National Action Plan to Encourage Municipal Water Use Efficiency

Prepared by The CCME Water Use Efficiency Task Group

Goal

The Canadian Council of Ministers of the Environment believes that improved water efficiency practices are essential to sustainable development. The goal of this action plan is to achieve more efficient use of water in Canadian municipalities in order to save money and energy, delay or reduce expansion of existing water and wastewater systems, and conserve water.

Background

Traditionally, municipal water management in Canada has focused on providing adequate supplies to meet municipal domestic and industrial demands. Increased demand has been met by adding to the water and wastewater delivery and treatment systems. However, the cost of expanding water delivery systems is rapidly escalating as more distant and expensive sources must be tapped. In addition, more stringent standards and regulations as well as increased use, have escalated the costs of improved water and wastewater treatment. Yet water pricing policies in most municipalities actually discourage efficient use of water. The price of water to consumers in many cases does not now reflect the true cost of treatment and delivery. We can no longer afford this approach.

Canadians use more water per capita that any other national population except the United States. Canadian water use is more than two times higher than that of Europeans. Canadians do not use water efficiently.

Currently, there is no consistent requirement for the use of water efficient fixtures in plumbing codes across the nation. Canada is behind other countries in providing consistent codes, guidelines, regulations and policies affecting water use efficiency.

Some municipalities have initiated programs encouraging water efficient practices, including promoting, or requiring, water efficient fixtures, such as shower heads and low volume toilets. They have demonstrated that significant savings can be achieved at little additional cost.

Water and wastewater quantity and quality are intertwined with social, economic and environmental concerns. Sustained quantity and quality of water preserves the environment, reduces energy consumption and preserves jobs.

The action plan offers direction to governments and recommends what government department and municipalities should do to achieve greater water efficiencies and decrease capital expansion and operating costs. In approving the action plan, the CCME recognizes that local conditions may affect how and when these recommendations might be implemented.

Principles

Development of this action plan was based on the following fundamental principles:

Leadership. All levels of government – federal, provincial and territorial and municipal – must show leadership in advancing water use efficiency, building on existing knowledge and technologies.

Partnership. Environment ministers cannot achieve the goals of this plan alone. In order to succeed, this plan requires the participation of other government departments, municipalities, and all Canadians.

Harmonization. There shall be consistent regulatory requirements relating to water use efficiency across Canada.

User pays on basis of volume. Consumers shall pay for water and wastewater services on the basis of measured actual use.

Full cost pricing. Municipalities shall move towards water and wastewater rate structures that reflect the full costs of delivery and treatment.

An informed public. The public shall be informed of the real costs of water use and the savings that can be achieved through water efficiency, and of actions they can take to reduce usage.

Expected outcomes

There are a variety of expected outcomes from this action plan, all of which are beneficial to governments and consumers. These are:

1. Capital cost saving on the infrastructure to deliver water and treat wastewater
   Water efficiency has the potential to delay or eliminate the public funding required for additional facilities needed to meet future demand for water and wastewater treatment, by reducing the demand. It also will reduce the cost of collecting and treating wastewater as flows are subsequently reduced (over and above reductions in inflow and infiltration).

2. Environmental quality improvements
   Increased water use efficiency reduces the volume of water used by consumers, and of wastewater going to treatment facilities.

3. Energy conservation
   Water efficiency also means being more efficient with the use of energy. Less energy is used to heat water, and to pump potable water and wastewater.

4. Urban intensification
   Water efficiency allows more intensive development on existing water and sewer infrastructure, as less water is required per household or business. Water conserved is generally cheaper than water provided through building a new water plant.

5. Development opportunities, increased competitiveness and job creation
   The move to water efficiency will trigger new economic activities for water-related manufacturing and service sectors, encouraging new business opportunities and job creation. Increased efficiency also means lower costs to business, leading to increased competitiveness.

6. Water conservation
   Reduced water use helps to preserve and protect surface waters for fish and wildlife habitat and our natural attractions. These are essential to the economic health of Canada's tourism and outdoor recreation industries.

Plan elements

1. Government leadership
   
   Governments shall demonstrate leadership by reducing water use in their own facilities as well as in new publicly-funded facilities.
   1. Environment ministers, working with other government departments, will develop water efficiency strategies for government facilities, reviewing water use and evaluating where to get the most cost effective savings.

   2. Ministers will initiate retrofits to government facilities where cost-effective, targeted at the most inefficient uses.

   3. Ministers will organize demonstration projects with high public visibility showcasing economic benefits of water use efficiency measures and benefits.

   4. Ministers will initiate action to share information, efficiency models and prescriptions to avoid redundant research and implementation delays.

   5. Ministers will act to implement water efficient specifications for new government-owned and funded facilities and public housing by January 1, 1995.

Examples of Water and Cost Savings from Audits on Federal Buildings

Health Canada - Banting Bldg.	84 553	78 735*	7 971	10 000	15
Dept. of Nat. Def. (HQ) - Pearkes Bldg.	165 402	86 000	62 000†	190 000	37
Correctional Serv. - Warkworth Institution	320 500	280 200	14 000	16 500	14

Governments shall adopt consistent policies, regulations and codes concerning water efficiency.
1. Environment ministers shall work with appropriate ministers to amend plumbing codes to be consistent with water efficiency provisions elsewhere in North America.

2. Ministers shall encourage development of a water fixture efficiency labelling regulation, equivalent to the current labelling regulation for energy-using appliances.

3. Environment ministers, in cooperation with other appropriate ministries, will review provincial programs, policies, regulations and codes, to identify and remove impediments to water efficiency.

Governments shall ensure full public awareness and understanding of the economic, and social and environmental benefits of more efficient use of water.
1. CCME shall coordinate development of a generic public education and awareness strategy on water use efficiency.

2. Environment departments in each jurisdiction shall develop and implement their own public education programs on water efficiency.

3. Environment departments will promote public events and conferences in support of water use efficiency.

Governments shall encourage and foster the acceptance and use of existing water efficient products and the development of new water efficient products.
1. Ministers shall consider reallocating funds for research and development relating to water use efficiency.

2. Ministers will encourage development and promotion of Canadian-made water efficient products and technologies for domestic and international markets.

3. Appropriate departments will organize and exploit opportunities to showcase and market Canadian water efficient products and technologies.

2. Encouraging municipal water efficiency
   
   Provincial, federal and territorial governments shall assist municipal actions which increase water efficiency at the municipal level.
   1. Governments shall integrate municipal water use efficiency criteria into infrastructure assistance programs.

   2. Governments shall incorporate water efficiency initiatives in their policy and regulatory structures.

   3. Governments shall develop a generic water efficiency plan outline to be available for use by municipalities as a guide for developing their own plans.

   4. Governments shall promote the following actions to be taken at municipal levels:
      1. Identifying and reducing unaccounted for water through system audits and leakage control programs.
      2. Introducing mandatory metering on all new construction, and moving towards universal metering.
      3. Initiating public, stakeholder and school information and education programs in support of water efficiency.
      4. Undertaking audit and retrofit programs for commercial, industrial, institutional and residential facilities.
      5. Moving towards full cost pricing.
      6. Charging users on the basis of the water they use and the wastewater they generate.
      7. Reviewing administrative arrangements for achieving efficiencies in managing water delivery and sewage treatment systems.
      8. Using utility bills to show consumers actual charges for the various components of their water delivery system, how charges are determined and savings that would be achieved with water efficient devices.

Implementation

Upon approval of this action plan by CCME, an implementation phase can begin. An initial action will be to establish a multistakeholder task group that would coordinate and guide the implementation of this action plan. The task group will be required to track the progress being made, and will report to CCME at regular intervals.

It is recognized that implementing this plan will occur at different rates across the country, and that flexibility in approach can be expected. Within this general context, the following tables outline specific recommendations for implementation, with suggested lead agents and timing for each:

Detailed implementation plan

1. Demonstrate Leadership

Demonstrate water efficiency in selected government buildings	Select buildings Conduct audits Retrofit Monitor and showcase	Environment Depts. Legislative Buildings	Begin immediately
Develop strategies with other departments for all government buildings	Establish link with "landlord" agency Develop a schedule for water use review and cost savings assessment Develop water efficiency plan for building	Environment Depts. "Landlord" agencies	Fall 1995
Retrofit where cost effective	Establish program for retrofitting across government Start with faucet aerators; move to toilets/showers	Environment Depts. "Landlord" agency	Immediate Complete in 2 years
Share information	Compile inventory of existing technical information	Environment Canada Ontario MOEE	Summer 1994
	Establish electronic bulletin board	Environment Canada	Fall 1994
Implement water efficiency in government-funded facilities	Compile necessary specifications	CCME	Fall 1994
	Implement	Governments	Winter 1995

2. Adopt consistent policies

Amend plumbing codes (include labelling of plumbing fixtures)	Identify department responsible for plumbing code	Env. ministers	Immediate
	Review of proposed model code	All government stakeholders	Sept. 1, 1994
	Draft new provincial code	Department responsible	Oct. 1, 1994
	Publicize and consult	Department responsible	Jan. 1, 1995
	Code to legislative committee	Department responsible	Mar. 1, 1995
	Proclaim code for use January 1996	Department responsible	Apr. 1, 1995
Water efficiency labelling regulations (for appliances)	Form CCME Technical Committee	Ontario MOEE	Summer 1994
	Committee and appliance manufacturers meet	Committee	Sept. 1994
	Committee recommends necessary regulations	Committee	Jan 1995
Remove barriers to water use efficiency	Form multi-stakeholder group/tie in with existing committees	CCME	June 1994
	Review of high priority regulations	Multi-stakeholder group	June 1994
	Develop list of preferred legislation (e.g., grey water, cisterns)	Multi-stakeholder group	June 1994
	Provincial review/removal of impediments	Identified departments	June 1995
	Code amendments	Governments	Jan.-June 1995
	Consultation with stakeholders	Governments	Jan.-June 1995
	Effect changes	Governments	Jan. 1, 1996

3. Public education and awareness

Coordinate development of generic public education and awareness strategy	Identify key messages, target audiences and media/materials Identify key partners	CCME communications/ education specialists	Oct. 1994
Environment Departments draft water efficiency public education programs	Develop plan	Environment education and communcations specialists	March 1995
	Adopt/use generic materials
	Implement plan
	Report progress		May 1995
Organize events and conferences	Explain/present action plans	CCME and other organizations	May-June 1994, after adoption by Council early 1996
	Second National Water Efficiency Conference	CCME	Early 1996
Make water efficiency part of 1995 Environment Week		Environment Canada	June 1995

4. Research and development and technology transfer

Priority funding for water efficiency R&D	Prepare briefing document on R&D needs	Environment Canada	Dec. 1994
	Circulate document to researchers, research-funding agencies, and manufacturing associations	Environment Canada	Feb. 1995
Promote development of water efficiency products and technologies for domestic and international markets	Establish grants to encourage manufacturers and investors, in cooperation with CEIA	Applicable Fed./Prov. agencies	Apr. 1995
	Grants to municipalities for field testing new technologies	Applicable Fed./Prov. agencies	Apr. 1995
Sponsor and encourage trade shows to showcase Canadian water efficient products and technologies	Industry could, and Environment Canada shall, lead all appropriate initiatives in support of existing national and regional exhibits	Environment Canada
	Second national water efficiency conference	CCME	Early 1996
	Committee to assess dissemination of ideas	CCME/liaise with CEIA	Informal/ as needed

5. Encouraging municipal actions

Integrate water efficiency criteria into infrastructure assistance programs, including incentives for water efficiency planning	Develop criteria	CCME and partners	Jan. 1995
	Assess implementation means and recommend	CCME and partners	June 1995
Incorporate water efficiency initiatives into government policy and regulatory structures	Require water efficiency in new government construction	Governments	Jan. 1995
	Harmonize codes	Governments
	Adjust assistance programs	Governments
Develop a generic water efficiency plan outline as a guide for municipalities	Examine existing plans and processes Compile elements into an outline	FCM, CWWA, in cooperation with CCME	Jan. 1995
Develop municipal water efficiency plans	Identify and reduce water losses and infiltration into sewers	Municipalities	Begin formation of basic plans immediately*
	Undertake public, stakeholder and school education programs	Municipalities
	Undertake audits, fixture and fittings replacements and retrofits for residential, commercial, industrial and instituational users	Municipalities
	Move to full cost pricing	Municipalities	*Many municipalities have water efficiency plans/ programs already in place. The incentive for others to undertake water efficiency programs will be through the government steps noted above.
	Implement user pay principle based on volume used and wastewater produced	Municipalities
	Review administrative arrangements	Municipalities
	Modify billing procedures to identify water use	Municipalities/ Utilities

Approved by the Canadian Council of Ministers of the Environment, May 31, 1994.