HomeMy WebLinkAbout2025-080-09/02/2025-ADOPTING THE 2025 FORT COLLINS UTILITIES WATER EFFICIENCY PLANRESOLUTION 2025-080
OF THE COUNCIL OF THE CITY OF FORT COLLINS
ADOP TING THE 2025 FORT COLLINS UTILITIES WATER
EFFICIENCY PLAN
A.The City owns and operates Fort Collins Utilities, which includes a water
utility that, among other things, provides water at retail rates to domestic, commercial,
industrial, and public facility customers that have a total annual demand of more than
2,000 acre-feet.
B.The City has a long-running commitment to the efficient use of the City's
water resources, dating back to at least 1977 and continuing through present day.
C.Beginning on July 1, 2006, Colorado Revised Statute ("C.R.S.") Section 37-
60-126 of the required that the City develop, adopt, and implement a water efficiency plan
approved by the Colorado Water Conservation Board ("CWCB").
D.In 2010, the CWCB approved the City's water efficiency plan, known as the
Water Conservation Plan, dated February 12, 2009. In 2016, the CWCB approved the
City's subsequent and current water efficiency plan, known as the 2015 Water Efficiency
Plan, dated February 17, 2016.
E.C.R.S. Section 37-60-126 requires that the City periodically review and
update its water efficiency plan.
F.Fort Collins Utilities, through its Water Conservation Division, has reviewed
and up dated its water efficiency plan and has proposed for Council approval and adoption
an updated plan, known as the Fort Collins Utilities 2025 Water Efficiency Plan ("WE P"),
attached hereto as Exhibit A and incorporated herein by this reference.
G.The WEP is consistent with the City's goals and objectives, with the benefits
to the City including: building resilience to drought and climate change; efficient per capita
water use; reducing, delaying or avoiding operational or capital costs for Fort Collins
Utilities where practicable; working in tandem with planned water projects, such as the
Halligan Water Supply Project, to support service continuity and Fort Collins Utilities'
water future; further development of a conservation ethic and reducing waste;
demonstration of a commit ment to sustainability; and support of economic health.
H.The WEP meets the requirements of C.R.S. Section 37-60-126 and is ready
to be submitted to the CWCB for its review and approval.
In light of the foregoing recitals, which the Council hereby makes and adopts as
determinations and findings, BE IT RESOLVED BY THE COUNCIL OF THE CITY OF
FORT COLLINS as follows:
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Section 1. City Council adopts the WEP as the City's current water efficiency
plan, replacing all previous versions.
Section 2. The City Manager is hereby directed to submit the WEP to the CWCB
pursuant to C.R.S. Section 37-60-126 and all legal requirements.
Passed and adopted on September 2, 2025.
ATTEST:
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City Cl r
Effective Date: September 2, 2025
Approving Attorney: Eric Potyondy
Exhibit: Exhibit A -2025 Fort Collins Utilities Water Efficiency Plan
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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
Executive Summary .................................................................................................................... 12
Overview .................................................................................................................................... 12
Water Efficiency Goals .............................................................................................................. 12
Goal 1: Reach 4% Annual Reduction in Water Use by 2040 ............................................... 12
Goal 2: Improve Efficiency and Resilience on Public Landscapes ...................................... 12
Water Efficiency Strategies ....................................................................................................... 12
Key Benefits of Water Efficiency ............................................................................................... 13
Equity and Community Engagement ........................................................................................ 13
Water Use Snapshot ................................................................................................................. 14
Next Steps and How to Get Involved ........................................................................................ 14
Residential Customers .......................................................................................................... 14
Business Customers .............................................................................................................. 15
Looking Ahead .......................................................................................................................... 15
Introduction ................................................................................................................................. 16
Water Conservation Goals ........................................................................................................ 16
Goal 1: Reach 4% annual reduction in water use by 2040 to reduce risk of shortages ...... 17
Goal 2: Improve water efficiency and build resilience on City-owned landscapes, to benefit
the community and environment ........................................................................................... 18
Scope and Guiding Principles ................................................................................................... 19
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1 Profile of Existing Water Supply ........................................................................................ 21
1.1 Overview of Existing Water Supply System ................................................................. 21
1.1.1 Raw Water Supply Yield ........................................................................................... 24
1.1.2 Reusable Water Supplies and Graywater ................................................................ 25
1.2 Supply Reliability ........................................................................................................... 26
1.3 Supply-Side Limitations and Future Needs .................................................................. 26
1.3.1 Climate ...................................................................................................................... 27
1.3.2 Storage Constraints and Planned Improvements .................................................... 30
1.3.3 Water Supply Risk Responses ................................................................................. 30
1.3.4 Growth and Water Supply Requirements ................................................................. 31
2 Profile of Water Demand and Historical Demand Management .................................... 32
2.1 Demographics and Key Characteristics of the Service Area ....................................... 32
2.2 Historical Water Demands ............................................................................................ 32
2.2.1 Water Demand by Customer Sector ........................................................................ 34
2.2.2 Seasonal Demand .................................................................................................... 37
2.2.3 GPCD: Water Demand Per Person Per Day ............................................................ 39
2.2.4 System Water Loss ................................................................................................... 40
2.2.5 Raw Water Use ......................................................................................................... 41
2.3 Past and Current Demand Management Activities ...................................................... 43
2.3.1 Demand Management for Short-Term Water Shortages ......................................... 44
2.3.2 Land Use and Water Integration with Demand Management .................................. 44
2.4 Demand Forecasts for Water Efficiency Planning ....................................................... 44
2.4.1 Population Projections .............................................................................................. 45
2.4.2 Demand Scenarios ................................................................................................... 46
2.4.3 Residential and Commercial Demand Projections ................................................... 47
2.4.4 Additional Considerations for Overall Water Resource Supply Planning ................ 48
3 Integrated Planning and Water Efficiency Benefits and Goals ...................................... 50
3.1 Water Efficiency Goals ................................................................................................. 51
3.2 Benefits of Water Efficiency .......................................................................................... 54
Building Resilience to Drought and Climate Change ............................................................ 54
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3.3 Summary of Integrated Land Use Planning Strategies ................................................ 57
3.3.1 Current Strategies ..................................................................................................... 57
3.3.2 New Strategies .......................................................................................................... 57
3.4 Equity in Water Use and Demand Management .......................................................... 58
3.4.1 Equity in Engagement ............................................................................................... 60
3.4.2 Equity in Outcomes - Strategy Selection and Implementation Planning ................. 60
3.5 Community Engagement .............................................................................................. 61
3.5.1 Incorporating Feedback into Goals and Strategies .................................................. 62
4 Selection of Water Efficiency Activities............................................................................ 65
4.1 Summary of Selection Process .................................................................................... 66
4.1.1 Selection Process and Criteria ................................................................................. 67
4.1.2 Prioritization Process ................................................................................................ 68
4.2 Strategies for Goal 1 ..................................................................................................... 68
4.2.1 Examples of How Customers can Contribute to Goal 1 Reduction ......................... 71
4.3 Strategies for Goal 2 and One Water Demand Management ...................................... 73
5 Implementation and Monitoring ......................................................................................... 74
5.1 Implementation ............................................................................................................. 74
5.2 Monitoring ..................................................................................................................... 75
Goal 1 Metrics........................................................................................................................ 76
6 Adoption, Public Review, and Formal Approval .............................................................. 78
6.1 Adoption of New Policy ................................................................................................. 78
6.2 Public Review Process ................................................................................................. 78
6.2.1 Public Review of WEP Document ............................................................................ 78
6.3 Local Adoption and State Approval Processes ............................................................ 78
6.4 Periodic Review and Update ........................................................................................ 79
7 References ........................................................................................................................... 80
Appendix A: Brief History of Water Conservation .................................................................. 82
Appendix B: Alignment, Equity, and Engagement ................................................................. 84
Strategic Alignment ................................................................................................................... 84
City of Fort Collins Strategic Plan (2024) .............................................................................. 84
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Equity Considerations ............................................................................................................... 86
City of Fort Collins 2024 Strategic Plan (Strategic Objective: Neighborhood & Community
Vitality 3) ................................................................................................................................ 86
Importance of Equity in Water Conservation Planning ......................................................... 87
Equity in Engagement ........................................................................................................... 88
Equity in Conservation Strategy Selection and Implementation Planning ........................... 90
Engagement Activities ............................................................................................................... 91
Engagement with the Community ......................................................................................... 91
Engagement with City Advisory Groups ............................................................................... 94
Engagement with City Staff ................................................................................................... 95
Key Findings from WEP Engagement .................................................................................. 98
Suggestions for Future Engagement .................................................................................... 99
Appendix C: Efficiency Strategies Supporting Goal 1 ......................................................... 101
Current Strategies Supporting Goal 1..................................................................................... 101
Behavioral Strategies .......................................................................................................... 101
Infrastructure (Including Operations)................................................................................... 104
Economic Strategies............................................................................................................ 104
Regulatory Strategies (Regulations and Ordinances) ........................................................ 106
Planned New Strategies Supporting Goal 1 ........................................................................... 117
Behavioral ............................................................................................................................ 117
Infrastructure (Including Operations)................................................................................... 118
Economic ............................................................................................................................. 118
Regulatory (Regulations and Ordinances) .......................................................................... 118
Efficiency Strategies Evaluated but Not Selected for Implementation ................................... 123
Discontinued Water Efficiency Strategies ............................................................................... 124
Appendix D: Efficiency and Landscape Resilience Strategies for Goal 2 and City One
Water Demand Management ................................................................................................... 126
Current Activities and Best Practices for Managing Water Use on City -Owned Properties .. 126
Opportunities for City Organization Water Efficiency, Landscape Resilience, and Land Use
Planning/Development ............................................................................................................ 131
Appendix E: Glossary .............................................................................................................. 136
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List of Figures
Figure 1: The Water Utilities service area and surrounding water provider boundaries ................... 22
Figure 2. Water Utilities’ source water supply system ..................................................................... 23
Figure 3: Climate hazards facing Fort Collins ................................................................................. 27
Figure 4. Predicted monthly maximum temperature and monthly precipitation for Fort Collins, relative
to 1991 - 2020. ............................................................................................................................... 29
Figure 5: Annual total treated water and service area population .................................................... 33
Figure 6: Daily total water treated (2020-2024) ............................................................................... 34
Figure 7. Annual billed treated water use for residential and commercial customers ....................... 36
Figure 8. Billed treated water use by customer category (2020-2024) ............................................. 36
Figure 9. Average monthly metered and billed treated water use (2020-2024) ................................ 37
Figure 10. Average indoor (top) and seasonal (bottom) water use by customer sector (2020-2024) 38
Figure 11. Water use in GPCD and service area population (2000-2024) ....................................... 39
Figure 12. Water balance components evaluated in water loss audits ............................................ 40
Figure 13. City properties that use raw water irrigation ................................................................... 42
Figure 14. Annual treated water demand and savings from water efficiency programs ................... 43
Figure 15. Current and projected population for the Water Utilities service area ............................. 46
Figure 16. Historical (2000-2024) and range of projected (2025-2040) water use under possible
future climate and growth scenarios ............................................................................................... 48
Figure 17. Water Efficiency Goal 1 interim targets and final 2040 goal ............................................ 54
Figure 18. Approaches to influence water demand and areas potentially impacted by efficiency
strategies ....................................................................................................................................... 65
Figure 19. Summary of water efficiency impacts with full implementation of all current and new
strategies. ...................................................................................................................................... 71
Figure 20. Conceptual implementation timeline .............................................................................. 74
Figure 21: Historical water demand management planning levels and goals for Fort Collins Water
Utilities ........................................................................................................................................... 82
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List of Tables
Table 1: Water Utilities’ annual treatable source water yield ........................................................... 25
Table 2: Potential limitations/future needs related to water supply system planning ........................ 30
Table 3: Billed treated water use by customer category (2020-2024) .............................................. 35
Table 4: Water efficiency goals ....................................................................................................... 53
Table 5: Current and New Water Efficiency Strategies Supporting Goal 1 ...................................... 69
Table 6: WEP update community engagement activities................................................................. 92
Table 7: WEP update City staff engagement activities .................................................................... 97
Table 8: Current efficiency strategies supporting Goal 1 ................................................................109
Table 9: New efficiency strategies to support Goal 1 .....................................................................120
Table 10: New efficiency strategies evaluated but not currently planned ........................................123
Table 11: Discontinued water efficiency strategies .........................................................................124
Table 12: Current City of Fort Collins activities and best practices for managing water use and
landscapes on City-owned properties and facilities ........................................................................129
Table 13: New strategy opportunities for managing water use on City-owned properties and facilities
......................................................................................................................................................134
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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 Works Association
BFO Budgeting for Outcomes
BMP Best Management Practice(s)
C-BT 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
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MG Million Gallons
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
PVLC Pleasant Valley and Lake Canal
RFO Return Flow Obligation
SRF Storage Reserve Factor
SSD Southside Ditches
SWSI Statewide Water Supply Initiative
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
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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 their 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
We are 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
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• Colorado Climate Center
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Executive Summary
Overview
The 2025 Water Efficiency Plan (WEP) outlines the Fort Collins Utilities (Water Utilities)
approach to manage water use and efficiency amid growing supply and demand pressures.
By improving how water is used across residential, commercial, and municipal sectors, the WEP
helps support long-term water resilience for the Water Utilities system and customers . The plan
supports the City’s “One Water” commitment—managing water holistically to promote healthy
watersheds, resilient communities, and water equity .
Water Efficiency Goals
The WEP sets two goals intended to lower water use, minimize the frequency and magnitude of
future water shortages, build long-term landscape resilience , and encourage the City to continue
leading by example . 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
This goal applies to all customer sectors, including homes, businesses, and City operations, and
aims to reduce the risk of water shortages.
• 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: 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 (15 AF) by 2040
Goal 2: Improve Efficiency and Resilience on Public Landscapes
• Target 2.1: The City will complete at least 7 new projects on City landscapes by 2040 .
These projects aim to improve drought resilience, reduce raw or treated water use, and
reinforce the City’s role as a leader in water efficiency.
Water Efficiency Strategies
Water Utilities will advance water efficiency efforts through over 70 existing or new strategies
that align with the following four approaches:
• Behavioral strategies that include actions like outreach, education, water use
benchmarking, and technical assistance for water-efficient practices.
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• Regulatory strategies that build on existing requirements for landscapes, buildings, and
development standards.
• Infrastructure opportunities that include maximizing benefits from technology, like the
City’s existing advanced water meters, to offer customer data access, l eak detection and
notifications, and reduce water loss through distribution system maintenance.
• Economic strategies that include rebates, financial assistance, and pricing structures
that incentivize efficiency.
Key Benefits of Water Efficiency
Water is both essential to life and limited in our region. Water efficiency strategies are cost -
effective ways to manage use to minimize water shortage risk, while providing enough water to
support the community’s values.
Benefits of water efficiency include:
• Resilience: Proactive water efficiency buffers the community against climate -driven
shortages. Climate model projections show an average increase in monthly maximum
temperature of approximately 1.8°F–2.8°F by 2040, which will raise demand, especially
for outdoor uses.
• Business stability: Water efficiency supports long-term economic growth and service
continuity.
• Leadership: Efficient water use across City sites demonstrates what’s possible –
maintaining healthy landscapes while using water wisely.
• Affordability: For individuals, lower consumption can help keep bills down. For the Water
Utilities, efficiency can delay capital expansion projects and reduce the need to acquire
costly water rights.
• Do more with the water we have: Some conserved water can be stored for periods of
drought, leased for agriculture, or used to support a healthy river system.
Equity and Community Engagement
The WEP was shaped through more than 5,000 touchpoints via surveys, meetings, and
interviews. Not all community members or businesses have equal access to water -saving
technologies or upgrades, and the WEP reflects that reality. Engagement and equity were
integrated throughout the planning process. Staff used feedback directly to develop water
efficiency goals and strategies, with input from renters, seniors, small business owners, and
non-English speakers, among others.
The community said:
• Lead by example: The City must walk the talk
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• Support landscape change : Less turf, more native plants
• Make programs accessible : Simplify the process to participate and save; provide
education and materials in multiple formats and languages; offer upfront financial
support, not just rebates
• Encourage and require efficiency through a balance of volunteer actions and incentives
with thoughtful regulation
• Address challenges for renters and mobile home residents
Water Use Snapshot
In 2024, the Water Utilities provided high-quality treated water to about 36,000 water accounts ,
serving approximately 139,000 people, or about 80% of our city's population. Below is a
snapshot of typical water use across the service area:
• Total billed treated water use: About 5.7 billion gallons annually .
• Residential use: Accounts for about 64% of billed treated water.
• Commercial use: About 34% of billed treated water is used for businesses and other
non-residential purposes such as offices, retail, hospitality, industry, and irrigation-only
accounts.
• City use: Nearly 2% of billed treated water is used at City-owned properties, supporting
recreation, vibrant public landscapes and trees, and City facilities and services. The City
also uses untreated raw water on parks, cemeteries, and other landscapes.
• Outdoor watering causes significant seasonal spikes, with demand more than doubling
in summer months. About 40% of total annual water use goes to outdoor irrigation.
• On average, water demand per person is about 135 gallons per day (GPCD), though this
fluctuates based on weather and behavior.
Next Steps and How to Get Involved
Everyone has a role to play in reaching the WEP’s goals. Here are examples of how individuals
and businesses can contribute to a 4% reduction in water use overtime:
Residential Customers
The average single-unit household in the Water Utilities service area uses about 80,760 gallons
of water a year. A 4% reduction equals about 3,200 gallons of savings each year (relative to
current average use).
• Change your showers: Swapping out an old showerhead for a free 1.5 gallon -per-minute
version and cutting your shower from 12 to 8 minutes can save up to 1,500 gallons per
year.
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• Check your sprinklers: Outdoor water use spikes in the summer. Free sprinkler check-
ups save households an average of 5,000 gallons per year. Many lawns have
correctable issues like overspray, tilted heads, or inefficiently set timers.
• Redo your yard: Native landscaping is water-smart, supports ecosystems, and looks
great. A 550-square-foot project can save 3,300 gallons annually while rebate s through
the Xeriscape Incentive Program or Garden in a Box can help cover the cost.
Business Customers
Typical water use and potential savings vary based on business type, size, and other factors.
The WEP includes a variety of commercial efficiency strategies, including custom rebates that
let a business identify what opportunities work best for them.
• Plumbing upgrades: Replacing 10 older urinals with WaterSense models could save a
business 26,000-60,000 gallons annually. Even smaller changes—like upgrading five
toilets—can cut 11,000 gallons a year.
• Large water efficient landscapes: Replacing bluegrass turf with native grass species is a
cost-effective strategy for reducing water use on large landscapes. Converting 10,000
square feet can save approximately 70,000 gallons annually. Water Utilities offers
rebates up to $15,000 for qualifying projects.
Looking Ahead
By 2040, the City intends to continue and expand efforts to best serve our customers and to be
a regional leader in efficient water management. The 2025 WEP lays the foundation for a
resilient, thriving community that values water as a shared resource.
Whether you're a homeowner, renter, business owner, property manager , or visitor, your actions
matter. Progress toward the WEP goals will be tracked and shared publicly each year through
an annual water conservation report. To learn more or participate in efficiency programs, visit:
fcgov.com/utilities.
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Introduction
Fort Collins Utilities (Water Utilities) is a community-owned utility operated within the City of Fort
Collins (City) government organization that provides critical services including water treatment
and delivery. Every year, the Water 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 Water 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 Water 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. Water Utilities acknowledges these
trade-offs and applies a One Water2 approach to managing water supply resources and water
demands. Staff and decision-makers 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 the Water 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
1 The Water 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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future water 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 the Water Utilities’ water service area (Figure 1), including both
customer and City water use. The objective s 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 that a 320 MG savings is expected to offset the demand
increases driven by an average increase in monthly maximum temperature of approximately 2°F
by 2040, which is a plausible future scenario for Fort Collins based on climate models.
Goal 1 incorporates three specific targets, which are discussed in more detail in this document :
• 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
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.
o 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 in Figure 1:
- By 2030: 3% reduction, estimated at 220 MG (675 AF) below projected
water use
- 2035: 3.5% reduction, estimated at 270 MG (830 AF) below projected water
use
- Reductions in treated water demand by Water 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 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.
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’s
2021 Our Climate Future Plan.
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• 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 (15 AF) below projected annual
water use in total water savings between 2026-2040.
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 the Water
Utilities’ 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 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 local individuals and businesses. 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 (GMA) 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 the Water Utilities 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,
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19
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.
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 Water 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 the Water Utilities’ 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
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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 Water Utilities’ mission statement, “[w]e are a One
Water Utility, providing exceptional water services for our community through integrated,
resilient, and equitable practices and systems.”
The updated WEP will be approved and adopted by the Fort Collins City Council in 2025 and
replace the previous versions. The plan’s content and organization 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
Water 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 city limits or
the Fort Collins GMA boundary. Fort Collins-Loveland Water District (FCLWD), East Larimer
County Water District (ELCO) and other water providers supply some areas within city limits.
Furthermore, Water Utilities provides water service to customers beyond city limits including
some residential and industrial use and wholesale water to West Fort Collins Water District
(WFCWD). Water Utilities maintains approximately 540 miles of pipeline and about 36,000
water service connections.
1.1 Overview of Existing Water Supply System
Water Utilities owns 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. Water 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 2,300 MG (7,100 AF) of storage and is
Water Utilities’ only raw water storage that can be delivered into its treated water
system. It has limited function as drought protection for Water Utilities.
Water 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: The Water Utilities service area and surrounding water provider boundaries
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Figure 2. Water Utilities’ source water supply system
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1.1.1 Raw Water Supply Yield
Water Utilities has developed a diverse portfolio of water rights to fulfill customer demands
throughout the year. In average and wet years, Water 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 months
when stream flows have declined), and Water Utilities’ ability to use water rights is sometimes
limited by circumstances such as infrastructure projects or water quality concerns.
Water Utilities’ portfolio of supplies yields an estimated 10,560 – 24,020 MGY (32,400 – 73,400
AFY), 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
Water 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.
After treated and raw water demands are met for Water Utilities’ existing customers and raw
water delivery obligations are fulfilled, remaining surplus water is evaluated annually and can be
allocated for rental through the Water Utilities’ Raw Water Rental Program.
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Table 1: Water 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
Water 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
9,900 MGY (30,400 AFY). 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
Water Utilities’ primary source of reusable water is the Michigan Ditch which yields between 390
– 1,790 MGY (1,200 – 5,500 AFY) 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 Water Utilities
and multiple partners to generate reusable effluent that is used by Platte River Power Authority,
who in turn provides Windy Gap water to Water Utilities. Although the Windy Gap water is
classified as reusable, Water Utilities only uses the supply once before reallocating the effluent
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to its partners as dictated by the Reuse Plan . Generally, the Reuse Plan can increase Water
Utilities single-use supplies by 750 MG (2,300 AF) in a typical year.
As of November 2022, graywater capture and reuse systems are allowed within the Water
Utilities water service area. Due to Northern Water policies that limit C-BT use (which is over
half of Water Utilities’ supplies), graywater can be used for toilet flushing only and cannot be
applied to landscapes.
1.2 Supply Reliability
Water 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 Water 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
Since 2000, Water Utilities has imposed mandatory water restrictions three times (a frequency
of about 1-in-8 years) in response to projected shortages, which can be driven by drought,
infrastructure needs, or water quality concerns.
Water 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
Water 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 Water Utilities’
water resources:
• Climate change is the most crucial vulnerability.
• Reductions in C-BT supplies would have significant impacts.
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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• High water demands represent a significant vulnerability ; it is important to implement
efficiency efforts and track demand trends.
• Water storage is crucial. Without enlarging Halligan Reservoir, Water Utilities’ current
water supply planning criteria could not be met under most future climate and
demand conditions.
The vulnerability study indicates that even with increased storage from an enlarged Halligan
Reservoir, hotter, drier conditions will require Water Utilities to impose water restrictions more
frequently in the future. The vulnerability study analysis projected that the need for mandatory
restrictions would increase to about 3-in-10 years with a 5-degree temperature increase, a 2.5-
times increase over current shortage trends. These vulnerabilities underscore the importance of
maintaining an impactful water efficiency program for long-term demand management.
Similar to the WSVS findings, the CWCB’s 2023 Colorado Water Plan identifies a gap between
water supply and demand for the South Platte River Basin, and notes that the combination of
scarcity, growth, and future uncertainty will stress water resources.
1.3.1 Climate
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 less reliability of water supplies and more demand for water to
maintain existing landscapes, creating pressures on both sides of the supply-and-demand
balance.
Figure 3: Climate hazards facing Fort Collins
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In 2024, the Colorado Climate Center published its third edition of the Climate Change in
Colorado5 report, which 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
precipitation rates in the future.
Colorado Climate Center researchers provided a customized analysis of localized future
maximum temperature and precipitation projections for Fort Collins. This analysis used Coupled
Model Intercomparison Project Phase 6 (CMIP66) climate datasets that were statistically
downscaled using the Localized Constructed Analogs (LOCA)7 method, which yields an
ensemble of modeled climate projections at a localized geographic scale suitable for hydrologic
modeling. The Shared Socioeconomic Pathway scenario SSP2 -4.58, informally referred to as
the “middle-of-the-road" scenario, was used for the Fort Collins analysis.
The Colorado Climate Center analysis produced monthly maximum temperature and total
precipitation outputs for 1991 -2100. The 1991-2014 period is a subset of the historical climate
simulations from the CMIP6-LOCA dataset, and the 2015 -2100 period uses future climate
projections under the SSP2-4.5 scenario. Data were statistically processed to generate a mean
and range of projections for each month in this time period. The range was defined by the mean
of model predictions plus/minus one standard deviation. Figure 4 (upper plot) presents the
range of predicted temperatures for 2040 , as well as the average for the 30-year period from
1991-2020, which was used as the WET model baseline . The lower plot in Figure 4 presents the
same information for total monthly precipitation.
As shown in the figures, climate model projections for the Fort Collins area indicate that , by
2040, monthly maximum temperatures will generally be warmer relative to the 30-year period
from 1991-2020. Climate model predictions for monthly precipitation vary, suggesting that it is
difficult to predict whether the future amount of precipitation in Fort Collins is likely to be higher,
lower, or similar to the 1991-2020 period.
5 Available online at climatechange.colostate.edu.
6 CMIP6, coordinated by the World Climate Research Programme, is the most current set of global
climate model data produced using numerous climate models within an integrated framework. Additional
information is available at pcmdi.llnl.gov/CMIP6.
7LOCA version 2 datasets provide CMIP6 climate model projections over a 6-kilometer grid scale.
Additional information is at loca.ucsd.edu. Dr. David Pierce at the UC San Diego Scripps Institution of
Oceanography lead the development of this open-source dataset, which is available for download at
cirrus.ucsd.edu/~pierce/LOCA2/CONUS_regions_split/.
8 Shared Socioeconomic Pathway scenario describes the future scenarios of human societal
developments used in climate modeling. The SSP2-4.5 pathway is a scenario in which the current
patterns of social, economic, and technological trends are similar to historical patterns.
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Water Utilities staff used the Colorado Climate Center’s projections to generate monthly
temperature and precipitation inputs to model water demand and efficiency strategy savings for
this WEP.
Figure 4. Predicted monthly maximum temperature and monthly precipitation for Fort Collins, relative to
1991 - 2020.
40
50
60
70
80
90
100
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Mo
n
t
h
l
y
M
a
x
i
m
u
m
T
e
m
p
e
r
a
t
u
r
e
(
F)
Monthly Maximum Temperature -Observed and Predicted
2040 (climate model predictions)
2040 (average of climate model predictions)
1991 - 2020 (average of measured data)
0.0
1.0
2.0
3.0
4.0
5.0
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Mo
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l
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e
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)
Monthly Precipitation -Observed and Predicted
2040 (climate model predictions)
2040 (average of climate model predictions)
1991 - 2020 (average of measured data)
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1.3.2 Storage Constraints and Planned Improvements
Water 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 Water Utilities’
water supply sources by reducing reliance on C-BT storage and thereby minimizing risks
associated with 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, Water 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. Water 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. Water 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 ✓
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Future Need/Challenge Yes No
Aging infrastructure in need of repair ✓
Issues with water pressure in portions of distribution system ✓
Wildfire and post-wildfire runoff might impact source watershed ✓
1.3.4 Growth and Water Supply Requirements
To provide reliable water for development, including water rights and associated infrastructure,
Water 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 needs 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 Water 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, Water 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
Water Utilities estimates the population of the water service area was approximately 139,000 in
2024. Although the 35-square mile water service area boundary does not coincide with city
limits, city-wide demographics9 are useful for a general understanding of 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 Water 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
Water 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.
9 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 Water 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 Water Utilities customers to rethink their water use. While the population has
continued to grow, water demands have exhibited a downward trend as illustrated Figure 5.
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 5: 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 6 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.
0
20
40
60
80
100
120
140
160
0
4,000
8,000
12,000
16,000
20,000
24,000
28,000
32,000
36,000
Se
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t
Treated Water and Population, 1960 -2024
Fort Collins Utilities
Treated Water Service Area Population
0
20
40
60
80
100
120
140
160
0
2,000
4,000
6,000
8,000
10,000
12,000
19
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Treated Water Demand and Population, 1960 -2024
Fort Collins Water Utilities
Treated Water Service Area Population
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Figure 6: Daily total water treated (2020-2024)
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, Water Utilities evaluated water use for
various residential and commercial customer categories. Customer categories were assigned
based on billing codes10 and county tax assessor classifications. Table 3 and Figures 7-10
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 7-10, residential categories collectively use the most billed treated water
each year: about 63% on average with about 41% attributable to single -unit residences.
Commercial customers use about 37% 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 3% of the total billed treated water delivered each year. City government
buildings, facilities, and landscapes use about 2% of the billed treated water each year (raw
water use by City facilities is discussed in Section 2.2.5).
10 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 5 and 6;
however, they are not included in the analysis of demands by customer sector in Section 2.2.1. Water
Utilities treats and delivers about 900 MG for wholesale and contractual use.
0
20
40
60
80
100
120
140
Ac
r
e
F
e
e
t
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
0
5
10
15
20
25
30
35
40
45
1-Jan 1-Feb 1-Mar 1-Apr 1-May 1-Jun 1-Jul 1-Aug 1-Sep 1-Oct 1-Nov 1-Dec
Mi
l
l
i
o
n
G
a
l
l
o
n
s
Daily Treated Water Volume, 2020 -2024
Fort Collins Water Utilities
Average
Maximum
Minimum
Peak Daily Use
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 category (2020-2024)
Customer Category
Number
of
Accounts
Average
Annual
Water
Use
(MG)
Portion
of all
Billed
Use
(%)
Average
Annual Use
per
Account
(gal)
Indoor /
Seasonal
Use
(% of total
annual use)
Residential
Single-unit residential 29,200 2,320 41% 79,400 51% / 49%
Multi-unit residential 2,460 1,060 19% 463,000 77% / 23%
Duplex 1,350 124 2.2% 92,000 66% / 34%
Total billed residential 33,000 3,520 63% n/a 59% / 41%
Commercial
Irrigation-only & HOAs
(excludes City accounts) 627 548 10% 1,800,000 0% / 100%
Office 367 471 8.3% 1,280,000 72% / 28%
Education, healthcare, & group
assembly/housing 425 324 5.7% 762,000 59% / 41%
Hospitality, retail, & services 644 324 5.7% 889,000 73% / 27%
Industrial
(excludes wholesale and large
contractual deliveries)
50 144 2.6% 2,930,000 78% / 22%
City government
(includes treated water irrigation) 253 100 1.8% 616,000 14% / 86%
All other commercial 383 166 2.9% 434,000 66% / 34%
Total billed commercial 2,130 2,750 37% n/a 53% / 47%
Total billed demand 35,130 6,270 100% n/a 55% / 45%
Note: Billed water volume shown excludes wholesale and contractual obligations, which were approximately 900
MG per year from 2020-2024. Non-revenue losses and raw (non-treated) uses are also not included in this table.
2025 Water Efficiency Plan
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Figure 7. 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 8. Billed treated water use by customer category (2020-2024)
Figure note: Billed water volume shown excludes non-revenue losses, wholesale, and contractual obligations.
0
5,000
10,000
15,000
20,000
0
1,000
2,000
3,000
4,000
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6,000
7,000
2020 2021 2022 2023 2024
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Billed Treated Water
Fort Collins Water Utilities
Residential Indoor Commercial Indoor Residential Seasonal Commercial Seasonal
Single-unit Residential
41%
Duplex Residential
2%Multi-unit Residential
19%
Office
8%
Education, Healthcare,
Assembly, Group
Housing
6%
Irrigation-only & HOAs
(excludes City)
10%
Hospitality, Retail, &
Services
6%
All Other Commercial
3%Industrial
3%
City Accounts
2%
Annual Average Water Use, 2020 -2024
by Customer Class
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2.2.2 Seasonal Demand
Indoor and outdoor/seasonal11 water use for residential and commercial customers is shown by
month in Figure 9. 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 10. Irrigation-only
and single-unit residential accounts make up the greatest total portion of outdoor/seasonal
water use.
Figure 9. Average monthly metered and billed treated water use (2020-2024)
Figure note: Billed water volume shown excludes non-revenue losses, wholesale, and contractual obligations.
11 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.
0
500
1,000
1,500
2,000
2,500
3,000
0
200
400
600
800
1,000
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Average Metered Treated Water Use by Month (2020 -2024)
Residential Indoor Commercial Indoor
Residential Seasonal Commercial Seasonal
Average total billed water use
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Figure 10. Average indoor (top) and seasonal (bottom) water use by customer sector (2020-2024)
Figure note: Billed water volume shown excludes non-revenue losses, wholesale, and contractual obligations.
Single-unit Residential
38%
Duplex Residential
3%
Multi-unit Residential
27%
Office
11%
Education, Healthcare,
Assembly, Group
Housing
6%
Irrigation-only & HOAs
(excludes City)
0.5%
Hospitality, Retail, &
Services
8%
All Other Commercial
3%Industrial
4%
City Accounts
0.4%
Single-unit Residential
46%
Duplex Residential
2%
Multi-unit Residential
10%
Office
5%
Education, Healthcare,
Assembly, Group
Housing
5%
Irrigation-only & HOAs
(excludes City)
21%
Hospitality, Retail,
& Services
4%
All Other Commercial
2%
Industrial
1%City Accounts
4%
Outdoor & Seasonal Average Water Use, 2020 -2024
by Customer Class
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2.2.3 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 Water 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 11 shows total GPCD from 2010 through 2024. The per person demands declined
significantly over the last few decades. However, per capita consumption has remained fairly
steady since 2017, suggesting that Water Utilities and customers will need to take additional
actions to continue lowering demand on a per capita basis.
Water 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 11. 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.
0
20
40
60
80
100
120
140
160
0
50
100
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200
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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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2.2.4 System Water Loss
Every water utility experiences water losses within production and distribution resulting in non-
revenue water. Water Utilities uses the American Water Works Association (AWWA) M36 Water
Loss Audit standards12 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, Water 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 12) that compares the volume
of water entering a distribution system to the amount of water billed to customers and not
accounted for. Each year, Water 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 12. 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, Water 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 Water 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.
12 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, Water 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.
Water 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.
2.2.5 Raw Water Use
In general, raw water use is managed through agreements separate from Water Utilities and is
not subject to Water Utilities’ jurisdiction. Therefore, Water 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. Water 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 Water Utilities recognize
value in prioritizing raw water over treated water for irrigation, particularly due to lower water
cost and avoiding unnecessary water treatment and distribution 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 a reas of raw water irrigation are shown on Figure 13.
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Figure 13. 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. Water Utilities created its first
water efficiency position in 1977, and efficiency staffing and actions have continued to increase
over time. A brief history of Water Utilities’ water efficiency goals and activities is provided in
Appendix A.
The City and Water 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. Water Utilities’
programs help customers collectively reduce 155 MGY on average, an annual reduction of over
2.3% in water demand. Water Utilities’ portfolio of current and planned new efficiency strategies
is discussed in detail in Section 4, with additional information provided in Appendix C.
Figure 14 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 Water Utilities manage overall water
demand despite upward pressures from climate change and growth.
Figure 14. Annual treated water demand and savings from water efficiency programs
Figure notes:
1.9%*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
Ac
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(
A
F
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s
(
M
G
)
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.
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Treated water volume shown includes non-revenue losses and excludes wholesale and contractual obligations.
2024 values are draft and subject to change.
* 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
Water 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 Water 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. Descriptions and estimated water savings from water efficiency activities and
strategies that integrate closely with land use are included in Appendix C.
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
2025 Water Efficiency Plan
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45
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 Water 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 directly 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.
Water 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. Water Utilities then uses the
expected number and type of residential units to project future population.
It is anticipated that Water 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 Water
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 15 presents recent and projected residential population growth in the water service area.
The projections are based on the current amount of land available for development, current land
use zoning, and assume buildout by 2040. Water 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 15. Current and projected population for the Water Utilities service area
2.4.2 Demand Scenarios
A variety of future conditions that impact water demand are possible for the Water Utilities. Two
bounding scenarios were used to estimate the range of demands for water efficiency planning in
this WEP:
• Moderate growth, no climate change – This “status quo” scenario is based on
residential growth projections shown in Figure 15 that assume development of
available land by 2040 and current land use zoning, with a service area residential
population of 155,150 in 2040. This scenario assumes that temperature and
precipitation are consistent with what Fort Collins experienced during the recent 30-
year period from 1991-2020 (average lines shown in Figure 4).
• High growth, hot and dry – This “higher demand” scenario is based on higher
residential growth (more multi-unit dwellings and higher average persons per
household), with a service area residential population of 164,280 in 2040. This
scenario also assumes that the number of commercial water accounts increased by
10% by 2040, for all commercial sectors. Finally, this scenario applies the upper
(mean plus one standard deviation) monthly maximum temperature projections and
lower (mean minus one standard deviation) monthly precipitation projections for Fort
Collins based on downscaled local climate model projections, as described in
Section 1.3.1 and shown in Figure 4.
Both scenarios assume current levels of passive and active water conservation , and assume
8% distribution system loss.
0
20,000
40,000
60,000
80,000
100,000
120,000
140,000
160,000
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Water Utilities Service Area Residential Population
Single-Unit Housing Multi-Unit Housing
Duplex Housing Other Population
Total Residential Population Projected Total Residential Population
2025 Water Efficiency Plan
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2.4.3 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.
Water Utilities staff work with consultants to model future water demands. Two key modeling
tools are the new Water Efficiency Tool (WET), developed for this WEP update to enable
examination of the potential water savings of certain efficiency programs, and the Demand
Estimation Tool (DET) developed for the 2019 Water Supply Vulnerability study . Both models13
evaluate the complex interactions that drive water demand and can be used to predict future
demands for the Water Utilities service area under a range of growth, economic, and climate
scenarios.
Figure 16 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 Water Supply Vulnerability Study,
increased demand could drive more frequent water shortages and resulting restrictions.
13 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”.
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Figure 16. 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.
2.4.4 Additional Considerations for Overall Water Resource Supply Planning
Overall water supply planning is led by the Water 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 Water 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:
Large Contractual Obligations
Water 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 the 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.
12,000
16,000
20,000
24,000
28,000
4,000
6,000
8,000
10,000
20
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20
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Wholesale Water Treatment
Through an agreement, Water Utilities provides wholesale treated water to the approximately
4,000 WFCWD customers, and most of those customers are residential. In return, Water
Utilities is reimbursed with an equivalent amount of C -BT supply. Water 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
Water 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 Water 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 Water
Utilities’ water efficiency efforts.
Collaboration with Other Water Providers
Some areas within Fort Collins’ growth management area are served by neighboring water
providers. The largest adjacent water providers, ELCO and FCLWD, have their own WEPs that
describe goals and strategies for their service areas . Water Utilities values these partnerships
and continues to look for ways to collaborate through coordinated information-sharing, planning,
communications/outreach , and efficiency strategies.
Important differences exist between the Water Utilities, ELCO, and FCLWD, including source
water supply portfolios, organizational policies, size, staffing, mission and vision, financial
resources, and growth patterns. Through ongoing and increased collaboration across water
providers, there are opportunities for to better plan for risk and improve the resiliency of the
water supply systems, and improve alignment and understanding of policies, plans and
processes to best serve customers. An analysis conducted in 2021-2022 by consultants, titled
“Water Resources Matters in the Fort Collins Growth Management Area: Study Report Results ,”
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identified over 100 challenges and potential solutions to improve coordination across water
providers.
Current strategies for collaboration and coordination between water providers include :
• Interconnected infrastructure in the treatment and distribution systems
• Regular information sharing about water supply and potential restrictions status
• biannual check-in meetings with FCLWD through the Water Utilities Business
Resource Team, which supports industrial customers
The WEP includes new strategies expected to encourage collaboration across water providers,
such as:
• Establish regular contact and information sharing between Fort Collins water
providers and Planning staff
• Integrate water into strategic plans and policies
• Support One Water efforts and an integrated demand management approach
3.1 Water Efficiency Goals
This WEP sets two water efficiency goals to guide Water 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.
Goal 1 was set based on a “top-down” analysis of expected demand increase paired with a
“bottom-up” analysis of feasible savings: Staff estimated future water demand increases based
on a range of growth and climate conditions (“top down”), then set a reduction goal based on (1)
outperforming historical Water Conservation Division program savings of approximately 2%
each year, paired with (2) analysis of cumulative potential water savings from efficiency
strategies described in Section 4 of this WEP (“bottom up”).
The volume of savings associated with the 4% reduction in Goal 1 is determined based on
projected demands for Water Utilities’ customers under a range of future growth and climate
scenarios. Because demands vary year-to-year, for a specific percentage 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 290 –
350 MG (890 – 1,075 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 17 shows recent historical customer treated water use (solid
blue line) and the projected range of future customer water demands without efficiency
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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 Water Utilities on a track to zero water use in the future.
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
Goal 2 was set based on collaborative discussions across City departments and alignment with
the two-year municipal budgeting cycle , with the intent to average one new landscape resilience
project with each two-year cycle.
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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 Water Utilities water
service area, including
residential, commercial,
and City water use
• Gradually lower demand to minimize the
frequency and magnitude of water
shortages
• Offset a portion of increasing demand
driven by increasing temperatures from
climate change; we anticipate 320 MG
savings is expected to offset the demand
increases driven by an average increase
in monthly maximum temperature of
approximately 2°F by 2040, which is a
plausible future scenario for Fort Collins
based on climate models.
• Reduce barriers, expand access to
efficiency opportunities
• Target 1.1: By 2040,
lower overall annual
treated water use by
320 MG (980 AF)
below projected water
use
• 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 (15
AF) by 2040 average
performance
From 2030 – 2040,
interim annual targets
will be tracked,
increasing to the 4%
reduction goal:
• 2030: 3%
reduction,
estimated at 220
MGY (675 AFY)
• 2035: 3.5%
reduction,
estimated at 270
MGY (830 AFY)
• 2040: 4%
reduction,
estimated at 320
MGY (980 AFY)
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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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 Water Utilities
to take full advantage of savings achieved by customers. See Section 1.3 .2 for more information
on the role of storage in supply and demand management planning.
By updating water efficiency goals and strategies, Water Utilities aims to continue reducing
water use to lower the risk of shortages and increase resiliency for its customers. Among the
most significant benefits are the following.
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%
12,000
16,000
20,000
24,000
28,000
4,000
6,000
8,000
10,000
20
1
5
20
2
0
20
2
5
20
3
0
20
3
5
20
4
0
20
4
5
20
5
0
Ac
r
e
-Fe
e
t
Mi
l
l
i
o
n
G
a
l
l
o
n
s
Historic Demand
Projected demand range, without additional efficiency
Projected demand range, with Goal 1 reductions
Goal 1 interim and final targets
Range of
projected
demands
with
successful
attainment
of Goal 1
Figure 17. 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, Water 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. Water 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.
Business Stability through Service Continuity
Water efficiency supports long-term economic growth through service continuity that comes
from few periods of shortage or restrictions, reducing potentially costly or disruptive impacts to
business operations.
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 for changing habits and attitudes toward water use.
Individual-customer actions make 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 Water 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 provide s significant open space
that many residents desire. When possible, making some of Water Utilities’ surplus water
available for farmers and ranchers to rent provides supplemental revenue for Water 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
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While water rates are expected to rise over time , using less water can help mitigate the pace of
those increases by reducing overall system demand and operational costs. In addition to
lowering monthly water bills, 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 Water 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.
• Reduced or delayed acquiring of water rights: if Water 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 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 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, often referred to as the “cost of inaction.” In
the 2023 Colorado Water Plan, the CWCB incorporates climate change into planning scenarios
and notes that climate change introduces substantial uncertainty. It may increase water demand
across all sectors, reduce overall supply, and pose resiliency challenges that must be
addressed in current planning. Although water efficiency activities require resources for program
materials, incentives, and staff, this investment in water efficiency supports long-term adaptation
to climate change, builds resilience, and avoids potential future climate -driven costs.
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Although these costs are hard to predict, one example is the potential damage to the Fort
Collins’ public trees, which have an estimated total replacement value of $112 million. Trees
provide essential ecological services, including air purification and heat island mitigation . In
addition to the environmental cost of services lost, replacing a single tree costs $350 - $450,
and each tree requires intensive care and maintenance for the first two years after planting.
At a broader 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 climate-driven hazards. Estimated total
damages could reach $9.7 million--or $20 per person--based on projected impacts to livestock,
crops, and recreation.
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 Water 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 Water 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
Water Utilities or one of the other Fort Collins water providers.
3.3.1 Current Strategies
The City and Water Utilities have prioritized integration of water and land use planning through
many long-term and current strategies, which are briefly listed in Section 4, with additional
details in Appendices C and D. 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
Water 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
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Planning Efforts and have plans to develop the new land use-focused strategies identified and
described in Appendices C and D.
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 people 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, Water 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, Water 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. Water Utilities
recognizes that many people are part of multiple groups.
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3.4.1 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 .
3.4.2 Equity in Outcomes - Strategy Selection and Implementation Planning
To apply an equity lens to efficiency strategy selection, Water 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 assessment:
“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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• 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)
• 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
Water 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
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connecting with disproportionally impacted communities. This resulted in the development of
inclusive and community-driven water efficiency goals and strategies.
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 Committee14
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
14 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 better 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, Water 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 18).
Figure 18. Approaches to influence water demand and areas potentially impacted by efficiency strategies
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With input from customers and staff, Water 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, Water 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
Water 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
Water Utilities/City priorities. Water efficiency strategies are intended to be implemented , monitored
(Section 5) and refined over time to best serve Water 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 screening: 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-making meetings with cross-
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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 Water Utilities
have the staff resources to properly support, monitor and evaluate the program? Staff
assigned a high, medium, or low score based on past project experience and the preliminary
program descriptions developed for potential new strategies.
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• Acceptance: Does this activity meet the needs and wants of Water 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 projected 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
and potential new strategies that were considered but not prioritized for implementation.
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.
4.2 Strategies for Goal 1
If fully implemented, Water Utilities estimates that programs and projects outlined in this WEP will lower
treated water demand by up to 314 MG per year by 2040. Regulatory changes could lower annual
demands by an additional 46 MG per year, and other factors such as rate or fee changes could further
impact demands. Brief descriptions and a detailed tabular summary of existing and new efficiency
strategies are provided in Appendix C.
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Water Utilities currently manages or supports a wide variety of programs and policies aimed to lower
treated water demand through more efficient water use, build resilience, and increase community
awareness.
As described in Section 2, on average these strategies have lowered water demand by 130 – 180 MG
each year, up to 2.5% of treated water demand, and involved over 25,000 participants or community
touch points each year. Water Utilities is planning to gradually add 10 new strategies over the coming
years to expand program offerings and access and make additional progress toward the WEP goals.
The portfolio of water efficiency strategies selected to lower treated water demand in support of Goal 1 is
summarized below. New strategies are indicated with an asterisk (*). Strategies are organized according
to the primary approaches, or “levers,” of impact: behavioral, infrastructure, economic, and regulatory.
Table 5: Current and New Water Efficiency Strategies Supporting Goal 1
Approach Strategies
Behavioral strategies • Community educational programs and events for all ages
• Campaigns such as Fix a Leak Week and Imagine a Day without Water
• Garden Party / Eco Fest event with classes and native plant swap
• Xeriscape Demonstration Garden
• Efficiency equipment giveaways, including showerhead swaps
• Irrigation system assessments for single-unit residential
• Irrigation system assessments for commercial and HOA properties
• Indoor assessments and equipment direct installation for single -unit
residential
• Indoor equipment direct installation for multi-unit residences and small
businesses
• Indoor use assessments for commercial facilities
• Saving water hotline to report water waste
• Customized water use reports for residential and commercial accounts
• Customized single-unit residential water budgets
• Water use estimator spreadsheet tool for development concepts
• Waterwise landscape professionals network and support
• High bill evaluations*
• Wrap-around support for efficiency in large turf areas and HOAs*
• Rental tenant and owner/manager outreach and giveaways*
• Commercial water use benchmarking*
• Comprehensive conservation communications plan*
Infrastructure-based
strategies
• Advanced metering for all accounts
• Customer data portal
• Leak alerts and high-use notifications
• Monthly billing with rate codes that align with tiered rates and customer
type
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Approach Strategies
Economic strategies
• Indoor product rebates for residential and commercial customers
• Irrigation equipment rebates for residential and commercial customers
• Xeriscape Incentive Program rebates and grants for residential customers
• Xeriscape Incentive Program rebates and grants for large commercial and
HOA landscapes
• Garden in a Box discounts
• Custom rebates for commercial projects
• Conservation-oriented tiered/seasonal rate structures
• Conservation-oriented water supply requirement fee
• Allotments and excess water use surcharge for commercial accounts
• Plumbing repair assistance*
• On-bill financing for efficiency upgrades*
• Design assistance and incentives for new development and
redevelopment*
Regulatory strategies
• Wasting water ordinance and code enforcement
• Building codes and plumbing standards
• Landscape, irrigation, and soil codes
• Parkway landscaping regulations
• Stormwater criteria supports low impact development
• Review of irrigation plans during development review
• Graywater reuse for toilet/urinal flushing
• Water adequacy determination regulation
• Restrictive covenants ordinance
• Water Shortage Action Plan
• Daily sprinkler watering window*
• Examine existing land use regulations for barriers or conflicts to water
efficiency*
* indicates new strategies identified in this WEP.
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4.2.1 Examples of How Customers can Contribute to Goal 1 Reduction
Strategies can impact the entire community and this WEP identifies 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 WEP goals and
targets, and to support the WEP guiding principles listed in the Introduction. Strategies are
intended to be implemented, tracked, and refined over time. By cultivating a water efficient,
adaptive, and knowledgeable customer base through education and cost -effective water
efficiency programs, the community can help minimize water shortage risk and support the
City’s strategic objectives.
Figure 19 shows how the prioritized strategies work together to provide water savings through a
variety of approaches.
Figure 19. Summary of water efficiency impacts with full implementation of all current and new strategies.
Regulatory
17%
Economic
23%
Infrastructure
14%
Behavioral
46%
Strategy Distribution by Approach
Single-Unit
Residential
24%
Multi-Unit
Residential
21%
Commercial
18%
HOAs & Large
Landscapes
16%
City
Accounts
21%
Strategy Distribution by Customer
Sector
Indoor
38%
Outdoor
62%
Average Estimated Water Savings
Contribution by Use
Regulatory
17%
Economic
20%
Infrastructure
33%
Behavioral
30%
Average Estimated Water Savings
Contribution by Approach
(Water savings based on projected 2040 population and range of climate
and growth scenarios.)
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Water Utilities customers have a variety of options to lower their water use, including the
strategies outlined in this WEP. To illustrate how individual actions can collectively help achieve
the 4% reduction target in Goal 1, the following examples highlight actions different customers
might take overtime:
Residential customers
The average single-unit household in the Water Utilities service area uses about 80,800 gallons
of water a year. This means that the average residential customer can help meet the 4% WEP
goal by lowering their water use by about 3,200 gallons each year (relative to current average
use).
• Change Showers: Swapping out a 2.5 gallon-per-minute showerhead for a free
1.5 gallon-per-minute version (currently offered for free through the Water
Conservation Showerhead Swap program) and cutting shower from 12 to 8
minutes can save up to 1,500 gallons per year and save about $5 on water bills.
• Check Sprinklers: Outdoor water use spikes in the summer. Free irrigation
assessments save participating households an average of 5,000 gallons per year
and over $16 on water bills. Many lawns have correctable issues like inefficient
watering schedules and broken or tilted heads).
• Redo Landscapes: Native landscaping is water-smart, supports ecosystems, and
looks great. A 1,000 square-foot project can save 6,000 gallons annually and
lower water bills by about $20 annually. The average cost to Xeriscape Incentive
Program participants for a project of this size was $1,840 and rebates can cover
up to $1,000 of that cost. Additional savings are possible through the Garden in a
Box discounts.
Business customers
The typical water use and potential for water efficiency savings varies based on business type,
size, and other factors. The WEP includes a variety of commercial efficiency strategies,
including custom rebates that let a business identify what opportunities work best for them.
• Plumbing Upgrades: Replacing 10 older urinals with WaterSense models could
save a business between 26,000—60,000 gallons annually and up to $180 on
annual water bills. Even smaller changes—like upgrading five toilets—can cut
11,000 gallons a year. Rebates available for urinals and toilets typically offset
about 20% of the installation costs.
• Water Efficient Large Landscapes: Replacing bluegrass turf with native grass
species is a cost-effective strategy for reducing water use on large landscapes.
Converting 10,000 square feet can save approximately 70,000 gallons annually.
Water Utilities offers rebates up to $15,000 for qualifying proj ects.
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4.3 Strategies for Goal 2 and One Water Demand Management
In support of Goal 2, the City organization will continue refining current best practices while also
exploring new opportunities to improve water efficiency and build re silience across City-owned
landscapes. In some cases, these actions will also yield treated water savings that contribute to
Goal 1 targets while advancing integrated land use and water planning, as well as One Water
integration across Water Utilities and the City organization. Brief descriptions and a detailed
tabular summary of existing and new City strategies are provided in Appendix D.
City departments currently implement numerous best practices and operation strategies that
address distribution and treatment inefficiencies, lower treated and raw water use, improve
landscape resilience, or achieve a combination of these. 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.
Strategies focused on lowering City treated water use and building landscape resilience ; new
strategies are indicated with an asterisk (*):
• 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
• Implement and update Municipal Sustainability Adaptation Plan
• Increase pace of plumbing retrofits in City buildings*
• Irrigation and landscape efficiency projects on City-owned properties*
• Increase pace of distribution line replacement/repair*
• Water Conservation Division provides technical and financial support for City
efficiency and resiliency projects*
• Establish regular contact between City planning departments and water
providers*
• Look for opportunities to expand Water Conservation Division involvement in
development review*
• Further integrate water and efficiency into strategic plans and policies*
• Support One Water efforts and integrated demand management*
• Use City properties to pilot efficiency activities (e.g., commercial use
benchmarking)*
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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 20 presents a
conceptual implementation timeline.
Figure 20. 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)
Interim and Final Goal 1
Targets: Progress to
lowering projected annual
demand by 4% 2040
Water Efficiency Milestones
3.5%
270 MGY (830 AFY)
3%
220 MGY (675 AFY)
2.3% - 3%
> 155 MGY (> 480 AFY)
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• Identify and obtain needed resources such as staff time, funding15,
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 Water 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. Staff will seek new opportunities to partner with broad -reaching organizations in
the community such as schools, higher education, and professional and community
organizations to share information and promote efficiency. This will facilitate water use
understanding and efficiency opportunities between Water Utilities and the community,
especially City departments and disproportionately impacted community members.
5.2 Monitoring
Water 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
15 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.
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• 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
Many of these metrics are posted online at fcgov.com/Water 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 September 2,
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
Water 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 23 – June 23, 2025. During this time, the draft WEP was posted online, and
community members could submit comments via an online form or through direct email to staff.
Although the draft was prepared in English only, translation via Google Translate was available,
and the online comment form was offered in both English and Spanish . Community members
could also request a mailed printed version of the draft WEP and comment form. The public
comment period was promoted through a bill insert, social media, emails, newsletters, websites,
and public events.
Eight online forms and one direct email were received during the public comment period and are
summarized as follows:
Goals
• Understandable: 3 Yes, 4 Somewhat, 0 No
• Reflect community values: 3.7 (out of 5)
• Appropriate for our community: 2 Yes, 4 Somewhat, 1 No
• Applicable to my life: 2 Yes, 4 Somewhat, 1 No
• Ambitious: 4 Yes, 3 Somewhat, 0 No
Strategies
• Understandable: 3 Yes, 4 Somewhat, 0 No
• Applicable to my life: 3 Yes, 4 Somewhat, 0 No
• Target right uses: 4 Yes, 3 Somewhat, 0 No
• Appropriate for our community: 3 Yes, 4 Somewhat, 0 No
• Adequately support customers: 2 Yes, 3 Somewhat, 2 No
Write-in comments generally aligned with the feedback received during WEP engagement
(Section 3.5 and Appendix B).
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
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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 September 2, 2025, Council adopted the plan by resolution.
Water 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 the fall of 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. Water 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
Alliance for Water Conservation. Water Conservation Tracking Tool. Available online at:
allianceforwaterefficiency.org/resource/water-conservation-tracking-tool/
American Water Works Association . 2016. Water Audits and Loss Control Programs, Fourth
Edition. M36-2016.
Bolinger, R.A., J.J. Lukas, R.S. Schumacher, and P.E. Goble, 2024: Climate Change in
Colorado, 3rd edition. Colorado State University. doi.org/10.25675/10217/237323.
City of Fort Collins. 2024. Water Conservation Annual Report.
City of Fort Collins. 2022. Water Resources Matters in the Fort Collins Growth Management
Area: Study Report Results. Prepared for City of Fort Collins by Brendle Group.
City of Fort Collins. 2021. Our Climate Future Plan.
City of Fort Collins. 2020. Water Shortage Action Plan .
City of Fort Collins. 2019. Water Supply Vulnerability Study. Prepared for Fort Collins Utilities by
Stantec, in association with RTI International.
City of Fort Collins. 2012. Water Supply and Demand Management Policy. Resolution 2012 -099
of the Council of the City of Fort Collins Adopting a Water Supply and Demand Management
Policy. Available online at: Water Supply and Demand Management Policy .
City of Fort Collins and Platte River Power Authority. 1978. Agreement for the Reuse of Water
for Energy Generation (The Reuse Plan).
Colorado Legislation. 2010. House Bill 10-1051. Concerning Additional Information Regarding
Covered Entities' Water Efficiency Plans .
Colorado Legislation. 2004. House Bill 04-1365. The Water Conservation Act of 2004.
Colorado Legislation. 1991. House Bill 91-1154. The Water Conservation Act of 1991.
Colorado Water Conservation Board. 2023. Department of Natural Resources. Colorado Water
Plan. Developed for Colorado Water Conservation Board by Brown and Caldwell and Wilson
Water Group. Available online at
dnrweblink.state.co.us/CWCB/0/edoc/219188/Colorado_WaterPlan_2023_Digital.pdf
Colorado Water Conservation Board. 2019. Best Practices for Implementing Water
Conservation and Demand Management Through Land Use Planning Efforts Addendum to
2012 Guidance Document. Prepared for Colorado Water Conservation Board by Anne J. Castle,
Getches-Wilkinson Center, University of Colorado and Erin Rugland, Babbitt Center for Land
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and Water Policy. Available online at:
dnrweblink.state.co.us/cwcbsearch/ElectronicFile.aspx?docid=208193&dbid=0
Colorado Water Conservation Board. 2019. Municipal Water Efficiency Plan Guidance
Document. Prepared for Colorado Water Conservation Board by AMEC. Available online at:
cwcb.colorado.gov/public-information/technical-tools/municipal-water-efficiency-plan-guidance-
document
Colorado WaterWise. 2024. Guidebook of Best Practices for Municipal Water Conservation in
Colorado. Second Edition. Available online at: https://indd.adobe.com/view/a66fdb02-50c6-
4ec3-8fea-4db473212faf
United Status Census Bureau. 2024. Quick Facts for Fort Collins, Colorado. Available online at:
census.gov/quickfacts/fact/table/fortcollinscitycolorado/IPE120223#IPE120223 .
United Status Census Bureau. 2024. American Community Survey. Available online
at: data.census.gov/profile/Fort_Collins_city,_Colorado?g=160XX00US0827425
Water Research Foundation. 2017. Blueprint for One Water. Water Research Foundation
Project 4660, developed by Brown and Caldwell.
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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. Water Utilities has a long history of active water efficiency. Faced with a
drought in 1977, Water 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 Figure A-1 below.
Figure 21: Historical water demand management planning levels and goals for Fort Collins Water Utilities
Prompted by the drought of 2002 -03, Water Utilities made several efforts to increase
accountability and encourage efficient use of water , including fully metering every customer.
Water 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.
Water 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.
0
50
100
150
200
250
19
9
0
19
9
2
19
9
4
19
9
6
19
9
8
20
0
0
20
0
2
20
0
4
20
0
6
20
0
8
20
1
0
20
1
2
20
1
4
20
1
6
20
1
8
20
2
0
20
2
2
20
2
4
20
2
6
20
2
8
20
3
0
Ga
l
l
o
n
s
p
e
r
C
a
p
i
t
a
p
e
r
D
a
y
(
G
P
C
D
)
223 GPCD
by 1996
(1992
WSDMP
goal)
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 . Water Utilities’ per person demands declined significantly over
the last few decades. However, per capita consumption has remained fairly steady since 2017,
and Water 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
Water 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 Water Utilities service area should also
follow Water 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 pla n,
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 Water 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 decreasing 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 Water Utilities Costs
The cost of water is a key element of housing affordability – both the cost to develop housing
and the Water 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. Water Utilities affordability programs
aim to minimize this cost through programs that offer emergency and long -term assistance
through reduced utility rates and access to ef ficiency programs. As of 2024, approximately 570
Water Utilities water customers were enrolled in the Income Qualified Assistance Program.
Expanding water efficiency opportunities is also important as Water 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 the 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
Assessment16, “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
16 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, Water 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, Water 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 gover nment 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.
Water 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 survey17. 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.
17 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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These customers can typically afford projects or technologies that help them reduce their water
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 bill s and/or efficiency
upgrades, limiting their ability to use less water. Many respondents noted that 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
Water 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?
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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 Water 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 Water 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 Water 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?
“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 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.
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 5 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 Water Utilities of the City.
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Meeting formats ranged from one-on-one phone calls and home visits to attending an existing
community meeting, deploying many of the engagement “best practices” 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.
Community-Wide Survey
Water 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 Water Utilities Administration
Building, and events attended by Water Utilities staff. Water Utilities promoted the survey
digitally through several avenues, including Our C ity, social media, email distribution lists, and at
events attended by Water 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
Water Utilities staff attended several community meetings throughout the process to collect
input and feedback from specific stakeholder groups. Over the course of six months, Water
Utilities staff presented at or organized eight meetings, to listen and collect feedback 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 Water Utilities as key connectors and experts who could provide insight into
existing equity challenges in the City, on best practices for integrating equity into plans, and
from the perspectives of equity priority communities.
Table 6: 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
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Audiences Reached Engagement Tactic
Mobile Home residents
Colorado State University community
Spanish speakers
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 Water
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)
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Audiences Reached Engagement Tactic
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
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
Water 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.
Water 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 properties) with high
outdoor use. Participants suggested that engagement s hould 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 to 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 , and June 5, 2025, to provide an update and seek
feedback on proposed goals and strategies. They unanimously-approved a motion to support
the WEP at their July 17, 2025 meeting.
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. On June 26, 2024, staff
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presented an overview of the WEP and led an engagement activity to seek input on water
efficiency strategies as they pertain to urban tree health/benefits and raw water irrigation. On
May 21, 2025, staff presented an overview of the WEP draft that was available during the public
comment period and solicited final input from Board members. The Natural Resources Advisory
Board provided a letter of support for the WEP update to City Council on June 18, 2025.
Parks and Recreation Advisory Board
The Parks and Recreation Advisory Board advises and makes recommendations for matters
pertaining to Parks and Recreation. On May 28, 2025, staff presented an overview of the WEP
draft that was available during the public comment period and solicited final input from Board
members. They provided specific comments, which staff addressed through revisions to the
WEP text and a comment response memorandum dated June 23, 2025. Staff returned to
address questions at the June 25, 2025 meeting. The Parks and Recreation Advisory Board
provided a letter of support for the WEP update to City Council on July 28, 2025.
Planning and Zoning Commission
Planning and Zoning Commission makes recommendations to the City Council regarding
zoning, annexations, major public and private projects and long-range planning activities. The
Commission is also the final decision -making authority regarding land use proposals including
development plans. On May 9 and May 15, 2025, staff presented an overview of the WEP draft
that was available during the public comment period and solicited final input from
Commissioners. They unanimously-approved a motion to support the WEP at their May 15,
2025 hearing.
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 Water Utilities staff three times throughout the process and
provided deep feedback on the engagement process and equity evaluation.
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 6 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.
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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 perspe ctive, 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 t eams meet monthly or quarterly and at
key milestones.
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, Water Utilities hosted several City staff in a series of four focus groups intended
to collect feedback on the Water 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 Water Utilities was the development of an
evaluation by which strategies would be assessed for their potential equity impacts. This
evaluation was co-created by Water Utilities staff and the consultant team, then vetted through a
series of informational 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 equ ity challenges in the City, on
the best practices for integrating equity into plans, and from the perspectives of equity priority
communities.
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Table 7: 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 4/1/2024
by consultant facilitator
Municipal Outdoor Water Use 3/21/2024
Municipal One Water and 3/21/2024
Conservation Opportunities,
Including Municipal Operations,
Distribution, and Stormwater
Land Use and Building Policies and 4/1/2024
Customer Impacts
Informational Interviews with staff 1:1 or small team interviews by consultant June 2024
working on equity, climate, and facilitator
sustainability topics
Information sharing meetings with Internal meetings to share information, seek Summer
staff from departments and collaboration opportunities, and align 2024
divisions including Parks, Operation municipal efforts
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
State of the Water and Parks Internal meetings to learn about practices Spring 2024,
departmental meetings and challenges, seek collaboration
opportunities, and align municipal efforts Spring 2025
Municipal water use goal and Meetings with key staff and managers for Summer –
strategy development (follow-up to departments connected to WEP municipal Fall 2024
facilitated focus groups) efficiency strategies
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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 about 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.
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.
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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.
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
Water 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 the community. There was a strong desire throughout Water 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
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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: Efficiency Strategies Supporting
Goal 1
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, Water 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.
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). As
described in Section 2, current Water Utilities’ programs with tracked program savings help
customers collectively reduce 155 MGY on average, an annual reduction of over 2.3% in water
demand.
Current Strategies Supporting Goal 1
This section provides a summary table (Table 7) and 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 Table 7. Some strategies implemented on City-
owned properties, described in Appendix D, will also support Goal 1.
Behavioral Strategies
Community Education Programs and Events (1977)
Water 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, Water Utilities website information, social media, and more. The team also
serves as technical experts to help commercial customers with water use or billing questions.
Displays are set up at several community events. Staff regularly adjust the focus and content of
educational programs and materials based on community interest in need. Potential topics for
future education include the goals and strategies in this WEP, climate and resilience , and
regional water availability issues. (SWSI Educational activity) Key highlights of educational
activities include:
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• Student (K – 12) Education Programs (1977) – Led by Water 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 activity)
• 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 go als, challenges faced, and the direction for the
future. The report is posted online in ADA-accessible format and available in print form
at events.
• 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 va ries year-to-year. (SWSI
Educational activity)
Campaigns (2016)
Fort Collins participates campaigns to promote efficiency, such as Imagine a Day Without Water
sponsored by the U.S. Water Alliance and Fix a Leak Week activities sponsored by U.S. EPA
WaterSense. Activities and promotions vary year-to-year and are conducted in partnership with
Water Utilities Community Engagement staff. (SWSI Educational activity)
Garden Party / Eco Fest Community Event (2003)
Annual one-day event with free classes, a native plant swap, live music, and numerous booths
staffed by local professionals, non-profits and City staff promoting water-wise landscaping.
Hundreds of people attend the event each year.
Xeriscape Demonstration Garden (1986)
Staff oversees maintenance of the City's Xeriscape Demonstration Garden and provides tours
at organized events and upon request. Water Utilities is also partnering to support various
demonstration gardens and other events at the Gardens on Spring Creek. (SWSI Educational
activity)
Efficiency Equipment Giveaways (1990)
Free indoor and/or outdoor water -saving devices and information are offered frequently to
customers during events. Giveaways vary, but have included shower timers, faucet aerators,
toilet tank banks, playing cards with conservation tips, hose timers, hose nozzles, and
gardening gloves. In 2024, giveaways were further promoted through the free Showerhead
Swap program. 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. (SWSI Educational activity)
Irrigation Assessments – Residential (1999)
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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 and Direct Installation – Residential (2007)
Free inspection of home and installation of appropriate 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.
Indoor Assessments – Commercial (2004)
A free, whole facility energy and water assessment to help customers understand and manage
utility costs and identify savings opportunities.
Saving Water Hotline (2014)
Community members can submit an online notification or call a phone hotline to report leaks,
flowing, or pooling water. Water Conservation staff respond to the notifications and work with
customers to resolve the water waste concerns.
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)
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.
Waterwise Professionals Network and Support (2016)
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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, training, and resources. A filterable public webpage lists businesses that have
attended the mandatory annual meeting, serving as a valuable resource that staff can direct
customers to for guidance.
Infrastructure (Including Operations)
Advanced Metering (2014)
Commercial and multi -unit units have been metered for decades; the Water Utilities fully
metered residential customers by 2003. The Water 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 with 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)
Leak Alerts and High Use Notifications (a.k.a. Continuous Consumption Program; 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 Strategies
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)
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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.
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
including weather-based irrigation controllers, high-efficiency nozzles, drip irrigation
conversions, rain sensors and more.
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.
Xeriscape Grants (2024)
Grant funding for outdoor water efficiency projects such as irrigation repairs or efficiency
upgrades and low-water landscape installation
Garden in a Box Discounts (2017)
Through a partnership with Resource Central, customers receive discounts for professionally
designed, regionally appropriate, water -wise garden kits.
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 As sistance and
Incentives activity)
Conservation -Oriented and Seasonal Rate Structures (2003)
Water Utilities implements a n efficiency-oriented rate structure for residential and commercial
customers. On a monthly basis, Water 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
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to October when water use is higher due to irrigation. Current rates are posted online at
fcgov.com/Water 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
commercial water taps such that lower-water-use developments pay less, while higher-water-
use developments pay more.
Allotments and Excess Water Use Surcharge for Commercial Accounts (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.
Regulatory Strategies (Regulations and Ordinances)
Wasting Water Ordinance and Code Enforcement (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, including but not limited to
Building Code, Energy Conservation Code, Plumbing code, and all local amendments adopte d
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 expect ed 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
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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.
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.
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
Development Review includes Water Conservation Review of Plans (2011)
The Water Conservation Division reviews irrigation plans for new commercial developments and
redevelopment to ensure irrigation systems and landscapes being installed meet municipal code
standards for water efficiency. Landscapes installed for new commercial development and
redevelopment are required to use less than 11 gallons of water per square foot per year.
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.
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)
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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.
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Table 8: Current efficiency strategies supporting Goal 1
Fort Collins Water Utilities
Efficiency Activities
Start
Year
Tracked
Estimated
Annual Water
Savings,
2020-2024
(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 -- ✓
Student (K-12) education
programs
1997 -- ✓
NoCo Bloom articles and
advertisements
2016 -- ✓
Water Conservation programs
annual report
2012 -- ✓
Campaigns – Fix a Leak Week,
Imagine a Day Without Water
2016 -- ✓
Garden Party / Eco Fest
community event
2003 -- ✓
Xeriscape Demonstration
Garden
1986 -- ✓
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110
Fort Collins Water Utilities
Efficiency Activities
Start
Year
Tracked
Estimated
Annual Water
Savings,
2020-2024
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Efficiency equipment giveaways 1992 -- ✓
Showerhead swap 2024 875,000 ✓
Irrigation assessments –
residential
1999 153,000 –
2,045,000 ✓
Irrigation assessments –
commercial and HOA
2024 not available ✓
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)
✓
Indoor use assessments –
commercial
2017 6,000 –
670,000
✓
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Fort Collins Water Utilities
Efficiency Activities
Start
Year
Tracked
Estimated
Annual Water
Savings,
2020-2024
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Saving water hotline 2014 89 – 120
reports
received
annually;
volume of
savings not
available
✓
Water use reports – residential
and commercial
2014 24,000,000 –
75,000,000
✓
Water budgets – residential 2020 -- ✓
Water use estimator for
development
2022 -- ✓ ✓
Waterwise landscape and
irrigation professionals network
and support
2016 -- ✓
Infrastructure
Advanced metering for all
accounts
2014 -- ✓
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Fort Collins Water Utilities
Efficiency Activities
Start
Year
Tracked
Estimated
Annual Water
Savings,
2020-2024
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Customer data portal 2014 -- ✓
Leak alerts and high use
notifications (continuous
consumption program)
2015 40,500,000 –
110,500,000
✓
Monthly billing with rate codes
that align with tiered rates and
customer type
2014 -- ✓
Economic
Indoor product rebates –
residential
2010 2,100,000 –
3,400,000
✓
Indoor product rebates –
commercial
2003 12,400 –
1,027,000
✓
Irrigation equipment rebates –
residential
2018 1,007,000 –
1,740,000
✓
Irrigation equipment rebates –
commercial
2019 1,510,000 –
9,556,000
✓
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Fort Collins Water Utilities
Efficiency Activities
Start
Year
Tracked
Estimated
Annual Water
Savings,
2020-2024
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Xeriscape incentive program
rebates – residential
2010 448,900 –
661,300
✓
Xeriscape incentive program
rebates – commercial
2020 54,000 –
3,495,000
✓
Garden in a Box discounts 2017 310,000 –
529,000
Xeriscape grants 2024 -- ✓
Custom
rebates – commercial
2011 0 – 15,000,000
(average
3,100,000)
✓
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 Water Utilities
Efficiency Activities
Start
Year
Tracked
Estimated
Annual Water
Savings,
2020-2024
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Allotments and excess water
use surcharge for commercial
accounts
1984,
most
recent
update in
2024
-- ✓
Regulatory
Wasting water ordinance and
code enforcement
1917 -- ✓ ✓
Building codes and plumbing
standards
1978,
most
recent
update in
2022
-- ✓ ✓
Landscape, irrigation and soil
preparation codes
1994,
most
recent
update in
2025
1,700,000
(estimate of
annual savings
for most recent
update)
✓ ✓
Parkway landscaping
regulations
2013 -- ✓ ✓
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Fort Collins Water Utilities
Efficiency Activities
Start
Year
Tracked
Estimated
Annual Water
Savings,
2020-2024
(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
-- ✓ ✓
Development Review includes
Water Conservation review of
irrigation plans
2011 -- ✓ ✓
Graywater for limited water
reuse ordinance
2022 -- ✓
Water Adequacy Determination
regulations
2023 -- ✓ ✓
Restrictive covenants ordinance
prevents limits on xeriscape
and turf grass requirements
2003 -- ✓
Water Shortage Action Plan 2003,
most
recent
update in
2020
-- ✓
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Fort Collins Water Utilities
Efficiency Activities
Start
Year
Tracked
Estimated
Annual Water
Savings,
2020-2024
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Water Adequacy Determination
regulations
2023 -- ✓ ✓
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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
Table 8 and cumulative potential impact of these strategies is discussed in Section 4.
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)
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)
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. Staff intend to consult and partner
with City’s Neighborhood Services department to implement this strategy. (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)
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
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made toward community and municipal water goals, including projects and upgrades on City -
owned properties, must be included in messaging. (SWSI Educational activity)
Infrastructure (Including Operations)
No new infrastructure or operations -based opportunities were selected.
Economic
Plumbing Repair 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)
On-Bill Financing for Efficiency Upgrades (Targeted planning start in 2027)
This program is intended to support customers who experience water loss issues that require
costly fixes, such as service line repairs or replacements. Customers who meet certain
qualifications can receive a multi-year loan and make payments through the Water Utilities
billing system. (SWSI Targeted Technical Assistance and Incentives 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)
Regular Evaluation of Conservation -oriented Rate Structures with Water Conservation
Involvement (Targeted start in 2026)
Water Utilities implements an efficiency-oriented rate structure. On a monthly basis, Water
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 committed 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)
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)
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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)
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Table 9: New efficiency strategies to support Goal 1
Fort Collins Water
Utilities Efficiency
Activities
Planned
Start Year
Potential Estimated
Annual Water
Savings by 2040
(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 ✓
Wrap-around Support for
Water Efficiency in
Community Greenspaces
or HOA and Large Turf
Areas
2028 2,700,000 –
4,200,000
✓
Rental Tenant and Owner/
Managers Efficiency
Outreach & Giveaways
2027 -- ✓
Commercial Water Use
Benchmarking
2027 -- ✓
Comprehensive
Communications and
Marketing Plan for
Conservation Promotion
2026 -- ✓
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Fort Collins Water
Utilities Efficiency
Activities
Planned
Start Year
Potential Estimated
Annual Water
Savings by 2040
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Economic
Plumbing Repair
Assistance
2028 890,000 ✓
On-bill financing for
efficiency upgrades
2028 -- ✓
Design Assistance and
incentives for New
Development and
Redevelopment
2027 13,400,000 –
49,200,000 ✓ ✓
Regular Evaluation of
Conservation-oriented
Rate Structures with
Regular Evaluation with
Water Conservation
Involvement
2026 -- ✓
Regulatory
Daily Sprinkler Watering
Window
2027 40,200,000 –
47,800,000
✓
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Fort Collins Water
Utilities Efficiency
Activities
Planned
Start Year
Potential Estimated
Annual Water
Savings by 2040
(gallons)
Land Use
Integration
Statewide Water Supply Initiative Level
Foundational
Activities
Targeted
Assistance
&
Incentives
Ordinances
&
Regulations
Educational
Activities
Examine existing land use
regulations for barriers,
conflicts to water efficiency
2028 -- ✓ ✓
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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 10: New efficiency strategies evaluated but not currently planned
Not Selected Fort Collins
Water Utilities Efficiency
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
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Discontinued Water Efficiency Strategies
Some efficiency activities have been discontinued over time. These are listed in following table:
Table 11: Discontinued water efficiency 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 Water
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.
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Discontinued
Activities
Time Period
Program
was Active
SWSI
Category
Mechanism
of Impact
Description
Watershed
tours
2012 - 2019 Educational Behavioral Educational bus tours of the Water
Utilities’ Cache la Poudre watershed;
involves information about drinking
water, protection of water resources,
water quality, and managing urban
watersheds.
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: Efficiency and Landscape
Resilience Strategies for Goal 2 and City One
Water Demand Management
The WEP includes a goal and strategies directed at City-owned properties: Goal 2: Improve
water efficiency and build resilience on City-owned landscapes, to benefit the community
and environment. Beneficial outcomes for actions on City-owned landscapes include
contributing to 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 local individuals and businesses
The City organization will focus on continuing and improving current best practices (Table 11)
and seeking new opportunities (Table 12) 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 Water Utilities and the City organization.
Current Activities Supporting Efficiency and Resilience on City-Owned Properties
In this WEP update, Water 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 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. 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. Note that this list
provides several examples but is not fully comprehensive of the many day-to-day best practices,
departmental policies, and operational de cisions that guide City water use and landscape
maintenance. Additional information about these strategies is provided in Table 11.
Reuse Plan (1985)
Treated wastewater from the Drake Water Reclamation Facility is pumped to Rawhide Power
Plant for landscaping and cooling water.
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Water Loss Auditing (1993)
Annual audit and reporting of Water 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)
Water Utilities and PDT staff 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 Water Utilities water service area should also
follow Water 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).
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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.
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Table 12: Current City of Fort Collins activities and best practices for managing water use and landscapes on City -owned properties and facilities
Fort Collins Efficiency and
Landscape Resilience
Activities
Start
Year
Tracked or
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
Distribution system water loss
audits
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
-- 8,600,000 (for
treated water
irrigation in Water
Utilities service
area)
✓ ✓
Prioritize raw water sources
for irrigation of City
landscapes
-- -- ✓ ✓ ✓
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Fort Collins Efficiency and
Landscape Resilience
Activities
Start
Year
Tracked or
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
-- -- ✓ ✓ ✓ ✓
Growing Water Smart
Workshop participation
2018,
most
recent
workshop
in 2024
-- ✓ ✓
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Opportunities for City Organization Water Efficiency, 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 Table 12.
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.
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. These projects also have
the potential to incorporate co-benefits such as insect and pollinator habitat and native plant
restorage.
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 Water 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
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included in the early planning stages of all large scale residential 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 Wat er Wise Estimator
Tool, promoting WSR incentives, or connecting developers with other technical assistance.
Integrate Water into Strategic Plans and Policies
PDT and Water 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 Water 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
Water 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
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
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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.
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Table 13: New strategy opportunities for managing water use on City-owned properties and facilities
City of Fort Collins
Efficiency and Landscape
Resilience Strategies
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 Water 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 across the
growth management area
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
Efficiency and Landscape
Resilience Strategies
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 130,000 - 400,000 ✓
Increased Pace of
Distribution Line Leak Repair
To be
determined
700,000 -1,400,000
(over existing annual
loss reduction)
✓
Targeted Irrigation Efficiency
Upgrades on City-Owned
Properties
2028 275,000+ ✓ ✓ ✓
Targeted turf-to-xeric
conversions on City-Owned
Properties
2028 275,000+ ✓ ✓ ✓
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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 Water
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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 Water Utilities,
GPCD is calculated based on the total annual treated water produced at the Water Treatment
Facility for use by all Water Utilities water customers (minus large contractual customers and
other sales or exchange agreements) divided by the estimated population of the Water 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 Water
Utilities’ efforts in balancing its water resources
Water Supply Requirement (WSR): Condition set by Water 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