HomeMy WebLinkAbout05/21/2025 - NATURAL RESOURCES ADVISORY BOARD - AGENDA - Regular Meeting Natural Resources Advisory Board
REGULAR MEETING – Wednesday May 21, 2025
LOCATION: 222 Laporte Ave. and via MS Teams: fcgov.com/nrab-teams-meeting
6:00 CALL TO ORDER / ROLL CALL
1. AGENDA REVIEW
2. COMMUNITY MEMBER PARTICIPATION
3. APPROVAL OF MINUTES – APRIL
4. NEW BUSINESS
6:10-6:55 Water Efficiency Plan (WEP) – June Work Session
Alice Conovitz (Water Conservation Specialist) will request a recommendation to City Council for
adoption of the updated Water Efficiency Plan (WEP). The Water Conservation Division, in partnership
with other One Water Utilities teams and City departments, has updated the WEP, which is a State-
required plan for the Fort Collins One Water Utilities service area. The updated WEP sets two new
goals, and a variety of strategies intended to reduce risk and impact of water shortages by (1) lowering
treated water use across the Utility service area and (2) building landscape resilience on City-owned
properties. This update incorporated extensive community engagement, analysis of historical and
projected future water use and efficiency savings under a range of climate and growth predictions, and
alignment with City efforts including Our Climate Future. (Action)
6:55-7:25 NRAB Orientation
Board Chair Metcalf will lead a discussion to level set members work of NRAB. (Discussion)
• NRAB Work Plan Review
• Open Meetings Law Guidance
• Attendance Expectations
• How boards advise and inform Council Priority setting and the budget process
7:25-7:40 Natural Areas Strategic Framework
Consider making a formal recommendation for Council adoption on July 1, based on previous
discussions with NAD staff and review of draft Framework. Memo with updates since last NRAB
meeting on this topic is included in Agenda Packet and the full Framework may be accessed online:
https://ourcity.fcgov.com/natural-areas-strategic-framework (Action)
7:40-7:55 Board Elections
Board members will nominate and elect a board chair and vice chair. (Action)
5. OTHER BUSINESS / UPDATES
a. Consider adjusting NRAB meeting start time earlier (5:30-7:30PM)
b. Super Issues Board meeting in August RE: Ranked Choice Voting.
c. Board Member Reports
d. Six Month Calendar Review https://www.fcgov.com/cityclerk/planning-calendar.php
e. Revisit action items from previous meetings & preview of next meeting
Natural Resources Advisory Board
REGULAR MEETING – Wednesday May 21, 2025
LOCATION: 222 Laporte Ave. and via MS Teams: fcgov.com/nrab-teams-meeting
City Websites with Updates:
• Air Quality Advisory Board webpage: https://www.fcgov.com/cityclerk/boards/air-quality-advisory
• Natural Resources Advisory Board webpage: https://www.fcgov.com/cityclerk/natural-resources.php
• Our Climate Future: https://ourcity.fcgov.com/ourclimatefuture
6. ADJOURN
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Natural Resources Advisory Board
REGULAR MEETING
Wednesday, April 16, 2025 – 6:00 PM
222 Laporte Avenue and via Microsoft Teams
1. CALL TO ORDER: 6:04 PM
2. ROLL CALL
a. Board Members Present –
• Dawson Metcalf (Chair)
• Kelly Stewart (Vice Chair)
• Sara LoTemplio
• Kelen Dowdy
• Leslie Coleman
• Sharel Erickson
• Xavier Pereria
b. Board Members Absent –
• Teagan Loew
• Barry Noon
c. Staff Members Present –
• Honore Depew, Staff Liaison
• Brian Tholl, Energy Services Director
d. Guest(s) –
•
3. AGENDA REVIEW
Chair Metcalf reviewed the agenda items.
4. COMMUNITY MEMBER PARTICIPATION
None.
5. APPROVAL OF MINUTES – MARCH 2025
Vice Chair Stewart made a motion, seconded by Dowdy, to approve the March 2025
regular meeting minutes as amended. The motion was adopted unanimously.
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6. NEW BUSINESS
a. New Member Welcome/Councilmember Kelly Ohlson
Current members and new members, Leslie Coleman, Sharel Erickson, and Xavier
Pereria, introduced themselves and discussed their professional endeavors and interest
in the Board.
Councilmember Kelly Ohlson, Board liaison, welcomed the new members and provided
a synopsis of his history of service on City Boards and Council. He noted he will not be
seeking reelection in November and discussed the history of the Council liaison
relationship with Boards. He also discussed the history of the Natural Areas tax and
Natural Resources Advisory Board.
Councilmember Kelly Ohlson stated he would like to see more communication from
Boards with recommendations on items going before Council. Specifically, he
suggested the Board provide input on Council’s work plan and priority list prior to the
Council retreat following the election , which will likely occur in February or March. He
also suggested the Board provide input on the budget and noted any information coming
from Boards should get to Council prior to work sessions. He also stated a member
could speak on behalf of the Board at Council meetings.
Coleman asked what types of additional information Councilmember Ohlson would like
to see from this Board. Councilmember Ohlson replied Council works on two-year work
plans and encouraged the Board to weigh in on recycling, composting, climate, solid
waste, and other topics it sees fit. He suggested the Board include supporting
information for any memo or communication to Council. Additionally, he encouraged the
Board to advise staff, though not direct them.
Depew asked Councilmember Ohlson if he has any advice for the next Council in terms
of balancing community needs and tensions and how community members and Board
advisors help them consider those needs and tensions. Councilmember Ohlson replied
Council and the City can do more than one thing at one time, but noted environmental
issues have a long history of support in Fort Collins. He stated there will always be
competing interests in desirable cities such as Fort Collins.
b. Council Priority Update: Our Climate Future
Honore Depew, Environmental Services Senior Environmental Manager, stated this item
is scheduled to go to a Council work session on May 13 th and is related to the Council
priority on best practices emphasizing electrification. Next steps will also include
updating and refreshing Our Climate Future as a framework and development of a more
strategic funding plan.
Depew outlined the components of the presentation: climate context, current efforts, and
bridging to the future. He outlined the visionary outcomes and goals that are part of Our
Climate Future, including carbon neutrality by 2050. He stated there are pathways
toward the 2030 goal of 100% renewable electricity and zero waste, but it will take all
available strategies to get there.
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Depew discussed the current community-wide greenhouse gas inventory. It was noted
that the dip in emissions in 2011 was due to it being a very wet year which resulted in
extra hydropower. Additionally, the changes between 2019 and 2020 were due to a new
wind project in Wyoming, and in 2025 and 2026, the Black Hollow solar project will be
put online.
Pereria asked about the definition of regional mix. Brian Tholl, Energy Services Director
and Energy Board liaison, replied the regional mix accounts for purchases from the
wholesale market.
Pereria asked about the step changes in the 2025-2027 time frame. Tholl replied those
changes are accounted for by some construction projects and some agreement work.
Depew discussed the specific efforts around the elements of electrification that were
identified at the start of the Council term. He commented the different levers that local
government has to affect the way people exist in the community: economics, regulations,
infrastructure, and behaviors. He also noted electrification has been broken down into
the buckets of buildings, vehicles, and small engines. Additionally, Depew noted the
number one policy tool in terms of being able to move the needle around e missions from
building energy use is building performance standards. Depew also noted the utility rate
structure helps support over $4 million of direct incentives for efficiency and
electrification projects across the community.
In terms of next steps, Depew highlighted the City organization leading by example in
terms of building performance standards, increasing the number of vehicle charging
stations with a federal grant, and coordination across City departments for conversion of
small engine equipment to electric. He also commented on the importance of looking for
approaches and solutions that can address multiple community concerns.
Depew stated the first half of this year will focus on refreshing Our Climate Future ,
including a gaps analysis, surveys, interviews, focus groups, and assisting City
employees in utilizing Our Climate Future as a framework to help them do their work
better. That work will lead to the development of a guidebook for how the work can get
done over the two-, five-, or thirty-year horizon. He noted the dedicated tax will provide
approximately $180 million over the next twenty-five years and stated the goal of the
funding plan is to guide in the medium- and long-term and can also help bring a focus to
implementation in the short term.
Members discussed the presentation and Depew commented on naming the role of
Boards and Commissions in helping to develop the long -term strategy throughout the
second half of the year. Dowdy commented on highlighting the importance of
intersectionality of the actions.
c. Large Methane User Fee Proposal
Chair Metcalf noted this item is in response to a request from Pat Burger of the League
of Women Voters for the Board to recommend adoption of a large methane user fee. He
noted the Air Quality Advisory Board has submitted a memo to Council recommending
Council direct staff to examine such a fee and options for implementation. He also
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stated he drafted a similar memo should the Board want to send that on.
Depew provided the information provided by Ms. Burger, which is essentially a proposed
policy tool that would implement a fee on users that use more than 10,000 therms per
year. He stated that according to the Fort Collins Sustainability Group, about 700
businesses would be impacted. Depew also noted that any fee that is collected from a
user is required by law to go back to that user, in this case to help provide funding for
improvements.
Depew provided the information offered by Ms. Burger. Chair Metcalf provided the
memo he drafted. Members concurred it is in alignment with the goals of the Board to
direct staff to further consider the fee option.
LoTemplio made a motion, seconded by Dowdy, to have Chair Metcalf craft a
memo recommending Council direct staff to examine the large methane user fee
proposal. The motion was adopted unanimously.
7. OTHER BUSINESS/UPDATES
a. Board Member Reports
Chair Metcalf reported on being asked to represent the Board as a part of the
information committee for the civic assembly regarding the community engagement
process for the future decision making for the Hughes Stadium site. He noted the
property was dedicated as an open space with various possible uses per a community
ballot initiative that forced the City to purchase the property. He stated there have been
many proposed uses for the site, thus the civic assembly process.
Chair Metcalf outlined the role of the information committee in the public engagement
process and stated the civic assembly consists of 20 community members that were
selected by a democratic lottery to take part in a 4-day process and deliberation to make
a formal recommendation to Council regarding the future of the property.
Chair Metcalf stated his recommendation was to consider a mixed -use concept for the
site, including consideration of things like wildlife corridors, while also considering there
is a major need in the community for a mountain bike park. He discussed additional
information about how the democratic lottery process worked.
Chair Metcalf stated the Board will be discussing the Water Efficiency Plan and the
Natural Areas Strategic Framework staff will be requesting a formal recommendation
after providing an update memo for the May meeting. He also recommended a
discussion of the Board’s Work Plan , overall City review, and open meetings regulations
with new members.
Depew noted he will not be available to attend the June 18th meeting and asked if the
Board would like to change the date or have a substitute liaison. The Board opted to
have a substitute liaison.
b. Six Month Calendar Review
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8. ADJOURNMENT
• 8:08 pm
Minutes approved by a vote of the Board on X/XX/2025
Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 1
May 14, 2025
Natural Resources Advisory Board
STAFF
, Water Conservation Manager
SUBJECT
2025 Fort Collins Utilities Water Efficiency Plan
EXECUTIVE SUMMARY
to request a recommendation from the Natural Resources Advisory Board to
approval of the updated Water Efficiency Plan (WEP).
1. The WEP is a state-mandated plan that guides the work of the Water
City of Fort Collins organization as it
long-term water demand management through efficient and intentional water use. The
WEP proposes two new goals intended to lower water demand, minimize the frequency and
-term landscape resilience. These goals reflect
updated analysis of overall water demand, types of water use, and
efficiency savings. The updated WEP also identifies efficiency strategies, including voluntary
, directed at lowering residential and commercial water use,
opportunities to use less water at City facilities and improve landscape resilience
Agenda Item Summary provides an overview of Utilities’ water demands and a summary of
, including engagement tactics and results, an equity
and the efficiency strategy prioritization process.
draft WEP is posted at ourcity.fcgov.com/wep through June 23 for a 60-day public comment period.
and
(CWCB) will conduct a preliminary review. Staff intend to seek
SUMMARY OF REQUEST
Staff requests that the Natural Resources Advisory Board provide a recommendation to City Council to
adopt the updated Water Efficiency Plan.
BACKGROUND / DISCUSSION
1 Available online at fcgov.com/WEP.
Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 2
Water is an essential resource for all of us and the City and Utilities have a strong commitment to ensure
its efficient use as a key tool to minimize risk of future shortages2. Utilities applies a multi-faceted
approach to balance supply and demand to ensure a reliable water supply now and in the future,
including storage, a diverse portfolio of water rights, and efficiency. The efficiency goals and strategies
outlined in the WEP are critical tools to manage variable water demands for diverse water uses.
Historically, during average and wet precipitation years, Utilities’ water rights provide more water than
customers use. During extended hot and dry periods, current supplies may not meet demands while also
maintaining a stored reserve of water for emergencies. Furthermore, we anticipate a future where climate
impacts and population growth increase demands and put pressure on Utilities to restrict water use.
The WEP applies mainly to treated water use in Utilities’ water service area (Attachment 1), which
encompasses about 60% of the city geographic area and about 80% of the population. By updating our
water efficiency3 goals and strategies, we aim to continue long-term reductions in overall water demand
through a variety of methods available to manage water uses: behavioral, regulatory, infrastructure, and
economic. Successful demand management and increased landscape resiliency reduces risk and gives
customers the opportunity to benefit from less water use that leads to lower water bills. Developing more
equitable opportunities for program participation and support provides greater community outcomes while
improving overall resilience.
The 2025 WEP update will outline a new roadmap for increased water demand management that
considers equitable outcomes, integrates land use planning, and is based on quantitative analysis of
potential water savings from individual strategies. The WEP sets a 15-year planning horizon with 2040
goals. However, the CWCB requires WEP updates every seven years, which is an opportunity to
evaluate efficiency goals and strategies, demand and climate conditions, and community values.
Alignment and Connection to Overall Water Supply Planning
Water efficiency is a key component of the City’s One Water approach to collaborative and holistic water
resource management that promotes healthy watersheds, resilient communities, and water equity. This is
reflected in our mission statement, “We are a One Water Utility, providing exceptional water services for
our community through integrated, resilient, and equitable practices and systems.” The WEP update
aligns with community values and the following strategies outlined in City Plan and Our Climate Future:
City of Fort Collins’ Strategic Objective ENV 2: “Sustain the health of the Cache la Poudre River
and regional watersheds while delivering a resilient, economically responsible and high-quality water
supply for all Fort Collins residents.”
Our Climate Future: BIG MOVE 3 Climate Resilient Community: People, buildings, watersheds
and ecosystems are prepared for the threats of climate change.
• Expand and enhance water efficiency programs and incentives
• Integrate climate resilience considerations into city strategic and operational plans
The updated WEP also aligns with other City and state policies and plans including City Council Priority
7, the Water Supply and Demand Management Policy, and the Colorado Water Plan.
2 The Water Supply Vulnerability Study identified high water demands as a significant vulnerability, noting that it is
important to implement efficiency efforts and track demand trends.
3 The Utilities Water Conservation Division conducts water demand management to extend water supplies through
conservation and efficiency activities that reduce water demands and lower losses and inefficiencies. For simplicity
and consistency with CWCB guidance, the term “efficiency” is used throughout this document to refer to both
behavioral and technology-based water demand management; however, in practice, efficiency generally refers to
technology-based solutions (e.g., a high-efficiency showerhead), while conservation focuses on the water savings
through behavior (e.g., choosing to take a shorter shower).
Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 3
Collaboration with Other Water Providers
Certain areas within city limits are served by neighboring water providers (Attachment 1). The largest
adjacent water providers, East Larimer County and Fort Collins-Loveland Water Districts, have their own
WEPs 4 that describe goals and strategies for their service areas. Utilities staff met with both
organizations to discuss the WEP. Utilities values these partnerships and continues to look for ways to
collaborate through information-sharing, planning, messaging, and efficiency strategies.
Overview of Water Demand and Efficiency
Utilities currently provides water to approximately 32,900 residential and 2,900 commercial customer
accounts. The 2024 estimated residential population served was 139,300. On average, residential
customers use about 60% of the treated water delivered each year and commercial customers use about
40%. Commercial customers include large irrigation-only accounts and landscapes maintained by
homeowner associations. Each year, indoor water use accounts for about 57% of total treated water
used, while outdoor and seasonal uses are about 43% of the annual total on average. The 2023 Water
Conservation Annual Report (Attachment 3) summarizes treated water demands by sector and savings
from efficiency programs for that year.
Since 2000, population has grown by 28% while overall water demand for Utilities’ water service area has
decreased by 42% per capita. However, that rate has slowed in recent years. From 2020 to 2023,
average per-person water use was 135 gallons per capita per day (GPCD), 4% above the current 2015
WEP goal of 130 GPCD by 2030. Utilities met this goal once, during the high-precipitation year of 2023,
with 122 GPCD. In 2024, average per-person demand was 135 GPCD (draft value), similar to pre-2023
levels.
Utilities water efficiency programs lowered overall annual water demand by 155 million gallons (475 acre-
feet) on average from 2020 to 2024 (Figure 1). This is about 2.3% of Utilities’ average treated water
demand for the same five-year period (6.63 billion gallons or 20,350 acre-feet). A portion of estimated
annual savings will persist, such as savings from efficient toilet and landscape installations. Many other
efficiency strategies, such as educational campaigns and external influences, like weather, also generate
water savings but are challenging to quantify and not included in annual water savings totals.
4 The East Larimer County Water District WEP was updated in 2024 and is available online here:
elcowater.org/water-efficiency-plan. The Fort Collins-Loveland Water District WEP was updated in 2023 and is
available online here: fclwd.com/wp-content/uploads/2025/03/2023-FCLWD-Water-Efficiency-Plan-Update-Final-6-
4-2024.pdf
Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 4
Figure 1. Annual Utilities treated water demand and tracked Water Conservation Division program savings (excludes wholesale
and unique large contractual deliveries)
Overall water demand for the Utilities service area is expected to increase due to rising temperatures and
residential and commercial growth. Figure 2 presents historical residential and commercial customer
demand, including non-revenue losses from treatment and distribution, with a range of projected future
demands based on modeled growth and climate scenarios. Although a specific future demand cannot be
predicted with certainty, implementing active water efficiency strategies can lower the projected future
demands.
Figure 2. Historical and projected treated water demand for Utilities customers (excludes wholesale and unique large contractual
deliveries)
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Treated Water Demand Measured Efficiency Savings
______________________________________________________________________________________
* This chart shows the 2020 efficiency program savings of 130 MG. In that year, an additional 105 MG reduction
resulted from 30 days of mandatory restrictions due to an infrastructure project and wildfire.
(Draft)
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Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 5
WEP UPDATE PROCESS
The updated WEP includes elements required by Colorado’s Water Conservation Action and follows
CWCB guidance. The Water Conservation Division began work in January 2023 and targets completion
in summer 2025.
WEP Engagement
Community and staff input were vital to shaping the updated WEP and associated efficiency goals and
strategies. Our engagement strategy drew on the One Water integrated and collaborative planning
approach, with tactics to both broadly engage the whole community while focusing resources on
connecting with disproportionally impacted communities 5. It all culminated to develop inclusive and
community-driven water efficiency goals and strategies.
From 2023 through June 2024, engagement captured over 5,000 touchpoints via: a survey (1,319
responses), Our City web page, advertisements, in-person meetings hosted by compensated community
consultants, focus groups and meetings with targeted water users including City departments, HOAs, and
small businesses, meetings with community members who identify with one or more disproportionately
impacted groups, consultant-led one-on-one interviews, and input from the City’s Climate Equity
Committee6. Staff sought to reduce barriers to participation in engagement through collaborating with
community consultants, providing Spanish translations, hard copies of the survey, tabling in public
spaces, hosting meetings outside typical working hours, and providing food, childcare, and efficiency
giveaways at meetings.
The overarching community and staff engagement themes that guided efficiency goal and strategy
development were:
• Community values that inform efficiency goals
o Concerns about water scarcity and providing for future generations
o Willingness to take action
o A desire for all community members to take responsibility and action
o Support for landscape change away from turf grass
• Characteristics of efficiency strategies that are generally supported by the community
o Strategies should show impact by lowering demand at multiple levels: individuals, highest
users, and municipal
o Support upgrades to water-efficient fixtures for both indoor (e.g., plumbing) and outdoor
(e.g., irrigation) uses by making them free or inexpensive, and providing installation
support
o Reduce existing turf and encourage water-efficient landscapes
o Support customers with leak issues
o Use regulations to manage some water uses, including new growth, non-functional turf,
commercial users, and the highest water users
o Provide inexpensive actions that save money
o Provide more education for everyone, specifically:
Target HOAs, landscapers, homeowners, and disproportionately impacted
communities with resources specific to them
Remove barriers by coming to people in places and ways where they are already
gathering and comfortable
Successful implementation of water efficiency strategies will benefit from ongoing alignment with the
5 The WEP update identified disproportionately impacted community groups based on the 14 historically
underrepresented groups identified in Our Climate Future, as well as additional groups, like renters, who face many
barriers to both participating in and benefitting from water efficiency programs and strategies.
6 The Climate Equity Committee (CEC) was formed to support the equitable implementation of Our Climate Future.
Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 6
engagement themes and from maintaining the community and staff relationships that were fostered
during WEP engagement. This will facilitate water efficiency understanding and opportunities between
Utilities and our community, especially City departments and disproportionately impacted community
members.
Equity Evaluation
Equity is integrated into the WEP update process, through (1) the engagement activities described
above, (2) selection of efficiency strategies, and (3) implementation of efficiency strategies.
Consultants developed a custom equity evaluation process focused on water uses and efficiency and
refined it based on input from one-on-one community interviews, WEP engagement, the Climate Equity
Committee, and the City’s Equity Office. The two-step equity evaluation process involves first examining
each current and potential efficiency strategy for barriers to participation, burdens of compliance, or
negative unintended consequences. In the second step, each potential strategy was evaluated through a
series of questions designed to identify opportunities to increase equitable outcomes strategies; those
that are likely to support positive equitable outcomes were elevated as higher priority for implementation.
The equity evaluation tool is designed for ongoing use, including before, during or after a water efficiency
activity is in place. Staff will continue to apply the equity evaluation following WEP adoption during
strategy planning and implementation. Staff are also considering how to incorporate the efficiency
evaluation into annual project planning and reviews to continue efforts to improve access, participation,
and efficiency benefits across our water service area.
Water Demand and Savings Analysis
The WEP update involves estimating potential water savings associated with efficiency strategies and
evaluation of their impact on overall demand. Utilities’ future water demands are largely dependent on
population change and growth patterns, the rate of commercial and industrial development, and climate
influences. System losses from treatment and distribution also influence overall demand. A range of
projected future demands based on possible growth and climate scenarios is shown above in Figure 2.
Utilities worked with consultants to develop a customized model, called the Water Efficiency Tool (WET),
to evaluate the complex interactions between climate impacts, growth and estimated water savings. This
tool helps us estimate the effectiveness of various strategies to achieve goals.7
Water savings potential was estimated for efficiency strategies using WET results, paired with historical
program participation data and estimates from industry resources like the Colorado WaterWise Best
Practices Guidebook8. Staff conducted a preliminary analysis of savings estimates and believe Goal 1 is
achievable. Additional modeling analysis will further refine estimations and strategy implementation over
time. In addition to measurable savings from efficiency strategies, Utilities might experience further
demand reduction driven by educational programs, passive savings related to potential technological
efficiency improvements, or water rate changes.
Efficiency Strategy Selection
Utilities’ Water Conservation Division already has a robust portfolio of water efficiency programs with
activities that touch on many different water uses and affect the entire service area. The Water
Conservation Division aims to continue to build on effective existing programs, incentives, and policies,
as well as develop new strategies for efficiency. Staff evaluated current and potential new efficiency
strategies using several criteria, including water savings, cost, ease of implementation, community
acceptance, customer reach, and co-benefits such as equitable and environmental outcomes.
A set of strategies associated with lowering the City’s water uses and advancing efficiency and resilience
on City-owned landscapes was developed through collaborative meetings and engagement with cross-
7 The WET was developed specifically to evaluate how water conservation strategies impact residential and
commercial customer demands in a variety of scenarios through 2040.
8 Available online at: indd.adobe.com/view/a66fdb02-50c6-4ec3-8fea-4db473212faf.
Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 7
departmental staff, and by identifying efficiency and resilience actions that align with their existing plans,
policies, practices, and available funding.
The efficiency strategies prioritized in the 2025 WEP update fall within the following general approaches
to lowering water use:
• Behavioral (e.g., education, technical assistance, voluntary actions)
• Regulatory (e.g., water restrictions, policies, land use and plumbing code changes)
• Economic (e.g., incentives, utility rate structure, development fees)
• Infrastructure (e.g., metering, leak detection, maintenance, graywater)
Integration of Water and Land Use Planning
The state mandate requires a WEP to evaluate water demand best management practices that may be
implemented through land use planning efforts. In planning for future scenarios, it is critical to consider
the relationship between land use and water efficiency, so we may better manage the risk of future water
shortages. Integrated water and land use planning also supports our community’s economy and values,
which include social and ecological health. Looking ahead, it is anticipated that Utilities’ water service
area will reach build-out near 2040, while adjacent areas will continue to develop. Changes in housing
density, landscapes, and conversion of commercial spaces to mixed use or multi-unit residential are all
variables that could influence future water demands but are hard to predict.
Planning, Development, and Transportation (PDT) and Utilities have prioritized the integration of water
and land use through strategies primarily focused on collaborative planning and actions. Current
examples include cross-departmental participation in Sonoran Institute’s Growing Water Smart
workshops, water supply requirements for new water service based on property and landscape features,
and incorporating landscape, irrigation, and soil ordinances into the City’s land use codes.
In addition to the specific strategies identified in the WEP, Water Conservation Division staff will continue
supporting updates to Streetscape Standards and Land Use and Building Codes when they align with
new state regulations, such as Senate Bill 24-005 and House Bill 25-1113 (which limit high-water-use
turf).
EFFICIENCY GOALS AND STRATEGIES
The WEP presents two long-term goals focused on decreasing treated water demand to minimize the
risk of water shortage and building landscape resilience to benefit the community through landscapes
that remain healthy with efficient water use and under a variety of climate conditions.
Goal 1: Reach 4% annual reduction in water demand by 2040 to reduce risk of shortages.
The WEP will set an overall water efficiency goal that applies to all treated indoor and outdoor water uses
within Utilities’ water service area, including residential, commercial, and City water use. The objectives
of this overall goal are to gradually lower demand to minimize the frequency and magnitude of shortages,
expand access to efficiency opportunities, lead by example as a City organization, and offset increasing
demands driven by climate change. Staff anticipate this amount of savings could offset increasing
demands driven by a temperature increase of about 1°F between now and 2040. Goal 1 incorporates
three specific targets:
• Target 1.1: By 2040, lower overall annual treated water demand by 320 million gallons
(MG), or 980 acre-feet (AF) below projected demand
o Every year, take actions to keep total treated water demand lower than it is projected to be
without active efficiency strategies, ramping up to being 4% lower than projected by 2040.
Looking ahead to 2040, a 4% reduction would mean that actual demand was about 320
million gallons (MG), or 980 acre-feet (AF), lower than projected for the year.
Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 8
o Interim reduction targets will gradually ramp up annual savings between now and 2040, as
shown on Figure 1:
- By 2030: 3% reduction, estimated at 210 MG (640 AF) below projected water
demand
- By 2035: 3.5% reduction, estimated at 260 MG (800 AF) below projected water
demand
- By 2040: 4% reduction, estimated at 320 MG (980 AF) below projected water
demand
o Reductions in Utilities’ overall treated water demand will be tracked to monitor progress
toward this target.
• Target 1.2: Double the volume of savings from efficiency strategies by 2040, relative to
2020-2024 average performance
o To reach Target 1.1, the Water Conservation Division will increase program offerings and
participation to increase savings over the current annual average of 155 MG below
projected annual water demand. Quantifiable treated water savings from efficiency
strategies that serve customers, including City water accounts, will count toward this
target.
• Target 1.3: Lower treated water use at City properties by a total cumulative volume of 5
MG by 2040
o This target will achieve average annual savings of 360,000 gallons per year for City
properties, adding up to 5 MG of total water savings from 2026-2040.
o This savings is expected to come from a variety of projects lowering indoor and outdoor
treated water uses at City buildings and properties. Strategies with ongoing year-after-
year savings, such as plumbing or turf replacement, will be prioritized.
Progress toward Goal 1 will be evaluated based on tracking treated water demand (overall and by
customer sector, including City properties), Water Conservation Division program participation and
quantifiable savings, projects and water savings at City properties, and distribution system losses.
Figure 3. WEP Goal 1 interim targets and final 2040 goal. Figure note: Historical water demands and projections include
customer demands and non-revenue losses, and exclude wholesale and contractual obligations.
3%
3.5%
4%
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attainment
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Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 9
Goal 2: Improve water efficiency and build resilience on City-owned landscapes, to benefit the
community and environment.
For the first time, the WEP will set a goal directed at the City’s outdoor water use, which encompasses
both treated and raw water and properties both inside and outside of Utilities’ water service area.
Community feedback shows a widespread desire for the City to take responsibility and action related to
efficient water use. Beneficial outcomes for actions on City-owned landscapes include contributing to the
overall water efficiency (Goal 1) by lowering municipal demands, building resilience in our public
landscapes to prepare for a hotter future, prioritizing water use for spaces that most benefit the
community, and creating attractive, highly-visible projects that inspire water-saving actions by individuals
and businesses in our community. Goal 2 incorporates one specific target:
Target 2.1: The City will implement at least 1 new water-saving project in each 2-year
municipal budget cycle, for at least 7 new projects on City landscapes by 2040.
o Projects that lower treated or raw water use and/or build landscape resilience on City-owned
properties within the Fort Collins growth management area will count toward this target; this
approach reflects the City’s intention to lead by example and benefit the entire community
regardless of water source or provider. o Landscape projects that lower treated water use on City-owned properties that are within
Utilities water service area will also count toward Goal 1 targets.
Progress toward Goal 2 will be evaluated based on the number of projects, associated water savings,
and total project area completed each year. Project examples are presented in Table 1.
The next WEP update is expected in 2032. This provides an opportunity to evaluate and update goals
and strategies based on changing conditions.
Efficiency Strategies to Meet Goals
Efficiency strategies managed or supported by the Water Conservation Division include a wide variety of
programs and policies aimed to lower overall water demand through more efficient water use, build
resilience, and increase community awareness. Strategies can impact the entire community and we have
selected a set of strategies that not only align with feedback from engagement but also target cost-
effective water savings. The portfolio of water efficiency strategies is diversified to collectively meet the
goals and to support objectives such as: provide opportunities for participation and potential water bill
savings for all customers, including disproportionately impacted groups and those who have had low
historical participation rates; provide customized strategies to meet high-use and unique customer sector
needs; continue doing what works well and what customers like; and lead by example through managing
water use at City properties. Strategies are intended to be implemented, tracked, and refined over time.
This cultivates and supports a water efficient, adaptive, and knowledgeable customer base through
education and cost-effective water efficiency programs while minimizing water shortage risk and
supporting the City’s Strategic Plan.
The portfolio of water efficiency strategies selected to lower treated water demand in support of Goal 1
are summarized below. New strategies are indicated with an asterisk (*). Once fully implemented, Utilities
estimates that these strategies will lower treated water demand by over 300 MG per year. Figure 4 shows
how the prioritized strategies work together to provide water savings through a variety of approaches.
Behavioral strategies
• Educational programs and events
• Xeriscape Demonstration Garden
• Efficiency equipment giveaways
• Irrigation system assessments
• Indoor assessments and direct
installation
• Saving water hotline to report water
waste
• Customized water use reports
• Customized residential water budgets
Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 10
• Water use estimator spreadsheet tool for
development concepts
• Waterwise landscape professionals
network and support
• High bill evaluations*
• Plumbing repair assistance*
• Wrap-around support for efficiency in
large turf areas*
• Design assistance and incentives for new
development and redevelopment*
• Rental tenant and owner outreach and
giveaways*
• Commercial water use benchmarking*
• Comprehensive conservation
communications plan*
Infrastructure-based strategies
• Advanced metering
• Customer data portal
• Leak alerts and high-use notifications
Economic strategies
• Indoor product rebates
• Irrigation equipment rebates
• Xeriscape landscape conversion rebates
and grants
• Custom rebates for commercial projects
• Conservation-oriented tiered/seasonal
rate structures
• Conservation-oriented water supply
requirement fee
• Commercial allotments and excess water
use surcharge
• On-bill financing for efficiency upgrades*
Regulatory strategies
• Wasting water ordinance
• Building codes and plumbing standards
• Landscape, irrigation, and soil codes
• Review of irrigation plans with
development review
• Parkway landscaping regulations
• Graywater reuse
• Water adequacy determination
• Restrictive covenants ordinance
• Water Shortage Action Plan
• Daily sprinkler watering window*
• Examine existing land use regulations for
barriers or conflicts to water efficiency*
Strategies focused on lowering City treated water use and building landscape resilience
• System water loss audits
• Distribution line repair/replacement
• Efficiency incorporated in plans, policies,
and best practices
• Irrigation application rates based on
water need and system audits
• City landscape designs follow xeriscape
principles and irrigation best practices
• Prioritize raw water sources for irrigation
to lower treatment costs
• Track water use data for City buildings
and properties
• Prioritize dedicated irrigation to trees
• Water Conservation Division provides
technical and financial support for City
efficiency and resiliency projects*
• Establish regular contact between PDT
and water providers*
• Support One Water efforts and integrated
demand management*
• Use City properties to pilot efficiency
activities (e.g., commercial use
benchmarking)*
• Increase pace of plumbing retrofits in City
buildings*
• Irrigation and landscape efficiency
projects on City-owned properties*
• Increase pace of distribution line
replacement/repair*
Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 11
Figure 4. Distribution of water efficiency strategies
ADDITIONAL INFORMATION ABOUT CITY STRATEGIES TO MEET WEP GOALS 1 AND 2
Through collaborative cross-departmental meetings, staff identified strategies to lower treated water
demand and build landscape resilience on City properties and infrastructure. Many of the strategies align
with planned or ongoing work. In addition, there are new and existing funding opportunities for projects
including the 2050 tax, about $50,000 from Water Conservation’s ongoing budget (limited to use on
treated water in Utilities service area), and external grants. (Grants offered by the Colorado Water
Conservation Board are regularly available and are not impacted by federal decisions.) Examples of a
variety of strategies, both large and small, to lower City water use and build resilience on City landscapes
are shown in the following table. (Note that some of the strategies listed below are planned projects,
while others are areas of opportunity that will be pursued. Additionally, this is not a comprehensive list
and additional opportunities will continue to be evaluated through cross-departmental collaboration.):
City Project
Example Potential for 1
year of
Range Sources
Landings Park
irrigation and
turf
replacement
outdoor treated water use
and build landscape
resilience through irrigation
system efficiency upgrades
and converting turf to low-
water landscape.
Landings Park requires
over 3.5 MGY of treated
water to irrigate 309,000
square feet (7.1 acres). The
2019 Parks Irrigation
Master Plan identified
Landings Park as a high
priority for infrastructure
gallons
community
outreach: $65,000
(General Fund
allocation in 2024)
Installation
anticipated to range
from $800,000- $1
million
•
Conservation
funds allocated
to City projects:
up to $50,000
annually
• Nature in the
City grants
• Municipal
Innovation Fund:
up to $30,000
• General Fund
• 2050 tax
• External grants
demonstration
garden at the
Farm at Lee
landscape resilience
through demonstrating use
of native and xeric plants
resilience
project cost
typically range from
$5,000- >$50,000
•
City grants
• Water
Conservation
Strategy Distribution by Customer Strategy Distribution by Approach Potential Annual Water Savings based
on Current Uses and Climate
Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 12
scope and scale up to $50,000
replacement
near parking
lots
outdoor treated water use
and build landscape
resilience in a highly visible
location, and adjacent to
the Xeriscape
Demonstration Gardens,
through irrigation system
efficiency upgrades and
converting 7,500 sq. ft. of
turf to low-water landscape.
gallons approach:
Installation
$23,000; annual
maintenance
$1,700
Contractor-based
approach:
Installation $40,000
– 80,000; annual
maintenance
•
Conservation
funds allocated
to City projects:
up to $50,000
annually
• Nature in the
City grants
• Municipal
Innovation Fund:
up to $30,000
• External grants
replacements
in City
buildings
indoor treated water use by
replacing less-efficient
toilets and urinals with
modern, high-efficiency
units.
•
Conservation
funds allocated
to City projects:
up to $50,000
annually
• Water
Conservation
rebates: o Toilets: up to
$100 per
toilet
o Custom:
$1,000-
25,000
• Municipal
Innovation Fund:
up to $30,000
•
repair and
replacement
current pace of line repair
and replacement to lower
distribution system water
losses and main line
breaks.
- Current water line
replacement rate is
about 0.3%, or 2.5
linear miles, per year.
Goal is 1% (5 linear
miles).
- Water leaks from the
Utilities distribution
system exceed 80
MGY, based on water
1,400,000
gallons
$5,000,000 (Budget
allocation for 2025
for ongoing asset
management)
•
Improvement
Project funds
irrigation tree health and canopy by
installing dedicated
irrigation to trees that does
not depend on overhead
resilience
For some
projects, water
$50,000 per project
(cost varies based
on location and
size)
•
Conservation
funds allocated
to City projects:
up to $50,000
Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 13
trees can be watered during
shortages, even if
restrictions limit turf
irrigation.
because drip
systems direct
irrigation to tree
root zones and
minimize water
•
IMPLEMENTATION AND COST
The portfolio of strategies proposed in the WEP was holistically evaluated and includes continuation of
some current actions as well as new strategies. Beginning in 2026 and continuing through the seven-year
WEP renewal cycle, staff anticipate gradually implementing strategies, developing each one followed by
the applicable processes of review, community input, approval and adoption, and/or funding proposals.
By adopting the WEP, City Council is not authorizing the listed strategies to become policy or to
appropriate funds.
Based on strategy analysis, Utilities anticipates achieving WEP goals with limited need for new funding
sources or future budget enhancements. For Goal 1 (overall water savings) staff identified opportunities
to reallocate our budget, to more effectively use our resources (shifting our funding to different
strategies), implementing low-cost opportunities with strategic partnerships, and using third-party support.
For Goal 2 (City landscape resilience), many of the strategies align with planned or ongoing work. In
addition, there are also new funding opportunities for landscape projects including the City’s 2050 tax,
Water Conservation’s ongoing budget, and external grants not impacted by federal funding decisions.
New or updated policies often come with added costs—both for the community and for developers.
Throughout this process, and with guidance from community input, a core principle has been to carefully
evaluate each goal and strategy with cost impacts in mind. Our aim is to avoid unintentionally burdening
affordable housing or development with new requirements, particularly when it comes to efficiency
standards. Some analyses have even shown that certain measures, like water-wise landscaping, can
help reduce overall development costs. Other updates, such as plumbing efficiency improvements, have
demonstrated little to no cost impact—and in some cases, potential savings. That said, we recognize that
some strategies may still result in added costs. This work was developed with that possibility in mind, and
we remain committed to identifying any cost impacts and finding solutions to minimize them wherever
possible.
It is important to also consider the potential future costs resulting from inaction now. Climate impacts are
estimated to increase costs in several ways. Insufficient water demand management now could impact
the City by requiring more water storage or water purchases. City properties, including critically important
elements such as trees, can be damaged due to water restrictions from more frequent and severe water
shortages. Customers could be impacted by higher fees and rates and loss of landscaping, as well as
water restrictions that can cause economic impacts to businesses.
NEXT STEPS
Anticipated next steps:
• April 24-June 23: 60-day public comment period, CWCB’s review, seek Board and Commissions’
recommendations
• Q2 2025: Prepare final WEP
• Q3 2025: Seek City Council approval via resolution, then submit to CWCB
Planning and Zoning Commission Agenda Item Summary – City of Fort Collins Page 14
• 2026-2032: Implement prioritized water efficiency strategies, track progress toward goals
• 2032: Next state required WEP update submittal to CWCB
ATTACHMENTS
1. Map of Fort Collins Utilities water service area
2. Presentation
3. 2023 Water Conservation Annual Report
4. 2024 Water Efficiency Plan (Draft)
Headline Copy Goes Here
Water Conservation Specialist
Alice Conovitz
Fort Collins Utilities
Water Efficiency
Plan (WEP) Update
Natural Resources
Advisory Board
May 21, 2025
Headline Copy Goes HereSummary of Request
2
Staff requests that Natural Resources Advisory Board provide a
recommendation to City Council to adopt the updated Water
Efficiency Plan.
Headline Copy Goes HereWEP Purpose and Extent
3
Utilities Water Profile
•6,032,000,000 gallons (18,500 acre-feet) annual
treated water use
•57% indoor, 43% outdoor
•60% residential, 40% commercial
Why a WEP?
•Guide water use and efficiency
•Set goals
•2015 goal: 130 GPCD by 2030
•Prioritize strategies: programs, incentives, policies
•Minimize risk of water shortage
•Meet state requirements
Fort Collins Utilities
~ 139,000 residents
Headline Copy Goes HerePreparing for Our Uncertain Water Future
4
•Growth and climate drive potential
for more water shortages
•Water efficiency:
•Lowers annual demand by about
2% (155,000,000 gal.)
•Builds resilience, prepares
community to act
•Minimizes increases to utility and
customer costs
•Storage, water rights portfolio, and
land use planning also critical
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Fort Collins Utilities Treated Water Demand
(Actual & Projected)
20-yr
average
Headline Copy Goes Here
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WEP Update Inputs
WEP goals and strategies
Broad community
City staff
Equity-priority community members
Future water risksWater savings
Resources, timelines, feasibility
Equitable outcomes
State
requirements
City leadership,
boards,
commissions
Experience,
best practices
Headline Copy Goes Here
6
WEP Update Inputs
WEP goals and strategies
Broad community
City staff
Disproportionately impacted community members
Future water risksWater savings
Resources, timelines, feasibility
Equitable outcomes
State
requirements
City leadership,
boards,
commissions
Experience,
best practices
Headline Copy Goes Here
7
WEP Update Inputs
WEP goals and strategies
Broad community
City staff
Disproportionately impacted community members
Future water risksWater savings
Resources, timelines, feasibility
Equitable outcomes
State
requirements
City leadership,
boards,
commissions
Experience,
best practices
Headline Copy Goes HereEfficiency Goals to Lower Risk and Build Resilience
8
Concerns about water scarcity and
providing for future generations
Willingness to take action
Headline Copy Goes HereEfficiency Goals to Lower Risk and Build Resilience
9
Concerns about water scarcity and
providing for future generations
Willingness to take action
Goal 1: Reach 4% annual reduction in
water demand by 2040 to reduce risk of
shortages
→Target 1.1: Lower overall annual treated water
demand by 320,000,000 gal. below projected
→Target 1.2: Double volume of savings from
efficiency strategies by 2040
→Target 1.3: Lower treated water use at City
properties by a total cumulative volume of
5,000,000 gal. by 2040
Headline Copy Goes HereEfficiency Goals to Lower Risk and Build Resilience
10
Concerns about water scarcity and
providing for future generations
Willingness to take action
Want everyone to take responsibility
Desire for landscape change away from
turf grass
Headline Copy Goes HereEfficiency Goals to Lower Risk and Build Resilience
11
Concerns about water scarcity and
providing for future generations
Willingness to take action
Want everyone to take responsibility
Desire for landscape change away from
turf grass
Goal 2: Improve water efficiency and
build resilience on City-owned
landscapes, to benefit the community
and environment
→Target 2.1: The City will implement at least 1
new water-saving project in each 2-year
municipal budget cycle, for at least 7 new
projects on City landscapes by 2040.
Headline Copy Goes HereWater Conservation Areas of Impact
12
Strategies impact our whole
community
•Provide opportunities for all
•Customize to meet customer sector
needs
•Lead by example
•Continue doing what works well
Communications and marketing drive success
Strategies are areas of opportunity
•Follow normal processes for
approval post-WEP
•Track, report, and adjust over time
to attain goals
Headline Copy Goes HereStrategy Prioritization for WEP
13
•Prioritized based on water savings, cost, feasibility, equitable outcomes, acceptance
•Engagement input:
•Balance incentives and regulations
•Minimize barriers
•City already does a lot, community doesn’t know
Strategy Distribution by Customer Strategy Distribution by Approach Potential Annual Water Savings
(Water savings based on current population and climate.)
Headline Copy Goes Here
Headline Copy Goes Here
Objectives
•Gradually lower demand to minimize shortage risk
•Offset demand increases due to rising temperature
•Reduce barriers, expand access to opportunities
•Do our part and lower municipal water use
2040 Targets
•320 MG below annual projections for overall demand
•2x increase in Water Conservation Division savings
•5 MG cumulative reduction in City treated water use
Goal 1
15
Goal 1: Reach 4% Annual Reduction in Water Use by 2040
Headline Copy Goes HereGoal 1
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Target 1.1:
Lower
overall
annual
treated
water
demand by
320 MG
below
projected
Headline Copy Goes HereGoal 1
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3.0%3.5%4.0%
3.4%*2.3%2.5%
2.1%
2.5%
0
6,000
12,000
18,000
24,000
0
2,000
4,000
6,000
8,000
2020 2021 2022 2023 2024 2030 2035 2040
Measured Efficiency Savings
Targeted Efficiency Savings
Treated Water Demand
Projected Treated Water Demand (Moderate Growth and Climate Change)______________________________________________________________________________________________
* 2020 had 1.9% (130 MG) program savings and 1.5% (105 MG) shortage restrictions savings.
Benefits of Efficiency & Need for More
21
Historical: 2% (155 MG) avg.
savings
Headline Copy Goes Here
3.0%3.5%4.0%
3.4%*2.3%2.5%
2.1%
2.5%
0
6,000
12,000
18,000
24,000
0
2,000
4,000
6,000
8,000
2020 2021 2022 2023 2024 2030 2035 2040
Measured Efficiency Savings
Targeted Efficiency Savings
Treated Water Demand
Projected Treated Water Demand (Moderate Growth and Climate Change)______________________________________________________________________________________________
* 2020 had 1.9% (130 MG) program savings and 1.5% (105 MG) shortage restrictions savings.
Benefits of Efficiency & Need for More
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4% Goal Benefits
•320 MG is enough for
•3,400 single-family units
•230 office-type businesses
•Conservation program savings about
20x cheaper than new water rights
•Offsets demand increase driven by
rising temperatures
•Shortage preparedness
•Build informed, responsive
community
•Now: 1-in-10 yr restrictions
•5°F warmer by 2070: 4x
more months under
restrictionsHistorical: 2% (155 MG) avg.
savings
Moderate future growth +
climate scenario
Goal 1: 4% (320 MG) avg.
savings
Headline Copy Goes HereStrategies Supporting Goal 1 (Examples)
23
Reach 4% annual
reduction in
water demand by
2040 to reduce
risk of shortages
New Strategy Opportunities
•HOA & large turf transformation
•Rental incentives, education
•Land use policies & developer incentives
•Daytime watering limits
•Plumbing repair assistance
•Grants
•Commercial water use benchmarking
•City facility plumbing retrofits
•City landscape changes
Keep Doing Strategies that Work
•Advanced metering
•Xeriscape programs
•System water loss tracking/repair
Distribution
System
Loss City Account
Demand
Customer
Demand,
Indoor
Customer
Demand,
Outdoor
Headline Copy Goes Here
Headline Copy Goes HereGoal 2: Improve Water Efficiency and Build Resilience on City-owned Landscapes
25
Objectives
•Benefit the community and environment through
investment in public spaces
•Update aging landscapes to modern efficiency
•Prioritize water use on multi-benefit landscapes like
trees and sports fields
Target
•Complete 7 City landscape projects by 2040
•All City landscapes, including raw water and other
service areas
Headline Copy Goes HereStrategies Supporting Goal 2 (Examples)
26
Improve water
efficiency and
build resilience
on City-owned
landscapes, to
benefit the
community and
environment
Areas of Opportunity
•Irrigation upgrades and/or turf reduction
•Landings Park
•Nature in the City projects
•Water Treatment Facility
•City Hall
•Increase dedicated tree irrigation
•Align planning & communications across departments
Existing Best Practices
•Water use tracking
•Irrigate based on plant need, audits, smart controllers
•Smart new design with xeriscape principles
•Prioritize raw water use
Headline Copy Goes HereRecap: WEP Goals
Goal 2: Improve water
efficiency and build
resilience on City-owned
landscapes
Objectives: Build landscape
resilience & save water
•Encompasses:
•Treated or raw water
•All City properties in
GMA
Goal 1: Reach 4% annual
reduction in water demand by
2040 to reduce risk of
shortages
Objectives: Lowering overall
demand and shortage risk
•Encompasses:
•Treated water
•Utilities’ service area
•Residential &
commercial customers
•City properties in
Utilities’ service area
Fort Collins Utilities
(water)
Headline Copy Goes HereWEP Next Steps
CWCB pre-review (30 days)
Public comment (through 6/23)
5/15–Planning & Zoning Comm.
5/21–Natural Resources Advisory Board
5/28 –Parks & Recreation Board
April – May
Water Commission
Evaluate feedback
Finalize WEP
June – August
Seek Council approval
September
28
Headline Copy Goes HereSummary of Request
29
Staff requests that Natural Resources Advisory Board provide a
recommendation to City Council to adopt the updated Water
Efficiency Plan.
Headline Copy Goes Here Thank you!
3030
Headline Copy Goes Here
Headline Copy Goes Here
32
Regulatory Strategies
Existing:
•Wasting water ordinance
•Building codes and plumbing standards
•Landscape, irrigation, and soil codes
•Review of irrigation plans with development review
•Graywater reuse
•Water adequacy determination
•Restrictive covenants ordinance
•Water Shortage Action Plan
Headline Copy Goes Here
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Regulatory Strategies – Cost Impacts for Development
NEW Description Cost to
Development
Other impacts
Daily sprinkler watering
window
Limits turf irrigation to
6pm-10am
None Must schedule and
monitor irrigation
system
Examine existing land
use regulations for
barriers or conflicts to
water efficiency
Code evaluation to
determine
opportunities to
improve efficiency
None – study
will make
recommendati
ons
Need to consider
conflicts and
community values
Parkway landscaping
regulations
Limits non-functional
turf in right of ways.
Required by SB 24-
005
Evaluating,
but CO
requirement
Ongoing
maintenance
Single Family turf
limitations
Limits non-functional
turf at homes.
Required by HB 25-
1113
Evaluating,
but CO
requirement
Ongoing
maintenance
Headline Copy Goes Here
34
Economic Strategies – Incentives
Existing:
•Indoor product rebates
•Irrigation equipment rebates
•Xeriscape landscape conversion rebates and grants
•Custom rebates for commercial projects
•Conservation-oriented tiered/seasonal rate structures
•Conservation-oriented water supply requirement fee
•Commercial allotments and excess water use surcharge
Headline Copy Goes Here
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Economic Strategies – Incentives
NEW Description Cost to Development Other Impacts
Design Assistance for
new and redevelopment
Voluntary program to building in
above code efficiency in exchange
for funding
Cost savings or neutral Less water bills once
occupied.
Improved collaboration
with PDT
More closely collaborate during
development review and long-
range development planning
None More integrated water
resource planning at
various scales
On-bill financing for
efficiency upgrades
Voluntary low interest loans paid
back on water bills for efficiency
upgrades in existing development
Depends on efficiency
upgrades (voluntary)
None
Headline Copy Goes HereCost Impact Evaluation for 2025-2040
36
•Water Conservation’s ongoing budget (~$1.5M)
•External grants
•Policy that impacts behavior
•BFO –two future enhancements
Goal 1 Lower annual water demand by 4% by 2040
$1.5-1.75M/year
•Actions already occurring
•Grants (internal and external)
•Ongoing budgets
•2050 Tax
Goal 2 Build landscape resilience
$50K/year
•City – Water purchases, regional competition, landscape damage, implementing restrictions
•Customer –Fees & rates, private landscape damage, responding to restrictions
Cost of Inaction
Headline Copy Goes HereDemand Projections (Draft)
37
What drives demand increases?
Status quo example
•~ 7 – 12% demand increase by 2040
•Build out remaining greenspace with current zoning
•Key uncertainty: commercial growth
•No climate changes
Warming examples
•Additional ~ 1% - 3% demand increase by 2040
•Status quo growth example + warmer temps
•Key uncertainties⎻commercial growth⎻How much warming and in what months?⎻How will precipitation change?
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(Includes system loss, excludes large contractual uses)
DRAFT
Headline Copy Goes HereWEP Engagement and Equity Approaches
38
Engagement
•Disproportionately impacted community members
•Broad engagement
•City staff following One Water collaborative approach
Outcomes
•5,000+ touchpoints
•Meetings, focus groups, community events, survey,
OurCity, ads
•Critical input from Community Consultants
•40+ hours connecting with staff
Equity
•Elevate needs and ideas
•Increase equitable outcomes from conservation strategies
•Build equity evaluation into annual reviews and plans
Headline Copy Goes HereWEP 2024 Community Engagement Takeaways
•Our collective impact should increase community resilience.
Pursue conservation strategies that:
•Impact our largest water users
•Impact City operations; show how the City saves water
•Everyone can participate in, even if only small water savings
•Increase access and decrease burden
•There is support for a mix of incentives and regulations
•Most people are willing to act
•Conserving water is everyone’s responsibility
•Be thoughtful who you regulate, and who you incentivize
•Make water conservation engaging, accessible, and meaningful
•Give people tools to understand their impact
•Engage with people where and how they are comfortable
•Offer flexible programs, processes
Headline Copy Goes HereWEP Staff Engagement Takeaways
•Staff do a lot to use water wisely
•Many agreed on the importance of:
•Water conservation for new builds
•Xeriscaping
•Indoor conservation opportunities
•Raw water benefits
•Challenges
•Public perception may not match City efforts
•Public landscapes need to be safe, durable, attractive
•Funding is needed to update older, water-hungry designs
•More info wanted: ⎻Public comments and appetite for xeric landscapes⎻Work/operations implications
Headline Copy Goes HereWater Use Priorities (2019 Feedback)
Priority
Rank Water Use Type Votes
1 Indoor Home 99%
2 Health and Safety 94%
3 Indoor Business 77%
4 Other Landscaped Areas (Non-turf)53%
5 Commercial/Public Recreation 40%
6 Turf Grass (Higher Water Use)14%
7 Personal/Private Outdoor Recreation 9%
Higher Priority
Lower Priority
Headline Copy Goes Here
42
WEP Survey Results
Headline Copy Goes Here
43
WEP Survey Results
Headline Copy Goes Here
44
WEP Survey Results
Headline Copy Goes HerePast WEP Goals: Gallons per Capita per Day
45
GPCD decreasing
•9% GPCD decrease since 2010
•45% decrease since 2000
•2015 WEP goal: 130 GPCD by 2030
•Met the goal in 2023 with help from
record precipitation
GPCD metric challenges
•Can’t compare across providers
•Calculation method varies
•Customer sector mix varies
•Confusing to customers
•
use
•Incorporates residential and
commercial
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Headline Copy Goes Here
46Average Annual Customer Water Demand (2019 – 2023)
Headline Copy Goes HereCity Treated Water Use Overview (FC Utilities City Accounts)
6
City accounts use ~100,000,000 gallons each year,
1.8% of all Utilities treated water…
1.9%
1.7%1.9%
1.7%1.7%1.8%1.9%
1.6%
1.8%
0
20,000,000
40,000,000
60,000,000
80,000,000
100,000,000
120,000,000
2016 2017 2018 2019 2020 2021 2022 2023 2024
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*Percentage is City's portion of all customer water use Distribution
System
Loss City Account
Demand
Customer
Demand,
Indoor
Customer
Demand,
Outdoor
…we are also responsible for
•system losses, ~ 168,000,000 gallons
•
Headline Copy Goes HereTypes of City Projects that Support WEP Goals
48
City Project Examples
Water Savings
Potential (1 year)WEP Goal
Landings Park
irrigation and turf
replacement
Planned project to lower outdoor treated water use and build landscape resilience through
irrigation system efficiency upgrades and converting turf to low-water landscape. Landings Park
requires over 3.5 MGY of treated water to irrigate 309,000 square feet (7.1 acres). The 2019
Parks Irrigation Master Plan identified Landings Park as a high priority for infrastructure
replacement.
~ 550,000 gallons Goal 1 & Goal 2!
Native plant
demonstration
Lee Martinez Park
Planned project to promote landscape resilience through demonstrating use of native and xeric
plants and alternative lawns.
Landscape resilience
(water savings sometimes
possible)
Goal 2
City Hall turf
replacement near
parking lots
Possible project to lower outdoor treated water use and build landscape resilience in a highly
efficiency upgrades and converting 7,500 sq. ft. of turf to low-water landscape.
.
~ 30,000 gallons Goal 1 and Goal 2
Dedicated tree
irrigation
Possible projects to support tree health and canopy by installing dedicated irrigation to trees that
does not depend on overhead irrigation of the surrounding turf grass. This ensures trees can be
watered during shortages, even if restrictions limit turf irrigation.
Landscape resilience
(water savings sometimes
possible)
Goal 2
Toilet replacements
in City buildings
Possible projects such as replacing 35 less-efficient toilets with modern, high-efficiency units. ~ 400,000 gallons Goal 2
Water main line
repair and
replacement
Increase pace of current actions related to water line repair and replacement to lower distribution
system water losses and main line breaks. Current water line replacement rate is about 0.3%, or
2.5 linear miles, per year. Goal is 1% (5 linear miles). Water leaks from the Utilities distribution
system exceed 80 MGY, based on water loss audits.
~ 700,000 - 1,400,000
gallons
Goal 1
Headline Copy Goes HereNeighboring Water Providers: FCLWD’s 2023 WEP
49
•2023 WEP goal: Lower water use by 9% (cumulative)
over the 10-year planning period, with specific customer
sector targets
•Expect demand to increase by almost 50% by 2033 due
to growth
•From 10,089 AF to 15,064 AF (3,290 MG – 4,910 MG)
• Heavily dependent on C-BT & NISP
•About 60% outdoor use
•Conservation activities expected to save up to 1,229
AF/yr (400 MG)
•12 activities identified in WEP
•Most similar to what we already do
•New ideas: hydrant flushing truck, SFR conservation
taps without potable irrigation
Headline Copy Goes HereNeighboring Water Providers: ELCO’s 2024 WEP
50
•2024 WEP goal: Achieve water savings goal of 172 AF/yr
(56 MG) in 2030 (relative to baseline projected demand)
•Population expected to triple by 2045, which will be ~
60% buildout
•Heavily dependent on C-BT
•43% outdoor use
•~20% of residential customers can access raw water
for irrigation
•Conservation activities targeting 172 AF/yr (56 MG)
savings by 2030
•8 activities identified in WEP
•Similar to what we already do
Fort Collins Utilities
ELCO
FCLWD
Headline Copy Goes Here
51
Water Provider Conservation Activities
Conservation Strategy / Activity FCLWD ELCO FC Utilities
1. Work more closely with planning X X X
2. Garden In A Box X X
3. Residential sprinkler assessments X X X
4. Smart irrigation controller rebates/discounts X X
5. Restrictions X X X
6. Wasting water/leaks prohibition X X
7. Property Manager and HOA irrigation
education/training
X X
8. Hydrant flushing filter truck X
9. Metering, Water Loss Control, Rates/Fees,
Education, *Graywater, Information, Etc.
X X X
X: indicates new activity
Headline Copy Goes Here
52
Current State: 2015 Goals and Opportunities
Areas of Opportunity
1.Leverage Advanced Meter Fort Collins data
and capabilities
2.Promote and support greater outdoor water
efficiency
3.Encourage greater integration of water
efficiency into land use planning and building
codes
4.Expand commercial and industrial sector
strategies
5.Increase community water literacy
2015 WEP goal:
130 gallons per capita per day by 2030
fcgov.com/WEP
TOTAL3.8
million gallons
RESIDENTIAL
RESIDENTIAL TOTAL
40
TOTAL2.6
million gallons
Shift Your Water: 2.7 MG
Landscape Conversions: 1.1 MG
Outdoor Water Use
Home Water Reports: 24 MG
Eciency Rebates: 2.2 MG
Continuous Consumption
(Leak) Notifications: 7.2 MG
Combined Water Use
Ecient Product Installations
(Larimer County): 2.6 MG
Indoor Water Use
TOTAL33.4
million gallons
COMMERCIAL
COMMERCIAL TOTAL
90
Outdoor Water Use
TOTAL7.4
million gallons
Indoor Water Use
Eciency Rebates: 0.5 MG
Ecient Product
Installations: 0.1 MG
TOTAL0.6
million gallons
Combined Water Use
Continuous Consumption
(Leak) Notifications: 81.8 MG
TOTAL81.8
million gallons
Allotment Management
Program: 1.6 MG
Landscape Conversions: 1.8 MG
Midstream
Irrigation Rebates: 4 MG
TOTAL ANNUALSAVINGS:130
million gallons
WATER CONSERVATION ANNUAL REPORT
Fort Collins Utilities has a strong commitment to ensuring the
efficient and responsible use of our natural resources. Our Water
Conservation Program started in 1977 and we continue to innovate
how we help the community use water wisely.
Gallons per capita per day (GPCD) is the total treated
water used by commercial and residential customers,
divided by the service area population (about 80%
of Fort Collins), divided by 365 days. GPCD helps
determine if conservation and efficiency efforts
and practices are impacting community water use,
irrespective of population growth. GPCD fluctuates
greatly with weather – hotter and drier months
during the irrigation season create higher water
demands for our community.
2023
Utilities
140,000
135,000
130,000
125,000
120,000
115,000
110,000
250
150
100
50
0
Community Gallons per Capita per Day (GPCD) & Population
20
0
1
20
0
2
20
0
3
20
0
4
20
0
5
20
0
6
20
0
7
20
0
8
20
0
9
20
1
0
20
1
1
20
1
2
20
1
3
20
1
4
20
1
5
20
1
6
20
1
7
20
1
8
20
1
9
20
2
0
20
2
1
20
2
2
20
2
3
122TOTAL
137,400
20
0
0
211TOTAL
118,300
page 1
WATER
CONSERVATION
AND EFFICIENCY
AT A GLANCE
GPCD is down 42%
since 2000.
Based on total water treated.
Total Community GPCD
Population
PROGRAMS AND SERVICESWATER
SAVINGS
Actions in 2023
resulted in
approximately
130 million
gallons (MG)
saved or 2%
of 2023 total
treated water.
LEARN MORE
Residential Programs and Rebates: fcgov.com/save-water
Commercial Programs and Rebates: fcgov.com/water-efficiency
1,684homes’
average annual
water use was saved
in 2023 based on
volume of single-
family home water
use (3-year average)
page 2
2023WATER CONSERVATION
ANNUAL REPORT
Another way to evaluate our
impact on water use within our
service area is estimated water
savings.
Estimated water savings only
include results from programs
and services that have
measurable water savings, a
large portion of which persist
for years to come. Many of the
services we provide can’t be
easily measured.
Compared to 3-year historical average (2020-2022),
residential water use was down 20% and commercial water
use was down 8%. This is largely due to a 123% increase in
precipitation during the irrigation season in 2023 compared
to prior years’ average.
Overall, Utilities treated 6.1 billion gallons of water
(including unmetered use and other water losses), which
33 27
50 65
86
133
185
131
160 173
130
0
20
40
60
80
100
120
140
160
180
200
2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023
50
150
250
350
450
550
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Residential Commercial
3 Ye
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3 Y
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Estimated Water Savings (MG)
Total Monthly Water Use (MG)
equals 122 gallons per person per day (GPCD). This is a
42% reduction in GPCD since 2000 and meets our goal
of reaching 130 GPCD by 2030. However, 2023’s record
rainfall and wet, cool irrigation season played a large role
and reduced total treated water use by about 13%. If we
receive less rain in summer of 2024, it is likely that GPCD
will increase.
Total accounts: 32,204
•28,872 single family & duplex accounts
•2,332 multi-family building accounts
Total water use: 2,910,000,000 gallons
Average use per customer class:
•SF/Duplex: 64,384 gal/yr
•MF: 423,305 gal/yr
(includes multiple units)
Total accounts: 2,818
•Includes commercial, irrigation, and
HOA customers
Total water use: 2,193,000,000 gallons
Average use per customer account:
778,380 gal/yr
RESIDENTIAL
COMMERICAL
Water use is constantly fluctuating – both our individual uses
and our community use. There are many factors that impact
how much water we use, but year-to-year fluctuations are
mostly attributed to weather. Long-term water reduction
trends generally result from efficient actions by water users.
When we have cooler and wetter weather, our water use
decreases, as seen in 2023. 2023’s record precipitation
during irrigation season is not likely to start a trend. Our
region is expected to continue warming and may receive less
precipitation over time due to climate change. Hotter and
drier weather makes water efficiency an even more critical
strategy to managing a reliable water supply.
•The Colorado Climate Center’s 2024 Climate Change in
Colorado reports a 2.3 degree F increase statewide since
1980 and estimates another 1-4 degree F increase by 2050.
Summer and fall are projected to warm slightly more than
winter and spring, extending the irrigation season into
the fall. The future of Colorado’s precipitation is much less
clear. Additional warming will drive greater evaporative
demand, which influences the amount of water needed by
plants to stay healthy. Therefore, warmer temperatures will
likely contribute to more frequent and severe droughts,
regardless of changes in precipitation.
•The 2019 Water Supply
Vulnerability Study
estimates climate impacts
will decrease water supplies
and increase water demands,
squeezing water resources
from both ends. This will
likely increase the need for
outdoor watering restrictions.
Community Gallons per Capita per Day (GPCD) & Precipitation (in)
WATER USE AND CLIMATE IMPACTS WATER CONSERVATION
ANNUAL REPORT
OTHER FACTORS THAT INFLUENCE WATER USE INCLUDE:
page 3
•Conservation: Actions such as taking shorter showers,
monitoring your outdoor water use, turning off the faucet
while brushing your teeth and other behaviors add up and
can make a collective difference.
•Efficient Fixtures/Appliance/Landscapes: Homes and
businesses that have water efficient appliances, fixtures,
irrigation, and technologies use less water every time
someone flushes, washes, showers, or waters their landscape.
•Leaks: The average household in the US wastes 10,000
gallons of water due to leaks every year, which is about 12% of
total average annual household water use. 10% of homes have
leaks that waste 90 gallons or
more per day.
•Population: More people means more water use. Total
residential and commercial water use all increase with a
growing population.
•Land Development Patterns and Urban Design: Less dense
developments with more landscaped areas require more
outdoor water use to maintain. Landscape types that are not
regionally adapted or native to our area, such as turf grasses
and others, require more water than nature provides.
2023WATER CONSERVATION
ANNUAL REPORT
OUTDOOR WATER
USE (COMMERCIAL
+ RESIDENTIAL) IS
35% OR 1.78 BG.
BG = Billion Gallons
SINGLE FAMILY &
DUPLEX OUTDOOR
0.74 BG
MULTI FAMILY INDOOR
0.84 BG
MULTI FAMILY OUTDOOR
0.15 BG
SINGLE FAMILY &
DUPLEX INDOOR
1.19 BG
COMMERCIAL
OUTDOOR
0.9 BG
COMMERCIAL
INDOOR
1.29 BG
RESIDENTIAL
INDOOR
2.03 BG
RESIDENTIAL
OUTDOOR
0.89 BG
211
199
183
154 146 155
171 161 153
135
146 141
166
142 139 141
157
141 143
131 138 139 139
122
0
5
10
15
20
25
30
25
75
125
175
225
20
0
0
20
0
1
20
0
2
20
0
3
20
0
4
20
0
5
20
0
6
20
0
7
20
0
8
20
0
9
20
1
0
20
1
1
20
1
2
20
1
3
20
1
4
20
1
5
20
1
6
20
1
7
20
1
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20
1
9
20
2
0
20
2
1
20
2
2
20
2
3
Community GPCD Precipitation
LEARN MORE
Residential Programs and Rebates: fcgov.com/save-water
Commercial Programs and Rebates: fcgov.com/water-efficiency
WATER CONSERVATION
ANNUAL REPORT2023 WATER CONSERVATION HIGHLIGHTS
23-25044
2023WATER CONSERVATION
ANNUAL REPORT
page 4
•Assisted Mobile Home Park Residents: Supported
Neighborhood Services’ Mobile Home Park DIY series to
educate residents on water and energy efficiency. Water
Conservation attended four sessions to support about 90
residents with indoor and outdoor water conservation via
free, efficient fixtures and promoting our programs and
resources.
•Provided free Certified Landscape and Irrigation Audit
training: Hosted a two-day Irrigation Association class,
taught by Water Conservation staff, where 23 participants
learned to analyze landscape water use and increase
irrigation efficiency.
•Sprinkler Checkup Program: Conducted 412 checkups
across Utilities, Fort Collins-Loveland, and East Larimer
County water districts. Four trained technicians assessed
over 2 million square feet of irrigated landscapes, inspected
over 11,000 sprinkler heads, and piloted our first Spanish-
language checkups and informational
materials. In 2024, Utilities will provide checkups through a
partnership with Resource Central, ensuring the program’s
continuity and allowing time for staff to explore future
improvements. fcgov.com/sprinklers
•Distributed Water-Wise Pre-Designed Plant Pallets:
Partnered with Nature in the City and Resource Central to
distribute $25 discounts on mostly native Garden in a Box
kits to 170 residential water customers and $100 discounts
on Garden in a Box kits to 25 Income-Qualified Assistance
Program customers and mobile home park residents.
fcgov.com/GIAB.
•Supported Affordable Housing: Partnered with an
affordable housing provider to install 144 high-efficiency
toilets. Provided a rebate to support the project which
otherwise would not have been financially feasible. This
upgrade is estimated to save about 250,000 gallons
annually. fcgov.com/water-efficiency.
2024 FOCUS AREAS
•Water Efficiency Plan: Updating the 2015 Water Efficiency
Plan, which guides how Utilities customers use water and
recommends strategies to help use less. The updated WEP
will set new water conservation goals, incorporate extensive
public engagement, integrate land use planning, and employ
numeric modeling and an equity analysis to help prioritize
future water conservation programs, policies, and incentives.
Learn more about the WEP update and provide feedback at
fcgov.com/2024WEP.
•Colorado River Impacts and Water Shortage: Utilities
staff monitors the Colorado River’s status and ongoing
discussions about water shortages impacting the seven
states under the Colorado River Compact. Utilities sources
about 60% of water distributed to customers from the
Colorado River-Big Thompson project, which is stored in
Horsetooth Reservoir and managed by Northern Water.
If there are reductions in water use required in Colorado,
Northern Water would determine if, when and how much
our Utilities supplies would be reduced. If needed, we will
respond to shortages using the Water Shortage Action
Plan. As of now, there is no indication from Northern Water
of the need for drought management action.
fcgov.com/WSAP
•Landscape and Irrigation Training and Education: Hosting
free monthly garden tours by foot and bike, partnering
with Natural Areas for a sustainable landscape series, and
offering a class on efficient home irrigation. Emphasizing
native plant landscaping education remains a priority due
to its drought resilience and support for biodiversity and
pollinators citywide. Utilities collaborates with numerous
community organizations (One Canopy, Front Range Wild
Ones, the CO Native Plant Society, People and Pollinators
Action Network, the League of Women Voters, Nature in
the City, USDA NRCS, Wildland Restoration Volunteers
and Larimer Conservation District) for seed and plant
swaps, while offering discounted education for landscape
professionals. Additionally, we’re teaming up with Northern
Water to provide irrigation trainings and a native grass
workshop. fcgov.com/xip-events
•Xeriscape Codes: Proposing new landscape standards
in Land Use Code for City Council’s consideration and
adoption. New standards would apply to new development
and significant redevelopment of commercial and multi-
family properties. The following standards are proposed:
•Limitations on the installation of high water use turf,
with some exceptions.
•Restriction of artificial turf.
•50% living plant coverage on the surface of
landscaped areas.
•Dedicated irrigation to trees to support tree health in
times of water restrictions.
fcgov.com/xsa
2025 Water Efficiency Plan
DRAFT April 2025
Water Efficiency Plan April 2025 | 2
Table of Contents
Table of Contents.......................................................................................................................... 2
List of Figures ............................................................................................................................... 6
List of Tables ................................................................................................................................. 7
Acronyms ....................................................................................................................................... 8
Acknowledgements .................................................................................................................... 10
Land ........................................................................................................................................... 10
Community ................................................................................................................................ 10
Staff and Consultants ................................................................................................................ 10
City of Fort Collins ................................................................................................................. 10
Technical Consultants ........................................................................................................... 10
Introduction ................................................................................................................................. 11
Water Conservation Goals ........................................................................................................ 11
Scope and Guiding Principles ................................................................................................... 14
1 Profile of Existing Water Supply ........................................................................................ 16
1.1 Overview of Existing Water Supply System ................................................................. 16
1.1.1 Raw Water Supply Yield ........................................................................................... 19
1.1.2 Reusable Water Supplies and Graywater ................................................................ 20
1.2 Supply Reliability ........................................................................................................... 21
1.3 Supply-Side Limitations and Future Needs .................................................................. 21
1.3.1 Climate Change ........................................................................................................ 22
1.3.2 Storage Constraints and Planned Improvements .................................................... 22
1.3.3 Water Supply Risk Responses ................................................................................. 23
1.3.4 Growth and Water Supply Requirements ................................................................. 24
2 Profile of Water Demand and Historical Demand Management .................................... 25
2.1 Demographics and Key Characteristics of the Service Area ....................................... 25
2.2 Historical Water Demands ............................................................................................ 25
2.2.1 Water Demand by Customer Sector ........................................................................ 27
2.2.2 Seasonal Demand .................................................................................................... 30
2.2.3 GPCD: Water Demand Per Person Per Day ............................................................ 32
2.2.4 System Water Loss ................................................................................................... 33
2025 Water Efficiency Plan
DRAFT April 2025
Water Efficiency Plan April 2025 | 3
2.2.5 Raw Water Use ......................................................................................................... 34
2.3 Past and Current Demand Management Activities ...................................................... 36
2.3.1 Demand Management for Short-Term Water Shortages ......................................... 37
2.3.2 Land Use and Water Integration with Demand Management .................................. 37
2.4 Demand Forecasts for Water Efficiency Planning ....................................................... 37
2.4.1 Population Projections .............................................................................................. 38
2.4.2 Residential and Commercial Demand Projections ................................................... 39
2.4.3 Additional Considerations for Overall Water Resource Supply Planning ................ 40
3 Integrated Planning and Water Efficiency Benefits and Goals ...................................... 42
3.1 Water Efficiency Goals ................................................................................................. 42
3.2 Benefits of Water Efficiency .......................................................................................... 46
3.3 Summary of Integrated Land Use Planning Strategies ................................................ 49
3.3.1 Current Strategies ..................................................................................................... 49
3.3.2 New Strategies .......................................................................................................... 49
3.4 Equity in Water Use and Demand Management .......................................................... 49
3.4.1 Equity in Engagement ............................................................................................... 51
3.4.2 Equity in Outcomes - Strategy Selection and Implementation Planning ................. 51
3.5 Community Engagement .............................................................................................. 52
3.5.1 Incorporating Feedback into Goals and Strategies .................................................. 53
4 Selection of Water Efficiency Activities............................................................................ 56
4.1 Summary of Selection Process .................................................................................... 57
4.1.1 Selection Process and Criteria ................................................................................. 58
4.1.2 Prioritization Process ................................................................................................ 59
4.2 Strategies for Goal 1 ..................................................................................................... 60
4.2.1 Current Efficiency Strategies for Supporting Goal 1 and Lowering Treated Water
Demand ................................................................................................................................. 61
4.2.2 Planned Efficiency Strategies for Supporting Goal 1 and Lowering Treated Water
Demand ................................................................................................................................. 69
4.3 Strategies for Goal 2 and City Integrated Demand Management ................................ 72
4.3.1 Current Activities Supporting Efficiency and Resilience on City -Owned Properties 72
4.3.2 New Opportunities for City Water Conservation, Landscape Resilience, and Land
Use Planning/Development ................................................................................................... 75
2025 Water Efficiency Plan
DRAFT April 2025
Water Efficiency Plan April 2025 | 4
5 Implementation and Monitoring ......................................................................................... 79
5.1 Implementation ............................................................................................................. 79
5.2 Monitoring ..................................................................................................................... 80
6 Adoption, Public Review, and Formal Approval .............................................................. 83
6.1 Adoption of New Policy ................................................................................................. 83
6.2 Public Review Process ................................................................................................. 83
6.2.1 Public Review of WEP Document ............................................................................ 83
6.3 Local Adoption and State Approval Processes ............................................................ 83
6.4 Periodic Review and Update ........................................................................................ 83
7 References ........................................................................................................................... 84
Appendix A: Brief History of Water Conservation .................................................................. 85
Appendix B: Alignment, Equity, and Engagement ................................................................. 87
Strategic Alignment ................................................................................................................... 87
Equity Considerations ............................................................................................................... 89
Importance of Equity in Water Conservation Planning ......................................................... 90
Equity in Engagement ........................................................................................................... 91
Equity in Conservation Strategy Selection and Implementation Planning ........................... 93
Engagement Activities ............................................................................................................... 94
Engagement with the Community ......................................................................................... 94
Engagement with City Advisory Groups ............................................................................... 97
Engagement with City Staff ................................................................................................... 98
Key Findings from WEP Engagement ................................................................................ 100
Suggestions for Future Engagement .................................................................................. 102
Appendix C: Conservation Strategies .................................................................................... 103
Current Strategies Supporting Goal 1..................................................................................... 103
Behavioral ............................................................................................................................ 103
Infrastructure (Including Operations)................................................................................... 106
Economic ............................................................................................................................. 106
Regulatory (Regulations and Ordinances) .......................................................................... 108
Planned New Strategies Supporting Goal 1 ........................................................................... 109
Behavioral ............................................................................................................................ 110
Infrastructure (Including Operations)................................................................................... 111
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Regulatory (Regulations and Ordinances) .......................................................................... 111
Economic ............................................................................................................................. 111
Efficiency Strategies Evaluated but Not Selected for Implementation ............................... 112
Current Activities and Best Practices for Managing Water Use on City -Owned Properties .. 112
Opportunities for Water Conservation, Landscape Resilience, and Land Use
Planning/Development ............................................................................................................ 114
Discontinued Water Conservation Strategies ......................................................................... 116
Appendix D: Public Comments on Draft WEP....................................................................... 119
Appendix E: Glossary .............................................................................................................. 120
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List of Figures
Figure 1. Utilities water service area and surrounding water provider boundaries ..................... 17
Figure 2. Utilities water supply system ......................................................................................... 18
Figure 3. Climate hazards facing Fort Collins .............................................................................. 22
Figure 4. Annual total treated water and service area population ............................................... 26
Figure 5. Daily total water treated (2019-2024)............................................................................ 27
Figure 6. Annual billed treated water use for residential and commercial customers ................. 29
Figure 7. Billed treated water use by customer category (2019 -2022) ........................................ 29
Figure 8. Average monthly billed treated water use (2019 -2023) ................................................ 30
Figure 9. Average indoor (top) and outdoor/seasonal (bottom) water use by customer sector
(2019-2022)................................................................................................................................... 31
Figure 10. Water use in GPCD and service area population (2000 -2024) .................................. 32
Figure 11. Water balance components evaluated in water loss audits ....................................... 33
Figure 12. City properties that use raw water irrigation ............................................................... 35
Figure 13. Annual treated water demand and savings from water efficiency programs ............. 36
Figure 14. Current and projected population for the Utilities water service area, city limits, and
GMA .............................................................................................................................................. 39
Figure 15. Historical (2000-2024) and range of projected (2025 -2040) water use under possible
future climate and growth scenarios ............................................................................................. 40
Figure 16. Water Efficiency Goal 1 interim targets and final 2040 goal ...................................... 46
Figure 17. Approaches to influence water demand and areas potentially impacted by efficiency
strategies ....................................................................................................................................... 56
Figure 18. Conceptual implementation timeline ........................................................................... 79
Figure A- 1. Historical water demand management planning levels and goals .......................... 85
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List of Tables
Table 1. Utilities annual treatable source water yield................................................................... 20
Table 2. Potential limitations/future needs related to water supply system planning .................. 23
Table 3. Billed treated water use by customer sector .................................................................. 28
Table 4. Water efficiency goals .................................................................................................... 43
Table 5. Current efficiency strategies supporting Goal 1 ............................................................. 61
Table 6. New efficiency strategies to support Goal 1................................................................... 69
Table 7. Current City of Fort Collins activities and best practices for managing water use on
City-owned properties and facilities .............................................................................................. 73
Table 8. New strategy opportunities for managing water use on City -owned properties and
facilities.......................................................................................................................................... 76
Table B-1. WEP update community engagement activities ......................................................... 95
Table B-2. WEP update City staff engagement activities ............................................................ 99
Table C-1. New efficiency strategies evaluated but not currently planned ................................ 112
Table C-2. Discontinued water conservation strategies............................................................. 117
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Acronyms
AF Acre-Foot (equals 325,851 gallons)
AFY Acre-Feet per Year
AMI Advanced Metering Infrastructure
AWE Alliance for Water Efficiency
AWWA American Water Resources Association
BFO Budgeting for Outcomes
BMP Best Management Practice
CBT Colorado Big Thompson
CEC Climate Equity Committee
CWCB Colorado Water Conservation Board
DET Demand Estimation Tool
ELCO East Larimer County Water District
ET Evapotranspiration
FACE Future Avoided Cost Explorer
FCLWD Fort Collins-Loveland Water District
GMA Growth Management Area
GPCD Gallons per Capita per Day
HOA Homeowners Association
ILI Infrastructure Leak Index
LiDAR Light Detection and Ranging
LCU Large Contractual User
MG Million Gallons
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MGD Million Gallons per Day
MGY Million Gallons per Year
NEPA National Environmental Policy Act
NPIC North Poudre Irrigation Company
PDT Planning, Development, and Transportation
PRPA Platte River Power Authority
PVLC Pleasant Valley and Lake Canal
RFO Return Flow Obligation
SRF Storage Reserve Factor
SSD Southside Ditches
SWSI Statewide Water Supply Initiative
TAZ Traffic Analysis Zone
WEP Water Efficiency Plan
WET Water Efficiency Tool
WFCWD West Fort Collins Water District
WQA Winter Quarterly Average
WSAP Water Shortage Action Plan
WSDMP Water Supply and Demand Management Policy
WSR Water Supply Requirement
WSSC Water Supply and Storage Company
WSVS Water Supply Vulnerability Study
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Acknowledgements
Land
We acknowledge and honor the lands situated within the City of Fort Collins as the original
homelands of the Hinono’eiteen (Arapaho), Tsétsėhéstȧhese (Cheyenne),
Nʉmʉnʉʉ (Comanche), Caiugu (Kiowa), Čariks i Čariks (Pawnee), Sosonih (Shoshone), Oc'eti
S'akowin (Lakota) and Núuchiu (Ute) Peoples. This area is an important site of trade, gathering,
and healing for these Native Nations. These lands are home to a diverse urban Native
community representing multiple Native Nations and Indigenous Peoples. Despite forced
removal and land dispossession, they continue to thrive as resilient members of our community.
We are grateful for Native community members and honor the rich cultural heritage they bring to
our collective community. We further recognize and value t heir social, intellectual, economic,
and cultural contributions. The City of Fort Collins is committed to supporting, partnering, and
working with the Native and Indigenous community.
Community
Fort Collins Utilities is grateful to the community members and City staff who participated in
many hours of efficiency-focused engagement and to the Colorado Water Conservation Board
for its support through a Water Plan Grant.
Staff and Consultants
Numerous staff from multiple City departments, as well as technical consultants, provided input
and subject matter expertise :
City of Fort Collins
• City Attorney’s Office
• Communication and
Public Involvement
• Community
Development and
Neighborhood
Services
• Community
Engagement
• Distribution System
Division
• Environmental
Services
• Equity and Inclusion
Office
• Financial Operations
• Natural Areas
• Parks
• Planning,
Development and
Transportation (PDT)
• Water Conservation
• Water Quality
Services Division
• Water Resources
Division
Technical Consultants
• INTERA
• Hazen and Sawyer
• Lotus Engineering & Sustainability
• Colorado Climate Center
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Introduction
Fort Collins Utilities (Utilities) is a community-owned utility operated within the City of Fort
Collins (City) government organization that provides water, wastewater, stormwater, and
electricity services. Every year, Utilities treats and delivers over 8 billion gallons of high-quality
drinking water to about 36,000 water accounts, serving about 80% of the population and 60% of
the land area within the Fort Collins, Colorado city limits. Water is an essential resource for all
and Utilities has a strong commitment to ensure efficient water use.
Water efficiency is a critical demand management tool to minimize risk of future water shortages
and maximize benefits of water use in the community. Since 1977, an active Water
Conservation Division1 has fostered efficiency with a variety of strategies that influence demand
through voluntary behaviors, thoughtful regulations, technical and physical infrastructure, and
economics. The overall mission is to manage water use in a way that minimizes water shortage
risk, while supporting the community’s values. The Water Conservation Division works to foster
a water efficient, adaptive, and knowledgeable customer base through education , policies, and
cost-effective water efficiency programs.
Although Utilities has a robust, reliable, and diverse water supply, the region’s water resources
are finite and experience pressure from increasing temperatures, continued growth, and a
legacy of high water-use landscapes. These challenges continue to make water more expensive
and can create difficult community trade-offs. Utilities acknowledges these trade-offs and
applies a One Water2 approach to managing water supply resources and water demands.
Utilities staff strive to consider the complex intersections of water uses with climate, land use
planning, equity, and affordability to make meaningful changes, especially to support the most
vulnerable parts of the Fort Collins community.
Water Conservation Goals
This Water Efficiency Plan (WEP) guides the work of Utilities and the greater City organization
as it pertains to water demand management through long -term efficiency. The WEP sets two
goals intended to lower water demand, minimize the frequency and magnitude of future water
1 The Utilities Water Conservation Division conducts water demand management to extend water
supplies through conservation and efficiency activities that reduce water demands and lower losses and
inefficiencies. For simplicity and consistency with CWCB guidance, the term “efficiency” is used
throughout this document to refer to both behavioral and technology -based water demand management;
however, in practice, efficiency generally refers to technology-based solutions (e.g., a high-efficiency
showerhead), while conservation focuses on the water savings through behavior (e.g., choosing to take a
shorter shower).
2 One Water, as described by the Water Research Foundation in the 2017 Blueprint for One Water is: “An
integrated planning and implementation approach to managing finite water resources for long-term
resilience and reliability, meeting both community and ecosystem needs.”
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shortages, and build long-term landscape resilience3. These goals reflect community feedback,
staff input, and a commitment to act now to prepare for a hotter and more variable climate.
Goal 1: Reach 4% annual reduction in water use by 2040 to reduce risk of shortages
The WEP will set an overall water conservation goal that applies to all treated indoor and
outdoor water use within Utilities’ water service area (Figure 1), including both customer and
City water use. The objectives of this overall goal are to gradually lower demand to minimize the
frequency and magnitude of shortages, expand access to efficiency opportunities, lead by
example as a City organization, and offset increasing demands driven by climate change . Staff
anticipate this amount of savings could offset increasing demands driven by a temperature
increase of about 1°F between now and 2040. Goal 1 incorporates three specific targets , which
are discussed in more detail in this document :
• By 2040, lower overall annual treated water use by 320 million gallons (MG), or
980 acre-feet (AF) below projected water use
o Every year, take actions to keep total treated water use lower than it is projected
to be without active efficiency strategies, ramping up to being 4% lower than
projected by 2040. Looking ahead to 2040, a 4% reduction would mean that
actual demand was about 320 million gallons (MG), or 980 acre -feet (AF), lower
than projected for the year.
o Interim reduction targets will gradually ramp up annual savings between now and
2040, as shown on Figure 1:
- By 2030: 3% reduction, estimated at 210 MG (640 AF) below projected
water use
- 2035: 3.5% reduction, estimated at 260 MG (800 AF) below projected water
use
- Reductions in treated water demand by Utilities customers, including City
water accounts, will contribute to this target
• Target 1.2: Double the volume of savings from efficiency strategies by 2040,
relative to 2020-2024 average performance
o To reach the Target 1.1 savings of 320 MG below projected annual water use by
2040, the Water Conservation Division will increase program offerings and
participation to increase savings over the current annual average of 155 MG
below projected annual water use. Quantifiable treated water savings from
efficiency strategies that serve customers, as well as partnerships with City
departments to lower City treated water use, will count toward this target.
• Target 1.3: Lower treated water use at City properties by a total cumulative
volume of 5 MG by 2040
o This target will achieve average annual reductions of 360,000 gallons per year by
2040 for City properties, adding up to 5 MG below projected annual water use in
total water savings between 2026-2040.
3 This WEP defines resilience as the capacity to prepare our human and natural systems to respond and
adapt to changes and disruptions of various scales that affect our ability to thrive, as defined in the City of
Fort Collins 2021 Our Climate Future Plan.
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o This savings is expected to come from a variety of projects lowering indoor and
outdoor treated water demand in City buildings and properties. Strategies with
ongoing year-after-year savings, such as plumbing or turf replacement, will be
prioritized.
Progress toward Goal 1 will be evaluated based on tracking treated water demand by customer
sector, including City properties, as well as Water Conservation Division program participation
and savings.
Goal 2: Improve water efficiency and build resilience on City -owned landscapes, to benefit the
community and environment
For the first time, the WEP will set a goal directed at the City’s outdoor water use, which
encompasses both treated and raw water and properties both inside and outside of Utilities’
water service area. Community feedback shows a widespread desire for the City to take
responsibility and action related to efficient water use. Beneficial outcomes for actions on City-
owned landscapes include contributing to the overall water efficiency (Goal 1) by lowering
municipal water use, building resiliency in our public landscapes to prepare for a hotter future,
prioritizing water use for spaces that most benefit the community, and creating highly-visible
projects that inspire water-saving actions by individuals and businesses in our community. Goal
2 incorporates one specific target:
• Target 2.1: The City will implement at least 1 new water-saving project in each
2-year municipal budget cycle, for at least 7 new projects on City landscapes by
2040.
o Projects that lower treated or raw water use and/or build landscape resilience on
City-owned properties within the Fort Collins growth management area will count
toward this target; this approach reflects the City’s intention to lead by example and
benefit the entire community regardless of water source or provider .
o Landscape projects that lower treated water use on City-owned properties that are
within Utilities water service area will also count toward Goal 1 targets.
Progress toward Goal 2 will be evaluated based on the number of projects, associated water
savings, and total project area completed each year.
As described in Section 4, p rogress toward these goals will be achieved through a variety of
efficiency strategies, which include programs and policies that promote long-term reductions in
water demand through four core approaches to managing water use - behavioral, regulatory,
infrastructure, and economic. In addition to expected water savings, strategies were evaluated
for cost, customer reach , co-benefits including equitable and environmental outcomes,
feasibility, and acceptance. Additional information, including descriptions of selected strategies
and the strategy selection process, is provided in other sections of this WEP.
This WEP updates and builds on past water demand management efforts, replacing past
efficiency goals described in Appendix A.
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Scope and Guiding Principles
The WEP update process incorporated extensive community engagement, an equity evaluation,
integration with land use planning, and quantitative modeling to analyze water demand and
potential savings. Staff also considered current and future climate and growth predictions. The
WEP aims to manage the water customers use by:
• Setting goals to reduce the amount of treated water used within the service area to
lower shortage risk and increase resilience of City-owned landscapes to benefit the
community and environment
• Developing efficiency strategies to lower water use for Utilities customers and the
City organization
• Informing planning decisions and staff activities for the next 7-15 years
The WEP focuses on lowering treated (i.e., potable) water use within Utilities’ water service
area. Although adjacent water providers and raw (i.e., non-potable) water use are briefly
discussed for context and may be indirectly influenced by the WEP goals and strategies, they
are outside the scope of this plan.
The following principles, developed by an interdepartmental team of City staff, guided the WEP
update process and decision-making for efficiency goals and strategies:
• Engage marginalized community members and address systems of oppression,
while also pursuing broad engagement
• Build and strengthen working relationships within the municipality and across the
community, to better implement water efficiency strategies
• Reduce water demand to increase preparedness and resilience for ongoing and
uncertain climate, economic, and social risks to water availability
• Commit, as stewards of the City, to be leaders in efficiency
• Create water efficiency strategies based on future supply and demand projections,
and decision-making that is data-driven, regionally adaptive, considers the triple
bottom line (economic, environmental, and community) and affordability
• Target water efficiency strategies that provide multiple benefits for the community,
the environment, and consider the entire water system, including the river
The WEP aligns with the Colorado Water Plan and with multiple City policies, including a City
strategic objective to “[s]ustain the health of the Cache la Poudre River and regional watersheds
while delivering a resilient, economically responsible and high -quality water supply for all Fort
Collins residents”. It also aligns with the Utilities’ mission statement for water, “[w]e are a One
Water Utility, providing exceptional water services for our community through integrated,
resilient, and equitable practices and systems.”
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The updated WEP will be approved and adopted by the Fort Collins City Council in 2025 and
replaces previous versions. The content and organization of this plan follow Colorado Water
Conservation Board (CWCB) municipal water efficiency plan guidance and were developed to
meet or exceed requirements for water efficiency planning outlined in the State of Colorado’s
Water Conservation Act of 2004.
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1 Profile of Existing Water Supply
Utilities serves residences and commercial entities of various types within the service area
boundaries shown in Figure 1. The water service area does not coincide with the city limits or
the Fort Collins Growth Management Area (GMA) boundary. Fort Collins-Loveland Water
District (FCLWD), East Larimer County Water District (ELCO) and other water providers supply
some areas within the city limits. Furthermore, Utilities provides water service to customers
beyond the city limits including some residential and industrial use and wholesale water to West
Fort Collins Water District (WFCWD). Utilities maintains approximately 540 miles of pipeline
and about 36,000 water service connections.
1.1 Overview of Existing Water Supply System
Utilities has rights to raw water from multiple sources, which provide a diverse and robust
supply:
•Colorado-Big Thompson (C-BT) Project units stored in Horsetooth Reservoir – The
C-BT project diverts water from the upper Colorado River , transporting the water to
Horsetooth Reservoir, other facilities and users across Colorado’s Front Range.
Northern Colorado Water Conservancy District (Northern Water) manages the C-BT
Project and sets the annual quota that determines how much water is available per
unit. This quota significantly affects the supply available each year and is influenced
by snowpack, storage reserves, and system-wide demands.
•Cache la Poudre (Poudre) River basin – The Poudre River is part of the larger South
Platte River basin. Utilities’ Poudre River sources include senior flow rights and
agricultural water rights converted to municipal use, all of which can be taken directly
from the river. The amount of usable water in the Poudre River in any given year is
highly variable and dependent upon snowpack , runoff duration, and water quality
conditions in the 1,056-square-mile drainage area above the Poudre canyon mouth.
•North Platte River basin flows via Michigan Ditch and Joe Wright Reservoir – The
Michigan Ditch and Joe Wright Reservoir system diverts water from the Michigan
River (part of the North Platte River basin) into the Poudre River and Joe Wright
Reservoir. Joe Wright Reservoir holds about 7,100 AF of storage and is Utilities’ only
raw water storage that can be delivered into its treated water system, but it has
limited function as drought protection for Utilities.
Utilities’ water supply and treatment system consists of several key facilities that are illustrated
in Figure 2. These facilities include the Fort Collins Pipeline, Joe Wright Reservoir, Michigan
Ditch, Horsetooth Reservoir, Rigden Reservoir, and the Water Treatment Facility. For more
detailed information on each supply source, see the City of Fort Collins’ Water Supply and
Demand Management Policy (2012).
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Figure 1: Utilities water service area and surrounding water provider boundaries
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Figure 2. Utilities water supply system
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1.1.1 Raw Water Supply Yield
Utilities has developed a diverse portfolio of water rights to fulfill customer demands throughout
the year. In average and wet years, Utilities’ water rights yield more water than service area
demands. However, the usable amount of water provided by these rights varies year-to-year
due to environmental conditions and limitations set in water right decrees. Availability of water
rights does not always coincide with demands (e.g., stream and river levels are highest in the
spring, while water demands tend to be greatest in the hot summer month s when stream flows
have declined), and Utilities’ ability to use water rights is sometimes limited by circumstances
such as infrastructure projects or water quality concerns.
Utilities’ portfolio of supplies can be estimated to yield between 32,400 – 73,400 AFY (10,560 –
24,020 MGY), as presented in Table 1. The treatable yield refers to the amount of available
water after considering limitations due to water right priorities, decreed volumetric limitations,
return flow obligations, losses, and operational constraints. Treatable yield ranges are
calculated based on a range of conditions from dry years and low allocations to wet years with
abundant yields.
The proportion diverted from either Poudre or Horsetooth supplies is adjusted frequently to
maintain water quality and meet legal agreements. Each year on average, less than half of
Utilities' customer drinking water comes from Poudre supplies and more than half comes from
Horsetooth supplies. However, the relative proportions can vary significantly month-to-month
and day-to-day.
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Table 1: Utilities annual treatable source water yield
Raw Water Source Annual
Treatable Yield (AF)
Annual
Treatable Yield (MG)
Horsetooth Reservoir
C-BT Project (Northern Water) 9,400 – 18,800 3,680 – 4,110
North Poudre Irrigation Company 6,400 – 12,800 2,090 – 4,170
Windy Gap / Platte River Power Authority Reuse Plan 0 – 2,300 0 – 750
Horsetooth Reservoir Total 15,800 – 33,900 5,150 – 11,050
Cache la Poudre River basin
Direct Flow Rights 11,300 – 12,600 3,680 – 4,110
Pleasant Valley & Lake Canal Company 1,900 – 6,100 620 – 1,990
Southside Ditches 1,300 – 12,900 420 – 4,200
Water Supply and Storage Company 900 – 2,400 290 – 780
Joe Wright Reservoir / Michigan Ditch (diversions from
North Platte River basin)
1,200 – 5,500 390 – 1,790
Cache la Poudre River basin Total 16,600 – 39,500 5,410 – 12,870
Total 32,400 – 73,400 10,560 – 24,020
Utilities uses water supply modeling to estimate the system’s firm yield, which is the amount of
source water supplies available in a series of drought years, to be approximately 30,400 AFY
(9,900 MGY). The range of treatable yields shown in Table 1 are greater than the firm yield
because they do not consider the potential impact of long-term climate change on the source
water basins, which could significantly reduce the yields under hot and dry conditions.
1.1.2 Reusable Water Supplies and Graywater
Utilities’ primary source of reusable water is the Michigan Ditch which yields between 1,200 –
5,500 AFY (390 – 1,790MGY) of reusable water. This water is stored in Joe Wright Reservoir,
and much of it is used in the Reuse Plan . The Reuse Plan involves Utilities and multiple
partners to generate reusable effluent that is used by Platte River Power Authority (PRPA), who
in turn provides Windy Gap water to Utilities. Although the Windy Gap water is classified as
reusable, Utilities only uses the supply once before reallocating the effluent to its partners as
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dictated by the Reuse Plan . Generally, the Reuse Plan can increase Utilities single-use supplies
by 2,300 AFY in a typical year.
As of November 2022, graywater capture and reuse systems are allowed within the Utilities
water service area. Due to Northern Water policies that limit C-BT use (which is over half of
Utilities supplies), graywater can be used for toilet flushing only and cannot be applied to
landscapes.
1.2 Supply Reliability
Utilities is responsible for providing an adequate and reliable supply of water to its customers.
The Water Supply and Demand Management Policy (WSDMP) provides a foundational
framework for Utilities’ water supply and demand management decisions. This policy defines
three main planning criteria :
• Storage Reserve Factor (SRF): 20% of annual demands
• Planning Demand Level: 150 GPCD4
• Drought Criterion: 1-in-50-year drought
Historically, Utilities has imposed mandatory water restrictions at a frequency of 1 -in-10 years in
response to projected shortages, which can be driven by drought, infrastructure needs, or water
quality concerns.
Utilities actively monitors source water quality and watershed health. It is also taking steps to
improve supply reliability through the Halligan Water Supply Project, described in Section 1.3.2.
1.3 Supply-Side Limitations and Future Needs
Utilities conducted a Water Supply Vulnerability Study (2019) to investigate its water supply
system’s ability to meet future demands under various potential future hydrologic conditions,
risks, and uncertainties. The vulnerability study identified key risks to Utilities’ water resources:
• Climate change is the most crucial vulnerability.
• Reductions in C-BT supplies would have significant impacts.
• High water demands represent a significant vulnerability ; it is important to implement
efficiency efforts and track demand trends.
4 The WSDMP planning level of 150 GPCD is used for long-range water resource planning to safeguard a
high level of water supply reliability and incorporates water supply needs for contractual obligations or
other purposes. The planning level is intentionally higher than the water use goals set in past WEPs
(Appendix A) to address uncertainties inherent in water supply planning and to account for supply needs
such as contractual obligations which are not likely to be influenced by water efficiency or other demand
management actions described in this WEP.
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• Water storage is crucial. Without enlarging Halligan Reservoir, Utilities’ current water
supply planning criteria could not be met under most future climate and demand
conditions. Also, water storage can help capture water saved from efficiency efforts.
The vulnerability study indicates that even with increased storage from an enlarged Halligan
Reservoir, hotter, drier conditions will require Utilities to impose water restrictions more
frequently in the future. The need for mandatory restrictions is projected to increase to about 3-
in-10 years with a 5-degree temperature increase, a three-fold increase over current shortage
trends. These vulnerabilities underscore the importance of maintaining an impactful water
efficiency program for long-term demand management.
1.3.1 Climate Change
Fort Collins is already experiencing the effects of climate change. With rising global
temperatures, it is expected that disruptive events like wildfires, drought, and floods will increase
in intensity and severity (Figure 3), as described in the 2021 Our Climate Future Plan . Local
impacts are likely to include reduced reliability of water supplies and increased demand for
water to maintain existing landscapes, creating pressures on both sides of the supply-and-
demand balance. The 2024 Colorado Climate Center’s Climate Change in Colorado5 report
documented a 2.3 degree Fahrenheit increase in the statewide annual average temperature
from 1980-2022, and projects temperatures to rise an additional 1.0-4.0 degrees by 2050. For
the Northern Front Range region, the report notes slightly greater future warming. The report
also anticipates more frequent and intense droughts, regardless of whether precipitation
changes in the future.
1.3.2 Storage Constraints and Planned Improvements
Utilities needs additional storage capacity to increase the yield and reliability of its water supply
system. Acquiring storage in the Poudre River basin would strengthen Utilities’ water supply
sources by reducing reliance on C-BT storage and thereby minimizing risks associated with
5 Available online at climatechange.colostate.edu.
Figure 3: Climate hazards facing Fort Collins
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Colorado River basin shortages. Additionally, storage can increase the benefits of water
efficiency by holding unused water and making it available during times of water need.
In 2003, Utilities acquired the ability to enlarge Halligan Reservoir, located on the North Fork of
the Poudre River, to provide an emergency storage reserve, increase drought security, improve
water system reliability and flexibility, and meet future water demands. Utilities is currently going
through the permitting processes with plans for its expansion and future water storage use. The
U.S. Army Corps of Engineers issued the Final Environmental Impact Statement in 2023.
Utilities continues to pursue the required permits ahead of construction .
1.3.3 Water Supply Risk Responses
Table 2 summarizes future water supply needs and challenges. In addition to water efficiency,
increased water storage (i.e., Halligan Water Supply Project), conservative water supply
planning criteria, a robust water supply portfolio, and forward -looking land use planning are
utilized to prepare for risks and adapt to a changing climate .
Table 2: Potential limitations/future needs related to water supply system planning
Future Need/Challenge Yes No
System is in a designated critical water supply shortage area ✓
System experiences frequent water supply shortages and/or supply emergencies ✓
System has substantial real or apparent water losses ✓
Experiencing high rates of population and demand growth ✓
Planning substantial improvements or additions ✓
Increases to wastewater system capacity anticipated ✓
Need additional drought reserves ✓
Drinking water quality issues ✓
Aging infrastructure in need of repair ✓
Issues with water pressure in portions of distribution system ✓
Wildfire and post-wildfire runoff might impact source watershed ✓
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1.3.4 Growth and Water Supply Requirements
To provide reliable water for development, including water rights and associated infrastructure ,
Utilities charges one-time Water Supply Requirement (WSR) fees to customers developing or
redeveloping a property with a new water tap. This process ensures new developments share in
the responsibility to guarantee a reliable source of water for all customers for years to come.
WSR fees vary based on a development’s characteristics:
• Outdoor area and number of bedrooms for residential customers
• Building square footage and use type for commercial customers
• Landscape water need as defined in the water budget table for irrigation-only taps
(required in the City’s Land Use Code)
Ongoing water use by commercial and irrigation-only accounts is managed through annual
water allotments associated with each tap. Accounts with annual use that exceeds the allotment
volume must pay an excess water use surcharge. Funds collected through surcharges help
offset water use that exceeds the allotment and allows Utilities to acquire additional water
supplies and maintain infrastructure.
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2 Profile of Water Demand and Historical
Demand Management
In average and wet years, Utilities’ water rights yield more water than the service area
demands. However, dry conditions and other issues like infrastructure outages and water quality
concerns (e.g., due to fire s) contribute to water restrictions being enacted approximately once
every 10 years to address these potential water supply shortages. Water demand management
activities have successfully balanced the potential for growth-driven demand increases in recent
years.
2.1 Demographics and Key Characteristics of the Service Area
Utilities estimates that the population of the water service area was approximately 139,000 in
2024. Although the water service area boundary does not coincide with city limits, city-wide
demographics6 are useful for a general understanding the service area. In 2023, Fort Collins
was home to approximately 170,000 residents, including 30,000 students. Population continues
to grow, although the rate of growth has slowed in recent years. Buildout of remaining
undeveloped greenspace is expected by approximately 2040 for the current city limits and the
Utilities service area, but additional redevelopment is anticipated to occur after that. The
average household size is 2.27 people, the median age is about 31 years old, and about 10% of
households speak a language other than English at home. About 52% of homes are owner-
occupied. The median single-unit home value is $548,400 and the median monthly gross rent is
about $1,700. About 11% of housing is estimated to have been built before 1960 and about
40% of homes were built before 1980. The median household income is about $82,000.
Approximately 15% of residents meet the federal definition of poverty.
Fort Collins is home to two major public higher education institutions: Colorado State University
and Front Range Community College. Large employers include education, healthcare, and high-
tech companies. The city is also home to numerous breweries – both microbreweries and larger
breweries that export products across the country – as well as service-related and small
businesses.
2.2 Historical Water Demands
Utilities monitors customer water demand as well as system leaks and losses using advanced
meter infrastructure (AMI), billing data, and monitoring points in the water treatment system.
This robust data supports analysis of seasonal and daily variability across different customer
types.
6 Demographic data for the City of Fort Collins based on the 2020 Census and the 2019 – 2023 American
Community Survey data.census.gov/profile/Fort_Collins_city,_Colorado?g=160XX00US0827425 and
Quick Facts census.gov/quickfacts/fact/table/fortcollinscitycolorado/IPE120223#IPE120223.
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Up until the early 2000s, the Utilities’ service area population growth was largely matched by an
increase in total water demands. Like many other Colorado communities, the 2002-03 drought
spurred Utilities customers to rethink their water use. While the population has continued to
grow, water demands have exhibited a downward trend as illustrated in Figure 4. From 2000 to
2024, the service area population increased about 28% while the 3-year average total treated
water demand decreased by about 22%. These reductions are partially due to historical
foundational demand management activities such as providing AMI and applying efficiency-
oriented water rate structures. A strong water efficiency program, efforts by customers, state-
level actions, and the actions described in Section 2.3 have also contributed to demand
decreases.
Figure 4: Annual total treated water and service area population
Figure note: Water treatment volume includes customer demands, non-revenue losses, wholesale, and contractual
obligations.
Daily water demand varies considerably throughout the year. Water use is fairly consistent
throughout the winter months, then more than doubles in the summer months as customers
increase use for landscapes and other seasonal purposes. Figure 5 illustrates a five-year
average of daily treated water and includes the peak date and volume for each year,
highlighting the variability of water demand from year to year.
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Treated Water and Population, 1960 -2024
Fort Collins Utilities
Treated Water Service Area Population
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Treated Water and Population, 1960 -2024
Fort Collins Utilities
Treated Water Service Area Population
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Figure 5: Daily total water treated (2019 – 2024)
Figure note: Water treatment volume includes customer demands, non-revenue losses, wholesale, and contractual
obligations.
2.2.1 Water Demand by Customer Sector
To better understand how customers use their water, Utilities evaluated water use for various
residential and commercial customer categories. Customer categories were assigned based on
billing codes7 and county tax assessor classifications. Table 3 and Figures 6-9 summarize
average water use by customer sector and application (indoor or outdoor). While most accounts
are single-unit residential accounts, commercial customers use the most water on a per account
basis.
As shown in Figures 6-9, residential categories collectively use the most billed treated water
each year: about 64% on average with about 42% attributable to single -unit residences.
Commercial customers use about 36% of billed treated water on average. The largest
commercial use categories are irrigation-only and homeowner association (HOA) accounts
(10%) and offices (8%), followed by combined education, healthcare, group assembly, and
group housing (6%), and hospitality and retail (6%). Industrial and other commercial customers
use less than 2% of total billed treated water delivered each year. City government buildings,
facilities, and landscapes use about 1.8% of the billed treated water each year (raw water use
by City facilities is discussed in Section 2.2.5).
7 Wholesale water deliveries and contractual obligations have unique service agreements that differ from
other customers. These water uses are included in the treated water totals shown in Figures 4 and 5;
however, they are not included in the analysis of demands by customer sector in Section 2.2.1.
0
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1-Jan 1-Feb 1-Mar 1-Apr 1-May 1-Jun 1-Jul 1-Aug 1-Sep 1-Oct 1-Nov 1-Dec
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Daily Treated Water Volume, 2019 -2024
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Average
Maximum
Minimum
Peak Daily Use
2019: Sep.2, 40.8 MG
2020: July 10, 43.5 MG
2021: July 28, 41.4 MG
2022: July 11, 39.8 MG
2023: July 17, 35.9 MG
2024: July 13, 41.7 MG
0
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1-Jan 1-Feb 1-Mar 1-Apr 1-May 1-Jun 1-Jul 1-Aug 1-Sep 1-Oct 1-Nov 1-Dec
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Daily Treated Water Volume, 2019 -2024
Fort Collins Utilities
Average
Maximum
Minimum
Peak Daily Use
2019: Sep.2, 40.8 MG
2020: July 10, 43.5 MG
2021: July 28, 41.4 MG
2022: July 11, 39.8 MG
2023: July 17, 35.9 MG
2024: July 13, 41.7 MG
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Table 3: Billed treated water use by customer sector
2019-2022 Average
Customer Category Annual
Water
Use (MG)
Number of
Accounts
Average
Annual Use
per Account
(gal)
Average
Annual
Indoor Use
(% of total
use)
Average
Annual
Seasonal
Use (% of
total use)
Residential
Single-unit residential 2,404 29,245 82,200 50% 50%
Multi-unit residential 1,073 2,456 436,900 77% 23%
Duplex 130 1,345 96,400 66% 34%
Total billed residential 3,607 33,046 n/a 64% 36%
Commercial
Irrigation-only & HOAs 566 626 2,356,000 0% 100%
Office 485 368 1,318,500 76% 24%
Education, healthcare, &
group assembly/housing 338 430 784,300 59% 41%
Hospitality, retail, &
services 326 644 1,129,600 73% 27%
Industrial 144 50 2,870,900 79% 21%
City government 103 252 809,300 14% 86%
All other commercial 174 384 452,500 65% 35%
Total billed commercial 2,136 2,754 n/a 53% 47%
Total billed demand 5,743 35,800 160,400 56% 44%
Table note: numbers are rounded and are not exact; values based on billing data; excludes non-revenue
system losses, wholesale, and contractual obligations .
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Figure 6. Annual billed treated water use for residential and commercial customers
Figure note: Billed water volume shown excludes non-revenue losses, wholesale, and contractual obligations.
Figure 7. Billed treated water use by customer category (2019-2022)
Figure note: Billed water volume shown excludes non-revenue losses, wholesale, and contractual obligations.
0
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Residential Seasonal Commercial Seasonal Residential Indoor Commercial Indoor
Single-unit
42%
Duplex
2%Multi-unit
19%
Office
8%
Education, Healthcare,
Assembly, Group
Housing
6%
Irrigation-only & HOAs
(excludes City)
10%
Hospitality, Retail,
& Services
6%
Industrial
2%
All Other Commercial
3%
City Accounts
2%
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2.2.3 Seasonal Demand
Indoor and outdoor/seasonal8 water use for residential and commercial customers is shown by
month in Figure 8. Outdoor water use depends highly on weather, occurs primarily from May
through November, and accounts for about 40% of total annual water use . During warmer
months, outdoor applications represent more than half of all water use. The percentage of
demand by customer type is presented for indoor and seasonal uses in Figure 9. Irrigation-only
and single-unit residential accounts make up the greatest total portion of outdoor/seasonal
water use.
Figure 8. Average monthly billed treated water use (2019 -2023)
Figure note: Billed water volume shown excludes non-revenue losses, wholesale, and contractual obligations.
8 A winter quarterly average was used to estimate indoor water use. It was assumed that no outdoor use occurs in
those months. For all other months, any demand greater than the winter quarter average is attributed to outdoor or
other seasonal uses.
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Billed Treated Water by Month (2019 -2023 Average)
Residential Indoor Commercial Indoor Residential Seasonal Commercial Seasonal
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Figure 9. Average indoor (top) and outdoor/seasonal (bottom) water use by customer sector (2019-2022)
Figure note: Billed water volume shown excludes non-revenue losses, wholesale, and contractual obligations.
Single-unit
38%
Duplex
3%
Multi-unit
26%
Office
12%
Education, Healthcare,
Assembly, Group
Housing
6%
Irrigation-only & HOAs
(excludes City)
0%
Hospitality, Retail,
& Services
7%
Industrial
4%
All Other Commercial
4%City Accounts
0%
Single-unit
47%
Duplex
2%
Multi-unit
10%
Office
4%
Education, Healthcare,
Assembly, Group
Housing
5%
Irrigation-only & HOAs
(excludes City)
21%
Hospitality, Retail,
& Services
4%
Industrial
1%
All Other Commercial
2%
City Accounts
4%
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2.2.5 GPCD: Water Demand Per Person Per Day
System-wide per capita demand measured in gallons per capita per day (GPCD) is a common
metric to evaluate water use independent of population growth. The Water Conservation
Division tracks GPCD to monitor trends and compare to past WEP goals. The Water
Conservation Division calculates GPCD as the annual total treated volume of water divided by
the service area population and 365 days. This calculation includes non-revenue system losses
but excludes water used for wholesale and contractual obligation s. Other Utilities departments
and other water providers calculate GPCD using different methods. Because of this, GPCD
metrics should not be used for comparisons between water providers.
Figure 10 shows total GPCD from 2010 through 2024. Utilities’ per person demands declined
significantly over the last few decades. However, per capita consumption has remained fairly
steady since 2017, suggesting that Utilities and customers will need to take additional actions to
continue lowering demand on a per capita basis.
Utilities met the previous WEP goal – reduce demand to 130 GPCD by 2030 – once, in 2023. In
that year, the service area experienced unusually high precipitation during irrigation months,
which encouraged customers to reduce their outdoor water use. In 2024, per-capita demand
was 135 GPCD (draft value), similar to pre-2023 levels.
Figure 10. Water use in GPCD and service area population (2000 – 2024)
Figure note: GPCD values include non-revenue system losses and exclude wholesale and contractual obligations.
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GPCD, 3-yr Rolling Average GPCD, Annual
140 GPCD (2010 WEP Goal)130 GPCD (2015 WEP Goal)
Service Area Population
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2.2.6 System Water Loss
Every water utility experiences water losses within production and distribution resulting in non-
revenue water. Utilities uses the American Water Works Association (AWWA) M36 Water Loss
Audit standards9 as required by CWCB. This annual audit is focused on water loss within the
distribution system before the customer meters. By collecting and reporting water loss audit
data, Utilities can increase accountability, recover more revenue, better understand the
distribution system, minimize system losses, and track annual variability. The audit incorporates
detailed data from various Utility departments to determine types and volumes of water loss,
financial loss, and operational efficiency.
The AWWA Water Loss Audit provides a water balance (Figure 11) that compares the volume
of water entering a distribution system to the amount of water billed to customers and not
accounted for. Each year, Utilities can calculate the revenue (i.e., billed) and non-revenue (i.e.,
physical losses like leaks, and apparent losses like unbilled water uses or data inaccuracies)
water from this balance.
Figure 11. Water balance components evaluated in water loss audits
From 2019 to 2023, total non-revenue losses for the treatment and distribution system were
estimated to range from 157 to 391 MGY. Of this, Utilities estimates that real physical losses
from distribution system leaks range from 81 to 195 MGY. Although these real physical losses
are an area of opportunity for water efficiency savings through leak detection, maintenance, or
operations, the AWWA analysis predicts that some amount of real losses are unavoidable and
will persist. Through Utilities’ Leak Detection Program, crews continually monitor for system
leaks with electronic leak-detection equipment and repair water main lines. Approximately
500,000 linear feet of main line is surveyed annually (about 20% of the full distribution system)
and approximately 100 main breaks are repaired annually.
9 Available online at awwa.org/Resources-Tools/Resource-Topics/Water-Loss-Control
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In addition to the non-revenue and revenue water volume, Utilities tracks three other annual
water loss metrics to understand the potential scale of non-revenue losses and the confidence
in the audit results:
• Water Loss per Connection per Day: From 2019 to 2023, the average daily water
loss per connection was 19.6 gallons.
• Data Validity Score : From 2019 to 2023, the average data validity score was 56.8,
which was within the expected range and indicated confidence in the input data.
• Infrastructure Leak Index: From 2019 to 2023, the average infrastructure leak index
was 0.54. Leak index values less than 1.0 indicate that either loss control is highly
effective, or a portion of audit is flawed, and some losses have not been
documented.
Utilities staff will continue to complete annual AWWA water loss audits and work to evaluate
input data and results to improve understanding of both physical and apparent water losses.
2.2.7 Raw Water Use
In general, raw water use is managed through agreements separate from Utilities and is not
subject to Utilities’ jurisdiction . Therefore, Utilities is not considered a dual water provider (as
defined in the CWCB’s WEP guidance) and raw water uses are not discussed in detail in this
WEP. Many entities, including private owners, schools, higher education, and HOAs irrigate with
raw water.
The City diverts about 3,000 AFY (978 MGY) of raw water to irrigate City parks, golf courses,
cemeteries, greenbelt areas, agricultural lands, and some school grounds. Utilities also provides
approximately 4,000 AFY (1,300 MGY) of raw water to other entities to meet obligations and to
fulfill exchanges and agreements. The City and Utilities recognize value to prioritizing raw water
over treated water for irrigation, particularly due to lower water cost and avoiding unnecessary
water treatment and distributi on resources. Irrigation ditches and ponds used to convey and
store raw water can provide ecological benefits such as habitat and wildlife corridors , although
water loss through seepage and evaporation can also occur. City properties that have some
areas of raw water irrigation are shown on Figure 12.
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Figure 12. City properties that use raw water irrigation
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2.3 Past and Current Demand Management Activities
This WEP update builds on past efficiency program strategies. Utilities created its first water
efficiency position in 1977, and efficiency staffing and actions have continued to increase over
time. A brief history of Utilities’ water efficiency goals and activities is provided in Appendix A.
The City and Utilities have a strong commitment to efficiency that is evident in a long history of
working with community members to lower water demand, respond to shortages, and maintain a
high quality of life that includes beautiful, healthy landscapes. Utilities’ programs help customers
collectively reduce 155 MGY on average, an annual reduction of over 2.3% in water demand.
Utilities’ portfolio of current and planned new efficiency strategies is discussed in detail in
Section 4, with additional information provided in Appendix C.
Figure 13 shows tracked annual water savings from water efficiency programs. Annual
efficiency savings include only the water savings estimated for new actions implemented in a
given year. This is a conservative approach that avoids over -estimating impacts that can vary
year-to-year due to changing individual behaviors, However, ma ny efficiency actions have
ongoing savings that can continue for years (e.g., installing an efficient toilet or replacing turf
with a xeric landscape). Even more water savings come from actions such as education,
outreach, and marketing, with hard-to-measure water use impacts. Our active efficiency and
educational strategies, as well as external influences including statewide regulations and
passive savings from new technologies, together help Utilities manage overall water demand
despite upward pressures from climate change and growth.
Figure 13. Annual treated water demand and savings from water efficiency programs
Figure notes:
Treated water volume shown includes non-revenue losses and excludes wholesale and contractual obligations.
2024 values are draft and subject to change.
1.9%*2.3%2.5%
2.1%
2.5%
0
6,000
12,000
18,000
24,000
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(Draft)
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* This chart shows the 2020 efficiency program savings of 130 MG. In that year, an additional 105 MG reduction
resulted from 30 days of mandatory restrictions due to an infrastructure project and wildfire.
2.3.1 Demand Management for Short-Term Water Shortages
The Water Shortage Action Plan (WSAP) establishes conditions and restrictions to manage
Utilities’ water supply in the event of projected shortages as established by City Code Section
26-167(a). A water shortage occurs when the projected water supply is less than the anticipated
water demand as defined by the policy. Events including drought, water quality issues (i.e.
contamination, fire, etc.), and infrastructure issues (i.e. pipeline failure, required water treatment
facility maintenance, etc.) are all possible water shortage risks.
The response actions identified in the WSAP are designed to rapidly achieve short-term
solutions. In contrast, the current and proposed efficiency and demand management strategies
described in this WEP are intended for long-term water demand management. Some shortage
response actions may also be appropriate as long-term demand reduction strategies and have
been evaluated as possible WEP strategies.
2.3.2 Land Use and Water Integration with Demand Management
Demand management is supported by thoughtful integration of water and land use planning to
consider current and future water needs together with development and growth patterns. In
planning for future scenarios, it is critical to consider the relationship between land use and
water efficiency. The City of Fort Collins has participated in two Growing Water Smart
workshops in recent years that have each been attended by the Planning, Transportation, and
Development (PDT) team as well as Utilities staff. Those workshops, along with other business
needs, have helped to foster regular interaction between the Water Conservation, Water
Resources, PDT, and City leadership teams. Water Conservation staff play an active role in the
Development Review process by examining and approving all commercial and multi-unit
residential irrigation plans in compliance with the City’s Land Use Code. PDT and Water
Conservation staff have collaborated to update landscape ordinances, including a requirement
that caps the average annual maximum commercial landscape water requirement at 11 gallons
per square foot. As of 2022, the WSR is commensurate with the estimated water demand of the
new landscape, so developers are further incentivized to design and install low-water
landscapes. The estimated water savings from these activities is included in Table 5 and totals
an estimated annual savings of 1.7 million gallons. Ongoing and new water efficiency activities
and strategies that integrate closely with land use are identified in Section 4 (Tables 5 – 8) and
discussed in more detail in Section 3.3.
2.4 Demand Forecasts for Water Efficiency Planning
For this WEP, the portion of water demand associated with customer water use is most relevant
to water efficiency programming and is tracked and predicted on short-term monthly or annual
time scales. This WEP does not provide detailed demand forecasts for overall water supply
planning, but instead focuses on demand projections associated with billed residential and
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commercial water use plus non-revenue losses associated with distributing treated water to
those customers.
Future water demands are largely dependent on population change , growth patterns, service
area boundaries, rates of commercial and industrial development, and climate. The rate s and
patterns of population growth and associated water demands are also influenced by the
economy, land use policies, development incentives, and other factors.
2.4.1 Population Projections
Estimating the current and future population to be served by Utilities is challenging. Its service
area boundary does not coincide with the city limits and, therefore, official population estimates
from the U.S. Census or other sources cannot be dire ctly used. Staff have adjusted population
estimation methodologies over time. The current service area population is determined based
on the estimated number of residential units multiplied by the average number of persons per
unit, plus the estimated population living in group quarters. Service area population is re -
calculated each year to reflect changes, particularly the number and type of residential units.
The current service area population estimates are lower than past estimates due to an updated
methodology as well as observed slowing in rate of growth. Based on U.S. Census data for the
entire City of Fort Collins, population growth averaged 3-4% annually in the 1960s-1980s, and
2-3% annually through the early 2000s. Recently, the rate of growth has slowed to about 0.1%
per year from 2020-2023.
Utilities and PDT staff collaborate to align data and develop the methodologies used to project
future population. Staff estimate the number and type of expected residential units based on
available undeveloped land, zoning density allowances, and an estimated amount of growth
from redevelopment following full buildout of undeveloped land. Utilities then uses the expected
number and type of residential units to project future population.
It is anticipated that Utilities’ water service area and the current city limits will reach build-out
near 2040, meaning that all vacant, buildable land will be developed. Buildout of the GMA is
likely expected to occur after 2050, which could influence growth patterns within the Utilities
service area. After buildout, it is assumed that the water service area population will only grow
via redevelopment. Variables that drive population growth and water demands during
redevelopment include changes in population density, landsca pes, and conversion of
commercial spaces to mixed use or multi-unit residential. Due to the unpredictability of these
variables, a range of growth scenarios are used to evaluate possible future demands.
Figure 14 presents recent and projected residential population growth in the water service area.
Utilities will continue to update population projections using the best available data. Updated
City population projections will be included in the next municipal comprehensive plan update
and will be incorporated into the next WEP update.
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Figure 14. Current and projected population for the Water Utilities service area
2.4.2 Residential and Commercial Demand Projections
Customer demands are highly variable, can be further analyzed by customer type, and are
influenced by demand management, weather, and land use development patterns. These
variable customer demands are the focus of efficiency planning and tracking. Past customer
demand trends are presented in Section 2.3. Future demand projections provide the foundation
for setting the efficiency goals defined in Section 3 and the efficiency strategies described in
Section 4.
Utilities staff work with consultants to model future water demands. Two key modeling tools are
the Demand Estimation Tool (DET) developed for the 2019 Water Supply Vulnerability study,
and the new Water Efficiency Tool (WET), developed for this WEP update to enable
examination of the potential water savings of certain efficiency programs. Both models10
evaluate the complex interactions that drive water demand and can be used to predict future
10 The WET model was developed specifically to evaluate how water given efficiency strategies impact
customer demands in a variety of scenarios. The intended outcome (efficiency planning) and hybrid
econometric/end-use specific projection mechanisms in WET are distinct from past GPCD -based
projections (such as used in long-term supply planning and for the Halligan Water Supply Project) or the
demand estimation tool model, which supported risk analyses in the 2019 Water Supply Vulnerability
Study. Instead, the WET focuses solely on the subset of total water use associated with bil led residential
and commercial customer demands. The WET was not used to predict future large contractual or
wholesale demands, does not incorporate storage reserve targets, and does not include a water supply
component. WET is a hybrid model that integrates (1) econometrics to examine the impacts of
demographic, economic, and climatic factors on water demand variability with (2) water end-use
accounting, which is the systematic analysis of how water is used at the household or unit level by
residential or commercial “end-users”.
0
20,000
40,000
60,000
80,000
100,000
120,000
140,000
160,000
20
0
4
20
0
6
20
0
8
20
1
0
20
1
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4
20
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20
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20
4
0
Water Utilities Service Area Residential Population
Single-Unit Housing Multi-Unit Housing
Duplex Housing Other Population
Total Residential Population Projected Total Residential Population
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demands for the Utilities service area under a range of growth, economic, and climate
scenarios.
Figure 15 presents historical residential and commercial customer demand (including system
losses but excluding large contractual obligations and wholesale), with projected future demand
based on modeling a range of possible population growth and climate scenarios. The
projections are based on existing levels of water efficiency savings and do not include potential
savings from new strategies identified in Section 4. The modeled projections indicate that
without efficiency and/or significant changes in landscaping choices, outdoor water use will
likely increase over the coming decades as customers strive to maintain their landscapes in a
hotter and longer growing season. As discussed in the WSVS, increased demands could drive
more frequent water shortages and resulting mandatory restrictions.
Figure 15. Historical (2000 – 2024) and range of projected (2025 – 2040) water use under possible future
climate and growth scenarios
Figure note: Historical water use and projections include customer demands and non-revenue losses, and exclude
wholesale and contractual obligations.
2.4.3 Additional Considerations for Overall Water Resource Supply Planning
Overall water supply planning is led by the Utilities Water Resources Division and includes all
aspects of supply needs including obligations, contractual agreements, system -wide reuse,
losses both upstream of treatment and in distribution, and reserve factors .. The WSDMP,
described in Section 1.2, defines Utilities’ overall water supply planning criteria. The Water
Resources Division tracks and projects all water supply needs for comparison to the supply
yields presented in Section 1. Key water demand considerations for overall supply planning are
presented here for reference, but are not factored into WEP water efficiency goals, savings
projections, or analysis of historical demand by customer sector:
12,000
16,000
20,000
24,000
28,000
32,000
4,000
6,000
8,000
10,000
20
0
0
20
0
5
20
1
0
20
1
5
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0
Ac
r
e
-Fe
e
t
Mi
l
l
i
o
n
G
a
l
l
o
n
s
Fort Collins Utilities Customer Water Use
(Actual & Projected)
20-yr
average
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Large Contractual Obligations
Utilities has contractual obligations to provide water for the current and future demands of
certain large industrial water users. Large contractual users’ (LCUs’) water use is estimated
separately from population-based customer water demand projections and is not included in the
GPCD metric because it can significantly skew the per capita demand rates. For long -term
supply planning, LCU projections are added to projected cus tomer demands, which are based
on population projections and the 150 GPCD set in th e WSDMP. The total LCU water use for
2040 is estimated to be about 8,000 AFY and will require a mix of single-use and reusable water
sources.
Wholesale Water Treatment
Through an agreement, Utilities provides wholesale treated water to the approximately 4,000
WFCWD customers, and most of those customers are residential. In return, Utilities is
reimbursed with an equivalent amount of C -BT supply. Utilities delivered an average of 163
MGY (500 AFY) of treated water to WFCWD over the last decade. Because the treated water is
reimbursed, WFCWD demand is not considered in planning for future storage /water right needs.
Commercial Allotments
Utilities assigns non-residential water customers an annual water allotment pursuant to Sec. 26-
149 of the City Municipal Code. Water use that exceeds the annual allotment is subject to an
excess water use surcharge. Unlike regular utility rates, which cover the cost of operation and
maintenance of the distribution system, revenue from surcharges go toward acquiring,
developing, and improving Utilities’ water resources to lessen the impact of customers
exceeding their planned water demand. Both the used and unused volume of allotments is
tracked annually for supply planning purposes. Commercial customers collectively use about
41% of the total allotments issued. However, this varies from year-to-year based on economics,
irrigation needs, or other factors.
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3 Integrated Planning and Water Efficiency
Benefits and Goals
Water efficiency is a key component of the City’s One Water approach to collaborative and
holistic water resource management that promotes healthy watersheds, resilient communities,
and water equity.
City of Fort Collins Water Utilities mission statement: We are a One Water Utility,
providing exceptional water services for our community through integrated,
resilient, and equitable practices and systems.
The collaborative One Water approach aligns with the WEP guiding principles and drove the
WEP update process:
• Selection of water efficiency goals (Section 3.1)
• Integrated land use planning and water efficiency (Section 3.3)
• Applying an equity lens to engagement and efficiency implementation (Section 3.4)
• Engagement with community and City staff (Section 3.5)
• Selection of efficiency strategies (Section 4)
In addition to applying a One Water approach, this WEP update strives to align with key related
policies and plans, described in Appendix B, that provide direction and/or complement Utilities’
water efficiency efforts.
3.1 Water Efficiency Goals
This WEP sets two water efficiency goals to guide Utilities, City, and customer actions (Table 4).
The goals reflect community feedback, staff input, and a commitment to act now to build
resilience and minimize future water shortage risks.
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Table 4. Water efficiency goals
Goals Applicability Objectives Key Actions Metrics
Goal 1: Reach
4% annual
reduction in
water use by
2040 to reduce
risk of
shortages
Treated water use in
the Utilities water
service area, including
residential, commercial,
and City water use
• Gradually lower demand to minimize the
frequency and magnitude of water shortages
• Offset increasing demands driven by
increasing temperatures from climate change;
we anticipate this amount of savings would
offset increasing demands driven by an
average annual temperature increase of over
1°F between now and 2040.
• Reduce barriers, expand access to efficiency
opportunities
• Target 1.1: By
2040, lower
overall annual
treated water use
by 320 million
gallons (MG), or
980 acre-feet
(AF) below
projected water
use
• Target 1.2: •
Target 1.2:
Double the
volume of savings
from efficiency
strategies by
2040, relative to
2020-2024
average
performance
• Target 1.3: Lower
treated water use
at City properties
by a total
cumulative
volume of 5 MG
by 2040 average
performance
From 2030 – 2040,
interim annual targets
will be tracked,
increasing to the 4%
reduction goal:
• 2030: 3%
reduction,
estimated at 210
MGY (640 AFY)
• 2035: 3.5%
reduction,
estimated at 260
MGY (800 AFY)
• 2040: 4%
reduction,
estimated at 320
MGY (980 AFY)
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Goals Applicability Objectives Key Actions Metrics
Goal 2:
Improve water
efficiency and
build resilience
on City-owned
landscapes, to
benefit the
community and
environment
City-owned landscapes
(not limited by location
or water source);
projects that lower
treated or raw water
use and/or build
landscape resilience on
City-owned properties
within the Fort Collins
GMA will count toward
this target
• Build resiliency in City-owned landscapes to
prepare for a hotter future
• Prioritize water use for landscapes and places
that most benefit the community
• Create highly visible projects that inspire
water-saving actions by individuals and
businesses
• Contribute to the overall WEP Goal 1 by
lowering the City’s water use
• Target 2.1: The
City will
implement at least
1 new water
saving project in
each 2-year
municipal budget
cycle, for at least
7 new projects on
City landscapes
by 2040.
The number of
projects, associated
water savings, and
total project area will
be measured each
year.
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WEP Goal 1 is focused on lowering Utilities’ annual total treated water demand by 4% by 2040.
The intention is to lower overall customer demand by a meaningful amount each year, which
lowers the risk of shortages, while sustaining the beneficial uses of water that will continue year-
to-year across our service area. This approach acknowledges that overall Utility-wide demand is
likely to increase over time due to growth and climate change, even with increased efficiency
actions and savings.
The volume of savings associated with the 4% goal is determined based on projected demands
for Utilities’ customers under a range of future growth and climate scenarios. Because demands
can and do vary year-to-year, for a specific percent reduction target (i.e., 4%) the volume
(millions of gallons) of savings would go up or down based on variability in consumption. Staff
estimate that a 4% reduction in 2040 demand is estimated to require 280 – 355 MG (860 –
1,090 AF) of efficiency savings which reflects the range of estimated 2040 demands driven by
different climate and growth scenarios. This level of savings would be an increase of more than
two times over average measured Water Conservation Division savings from 2020 – 2024. To
gradually progress to the final 2040 goal, interim annual targets will be tracked from 2030 –
2040.
To illustrate this concept, Figure 16 shows recent historical customer treated water use (solid
blue line) and the projected range of future customer water demands without efficiency
programs under different climate and growth scenarios (dashed blue lines). The green shading
represents how the projected customer demands could be lowered with successful attainment
of Goal 1. The green diamonds on Figure 17 represent average efficiency savings from interim
and final Goal 1 targets. It is important to note that the annual percent reduction targets do not
compound year-to-year and will not put Utilities on a track to zero water use in the future.
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Figure note: Historical water use and projections include customer demands and non-revenue losses, and exclude
wholesale and contractual obligations.
3.2 Benefits of Water Efficiency
Water is both essential to life and limited in our region. Water efficiency strategies are cost-
effective means to manage water use in a way that minimizes water shortage risk, while
providing enough water to support the community’s values, including societal and environmental
benefits. Some conserved water can be stored for periods of drought, leased for agriculture, and
used for beneficial environmental enhancement efforts such as in -stream flow programs.
Increased storage provides a physical location for conserved water and enables Utilities to take
full advantage of savings achieved by customers. See Section 1.3 for more information on the
role of storage in supply and demand management planning.
By updating water efficiency goals and strategies, Utilities aims to continue reducing water use
to lower the risk of shortages and increase resiliency for its customers. Benefits of water
efficiency include:
Building Resilience to Drought and Climate Change
Efficiency efforts can help develop a community and landscape that is more resilient to drought
conditions, especially during times of declared water shortage, when water restrictions are
3%
3.5%
4%
9,200
13,200
17,200
21,200
25,200
3,000
5,000
7,000
9,000
20
1
5
20
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0
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20
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Historic demand
Projected demand range, without additional efficiency
Goal 1 interim and final targets
Projected demand range, with Goal 1 reductions
Range of
projected
demands
with
successful
attainment
of Goal 1
Figure 16. Water Efficiency Goal 1 interim targets and final 2040 goal
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enforced. Through support of drought planning and implementation of proactive mitigation
efforts, the actions proposed in this plan can help to reduce vulnerability, protect economic
health, and ease the effect of drought on individuals, businesses, and landscapes. By
increasing water efficiency where it makes sense, like building’s plumbing fixtures and unused
high water use grass areas, Utilities can help prioritize water availability for uses deemed high
value by the community, such as trees, which mitigate climate impacts and provide numerous
environmental benefits; sports fields, which provide social and physical health benefits; as well
as other multi-benefit purposes. Utilities could face significant challenges in the years ahead
managing both water demands and water supplies. With many uncertainties regarding both
water supply and demand, it is prudent to prepare for a wide range of conditions in the future.
Fostering an Efficiency Ethic and Reducing Waste
The success of this plan depends on the cooperation and support of customers. Instilling a n
efficiency ethic is an important foundation to changing habits and attitudes toward water use.
The power of the individual in efficiency makes a big difference in protecting quality of life,
including today’s environment and for generations to come.
Demonstrating a Commitment to Sustainability
The City aims to be leaders in this effort. City properties use about 1.8% of all treated water use
in Utilities’ service area for buildings, recreational facilities, and landscape irrigation that provide
services to residents, businesses, and visitors. The City also uses 978 MG (3,000 AF) of raw
water to irrigate parks, golf courses, cemeteries, and other greenbelt areas. This WEP update
sets savings targets directed at the City’s water use.
Providing Water for Multiple Beneficial Purposes
Conservation efforts can help provide more water for beneficial uses beyond normal municipal
purposes. For example, the area around Fort Collins continues to be a productive agricultural
area, which in addition to representing economic activity, also provi des significant open space
that many residents desire. When possible, making some of Utilities’ surplus water available for
farmers and ranchers to rent provides supplemental revenue for Utilities and its customers. The
potential environmental benefits of conserved water are also important. These can include
providing additional flow for the local stream systems, supporting in-stream flow programs,
improving water quality, enhancing aquatic and riparian ecosystems and recreational
opportunities, among other benefits.
Minimizing Increases to Customer Costs
While water rates continue to increase, using less water helps minimize these increases. Water
efficiency strategies may reduce other costs for a customer when lower water use actions lead
to a reduction in energy use, wastewater use, or landscape maintenance.
Reducing Utilities Costs
Decisions about water supplies, treatment/distribution capacity needs, and storage facilities are
all made in consideration of projected water demand and peak capacity.
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• Reduced or delayed acquiring of water rights: if Utilities need to acquire additional
water equivalent to the Goal 1 reduction targets, this would cost significantly more
than the cost associated with the Water Conservation Division programs. Based on
2024 costs, staff estimated that acquiring new water rights currently costs about
$0.20 per gallon, while Water Conservation Division programming costs less than
$0.01 per gallon saved.
• Reduced treatment and distribution costs: Water efficiency can decrease costs by
reducing the amount of chemicals and energy used.
• Delay of capital expansion projects: Decreased wastewater flows have delayed the
expansions of the Drake Water Reclamation Facility treatment capacity from 2010 to
2028.
• Reduced Halligan Water Supply Storage project size: The original Halligan Reservoir
enlargement planned allotment for Fort Collins was 12,000 AF. Among other factors
considered in the federal permitting process, the role of efficiency and the downward
trend in per-person water use resulted in reducing the enlargement to 8,200 AF,
which is approximately a 68% reduction and represents millions of dollars saved.
• Extra Water Treatment Facility capacity: The Water Treatment Facility was last
expanded in 1999, prior to the significant increase in efficiency efforts prompted by
the 2002-03 drought. The total Water Treatment Facility treatment capacity of 87
MGD is larger than the expected future peak demand. In 2013, the City of Fort
Collins Utilities entered into an agreement with Fort Collins -Loveland Water District
to sell FCLWD up to 5 MGD in excess water treatment capacity.
Avoiding Cost of Inaction
Insufficient action now could lead to future costs, sometimes called the “cost of inaction.” In the
2023 Colorado Water Plan, the CWCB includes climate change in planning scenarios and notes
that climate change creates substantial uncertainty and may increase water demands in all
sectors, reduce overall supply, and create resiliency challenges th at need to be considered in
current planning. Although water efficiency activities require resources for program materials,
incentives, and staff, this investment supports long-term adaptation to climate change, builds
resilience and avoids potential future climate-driven costs. Although these costs are hard to
predict, just one example is to consider potential damage to the City’s public trees in Fort
Collins, which have an estimated replacement value of $112 million and support other
ecological functions including clean air and heat island mitigation . On the county scale, the
CWCB’s Future Avoided Cost Explorer (FACE) calculator estimates that under a medium
climate change and moderate growth scenario, Larimer County will experience a cost increase
of 5.1 times the current cost due to increased hazards driven by climate change. Total damages
for the county could be $9.7 million (or $20 per person), based on livestock , crops, and
recreation.
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3.3 Summary of Integrated Land Use Planning Strategies
Integrating water and land use planning minimizes risk of future water shortage by considering
water needs together with development and growth. In planning for future scenarios, it is critical
to consider the relationship between land use and water efficiency. Looking ahead, it is
anticipated that Utilities’ water service area will reach build-out near 2040, as described in
Section 2.4.1, while adjacent areas will continue to develop . Changes in housing density,
landscapes, and conversion of commercial spaces to mixed use or residential are all variables
that could influence future water demands but are hard to predict.
Most development activity within Utilities’ water service area is overseen by PDT, the City of
Fort Collins’ land use authority. The department plays a central role in managing land use,
zoning, and development proposals. Properties served by other water districts in Fort Collins
city limits (Figure 2) are subject to City land use authority. Larimer County or other municipalities
have land use authority over properties outside of Fort Collins’ City limit and may be served by
Utilities or one of the other Fort Collins water providers.
3.3.1 Current Strategies
The City and Utilities have prioritized integration of water and land use planning through many
long-term and current strategies, which are identified in Table s 4 and 6. These strategies are
primarily focused around collaboration and thoughtful policy, through actions such as cross-
departmental participation in Sonoran Institute’s Growing Water Smart workshops, basing
WSRs for new development on business use and landscape needs (see Section 1.3.4), and
incorporating landscape, irrigation, and soil ordinances into the City’s land use codes.
3.3.2 New Strategies
Utilities and PDT have reviewed and considered all strategies in the CWCB’s Best Practices for
Implementing Water Conservation and Demand Management Through Land Use Planning
Efforts and have plans to develop the new land use-focused strategies identified in Tables 5 and
8. All strategies are described with more detail in Appendix C.
3.4 Equity in Water Use and Demand Management
Numerous City and State efforts support equity in water planning (see Appendix B). The City of
Fort Collins Office of Equity and Inclusion promotes a people-centered, community-focused
approach so that persons of all identities can fully participate in City services and experience
equitable community outcomes. The Office of Equity and Inclusion defines equity as both a
process and an outcome: “A process by which policies, programs and tools are developed to
ensure the elimination of existing disparities and includes inclusive engagement that leverages
diversity. It becomes an outcome once a person's identity or identities no longer impacts their
ability to experience equality and access to services .” For water efficiency, Utilities and the City
can impact equity through processes, like updating this WEP, and through outcomes, like
efficiency program and policy strategies.
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Staff applied an equity
lens throughout the WEP
update process. This
helped create an inclusive
engagement process that
placed importance on
hearing from
disproportionately
impacted community
members, and in turn
elevated efficiency
strategies that resulted in
more equitable outcomes.
An important guiding
principle for the WEP
update is to develop
inclusive community-
driven water efficiency
goals and strategies
through broad
engagement, as well as
connecting with and
elevating input from
disproportionately
impacted community
members. This includes
community members who
might have the greatest
negative impacts from
water bill costs or climate
change and community
members who have lower
historic efficiency
participation rates. They
may also face barriers to both participating in and benefitting from water efficiency programs
and strategies. Together, Utilities refers to these as “disproportionately impacted groups” in this
WEP, which includes the 14 historically underrepresented groups identified in the City’s Our
Climate Future initiative, as well as renters, new residents, and English as a second language
customers.
What is a Disproportionately-Impacted
Group?
Leading with equity in process means asking who is most
impacted by a decision. The WEP update focused
engagement resources towards connecting with
• Community who might have the greatest
negative impacts from water bill increases or
rising temperatures,
• Community members with historically lower
participation rates in water efficiency programs,
including low income, communities of color,
renters, new residents, and non-English
speakers,
• The 14 historically underrepresented groups
identified in Our Climate Future (some of which
are also identified as having low participation):
o Communities of color
o Community members under age 29
o DACA students
o LGBTQIA+ communities
o Local indigenous communities
o Migrant communities
o Communities of disability
o Veterans
o Religious minorities
o People experiencing homelessness
o People living in manufactured homes
o Commuters
o Low-income communities
o Small businesses
These identities overlap and intersect. Utilities recognizes
that many people are part of multiple groups.
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3.4.2 Equity in Engagement
WEP engagement included paid community
consultants, input from the City’s Climate
Equity Committee, meetings with community
members who identify with one or more
EPGs, equity one-on-one interviews, an
equity question in the broad survey, and
reducing barriers to participation in WEP
engagement (Spanish translations, survey
paper format and tabling in public spaces,
providing food, childcare, and efficiency
giveaways at meetings). Further details about
all engagement activities conducted and
feedback received are presented in Section
3.5 and Appendix B. Participants provided
feedback that informed current and future
communications and marketing, educational
and incentive offerings, policy development,
equity evaluations, and outcome metrics.
Themes observed from engagement included key equity-related challenges for the community:
affordability, renter autonomy, accessibility to programs and services, and the need for long -
term relationship and trust building between the community and City organization .
3.4.3 Equity in Outcomes - Strategy Selection and Implementation Planning
To apply an equity lens to efficiency strategy selection, Utilities developed a two-step equity
evaluation tool to analyze, revise, and prioritize potential WEP strategies. To ensure community
input shaped how equity was defined and assessed in the equity evaluation tool, the project
team conducted a series of informational interviews with community leaders and with City staff
who have been involved in equity efforts.
The tool was designed to identify barriers and improve the accessibility of each strategy
evaluated. The evaluation consisted of two steps:
Step 1 - Barrier and Burden Assessment
Initial check of whether the strategy has obvious equity issues , based on staff knowledge of the
burden of compliance, unintended consequences, and barriers to participation. This assessment
was applied “midstream” in the efficiency strategy selection process to inform both final
selection of the short list of proposed strategies, as well as to identify which strategies might
need refinement to improve equitable access and positive outcomes. The following key
questions guided the red flags assessment:
• Does the strategy have any fundamental barriers that prevent participation by
disproportionately impacted groups? (e.g., Internet or cell phone access, travel
requirements, home ownership, access to private outdoor space, expertise)
“It is expensive to be poor,
and our policies and
subsidies should seek to
combat this issue.
Subsidies and grants
should be easily available to
help people afford the
changes needed to reduce
water use — rebates don’t
go far enough to help those
who cannot afford the
upfront cost.”
- WEP Survey Respondent
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• Is this strategy a reimbursement program, where an upfront purchase is required to
participate?
• Could this strategy disproportionately place the burden of compliance on a
disproportionately impacted group?
• Could this strategy have negative unintended consequences that disproportionately
impact equity-priority groups? (e.g., Non-functional turf may not account for informal
uses of green space, rate increases passed on to renters rather than building owners
reducing consumption)
Step 2 - Potential to Support Positive Equitable Outcomes Evaluation
For the final list of proposed efficiency strategies, assess the extent to which each strategy can
support equitable outcomes for equity-priority groups. A range of questions were applied to
each strategy to assess whether the strategy was likely to have a high, medium, or low support
of the following desired equity outcomes:
• Preserving water for now and for future generations, including disproportionately
impacted community members
• Accessible participation for all, including disproportionately impacted community
members
• Investment in and partnership with disproportionately impacted community members
• Affordable water bills
• Minimizing financial water burden
The equity evaluation tool is designed for ongoing use, including before, during or after a water
efficiency activity is in place. Staff are considering how to incorporate it into annual project
planning and reviews, as well as regular learning opportunities with the community. The equity
work conducted for the WEP update is just a starting point. Staff will continue applying these
tools to improve access, participation, and efficiency benefits across the community.
3.5 Community Engagement
Utilities is committed to thoughtful planning and public participation in government , and
community input was vital in shaping the WEP and its associated efficiency goals and
strategies. Engagement strategies drew on the One Water integrated and collaborative planning
approach, with tactics to broadly engage all water customers while focusing resources on
connecting with disproportionally impacted communities. This resulted in the development of
inclusive and community-driven water efficiency goals and strategies.
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WEP Engagement Objectives
• Center engagement in diversity, equity, and inclusion.
• Center engagement in a One Water approach.
• Ground engagement in water conservation education opportunities that increase
awareness of current opportunities and recognition of the value of efficiency activities.
• Collaborate with City Staff to determine organizational water use goals and priorities for
efficiency strategies.
• Collaborate with specific people, including disproportionately impacted, marginalized and
historically excluded community members, to understand values, needs, and barriers.
From 2023 through June 2024, engagement captured over 5,000 touchpoints via :
• Survey (1,319 community
responses)
• Our City web page
• Advertisements
• In-person meetings hosted by
community consultants
• Focus groups and meetings with
targeted water users including
City departments, HOAs and
small businesses
• Meetings with community
members who identify with one
or more disproportionately
impacted groups
• Consultant-led one-on-one
interviews
• Input from the City’s Climate
Equity Committee11
Engagement tactics and results are presented in more detail in Appendix B.
3.5.1 Incorporating Feedback into Goals and Strategies
After evaluating raw data from community feedback, staff incorporated feedback from City
departments to create guiding themes for goal and strategy development. These themes were
critical to developing the WEP goals described in Section 3.2 and the strategy selection process
described in Section 4.
The overarching community and staff engagement themes that guided efficiency goal and
strategy development were:
• Community values that inform efficiency goals
o Concerns about water scarcity and providing for future generations
o Willingness to take action
o Want all community members to take responsibility and action
o Support for landscape change away from turf grass
11 The Climate Equity Committee (CEC) was formed to support the equitable implementation of Our
Climate Future.
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• Characteristics of efficiency strategies that are generally supported by the community
o Strategies should show impact by lowering demand at multiple water use
levels: individuals, highest users, and municipal.
o Support upgrades to water-efficient fixtures for both indoor (e.g., plumbing)
and outdoor (e.g., irrigation) uses by making them free or inexpensive , and
providing installation support.
o Reduce existing turf and encourage water -efficient landscapes
o Support customers with leak issues
o Use regulations to manage some water uses, including new growth, non -
functional turf, commercial users, and the highest water users
o Provide inexpensive actions that save money
o Provide more education for everyone, specifically:
▪ Target HOAs, landscapers, homeowners, and disproportionately
impacted communities with resources specific to them
▪ Remove barriers by coming to people in places and ways where they
are already gathering and comfortable
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•
“As climate change becomes more severe, water is going to be absolutely critical. I'm concerned
about cost of water in the future and how that will affect marginalized communities.”
“We would like to see the City offer some additional assistance or educational opportunities for
people so they can be a participant in the City's services and help to meet future challenges.”
“Equal access to safe drinking water at reasonable rates, as well as water to allow for green
spaces/trees in all neighborhoods.”
“What is the City of Fort Collins doing to lower its water usage? The City of Fort Collins needs to
lead by example.”
“HOAs would like to see the City share best practices shared with HOAs and contractors, so the
right things can happen at the right time, both have increased understanding.”
“Offer repair/replacement of dripping faucets, toilets, showers. Many inexpensive repairs can save
a lot of water for those without the wherewithal to do the work themselves.”
Many mobile home residents shared … “There is not help for infrastructure or pipes. If you have
leaky pipes, need a plumber, have a leak under your home, that’s all out of pocket and usually
avoided due to high cost.”
“I think the focus should be on people who can’t afford to do things like change out their shower
heads, replace grass with natural, local plants, etc. We did this with no support, but it was costly.
Our water bill is much lower because we use so much less but people who can’t afford this need
support.”
“There is a strong interest in learning more about xeriscaping and water -efficient landscaping
techniques, particularly how to adapt these practices to different yard sizes and business
properties.”
“New construction should be designed from the outset to use less water, since the cost of doing it
up front is much less. Beyond that, efforts should focus on the highest water users first.”
“The City needs b etter building codes so new apartment buildings don't have "freeze warning"
signs out when it is cold telling tenants to drip their faucets.”
“What will happen to our water availability as our population grows and temperatures increase?”
WHAT WE HEARD FROM THE COMMUNITY
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4 Selection of Water Efficiency Activities
The Water Conservation Division will continue to build on existing efficiency strategies and will
develop new strategies to meet efficiency goals and improve equitable outcomes. Strategies
can impact the entire service area, and the overall intent of strategy selection is to identify a
diverse and balanced set of cost-effective strategies that are expected to lower risk and meet
the efficiency goals. Other strategies are intended to cultivate a water efficient, adaptive, and
knowledgeable customer base through education and outreach.
By updating water efficiency goals and strategies, Utilities aims to promote long -term reductions
in water demand through a variety of approaches to manage water use - behavioral, regulatory,
infrastructure, and economic (Figure 17).
Figure 17. Approaches to influence water demand and areas potentially impacted by efficiency strategies
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With input from customers and staff, Utilities identified key themes that informed strategy
selection, as described in Section 3.5 and Appendix B. By continuing effective strategies and
gradually implementing new strategies, Utilities is developing a portfolio of strategies that are
expected to:
• Increase water savings and landscape resilience to lower risk and meet the WEP
goals
• Provide opportunities for all customers, including disproportionately impacted groups
and those who have had low historical participation rates
• Reflect best practices and provide customized strategies to meet high -use and
unique customer sector needs
• Continue doing what works well and is liked by customers
• Lower City water use and implement projects to lead by example as a City
• Continue integration of water and land use planning
Utilities has a robust water efficiency approach with several efficiency activities that have been
implemented for years. Staff intend to continue many of these effective and liked activities within
their current portfolio of strategies. The efficiency strategies outlined in this WEP are likely to
evolve over the years and the exact specifics of each are subject to change as a result of
changing state legislation, regulations, technology, customer preferences, funding availability,
appliance/fixture saturation rate, and Utilities/City priorities. Water efficiency strategies are
intended to be implemented, monitored (Section 5) and refined over time to best serve Utilities
customers.
4.1 Summary of Selection Process
In support of Goal 1, customer efficiency strategies are directed toward lowering customer
treated water demand while supporting equitable outcomes . Staff conducted a tiered selection
process using the following steps:
1. Identify strategies: Compile “long list” of all current and potential new strategies
2. Qualitative screen ing: Eliminate infeasible strategies based on staff input
3. Criteria-based screening: Screen remaining strategies based on selection criteria
4. Prioritize: Prioritize the highest-scoring strategies based on offering a diverse
portfolio of efficiency options with broad reach across customer sectors and a variety
of approaches to impact demand (Figure 18)
For City actions associated with lowering the City’s treated water use (supporting Goal 1) and
advancing efficiency and resilience on City-owned landscapes (supporting Goal 2), strategy
identification and selection was conducted through collaborative engagement and decision-
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making meetings with cross-departmental staff. The focus was on identifying efficiency and
resilience actions that integrate with land use planning and align with existing plans, policies,
practices, and available funding.
4.1.1 Selection Process and Criteria
Strategy Identification
In addition to a review of existing activities, staff researched new and innovative activities to
develop an initial comprehensive “long list” of water efficiency strategies to consider. Potential
activities were identified from several sources including the CWCB’s technical resources, the
Colorado WaterWise Guidebook of Best Practices for Municipal Water Conservation in
Colorado, a broad literature review, exploration of other utility case studies , and input from the
community and City staff, described in Section 3.5 and Appendix B,
Qualitative Screening
Water Conservation staff performed an initial qualitative screen to narrow down the initial
comprehensive list of potential new strategies by identifying and eliminating infeasible,
duplicate, and low-impact strategies. Staff qualitatively considered whether the new strategy
concepts were likely to significantly contribute to water savings, could feasibly be implemented
with reasonable time and resources, were likely to receive public acceptance, and were likely to
improve equity by increasing accessibility to efficiency programs.
For the new strategy concepts retained following this qualitative evaluation, staff developed brief
high-level program plans to develop scope, objectives, implementation requirements, and
resource needs.
Criteria-based Screening
Current efficiency strategies and the potential new strategies that passed the qualitative screen
were scored based on six criteria, which were selected through a collaborative cross-
departmental staff process and informed by the WEP guiding principles . Staff developed a
modified version of the spreadsheet-based Alliance for Water Efficiency (AWE) Water
Conservation Tracking tool to perform the criteria-based screening process and tabulate a
combined score for each existing and potential new strategy evaluated.
The following screening criteria were evaluated to develop total numeric scores, based on
weighted averages of the following scores:
• Water savings potential: How effective is the activities in terms of gallons of water
saved per program dollar spent? The default AWE tool calculation method was used ,
informed by actual or projected water savings and cost data.
• Cost: What are likely initial and ongoing program costs?
• Ease of implementation: How labor- and time-intensive is the program? Does Utilities
have the staff resources to properly support, monitor and evaluate the program?
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Staff assigned a high, medium, or low score based on past project experience and
the preliminary program descriptions developed for potential new strategies.
• Acceptance: Does this activity meet the needs and wants of Utilities water
customers? Does this activity support the social and economic health of customers?
Staff assigned a high, medium, or low score based on community engagement and
past project experience.
• Co-benefits: Staff identified potential environmental (e.g., promote short -term drought
responses, lower greenhouse gas emissions) and social (e.g., improve water
literacy, foster positive interactions with government) co -benefits.
• Reach: How many customers could be impacted by this program? What types of
customers does it reach? Is it likely to reach previously unengaged customers? The
default AWE tool calculation method was used, informed by actual or project ed
participation information.
A subset of strategies were carried forward to final prioritization (Section 4.1.2) but were not
evaluated in the criteria -based screen because they were either required or an identified high
priority:
• Existing strategies that were considered necessary to continue into the future due to
external requirements. These include required actions to support State
requirements, like the Water Loss Audit.
• Municipal strategies to lower the City’s treated water use in support of Goal 1 . As
described in Section 4.2, these were developed through collaborative discussions to
align with existing needs, practices, and objectives.
Strategies that were evaluated based on the screening criteria, but not selected for
implementation at this time , are tabulated in Appendix C. This includes historical and existing
strategies that will be discontinued (Table C -1) and potential new strategies that were not
prioritized for implementation (Table C -2).
4.1.2 Prioritization Process
The existing and new strategies that were retained following the criteria -based screen were all
practical strategies to implement and the results of the process described here will be saved for
future reference and consideration. However, it is expected that not all of the strategies are
necessary to attain the 4% reduction identified in Goal 1, and it is not possible for the Water
Conservation team to implement all of these strategies in the near future. As a final step, staff
prioritized the highest-ranking existing and potential new strategies to create a cost-effective
and balanced strategy portfolio that provides a mix of behavioral, regulatory, infrastructure, and
economic activities. Staff also sought a mix of programs that are broadly available to all
customers as well as those that are tailored to high water uses or disproportionately impacted
customers.
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4.2 Strategies for Goal 1
The portfolio of water efficiency strategies selected to lower treated water demand in support of
Goal 1 are summarized in Table 5 (current strategies that will be continued) and Tab le 5 (new
strategies planned for gradual implementation). Once fully implemented, Utilities estimates that
these strategies will lower treated water demand by over 300 MG per year. Brief descriptions of
existing and new strategies are provided in Appendix C.
Strategies are organized according to the primary approaches, or “levers,” of impact: behavioral,
infrastructure, economic, and regulatory. Conservation activities that integrate closely with land
use are indicated, as well as the corresponding Statewide Water Supply Initiative (SWSI) levels.
The range of annual water savings for recent years is presented for those programs that have
tracked quantitative savings; however, many of the other programs listed have likely also
lowered overall community water use but are difficult to quantify (e.g., educational activities).
Figure 18 shows how the prioritized strategies work together to provide water savings through a
variety of approaches.
Figure 18. Distribution of water efficiency strategies.
Single-Unit
Residential
24%
Multi-Unit
Residential
21%
HOA
16%
Commercial
18%
Municipal
21%
Strategy Distribution by Customer
Type
Regulatory
17%
Economic
23%
Infrastructure
14%
Behavioral
46%
Strategy Distribution by Approach
Regulatory
13%
Economic
39%Infrastructure
26%
Behavioral
22%
Estimated Annual Current Water
Savings Potential by Approach
Non-Revenue
Losses
1%
Indoor
37%
Outdoor
19%
Both
Indoor &
Outdoor
43%
Distribution of Expected Water
Savings Potential by Type of Use
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4.2.1 Current Efficiency Strategies for Supporting Goal 1 and Lowering Treated Water Demand
Table 5. Current efficiency strategies supporting Goal 1
Fort Collins Utilities
Conservation Activities
Start
Year
Tracked
Estimated
Annual Water
Savings
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
--: Indicates efficiency savings not quantitatively tracked or estimated.
Behavioral
Community education programs 1977 -- ✓
Garden Party community event 2003 -- ✓
Xeriscape Demonstration
Garden
1986 -- ✓
Conservation equipment
giveaways
1992 -- ✓
Student (K-12) education
programs
1997 -- ✓
Fix a Leak Week campaign 2016 -- ✓
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Fort Collins Utilities
Conservation Activities
Start
Year
Tracked
Estimated
Annual Water
Savings
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Irrigation assessments –
residential
1999 153,000 –
2,045,000
✓
Irrigation assessments –
commercial and HOA
2024 Add range of
estimated
annual savings
2019 - 2024
✓
Indoor assessments –
commercial
2017 6,000 – 670,000 ✓
Indoor assessments and direct
installation – residential
2007 981,000 –
2,750,000
✓
Direct installation for small
businesses and multi-unit
housing
2019 165,400 –
5,086,000
(multi-unit
housing); 12,465
– 92,500 (small
businesses)
✓
Water reports – residential and
commercial
2014 24,000,000 –
75,000,000
✓
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Fort Collins Utilities
Conservation Activities
Start
Year
Tracked
Estimated
Annual Water
Savings
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Saving water hotline 2014 89 – 120
wasting water
reports received
annually
✓
Imagine a Day without water
campaign
2021 -- ✓
NoCo Bloom articles and
advertisements
2016 -- ✓
Waterwise professionals
network and support
2016 -- ✓
Residential water budgets 2020 -- ✓
Water use estimator for
development
2022 -- ✓ ✓
Showerhead swap 2024 875,000 ✓
Water Conservation programs
annual report
2012 -- ✓
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Fort Collins Utilities
Conservation Activities
Start
Year
Tracked
Estimated
Annual Water
Savings
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Infrastructure
Advanced metering for all
accounts
2014 -- ✓
Monthly billing with rate codes
that align with tiered rates and
customer type
2014
Customer data portal 2014 -- ✓
Continuous consumption
program (a.k.a. leak alerts)
2015 40,500,000 –
110,500,000
✓
Economic
Conservation-oriented and
seasonal rate structures
2003 -- ✓
Conservation-oriented water
supply requirement fee for
commercial water taps
2022,
most
recent
update
in 2025
-- ✓ ✓
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Fort Collins Utilities
Conservation Activities
Start
Year
Tracked
Estimated
Annual Water
Savings
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Commercial allotments and
excess water use surcharge
1984,
most
recent
update
in 2024
-- ✓
Indoor product rebates –
residential
2010 695,000 –
3,140,000
✓
Indoor product rebates –
commercial
2003 12,400 –
1,027,000
✓
Xeriscape incentive program
rebates – residential
2010 448,900 –
661,300
✓
Xeriscape incentive program
rebates – commercial
2020 54,000 –
3,495,000
✓
Custom
rebates – commercial
2011 0 – 15,000,000
(average
2,600,000)
✓
Irrigation equipment rebates –
residential
2018 1,007,000 –
1,740,000
✓
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Fort Collins Utilities
Conservation Activities
Start
Year
Tracked
Estimated
Annual Water
Savings
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Irrigation equipment rebates –
commercial
2019 1,510,000 –
9,556,000
✓
Garden in a Box discounts 2017 310,000 –
529,000
Xeriscape grants 2024 To be
determined
✓
Regulatory
Wasting water ordinance 1917 -- ✓ ✓
Building codes and plumbing
standards
1978,
most
recent
update
in 2022
-- ✓ ✓
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Fort Collins Utilities
Conservation Activities
Start
Year
Tracked
Estimated
Annual Water
Savings
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Landscape, irrigation and soil
preparation codes
1994,
most
recent
update
in 2025
1,700,000
(estimate of
annual savings
for most recent
update)
✓ ✓
Development Review includes
Water Conservation review of
irrigation plans
2011 -- ✓ ✓
Parkway landscaping
regulations
2013 -- ✓ ✓
Restrictive covenants ordinance 2003 -- ✓
Water Shortage Action Plan 2003,
most
recent
update
in 2020
-- ✓
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Fort Collins Utilities
Conservation Activities
Start
Year
Tracked
Estimated
Annual Water
Savings
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Stormwater Criteria Manual,
including Low Impact
Development criteria
2011,
most
recent
update
in 2018
-- ✓ ✓
Graywater for limited water
reuse ordinance
2022 -- ✓
Water Adequacy Determination
regulations
2023 -- ✓ ✓
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4.2.2 Planned Efficiency Strategies for Supporting Goal 1 and Lowering Treated Water Demand
Table 6. New efficiency strategies to support Goal 1
Fort Collins Utilities
Conservation Activities
Planned
Start Year
Potential Estimated
Annual Water
Savings (gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
--: Indicates efficiency savings not quantitatively tracked or estimated.
Behavioral
High Bill Evaluations -
Residential
2028 200,000 (draft) ✓ ✓
Plumbing Assistance 2028 900,000 (draft) ✓ ✓
Wrap-around Support for
Water Efficiency in
Community Greenspaces
or HOA and Large Turf
Areas
2028 -- ✓
Design Assistance for
New Development and
Redevelopment
2027 200,000 (draft) ✓ ✓ ✓
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Fort Collins Utilities
Conservation Activities
Planned
Start Year
Potential Estimated
Annual Water
Savings (gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Rental Tenants and
Owners/ Managers
Efficiency Outreach &
Giveaways
2027 -- ✓
Commercial Water Use
Benchmarking
2027 -- ✓
Comprehensive
Communications and
Marketing Plan for
Conservation Promotion
2026 -- ✓
Economic
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Fort Collins Utilities
Conservation Activities
Planned
Start Year
Potential Estimated
Annual Water
Savings (gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Regular Evaluation of
Conservation-oriented
Rate Structures with
Regular Evaluation with
Water Conservation
Involvement
2026 -- ✓
On-bill financing for
efficiency upgrades
2028 -- ✓
Regulatory
Daily Sprinkler Watering
Window
2027 Estimate in progress ✓
Examine existing land use
regulations for barriers,
conflicts to water efficiency
2028 -- ✓ ✓
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4.3 Strategies for Goal 2 and City Integrated Demand Management
The City organization will focus on continuing and improving current best practices (Table 6)
and seeking new opportunities (Table 7) to improve water efficiency and build resilience on City-
owned landscapes, in support of Goal 2. In some cases, these actions will also yield treated
water savings that contribute to Goal 1 targets and will support integrated land use and water
planning and One Water integration across Utilities and the City organization. Brief descriptions
of existing and new City strategies are provided in Appendix C.
4.3.1 Current Activities Supporting Efficiency and Resilience on City-Owned Properties
City departments currently implement numerous best practices and operations which address
distribution and treatment inefficiencies, lower treated water use, lower raw water irrigation use,
improve landscape resilience, or a combination of these. These practices are summarized in
Table 6. Note that Table 6 provides several examples but is not fully comprehensive of the
many day-to-day best practices, departmental policies, and operational decisions that guide City
water use and landscape maintenance.
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Table 7. Current City of Fort Collins activities and best practices for managing water use on City -owned properties and facilities
Fort Collins Utilities
Conservation Landscape
Resilience Activities
Start
Year
Tracked
Estimated Annual
Water Savings
(gallons)
Land Use
Integration Area of Impact
System
Water Loss
(Goal 1)
City Treated
Water Use
(Goal 1)
City Landscape
Resilience
(Goal 2)
City Raw
Water Use
Water loss auditing 1993 -- ✓
Water distribution line survey
and leak repair
2009 700,000 –
1,400,000
✓
Track water use data for City
buildings and properties
2009 -- ✓ ✓
Municipal Sustainability
Adaptation Plan
2019 -- ✓ ✓ ✓ ✓
City Administrative Policies
include water efficiency
2018,
most
recent
update in
2024
-- ✓ ✓ ✓
Irrigation application rates
based on evapotranspiration
and irrigation audits
YEAR 8,600,000
(estimation for
treated water
irrigation in Utilities
service area)
✓ ✓
Prioritize raw water sources
for irrigation of City
landscapes
n/a -- ✓ ✓ ✓
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Fort Collins Utilities
Conservation Landscape
Resilience Activities
Start
Year
Tracked
Estimated Annual
Water Savings
(gallons)
Land Use
Integration Area of Impact
System
Water Loss
(Goal 1)
City Treated
Water Use
(Goal 1)
City Landscape
Resilience
(Goal 2)
City Raw
Water Use
Landscape designs follow
xeriscape principles and best
irrigation practices
YEAR -- ✓ ✓ ✓ ✓
Growing Water Smart
Workshop participation
2018,
most
recent
workshop
in 2024
-- ✓
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4.3.2 New Opportunities for City Water Conservation, Landscape Resilience , and Land
Use Planning/Development
New strategies to lower the City’s treated water use (in support of Goal 1) and improve
landscape resilience (in support of Goal 2) were developed through collaborative discussions to
align with existing needs, practices, and objectives. These are summarized in Table 7 and
described in Appendix C.
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Table 8. New strategy opportunities for managing water use on City-owned properties and facilities
City of Fort Collins
Conservation and
Landscape Resilience
Activities
Planned
Start Year
Potential Estimated
Annual Water Savings
(gallons)
Land Use
Integration
Potential Area of Impact
System
Water Loss
(Goal 1)
Municipal
Treated
Water Use
(Goal 1)
Municipal
Landscape
Resilience
(Goal 2)
Municipal
Raw Water
Use
Technical & Financial Support
for City Efficiency Projects
within Utilities service area
from Water Conservation
Division
2025 -- ✓ ✓ ✓ ✓
Look for Opportunities to
Expand Water Conservation
Division's role in
Development Process
2025 -- ✓
Establish regular contact and
information sharing between
Water providers and Planning
staff
2025 -- ✓
Integrate Water into Strategic
Plans and Policies
2028 -- ✓
Support One Water efforts
and integrated demand
management approach
2025 -- ✓
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City of Fort Collins
Conservation and
Landscape Resilience
Activities
Planned
Start Year
Potential Estimated
Annual Water Savings
(gallons)
Land Use
Integration
Potential Area of Impact
System
Water Loss
(Goal 1)
Municipal
Treated
Water Use
(Goal 1)
Municipal
Landscape
Resilience
(Goal 2)
Municipal
Raw Water
Use
Prioritize dedicated irrigation
to trees
2026 -- ✓ ✓ ✓
Align, track and publicly
display water supply and
demand data, including
municipal uses
2025 -- ✓ ✓ ✓
Use City properties to pilot
efficiency activities
2028 -- ✓ ✓ ✓
Increase pace of Plumbing
Retrofits in Municipal
Buildings
2027 400,000 + ✓
Increased Pace of
Distribution Line Leak Repair
To be
determine
d
700,000 + ✓
Targeted Irrigation Efficiency
Upgrades on City-Owned
Properties
2028 275,000 ✓ ✓ ✓
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City of Fort Collins
Conservation and
Landscape Resilience
Activities
Planned
Start Year
Potential Estimated
Annual Water Savings
(gallons)
Land Use
Integration
Potential Area of Impact
System
Water Loss
(Goal 1)
Municipal
Treated
Water Use
(Goal 1)
Municipal
Landscape
Resilience
(Goal 2)
Municipal
Raw Water
Use
Targeted turf-to-xeric
conversions on City-Owned
Properties
2028 275,000 ✓ ✓ ✓
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5 Implementation and Monitoring
This WEP presents a general implementation timeline and monitoring approach. Impactful water
efficiency requires ongoing, adaptive management to track progress, identify and respond to
changing conditions, and adjust the portfolio of efficiency strategies and/or implementation
tactics to progress towards goals and support City priorities.
5.1 Implementation
Implementation of new customer strategies will be staggered over the coming years to gradually
increase water savings, align with staff capacity, and allow time for planning. Some strategies
may also require City Council review and approval (e.g., policy changes) or funding acquisition
prior to implementation . For City actions related to lowering the City’s treated water demand or
building landscape resilience, staff aim to complete at least one new project for every 2-year
municipal budgeting cycle, for a total of at least 7 projects by 2040. Figure 18 presents a
conceptual implementation timeline.
Figure 19. Conceptual implementation timeline
Key activities that Water Conservation staff will generally apply to implement efficiency
strategies include:
•Determine if an approval process is necessary or desired; approval is required for
actions such as code changes or funding requests
•Develop and regularly update individual implementation plans
2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035 2036 2037 2038 2039 2040
Continue Existing
Strategies
Plan & Start New Strategies
Track Progress & Adjust
Strategies
4%
320 MGY
(980 AFY)
Interim and Final Goal 2
Targets: At least 1 new City
landscape resilience project
with every 2-year budget
cycle
7+ projects
completed
Update Water Efficiency
Plan (7-year renewal cycle)
3.5%
260 MGY (800 AFY)
3%
210 MGY (640 AFY)
2.3% - 3%
> 155 MGY (> 480 AFY)
Interim and Final Goal 1
Targets: Progress to
lowering projected annual
demand by 4% 2040
Water Efficiency Milestones
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• Identify and obtain needed resources such as staff time, funding12,
materials/supplies, or external expertise
• Seek community and partner input, as needed, to effectively plan, market, and refine
strategies
• Monitor strategy metrics such as water savings, participation rates and
demographics, units replaced, or area impacted.
• Adjust strategies to improve water savings and equitable outcomes, manage funds
and resources, or align with broader Utilities, City, state, or federal requirements and
objectives.
The Water Conservation Division will holistically evaluate the combined efficacy and balance of
the full suite of efficiency strategies to consider the best timing for bringing new strategies
online, making substantial modifications, or discontinuing activities.
Successful implementation of water efficiency strategies will benefit from ongoing alignment with
the engagement themes, development of an efficiency-focused communications and marketing
plan, and maintaining the community and staff relationships that were fostered during WEP
engagement. This will facilitate water use understanding and efficiency opportunities between
Utilities and the community, especially City departments and disproportionately impacted
community members.
5.2 Monitoring
Utilities staff routinely monitor high-level metrics to evaluate water demand , efficiency impact,
and potential shortage risk. These metrics include:
• Total volume of water treated
• Total volume of water billed to
customers
• Combined measurable Water
Conservation program savings
• Average GPCD
• System water losses
12 The programs that ultimately are implemented will be a function of the City’s budgeting process or, in
some cases, securing grant funds. The City uses a Budgeting for Outcomes approach, which emphasizes
accountability, innovation, and partnerships. This is a two-year process that begins with updating the
City's Strategic Plan, which directly informs the funding choices in the budget. Throughout both phases of
this two-year cycle, community input is an important factor in setting the City's priorities and objectives.
• Water supply indicators such as
snowpack, storage levels, and
other parameters outlined in the
Water Shortage Action Plan
• Climate influences on demand,
including temperature,
precipitation, and
evapotranspiration (ET)
• Difference between projected
and actual water demand
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Many of these metrics are posted online at fcgov.com/utilities/water-availability-demand to
support transparency and community water literacy.
Additionally, Water Conservation Division staff track key performance indicators to quantify
individual and combined impacts of efficiency strategies. The following metrics will be tracked to
evaluate progress towards the WEP goals:
Goal 1 Metrics
• Treated water savings from individual efficiency strategies : This will be estimated
based on various strategies’ water savings as a result of completed projects,
participation, area, and other measurable methods.
• Total treated water savings: The cumulative measurable savings from individual
Water Conservation Division efficiency strategies. Indirect impacts associated with
education or other hard-to-measure effects are not included in these estimates.
• Total billed water demand, as well as:
• Billed treated water demand by various residential and commercial customer sectors,
evaluated by season and indoor/outdoor use
• Billed treated water use for City properties
• Area of residential and commercial water-efficient landscape improvements
• System water losses
• Program participation rates, disaggregated by demographics and/or geographic area
when possible
• Number of treated water efficiency projects on City properties and total City treated
water savings
• Reach and touchpoints from educational activities
• Strategy-specific metrics such as number and type of rebates issued, wasting water
calls, count of new development irrigation reviews completed, assessments
completed, leak notifications, portal registrations, or volunteer hours logged
• Strategy-specific customer feedback such as participant surveys
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Goal 2 Metrics
• Total number of City landscape resilience projects completed
• The number and square footage of irrigation efficiency projects completed on City -
owned landscapes
• The number and square footage of turf-to-low-water landscape conversion projects
completed on City-owned landscapes
The Water Conservation Annual Report provides a detailed overview of the impact of water
efficiency programs. It serves as a tool for accountability, keeping the community informed
about progress toward water efficiency goals, challenges faced, and the direction for the future.
The annual report is posted online in an accessible format and available in print form at events.
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6 Adoption, Public Review, and Formal Approval
6.1 Adoption of New Policy
City of Fort Collins City Council approved and adopted this WEP by resolution on Month XX,
2025. This document replaces the previous WEP, which was approved in 2015.
6.2 Public Review Process
6.2.1 Public Review of WEP Document
Utilities conducted an extensive public engagement process as part of preparing this WEP, as
described in Section 3.5 and Appendix B. Public comments on the draft WEP were received
from April XX – May XX, 2025. During this time, the draft WEP was posted online and
community members could submit comments via an online form. Although the draft was
prepared in English only, both the draft document and online comment form can be translated
via Google Translate. Community members could also request a mailed printed version of the
draft WEP and comment form.
Comments received during the public comment period are summarized in Appendix D.
6.3 Local Adoption and State Approval Processes
Staff met with multiple Fort Collins advisory boards and commissions during the WEP
preparation phase, a s well as during the public comment period to seek final input and
recommendations for approval. These meetings are described in Appendix B. The WEP was
presented to Fort Collins City Council at Work Sessions on Feb. 13, 2024 and Feb. 25, 2025. At
the regular session on Month XX, 2025, Council adopted the plan by resolution.
Utilities staff maintained regular communication with CWCB staff during the WEP preparation
process. The CWCB reviewed the public comment. The Council-approved final WEP was sent
to CWCB for approval in August 2025.
6.4 Periodic Review and Update
Progress towards the WEP goals will be monitored annually and reported in the Water
Conservation annual reports, which are publicly available and submitted to the Fort Collins
Water Commission for review. Utilities will develop an updated WEP at the frequency required
by state regulation. The next WEP update is expected to begin in 2032.
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7 References
Placeholder – Add reference section
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Appendix A: Brief History of Water Conservation
This WEP updates and builds on the past water demand management goals and efficiency
program strategies. Utilities has a long history of active water efficiency. Faced with a drought in
1977, Utilities created a part-time water efficiency position. In 1989, the position expanded to a
full-time position. The first WSDMP in 1992 lead to an expansion of efficiency projects and
increased educational and outreach efforts. The 1992 policy set an efficiency goal of 195 GPCD
by the year 2010. Subsequent revisions of the WSDMP, followed by the first Water Efficiency
Plan in 2010, have set increasingly rigorous goals and planning demand levels , as shown in the
figure below.
Figure A- 1. Historical water demand management planning levels and goals
Prompted by the drought of 2002 -03, Utilities made several efforts to increase accountability
and encourage efficient use of water, including fully metering every customer. Utilities
implemented an efficiency-oriented rate structure – a tiered rate structure – with a seasonal
component, created several new outreach and educational programs, and develop ed its first
Water Supply Shortage Response Plan as guidance during drought and other emergency
conditions.
Utilities’ Water Conservation program expanded again in 2010 with the development of a formal
Water Conservation Plan, which was approved by the Colorado Water Conservation Board in
early 2010. This plan set the efficiency goal of 140 GPCD by 2020. The 2015 WEP replaced the
Water Conservation Plan and set a goal to lower demand to 130 GPCD by 2030. City Council
approved the budget for additional programs and staff outlined in the 2015 WEP.
Historic Water Demand Management Planning Levels and Goals
Fort Collins Utilities
223 GPCD
by 1996
(1992
WSDMP
185 GPCD by 2010
(2003 WSDMP goal)150 GPCD
(2010
WSDMP
planning
level)
140 GPCD
by 2020
(2010 WEP
goal)
130 GPCD
by 2030
(2015 WEP
goal)
195 GPCD by 2010
(1992 WSDMP goal)
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The 2015 WEP identified five key areas of opportunity for greater water efficiency that guided
efficiency activities for the past several years:
• Leverage advanced meter Fort Collins data and capabilities
• Promote and support greater outdoor water efficiency
• Encourage greater integration of water efficiency into land use planning and building
codes
• Expand commercial and industrial strategies
• Increase community water literacy
Water Conservation Division programs, policies, and activities have centered around these
areas of opportunity since 2015 . Utilities’ per person demands declined significantly over the
last few decades. However, per capita consumption has remained fairly steady since 2017, and
Utilities met the previous 2015 WEP goal only once, in 2023. In that year, the service
experienced unusually high precipitation during irrigation months, which encouraged customers
to reduce their outdoor water use. In 2024, per-capita demand was 135 GPCD, similar to pre-
2023 levels.
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Appendix B: Alignment, Equity, and Engagement
Strategic Alignment
In addition to applying a One Water approach as described in Section 3, this WEP update
strives to align with key related policies and plans that provide direction and/or complement the
Utilities’ water efficiency efforts. Along with the most recent 2015 WEP, these documents were
considered by staff when developing this updated WEP and will also guide implementation
moving forward.
City of Fort Collins Strategic Plan (2024)
This document is a result of a planning process incorporating input from c ommunity members,
businesses, City Council, and City staff. It identifies the City’s key outcome areas as well as
several strategic objectives in each area; these are to guide the work in all City service areas.
Water efficiency aligns very strongly with Strategic Objective ENV 2, “Sustain the health of the
Cache la Poudre River and regional watersheds while delivering a resilient, economically
responsible and high -quality water supply for all Fort Collins residents.”
City of Fort Collins Administrative Policies (2024)
The City’s Administrative Policies include guidelines for water conservation in City operations.
The Policies reinforce the City’s commitment to a water conservation ethic and to using water
efficiently, as a model for wise water use throughout the communi ty. The Policies also note that,
whenever feasible, City activity located outside of the City -governed Fort Collins Utilities water
service area should also follow Fort Collins Utilities guidelines and requirements, including but
not limited to, the Water Efficiency Plan and Water Shortage Action Plan.
Colorado Water Plan (2023)
The Colorado Water Plan provides a framework for helping Colorado meet its water challenges
through collaborative action around water development and water conservation. The Plan
guides future decision -making and supports local actions to address water challenges with a
collaborative, balanced, and solution-oriented approach that builds resilience. The Colorado
Water Plan includes actions in four main focus areas: Vibrant Communities, Robust Agriculture,
Thriving Watersheds, and Resilient Plannings.
Fort Collins City Council Priorities (2024 – 2026)
City Council Priority 7: Protect Community Water Systems in an Integrated Way to Ensure
Resilient Water Resources and Healthy Watersheds
Fort Collins City Plan (2019)
The City’s comprehensive plan, City Plan guides how the community is expected to grow over a
one- to two-decade horizon. City Plan includes guidance on future land-use and transportation.
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Municipal Sustainability Adaptation Plan (2019)
The Municipal Sustainability and Adaptation Plan is the employee roadmap to being a
sustainable organization. The City aims to be sustainable and resilient to continue to provide
world-class services and demonstrate excellence and innovation in daily work. With this plan,
the City formally addresses climate adaptation and resilience, to prepare for the future.
Natural Areas Master Plan (2014)
This plan sets priorities for conserving land and water while providing meaningful education and
appropriate recreation opportunities.
One Water Framework (2025)
Opportunities for integrated water resource management will be identified through a One Water
evaluation and ongoing implementation of One Water principles. T he One Water Action
Framework advances collaborative and holistic water management approaches that promote
healthy watersheds, resilient communities, and water equity.
Our Climate Future (2021)
This plan guides the City toward a more sustainable future while focusing on the needs of
people and provides a high-level framework to achieve carbon emissions reduction objectives.
Big Move #3 – Climate Resilient Community addresses water as follows: Update the Water
Efficiency Plan, a Council-approved and State-required guiding document for water
conservation and efficiency. Adopt a holistic approach to integrated water resource planning
and management Explore and adopt water-wise landscaping standards. Explore incorporating
Nature-based Solutions in the planning and development of infrastructure and other City
projects. The plan also includes an action to adopt a holistic approach to integrated water
resource planning and management.
Parks Infrastructure Replacement Plan (2022) and Parks and Recreation Master Plan (2021)
These plans identify planning and infrastructure replacement priorities for the City’ parks, trails,
golf courses, swimming pools, and recreational facilities, including irrigation systems. These
priorities provide opportunities to align and collaborativel y address water efficiency and
landscape resilience targets set in this WEP. The Master Plan identifies goals and actions,
including prioritizing the use of raw water or other irrigation systems that conserve water
resources and build resiliency and targeting reduced water consumption.
Water Shortage Action Plan (2020)
This document identifies the restrictions and requirements intended to achieve progressively
higher levels of water savings under various projected water shortage conditions. The original
plan was approved by City Council in 2003 and update s were approved in 2014 and 2020.
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Water Supply and Demand Management Policy (2012)
This is the guiding document for water supply and demand management activities. The
objective is to provide a sustainable and integrated approach to 1) ensuring an adequate, safe,
and reliable supply of water for the beneficial use by customers and the comm unity, and 2)
managing the level of demand and the efficient use of a scarce and valuable resource
consistent with the preference of Utilities water customers and in recognition of the region’s
semi-arid climate. The original water supply-focused policy was developed and approved in
1988; it was updated in 2003 and again in 2012, with the most up -to-date report published in
2014. This Policy defers to the latest Water Efficiency Plan to set the efficiency goals. The
Policy also requires stable transparent water rate structures that provide an economic incentive
to use water efficiently.
Urban Forest Strategic Plan (2025)
This comprehensive plan guides management, protection, and improvement of Fort Collins’
urban forest and provides action recommendations to ensure that the urban forest remains
healthy and vibrant into the future. The plan includes water efficiency and drought resilience
actions including giving trees dedicated irrigation, creating a drought response plan, developing
educational resources for tree watering and drought-tolerant species selection, creating water -
smart landscapes on City properties.
Equity Considerations
The Water Conservation Division acknowledges equity concerns associated with water use and
efficiency, including efficiency program participation, and that costs are increasing and
vulnerable populations will be disproportionately impacted by climate. Removing barriers and
providing more equitable access to water efficiency program participation, will better customers
by reducing their water use and associated costs , increasing individual resilience to future water
shortages, and increasing the entire community’s risk of future water shortage through overall
lower demands. Equity is integrated into the WEP update process and Water Conservation work
through (1) targeted engagement activities, (2) selection of efficiency strategies, and (3)
implementation and evaluation of efficiency strategies.
Numerous City and State efforts support equity in water planning, including:
City of Fort Collins 2024 Strategic Plan
(Strategic Objective: Neighborhood & Community Vitality 3)
Identify and remove systemic barriers and advance equity so that persons of all identities,
including race, ethnicity, religion, sexual orientation, gender identity, gender expression, age,
mental and physical abilities, and socioeconomic levels can access programs and services with
ease and experience equitable outcomes
2024-2026 City Council Priorities
Improve human and social health for vulnerable populations : Obstacles and barriers exist that
impede access to services for our underserved community members. We need to work with our
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regional partners and invest in a robust and accessible safety net to create conditions where
one is not needed.
2021 Our Climate Future Plan (Appendix I)
We designed Our Climate Future with the goal of equitable solutions that address a spectrum of
needs within our community…This approach is intentional about addressing barriers and
designing solutions that work for those most impacted, while also ensuring all community
members can benefit, participate, and influence outcomes.
2023 Colorado Water Plan
Recognizes that robust and inclusive water planning builds resilience to respond to water
challenges and advances equitable outcomes for all.
Importance of Equity in Water Conservation Planning
Accessibility
Currently, water efficiency programs underserve some groups in the community. Analysis of
efficiency program participation data relative to Census demographics revealed:
• Current programs underserve diverse and low -income areas.
• In addition to other races/ethnicities, Hispanic, non -white community members show
the largest gap in program participation
• Programs predominately serve homeowners while underserving renters
Housing and Utilities Costs
The cost of water is a key element of housing affordability – both the cost to develop housing
and the utilities cost passed on to the future owner/occupant. The 2021 Fort Collins Equity
Indicators Final Report notes that the median annual combined water and electric utility cost is
about 1.8% of median income for City residents. Utilities affordability programs aim to minimize
this cost through programs that offer emergency and long -term assistance through reduced
utility rates and access to efficiency pro grams. As of 2024, approximately 570 Utilities water
customers were enrolled in the Utilities Income Qualified Assistance Program.
Expanding water efficiency opportunities is also important as Utilities looks to the future and
strives to maintain affordability and quality of life across the community. Water utility rates are
predicted to increase in coming years in response to critical infrastructure needs.
Climate Impacts
Climate change can worsen long-standing inequities, as noted in in the Fifth National Climate
Assessment13, “Some communities are at higher risk of negative impacts from climate change
due to social and economic inequities caused by ongoing systemic discrimination, exclusion,
and under- or disinvestment. Many such communities are also already overburdened by the
13 nca2023.globalchange.gov
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cumulative effects of adverse environmental, health, economic, or social conditions.” By
applying an equity lens to water demand management planning now, Utilities aims to follow the
approach laid out in the Our Climate Future plan, which acknowledges that l ocal governments
have the opportunity to prioritize actions that simultaneously address equity and enhance
community resilience - leading to better outcomes for all.
Equity in Engagement
When an equity lens is applied to interactions with the public, Utilities ensures that all voices are
heard and informed. Equity and inclusion work is especially focused on elevating the voices of
communities who have been disproportionately disadvantaged and historically excluded. To
increase public participation and quality civic eng agement, City staff worked to better
understand the circumstances and characteristics of the local community and demographics
and the positional power of municipal government to influence who benefits directly.
WEP Sections 3.4 and 3.5 described efforts to develop inclusive community-driven water
efficiency goals and strategies by engaging disproportionately impacted customers (including
those who have been historically and currently excluded and underserved), while also pursuing
broad general engagement. A variety of engagement tactics were implemented including a
widely promoted survey and numerous meetings. The most effective ways to receive feedback
from disproportionately impacted community members involved investing time and resources on
targeted group or one-on-one interactions and making it easier for people to participate. These
engagement efforts helped fill in information gaps remaining following the broader survey.
Utilities successfully collected a statistically significant number of survey responses (1,319).
Staff provided paper surveys at frequented community locations (e.g., libraries), tabling at
community events, meeting customers where they were (e.g., attending a student gathering),
and offering Spanish language versions. Five people responded in Spanish and 40 filled out the
paper version of the survey14. 58% of survey respondents answered demographic questions.
Comparison of respondent demographics to City-wide census demographics identified
demographic gaps in survey responses including residents who identified as Hispanic, Black, or
Asian, non-student renters and low-income residents, non-residential customers (including
businesses, organizations, and institutions), and people than age 30.
Themes observed from WEP engagement included these equity-related challenges for the
community:
Affordability
The most frequently mentioned equity issue dealt with the cost of water efficiency. Wealth
fundamentally offers high-income customers freedom of choice in how much water they use.
These customers can typically afford projects or technologies that help them reduce their water
14 While these numbers may appear low relative to the overall response total, the consultants
recommended continuing to provide these alternative distribution channels for maximal accessibility of
future surveys.
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use, which may be out of reach for lower -income customers. Lower-income customers, on the
other hand, were perceived to struggle more to afford basic water bills and/or efficiency
upgrades, limiting their ability to use less water. Many respondents noted t hat wealthier
customers are more likely to have outdoor irrigation needs such as lawns and thus raised
excessive outdoor water use as an equity concern.
Renter Autonomy
Concerns arose around the ability of renters to participate in programs because they do not
have sole control over their water usage. From an infrastructure perspective, renters lack
access to water use information that may influence how efficient or conse rvative they are with
their water. Metering practices tie multiple customer’s irrigation water to a single bill or are only
accessible to the property owners or managers, and appliances and equipment that use water
are often selected by landlords. Depending on who pays water bills and how water costs are
determined, there can be conflicting incentives or little motivation for renters or property owners
to invest in water efficiency at a rental property. Water Conservation Division staff have also
observed a related concern: aging infrastructure in rental properties and mobile home parks can
lead to water leaks, service outages and high bills. Tenants have little power to change this .
Accessibility and Participation
Many survey respondents observed that water efficient technologies may be cost -prohibitive for
low-income residents or disallowed for renters. Some respondents expressed dissatisfaction
with the current rebate programs, which require upfront cost investmen t and can be complex or
time-consuming. These barriers may disproportionately dissuade customers from participating
in such programs.
Relationship Building
Equity-priority audiences prefer a variety of
outreach methods. Every audience is different,
and Utilities should understand what works best
for each by working directly with community
members or partner organizations. Reframing
engagement from an aspect of the planning
process to long-term relationship-building will
increase access to efficiency programs.
To better understand the community’s sentiments
and values related to equity and water use, the
survey included an optional write -in response to
the following question:
In the Water Efficiency Plan update process, we are focusing on equity. Equity means
considering individuals’ and communities’ histories, lived and living experiences, and needs.
It also means prioritizing and serving those most marginalized first and with deeper care.
When you think about equity as it relates to using water in Fort Collins, what comes to mind?
“This is a hard question to
answer. If we want all
customers to receive the
same high level of service,
regardless of their
background, then this
shouldn't matter.”
- WEP Survey Respondent
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The 523 responses to this question illustrated a broad lack of consensus on the definition of the
word “equity” in this situation and the role that it should play in Utilities’ work and approach to
providing services. Many respondents (approximately one-third) discussed the structural and
systemic challenges to water efficiency: that certain demographic groups such as renters, low -
income residents, and non-English speakers would benefit from dedicated programming that
supports their access to clean, affordable water and water efficiency.
Others (slightly over one -quarter of respondents) responded critically to the question,
suggesting that Utilities’ focus on “equity” is misguided or unfair. These respondents preferred to
treat all customers the same, believing that targeted programs would draw resources away from
others, the community, or the overarching problem of water overconsumption.
These varied responses reflect a broad community dialog regarding equity versus equality and
the challenge of balancing equitable program delivery with programing equally accessible to all.
Equity in Conservation Strategy Selection and Implementation Planning
As described in WEP Section 3.4, staff and consultants developed a two -step equity evaluation
process to identify barriers and improve the accessibility of efficiency strategies. The project
team conducted a series of informational interviews with City staff and community leaders to
develop the evaluation tool.
Conservation strategy selection involved conducting a r ed flag assessment (step 1 of the equity
evaluation process). This is an initial check of whether the strategy has obvious equity issues ,
based on staff knowledge of the burden of compliance, unintended consequences, and barriers
to participation. This assessment was applied “midstream” in the efficiency strategy selection
process to inform both final selection of proposed strategies, as well as to identify which
strategies might need refinement to impr ove equitable access and positive outcomes.
In addition to the red flag assessment, the following criteria (Section 4.1.1) informed strategy
scoring and final selection:
• Acceptance: Does this activity meet the needs and wants of Utilities water
customers? Does this activity support the social and economic health of customers?
Staff assigned a high, medium, or low score based on community engagement and
past project experience.
• Reach: How many customers could be impacted by this program? What types of
customers does it reach? Is it likely to reach previously unengaged customers?
The default AWE tool calculation method was used, informed by actual or projected
participation information.
• Co-benefits: Staff identified potential environmental (e.g., promote short -term drought
responses, lower greenhouse gas emissions) and social (e.g., improve water
literacy, foster positive interactions with government) co -benefits. Strategies with
more likely co-benefits received a slightly higher score.
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The second step of the equity evaluation will be applied during implementation planning for the
full portfolio of existing and new efficiency strategies. This will involve evaluating each strategy’s
potential to support positive equitable outcomes and developing implementation plans intended
to maximize positive equitable outcomes for disproportionately impacted and underserved
groups. A range of questions will be applied to each strategy to assess whether the strategy is
likely to have a high, medium, or low support of the desired equity outcomes. Staff will work to
adjust program implementation over time to increase the likelihood of high support for positive
outcomes.
As noted in WEP Section 3.4, the efforts to elevate equity in both engagement and decision -
making should be considered the starting point of an ongoing approach to offering equitable
water efficiency activities that best serve all customers. Staff will continue applying and refining
the engagement tactics and equity evaluation methods in an effort to improve access,
participation, and efficiency benefits across the community. To the extent possible, program
participation will be tracked and compared to demographics or other indicators as one metric to
evaluate changes in participation and equity over time.
Engagement Activities
The following engagement activities were conducted during development of the WEP. Feedback
from these activities is summarized in Section 3.5.
Engagement with the Community
Feedback from community members was critical to the development of water efficiency goals,
selection and preliminary design of efficiency strategies, and development of the equity
evaluation tool. A wide variety of tactics were conducted over several months to foster both
broad participation and feedback from equity-priority groups. Community engagement activities
are summarized in Table B-1 and included:
Community Consultants
The broader public engagement process began by hiring four community members to lead
engagement with equity priority stakeholder groups. Each of these community consultants
selected their target stakeholder groups based on their specific backgrounds and ex periences.
The community consultants’ program was integral to the engagement approach of this plan
update process. Designed to collect community insights and feedback authentically and through
trusted community brokers, the community consultants program em phasized meeting
communities where they are rather than inviting them to come to Utilities of the City. Meeting
formats ranged from one-on-one phone calls and home visits to attending an existing
community meeting, deploying many of the engagement best pra ctices described in the
engagement plan. Reaching over 110 community members in over 15 different locations across
the city and over the phone and in people’s homes.
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Community-Wide Survey
Utilities and the consultant team also developed a community -wide survey to collect input from
the broader Fort Collins community on water efficiency priorities, concerns, and opportunities.
The bilingual survey was uploaded to the City’s online engagement platform, Our City, and
distributed in hard-copy form to two libraries, the Utilities Administration Building, and events
attended by Utilities staff. Utilities promoted the survey digitally through several avenues,
including Our City, social media, email distribution lists, and at events attended by Utilities staff.
The tabling events hosted by staff to promote the survey included paper version with English
and Spanish translation, efficiency-related giveaways, and coloring books for kids. Ultimately
the survey garnered 1,329 responses, including 40 hard copy responses and five Spanish
language responses.
Community Events
Utilities staff attended several community meetings throughout the process to collect input and
feedback from specific stakeholder groups. Over the course of six months, Utilities staff
presented at or organized eight meetings, to listen and collect feedba ck on water efficiency
goals, programs, and challenges.
Informational Interviews
Along with interviewing key staff and members of the Climate Equity Committee, five community
leaders were involved in a discussion about the equity evaluation process. These individuals
were identified by Utilities as key connectors and experts who could provide insight on existing
equity challenges in the City, on best practices for integrating equity into plans, and from the
perspectives of equity priority communities.
Table B-1. WEP update community engagement activities
Audiences Reached Engagement Tactic
Community Consultant-Led Engagement: Over 110 engaged
Native American community Community Consultant-led activities including
meetings and tabling
Small business owners and managers
Wildlife Interest
Religious groups
Elderly
Mobile Home residents
Colorado State University community
Spanish speakers
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Audiences Reached Engagement Tactic
Students
Renters
WEP-Focused Meetings and Events: Over 200 engaged
Representatives from various City Boards and
Commissions
Presentations and feedback collection at City -
organized board and commission meetings
Water-wise landscaping professionals Presentation and feedback collection at
facilitated meeting of participants in Certified
Landscaping Professionals & Xeriscape
Incentive Program Ambassadors programs;
included meal
Spanish speakers in mobile home parks Facilitated engagement with participants in
Community Champions group; included
translation services, meal, and childcare
Colorado State community Defend Our Beer tabling event
Broad community Campus sustainability groups facilitated
workshop
People with disabilities People First
Small business owners Presentation and feedback collection at
facilitated meeting of NoCo Business Connect;
included meal and translation services
HOA residents who have completed water-wise
landscape projects
Presentation and feedback collection at
facilitated meeting of participants in Utilities
landscaping programs
Broad Community Outreach: Over 4,700 engaged
WEP community survey 1,319 (40 submitted via paper handouts, 1,279
submitted online; 5 in Spanish, rest in English)
WEP information sharing at community events
including Earth Day, Eco Fest, Defend Our Beer
186 participants Feedback frames were used to
gain “Yes” or “No” votes on 12 water efficiency
strategies
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Audiences Reached Engagement Tactic
WEP outreach and marketing including
bilingual movie theater ad, utility bill inserts,
customer emails, key accounts meeting, social
media, e-newsletters, university student
advertising, staffed info booths
3,216 hits on the public engagement website
about the WEP update
Engagement with City Advisory Groups
Staff sought input on water use, conservation, and efficiency from multiple advisory groups:
City Council
Utilities staff presented information about the WEP update process and proposed goals and
strategies at City Council Work Session meetings on February 13, 2024 and February 25, 2025.
Council provided feedback and comments that informed the final WEP goals and strategies.
City Board and Commission Super Issues Meeting
City board and commission participants have the opportunity to participate in “Super Issues”
meetings to learn about and discuss broad topics that could affect the community at large.
Utilities staff presented an overview of the WEP and demand management strategies.
Feedback was collected through discussion and an informal questionnaire. General sentiment
was that the greatest opportunities for efficiency may exist with commercial customers
(including businesses, HOAs and commercially metered multifamily pr operties) with high
outdoor use. Participants suggested that engagement should include heavy incentives and light
regulations, or an even mix of incentives and regulations.
Water Commission
The City’s Water Commission advises the City Council on focuses on all aspects of water. Staff
met with Water Commission on April 6, 2023 and May 18, 2023 to seek early input on efficiency
strategies that staff should consider for evaluation during the WEP update. An interactive voting
exercise and large group discussion indicated a high interest in turf restrictions, budget -based
water rates, and increased collaboration on efficiency programs. Staff met with the Water
Commission again on March 20, 2025 to provide an update and seek feedback on proposed
goals and strategies. Update following next meeting in May or June to seek WEP
recommendation.
Natural Resources Advisory Board
The Natural Resources Advisory Board advises the City Council on all matters pertaining to the
sustainability of the City’s natural resources including water resources. An overview of the
Water Efficiency Plan in-progress update was presented with an empha size on the information
learned from engagement efforts with community members and staff. Members were led
through an engagement activity to seek input on aligning water efficiency strategies with WEP
guiding principles: urban tree health/benefits and chal lenges of raw water irrigation. Main focus
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was WEP overview and seeking input on two specific topics: the nexus between efficiency and
urban tree health and benefits and challenges of raw water irrigation Placeholder: Scheduled to
meet with NRAB in in May 2025 to seek WEP recommendation. Add brief description here
following meeting.
Parks Commission
Placeholder: Tentatively scheduled to meet with Parks Commission in April 2025 to seek WEP
recommendation. Add brief description here following meeting.
Planning and Zoning Commission
Placeholder: Scheduled to meet with P&Z in May 2025 for work session followed by regular
meeting to seek WEP recommendation. Add brief description here following meetings.
Climate Equity Committee
The City’s foundational climate action plan, Our Climate Future, helped establish the Climate
Equity Committee (CEC), a citizen advisory group that advises the City on integrating equity into
its climate work. The CEC met with Utilities staff three times throughout the process and
provided deep feedback on the engagement process and equity evaluation. Placeholder: add a
sentence if we return to CEC for WEP updates in 2025.
Engagement with City Staff
A variety of engagement activities were conducted with City staff who work in departments that
use water for municipal purposes including parks, natural areas, cemeteries, open spaces,
streetscapes, municipal trees, municipal buildings, recreation centers, and pools. Staff feedback
informed organizational water use goals and strategy priorities, as well as alignment with
policies, plans, and practices. Staff enga gement tactics are summarized in Table B-2 and
included:
Staff Core Team and Lead Team
The Strategic Leadership Team is made up of seven city staff members, with the goal of helping
to champion, learn, integrate, and support. This team stays informed on WEP progress and
helps to provide strategic guidance on the outcomes including the WEP go als, integration with
Our Climate Future, and Water Commission communications. Following the completion of WEP,
these champions will help to implement WEP strategies within teams across City organizations.
The Staff Core Team consists of more than 10 city staff members. Like the Strategic Leadership
Team their goal is to stay informed and provide strategic guidance throughout the WEP update
process. The Core Team reviews, provides feedback and varying perspective, guides overall
direction, ensures continuity of subgroup tasks and alignment with overall WEP efforts.
Following the completion of WEP, this team will help to facilitate implementation of WEP
strategies within teams across City organizations. Both teams meet monthly or quarterly and at
key milestones.
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Staff Road Shows
As a part of preliminary pre-engagement hundreds of staff and community members were
engaged in a dozen presentations or activities during this phase. Presentations were given by
Water Conservation staff to key departments across the City. The road shows were intended to
provide awareness of the WEP update effort and foundational information to City staff
departments, prior to facilitated meetings in Q1 -Q2 2024 with some departments to identify and
discuss water efficiency strategies.
Staff Focus Groups and Meetings
In April of 2024, Utilities hosted several City staff in a series of four focus groups intended to
collect feedback on the Utilities’ proposed strategies and goals. Additional small-group meetings
were also held. Staff attendees were from various departments and divisions across the City’s
water users, including Parks, Operation Services, Engineering, Environmental Services, Water
Resources, Water Treatment, Field Operations, Planning, Recreation, Forestry, Golf, Parks
Planning, Natural Areas, Gardens on Spring Creek, Economic Health, Customer Care and
Technology, Energy Services, Utilities Affordability Programs, and Social Sustainability.
Informational Interviews
A key aspect of this plan update process for Utilities was the development of an evaluation by
which strategies would be assessed for their potential equity impacts. This evaluation was co -
created by Utilities staff and the consultant team, then vetted through a series of informat ional
interviews with key staff members, members of the Climate Equity Committee, and five
community leaders. The community leaders were identified as key connectors and experts who
could provide insight on existing equity challenges in the City, on the be st practices for
integrating equity into plans, and from the perspectives of equity priority communities.
Table B-2. WEP update City staff engagement activities
Focus Area Engagement Tactic Date
WEP-Focused Staff Engagement: approximately 500 engaged
WEP Road Shows WEP overview and kick-off presentations
with at departmental all-staff meetings
Municipal Indoor Water Use Facilitated focus group feedback collection
by consultant facilitator
4/1/2024
Municipal Outdoor Water Use 3/21/2024
Municipal One Water and
Conservation Opportunities,
Including Municipal Operations,
Distribution, and Stormwater
3/21/2024
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Focus Area Engagement Tactic Date
Land Use and Building Policies and
Customer Impacts
4/1/2024
Informational Interviews with staff
working on equity, climate, and
sustainability topics
1:1 or small team interviews by consultant
facilitator
June 2024
Information sharing meetings with
staff from departments and
divisions including Parks, Operation
Services, Engineering,
Environmental Services, Water
Resources, Water Treatment, Field
Operations, Planning, Recreation,
Forestry, Golf, Parks Planning,
Natural Areas, Gardens on Spring
Creek, Economic Health, Customer
Care and Technology, Energy
Services, Utilities Affordability
Programs, and Social Sustainability
Internal meetings to share information, seek
collaboration opportunities, and align
municipal efforts
Summer
2024
State of the Water and Parks
departmental meetings
Internal meetings to learn about practices
and challenges, seek collaboration
opportunities, and align municipal efforts
Spring 2024,
Spring 2025
Municipal water use goal and
strategy development (follow-up to
facilitated focus groups)
Meetings with key staff and managers for
departments connected to WEP municipal
efficiency strategies
Summer –
Fall 2024
Key Findings from WEP Engagement
Seven primary research questions were used to guide feedback collection across all
engagement tactics. Below is a summary of community member feedback as interpreted by the
project team, organized by the seven questions.
• What are the public’s top concerns around water efficiency, and how strongly are
those concerns held? Will those concerns drive public action?
o Long-term viability of Fort Collins’ water supply, especially given the changing
climate and population growth.
o Water scarcity and potential for rising water costs, which would exacerbate
equity and access issues.
o Financial cost of water efficiency upgrades, particularly around xeriscaping.
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o Threats to water quality, especially for mobile home park residents and with
climate change.
o The issues of scarcity and sustainability were nearly universal.
o Some responded with desires to curtail population growth and development;
or require much more stringent regulations on water use for new
development.
o Others expressed broader support for public action.
• What water efficiency strategies (e.g., programs, incentives, policies, education) are
the public most interested in?
o Water efficient fixtures were the most mentioned incentive program followed
by xeriscaping and water audits.
o Education was a commonly mentioned strategy to promote water efficiency
with the public.
o Opportunities to tailor education and outreach for : landscapers as they are
key players in guiding homeowners; HOAs that set policies for outdoor
landscaping for their communities; homeowners and realtors to normalize
xeriscaping and water-wise landscaping; and equity priority communities to
promote participation in programs.
• What are the public’s values and sentiments related to equity as it pertains to water
efficiency and uses?
o Wealthy residents and businesses can afford to pay fines or higher rates.
o In contrast, low-income residents would struggle to pay for bills, fines, and
necessary upgrades.
o Landlords may pay water bills for their renters, which means tenants do not
necessarily benefit from water efficiency efforts.
o Low-income communities face higher leakage rates, older infrastructure, and
less efficient fixtures and appliances.
o Urban heat island effect and tree canopy coverage may suffer from water use
restrictions, which would disproportionately impact equity priority
communities.
o Concern over the conflicting incentives between landlords and tenants, both
residential and business.
• What is the public’s appetite for mandates versus incentives?
o Greater interest in regulating large businesses, public spaces, HOAs and the
City’s operations. This was particularly strong in equity priority communities
and young people.
o More desire for incentives targeted at private residences, small businesses,
and mobile home parks.
• What are the gaps in the existing public outreach approach?
o Low-income renters.
o Spanish speaking community.
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o HOAs, landscaping professionals, and realtors are important groups to
continue or begin engaging.
• What are the potential drivers for individual action on water efficiency?
o Increased transparency on City water efficiency efforts and major commercial
users.
o Understanding of the impact of individuals’ efficiency efforts.
• What are effective methods for reaching both general and priority audiences?
o Invest in building relationships and building in the time during engagement
processes to listen to people’s concerns first.
o Reframe engagement from an aspect of the planning process to long-term
relationship-building work. (Climate Equity Committee)
o Identify opportunities to streamline or leverage existing intervention points
such as when business owners receive their business licenses.
o Meeting community members at locations or times when they are already
meeting and attending community events.
o Engagement opportunities to continue building off including:
▪ Renewing Community Consultant contracts.
▪ Strengthening relationships with community groups.
Suggestions for Future Engagement
Utilities received many suggestions throughout the engagement process for opportunities to
improve or build on its engagement efforts. Central to these recommendations is the idea of
reframing engagement from an aspect of the planning process to long -term relationship-building
work. Every engagement should be treated as an opportunity and building block for creating
deeper relationships in community. There was a strong desire throughout Utilities’ engagement
with equity priority communities for the City generally to center engagement and strategy
development around their needs. Participants stressed the importance of identifying groups
missing from previous efforts and developing ways to craft culturally relevant, accessible
messaging and communications. To adapt a common refrain in public engagement, the
community’s feedback suggests that simply “inviting them to the table” misses the opportunity to
meet them at their own table.
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Appendix C: Conservation Strategies
Water efficiency strategies were identified and selected following the process described in WEP
Section 4. This process yielded a portfolio of both existing strategies that will be continued and
opportunities for new strategies to gradually implement.
In this WEP update, Utilities categorized water efficiency strategies based on the primary
approaches, or “levers,” of impact: behavioral, infrastructure, economic, and regulatory.. These
categories are similar, but not identical, to the SWSI Levels Framework (foundational activities,
targeted technical assistance and incentives, ordinances and regulations, and educational
activities) outlined in the CWCB’s Municipal Water Efficiency Plan Guidance Document. The
SWSI level description for each strategy is listed to facilitate comparison to CWCB guidance.
Current Strategies Supporting Goal 1
This section provides brief descriptions of the current Water Conservation program activities
that staff intend to continue to make progress towards Goal 1: Reach 4% annual reduction in
water use by 2040 to reduce risk of shortages . Additional information about these strategies
is provided in WEP Table 4.
Behavioral
Community Education Programs (1977)
Utilities conducts educational programs about Xeriscape landscaping, watering techniques and
practices, fixture replacements, and general water efficiency. A daily Lawn Watering Guide is
published on the City’s website during the watering season. Informati on is disseminated via bill
inserts, bus benches, billboards, events, newspaper articles, TV and radio announcements,
Utilities website information, social media, and more. The team also serves as technical experts
to help commercial customers with water u se or billing questions. Displays are set up at several
community events (SWSI Educational activity)
Garden Party Community Event (2003)
Annual one-day event with free classes, a native plant swap, and booths staffed by local
professionals, non -profits and City staff promoting water-wise landscaping.
Xeriscape Demonstration Garden (1986)
Staff oversees maintenance of the City's Xeriscape Demonstration Garden and provides tours
at organized events and upon request. Utilities is also partnering to support various
demonstration gardens and other events at the Gardens on Spring Creek. (SWSI Educational
activity)
Conservation Equipment Giveaways (1990)
Free efficiency kits with indoor and/or outdoor water-saving devices and information are offered
periodically to customers during events. (SWSI Educational activity)
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Student (K – 12) Education Programs (1977)
Led by Utilities Community Engagement staff, presentations and hands -on activities are
provided to school classes on water topics, including the history of water in Fort Collins, water
use and efficiency, water chemistry and watersheds. (SWSI Educational a ctivity)
Fix a Leak Week (2016) Campaign
Fort Collins participates in Fix a Leak Week activities sponsored by the U.S. EPA’s WaterSense
Program. Activities and promotions vary year -to-year and are conducted in partnership with
Utilities Community Engagement staff. (SWSI Educational activity)
Irrigation Assessments – Residential (1999)
Free assessments are offered to homeowners to help them improve sprinkler system efficiency.
Since 2024, this has been done in partnership with Resource Central. (SWSI Targeted
Technical Assistance and Incentives activity)
Irrigation Assessments – Commercial and HOA (2024)
Assessments are offered to businesses and HOAs to help them improve sprinkler system
efficiency. Since 2024, this has been done in partnership with Resource Central. (SWSI
Targeted Technical Assistance and Incentives activity)
Indoor Assessments – Commercial (2004)
A free, whole facility energy and water assessment to help customers understand and manage
utility costs, and identify savings opportunities.
Indoor Assessments and Direct Installation – Residential (2007)
Free inspection of home and installation of appropriate efficiency products based on a home's
needs. Products may include showerheads, aerators, toilets and energy efficiency items. Since
2012, this has been done in partnership with Larimer County Conservation Corps.
Direct Installation for Small Businesses and Multi-Unit Housing (2007)
No-cost installation of low-flow aerators, pre-rinse spray valves, and showerheads.
Water Reports – Residential (2014) and Commercial (2018)
Customers receive customized reports that display their water use and compare it to either
similar households (residential) or to historical use (commercial and a subset of residential).
(SWSI Educational activity)
Saving Water Hotline (2014)
Community members can submit an online notification or call a phone hotline to repot leaks,
flowing, or pooling water. Water Conservation staff respond to the notifications and work with
customers to resolve the water waste concerns.
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Imagine a Day without Water Campaign (2021)
Fort Collins participates in Imagine a Day Without Water activities sponsored by the U.S. Water
Alliance Program. Activities and promotions vary year -to-year and are conducted in partnership
with Utilities Community Engagement staff. (SWSI Educational acti vity)
NoCo Bloom Articles and Advertisements (2016)
Articles and advertisements focused on water-efficient landscape practices in a free three-times
annually publication produced collaboratively between the City, Colorado State University, and
Larimer County Extension. Article and advertisement content varies year -to-year. (SWSI
Educational activity)
Waterwise Professionals Network and Support (2016)
This program bridges the community with local landscape and irrigation professionals who are
well-versed in water-efficient practices, while also connecting these professionals to City
programs, trainings, and resources. A filterable public webpage lists b usinesses that have
attended the mandatory annual meeting, serving as a valuable resource that staff can direct
customers to for guidance.
Residential Water Budgets (2020)
Water budgets based on occupancy, irrigable area, and weather provide customized water use
targets to help single-unit and duplex customers understand and manage their water use.
Residential water budgets are managed and distributed through the MyWater dat a portal.
Water Use Estimator for Development (2022)
Born out of cross-collaboration between Water and PDT staff at a Growing Water Smart
workshop, this tool is used to estimate how much water a proposed development might use.
The tool can be used during Development Review to support project design choices and
decision-making that promotes water-wise development before development approval.
Showerhead Swap (2024)
The showerhead swap program allows customers to exchange qualifying used showerheads for
free, new high-efficiency showerheads. This program was piloted in 2024 over 5 months.
Water Conservation Annual Report (2012)
The annual report provides a detailed overview of the impact of water the Water Conservation
Division’s efficiency programs over the past year. It serves as a tool for accountability, keeping
the community informed about progress toward water efficiency goals, challenges faced, and
the direction for the future. The report is posted online in ADA-accessible format and available in
print form at events.
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Infrastructure (Including Operations)
Advanced Metering (2014)
Commercial and multi -unit units have been metered for decades; the Utilities fully metered
residential customers by 2003. The Utilities transitioned to advanced metering infrastructure
(AMI) in 2014. The data resolution is hourly intervals for water. (SWSI Foundational activity)
Monthly Billing with Detailed Rate Codes (2001)
Customers are billed on in 30 -day increments according to the tiered rate structure and
customer type. Billing data is connected to advanced metering infrastructure readings for each
account. Customers can access their water use data through an online data portal and monthly
paper or electronic bills. Staff have multiple methods to analyze customer use data by sector to
support efficiency programming, while maintaining security of private customer information.
(SWSI Foundational activity)
Customer Data Portal (2014)
This web-based portal was developed to provide customers near-real time access to their
historical and current electric and water usage and costs. The portal also provides comparisons
to the previous bill period, and illustrates which tier you are currently in. There are alert -based
features that a customer can use to provide automatic notifications when they reach a certain
usage level or cost level. A mobile version was launched in December 2014. (SWSI
Foundational activity)
Continuous Consumption Program (a.k.a. Leak Alerts, 2015)
This program uses a commercial software program to identify and notify customers who have
hourly water usage for 24 hours. Customers with the highest continuous flow rates are
contacted to make them aware of the continuous consumption and the likely leak. S taff
troubleshoots with the customer to try to find the source of continuous use. (SWSI Foundational
activity)
Economic
Conservation -Oriented and Seasonal Rate Structures (2003)
Utilities implements an efficiency-oriented rate structure for residential and commercial
customers. On a monthly basis, Utilities charges a fixed base charge and, in most cases, a
variable, tiered block rate based on volume of water used. There are 3 tiers for single and
double-unit housing accounts, 2 tiers for commercial accounts, and 1 tier for multi -unit
residences. Multi-unit residences and commercial taps have a seasonal rate increase from May
to October when water use is higher due to irrigation. Current rates are posted online at
fcgov.com/utilities. (SWSI Foundational activity)
Conservation -Oriented Water Supply Requirement Fee for Commercial Water Taps (2022)
The Water Supply Requirement (WSR) is a development fee collected to pay for the water
necessary to serve a new or upsized, commercial water tap. The WSR is determined by
calculating demand based on various factors depending on the property type, including
business type, number of beds, landscape area, and more. In general, the WSR fee varies for
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commercial water taps such that lower-water-use developments pay less, while higher-water-
use developments pay more.
Commercial Allotments and Excess Water Use Surcharge (1984)
Commercial water accounts are each assigned an annual allotment - the volume of water a tap
can use in a 12-month period before incurring an excess water use surcharge. The excess
water use surcharge is a volumetric charge based on water used through the r emainder of a 12-
month billing period once an account has exceeded the annual allotment. When appropriately
sized, allotments have potential to serve as a valuable efficiency tool.
Indoor Product Rebates – Residential (2010)
Rebates for qualifying high -efficiency equipment including toilets, smart home monitors, and
showerheads. The type and model of fixtures rebated changes over time based on water
savings, availability, and interest
Indoor Product Rebates – Commercial (2003)
Rebates for qualifying high -efficiency equipment including toilets, urinals, and commercial
kitchen and laundry appliances. The type and model of fixtures rebated changes over time
based on water savings, availability, and interest.
Xeriscape Incentive Program Rebates – Residential (2010)
Residential accounts are eligible to receive a rebate for projects that reduce outdoor water
demand on the property through landscape renovation.
Xeriscape Incentive Program Rebates – Commercial (2020)
Commercial accounts are eligible to receive a rebate for projects that reduce outdoor water
demand on the property through landscape and irrigation renovation.
Custom Rebates – Commercial (2011)
Rebate offering for any upgrade that has a documented water savings compared to current
process or equipment. E.g. Cooling tower conductivity control, car wash reuse, leak detection
and repair, custom appliance replacement, etc. (SWSI Targeted Technical A ssistance and
Incentives activity)
Irrigation Equipment Rebates – Residential (2018)
Irrigation equipment rebates are available to all customers, and incentivize the replacement of
old equipment with new, more efficient technology. Rebates are issued for qualifying equipment
including weather-based irrigation controllers, high-efficiency nozzles, drip irrigation
conversions, rain sensors and more.
Irrigation Equipment Rebates – Commercial (2019)
Irrigation equipment rebates are available to all customers, and incentivize the replacement of
old equipment with new, more efficient technology. Rebates are issued for qualifying equipment
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including weather-based irrigation controllers, high-efficiency nozzles, drip irrigation
conversions, rain sensors and more.
Garden in a Box Discounts (2017)
Through a partnership with Resource Central, customers receive discounts for professionally
designed, regionally appropriate, water -wise garden kits.
Xeriscape Grants (2024)
Grant funding for outdoor water efficiency projects such as irrigation repairs or efficiency
upgrades and low-water landscape installation
Regulatory (Regulations and Ordinances)
Wasting Water Ordinance (1917)
Staff enforces the section of the City Code that prohibits wasting water. Wasting water
complaints are investigated. Complaints are used as an education tool, but enforcement by
ticketing is also an option.
Building Codes and Plumbing Standards (1978, 2012, 2019, 2022)
Historically, Water Conservation has recommended code updates and participated in and/or led
update proposals. Conservation -related code elements include: All construction within the City
of Fort Collins shall comply with adopted International codes, inclu ding but not limited to
Building Code, Energy Conservation Code, Plumbing code, and all local amendments adopted
for each. Included in local amendments are specifications for maximum flow rate and
consumption for plumbing fixtures and fittings. In addition to historical efficiency-oriented code
changes, active Water Conservation leadership and involvement is expected for implementation
of recent efficiency-oriented code updates and upcoming proposals such as 2025 Plumbing
code updates and alignment with future State-level legislation. (SWSI Regulations and
Ordinances activity)
Landscape, Irrigation and Soil Preparation Codes (1994, 2003, 2025)
Historically, Water Conservation has recommended code updates and participated in and/or led
update proposals. Conservation -related code elements include new developments and
redevelopments on commercial properties require landscape and irrigation plans that comply
with adopted Land Use Code. Requirements include efficient design of irrigation, dedicated
irrigation to trees, an average gallon per square foot cap on outdoor water demand, and
minimums for plant coverage and tree canopy. A rain shut-off device and a post-installation
audit are required for commercial sprinkler systems. By City Code ordinance, all properties
where areas are disturbed and proposed to hold plant material require soil loosening and soil
amendment. In addition to historical efficiency-oriented code changes, active Water
Conservation leadership and involvement is expected for implementation of recent efficiency -
oriented code updates and upcoming proposals such as alignment with pending State -level
legislation related to landscapes. Activities anticipated in coming years include actions related to
2025 Landscape, Irrigation, & Soil Code Amendments, Streetscape Standards, and Parkway
Landscaping Regulations.
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Development Review includes Water Conservation Review of Irrigation Plans (2011)
add description
Parkway Landscaping Regulations (2013)
Streetscape Standards detail standards for appropriate water -wise landscape designs in
parkways and medians on all road types. Residential and commercial streetscape landscape
plans require Development Review.
Restrictive Covenants Ordinance (2003)
City Code prohibits HOA covenants from banning the use of Xeriscape or requiring a
percentage of landscape area to be planted with turf, if the homeowner owns the property and
pays for the water that irrigates the landscape.
Water Shortage Action Plan (2003, 2020)
The Water Shortage Action Plan includes a comprehensive list of tactics and restrictions for
customers to implement in the event of a water shortage. The WSAP also includes definitions of
shortage levels and guidelines for the City Manager to declare a shortage or restrictions.
Stormwater Criteria Manual, including Low Impact Development Criteria (2011, 2013, 2016,
2018)
The City has stormwater and low impact development (LID) criteria, adopted by ordinance, that
set out landscape design standards to manage stormwater, and which can encourage efficiency
through practices such as mulching, native plants, and rain gardens.
Graywater for Limited Water Reuse Ordinance (2022)
Graywater (i.e., water used in a residential, commercial or industrial building that is collected
after the first use and put to a second use) can be collected from certain indoor bathing and
washing fixtures and use for toilet and urinal flushing.
Water Adequacy Determination Regulations (2023)
Water Adequacy Determination requires proof that new developments have secured sufficient
water supply. Updates to the policy over time have further outlined the process as a part of the
Development Review process. Limited supply and high cost of water resources have resulted in
developers pursuing more creative ways to provide water to their proposed developments,
particularly projects striving to provide affordable housing or the denser development p atterns
called for in the City Plan.
Planned New Strategies Supporting Goal 1
The following are descriptions of the new Water Conservation program activities identified for
likely implementation in support of WEP Goal 1: Reach 4% annual reduction in water use by
2040 to reduce risk of shortages. Additional information about these strategies is provided in
WEP Table 5.
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Behavioral
High Bill Evaluations for Residential Customers (Targeted start in 2028)
Identify and connect directly with residential customers with high water use. This strategy is
about pathways for behavior change and communicating throughout the journey. (SWSI
Targeted Technical Assistance and Incentives activity)
Plumbing Assistance (Targeted start in 2028)
For under resourced customers, a financial assistance program for plumbing services such as
leak detection and repair, and high-efficiency appliance or fixture installation. This strategy also
intends to provide access to a network of plumbers who are equipped to identify and repair
leaks, install high-efficiency appliances, and align with Water Conservation's goals and
resources. (SWSI Targeted Technical Assistance and Incentives activity)
Wrap-around Support for Water Efficiency in Community Greenspaces or HOA and Large Turf
Areas (Targeted start in 2028)
A stepwise program to support HOAs and other large turf landscapes through irrigation
education, irrigation equipment upgrades, turf conversions, and ongoing maintenance. (SWSI
Targeted Technical Assistance and Incentives activity)
Comprehensive Communications and Marketing Plan for Conservation Promotion (Targeted
start in 2026)
Comprehensive and cross-departmental approach to communication and marketing of efficiency
strategies, programs, and education about water or water -adjacent topics. Sharing the progress
made toward community and municipal water goals, including projects an d upgrades on City-
owned properties, must be included in messaging. (SWSI Educational activity)
Rental Tenants and Owners/ Managers Efficiency Outreach & Giveaways (Targeted start in
2027)
Develop educational materials and resources for rental tenants and owners to increase water
efficiency awareness and support effective water use practices across rental properties.
Educational materials developed may include sample lease language, move -in efficiency
checklists, suggestions for behavior changes to lower water use, information on how to find and
read a water bill, and welcome packets that include leak detection kits and easy -to-install
fixtures like high-efficiency showerheads and faucet aera tors. (SWSI Educational activity)
Commercial Water Use Benchmarking (Targeted planning start in 2027)
Water use benchmarks are standards or reference points used to measure and compare water
consumption levels. They help to set goals for water efficiency and identify areas for
improvement. Establishing water use benchmarks for indoor and outdoor consumptio n can drive
efficiency efforts. A public-facing website would track and report water use for multi -unit housing
and commercial buildings to promote transparency and accountability. City buildings could be
used to pilot this strategy prior to general public application. (SWSI Educational activity)
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Infrastructure (Including Operations)
No new infrastructure or operations -based opportunities were selected.
Regulatory (Regulations and Ordinances)
Daily Sprinkler Watering Window (Targeted planning start in 2027)
To reduce evaporation and water loss due to drift, implement a daily watering window that
prohibits overhead irrigation between the hours of 10 a.m. and 6 p.m. Historically, daily watering
windows have only been implemented as a water shortage response act ion. (SWSI Regulations
and Ordinances activity)
Examine Existing Land Use Regulations for Barriers, Conflicts to Water Efficiency (Targeted
start in 2028)
PDT and Water Conservation are working together to identify and improve Development Review
processes, such as the minor amendment, that may hinder and make more challenging the
approval of water-wise landscaping, landscape renovation projects on commercial properties
and landscaping on right-of-way property. (SWSI Regulations and Ordinances activity)
Economic
Regular Evaluation of Conservation -oriented Rate Structures with Water Conservation
Involvement (Targeted start in 2026)
Utilities implements an efficiency-oriented rate structure. On a monthly basis, Utilities charges a
fixed base charge and, in most cases, a variable, tiered block rate based on volume of water
used. There are 3 tiers for single- and double-unit housing accounts, 2 tiers for commercial
accounts, and 1 tier for multi-unit housing. Multi-unit housing and commercial taps face a
seasonal rate increase from May to October when water use is higher due to irrigation. Water
Conservation and Finance staff are committ ed to evaluating the rate structure to make sure the
utility is striking the right balance between cost recovery, resource efficiency, and affordability.
(SWSI Foundational activity)
Design Assistance for New Development and Redevelopment (Targeted planning start in 2027)
Financial and/or technical assistance to encourage more water efficient designs during the
design phase of development. Also planned is better promotion of incentives and assistance
before and during project development. (SWSI Targeted Technical Assistance and Incentives
activity)
Landscape / Xeriscape Incentive Program Grants (Targeted start in 2025)
Grant funding for outdoor water efficiency projects such as irrigation repairs or efficiency
upgrades and low-water landscape installation. (SWSI Targeted Technical Assistance and
Incentives activity)
On-Bill Financing for Efficiency Upgrades (Targeted planning start in 2027)
This program supports customers who experience unexpected higher-cost water needs such as
service line repairs or replacements. Customers who meet certain credit qualifications can
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receive a multi-year loan and make payments through the Utilities billing system. (SWSI
Targeted Technical Assistance and Incentives activity)
Efficiency Strategies Evaluated but Not Selected for Implementation
Some new efficiency activities received relatively high scores for one or more screening criterion
but were not included in the final set of new strategies identified as highest priority for
implementation over the time period of this WEP. These strategies are documented here to
support future consideration if conditions change. These are listed in following table:
Table C-1. New efficiency strategies evaluated but not currently planned
Not Selected Fort Collins
Utilities Conservation
Activities
SWSI Category Mechanism of
Impact
Reason for Not
Implementing at this
Time
Submetering incentives and
promotion
Targeted
Technical
Assistance and
Incentives
Behavioral Low combined screening
criteria score
Land development ratings
system
Education Behavioral Low combined screening
criteria score
Landscape water budgets
(update and expansion of
discontinued program)
Targeted
Technical
Assistance and
Incentives
Behavioral Low combined screening
criteria score; will be
considered as part of new
commercial water
benchmarking strategy
Cooling tower management
program
Targeted
Technical
Assistance and
Incentives
Behavioral Low combined screening
criteria score
Current Activities and Best Practices for Managing Water Use on City -
Owned Properties
This section provides brief descriptions of best practices implemented by City of Fort Collins
departments that staff intend to continue, and which will support lowering treated water demand
(Goal 1) and/or building landscape resilience on City properties (Goal 2). Note that this list
provides several examples but is not fully comprehensive of the many day-to-day best practices,
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departmental policies, and operational decisions that guide City water use and landscape
maintenance. Additional information about these strategies is provided in WEP Table 6.
Reuse Plan (1985)
Treated wastewater from the Drake Water Reclamation Facility is pumped to Rawhide Power
Plant for landscaping and cooling water.
Water Loss Auditing (1993)
Annual audit and reporting of Utilities treatment and distribution system for water loss, also
known as non-revenue water, following State House Bill 1051 requirements and the American
Water Works Association M36 methodology . The audit documents and analyzed data about
distribution line leaks, meter inaccuracies, and other physical losses or tracking inaccuracies .
Backwash Water Recycling at Treatment Facility (2003)
Backwash water recycling equipment at the water treatment facility treats backwash water and
recycles it to the beginning of the treatment process.
Water Main Survey (1993)
Sonar equipment is used to listen for leaks in water main lines and to pinpoint their locations.
Crews monitor water leaks on an ongoing basis, with a two -year cycle to survey all water mains.
Catching leaks before they have surfaced saves water and costs of excavation and repairs and
supports the wasting water ordinance. (SW SI Foundational activity)
Growing Water Smart Workshop Participation (2018, 2024)
Utilities and PDT staff have attended and participated collaboratively at Sonoran Institute’s
Growing Water Smart Workshop in both 2018 and 2024. Cross-departmental action items
emerged from those workshops, several of which are reflected in Current and Planned Land
Use Activities, WEP Sections 3.3.1 and 3.3.2.
Municipal Sustainability Adaptation Plan (2019)
The 2019 Municipal Sustainability and Adaptation Plan is the employee roadmap to being a
sustainable organization. The City aims to be sustainable and resilient to continue to provide
world-class services and demonstrate excellence and innovation in daily work. With this plan,
the City formally addresses climate adaptation and resilience, to prepare for the future.
City Administrative Policies (2024)
The City’s administrative policies include a section focused on water efficiency which sets out
guidelines including metering and monitoring water use, report and resolve water waste and
leaks, indoor water efficiency upgrades, placing a high priority on water eff iciency in
landscaping, and operating irrigation systems for water efficiency. The policies recognize that
there are City operations and facilities located in various water providers’ service areas within
City limits, each with its own plans and requiremen ts. The policies state that, whenever feasible,
City activity located outside of the City-governed Utilities water service area should also follow
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Utilities guidelines and requirements, including but not limited to, the Water Efficiency Plan and
Water Shortage Action Plan.
Track Water Use Data for City Buildings and Properties (2009)
The Operations Services department tracks and reports building utility usage (water, electricity,
natural gas, and sewer).
Prioritize Raw Water Sources for Irrigation of City Landscapes
Raw water is used to irrigate the majority of the City’s parks, cemeteries, and golf courses ,
which lowers treatment and operations costs and lowers overall treated water demands .
Irrigation Application Rates Based on Evapotranspiration and Irrigation Audits
Continue using evapotranspiration to guide irrigation application rates on City parks, such that
the irrigation rate is less than the water need based on measured evapotranspiration and
precipitation; perform water audits on parks with an irrigation application rates that exceed
evapotranspiration-based targets.
Landscape Designs Follow Xeriscape Principles and Best Irrigation Practices
Practices include minimizing high -water use turf grasses in areas other than those with high foot
traffic and playing fields, incorporating smart controllers, and installing dedicated irrigation to
trees. City-owned landscapes will also follow all municipal landscape and streetscape codes
such as limits on nonfunctional turf and soil amendment requirements.
Opportunities for Water Conservation, Landscape Resilience, and
Land Use Planning/Development
This section describes opportunities for new actions to lower the City’s treated water use (in
support of Goal 1) and improve landscape resilience (in support of Goal 2), which were
developed through collaborative staff discussions to align with existing needs, practices, and
objectives. Additional information is provided in WEP Table 7.
Increase Pace of Plumbing Retrofits in Municipal Buildings
City best practices include replacing old plumbing fixtures with high-efficiency models when
other changes are made. This strategy involves fast-tracking efficiency upgrades when possible
to more quickly increase water efficiency savings and lower treated water use.
Increased Pace of Distribution Line Leak Repair
Water main lines are regularly inspected for potential leaks. This strategy involves fast-tracking
leak repairs and line replacement for high-risk main line sections to lower physical water loss
following treatment and before customer taps.
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Targeted Irrigation-Efficiency Upgrades on City-Owned Properties
Aging or inefficient irrigation infrastructure will be updated or replaced on up to seven City-
owned properties by 2040. This strategy is expected to improve landscape resilience and has
potential to lower either treated or raw water use.
Targeted Turf-to-Xeric Conversions on City-Owned Properties
Non-functional, high-water-use turf will be removed and replaced with water-efficient landscapes
on up to seven City-owned properties by 2040. This strategy is expected to improve landscape
resilience and has potential to lower either treated or raw water use.
Establish Regular Contact and Information Sharing between Water Providers and PDT Staff
Following the Growing Water Smart Workshop in fall 2024, a team of staff including members
from Utilities and PDT have committed to meeting quarterly for an indefinite amount of time to
share data and department information, as well as make progress on action items identified at
the workshop. One of those actions includes developing a half-day workshop in 2025 with the
other water providers in Fort Collins to build better partnerships.
Look For Opportunities to Expand Water Conservation’s Role in Development Review Process
This strategy expands the role of Water Conservation during the Development Review process.
Improvements to procedures for post-occupancy monitoring and enforcement include
requesting funding to hire a Zoning Inspector for Water Conservation who would specialize in
landscape design review and inspection and other water efficiency code requirements. Pending
funding approval, the Water Conservation Inspector would serve as a designated representative
included in the early planning stages of all large scale re sidential and non-residential
development and redevelopment projects for the purpose of providing information about water
efficiency advantages and opportunities. This could look like using the Water Wise Estimator
Tool, promoting WSR incentives, or connecting developers with other technical assistance.
Integrate Water into Strategic Plans and Policies
PDT and Utilities staff are committed to working together to include water efficiency in strategic
plans and policies. This includes but is not limited to elevating the importance of water in the
next update to City Comprehensive Plan.
Technical and Financial Support for City Efficiency Projects from Water Conservation
The Utilities Water Conservation Division will allocate staff time and a portion of the annual
budget to support water efficiency and landscape resilience project completion on City-owned
properties, as well as water use data tracking and reporting, project planning, cross-
departmental collaboration, and marketing to highlight the City’s efficiency activities and lessons
learned for customer benefit.
Align, Track, and Publicly Display Water Supply and Demand Data Including Municipal Uses
Utilities and PDT are working together to identify different ways to track and present water
supply and demand data to support conversations with leadership, elected officials, and the
community, including data visualization for public consumption. This effort also priorit izes
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presenting municipal water use publicly to increase visibility and transparency for water use on
city-owned properties and progress toward municipal strategies in the WEP.
Prioritize Dedicated Irrigation to Trees
When landscape or irrigation changes are occurring on existing City landscapes or new
designs, prioritize dedicated irrigation to trees separate from surrounding turf or other
landscapes. Dedicated irrigation valves or zones allows for deeper watering of trees than the
rest of the landscape requires. The City is shifting to dedicated irrigation to trees in anticipation
of a warmer climate in the future. All public Capital Improvement Projects along streets and in
new parks now include dedicated irrigation t o trees. This strategy is expected to improve
landscape resilience and has potential to lower either treated or raw water use.
Use City Properties to Pilot Efficiency Activities
Staff will seek opportunities to pilot efficiency activities on City properties to contribute to City
efficiency efforts and to test and refine strategies before customer participation. Areas of
opportunity include testing commercial water use benchmarking on City -owned office,
recreational, and industrial facilities, as well as irrigation and landscaping efficiency activities.
Update to Municipal Sustainability Adaptation Plan
Water Conservation staff will participate in the future update to the 2019 Municipal Sustainability
and Adaptation Plan, which is the employee roadmap to being a sustainable organization. The
City aims to be sustainable and resilient to continue to provide world-class services and
demonstrate excellence and innovation in daily work. With this plan, the City formally addresses
climate adaptation and resilience, to prepare for the future.
Support One Water Efforts and Integrated Demand Management Approach
Water Conservation staff will actively participate in collaborative, integrated One Water demand
management activities and will seek opportunities to increase efficiency through operations.
Discontinued Water Conservation Strategies
Some efficiency activities have been discontinued over time. These are listed in following table:
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Table C-2. Discontinued water conservation strategies
Discontinued
Activities
Time Period
Program
was Active
SWSI
Category
Mechanism
of Impact
Description
Dishwasher
rebates
2007 - 2018 Targeted
Assistance
& Incentives
Economic Residential customers purchasing
qualified ENERGY STAR ®
dishwashers received a bill credit of $25
Allotment
Management
Program
2019 - 2024 Targeted
Assistance
& Incentives
Economic Commercial customers with allotments
undersized for their landscape could
apply for a temporary waiver from the
Excess Water Use surcharge while
renovation projects to permanently
lower outdoor water demand were
completed.
Landscape
water budgets
for
commercial
customers
2018 - 2022 Targeted
Assistance
& Incentives
Behavioral Participants with at least one
commercial water tap received reports
comparing actual landscape water use
to the estimated landscape water
budget developed based on site visit
data collection.
Off by
October
irrigation
campaign
2021 - 2023 Educational Behavioral Campaign targeted toward residential
customers; customers who pledged to
turn off irrigation by Oct. 1 were eligible
for a $50 credit on their next utilities bill.
Hotel and
restaurant
efficiency
materials
2003 - 2014 Educational Behavioral A three-card set available for hotels and
other commercial customers to inform
guests about the importance of water
conservation to our area and to
encourage the reuse of towels and
linens.
Watershed
tours
2012 - 2019 Educational Behavioral Educational bus tours of the Utilities’
Cache la Poudre watershed; involves
information about drinking water,
protection of water resources, water
quality, and managing urban
watersheds.
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Discontinued
Activities
Time Period
Program
was Active
SWSI
Category
Mechanism
of Impact
Description
Online water
use calculator
2012 -
YEAR
Educational Behavioral Customers could use an online
calculator with their household
parameters and historic water
consumption to identify ways to improve
efficiency and reduce use.
Home
efficiency
loans, Zero
Interest Loans
for
Conservation
Help
2010 - 2016 Technical
Assistance
and
Incentives
Economic Program for residential customers that
offered a low cost, no -money-down
financing option for up to 20 years.
Loans were repaid by the customer
through their monthly utility bill.
Children’s
Water Festival
1992 - 2022 Educational Behavioral Festival geared towards children in
grades 3-5 in which presenters and
exhibitors led activities and games for
children to learn about watershed health
and sustainability.
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Appendix D: Public Comments on Draft WEP
CWCB requires a public comment period of at least sixty days for the draft WEP. Public
comments on the draft WEP were received from April XX – May XX, 2025. During this time, the
draft WEP was posted online and community members could submit comments via an online
form. Although the draft was prepared in English only, both the draft d ocument and online
comment form could be translated via Google Translate. Community members could also
request a mailed printed version of the draft WEP and comment form.
PLACEHOLDER: Summarize public comments received and response approach.
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Appendix E: Glossary
Acre-Foot or Acre-Feet (AF): Volume of water equal to about 326,000 gallons; one acre-foot can
supply around three to four single-unit homes in Fort Collins per year
Active Capacity: Usable capacity of a reservoir for storage and regulation of inflows and
releases that does not include any capacity below the reservoir’s lowest outlet (which is known
as dead capacity/pool)
Allotment: The volume of water a tap can use in a 12 -month period (Dec. 1 – Nov. 30) before
incurring an excess water use surcharge. Allotments only apply to non -residential taps.
Carryover: Ability to save water in storage for use at a later time ; often used in reference to
storage
Climate Change: Long-term shifts in weather patterns including rising temperatures, increased
frequency and intensity of extreme events, and changes in precipitation patterns
Colorado-Big Thompson (C-BT) Project: Bureau of Reclamation project that brings water from
the Colorado River basin to the east side of the continental divide via a system of tunnels and
reservoirs; operated by Northern Water
Conservation : Water savings through behavior (e.g., choosing to take a shorter shower). For
simplicity and consistency with the division name, the term “efficiency” is used throughout this
WEP to refer to both behavioral and technology -based water demand management; however, in
practice, efficiency generally refers to technology -based solutions (e.g., a high -efficiency
showerhead), while efficiency focuses on the water savings through behavior (e.g., choosing to
take a shorter shower).
Efficiency Strategies: Actions such as policies, programs, incentives, and education that
promote water efficiency
Demand Management: Extension of water supplies through activities that reduce water
demands, lower losses and inefficiencies, or substitute alternative supplies such as reuse.
Direct Flow Right: Water rights under prior appropriation taken directly from the surface stream
and used immediately for beneficial use.
Drought: Period of below average runoff that can last one or more years and is often measured
by its duration, average annual shortage and cumulative deficit below the average .
Drought Criterion: Criterion adopted in the current WSDMP that defines the level of risk for the
City’s water supply system. The drought criterion states that in a 1 -in-50 year drought the
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Utilities should be able to meet the planning demand level. A 1-in-50 drought corresponds to a
dry period that is likely to occur, on average, once every 50 years .
Efficiency: Water savings through technology-based solutions (e.g., a high-efficiency
showerhead)
Evapotranspiration (ET): Water lost from the soil through evaporation from the soil surface and
transpiration from the leaves of the plant; affected by temperature, relative humidity, wind and
air movement, soil moisture availability, and type s of plant
Firm Yield: Measure of the ability of a water supply system to meet water demands through a
series of drought years
Growth Management Area (GMA): Planned boundary of the City of Fort Collins’ future city limits
Gallons per Capita per Day (GPCD): Measurement of municipal water use; for Utilities, GPCD is
calculated based on the total annual treated water produced at the Water Treatment Facility for
use by all Utilities water customers (minus large contractual customers and other sales or
exchange agreements) divided by the estimated population of the Utilities service area and 365
days
Infrastructure Leak Index (ILI): Ratio that compares the water loss volume to the unavoidable
annual real losses for a system. A ratio of 1.0 indicates that the utility has reduced losses to the
lowest level theoretically possible, given its annual average water pressure.
Light Detection and Ranging (LiDAR): Remote sensing technology that can be used in large -
scale landscape analysis
Northern Colorado Water Conservancy District (Northern Water): Organization that maintains
the Colorado-Big Thompson (C-BT) Project and several other regional water projects
North Poudre Irrigation Company (NPIC): Irrigation company that supplies water to farmers
north of Fort Collins; currently owns all water stored in Halligan Reservoir
Planning Demand Level: Reference water demand used for water supply planning purposes
Return Flow Obligation (RFO): Legal requirement to mimic the historical return of water to a
river basin after the official water use has been changed in court
Senior Water Rights: Water rights that have high priority in a river basin relative to Colorado’s
prior appropriation system
Storage Reserve Factor (SRF): Commonly-used engineering principle in designing water supply
systems to address short-term supply interruptions; the current SRF from the WSDMP
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mandates having 20 percent of annual demands in storage through a 1-in-50 drought, which
equates to about 3.5 months of winter (indoor) demands or 1.5 month of summer demands
Data Validity Score: Unitless measurement indicating confidence in the audit input data
Treatable Yield: Amount of water that can be diverted each year after deductions from legal,
natural, and operational factors
Water Loss/Connection/Day: Metric used to scale total apparent and real losses based on
accounts served; does not indicate an actual loss of water at an individual tap
Water Rights Portfolio : Collection of water rights owned by a water provider
Water Supply and Demand Management Policy (WSDMP): Document that guides Utilities’
efforts in balancing its water resources
Water Supply Requirement (WSR): Condition set by Utilities for new development; developers
must provide water rights or cash-in-lieu of water rights to support the water needs of their
developments
Winter Quarterly Average (WQA): Average of water demands in the winter months (December –
February)
Yield: Amount of water that is produced from a water right
NRAB 2025 Work Plan
The Natural Resources Advisory Board serves as an advisor to the Fort Collins City Council regarding
sustainability policy and programs to achieve the goals and visionary "Big Moves"for Our Climate
Future.This board advises on many aspects of community resilience and sustainability with a focus on
water quality and availability for fish,wildlife and people,greenhouse gas mitigation,waste reduction and
recycling,sustainable behavior change,and supporting the City's commitment to environmental justice.
With an understanding that environmental processes (e.g.,photosynthesis,the water cycle,etc.)are the
building blocks of life and that human behaviors are leading to an expanding human footprint and
accelerating climate change effects on our natural and social environments,the NRAB works to ensure
the sustainability of the Fort Collins community.Utilizing the perspective that the natural environment
provides life sustaining services,which is not exclusive to human life,the NRAB prioritizes sustaining
ecosystem health and function,as well as building social resilience,to maximize positive systems-level
impacts in our approaches and recommendations.The NRAB is particularly interested in and supportive
of programs and initiatives that recognize:
●the interconnectedness of social and ecological systems and taking bold action to prioritize
environmental health,
●the importance of identifying community vulnerabilities and implementing approaches to increase
the capacity to adapt to change,
●and that inequity acts as a driver of climate change.
To address these priorities,the NRAB will also collaborate with other boards by actively engaging in joint
board initiatives to encourage the goals of high functioning government and high impact civic
engagement as they pertain to the natural resource management challenges and opportunities faced by the
community.
Regarding those challenges and opportunities,NRAB has identified the following areas of specific
interest in 2025,with an overall view of integrating the principles of sustainability in each target area:
●City Planning
○City Council Priority #8:Advance a 15-minute city by accelerating our shift to active
modes
○OCF Big Move:Live,Work and Play Nearby
○Nature in the City
○Land Use Code Updates -Phase 2
●Climate Change and Sustainability
○City Council Priority #6:Reduce climate pollution and air pollution through best
practices,emphasizing electrification
○OCF Big Move:Climate Resilient Community
○OCF Big Move:Electric Cars and Fleets
○OCF Big Move:Efficient,Emissions Free Buildings
○OCF Big Move:100%Renewable Electricity
○OCF Big Move:Local,Affordable and Healthy Food
○Urban Agriculture Promotion
●Equity and Environmental Justice
○Public Health
○Oil and Gas /Well Abandonment and Remediation
○Issues of Access
●Waste Reduction and Recycling
3
○City Council Priority #5:Accelerate zero waste infrastructure and policies
○OCF Big Move:Zero Waste Economy
○OCF Big Move:Zero Waste Neighborhoods
○Circular Economy
○Regional Wasteshed Matters
●Water Resources and Quality
○City Council Priority #7:Protect community water systems in an integrated way to ensure
resilient water resources and healthy watersheds
○Halligan Reservoir
○River Health Assessment
○Water Efficiency Plan
●Wildlife and Forestry
○OCF Big Move:Healthy Natural Spaces
○Resilient Urban Forest
○Night Sky Protection and Outdoor Lighting Requirements
○Monarch Butterfly Habitat Conservation
○Impact of City Projects on Natural World
4
NRAB has identified the following areas of
specific interest in 2024, with an overall
view of integrating the principles of
sustainability in each target area:
Our Climate Future
Water Resources
Waste Reduction and Recycling
Night Sky Protection and Outdoor Lighting
Requirements
Rights of Nature for Cache la Poudre River
Equity and Environmental Justice
15-Minute City Concept Priority
Transportation Planning
Resilient Urban Forest
Circular Economy
Nature in the City
Local Agriculture
Oil and Gas
NATURAL
RESOURCES
ADVISORY
BOARD
The Natural Resources Advisory
Board (NRAB) serves as an
advisor to the Fort Collins City
Council regarding sustainability
policy and programs to achieve
the goals and visionary "Big
Moves" for Our Climate Future.
This board advises on many
aspects of community
resilience and sustainability
with a focus on water quality
and availability for fish, wildlife
and people, greenhouse gas
mitigation, waste reduction and
recycling, sustainable behavior
change, and supporting the
City's commitment to
environmental justice.
Scan for more info.
1745 Hoffman Mill Road
PO Box 580, Fort Collins, CO 80522-0580
1
MEMORANDUM
Date: May 21, 2025
To: Natural Resources Advisory Board
From: Julia Feder, Conservation and Stewardship Planning Manager
Kelly Smith, Senior Environmental Planner
Subject: Natural Areas Strategic Framework Recommendation
Summary
The Natural Areas Strategic Framework serves as a systemwide guide for Natural Areas planning and
management over the next 10-20 years. It updates the vision, values, and goals that provide the
foundation for tactical and action-oriented planning that occurs through Management Zone Updates, while
aligning with the City’s broader values and strategic policies. As a follow up to the March 12, 2025 NRAB
meeting, this memo provides an overview of feedback received on the draft plan and summarizes
changes made to the final plan.
Overview of Draft Plan Engagement
The Natural Areas Strategic Framework draft was available for public comment from February 18-March
31, 2025. The public could access and comment on the plan via the Our City website. Staff also promoted
public review through the Natural Areas e-news, via social media, and participation in community events
such as Winter Bike to Work Day. In addition, staff gathered targeted feedback from boards and
commissions including the Land Conservation and Stewardship Board, Water Commission, Natural
Resource Advisory Board, Air Quality Advisory Board, and the Active Modes Advisory Board. Staff
notified all community members that supported previous engagement efforts, including focus group and
technical advisory committee members, as well as representatives from partner City departments,
regional agencies, and aligned partner organizations.
These efforts resulted in:
• More than 1,200 visits to the Natural Areas Strategic Framework webpage on Our City
• More than 500 clicks to view the Strategic Framework
• Approximately 50 detailed comments and suggestions
Feedback Themes
Overall, commenters expressed strong support for the draft, describing it as comprehensive, engaging,
and reflective of the department’s priorities and vision. Feedback broadly addressed key themes such as
conservation values, the balance between resource protection and visitor use, and how the framework
would inform future planning and project work. The table below summarizes major themes and how staff
addressed them in the final plan:
Feedback Theme Updates to final plan
2
grammar updates Edits to wording made
Desire to see more actionable
items described in plan
Conservation and Stewardship planning process, and the
relationship between the Strategic Framework and Management
Zone Updates
measurable outcomes track progress and project plans
other City priorities and plans cross-City priorities and plans
Requests for specificity around
conservation values drive conservation work including habitat protection, cultural
resources, agriculture, and access
“recreation” appear more
frequently in the framework
language related to trail connectivity and human access to reflect
a focus on connecting the community with nature
Next Steps
NRAB may make a recommendation to City Council in advance of the July 1, 2025, City Council meeting
to adopt the Natural Areas Strategic Framework.