Technical Series 97-111
Although Canada is a water-rich nation, demand for potable water and the pressure on wastewater treatment facilities has reached a point where the ability to meet the demand is being questioned. There is increasing recognition that water conservation can alleviate the situation without an associated drop in the level of service provided
In Canada, about 40 % of all municipal water is used for domestic purposes; the level of domestic water usage per capita is second only to that in the U.S. Given this high level of water use in the residential sector and the apparently associated opportunities for conservation, CMHC commissioned this study to review and critique the current outlook for residential water conservation in Canada.
The specific objectives of the study were as follows:
The study report identified and examined approaches to residential water conservation that are currently practised in Canada and the U.S. Approaches include not only technologies and practices in the marketplace but also government programs and mandates. The study also looked at the challenges posed by jurisdictional overlap in the area of water resource planning and conservation.
The study concludes that the future success or failure of water-efficiency initiatives will depend on the interplay of technological issues, jurisdiction mandates, and communications efforts designed to increase consumer awareness and to drive the acceptance of water- efficient technology in the marketplace. Furthermore, the study identifies a genuine need for basic research into the economic impact of water conservation. A better understanding of this relationship will permit a more appropriate approach to the funding of research, development, demonstration and implementation.
Key study findings are presented below.
In Canada, the federal and provincial governments set the overall framework for water policy. At the federal level, it is the Federal Water Policy that covers water resource issues. The Policy touches only partially on water conservation in the residential sector.
The provinces have authority over the regulation and distribution of water, and consequently have the leverage to develop and implement province-wide water conservation strategies. At the time of this study, no province had actually established a comprehensive water conservation program. In addition to legislative authority over water resources, the provinces also maintain authority over the next level of government, providing further opportunities to promote conservation in areas such as water user permits, education and research, building and plumbing codes, and planning approvals.
It is the municipalities that are closest to most water consumers, and it is at this level that most of the opportunities for water conservation exist. However, the absence of the power to legislate conservation limits how effective municipalities can be in this regard. Municipal water conservation initiatives typically include the following: pricing structures and metering; leak detection and repair; giveaways of water saving devices; development agreements, etc. The municipalities most effective tool is public education that increases awareness of the issues. The study reports that public interest in the environment could also boost enthusiasm for water conservation.
A key challenge facing municipalities is the separation of the responsibility for water supply and water treatment: this leads to decision-making that does not always advance water conservation.
A breakdown of water use in a typical residential dwelling is shown in the
accompanying box. Given the breakdown illustrated here, efforts to reduce indoor
residential use should concentrate on the bathroom, followed by changes to water-using
appliances. The study report identifies and discusses the range of water using
fixtures, devices and approaches that are available to reduce water consumption.
This material includes water-efficient toilets, low-flow showerheads, faucet aerators,
and water reuse.
| Toilets | 40% |
| Showers and baths | 35% |
| Laundry and dishes | 20% |
| Cooking and drinking | 5% |
Outdoor residential water use, primarily for horticultural purposes, also offers opportunities for conservation. A significant portion of outdoor water is wasted through evaporation or run-off associated with over-watering and other inefficient practices. The study report identifies and discusses a range of water-efficient watering equipment and examines the principles of low-maintenance landscaping. The techniques and equipment discussed include moisture-meters, drip- irrigation sprinklers, automatic watering, low-maintenance landscaping, and cisterns.
Codes, standards and regulations can be barriers to the implementation of water conservation strategies. The study explores a range of topics, including a comparison of current Canadian and U.S. plumbing fixture standards and a review of the impact of water- efficient plumbing fixtures on municipal and private sewage systems. It also deals with Plumbing Code enforcement issues, provides a synopsis of standards harmonization and reviews technical research and development.
The study report notes that harmonization of Canadian-U.S. standards is needed to deliver cost-effective water-conserving technologies to the marketplace. The harmonization process will require that the proponents of water conservation provide significant funding to the CSA to accelerate the development of meaningful, harmonized standards to allow for the affordable testing of available technologies. Canadian Plumbing Code changes will facilitate water conservation initiatives, as will communications initiatives aimed at educating municipal engineering departments.
The study report identifies significant opportunities that, when addressed, will lead to substantial reductions in residential water consumption. Household reductions in water consumption in the order of 10 % to 15 % are possible through the introduction of off-the-shelf technology. More advanced technology is also available to reduce average household consumption of water by up to 50 %, with no detectable changes in lifestyle.
The report notes that some of the problematic barriers to the introduction of more water efficient technology into the residential sector are as much attitudinal and bureaucratic as they are technological. The report states also that, in response to growing concerns about the sustainability of the infrastmcture required to deliver water to the consumer, water conservation is becoming a priority for an increasing number of Canadian municipalities.
The price mechanism will increasingly play a role in demand management. Historically, Canada has had some of the lowest water prices in the world, so that water has been undervalued and overused. Now the need for full cost accounting of all municipal services, including the provision of water, is being recognized in the face of rising costs and diminishing support from other levels of government. New approaches to pricing, which would result in higher prices to the consumer, could curtail water use in all sectors and reduce the pressure on treatment facilities.
The federal and provincial governments can foster water conservation through legislative changes and by establishing appropriate policy positions. Ultimately, however, municipalities will play the key role in the successful implementation of community-based efforts. They are in the best position to enhance consumer awareness of water conservation issues and to promote changes in consumer attitudes to water.
Project Manager: Alvin J. Houston
Research Report: Residential Water Conservation: A Review of Products, Processes and Practices (1991)
Research Consultant: REIC Consultants Ltd.
A
full report on this research project is available
from the Canadian Housing Information Centre.
The information in this publication represents the latest knowledge available to CMHC at the time of publication, and has been thoroughly reviewed by experts in the housing field. CMHC, however, assumes no liability for any damage, injury, expense or loss that may result from use of this information.
©1999 CMHC-SCHL. All rights reserved.