217th DRAFT Report to / Rapport au :

 

Planning and Environment Committee

Comité de l’urbanisme et de l’environnement

 

and Council / et au Conseil

 

30 May 2006 / le 30 mai 2006

 

Submitted by/Soumis par :  R.T. LeclairR.G. Hewitt

A/cting Deputy City Manager / A/Directeurrice municipale adjointe par interim

Public Works & Services / Services et Travaux publics

 

Contact Person/Personne-ressource :  Kenneth J. Brothers, Director / Directeur

Utility Services Branch /Services publics

 (613) 580-2424, 22609, ken.brothers@ottawa.ca

 

City Wide

Ref N°: ACS-2006-PWS-UTL-0015

 

 

SUBJECT:

Water Efficiency PLAN:  PHASE i (2007 –2009)

 

OBJET:

PLAN DE VALORISATION DE L’EAU : PHASE 1 (2007 - 2009)

 

 

REPORT RECOMMENDATIONS

 

 

That the Planning and Environment Committee recommend Council approve:

 

1.   The 3-year Water Efficiency Plan:  Phase I (2007-2009) that consists of the following elements:

 

a)   A financial-based Incentives Program;

b)   A Waterwise Promotional Campaign;

c)   A City Facilities Retrofit Program;

d)   Annual monitoring and assessment of program effectiveness; and

e)   Annual reporting of program results to Council.

 

2.   Inclusion of capital funds in the Draft 2007 Budget to enable implementation of the Water Efficiency Plan:  Phase I, as set out herein.

 

3.   Accept for information Annex B – Evaluation of the 2005 Summer Waterwise Campaign.

 

 

RECOMMENDATIONS DU RAPPORT

 

Que le Comité de l’urbanisme et de l’environnement recommande au Conseil d’approuver :

 

1.   Le Plan de valorisation de l’eau : Phase I (2007-2009) sur trois ans qui comporte les éléments suivants :

 

a)   un programme d’encouragement de nature financière;

b)   une campagne publicitaire Éconeau;

c)   un programme de réaménagement des installations de la Ville;

d)   une surveillance et une évaluation annuelles de l’efficacité du programme; et

e)   des rapports annuels sur les résultats du programme soumis au Conseil.

 

2.   L’inclusion des fonds pour dépenses en capital dans le budget préliminaire de 2007 afin de permettre la mise en œuvre du Plan de valorisation de l'eau : Phase I, tel que décrit aux présentes.

 

3.   D’accepter  à titre d’information l’annexe B – Évaluation de la campagne estivale Économisez l’eau  de 2005.

 

 

 

EXECUTIVE SUMMARY

 

In May 2005, Council adopted a 10-year Water Efficiency Strategy.  The Strategy (refer to Annex A) sets out specific goals, objectives and targets, and a three phase approach for their achievement.  The purpose of this report is to report back to Council on the results of the 2005 Summer Waterwise Campaign, highlighting key changes to be implemented in 2006; and to present for approval a Water Efficiency Plan for implementation of Phase I of the Strategy.

 

Annex B, attached to this report is an evaluation of the 2005 Summer Waterwise Campaign.  In short, public survey and water production data appear to indicate that the communication campaign is effective.  Variations in summer weather play a significant role in outdoor water use, therefore, only over time will staff be able to correlate reductions in water use with the campaign.  However, both 2004 and 2005 demonstrated lower than usual maximum day usage, both of which were well within our target range, particularly given the rainfall and temperatures experienced.[1]

 

Phase I of the Water Efficiency Strategy, which covers the period 2007-2009, targets consumers who are sensitive to the water efficiency message, as well as those with something to gain, such as High Volume Users (HVU).  The intent of Phase I is to focus on publicl  be education, and promotion based, and  a program of include rebates and similar financial incentives and continued targeting of outdoor water use.

 

Phase II of the Strategy (2009-2012) targets targets those less sensitive to the water efficiency message but but who are still considered likely to implement it with regulatory encouragement.  During this phase, a regulatory by-law would be developed and implemented that restricts water use, while maintaining thethe  educational and incentives elements of Phase I continue to be provided..

 

Phase III of the Strategy (2013-2014) , the final phase of the ten-year strategy, will target consumers who have not adopted the water efficiency message.  Financial disincentives would be employed to recover the costs of serving inefficient consumers, and provide a strong incentive to improve water efficiency.

 

This report sets out a Plan for Phase I implementation.  Specifically, it recommends the following:

 

An Incentive Program that would:

 

·        Make available, through water bill inserts and other promotional means, a $75.00 rebate to residents that purchase and install a City-approved 6-litre water efficient toilet, with appropriate verification procedure;

·        Make available, free of charge to residents (1 kit per property or unit), water efficiency kits consisting of a water efficient showerhead, one (1) or more faucet aerators and a toilet displacement bag;

·        Stage implementation of a High Volume User subsidy program consisting of two elements:

o       Subsidies for pre-approved retrofits (e.g. toilet replacements); and

o       Subsidies for the retrofit of process equipment to become more water efficient (e.g. water chillers).  Both programs would have a maximum limit of $10,000 per application; and

·        Pilot a water timer distribution and efficacy study in District Meter Areas (established under the Water Loss Control Strategy) to determine the potential benefits of their full scale promotion and subsidy.

 

A Waterwise Promotion Campaign that would:

 

·        Promote efficient use of water outdoors, targeting lawn and garden watering;

·        Promote efficient use of water indoors, including distribution of information regarding the water efficiency kit and toilet rebate programs;

·        Promote the High Volume User subsidy program; and

·        Promote water efficiency success stories undertaken within or by the City.

 

A City Facilities Retrofit Program consisting of new capital funds allocated to Real Property Assessment Management (RPAM) for the purpose of undertaking water efficient retrofits at City facilities in the amount of $100,000 per year, 2007-2009 inclusive.  Projects would be undertaken to a) demonstrate the City’s commitment to water efficiency; b) demonstrate and promote various water efficient measures funded under the Incentive Program; and c) measure and report on the cost savings associated with implementing water efficient measures.

 

Annual Monitoring and Assessment to determine program efficacy and to identify opportunities for improvement.  Performance measures will be established for each element of the Plan and included in annual reports.

 

Annual Reporting to Council to facilitate open and transparent review of the program.

 

Allocation of $1.87M to enable implementation of the above, of which $1.57M would be paid from the Water Reserve Fund, and $300,000 would be paid from the City-wide Reserve Fund (for implementation of the City Facilities Retrofit Program).

 

The above Plan was developed based upon interviews with a selection of Ottawa High Volume Users (HVU) and a survey of residents.  Based upon the results of that research, staff believes that the program elements recommended herein represent the best opportunities for support and implementation by Ottawa residents and businesses.

 

 

RÉSUMÉ

 

En mai 2005, le Conseil a adopté une Stratégie de valorisation de l'eau étalée sur 10 ans. La stratégie (se référer à l'annexe A) comporte des buts et objectifs précis, ainsi qu'une approche en trois phases pour leur réalisation. L'objet de ce rapport est de faire rapport au Conseil concernant les résultats de la Campagne estivale Économisez l’eau de 2005, en mettant l’accent sur les changements clés devant être implantés en 2006; et de présenter à des fins d'approbation un Plan de valorisation de l'eau afin de mettre en œuvre la phase I de la stratégie.

 

L’annexe B, jointe à ce rapport, est une évaluation de la Campagne estivale Économisez l’eau de 2005. En gros, les données relatives à l’enquête auprès du public et la production d’eau semblent indiquer que la campagne de communication est efficace. Les conditions météorologiques variables pendant l’été jouent un rôle significatif relativement à l’utilisation d’eau à l’extérieur; c’est pourquoi, le personnel ne pourra établir de corrélations entre les réductions de l’utilisation de l’eau et la campagne qu’avec le temps. Toutefois, au cours des années 2004 et 2005, l’utilisation maximale journalière a été inférieure à la normale. Dans les deux cas, la valeur se situait à l’intérieur de l’écart visé, notamment en raison de la pluviosité et des températures qu’ont connues ces deux années.[2]

 

La phase I de la Stratégie de valorisation de l’eau, qui couvre la période 2007-2009, vise les consommateurs qui sont sensibilisés au message de valorisation de l’eau, ainsi que ceux qui peuvent bénéficier d’une telle stratégie, tels que les utilisateurs à demande élevée (UDÉ). L’objectif de la phase I est de mettre l’accent sur l’information du public, un programme d’encouragement financier et les mesures qui visent l’utilisation de l’eau à l’extérieur.

 

La phase II de la stratégie (2009-2012) vise les personnes qui sont moins sensibilisées au message de valorisation de l’eau mais qui devraient néanmoins le mettre en œuvre en présence d’incitatifs réglementaires. Au cours de cette étape, un règlement serait élaboré et mis en œuvre qui limite l’utilisation de l’eau, alors que les éléments éducatifs et incitatifs de la phase I continueraient d’être fournis.

 

La phase III de la stratégie (2013-2014), la dernière étape de la stratégie sur dix ans, visera les consommateurs qui n’ont pas encore adopté le message de valorisation de l’eau. Des mesures financières de dissuasion seraient employées pour récupérer les coûts encourus pour servir les consommateurs inefficaces, et pour servir d’incitation à améliorer la valorisation de l’eau.

 

Ce rapport présente un plan pour la mise en œuvre de la Phase I. Plus précisément, il recommande ce qui suit :

 

Un programme d’encouragement qui :

 

·        Permettrait, par le bais d’encarts inclus dans la facture de consommation d’eau et d’autres moyens publicitaires, aux résidents qui achètent et installent une toilette de 6 litres à faible consommation d’eau et approuvée par la Ville, de bénéficier d’un rabais de 75,00 $, assujetti à une procédure de vérification appropriée;

·        Offrirait gratuitement aux résidents (1 trousse par propriété ou unité), des trousses de valorisation de l’eau comportant une pomme de douche à faible consommation d’eau, un (1) ou plusieurs aérateurs de robinet et un sac de déplacement pour toilette;

·        Mettrait en place un programme de subventions pour utilisateurs à demande élevée qui comporterait deux éléments :

o       Subventions pour les modifications préapprouvées (par ex., remplacements de toilettes); et

o       Subventions pour la modification d’équipement de procédé afin qu’il consomme moins d’eau (par ex., refroidisseurs d’eau). Les deux programmes bénéficieraient d’un maximum de 10 000 $ par application; et

·        Testerait une étude sur la distribution et l’efficacité de régulateurs d’eau dans les secteurs de district avec lecture de compteurs (créés selon la Stratégie de contrôle des pertes en eau) afin de déterminer les avantages potentiels liés à leur promotion à grande échelle et leur subvention.

 

Une Campagne publicitaire Éconeau qui :

 

·        Encouragerait l’économie d’eau à l’extérieur, visant l’arrosage des pelouses et des jardins;

·        Encouragerait l’économie d’eau à l’intérieur, incluant la distribution d’information concernant la trousse de valorisation de l’eau et les programmes de rabais pour les toilettes;

·        Appuierait le programme de subventions pour utilisateurs à demande élevée; et

·        Présenterait des expériences réussies en matière de valorisation de l’eau entreprises dans ou par la Ville.

 

Un Programme de réaménagement des installations de la Ville, qui consiste en de nouveaux fonds pour dépenses en capital alloués à Gestion des biens immobiliers (GBI) et destinés à l’installation de dispositifs économiseurs d’eau aux installations de la Ville, au montant de 100 000 $ par année, pour la période de 2007 à 2009 inclusivement. Les projets seraient entrepris afin de a) démontrer l’engagement de la Ville envers la valorisation de l’eau; b) démontrer et promouvoir les diverses mesures d’économie d’eau financées en vertu du Programme d’encouragement; et c) mesurer et faire rapport sur les économies de coûts liées à la mise en œuvre de mesures d’économie d’eau.

 

Surveillance et évaluation annuelles afin de d’évaluer l’efficacité du programme et de déterminer les opportunités d’amélioration. Des mesures de rendement seront établies pour chacun des éléments du plan et incluses dans les rapports annuels.

 

Rapports annuels soumis au Conseil afin de permettre une évaluation objective et transparente du programme.

 

Allocation de 1,87 M$ afin de permettre la mise en œuvre de ce qui précède, desquels 1,57 M$ proviendraient du Fonds d'approvisionnement en eau, et 300 000 $ du Fonds de réserve panmunicipal (pour la mise en œuvre du Programme de réaménagement des installations de la Ville).

 

L’élaboration du Plan décrit ci-dessus fut basée sur des entrevues avec certains utilisateurs à demande élevée (UDÉ) d’Ottawa et une enquête menée auprès de résidents. En fonction des résultats de cette recherche, le personnel est d'avis que les éléments du programme recommandés aux présentes représentent les meilleures opportunités de soutien et de mise en œuvre par les résidents et les entreprises d’Ottawa.

 

 

BACKGROUND

 

In December 2004, the Province adopted the Water Taking & Transfer Regulation[3] under the Ontario Water Resources Act that requires, amongst other things, that municipalities demonstrate “that water conservation is being implemented or is proposed to be implemented in accordance with the best management standards and practices for (the municipal) sector.”

 

At the time the Regulation was passed, the City was in the process of developing a 10-year Water Efficiency Strategy, which was adopted by Council on 27 April 2005.  The Strategy sets out specific goals, objectives and targets, and a three phase approach for their achievement.  This Water Efficiency Plan:  Phase I (2007-2009) sets out the implementation plan for Phase I of the Strategy, and will enable the City to meet its obligations under the Provincial regulations.

 

The Strategy reflects Council’s commitment to water conservation as expressed in Ottawa 20/20, the Environmental Strategy, and the 2003 Infrastructure Master Plan, which states that the City will:

 

Identify priority initiatives through development and maintenance of a Water Efficiency Strategy indicating the goals, objectives, costs, benefits and best value for the broadest range of total demand planning initiative including consideration of the values of:

·        Education and awareness programs;

·        City led plumbing fixture subsidy programs; and

·        Unaccounted for water initiatives.

 

The City has developed a two-prong approach to water conservation.  The 2005 Water Efficiency Strategy and this Water Efficiency Plan:  Phase I (2007-2009) target demand or consumption matters through promotion and institution of measures that facilitate more efficient use by consumers.  In February 2006, staff presented to Planning & Environment Committee a Water Loss Control Strategy that sets out activities being carried out to deal with supply issues such as Active Leak Control, Pressure Management, the Speed and Quality of Repairs and Pipeline Asset Management.  Table 12 lists key supply-side and demand-side management initiatives currently undertaken by the City for the purpose of increasing the efficient use of water treated and produced.

 

The purpose of the Water Efficiency Plan:  Phase I presented in this report is to enhance demand side initiatives where they can have a meaningful impact on the integrity, cost, and efficiency of the water system, while promoting responsible use.

 


Table 12 Existing Water Supply & Demand Management Initiatives

 

Supply-side Management Activities

 

Demand-side Management Activities

 

Production

§   Regular maintenance of production and distribution flow metering

§   Installation of water meters on major internal treatment plant demands

Distribution

§   Watermain Rehabilitation and Replacement program

§   Leak Detection Strategy including District Metering Initiative

§   Accounting of all water usage, metered or unmetered

§   Responsiveness to unreported leakage events (identification and repair)

§   Water rate increase to allow for timely watermain rehabilitation and replacement

Education & Incentives

§         Summer 2006 Water Wise Education Program

§         Water efficiency brochures available at municipal offices, exhibits/fairs

§         Distribution and sale of water efficient fixtures at fairs/exhibits.

§         Information provided on web site.

Regulation

§         Existing Water By-law allows for implementation of watering bans during droughts, and restricts the use of once-through water-cooled chillers.

§         Provincial Plumbing Code requires installation of water efficient fixtures/toilets in new homes, such as 6-litre toilets.

Billing

§         100% metered service

 

Adoption of a water efficiency plan has been contemplated for several years.  Accordingly, the current water rate structure includes an allowance for implementation of water efficiency programs.  The staff report that accompanied the 2005 Water Efficiency Strategy identified a 10-year budget of $5.5M.  The following Water Efficiency Plan:  Phase I, which covers the first three years of the Strategy, is valued at $2.27M. [4]

 

 

DISCUSSION

 

Proposed Water Efficiency Plan:  Phase I (2007-2009)

 

The 2005 Water Efficiency Strategy states that Phase I:

 

Targets consumers who are sensitive to the water efficiency message, as well as those with something to gain, such as residential High Volume Users (HVU).  The campaign will focus on publicl  be education, and and promotion based, and  a program of include rebates and similar financial incentives that may include rebates on water efficient items, and assistance with the cost of water audits and fixture retrofits.  The strategy will also continue to target outdoor water use, which is one of the driving forces behind demand for greater water infrastructure..

 

This 3-year Water Efficiency Plan:  Phase I was developed through analysis of past and on-going City initiatives, review of municipal and utility programs in place in Ontario and elsewhere, customer surveys designed to determine consumer preferences and potential uptake rates, and a cost-benefit evaluation of alternative measures.  Specifically, 30 people, representing a cross-section of Ottawa HVUs were interviewed; and 400 households were surveyed regarding their attitudes and potential purchasing preferences as they pertained to potential incentive programs that might be offered by the City.[5]  On this basis, staff is confident that the approach recommended herein should meet with success.  That said, on-going monitoring, assessment and adjustments will be needed to ensure program success.

 

The Executive Summary to the Business Plan that supports this approach is contained in Annex 3.

 

The Plan consists of the following elements:

 

·        A financial-based Incentive Program targeting residents and High Volume Users (HVU);

·        A Waterwise Promotional Campaign that addresses both outdoor and indoor water efficiency;

·        A City Facilities Retrofit Program that invests in the replacement of inefficient water fixtures and upgrade of City infrastructure that will yield significant savings while providing leadership and demonstrating the importance and value of water efficiency;

·        Annual Monitoring & Assessment, to enable critical review and changes to program elements in a timely manner; and

·        Annual Reporting, to Council regarding progress towards targets established by the Water Efficiency Strategy.

 

The following sections set out the details of each component of the Phase I Water Efficiency Plan.  Note, three years of funding is requested because incentive programs take time to promote and implement, and are more effective if they extend over a period of time that allows a cross-section of the public to participate as the opportunity presents.  For example, most people will only replace their toilets when they fail or during a renovation.  Only a percentage of Ottawa households renovate their bathrooms each year and only some of those would be interested in replacing toilets.  Therefore, it is desirable to offer the Toilet Rebate over a period of years.

 

Incentive Program

 

Over 50% of water consumption is attributable to just five percent (5%) of the City’s water meters (i.e. a relatively few number of customers known as High Volume Users (HVU).  These consumers have a tremendous impact on demand and c.  Similarly, the City’s residential users, which account for over 90% of the City’s water meters and 71% of water billedonsist of large institutional, commercial and industrial facilities, as well as high-density residential developments.

 

Medium and low-density residential customers also have , can have a significant impact on the system , particularly as consumption byas they account for most of the balance of water consumption, and  contribute to peak demand (outdoor water use, which impacts system design and operations[6].)

 

The City needs to address water consumption by both of these groups:  HVU, and low-medium density residences.  The programs that follow target one or the other group, and allow for a balanced distribution of incentive dollars between them.[7]

 

High Volume User Incentive Programs

 

To stave off expansion of water infrastructure the City must create capacity for growth by encouraging existing customers to use less.  High Volume Users (HVU) account for greater than 50% of the water consumed in the City.  They comprise large office and retail complexes, hospitals, high-density residential buildings, water using industries and universities to name a few.

 

Based upon a review of existing HVU incentive programs in place in other jurisdictions, as well as interviews with local HVU customers, a two-prong approach has been developed for this group.  Both programs would offer water customers[8] a subsidy to implement changes in fixtures or water-using processes that yield a sustained and measurable reduction in water consumption.

 

·        Fixture Replacement Program:  Many applicants will propose replacement of items such as toilets and showerheads, which have well-documented and known savings.  Applicants would be required to submit to a water audit prior to program implementation to verify the need for the proposed changes, and then would be reimbursed a portion of their costs following completion and verification of the retrofits.  Terms, conditions and rebate limits will be developed covering a set of commonly implemented fixture replacements.

 

·        Process Upgrade Program:  Some customers have mechanical or other processes that consume large amounts of water unnecessarily and inefficiently.  To qualify under this program, applicants will be required to submit a proposal that outlines the proposed change in process and an estimate of water to be saved.  The City would then reimburse the customer a portion of their costs based upon actual water saved per meter readings.

 

It is recommended that applicants be limited to a total subsidy of $10,000, and subject to various requirements that ensure equitable distribution of funds amongst HVU.

 

These HVU programs will also help the City to achieve its energy conservation objectives.  Staff will explore opportunities to integrate this program with or leverage other resources related to building retrofit programs.  At this time, staff recommend that approximately 30% of the annual Plan budget[9] be allocated to the HVU Program Incentive Programs.[10]  Based upon survey results, we anticipate that this would enable approximately 15 HVU projects to be completed each year.

 

Toilet Replacement Rebate

 

Toilets account for approximately 30% of the water consumed in the average home.  They offer a tremendous opportunity for water savings, which is why in 1996 the Province of Ontario mandated that all new housing construction install water efficient 6-litre toilets.  The City is already seeing the benefits of that Regulation, as increases in demand are less than population growth and reflect a drop in historical trends.  The proposed incentive rebate would be designed to help people living in older homes to bring their facilities up to standard.[11]

 

Depending upon the style, toilets range in price from $100 to $900, however, price does not necessarily correspond to quality or efficiency.  In 2005, the Canadian Water & Wastewater Association (CWWA) lead a research project that evaluated the performance of a variety of low-flow toilets due to reported problems with several on the market.[12]  The results of that study have been instrumental not only in directing municipalities and consumers to better toilets, but also in raising awareness amongst manufacturers of problems with some toilets that did not score well.  Therefore, staff propose to prescribe a selection of toilets that will qualify for this program, providing sufficient range that consumers should be able to easily access the toilets at local distributors[13].

 

Survey results indicate that a $75.00 rebate would be sufficient to entice many to purchase a water efficient toilet.  Based upon the experience of other municipalities, it is quite possible that demand for the rebate will outstrip the annual budget allocated to this component of the Plan.  At this time, staff recommend that 20% of the annual Plan budget[14] be allocated to the Toilet Rebate Program.[15]  At this rate, approximately 1300 toilets can be replaced per year.  While this change-out rate is not anticipated to effect measurable changes to City infrastructure in the short-term, it will make noticeable differences in household water bills and demonstrate the value of water efficiency.

 

Water Efficiency Kits

 

Many municipalities distribute or offer for sale water efficiency kits containing a selection of the following:  water efficient showerheads, faucet aerators, toilet displacement bags, toilet leak detection dye tablets, shower flow-rate bags, hose or tap washers, water timers and rain gauges.  The City has distributed outdoor and indoor efficiency kits on a pilot basis, but never on a city wide basis, and currently only sells the limited kits remaining from pilot projects at special events.

 

The objective of this element of the Plan is to make indoor water efficiency kits broadly available to single, semi and row houses, but more importantly, to have them installed and operating in peoples’ homes.  Research indicates that many people who receive or purchase these kits do not actually install the devices provided.  However, because our survey and experience shows that not all residents will permit someone to enter into their homes to install these fixtures, that two delivery mechanisms are required.

 

These kits would be made available to both urban and rural residents, regardless of whether they have a City water metered service.  Water efficiency and the associated energy savings are valuable to all City households, and will help to manage use of Ottawa’s ground water sources per the proposed Clean Water Act.[16]

 

It is proposed the kits (valued at <$10 each) be made available for pick-up free-of-charge, at Client Service Centres, and on a door-to-door basis by one of three mechanisms: a) City water meter staff making service visits; b) through a partnership with another major utility operating in the City; or c) under contract to a vendor offering social marketing services.  Staff is currently reviewing the three service delivery options and will implement the most cost-effective method.

 

It is recommended that approximately 10% of annual Plan budget[17] be allocated to the purchase and distribution of these kits.

 

Pilot Water Irrigation Timer Project

 

Water irrigation timers enable residents to better regulate when and how much they water their lawns, gardens and trees.  Specifically, they allow people to turn on a sprinkler before leaving for work knowing it will turn off automatically while they are away (e.g. 0.5-1.0 hours—the average time required to deliver 1 inch (2.5 cm) of water.  Alternatively, they can do slow-drip nighttime watering of young trees knowing it will turn off after a fixed period of time.

 

The purpose of this pilot would be to determine how effective a combined incentive and education program could be in achieving measurable changes in when and how much water a community uses.  The City is planning to establish District Meter Areas (DMAs) in several locations to help identify and address system leaks.  These same DMAs could be used to measure the difference between DMAs using irrigation timers versus those that do not.

 

If water timers can be demonstrated to effect measurable changes in when and how much people use water in the summer, staff will develop a program to encourage or facilitate their wide-spread use.  It is proposed that approximately 4% of the annual Plan budget[18] be allocated to this pilot.

 

Waterwise Promotion Campaign

 

A broad based communication strategy is required to ensure consistency in messaging, coordinated delivery and overall continuity with the City’s communication strategy for delivery of environmental initiatives.  The two campaigns and pilot campaigns discussed above target specific user groups and require tailored communication tools within the context of an overall campaign.  However,.  a broad based communication strategy is required to ensure consistency in messaging, coordinated delivery, and overall continuity with the City’s communication strategy for delivery of environmental initiatives.  A communication strategy will be developed that ensures the aboveproper integration of the various communication elements, while giving consideration to how the Water Efficiency Program will be expanded over time, and how long-term messaging may evolve as a result.  Lessons learned from the past two summer campaigns will be applied to future promotional activities.  Approximately 15% of the annual Plan budget[19] will be spent on promotional activities.

 

City Facilities Retrofit Program

 

The objectives of the City Facilities Retrofit Program are the following:

 

·        To demonstrate the City’s commitment to water efficiency;

·        To promote various water efficient measures offered under the Incentive Program by showcasing them in City buildings; and

·        To measure and report on the cost savings associated with implementing water efficient measures.

 

Real Property Asset Management (RPAM) and Utility Services Branch are reviewing projects that would yield high levels of water savings, while helping to demonstrate the City’s commitment to become water efficient.  Two initiatives discussed to date are the following:

 

·        Install proximity sensor-activated urinals at Lansdowne Park.  The facilities at Lansdowne have been an issue of concern for sometime, most recently during the 2005 Rolling Stones concert.  In 2007, the City is to host the Under 20 World Cup of Soccer event at Lansdowne Park and the World Junior Hockey event at the Civic Centre.  This work would profile the City’s commitment to water efficiency to residents and visitors alike.  RPAM estimates a payback period of less than 4 years, with long-term operational savings.

 

·        Replace all inefficient showerheads at city recreational facilities with water efficient units.  Thousands of Ottawa residents use these facilities everyday, consuming thousands of litres of water and MW of electricity in hot water production.  Replacement of these units would be visible to residents across the City, and allow them to “test the quality” of water efficient showerheads, which we will be encouraging them to use in their own homes.

 

Opportunities for water efficiency exist at many other City facilities and could be expanded over time to include Library, OC Transpo and Ottawa Housing Corporation buildings.

 

As a major consumer of water in Ottawa, and to demonstrate leadership on this issue, it is recommended that the City allocate to RPAM $100,000 per year for three years in new capital, for the express purpose of undertaking water efficient initiatives at RPAM managed facilities for the duration of this Water Efficiency Plan:  Phase I.  Furthermore, it is recommended that RPAM report on program results through the Water Efficiency Plan annual reports to Council.

 

Monitoring and Assessment

 

For the past two years, the City has undertaken follow-up surveys following the Summer Waterwise campaigns to determine what impact, if any, the program is having.  It is through a combination of public polling and monitoring of water production rates that we will be able to determine, over time, the success of this program.  Staff recommends continuation of this approach, as it has been useful in identifying the following:

 

a)      What communication tools work best;

b)      What messages are most effective;

c)      Who our messaging should target; and

d)      How we should change the program to be more effective.

 

On-going program monitoring and assessment is needed to ensure that initiatives are properly designed and carried out, modified as needed to maximize their effectiveness and discontinued if no longer necessary or ineffective.  City staff can do a considerable amount of monitoring and measurement in-house through the analysis of water, billing, and weather data.  However, annual investments will be required to track how the public is receiving, interpreting and acting on the water efficiency campaigns, and in measuring changes in demand in the system (i.e. using District Metered Areas) so that we can monitor overall program effectiveness.  Monitoring Theobjectives for 2005 are the following:

 

·        Assess the effectiveness of the 2005 summerannual summer Water Wise Education C campaigns;

·        Assess potential support and uptake for a Residential & HVU Incentives Campaign;

·        Identify key benchmarks, and establish performance indicators for the Water Efficiency Program.

 

Because of the importance of monitoring and assessing program effectiveness, we recommend that up to 10% of the dollars allocated for implementation of the Water Efficiency Plan:  Phase I be dedicated to these activities.

 

Reporting

 

Annual reports will be produced and presented to Council outlining the results of each year’s program and describing any recommended modifications for the following year.  Depending upon program results, staff may suggest accelerating or postponing implementation of a subsequent phase, and adjustments in dollar allocations to achieve the greatest benefit.  Annex B, which reports on the results of the 2005 Summer Waterwise Campaign, illustrates the type of reporting that Council can expect.

 

 

TRoadside billboards will be placed at several new locations along major roads and interchanges throughout the City, in an effort to capture commuters travelling home to suburban areas.  The ten billboards installed last year remain serviceable and are being stored for reuse in 2005;

§The advertisements that were developed and published in community newspapers during the 2004 campaign will be improved to be clearer, and will run in community newspapers bi-weekly from May through to the end of August;

§In order to ensure that the 2005 campaign has strong coverage over the entire City, the 2004 radio advertisements and television interstitial will again be aired, focused during the months of May and June, with some modifications to improve messaging;

§Small colour posters will be developed and hung at the City’s thirty-three Public Libraries and seven Client Service Centres, as well as at all City offices; and

§Bill inserts will be used again.  Last year’s inserts were printed in a single colour format.  It is felt that full colour inserts would stand out more and be more effective at delivering the message.  The difference in cost for the quantities required is $600.  Since the additional cost of producing the inserts in colour is relatively small, it is felt that this extra production cost is justifiable and will help staff to determine the cost effectiveness of the tool for future years.  (Approximately 1 in 6 remembered the inserts from the 2004 campaign.  Our target would be to increase this to 1 in 3.)

CONSULTATION / PUBLIC NOTIFICATION

 

This initiative implements the policies and objectives of Ottawa 20/20, the Infrastructure Master Plan and the Environmental Strategy, all of which have undergone extensive public consultation.

 

This Water Efficiency Plan:  Phase I was developed using customer surveys and interviews designed to determine consumer preferences and potential uptake rates.  As well, background documents were provided to the Environmental Advisory Committee (EAC), and staff met with members of their Water Issues Committee in May 2006 to review draft recommendations.  Representatives of the Water Issues Committee were supportive of the direction recommended by staff, but questioned why the City was not moving forward with regulatory and financial tools.  It was explained that those tools would be implemented, if required, during implementation of Phases II and III of the Water Efficiency Strategy.

 

At the time that this report was finalized, staff was scheduled to present final recommendations to the EAC as a whole on 9 June 2006.  Any recommendations emanating from the EAC meeting will be tabled with this report at Planning & Environment Committee.

 

This report was circulated for review to Planning and Growth Management, Real Property Asset Management, Corporate Communications  and various groups within Public  Works and Services..

 

 

FINANCIAL IMPLICATIONS

 

As noted previously, adoption of a water efficiency plan has been contemplated for several years.  Accordingly, the current water rate structure includes an allowance for implementation of water efficiency programs.  The staff report that accompanied the 2005 Water Efficiency Strategy identified a 10-year budget of $5.5M.  Table 2 presents the proposed budget for implementation of the Water Efficiency Plan:  Phase I for the next three years.

 

Table 2:  Budget Requirements for Implementation of the

Water Efficiency Plan:  Phase I

 

Element

2007

2008

2009

Total

1.      Incentives, Pilot, Promotion & Monitoring/Reporting

$610,000

$680,000

$680,000

$1.97M

2.      City Facilities Retrofit Program

$100,000

$100,000

$100,000

$300,000

Total

$710,000

$780,000

$780,000

$2.27M

 

Of the $1.97M required for item 1., $400,000 is currently available and has been approved in Internal Order 900206 – Water Efficiency.  Therefore, implementation of this Plan requires a further $1.57M as follows: $210,000 in 2007, $680,000 in 2008, and $680,000 in 2009.  Monies for Item 1 will come from the Water Reserve Fund.

 

Item 2, City Facilities Retrofit Program, requires $100,000 per year for 2007, 2008, and 2009 from the city wide Reserve Fund, with authority to create a new Internal Order.

 

It is proposed that these funds be identified in the Draft 2007 Budget.

 

 

ENVIRONMENTAL IMPLICATIONS

 

The objectives of the ten-year Water Efficiency Strategy, this Water Efficiency Plan:  Phase I (2007-2009), and the initiatives contained herein are all in support of the environmental goals and objectives set out in City planning documents and, if successful, will have a positive impact on Ottawa’s natural and built environment.

 

 

RURAL IMPLICATIONS

 

Water efficiency also benefits residents serviced by a well.  Rural homeowners and businesses will realize savings in energy costs associated with the pumping and treatment of their well water, and in related chemical costs.  A City-widecity wide communication campaign will target both the urban and rural communities of Ottawa.  Note, only establishments with City water metered services will be eligible for funding under the HVU incentive programs.

 

 

SUPPORTING DOCUMENTATION

 

ANNEX A:  City of Ottawa Water Efficiency Strategy

ANNEX B:  Evaluation of the 2005 Summer Waterwise Campaign

 

 

DISPOSITION

 

§          PWS to commence implementation of the three-year Water Efficiency Plan:  Phase I (2007-2009).

§          PWS to work with RPAM to commence implementation of the City Facilities Retrofit Program.

§          FSU to include the following in the Draft 2007 Budget to enable implementation of the Water Efficiency Plan:  Phase I:

o       $1.57M over 2007-2009 from the Water Reserve Fund.

o       $300,000 over 2007-2009 from the City-wide Capital Reserve Fund.

 

 


ANNEX A

WATER EFFICIENCY STRATEGY

 

 

Introduction

 

As a result of current policy directives contained in Ottawa 20/20 and supporting documents (Infrastructure Master Plan and Environmental Strategy), the consulting firm, a firm Canadian Water Services was retained in 2003 to assess a broad range of efficiency measures and their potential impact on demand.  This 10-year Water Efficiency Strategy was developed using the cost-benefit analysis contained in the consultant report, a review of past initiatives, consideration of other municipal programs and assessment of local conditions.

 

 

 

 

Goals

·       To defer capital costs for expansion of the City’s water infrastructure through efficient use of the water supply by residents, businesses and institutions.

 

·       To reduce wasteful use of water—a non-renewable resource.

 

Objectives

·       To inform water consumers of the need for water efficiency and how to become water efficient through the use of education programs, popular media and demonstration projects;

 

·       To influence water consumers to reduce consumption, and alter consumptive patterns through partnership initiatives, rebates and other financial incentives; and

 

·       To direct water consumers to change consumption patterns through judicious use of regulatory and financial toolsed use and financial disincentives, as warranted over time.

 

 

Phasing

 

A three-phase ten-year strategy is proposed to achieve the above objectives, as summarized in Table 3.

 

 

.

 

Phase I (2005-2008) targets consumers who are sensitive to the water efficiency message, as well as those with something to gain, such as residential High Volume Users (HVU).  The campaign will focus on publicl  be education, and and promotion based, and  a program of include rebates and similar financial incentives that may include rebates on water efficient items, and assistance with the cost of water audits and fixture retrofits.  The strategy will also continue to target outdoor water use, which is one of the driving forces behind demand for greater water infrastructure..

 

Phase II (2009-2012) targets targets those less sensitive to the water efficiency message but but who are still considered likely to implement it with regulatory encouragement.  During this phase, a regulatory by-law would be developed and implemented that restricts water use, while maintaining thethe  educational and incentives elements of Phase I continue to be provided..

 

Phase III (2013-2014) , the final phase of the ten-year strategy, will target consumers who have not adopted the water efficiency message.  Financial disincentives would be employed to recover the costs of serving inefficient consumers, and provide a strong incentive to improve water efficiency.

 

Reporting

 

Annual reports will be produced and presented to Council outlining the results of each year’s program and describing the plan for the following year.  Depending upon program results, staff may suggest accelerating or postponing implementation of a subsequent phase.

 

Targets

 

Figure 1 illustrates the potential impact that wWater efficiency measures can have a significant impact on long-term growth in average day and maximum day water production at the two purification plants.  Our target will be to reduce max day production at the two plants byachieve the 25% level by the end of 2008, and the by 50% level by the end of 20144.  These targets The 25% and 50% targets roughly correspond to the production rates at the two water purification plants identified in Table 42.

 

 

Source:  P&GM, T&IPD, IPU.

 

Table 4 2 Max Day Water Efficiency Targets

 

Phase I – 2008

Phase II - 20122

Phase III - 20144

Current ProjectedStatus Quo Projection MLD

61320

6905

71025

Target ProjectedWater Efficiency Target MLD

56590

610580

615595

 

 

If the above targets are met, the City will could save approximately $15 million[20] in life cycle costs for water infrastructure over the next 25 years.  These savings exclude the potential savings that may also be realized at wastewater pumping stations and treatment facilities, and the cumulative savings that may be realized through continued implementation of supply-side management initiatives.  Because it can take several years to effect significant change in demand patterns, the capital works to be deferred are infrastructure scheduled for construction 10-15 years hence.

 

Progress towards these targets will be measured annually and reported to Committee and Council.  Note that these projections are based upon best estimates of population and employment growth, and may change over time.  Any such changes will be reported annually, along with their potential impact on the program’s success.


ANNEX B

 

Evaluation of the 2005 Summer Waterwise Campaign

 

Unchecked, water consumption will grow with population growth.  In terms of summer outdoor water use, this can lead to tremendous demands on the distribution system.  For the past two summers, the City has implemented a Summer Waterwise Campaign to help mitigate growth in Maximum Day Demand.  Figure 1[21] illustrates how we are tracking towards achievement of the targets set out in the Water Efficiency Strategy.

Figure 1:  Max Day Demand – Actuals versus Targets

 

Outdoor water demand is closely tied to summer temperature and precipitation conditions.  Therefore, while Figure 1 indicates a significant drop in demand in 2004 and 2005 from previous years, it would be premature to attribute this change to the Summer Waterwise campaigns, particularly as progress towards the communication targets set for 2006 has been difficult (refer to Table 1).  The challenge will be to achieve the same degree of conservation in warmer summers with less and less frequent rainfall.

 

Table 1:  Summer Waterwise Communication Targets

Target (measured by public survey)

2004 Actual

2005

Actual

2006

Target

Remember the campaign

30%

31%

60%

Awareness of lawn watering requirements

44%

32%

90%

Households watering once or less per week

78%

75%

80%

 

That said, a survey of 701 households conducted by The Corporate Research Group in September 2005 indicates that the campaign had some measure of success.  Key findings include:

 

·        Over 80% of respondents indicated that water conservation is important, and/or a willingness to alter lawn watering practices.

§        One in three surveyed remembered the campaign—i.e. good program recognition;

·        Approximately 32% who remembered the campaign stated that they altered their lawn watering practices and/or had reduced water use in other areas of their homes as a result of the campaign;

·        When asked whether “the campaign was a good thing to do”, 70% answered a positive “4” or “5” on a scale of 1 to 5, with an additional 16% answering “3”—i.e. 86% of those who remembered the campaign felt it had merit; and

·        The quality of the campaign was rated a positive “4” or “5” on a scale of 1 to 5 by 43% of those remembering the campaign, and “3” by an additional 28%—i.e. over 71% of respondents felt the campaign was generally well designedrequires some improvement., but generally was well designed.

 

The above results indicate that Ottawa residents:

 

·        Are sensitive to the issue of water efficiency;

·        Are largely willing to alter their lawn watering habits;

·        Are changing their behaviours as a result of the campaign where they feel comfortable doing so; and

·        Will benefit from continued reinforcement of the message:  “No more than 1” (2.5 cm) per week, including rainfall”.

 

With the expansion of the Waterwise Campaign to include indoor water use and the incentive programs recommended herein, the Summer Waterwise campaign is being redesigned to enable its integration with a year-round campaign.  The campaign will continue to use billboards and radio ads, which have proven very effective in previous years, with modified messaging and graphics to be more eye-catching and clear.

 



[1] A Summer Waterwise Campaign was undertaken in 2004 as well as 2005.  A report presented to Council in May 2005 presented the results of the 2004 campaign.  Survey responses indicate comparable results in most areas for both years, e.g. approximately 1 in 3 respondents remembered the campaign.

[2] Une Campagne estivale Économisez l’eau fut entreprise en 2004 ainsi qu’en 2005. Un rapport soumis au Conseil en mai 2005 a présenté les résultats de la campagne de 2004. La participation à l’enquête indique des résultats comparables dans la plupart des secteurs pour les deux années, c.-à-d. une personne interrogée sur trois s’est souvenue de la campagne.

[3] Ont. Reg. 387/04

[4] The water rate does not allow for implementation of the City Facilities Retrofit Program since the monies will be used for plumbing changes, not City water works.  $300,000 is, therefore, required from non-rate supported sources to meet the Phase I budget.

[5] The household survey was conducted by Cullbridge Marketing and Communications.  Results of the survey are considered accurate within plus or minus 4.9%, 95 times out of 100.

[6] In 2005, 188,528 customer accounts were billed for consumption of 93Mm3 of water.  Over half of total consumption was attributable to less than 10,000 accounts (i.e. approx. 5% of water accounts); with the top 200 users (i.e. less than 1% of customer accounts) consuming over 15% of all water billed in 2005.  The top 200 users consumed 36,300m3 or more during 2005.  By comparison, single detached homes generally consume 350-600m3 per year.  However, well over 50% of all customer accounts are individual household services, therefore, the cumulative impact of residential use is great.

[7] The exact dollars to be allocated to each program will be determined based upon tendered bids.  Therefore, actual costs may vary somewhat from the percentages quoted for each program.

[8] The HVU programs would only be available to those with City water metered services.

[9] Percentage of Plan Budget, excluding the City Facilities Retrofit Program.

[10] Dollar allocations to this and all other Plan elements will be evaluated annually based upon program uptake and public response.

[11] This rebate would be made available to both urban and rural residents, regardless of whether they have a City water metered service.

[12] The City contributed $5000 towards the CWWA initiative along with several other municipalities.

[13] Major distributors will be given advance notice of the toilets that will qualify under the program.

[14] Percentage of Plan Budget, excluding the City Facilities Retrofit Program.

[15] Dollar allocations to this and all other Plan elements will be evaluated annually based upon program uptake and public response.

[16] The proposed Clean Water Act, 2005, Bill 43, was introduced in the Legislature on 5 December 2005 and, if adopted, will require municipalities and conservation authorities to implement a host of measures to protect all drinking water sources.

[17] Percentage of Plan Budget, excluding the City Facilities Retrofit Program.

[18] Percentage of Plan budget, excluding the City Facilities Retrofit Program.

[19] Percentage of Plan budget, excluding the City Facilities Retrofit Program.

[20] Projected savings as identified in 3W Pump Station Study and Functional Design, 2004

[21] Source:  Drinking Water Services, Autorep-corrected (TR).