BLUEPRINT for Onsite Water Systems

A Step-by-Step Guide for Developing a Local Program to Manage Onsite Water Systems
On May 29-30, 2014, the San Francisco

Exploratorium, San Francisco, by Amy Snyder © Exploratorium

Public Utilities Commission partnered
with representatives from local, state,
and federal public agencies across North
America, along with research institutions
to discuss onsite water systems at the
Innovation in Urban Water Systems
meeting. The purpose of the convening
was to discuss the barriers, opportunities,
and research needs for onsite water
systems for non-potable applications.

The Blueprint for Onsite Water Systems

is a result of the two-day meeting. We
would like to thank all of the participants
INNOVATION IN URBAN WATER SYSTEMS
for their time and input.
www.sfwater.org/np/iuws
We also thank the Water Environment Participants
Research Foundation and Water
Research Foundation for funding this City of Atlanta, Minnesota Department San Francisco Public U.S. EPA
Department of of Health Utilities Commission Eric Byous
project and for recognizing the need for Watershed Management Anita Anderson Radhika Fox Jay Garland
JoAnn J. Macrina Erin Hagan David W. Smith
collaborative action on decentralized, North Central New Paula Kehoe Dena Vallano
onsite water systems. City of Calgary, Mexico Economic Rachel Kraai
Water Resources Development District Fan Lau U.S. Water Alliance
Brenda Casella Duncan Sill Sarah Rhodes Ben Grumbles
Steven R. Ritchie
Los Angeles County Oregon Department of John Scarpulla Washington State
Department of Environmental Quality Francesca Vietor Department of Health
Public Health Ron Doughten Steve Deem
Jacqueline Taylor Seattle Public Utilities Denise Lahmann
City of Santa Fe Mark Jaeger
Los Angeles Department Laurie Trevizo Water Research
of Water & Power County of Sonoma Foundation
Val Amezquita City of Santa Monica, James Johnson John Albert
Office of Sustainability Carrie Pollard John Whitler
New York City, & the Environment
Department of Neal Shapiro Hawaii State Water Environment
Environmental Department of Health Research Foundation
Protection Sina Pruder Theresa Connor
Vlada Kenniff San Francisco Genevieve Salmonson
Department of Alec Wong RMC Water &
Milwaukee Metropolitan Public Health Environment
Sewerage District June Weintraub Katie Cole
Kevin Shafer Roxanne Stachon
Published: September 2014

Cover Photo: 181 Fremont, Jay Paul Company, Heller Manus Architects, Image: Steelblue
Create a New Water Paradigm
Water is vital to maintaining healthy communities, vibrant economies,
and a thriving natural environment, but managing water is not an easy
task. We face many challenges, including dwindling freshwater supplies,
long-lasting droughts, and rapid urbanization. As the strain on our
centralized water and wastewater facilities increase, many cities are
looking for new ways to develop and manage local water resources.

We have the opportunity to create a new water management paradigm

by incorporating innovative strategies to conserve, reuse, and diversify
our water supply. One of those strategies is integrating smaller,
decentralized, onsite water systems into our broader centralized
systems. Today, buildings in New York, San Francisco, Santa Monica,
Seattle, Tokyo, Sydney, and many other cities throughout the world
are collecting and treating water onsite to serve their own non-potable
needs in place of potable water.

The Blueprint for Onsite Water Systems was created to assist communities
with developing a local program to manage and oversee onsite water
systems that protect public health. A local program can build on
existing plumbing, public health, and building standards and codes while
addressing water, stormwater, and wastewater management programs
in a coordinated and streamlined manner.

1
 Build Water Resilience
Onsite water systems can be tailored to the needs of the local

San Francisco Public Utilities Commission Headquarters, San Francisco

community and implemented at a variety of scales, including
building, block, district, and region with the appropriate safeguards
in place. These systems can be a valuable component of a broad
strategy to create a new water paradigm and build water-resilient
communities across the country.

Onsite water systems offer a broad range of benefits, including:

+ Augmenting existing water supply portfolios by treating

alternate water sources for beneficial use

+ Treating water only as needed for its end use application

+ Reducing potable water consumption for toilet flushing

and irrigation

+ Minimizing stormwater flows to combined and separate

sewer systems and/or storm drains

+ Increasing resiliency and adaptability of our water and

wastewater infrastructure

Onsite water systems in green buildings, suburban developments,

and urbanized areas are often integrated with existing centralized
water and wastewater infrastructure without negatively impacting
2001 Market Street, San Francisco, by BAR Architects

centralized systems. Onsite water systems build water resilience as

they help communities stretch drinking water supplies by decreasing
demand on potable water sources and can help extend the life of
centralized wastewater infrastructure by redirecting stormwater
flows and relieving stress on the system.

2
 Stay Ahead of the Curve
Developers and designers are incorporating innovative onsite water
systems into their projects, such as treating graywater for toilet/
urinal flushing and using rainwater and stormwater for irrigation.
Throughout the world, onsite water systems have been successfully
operating for decades.

Green building programs, like the LEED® rating system and Living
Building ChallengeTM, often encourage onsite water systems as
a sustainable water management tool. The proliferation of net
zero and water neutral buildings emphasizes the need for a local
oversight program to ensure consistency and safety, and improve
the efficiency of implementing these systems.

Green buildings strategies and practices are the future of

building construction. Developing a local program to promote
the safe installation and operation of onsite water systems allows
municipalities to adapt to local issues while proactively supporting
the green building movement. Institutionalizing a process will help
your community build a cohesive and collaborative initiative.

By developing programs to manage the implementation of these

systems, local officials can stay ahead of the curve and create a
process that helps streamline and scale onsite water projects. The
San Francisco Public Utilities Commission Headquarters, San Francisco

remainder of this Blueprint is designed to serve as a step-by-step

guide to help communities develop and launch local programs to
manage onsite water systems.

3
 10 Steps for Developing a Local Program
Developing a local program to manage onsite water systems offers a proactive way to increase water resiliency and promote green building practices
while protecting public health. The development of a program should follow a sequence of steps and associated actions, which will inform critical
decisions regarding the scope, structure, and implementation of the program.

1 Convene a Working Group

Establish a small working group to guide the development
of the local program.
6 Establish Monitoring and Reporting Requirements
Establish water quality monitoring and reporting requirements for
ongoing operations.

2 Select the Types of Alternate Water Sources

Narrow the specific types of alternate water sources
covered in the program.
7 Prepare an Operating Permit Process
Establish the permit process for initial and ongoing operations for
onsite water systems.

3 Identify End Uses

Classify specific non-potable end uses for your program. 8 Implement Guidelines and the Program
Publicize the program to provide clear direction for project
sponsors and developers.

4 Establish Water Quality Standards

Establish water quality standards for each alternate water
source and/or end use. 9 Evaluate the Program
Promote best practices for onsite water systems.

5 Identify and Supplement Local Building Practices

Integrate your program into local construction requirements and
building permit processes.
10 Grow the Program
Explore opportunities to expand and encourage onsite
water systems.

4
 The State of Hawaii has established a
collaborative working group to develop water
quality standards for treated alternate water
sources for non-potable applications. The
working group includes members from the
STEP
1 Convene a Working Group

There is no single approach to developing a local program for onsite water systems;
Governor’s Office, public health officials, however, protecting public health is the essential foundation of any initiative. The
landowners, and union members. chosen format of the program depends upon local circumstances and traditional
levels of regulatory authority. Stakeholders that are likely to participate in program
oversight need to be involved in its development. Engage a small group of public
health, planning, and building officials along with water and wastewater utilities that
have jurisdictional authority in your area.
Los Angeles Skyline by Telephoto on Wikipedia

The core group will guide how the program develops and unfolds. The group will also:

+ Identify roles and responsibilities of individual agencies

+ Evaluate existing authorities and potential policy or regulatory changes

+ Agree on water quality criteria, monitoring, and permitting requirements

+ Ensure the program reflects needs of its core members

+ Establish fees
The Los Angeles County Department of Public
Health collaborated in a two-year process
+ Provide an identity for the program
with the City of Los Angeles, the City of Santa
Monica, and a number of environmental
+ Determine appropriate incentives
organizations led by Heal the Bay and
TreePeople in the development of their Private developers, non-profit organizations, or other non-governmental stakeholders
“Rainwater Harvesting Matrix”. Produced in that are heavily engaged in the local green building movement or water reuse can also
2011, the document establishes guidelines be invited to participate or provide feedback.
for harvesting rainwater, stormwater, and
dry weather urban runoff for outdoor non-

1
potable use within Los Angeles County. The
STEP
document includes information on system Outcome
requirements, water quality standards, and Establish a small working group to guide the
treatment processes. development of the local program.

5
 STEP
2 Select the Types of
Alternate Water Sources RAINWATER

To establish manageable parameters for your program, identify

the specific types of alternate water sources that will be
approved for collection and treatment. The amount of resources
and staff needed for a program can increase with the number
of alternate water sources that are incorporated. Therefore, the GRAYWATER
selection of a single water source, such as rainwater, may be
ideal for initiating a program with the potential to incorporate
additional water sources as the program progresses.

Buildings, including commercial and multi-family residential

buildings, generate a number of different types of alternate
water sources. The most common types of alternate water
sources produced by buildings include:
BLACKWATER

+ Rainwater – precipitation collected from roofs;

+ Stormwater – precipitation collected from ground plane;

+ Graywater – wastewater from bathtubs, showers,

bathroom sinks, and clothes washing machines; and

+ Blackwater – wastewater from toilets,

dishwashers, kitchen sinks, and utility sinks.

Terminology and definitions may vary across regions or sectors.

When identifying the specific alternate water sources for your STORMWATER
program, use the same terminology and definitions that are
contained in the local building, plumbing, and health codes and
guidelines that will regulate the onsite water systems. Using
consistent definitions will help streamline implementation of
the program and minimize confusion by developers.
STEP
2
Outcome
Narrow the specific types of alternate water
sources covered in the program.

6
 STEP
3 Identify End Uses

Alternate water sources can be used for a variety of

non-potable uses within and outside a building. It is
Multi-Family Residential Water Use important to identify the specific non-potable end uses
(e.g., irrigation) that will be allowed in the program and
Toilets
describe how and where the end use is allowed (e.g.,
Faucets spray or sub-surface irrigation).

Irrigation
The most common indoor use is toilet/urinal flushing,
Kitchen/Dishwashing which can represent approximately 25% of the total water
Cooling
demand in a residential building and up to 75% of the
total water demand in a commercial building (assuming
Leaks/Miscellaneous
no cooling demand). Other potential non-potable water
Showers demands include irrigation, clothes washers, cooling/
heating applications, and process water. These additional
Clothes Washing
applications can increase the non-potable water demand
American Water Works Association; WaterSense
up to 50% for residential buildings and up to 95% for
commercial buildings.

Incorporating multiple end uses may result in a more

complex program structure but potentially more
Commercial Water Use widespread application of non-potable water. The
specific type of alternate water sources and end uses
Toilets
selected serve as the foundation of your program. As
Faucets with alternate water sources, using consistent definitions
will help streamline implementation of the program and
Irrigation
minimize confusion by developers.
Kitchen/Dishwashing

Cooling

Leaks/Miscellaneous

WaterSense; EPA; Australian

STEP
3 Outcome
Classify specific non-potable end
Department of the Environment uses for your program.

7
 STEP
4 Establish Water Quality Standards

Once alternate water sources and allowed end uses are identified, the next step is to set water quality standards. Currently, there are no overarching
national standards for water quality or required treatment for alternate water sources. Your state and county public health agencies may have
applicable requirements. In addition, a number of plumbing codes, guidance documents, and policies can also assist you with developing your own
water quality standards.

Plumbing Codes
UPC administered statewide IPC administered at local level
Existing plumbing codes provide a context for a local program
UPC administered at local level Either UPC or IPC administered at local level and identify the current requirements that can be built upon
IPC administered statewide Other state or local model codes administered
or expanded. The plumbing codes for most communities are
modeled after the International Plumbing Code (IPC) or the
Uniform Plumbing Code (UPC).

+ IPC: The IPC addresses graywater systems for flushing of

toilets and urinals and for sub-surface landscape irrigation.
The IPC also establishes the minimum acceptable level
of safety to protect life and property from the potential
dangers associated with supplying potable water and the
conveyance of wastewater. (See Chapter 13, IPC 2012.)

+ UPC: The UPC addresses alternate water sources,

including recycled water, rainwater, graywater, and onsite
treated non-potable water for a number of identified
non-potable applications. The UPC indicates that water
quality standards should meet the applicable water quality
requirements determined by the Public Health Authority
Having Jurisdiction. (See Chapters 16 and 17, UPC 2012.)

The IPC and UPC have been amended by some states and local
municipalities to establish their own laws, guidelines, and codes
to further refine allowable uses, minimum water quality criteria,
and treatment requirements. Some codes may not allow onsite
water systems and will need to be amended before a local
program can be implemented.
8
Water Reuse Standards
Absent the guidance of established overarching guidelines, setting water quality standards can be one of the most time consuming and challenging
components of a program.

Additional resources that may be helpful to review when setting water quality standards include:

+ EPA Water Reuse Guidelines: The United States Environmental + Guidelines for Harvesting Rainwater, Stormwater, & Urban
Protection Agency (EPA) developed water reuse guidelines (last Runoff for Outdoor Non-potable Uses: The Los Angeles County
updated in 2012) in support of local regulations and guidelines Department of Public Health developed water quality standards
developed by states, tribes, and other authorities. While the water for exterior use of harvested rain and dry weather runoff (known
reuse guidelines provide direction at a national level, currently as the Matrix).
there are no federal reuse regulations or standards in the U.S.
+ The Wisconsin Plumbing Code, SPS 382.70, Subchapter VII: This
+ State Municipal Recycled Water Regulations: Many states subchapter establishes standards for plumbing systems that
already have established water quality limits and monitoring supply water including stormwater to outlets based on intended
requirements for producing recycled water from municipal end uses and that is of a quality that will protect public health
wastewater for non-potable applications (e.g., Title 22 of the and the waters of the state.
California Code of Regulations).

+ NSF/ANSI Standard 350 and 350-1: These standards establish

material, design, construction, water quality, and performance
requirements for onsite residential and commercial water reuse
systems treating graywater and wastewater for non-potable uses.
STEP
4 Outcome
Establish water quality standards for each
+ Rainwater Harvesting Potential and Guidelines for Texas: The alternate water source and/or end use.
Texas Rainwater Harvesting Evaluation Committee paper
presents the potential benefits and advantages that may be
derived from rainwater harvesting and describes minimum water
quality guidelines and treatment methods.

9
 STEP
5 Identify and Supplement Local Building Practices

5
It is important to understand the steps of the building plan review, permitting,
STEP
and construction inspection process in your community in order to integrate the Outcome
process for review and installation of onsite water systems. For example, onsite
Integrate your program into local
water systems may be incorporated into current plumbing permits or may require
construction requirements and
additional types of applicable plan review and construction inspection procedures.
building permit processes.

Some building and plumbing codes may require local amendments to allow for the
installation of an onsite water system. Any additional construction requirements
included in your program should be consistent with or incorporated into plumbing
and building requirements.

Consider the following requirements for inclusion in your local program:

+ System Bypass: ability to connect to municipal water and sewer

services during onsite water system maintenance or outages.

+ Backflow Prevention Devices: include approved backflow prevention

devices on make-up water connections to the onsite water system.

+ Cross Connection Control: perform cross connection tests to physically

verify the potable and non-potable water systems are separate.

+ Storage Tanks: ventilate storage tanks to prevent odors from entering

into the building.

OHSU 1, Portland, Oregon by M.O. Stevens on Wikipedia

+ Non-potable System Identification: identify system components by
installing signage, valve tags, and purple pipe or other appropriate
pipe identification scheme.

10
 The New York City Building Department’s Building Bulletin
2010-027 established water quality monitoring, reporting, and
permitting requirements. The requirements apply to all alternate
water sources and end uses except for harvested rainwater
STEP
6 Establish Monitoring and
Reporting Requirements
used solely for subsurface irrigation, drip irrigation, or washing
of sidewalks, streets, buildings, or vehicles. All alternate water Most communities will find that standards and guidelines do
sources require monthly monitoring and annual reporting. not exist for the ongoing operation and maintenance of onsite
water systems. Building codes, including the plumbing code,
are generally enforced at the time of construction and are
not intended to mandate or assure ongoing operation and
maintenance. Establishing a monitoring regime and reporting
requirements are critical to protecting public health and public
water systems. The oversight authority may need to be identified
or authorized to act.

Monitoring and reporting frequency can vary across alternate

water sources and end uses due to different levels of water
contaminants and public exposure. More frequent monitoring
should be conducted during initial operational phases.
Lower Manhattan by Nosha on Flickr

STEP
6 Outcome
Establish water quality monitoring and
reporting for ongoing operations.

The San Francisco Department of Public Health Director’s Rules

and Regulations Regarding the Operation of Alternate Water Source
Systems established monitoring requirements for various alternate
water sources. Rainwater, stormwater, and graywater require
monthly monitoring and annual reporting. Blackwater requires daily
monitoring and monthly reporting.

11
 STEP
7 Prepare an Operating Permit Process

Battery Park, New York, by Gryffindor on Wikipedia

An effective local program should establish procedures for ensuring ongoing compliance with
the monitoring and reporting requirements established for the program. Compliance is typically
addressed through an operating permit for a treatment system that is administered by a local agency
with authority to shut down the treatment system if it fails to comply with permitting requirements.

The operating permit process can include reviewing and approving an engineering or design
report, issuing a permit, and reviewing monitoring data. An engineering report would detail
the proposed collection of alternate water source(s), treatment system and process, end use
applications, entities responsible for treatment system operations and maintenance, a monitoring
and reporting plan, and emergency and maintenance procedures. The level of detail and length
of the report will be dependent upon the complexity of a project.

In New York, the Battery Park City

Consider the following permit phases for your program:
Authority issued Environmental
Residential Guidelines in 2000 which
Start-up Permit: During start-up (first 1-3 months), the alternate water source is treated and
established goals and standards
discharged to the sanitary sewer if applicable. Potable or recycled water may be supplied to the
for the creation of environmentally-
non-potable applications during this period. Monitoring is necessary on a regular basis until the
responsible buildings, including
system operations are fine tuned.
water reuse objectives that exceed
LEED® requirements. In response,
Temporary Use Permit: During temporary use (3-9 months), the alternate water source is treated
the NYC Building Department issued
and supplied to the approved non-potable end uses. Frequent monitoring is necessary and if all
Buildings Bulletin 2010-027 to
water quality requirements are met, a Final Permit may be issued.
establish alternative acceptance and
maintenance criteria for onsite water
Final Permit: Once all water quality standards are consistently met and the system is deemed
recycling systems. The bulletin outlines
to be fully operational, safe, and reliable, a final permit can be issued. Ongoing monitoring and
the water quality requirements as well
reporting requirements are needed for the life of the system, but may be reduced after a period
as the installation, certification, and
of successful operation.
maintenance requirements for such
systems. The phased acceptance

7
and permitting approach outlined in
STEP
Outcome this bulletin has been used by others,
Establish the permit process for initial and like the City of San Francisco, in
ongoing operations for onsite water systems. developing their programs.

12
 Bullitt Center, Seattle, by Joe Mabel on Wikipedia

13
 STEP
8 Implement Guidelines
and the Program
The ability to provide clear direction for project sponsors and developers—
especially with respect to building standards, permits, fees, and operating
requirements—will be a key strategy for any type of program. Clearly
defining the process for design, construction, and operation of onsite
water systems and determining the responsible agency for each program
element are critical to program success. Developing educational materials,
such as brochures or guidebooks, is an important part of communicating
the objectives and requirements of your program. The outline below
suggests various elements that can be incorporated into your program.

Design Phase Requirements:

+ Application - provides a basic overview of the proposed
treatment of alternate water sources and end uses

+ Engineering Report - details design of treatment systems

and means of compliance with water quality standards

+ Construction Permits - incorporates necessary local permits

Construction Phase Requirements:

Market Street Place, San Francisco, by CRP/Cypress Market Street, LLC

+ Treatment System Review - confirms requirements,

such as back flow prevention, are met

+ Construction Certification - verifies treatment

systems were constructed per approved plans

+ Cross Connection Control Test - confirms no cross

connection between potable and non-potable systems

14
 Exploratorium, San Francisco, by Amy Snyder © Exploratorium
Operation Phase Requirements:
+ Permit - provides approval to operate an
onsite water system

+ Monitoring - establishes a protocol and

schedule for ensuring that regular sampling
is taking place and water quality standards
are met

+ Reporting - sets a schedule and framework for

providing ongoing documentation certifying
that public health is being protected

Implementing a local program can involve approval

from city or state agencies having authority in the San Francisco’s City Ordinance Streamlines Permitting Process
jurisdictional area. Identifying policy makers and
political allies to champion the program will help to Water Department Public Health Department Building Department
ensure successful implementation. Support can take
the form of a general resolution, a specific ordinance, Review onsite Issue water quality & Conduct plumbing
or planning policy. non-potable water monitoring requirements plan check and
supplies & demands issue plumbing
permit
Review and approve
STEP
8 Outcome
Publicize the program to provide
Administer citywide
project tracking

Provide technical
non-potable
engineering report Inspect and
approve system
installations
clear direction for project sponsors Issue permit to operate
support & outreach onsite systems
and developers. to developers

Review water quality

Provide financial reporting
incentives to developers

15
 STEP
9 Evaluate the Program

After your program has been established and several onsite water systems have
been implemented, it is important to reflect on the effectiveness of the initiative,
accomplishments, and lessons learned. Take time to assess and evaluate the
program’s achievements to determine if it is supporting the community’s
vision. This consideration can help you recognize needed adjustments and
identify best practices for moving forward. Local programs should be dynamic
and adapt over time to respond to the needs of the jurisdiction, evolution of
treatment technologies, and changing water demands and supplies.

Monitor regulatory compliance of projects and collect data on the types

and end uses of alternate water sources for inclusion in summary reports
and status updates. This sort of documentation will allow you to continue to
modify and improve the program over time, as well as provide a case study
highlighting the number of buildings participating in the program, describing
the types of technologies installed, and showcasing the water and cost savings
achieved by the onsite water systems. Additionally, these reports can serve
San Francisco’s Non-potable as promotional tools to garner additional interest in onsite water systems
Water System Projects among community leaders, elected officials, the development community,
San Francisco Public Utilities Commission and other stakeholders.
May, 2014

To track the effectiveness of onsite non-

potable water use in San Francisco, the
San Francisco Public Utilities Commission
STEP
9 Outcome
Promote best practices for onsite water systems.
prepared the 2014 San Francisco’s Non-
potable Water System Projects Report.
The report includes data on the potable
water offset, capital costs, operation and
monitoring costs, and project drivers.

16
STEP
10 Grow the Program

Local programs can be expanded by increasing the types of alternate water sources
and non-potable applications, and by increasing the scale from a single building to
a district or neighborhood level. Programs can also include financial incentives to
encourage the proliferation of onsite water systems.

Types of Alternate Types of Non-potable Types of Incentives:

Water Sources: End Uses: + Reduced or waived

Santa Monica Pier, by Matthew Field www.photography.mattfield.com

+ Rainwater + Toilet and urinal permit fees
flushing
+ Stormwater + Property tax and/
+ Irrigation or stormwater
+ Graywater fee reductions
+ Cooling tower
+ Blackwater make-up + Water and sewer
bill reductions
+ Foundation drainage + Clothes washers
+ Loans or on-bill
+ Cooling tower + Process water financing
blowdown
+ Decorative fountains + Grants or rebates
+ Condensate water

STEP
10 Outcome
Explore opportunities to expand and
Santa Monica waives building permit fees
and New York City provides wastewater
allowances to qualified properties with
encourage onsite water systems. onsite water systems. San Francisco provides
up to $250,000 for an individual building
and up to $500,000 for multiple buildings
implementing onsite water systems.

17
BLUEPRINT for Onsite Water Systems

Back Cover Photo: 181 Fremont, Jay Paul Company, Heller Manus Architects, Image: Steelblue