2024 Water Efficiency PlanCity of Boulder
Water Efficiency Plan
January 23, 2024
Prepared for:
City of Boulder
Boulder, CO
City of Boulder
2023 Water Efficiency Plan
MARTIN AND WOOD
WATER CONSULTANTS, INC.
This Water Efficiency Plan was developed by the City of Boulder's Utilities Department staff, on behalf of the
City Manager, with support from Martin and Wood Water Consultants, Inc. The Plan was developed through an
engagement process that included outreach to the public, community members and stakeholder groups, and
city departments and partners. On September 18, 2023, Boulder's Water Resources Advisory Board
recommended that the City Manager approve this Water Efficiency Plan.
This Water Efficiency Plan was approved by the City Manager on December 11, 2023.
Nuria Rivera-Vandermyde, City Manager
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Table of Contents
Executive Summary ............................................................................................................. vi
1.Introduction .................................................................................................................... 1
1.1. Background ..................................................................................................................................................... 1
1.2. Purpose of the WEP ........................................................................................................................................ 2
2.Profile of Existing Water Supply System ....................................................................... 3
2.1. Water Supply Reliability .................................................................................................................................. 4
2.2. Supply-Side Limitations and Future Needs ................................................................................................... 5
3.Historical Treated Water Use ........................................................................................ 6
3.1. Background and Data Sources ...................................................................................................................... 6
3.2. Water Production ............................................................................................................................................ 7
3.3. Peak Day Water Production ........................................................................................................................... 8
3.4. Non-Revenue Water ........................................................................................................................................ 8
3.5. Indoor and Outdoor Water Use ...................................................................................................................... 9
3.6. Billed Water Use by Customer Sector .......................................................................................................... 11
3.7. Customer Water Budget Blocks ................................................................................................................... 15
4.Current WCP ................................................................................................................ 17
4.1. WCP Description ........................................................................................................................................... 17
4.2. Water Savings Attributed to Boulder’s WCP ................................................................................................ 18
5.WCP Goals ................................................................................................................... 20
5.1. Water Efficiency Goals .................................................................................................................................. 20
5.2. Planning Considerations ............................................................................................................................... 20
6.Water Demand Projections ........................................................................................ 22
6.1. Demographic Projections ............................................................................................................................. 22
6.2. Per Capita Water Use and Non-Revenue Water Projections ...................................................................... 22
6.3. Climate Change ............................................................................................................................................. 23
6.4. Systemwide Water Demand Projections ..................................................................................................... 24
7.Selection of Water Efficiency Programs .................................................................... 25
7.1. Staffing and Program Implementation ........................................................................................................ 25
7.2. Foundational Water Efficiency Programs .................................................................................................... 25
7.3. Technical Improvements and Incentives ..................................................................................................... 26
7.4. Water Efficiency Rules and Ordinances ...................................................................................................... 27
7.5. Education and Outreach Efficiency Programs ............................................................................................. 27
8.Implementation Plan and Monitoring Plan ............................................................... 29
8.1. Implementation Plan .................................................................................................................................... 29
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8.2. Monitoring Plan ............................................................................................................................................. 30
9.Public Review and Formal Approval .......................................................................... 31
9.1. Public Review Process .................................................................................................................................. 31
9.2. Local Adoption and State Approval Processes ........................................................................................... 31
9.3. Periodic Review and Update ........................................................................................................................ 31
List of Figures
Figure 2.1: Source Area for Boulder’s Water Supply ................................................................................................ 3
Figure 3.1: Annual and Per Capita Water Production, 1971 – 2022. ..................................................................... 7
Figure 3.2: Boulder's Peak Day Production, 1971 – 2022. ..................................................................................... 8
Figure 3.3: Boulder’s Annual Billed Water Use and Non-Revenue Water, 1971 – 2022. ..................................... 9
Figure 3.4: Annual Indoor and Outdoor Water Use, 2000 – 2022........................................................................ 10
Figure 3.5: Outdoor Water Use, Actual and Normalized, 2000 – 2022. .............................................................. 11
Figure 3.6: Average Annual Billed Water Use by Customer Sector, 2016 – 2019. .............................................. 12
Figure 3.7: Billed Water Use by Customer Sector, 2000 – 2022. ......................................................................... 12
Figure 3.8: Indoor and Normalized Outdoor Per Capita Water Use, By Customer Sector, 2000 – 2022. .......... 14
Figure 3.9: Number of Customers by Billing Block, 2022. ..................................................................................... 16
Figure 4.1: Boulder’s Water Conservation Partners and Customer Program Offerings Active in 2022. ............ 18
List of Tables
Table 4.1: Comprehensive List of Boulder’s Current Water Conservation Programs Active in 2022. ................ 17
Table 4.2: Boulder’s Average Annual Per Capita Water Use by Customer Sector (gpcd). ................................... 19
Table 6.1: Boulder’s Service Area Population, 2022 Actual and 2040 Projected. .............................................. 22
Table 6.2: Per Capita Water Use and Non-Revenue Water as Percent of Water Production. ............................. 23
Table 6.3: Systemwide Water Demand Projection (Change from Baseline Demand) (AF/yr). ............................ 24
Table 8.1: Implementation Schedule for Proposed Water Efficiency Programs. .................................................. 29
List of Appendices
Appendix A – Water Efficiency Programs Considered
Appendix B – Public Questionnaire Results Summary
Appendix C – WEP Engagement Summary
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List of Acronyms
AF acre-foot/feet, equivalent to 325,851 gallons per AF
AF/yr acre-feet per year
AMI advanced metering infrastructure
AWC average winter consumption
BVCP Boulder Valley Comprehensive Plan
C-BT Colorado-Big Thompson
CII commercial/industrial/institutional
C.R.S. Colorado Revised Statute
CWCB Colorado Water Conservation Board
EPA U.S. Environmental Protection Agency
FLOWS Foundations for Leaders Organizing for Water and Sustainability
FTE full-time equivalent
gpcd gallons per capita per day
gped gallons per employee per day
IWR irrigation water requirement
MFR multi-family residential
NOAA National Oceanographic and Atmospheric Administration
PACE Partners for a Clean Environment
SFR single-family residential
UCAR University Corporation for Atmospheric Research
WCP Boulder’s Water Conservation Program
WEP Water Efficiency Plan
WRAB Boulder’s Water Resources Advisory Board
WRRF Water Resource Recovery Facility
WTP water treatment plant
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List of Terms
Water production – Equal to the sum of Boulder’s water treatment plant production meters. Represents the
total treated water entering the distribution system, or the total of billed water use and non-revenue water,
which are each defined below. This term can be used interchangeably with “systemwide water use”.
Billed water use – Equal to the sum of all metered and billed water.1 Represents treated water that has been
measured at the end use meters (customer meters). Per capita water use rates and indoor/outdoor water use
presented in this WEP for specific customer sectors are based on billed water use in those sectors.
Non-revenue water – Calculated as the difference between water production and billed water use. Non-revenue
water is also the sum of real and apparent loss and represents system water loss, or water produced but not
billed.
Water demand projection – Estimated future water use associated with end uses measured at the end use
meters.
Systemwide water demand projection – Estimated future water production, inclusive of both projected water
demands and projected non-revenue water.
1 Boulder’s municipal tap accounts do not pay for their water supplies. However, those accounts are included in the water billing
system and are referred to as billed water use in the context of this WEP. At the time of this report, Boulder staff are not aware of any
unmetered taps that are billed or metered taps that are not included in its billing system.
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Executive Summary
This 2023 Water Efficiency Plan (WEP) builds upon the City of Boulder’s (City or Boulder) current Water
Conservation Program (WCP) and replaces Boulder’s most recent WEP published in 2016. Development of this
WEP was led by staff from Boulder’s Utilities Department (Utilities) with the goal of evaluating Boulder’s progress
and guiding the WCP in a way that supports the City’s water conservation goals and programs, water resources
management strategy, community values, and municipal and industrial conservation and efficiency goals
identified in the 2023 Colorado Water Plan.2
Background
In 2022, Utilities provided water, stormwater, flood management, and wastewater services to a residential
population of approximately 119,425 full-time residents and an employee (daytime) population of
approximately 111,199 persons. Boulder’s service area includes approximately 26 square miles of lands within
Boulder’s incorporated boundaries (Planning Area I) and Planning Area II as designated by the 2015 Boulder
Valley Comprehensive Plan (BVCP). Approximately two-thirds of Boulder’s annual treated water supply originates
from the Boulder Creek basin and the remainder comes from Boulder’s ownership of water diverted by the
Northern Colorado Water Conservancy District in the Colorado-Big Thompson (C-BT) and Windy Gap Projects at
the headwaters of the Colorado River basin. The WEP focuses on Boulder’s treated water production and use.
Historical Water Production, Billed Water Use, and Non-Revenue Water
Boulder’s water production and billed water use records were analyzed to evaluate trends. The 2016 – 2019
period was selected as a baseline period for the WEP because it occurred after the 2012 – 2015 evaluation
period used for the 2016 WEP (2016 WEP baseline) and prior to the Global COVID-19 pandemic. In the 2016 –
2019 period, Boulder’s per capita water production averaged 133 gallons per capita per day (gpcd), a reduction
of 6% as compared to the average annual water production of 142 gpcd from the 2016 WEP baseline. In 2016
– 2019, approximately 58% of Boulder’s water production was used by single-family residential (SFR) and multi-
family residential (MFR) customers, 28% was used by commercial/industrial/institutional (CII) customers, and
4% was used by municipal customers. Boulder’s non-revenue water (calculated as water production minus billed
water use) averaged 10% of water production in the 2016 –2019 period.
Boulder’s Water Conservation Program (WCP)
Boulder’s WCP includes management and monitoring activities that Utilities staff perform internally as well as
outreach/education programs that Boulder coordinates with partner organizations such as Resource Central,
Partners for a Clean Environment (PACE), and Eco Cycle. Boulder’s highest annual water production (by volume)
occurred in 2000 and 2001. Since then, Boulder has experienced a drop in per capita water production from
191 gpcd in 2001 to an average of 133 gpcd for the 2016 – 2019 period. This reduction was attributed to
several factors, including increased customer awareness, natural transition to lower water-use
fixtures/appliances (“passive savings”), Boulder’s water conservation programs, and residential densification.3
Since 2009, the cumulative total savings from the water efficiency incentive and assistance programs that
Boulder has offered to its customers primarily through Resource Central and PACE was estimated to be 150
acre-feet per year of reduced customer water use.
Boulder WCP Goals
Boulder’s WCP aims to keep Boulder’s per capita water uses at or below 2016 – 2019 levels, with per capita
water uses expected to drop further due to passive savings. Additionally, Boulder’s WCP aims to reduce
2 https://cwcb.colorado.gov/colorado-water-plan
3 Residen�al densifica�on refers to the transi�on from single family residences with large yards to a greater propor�on of
mul�family residen�al op�ons with, typically, smaller irrigated areas per resident, resul�ng in less outdoor water use per
resident.
vii
Boulder’s non-revenue water percentage from around 10% of annual water production to 6% of annual water
production by 2040. In addition to these targets, the WCP will also consider the multifaceted issues surrounding
water conservation and urban landscaping, racial equity, ongoing engagement with community and
stakeholders, coordination with other sustainability initiatives, and maintaining an adaptive-resilient WCP that
responds to changing conditions.
Systemwide Water Demand Projection
Boulder’s systemwide water demand projection was updated based on baseline water use, proposed water
efficiency targets, and population and employment projections. Achievement of the target per capita water use
rates and non-revenue water percentage shown in Table 6.2 of this report would result in a 3.8% reduction in
annual water production by 2030 and a 9.0% reduction in annual water production by 2040, as compared to
projected water production if no water efficiency improvements are made.
Selection of Water Efficiency Programs
Boulder intends to continue operating its existing suite of water efficiency programs. Additionally, based on the
engagement and planning activities conducted during development of the WEP, Boulder selected twelve new or
enhanced water efficiency programs to evaluate further. Boulder’s implementation of these programs will
depend upon the availability of funding and staffing. When possible and appropriate, Boulder may pursue
funding opportunities (e.g. Colorado Water Plan grants) to support program implementation and operation.
The following new or enhanced water efficiency programs have been selected for further evaluation and
potential implementation under the WEP:
• Integrate water conservation into other planning efforts
• Investigate non-revenue water and strengthen water loss program
• Evaluate customer water budgets
• Perform feasibility study for Advanced Metering Infrastructure (AMI)
• Assist customers with fixture/appliance upgrades
• Improve water efficiency of municipal irrigation
• Evaluate municipal code for water efficiency improvements
• Enhance water efficiency communication
• Expand demonstration garden program
• Set up landscaper water efficiency training program
• Enhance customer support
• Build water conservation partnerships with existing community groups
Implementation, Monitoring, and WEP Approval
Utilities staff are primarily responsible for implementing and monitoring progress under this WEP. Reporting of
progress will be made to Boulder’s Water Resources Advisory Board (WRAB). This WEP was shared for Public
Review from September 1, 2023 to November 20, 2023. The WEP was approved by Boulder’s City Manager on
December 11, 2023 and by the CWCB on January 23, 2024. Update of this WEP is anticipated to begin in 2030.
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1. Introduction
This Water Efficiency Plan (WEP) builds upon the City of Boulder’s (City or Boulder) current Water Conservation
Program (WCP) and replaces Boulder’s most recent WEP published in 2016. Boulder’s WCP was founded in
1992, prior to Boulder’s first formal water conservation plan. Following Colorado’s passing of the Water
Conservation Act in 2004,4 water providers serving 2,000 acre-feet (AF) of water or more annually are required
to have a State approved WEP containing certain required minimum plan elements. Boulder delivered an annual
average of 15,736 AF treated water in the 2016 – 2019 period. This WEP is Boulder’s third such document
since this mandate began. Development of the WEP was led by staff from Utilities Department (Utilities) with
the goal of evaluating Boulder’s progress and guiding the WCP in a way that is compatible with the City’s adopted
water conservation goal and programs, water resources management strategy, community values, and
municipal and industrial conservation and efficiency goals identified in the 2023 Colorado Water Plan.
Boulder has historically been a leader in water efficiency as an early implementer of universal customer
metering in 1964, an increasing tiered water rate structure in 1989, and customer water budget billing in 2007.
During the 2023 planning effort, feedback received through public outreach efforts suggested that Boulder
community members and city staff recognize the importance of efficient water use and value resource
stewardship. Boulder remains at the forefront of evaluating and planning for the potential future impacts of
climate change to municipal water supplies and demands and values the role that water efficiency
improvements can play in its stewardship of resources in the Boulder Creek and Colorado River basins.
1.1. Background
This WEP was developed in accordance with the Water Conservation Act of 2004 and meets the provisions of
Colorado Revised Statute (C.R.S.) section 37-60-126. The WEP was prepared with reference to the Colorado
Water Conservation Board’s (CWCB) Municipal Water Efficiency Plan Guidance Document (July 2012), as well
as its January 2019 Addendum related to land use planning.
As part of this WEP, Utilities staff led a planning and engagement effort, which included the following elements:
• Feedback from Boulder community members, employees, and visitors via 595 responses received to the
WEP Questionnaire shared for public input from April 2 to May 1, 2023 on Boulder’s Be Heard Boulder
online engagement platform.
• Input from community organizations and stakeholder groups, including the University of Colorado program
Foundations for Leaders Organizing for Water and Sustainability (FLOWS), Boulder Housing Partners,
Boulder’s Water Resources Advisory Board, Western Resources Advocates, Boulder Housing and Human
Services, Boulder Valley School District, University Corporation for Atmospheric Research (UCAR), Corden
Pharma, Mapleton Mobile Home Park, Boulder Community Health, a Boulder HOA representative, and a
representative from a local landscaping company.
4 Colorado House Bill 04-1365
2
• Input from the following City of Boulder departments or partners gathered during a preparatory meeting
and discussion workshop:
▪ Utilities Maintenance ▪ Parks and Recreation
▪ Utilities Water Resources ▪ Transportation and Mobility
▪ Utilities Engineering ▪ Climate Initiatives
▪ Utility Billing ▪ City Attorney’s Office
▪ Planning and Development Services ▪ Partners for a Clean Environment (PACE)
▪ Forestry ▪ Resource Central
▪ Information Services
1.2. Purpose of the WEP
The purpose of the WEP is to provide guidance for implementing Boulder’s WCP. This includes evaluating
Boulder’s recent treated water use trends, updating its treated water use projections, and identifying additional
water efficiency programs that will address water conservation goals that are both achievable and desired by
the community. The WEP and related performance of the WCP will help inform Boulder’s water demand
projections used in future planning efforts, including any future Utilities capital improvement planning, and
sustainable rates and revenue projections.
In the 2016 – 2019 period, Boulder’s per capita water production
averaged 133 gallons per capita per day (gpcd). This is lower than the
State-wide 2050 target municipal water production rate of 143 gpcd
as presented in the 2023 Colorado Water Plan’s “Adaptive
Innovation”5 planning scenario in which water efficiency
improvements help reduce future water shortages. The Adaptive
Innovation planning scenario also incorporates the greatest outdoor
demand impacts from future climate change and high population
growth, resulting in water shortages under this scenario.6 The
Colorado Water Plan describes the South Platte River basin challenges
as follows: “Improving municipal and industrial water use efficiency
will remain a key element of water resources management, but
significant future gains will require continued, concerted efforts.” The
Colorado Water Plan highlights actions that municipalities like Boulder
can take to support the plan, which include implementing
conservation-oriented rate structures, offering water-wise outreach
and education, enhancing municipal water efficiency reporting and
data integration, enhancing water loss tracking, integrating water
supply planning and land use planning, and identifying turf
replacement options. Boulder’s WEP aims to direct Boulder’s
continued implementation of these actions.
5 The “Adaptive Innovation” planning scenario reflects impacts to water use from drivers that demonstrate the potential benefits of
increased water conservation measures paired with high population growth and the highest impacts planned for climate change. This
planning scenario shows future impacts from advanced conservation being offset with a hotter and drier climate, but still reflects a
decrease in State-wide per capita water production rates from 164 gpcd to 143 gpcd.
6 Increases in outdoor demands as a result of climate change are not incorporated into the demand projections under this plan, as
further described in Section 6.3.
The programs proposed in
this WEP are designed to
make Boulder’s water supply
system more resilient to
stressors that may affect
reliability and to bolster
Boulder’s stewardship in the
face of Colorado’s significant
water challenges. Programs
have been selected to
provide water conservation
opportunities to the broader
community as well as to
provide targeted support to
specific customer groups.
3
2. Profile of Existing Water Supply System
In 2022, Boulder provided water, stormwater, flood management, and wastewater services to a full-time
residential population of approximately 119,425 persons and an employee (daytime) population of
approximately 111,199 persons. Boulder’s service area includes approximately 26 square miles of lands within
Boulder’s incorporated boundaries (Planning Area I) and Planning Area II as designated by the 2015 Boulder
Valley Comprehensive Plan (BVCP).
Approximately two-thirds of Boulder’s annual treated water supply originates from the Boulder Creek basin and
the remainder comes from Boulder’s ownership of contract rights in the Colorado-Big Thompson (C-BT) and
Windy Gap Projects at the headwaters of the Colorado River basin (Figure 2.1). Boulder’s water is treated at
Boulder’s Betasso and Boulder Reservoir water treatment plants (WTPs) and is conveyed to customers through
over 450 miles of water distribution mains and pipes. Wastewater is collected and treated at the Boulder Water
Resource Recovery Facility (WRRF) on 75th Street. A full description of Boulder’s water supply and distribution
system is provided in Boulder’s 2011 Water Utility Master Plan.
Figure 2.1: Source Area for Boulder’s Water Supply
Certain municipally owned facilities including the Flatirons Golf Course, Valmont Park, Elks Park, Martin Park,
and Tom Watson Park use untreated (raw) water supplies from the Boulder Creek basin for irrigation, thus
reducing the amount of treated water used for irrigation. Boulder also provides raw water supplies for
hydropower and instream flow. Note that the WEP only considers treated water use and was prepared to
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evaluate conservation programs affecting Boulder’s treated water system only. Customers who have private
water rights (e.g., use of a well or irrigation ditch rights for lawn or landscape watering) are encouraged to follow
the City’s water efficiency guidance but are not restricted under this plan for such uses because that water is
not provided by the city.
Boulder has considered opportunities for water reuse in the form of residential graywater reuse, CII graywater
reuse, or raw water supply projects that enable reuse of water supplies via Water Court decrees. To date, Boulder
is still investigating the legal, regulatory, and water quality considerations that would be required for a City-wide
graywater program. Boulder’s recent water rights decrees have included terms to allow reuse of those water
rights, which will enable reuse of water within Boulder’s water supply system and potentially also future water
reuse projects. Water reuse generally increases water consumption and reduces return flows that are otherwise
sent to the WRRF, treated, and then discharged to Boulder Creek for others downstream to use. Boulder’s long-
term planning efforts consider reuse opportunities as a potential future water supply.
2.1. Water Supply Reliability
The 2019 Technical Update to the Colorado Water Plan identified future water supply gaps 7 in the South Platte
River Basin, as well as potential import gaps for water from the Colorado River basin. Because approximately
one-third of Boulder’s water supply originates in the headwaters of the Colorado River basin, Boulder remains
vulnerable to supply irregularities from that basin, which may include Colorado River Compact curtailment in
the future.
Boulder’s own assessment of its water supply reliability considers criteria developed as part of Boulder’s 1988
Raw Water Master Plan that aims to balance the costs and environmental impacts of increased water system
reliability with the consequences of temporary water supply restrictions. These reliability criteria are listed below.
• For water uses deemed essential to the maintenance of public health, safety, and welfare such as indoor
domestic, commercial, and industrial uses and firefighting uses, Boulder shall make every effort to ensure
reliability of supply against droughts with recurrence intervals of up to 1,000 years.
• For that increment of water use needed to provide continued viability of outdoor lawns and gardens,
Boulder shall make every effort to ensure reliability of supply against droughts with recurrence intervals of
up to 100 years. (The phrase ‘continued viability of outdoor lawns and gardens’ has been defined as
provision, at a minimum, of the amount of water necessary to meet the basic survival needs of outdoor
landscaping in general, including trees and shrubs.)
• For that increment of water needed to fully satisfy all municipal water needs, Boulder shall make every
effort to ensure reliability of supply against droughts with recurrence intervals of up to 20 years.
Boulder uses these reliability criteria to assess the adequacy of its water supply system and to make water
supply planning decisions including water shortage declarations.
Boulder’s strategy for ensuring a reliable water supply includes managing its water demands. The City’s long-
term water supply and demand modeling shows that, with planned investments in water conservation and water
system infrastructure, Boulder’s water supply system can meet projected build-out demands in a manner that
is consistent with the City’s water supply reliability criteria under current climate conditions. However, Boulder’s
modeling based on currently available water supplies and potential future impacts due to climate change
indicates that under certain future climate scenarios, Boulder’s reliability criteria described above are not met.
Boulder also recognizes the potential for future supply gaps from supply disruptions including those that may
be caused by Colorado River basin shortages, wildland fires, or infrastructure outages (both planned for
7 Volume 1 of the Technical Update defines gaps as being calculated as the “difference between the amount of water available to
meet agricultural and municipal and industrial (M&I) diversion demands and the full diversion demand,” reflecting the amount by
which demands could be shorted because of inadequate supplies.
5
operation and maintenance, or failures). Given these factors and the associated need to strengthen the City’s
water supply reliability, Boulder plans to advance its water efficiency performance and target water acquisition
and development of new water supplies, such as establishing downstream storage facilities with a focus on
increasing Boulder’s reusable water supplies and improving its ability to reuse its existing water supplies.
2.2. Supply-Side Limitations and Future Needs
Boulder is located in the South Platte River basin, which is an area with expected future water supply shortages.8
Boulder’s long-term planning projections suggest the potential for future water supply shortages within its
system under certain future climate conditions. For these reasons, Boulder values the role that water efficiency
can play in improving the reliability of its water supply system and stewarding Colorado’s water supplies.
While Boulder’s water service area is largely built-out, pockets of new development are occurring, and
densification development is ongoing. Additionally, Boulder’s water distribution infrastructure is aging. The City
has committed future resources to repair and replace aging infrastructure as well as to continuously prioritize
and target water system improvements, including development of additional water supplies.
8 South Platte River Basin Implementation Plan, Volume 1, January 2022, page 47
(https://dnrweblink.state.co.us/cwcbsearch/0/edoc/216719/South_Platte-Metro_BIP_Volume1_2022.pdf)
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3. Historical Treated Water Use
To evaluate current water use trends, monthly water production and billed water use data was evaluated for the
baseline (2016 – 2019) period of record. This reflects the historical period directly following what was used in
support of the 2016 WEP and directly before impacts of the Global COVID-19 Pandemic began. Trends in
Boulder’s water production and billed water use for the baseline period of record and prior periods of record are
described in more detail in the following sections.
3.1. Background and Data Sources
Several data sources were used to evaluate Boulder’s historical water production and billed water use as
described below.
• Water production records (monthly and daily) equal to the sum of Boulder’s water treatment plant (WTP)
production meters were used and represent the total treated water entering the distribution system.
• Billed water use was evaluated using monthly utility billing records. Boulder identifies the following
customer sectors:
• Single-family residential (SFR),
• Multi-family residential (MFR),
• Commercial/industrial/institutional (CII),
• Municipal (use by City departments), and
• Irrigation-only accounts. Note that only Section 3.7 of this WEP evaluates irrigation-only accounts
independently. Otherwise, billed water use from irrigation-only accounts has been distributed
across the other customer sectors listed above based on the identity of each account’s owner.
• Non-revenue water was calculated as the difference between monthly water production and billed water
use.
• Three historical periods were evaluated in this WEP:
• 1971 – 2022 illustrates long-term trends in Boulder’s water use, which are useful for
understanding the historical effects of Boulder’s growth and development, the drought of 2002 –
2006, and Boulder’s historical water conservation efforts.
• 2000 – 2022 illustrates more recent trends in Boulder’s water use. This period also includes the
severe drought year of 2002 and reflects impacts to water use from the mandatory water use
restrictions imposed by Boulder.
• 2016 – 2019 represents Boulder’s current baseline water use. This baseline study period begins
the year after the 2016 WEP baseline period and reflects the cumulative effects of Boulder’s WCP
to date. This period precedes the Global COVID-19 Pandemic, during which CII water use was
potentially depressed by reduced commercial activities and residential water use potentially
inflated due to a greater reliance on home spaces for work and daily activities (these effects were
observed in Boulder’s 2020 and 2021 water use data). Boulder will continue to track and evaluate
water use trends and evaluate whether the water use changes observed during the COVID-19
pandemic are sustained. Boulder will incorporate revised water use numbers into its next WEP.
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3.2. Water Production
Water production, which is water measured at the meters of Boulder’s two WTPs, was evaluated on a total
annual (acre-feet) and per capita basis based on full-time residential population. Water production is commonly
evaluated on a per capita basis to assess water use trends over time.
Figure 3.1 depicts Boulder’s total and per capita water production in the 1971 – 2022 period. A notable feature
of this figure is the downward trend in per capita water production since 2002. Some events during this period
with the potential to impact water production are labeled in Figure 3.1. Boulder has experienced a drop in per
capita water production from 191 gpcd in 2001 to an average of 133 gpcd for the 2016 – 2019 period. This
reduction was attributed to several factors, including:
• An increased awareness of water use and water conservation by Boulder customers after water use
restrictions were imposed in response to drought conditions beginning in 2002.
• The natural replacement of high water-use fixtures, appliances, and devices with more advanced and
lower water-use models.
• Customer participation in Boulder’s water conservation programs.
• Densification of residential properties to more multi-family units.
Figure 3.1: Annual and Per Capita Water Production, 1971 – 2022.
8
Much of the annual variability in Boulder’s water production was due to annual variations in weather conditions,
which tend to influence customer irrigation practices. Section 3.5 describes Boulder’s outdoor water use trends.
Per capita water production for the 2016 – 2019 baseline period averaged 133 gpcd, as compared to the
average rate of 142 gpcd from the 2016 WEP baseline. Section 3.6 describes per capita water use by customer
sector.
3.3. Peak Day Water Production
The maximum combined daily water production from Boulder’s two WTPs each year is referred to as Boulder’s
peak day water production. Boulder’s peak day water production for 1971 – 2022 is shown in Figure 3.2.
Boulder’s highest historical peak day water production occurred on July 7, 1989 (50.5 MGD), and peak day
production has generally declined since that time, with a recent plateau between 30 and 32.5 MGD in the 2018
– 2022 period. Boulder’s current total combined treated water production capacity is 56 MGD, with a long-term
capacity goal of 60 MGD (three treatment trains of 20 MGD each). Long-range planning for infrastructure
systems projects a future daily water production demand at full BVCP land use of 40 – 47 MGD, depending on
climate change and potential land use changes.
Figure 3.2: Boulder's Peak Day Production, 1971 – 2022.
3.4. Non-Revenue Water
Non-revenue water is defined as the difference between monthly water production and billed water use (typically
water measured at customer meters). Boulder’s non-revenue water could consist of real losses (leakage) from
Boulder’s distribution system, apparent losses, which could include over-measurement of water at the
9
production meters or under-measurement of water at customer meters, or end uses which are unbilled (such
as unmetered truck fills, hydrant flushes, and distribution main flushes).
Figure 3.3 displays Boulder’s annual water production in the 1971 – 2022 period, subdivided as billed water
use and non-revenue water, the latter also shown as a percentage of water production. During the baseline
period, non-revenue water averaged 10% of water production.
Figure 3.3: Boulder’s Annual Billed Water Use and Non-Revenue Water, 1971 – 2022.
3.5. Indoor and Outdoor Water Use
An average winter consumption (AWC) methodology was applied to calculate indoor and outdoor water uses for
each customer sector using billed water use data. For December through February, all billed water use was
assumed to be indoor water use; for March through November, indoor water use was calculated to be the
minimum of each month's billed water use or the average monthly billed water use for the previous December
through February period. Outdoor water use was calculated as the difference between total monthly billed water
use and calculated indoor water use, so the sum of indoor water use and outdoor water use is the total billed
water use.
Figure 3.4 shows Boulder’s annual indoor water use and outdoor water use. During the baseline period, indoor
water use averaged 57% of annual billed water use while outdoor water use averaged 43% of annual billed
water use.
10
Figure 3.4: Annual Indoor and Outdoor Water Use, 2000 – 2022.
Figure 3.5 shows Boulder’s outdoor water use in the 2000 – 2022 period. The dark orange line indicates the
relative annual irrigation water requirement (IWR) as a percentage of the 1950 – 2022 average IWR. IWR is the
amount of water needed to supply the net evapotranspiration of a given type of plant after considering
precipitation. Historical monthly temperature and precipitation data from the Boulder National Oceanic and
Atmospheric Administration (NOAA) weather station were used to calculate the annual IWR for Kentucky
Bluegrass, a representative urban turf grass, in the Boulder service area. 9IWR is greater in years with relatively
warm and dry irrigation seasons, and less in relatively cool and wet years. Therefore, higher percentages indicate
warmer and drier years and lower percentages indicate cooler and wetter years.
In Figure 3.5, Boulder’s outdoor water use (yellow bars) was normalized (divided) by relative IWR percentages,
resulting in the striped, orange bars showing normalized outdoor water use, which represents the expected
outdoor water use in a year with average temperature and average precipitation. Outdoor water use was
normalized to reduce the annual variability from weather influences on outdoor water use. As such, normalized
outdoor water use generally varies less from year to year than non-normalized outdoor use, and it may better
reflect trends in outdoor water efficiency. Per capita outdoor water use and outdoor water demand projections
presented in this WEP have been normalized by IWR.
9 Kentucky Bluegrass IWR was calculated using the modified Blaney-Criddle method and calibrated monthly crop growth stage
coefficients published by Pochop et al (1984), adjusted to account for elevation. Effective precipitation, assumed to be 70% of monthly
precipitation, was subtracted from ET to obtain IWR.
11
Figure 3.5: Outdoor Water Use, Actual and Normalized, 2000 – 2022.
3.6. Billed Water Use by Customer Sector
Figure 3.6 shows the average annual billed water use by customer sector for the baseline period. SFR was the
largest customer sector with an average annual billed water use of 6,433 acre-feet, comprising 40% of total
billed water use. CII was the second largest customer sector with an average annual billed water use of 4,896
acre-feet, comprising 31% of total billed water use, followed by MFR and municipal customer sectors,
respectively. Overall, all residential use (SFR plus MFR) represents approximately 65% of billed water use.
12
Figure 3.6: Average Annual Billed Water Use by Customer Sector, 2016 – 2019.
As shown in Figure 3.7, annual billed water use in each customer sector has declined since 2000, although
relative proportions of billed water use among the customer sectors have remained relatively constant.
Figure 3.7: Billed Water Use by Customer Sector, 2000 – 2022.
13
Customer sector-specific per capita water use was designated as indoor or outdoor based on the AWC
methodology described above, with outdoor uses by customer sector also being normalized based on calculated
IWR. The indoor and outdoor per capita water use for each customer sector 10 was calculated by dividing the
billed water use for that sector by the estimated population most representative of that customer sector water
use. Customer sector populations were estimated as described below.
• SFR: Boulder’s full-time residential population occupying single-family homes was estimated by
subtracting from the service area residential population the group quarter population (e.g. residents of CU
Boulder dormitories) and multiplying the difference by the annual percentage of households estimated to
be single-family (historically, 45%, but estimated as 40% in 2022). SFR per capita uses are reported as
gpcd, with the denominator representing only the SFR population.
• MFR: Boulder’s full-time residential population occupying multi-family homes was estimated as the
difference between service area residential population and the SFR population. MFR per capita uses are
reported as gpcd, with the denominator representing only the MFR population.
• All residential: Total full-time residential population within Boulder’s service area. All residential per capita
uses are reported as gpcd, with the denominator representing Boulder’s total full-time residential
population.
• CII: Employment population within Boulder’s service area. CII per capita uses are reported as gallons per
employee per day (gped).
• Municipal: Total full-time residential population within Boulder’s service area. Municipal per capita uses
are reported as gpcd, with the denominator representing Boulder’s total full-time residential population.
Per capita uses for individual customer sectors are not directly relatable to the per capita water production
presented in Section 3.2 because of the following: 1) different population denominators are used for individual
customer sectors; 2) customer sector per capita uses are based upon customer billing records and exclude non-
revenue water; and 3) customer sector-specific outdoor water use has been normalized by IWR (Section 3.5)
while per capita water production has not.
Figure 3.8 displays customer sector-specific indoor and outdoor per capita water use trends over time. In this
figure, residential water use was presented separately for MFR and SFR.
10 SFR and MFR per capita water uses are presented to depict trends over time but may not be generally accurate due to a
discrepancy between how Boulder’s Utility Billing categorizes MFR taps compared to how Planning and Development Services
characterizes residences. This discrepancy has typically caused MFR per capita rates to be underestimated and SFR rates to be over-
estimated, an issue that was described in more detail in the 2016 WEP.
14
Figure 3.8: Indoor and Normalized Outdoor Per Capita Water Use, By Customer Sector, 2000 – 2022.
Notes:
▪ Non-revenue water is excluded.
▪ Population denominators used to calculate per-capita uses vary based on customer sector.
▪ Outdoor water use rates were normalized by irrigation water requirement (IWR).
0
10
20
30
40
50
60
70
80
90
Per Capita Use (gpcd or gped)Indoor Water Use
CII MFR SFR Municipal
0
10
20
30
40
50
60
70
80
90
Per Capita Use (gpcd or gped)Outdoor Water Use (Normalized)
15
3.7. Customer Water Budget Blocks
Boulder has implemented water budget-based customer water billing since 2007. The classification of
customers by water use characteristics incentivizes water conservation with tiered rates for water usage and
allows Boulder to identify that some customers may be using water inefficiently. Boulder’s customer water
budget blocks are:
• Block 1: Customer water use is 0-60% of monthly water budget. The customer is billed the lowest water
rate for that water use.
• Block 2: Customer water use is 60-100% of monthly water budget. The customer is billed for this water
use at a slightly higher rate than for its Block 1 water use.
• Block 3: Customer water use is 100-150% of monthly water budget. Water use falling into Block 3 is
considered to be excessive water use and is billed at a higher rate than Block 1 or Block 2 water use.
• Block 4: Customer water use is 150-200% of monthly water budget. Water use falling into Block 4 is
considered to be very excessive water use and is billed at a higher rate than Block 1, Block 2, or Block 3
water use.
• Block 5: Customer water use is above 200% of monthly water budget. Water use falling into Block 5 is
considered to be extremely excessive water use and is billed at a higher rate than Block 1, Block 2, Block
3, or Block 4 water use.
Figure 3.9 displays the percentage of billed water customers that fell within each water budget block in 2022,
separated both by month and by sector. As can be seen in the figure, the water use of over 80% of both SFR
and MFR customers fell within either Block 1 or Block 2 levels in every month of 2022. Excessive water use
(Block 3, Block 4, or Block 5 levels) is most likely to occur in the summer months, likely due to outdoor water
use. More customers in the CII, municipal, and irrigation-only categories have water use exceeding
recommended levels. While Boulder is aware that some of these exceedances may be due to underestimation
of appropriate water budget levels and Boulder plans to re-evaluate some aspects of its customer water budget
structure. Nevertheless, this information provides Boulder with a useful indication of which types of customers
might be having difficulty achieving their water budgets at which times of the year.
16
Figure 3.9: Number of Customers by Billing Block, 2022.
# of acc
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Single-Family Residential
Block 1 Block 2 Block 3 Block 4 Block 5
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Multi-Family Residential
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
CII
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Municipal
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Irrigation-Only
17
4. Current WCP
4.1. WCP Description
All of Boulder’s current water conservation programs are managed through Boulder’s WCP, which was
established in 1992 and is managed by staff in Utilities. A comprehensive list of Boulder’s current water
conservation programs is shown in Table 4.1. The programs are subdivided into four groups: Foundational,
which includes metering, billing, and water loss programs; Technical Assistance and Incentives; Rules and
Ordinances; and Education and Outreach. Programs that Boulder provides in coordination with partner
organizations are highlighted in Figure 4.1.
Boulder intends to continue existing programs into the 2024 – 2030 implementation period of this WEP.
However, both existing and new programs proposed in this WEP will be evaluated on an annual basis for efficacy
and program participation to determine if Boulder will continue with or modify the program in the following year.
Table 4.1: Comprehensive List of Boulder’s Current Water Conservation Programs Active in 2022.
Category Program
Foundational
Meter of all water taps
Track monthly meter reads and water billing
Track water use by customer type
Maintain customer water budgets
Track system loss with annual AWWA M36 Water Loss Audits
Maintain and repair distribution system
Plan for water infrastructure improvements and implement Boulder’s existing
Drought Plan, Water Utilities Master Plan, and Source Water Master Plan.
Maintain membership with EPA WaterSense
Technical
Assistance and
Incentives
Provide matching funding for City projects that focus on water savings ($50,000
Annual Fund).
Work with PACE to offer commercial/institutional water customers commercial
water use audits, free faucet aerators and pre-rinse spray valves, and rebates for
commercial dishwashers and ice machines.
Work with Resource Central to offer Garden-In-A-Box Program, Lawn Replacement
Program, and Slow-the-Flow outdoor irrigation audits.
Use of raw water for irrigation – Parks and Recreation
Rules and
Ordinances
Boulder Municipal Code 11-1-25.5 – Duty to Avoid Waste of Water and to Maintain
Service Lines and Fixtures
Turf restrictions in Boulder code – minimum width, maximum percent of lot,
maximum slope allowed for turf
Perform as-built inspections of landscapes associated with a building permit
Education and
Outreach
Work with Resource Central to offer water customers Waterwise Yard Seminars.
Communicate water efficiency topics to customers via social media and bill
stuffers
Attend water fairs and support K-12 classroom education on water efficiency,
primarily supported by Boulder’s partnership with Eco-Cycle.
Maintain Boulder’s Water Conservation Website
Maintain xeriscape demonstration gardens
18
Figure 4.1: Boulder’s Water Conservation Partners and Customer Program Offerings Active in 2022.
4.2. Water Savings Attributed to Boulder’s WCP
As shown in Figure 3.1, Boulder’s per capita water production has decreased significantly since the early
2000’s, from 191 gpcd in 2001 to an average of 133 gpcd for the 2016 – 2019 baseline period. While the
greatest decrease occurred in the early 2000’s, the downward trend has continued following the 2016 WEP.
Water use restrictions imposed in response to drought conditions beginning in 2002 and subsequent ongoing
programs associated with Boulder’s WCP initiated this downward trend, while drought awareness efforts across
the Front Range and the natural replacement of high water-use fixtures, appliances, and devices with more
advanced and lower water-use models likely helped sustain the trend.
Since 2009, Boulder has worked with Resource Central and PACE to offer the programs shown in Figure 4.1
and more, including water fixture rebates, Slow the Flow water audits, and various landscaping programs.
Through their implementation, these programs have resulted in a total annual savings of 150 acre-feet.
Boulder’s per capita billed water use rates for the previous two WEP evaluation periods are shown in Table 4.2.
Indoor water use rates had a lower or equivalent average for the more recent 2016 – 2019 baseline period as
compared to the 2012 – 2015 period used as the 2016 WEP baseline except for municipal indoor water use.
Outdoor water use rates were higher in the more recent (2016 – 2019) period for SFR and CII sectors, but lower
in the remaining customer sectors.
19
Table 4.2: Boulder’s Average Annual Per Capita Water Use by Customer Sector (gpcd).
Customer
Sector
Water Use
Type
2016 WEP
2012-2015
Average
Target from
2016 WEP
Baseline
2016-2019
Average
SFR
Indoor 61 - 56
Outdoor 62 - 65
Total 123 126 121
MFR
Indoor 38 - 35
Outdoor 19 - 14
Total 58 57 49
All
Residential
(SFR & MFR)
Indoor 48 - 43
Outdoor 37 - 35
Total 85 - 78
CII
Indoor 30 - 27
Outdoor 14 - 15
Total 44 44 42
Municipal
Indoor 0.7 - 0.8
Outdoor 5.0 - 4.5
Total 5.7 6.2 5.3
Notes:
▪ Non-revenue water was excluded.
▪ Population denominators used to calculate per capita uses vary based
on customer sector, see description in Section 3.6. For the “All
Residential” rate, total service area residential population was used.
▪ Outdoor water use rates were normalized by irrigation water requirement
(IWR).
20
5. WCP Goals
5.1. Water Efficiency Goals
Through the continued implementation of its WCP, Boulder has developed the following water efficiency goals:
1. Maintain or reduce current baseline (2016 – 2019) per capita water use across all Customer Sectors. This
will be supported by achieving anticipated “passive savings” targets (Table 6.2) realized by the natural
replacement of older low-efficiency water fixtures and appliances with newer, more water-efficient models
compliant with the EPA WaterSense standards.11
2. Reduce non-revenue water percentage from its current average around 10% of annual water production to
6% of annual water production. This goal was originally defined in Boulder’s 2000 Water Conservation
Futures Study. Boulder aims to achieve this goal by 2040.
5.2. Planning Considerations
While the primary goal of Boulder’s WCP is to guide Boulder toward its water conservation goals, Boulder staff
have identified the following parallel objectives that are beneficial to advance in conjunction with the WCP.
1. Water Conservation and Urban Landscaping: Urban landscaping is an important element impacting
residents’ quality of life. Trees and vegetation can lower air temperature, an important function during
high temperature periods, which are expected to be more frequent in the future. Utilities recognizes that
many decisions related to urban landscaping require coordination from multiple City departments and
stakeholders, and Utilities will coordinate with these groups on topics of water efficiency, climate
readiness, and land use planning.
In balancing water use reduction with maintenance of functional landscapes that serve the community,
some water utilities in the Western United States have defined the term “non-functional bluegrass” to
refer to bluegrass turf areas which serve no functional purpose such as recreation or cooling. Areas that
serve solely aesthetic purposes are not typically considered functional by these definitions. Boulder has
not yet defined non-functional turf within its service area, but any such definition would require
coordination between multiple departments and stakeholders.
2. Racial Equity: In February 2021, Boulder’s City Council adopted a Racial Equity Plan which provides
guidance in advancing racial equity within the organization and the broader community. The City defines
racial equity as the elimination of racial disproportionalities so that race can no longer be used to predict
success, and the ability of all community members, regardless of race, to experience a high quality of life
and access to opportunity. Staff from Utilities will continue to evaluate and adapt the WCP using the City’s
Racial Equity Instrument.
3. Ongoing Engagement with Community and Stakeholders: During the development of the WEP, Boulder
prioritized an extensive engagement effort that included a public questionnaire and meetings with
community groups and with a variety of water users. Boulder incorporated the feedback received from the
engagement process into this WEP. Boulder intends to continue engaging with community groups and
water users with the goal of enhancing the City’s outreach to underserved communities, continuing to gain
feedback on water efficiency programs, aiding information exchange among MFR and CII water users
engaged in their own water efficiency efforts, and developing educational material, programs, and projects
11 Note that even with this achievement of per capita water use targets, Boulder’s total water demand volume is
expected to increase over time as residential and employee populations increase.
21
that meet the needs of sector specific water uses (e.g., differences among SFR, MFR, and specific
categories of CII users).
4. Coordination with Other Sustainability Initiatives: The WCP is not the only effort within Boulder to increase
water efficiency. Several MFR and CII water users in Boulder have their own sustainability and water
efficiency programs, and Boulder seeks to support the work of those programs. Other City departments,
particularly Transportation and Mobility and Parks and Recreation, have programs to improve irrigation
efficiency. To the extent that Boulder’s water efficiency targets intersect with other City initiatives, water
efficiency programs will be developed in coordination with the leaders of those initiatives.
5. Adaptive-Resilient WCP: Utilities staff will monitor the effectiveness of Boulder’s WCP and respond to
emerging issues, through the process detailed in the implementation and monitoring plan presented in
Section 8.0.
22
6. Water Demand Projections
Boulder’s systemwide water demand projections were estimated through 2040 using new population and
employment demographic projections developed by Boulder’s Planning and Development Services paired with
projected per capita water demands and non-revenue water percentage targets, as further described below.
Projection milestones used in this WEP are described below.
• 2023: First year of projection, with per capita water rates defined by baseline water use (2016 – 2019).
• 2030: End of implementation period for this WEP.
• 2040: End of WEP projection period. Target water efficiency levels are assumed to be reached.
Although the WEP is a near-term planning document focusing on the 2024 – 2030 plan implementation period,
water demand projections through 2040 were considered useful to evaluate the full impacts of anticipated per
capita water efficiency improvements, which helps Boulder to inform its longer-term planning efforts including
water supply planning.12
6.1. Demographic Projections
The City of Boulder updates its official population projections every 10 years as part of every major update to
the BVCP. The most recent BVCP population projection was prepared in 2015, with a population projection of
136,100 and employment projection of 120,500 for Boulder’s Service Area. In October 2022, Boulder’s City
Council approved the East Boulder Subcommunity Plan which included 5,000 dwelling units and 3,000 jobs.
These additional numbers were used to support the preparation of this WEP. This interim update represents the
best information that Boulder currently has on future population levels and is not considered to be an official
update to the population projection. The City’s next official population projection update will be completed
during the 2025 BVCP update, which may reflect changes in planning policies or assumptions, and that
information will be used to inform future water demand planning efforts. Table 6.1 presents both current 2022
populations and the interim population projection for Boulder’s service area in 2040.
Table 6.1: Boulder’s Service Area Population, 2022 Actual and 2040 Projected.
Population Group 2022 (Actual) 2040 (Projection)
Residential Population 119,425 147,400
Employment Population 111,199 123,500
6.2. Per Capita Water Use and Non-Revenue Water Projections
As discussed in Section 3.6, Boulder’s per capita billed water uses were calculated by customer sector and
include normalization of outdoor water use based on IWR. The 2016 – 2019 period was used to represent
baseline water use for this WEP. As discussed in Section 5.1, Boulder aims to ensure, at a minimum, that per
capita water uses do not increase above the baseline levels shown in the first row of Table 6.2.
Further, as shown in the second row of Table 6.2 , Boulder anticipates that indoor water efficiency will improve
beyond the current baseline levels due to “passive savings” realized by the natural replacement of older low-
efficiency water fixtures and appliances with newer, more water-efficient models compliant with EPA
WaterSense standards. Boulder expects all residential (both SFR and MFR) per capita indoor water use to
decrease to 38.9 gpcd by 2040 (from the baseline of 43.5 gpcd) from passive savings, based upon studies of
residential end uses of water and a comparison of EPA WaterSense standards versus water use of slightly older
12 City of Boulder water supply planning horizon includes population and employment buildout through 2078. This projection is beyond
the scope of the WEP.
23
fixtures and appliances. This would represent approximately 10% passive savings in residential indoor water
use. Similarly, Boulder assumes that 10% passive savings would be realized in the municipal indoor category
over the same period. In the CII indoor category, Boulder assumes 5% passive savings due to the greater
variability of CII sector uses. No passive savings are assumed for outdoor water uses. While Boulder categorizes
these indoor water efficiency improvements as passive savings, Boulder also values the role that its water
efficiency programs can play in helping the City’s customers achieve the target per capita water uses.
In addition to the passive savings described above, Boulder aims to reduce its non-revenue water to 6% of
annual water production by 2040. This reduction can occur through distribution system maintenance and
improvements that are ongoing, as well as by the programs described in this WEP. The target of 6% for non-
revenue water was first established by Boulder in its 2000 Water Conservation Futures Study.
Table 6.2: Per Capita Water Use and Non-Revenue Water as Percent of Water Production.
Period
All
Residential
Indoor
(gpcd)
All
Residential
Outdoor
(gpcd)
CII
Indoor
(gped)
CII
Outdoor
(gped)
Municipal
Indoor
(gpcd)
Municipal
Outdoor
(gpcd)
Non-Revenue
Water
(%)
Baseline
(2016-2019
Average)
43.5 34.5 27.4 14.9 0.8 4.5 10.1%
Passive Savings
Only by 2040 38.9 34.5 26.1 14.9 0.72 4.5 10.1%
Target: Passive
Savings + Non-
Revenue Water
Reduction by 2040
38.9 34.5 26.1 14.9 0.72 4.5 6.0%
6.3. Climate Change
The City of Boulder is committed to building a more resilient community and a better future for everyone in
Boulder. As such, Boulder is looking at climate change mitigation and adaptation across city-wide initiatives to
plan collaboratively and comprehensively (e.g., Climate Initiatives, Land Use, Tree Canopy, and Water
Conservation). As part of its water supply planning efforts, Boulder incorporates and evaluates the significant
influence of climate change on its current and future water supplies and demands.13 A more arid climate future
or climate-induced temperature and precipitation extremes is expected to decrease the availability of water
supplies and potentially increase outdoor water demands in response to the hotter and drier conditions.
Reduced supply availability paired with an increase in future demands both through growth and potentially
higher per capita outdoor water demands puts Boulder at risk for not providing a sufficient or reliable water
supply to meet customer needs. While the demand projections presented in this WEP do not reflect potential
influence from climate change, it is acknowledged that reducing per capita demands through conservation
programs will help mitigate some of this potential future supply and demand gap.
To begin mitigating the effects of a changing climate on Boulder’s water supply, this WEP introduces specific
programing, including the promotion of waterwise landscaping practices, and the provision of resources to
support the efficient use of water. Furthermore, Boulder will continue to track and evaluate the impacts on water
supply and water demands of climate change which will play a pivotal role in shaping future iterations of the
WEP, strategies for water conservation goals, collaboration with city-wide climate initiatives, enhancements to
the WCP, and future water supply planning.
13 City of Boulder, Water Resources Advisory Board, August 19, 2019 Meeting, Updated Boulder Climate Change Water
Supply Assessment (Attachment C).
24
6.4. Systemwide Water Demand Projections
Boulder’s systemwide water demand is projected to increase in the future due to anticipated population and
employment growth. Table 6.3 shows Boulder’s systemwide water demand projection based on updated
baseline water use and population and employment projections. The systemwide water demand projections
reflect average-year weather conditions (as opposed to dry-year or wet-year conditions) and therefore do not
account for inter-annual variability.
Table 6.3 summarizes Boulder’s water demand projections in 2030 and in 2040. The Baseline Demand
scenario reflects current baseline per capita and per employee demands multiplied by the projected
populations. In 2030, Boulder’s systemwide water demand projection is 19,839 acre-feet per year (AF/yr) under
baseline demand conditions. Relative to this level, passive savings are anticipated to reduce Boulder’s
systemwide water demand projections by 395 AF/yr in 2030. The combination of passive savings and non-
revenue water reduction to 6% would reduce Boulder’s systemwide water demand projections by 754 AF/yr
(3.8% reduction) in 2030 relative to projected baseline. By 2040, passive savings are projected to reduce
Boulder’s systemwide water demand projections by 1,062 AF/yr and passive savings plus the target non-
revenue water reduction are projected to reduce Boulder’s systemwide water demand projections by 1,967
AF/yr (9.0% reduction). If updated climate modeling indicates that climate changes may occur within this
planning period, these systemwide water demand projections would change to reflect anticipated impacts to
water demands.
Table 6.3: Systemwide Water Demand Projection (Change from Baseline Demand) (AF/yr).
Scenario 2030 2040
Baseline Demand 19,839 (+0) 22,313 (+0)
Passive Savings 19,590 (-395) 21,235 (-1,062)
Target: Passive Savings + Non-Revenue Water
Reduction 19,361 (-754) 20,309 (-1,967)
25
7. Selection of Water Efficiency Programs
Boulder evaluated a wide range of both existing and potential new water efficiency programs, including those
recommended by the CWCB and those required for review by statute (Appendix A). Boulder also engaged a wide
variety of City staff and community members through the engagement activities summarized below.
• January – June 2023: Ongoing planning meetings linking water supply planners, land use and infrastructure
planners, municipal facilities and water billing staff, communications staff, and Boulder’s community
members
• March 17, 2023: Water Efficiency Planning Kick-Off Meeting for City staff, 20 attendees
• April 2 – May 1, 2023: Public Water Efficiency Questionnaire (Bilingual), 595 responses
• A summary of public questionnaire responses is provided in Appendix B
• April 17, 2023: Water Efficiency Planning Workshop for City staff, 24 attendees
• May 8 – May 10, 2023: City of Boulder Staff participated in the Growing Water Smart Workshop to strategize
connections among water supply planning, water efficiency, and long-range land use planning
• May 17, 2023: Meeting with FLOWS, community group leading work in water efficiency and environmental
and social justice
• June 20, 2023: Water Efficiency Workshop with selected community members representing a range of MFR
and CII entities
Boulder used input received at the events above to select water efficiency programs to pursue or continue
during the 2024 – 2030 implementation period. A summary of engagement findings and how those were
incorporated into this plan is provided in Appendix C.
7.1. Staffing and Program Implementation
Boulder’s implementation of the new programs listed in this section will depend upon the availability of funding
and staffing. Many of the new programs proposed in this WEP cannot be achieved without additional funding
and/or staffing dedication to the WCP. When possible and appropriate, Boulder will seek grant funding for
program implementation.
Boulder currently has 0.75 full-time equivalents (FTE) dedicated to staffing the WCP. The programs proposed in
this plan can be fully implemented with an additional staffing dedication of 1.0 FTE, for a total dedication of
1.75 FTE to the WCP.
The sections below describe proposed new, or enhanced, water efficiency programs that have been selected
for further evaluation and potential implementation under the WEP.
7.2. Foundational Water Efficiency Programs
Foundational water efficiency programs are under the city’s direct control and include metering, water billing,
and monitoring of water use and loss. Boulder was an early adopter of customer water metering, and the City’s
water billing structures have incentivized water efficiency since the 1960’s. Boulder also operates a robust
distribution system maintenance and replacement program, and staff monitor non-revenue water trends.
Provided adequate funding and staffing levels are obtained, Boulder will advance the foundational programs
listed below.
26
1. Integrate Water Conservation into Other Planning Efforts: Embed water conservation planning into
larger resilience, land use, climate, and energy planning. Utilities staff will continue to collaborate
with Climate Initiatives, Planning, Transportation and Mobility, Parks and Recreation, and other
departments to collectively progress City-wide policies in a manner that encourages water efficiency
and water conservation.
2. Investigate Non-Revenue Water and Strengthen Water Loss Program: Boulder will complete an internal
assessment of water use and treated water production data relied upon to prepare the annual AWWA
M36 water loss audit. Boulder will develop recommendations for improving data quality and identifying
potential water loss programs to reduce non-revenue water. Recommendations may include improved
quantification of unmetered end uses, distribution meter and customer meter testing, and/or installing
intermediate distribution meters to isolate the measured total water distribution in each pressure
zone. The selection and implementation of new water loss programs may require additional funding
and/or staffing, which will be further investigated based on the resulting recommendations.
3. Evaluate Customer Water Budgets: Evaluate customer water budgets and identify potential
opportunities to improve customer rate structures to better support the efficient use of water through
budgets and communication.
4. Perform Feasibility Study for Advanced Metering Infrastructure (AMI): Boulder will consider a feasibility
study for AMI implementation across all City water customers. Based on benefits identified, staff would
evaluate how the city could implement a Pilot Project on some customer meters including number and
selection of customers to be included in Pilot Project, external funding opportunities to support a Pilot
Project, and recommendations for implementation of a Pilot Project. Additional funding and/or staffing
will be required for implementation of this program.
7.3. Technical Improvements and Incentives
Technical improvements and incentives programs aim to increase customer water efficiency by providing better
equipment, fixtures, appliances, and/or technical support. As described previously, Boulder maintains contracts
for technical assistance and incentive programs with two local organizations specializing in water efficiency:
Resource Central and PACE. Boulder strives to provide technical assistance and incentives to customers from
all backgrounds in an equitable manner. Boulder intends to increase the technical assistance and incentives
programs it offers by 2030. Boulder will evaluate the potential new programs listed below.
5. Assist Customers With Fixture/Appliance Upgrades: Staff will evaluate a program for income-qualified
residential customers for replacing older low-efficiency fixtures and appliances with new high-
efficiency fixtures and appliances using vouchers or other mechanisms other than reimbursement (for
example, a direct install of appliances). Qualifying fixtures and appliances may include toilets,
dishwashers, rain sensors, outdoor irrigation equipment, and smart irrigation controllers. The City will
investigate opportunities to also assist qualified customers with costs associated with the removal of
old appliances and installation of new appliances. Additional funding and/or staffing will be required
for implementation of this program. Staff will investigate potential external funding opportunities to
support refinement and implementation of this program.
6. Improve Water Efficiency of Municipal Irrigation: Utilities staff will work with the Parks and Recreation
and Transportation and Mobility departments to support outdoor water efficiency within City projects.
This may include removing/replacing non-functional turf, upgrading irrigation equipment, and/or
refining irrigation practices. Additional funding and/or staffing will be required for implementation of
this program.
27
7.4. Water Efficiency Rules and Ordinances
Rules and ordinances can be cost-effective ways for municipalities to increase customer water efficiency.
Historically, Boulder has emphasized incentives-based and voluntary programs to increase customer water
efficiency. However, looking forward, and in response to community feedback, Boulder would like to evaluate
the efficacy of new regulations.
7. Evaluate Municipal Code for Water Efficiency Improvements: Boulder staff will evaluate its current
Municipal Code, rules, regulations, and ordinances to identify sections that could be modified to
better integrate and support efficient water use. Staff will work with other stakeholders and
departments to develop recommended updates for consideration. Ordinances and regulations
prepared by other local water providers may be reviewed for applicability within Boulder and can
serve as examples for consideration. Staff will generate an internal report on recommendations.
Additional funding and/or staffing will be required for full implementation of this program. Possible
programs for Boulder to evaluate include:
• Retrofit water efficient appliances on resale of properties;
• Time-of-day/day of week water requirements;
• Additional efficiency requirements for new and re-development;
• Vegetation height code that allows for native grasses;
• Viability of outdoor water savings from redevelopment/new development; and
• Viability of graywater programs.
7.5. Education and Outreach Efficiency Programs
Education and outreach programs convey water efficiency information to the community. Boulder’s
communication of water efficiency topics to customers have included bill stuffers, communication at water fairs
and via K-12 education outreach, communication via social media and Boulder’s website, customer water use
workshops, and xeriscape demonstration gardens.
Boulder will evaluate the potential new planning or communication programs listed below.
8. Enhance Water Efficiency Communication: Continue to improve outreach to the community on water
efficiency topics and water efficiency programs, including developing more educational material and
resources. Staff will evaluate messaging strategies and will maintain consistency in its messaging
materials. An annual outreach schedule will be developed to provide relevant seasonal information
and resources to customers throughout the year.
9. Expand Demonstration Garden Program: Evaluate potential improvements or additions to Boulder’s
waterwise demonstration garden program, including inter-departmental coordination on climate-ready
landscapes, native grass landscapes, low-maintenance landscapes, and developing educational
materials for customers based on Boulder’s waterwise demonstration garden program. Additional
funding and/or staffing will be required for implementation of this program.
10. Develop or Adopt Landscaper Water Efficiency Training Program: Boulder will evaluate the
implementation of a voluntary or incentivized landscaper training program. This will be done through
the lens of racial equity. A mandatory certification requirement is not recommended at this time but
may be considered in the future. Boulder will evaluate opportunities to partner with neighboring water
providers using a regional approach. Additional funding and/or staffing will be required for
implementation of this program.
28
11. Enhance Customer Support: Boulder will evaluate opportunities to support customers (homeowners
associations, CII customers, etc.) with technical assistance in applying for and managing grants that
would support projects that advance or support efficient water use. This may lead to technical and/or
financial assistance on turf removal. Boulder will improve general communication, water use data, and
customer leak notifications so that they are sent to the responsible parties that can take immediate
action. Boulder will consider hosting targeted water conservation workshops for specific groups of MFR
and CII water customers to facilitate discussion of water conservation measures, needs, and support.
Additional funding and/or staffing will be required for implementation of this program.
12. Build Water Conservation Partnerships with Existing Community Groups: Develop and implement a
process to work with and build water conservation partnerships with community groups to build racial
and economic equity by 1) identifying water conservation needs and opportunities in specific
communities and 2) supporting efforts to implement their priority water conservation outreach and
projects. This work will be informed by Boulder’s Racial Equity Instrument.
29
8. Implementation Plan and Monitoring Plan
Boulder intends to further evaluate implementation of the programs proposed in Section 6 of the WEP starting
in 2024. This section describes the plan for implementation of water efficiency programs (Section 8.1) and the
plan for monitoring individual program results and water use trends (Section 8.2).
8.1. Implementation Plan
This WEP was developed through a process of data review, community and City staff engagement, internal
planning and discussion, and review of the draft WEP by City staff, City leadership, and the public.
Boulder Utilities staff are primarily responsible for implementing this WEP. All of Boulder’s existing water
efficiency programs will be continued and twelve new or enhanced water efficiency programs (Table 8.1) will be
evaluated and considered for implementation as part of this WEP. Boulder’s implementation of the new
programs may depend upon the availability of funding and staffing, but a tentative implementation schedule is
indicated for all programs, assuming that all required funding and staffing is secured.
Table 8.1: Implementation Schedule for Proposed Water Efficiency Programs.
Implementation of the WEP is expected to achieve water savings, which in turn would reduce Boulder’s
volumetric billing-based revenue. However, Boulder is an established, financially stable water utility with
reserves that are anticipated to adequately respond to loss in revenue associated with the potential water
savings proposed in this WEP. In part due to water conservation efforts already accomplished in Boulder, the
City has increased the fixed-fee portion of the water bill (service charge) to help stabilize revenue and account
for baseline operation and maintenance costs that do not fluctuate with production. Further, some operation
and maintenance costs can be avoided with lower per capita water use, and these avoided costs could help
offset some anticipated revenue losses. Actual water use reductions realized from the WCP and associated
programs will be evaluated as part of Boulder’s next water rate study likely to be completed in the upcoming
years.
Implementation Schedule
Program
No.Program Description 20242025202620272028202920301 Integrate water conservation into other planning efforts
2 Investigate non-revenue water and strengthen water loss program
3 Evaluate customer water budgets
4 Perform feasibility study for Advanced Metering Infrastructure (AMI)
5 Assist customers with fixture/appliance upgrades
6 Improve water efficiency of municipal irrigation
7 Evaluate municipal code for water efficiency improvements
8 Enhance water efficiency communication
9 Expand demonstration garden program
10 Develop or adopt landscaper water efficiency training program
11 Enhance customer support
12 Build water conservation partnerships with existing community groups
30
8.2. Monitoring Plan
Utilities staff will be responsible for monitoring the effectiveness of the programs proposed in this WEP as well
as monitoring Boulder’s per capita water use trends.
On an annual basis, Utilities staff will perform the following monitoring efforts:
• Prepare the annual AWWA M36 Water Loss Audit and monitor changes and trends in non-revenue water
as a percentage of water production over time.
• Update Figure 3.1 and determine per capita water production for the previous calendar year.
• Add the previous calendar year’s per capita water use data to Table 4.2 to determine sector-specific and
indoor/outdoor water use trends.
• Internally compile lessons learned, reports from partner organizations (Resource Central and PACE) and
prepare a plan for staff time allocation in the upcoming year.
On a biannual basis (every other year starting in 2025), Boulder’s Utilities staff will perform the following
outreach and reporting:
• Convene at least one meeting of representatives from Boulder’s largest water users, and possibly host
sub-meetings to foster information exchange among water users of similar type. Use the meeting(s) as a
forum for feedback on water efficiency programs and highlight opportunities for coordination.
• Report to the Water Resources Advisory Board (WRAB) on Boulder’s recent WCP achievements and
upcoming programs.
31
9. Public Review and Formal Approval
9.1. Public Review Process
The WEP was shared for Public Review from September 1, 2023 to November 20, 2023 and was publicized via
Beheard Boulder Webpage. Boulder Utilities staff reviewed the 15 public comments received and incorporated
relevant feedback from the comments into the WEP draft dated December 4, 2023.
9.2. Local Adoption and State Approval Processes
On August, 16, 2023, the WEP was provided to the CWCB for review and comment. The CWCB provided positive
feedback on the WEP and recommended no significant changes. On September 18, 2023, WRAB recommended
that the Boulder City Manager approve the WEP, and City Manager did approve it on December 11, 2023. CWCB
provided its final approval for this Boulder WEP on January 23, 2024.
9.3. Periodic Review and Update
Update of Boulder’s WEP is anticipated to begin in 2030. During that update, information from the monitoring
program described in Section 8.2 and engagement efforts conducted at that time will be used to revise and
refine the focus of Boulder’s WCP.
Appendix A – Water Efficiency Programs Considered
Water Efficiency Programs Considered
During development of this WEP, Boulder Utilities staff screened the list of programs in Worksheets D - G of
the Colorado Water Conservation Board’s Municipal Water Efficiency Guidance Document (July 2012),
including those programs added in that document’s January 2019 Addendum (Land Use Planning). In
particular, Boulder staff considered the following water-saving measures and programs:
• Water-efficient fixture and appliances, including toilets, urinals, showerheads, and faucets;
• Low water use landscapes, drought-resistant vegetation, removal of phreatophytes, and efficient irrigation;
• Water-efficient industrial and commercial water-using processes;
• Water reuse systems;
• Distribution system leak identification and repair;
• Dissemination of information regarding water use efficiency measures, including by public education,
customer water use audits, and water- saving demonstrations;
• Water rate structures and billing systems designed to encourage water use efficiency in a fiscally
responsible manner (note that the Department of Local Affairs may provide a technical assistance to entities
that are local governments to implement water billing systems that show customer water usage and that
implement tiered billing systems);
• Regulatory measures designed to encourage water conservation; and
• Incentives to implement water conservation techniques, including rebates to customers to encourage the
installation of water conservation measures.
Appendix B – Public Questionnaire Results Summary
Public Questionnaire Results Summary
The Water Efficiency Plan (WEP) 2023 Update Questionnaire was shared for public review from April 2 to May
1, 2023 via the Be Heard Boulder platform. The Questionnaire was publicized via news and social media and
received 594 responses in English and 1 response in Spanish. The overall themes of the questionnaire
responses are summarized below.
•In ranking conservation actions for Boulder to promote, respondents ranked actions in the following order
(with the first listing having the highest preference by respondents):
1.Require water-wise landscaping (limit the amount of bluegrass turf) in new and redeveloped
properties,
2.Help community members reduce existing bluegrass turf (e.g. promote turf replacement programs),
3.Help community members reduce indoor water use (e.g. low-flush/high efficiency fixture rebates),
4.Create and distribute education materials on best water conservation practices (e.g. how to install a
water-wise landscape),
5.Increase engagement on individual use (1-on-1 support to review your individual water use and
identify areas where reduction would be possible).
•In reviewing photographs of various landscaping options, the majority of respondents preferred climate
adaptive/native landscapes, either purely or with some bluegrass mixed in, as opposed to full bluegrass
landscapes, on both residential and commercial properties. However, an appreciable number of
respondents thought landscaping should not be governed by local ordinance.
•Forty six percent (46%) of respondents had not participated in a Boulder water conservation program. Of
the other 54% who had participated in a program, the programs with highest participation were Garden in
a Box, a visit to one of Boulder’s xeriscape gardens, Boulder’s water conservation webpage, and the
“Understanding your water budget” infographic.
•Questionnaire responses indicated that respondents want Boulder to do a better job of publicizing water
efficiency programs that are offered, and the majority of respondents preferred email updates or an e-
newsletter or utility bill inserts as a way to receive water efficiency information from Boulder.
•New water efficiency programs that respondents expressed most interest in participating in consisted of
1) Appliance and fixture rebate program, 2) Visiting Boulder’s water conservation webpage, 3) Reviewing
educational material on water-wise landscapes, 4) Visiting one of Boulder’s xeriscape/rain demonstration
gardens, and 5) a turf replacement program.
•A majority of respondents who had a preference (60%) thought Boulder should focus its conservation
efforts on public property (city parks, libraries, municipally owned facilities) rather than on private property
(single-family, multi-family, HOAs).
•Respondents who rented their homes (as opposed to owning their homes) were more likely to express
interest in assistance to reduce their indoor water use.
•Of those who answered they would be “very willing” to adopt a water-wise landscape, the most common
barriers keeping them from replacing some or all of their grass with water-wise landscaping (listed from
most common to least common) consisted of: 1) Cost, 2) Physical labor involved with converting, 3) Lack
of design information (e.g. what plants to use), 4) Time, and 5) Knowledge/expertise.
•Seventy seven percent (77%) of respondents felt it is “extremely important” for Boulder to expand its
water conservation efforts, 16% felt it is “somewhat important” for Boulder to expand its efforts, 5% felt
“neutral” on that importance and 2% felt it is “not important” for Boulder to expand its efforts.
WEP Update Questionnaire
SURVEY RESPONSE REPORT
02 April 2023 - 01 May 2023
PROJECT NAME:
Water Efficiency Plan/Plan de Eficiencia del Agua
42
Q1 Please rank how important it is for the city to promote the following conservation actions
on public and private property. ...
5
4
3
2
1
Question options
100 200 300 400 500 600 700
Help community
members reduce
existing bluegr...
Create and distribute
education materials on
...
Help community
members reduce indoor
water us...
Require water-wise
landscaping (limit the
amo...
Increase engagement
on individual water use
(...
Other
36
45
31
51
71
29
33
54
50
22
61
3
86
114
129
40
138
6
155
153
151
84
158
10
276
214
220
386
152
109
Optional question (593 response(s), 1 skipped)
Question type: Likert Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 2 of 114
43
Q1 Please rank how important it is for the city to promote the following
conservation actions on public and private property. ...
1 : 36
2 : 33
3 : 86
4 : 155
5 : 276
25 50 75 100 125 150 175 200 225 250 275 300
Help community members reduce existing bluegrass turf (e.g., promote turf
replacement programs)
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 3 of 114
44
1 : 45
2 : 54
3 : 114
4 : 153
5 : 214
25 50 75 100 125 150 175 200 225
Create and distribute education materials on best water conservation practices (e.g.,
how to install a water-wise landscape)
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 4 of 114
45
1 : 31
2 : 50
3 : 129
4 : 151
5 : 220
25 50 75 100 125 150 175 200 225 250
Help community members reduce indoor water use (e.g., low-flush/high efficiency
fixture rebates)
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 5 of 114
46
1 : 51
2 : 22
3 : 40
4 : 84
5 : 386
50 100 150 200 250 300 350 400 450
Require water-wise landscaping (limit the amount of bluegrass turf) in new and
redeveloped properties
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 6 of 114
47
1 : 71
2 : 61
3 : 138
4 : 158
5 : 152
20 40 60 80 100 120 140 160 180
Increase engagement on individual water use (1-on-1 support to review your individual
water use and identify areas where reduction would be possible)
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 7 of 114
48
Q2 If you selected other, please explain
1 : 29
2 : 3
3 : 6
4 : 10
5 : 109
10 20 30 40 50 60 70 80 90 100 110 120
Other
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 8 of 114
49
Q3 Of the answers provided in the previous question, select the top three that you feel are
most important for Boulder to prom...
Q4 Next, are examples of private spaces. In your opinion, what should Boulder's landscape
look like in residential areas? (you...
Other (please specify)
Increase engagement on individual water use (1-on-1 support to review your individual water use and identify areas where reduction
would be possible)
Require water-wise landscaping (limit the amount of bluegrass turf) in new and redeveloped properties
Help community members reduce indoor water use (e.g., low-flush/high efficiency fixture rebates)
Create and distribute education materials on best water conservation practices (e.g., how to install a water-wise landscape)
Help community members reduce existing bluegrass turf (e.g., promote turf replacement programs)
Question options
1/2
250
500
411
242
294
448
159
75
350 (59.0%)
350 (59.0%)
3 (0.5%)
3 (0.5%)
140 (23.6%)
140 (23.6%)
76 (12.8%)
76 (12.8%)24 (4.0%)
24 (4.0%)
Other Private landscape: My private property is for my use and should not be governed by local ordinance
Private landscape: A combination of climate adaptive landscaping and traditional bluegrass
Private landscape: Traditional bluegrass Private landscape: Climate adaptive landscape
Question options
Optional question (584 response(s), 10 skipped)
Question type: Checkbox Question
Optional question (593 response(s), 1 skipped)
Question type: Radio Button Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 23 of 114
50
Q5 Next, are examples of retail/office/commercial spaces. In your opinion, what should
Boulder's retail/office/commercial landscapes look like? (you may select one option)
348 (59.0%)
348 (59.0%)150 (25.4%)
150 (25.4%)
3 (0.5%)
3 (0.5%)
50 (8.5%)
50 (8.5%)22 (3.7%)
22 (3.7%)17 (2.9%)
17 (2.9%)
Other Retail/Office/Commercial landscape: Should not be governed by local ordinance
Retail/Office/Commercial landscape: Should be a combination of climate adaptive landscaping and traditional bluegrass
Retail/Office/Commercial landscape: Traditional bluegrass cover
Retail/Office/Commercial landscape: Hardscape with some vegetation
Retail/Office/Commercial landscape: Native vegetation
Question options
Optional question (590 response(s), 4 skipped)
Question type: Radio Button Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 24 of 114
51
Q6 The City of Boulder currently offers all the following water conservation programs, tools
and resources to customers. Which of the following have you participated in? (Select all that
apply)
Programs I have Participated In Are No Longer Available (please specify)None
Understanding Your Water Budget infographic (available on bouldersaveswater.net)Boulder's Water Conservation Webpage
Commercial Installation of Faucet Aerators/Pre-rinse Spray Valves Commercial Water Use Assessment
Visit to One of Boulder's Xeriscape Demonstration Gardens Outdoor Irrigation Assessment
Turf Replacement Program Garden in a Box program Water-wise Yard Seminars
Question options
25
50
75
100
125
150
175
200
225
250
275
300
70
117
26
65
110
12 15
120
113
272
10
Optional question (584 response(s), 10 skipped)
Question type: Checkbox Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 25 of 114
52
Q7 Of the programs you have participated in, how helpful were they? (1 - very unhelpful, 5 -
Very helpful)
5
4
3
2
1
Question options
10025 50 75 125 150
Waterwise Yard
Seminars
Garden in a Box
Program
Lawn replacement
Program
Slow the Flow (outdoor
lawn irrigation assess...
Visit One of Boulder's
Xeriscape
Demonstratio...
Commercial Water Use
Assessment
City of Boulder's Water
Conservation Website
Understand Your Water
Budget on Your Water
Bi...
Programs I have
participated in are no
longer...
7
5
5
10
6
6
6
8
6
9
9
5
5
7
7
5
27
26
9
14
30
3
32
19
2
33
24
3
20
38
4
47
40
1
29
58
15
20
35
4
21
41
5
Optional question (307 response(s), 287 skipped)
Question type: Likert Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 26 of 114
53
Q7 Of the programs you have participated in, how helpful were they? (1 - very
unhelpful, 5 - Very helpful)
1 : 7
2 : 9
3 : 27
4 : 33
5 : 29
5 10 15 20 25 30 35
Waterwise Yard Seminars
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 27 of 114
54
1 : 5
2 : 9
3 : 26
4 : 24
5 : 58
5 10 15 20 25 30 35 40 45 50 55 60 65
Garden in a Box Program
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 29 of 114
55
1 : 5
2 : 5
3 : 9
4 : 3
5 : 15
2 4 6 8 10 12 14 16
Lawn replacement Program
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 30 of 114
56
1 : 10
2 : 5
3 : 14
4 : 20
5 : 20
2 4 6 8 10 12 14 16 18 20 22
Slow the Flow (outdoor lawn irrigation assessment)
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 31 of 114
57
1 : 6
2 : 7
3 : 30
4 : 38
5 : 35
5 10 15 20 25 30 35 40
Visit One of Boulder's Xeriscape Demonstration Gardens
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 32 of 114
58
1 : 6
2 : 0
3 : 3
4 : 4
5 : 4
1 2 3 4 5 6 7
Commercial Water Use Assessment
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 33 of 114
59
1 : 6
2 : 7
3 : 32
4 : 47
5 : 21
5 10 15 20 25 30 35 40 45 50
City of Boulder's Water Conservation Website
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 34 of 114
60
1 : 8
2 : 5
3 : 19
4 : 40
5 : 41
5 10 15 20 25 30 35 40 45
Understand Your Water Budget on Your Water Bill
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 35 of 114
61
1 : 6
2 : 0
3 : 2
4 : 1
5 : 5
1 2 3 4 5 6 7
Programs I have participated in are no longer available
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 36 of 114
62
Q8 If you have NOT participated in a City of Boulder conservation program what are the
reasons for not participating? (Select all that apply)
Other (please specify)I Currently Rent HOA Rules I Didn't Know These Programs Were Offered
The Programs Didn't Fit With My Schedule Doesn't Save Enough Water to be Worth the Effort Knowledge / Expertise
Time Physical Labor Involved Cost
Question options
25
50
75
100
125
150
175
200
225
250
275
41
24
76
51
16
24
254
46
69
62
Optional question (440 response(s), 154 skipped)
Question type: Checkbox Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 37 of 114
63
Q9 How do you prefer to receive information about saving water and Boulder's water
conservation programs? (Select all that apply)
Other (please specify)I do not seek out this information Local Radio Stations Email Updates / eNewsletter
Hands-on Demonstration/Classes Local Newspaper Social Media*Boulder's Water Conservation Webpage
Direct Mailer to my Home or Business Utility Billing Customer Portal Utility Bill Insert
Question options
50
100
150
200
250
300
350
400
268
81
135
162
108
139
110
343
60
28
48
Optional question (591 response(s), 3 skipped)
Question type: Checkbox Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 38 of 114
64
Q10 The following is a list of possible outdoor water saving actions for your home or
business. Which actions - if any - have you taken in the last 5 years to reduce your water use?
(Select all that apply)
Other (please specify)None Fixed any leaks Installed rain barrel or cistern
Upgrade irrigation system with high-efficiency nozzles
Review irrigation system to ensure I am only watering plants and trees, not sidewalks/roadways
Replaced lawn or garden with low water plants or other material (e.g. low water use landscape, rock, mulch, hardscape)
Water only between 6 p.m. and 10 a.m.Wait to turn on irrigation system in the spring until after the last freeze
Installed a rain sensor to automatically turn off irrigation system when it rains
Adjusted irrigation system and timers to reflect weather conditions
Question options
50
100
150
200
250
300
350
400
450
353
71
362
414
264
308
109
52
288
63 58
Optional question (588 response(s), 6 skipped)
Question type: Checkbox Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 39 of 114
65
Q11 The following is a list of possible indoor water saving actions for your home or
business. Which actions - if any - have you taken in the last 5 years to reduce your water use?
(Select all that apply)
Other (please specify)None
Don't let the water run unnecessarily (e.g. while brushing your teeth or washing your hands)Fixed any leaks (toilets, faucets)
Take fewer baths Take shorter showers (around 5-minutes)Only run full loads in the dishwasher and clothes washer
Installed water efficient toilet(s)Installed low-flow shower heads Installed faucet aerators
Installed high-efficiency clothes washer
Question options
50
100
150
200
250
300
350
400
450
500
287
155
287
320
457
279
199
357
459
17
37
Optional question (589 response(s), 5 skipped)
Question type: Checkbox Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 40 of 114
66
Q12 Which of the following water efficiency programs, tools, and incentives would you
participate in or utilize within the next 3-5 years? (Select all that apply)
Other (please specify)None Appliance and fixture rebate program
Review educational material on water-wise landscapes Review "Understand Your Water Budget" pdf
Visit Boulder's water conservation webpage (bouldersaveswater.net)
Commercial installation of faucet aerators/pre-rinse spray valves Commercial water use audit
Visit one of Boulder's xeriscape/rain demonstration gardens Outdoor lawn irrigation audit Turf replacement program
Garden in a Box program (including income qualified garden in a box)Water-wise Yard Seminars
Question options
25
50
75
100
125
150
175
200
225
250
275
300
170
188
231
167
233
30
18
249
190
243
275
48
33
Optional question (585 response(s), 9 skipped)
Question type: Checkbox Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
Page 41 of 114
67
Q13 What would motivate you to participate in the city's water conservation program or
water-conserving activities? (Select all that apply)
Other (please specify)Not applicable or I'm not motivated to participate
I would only conserve water if the city required it by code and enforcement
It is the right thing to do to protect our limited water resources
Payment assistance for a fixture/appliance that I want to replace (e.g., toilets, smart irrigation controller, etc.)
To save more water than my neighbors To save money on my water bill
Question options
50
100
150
200
250
300
350
400
450
500
550
387
76
223
501
8 14
38
Optional question (586 response(s), 8 skipped)
Question type: Checkbox Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
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68
Q14 Knowing the city's water conservation funds are limited, where should the city focus its
conservation efforts?
No opinion Public property (city parks, libraries, municipally owned facilities)
Private property (single-family, multi-family, HOAs)
Question options
50
100
150
200
250
300
350
400
230
348
101
Optional question (582 response(s), 12 skipped)
Question type: Checkbox Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
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69
Q15 How important do you feel it is for the city to expand its water conservation efforts?
459 (77.4%)
459 (77.4%)
96 (16.2%)
96 (16.2%)
29 (4.9%)
29 (4.9%)9 (1.5%)
9 (1.5%)
Not Important Neutral Somewhat Important Extremely Important
Question options
Optional question (593 response(s), 1 skipped)
Question type: Radio Button Question
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Q16 How willing, if at all, would you be to adopt a water-wise landscape by removing turf
grass from your front yard/business?
208 (35.1%)
208 (35.1%)
93 (15.7%)
93 (15.7%)
28 (4.7%)
28 (4.7%)
111 (18.8%)
111 (18.8%)
66 (11.1%)
66 (11.1%)
19 (3.2%)
19 (3.2%)
67 (11.3%)
67 (11.3%)
Would depend upon... (please specify)Don't know / Not sure Not applicable - I don't have a yard
Already converted my space Would not consider May consider Very willing
Question options
Optional question (592 response(s), 2 skipped)
Question type: Radio Button Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
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Q17 What are the primary barriers keeping you from replacing some or all your grass with
water-wise landscaping? (Select all that apply)
Other (please specify)Not applicable - I already converted my lawn to a water-wise landscape HOA rules / regulations
Doesn't save enough water to be worth the effort Neighbors would disapprove I like my lawn
Future maintenance concerns Knowledge / expertise Lack of design information (e.g. what plants to use)Time
Physical labor involved with converting Cost
Question options
25
50
75
100
125
150
175
200
225
250
275
244
208
135
150
125
67
82
8
28
82
112
105
Optional question (573 response(s), 21 skipped)
Question type: Checkbox Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
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Q18 How important is water conservation compared to other priorities in your life?
258 (43.6%)
258 (43.6%)
301 (50.8%)
301 (50.8%)
12 (2.0%)
12 (2.0%)8 (1.4%)
8 (1.4%)3 (0.5%)
3 (0.5%)10 (1.7%)
10 (1.7%)
Other (please specify)I'm not interested in water conservation
It's important to me, but I don't have the time/resources to take action I'm neutral to water conservation
It's important to me, and I conserve water where I can, but it's not my top priority
It's very important and I'm actively engaged in my everyday habits
Question options
Optional question (592 response(s), 2 skipped)
Question type: Radio Button Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
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Q21 What type of water utility account do you have?
516 (86.9%)
516 (86.9%)
72 (12.1%)
72 (12.1%)6 (1.0%)
6 (1.0%)
Commercial, Industrial, or Institutional Large Property (e.g., HOA, multi-family)Residential
Question options
Mandatory Question (594 response(s))
Question type: Radio Button Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
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Q22 Which race or ethnicity do you identify with most?
478 (80.5%)
478 (80.5%)
10 (1.7%)
10 (1.7%)4 (0.7%)
4 (0.7%)1 (0.2%)
1 (0.2%)1 (0.2%)
1 (0.2%)10 (1.7%)
10 (1.7%)
79 (13.3%)
79 (13.3%)
11 (1.9%)
11 (1.9%)
0 (0.0%)
0 (0.0%)
Native Hawaiian or other Pacific Islander Other (please specify)I prefer not to say Two or more races
American Indian or Alaska Native Black or African-American Asian Hispanic or Latino/a White
Question options
Mandatory Question (594 response(s))
Question type: Radio Button Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
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Q23 How would you describe your annual household income?
20 (3.4%)
20 (3.4%)
45 (7.6%)
45 (7.6%)
120 (20.2%)
120 (20.2%)
99 (16.7%)
99 (16.7%)
156 (26.3%)
156 (26.3%)
154 (25.9%)
154 (25.9%)
I prefer not to say $150,000 a year or more $100,000 to $149,999 a year $50,000 to $99,999 a year
$25,000 to $49,999 a year Less than $25,000 a year
Question options
Mandatory Question (594 response(s))
Question type: Radio Button Question
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Q24 Do you rent or own your home?
495 (83.3%)
495 (83.3%)
75 (12.6%)
75 (12.6%)19 (3.2%)
19 (3.2%)5 (0.8%)
5 (0.8%)
Other (please specify)Prefer not to say Rent Own
Question options
Mandatory Question (594 response(s))
Question type: Radio Button Question
WEP Update Questionnaire : Survey Report for 02 April 2023 to 01 May 2023
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Q25 What is your age range?
2 (0.3%)
2 (0.3%)
2 (0.3%)
2 (0.3%)
53 (8.9%)
53 (8.9%)
160 (26.9%)
160 (26.9%)
117 (19.7%)
117 (19.7%)
221 (37.2%)
221 (37.2%)
39 (6.6%)
39 (6.6%)
I prefer not to say 65 and over 55 to 64 35 to 54 25 to 34 18 to 24 Under 18
Question options
Mandatory Question (594 response(s))
Question type: Radio Button Question
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Appendix C – WEP Engagement Summary
79
KEY TOUCH POINTS
4
Staff from multiple
departments convened to
discuss water efficiency best
practices as they relate to
the work each department
oversees.
WATER EFFICIENCY PLAN
COMMUNITY ENGAGEMENT
SUMMARY
1 2 3Single-family
Residential
Large Water
User Accounts FLOWS Meeting
Be Heard Boulder on-line
questionnaire - offered in
English and Spanish with 595
total responses received.
Stakeholder meeting with
a dozen representatives
from organizations from the
Commercial, Industrial &
Institutional sectors as well
as HOAs
Meeting with members from
the Foundations for Leaders
Organizing for Water and
Sustainability
5 Water Resource
Advisory Board
The project team met with a representative from the Water Resource Advisory
Board (WRAB) throughout the project and conducted a public hearing at a WRAB
meeting.
City Staff
Workshop
80
594 1COMMUNITY MEMBERS ranked water-
wise landscapes, reducing the amount
of bluegrass, developing educational
material, and reducing indoor water use
as the highest priorities for the city to
pursue. English Be Heard Boulder ResponsesSpanish Be Heard Boulder ResponseBE HEARD BOULDER
02 April - 01 May 2023
Key TAKEAWAYS
how feedback is
included in the plan
PURPOSE
COLLECT COMMUNITY FEEDBACK &
VALUES AROUND WATER EFFICIENCY
2 Over the next 3-5 years, community members expressed interest in an appliance
and fixture rebate program, Visiting Boulder’s water conservation webpage,
and Reviewing educational material on water-wise landscapes
46% of respondents haven’t participated in our current programs
because they didn’t know they existed
Community members would like to receive information via an
e-newsletter or email
There is a slight preference towards prioritizing public property
over private property for reducing bluegrass footprint.
>90% of community members believe the city should enhance the
water conservation program/funding
3
4
5
6
• evaluate a program for customers
to replace older low-efficiency
fixtures and appliances with new
high-efficiency fixtures
• improve outreach to the community
on water efficiency topics and water
efficiency programs
• support outdoor water efficiency
within City owned properties
• Evaluate potential improvements
or additions to Boulder’s waterwise
demonstration garden program
• Evaluate Boulder’s rules and
ordinances for water efficiency
upgrades
1
81
COMMUNITY WORKSHOPCOMMUNITY WORKSHOP
12
Representatives of various customer
types within the Commercial,
Industrial and Institutional sector as
well as HOAs
1 STAKEHOLDER ENGAGEMENT NEEDS TO BE
SECTOR SPECIFIC
2 CONSERVATION PROGRAMS SHOULD ALSO
BE TARGETED TO LOW INCOME CUSTOMERS,
RENTERS, LATINX COMMUNITY
3 CURRENT CODE IS CONTRADICTORY TO
SOME WATER-WISE LANDSCAPING BEST
PRACTICES
4 NEED TO PRIORITIZE a BEHAVIOR CHANGE
AROUND WATER CONSERVATION
5 NEED TO REDUCE THE DISCONNECT
BETWEEN PROPERTY OWNER, PROPERTY
MANAGEMENT AND ACTUAL WATER USERS
Key TAKEAWAYS
• Boulder will consider a feasibility
study for Advanced Metering Infra-
structure (AMI) implementation across
all City water customers
• Evaluate customer water budgets and
identify potential opportunities to
improve customer rate structures.
Evaluate Boulder’s rules and ordinanc-
es for water efficiency upgrades
• Identify the potential benefits of
supporting a landscape and irrigation
training program.
• Improve outreach to the community
on water efficiency topics and water
efficiency programs
• Evaluate Opportunities to Support
water customers with technical
assistance in applying for water
efficiency grant funding.
HOW FEEDBACK IS
INCLUDED IN the plan
Moving forward
Look for opportunities to continue conversations
with CII customers and HOAs. There is a desire to
“do the right thing”
82
15 FLOWS community holds a ton of
individual knowledge – the city needs
to protect their contributions and
intellectual propertyFLOWS VOLUNTEERS WORKING IN THE COMMUNITYFLOWS
Foundations for Leaders Organizing for Water and Sustainability
Key TAKEAWAYS
HOW FEEDBACK IS
INCLUDED IN the plan
PURPOSE
UNDERSTAND THE ROLE of EXISTING
COMMUNITY GROUPS ALREADY ENGAGED
IN WATER CONSERVATION AND HOW THE
CITY can SUPPORT THEIR EFFORTS
Intentional engagement with under-represented community
members should be a priority
Be mindful of user categories – renters may not pay their water
bills directly and may not have impact on overall savings
Landscape industry is heavily provided by LatinX community. How do
we support them/lift them up?
Develop Partnerships with organizations engaged in the conserva-
tion work in the community
• Develop and implement a process to
work with and develop partnerships
with community groups to 1) identify
water conservation needs and
opportunities in the community and
2) support community group efforts
to implement water conservation
outreach and projects in the
community.
• IDENTIFY THE POTENTIAL BENEFITS OF
SUPPORTING A VOLUNTARY TRAINING
PROGRAM FOR LANDSCAPE IRRIGATION
PROFESSIONALS IN THE TECHNIQUES OF
WATER EFFICIENT IRRIGATION.
• evaluate a program for customers
to replace older low-efficiency
fixtures and appliances with new high-
efficiency fixtures.
1
2
3
4
5
83
9
CITY STAFF WORKSHOPCITY STAFF WORKSHOP
14 Workshop consisted of 12 separate
divisions/departments of the
city organization and included
representation from our partners at
PACE and Resource Central
Key TAKEAWAYS
• Boulder will complete an internal
assessment of water use and treated water
production data to prepare a water loss
audit.
• Boulder will work to support outdoor
water efficiency within City owned
properties.
• Improve communication to customers on
water efficiency topics, including pursuing
an e-newsletter.
• Boulder wants to improve its xeriscape
demonstration garden program.
HOW FEEDBACK IS
INCLUDED IN THE PLAN
1
BOULDER SHOULD demonstrate water
conservation and efficiency at city
owned facilities and reduce system
wide water loss
2
Advanced metering infrastructure has
the ability to communicate real time
water use to customers - Boulder should
implement a Pilot Project to evaluate
impacts on cost and staff resources
3
Boulder is currently unlikely to add
much new development, so water
efficiency codes and zoning policies
may not be as effective and should be
evaluated further.
4 Investigate ways to promote water
efficiency through the use of manuals,
certifications, policy
5
Continue to engage with community
members and develop awareness on
educational material and availability
of programs.
6 Demonstration GARDENS AND PILOT
PROJECTS WOULD BE BENEFICIAL to
develop educational material
7 Appliance rebate and retrofit
programs could be an opportunity to
have a big impact on water savings
8 CONTINUE TO BUILD INTER-DEPARTMENTAL
Relationships to embed water
conservation into city led efforts
Identified need
Work towards building resources within the city
organization to support the growing need to enhance
the current water conservation program.
84