timetable for implementing conservation measures 

8. INTEGRATE RESOURCES AND MODIFY FORECASTS 

� Modification of water demand and supply capacity forecasts to reflect anticipated effects of conservation 

� Discussion of the effects of conservation on planned water purchases, improvements, and additions 

� Discussion of the effects of planned conservation measures on water utility revenues 

9. PRESENT IMPLEMENTATION AND EVALUATION STRATEGY 

� Approaches for implementing and evaluating the conservation plan 

� Certification of the conservation plan by the system’s governing body 

41
USEPA Water Conservation Plan Guidelines Overview of the Guidelines 

Table 2-3: Guidelines and Associated Conservation 

Measures [a] 

‹�������������� Advanced Guidelines ���������������fi 

‹������ Intermediate Guidelines �������fi 

Measures ‹ Basic Guidelines �fi 

LEVEL 1 MEASURES 

Universal metering � Source-water metering � Fixed-interval meter reading � Test, calibrate, repair, and 

[B] � Service-connection � Meter-accuracy analysis replace meters 

metering and reading 

� Meter public-use water 

Water accounting � Account for water � Analyze nonaccount water � Loss-prevention program 

and loss control � Repair known leaks � Water system audit 

[A] � Leak detection and repair 

strategy 

� Automated sensors/ telemetry 

Costing and pricing � Cost-of-service � Cost analysis � Advanced pricing methods 

[B] accounting � Nonpromotional rates 

� User charges 

� Metered rates 

Information and � Understandable water � Informative water bill � Workshops 

education [B] bill � Water-bill inserts � Advisory committee 

� Information available � School program 

� Public-education program 

LEVEL 2 MEASURES 

Water-use audits � Audits of large-volume users � Selective end-use audits 

[B] � Large-landscape audits 

Retrofits [A] � Retrofit kits available � Distribution of retrofit kits 

� Targeted programs 

Pressure � Systemwide pressure � Selective use of pressuremanagement [A] management reducing valves 

Landscape � Promotion of landscape � Landscape planning and 

efficiency [P] efficiency renovation 

� Selective irrigation submetering � Irrigation management 

LEVEL 3 MEASURES 

Replacements and � Rebates and incentives 

promotions [B] (nonresidential) 

� Rebates and incentives 

(residential) 

� Promotion of new technologies 

Reuse and 

recycling [B] 

Water-use 

regulation [B] 

Integrated resource 

management [B] 

� Industrial applications 

� Large-volume irrigation 

applications 

� Selective residential 

applications 

� Water-use standards and 

regulations 

� Requirements for new 

developments 

� Supply-side technologies 

� Demand-side technologies 

[a] See Appendix A for a description of the measures. Water systems should consider at least the measures 

listed under the guidelines applying to them. 

[A] measure affects average-day demand 

[P] measure affects maximum-day (peak) demand) 

[B] measure affects both average and peak demand 

42 
USEPA Water Conservation Plan Guidelines Basic Guidelines 

U.S. Environmental Protection Agency

Water Conservation Plan Guidelines 

PART 3 

BASIC GUIDELINES FOR 

PREPARING WATER CONSERVATION PLANS 

43
USEPA Water Conservation Plan Guidelines Basic Guidelines 

These Basic Guidelines are designed for use by water systems serving populations of 

10,000 or fewer. Some water systems, especially those serving fewer than 3,300 people, 

may be included in a Capacity-Development Approach, which addresses water 

conservation through state capacity-development strategies required by the SDWA. (See 

Section 5 of Part 1.) Systems should check with their state primacy agency for information 

and guidance about capacity development. 

Which Guidelines are appropriate also may depend on various factors and conditions 

affecting water systems and their need for conservation planning. For example, smaller 

systems with constrained water supply resources may want to follow the Intermediate 

Guidelines. Water system managers should check with their own state’s rules, regulations, 

and recommendations about which Guidelines to follow. 

44
USEPA Water Conservation Plan Guidelines Basic Guidelines 

1. Specify Conservation Planning Goals

Planning Goals 

Planning goals can be developed from different 

perspectives. These Guidelines emphasize a water 

supplier perspective. Lowering water demand can help 

water suppliers avoid, downsize or postpone the 

construction and operation of supply-side facilities. 

Customers and society at large also benefit from 

conservation. Conservation benefits society by 

preserving environmental resources. Conservation can 

benefit customers by lowering energy and long-term water costs. Water conservation reduces 

demands on wastewater systems; in fact, the need to reduce wastewater treatment costs can be 

a strong rationale for water conservation. The Guidelines and the worksheets can be used to 

simultaneously address the potential effects of conservation on water and wastewater 

operations. 

Specify conservation planning 

goals in terms of expected 

benefits for the water system 

and its customers. Involve 

affected members of the 

community in the development 

of conservation planning goals 

and throughout the 

implementation process. 

Water systems should state their goals in specific terms. Measurable goals are useful for 

evaluation purposes. For example, many water systems identify a specific water-use 

reduction goal (as a percentage of current water usage). Water conservation planning goals 

may include: 

� Eliminating, downsizing, or postponing the need for capital projects. 

� Improving the utilization and extending the life of existing facilities. 

� Lowering variable operating costs. 

� Avoiding new source development costs. 

� Improving drought or emergency preparedness. 

� Educating customers about the value of water. 

� Improving reliability and margins of safe and dependable yields. 

� Protecting and preserving environmental resources. 

Managers should revisit the goals section before finalizing the conservation plan and 

periodically thereafter, because goals and the means to achieve them will evolve. As the 

water system accomplishes certain conservation goals, new objectives may emerge. 

Community Involvement 

The process of developing goals should involve community representation. Modern resource 

planning emphasizes an open process that gives all affected groups an opportunity to express 

their interests and concerns. Involving the community in goal development and 

implementation also serves an important public education function, and can greatly enhance 

45
USEPA Water Conservation Plan Guidelines Basic Guidelines 

the success of conservation programs. Members of the community who might be interested in 

water conservation include: 

� Residential water consumers � Labor groups 

� Commercial water consumers � Business and commerce groups 

� Industrial water consumers � Recreational water users 

� Wholesale customers � Agricultural users 

� Environmental groups � Educational institutions 

� Civil rights groups � Government agencies 

� Indian tribes 

In addition to helping the water system specify planning goals, community participants also 

may have an ongoing role in a system’s conservation program. Ongoing involvement helps 

maintain and build support for achieving conservation goals and “getting the word out” about 

the conservation effort. Participants can act as a focus group for exploring specific 

conservation measures (discussed in Section 4), and also can provide valuable linkages to key 

groups—consumers, businesses, and institutions—involved in implementing certain 

conservation measures. Participants also can offer input on the level of satisfaction with the 

system’s programs. Finally, community groups can assist the water system in monitoring 

results and adjusting program implementation. 

For many water systems, involving the community in water system planning will be a new 

experience. Community involvement does not have to consume excessive time or resources. 

Even a few “town hall” meetings or “brainstorming” sessions can be helpful. Most system 

managers will find that involving members of the community in developing goals, 

implementing programs, and evaluating results is a very worthwhile investment. Fortunately, 

guidance on this approach is available.1 

1

 See Public Involvement Strategies: A Manager's Handbook (Denver, CO: American Water Works Association 

Research Foundation, 1996). 

46
USEPA Water Conservation Plan Guidelines Basic Guidelines 

2. DEVELOP A WATER SYSTEM PROFILE

Developing a system profile by taking inventory of 

existing resources and conditions helps systems assess 

their present circumstances and design strategies to 

meet emerging needs. Most systems should maintain 

the information necessary for building a profile. Much 

information may already have been compiled for a 

facility plan or for other purposes. 

Systems can use Worksheet 3-1 to compile and present 

a system profile. The profile may be expanded to 

include additional information, for example, data on trends for some characteristics (such as 

supply and demand measures) that help describe the system. The first part of the worksheet 

lists system characteristics. 

Summarize the service and 

operating characteristics of the 

water system. Provide an 

overview of conditions and a 

description of climate, water 

availability, or other factors 

that might affect water 

conservation planning. 

The second part of the worksheet provides an overview of conditions that might affect the 

conservation planning effort. This checklist can be used to review conditions affecting the 

supply or demand for water, focusing on conditions that most affect your system. The 

conditions outlined in the worksheet suggest the need for water conservation planning. While 

all water systems can benefit from efficiency improvements, water conservation is especially 

beneficial for systems experiencing water shortages or rapid increases in demand. 

For some conditions, states might provide benchmark measures that water systems can use for 

comparison purposes. For example, a state might have specific criteria for defining critical 

use or stressed areas, for classifying per-capita water use, or for identifying the age of 

systems. Systems should try to compare significant conditions using generally accepted 

measures. 

The last part of the worksheet is provided so that water systems can describe their current 

water conservation activities and programs. 

47
USEPA Water Conservation Plan Guidelines Basic Guidelines 

Worksheet 3-1: Water System Profile

SUMMARIZE SYSTEM CHARACTERISTICS 

A SERVICE CHARACTERISTICS Number 

1 Estimated service population 

2 Estimated service area (square 

miles) 

B ANNUAL WATER SUPPLY Annual volume Percent metered 

3 Total annual water supply % 

C SERVICE CONNECTIONS Connections Percent metered 

4 Residential, single-family % 

5 Other % 

6 Total connections % 

C WATER DEMAND Annual volume Percent of total Per connection 

7 Metered residential sales 

8 Metered nonresidential sales 

9 Other metered sales 

10 Unmetered sales 

11 Nonaccount water [a] 

12 Total system demand (total use) 

D AVERAGE & PEAK DEMAND Volume 

Total supply 

capacity 

Percent of total 

capacity 

13 Average-day demand % 

14 Maximum-day demand % 

F PRICING 

Rate structure [b] Metering 

schedule [c] 

Billing 

schedule [c] 

15 Residential rate 

16 Nonresidential rate 

17 Other rate 

G PLANNING 

Prepared a 

plan �	

Date Filed with state �	

18 Capital, facility, or supply plan 

19 Drought or emergency plan 

20 Water conservation plan 

(Worksheet continues) 

48 
USEPA Water Conservation Plan Guidelines Basic Guidelines 

Worksheet 3-1 (continued) 

SUMMARIZE SYSTEM CONDITIONS 

H PLANNING QUESTIONS Yes No Comment 

21 Is the system in a designated critical water supply 

area? 

22 Does the system experience frequency shortages or 

supply emergencies? 

23 Does the system have substantial unaccounted-for 

and lost water? 

24 Is the system experiencing a high rate of population 

and/or demand growth? 

25 Is the system planning substantial improvements or 

additions? 

SUMMARIZE CURRENT CONSERVATION ACTIVITIES 

Approximate 

annual Is continued 

water savings Implemented implementation 

Water conservation measures [if known] since (date) planned? 

[a] Nonaccount water is water not metered and sold to customers (including authorized and unauthorized uses). 

See Appendix A, figure A-7 and Worksheet A-2. 

[b] Uniform, increasing-block, decreasing-block, seasonal, or other. 

[c] Quarterly, monthly, or other. 

49 
USEPA Water Conservation Plan Guidelines Basic Guidelines 

3. PREPARE A DEMAND FORECAST

Forecasting water use (or demand) can range from 

simple projections based on anticipated population 

growth to complex models. Forecasts can be made for 

the water system as a whole; however, forecasts are 

more accurate when they are prepared for separate 

classifications of water use. 

Prepare forecasts for five-year and ten-year time 

points. Additional time points can be used as well. 

The longer the planning horizon, the greater will be 

the uncertainty of the forecast. Forecasts should be 

revisited and updated on a regular basis. 

Prepare a forecast of 

anticipated water demand for 

selected time periods. To the 

extent practical, the planner 

should take into account 

variations in demand based on 

type of water usage, as well as 

perform a “what if” (sensitivity) 

analysis. 

The demand forecast should recognize the effects of conservation measures already 

implemented. However, for the purposes of this conservation plan, anticipated demand 

effects from measures contemplated in the plan should not be included. 

This section of the plan is optional if the population served by the water system is not growing 

at a rate of more than 2 percent per year (or another population-growth benchmark specified 

by the state). Additionally, it is not necessary for systems to prepare a separate forecast for 

the purposes of this plan if a forecast has already been prepared for the system within the 

suggested time frame. Managers should include the results of such forecasts in this plan. 

Worksheet 3-2 provides a simple water demand forecasting methodology based on 

population. This method is reasonable for water systems that have little variation within their 

service populations (such as systems that serve only single-family residential customers in 

comparable housing) and stable water-use characteristics. The method calculates per capita 

water use and multiplies the result by projected population levels. Projected water use is 

compared to system capacity to calculate the anticipated surplus or shortage. Any 

adjustments to the forecasts for known and measurable factors that might affect demand 

should be explained. Worksheet 3-2 also provides a method for estimating average-day and 

maximum-day demand. 

An alternative to calculating water use on a per-capita basis is to calculate water use on a perconnection (or per-household) basis. (Managers often use the median number of persons per 

household to make conversions.) For forecasting purposes, per-connection water use is 

multiplied by the number of current and projected connections (such as residential 

households). It may be easier to project households based on land-use planning data and 

construction estimates. 

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USEPA Water Conservation Plan Guidelines Basic Guidelines 

Care should be taken in using the per-capita or per-connection approach to forecasting, 

particularly if the service population is varied. Separate forecasts should be prepared for 

large-volume water users (such as a large industrial plant). When one large-volume user 

begins, changes, or terminates service from a relatively small utility, the effects can be felt 

throughout the utility’s operations. Plant managers can be consulted about projected water 

needs for the industrial sector. 

The per-capita and per-connection methods of forecasting have limitations. They assume that 

water use is essentially a function of population or changes in the number of connections and 

that usage patterns will not change with time. For example, customers are not expected to 

install water-saving fixtures or respond to future changes in rates. For this reason, managers 

should include a brief assessment of factors that could affect the level or pattern of demand in 

their service territory. 

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USEPA Water Conservation Plan Guidelines Basic Guidelines 

Worksheet 3-2: Water Demand Forecast [a] 

Line Item Current 

Year 

5-Year 

Forecast 

10-Year 

Forecast 

A TOTAL ANNUAL WATER DEMAND 

1 Current total annual water demand (from Worksheet 3-1) 

[a] 

2 Current population served [b] 

3 Total water demand per capita (line 1 divided by line 2) 

[b] 

4 Projected population [b] 

5 Projected total annual water demand (line 3 multiplied by 

line 4) 

6 Adjustments to forecast (+ or -) [c] 

7 Adjusted total annual water demand (line 5 plus line 6) 

8 Current annual demand (line 1) and adjusted annual water 

demand forecast (line 7 for forecast years) 

9 Current and projected annual supply capacity (from 

Worksheet 3-1) [d] 

10 Difference between total annual water demand and total 

annual supply capacity (+ or -) (subtract line 8 from line 9) 

B AVERAGE-DAY AND MAXIMUM-DAY DEMAND 

11 Current and forecast average-day demand (line 8 divided 

by 365) 

12 Current maximum-day demand (from Worksheet 3-1) 

13 Maximum-day to average-day demand ratio (line 12 

divided by line 11) 

14 Projected maximum-day demand (line 13 multiplied by 

line 11 for all forecast years) 

15 Adjustment to maximum-day demand forecast [c] 

16 Current (line 12) and adjusted maximum-day demand 

forecast (add lines 14 and 15) 

17 Daily supply capacity (line 9 divided by 365) 

18 Ratio of maximum-day demand to daily supply capacity 

(line 16 divided by line 17) 

[a] Separate forecasts should be prepared for large-volume users, as well as for nonaccount water (water 

not billed to customers) if nonaccount water is a significant amount (such as more than 10 percent of 

total production). 

[b] Managers can use connections instead of population and per-connection water use instead of per-capita 

water use. 

[c] Please explain adjustments to your forecast (lines 6 and 15), including effects of installed conservation 

measures and rate changes. 

[d] Supply capacity should take into account available supplies (permits), treatment capacity, or 

distribution system capacity and reflect the practical total supply capacity of the system, including 

purchased water. 

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USEPA Water Conservation Plan Guidelines Basic Guidelines 

4. IDENTIFY AND EVALUATE CONSERVATION 

MEASURES 

Conservation Measures 

Water systems have a wide selection of specific 

conservation measures at their disposal. These 

measures include both supply-side and demand-side 

management techniques for saving water, and range 

from relatively simple educational tools to advanced 

water-efficient technologies. Use of any particular 

measure depends on whether it meets cost-effectiveness 

and other planning criteria and whether its use complies 

with applicable laws and regulations, including state 

and local plumbing codes. 

The conservation measures identified in Table 2-3 of 

the Overview are organized into three levels: Level 1, Level 2, and Level 3. Each level 

includes four categories of measures. Specific water conservation measures are identified 

within each category. The number of specific measures included in each level expands from 

the Basic to the Intermediate and from the Intermediate to the Advanced Guidelines. In other 

words, the measures are cumulative. Appendix A provides additional information and several 

worksheets on the conservation measures. 

Identify the conservation 

measures that have been 

implemented, are planned, or 

are not planned. Provide an 

explanation for why 

recommended measures are not 

planned for the water system. 

For each measure chosen, 

estimate total implementation 

costs (dollars) and anticipated 

water savings (volume) and 

assess the cost effectiveness of 

the measure. 

All water systems, regardless of their size or the conditions under which they operate, should 

consider the very fundamental and widely accepted practices identified under Level 1. The 

measures in Levels 2 and 3 generally are considered appropriate for systems with significant 

conservation needs and interests. Managers are encouraged to explore the full range of 

potential conservation measures for their systems. Many systems will find it beneficial to 

expand their conservation programs beyond the minimum set of measures. 

Review of Measures 

The minimum list of measures recommended for consideration appears in Worksheet 3-4. 

Systems should use the checklist to review and summarize the measures that are currently 

implemented, planned, or not planned at this time. Managers also can identify additional 

measures and practices as they develop their conservation plans 

Measures should be selected on the basis of how well they can help the system achieve water 

savings, program costs, and other factors that are important to the water system. The planning 

document should discuss the criteria used in selecting the conservation measures and provide 

a summary of the results in terms of the measures planned for actual implementation. 

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USEPA Water Conservation Plan Guidelines Basic Guidelines 

The first step in the selection process is to identify criteria for evaluating the conservation 

measures. The cost-effectiveness of the measures is one criterion, but other factors should be 

considered as well. Managers are free to consider as many selection criteria as they believe 

are appropriate, but the relevance of the criteria should be explained in the conservation plan. 

The criteria that can be used in selecting conservation measures for implementation may 

include: 

� Program costs � Environmental and social justice 

� Cost-effectiveness � Water rights and permits 

� Ease of implementation � Legal issues or constraints 

� Budgetary considerations � Regulatory approvals 

� Staff resources and capability � Public acceptance 

� Environmental impacts � Timeliness of savings 

� Ratepayer impacts � Consistency with other programs 

For each selection criterion, managers should identify whether, how, and why the factor 

affects the feasibility of implementing one or more conservation measures. Some factors 

might be more important than others. Planners also may want to bear in mind that techniques 

can be used to mitigate adverse effects and improve acceptance of measures. A cost-effective 

conservation measure should not be dismissed without careful consideration of how barriers 

to implementation might be overcome. 

Budget 

Developing a budget for each conservation measure is an invaluable part of the planning 

process. A simplified cost-effectiveness analysis can also be used to compare alternative 

conservation measures in terms of dollars per gallon of water saved. For example, one 

measure might produce savings at the rate of $.25/1,000 gallons while another produces 

savings at a cost of $.50/1,000 gallons. 

Worksheet 3-3 should be completed for each planned conservation measure. In some cases, 

managers may want to combine measures based on the conservation program they envision. 

All interrelated measures that are expected to result in an identifiable amount of water 

savings should be combined and treated as one measure in order to avoid counting the 

planned water savings more than once in the analysis. 

Worksheet 3-3 begins with an open-ended description of the measure. The anticipated life 

span for the measure should be indicated. Managers also should indicate whether the measure 

is targeted toward reduction in average-day demand, maximum-day demand, or both. A 

method for summing the total budget needed for implementing the measure is provided. All 

costs associated with implementation should be included. Managers should ascertain 

reasonable cost estimates by potential vendors whenever possible. Several different types of 

costs as indicated on the worksheet should be analyzed. When estimating costs, a realistic 

54
USEPA Water Conservation Plan Guidelines Basic Guidelines 

implementation schedule should be considered. Any special circumstances affecting the 

schedule or cost of implementing the proposed measures should be discussed in the plan. 

Worksheet 3-3 also includes a method for estimating annual water savings and total life-span 

savings that can be achieved by the measures. For each measure, the method used to calculate 

anticipated water savings should be provided. This might include, for example, a formula for 

converting daily per capita savings to annual savings. In some cases (such as a leakage 

control program), it might not be feasible to estimate savings for each unit, in which case total 

annual savings for the entire measure are sufficient. Cost per gallon of water saved can be 

used to compare conservation measures and to compare conservation to supply-side options. 

If a system chooses not to implement any of the minimum measures, a complete explanation 

should be provided in the plan. If perceived costs and benefits are among the reasons for 

rejecting a measure a supporting analysis should be provided. This analysis can be based on a 

comparison of implementation costs to the system’s average annual cost of production (or 

revenue requirements). Planners can consult the Intermediate Guidelines for more 

information about benefit-cost and cost-effectiveness analysis. 

Conservation measures that affect the demand side of the water system have the effect of 

reducing water sales and utility revenues usually are a function of the quantity of water sold 

and the rate charge (per unit of water sold). Because revenue sufficiency plays an important 

role in ensuring the capacity of the water system, managers should consider conservation 

effects on revenues. The conservation plan should briefly address how planned conservation 

measures will affect water utility revenues (based on reduction in sales) and discuss strategies 

for addressing these revenue effects. 

Summary 

The plan should summarize and describe in general terms the range of conservation measures 

planned for implementation and the anticipated benefits, including effects on planned capital 

facility projects (if applicable). Measures planned for implementation can include Level 2 

and Level 3 measures. The plan should discuss whether conservation can help the system 

avoid, downsize, or defer capital expenditures. The Intermediate Guidelines also provide 

some guidance on this issue. 

The process of selecting measures can be summarized in Worksheet 3-4. For each 

recommended measure, managers should indicate whether the measure was selected for 

implementation. Managers also should identify the primary reason or reasons for selecting or 

rejecting the measure. Special conditions or actions that are required before a selected 

measure can be implemented (such as an approval from regulators) should be noted. In some 

cases, managers may conclude that a measure (or measures) cannot be implemented because 

of a constraint that exists in the short term. Conservation measures that might be planned for 

future implementation, once constraints are resolved, should be discussed in the plan. 

55
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USEPA Water Conservation Plan Guidelines Basic Guidelines 

Worksheet 3-3: Budget and Savings for Each Conservation 

Measure 

Describe planned conservation measure: 

Typical water savings from the measure: ________________ per _________________ 

Number of planned installations: 

Anticipated life span for the measure: ________________ years 

The measure is designed to reduce: � Average-day demand 

� Maximum-day demand 

� Both average-day and maximum-day demand 

Line Item Amount Amount 

A BUDGET FOR EACH MEASURE [a] Per unit [b] 

Total cost of the 

measure 

1 Materials $ $ 

2 Labor 

3 Rebates or other payments 

4 Marketing and advertising 

5 Administration 

6 Consulting or contracting 

7 Other 

8 Total program cost for the life of the measure (add lines 1 

through 7) [c] 

$ 

B TOTAL SAVINGS 

9 Number of units to be installed [d] 

10 Anticipated annual water savings per unit in gallons [e] 

11 Total annual savings for the measure in gallons (multiply 

line 9 by line 10) 

12 Expected life span for the measure in years 

13 Total life span savings for the measure in gallons (multiply 

line 11 by line 12) 

14 Cost per gallon of water saved (divide line 8 by line 13) $ /gallon 

[a] A separate analysis should be performed for each conservation measure, but measures can be combined if 

they jointly produce water savings. 

[b] Examples of a unit are a toilet, a retrofit kit, and an audit. A unit estimate may not be appropriate for each 

measure, in which case total program water savings and costs for the measure can be used. 

[c] Include all recurring operation and maintenance costs over the life of the measure. 

[d] Units can be individual product units (such as toilets) or groups of products (such as household retrofits), as 

long as the analysis is consistent. Leave blank if unit values do not apply. 

[e] For example, water savings per retrofit. See Appendix B for benchmarks and sample calculations. Leave 

blank if unit values do not apply. 

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USEPA Water Conservation Plan Guidelines Basic Guidelines 

Worksheet 3-4: Selection of Conservation Measures

Line Measure 

Already implemented �	

Plan to implement �	

Primary criteria for selecting or rejecting 

the conservation measure for 

implementation [a] 

Universal metering [B] 

1 Source-water metering 

2 Service-connection metering 

3 Meter public-use water 

Water accounting and loss control [A] 

4 Account for water 

5 Repair known leaks 

Costing and pricing [B] 

6 Cost-of-service accounting 

7 User charges 

8 Metered rates 

Information and education [B] 

9 Understandable water bill 

10 Information available 

Other Measures [b] 

11 

12 

13 

14 

15 

16 

17 

18 

19 

20... 

[a] This space may also be used to note special issues related to this measure, including legal or 

obstacles to its use that preclude further consideration. 

[b] See Appendix A for additional information on water conservation measures. 

[A] = measure affects average-day demand 

[P] = measure affects maximum-day (peak) demand) 

[B] = measure affects average and peak demand 

57 
USEPA Water Conservation Plan Guidelines Basic Guidelines 

5. Present Implementation Strategy

In this final step in the conservation planning process, 

the water system specifies its strategy and timetable for 

implementation. It can be emphasized, however, that 

conservation planning will require an ongoing effort on 

the part of water utility managers. Ongoing planning 

and implementation will go hand in hand. 

Present a strategy and timetable 

for implementing and assessing 

conservation measures and 

other elements of the 

conservation plan. 

In the implementation strategy, managers should make note of any specific factors or 

contingencies that might affect or prevent the implementation of specific measures. For 

example, if a measure cannot be implemented prior to obtaining a special permit or other 

authority, this fact should be noted along with an explanation of the strategy for obtaining the 

necessary authority. Some measures might require implementation actions that take place 

over several years (in order to sustain conservation savings). The plan should provide 

sufficient detail to understand the utility’s strategy with regard to implementing such 

measures. 

Worksheet 3-5 is a simple template for summarizing the water system’s implementation and 

evaluation strategy for the conservation plan. A plan for public involvement should discuss 

how and when the water system intends to involve members of the community in the 

development and implementation of the conservation plan. Systems may want to plan regular 

communications (meetings and mailings) with community groups to keep them informed of 

the system’s progress in meeting goals. 

A plan for monitoring and evaluation should address data collection, modeling, and other 

issues that will be important in tracking the effects of water conservation on demand over 

time. The system may want to collect new kinds of data for monitoring purposes as well as 

for future forecasting needs. Many systems might find, for example, that more detailed data 

on demand by customer class are needed, including more detail on contributions to averageday and maximum-day demands. More detailed data might also be needed to assess trends in 

nonaccount water. 

A plan for updates and revisions will help keep the system’s conservation plan current over 

time and account for the system’s actual experience with conservation. Updating forecasts of 

water demand and supply capacity as new data become available is especially important. In 

some cases, the system might want to revise or expand its planning goals. Many systems 

update plans every five years. However, changing conditions or other concerns might justify 

more frequent updates. The schedule of updates and revisions might be affected by state or 

local requirements for conservation planning by the water system. 

The conservation planning document also should include a record of the plan’s adoption by 

the water system’s governing body (such as a Board of Directors or City Council), as 

appropriate. 

58
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USEPA Water Conservation Plan Guidelines Basic Guidelines 

Worksheet 3-5: Implementation Strategy

A. PUBLIC INVOLVEMENT 

Describe plan for public involvement: 

B. MONITORING AND EVALUATION 

Describe plan for monitoring and evaluation: 

Describe plan to collect water demand data: 

C. PLAN UPDATES 

Describe plan for updates and revisions: 

D. ADOPTION OF THE PLAN 

Date plan completed: _________________________________________________ 

Date plan approved: _________________________________________________ 

Approved by [governing body]: _________________________________________________ 

Signature: _________________________________________________ 

59
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[blank page] 

60
USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

U.S. Environmental Protection Agency

Water Conservation Plan Guidelines 

PART 4 

INTERMEDIATE GUIDELINES FOR 

PREPARING WATER CONSERVATION PLANS 

61
USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

These Intermediate Guidelines are designed for water systems serving between 10,000 and 

100,000 people. Which Guidelines are appropriate may depend on various factors and 

conditions affecting water systems and their need for conservation planning. 

mid-sized systems with constrained water supply resources may want to follow the 

Advanced Guidelines. Water system managers should check with their own state’s rules, 

regulations, and recommendations about which Guidelines to follow. 

For example, 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

1. SPECIFY CONSERVATION PLANNING GOALS

Planning Goals 

Planning goals can be developed from different 

perspectives. These planning Guidelines, including 

the analysis of the benefits and costs of conservation 

activities, emphasize a water supplier perspective. 

The value of conservation is defined primarily in terms 

of avoided supply-side costs to the water system. 

Lowering the level of water demand can help water 

suppliers avoid, downsize, or postpone the 

Specify conservation planning 

goals in terms of anticipated 

benefits for the water system 

and its customers. To the extent 

practical, involve affected 

members of the community in 

the development of conservation 

planning goals and throughout 

the implementation process. 

construction and operation of costly supply-side 

facilities. 

The benefits of conservation also can be understood from the perspectives of customers, as 

well as society at large. Conservation benefits society by preserving environmental resources. 

Conservation can benefit customers by lowering energy and long-term water costs. Water 

conservation reduces demands on wastewater systems; in fact, the need to reduce wastewater 

treatment costs can be a strong rationale for water conservation. The Guidelines and the 

worksheets can be used to simultaneously address the potential effects of conservation on 

water and wastewater operations. 

Conservation planning goals can take many forms. Water systems should state their goals in 

specific terms. Measurable goals are useful for evaluation purposes. For example, many 

water systems identify a specific water-use reduction goal (as a percentage of current water 

usage). 

Water conservation planning goals may include: 

� Eliminating, downsizing, or postponing the need for capital projects. 

� Improving the utilization and extending the life of existing facilities. 

� Lowering variable operating costs. 

� Avoiding new source development costs. 

� Improving drought or emergency preparedness. 

� Educating customers about the value of water. 

� Improving reliability and margins of safe and dependable yields. 

� Protecting and preserving environmental resources. 

Planners should plan on revisiting the goals section before finalizing the conservation plan 

and periodically thereafter, because goals and the means to achieving them will evolve. As 

the water system accomplishes certain conservation goals, new objectives may come into 

focus. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Community Involvement 

The process of developing goals can involve representatives of various groups in the 

community (or stakeholders) who may be concerned about a water system and its future. 

Modern resource planning (such as integrated resource planning) emphasizes an open process 

that involves all affected groups so that they can have an opportunity to express their interests 

and concerns. 

Involving the community in goal development also serves an important public education 

function. Moreover, it is widely believed that involving the community in developing goals, 

as well as in the implementation process, can greatly enhance the success of conservation 

programs. 

Members of the community who might be interested in water conservation include: 

� Residential water consumers � Labor groups 

� Commercial water consumers � Business and commerce groups 

� Industrial water consumers � Recreational water users 

� Wholesale customers � Agricultural users 

� Environmental groups � Educational institutions 

� Civil rights groups � Government agencies 

� Indian tribes 

In addition to helping the water system specify planning goals, community participants also 

can have an ongoing role in a system’s conservation program. Ongoing involvement can help 

maintain and build support for achieving conservation goals and “get the word out” about the 

conservation effort. Participants can act as a focus group for exploring specific conservation 

measures (discussed in Section 4). Participants also can provide valuable linkages to key 

groups—consumers, businesses, and institutions—who might be involved in implementing 

certain conservation measures. Participants also can provide input on the level of satisfaction 

or dissatisfaction with the system’s programs. Finally, community groups can assist the water 

system in monitoring results and adjusting program implementation. 

For many water systems, involving the community in water-system planning will be a new 

experience. However, most system managers will find that involving members of the 

community in developing goals, implementing programs, and evaluating results is a very 

worthwhile investment. Fortunately, guidance on this approach is available.1 

1

 See Public Involvement Strategies: A Manager's Handbook (Denver, CO: American Water Works Association 

Research Foundation, 1996). 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

2. DEVELOP A WATER SYSTEM PROFILE

System Profile 

Taking inventory of existing resources and conditions 

is an important step in the planning process. A water 

system profile can help systems assess their present 

circumstances and design strategies to meet emerging 

needs. 

Most water systems should maintain the data and 

information necessary for building a system profile. 

Much information may already have been compiled 

for a facility plan or for other purposes. Worksheet 4-1 profiles a relatively simple summary 

table that systems can use to compile and present key system characteristics. The system 

profile can be expanded to include additional information. For example, systems may want to 

present data on trends for some characteristics (such as supply and demand measures). 

Systems should include in their profile additional characteristics or details considered relevant 

for understanding the nature of the system. 

Summarize the service and 

operating characteristics of the 

water system. Provide an 

overview of conditions and a 

description of climate, water 

availability, or other factors 

that might affect water 

conservation planning. 

System Conditions 

Worksheet 4-2 provides a very simple overview of planning conditions that might affect the 

water system and its conservation planning effort. This checklist can be used to make a 

general review of conditions affecting the supply or the demand for water. For planning 

purposes, it is important to identify and focus on the conditions that most affect a particular 

system. 

The conditions outlined in the worksheet suggest the need for water conservation planning. 

While all water systems can benefit from efficiency improvements, water conservation can be 

especially beneficial for systems experiencing water shortages or rapid increases in demand. 

For example, water systems facing one or more of the following conditions are strongly urged 

to consider the fullest range of conservation measures available to them in accordance with 

these guidelines: 

� Systems in state-designated critical water or stressed areas 

� Systems experiencing frequent droughts, emergencies, or safe yield problems 

� Systems with excessive unaccounted-for water or water losses 

� Systems entering into major construction cycles 

� Systems anticipating rapid growth in water demand 

For some conditions, states might provide benchmark measures that water systems can use for 

comparison purposes. For example, a state might have specific criteria for defining critical 

65
USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

use or stressed areas, for classifying per-capita water use, or for identifying the age of 

systems. When practical, systems should try to compare significant conditions using 

generally accepted measures. 

In addition to the summary worksheet, planners also should prepare a brief written discussion 

of the significant conditions affecting their systems. Particular attention can be paid to 

climate and water availability, but other factors affecting the system can be considered as 

well. This information can be used to help systems identify problems and opportunities 

throughout the planning process. 

Current Conservation Efforts 

Worksheet 4-3 is provided so that water systems can describe their current water conservation 

activities and programs. For each conservation measure implemented, planners can indicate 

the approximate annual water savings achieved, when implementation for the measure began, 

and whether continued implementation is planned. Any other pertinent information on 

current efforts and their effectiveness can be provided in the plan as well. 

66
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2 

3 

4 

5 

6 

USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-1: Water System Profile 

A SERVICE CHARACTERISTICS Number 

Estimated service population 

Estimated service area (square miles) 

Miles of mains 

Number of treatment plants 

Number of separate water systems 

Interconnection with other systems 

Number of intakes Percent 

B ANNUAL WATER SUPPLY Annual volume or source points metered 

7 Groundwater % 

8 Surface water % 

9 Purchases: raw % 

10 Purchases: treated % 

11 Total annual water supply % 

Percent 

C SERVICE CONNECTIONS Connections Water sales metered 

12 Residential, single-family % 

13 Residential, multi-family % 

14 Commercial % 

15 Industrial % 

16 Public or governmental % 

17 Wholesale % 

18 Other % 

19 Total connections % 

D WATER DEMAND Annual volume Percent of total Per connection 

20 Residential sales 

21 Nonresidential sales 

22 Wholesale sales 

23 Other sales 

24 Nonaccount water: authorized uses 

25 Nonaccount water: unauthorized uses 

26 Total system demand (total use) 

Total supply Percent of total 

E AVERAGE & PEAK DEMAND Volume capacity capacity 

27 Average-day demand % 

28 Maximum-day demand % 

29 Maximum-hour demand % 

Metering Billing 

F PRICING Rate structure frequency frequency 

30 Residential rate 

31 Nonresidential rate 

32 Other rate 

Prepared a Filed with state 

G PLANNING plan �	 Date �	

33 Capital, facility, or supply plan 

34 Drought or emergency plan 

35 Water conservation plan 

67 
USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-2: Overview of System Conditions [a] 

Increasing need for conservationfififi Don’t 

Line Conditions Check applicable description �	 know �	

A CLIMATE AND WATER AVAILABILITY 

1 Average precipitation High � Moderate � Low � � 

2 Average temperatures Low � Moderate � High � � 

3 Critical supply areas No � At risk � Yes � � 

4 Competing water uses No � Possibly � Yes � � 

5 Environmental constraints No � Possibly � Yes � � 

6 Quality/quantity concerns No � Possibly � Yes � � 

7 Seasonal variations in climate Low � Moderate � High � � 

8 Instream flow problems Low � Moderate � High � � 

9 Shortage or emergency frequency Low � Moderate � High � � 

B INFRASTRUCTURE CONDITIONS 

10 Age of the system Newer � Middle � Older � � 

11 General condition of system Good � Fair � Poor � � 

12 Water losses and leaks Low � Moderate � High � � 

13 Unaccounted-for water Low � Moderate � High � � 

14 Safe yield of supply exceeded No � At risk � Yes � � 

15 Wastewater discharges exceeded No � At risk � Yes � � 

16 Wastewater capacity exceeded No � At risk � Yes � � 

17 Potential for recycling and reuse Low � Moderate � High � � 

18 Improvement plans Low � Moderate � High � � 

19 Anticipated investment Low � Moderate � High � � 

C SYSTEM DEMOGRAPHICS 

20 Rate of population growth per year Low � Moderate � High � � 

21 Rate of demand growth per year Low � Moderate � High � � 

22 Rate of economic growth per year Low � Moderate � High � � 

23 Per capita water use (by class) Low � Moderate � High � � 

24 Ratio of peak to average demand Low � Moderate � High � � 

25 Presence of large-volume users Low � Moderate � High � � 

D OTHER FACTORS 

26 �

27 � 

28 � 

[a] Specific (quantified) benchmarks for these indicators may be provided by the state. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-3: Current Water Conservation Activities 

Summarize the system’s current water conservation activities/programs: ____________ 

Approximate 

annual Is continued 

water savings Implemented implementation 

Water conservation measures [if known] since (date) planned? 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

3. PREPARE A DEMAND FORECAST

Demand Forecasting 

Forecasting water use (or water demand) is a critical 

part of the planning process. Forecasts can range from 

simple projections based on anticipated growth in the 

population to complex models using several variables to 

explain variations in water use. Forecasts can be made 

for a water system as a whole; however, forecasts are 

considered more accurate when they are prepared for 

separate classifications of water use or sectors. 

Prepare a forecast of 

anticipated water demand for 

selected time periods. To the 

extent practical, the planner 

should take into account 

variations in demand based on 

type of water usage, as well as 

perform a “what if” (sensitivity) 

analysis. 

The Guidelines suggest that planners prepare forecasts for five-year, ten-year, and twentyyear intervals. Additional time points can be used as well. The longer the planning horizon, 

the greater will be the uncertainty of the forecast. Forecasts should be revisited and updated 

on a regular basis. 

The forecast should recognize the effects of conservation measures already implemented. The 

forecast also should recognize the demand effects of plumbing efficiency standards 

established under the 1992 Energy Policy Act (see Appendix B, Tables B-5 and B-6).2 New 

construction and renovations will not contribute as much to total demand as in the past; 

systems that are not experiencing growth might detect declines in demand due to these effects. 

For the purposes of this conservation plan, anticipated demand effects from measures 

contemplated in the plan should not be included. A revision to the demand forecast based on 

implementing the planned conservation measures is made in Section 8 (Worksheet 4-12). 

It is not necessary for systems to prepare a separate forecast for the purposes of this plan if a 

forecast has already been prepared for the system within a reasonable time frame. Planners 

should include the results of their forecasts in this plan. 

Forecasting Method 

Systems following the Intermediate Guidelines should use, at a minimum, the forecasting 

technique provided in Worksheet 4-4. This approach separates (at a minimum) residential 

and nonresidential customers. The forecast can be made on a per-capita or per-connection 

basis. However, for the nonresidential sector, planners should use employees, jobs, or another 

appropriate explanatory variable. 

2

 A method for estimating the demand effect of efficient fixtures can be found in Amy Vickers, “The Energy 

Policy Act: Assessing its Impact on Utilities.” Journal American Water Works Association (August 1993): 56­

62. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

The water demand forecast can be refined by considering customer classifications. For 

example, the nonresidential class can be subdivided into the commercial and industrial classes 

(as well as wholesale water customers). A separate forecast also should be prepared for 

nonaccount water, or water that does not produce revenues for the system. Nonaccount water 

includes authorized uses of water, as well as losses and leaks. (Worksheet A-2 in Appendix A 

can be helpful in understanding nonaccount water and water losses). Planners also should 

estimate average-day and maximum-day demand over the planning horizon. As discussed in 

Section 4, different types of supply-side facilities are designed to meet water demands (peak 

or average), and various conservation measures target different types of demand. 

Each of the forecasts should be subjected to a basic “what if” analysis to address potentially 

important changes in the level or pattern of water demand. The forecasts should take into 

account and the plan should explain any known, planned, or measurable changes that will 

affect demand, with the exception of the conservation measures contemplated in these 

guidelines. Adjustments to the forecast based on expected savings from conservation will be 

made in Section 8 (Worksheet 4-12). 

This method of forecasting also is very simple and limited. While it takes into account 

variation in water-use by customer class, the method also assumes that unit use (use per 

person, household, place of business, and so on) does not vary over time. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-4: Preliminary Water Demand Forecast [a] 

Line Item 

Current 

year 

5-year 

forecast 

10-year 

forecast 

20-year 

forecast 

A RESIDENTIAL DEMAND 

1 Current annual water residential sales (total gallons) 

2 Current population served [b] 

3 Residential sales per capita (line 1 divided by line 2) [b] 

4 Projected population [b] 

5 Projected annual residential water demand (line 3 

multiplied by line 4) 

B NONRESIDENTIAL DEMAND [C] 

6 Current annual water nonresidential sales (total gallons) 

7 Current number of employees or jobs [c] 

8 Water use per employee or job (line 6 divided by line 7) 

9 Projected number of employees or jobs 

10 Projected annual nonresidential water demand (line 8 

multiplied by line 9) 

C NONACCOUNT WATER (WATER NOT SOLD TO CUSTOMERS) 

11 Current and forecast amount [d] 

D WATER SYSTEM TOTAL DEMAND 

12 Current total annual water demand (add lines 1, 6, and 

11) 

13 Projected total annual water demand (add lines 5, 10, and 

11) 

14 Adjustments to forecast (+ or -) 

15 Current (line 12) and adjusted total annual water demand 

forecast (add lines 13 and 14) [e] 

16 Current and projected annual supply capacity [f] 

17 Difference between total use and total supply capacity (+ 

or -) (subtract line 12 from line 15) 

E AVERAGE-DAY AND MAXIMUM-DAY DEMAND 

18 Average-day demand (line 15 divided by 365) 

19 Current maximum-day demand 

20 Maximum-day to average-day demand ratio (line 20 

divided by line 19) 

21 Projected maximum-day demand (line 18 multiplied by 

line 20 for all forecast years) 

22 Adjustment to maximum-day demand forecast [e] 

23 Current (line 19) and adjusted maximum-day demand 

forecast (add lines 21 and 22) 

24 Daily supply capacity (divide line 16 by 365) 

25 Ratio of maximum-day demand to daily supply capacity 

(divide line 23 by line 24) 

[a] Separate forecasts should be prepared for large-volume users. 

[b] Planners can chose to use service connections or households instead of population and per-connection water use 

instead of per-capita water use. 

[c] Explanatory variables other than employees or jobs can be used as appropriate. The forecast should be 

disaggregated by sector of water use to the greatest extent possible (for example, commercial and industrial water 

use and nonaccount water) and a qualitative sensitivity analysis (“what if”) should be performed for each sector’s 

forecast. 

[d] Please provide an explanation of the forecast of nonaccount water, including all relevant assumptions. 

[e] Please provide an explanation of adjustments to your forecasts, including all relevant assumptions. 

[f] Supply capacity should take into account available supplies (permits), treatment capacity, and distribution system 

capacity and reflect the practical total supply capacity of the system, including purchased water. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

4. DESCRIBE PLANNED FACILITIES

Supply Forecasting 

In this part of the conservation plan, planners are asked 

to prepare an estimate of supply costs based on meeting 

the level of water demand specified in the unadjusted 

demand forecast (that is, unadjusted for additional 

conservation). This is a critical part of the analysis 

because it establishes the anticipated cost of supply-side 

improvements and additions and this cost estimate will 

be used to represent the value of conservation or 

demand-side activities. 

Because the benefits of conservation extend into the future it is important to take a forwardlooking approach to supply costs. The concept of marginal or incremental cost captures the 

idea that the “true” value of a supply resource can be measured in terms of the cost of the next 

increment of supply. If only high-cost supplies are available, the marginal or incremental cost 

will be high. For many communities, future increments of supply will be very costly. The 

value of a conserved amount of water at a future point in time will be equivalent to the most 

costly supply option available at that future time point, because that is the supply option being 

displaced by conservation. 

Cost Analysis 

A reasonable accounting of anticipated supply costs is needed in order to compare the cost of 

supply-side measures to the cost of demand-side or conservation measures (on a cost-pergallon basis). Planners should choose an appropriate time horizon; a twenty-year or other 

suitable period can be used. The choice of time frame should be consistent with the demand 

forecast (Section 3), as well as the other planning considerations. 

Planners should begin by preparing an estimate of major improvements and additions that will 

be required over the planning horizon in order to meet anticipated demand (including a safe 

reserve margin). Detailed cost estimates may be available from facility plans or other 

planning documents. Worksheet 4-5 can be used to summarize improvements and additions, 

which are disaggregated into three categories: source of supply, transmission and treatment, 

and distribution. (Additional categories can be used as needed.) 

Planners should consider all capital facility improvements and additions. Improvements 

include renovations and expansions needed to maintain or enhance safety or reliability within 

existing facilities. Additions consist of new facilities. Routine maintenance improvements 

should not be included. Anticipated water purchases and costs also should be recorded on 

Worksheet 4-5. For this part of the analysis, the effects of conservation measures currently 

Describe improvements planned 

for the water system over a 

reasonable planning horizon, 

identify the types of 

improvements proposed, and 

estimate the total, annual, and 

unit cost of the improvements. 

Prepare a preliminary forecast 

of installed capacity. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

being implemented should be considered, but the effects of new conservation measures on the 

need for supply capacity or water purchases should be excluded. (These effects are addressed 

in Section 8.) 

If no capital improvements and additions are planned, “0” values can be entered and the 

estimate of supply costs can be based on operating costs (including the cost of energy, 

chemicals, and purchased water). 

Estimating Incremental Supply Costs 

Worksheet 4-6 provides a method for placing a value on supply-side improvements and 

additions. Improvements and additions are separated into categories: source of supply, water 

treatment facilities, treated water storage, and major transmission lines. Water purchases are 

separately recorded. Capital costs over the useful life of the anticipated projects (including 

financing costs) are annualized and reported on a per-gallon basis. Financing costs can be 

incorporated into the calculation of annualized cost by using the expected interest rate for 

financing the project(s) or the system’s overall cost of capital. 

Added to the annualized capital cost forecast is the variable operating cost-per-gallon of 

production for existing and planned facilities, including costs associated with energy, 

chemicals, and existing and new water purchases. The resulting estimates of total annual 

incremental costs by type of facility (peak and average) can be used by planners to arrive at a 

simple estimate of incremental supply costs, which can later be compared to the unit cost of 

implementing conservation measures. 

Supply-side facilities are designed to meet different types of water demand (as summarized in 

Table 4-1); similarly, different conservation measures affect different types of water demand. 

Planners should identify, as reasonably possible, the extent to which improvements and 

additions are needed to meet average and/or peak demand. 

Capital-cost reductions associated with conservation will depend on the extent to which 

supply-side facilities can be eliminated, postponed, or downsized. The effect of conservation 

on the need for facilities will depend on the demand pattern of the individual utility, as well as 

its construction cycle (that is, the timing of facilities currently under development). 

Conservation can be particularly beneficial for systems that have a sufficient planning horizon 

to integrate conservation with conventional resource options. In some cases, capital costs 

cannot be avoided but conservation can still yield savings in operating expenditures. A 

degree of analyst judgment is required in order to evaluate incremental costs and to integrate 

supply-side and demand-side resources. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Table 4-1: Relationship of Water Demand to Supply Facilities

Type of Water Demand Type of Water Supply Facility 

Average-day Source of supply facilities, including raw water 

storage facilities (such as reservoirs) 

Maximum-day (peak) 

Maximum-hour [a] 

Water treatment plants 

Major transmission lines 

Treated water storage facilities 

Distribution mains [b] 

Pumping stations [b] 

Source: Adapted from Charles W. Howe and F. Pierce Linaweaver, “The Impact of Price on 

Residential Water Demand and its Relationship to System Design and Price Structure, Water 

Resources Research 3 (First Quarter 1967): 13-32. 

[a] Maximum-day demand plus fire-flow requirements. 

[b] These facilities should be considered in the analysis if they could be affected by such conservation 

measures as leak detection and repair, pressure management, or integrated resource management. 

This approach produces a very rough estimate of the value of supply-side options. Costs are 

not escalated (to account for the increasing value of water-supply resources over time), 

discounted (to account for the time value of money), or adjusted for inflation. The Advanced 

Guidelines address these adjustments. 

Preliminary Supply-Capacity Forecast 

Based on the anticipated improvements and additions, planners also can present a preliminary 

forecast of total supply capacity over the planning period. Worksheet 4-7 is provided for this 

purpose. The forecast, which can be presented in a table or graph, can be used to indicate 

when changes to capacity are expected to occur. The total supply forecast should reflect both 

additions to capacity and retirements. Improvements that allow the system to maintain 

capacity can be indicated with entries under both additions (to reflect the improvement) and 

retirements (to reflect the facilities taken out of service). A similar analysis can be used for 

wastewater facilities. 

The supply forecast is preliminary because it can and will be revised later in the plan to reflect 

the effect of conservation on water supply needs. 

75
___________________________________________________________________________ 

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___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

_________ __________ 

_________ __________ 

_________ __________ 

_________ __________ 

_________ __________ 

______________________ 

______________________ 

______________________ 

______________________ 

______________________ 

_______________ 

_______________ 

______________________ 

USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-5: Anticipated Improvements and Additions 

Describe planned improvements and additions: _________________________________ 

Describe time frame for planned improvements and additions (years): _____________ 

ImproveType of Project [a] ment Addition State date End date 

Source of supply � � 

Water treatment facilities � � 

Treated water storage � � 

Major transmission lines � � 

Other ___________________________ � � 

Need for Project(s) (Check all that apply) Notes 

Enhance compliance with regulations � 

Replace older equipment or facilities � 

Meet average-day demand � 

Meet maximum-day demand � 

Meet future growth needs � 

Other ___________________________ � 

Funding Interest rate 

Cost of financing 

Overall cost of capital [if known] 

Water purchases 

� 

� 

Anticipated future water purchases _________________ (gallons per year) 

Cost of water purchases _________________ (dollars per gallon) 

[a] Comprehensive plans can include wastewater facilities.

76 
USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-6: Cost of Supply-Side Facilities 

Facilities Facilities for meeting maximum-day Water Estimate of 

for meeting demand [a] purchases simple 

average- needed to incremental 

day meet supply cost 

Line Item 

demand demand [b] ($/gallon) 

Source of Water Treated Major 

supply treatment water transmisfacilities storage sion lines 

A SUPPLY CAPACITY IN ANNUAL GALLONS [c] 

1 Current installed 

capacity or water 

purchases 

2 Planned 

improvements and 

additions 

3 Planned retirements 

4 Future installed 

capacity or purchases 

(line 1 plus line 2 less 

line 3) 

B COST OF PLANNED IMPROVEMENTS AND ADDITIONS 

5 Approximate total 

cost of planned 

improvements and 

additions identified in 

line 2 (including 

financing costs) 

6 Expected life of new 

facilities (years) 

7 Estimated annual 

capital costs (line 5 

divided by line 6) 

8 Estimated annual 

operating costs [d] 

9 Estimated total 

annual costs (line 7 

plus line 8) [e] 

10 Per unit cost of new 

facilities (line 9 

divided by line 2) 

11 Simple incremental 

supply cost (add all 

entries from line 10) 

[a] Additional facilities or capital equipment can be included as appropriate. 

[b] The plan should indicate whether purchases are needed to meet average-day or maximum-day demand or both. 

[c] Planners should select a reasonable planning horizon for supply facilities and use the same time frame for all 

facilities. 

[d] Annual variable operating cost (including energy, chemicals, and water purchases). 

[e] This calculation of simplified value does not include a discount rate, an escalation rate, or an adjustment for 

inflation. This analysis also can be extended to include the incremental cost of wastewater collection and 

treatment. 

77
USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-7: Preliminary Supply-Capacity Forecast

Year Additions (+) Retirements (-) 

Total supply capacity 

for the system 

(annual or daily) 

0 

1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

13 

14 

15 

16 

17 

18 

19 

20 

78 
USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

5. IDENTIFY CONSERVATION MEASURES

Levels and Measures 

Water systems have a vast array of specific 

conservation measures at their disposal. These 

measures include both supply-side and demand-side 

management techniques for saving water and range 

from relatively simple educational tools to the 

promotion of advanced water-efficient technologies. 

Use of any particular measure depends on whether it 

meets cost-effectiveness and other planning criteria and 

whether its use complies with applicable laws and 

regulations, including state and local plumbing codes. 

Review the list of conservation 

measures recommended for 

consideration and identify 

measures that have been 

implemented, are planned, or 

are not planned. Provide an 

explanation for why any 

measure is not planned for the 

water system. 

The conservation measures are organized into three levels: Level 1, Level 2, and Level 3. 

Each level includes four categories of measures. Specific water conservation measures are 

identified within each category. Appendix A provides additional information and several 

worksheets on the conservation measures. Planners are encouraged to explore the full range 

of potential conservation measures for consideration in their conservation programs. 

Identifying Conservation Measures 

Worksheet 4-8 summarizes all measures and highlights the minimum set of measures 

recommended for consideration in the Intermediate Guidelines. Systems should use the 

checklist to review and summarize the measures that are currently implemented, planned, or 

not planned at this time. Planners also can identify additional measures and practices as they 

develop their conservation plans. 

Water systems following the Intermediate Guidelines are expected to implement the very 

fundamental and widely accepted practices highlighted under Level 1. If Level 1 measures 

are not in place and not planned for implementation, planners should submit a strong 

justification, including a cost-effectiveness analysis if it is the basis for not implementing the 

measure. 

Planners can screen the measures in terms of general feasibility. In some cases, it may not be 

possible for a system to implement a measure because of legal restrictions or for other 

compelling reasons. The conservation plan should provide an explanation if a measure cannot 

be implemented for the period of time covered by the plan. It is not necessary to prepare a 

cost effectiveness analysis for measures that cannot be implemented. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-8: Checklist of Conservation Measures [a] Already implemented �	 Plan to implement �	

Measure [a] Comments [b] 

LEVEL 1 MEASURES 

Universal metering [B] 

Source-water metering � � 

Service-connection metering � � 

Meter public-use water � � 

Fixed-interval meter reading � � 

Meter-accuracy analysis � � 

Test, calibrate, repair, and replace meters � � 

Water accounting and loss control [A] 

Account for water � � 

Repair known leaks � � 

Analysis of nonaccount water � � 

Water system audit � � 

Leak detection and repair strategy � � 

Automated sensors/telemetry � � 

Loss-prevention program � � 

Costing and pricing [B] 

Cost-of-service accounting � � 

User charges � � 

Metered rates � � 

Cost analysis � � 

Nonpromotional rates � � 

Advanced pricing methods � � 

Information and education [B] 

Understandable water bill � � 

Information available � � 

Informative water bill � � 

Water-bill inserts � � 

School program � � 

Public-education program � � 

Workshops � � 

Advisory committee � � 

[Worksheet continues. See footnotes at end of worksheet.] 

80 
USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-8 (continued) 

Alreadyimplemented �	Plan toimplement �	

Measure [a] Comments [b] 

LEVEL 2 MEASURES 

Water-use audits [B] 

Audits of large-volume users 

Large-landscape audits 

Selective end-use audits 

Retrofits [B] 

Retrofit kits available 

Distribution of retrofit kits 

Targeted programs 

Pressure management [A] 

Systemwide pressure regulation 

Selective use of pressure-reducing valves 

Landscape efficiency [P] 

Promotion of landscape efficiency 

Landscape planning and renovation 

Selective irrigation submetering 

Irrigation management 

LEVEL 3 MEASURES 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

Replacements and promotions [B] 

Rebates and incentives (nonresidential) 

Rebates and incentives (residential) 

Promotion of new technologies 

Reuse and recycling [B] 

Industrial applications 

Large-volume irrigation applications 

Selective residential applications 

Water-use regulation [B] 

Water-use standards and regulations 

Requirements for new developments 

Integrated resource management [B] 

Supply-side technologies 

Demand-side technologies 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

[a] For more information about measures see Appendix A. Non-italicized measures should be considered at a 

minimum. 

[b] Note special issues related to the measure, including legal or other obstacles precluding implementation. 

Note: Measures can affect average-day demand [A], maximum-day (peak) demand [P], or both [B], as indicated. 

81 
USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

6. ANALYZE BENEFITS AND COSTS

Purpose 

In this section, an analysis of benefits and costs is used 

to aid the comparison and selection of measures. 

Planners will consider criteria other than efficiency in 

Section 7 and estimate actual effects of conservation 

on planned capital facilities in Section 8. 

Analyzing benefits and costs is an invaluable part of 

the planning process. A cost-effectiveness analysis can 

be used to compare alternative conservation measures 

in terms of dollars per gallon of water saved. For 

example, one measure might produce savings at a cost 

of $.25/1,000 gallons while another produces savings at a cost of $.50/1,000 gallons. Costeffectiveness analysis also can be used to compare conservation measures to supply options. 

A simple net benefit analysis can be used to determine whether the benefits of implementing a 

measure outweigh the costs. 

For each identified water 

conservation and other 

measures of interest, estimate 

total implementation costs 

(dollars) and anticipated water 

savings (volume), assess the 

cost-effectiveness of the 

measure, and compare the cost 

of conservation to benefits 

(measured in terms of the 

incremental cost of supply). 

Water Savings 

Worksheet 4-9 should be completed for each conservation measure identified in Section 5. In 

some cases planners may want to combine measures based on the conservation program they 

envision. All interrelated measures that are expected to result in an identifiable amount of 

water savings should be combined and treated as one measure in order to avoid counting the 

planned water savings more than once in the analysis. 

The worksheet begins with an open-ended description of the measure and an estimate of water 

savings. The anticipated life span for the measure should be indicated. Planners also should 

indicate whether the measure is targeted toward reduction in average-day demand, maximumday demand, or both. Estimates of potential water savings should be as realistic as possible, 

based on system and regional considerations. For some measures, particularly those 

dependent on customer responses (such as information and education programs), the 

estimation will reflect a high degree of uncertainty. Planners can choose to use a range of 

estimates under these circumstances. 

The plan should indicate typical water savings from the measure, the number of planned 

installations, and the anticipated life span for the measure, as well as whether the measure is 

expected to reduce average-day or maximum-day demand (or both). 

82
USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Implementation Costs 

Worksheet 4-9 includes a method for summing the total cost of implementing the measure. 

All costs associated with implementation should be included. Planners should obtain 

reasonable cost estimates by potential vendors whenever possible. The types of costs that 

should be analyzed include: 

� Materials � Administration 

� Labor � Consulting or contracting 

� Rebates or other payments � Other 

� Marketing and advertising 

A realistic implementation schedule should be considered. Any special circumstances 

affecting the schedule or cost of implementing the proposed measures should be discussed in 

the plan. 

Each worksheet also includes a place to estimate annual unit water savings (that is, savings 

per measure or “unit”), total annual water savings, and total life span water savings for the 

measure. For each measure, the method used to estimate water savings should be provided. 

This might include, for example, a formula for converting daily per capita savings to annual 

savings. In some cases (such as a leakage control program), it might not be feasible to 

estimate savings for each unit, in which case total annual savings for the entire measure are 

sufficient. 

Cost-Effectiveness 

The analysis of cost-effectiveness for each measure builds on the identification of supply-side 

costs in Section 4. Using this analysis, the cost of conservation (for example, $.50 per 1,000 

gallons saved) can be compared to the simple incremental cost of supply (for example, $2.00 

per 1,000 gallons produced). The difference between the per-gallon cost of conservation and 

the per-gallon cost of supply is a simple indicator of the potential benefits (or cost savings) 

from conservation. 

It is not necessary for planners to prepare a cost-effectiveness or net benefit analysis of Level 

1 measures if those measures are already implemented or planned for implementation. An 

analysis should be presented if cost-effectiveness is the basis for rejecting a Level 1 measure. 

If the analysis of Level 1 measures leads the planner to conclude that a proposed measure is 

not cost-effective or that it fails to meet other criteria for implementation, the plan should 

include an explanation of these findings and conclusions in Worksheet 4-11 (Section 7). 

Net Benefits 

These Guidelines take a somewhat narrow view of benefits and costs, both of which are 

considered from the perspective of the water supplier. The analysis excludes other potentially 

83
USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

important perspectives: water consumers, society, and the environment. Planners should 

keep in mind that this approach may somewhat understate certain types of benefits and costs. 

The value of implementing a conservation measure is estimated by using the simple 

incremental cost of supply. In other words, the benefits of conservation can be measured in 

terms of the potential to avoid supply-side costs. 

The net benefit from implementing the measure is shown by subtracting total program costs 

from total program benefits (the dollar value of water saved). When benefits exceed costs 

(assuming that costs and benefits are adequately specified), a measure is considered 

reasonably efficient and a good candidate for implementation. However, as discussed in 

Section 7, the selection of measures can be based on additional considerations. 

Comparison of Measures 

Worksheet 4-10 can be used to compare the individual analyses of conservation measures in 

Worksheet(s) 4-9. Worksheet 4-10 can be used to screen measures for implementation on the 

basis of the relative cost-effectiveness and net benefits associated with each measure. 

84
________________ 

USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-9: Analysis of Each Conservation Measure or 

Group of Measures 

Describe conservation measure: _____________________________________________________________ 

Typical water savings from the measure: ________________ per _________________ 

Number of planned installations: 

Anticipated life span for the measure: ________________ years 

The measure is designed to reduce: � Average-day demand 

� Maximum-day demand 

� Both average-day and maximum-day demand 

Line Item Amount Amount 

A COST OF THE CONSERVATION MEASURE [a] Per unit [b] 

Total cost of the 

measure 

1 Materials $ $ 

2 Labor 

3 Rebates or other payments 

4 Marketing and advertising 

5 Administration 

6 Consulting or contracting 

7 Other 

8 Total program costs for the life of the measure (add lines 1 

through 7) [c] 

$ 

B ESTIMATED SAVINGS 

9 Number of units to be installed [d] 

10 Estimated annual water savings per unit in gallons [e] 

11 Total estimated annual savings for the measure in gallons 

(multiply line 9 by line 10) 

12 Expected life span for the measure in years 

13 Total life span estimated savings for the measure in gallons 

(multiply line 11 by line 12) 

C ANALYSIS OF COST EFFECTIVENESS Amount 

14 Cost of water saved by the measure (line 8 divided by line 13) /gallon 

15 Simple incremental cost of water supply [f] /gallon 

16 Cost comparison (line 15 less line 14) /gallon 

D NET BENEFIT OF CONSERVATION Amount 

17 Estimated value of water saved by the measure based on incremental supply cost 

(line 13 multiplied by line 15) 

$ 

18 Net value of water saved by each measure (line 17 less line 8) $ 

[a] This analysis is used to aid the comparison and selection of measures. Planners will estimate actual effects 

of conservation on planned capital facilities in Section 8. A separate analysis should be performed for each 

conservation measure, but measures can be combined if they jointly produce water savings. 

[b] Examples of a unit are a toilet, a retrofit kit, and an audit. A unit estimate may not be appropriate for each 

measure, in which case total program water savings and costs for the measure can be used. 

[c] Include all recurring operation and maintenance costs over the life of the measure. 

[d] Units can be individual product units (such as toilets) or groups of products (such as household retrofits), as 

long as the analysis is consistent. Leave blank if unit values do not apply. 

[e] For example, water savings per retrofit. See Appendix B for benchmarks and sample calculations. Leave 

blank if unit values do not apply. 

[f] From Worksheet 4-6, line 11. 

85 
USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-10: Comparison of Benefits and Costs of the 

Conservation Measures 

Line Conservation measure 

[a] 

Total program 

cost for the 

measure 

[b] 

Anticipated 

annual water 

savings in 

gallons [c] 

Cost of water 

saved by the 

measure 

($/gallon) 

[d] 

Net benefit of 

implementing 

the 

measure(s) 

[e] 

1 $ $ $ 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

13 

14 

15 

16 

17 

18 

19 

20... 

[a] = Combined measures that produce joint conservation savings should be treated as one measure to avoid 

duplicate counting. 

[b] = From Worksheet 4-9, line 8. 

[c] = From Worksheet 4-9, line 11. 

[d] = From Worksheet 4-9, line 14. 

[e] = From Worksheet 4-9, line 18. This estimate of net benefit does not consider societal benefits and costs. 

86
USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

7. SELECT CONSERVATION MEASURES

Selection Criteria 

The first step in the selection process is to identify 

criteria for evaluating the conservation measures. The 

cost-effectiveness of the measures (from Section 6) is 

one criterion, but other factors should be considered as 

well. Planners are free to consider as many selection 

criteria as they believe are appropriate, but the 

relevance of the criteria should be explained in the 

conservation plan. 

Criteria that can be used in selecting conservation measures for implementation include: 

Describe the process by which 

conservation measures were 

selected for implementation, 

including identification of 

selection criteria. Summarize 

the selected measures and total 

anticipated program costs for 

implementation. 

� Program costs � Environmental and social justice 

� Cost-effectiveness � Water rights and permits 

� Ease of implementation � Legal issues or constraints 

� Budgetary considerations � Regulatory approvals 

� Staff resources and capability � Public acceptance 

� Environmental impacts � Timeliness of savings 

� Ratepayer impacts � Consistency with other programs 

For each selection criterion used, planners should identify whether, how, and why the factor 

affects the feasibility of implementing one or more conservation measures. Different factors 

might be assigned different weights. Planners also may want to bear in mind that techniques 

can be used to mitigate adverse effects and improve acceptance of measures. A cost-effective 

conservation measure should not be dismissed without careful consideration of how barriers 

to implementation might be overcome. 

Selecting the Measures 

Worksheet 4-11 provides a simple format for summarizing the selection of measures. For 

each measure, planners should indicate whether the measure was selected for implementation. 

Planners also should identify the primary reason or reasons for selecting or rejecting the 

measure. Special conditions or actions that are required before a selected measure can be 

implemented (such as an approval from regulators) should be noted. 

In some cases, planners may conclude that a measure (or measures) cannot be implemented 

because of a constraint that exists in the short term. Conservation measures that might be 

planned for future implementation, once constraints are resolved, should be discussed in the 

plan. Planners should briefly discuss their implementation strategies with respect to such 

measures. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

For the conservation measures selected for implementation, planners should estimate the 

expected reductions in average-day and maximum-day demand. These estimates will be used 

in the next section of the plan to integrate conservation savings with the system’s plans for 

supply-side facilities. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-11: Selection of Conservation Measures and 

Estimate of Water Savings 

Line Measure 

Selected 

�

Primary criteria 

for selecting or rejecting 

the conservation measure for 

implementation 

Estimated reduction in 

demand for selected 

measures 

(gallons per day) [a] 

Average-day 

demand 

Maximumday demand 

1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

13 

14 

15 

16 

17 

18 

19 

20... 

Total

 [a] Based on Worksheet 4-9, line 11. Planners will need to convert estimates of annual water savings to 

estimates of reductions in average-day and maximum-day demand for each measure or group of measures. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

8. INTEGRATE RESOURCES AND MODIFY 

FORECASTS 

Integrating Options 

In this section, planners can revise the demand and 

supply-capacity forecasts made in earlier sections of 

the plan based on anticipated conservation savings. 

Pay particular attention to the effects of conservation 

on specific supply-facility projects. 

Planners should be cautious to avoid counting 

demand-side or supply-side resources more than once 

in the analysis. Anticipated savings from conservation 

should be based on realistic estimates of savings associated with the planned measures. 

Similarly, supply projects that involve multiple facilities should be considered in terms of the 

total water supply capacity that is made available through those combined facilities. Timing 

is another issue. The plan should address how different supply-side and demand-side projects 

involve different life spans and implementation schedules. One twenty-year supply-side 

project, for example, might be offset by a series of conservation measures that begin and end 

at different times. 

Modify water demand and 

supply-capacity forecasts to 

reflect the anticipated effects of 

conservation. Indicate whether 

and how water savings from 

conservation will allow systems 

to eliminate, downsize, or 

postpone supply-side projects or 

water purchases. 

Some conservation plans use a graph to display anticipated annual supply capacity and 

demand without and with the implementation of conservation measures. Figure 4-1 is an 

example of this type of graph for a twenty-year planning horizon. 

Figure 4-1 

Sample Graph of Modified Supply and Demand Forecasts 

Based on Implementing Conservation Measures 

Supply Capacity and Demand

Supply 

without 

conservation 

Supply with 

conservation 

Demand 

without 

conservation 

Demand with 

conservation 

1 3 5 7 9 11 13 15 17 19 

Planning Year 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Modifying Demand Forecasts 

Planners should use Worksheet 4-12 to collate information from previous worksheets and 

analyses in order to revise the demand forecasts made in Worksheet 4-4. Revisions should 

reflect changes based on the introduction of new conservation measures. The effects of 

measures already being implemented should be included in the original demand forecast. 

Modifying the demand forecast requires a considerable degree of judgment, particularly in 

estimating the effects of conservation on average-day and maximum-day demand. The plan 

should include an explanation of the approach used in revising the demand forecasts. 

Project-Specific Savings 

Planners should identify the anticipated effects of conservation on planned supply-side 

improvements and additions (as specified in Section 4). Worksheet 4-13 is provided for this 

purpose. A worksheet should be completed for separable supply projects as appropriate. 

Ideally, water conservation strategies that reduce demand will translate into supply-side 

savings through one or more of the following actions: 

� Eliminating a project for the foreseeable future 

� Downsizing a project based on reduced capacity needs 

� Postponing a project into the future 

� Eliminating, reducing, or postponing water purchases 

Adjustments to supply-capacity planning must be realistic, especially in terms of complex and 

sometimes competing goals. Supply projects cannot be eliminated, downsized, or postponed if 

doing so would compromise public health or safety, reduce operational efficiency, or inflate 

costs beyond a reasonable amount. Some systems (including systems that currently operate 

with inadequate or unreliable supply reserves) may not be able to translate all demand 

reductions into supply-capacity reductions. Planners should identify and describe such 

circumstances. On the other hand, supply projects that are not needed or oversized place an 

unnecessary burden on systems and their customers. 

Modifying Supply Forecasts 

The supply-capacity forecast is revised in Worksheet 4-14. The revision to the supplycapacity forecast should be based on Worksheet(s) 4-13 and consistent with accepted supplycapacity planning practices. The modification of forecasts should reflect reasonable 

assumptions about anticipated implementation schedules, which are summarized in Section 9. 

Planners also can indicate the anticipated capacity reserve (the difference between forecast 

supply capacity and demand). 

Worksheet 4-14 also provides a method of summarizing savings in capital and operating 

costs, based on reductions in supply capacity. Planners also should estimate reductions in 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

operating costs at existing facilities that will occur with demand reductions (apart from 

operating costs associated with planned facilities). The total program cost of conservation can 

be compared with the savings in total capital and annual operating costs. 

As recognized throughout these Guidelines, water conservation also has nonmonetary 

benefits. Planners should discuss, as appropriate, how implementation of the conservation 

program will help their system cope with any of the conditions identified in Section 2 

(Worksheet 4-2). For example, the planned measures might help a system address problems 

related to safe yields or drought management. 

Revenue Effects 

The conservation plan should briefly describe how planned conservation measures will affect 

water utility revenues (based on reduction in sales) and discuss strategies for addressing these 

revenue effects. Reductions in water usage will affect the revenues of the water utility. 

Conservation will help the water utility reduce variable costs (such as energy, chemical, and 

purchased water costs). In the long term, conservation also will help the utility reduce fixed 

costs (associated with new capital facilities). In the short term, reductions and sales can lead 

to a shortfall in revenues needed to cover fixed costs and sustain the financial viability of the 

water system. 

The planner can estimate the effect of conservation on revenues by multiplying current water 

rates by the adjusted level of sales (for the variable portion of the water bill). The adjusted 

level of sales should include the anticipated effects of conservation. Conservation-oriented 

rate structures have direct revenue effects that should be considered. Worksheet A-4 in 

Appendix A can be used to evaluate the revenue effects of rate changes. 

Conservation planners should work closely with financial planners in order to integrate their 

analyses, identify potential revenue shortfalls, and devise strategies to ensure that the utility 

will meet its revenue requirements. 

Adjustments to water rates may be needed. For some utilities, a change in rates requires 

approval from an oversight board or state public utility commission. When rate increases are 

offset by usage reductions, customer bills and utility revenues can be maintained. Customers 

and utilities eventually will realize savings from conservation through long-term reductions in 

costs. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-12: Modified Demand Forecast

Line Item 

Current 

year Year 5 Year 10 Year 20 

1 Average-day demand before conservation [a] 

2 Reduction in average-day demand (line 1 less 

line 2) [b] 

3 Average-day demand after conservation 

4 Maximum-day demand before conservation [a] 

5 Reduction in maximum-day demand (line 4 less 

line 5) [b] 

6 Maximum-day demand after conservation 

7 Ratio maximum-day to average-day demand 

before conservation (line 4 divided by line 1) 

8 Ratio maximum-day to average-day demand 

after conservation (line 6 divided by line 3) 

[a] From Worksheet 4-4, line 6. 

[b] Based on Worksheet 4-11. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-13: Project-Specific Savings 

DESCRIPTION OF PROJECT [a] 

Describe the supply-side project(s): ____________________________________________________ 

Project was scheduled to begin: 

Purpose of the project: � Improvement � Addition 

The project is designed to meet: � Average-day demand � Maximum-day demand 

Type of project: � Source of supply 

� Water treatment facilities 

� Treated water storage 

� Major transmission lines 

� Purchased water 

� Other _____________________________________ 

CHANGES TO PROJECT [b] 

Project 

supply 

Project Costs 

Total Annual 

capacity capital operating 

Line Item (daily) costs ($) costs ($) 

A CAPITAL PROJECT IS ELIMINATED 

1 Original project 

2 Savings from elimination (equals line 1) 

B CAPITAL PROJECT IS DOWNSIZED 

3 Original project 

4 Downsized project 

5 Savings from downsizing (line 3 less line 4) 

C CAPITAL PROJECT IS POSTPONED 

6 Present value of original project 

7 Present value of postponed project 

8 Savings from postponement (line 6 less line 7) 

D NEED FOR PURCHASED WATER IS REDUCED [c] 

9 Original estimate of purchases 

10 Revised estimate of purchases (can be “0”) 

11 Savings from reduced purchases (line 9 less line 10) 

[a] Comprehensive plans can include wastewater facilities. 

[b] Based on Worksheet 4-12 estimates of reductions in demand. 

[c] For purchased water, report only annual operating costs and include costs associated with take-or-pay 

contract provisions. Transmission facilities needed to transport purchased water should include capital 

and operating costs associated with such facilities and reported as a capital project. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-14: Modified Supply Forecast and Estimated 

Total Savings 

MODIFIED SUPPLY FORECAST 

Line Item 

Current 

Year Year 5 Year 10 Year 20 

A Forecast Supply Capacity (Daily) 

1 Supply capacity before conservation program 

[a] 

2 Planned reduction in supply capacity [b] 

3 Supply capacity after conservation (line 1 less 

line 2) 

B Capacity Reserve 

4 Supply capacity less demand (line 3 less line 2 

on Worksheet 4-12) 

ESTIMATED TOTAL SAVINGS 

Project Costs 

Line Item 

Supply 

capacity 

(daily) 

Total capital 

costs ($) 

Annual 

operating 

costs ($) 

C 

Total Estimated Savings from Changes to 

Supply Projects [c] 

1 Cost of supply projects before conservation 

2 Cost of supply projects after conservation 

3 Savings (line 1 less line 2) 

D 

Total Estimated Savings from Reduced 

Operating Costs at Existing Facilities [d] 

4 Operating costs before conservation 

5 Operating costs after conservation 

6 Savings (line 4 less line 5) 

E Conservation Program Costs 

Total 

program 

costs ($) 

7 Total cost of implementing selected 

conservation measures [e] 

[a] From Worksheet 4-7. 

[b] Based on Worksheet(s) 4-13. 

[c] Based on Worksheet(s) 4-13. 

[d] Based on annual variable operating cost (including energy, chemicals, and water purchases). 

[e] Based on Worksheet 4-10. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

9. PRESENT IMPLEMENTATION AND 

EVALUATION STRATEGY 

Implementation 

In this final step in the conservation planning process, 

the water system specifies its strategy and timetable 

for implementation. It can be emphasized, however, 

that conservation planning will require an ongoing 

effort on the part of water utility managers. Ongoing 

planning and implementation will go hand in hand. 

The implementation strategy should include a 

preliminary schedule for monitoring and evaluating program results and revisiting the plan for 

updates and modifications. 

Present a strategy and timetable 

for implementing conservation 

measures and other elements of 

the conservation plan. Describe 

proposed approaches for 

implementing and evaluating 

planned conservation measures. 

Implementation of Measures 

Worksheet 4-15 is a simple template for summarizing the water system’s implementation and 

evaluation schedule for the conservation measures. For each measure, the schedule can 

identify significant implementation actions, a beginning date, and a completion date. 

Implementation actions include: 

� Securing budgetary resources 

� Hiring of staff 

� Procurement of materials 

� Agreements with suppliers or consultants 

� Acquisition of permits or other approvals from regulatory agencies 

� Legislative actions (for changes in water-use regulations) 

� Activity milestones (for example, system audits or distribution of retrofit kits) 

Planners should make note of any specific factors or contingencies that might affect or 

prevent the implementation of specific measures. For example, if a measure cannot be 

implemented prior to obtaining a special permit or other authority, this fact should be noted 

along with an explanation of the strategy for obtaining the necessary authority. 

Some measures might require implementation actions that take place over several years (in 

order to sustain conservation savings). The plan should provide sufficient detail to understand 

the utility’s strategy with regard to implementing such measures. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Implementation and Evaluation 

Worksheet 4-16 provides a very simple summary of the water system’s general 

implementation and evaluation strategy for the conservation plan. Three areas are 

highlighted: 

� Public involvement 

� Monitoring and evaluation 

� Updates and revisions 

A plan for public involvement should discuss whether and when the water system intends to 

involve members of the community in the implementation of the conservation plan. Some 

systems may want to schedule regular meetings with community groups to keep them 

informed of the system’s progress in meeting goals. 

A plan for monitoring and evaluation should address data collection, modeling, and other 

issues that will be important in tracking the effects of water conservation on demand over 

time. The system may want to plan to collect new kinds of data for monitoring purposes as 

well as for future forecasting needs. Many systems might find, for example, that more 

detailed data on demand by customer class are needed, including more detail on contributions 

to average-day and maximum-day demands. More detailed data might also be needed to 

assess trends in nonaccount water. 

A plan for updates and revisions will help keep the system’s conservation plan current over 

time and account for the system’s actual experience with conservation. Updating forecasts of 

water demand and supply capacity as new data become available is especially important. In 

some cases, the system might want to revise or expand its planning goals. Many systems 

update plans every five years. However, changing conditions or other concerns might justify 

more frequent updates. The schedule of updates and revisions might be affected by state or 

local requirements for conservation planning by the water system. 

The conservation planning document also should include a record of the plan’s adoption by 

the water system’s governing body (such as a Board of Directors or City Council), as 

appropriate. 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-15: Implementation Schedule for Measures

Line Measure Required action 

Beginning 

date 

Completion 

date Notes 

1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

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USEPA Water Conservation Plan Guidelines Intermediate Guidelines 

Worksheet 4-16: Implementation Strategy

A. PUBLIC INVOLVEMENT 

Describe plan for public involvement: 

B. MONITORING AND EVALUATION 

Describe plan for monitoring and evaluation: 

Describe plan to collect water demand data: 

C. PLAN UPDATES 

Describe plan for updates and revisions: 

D. ADOPTION OF THE PLAN 

Date plan completed: _________________________________________________ 

Date plan approved: _________________________________________________ 

Approved by [governing body]: _________________________________________________ 

Signature: _________________________________________________ 

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[blank page] 

100
USEPA Water Conservation Plan Guidelines Advanced Guidelines 

U.S. Environmental Protection Agency

Water Conservation Plan Guidelines 

PART 5 

ADVANCED GUIDELINES FOR 

PREPARING WATER CONSERVATION PLANS 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

These Advanced Guidelines are designed for water systems serving more than 100,000 

people. Which Guidelines are appropriate may depend on various factors and conditions 

affecting water systems and their need for conservation planning. Water system managers 

should check with their own state’s rules, regulations, and recommendations about which 

Guidelines to follow. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

1. Specify Conservation Planning Goals

Planning Goals 

Planning goals can be developed from different 

perspectives. These planning guidelines, including the 

analysis of the benefits and costs of conservation 

activities, emphasize a water supplier perspective. 

The value of conservation is defined primarily in terms 

of avoided supply-side costs to the water system. 

Lowering the level of water demand can help water 

suppliers avoid, downsize, or postpone the 

Specify conservation planning 

goals in terms of anticipated 

benefits for the water system 

and its customers. To the extent 

practical, involve affected 

members of the community in 

the development of conservation 

planning goals and throughout 

the implementation process. 

construction and operation of costly supply-side 

facilities. 

The benefits of conservation also can be understood from the perspectives of customers, as 

well as society at large. Conservation benefits society by preserving environmental resources. 

Conservation can benefit customers by lowering energy and long-term water costs. Water 

conservation reduces demands on wastewater systems; in fact, the need to reduce wastewater 

treatment costs can be a strong rationale for water conservation. The Guidelines and the 

worksheets can be used to simultaneously address the potential effects of conservation on 

water and wastewater operations. Utilities using the Advanced Guidelines also are 

encouraged to expand the analysis of benefits and costs to consider the customer and societal 

perspectives, if only in very general terms. 

Conservation planning goals can take many forms. Water systems should state their goals in 

specific terms. Measurable goals are useful for evaluation purposes. For example, many 

water systems identify a specific water-use reduction goal (as a percentage of current water 

usage). 

Water conservation planning goals may include: 

� Eliminating, downsizing, or postponing the need for capital projects. 

� Improving the utilization and extending the life of existing facilities. 

� Lowering variable operating costs. 

� Avoiding new source development costs. 

� Improving drought or emergency preparedness. 

� Educating customers about the value of water. 

� Improving reliability and margins of safe and dependable yields. 

� Protecting and preserving environmental resources. 

Planners should plan on revisiting the goals section before finalizing the conservation plan 

and periodically thereafter, because goals and the means to achieving them will evolve. As 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

the water system accomplishes certain conservation goals, new objectives may come into 

focus. 

Community Involvement 

The process of developing goals can involve representatives of various groups in the 

community (or stakeholders) who may be concerned about a water system and its future. 

Modern resource planning (such as integrated resource planning) emphasizes an open process 

that involves all affected groups so that they can have an opportunity to express their interests 

and concerns. 

Involving the community in goal development also serves an important public education 

function. Moreover, it is widely believed that involving the community in developing goals, 

as well as in the implementation process, can greatly enhance the success of conservation 

programs. 

Members of the community who might be interested in water conservation include: 

� Residential water consumers � Labor groups 

� Commercial water consumers � Business and commerce groups 

� Industrial water consumers � Recreational water users 

� Wholesale customers � Agricultural users 

� Environmental groups � Educational institutions 

� Civil rights groups � Government agencies 

� Indian tribes 

In addition to helping the water system specify planning goals, community participants also 

can have an ongoing role in a system’s conservation program. Ongoing involvement can help 

maintain and build support for achieving conservation goals and “get the word out” about the 

conservation effort. Participants can act as a focus group for exploring specific conservation 

measures (discussed in Section 4). Participants also can provide valuable linkages to key 

groups—consumers, businesses, and institutions—who might be involved in implementing 

certain conservation measures. Participants also can provide input on the level of satisfaction 

or dissatisfaction with the system’s programs. Finally, community groups can assist the water 

system in monitoring results and adjusting program implementation. 

For many water systems, involving the community in water-system planning will be a new 

experience. However, most system managers will find that involving members of the 

community in developing goals, implementing programs, and evaluating results is a very 

worthwhile investment. Fortunately, guidance on this approach is available.1 

1

 See Public Involvement Strategies: A Manager's Handbook (Denver, CO: American Water Works Association 

Research Foundation, 1996). 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

2. DEVELOP A WATER SYSTEM PROFILE

System Profile 

Taking inventory of existing resources and conditions is 

an important step in the planning process. A water 

system profile can help systems in terms of assessing 

their present circumstances and designing strategies to 

meet emerging needs. 

Most water systems should maintain the data and 

information necessary for building a system profile. 

Much information may already have been compiled for a facility plan or for other purposes. 

Worksheet 5-1 profiles a relatively simple summary table that systems can use to compile and 

present key system characteristics. The system profile can be expanded to include additional 

information. For example, systems may want to present data on trends for some 

characteristics (such as supply and demand measures). Systems should include in their profile 

additional characteristics or details considered relevant for understanding the nature of the 

system. 

Summarize the service and 

operating characteristics of the 

water system. Provide an 

overview of conditions and a 

description of climate, water 

availability, or other factors 

that might affect water 

conservation planning. 

System Conditions 

Worksheet 5-2 provides a very simple overview of planning conditions that might affect the 

water system and its conservation planning effort. This checklist can be used to make a 

general review of conditions affecting the supply or the demand for water. For planning 

purposes, it is important to identify and focus on the conditions that most affect a particular 

system. 

The conditions outlined in the worksheet suggest the need for water conservation planning. 

While all water systems can benefit from efficiency improvements, water conservation can be 

especially beneficial for systems experiencing water shortages or rapid increases in demand. 

For example, water systems facing one or more of the following conditions are strongly urged 

to consider the fullest range of conservation measures available to them in accordance with 

these guidelines: 

� Systems in state-designated critical water or stressed areas 

� Systems experiencing frequent droughts, emergencies, or safe yield problems 

� Systems with excessive unaccounted-for water or water losses 

� Systems entering into major construction cycles 

� Systems anticipating rapid growth in water demand 

For some conditions, states might provide benchmark measures that water systems can use for 

comparison purposes. For example, a state might have specific criteria for defining critical 

105
USEPA Water Conservation Plan Guidelines Advanced Guidelines 

use or stressed areas, for classifying per-capita water use, or for identifying the age of 

systems. When practical, systems should try to compare significant conditions using 

generally accepted measures. 

In addition to the summary worksheet, planners also should prepare a brief written discussion 

of the significant conditions affecting their systems. Particular attention can be paid to 

climate and water availability, but other factors affecting the system can be considered as 

well. This information can be used to help systems identify problems and opportunities 

throughout the planning process. 

Current Conservation Efforts 

Worksheet 5-3 is provided so that water systems can describe their current water conservation 

activities and programs. For each conservation measure implemented, planners can indicate 

the approximate annual water savings achieved, when implementation for the measure began, 

and whether continued implementation is planned. Any other pertinent information on 

current efforts and their effectiveness can be provided in the plan as well. 

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2 

3 

4 

5 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-1: Water System Profile 

A SERVICE CHARACTERISTICS Number 

Estimated service population 

Estimated service area (square miles) 

Miles of mains 

Number of treatment plants 

Number of separate water systems 

Interconnection with other systems 

Number of intakes Percent 

B ANNUAL WATER SUPPLY Annual volume or source points metered 

7 Groundwater % 

8 Surface water % 

9 Purchases: raw % 

10 Purchases: treated % 

11 Total annual water supply % 

Percent 

C SERVICE CONNECTIONS Connections Water sales metered 

12 Residential, single-family % 

13 Residential, multi-family % 

14 Commercial % 

15 Industrial % 

16 Public or governmental % 

17 Wholesale % 

18 Other % 

19 Total connections % 

Per connection 

D WATER DEMAND Annual volume Percent of total 

20 Residential sales 

21 Nonresidential sales 

22 Wholesale sales 

23 Other sales 

24 Nonaccount water: authorized uses 

25 Nonaccount water: unauthorized uses 

26 Total system demand (total use) 

E AVERAGE & PEAK DEMAND Volume 

Total supply 

capacity 

Percent of total 

capacity 

27 Average-day demand % 

28 Maximum-day demand % 

29 Maximum-hour demand % 

Metering Billing 

F PRICING Rate structure frequency frequency 

30 Residential rate 

31 Nonresidential rate 

32 Other rate 

Prepared a Filed with state 

G PLANNING plan �	 Date �	

33 Capital, facility, or supply plan 

34 Drought or emergency plan 

35 Water conservation plan 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-2: Overview of System Conditions [a] 

Increasing need for conservationfififi Don’t 

Line Conditions Check applicable description �	 know �	

A CLIMATE AND WATER AVAILABILITY 

1 Average precipitation High � Moderate � Low � � 

2 Average temperatures Low � Moderate � High � � 

3 Critical supply areas No � At risk � Yes � � 

4 Competing water uses No � Possibly � Yes � � 

5 Environmental constraints No � Possibly � Yes � � 

6 Quality/quantity concerns No � Possibly � Yes � � 

7 Seasonal variations in climate Low � Moderate � High � � 

8 Instream flow problems Low � Moderate � High � � 

9 Shortage or emergency frequency Low � Moderate � High � � 

B INFRASTRUCTURE CONDITIONS 

10 Age of the system Newer � Middle � Older � � 

11 General condition of system Good � Fair � Poor � � 

12 Water losses and leaks Low � Moderate � High � � 

13 Unaccounted-for water Low � Moderate � High � � 

14 Safe yield of supply exceeded No � At risk � Yes � � 

15 Wastewater discharges exceeded No � At risk � Yes � � 

16 Wastewater capacity exceeded No � At risk � Yes � � 

17 Potential for recycling and reuse Low � Moderate � High � � 

18 Improvement plans Low � Moderate � High � � 

19 Anticipated investment Low � Moderate � High � � 

C SYSTEM DEMOGRAPHICS 

20 Rate of population growth per year Low � Moderate � High � � 

21 Rate of demand growth per year Low � Moderate � High � � 

22 Rate of economic growth per year Low � Moderate � High � � 

23 Per capita water use (by class) Low � Moderate � High � � 

24 Ratio of peak to average demand Low � Moderate � High � � 

25 Presence of large-volume users Low � Moderate � High � � 

D OTHER FACTORS 

26 �

27 � 

28 � 

[a] Specific (quantified) benchmarks for these indicators may be provided by the state. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-3: Current Water Conservation Activities 

Summarize the system’s current water conservation activities/programs: _____________ 

Approximate 

annual Is continued 

water savings Implemented implementation 

Water conservation measures [if known] since (date) planned? 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

3. PREPARE A DEMAND FORECAST

Demand Forecasting 

Forecasting water use (or water demand) is a critical 

part of the planning process. Forecasts can range from 

simple projections based on anticipated growth in the 

population to complex models using several variables to 

explain variations in water use. Forecasts can be made 

for a water system as a whole; however, forecasts are 

considered more accurate when they are prepared for 

separate classifications of water use or sectors. 

Prepare a forecast of 

anticipated water demand for 

selected time periods. To the 

extent practical, the planner 

should take into account 

variations in demand based on 

type of water usage, as well as 

perform a “what if” (sensitivity) 

analysis. 

The Guidelines suggest that planners prepare forecasts for five-year, ten-year, and twentyyear intervals. Additional time points can be used as well. The longer the planning horizon, 

the greater will be the uncertainty of the forecast. Forecasts should be revisited and updated 

on a regular basis. 

The forecast should recognize the effects of conservation measures already implemented. The 

forecast also should recognize the demand effects of plumbing efficiency standards 

established under the 1992 Energy Policy Act (see Appendix B, Tables B-5 and B-6).2 New 

construction and renovations will not contribute as much to total demand as in the past; 

systems that are not experiencing growth might detect declines in demand due to these effects. 

For the purposes of this conservation plan, anticipated demand effects from measures 

contemplated in the plan should not be included. A revision to the demand forecast based on 

implementing the planned conservation measures is made in Section 8 (Worksheet 5-13). 

It is not necessary for systems to prepare a separate forecast for the purposes of this plan if a 

forecast has already been prepared for the system within a reasonable time frame. Planners 

should include the results of their forecasts in this plan. 

Forecasting Method 

Systems following the Advanced Guidelines should prepare a demand forecasting model 

appropriate to their capabilities and needs. Many systems in this category already employ 

advanced forecasting techniques. Current and reasonable forecasts already prepared by the 

system, including forecasts prepared under other planning or regulatory requirements, will be 

in accordance with the purpose of these guidelines. 

2

 A method for estimating the demand effect of efficient fixtures can be found in Amy Vickers, “The Energy 

Policy Act: Assessing its Impact on Utilities.” Journal American Water Works Association (August 1993): 56­

62. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Advanced water demand forecasting generally involves: 

� Disaggregated forecasts by customer class or other relevant groups, by averageday and maximum-day demand, and by off-peak and peak season. 

� Multivariate models that seek to explain variations in water demand in terms of 

variations in other factors, such as climate, income, and price. 

� Quantified sensitivity (“what if”) analysis, which allows systems to address 

uncertainty by varying inputs and assumptions. 

Disaggregating forecasts by customer class is important because of the different load factors 

that groups of customers present. Disaggregating forecasts according to type of demand is 

relevant for advanced demand management techniques that take into account how different 

types of demand affect the utility’s functional costs. As discussed in Section 4, different types 

of supply-side facilities are designed to meet average-day or maximum-day water demands, 

and various conservation measures target different types of demand. 

Multivariate models recognize that demand is dynamic and can change with changes in other 

variables. Sensitivity analysis helps planners deal explicitly with uncertainty that goes along 

with these dynamics. Addressing uncertainty is a very important part of advanced 

forecasting. With larger and more diverse service territories, uncertainties are greater; 

uncertainty also grows with the time horizon of the forecast. Contingency planning can help 

utilities cope with uncertainty. 

Several computer models are available for advanced forecasting, many of which can be used 

in accordance with these guidelines. An example of an advanced forecasting tool is the 

widely-used IWR-MAIN model, which was developed by the U.S. Army Corps of 

Engineers.3 Figure 5-1 is an illustration of the inputs and outputs of the model. The key 

features of IWR-MAIN are: spatial disaggregation, seasonal disaggregation, sector 

disaggregation, multiple determinants of water demand, user-added categories, and sensitivity 

analysis. The current version of the model also allows planners to incorporate the effects of 

demand-management into various planning scenarios. Use of empirical models, including but 

not limited to IWR-MAIN, clearly is consistent with the purpose of these guidelines. 

The conservation plan should include a detailed summary of the forecast, results by customer 

class, and a description of the forecasting methodology used. Any adjustments to the 

forecasts should be explained in the plan. Worksheet 5-4 provides a template for 

summarizing the systemwide results of the forecast. 

3

 Duane D. Baumann., John J. Boland, and W. Michael Hanemann. Urban Water Demand Management and 

Planning (New York: McGraw Hill, 1998). 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

� Housing 

� Employment 

� Price 

� Income 

� Housing density 

� Weather 

� Industrial productivity 

� Plumbing code 

� Efficiency end-uses 

� Conservation programs 

� Drought restrictions 

� Utility cost structure 

� Capacity 

� External costs 

IWRMAIN 

Model and 

knowledge 

base 

Water Demand Forecast 

� Average daily 

� Low-use season 

� High-use season 

� Maximum-day 

� Sewer contribution 

By Sector 

� Residential (subcategories) 

� Nonresidential (subcategories) 

� Nonaccount water 

Water Savings 

� Passive conservation 

� Active savings 

� Price impacts 

� Emergency savings 

Benefits and Costs 

� Net present value 

� Benefit-cost ratio 

� Discounted payback 

� Levelized cost 

� Life-cycle revenue impact for 

-Utility 

-Participants 

-Ratepayers 

-Community 

-Society 

Figure 5-1. Inputs and Outputs of the IWR-MAIN 

Forecasting Model 

Source: Duane D. Baumann, John J. Boland, and W. Michael Hanemann, Urban Water Demand Management 

and Planning (New York: McGraw-Hill, 1998): 109. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-4: Summary of Preliminary Water Demand 

Forecast 

Summary Results of Advanced Forecasting Model [a] 

Line Item 

Current 

year 

5-year 

forecast 

10-year 

forecast 

20-year 

forecast 

A TOTAL ANNUAL WATER DEMAND 

1 Current and projected total annual water sales to 

the residential sector [b] 

2 Current and projected total annual water sales to 

the nonresidential sector [b] 

3 Current and projected total annual water sales to 

the wholesale buyers [b] 

4 Current and projected total annual water sales to 

others [b] 

5 Current and projected total annual nonaccount 

water (authorized and unauthorized) [c] 

6 Current and projected total annual water demand 

in gallons (add lines 1 through 4) [d] 

7 Current and projected annual water supply 

capacity [e] 

8 Difference between total demand and total supply 

capacity (+ or -) (line 3 less line 2) 

B AVERAGE-DAY AND MAXIMUM-DAY DEMAND 

9 Current and projected average-day demand [f] 

10 Current and projected maximum-day demand [g] 

11 Ratio of maximum-day to average-day demand 

(line 5 divided by line 4) 

12 Daily supply capacity (divide line 7 by 365) 

13 Ratio of maximum-day demand to daily supply 

capacity (divide line 10 by line 12) 

[a] This Worksheet presumes that the system has prepared a detailed demand forecast using an 

appropriate model. Include in the conservation plan a description of the forecasting methodology 

used and a detailed summary of the forecast. 

[b] Current year corresponds to Worksheet 5-1, lines 20 through 23. 

[c] Current year corresponds to Worksheet 5-1, lines 24 through 25. 

[d] Current year corresponds to Worksheet 5-1, line 26. 

[e] Supply capacity should take into account available supplies (permits), treatment capacity, and 

distribution system capacity and reflect the practical total supply capacity of the system, including 

purchased water. 

[f] Current year corresponds to Worksheet 5-1, line 27. 

[g] Current year corresponds to Worksheet 5-1, line 28. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

4. DESCRIBE PLANNED FACILITIES

Supply Forecasting 

In this part of the conservation plan, planners are 

asked to prepare an estimate of supply costs based on 

meeting the level of water demand specified in the 

unadjusted demand forecast (that is, unadjusted for 

additional conservation). This is a critical part of the 

analysis because it establishes the anticipated cost of 

supply-side improvements and additions and this cost 

estimate will be used to represent the value of 

conservation or demand-side activities. 

Because the benefits of conservation extend into the future it is important to take a forwardlooking approach to supply costs. The concept of marginal or incremental cost captures the 

idea that the “true” value of a supply resource can be measured in terms of the cost of the next 

increment of supply. If only high-cost supplies are available, the marginal or incremental cost 

will be high. For many communities, future increments of supply will be very costly (that is, 

the marginal cost of developing new water sources will be high). The value of a conserved 

amount of water at a future point in time will be equivalent to the most costly supply option 

available at that future time point, because that is the supply option being displaced by 

conservation. 

Cost Analysis 

A reasonable accounting of anticipated supply-side costs is needed in order to compare the 

cost of supply-side measures to the cost of demand-side or conservation measures (on a cost – 

per-gallon basis). Planners should choose an appropriate time horizon; a twenty-year or other 

suitable period can be used. The choice of time frame should be consistent with the demand 

forecast (Section 3), as well as the other planning considerations. 

Planners should begin by preparing an estimate of major improvements and additions that will 

be required over the planning horizon in order to meet anticipated demand (including a safe 

reserve margin). Detailed cost estimates may be available from facility plans or other 

planning documents. Worksheet 5-5 can be used to summarize improvements and additions, 

which are disaggregated into three categories: source of supply, transmission and treatment, 

and distribution. (Additional categories can be used as needed). 

Planners should consider all capital facility improvements and additions. Improvements 

include renovations and expansions needed to maintain or enhance safety or reliability within 

existing facilities. Additions consist of new facilities. Routine maintenance improvements 

should not be included. Anticipated water purchases and costs also should be recorded on 

Describe improvements planned 

for the water system over a 

reasonable planning horizon, 

identify the types of 

improvements proposed, and 

estimate the total, annual, and 

unit cost of the improvements. 

Prepare a preliminary forecast 

of installed capacity. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-5. For this part of the analysis, the effects of conservation measures currently 

being implemented should be considered, but the effects of new conservation measures on the 

need for supply capacity or water purchases should be excluded. (These effects are addressed 

in Section 8.) 

If no capital improvements and additions are planned, “0” values can be entered and the 

estimate of supply costs can be based on operating costs (including the cost of energy, 

chemicals, and purchased water). 

Estimating Incremental Supply Costs 

The Advanced Guidelines recommend a method for determining the present value of supplyside costs. This analysis should be calculated separately for (1) improvements and additions 

needed to meet average demand, and (2) improvements and additions needed to meet peak 

demand so that the results can be compared to corresponding conservation measures. As 

illustrated in Worksheet 5-6, this spreadsheet method provides the planner with a year-by-year 

accounting of costs. 

The resulting estimates of total annual incremental costs by type of facility (peak and average) 

can be used by planners to estimate the incremental cost of supply associated with meeting 

average or peak demand on a system-specific basis. 

Supply-side facilities are designed to meet different types of water demand (as summarized in 

Table 5-1); similarly, different conservation measures affect different types of water demand. 

Planners should identify, as reasonably possible, the extent to which improvements and 

additions are needed to meet average and/or peak demand. 

Two adjustments can be made to costs: one for the annual escalation rate and one for the 

discount rate. The escalation rate is used to ensure that the benefits of conservation are not 

undervalued. By using an escalation rate, the analyst assumes that incremental costs of 

supply measured at a future point in time will be greater than present incremental costs. 

Many planners, for example, believe that future water supplies will be much more costly to 

secure and develop, even in real-dollar (inflation adjusted) terms. In addition to supply costs, 

other infrastructure costs are expected to escalate with time. In general, the escalation rate 

will be higher for areas experiencing supply or other constraints that will put pressure on total 

system costs. Choosing the appropriate escalation rate requires analyst judgment; however, 

planners may want to investigate past escalation trends relevant to their system. 

The second adjustment involves applying a discount rate, which is used to estimate the 

present value of costs that extend into the future. The discount rate reflects the time value of 

money (or opportunity costs) and can be based on the system’s overall cost of capital. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Table 5-1: Relationship of Water Demand to Supply Facilities

Type of Water Demand Type of Water Supply Facility 

Average-day Source of supply facilities, including raw water 

storage facilities (such as reservoirs) 

Maximum-day (peak) 

Maximum-hour [a] 

Water treatment plants 

Major transmission lines 

Treated water storage facilities 

Distribution mains [b] 

Pumping stations [b] 

Source: Adapted from Charles W. Howe and F. Pierce Linaweaver, “The Impact of Price on 

Residential Water Demand and its Relationship to System Design and Price Structure, Water 

Resources Research 3 (First Quarter 1967): 13-32. 

[a] Maximum-day demand plus fire-flow requirements. 

[b] These facilities should be considered in the analysis if they could be affected by such conservation 

measures as leak detection and repair, pressure management, or integrated resource management. 

Planners should note that discounting is not the same as adjusting for inflation. In order to 

simplify the presentation, Worksheet 5-6 does not include an adjustment for inflation. It is 

not necessary to convert nominal to real (inflation-adjusted) dollars for the purpose of 

assessing benefits and costs. However, if planners choose to represent costs in real dollars, 

the escalation rate and the discount rate also should be expressed in real dollar terms. 

Given the uncertainty associated with the recommended adjustment factors, planners using 

the Advanced Guidelines also are encouraged to conduct a sensitivity analysis to establish a 

range of values based on different assumptions for the three adjustments. 

Preliminary Supply-Capacity Forecast 

Based on the anticipated improvements and additions, planners also can present a preliminary 

forecast of total supply capacity over the planning period. Worksheet 5-7 is provided for this 

purpose. The forecast, which can be presented in a table or graph, can be used to indicate 

when changes to capacity are expected to occur. The total supply forecast should reflect both 

additions to capacity and retirements. Improvements that allow the system to maintain 

capacity can be indicated with entries under both additions (to reflect the improvement) and 

retirements (to reflect the facilities taken out of service). A similar analysis can be used for 

wastewater facilities. 

The supply forecast is preliminary because it can and will be revised later in the plan to reflect 

the effect of conservation on water supply needs. 

116
___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

_________ __________ 

_________ __________ 

_________ __________ 

_________ __________ 

_________ __________ 

______________________ 

______________________ 

______________________ 

______________________ 

______________________ 

_______________ 

_______________ 

______________________ 

USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-5: Anticipated Improvements and Additions 

Describe planned improvements and additions: _________________________________ 

Describe time frame for planned improvements and additions (years): _____________ 

ImproveType of Project [a] ment Addition State date End date 

Source of supply � � 

Water treatment facilities � � 

Treated water storage � � 

Major transmission lines � � 

Other ___________________________ � � 

Need for Project(s) (Check all that apply) Notes 

Enhance compliance with regulations � 

Replace older equipment or facilities � 

Meet average-day demand � 

Meet maximum-day demand � 

Meet future growth needs � 

Other ___________________________ � 

Funding Interest rate 

Cost of financing 

Overall cost of capital [if known] 

Water purchases 

� 

� 

Anticipated future water purchases _________________ (gallons per year) 

Cost of water purchases _________________ (dollars per gallon) 

[a] Comprehensive plans can include wastewater facilities.

117 
USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-6: Present Value of Planned Supply-Side 

Facilities [a] 

Year 

[b] 

Annual 

incremental 

capacity 

from 

improvements/ 

additions 

[c] 

Annualized 

incremental 

capital cost 

[d] 

Annual 

operating 

cost 

[e] 

Undiscounted 

total 

annualized 

incremental 

cost 

[f] 

Escalated 

value of 

supply cost 

in nominal 

dollars 

[g] 

Present 

value of 

supply cost 

in nominal 

dollars 

[h] 

Present 

value of 

supply cost 

Per gallon 

in nominal 

dollars 

[i] 

gallons $ $ $ $ $ $/gallon 

0 

1 

2 

3 

4 

5 

6 

7 

8 

9 

10... 

20 

Total 

Source: Adapted from Pekelney, Chesnutt, and Hanemann (1996). See Glossary (Appendix C) for 

definitions. 

[a] = This analysis should be calculated separately for (1) improvements and additions needed to 

meet average demand, and (2) improvements and additions needed to meet peak demand so 

that the results can be compared to corresponding conservation measures. The analysis also 

can be expanded to include the incremental cost of wastewater collection and treatment. 

[b] = The number of years should correspond to the anticipated useful life of the project(s). 

[c] = Total gallons of capacity made available through the project(s). 

[d] = Annualized incremental capital cost (K): 

K = C x i x (1 + i)n where: K = annualized capital costs 

(1 + i)n –1 C = total expenditures required 

n = the useful service life of the capital expenditure (see [b]) 

i = the appropriate interest or financing rate 

[e] = Annual variable operating cost (including energy, chemicals, and water purchases). 

[f] = [d] + [e] 

[g] = [f] x (1 + s)t where s is the selected annual escalation rate and t is the year. The escalation rate 

can be tailored to the nature of capital expenditures. 

[h] = [g]/(1 + r)t where r is the selected annual discount rate and t is the year. The escalation rate can 

be tailored to the nature of capital expenditures. 

[i] = [h]/[c] 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-7: Preliminary Supply-Capacity Forecast

Year Additions (+) Retirements (-) 

Total supply capacity 

for the system 

(annual or daily) 

0 

1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

13 

14 

15 

16 

17 

18 

19 

20 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

5. IDENTIFY CONSERVATION MEASURES

Levels and Measures 

Water systems have a vast array of specific 

conservation measures at their disposal. These 

measures include both supply-side and demand-side 

management techniques for saving water and range 

from relatively simple educational tools to the 

promotion of advanced water-efficient technologies. 

Use of any particular measure depends on whether it 

meets cost-effectiveness and other planning criteria and 

whether its use complies with applicable laws and 

regulations, including state and local plumbing codes. 

Review the list of conservation 

measures recommended for 

consideration and identify 

measures that have been 

implemented, are planned, or 

are not planned. Provide an 

explanation for why any 

measure is not planned for the 

water system. 

The conservation measures are organized into three levels: Level 1, Level 2, and Level 3. 

Each level includes four categories of measures. Specific water conservation measures are 

identified within each category. Appendix A provides additional information and several 

worksheets on the conservation measures. Planners are encouraged to explore the full range 

of potential conservation measures for consideration in their conservation programs. 

Identifying Conservation Measures 

Worksheet 5-8 summarizes the minimum set of measures recommended for consideration in 

the Advanced Guidelines. Systems should use the checklist to review and summarize the 

measures that are currently implemented, planned, or not planned at this time. Planners also 

can identify additional measures and practices as they develop their conservation plans. 

Water systems following the Advanced Guidelines are expected to implement the very 

fundamental and widely accepted practices under Level 1. If Level 1 measures are not in 

place and not planned for implementation, planners should submit a strong justification, 

including a cost-effectiveness analysis if it is the basis for not implementing the measure. 

Planners can screen the measures in terms of general feasibility. In some cases, it may not be 

possible for a system to implement a measure because of legal restrictions or for other 

compelling reasons. The conservation plan should provide an explanation if a measure cannot 

be implemented for the period of time covered by the plan. It is not necessary to prepare a 

cost effectiveness analysis for measures that cannot be implemented. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-8: Checklist of Conservation Measures Already implemented �	 Plan to implement �	

Measure [a] Comments [b] 

LEVEL 1 MEASURES 

Universal metering [B] 

Source-water metering � � 

Service-connection metering � � 

Meter public-use water � � 

Fixed-interval meter reading � � 

Meter-accuracy analysis � � 

Test, calibrate, repair, and replace meters � � 

Water accounting and loss control [A] 

Account for water � � 

Repair known leaks � � 

Analysis of nonaccount water � � 

Water system audit � � 

Leak detection and repair strategy � � 

Automated sensors/telemetry � � 

Loss-prevention program � � 

Costing and pricing [B] 

Cost-of-service accounting � � 

User charges � � 

Metered rates � � 

Cost analysis � � 

Nonpromotional rates � � 

Advanced pricing methods � � 

Information and education [B] 

Understandable water bill � � 

Information available � � 

Informative water bill � � 

Water-bill inserts � � 

School program � � 

Public-education program � � 

Workshops � � 

Advisory committee � � 

[Worksheet continues. See footnotes at end of worksheet.] 

121 
USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-8 (continued) 

Alreadyimplemented �	Plan toimplement �	

Measure [a] Comments [b] 

LEVEL 2 MEASURES 

Water-use audits [B] 

Audits of large-volume users 

Large-landscape audits 

Selective end-use audits 

Retrofits [B] 

Retrofit kits available 

Distribution of retrofit kits 

Targeted programs 

Pressure management [A] 

Systemwide pressure regulation 

Selective use of pressure-reducing valves 

Landscape efficiency [P] 

Promotion of landscape efficiency 

Landscape planning and renovation 

Selective irrigation submetering 

Irrigation management 

LEVEL 3 MEASURES 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

Replacements and promotions [B] 

Rebates and incentives (nonresidential) 

Rebates and incentives (residential) 

Promotion of new technologies 

Reuse and recycling [B] 

Industrial applications 

Large-volume irrigation applications 

Selective residential applications 

Water-use regulation [B] 

Water-use standards and regulations 

Requirements for new developments 

Integrated resource management [B] 

Supply-side technologies 

Demand-side technologies 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

� 

[a] For more information about measures see Appendix A. 

[b] Note special issues related to the measure, including legal or other obstacles precluding implementation. 

Note: Measures can affect average-day demand [A], maximum-day (peak) demand [P], or both [B], as indicated. 

122 
USEPA Water Conservation Plan Guidelines Advanced Guidelines 

6. ANALYZE BENEFITS AND COSTS

Purpose 

In this section, an analysis of benefits and costs is used 

to aid the comparison and selection of measures. 

Planners will consider criteria other than efficiency in 

Section 7 and estimate actual effects of conservation 

on planned capital facilities in Section 8. 

Analyzing benefits and costs is an invaluable part of 

the planning process. Use a cost-effectiveness analysis 

to compare alternative conservation measures in terms 

of dollars per gallon of water saved. For example, one 

measure might produce savings at a cost of $.25/1,000 

gallons while another produces savings at a cost of $.50/1,000 gallons. Cost-effectiveness 

analysis also can be used to compare conservation measures to supply options. Use a net 

benefit analysis to determine whether the benefits of implementing a measure outweigh the 

costs. 

For each identified water 

conservation and other 

measures of interest, estimate 

total implementation costs 

(dollars) and anticipated water 

savings (volume), assess the 

cost-effectiveness of the 

measure, and compare the cost 

of conservation to benefits 

(measured in terms of the 

incremental cost of supply). 

It is not necessary for planners to prepare a cost-effectiveness or net benefit analysis of Level 

1 measures if those measures are already implemented or planned for implementation. An 

analysis should be presented if cost-effectiveness is the basis for rejecting a Level 1 measure. 

If the analysis of Level 1 measures leads the planner to conclude that a proposed measure is 

not cost-effective or that it fails to meet other criteria for implementation, the plan should 

include an explanation of these findings and conclusions in Worksheet 5-12 (Section 7). 

Water Savings 

Worksheet 5-9 should be completed for each conservation measure identified in Section 5. In 

some cases planners may want to combine measures based on the conservation program they 

envision. All interrelated measures that are expected to result in an identifiable amount of 

water savings should be combined and treated as one measure in order to avoid counting the 

planned water savings more than once in the analysis. 

The worksheet begins with an open-ended description of the measure and an estimate of water 

savings. The anticipated life span for the measure should be indicated. Planners also should 

indicate whether the measure is targeted toward reduction in average-day demand, maximumday demand, or both. Estimates of potential water savings should be as realistic as possible, 

based on system and regional considerations. For some measures, particularly those 

dependent on customer responses (such as information and education programs), the 

estimation will reflect a high degree of uncertainty. Planners can choose to use a range of 

estimates under these circumstances. 

123
USEPA Water Conservation Plan Guidelines Advanced Guidelines 

The plan should indicate typical water savings from the measure, the number of planned 

installations, and the anticipated life span for the measure, as well as whether the measure is 

expected to reduce average-day or maximum-day demand (or both). 

Implementation Costs 

Worksheet 5-9 includes a method for summing the total cost of implementing the measure. 

All costs associated with implementation should be included. Planners should ascertain 

reasonable cost estimates by potential vendors whenever possible. The types of costs that 

should be analyzed include: 

� Materials � Administration 

� Labor � Consulting or contracting 

� Rebates or other payments � Other 

� Marketing and advertising 

A realistic implementation schedule should be considered. Any special circumstances 

affecting the schedule or cost of implementing the proposed measures should be discussed in 

the plan. 

Each worksheet also includes a place to estimate annual unit water savings (that is, savings 

per measure or “unit”), total annual water savings, and total life span water savings for the 

measure. For each measure, the method used to estimate water savings should be provided. 

This might include, for example, a formula for converting daily per capita savings to annual 

savings. In some cases (such as a leakage control program), it might not be feasible to 

estimate savings for each unit, in which case total annual savings for the entire measure are 

sufficient. 

Analyzing Benefits and Costs 

Worksheet 5-10 also provides a detailed and relatively precise method for calculating the cost 

effectiveness and net benefit of each conservation measure. The spreadsheet format allows 

planners to incorporate year-to-year changes in benefits and costs. The number of years 

represented in the spreadsheet will vary with the anticipated life span of the measure. 

For some water conservation measures, savings will be constant from year-to-year. The same 

value will appear for each year. However, the spreadsheet also allows the analyst to 

recognize changes in the effectiveness of the conservation measures over time. 

The benefits of conservation are displayed in terms of the incremental cost of supply (from 

Worksheet 5-6). The estimate of benefits should reflect differences in savings from reduction 

in average-day demand versus reductions in maximum-day demand. This can be 

accomplished by using the disaggregated estimates of capital in the calculation of benefits. 

124
USEPA Water Conservation Plan Guidelines Advanced Guidelines 

For example, benefits from measures that reduce only average-day demand can be adjusted to 

include only the incremental capital cost of source facilities, plus annual operating costs; both 

are measured on a per gallon basis. The method also allows the planner to incorporate 

incremental additions and improvements at different years. 

The costs are represented in terms of total program costs for the measure. Most conservation 

program costs take the form of one-year (year 0) expenditures; costs in the subsequent years 

drop to zero. However, some measures may require recurring expenditures. When this is the 

case, the same discount rate used in the estimation of supply costs (in Worksheet 5-6) should 

be applied to the conservation expenditures. 

The net present value of conservation is simply the difference between net present benefits 

and net present costs. The spreadsheet uses nominal dollars to represent net present value. 

The worksheet reports only nominal dollars. However, planners can adjust their estimates of 

benefits and costs for anticipated inflation and convert nominal to real (inflation-adjusted) 

dollars. If real dollars are reported, the escalation rate and discount rate should be expressed 

in real dollar terms as well. 

Comparison of Measures 

Worksheet 5-11 can be used to compare the individual analyses of conservation measures in 

Worksheet(s) 5-10. Worksheet 5-11 can be used to screen measures for implementation on 

the basis of the relative cost-effectiveness and net benefits associated with each measure. 

125
__________________________________________________________________________________ 

__________________________________________________________________________________ 

________________ 

__________________________________________________________________________________ 

__________________________________________________________________________________ 

__________________________________________________________________________________ 

USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-9: Program Costs for Each Conservation 

Measure or Group of Measures 

Describe conservation measure: ________________________________________________________ 

Typical water savings from the measure: ________________ per _________________ 

Number of planned installations: 

Anticipated life span for the measure: ________________ years 

The measure is designed to reduce: � Average-day demand 

� Maximum-day demand 

� Both average-day and maximum-day demand 

Line Item Amount Amount 

A COST OF THE CONSERVATION MEASURE [a] Per unit [b] 

Total cost of the 

measure 

1 Materials 

2 Labor 

3 Rebates or other payments 

4 Marketing and advertising 

5 Administration 

6 Consulting or contracting 

7 Other 

8 Total program costs for the life of the measure (add 

lines 1 through 7) [c] 

B ESTIMATED SAVINGS 

9 Number of units to be installed [d] 

10 Estimated annual water savings per unit in gallons [e] 

11 Total estimated annual savings for the measure in gallons 

(multiply line 9 by line 10) 

12 Expected life span for the measure in years 

13 Total life span estimated savings for the measure in gallons 

(multiply line 11 by line 12) 

[a] A separate analysis should be performed for each conservation measure, but measures can be combined if 

they jointly produce water savings. 

[b] Examples of a unit are a toilet, a retrofit kit, and an audit. A unit estimate may not be appropriate for each 

measure, in which case total program water savings and costs for the measure can be used. 

[c] Include all recurring operation and maintenance costs over the life of the measure. 

[d] Units can be individual product units (such as toilets) or groups of products (such as household retrofits), as 

long as the analysis is consistent. Leave blank if unit values do not apply. 

[e] For example, water savings per retrofit. See Appendix B for benchmarks and sample calculations. Leave 

blank if unit values do not apply. 

Notes on analysis: __________________________________________________________________________ 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-10: Analysis of Each Conservation Measure or 

Group of Measures 

Year [a] 

Annual water 

savings from 

the 

conservation 

measure 

[b] 

Present value 

of supply cost 

per gallon in 

nominal 

dollars 

[c] 

Undiscounted 

cost of the 

conservation 

measure 

[d] 

Present value 

cost of 

conservation 

in nominal 

dollars 

[e] 

Net savings 

from 

conservation 

in nominal 

dollars 

[f] 

Net benefit 

from 

implementing 

the measure 

[g] 

gallons $/gallon $/gallon $/gallon $/gallon $ 

0 0 $ $ $ $ $ 

1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

13 

14 

15 

16 

17 

18 

19 

20 

Totals 

Average 

annual 

savings [h] 

Source: Adapted in part from Pekelney, Chesnutt, and Hanemann (1996). 

[a] = The number of years analyzed should cover the expected useful life of the measure. 

[b] = Anticipated annual conservation savings. Include attrition or rebound effects if applicable. 

[c] = From corresponding column in Worksheet 5-6 (last column). 

[d] = Recurring expenditures should be included in the table at the appropriate year. 

[e] = [d]/(1 + r)t where r is the selected discount rate and t is the year. The discount rate should be the same 

used in Section 4. This column assesses the per-gallon cost of each measure. 

[f] = [c] – [e]. 

[g] = [f] x [b]. This column assesses the total net benefit of the measure. 

[h] = Based on the total number of years in the planning horizon. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-11: Comparison of Benefits and Costs of the 

Conservation Measures 

Line Conservation measure 

[a] 

Total program 

cost for the 

measure 

[b] 

Anticipated 

annual water 

savings in 

gallons [c] 

Cost of water 

saved by the 

measure 

($/gallon) 

[d] 

Net benefit of 

implementing 

the 

measure(s) 

[e] 

1 $ $ $ 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

13 

14 

15 

16 

17 

18 

19 

20... 

[a] = Combined measures that produce joint conservation savings should be treated as one measure to avoid 

duplicate counting. 

[b] = Based on Worksheet 5-9, line 8. 

[c] = Based on Worksheet 5-10, average annual water savings from the conservation measure. 

[d] = Based on Worksheet 5-10, present value of supply cost in nominal dollars. 

[e] = Based on Worksheet 5-10, net benefit from implementing the measure. This estimate of net benefit does 

not consider societal benefits and costs. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

7. SELECT CONSERVATION MEASURES

Selection Criteria 

The first step in the selection process is to identify 

criteria for evaluating the conservation measures. The 

cost-effectiveness of the measures (from Section 6) is 

one criterion, but other factors should be considered as 

well. Planners are free to consider as many selection 

criteria as they believe are appropriate, but the 

relevance of the criteria should be explained in the 

conservation plan. 

Criteria that can be used in selecting conservation measures for implementation include: 

Describe the process by which 

conservation measures were 

selected for implementation, 

including identification of 

selection criteria. Summarize 

the selected measures and total 

anticipated program costs for 

implementation. 

� Program costs � Environmental and social justice 

� Cost-effectiveness � Water rights and permits 

� Ease of implementation � Legal issues or constraints 

� Budgetary considerations � Regulatory approvals 

� Staff resources and capability � Public acceptance 

� Environmental impacts � Timeliness of savings 

� Ratepayer impacts � Consistency with other programs 

For each selection criterion used, planners should identify whether, how, and why the factor 

affects the feasibility of implementing one or more conservation measures. Different factors 

might be assigned different weights. Planners also may want to bear in mind that techniques 

can be used to mitigate adverse effects and improve acceptance of measures. A cost-effective 

conservation measure should not be dismissed without careful consideration of how barriers 

to implementation might be overcome. 

Selecting the Measures 

Worksheet 5-12 provides a simple format for summarizing the selection of measures. For 

each measure, planners should indicate whether the measure was selected for implementation. 

Planners also should identify the primary reason or reasons for selecting or rejecting the 

measure. Special conditions or actions that are required before a selected measure can be 

implemented (such as an approval from regulators) should be noted. 

In some cases, planners may conclude that a measure (or measures) cannot be implemented 

because of a constraint that exists in the short term. Conservation measures that might be 

planned for future implementation, once constraints are resolved, should be discussed in the 

plan. Planners should briefly discuss their implementation strategies with respect to such 

measures. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

For the conservation measures selected for implementation, planners should estimate the 

expected reductions in average-day and maximum-day demand. These estimates will be used 

in the next section of the plan to integrate conservation savings with the system’s plans for 

supply-side facilities. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-12: Selection of Conservation Measures and 

Estimate of Water Savings 

Line Measure 

Selected 

�

Primary criteria 

for selecting or rejecting 

the conservation measure for 

implementation 

Estimated reduction in 

demand for selected 

measures 

(gallons per day) [a] 

Average-day 

demand 

Maximumday demand 

1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

13 

14 

15 

16 

17 

18 

19 

20... 

Total 

[a] Based on Worksheet 5-9, line 11. Planners will need to convert estimates of annual water savings to 

estimates of reductions in average-day and maximum-day demand for each measure or group of measures. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

8. INTEGRATE RESOURCES AND 

MODIFY FORECASTS 

Integrating Options 

In this section, planners can revise the demand and 

supply-capacity forecasts made in earlier sections of 

the plan based on anticipated conservation savings. 

Pay particular attention to the effects of conservation 

on specific supply-facility projects. 

Planners should be cautious to avoid counting 

demand-side or supply-side resources more than once 

in the analysis. Anticipated savings from conservation 

should be based on realistic estimates of savings associated with the planned measures. 

Similarly, supply projects that involve multiple facilities should be considered in terms of the 

total water supply capacity that is made available through those combined facilities. Timing 

is another issue. The plan should address how different supply-side and demand-side projects 

involve different life spans and implementation schedules. One twenty-year supply-side 

project, for example, might be offset by a series of conservation measures that begin and end 

at different times. 

Modify water demand and 

supply-capacity forecasts to 

reflect the anticipated effects of 

conservation. Indicate whether 

and how water savings from 

conservation will allow systems 

to eliminate, downsize, or 

postpone supply-side projects or 

water purchases. 

Some conservation plans use a graph to display anticipated annual supply capacity and 

demand without and with the implementation of conservation measures. Figure 5-2 is an 

example of this type of graph for a twenty-year planning horizon. 

Figure 5-2 

Sample Graph of Modified Supply and Demand Forecasts 

Based on Implementing Conservation Measures 

Supply Capacity and Demand

Supply 

without 

conservation 

Supply with 

conservation 

Demand 

without 

conservation 

Demand with 

conservation 

1 3 5 7 9 11 13 15 17 19 

Planning Year 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Modifying Demand Forecasts 

Planners should use Worksheet 5-13 to collate information from previous worksheets and 

analyses in order to revise the demand forecasts made in Worksheet 5-4. Revisions should 

reflect changes based on the introduction of new conservation measures. The effects of 

measures already being implemented should be included in the original demand forecast. 

Modifying the demand forecast requires a considerable degree of judgment, particularly in 

estimating the effects of conservation on average-day and maximum-day demand. The plan 

should include an explanation of the approach used in revising the demand forecasts. 

Project-Specific Savings 

Planners should identify the anticipated effects of conservation on planned supply-side 

improvements and additions (as specified in Section 4). Worksheet 5-14 is provided for this 

purpose. A worksheet should be completed for separable supply projects as appropriate. 

Ideally, water conservation strategies that reduce demand will translate into supply-side 

savings through one or more of the following actions: 

� Eliminating a project for the foreseeable future 

� Downsizing a project based on reduced capacity needs 

� Postponing a project into the future 

� Eliminating, reducing, or postponing water purchases 

Adjustments to supply-capacity planning must be realistic, especially in terms of complex and 

sometimes competing goals. Supply projects cannot be eliminated, downsized, or postponed if 

doing so would compromise public health or safety, reduce operational efficiency, or inflate 

costs beyond a reasonable amount. Some systems (including systems that currently operate 

with inadequate or unreliable supply reserves) may not be able to translate all demand 

reductions into supply-capacity reductions. Planners should identify and describe such 

circumstances. On the other hand, supply projects that are not needed or oversized place an 

unnecessary burden on systems and their customers. 

Modifying Supply Forecasts 

The supply-capacity forecast is revised in Worksheet 5-15. The revision to the supplycapacity forecast should be based on Worksheet(s) 5-14 and consistent with accepted supplycapacity planning practices. The modification of forecasts should reflect reasonable 

assumptions about anticipated implementation schedules, which are summarized in Section 9. 

Planners also can indicate the anticipated capacity reserve (the difference between forecast 

supply capacity and demand). 

Worksheet 5-15 also provides a method of summarizing savings in capital and operating 

costs, based on reductions in supply capacity. Planners also should estimate reductions in 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

operating costs at existing facilities that will occur with demand reductions (apart from 

operating costs associated with planned facilities). The total program cost of conservation can 

be compared with the savings in total capital and annual operating costs. 

As recognized throughout these Guidelines, water conservation also has nonmonetary 

benefits. Planners should discuss, as appropriate, how implementation of the conservation 

program will help their system cope with any of the conditions identified in Section 2 

(Worksheet 5-2). For example, the planned measures might help a system address problems 

related to safe yields or drought management. 

Revenue Effects 

The conservation plan should briefly describe how planned conservation measures will affect 

water utility revenues (based on reduction in sales) and discuss strategies for addressing these 

revenue effects. Reductions in water usage will affect the revenues of the water utility. 

Reductions in water usage will affect the revenues of the water utility. Conservation will help 

the water utility reduce variable costs (such as energy, chemical, and purchased water costs). 

In the long term, conservation also will help the utility reduce fixed costs (associated with 

new capital facilities). In the short term, reductions and sales can lead to a shortfall in 

revenues needed to cover fixed costs and sustain the financial viability of the water system. 

The planner can estimate the effect of conservation on revenues by multiplying current water 

rates by the adjusted level of sales (for the variable portion of the water bill). The adjusted 

level of sales should include the anticipated effects of conservation. Conservation-oriented 

rate structures have direct revenue effects that should be considered. Worksheet A-4 in 

Appendix A can be used to evaluate the revenue effects of rate changes. 

Conservation planners should work closely with financial planners in order to integrate their 

analyses, identify potential revenue shortfalls, and devise strategies to ensure that the utility 

will meet its revenue requirements. 

Adjustments to water rates may be needed. For some utilities, a change in rates requires 

approval from an oversight board or state public utility commission. When rate increases are 

offset by usage reductions, customer bills and utility revenues can be maintained. Customers 

and utilities eventually will realize savings from conservation through long-term reductions in 

costs. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-13: Modified Demand Forecast

Line Item 

Current 

year Year 5 Year 10 Year 20 

1 Average-day demand before conservation [a] 

2 Reduction in average-day demand (line 1 less 

line 2) [b] 

3 Average-day demand after conservation 

4 Maximum-day demand before conservation [a] 

5 Reduction in maximum-day demand (line 4 less 

line 5) [b] 

6 Maximum-day demand after conservation 

7 Ratio maximum-day to average-day demand 

before conservation (line 4 divided by line 1) 

8 Ratio maximum-day to average-day demand 

after conservation (line 6 divided by line 3) 

[a] From Worksheet 5-4, line 6. 

[b] Based on Worksheet 5-12. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-14: Project-Specific Savings 

DESCRIPTION OF PROJECT [a] 

Describe the supply-side project(s): ____________________________________________________ 

Project was scheduled to begin: 

Purpose of the project: � Improvement � Addition 

The project is designed to meet: � Average-day demand � Maximum-day demand 

Type of project: � Source of supply 

� Water treatment facilities 

� Treated water storage 

� Major transmission lines 

� Purchased water 

� Other _____________________________________ 

CHANGES TO PROJECT [b] 

Project 

supply 

Project Costs 

Total Annual 

capacity capital operating 

Line Item (daily) costs ($) costs ($) 

A CAPITAL PROJECT IS ELIMINATED 

1 Original project 

2 Savings from elimination (equals line 1) 

B CAPITAL PROJECT IS DOWNSIZED 

3 Original project 

4 Downsized project 

5 Savings from downsizing (line 3 less line 4) 

C CAPITAL PROJECT IS POSTPONED 

6 Present value of original project 

7 Present value of postponed project 

8 Savings from postponement (line 6 less line 7) 

D NEED FOR PURCHASED WATER IS REDUCED [c] 

9 Original estimate of purchases 

10 Revised estimate of purchases (can be “0”) 

11 Savings from reduced purchases (line 9 less line 10) 

[a] Comprehensive plans can include wastewater facilities. 

[b] Based on Worksheet 5-13 estimates of reductions in demand. 

[c] For purchased water, report only annual operating costs and include costs associated with take-or-pay 

contract provisions. Transmission facilities needed to transport purchased water should include capital 

and operating costs associated with such facilities and reported as a capital project. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-15: Modified Supply Forecast and Estimated 

Total Savings 

MODIFIED SUPPLY FORECAST 

Line Item 

Current 

Year Year 5 Year 10 Year 20 

A Forecast Supply Capacity (Daily) 

1 Supply capacity before conservation program 

[a] 

2 Planned reduction in supply capacity [b] 

3 Supply capacity after conservation (line 1 less 

line 2) 

B Capacity Reserve 

4 Supply capacity less demand (line 3 less line 2 

on Worksheet 5-13) 

ESTIMATED TOTAL SAVINGS 

Project Costs 

Line Item 

Supply 

capacity 

(daily) 

Total capital 

costs ($) 

Annual 

operating 

costs ($) 

C 

Total Estimated Savings from Changes to 

Supply Projects [c] 

1 Cost of supply projects before conservation 

2 Cost of supply projects after conservation 

3 Savings (line 1 less line 2) 

D 

Total Estimated Savings from Reduced 

Operating Costs at Existing Facilities [d] 

4 Operating costs before conservation 

5 Operating costs after conservation 

6 Savings (line 4 less line 5) 

E Conservation Program Costs 

Total 

program 

costs ($) 

7 Total cost of implementing selected 

conservation measures [e] 

[a] From Worksheet 5-7. 

[b] Based on Worksheet(s) 5-14. 

[c] Based on Worksheet(s) 5-14. 

[d] Based on annual variable operating cost (including energy, chemicals, and water purchases). 

[e] Based on Worksheet 5-11. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

9. PRESENT IMPLEMENTATION AND 

EVALUATION STRATEGY 

Implementation 

In this final step in the conservation planning process, 

the water system specifies its strategy and timetable for 

implementation. It can be emphasized, however, that 

conservation planning will require an ongoing effort on 

the part of water utility managers. Ongoing planning 

and implementation will go hand in hand. The 

implementation strategy should include a preliminary 

Present a strategy and timetable 

for implementing conservation 

measures and other elements of 

the conservation plan. Describe 

proposed approaches for 

implementing and evaluating 

planned conservation measures. 

schedule for monitoring and evaluating program results 

and revisiting the plan for updates and modifications. 

Implementation of Measures 

Worksheet 5-16 is a simple template for summarizing the water system’s implementation and 

evaluation schedule for the conservation measures. For each measure, the schedule can 

identify significant implementation actions, a beginning date, and a completion date. 

Implementation actions include: 

� Securing budgetary resources 

� Hiring of staff 

� Procurement of materials 

� Agreements with suppliers or consultants 

� Acquisition of permits or other approvals from regulatory agencies 

� Legislative actions (for changes in water-use regulations) 

� Activity milestones (for example, system audits or distribution of retrofit kits) 

Planners should make note of any specific factors or contingencies that might affect or 

prevent the implementation of specific measures. For example, if a measure cannot be 

implemented prior to obtaining a special permit or other authority, this fact should be noted 

along with an explanation of the strategy for obtaining the necessary authority. 

Some measures might require implementation actions that take place over several years (in 

order to sustain conservation savings). The plan should provide sufficient detail to understand 

the utility’s strategy with regard to implementing such measures. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Implementation and Evaluation 

Worksheet 5-17 provides a very simple summary of the water system’s general 

implementation and evaluation strategy for the conservation plan. Three areas are 

highlighted: 

� Public involvement 

� Monitoring and evaluation 

� Updates and revisions 

A plan for public involvement should discuss whether and when the water system intends to 

involve members of the community in the implementation of the conservation plan. Some 

systems may want to schedule regular meetings with community groups to keep them 

informed of the system’s progress in meeting goals. 

A plan for monitoring and evaluation should address data collection, modeling, and other 

issues that will be important in tracking the effects of water conservation on demand over 

time. The system may want to plan to collect new kinds of data for monitoring purposes as 

well as for future forecasting needs. Many systems might find, for example, that more 

detailed data on demand by customer class are needed, including more detail on contributions 

to average-day and maximum-day demands. More detailed data might also be needed to 

assess trends in nonaccount water. 

A plan for updates and revisions will help keep the system’s conservation plan current over 

time and account for the system’s actual experience with conservation. Updating forecasts of 

water demand and supply capacity as new data become available is especially important. In 

some cases, the system might want to revise or expand its planning goals. Many systems 

update plans every five years. However, changing conditions or other concerns might justify 

more frequent updates. The schedule of updates and revisions might be affected by state or 

local requirements for conservation planning by the water system. 

The conservation planning document also should include a record of the plan’s adoption by 

the water system’s governing body (such as a Board of Directors or City Council), as 

appropriate. 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-16: Implementation Schedule for Measures

Line Measure Required action 

Beginning 

date 

Completion 

date Notes 

1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

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___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

Worksheet 5-17: Implementation Strategy

A. PUBLIC INVOLVEMENT 

Describe plan for public involvement: 

B. MONITORING AND EVALUATION 

Describe plan for monitoring and evaluation: 

Describe plan to collect water demand data: 

C. PLAN UPDATES 

Describe plan for updates and revisions: 

D. ADOPTION OF THE PLAN 

Date plan completed: _________________________________________________ 

Date plan approved: _________________________________________________ 

Approved by [governing body]: _________________________________________________ 

Signature: _________________________________________________ 

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USEPA Water Conservation Plan Guidelines Advanced Guidelines 

[blank page] 

142
USEPA Water Conservation Plan Guidelines Appendix A 

APPENDIX A 

WATER CONSERVATION MEASURES 

This Appendix to the EPA Guidelines for Preparing Water Conservation Plans describes the 

water conservation measures that water utilities can use in designing water conservation 

programs. As part of their conservation plans, planners should consider, at a minimum, each 

of the measures specified in the Basic, Intermediate, or Advanced Guidelines, depending on 

which set of Guidelines apply to the water system. 

The measures are organized into three general categories: Level 1, Level 2, and Level 3. 

Within each level are four subcategories that are used to organize a variety of specific 

conservation measures: 

� Level 1 Measures 

� Universal metering 

� Water accounting and loss control 

� Costing and pricing 

� Information and education 

� Level 2 Measures 

� Water-use audits 

� Retrofits 

� Pressure management 

� Landscape efficiency 

� Level 3 Measures 

� Replacements and promotions 

� Reuse and recycling 

� Water-use regulation 

� Integrated resource management 

This system of organizing the conservation measures recognizes that the measures considered 

can vary with the size and capability of the system. Water systems are strongly encouraged to 

explore the fullest range of conservation measures practical, including measures beyond the 

minimum measures suggested in the Guidelines that they are following. Many smaller and 

middle-sized utilities have been very successful in implementing a wide range of beneficial 

conservation programs. 

What follows is a description of each of the twelve subcategories of measures. The 

Guidelines provide checklists that planners can use in reviewing measures. However, 

planners are encouraged to consider as many measures as practical given their capability and 

the conditions they seek to address. In some cases, planners may choose to consider and 

implement selected measures beyond those minimally recommended for consideration. 

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USEPA Water Conservation Plan Guidelines Appendix A 

Although this list of conservation measures is relatively current and comprehensive, planners 

should not limit their analysis only to the measures mentioned here. Planners also should 

consider new technologies and approaches as they become available. Letters next to each 

category indicate whether the measures in that category are considered particularly useful in 

reducing average-day demand [A], maximum-day or peak demand [P], both [B]. Worksheets 

for some of the conservation measures are provided at the end of this Appendix. 

Level 1 Measures 

Universal Metering [B] 

‹�������������� Advanced Guidelines ���������������fi 

‹������ Intermediate Guidelines �������fi 

Measures ‹ Basic Guidelines �fi 

Universal metering � Source-water metering � Fixed-interval meter reading � Test, calibrate, repair, and 

[B] � Service-connection � Meter-accuracy analysis replace meters 

metering and reading 

� Meter public-use water 

Metering is a very fundamental tool of water system management and conservation. 

Worksheet A-1 can be used by systems to assess their metering practices. 

Source-water metering. Both the supplier and the customer benefit from metering. Source 

metering is essential for water accounting purposes. 

Service-connection metering. Service-connection metering is needed to inform customers 

about how much water they are using; suppliers use metering data to more accurately track 

water usage and bill customers for their usage. 

Public-use water metering. All water provided free of charge for public use should be 

metered and read at regular intervals. This will allow the utility to more accurately account 

for water. Lack of metering undermines loss control, costing and pricing, and other 

conservation measures. 

Fixed-interval meter reading. A program of fixed-interval meter reading is essential to 

determine the amount of nonrevenue-producing water. Source meters and service connection 

meters should be read at the same relative time in order to facilitate accurate comparisons and 

analysis. Readings generally should occur at regular intervals, preferably monthly or 

bimonthly. Estimated bills should be kept at a minimum, subject to state and local 

regulations. 

Meter accuracy. Water meters can be damaged and deteriorate with age, thus producing 

inaccurate readings. Inaccurate readings will give misleading information regarding water 

144
USEPA Water Conservation Plan Guidelines Appendix A 

usage, make leak detection difficult, and result in lost revenue for the system. All meters, 

especially older meters, should be tested for accuracy on a regular basis. The system also 

should determine that meters are appropriately sized. Meters that are too large for a 

customer’s level of use will tend to under-register water use. 

Meter testing, calibration, repair, and replacement. After determining the accuracy of the 

metering system, the utility should provide a schedule of activities necessary to correct meter 

deficiencies. Meters should be recalibrated on a regular basis to ensure accurate water 

accounting and billing. 

Water Accounting and Loss Control [A] 

Measures 

Water accounting 

and loss control 

[A] 

‹�������������� Advanced Guidelines ���������������fi 

‹������ Intermediate Guidelines �������fi 

‹ Basic Guidelines �fi 

� Account for water � Analyze nonaccount water � Loss-prevention program 

� Repair known leaks � Water system audit 

� Leak detection and repair 

strategy 

� Automated sensors/ telemetry 

In many respects, water conservation begins on the supply side. All water systems will 

benefit from a water accounting system that helps track water throughout the system and 

identify areas that may need attention, particularly large volumes of nonaccount water. 

Nonaccount water includes water that is metered but not billed, as well as all unmetered 

water. Unmetered water may be authorized for such utility purposes (such as operation and 

maintenance) and for certain public uses (such as fire hydrant maintenance). Unmetered 

water also includes unauthorized uses, including losses from accounting errors, 

malfunctioning distribution system controls, thefts, inaccurate meters, or leaks. Some 

unauthorized uses may be identifiable. When they are not, these unauthorized uses constitute 

unaccounted-for water. 

Implementing a system of water accounting is a necessary first step in developing strategies 

for loss control. A system of water accounting is provided in Figure A-1. This system for 

tracking water begins with total water produced and ends with unaccounted-for water. 

Worksheet A-2 (which follows figure A-1) and Worksheet A-3 can assist water systems in 

developing a water accounting and loss control strategy. 

Account for water. All water systems, even smaller systems, should implement a basic 

system of water accounting (as appears in Worksheet A-3). This accounting exercise 

provides a basis for a strategy to control losses over time. 

Repair known leaks. The cost of water leakage can be measured in terms of the operating 

costs associated with water supply, treatment, and delivery; water lost produces no revenues 

for the utility. Repairing larger leaks can be costly, but it also can produce substantial savings 

in water and expenditures over the long run. 

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USEPA Water Conservation Plan Guidelines Appendix A 

Water accounting is less accurate and useful when a system lacks source and connection 

metering. Although the system should plan to meter sources, unmetered source water can be 

estimated by multiplying the pumping rate by the time of operation based on electric meter 

readings. 

Analysis of nonaccount water. Nonaccount water use should be analyzed to identify 

potential revenue-producing opportunities, as well as recoverable losses and leaks. Some 

utilities might consider charging for water previously given away for public use or stepping 

up efforts to reduce illegal connections and other forms of theft. 

System audit. A system audit can provide information needed to make a more accurate 

analysis of nonaccount water. 

Leak detection and repair strategy. Systems also should institute a comprehensive leak 

detection and repair strategy. This strategy may include regular on-site testing using 

computer-assisted leak detection equipment, a sonic leak-detection survey, or another 

acceptable method for detecting leaks along water distribution mains, valves, services, and 

meters. Divers can be used to inspect and clean storage tank interiors. 

Automated sensors/telemetry. Water systems also consider using remote sensor and 

telemetry technologies for ongoing monitoring and analysis of source, transmission, and 

distribution facilities. Remote sensors and monitoring software can alert operators to leaks, 

fluctuations in pressure, problems with equipment integrity, and other concerns. 

Loss-prevention program. This may include pipe inspection, cleaning, lining, and other 

maintenance efforts to improve the distribution system and prevent leaks and ruptures from 

occurring. Utilities might also consider methods for minimizing water used in routine water 

system maintenance procedures in accordance with other applicable standards. 

Costing and Pricing [B] 

‹�������������� Advanced Guidelines ���������������fi 

‹������ Intermediate Guidelines �������fi 

Measures ‹ Basic Guidelines �fi 

Costing and pricing � Cost-of-service � Cost analysis � Advanced pricing methods 

[B] accounting � Nonpromotional rates 

� User charges 

� Metered rates 

Costing and pricing are conservation strategies because they involve understanding the true 

value of water and conveying information about that value, through prices, to water 

customers. The use of user charges often is considered a necessary (but not always sufficient) 

part of a water conservation strategy. Many resources are available on how to account for 

costs and design water rates. 

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USEPA Water Conservation Plan Guidelines Appendix A 

Cost-of-service accounting. Water systems should use cost-of-service accounting, consistent 

with generally accepted practices. Many resources are available for this purpose. 

Understanding and tracking system costs also is a capacity-development strategy for small 

systems. 

User charges. Once costs are established, systems can develop more accurate user charges 

(or rate structures). 

Metered rates. Metered rates should be used so that the customer’s water bill corresponds to 

their water usage. For many systems, change in water rates must be approved by regulators or 

other oversight bodies. It is important for water systems to communicate with regulators 

about costs and the need for cost-based pricing. 

Cost analysis. Systems should conduct a cost analysis to understand what types of usage 

drive system costs. For example, systems should analyze patterns of usage by season and 

class of service. 

Nonpromotional rates. Systems also should consider whether their current rate structures 

promote water usage over conservation; nonpromotional rates should be implemented 

whenever possible in order to enhance the conservation signal of rates. 

Systems seeking to encourage conservation through their rates should consider various issues: 

the allocation between fixed and variable charges, usage blocks and breakpoints, minimum 

bills and whether water is provided in the minimum bill, seasonal pricing options, and pricing 

by customer class. 

Systems also should consider the effect of introducing a new rate structure on revenues. 

Worksheet A-4 is provided for this purpose. Conservation-oriented pricing requires planners 

to make certain assumptions (based on the available empirical evidence) about the elasticity 

of water demand, or the responsiveness of water usage to a change in price. Elasticity is 

measured by the ratio of a percentage change in quantity demanded to a percentage change in 

price. Changes in the rate structure should allow the system to achieve demand reduction 

goals recovering water system costs. In allocating costs, the impact of the rate structure on 

user demand and revenues for specific customer classes should be considered. 

Advanced pricing methods. Advanced pricing methods generally allocate costs by customer 

class and/or type of water use. Advanced pricing might consider seasonal variations or other 

methods for pricing indoor and outdoor usage based on differing contributions to system 

peaks. The conservation orientation of the rate structure can be enhanced by considering the 

elasticity factors for different classes of water use. Marginal-cost pricing, which considers the 

value of water relative to the cost of the next increment of supply, can be considered as well. 

Systems also can consider special ratemaking provisions (such as cost-recovery or lostrevenue mechanisms). Potential revenue instability can be addressed with additional rate 

structure modifications (such as revenue-adjustment mechanisms). 

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USEPA Water Conservation Plan Guidelines Appendix A 

Obviously, the pricing strategy must be consistent with overall system goals and approved by 

regulatory or other governing bodies. 

Information and Education [B] 

‹�������������� Advanced Guidelines ���������������fi 

‹������ Intermediate Guidelines �������fi 

Measures ‹ Basic Guidelines �fi 

Information and � Understandable water � Informative water bill � Workshops 

education [B] bill � Water-bill inserts � Advisory committee 

� Information available � School program 

� Public-education program 

Information and education are critical to the success of any conservation program. 

Information and education measures can directly produce water savings, as when customers 

change their water-use habits. These savings can be difficult to estimate. Also, public 

education alone may not produce the same amount of sustained water savings as other, more 

direct approaches (such as leak repairs and retrofits). 

But educational measures also can enhance the effectiveness of other conservation measures. 

For example, it is widely believed that information plays a role in how water consumers 

respond to changes in price. More generally, customers that are informed and involved are 

more likely to support the water system’s conservation planning goals. Worksheet A-5 is 

provided for systems to use in assessing their information and education programs. 

Understandable water bill. Customers should be able to read and understand their water 

bills. An understandable water bill should identify volume of usage, rates and charges, and 

other relevant information. 

Information available. Water systems should be prepared to provide information pamphlets 

to customers on request. Public information and education are important components of 

every water conservation plan. Consumers are often willing to participate in sound water 

management practices if provided with accurate information. Furthermore, providing 

information and educating the public may be the key to getting public support for a utility’s 

water conservation efforts. An information and education program should explain to water 

users all of the costs involved in supplying drinking water and demonstrate how water 

conservation practices will provide water users with long term savings. 

Informative water bill. An informative water bill goes beyond the basic information used to 

calculate the bill based on usage and rates. Comparisons to previous bills and tips on water 

conservation can help consumers make informed choices about water use. 

Water bill inserts. Systems can include inserts in their customers’ water bills that can provide 

information on water use and costs. Inserts also can be used to disseminate tips for home 

water conservation. 

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School program. Systems can provide information on water conservation and encourage the 

use of water conservation practices through a variety of school programs. Contacts through 

schools can help socialize young people about the value of water and conservation techniques, 

as well as help systems communicate with parents. 

Public education program. Utilities can use a variety of methods to disseminate information 

and educate the public on water conservation. Outreach methods include speakers’ bureaus, 

operating booths at public events, printed and video materials, and coordination with civic 

organizations. 

Workshops. Utilities can hold workshops for industries that might be able to contribute to 

water conservation efforts. These might include, for example, workshops for plumbers, 

plumbing fixture suppliers, and builders or for landscape and irrigation service providers. 

Advisory committee. A water conservation advisory committee can involve the public in the 

conservation process; potential committee members include elected officials, local business 

people, interested citizens, agency representatives, and representatives of concerned local 

groups. The committee can provide feedback to the utility concerning its conservation plan 

and develop new material and ideas about public information and support for conservation in 

the community. Of course, to be meaningful, the utility must be receptive to ideas offered by 

the committee. 

Level 2 Measures 

Water-Use Audits [B] 

‹�������������� Advanced Guidelines ���������������fi 

‹������ Intermediate Guidelines �������fi 

Measures ‹ Basic Guidelines �fi 

Water-use audits � Audits of large-volume users � Selective end-use audits 

[B] � Large-landscape audits 

Water-use or end-use audits can provide water systems and their customers with invaluable 

information about how water is used and how usage might be reduced through specific 

conservation strategies. 

Audits of large-volume users. Utilities can facilitate water audits for large-volume users, 

both commercial and industrial. Water audits should begin by identifying the categories of 

water use for the large-volume user. These may include process, sanitary, domestic, heating, 

cooling, outdoor, and other water uses. Second, a water audit should identify areas in which 

overall water use efficiency can be improved through alternative technologies or practices. 

Large-landscape audits. Water audits can be used for outdoor usage, as well as for indoor 

processes. Audits of irrigation practices can provide large-volume commercial, industrial, 

and public users with information about usage and usage-reduction techniques. These audits 

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can be used in conjunction with irrigation submetering and other landscaping efficiency 

practices. 

Selective end-use audits. Water audits can be widened to include selective end-use audits by 

customer class, focusing on typical water-use practices within each class. An audit program 

can be selective in terms of targeting customer groups that have particular needs or for which 

water conservation could be particularly beneficial. Audits targeted to older housing, for 

example, can be particularly beneficial in terms of identifying and fixing plumbing leaks. 

End-use audits also can be tailored to the usage practices within user groups. For example, 

residential water audits may focus on plumbing fixtures, lawn and garden water practices, and 

customer behavior. Residential water audits can be used to make immediate repairs and 

retrofits. Worksheet A-6 summarizes the components of a residential water audit. All water 

audits should include a written report to the customer that includes specific ideas for 

conservation. Water audits can be planned and implemented in conjunction with electric 

power companies or others interested in promoting conservation practices. 

Retrofits [A] 

‹�������������� Advanced Guidelines ���������������fi 

‹������ Intermediate Guidelines �������fi 

Measures ‹ Basic Guidelines �fi 

Retrofits [A] � Retrofit kits available � Distribution of retrofit kits 

� Targeted programs 

Water systems can promote conservation through a retrofit program. Retrofitting involves 

making an improvement to an existing fixture or appliance (versus replacement) in order to 

increase water-use efficiency. Retrofit programs usually target plumbing fixtures. 

Retrofit kits available. A basic retrofit kit may include low-flow faucet aerators, low-flow 

showerheads, leak detection tablets, and replacement flapper valves. Retrofit kits may be 

made available free or at cost. 

Calculating the savings from a retrofit program requires planners to make a number of 

assumptions about water use and savings. Some of the assumptions used in retrofitting are:1 

� Toilets (4-6 flushes per person per day) 

� Showerheads (5-15 shower-use minutes per person per day) 

� Bathroom Faucets (.5-3 faucet-use minutes per person per day) 

� Kitchen Faucets (.5-5 faucet-use minutes per person per day) 

1

 Duane D. Baumann, John J. Boland, and W. Michael Hanemann, Urban Water Demand Management and 

Planning ( New York: McGraw Hill, 1998): 254. 

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USEPA Water Conservation Plan Guidelines Appendix A 

Many useful textbooks and manuals are available to help planners estimate typical water use 

and potential savings from retrofits (See Appendixes B and D.) 

Distribution of retrofit kits. Water systems can actively distribute retrofit kits directly or 

through community organizations. Retrofit kits also can be distributed in conjunction with 

audit programs. 

Targeted programs. Utilities might institute targeted programs for different customer classes 

(residential, commercial, industrial, public buildings, and so on). Retrofits of industrial 

premises can include facilities used by the public and employees, as well as facilities used for 

production purposes. A program to retrofit low-income housing units may conserve 

considerable water in older residential housing units with inefficient plumbing fixtures. 

Targeted programs also could be designed in cooperation with community organizations. An 

active retrofit program might be part of a residential water-use audit program. It is important 

that planners ensure that retrofit programs conform to local plumbing codes and ordinances. 

Pressure Management [A] 

‹�������������� Advanced Guidelines ���������������fi 

‹������ Intermediate Guidelines �������fi 

Measures ‹ Basic Guidelines �fi 

Pressure � Systemwide pressure � Selective use of pressuremanagement [A] management reducing valves 

Reducing excessive pressures in the distribution system can save a significant quantity of 

water. Reducing water pressure can decrease leakage, amount of flow through open faucets, 

and stresses on pipes and joints which may result in leaks. Lower water pressure may also 

decrease system deterioration, reducing the need for repairs and extending the life of existing 

facilities. Furthermore, lower pressures can help reduce wear on end-use fixtures and 

appliances. 

Systemwide pressure management. For residential areas, pressures exceeding 80 psi should 

be assessed for reduction. Pressure management and reduction strategies must be consistent 

with state and local regulations and standards, as well as take into account system conditions 

and needs. Obviously, reductions in pressure should not compromise the integrity of the 

water system or service quality for customers. 

Pressure-reducing valves. A more aggressive plan may include the purchase and installation 

of pressure-reducing valves in street mains, as well as individual buildings. Utilities might 

also insert flow restrictors on services at the meter. Restrictors can be sized to allow for 

service length, system pressure, and site elevation. Utilities can consider providing technical 

assistance to customers to address their pressure problems and install pressure-reducing 

valves to lower the customers’ water pressure. This may be especially beneficial for large-use 

customers. 

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Landscape Efficiency [P] 

‹�������������� Advanced Guidelines ���������������fi 

‹������ Intermediate Guidelines �������fi 

Measures ‹ Basic Guidelines �fi 

Landscape � Promotion of landscape � Landscape planning and 

efficiency [P] efficiency renovation 

� Selective irrigation submetering � Irrigation management 

Outdoor water usage drives maximum-day demand, which in turn drives requirements for 

transmission and treatment facilities. Reducing outdoor usage can thus be a very effective 

conservation strategy. Outdoor water use can be reduced through efficiency-oriented 

landscaping principles. 

Promotion of landscape efficiency. Utilities can promote the development of water 

conserving principles into the planning, development and management of new landscape 

projects such as public parks, building grounds, and golf courses. Utilities can also promote 

low water-use landscaping by residential and nonresidential customers, especially those with 

large properties. Utilities can cooperate with local nurseries to ensure the availability of water 

conserving plants. 

Water systems may promote Xeriscaping TM, an efficiency-oriented approach to landscaping 

that encompasses seven essential principles: 

� Planning and design 

� Limited turf areas 

� Efficient irrigation 

� Soil improvement 

� Mulching 

� Use of lower water demand plants 

� Appropriate maintenance 

Selective irrigation submetering. Selective submetering for irrigation water can be used to 

improve irrigation management, as well as to introduce irrigation pricing. 

Landscape planning and renovation. Existing landscapes can be renovated to incorporate 

water-conserving practices. Public parks, for example, could be managed to incorporate 

water-efficient landscaping and reduce or eliminate irrigation. Utilities can work with 

commercial and industrial customers to plan and renovate landscaping in accordance with 

water conserving practices. 

Irrigation management. Irrigation management systems, using metering, timing, and watersensing devices, also can be promoted by the water utility for large-volume customers. 

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USEPA Water Conservation Plan Guidelines Appendix A 

Level 3 Measures 

Replacements and Promotions [B] 

‹�������������� Advanced Guidelines ���������������fi 

‹������ Intermediate Guidelines �������fi 

Measures ‹ Basic Guidelines �fi 

Replacements and � Rebates and incentives 

promotions [B] [nonresidential] 

� Rebates and incentives 

[residential] 

� Promotion of new technologies 

Rebates and incentives. In order to accelerate the replacements of older fixtures, utilities can 

offer rebates and other incentives. Utilities can install water-efficient fixtures by providing 

fixtures at no cost, giving a rebate for consumer purchased fixtures, or arranging suppliers to 

provide fixtures at a reduced price. Utilities can design incentive rebate programs that are 

targeted to the nonresidential and residential sectors, and to indoor and outdoor uses. 

The feasibility and effectiveness of replacements may depend on state and local plumbing 

codes. A program to accelerate replacements, coupled with high-efficiency standards, can 

yield substantial water savings. 

Promotion of new technologies. Utilities also can get involved with promoting new 

technologies by manufacturers and distributors of fixtures and appliances. Demonstrations 

and pilot programs, and even contests, can be used to introduce and promote new products 

(such as high-efficiency washing machines). 

Reuse and Recycling [B] 

‹�������������� Advanced Guidelines ���������������fi 

‹������ Intermediate Guidelines �������fi 

Measures ‹ Basic Guidelines �fi 

Reuse and � Industrial applications 

recycling [B] � Large-volume irrigation 

applications 

� Selective residential 

applications 

Industrial applications. An alternative water source for some systems is “graywater,” or 

treated wastewater for nonpotable water uses. Water reuse and recycling practices reduce 

production demands on the water system. Water utilities should work with their 

nonresidential customers to identify potential areas for reuse or recycling. Some industries 

can substantially reduce water demand through water reuse (or multiple use) in manufacturing 

processes. Recycled wastewater can be used for some industrial purposes, agricultural 

purposes, groundwater recharge, and direct reuse. 

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USEPA Water Conservation Plan Guidelines Appendix A 

Large-volume irrigation applications. Reuse and recycling can be encouraged for largevolume irrigation. 

Selective residential applications. In some areas, reuse and recycling can be used in 

residential applications. Water systems will need to check with local plumbing codes and 

ordinances for possible conditions and restrictions. 

Water-Use Regulation [B] 

‹�������������� Advanced Guidelines ���������������fi 

‹������ Intermediate Guidelines �������fi 

Measures ‹ Basic Guidelines �fi 

Water-use � Water-use standards and 

regulation [B] regulations 

� Requirements for new 

developments 

Water-use standards and regulations. Regulations should be in place to manage water use 

during droughts or other water-supply emergencies. In some cases, utilities may find it 

desirable to extend water-use regulations to promote conservation during nonemergency 

situations. Examples of water-use regulations are: 

� Restrictions on nonessential uses, such as lawn watering, car washing, filling

swimming pools, washing sidewalks, and irrigating golf courses.

� Restrictions on commercial car washes, nurseries, hotels, and restaurants. 

� Standards for water-using fixtures and appliances (in addition to the federal efficiency 

standards, which can be found at the end of this Appendix). 

� Bans or restrictions on once-through cooling. 

� Bans on non-recirculating car washes, laundries, and decorative fountains. 

� Bans on certain types of water use or practice. 

Requirements for new developments. Another type of regulation is to impose standards on 

new developments with regard to landscaping, drainage, and irrigation practices. 

Many water systems, including privately owned systems, lack authority to implement this 

measure. Systems that have such authority must exercise it carefully. In general, restrictions 

on water use should be justified by the system’s circumstances and should not unduly 

compromise the customer’s rights or quality of service. 

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USEPA Water Conservation Plan Guidelines Appendix A 

Integrated Resource Management [B] 

‹�������������� Advanced Guidelines ���������������fi 

‹������ Intermediate Guidelines �������fi 

Measures ‹ Basic Guidelines �fi 

Integrated resource � Supply-side technologies 

management [B] � Demand-side technologies 

Supply-side technologies. The idea of integrated resource management is that water often is 

used jointly with other resources. Systems following the Advanced Guidelines might have 

opportunities to consider and implement measures that can accomplish integrated resource 

management, where water conservation is jointly accomplished with the conservation of other 

resources. On the supply-side, the utility can institute operating practices (including various 

automation methods, strategic use of storage, and other practices) that achieve energy, 

chemical, and water savings. Source-water protection strategies, including land-use 

management methods, can be used to conserve water resources and avoid costly new supplies. 

Water and wastewater utilities can jointly plan and implement conservation programs to 

realize savings and share in the benefits. 

Demand-side technologies. Integrative practices also can be accomplished on the demand 

side. Water and energy utilities can conduct comprehensive end-use audits and jointly 

promote conservation practices by end-users. Large-volume users can work with the utility to 

make adjustments to processes that reduce water and energy usage and wastewater flows, 

while saving other resources as well. Utilities that provide wholesale water can work with 

wholesale customers to design a water conservation program that will be mutually beneficial. 

155
_________________ __________________ 

_________________ __________________ 

__________________ 

_________________ __________________ 

___________________________ _________________ __________________ 

___________________________ _________________ __________________ 

___________________________ _________________ __________________ 

___________________________ _________________ __________________ 

___________________________ _________________ __________________ 

__________________________________________________________________________________________ 

__________________________________________________________________________________________ 

__________________________________________________________________________________________ 

__________________________________________________________________________________________ 

_________________ 

USEPA Water Conservation Plan Guidelines Appendix A 

Worksheet A-1: Metering 

A. BASIC GUIDELINES 

Source metering 

What percentage of source withdrawals is metered? ________________________________________________ 

Connection metering 

Percent of connections metered by customer class: 

Residential ____________________________ % 

Industrial ____________________________ % 

Commercial ____________________________ % 

Public ____________________________ % 

Other ____________________________ % 

Number of meters needed:

Residential ___________________________

Industrial ___________________________

Commercial ___________________________

Public ___________________________

Other ___________________________

Percentage of meters that are outdoors: 

____________________________ % 

____________________________ % 

____________________________ % 

____________________________ % 

____________________________ % 

Estimated cost/meter Estimated total cost 

B. INTERMEDIATE GUIDELINES [Basic Guidelines above plus the following] 

Frequency of meter reading Billing frequency Estimated bills/year 

Residential 

Industrial 

Commercial 

Public 

Other 

Are authorized uses of nonaccount water metered? _________________________________________________ 

Schedule for testing source water meters: ________________________________________________________ 

Schedule for testing connection meters: _________________________________________________________ 

Are meters correctly sized? ___________________________________________________________________ 

C. ADVANCED GUIDELINES [Basic and Intermediate Guidelines above plus the following] 

Describe the systems’ program to test, calibrate, repair, and replace meters (including schedules): ___________ 

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USEPA Water Conservation Plan Guidelines Appendix A 

Total Water Produced 

Adjusted for source-meter accuracy and 

source and transmission losses 

Account Water 

Water metered and billed to 

residential, commercial, industrial, 

and public sector customers 

Nonaccount Water 

Metered and unmetered uses and losses 

not billed to customers 

Metered and Accounted-for 

Selected public-use water 

Other water metered but not billed to 

customers 

Authorized Uses 

Operation and maintenance 

Selected public-use water 

Unauthorized Uses 

Accounting procedure errors 

Malfunctioning distribution system controls 

Illegal connections and theft 

Meter inaccuracy 

Avoidable and unavoidable leaks 

Unaccountedfor Water 

Water losses and leaks 

not accounted for 

Unmetered Water 

Not metered or billed 

but not Billed 

Identifiable Unauthorized Uses 

Figure A-1. Water Accounting System 

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USEPA Water Conservation Plan Guidelines Appendix A 

Worksheet A-2: Water Accounting and Loss Control

Line 

1 

2 

2A 

2B 

2C 

2D 

3 

4 

5 

5A 

5B 

5C 

5D 

5E 

6 

7 

8 

9 

10 

11 

11A 

11B 

12 

12A 

12B 

12C 

13 

13A 

13B 

13C 

13D 

13E 

14 

14A 

14B 

14C 

15 

16 

17 

17A 

17B 

17C 

17D 

17E 

17F 

18 

19 

Item 

Total Source Withdrawals and Purchases 

Adjustments to source water supply [a] 

Adjustment for source meter error (+ or -) 

Adjustment for change in reservoir or tank storage (+ or -) 

Adjustment for transmission line losses (-) [a] 

Adjustments for other source contributions or losses (+ or -) [a] 

Total adjustments to source water (add lines 2A through 2D)) 

Adjusted Source Water (subtract line 3 from line 1) 

Metered Water Sales 

Metered residential sales 

Metered commercial sales 

Metered industrial sales 

Metered public sales 

Other metered sales 

Total metered sales (add lines 5A through 5D) 

Adjustment for meter reading lag time (+ or -) 

Adjustment for meter errors (+ or -) [a] 

Adjusted total meter sales (add lines 6 through 8) 

Nonaccount Water (subtract line 9 from line 4) 

Metered and accounted-for but not billed 

Public-use water metered but not billed 

Other water metered but not billed 

Authorized unmetered water: operation and maintenance 

Main flushing 

Process water at treatment plant 

Water quality and other testing 

Authorized unmetered water: public use 

Storm drain flushing 

Sewer cleaning 

Street cleaning 

Landscaping in large public areas 

Firefighting, training, and related maintenance 

Other authorized unmetered use 

Swimming pools 

Construction sites 

Other unmetered uses 

Total authorized unmetered water (add lines 11A through 14C) 

Total Unauthorized Losses (subtract line 15 from line 10) 

Identifiable water losses and leaks 

Accounting procedure errors [a] 

Malfunctioning distribution system controls 

Illegal connections and theft 

Meter inaccuracy 

Unavoidable water leaks 

Avoidable water leaks 

Total identifiable water losses and leaks (add lines 17A through 17F) 

Unaccounted-For Water (subtract line 18 from line 16) 

Volume 

(gallons) 

% of 

Amount 

in Line 1 

100% 

% 

% 

% 

% 

[a] Methodology subject to industry and regulatory standards. 

158 
___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

___________________________________________________________________________ 

USEPA Water Conservation Plan Guidelines Appendix A 

Worksheet A-3: Strategies for Reducing Water Losses 

A. TRANSMISSION LOSSES 

Describe strategy for reducing transmission line losses: ______________________________ 

Estimated annual water savings: _________________________________________________ 

B. NONACCOUNT WATER 

Describe strategy for reducing authorized unmetered uses: ____________________________ 

Estimated annual water savings: _________________________________________________ 

C. LOSSES AND LEAKS 

Describe strategy for reducing identifiable leaks: ___________________________________ 

Estimated annual water savings: _________________________________________________ 

D. UNACCOUNTED-FOR WATER 

Describe strategy for reducing unaccounted-for water: _______________________________ 

Estimated annual water savings: _________________________________________________ 

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USEPA Water Conservation Plan Guidelines Appendix A 

Worksheet A-4: Evaluating Effects of Water Rate Changes

Line Item Value 

1 Current price per gallon $ 

2 Current revenue-producing gallons (or cubic feet) gallons 

3 Current annual revenues (line 1 multiplied by line 2) $ 

4 Conservation goal (reduction in water use) gallons 

5 Conservation goal as percentage of current annual revenue-producing 

gallons (line 4 divided by line2) 

% 

6 Estimate price elasticity of demand (by customer class and/or type of 

use if applicable) 

% 

7 Percentage change in price needed to induce conservation (line 5 

divided by line 6) % 

8 Calculate revised price level (line 1 multiplied by (1.00 plus line 7)) $ 

9 Revised annual water usage (line 1 less line 4) gallons 

10 Revised revenues (line 8 multiplied by line 9) $ 

11 Annualized fixed costs $ 

12 Annual variable costs for revised water usage $ 

13 Revised revenue requirements $ 

14 Net revenue effect (line 10 less line 13) $ 

Note: Prepare for each customer class to the extent feasible. 

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USEPA Water Conservation Plan Guidelines Appendix A 

Worksheet A-5: Checklist for Information and Education 

BASIC GUIDELINES �__ 

Understandable water bill 

Understandable information about water rates and usage � 

Information available 

Pamphlet on basic home water conservation practices � 

Pamphlet on plumbing retrofits and replacements � 

Pamphlet on summer lawn watering and conservation landscaping � 

INTERMEDIATE GUIDELINES [Basic Guidelines above plus the following] �__ 

Informative water bill 

Compare to past usage (previous month, same period previous year) � 

Flag unusually high recorded uses and notify customers � 

Information tailored to customer class � 

Water-bill inserts 

Information on the cost and value of water � 

Basic water conservation tips � 

Information on conservation programs � 

School program 

Visit classrooms � 

Distribute curriculum materials, such as worksheets and coloring books � 

Show short information films or slide shows � 

Field trips to water system facilities � 

Contests and recognition for posters, ideas, etc. � 

Public-education program 

Press releases, public space advertising, and public service announcements (various media) � 

Conservation information centers and mobile information booths � 

Speakers bureau, films, and slide shows for community organizations � 

Coordination with civic and professional organization resources � 

Special events, such as water conservation fairs � 

Displays at home shows, garden shows, fairs, libraries, and town halls � 

Cooperation with retail plumbing to promote conservation � 

Recognize conserving businesses and industries � 

ADVANCED GUIDELINES [Basic and Intermediate Guidelines above plus the following] �__ 

Workshops 

Workshops for plumbers, plumbing fixture suppliers, and builders � 

Workshops for landscape and irrigation service providers � 

Advisory committee 

Creation of a public advisory committee � 

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USEPA Water Conservation Plan Guidelines Appendix A 

Worksheet A-6: Checklist for a Residential Water Audit

Service Meter � 

Calibration/flow test � 

Leak test � 

Report findings to maintenance personnel � 

Kitchen � 

Check faucet flow rate � 

Offer to install aerator or flow restrictor � 

Check for drips and leaks � 

Bath � 

Shower 

Check showerhead flow rate � 

Offer to install low-flow showerhead or flow restrictor � 

Check for drips and leaks � 

Sinks 

Check faucet flow rate � 

Offer to install aerator or flow restrictor � 

Check for drips and leaks � 

Toilets 

Check for leaks (dye test) � 

Clean or replace flapper � 

Check the adjustment of the float arm � 

Offer to install retrofit devices � 

Provide information on available rebates � 

Outside Water Use (Irrigation Season) � 

Measure the flow rate of sprinklers � 

Check for leaks in the sprinkler, hose, or sprinkler system � 

Check the position of sprinklers � 

Instruct homeowner on efficient water techniques � 

Recommend a watering schedule based on: � 

� Any water restrictions imposed by local government � 

� Best time of day for watering � 

� Frequency of watering � 

� Length of time for watering � 

Provide information about water-efficient landscaping practices � 

Source: Adapted from American Water Works Association, Pacific Northwest Section, Water 

Conservation Guidebook for Small and Medium-Sized Utilities (August 1993). Appendix B. 

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USEPA Water Conservation Plan Guidelines Appendix B 

APPENDIX B 

BENCHMARKS USED IN CONSERVATION PLANNING 

Table B-1: Recent Estimates of Indoor Water Use With and 

Without Conservation 

Without conservation With conservation 

Type of Use Amount Percent of Amount Percent of Savings

(gpcd) total (gpcd) total 

Toilets 18.3 28.4% 10.4 23.2% 44% 

Clothes washers 14.9 23.1% 10.5 23.4% 30% 

Showers 12.2 18.8% 10.0 22.4% 18% 

Faucets 10.3 16.0% 10.0 22.5% 2% 

Leaks 6.6 10.2% 1.5 3.4% 77% 

Baths 1.2 1.9% 1.2 2.7% 0% 

Dish washers 1.1 1.6% 1.1 2.4% 0% 

Total indoor water use 64.6 100% 44.7 100% 31% 

Source: AWWA WaterWiser, “Household End Use of Water Without and With Conservation,” 1997 

Residential Water Use Summary - Typical Single Family Home 

(http://www.waterwiser.org/wateruse/tables.html). 

gpcd = gallons per capita per day 

Note: These data are provided for illustrative purposes only and may not be applicable to a given situation. To 

the extent practical, planners use system-specific assumptions and estimates. 

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USEPA Water Conservation Plan Guidelines Appendix B 

Table B-2: Benchmarks for Estimating Residential End Uses 

of Water 

Type of use Units Likely range of 

average values 

INDOOR USES 

Average household size Persons 2.0-3.0 

Frequency of toilet flushing Flushes/person/day 4.0-6.0 

Flushing volumes Gallons/flush 1.6-8.0 

Fraction of leaking toilets Percent 0-30 

Showering frequency Showers/person/day 0-1.0 

Duration of average shower Minutes 5-15 

Shower flow rates Gallons/minute 1.5-5.0 

Bathing frequency Baths/person/day 0-0.2 

Volume of water Gallons/cycle 30-50 

Washing machine use Loads/person/day 0.2-0.5 

Volume of water Gallons/cycle 45-50 

Dishwasher use Loads/person/day 0.1-0.3 

Volume of water Gallons/cycle 10-15 

Kitchen faucet use Minutes/person/day 0.5-5.0 

Faucet flow rates Gallons/minute 2.0-3.0 

Bathroom faucet use Minutes/person/day 0.5-3.0 

Faucet flow rates Gallons/minute 2.0-3.0 

OUTDOOR USES

Average lot size[a] Square feet 5000-8000 

Average house size[a] Square feet 1200-2500 

Landscape area[a] Square feet 4000-5000 

Fraction of lot size in turf[a] Percent 30-50 

Water application rates[a] Feet/year 1-5 

Percent of homes with pools Percent 10-25 

Pool evaporation losses Feet/year 3-7 

Frequency of refilling pools Times per year 1-2 

Frequency of car washing Times/month 1-2 

Source: Duane D. Baumann, John J. Boland, and W. Michael Hanemann, Urban Water Demand Management 

and Planning (New York: McGraw Hill, 1998), 254. 

[a] Reflects single-family averages.

Note: These data are provided for illustrative purposes only and may not be current or applicable. To the extent 

practical, planners should regionally appropriate or system-specific assumptions and estimates. 

164
USEPA Water Conservation Plan Guidelines Appendix B 

Table B-3: Sample Calculation of Water Savings from 

Showerhead Replacement 

The following calculations represent the water savings expected as the result of a showerhead 

retrofit program. The savings rate represents a difference in average winter water use 

between homes with low-flow showerheads and homes without low-flow showerheads. 

� Nonconserving showerhead flow rate = 3.4 gallons/minute 

� Low-flow showerhead flow rate = 1.9 gallons/minute 

� Estimated showering time = 4.8 minutes/person/day 

� Average winter household water use = 200 gallons per household per day 

� Average household size = 2.5 persons 

� Water use with nonconserving showerhead = (3.4 gal/min) x (4.8 min/person/day) = 16.3 gpcd 

� Water use with low-flow showerhead = (3.4 gal/min) x (4.8 min/person/day) = 9.1 gpcd 

� Water savings = 16.3 gpcd – 9.1 gpcd = 7.2 gpcd 

At an average household size of 2.5 persons, the savings rate would be 18.0 gallons per 

household per day (2.5 persons x 7.2 GPCD). The formula for calculating the reduction 

factors representing the fraction of, for example, single-family winter water use is 

R = (18.0 GPHD)/(200 GPHD during winter) = 0.09 (or 9 percent) 

Source: Duane D. Baumann, John J. Boland, and W. Michael Hanemann, Urban Water Demand 

Management and Planning (New York: McGraw Hill, 1998): 255. 

Note: These data are provided for illustrative purposes only and may not be current or applicable. To the extent 

practical, planners should regionally appropriate or system-specific assumptions and estimates. 

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USEPA Water Conservation Plan Guidelines Appendix B 

Table B-4: Benchmarks for Savings from Selected 

Conservation Measures 

Category Measure Reduction in Life span 

end use (years) 

LEVEL 1 MEASURES 

Universal metering Connection metering 20 percent 8 to 20 

Submetering 20 to 40 percent 8 to 20 

Water accounting and loss control System audits and leak detection Based on system na 

Costing and pricing 10% increase in residential prices 2 to 4 percent na 

10% increase in nonresidential prices 5 to 8 percent na 

Increasing-block rate 5 percent na 

Information and education Public education and behavior changes 2 to 5 percent na 

LEVEL 2 MEASURES

End-use audits General industrial water conservation 10 to 20 percent na 

Outdoor residential use 5 to 10 percent na 

Large landscape water audits 10 to 20 percent na 

Retrofits Toilet tank displacement devices (for 

toilets using > 3.5 gallons/flush) 

2 to 3 gpcd 1.5 

Toilet retrofit 8 to 14 gpcd 1.5 

Showerhead retrofit (aerator) 4 gpcd 1 to 3 

Faucet retrofit (aerator) 5 gpcd 1 to 3 

Fixture leak repair 0.5 gpcd 1 

Governmental buildings (indoors) 5 percent na 

Pressure management Pressure reduction, system 3 to 6 percent of 

total production 

na 

Pressure-reducing valves, residential 5 to 30 percent na 

Outdoor water-use efficiency Low water-use plants 7.5 percent 10 

Lawn watering guides 15 to 20 percent na 

Large landscape management 10 to 25 percent na 

Irrigation timer 10 gpcd 4 

LEVEL 3 MEASURES

Replacements and promotions Toilet replacement, residential 16 to 20 gpcd 15 to 25 

Toilet replacement, commercial 16 to 20 gpcd 10 to 20 

Showerhead replacement 8.1 gpcd 2 to 10 

Faucet replacement 6.4 gpcd 10 to 20 

Clothes washers, residential 4 to 12 gpcd 12 

Dishwashers, residential 1 gpcd 12 

Hot water demand units 10 gpcd na 

Reuse and recycling Cooling tower program Up to 90 percent na 

Water-use regulation Landscape requirements for new 10 to 20 percent na 

developments in sector 

Graywater reuse, residential 20 to 30 gpcd na 

Integrated resource management Planning and management Energy, chemical, na 

and wastewater 

treatment costs 

Source: Compiled from various sources. Actual water savings can vary substantially according to a number of 

factors. These data are provided for illustrative purposes only and may not be current or applicable. To the 

extent practical, planners should regionally appropriate or system-specific assumptions and estimates. 

na = not available 

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Table B-5: Water Efficiency Standards Established by The 

Energy Policy Act of 1992 

Faucets. The maximum water use allowed by any of the following faucets manufactured after 

January 1, 1994, when measured at a flowing water pressure of 80 pounds per square inch, is as 

follows: 

Faucet type 

Lavatory faucets 2.5 gpm 

Lavatory replacement aerators 2.5 gpm 

Kitchen faucets 2.5 gpm 

Kitchen replacement aerators 2.5 gpm 

Metering faucets 0.25 gpc 

Maximum flow rate 

(gallons per minute or per cycle) 

Showerheads. The maximum water use allowed for any showerhead manufactured after January 1, 

1994, is 2.5 gallons per minute when measured at a flowing pressure of 80 pounds per square inch. 

Water Closets. (1) The maximum water use allowed in gallons per flush for any of the following 

water closets manufactured after January 1, 1994, is as follows: 

Water closet type 

Gravity tank-type toilets 1.6 gpf 

Flushometer tank toilets 1.6 gpf 

Electromechanical hydraulic toilets 1.6 gpf 

Blowout toilets 3.5 gpf 

Maximum flush rate 

(gallons per flush) 

(2) The maximum water use allowed for any gravity tank-type white two-piece toilet which bears an 

adhesive label conspicuous upon installation of the words "Commercial Use Only" manufactured 

after January 1, 1994 and before January 1, 1997, is 3.5 gallons per flush. 

(3) The maximum water use allowed for flushometer valve toilets, other than blowout toilets, 

manufactured after January 1, 1997, is 1.6 gallons per flush. 

Urinals. The maximum water use allowed for any urinals manufactured after January 1, 1994, is 1.0 

gallons per flush. 

Note: These standards were developed in 1992. New and emerging technologies can increase the cost 

effectiveness of conservation measures, affect demand forecasts, and eventually lead to the establishment of new 

standards. 

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USEPA Water Conservation Plan Guidelines Appendix B 

Table B-6: Potential Water Savings From Efficient Fixtures

Fixture [a] Fixture capacity [b] Water use (gpd) Water savings (gpd) 

Per capita 2.7-person Per capita 2.7-person 

household household 

Toilets [c] 

Efficient 1.5 gallons/flush 6.0 16.2 na na 

Low-flow 3.5 gallons/flush 14.0 37.8 8.0 21.6 

Conventional 5.5 gallons/flush 22.0 59.4 16.0 43.2 

Conventional 7.0 gallons/flush 28.0 75.6 22.0 59.4 

Showerheads [d] 

Efficient 2.5 [1.7] gal/min 8.2 22.1 na na 

Low-flow 3.0 to 5.0 [2.6] gal/min 12.5 33.8 4.3 11.7 

Conventional 5.0 to 8.0 [3.4] gal/min 16.3 44.0 8.1 22.0 

Faucets [e] 

Efficient 2.5 [1.7] gal/min 6.8 18.4 na na 

Low-flow 3.0 [2.0] gal/min 8.0 21.6 1.2 3.2 

Conventional 3.0 to 7.0 [3.3] gal/min 13.2 36.6 6.4 17.2 

Toilets, Showerheads, and Faucets Combined 

Efficient Not applicable 21.0 56.7 na na 

Low-flow Not applicable 34.5 93.2 13.4 36.4 

Conventional Not applicable 54.5 147.2 33.5 90.4 

Source: Amy Vickers, “Water Use Efficiency Standards for Plumbing Fixtures: Benefits of National 

Legislation,” American Water Works Association Journal. Vol. 82 (May 1990): 53. 

na = not applicable 

[a] Efficient = post-1994 

Low-flow = post-1980 

Conventional = pre-1980 

[b] For showerheads and faucets: maximum rated fixture capacity (measured fixture capacity). Measured 

fixture capacity equals about two-thirds the maximum. 

[c] Assumes four flushes per person per day; does not include losses through leakage. 

[d] Assumes 4.8 shower-use-minutes per person per day. 

[e] Assumes 4.0 faucet-use-minutes per person per day. 

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USEPA Water Conservation Plan Guidelines Appendix C 

APPENDIX C 

ACRONYMS AND GLOSSARY 

Acronyms 

AWWA American Water Works Association 

BAT Best available technology 

BMP Best management practice 

BuRec United States Bureau of Reclamation 

DOI United States Department of the Interior 

DSM Demand-side management 

EPA United States Environmental Protection Agency 

gpcd Gallons per capita per day 

gpf Gallons per flush 

gpm Gallons per minute 

IRP Integrated resource plan (or planning) 

mgd Million gallons per day 

MOU Memorandum of understanding 

NAWC National Association of Water Companies 

SRF State Revolving Fund 

SDWA Safe Drinking Water Act 

ULFT Ultra-low-flush toilet 

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USEPA Water Conservation Plan Guidelines Appendix C 

Glossary 

appropriation. The right to withdraw 

water from its source. 

audit (end-use). A systematic accounting 

of water uses by end users (residential, 

commercial, or industrial), often used to 

identify potential areas for water reduction, 

conservation, or efficiency improvement. 

audit (system). A systematic accounting 

of water throughout the production, 

transmission, and distribution facilities of 

the system. 

available supply. The maximum amount 

of reliable water supply, including surface 

water, groundwater, and purchases under 

secure contracts. 

average-day demand. A water system’s 

average daily use based on total annual 

water production (total annual gallons or 

cubic feet divided by 365); multiple years 

can be used to account for yearly 

variations. 

avoided cost. The savings associated with 

undertaking a given activity (such as 

demand management) instead of an 

alternative means of achieving the same 

results (such as adding supply); can be 

used to establish the least-cost means of 

achieving a specified goal. Can be 

measured in terms of incremental cost. 

baseline. An established value or trend 

used for comparison when conditions are 

altered, as in the introduction of water 

conservation measures. 

beneficial use. A use of water resources 

that benefits people or nature. State law 

may define beneficial use. 

benefit-cost analysis. A comparison of 

total benefits to total costs, usually 

expressed in monetary terms, used to 

measure efficiency and evaluate 

alternatives. See also cost-effectiveness 

and avoided-cost. 

best management practice. A measure or 

activity that is beneficial, empirically 

proven, cost-effective, and widely accepted 

in the professional community. 

block. A quantity of water for which a 

price per unit of water (or billing rate) is 

established. 

budget (water-use). An accounting of 

total water use or projected water use for a 

given location or activity. 

capital facilities. Physical facilities used 

in the production, transmission, and 

distribution of water. 

commodity charge. See variable charge. 

community water system. According to 

the SDWA, a drinking water conveyance 

system serving at least 15 service 

connections used by year-round residents 

of the area served by the system or 

regularly serving at least 25 year-round 

residents. 

conservation (water). Any beneficial 

reduction in water losses, waste, or use. 

conservation pricing. Water rate 

structures that help achieve beneficial 

reductions in water usage. See 

nonpromotional rates. 

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USEPA Water Conservation Plan Guidelines Appendix C 

consumptive use. Use that permanently 

withdraws water from its source. 

cost-effectiveness. A comparison of costs 

required for achieving the same benefit by 

different means. Costs are usually 

expressed in dollars, but benefits can be 

expressed in another unit (such as a 

quantity of water). See net benefits. 

customer class. A group of customers 

(residential, commercial, industrial, 

wholesale, and so on) defined by similar 

costs of service or patterns of water usage. 

decreasing-block (or declining-block) 

rate. A pricing structure for which the 

dollar amount charged per unit of water 

(such as dollars per gallon) decreases with 

the amount water usage. 

demand forecast. A projection of future 

demand that can be made on a systemwide 

or customer-class basis. 

demand management. Measures, 

practices, or incentives deployed by water 

utilities to permanently reduce the level or 

change the pattern of demand for a utility 

service. 

demographic. Having to do with 

population or socioeconomic conditions. 

discount rate. A percentage that is used 

to adjust a forecast of expenditures to 

account for the time value of money or 

opportunity costs; it can be based on the 

utility’s cost of capital. 

distribution facilities. Pipes, treatment, 

storage and other facilities used to 

distribute drinking water to end users. 

drought. A sustained period of inadequate 

or subnormal precipitation that can lead to 

water supply shortages, as well as 

increased water usage. 

end use. Fixtures, appliances, and 

activities that use water. 

end user. Residential, commercial, 

industrial, governmental, or institutional 

water consumer. 

escalation rate. A percentage that is used 

to adjust a forecast of expenditures to 

account for the increasing value of a good 

or service over time (apart from the 

discount rate and inflationary effects). 

evapotranspiration. Water losses from 

the surface of soils and plants. 

fixed charge. The portion of a water bill 

that does not vary with water usage. 

fixed costs. Costs associated with water 

service that do not vary with the amount of 

water produced or sold. 

graywater. Treated wastewater used for 

nonpotable purposes, such as irrigation. 

increasing-block (or inclining-block) 

rate. A pricing structure for which the 

dollar amount charged per unit of water 

(such as dollars per gallon) increases with 

the amount water usage. 

incremental cost. The additional cost 

associated with adding an increment of 

capacity. 

instream flow. River and stream waters 

that maintain stream quality, aquatic life, 

and recreational opportunities. 

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USEPA Water Conservation Plan Guidelines Appendix C 

integrated resource planning. An open 

and participatory planning process 

emphasizing least-cost principles and a 

balanced consideration of supply and 

demand management options for meeting 

water needs. 

investor-owned utility. A private utility 

owned by investors and typically regulated 

by a state public utility commission. 

irrigation scheduling. An automated 

method for optimizing outdoor water use 

by matching the watering schedule to plant 

needs. 

large-volume user. A water customer, 

usually industrial or wholesale, whose 

usage is substantial relative to other users; 

large-volume users may present unique 

peaking or other demand characteristics. 

leak detection. Methods for identifying 

water leakage in pipes and fittings. 

life span. The expected useful life of a 

supply-side or demand-side project, 

measure, or practice. (The life span may 

not be identical to useful life for tax 

purposes.) 

load management. Methods for 

managing levels and patterns of usage in 

order to optimize system resources and 

facilities. 

losses (water). Metered source water less 

revenue-producing water and authorized 

unmetered water uses. 

low water-use landscaping. Use of plant 

materials that are appropriate to an area’s 

climate and growing conditions (usually 

native and adaptive plants). See 

Xeriscape. TM 

market penetration. The extent to which 

an activity or measure is actually 

implemented compared to all potential 

uses or markets. 

marginal-cost pricing. A method of rate 

design where prices reflect the costs 

associated with producing the next 

increment of supply. 

master metering. A large meter at a point 

of distribution to multiple uses or users 

that could be further submetered. Includes 

metered wholesale sales. 

maximum-day demand. Total production 

for the water system on its highest day of 

production during a year. 

meter. An instrument for measuring and 

recording water volume. 

mixed-use meter. A meter measuring 

water use for more than one type of end 

use (such as indoor and outdoor use). 

needle peaks. Persistent levels of peak 

demand that drive the capacity needs of a 

water system despite reductions in average 

demand. 

net benefits. The numerical difference 

between total benefits and total costs, both 

of which must be expressed in the same 

unit (usually dollars). See costeffectiveness. 

net present value. The present value of 

benefits less the present value of costs. 

nominal dollars. Forecast dollars that are 

not adjusted for inflation. 

nonaccount water. Metered source water 

less metered water sales. 

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USEPA Water Conservation Plan Guidelines Appendix C 

nonconsumptive use. Water withdrawn 

and returned to the source. 

nonpromotional rates. Rates that do not 

encourage additional consumption by 

water users. 

nonresidential customer. A commercial 

or industrial utility customer. 

normalization. Adjustment of a variable 

to a “normal” level based on averaging 

over an accepted period of time; used in 

forecasting. 

opportunity cost. The value of a foregone 

opportunity that cannot be pursued because 

resources are taken up by a chosen activity. 

peak demand. The highest point of total 

water usage experienced by a system, 

measured on an hourly and on a daily 

basis. 

per-capita use. Total use divided by the 

total population served. 

per-capita residential use. Residential 

use divided by the total population served. 

precipitation rate (sprinkling). The 

surface application rate for landscape 

watering, usually expressed in inches per 

hour. 

present value. Future expenditures 

expressed in current dollars by adjusting 

for a discount rate that accounts for 

financing costs. 

pressure regulator. A post-meter device 

used to limit water pressure. 

price elasticity of demand. A measure of 

the responsiveness of water usage to 

changes in price; measured by the 

percentage change in usage divided by the 

percentage change in price. 

rationing. Mandatory water-use 

restrictions sometimes used under drought 

or other emergency conditions. 

raw water. Untreated water. 

real dollars. Forecast dollars that are 

adjusted for inflation. 

retrofit. Replacement of parts in an 

existing plumbing fixture or water-using 

appliance in order to improve its 

operational efficiency. 

revenue-producing water. Water 

metered and sold. 

reuse (water). Beneficial use of treated 

wastewater. 

Safe Drinking Water Act (SDWA). 

Federal drinking water quality legislation 

administered by the U.S. Environmental 

Protection Agency (EPA) through state 

primacy agencies; amended in 1996. 

safe yield. The maximum reliable amount 

that can be withdrawn from a source 

without compromising quality or quantity, 

as defined by hydrological studies; can be 

based on acceptable withdrawals during a 

critical supply period or drought with a 

specific probability of occurrence. 

seasonal rate. A pricing structure for 

which the dollar amount charged per unit 

of water (such as dollars per gallon) varies 

by season of use; higher rates usually are 

charged in the season of peak demand. 

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USEPA Water Conservation Plan Guidelines Appendix C 

sensitivity analysis. An analysis of 

alternative results based on variations in 

assumptions; a “what if” analysis. 

service territory. The geographic area 

served by a water utility. 

source-of-supply. Facilities used to 

extract and/or store raw water prior to 

transmission and distribution. 

source meter. A meter used to record 

water withdrawn from a surface water or 

groundwater source, or purchased from a 

wholesale supplier. 

State Revolving Fund (SRF). State loan 

funds for water utilities established under 

the Safe Drinking Water Act. 

supply management. Measures deployed 

by the utility that improve the efficiency of 

production, transmission, and distribution 

facilities. 

submetering. Metering for units 

comprising a larger service connection, 

such as apartments in a multifamily 

building. 

surcharge. A special charge on a water 

bill used to send customers a specific 

pricing signal and recover costs associated 

with a particular activity. 

system (water). A series of 

interconnected conveyance facilities 

owned and operated by a drinking water 

supplier; some utilities operate multiple 

water systems. 

take-or-pay. A contract provision 

obligating a purchaser to pay for a 

commodity whether or not delivery is 

taken. 

tariff. The schedule of a utility’s rates and 

charges. 

toilet tank displacement device. A 

plastic bag or dam installed in a toilet tank 

to reduce flush volume. Considered 

effective only for fixtures using more than 

3.5 gallons per flush.

toilet flapper. Valve in the toilet tank that 

controls flushing. 

transfers (water). Exchange of water 

among willing buyers and sellers. 

transmission facilities. Pipes used to 

transport raw or treated water to 

distribution facilities. 

treated water. Water treated to meet 

drinking water standards. 

ultra-low-flush toilet. A toilet that uses 

not more than 1.6 gallons per flush. 

unaccounted-for water. The amount of 

nonaccount water less known or estimated 

losses and leaks. 

uniform rate. A pricing structure for 

which the dollar amount charged per unit 

of water (such as dollars per gallon) does 

not vary with the amount of water usage. 

universal metering. Metering of all 

water-service connections. 

unmetered water. Water delivered but 

not measured for accounting and billing 

purposes. 

user class. See customer class. 

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USEPA Water Conservation Plan Guidelines Appendix C 

variable charge. The portion of a water 

bill that varies with water usage; also 

known as a commodity charge. 

variable cost. Costs associated with water 

service that vary with the amount of water 

produced or sold. 

water right. A property right or legal 

claim to withdraw a specified amount of 

water in a specified time frame for a 

beneficial use. 

watershed. A regional land area, defined 

by topography, soil, and drainage 

characteristics, within which raw waters 

collect and replenish supplies. 

weather-adjusted. Water demand, 

revenues, or other variables adjusted to a 

“normal” weather year; also known as 

weather normalization. 

wholesale water. Water purchased or sold 

for resale purposes. 

Xeriscape.TM Landscaping that involves 

seven principles: proper planning and 

design; soil analysis and improvement; 

practical turf areas; appropriate plant 

selection; efficient irrigation; mulching; 

and appropriate maintenance. 

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USEPA Water Conservation Plan Guidelines Appendix C 

[blank page] 

176
USEPA Water Conservation Plan Guidelines Appendix D 

Appendix D 

Information Resources 

Note: Inclusion on this resource list does not constitute an endorsement by the U.S. 

Environmental Protection Agency. 

Guides and Handbooks 

American Water Works Association. Before the Well Runs Dry. Volume I. A Handbook for 

Designing a Local Water Conservation Plan. Denver, CO: American Water Works 

Association, 1984. 

__________. Evaluation of State Guidelines: Guidelines for State Water Conservation Plans 

(WITAF Project #559). Denver, CO: American Water Works Association, August 1997. 

Prepared by Maddaus Water Management, et al. 

__________. Model Guidelines for Water Conservation Plans: Guidance for State Water 

Conservation Plans (WITAF Project #559). Denver, CO: American Water Works 

Association, November 1997. Prepared by Maddaus Water Management, et al. 

Baumann, Duane D., John J. Boland, and W. Michael Hanemann. Urban Water Demand 

Management and Planning. New York: McGraw Hill, 1998. 

California Department of Water Resources. Urban Drought Guidebook. Sacramento, CA: 

Department of Water Resources, March 1991. 

California Urban Water Conservation Council. Memorandum of Understanding Regarding 

Urban Water Conservation in California. Sacramento, CA: California Urban Water 

Conservation Council, as amended April 8, 1998. 

California Urban Water Management Planning Act. Established AB797, 1983, Amended AB 

2661, 1990; AB11X, 1991; AB 1869, 1991; AB 892, 1993; SB 1017,1994; AB 2853, 1994; 

AB 1845, 1995; SB 1011, 1995. 

Colorado State Office of Water Conservation. Sample Water Conservation Plan for Cherry 

Creek Valley Water & Sanitation District. Denver, OWC, not dated. Prepared with 

AquaSan, Network, Inc. 

Connecticut Department of Environmental Protection, et al. Water Companies Planning 

Guidance for Water Conservation. Connecticut Department of Environmental Protection, 

Connecticut Department of Health Services, Connecticut Department of Public Utility 

Control, Connecticut Office of Consumer Counsel, Connecticut Office of Policy and 

Management, December 1990. 

177
USEPA Water Conservation Plan Guidelines Appendix D 

Dziegielewski, Benedykt, Eva M. Opitz, Michael Hanemann, and David L. Mitchell. Urban 

Water Conservation Programs, Volume III: Experience and Outlook for Managing Urban 

Water Demands. Carbondale, IL: Planning and Management Consultants, Ltd., 1995. 

Kansas Water Office. Water Conservation Planning Guidelines. Topeka, KS: Kansas Water 

Office, 1986. 

__________. Municipal Water Conservation Plan Guidelines. Topeka, KS: Kansas Water 

Office, November 1990. 

Massachusetts Water Resources Commission. Guidelines for Preparing a Concept Plan for 

the Protection and Management of Water Resource. Boston, MA: Massachusetts Water 

Resources Commission, January 1990. 

__________. Water Conservation Standards for the Commonwealth of Massachusetts. 

Boston, MA: Executive Office of Environmental Affairs, Massachusetts Water Resources 

Commission, October 1992. 

New York Department of Environmental Conservation. Water Conservation Manual for 

Development of a Water Conservation Plan. Albany, NY: Bureau of Water Resources, 

DEC, Division of Water, January 1989. 

__________. Water Conservation Program Form. Albany, NY: Bureau of Water Resources, 

DEC, June 29, 1989. 

Phoenix Water Conservation and Resources Division. Water Conservation Planning Guide. 

Phoenix, AZ: City of Phoenix Water Conservation and Resources Division, November, 

1990. 

Ploeser, Jane H., J. Douglas Kobrick, and Betsy A. Henderson. “Non-Residential Water 

Conservation in Phoenix: Promoting the Use of Best Available Technologies,” 1990 

Annual Conference Proceedings; American Water Works Association. Denver, CO: 

American Water Works Association, 1990. 

Pontius, Frederick W. and Albert E. Warburton. “Conservation Legislation,” Journal of the 

American Water Works Association Vol. 33, No. 10 (October 1991): 10-12. 

Rhode Island Department of Environmental Management. Rules and Regulations for Water 

Supply Management Planning, Regulation DEM-DWSM-01-92. Providence, RI: 

Department of Environmental Management, Division of Water Supply Management. 

Amended August 13, 1992. 

Rocky Mountain Institute. Water Efficiency: A Resource for Utility Managers, Community 

Planners, and Other Decisionmakers. Snowmass, CO: The Water Program, Rocky 

Mountain Institute, November 1991. 

178
USEPA Water Conservation Plan Guidelines Appendix D 

Shelton, Theodore B. and Susan E. Lance. Designing a Water Conservation Program, An 

Annotated Bibliography of Source Materials. New Brunswick, NJ: Rutgers Cooperative 

Extension, Rutgers University Cook College. U.S. Environmental Protection Agency, 

Office of Water, September 1993. 

U.S. Bureau of Reclamation. Achieving Efficient Water Management, A Guidebook for 

Preparing Agricultural Water Conservation Plans. Washington, DC: Bureau of 

Reclamation, U.S. Department of the Interior, December 1996. Prepared by Hydrosphere 

Resource Consultants. http://209.21.0.235/documents/index.htm 

__________. 1996 CVPIA Criteria for Water Management Plans. Washington, DC: Bureau 

of Reclamation, U.S. Department of the Interior, 1996. 

http://209.21.0.235/documents/index.htm 

__________. CVPIA Water Management Planning Guidebook. Washington, DC: Bureau of 

Reclamation, U.S. Department of the Interior, 1997. 

http://209.21.0.235/documents/index.htm 

__________. Reclamation Policy for Administering Water Conservation Plans Pursuant to 

Statutory and Contractual Requirements. Washington, DC: Bureau of Reclamation, U.S. 

Department of the Interior, 1996. 

Watson, Montgomery. Water Conservation Guidebook for Small and Medium-Sized Utilities. 

Denver, CO: American Water Works Association, Pacific Northwest Section Water 

Conservation Committee, August 1993. 

Washington State Department of Ecology and Department of Health. Conservation Planning 

Requirements, Guidelines and Requirements for Public Water Systems Regarding Water 

Use Reporting, Demand Forecasting Methodology, and Conservation Programs. Olympia, 

WA: Ecology Publication #94-24 and Health PUB 331-008, March 1994. 

Wescoat, James L., Jr. Integrated Water Development: Water Use and Conservation Practice 

in Western Colorado. Chicago, IL: University of Chicago, Department of Geography, 

1984. 

Integrated Resource Planning 

Beecher, Janice A. “Integrated Resource Planning Fundamentals,” Journal American Water 

Works Association (June 1995): 34-48. 

Beecher, Janice A. and Patrick C. Mann. Integrated Resource Planning for Water Utilities. 

Columbus, OH: National Regulatory Research Institute, 1992. 

179
USEPA Water Conservation Plan Guidelines Appendix D 

Call, Chris. “Demand Management as a Component of IRP: The Long and Winding Road,” 

Proceedings of Conserv96: Responsible Water Stewardship. Denver, CO: American Water 

Works Association, 1996. 

Domenica, Michael F., ed. Integrated Water Resources Planning for the 21st Century: 

Proceedings of the 22nd Annual Conference, Cambridge, Massachusetts, May 7-11, 1995. 

Cambridge, MA: American Society of Civil Engineers, 1995. 

Fiske, Gary. Integrated Resource Planning: A Balanced Approach. Denver, CO: American 

Water Works Association, 1996. 

Melendy, Cynthia A. “Integrated Resource Planning Overview and Benefits,” Proceedings of 

Conserv 96: Responsible Water Stewardship. Denver, CO: American Water Works 

Association, 1996. 

Small Systems 

American Water Works Association, Pacific Northwest Section. Water Conservation 

Guidebook for Small and Medium-Sized Utilities. Denver, CO: American Water Works 

Association, (Prepared by Montgomery Watson, Inc. under the direction of the Water 

Conservation Committee), August 1993. 

Community Resource Group, Inc. Small Systems Guide to Developing and Setting Water 

Rates. Springdale, Arkansas. 

Male, J.W., J.B. Moriarty, T.H. Stevens, and C.E. Willis. “Water Supply Costs for Small 

Private Utilities,” Water Resources Bulletin Vol. 27, No. 3 (June 1991): 521-526. 

Rhorer, Kyle. “Small Systems -- Conservation: It's Not Just for Big Systems,” Journal 

American Water Works Association. May 1996. 

Rural Community Assistance Program. Household Water Conservation. Leesburg, VA. (Not 

dated.) 

__________. Leak Detection and Repair. Leesburg, VA. (Not dated.) 

__________. Small Community Water Conservation. Leesburg, VA. (Not dated.) 

__________. Water Audits. Leesburg, VA. (Not dated.) 

__________. Water Reuse. Leesburg, VA. (Not dated.) 

Trauth, K.M., B.J. Claborn, and L.V. Urban. “Water Resources Audit for Small 

Communities,” Journal of the American Water Works Association Vol. 79, No. 5 (May 

1987): 48-51. 

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USEPA Water Conservation Plan Guidelines Appendix D 

Forecasting 

Billings, Bruce R. and C. Vaughan Jones. Forecasting Urban Water Demand. Denver, CO:

American Water Works Association, 0-89867-827-7, 1996.

Darmody, John, William Maddaus, Russell Beatty, Les Taylor, and Watana Yuckpan. “Water 

Use Surveys-An Essential Component of Effective Demand Management,” 1996 Annual 

Conference Proceedings; American Water Works Association Water Resources. Denver, 

CO: American Water Works Association, 1996. 

Davis, W.Y. “Forecasting Municipal Water Demand and Conservation Evaluation: The IWRMAIN System 5.1,” Water –Use Data for Water Resources Management: Proceedings of a 

Symposium. American Water Resources Association, 1988: 787-795. 

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184
USEPA Water Conservation Plan Guidelines Appendix D 

Vickers, Amy and E.J. Markus. “Creating Economic Incentives for Conservation,” Journal of 

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Water Works Association, 1987. 

Walker, Robert E. and Gary F. Kah. Landscape Irrigation Auditor Handbook. Irrigation and 

Research Center, California Polytechnic State University, Version 5.5, June 1990. 

Cost-Effectiveness Analysis 

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Baumann, D.D., J.J. Boland, and J.H. Sims. The Evaluation of Water Conservation for 

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Boland, John, Benedykt Dziegielewski, Duane Baumann, and Chuck Turner. Analytical 

Bibliography for Water Supply and Conservation Techniques. Carbondale, IL: Planning 

and Management Consultants, Ltd. (U.S. Army Engineer Institute for Water Resources, 

IWR Contract Report 82-C07), January 1982. 

Brown and Caldwell Consultants. Assessment of Water Savings from Best Management 

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Californian Urban Water Conservation Council. Prepared by A&N Technical Services. 

September 1996. 

Campen, James T. Benefit, Cost and Beyond: The Political Economy of Benefit-Cost Analysis. 

Cambridge, MA: Ballinger Publishing, 1986. 

Davis, William Y. and Ben Dziegielewsi. “Estimating the Benefits and Costs of Implementing 

Conservation Measures,” Proceedings of CONSERV 90: The National Conference and 

Exposition Offering Water Supply Solutions for the 1990s. Phoenix, AZ, 1990. 

Dziegielewski, Benedykt , Duane D. Baumann, and John J. Boland. The Evaluation of 

Drought Management Measures for Municipal and Industrial Water Supply. Institute for 

Water Resources, U.S. Army Corps of Engineers, CR 83-C-3, December 1983. 

185
USEPA Water Conservation Plan Guidelines Appendix D 

Dziegielewski, B., E. Opitz, J. Kiefer, and D. Baumann. Evaluating Urban Water 

Conservation Programs: A Procedures Manual. Carbondale, IL: Planning and 

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Macy, P.P. and William O. Maddaus. “Cost-Benefit Analysis of Conservation Programs,” 

Journal of the American Water Works Association Vol. 81, No. 3 (March 1989): 43-47. 

Maddaus, William O. “Evaluating the Benefits and Costs of Proposed Water Conservation,” 

Proceedings of CONSERV 90: The National Conference and Exposition Offering Water 

Supply Solutions for the 1990s. Phoenix, AZ, 1990. 

Maddaus, William O. and Peter P. Macy. Benefit and Cost Analysis of Water Conservation 

Programs. Pleasant Hill, CA: Brown and Caldwell Consulting Engineers, 1989 

O’Grady, Kevin L., Eva M. Opitz, and Benedykt Dziegielewski. Evaluating Urban Water 

Conservation Programs: Workbook. Carbondale, IL: Planning and Management 

Consultants, Ltd. (Metropolitan Water District of Southern California), February/March 

1994. 

Pekelney, David M., Thomas W. Chesnutt, and W. Michael Hanemann. Guidelines to 

Conduct Cost-Effectiveness of Best Management Practices for Urban Water Conservation. 

Sacramento, CA: California Urban Water Conservation Council, 1996. 

Pekelney, David M. and Thomas W. Chesnutt. Reference Document: Program Design Tool 

and Savings Estimates. Sacramento, CA: California Urban Water Conservation Council, 

1996. 

Sakrison, Rodney G. Water Supply Source Selection Criteria: Determination of CostEffectiveness Thresholds. Olympia, WA: Washington Department of Ecology. 

Rates and Revenues 

Agthe, Donald E. and Bruce Billings. “Equity, Price Elasticity, and Household Income Under 

Increasing Block Rates for Water,” American Journal of Economics and Sociology Vol. 46 

(July 1987): 273-286. 

American Water Works Association. Water Rates and Related Charges. Denver, CO: 

American Water Works Association, 1986. 

__________. Managing the Revenue and Cash Flow Effects of Conservation. Denver, CO: 

American Water Works Association, 0-89867-845-5, 1996. 

186
USEPA Water Conservation Plan Guidelines Appendix D 

Beecher, Janice A., Patrick C. Mann, Youssef Hegazy, and John D. Stanford. Revenue Effects 

of Water Conservation and Conservation Pricing: Issues and Practices. Columbus, OH: 

National Regulatory Research Institute, 1994. 

Beecher, Janice A. and Patrick C. Mann. “The Role of Price in Water Conservation Evidence 

and Issues,” Proceedings of Conserv96: Responsible Water Stewardship. Denver, CO: 

American Water Works Association, 1996. 

Beecher, Janice A., Patrick C. Mann, and James R. Landers. Cost Allocation and Rate Design 

for Water Utilities. Columbus, OH: National Regulatory Research Institute, 1990. 

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of Water Resources Planning and Management Vol. 111, No. 2 (April 1985): 192-206. 

California Department of Water Resources. Water Conservation Guidebook No. 9 – 

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California Urban Water Conservation Council. Handbook for the Design, Evaluation, and 

Implementation of Conservation Rate Structures. Los Angeles, CA: Californian Urban 

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Caswell, M., E. Lichtenberg, and D. Zilberman. “Effects Of Pricing Policies on Water 

Conservation and Drainage,” American Journal of Agricultural Economics Vol. 72, No. 4 

(November 1990): 883-890. 

Chestnutt, Thomas W., Casey McSpadden, and John Christianson. “Revenue Instability 

Induced by Conservation Rates,” Journal American Water Works Association. (January 

1996): 52-63. 

Chesnutt, Thomas W., John Christianson, Anil Bamezai, Casey N. McSpadden, and W. 

Michael Hanemann. Revenue Instability and Conservation Rate Structures. Denver, CO: 

American Water Works Association, 0-89867-818-8, 1995. 

Chicone, David L., Steven C. Deller, and Ganapathi Ramamurthy. “Water Demand 

Estimation Under Block Pricing: A Simultaneous Equation Approach,” Water Resources 

Research Vol. 22 (June 1986): 859-863. 

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1982): 192-206. 

Cuthbert, R.W. “Effectiveness of Conservation-Oriented Water Rates in Tucson,” Journal of 

the American Water Works Association Vol. 81, No.3 (March 1989): 65-73. 

187
USEPA Water Conservation Plan Guidelines Appendix D 

Deming, J.L. “Establishing an Income Based Discount Program,” Journal of the New England 

Water Works Association Vol. 106, No. 3 (September 1992): 203-205. 

Farnkopf, John W. “Dissecting Rate Structures: Identifying Where Further Refinements are 

Warranted,” Proceedings of Conserv96: Responsible Water Stewardship. Denver, CO: 

American Water Works Association, 1996. 

Fox, Thomas P. “Analysis, Design and Implementation of a Conservation Rate Structure” 

Proceedings of Conserv96: Responsible Water Stewardship. Denver, CO: American Water 

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Griffith, F.P. “Peak Use Charge: An Equitable Approach to Charging for and/or Reducing 

Summer Peak Use,” Canadian Water Resources Journal Vol. 9, No. 3 (November 1984): 

17-21. 

Hasson, D.S. and D.G. Ovard. “Using Peaking Factors to Update Water Rates,” Journal of the 

American Water Works Association Vol. 79, No. 6 (June 1987): 46-51. 

Mann, Patrick C. and Don M. Clark. “Marginal-Cost Pricing: Its Role in Conservation,” 

Journal of the American Water Works Association. August 1993. 

Martin, W.E., H.M. Ingram, N.K. Laney, and A.H. Griffin. Saving Water in a Desert City. 

Washington, DC: Resources for the Future, 1984. 

Martin, W.E. and S. Kulakowski. “Water Price as a Policy Variable in Managing Urban 

Water Uses: Tucson, Arizona,” Water Resources Research, Vol. 27, No. 2 (1991): 157­

166. 

McNeill, Roger and Donald Tate. Guidelines for Municipal Water Pricing. Ottawa, Canada: 

Environment Canada, Social Science Series No. 25, 1991. 

Mui, B.G., K.W. Richardson, and J.F. Shannon. “What Water Utility Managers Should Know 

About Developing Water Rates,” Water Engineering and Management, Vol. 138, No. 12 

(1991): 18-20. 

Nieswiadomy, M.L. “Estimating Urban Residential Water Demand: Effects of Price 

Structure, Conservation, and Education,” Water Resources Research, Vol. 28, No. 3 

(1992): 609-615. 

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Responsible Water Stewardship. Denver, CO: American Water Works Association, 1996. 

Renshaw, E.F. “Conserving Water Through Pricing,” Journal of the American Water Works 

Association Vol. 74, No. 1 (January 1982): 2-5. 

188
USEPA Water Conservation Plan Guidelines Appendix D 

Sang, W. H. “The Financial Impact of Water Rate Changes,” Journal of the American Water 

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Schlette, T.C. and D.C. Kemp. “Setting Rates to Encourage Water Conservation,” Water 

Engineering and Management Vol. 138, No. 5 (May 1991): 25-29. 

U.S. Bureau of Reclamation. Incentive Pricing Handbook for Agricultural Districts. 

Washington, DC: Bureau of Reclamation, U.S. Department of the Interior, April 1997. 

Prepared by Hydrosphere Resource Consultants. http://209.21.0.235/documents/index.htm 

__________. Incentive Pricing Best Management Practice for Agricultural Irrigation 

Districts. Washington, DC: Bureau of Reclamation, U.S. Department of the Interior, June 

1998. http://209.21.0.235/documents/index.htm 

Public Involvement 

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Proceedings of the National Water Conservation Conference on Publicly Supplied Potable 

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Bickel, Blaine W., Hoback, Paul E., and Lamb, Conrad. “Match Your Vision and Image – A 

Lee's Summit, Missouri Case Study,” 1995 Annual Conference Proceedings; American 

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Works Association, 1995. 

Chaplin, Scott. Water Efficiency Sampler. Snowmass, CO: Rocky Mountain Institute Water 

Program, December 1991. 

Darilek, Alice. “Forming a State Water Conservation Program through Public Involvement,” 

Proceedings of Conserv93: The New Water Agenda. Denver, CO: American Water Works 

Association, 1993. 

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Water Works Association Vol. 105, No.1 (March 1991): 43-45. 

Dyballa, Cynthia. “Water Conservation Education and Outreach in the U.S.,” Hydrology and 

Water Resources Education, Training and Management, Water Resources Publication. 

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189 
USEPA Water Conservation Plan Guidelines Appendix D 

Henning, Richard W. “How to Obtain and Maintain Public Involvement: The Key to 

Successful Conservation Programs,” Proceedings of Conserv96: Responsible Water 

Stewardship. Denver, CO: American Water Works Association, 1996. 

National Wildlife Federation. A Citizen’s Guide to Community Water Conservation. 

Washington, DC: U.S. Environmental Protection Agency, 1989. 

U.S. Environmental Protection Agency. Building Support for Increasing User Fees. 

Washington, DC: Office of Water, 1989. 

190
USEPA Water Conservation Plan Guidelines Appendix D 

Internet Resources 

American Water Works Association 

� http://www.awwa.org/ 

American Water Works Association WaterWiser: The Water Efficiency Clearinghouse 

� http://www.waterwiser.org/ 

American Water Works Research Foundation 

� http://www.awwarf.com/ 

American Water Resources Association 

� http://www.uwin.siu.edu/orgs/awra.html 

American Society of Plumbing Engineers 

� http://www.aspe.org 

Association of Metropolitan Water Agencies 

� http://www.amwa-water.org/water 

Bureau of Reclamation, U.S. Department of the Interior. 

� http://www.usbr.gov/tcg/written/wc.html 

Eco Watch 

� http://www.eacvision.com/Home_Page/accounts/vut/toilet/htm 

Green Seal 

� http://www.greenseal.org 

Institute for Water Resources, U.S. Army Corps of Engineers 

� http://www.wrsc.usace.army.mil/iwr/ 

National Drinking Water Clearinghouse 

� http://www.estd.wvu.edu/ndwc/ 

National Drought Mitigation Center 

� http://enso.unl.edu/ndmc 

National Ground Water Association 

� http://www.h2o-ngwa.org/ 

National Watershed Network 

� http://www.ctic.purdue.edu/watershed/US_watersheds_8digit.html 

Natural Resource Conservation Service, U.S Department of Agriculture. 

� http://www.nrcs.usda.gov/ 

191 
USEPA Water Conservation Plan Guidelines Appendix D 

Rural Community Assistance Program 

� http://www.rcap.org/ 

Rural Water Association 

� http://www.ruralwater.org 

Universities Council on Water Resources 

� http://www.uwin.sin.edu/ucowr.index.html 

U.S. Department of Agriculture, Natural Resource Conservation Service

� http://www.nrcs.gov/ 

U.S. Environmental Protection Agency

� http://www.epa.gov/owm/genwave.htm 

U.S. Geological Survey

� http://www.usgs.gov 

U.S. Water News

� http://www.uswaternews.com 

Water Education Foundation 

� http://www.water-ed.org 

Water Environment Federation 

� http://www.wef.org 

Water Online 

� http://www.wateronline.com/ 

Water Quality Association 

� http://wqa.org/ 

Water Share, U.S. Department of the Interior, Bureau of Reclamation 

� http://www.watershare.usbr.gov 

192 
USEPA Water Conservation Plan Guidelines Appendix E 

APPENDIX E 

FEDERAL FUNDING SOURCES FOR WATER 

CONSERVATION 

Agency Elements Information 

U.S. Program Drinking Water State Revolving Fund (DWSRF) Program 

Environmental National contact Jamie Bourne, (202) 260-5557 

Protection 

Agency 

Regional contacts Each state has an agency that administers the program. See Appendix 

F. Contact information can be found at 

www.epa.gov/ogwdw/dwsrf.html 

Type of assistance Primarily loans. 

Eligibility Drinking water systems including public and private community 

water systems and non-profit non-community water systems. 

Eligible activities Construction of facilities which will facilitate compliance with 

national primary drinking water regulations or further the health 

protection objectives of the Safe Drinking Water Act. 

Eligible measures Residential water meters are eligible for DWSRF funding if part of an 

eligible project. 

U.S. Program Clean Water State Revolving Fund (CWSRF) Program 

Environmental 

Protection 

National contact Richard Kuhlman, (202) 260-7366. Also see CWSRF website at 

www.epa.gov/OWM/finan.htm 

Agency Regional contacts Each state has an agency that administers the program. For state 

contact call (202) 260-7359. 

Type of assistance EPA capitalizes state revolving loan funds. States issue or refinance 

loans, purchase or guarantee local debt, or purchase bond insurance. 

Eligibility Eligibility varies according to each state’s program and priorities. 

Eligible recipients generally include communities, individuals, 

citizen’s groups, non-profits, Indian Tribes, and others. 

Eligible activities Eligible projects may include a wide range of water-quality projects, 

such as: 

� municipal wastewater treatment facilities 

� agricultural, rural, and urban runoff control 

� estuary improvement projects 

� wet weather flow control 

� groundwater protection projects 

Eligible measures At a state’s option, the following publicly-owned water conservation 

measures may be eligible for loan funding: 

Structural Measures 

� Meters 

� Plumbing fixture retrofits or replacements 

� Efficient landscape irrigation equipment 

� Gray water recycling 

� Wastewater reuse 

Nonstructural Measures 

� Incentive wastewater service charges 

� Water use ordinances or regulations 

� Public education programs 

193
USEPA Water Conservation Plan Guidelines Appendix E 

Agency Elements Information 

Bureau of Program Water Conservation Field Services Program/Efficiency Incentives 

Reclamation, Program 

U.S. National contact Cindy Dyballa (202) 208-7589. Also, see the Bureau’s Watershare 

Department of website at www.watershare.usbr.gov 

the Interior Regional contacts Reclamation has five regional offices and 21 area offices located in 

the 17 western states. For contact information visit the Bureau’s 

Watershare website (see above). 

Type of assistance Grants are awarded but each program office may administer the 

program differently. 

Eligibility Eligible recipients generally include water systems that contract for 

water supplies through the Bureau of Reclamation. 

Eligible activities Eligible projects may include a wide range of water conservation 

projects, including planning, education, demonstration of innovative 

technologies, and implementation of measures. 

Eligible water 

conservation 

The following water conservation measures may be grant eligible: 

Structural Measures 

measures � Meters 

� Leak detection and control equipment 

� Plumbing fixture retrofits or replacements 

� Water efficient appliances (e.g. clothes washers) 

� Efficient landscape irrigation equipment 

� Gray water recycling 

� Commercial/institutional conservation equipment 

� Industrial reuse or recycling 

� Wastewater reuse 

Nonstructural Measures 

� Conservation or non-promotional rate structure 

� Water use ordinances or regulation 

� Public education programs 

Rural Utilities Program Rural Utilities Service, Water and Wastewater Loan/Grant Program 

Service, U.S. National contact Richard Mansfield (202) 690-2670 

Department of Regional contacts USDA has an office in each state; contact information can be found 

Agriculture on the RUS website www.usda.gov/rus/water 

Type of assistance Grants and loans (loans are more common). 

Eligibility Cities and towns with populations less than 10,000 that cannot find 

private funding. 

Eligible activities The program primarily funds the construction of drinking water and 

wastewater infrastructure (approximately 60% of assistance is 

allocated to drinking water improvements). 

Eligible water Structural Measures 

conservation � Meters 

measures � Leak detection and control equipment 

� Gray water recycling 

� Wastewater reclamation and reuse 

194
USEPA Water Conservation Plan Guidelines Appendix E 

Agency Elements Information 

Rural Business- Program Rural Economic Development Loans and Grants 

Cooperative National contact Director, Specialty Lenders Division (202) 720-1400 

Service, U.S. Regional contacts Consult phone directory for the number of the local Office of Rural 

Department of Development 

Agriculture Type of assistance Direct loans (most often) and project grants 

Eligibility Electric and phone utilities that have current loans with the Rural 

Utilities Service (RUS) or Rural Telephone Bank loans can apply for 

zero interest loans or grants, and can in turn offer loans to local 

businesses, nonprofit organizations, etc. 

Eligible activities Establishment or expansion of rural businesses or community 

development projects with job creation, including water and sewer 

industrial development parks and other infrastructure. 

Eligible water 

conservation 

Structural Measures 

� Meters 

measures � Leak detection and control equipment 

� Plumbing fixture retrofits or replacements 

� Water-efficient appliances 

� Commercial/institutional conservation measures 

� Industrial reuse or recycling 

� Wastewater reclamation and reuse 

National Program Resource Conservation and Development 

Resources National contact Terry D=Addio, National Program Manager, 202-720-2241 

Conservation Regional contacts Each state has a Natural Resources Conservation Service Office. 

Service, U.S. 

Department of 

Agriculture 

Type of assistance Advisory service and counseling, project loans and grants possible 

when funding levels allow. The program can offer technical support 

in the form of a coordinator for adopted projects (including activities 

pertaining to water management). While funds are not awarded, the 

agency can help projects find additional funding elsewhere. 

Eligibility Applicants must be state or local governments and nonprofit 

organizations with the authority to plan or carry out activities relating 

to resource use and development in multi-jurisdictional areas 

(including Puerto Rico, Virgin Islands, Guam, and Northern Marina 

Islands). Beneficiaries must be located in a designated resource 

conservation and development area. 

Eligible activities Resource conservation and development 

Eligible water Indirect support for both structural and nonstructural measures may be 

conservation obtained. 

measures 

195
USEPA Water Conservation Plan Guidelines Appendix E 

Agency Elements Information 

Economic Program Economic Development Administration=s Public Works and 

Development Development Facilities Grants Program 

Administration, National contact David McIlwain (202) 482-5265 

U.S. 

Department of 

Regional contacts Each state has a representative; contact information can be found on 

the Commerce Department website www.doc.gov/eda 

Commerce Type of assistance Grants only. 

Eligibility Activities to assist in the economic development of economically 

distressed areas (high unemployment or low income). Most grants 

are made to rural communities, but urban communities are eligible as 

well. 

Eligible activities The program funds public works infrastructure and development 

facilities, including improvements to drinking water systems and 

wastewater systems (especially industrial wastewater). Projects that 

provide immediate assistance will receive special emphasis. Funds 

may not be used for residential systems. 

Eligible water 

conservation 

Structural Measures 

� Meters 

measures � Leak detection and control equipment 

� Plumbing fixture retrofits or replacements 

� Gray water recycling 

� Commercial/institutional conservation measures 

� Industrial reuse or recycling 

� Wastewater reclamation and reuse 

Appalachian Program Appalachian Regional Commission Grant Program 

Regional National contact Harry Roesch (202) 884-7774 

Commission Regional contacts Each state has a representative; contact information can be found on 

the Appalachian Regional Commission website (www.arc.gov). 

Type of assistance Grants only. 

Eligibility Activities that expand infrastructure to encourage economic 

development and meet state environmental statutes in economically 

distressed areas in Appalachian states from Northeast to Mississippi. 

Program needs federal agencies (for example RUS, HUD, and 

Tennessee Valley Authority) to administer funds and requires at least 

a partial match from either federal, state, or local sources. States 

make final decisions on whether projects are eligible for funding. 

Eligible activities The program funds public works infrastructure only, including 

improvements to drinking water systems and wastewater systems. 

The water conservation measures can be funded only if they are part 

of a larger economic-development package. 

Eligible water 

conservation 

measures 

Structural Measures 

� Meters Leak detection and control equipment 

� Gray water recycling 

� Commercial/institutional conservation measures 

� Industrial reuse or recycling 

� Wastewater reclamation and reuse 

196
USEPA Water Conservation Plan Guidelines Appendix E 

Agency Elements Information 

U.S. Program Community Development Block Grants 

Department of National contact Yvette Aidara (202) 708-1322 ext. 4378 

Housing and 

Urban 

Regional contacts Each state has a HUD office; contact information can be found on the 

HUD website www.hud.gov 

Development Type of assistance Grants and loans (loans are more common). 

Eligibility Intended to primarily assist low to moderate income communities. 

Approximately 70% of the total money goes directly to urban areas, 

mostly low to moderate income; the remaining 30% is allocated to 

state programs that target nonentitled low to moderate income areas 

(population less than 50,000/county population less than 200,000). 

Eligible activities All kinds of activities are eligible, including planning and 

management efforts, as long as they are a part of a community 

economic development project. State programs may choose to 

prioritize infrastructure funding. 

Eligible water 

conservation 

Structural Measures 

� Meters 

measures � Leak detection and control equipment 

� Plumbing fixture retrofits or replacements 

� Water-efficient appliances 

� Water-efficient landscaping or irrigation equipment 

� Gray water recycling 

� Commercial/institutional conservation measures 

� Industrial reuse or recycling 

� Wastewater reclamation and reuse 

Nonstructural Measures 

� Development of nonpromotional water rate structures 

� Developing water use regulations or wastewater ordinances 

Community Program Empowerment Zones Program (Urban) 

Planning and National contact National Office of Community Planning and Development (202) 708­

Development, 6339, 1-800-998-9999 

U.S. 

Department of 

Housing and 

Urban 

Development 

Regional contacts 

Type of assistance 

Directors of Community Planning and Development at regional HUD 

Grants related to revitalization planning. 

Eligibility An applicant must be nominated by a local government or state where 

the area is located. Applicants on behalf of nominated beneficiaries 

may also include, but are not limited to, state and local governments, 

regional planning agencies, non-profit organizations, communitybased organizations, or partnerships of community members and 

other entities. The beneficiary (urban area) is eligible if it (1) meets 

certain population requirements; (2) is an area of pervasive poverty, 

unemployment, and general distress; (3) does not exceed 20 square 

miles, and (4) meets other locative requirements. While Round I 

Zones have been selected, Congress has authorized the selection of 15 

additional urban Empowerment Zones. 

197
USEPA Water Conservation Plan Guidelines Appendix E 

Agency Elements Information 

Eligible activities Potential Empowerment Zones submit creative plans for revitalization 

and, if chosen, receive grants to help execute these plans. 

Eligible water Structural Measures 

conservation � Meters 

measures � Leak detection and control equipment 

� Plumbing fixture retrofits or replacements 

� Water-efficient appliance 

� Water-efficient landscaping or irrigation equipment 

� Gray water recycling 

� Commercial/institutional conservation measures 

� Industrial reuse or recycling 

� Wastewater reclamation and reuse 

U.S. Program Empowerment Zones Program (Rural) 

Department of National contact Victor Vasquez (202) 619-7980 

Health and 

Human Services 

Regional contacts 

Type of assistance 

Jim Gatz (202) 260-0397 can help identify appropriate state agencies. 

Project grants 

Eligibility A rural applicant must be nominated by a local government or state 

where the rural area is located. Applicants on behalf of nominated 

beneficiaries may also include, but are not limited to, state and local 

governments, regional planning agencies, non-profit organizations, 

community-based organizations, or partnerships of community 

members and other entities. An area is eligible if it (1) has a 

maximum population of 30,000; (2) is an area of pervasive poverty, 

unemployment, and general distress; (3) is smaller than 1,000 square 

miles; and (4) meets other locative requirements. Round I zones have 

been selected, 5 additional zones have been authorized by Congress. 

Eligible activities Potential Empowerment Zones submit creative plans for revitalization 

and, if chosen, receive grants to help execute these plans. 

Eligible water Structural Measures 

conservation � Meters 

measures � Leak detection and control equipment 

� Plumbing fixture retrofits or replacements 

� Water-efficient appliance 

� Water-efficient landscaping or irrigation equipment 

� Gray water recycling 

� Commercial/institutional conservation measures 

� Industrial reuse or recycling 

� Wastewater reclamation and reuse 

Pacific Program Pacific Northwest National Laboratory 

Northwest National contact Michael Baechler (503) 417-7553. www.pnl.gov/energystar 

Laboratory, Regional contacts Not applicable 

U.S. Type of assistance Market transformation. 

Department of Eligibility Bulk purchase of water-efficient clothes washers by high volume 

Energy purchasers, including multifamily residential units, builders, utilities, 

energy commissions, and developers, but not retailers. 

Eligible activities The program provides access to a specific model of high performance 

water-conserving clothes washers selected in a national competition. 

Eligible water Structural Measures 

conservation � Water-efficient appliances 

measures 

198
USEPA Water Conservation Plan Guidelines Appendix F 

APPENDIX F 

STATE CONTACT LIST 

State Primacy Agency Drinking Water SRF 

Agency 

Water Resource Agency 

Alabama Water Division 

Department of Environmental 

Management 

P.O. Box 301463 

Montgomery, AL 36130­

1463 

334-271-7774 or 334-271-

7823 

http://www.adem.state.al.us/ 

Department of Environmental 

Management 

1751 Cong. WM Dickinson 

Drive 

P.O. Box 301463 

Montgomery, AL 36130­

1463 

334-271-7773 

http://www.adem.state.al.us/ 

Office of Water Resources 

Department of Economic and 

Community Affairs 

Montgomery, AL 36130 

334-242-5499 

http://www.state.al.us/govern 

/adeca3.html 

Alaska Drinking Water Program 

Division of Environmental 

Health 

Department of Environmental 

Conservation 

555 Cordova Street 

Anchorage, AK 99501-2617 

907-269-7647 

http://www.state.ak.us/local/a 

kpages/ENV.CONSERV/deh 

/dec_denh.htm 

Facility Construction and 

Operations Division 

Department of Environmental 

Conservation 

410 Willoughby Avenue, 

#105 

Juneau, AK 99801-1795 

907-465-5136 

http://www.state.ak.us/local/a 

kpages/ENV.CONSERV/deh 

/dec_denh.htm 

Water Resources Section 

Division of Mining and 

Water 

Department of Natural 

Resources 

3601 C Street, Suite 200 

Anchorage, AK 99503-5929 

907-269-8400 

http://www.dnr.state.ak.us/mi 

ne_wat/water/wrfact.htm 

Arizona Department of Environmental 

Quality 

3033 North Central Avenue 

Phoenix, AZ 85012 

602-207-2300 

http://www.adeq.state.az.us/ 

Drinking Water Section 

Department of Environmental 

Quality 

3033 North Central Avenue 

Phoenix, AZ 85012-2809 

602-207-4617 

Department of Water 

Resources 

500 N. Third Street 

Phoenix, AZ 85004 

602-417-2408 

Arkansas Department of Health 

4815 W. Marham 

Little Rock, AR 72205 

501-661-2623 

http://health.state.ar.us/ 

Department of Health 

4815 W. Marham 

Little Rock, AR 72205 

501-661-2623 

http://health.state.ar.us/ 

Soil and Water Conservation 

Commission 

101 East Capitol Street 

Little Rock, AR 72201 

California Division of Drinking Water 

and Environmental 

Management 

Department of Health 

Services 

601 North 7th Street, MS 92, 

Sacramento, CA 95814 

Mail: P.O. Box 942732, 

Sacramento, CA 94234-7320 

916-323-6111 

http://www.dhs.cahwnet.gov/ 

prevsrv/ddwem/index.htm 

Division of Drinking Water 

and Environmental 

Management 

Department of Health 

Services 

P.O. Box 942732 

Sacramento, CA 94234-7320 

916-323-4344 

Department of Water 

Resources 

1020 9th Street, 3rd Floor 

Sacramento, CA 95814 

916-327-1655 

http://wwwdwr.water.ca.gov/ 

199
USEPA Water Conservation Plan Guidelines Appendix F 

State Contact List (continued) 

State Primacy Agency Drinking Water SRF 

Agency 

Water Resource Agency 

Colorado Water Quality Control Div., 

Department of Public Health 

and Environment 

4300 Cherry Creek Drive S. 

Denver, CO 80222-1530 

303-692-3500 

http://www.state.co.us/gov_d 

ir/cdphe_dir/wq/wqhom.html 

Water Quality Control 

Division 

Department of Public Health 

& Environment 

4300 Cherry Creek Drive 

Denver, CO 80222-1530 

303-692-3554 

Division of Water Resources, 

Dept. of Natural Resources 

1313 Sherman St., Rm. 818 

Denver, CO 80203 

303-866-3586 

http://water.state.co.us/defaul 

t.htm 

Connecticut Div. of Environmental 

Health, Bureau of Regulatory 

Services, Dept. of Public 

Health 

410 Capitol Avenue, P.O. 

Box 340308 

Hartford, CT 06134-0308 

860-509-8000 

http://www.state.ct.us/dph/ 

Water Supplies Section 

Department of Public Health 

P.O. Box 340308 

450 Capitol Avenue (MS# 51 

WAT) 

Hartford, CT 06134-0308 

860-509-7333 

Bureau of Water 

Management, Department of 

Environmental Protection 

79 Elm Street 

Hartford, CT 06106-5127 

860-424-3704 

http://dep.state.ct.us/water/wa 

trhome.htm 

Delaware Health Systems Protection 

Division of Public Health 

Health and Social Services 

P.O. Box 637 

Dover, DE 19903 

302-577-4501 

http://www.state.de.us/gover 

n/agencies/dhss/irm/dph/hsp. 

htm 

Division of Public Health 

Department of Health & 

Social Services 

P.O. Box 637 

Dover, DE 19903 

302-739-5410 

Division of Water Resources, 

Department of Natural 

Resources 

and Environmental Control 

302-739-4860 

http://www.dnrec.state.de.us 

Florida Division of Water Facilities 

Dept. of Environmental 

Protection 

Twin Towers Building, 

2600 Blair Stone Road, Mail 

Station #70 

Tallahassee, FL 32399 

904-488-2996 

http://www.dep.state.fl.us:80/ 

/ 

Bureau of Local Government 

Wastewater Financial 

Assistance, Dept. of 

Environmental Protection 

Twin Towers Building 2600 

Blair Stone Road 

Tallahassee, FL 32399 

850-488-8163 

http://www.dep.state.fl.us:80/ 

/ 

Office of Water Policy 

Dept. of Environmental 

Protection 

Twin Towers Building 

2600 Blair Stone Road 

Tallahassee, FL 32399 

850-488-1554 

http://www.dep.state.fl.us:80/ 

ecosystem/waterpol/ 

Georgia Water Resources Branch 

Environmental Protection 

Division, Dept. of Natural 

Resources 

1152 East Tower 

205 Butler Street, SE 

Atlanta, GA 30334 

404-656-4807 

http://www.Georgianet.org/d 

nr/environ/ 

Environmental 

Protection Division 

Drinking Water Permitting & 

Engineering Program 

Department of Natural 

Resources 

Floyd Towers East, Suite 

1362 

205 Butler Street, SE 

Atlanta, GA 30334 

404-656-0719 

Water Resources Branch, 

Environmental Protection 

Division 

Department of Natural 

Resources 

1152 East Tower 

205 Butler Street, SE 

Atlanta, GA 30334 

404-656-4807 

http://www.Georgianet.org/d 

nr/environ/ 

200 
USEPA Water Conservation Plan Guidelines Appendix F 

State Contact List (continued) 

State Primacy Agency Drinking Water SRF 

Agency 

Water Resource Agency 

Hawaii Safe Drinking Water Branch, 

Environmental Management 

Division, Environmental 

Health Administration, 

Department of Health 

919 Ala Moana Blvd. 

Honolulu, HI 96814 

808-586-4258 

http://www.hawaii.gov/health 

/sdohpg61.htm 

Safe Drinking Water Branch, 

Environmental Management 

Division, Environmental 

Health Administration, 

Department of Health 

919 Ala Moana Blvd. (308) 

Honolulu, HI 96814 

808-586-4258 

http://www.hawaii.gov/health 

/sdohpg61.htm 

Division of Water Resource 

Management 

Land and Natural Resources 

Department 

1151 Punchbowl Street 

Honolulu, HI 96813 

808-587-0214 

http://www.hawaii.gov/dlnr/d 

wrm/dwrm.html 

Idaho Division of Environmental 

Quality 

Department of Health and 

Welfare 

1410 North Hilton 

Boise, ID 83706-1255 

208-373-0502 

http://www.state.id.us/dhw/h 

wgd_www/home.html 

Bureau of Drinking Water 

and Wastewater 

Division of Environmental 

Quality 

Department of Health and 

Welfare 

1410 North Hilton 

Boise, ID 83706-1255 

208-373-0291 

http://www.state.id.us/dhw/h 

wgd_www/home.html 

Department of Water 

Resources 

1301 N. Orchard Street 

Boise, ID 83706 

208-327-7910 

http://www.idwr.state.id.us/id 

wr/idwrhome.htm 

Illinois Bureau of Water 

Environmental Protection 

Agency 

2200 Churchill Road, 

Springfield, IL 62794-9276 

217-782-1654 

http://www.epa.state.il.us/org 

/bow/ 

Division of Public Water 

Supplies 

Environmental Protection 

Agency 

P.O. Box 19276 

Springfield, IL 62794-9276 

217-785-8653 

http://www.epa.state.il.us/org 

/bow/ 

Office of Water Resources, 

Department of Natural 

Resources 

310 South Michigan Avenue, 

Room 1606 

Chicago, IL 60604 

312-793-3129 

http://dnr.state.il.us/ildnr/offi 

ces/water.htm 

Indiana Office of Water Management 

Department of Environmental 

Management 

100 N. Senate 

P.O. Box 6015 

Indianapolis, IN 46206-6015 

317-232-8476 

http://www.ai.org/idem/owm. 

html 

Drinking Water Branch 

Department of Environmental 

Management 

100 North Senate Avenue 

P.O. Box 6015 

Indianapolis, IN 46206-6015 

317-308-3281 

http://www.ai.org/idem/owm. 

html 

Division of Water 

Department of Natural 

Resources 

402 West Washington Street, 

Indianapolis, IN 46204. 

317-232-4161 

http://www.dnr.state.in.us/wa 

ter/index.htm 

Iowa Water Supply Section 

Water Quality Bureau 

Environmental Protection 

Division, Dept. of Natural 

Resources 

Wallace State Office Bldg. 

Des Moines, IA 50319 

http://www.state.ia.us/govern 

ment/dnr/organiza/epd/wtrq/ 

wtrqbur.htm 

Water Quality Bureau 

Department of Natural 

Resources 

Wallace Office Building 

900 East Grand Street 

Des Moines, IA 50319 

515-281-8869 

Water Resources Section 

Water Quality Bureau 

Environmental Protection 

Division, Department of 

Natural Resources 

Wallace State Office Bldg. 

Des Moines, IA 50319 

http://www.state.ia.us/govern 

ment/dnr/organiza/epd/wtrq/ 

wtrqbur.htm 

201 
USEPA Water Conservation Plan Guidelines Appendix F 

State Contact List (continued) 

State Primacy Agency Drinking Water SRF 

Agency 

Water Resource Agency 

Kansas Bureau of Water 

Department of Health and 

Environment 

Forbes Field, Building 283 

Topeka, KS 66620 

785-296-5500 

http://www.state.ks.us/public/ 

kdhe/bow.html 

Public Water Supply 

Supervision 

Bureau of Water 

Department of Health & 

Environment 

Forbes Field, Building 283 

Topeka, KS 66620 

785-296-5503 

http://www.state.ks.us/public/ 

kdhe/bow.html 

Kansas Water Office 

109 S.W. Ninth Street 

Suite 300 

Topeka, KS 66612-1249 

785-296-3185 

http://www.ink.org/public/kw 

o/ 

Kentucky Drinking Water Branch 

Natural Resources and 

Environmental Protection 

Cabinet 

14 Reilly Road 

Frankfort, KY 40601 

502-564-3410 

http://www.state.ky.us/agenci 

es/nrepc/nrhome.htm 

Division of Water 

Drinking Water Branch 

Department of Natural 

Resources & Environmental 

Protection Cabinet 

14 Reilly Road 

Frankfort, KY 40601 

502-564-3410 

Division of Water, Water 

Resources Branch 

Natural Resources and 

Environmental Protection 

Cabinet 

14 Reilly Road 

Frankfort, KY 40601 

502-564-3410 

Louisiana Office of Public Health 

Department of Health and 

Hospitals 

1201 Capitol Access Road, 

P.O. Box 629 

Baton Rouge, LA 70821­

0629 

504-342-9500 

http://204.58.127.20/dhh/ 

Municipal Facilities Division 

Department of Environmental 

Quality 

P.O. Box 82215 

Baton Rouge, LA 70884­

2215 

504-765-0810 

Office of Water Resources, 

Department of Environmental 

Quality 

P.O. Box 82215 

Baton Rouge, LA 70884 

http://www.deq.state.la.us/ow 

r/owr.htm 

Maine Department of Human 

Services 

221 State Street 

Augusta, ME 04333 

207-287-3707 

http://www.state.me.us/dhs/m 

ain/welcome.htm 

Department of Human 

Services 

10 State House Station 

157 Capitol Street 

Augusta, ME 04333-0010 

207-287-5685 

Water Resource Regulation 

Division 

Bureau of Land and Water 

Quality 

Department of Environmental 

Protection 

17 State House Station 

Augusta, ME 04333-0017 

207-287-7789 

http://www.state.me.us/dep/l 

&w.gif 

Maryland Water Management 

Administration 

Department of the 

Environment 

2500 Broening Highway 

Baltimore, MD 21224 

410-631-3567 

http://www.mde.state.md.us/ 

wma/water.html 

Public Drinking Water 

Program 

Department of the 

Environment 

2500 Broening Highway 

Baltimore, MD 21224 

410-631-3702 

http://www.mde.state.md.us/ 

wma/water.html 

Water Management 

Administration 

Department of the 

Environment 

2500 Broening Highway 

Baltimore, MD 21224 

410-631-3567 

http://www.mde.state.md.us/ 

wma/water.html 

202 
USEPA Water Conservation Plan Guidelines Appendix F 

State Contact List (continued) 

State Primacy Agency Drinking Water SRF 

Agency 

Water Resource Agency 

Massachusetts Water Resources 

Commission 

Department of Environmental 

Protection 

1 Winter Street 

Boston, MA 02108 

617-292-5948 

http://www.magnet.state.ma. 

us/dep/dephome.htm 

Department of Environmental 

Protection 

1 Winter Street 

Boston, MA 02108 

617-292-5529 

http://www.magnet.state.ma. 

us/dep/dephome.htm 

Water Resources 

Commission 

Department of Environmental 

Protection 

1 Winter Street 

Boston, MA 02108 

617-292-5948 

http://www.magnet.state.ma. 

us/dep/brp/dws/dwspubs.htm 

Michigan Drinking Water and 

Radiological Protection 

Division 

Department of Environmental 

Quality 

P.O. Box 30630 

Lansing, MI 48909 

517-335-9218 

http://www.deq.state.mi.us/d 

wr/ 

Drinking Water and 

Radiological Protection 

Division 

Department of Environmental 

Quality 

P.O. Box 30630 

Lansing, MI 48909 

517-335-8326 

http://www.deq.state.mi.us/d 

wr/ 

Department of Environmental 

Quality 

P.O. Box 30630 

Lansing, MI 48909 

517-373-7917 

http://www.deq.state.mi.us/d 

wr/ 

Minnesota Department of Health 

121 East Seventh Place 

St. Paul, MN 55101 

612-215-0700. 

http://www.health.state.mn.us 

/ 

Drinking Water Protection 

Section 

Department of Health 

121 7th Place East 

Suite 220 

St. Paul, MN 55164-0975 

612-215-0746 

http://www.health.state.mn.us 

/ 

Division of Waters 

Department of Natural 

Resources 

500 Lafayette Road 

Saint Paul, MN 55155 

612-297-2835 

Mississippi Office of Health Regulation 

State Department of Health 

2423 North State Street 

P. O. Box 1700 

Jackson, MS 39215-1700 

601-960-7518 

http://www.msdh.state.ms.us/ 

Division of Water Supply 

State Department of Health 

P.O. Box 1700 

Jackson, MS 39215-1700 

601-960-7518 

http://www.msdh.state.ms.us/ 

Office of Land and Water 

Resources 

Department of Environmental 

Quality 

P.O. Box 10631 

Jackson, MS 39289 

http://www.deq.state.ms.us/ 

Missouri Public Drinking Water 

Program 

Division of Environmental 

Quality 

Department of Natural 

Resources 

P.O. Box 176 

Jefferson City, MO 65102

 573-751-5331 

http://www.state.mo.us/dnr/d 

eq/pdwp/homepdwp.htm 

Public Drinking Water 

Program 

Department of Natural 

Resources 

P.O. Box 176 

Jefferson City, MO 64102 

573-751-5331 

http://www.state.mo.us/dnr/d 

eq/wpcp/home_wpc.htm 

Department of Natural 

Resources 

P. O. Box 176, 

Jefferson City, MO 65102 

1-800-334-6946 

http://www.state.mo.us/dnr/d 

eq/pdwp/homepdwp.htm 

203 
USEPA Water Conservation Plan Guidelines Appendix F 

State Contact List (continued) 

State Primacy Agency Drinking Water SRF 

Agency 

Water Resource Agency 

Montana Department of Environmental Technical and Financial Water Resources Division 

Quality Assistance Bureau Department of Natural 

P.O. Box 200901 

Helena, MT 59620-0901 

Department of Environmental 

Quality 

Resources and Conservation 

48 N. Last Chance Gulch 

406-444-2544 P.O. Box 200901 Helena, MT 59620-2301 

http://www.deq.mt.gov/ Helena, MT 59620-0901 406-444-6601 

406-444-6776 http://www.dnrc.mt.gov/wrd/ 

home.htm 

Nebraska Division of Environmental 

Health 

Department of Health & 

Human Services 

The Nebraska Natural 

Resources Commission 

Department of Health and 

Human Services 

301 Centennial Mall South, 

3rd Floor 

301 Centennial Mall South 

Lincoln, NE 68509 

301 Centennial Mall South P.O. Box 95007 402-471-2081 

P.O. Box 95007 

Lincoln, NE 69509 

Lincoln, NE 68509-5007 

402-471-2541 

http://www.nrc.state.ne.us/ 

402-471-2541 

http://www.hhs.state.ne.us/en 

h/index.htm 

http://www.hhs.state.ne.us/en 

h/index.htm 

Nevada State Health Division 

Department of Human 

Resources 

Bureau of Health Protection 

Service 

State Health Division 

Division of Water Planning, 

Department of Conservation 

and Natural Resources 

505 East King Street, Room 

203 

Department of Human 

Resources 

1550 E. College Parkway, 

Suite 142 

Carson City, NV 89706­

7921 

702-687-3600 

1179 Fairview Drive 

Carson City, NV 89701­

5405 

Carson City, NV 89706­

7921 

702-687-3600 

http://www.state.nv.us/health 

/bhps/sdwp.htm 

702-687-6615 

http://www.state.nv.us/health 

/bhps/sdwp.htm 

New 

Hampshire 

Division of Water Resources 

Department of Environmental 

Services 

64 No. Main Street 

Water Supply Engineering 

Bureau 

Department of Environmental 

Services 

Division of Water Resources 

Department of Environmental 

Services 

64 No. Main Street 

Concord, NH 03301-4913 6 Hazen Drive Concord, NH 03301-4913 

603-271-3406 P.O. Box 95 603-271-3406 

http://www.state.nh.us/des/bi 

owrd.htm 

Concord, NH 03302-0095 

603-271-3503 

http://www.state.nh.us/des/bi 

owrd.htm 

New Jersey Office of Water Policy 

Analysis 

Department of Environmental 

Protection 

Water Supply Element 

Department of Environmental 

Protection 

CN 426 

Bureau of Water Allocation, 

Department of Environmental 

Protection 

CN-426 

CN-426 401 E. State Street, 3rd Floor 401 E. State Street, 3rd Floor 

Trenton, NJ 08625 Trenton, NJ 08625 Trenton, NJ 08625 

609-292-7219 609-292-7219 609-292-2885 

http://www.state.nj.us/dep/ http://www.state.nj.us/dep/ http://www.state.nj.us/dep/ 

204 
USEPA Water Conservation Plan Guidelines Appendix F 

State Contact List (continued) 

State Primacy Agency Drinking Water SRF 

Agency 

Water Resource Agency 

New Mexico Drinking Water Compliance 

Section, Field Operations 

Division, Drinking Water and 

Community Services Bureau 

Environment Department 

525 Camino de los Marquez, 

Suite 4 

Santa Fe, NM 87502 

Drinking Water Bureau 

Environment Department 

525 Camino De Los Marquez 

Suite 4, P.O. Box 26110 

Santa Fe, NM 87502 

505-827-7536 

Office of the State Engineer 

Interstate Stream 

Commission 

P.O. Box 25102 

Santa Fe, NM 87504-5102 

505-827-6175 

http://www.seo.state.nm.us/ 

505-827-7536 

http://www.nmenv.state.nm.u 

s/field_op.html 

New York Bureau of Public Water Bureau of Public Water Division of Water 

Supply Protection, Div. of 

Environmental Protection 

Department. of Health 

50 Wolf Rd., Room 302 

Albany, NY 12233-3505 

518-458-6423 

Supply Protection 

Department of Health 

2 University Place, Room 

410 

Albany, NY 12203-3313 

518-458-6731 

Department of Environmental 

Conservation 

50 Wolf Rd., Room 302 

Albany, NY 12233-3505 

518-457-2470 

http://www.health.state.ny.us/ http://www.health.state.ny.us/ 

North Public Water Supply Section Public Water Supply Section Division of Water Resources, 

Carolina Div. of Environmental Health Department of Environment, Department of Environment, 

Department of Environment, 

Health and Natural Resources 

Health & Natural Resources 

P.O. Box 29536 

Health and Natural Resources 

512 N. Salisbury Street 

P.O. Box 29536 Raleigh, NC 27626 Raleigh, NC 27604 

Raleigh, NC 27626 919-733-2321 919-715-3047 

919-733-2321 http://www.deh.ehnr.state.nc. http://www.dwr.ehnr.state.nc. 

http://www.deh.ehnr.state.nc. us/pws/index.htm us/home.htm 

us/pws/index.htm 

North Dakota Div. of Municipal Facilities 

Environmental Health 

Division of Municipal 

Facilities 

North Dakota State Water 

Commission 

Section 

Department of Health 

1200 Missouri Ave. 

Department of Health 

1200 Missouri Avenue 

Bismarck, ND 58506 

900 E. Boulevard Avenue 

Bismarck, ND 58505 

701-328-4989 

P.O. Box 5520 

Bismarck, ND 58506-5520 

701-328-5150 

http://www.ehs.health.state.n 

d.us/ndhd/environ/homepage. 

htm 

phone: (701) 328-5211 

http://www.ehs.health.state.n 

d.us/ndhd/environ/homepage. 

htm 

http://water.swc.state.nd.us/ 

Ohio Division of Drinking and 

Ground Waters 

Division of Drinking Water/ 

Groundwater 

Department of Natural 

Resources 

Environmental Protection 

Agency 

1800 Watermark Drive 

Environmental Protection 

Agency 

P.O. Box 1049 

Building E-2 

1939 Fountain Square Court 

Columbus, OH 43224 

P.O. Box 1049 1800 Watermark Drive 614-265-6610 

Columbus, OH 43216-1049 

614-644-2752 

http://www.epa.ohio.gov/dda 

gw/ddagwmain.html 

Columbus, OH 43216-1049 

614-644-2752 

http://www.epa.ohio.gov/dda 

gw/dwsrf.html 

http://www.dnr.state.oh.us/od 

nr/soil+water/soil+water.html 

205 
USEPA Water Conservation Plan Guidelines Appendix F 

State Contact List (continued) 

State Primacy Agency Drinking Water SRF 

Agency 

Water Resource Agency 

Oklahoma Water Quality Division 

Department of Environmental 

Quality 

1000 Northeast 10th Street 

Water Quality Division 

Department of Environmental 

Quality 

1000 Northeast Tenth Street 

Water Resources Board 

3800 North Classen Blvd. 

Oklahoma City, OK 73118 

405-530-8845 

Oklahoma City, OK 73117­

1212 

Oklahoma City, OK 73117­

1212 

405-271-5205 405-271-5205 

http://www.deq.state.ok.us/w 

ater.html 

http://www.deq.state.ok.us/w 

ater.html 

Oregon Drinking Water Program 

Health Division 

Department of Human 

Resources 

500 Summer Street, NE ­

Health Division 

Department of Human 

Resources 

800 NE Oregon Street 

P.O. Box 14360 

Water Resources Department 

Commerce Building 

158 12th Street 

Salem, OR 97310 

503-378-3739 

Salem, OR 97310-1012 Portland, OR 97293-0460 

503-731-4010 503-731-4010 

http://www.hr.state.or.us/ http://www.hr.state.or.us/ 

Pennsylvania Bureau of Water Supply 

Management 

Office of Water Management 

Department of Environmental 

Protection 

Municipal Financial 

Assistance Division 

Department of Environmental 

Protection 

P.O. Box 8467 

Bureau of Watershed 

Conservation 

Office of Water Management 

Department of Environmental 

Protection 

P.O. Box 8467 

Harrisburg, PA 17105 

717-787-5017 

Harrisburg, PA 17105-8467 

717-772-4054 

P.O. Box 8467 

Harrisburg, PA 17105 

717-787-5267 

http://www.dep.state.pa.us/de 

p/deputate/watermgt/wsm/ws 

m.htm 

http://www.dep.state.pa.us/de 

p/deputate/watermgt/wc/wc.h 

tm 

Rhode Island Division of Drinking Water 

Quality 

Department of Health 

Three Capitol Hill, 

Providence, RI 02908-5097 

401-277-2231 

Drinking Water Quality 

Division 

Department of Health 

3 Capitol Hill 

209 Cannon Building 

Providence, RI 02908 

Water Supply Management 

Division 

Department of Environmental 

Management 

235 Promenade Street 

Providence, RI 02908 

http://www.state.ri.us/stdept/s 

d29.htm 

401-277-6867 401-277-4700 

South Bureau of Water Water Pollution Control Water Resources Division, 

Carolina Department of Health and 

Environmental Control 

Department of Health and 

Environmental Control 

Department of Natural 

Resources 

26 Bull Street 2600 Bull Street 1201 Main Street, Suite 1100 

Columbia, SC 29201 Columbia, SC 29201 Columbia, SC 29201 

803-734-5342 803-734-5283 803-737-0800 

http://www.state.sc.us/dhec/e 

qcburea.htm# 

http://water.dnr.state.sc.us/wa 

ter/index.html 

206 
USEPA Water Conservation Plan Guidelines Appendix F 

State Contact List (continued) 

State Primacy Agency Drinking Water SRF 

Agency 

Water Resource Agency 

South Dakota Drinking Water Division 

Department of Environment 

and Natural Resources 

523 E. Capitol Avenue 

Pierre, SD 57501-3181 

605-773-3754 

http://www.state.sd.us/state/e 

xecutive/denr/denr.html 

Water and Waste Funding 

Assistance 

Department of Environment 

& Natural Resources 

Joe Foss Building 

523 East Capitol 

Pierre, SD 57501-3181 

605-773-4216 

http://www.state.sd.us/state/e 

xecutive/denr/denr.html 

Drinking Water Division 

Department of Environment 

and Natural Resources 

523 E. Capitol Avenue 

Pierre, SD 57501-3181 

605-773-3754 

http://www.state.sd.us/state/e 

xecutive/denr/denr.html 

Tennessee Division of Water Supply 

Department of Environment 

and Conservation 

L and C Tower, 6th Floor 

401 Church Street 

Nashville, TN 37243 

615-532-0191 

http://www.state.tn.us/enviro 

nment/ 

Division of Water Supply 

Department of Environment 

& Conservation 

401 Church Street, 6th Floor 

L&C Tower 

Nashville, TN 37243-1549 

615-532-0155 

Division of Water Supply 

Department of Environment 

and Conservation 

L and C Tower, 6th Floor 

401 Church Street 

Nashville, TN 37243 

615-532-0191 

http://www.state.tn.us/enviro 

nment/ 

Texas Public Drinking Water 

Section of the Water Utilities 

Division 

Natural Resource 

Conservation Commission 

P.O. Box 13087 

Austin, TX 78711-3087 

512- 239-1000 

http://www.tnrcc.state.tx.us/ 

Natural Resources 

Conservation Commission 

P.O. Box 13087 

Austin, TX 78711-3087 

512-239-6020 

Water Development Board 

P.O. Box 13231, Capitol 

Station 

Austin, TX 78711 

512-463-8061 

Utah Division of Drinking Water, 

Department of Environmental 

Quality 

P.O. Box 144830 

Salt Lake City, UT 84114­

4830 

801-536-4188 

http://www.eq.state.ut.us/eqd 

w/welcome.htm 

Division of Drinking Water, 

Department of Environmental 

Quality 

P.O. Box 144830 

Salt Lake City, UT 84114­

4830 

801-536-4197 

http://www.eq.state.ut.us/eqd 

w/welcome.htm 

Board of Water Resources 

P.O. Box 146201 

Salt Lake City, UT 84114­

6201 

801-538-7299 

http://www.nr.state.ut.us/wtrr 

esc/brddivbf.htm 

Vermont Water Supply Division 

Department of Environmental 

Conservation 

Agency of Natural Resources 

103 South Main Street 

Waterbury, VT 05671-0403 

802-241-3600 

http://www.anr.state.vt.us/ 

Water Supply Division 

Department of Environmental 

Conservation 

Old Pantry Building 

103 South Main Street 

Waterbury, VT 05671-0403 

802-241-3400 

Water Resources Board, 

Environmental Board 

National Life Records Center 

Building, Drawer 20 

Montpelier, VT 05602 

802-828-3309 

http://www.state.vt.us/wtrboa 

rd/index.htm 

207 
USEPA Water Conservation Plan Guidelines Appendix F 

State Contact List (continued) 

State Primacy Agency Drinking Water SRF 

Agency 

Water Resource Agency 

Virginia Division of Water Supply 

Engineering 

Office of Water Programs 

Department of Health 

Room 109 

1500 East Main Street, 

Richmond, VA 23219 

804-371-2885 

http://www.vdh.state.va.us/o 

wp/water_supply.htm 

Division of Water Supply 

Engineering 

Department of Health 

1500 East Main Street, Room 

109-31 

Richmond, VA 23219 

804-786-1768 

http://www.vdh.state.va.us/o 

wp/water_supply.htm 

Department of Environmental 

Quality 

629 East Main Street 

Richmond, VA 23240 

804-698-4471 

http://www.deq.state.va.us/en 

vprog/watqual.html 

Washington Division of Drinking Water 

Department of Health 

Airdustrial Way, Building 3 

P.O. Box 47822 

Olympia, WA 98504-7822 

360-586-5207 

http://198.187.0.42:80/default 

.htm 

Division of Drinking Water 

Department of Health 

Airdustrial Way, Building 3 

P.O. Box 47822 

Olympia, WA 98504-7822 

360-236-3093 

http://198.187.0.42:80/default 

.htm 

Department of Ecology 

Water Resources Program 

PO Box 47600 

Olympia, WA 98504-7600 

360-407-6602 

http://www.wa.gov/ecology/ 

wr/wrhome.html 

West Virginia Bureau for Public Health 

Environmental Engineering 

Division 

Office Of Environmental 

Health Services 

304-558-2981 

Bureau for Public Health 

Office of Environmental 

Health Services 

815 Quarrier Street #418 

Charleston, WV 25301-2616 

304-558-2981 

Office of Water Resources 

Division of Environmental 

Protection 

1201 Greenbriar Street 

Charleston, WV 25311 

304-558-2108 

http://charon.osmre.gov/wr/w 

r.html 

Wisconsin Bureau of Drinking Water/ 

Groundwater 

Department of Natural 

Resources 

P.O. Box 7921 

Madison, WI 53707 

608-266-0821 

http://www.dnr.state.wi.us/eq 

/wq/dw/ 

Bureau of Drinking Water/ 

Groundwater 

Department of Natural 

Resources 

P.O. Box 7921 

Madison, WI 53707-7921 

608-267-7651 

http://www.dnr.state.wi.us/eq 

/wq/dw/ 

Water Management 

Department of Natural 

Resources 

101South Webster Street, 

WT-2 

Madison, WI 53707 

608-267-2375 

http://www.dnr.state.wi.us/ 

Wyoming Water Quality Division 

Department of Environmental 

Quality 

Herschler Building 

122 West 25th Street 

Cheyenne, WY 82002-0600 

307-777-7075 

Water Quality Division 

Department of Environmental 

Quality 

Herschler Building 

122 West 25th Street 

Cheyenne, WY 82002-0600 

307-777-7075 

State Engineer Office 

Herschler Building, 4 East 

Cheyenne, WY 82002 

307-777-5927 

http://wwwwwrc.uwyo.edu/wrds/seo/seo 

.html 

Water Development Comm. 

4 West Herschler Building 

Cheyenne, WY 82002 

307-777-7626 

http://wwwwwrc.uwyo.edu/wrds/wwdc/ 

wwdc.html 

208