HomeMy Public PortalAbout2021-04-27 LEAD LINE REPLACEMENT TOWN OF
1630 WATERTOWN
7 Office of the Town Manager
-_ K
Administration Building
i r - 149 Main Street
Watertown,MA 02472
Phone:617-972-6465
Michael J.Driscoll www•watertown-ma.gov
Town Manager townmgr@watertown-ma.gov
To: Honorable Town Council
From: Michael J. Driscoll, Town Manager
Date: April 22, 2021
RE: Agenda Item—Proposed Loan Order
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Enclosed please find correspondence from Gregory M. St. Louis, Superintendent of Public Works
regarding the Massachusetts Water Resources Authority's (MWRA)Lead Service Line Replacement j
Loan Program or Lead Loan Program(LLP) which is an enhancement to the Local Water System
Assistance Program(LWSAP). The LLP consists of a zero-interest loans payable over ten(10)years.
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As indicated in Superintendent St. Louis' correspondence,replacement of lead goosenecks is an
eligible item and participating in the LLP would allow the Town to accelerate lead goosenecks
removals. The Enterprise Funds Capital Improvement Program has $300,000 included in both Fiscal
Years 2020 and 2021.
Given all of the above, I recommend pursuing the $600,000 from the MWRA's Local Water System
Assistance Program for Lead Service Line Replacement. As stated in the Fiscal Years 2020 and 2021
Budget Messages, all of the work to the water, sewer and drain systems directly impacts the Water
and Sewer Rates. Interest free loans and outright grants will enable the Town to perform necessary
work with little or minimal impact on the rate payers.
Therefore, I respectfully request the attached Proposed Loan Order be placed on the April 27, 2021
Town Council Agenda as a First Reading.
Thank you for your consideration in this matter.
cc: Gregory M. St.Louis, Superintendent of Public Works
Matthew Shuman,Town Engineer
Kevin T.Duffy,Project Engineer
Steven Magoon,Director of Community Development and Planning/Assistant Town Manager
Thomas J.Tracy,Town Auditor/Assistant Town Manager for Finance
Katherine Morrison,Assistant Treasurer/Collector
sAk C I I N C K L E 1f 28 State Street
A L L E N Boston, MA 02109-1775
p:617-345-9000 f:617-345-9020
hinckleyallen.com
Jay Gonzalez
(617)378-4256
jgonzalez@hinckleyallen.com
April 7, 2021
Thomas J. Tracy
Auditor
Administration Building
149 Main Street
Watertown, Massachusetts 02472
RE: Draft Loan Order—MWRA Lead Line Replacement Bonds
Dear Tom:
As requested, I suggest the following form of loan order to approve the borrowing of funds from
the Massachusetts Water Resources Authority to pay costs of replacing lead pipes that connect
service lines to water mains:
ORDERED: That the sum of$600,000 is appropriated to pay costs of replacing lead
pipes that connect service lines to water mains, including all costs incidental and related
thereto;that to meet this appropriation,the Treasurer,with the approval of the Town
Manager, is authorized to borrow said amount under and pursuant to M.G.L. c.44, §7(1),
or pursuant to any other enabling authority, and to issue bonds or notes of the Town
therefor;that the Treasurer,with the approval of the Town Manager, is authorized to
borrow all or a portion of such amount from the Massachusetts Water Resources
Authority(the"Authority")pursuant to the Authority's lead service line replacement
program and in connection therewith to enter into a loan agreement and/or financial
assistance agreement with the Authority and otherwise to contract with the Authority
with respect to such loan and for any grants or aid available for the project or for the
financing thereof;that the Town Manager is authorized to accept and expend any grants
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or aid available for the project or for the financing thereof,provided that the amount of
the authorized borrowing for the project shall be reduced by the amount of any such
grants or aid received; and that any premium received upon the sale of any bonds or notes
approved by this order, less any such premium applied to the payment of the costs of
issuance of such bonds or notes,may be applied to the payment of costs approved by this
order in accordance with M.G.L. c.44, §20,thereby reducing the amount authorized to be
borrowed to pay such costs by a like amount.
The order must be published in a local newspaper and on the Town's website at least five days
prior to the holding of a public hearing with respect to the order and its final passage and requires
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►ALBANY ► BOSTON ► CHICAGO ► HARTFORD ► MANCHESTER ► NEW YORK ► PROVIDENCE
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the affirmative vote of at least two-thirds of all members of the Town Council, as in the case of
any other loan order for bonds.
Please call me if there are any questions about the suggested proceedings.
Sincerely,
Jay Gonzalez
1630
TOWN OF WATERTOWN
t r y DEPARTMENT OF PUBLIC WORKS (P) 617-972-6420
124 ORCHARD STREET (F) 617-972-6402
WATERTOWN MA 02472
Gregory St. Louis, PE
Superintendent
To: Michael J. Driscoll-Town Manager
From: Gregory St. Louis, PE- Superintendent of Public Works
Date: March 12, 2021
Re: MWRA Lead Service Line Replacement Loan Program
The Town's Capital Improvement Program for the water and sewer enterprise funds identifies $300,000
in funding for FY20 and FY21 each for replacement of lead goosenecks projects. This funding is to be
applied for under the Massachusetts Water Resources Authority (MWRA) Local Water System
Assistance Program for Lead Service Line Replacement:
httns://www.mwra.com/comsupport/Ili)/llvvroRram.html.
There are approximately 9,250 water services on record in the Town. Review of Town records indicate
that there are no water services comprised completely of lead pipe. However,prior to standardizing on j
copper pipe, water services were often laid using iron pipe. To create a connection to the water main,
short, angled pieces of lead pipe,typically about 2-feet in length, were used. We refer to these as
"goosenecks."
Of the 9,250 water services, approximately 920
services are presumed to have lead goosenecks based
M1 ; on age and pipe material. Each year,the Town
5 F, removes lead goosenecks as part of the annual road
reconstruction projects, waters stem improvements,
and incidental repairs due to service leaks.
Additionally,projects are required to remove lead
services associate with new and significant
redevelopment.
Replacement of lead goosenecks is an eligible item
under the Lead Service Line Replacement Program.
Taking advantage of the MWRA program,which
Photo of lead gooseneck connected to iron pipe consists of a zero-interest loan payable over 10 years,
(source: Wikipedia) would allow the Town to accelerate lead gooseneck
removals.
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Therefore,the Department of Public Works requests that a$600,000 loan order be prepared to complete
lead gooseneck replacements, in accordance with the 2019—2020 and 2020—2021 Capital Improvement
Plans approved by the Honorable Town Council.
The proposed project will include the replacement of approximately 90 lead goosenecks, including
replacement of the gooseneck,replacement of the service from the water main/connection to the service
box, and surface restoration. The exact number of replacements will depend on the bid prices received.
The project limits will include the area bounded by: Main Street, Belmont Street, Waverley Ave., and the
Waltham Town Line. This area was selected based on a reasonable cluster of services (to obtain
competitive pricing). Future projects could include other areas of Town.
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If approved for funding, we intend to bid and construct this project this calendar year.
Thank you for your consideration.
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Lead Service Line Replacement Loan Program or Lead
mwra Loan Program (LLP), an Enhancement to the Local
online Water System Assistance Program (LWSAP) for
Home Member Communities
Massachusetts Water Resources Authority
Water System
Sewer System
Harbor and Bay MORE INFORMATION
On recommendation from the MWRA Advisory
MWRA Board Approves
School Board, the MWRA Board of Directors approved an $100 Million in Funding to
Program Remove Lead Service Lines
enhancement to the Local Water System
About MWRA 03/21/16
Assistance Program to provide up to $100 million
Doing Business in 10-year zero-interest loans to communities MWRA Community Support program:Water
with MWRA yawn"anum w+,e.�.w.vm aKsw,.a�.ea
solely for efforts to fully_replace lead service lines,
Contact MWRA Each community will develop its own program,
tailored to their local circumstances. _f
MWRA's goal in providing financial assistance to �_�
member communities is to improve local water
systems so that the high quality water MWRA
delivers can make it all the way to consumers'
taps. The presence of a lead service line
connecting a home to the main in the street can >... . _..�e.. ..�
lead to elevated lead levels in tap water, ",7
especially if that water sits stagnant for an
extended period. MWRA's stable water quality LLP/LWSAP map and
contact information (PDF)
and effective corrosion control treatment reduce
the risk that a lead service line will cause elevated Community Support
Program page
lead levels; measured lead levels in high risk
Lead Service Line
homes have decreased by 90 percent since Replacement Loan Program
corrosion control was brought on-line in 1996. Guidelines and
However, the risk of elevated levels remains as Application Forms
long as lead service lines are in use. LLP Program Guidelines
(.PDF)
Pool of Loan Funds LLP Program Application
(.DOC)
The approved $100 million in loan funds will be What You Need to Know
provided as a pool of funds available for About Lead in Tap Water
distribution to all eligible communities for
distribution beginning in FY17 for local lead
service line identification/removal projects. ~
Eligible MWRA Water Communities �.�.: :� -
MWRA has a total of 52 water communities
(with Dedham/Westwood Water District counted
as one), of which 47 will be eligible for financial Facts about lead: How lead
can get into tap water and
assistance under the Lead Service Line how you can reduce potential
Replacement Loan Program. The five ineligible exposure to lead in your
home
water communities have special case
consideration, these include: Cambridge, which Other Community Support
Program Pages
receives MWRA water on an emergency-only
LWSAP Program
basis; Lynn, which receives MWRA water only for I/I Program
the GE plant; as well as Clinton, Leominster List of MWRA member
(emergency only), and Worcester (emergency communities
only) that draw untreated (raw) water from the
Wachusett Reservoir.
MWRA Lead in Tap Water Informational Brochures
Free Bill Insert Size brochure (Free download, PDF): A
colorful brochure emphasizing potential risks of lead in tap
- 1 water, how customers can reduce lead exposure and the
r _
i benefits of full lead service line replacements. (Dimensions 3.5"
X 6.5").
IE THERE
LEAD Y VR To assist member communities and other stakeholders, MWRA
TAP WATERt
is providing free Lead in Tap Water informational brochures (bill
stuffer sized) for local distribution. For more information, please
contact Stephen Estes-Smargiassi at Stephen.Estes-
Smargiassi@mwra.com or Beverly Anderson at
Beverly.Anderson@mwra.com
Eligible Project Costs and Distribution/Repayment of Loan Funds
The program provides 10-year zero-interest loans to communities to create local
programs to fully_ remove lead service lines from the community water main all the way
to the home or business.
The LLP Program Guidelines for Lead Service Line Replacement Loan Program
Projects are available here (PDF). Details on eligible project costs are in Section
2.7 of the Program Guidelines and outlined below.
Applications for financial assistance are due to MWRA at least one month prior to the
quarterly distribution date. Binding commitments to provide financial assistance for local
water projects will be issued by MWRA in the form of a financial assistance and loan
agreement subject to the availability of funds. The loan agreement will incorporate an
opinion from the community's bond counsel stating that the loan is a valid general
obligation of the municipality. Financial assistance will be distributed quarterly, on or
about: February 15, May 15, August 15, and November 15. The financial
assistance award will be transferred into a Massachusetts Municipal Depository Trust
(MMDT) account established by the community. All Lead Loan Program financial
assistance funds will be applied to the cost of approved community lead service line
replacement project costs. All earned interest from the MMDT account, will be applied to
the cost of approved community lead service line replacement project costs or other
community water system rehabilitation projects. The interest-free loan will be repaid to
MWRA over a ten-year period, beginning one year after the original quarterly funding
distribution date.
Community projects to identify and replace water service lines so that all lead pipes are
fully_removed from both the public and private portions of the service line will be eligible
under the Lead Loan Program. As part of the application process, the community will be
required to describe how they plan to address private lead service lines.
All project costs incurred on or after July 1, 2016 will be considered for eligibility in an
application under the Lead Loan Program, as listed below:
• Identification of water service connections (or portions of service connections)
constructed of lead including related records research, inventory/database
development, house to house inspection, development of outreach/education
materials, mapping of lead service lines, etc.
• Construction, rehabilitation, or other improvements to replace lead water service
lines to fully remove all lead pipe. Costs for water pipeline rehabilitation
incidental to the replacement of lead service lines are eligible. The replacement
of lead gooseneck connections is eligible, either when encountered during water
system rehabilitation/construction or if targeted through a specific rehabilitation
project.
• Slip lining of lead water services will not be eligible.
• Community projects that provide a homeowner incentive for lead service line
replacement through rebates for privately funded lead service line replacements
or other similar incentive program will be eligible.
• Costs that are reasonable and necessary to repair private property areas directly
impacted by eligible construction work so that the private property is as near as
practical to existing conditions. Eligibility of work on private property may need
to be reviewed on a project by project basis. Work to improve private property
will not be eligible.
• Paving costs that are reasonable and necessary to repair the roadway and/or
sidewalk areas directly impacted by eligible construction work will also be eligible
and will be reviewed on a project by project basis. Eligibility of trench width
pavement versus full width overlay pavement will be reviewed on a project by
project basis. Cost for full depth roadway reconstruction will not be eligible.
• Police details associated with eligible project work are eligible.
• Planning and design services in connection with eligible lead service line
replacement projects are eligible.
• Resident engineer inspection and construction administration services in
connection with eligible lead service line replacement projects are eligible.
• Direct labor only (not including overhead or overtime costs) for force account
work associated with planning, design, construction, or construction inspection of
eligible lead service line replacement projects are eligible.
• Establishment of a Massachusetts Municipal Depository Trust (MMDT) or similar
account used solely for the deposit, withdrawal, and tracking of financial
assistance funds and Bond Counsel services, or other legal services, in connection
with review of the Loan Agreement, Water Bond, and opinion of Bond Counsel are
eligible.
MWRA Recommended Lead Service Line Replacement Program
Under the Local Water System Assistance Program application process for both Lead
Loan Program Projects and Water Projects, communities will need to acknowledge the
MWRA recommended components for a "Community Lead Service Line Replacement
Program."The MWRA recommended program incorporates at least the following:
1. Communities should clearly establish that it is their goal to fully remove all lead
pipe from both publicly-owned and privately-owned water service line
connections;
2. Communities should commit to a comprehensive lead service line inventory
program to compile a listing of properties with full or partial lead service lines
that will be made available to the public via web page or other similar public
access vehicle (subject to disclaimer for accuracy based on best available
information);
3. Communities should target proactive outreach to customers with lead service
lines to provide educational information regarding the risks of lead exposure and
information encouraging the customer to participate in the community lead
service line replacement program so that the privately-owned portion is replaced
concurrent with the publicly-owned portion;
4. Communities should maintain ongoing proactive outreach to customers with
known privately-owned lead service lines;
5. Communities should include a unit cost bid item for public and private portion
service line replacement in all water pipeline projects so that a mechanism exists
for full removal of lead service lines; and,
6. As a secondary measure, communities' lead service line replacement programs
should include replacement of lead gooseneck connections when encountered
during infrastructure rehabilitation or construction.
Overview of MWRA-Funded Community Lead Service Line
Programs
Community Projects That Have Been Funded
Through November 2020, MWRA has distributed a total of$17,616,850 through
22 loan funding distributions funds to 11 water communities as listed below:
• Quincy: $1.5 million in FY17;
• Newton: $4.0 million in FY17;
• Winchester: $500,000 in FY17, $500,000 in FY18, $600,000 in FY20 and
$600,000 in FY21 ($2.2 million total);
• Marlborough: $1.0 million in FY18, $1.0 million in FY19 and $1.0 million in
FY20 ($3.0 million total);
• Needham: $1.0 million in FY18;
• Winthrop: $284,000 in FY18; $487,850 in FY19 and $690,000 in FY20
($1,461,850 total);
• Revere: $195,000 in FY18;
• Everett: $1.0 million in FY19, $1.0 million in FY20 and $500,000 in FY20
($2.5 million total);
• Chelsea: $100,000 in FY19, $300,000 in FY20, and $300,000 in FY21
($700,000 total);
• Somerville: $900,000 in FY20; and
• Weston: 160,000 in FY20.
Sample Community Lead Service Line Replacement Projects
Quincy received a $1.5 million loan in December 2016 to fund the
construction portion of its program targeting the removal of 141
public/private lead services, with Quincy paying the full cost to replace
both the public and private lead service lines. The City performed an
extensive review of its Public Works records to develop a spreadsheet of
addresses where lead services existed, were likely, or where the water
service pipe material was unknown. A field crew inspected each suspect
water service at the meter. Quincy initiated a public information campaign
to inform property owners of the program, including: community meetings,
website information, public information displays, letters targeted to suspect
homes, translated information letters, and certified mail letters with
participation agreements. Additional investigations during the project
identified a total of 285 lead services, of which 163 were lead-lined steel
services (see photo). The service line replacement construction began in
April 2017 and was completed in September 2018. A total of 206 full or
partial lead services were replaced with new copper services (104 lead
services and 102 lead-lined services). The 206 replacements represent a
72% success rate of the total 285 identified lead services. For the 79
known private-side lead services that remain (18 lead services and 61
lead-lined steel services); non-participation by investment property owners
was the largest obstacle to a higher participation rate. Quincy's 206 lead
services were replaced at an average construction cost of$6,860 per lead
service and a total of 7,180 feet of new copper water service pipe was
installed at an average construction cost of$197 per foot. Quincy received
an Outstanding Performance and Achievement Award from MassDEP and
recognition from Clean Water Action for the project's health benefits.
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Sample photo of lead-lined steel water service line removed in Quincy
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Quincy lead removal project
Newton received a $4.0 million loan in May 2017 to fund the planning,
design, construction, and construction services for lead service line
replacements. The project targeted all identified/suspect lead services with
the City providing a customer incentive of a 10-year interest-free loan for
all private-side lead service removal costs. Design was complete in spring
2017 and construction was complete in December 2019. All 433 full or
partial services were replaced at a construction cost of$3.0 million. Based
on construction test pits, no action was determined to be needed at 187
services included in the initial screening. Newton's project was completed
at an average construction cost of$6,930 per lead service and a total of
19,400 feet of new copper water service pipe was installed at an average
construction cost of$155 per foot. Newton spent an additional $586,000
on engineering services to design and coordinate the lead removal
program.
sib
Long lead service line replacement in Newton
Winchester received a $500,000 loan in March 2017 and an additional
$500,000 in June 2018 to fund phases 1 and 2 of its lead service line
removal program. The Town is paying the first $1,200 of costs for replacing
private-side lead services and property owners are billed for the remainder.
At completion of a detailed inventory, 21 lead services (mostly private-
side) and approximately 720 lead goosenecks on the public-side were
identified. Winchester removed 52 lead goosenecks during 2016, prior to
the MWRA loan project. Through 2019, Winchester has removed 20 of the
21 identified private-side lead services (one property owner refused to
participate). An additional 93 lead goosenecks on the public-side were also
removed. The phase 2 construction program will continue public-side lead
gooseneck removal during the 2020 construction season. Winchester's 113
total service lines were replaced at an average construction cost of$5,500
per lead service and a total of 2,570 feet of new copper water service pipe
was installed at an average construction cost of$240 per foot.
Marlborough received a $1.0 million loan in September 2017 to fund the
replacement of approximately 200 lead service lines as the first phase of a
large project targeting replacement of all 1,350 lead service lines.
Marlborough is paying the full cost of both public and private lead service
line replacements. The City is paying separately for the project planning,
design, and construction services and has developed a detailed
spreadsheet inventory of all public/private lead services. The construction
project began in May 2018 and through September 2018, a total of 176
lead services had been replaced at a construction cost of$1.01 million.
Marlborough's 176 lead services were replaced at an average construction
cost of$5,835 per lead service and a total of 7,694 feet of new copper
water service pipe was installed at an average construction cost of$130
per foot. The City received a second $1.0 million lead loan from MWRA in
May 2019 that will fund phase 2 of the project.
Revere received a $195,000 loan in November 2017 to fund the design
portion of its lead service line replacement project. Revere is paying the
full cost of both public and private lead service line replacements. As part
of the City's comprehensive water meter replacement program, Revere had
the meter installers inspect and catalog all lead service lines entering each
property. This effort resulted in a detailed spreadsheet of 282 properties
with lead services. The lead service line replacement design for up to 300
lead services was completed and bid in June 2018. The construction bid
cost averaged $6,960 per lead service and was being funded through an
MA State Revolving Fund loan.
• Winthrop received a $284,000 loan in December 2017 and $487, 850 loan
in May 2019 to fund Phases 1 and 2 of lead service line removals. Winthrop
paid the full cost of both public and private lead service line replacements.
The completed projects removed 156 total lead services at a cost of
approximately $800,000. Winthrop's lead services were replaced at an
average construction cost of$5,100 per lead service.
• Needham received a $1.0 million loan in June 2018 targeting the removal
of approximately 154 public/private lead services and 1,047 lead
goosenecks. Needham is paying the full cost of both public and private lead
service line replacements. Needham bid a multi-year construction contract
for lead service line and lead gooseneck removals. Through December
2019, 33 full lead services, 61 private-side only lead services, and 309 lead
goosenecks (main to sidewalk replacement) have been completed for a
total construction cost of$1.15 million. Needham's lead services were
replaced at an average construction cost of$2,860 per lead service. The
construction is scheduled to continue in 2020.
• Boston (BWSC) BWSC's lead service line removal program (no MWRA
funding) pays the first$4,000 of cost of private-side lead service line
removals and property owner pays the remainder with the option of
spreading the payment out over four years via their monthly water bill. For
small house lots with a relatively short water service line, BWSC finds the
$4,000 often covers the full cost of the private-side lead service removal.
For more information see the www.bwsc.org
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Resources for Lead Service Line Replacement Programs
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MWRA Information
What You Need to Know About Lead in Tap Water
What's Happening in Flint's Water System and How is MWRA Different
How to Get Your Water Tested
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Lead Service Line Replacement (LSLR) Collaborative
The Lead Service Line Replacement (LSLR) Collaborative, a diverse coalition
of 23 national public health, water utility, environmental, labor, consumer, housing
and state and local government organizations, released an online toolkit designed
to help communities across the United States accelerate removal of lead service
lines. Removing these lead pipes provides an opportunity to significantly reduce
the risk of exposure to lead in drinking water. The Collaborative's toolkit includes a
road map for getting started, suggested practices to identify and remove lead
service lines in a safe, equitable, and cost-effective manner, policies that federal
and state leaders could adopt to support local efforts, and links to additional
resources that may be helpful when developing local programs.
LSLR Collaborative web site
LSLR Collaborative Communication Guide (PDF)
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Information from American Waterworks Association
ANSI/AWWA C810-17 Replacement and Flushing of Lead Service Lines
This standard describes essential procedures for the replacement of lead water
service lines and flushing following replacement. It also describes procedures for
partial replacement and repair situations where complete lead service line
replacement is not possible or practical.
Trenchless Lead Service Line Replacement: "HOW TO" - from Lansing,
Michigan Board of Water and Light as printed in AWWA Opflow, July 2016
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Information from the US Environmental Protection Agency
Lead and Copper Rule Resources
Basic Information About Lead in Drinking Water
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Information from the Massachusetts Department of
Environmental Protection
Lead and Copper Rule: Lead Service Line Replacement Requirements
310 CMR 22.00 MassDEP Drinking Water Regulations: Control of Lead and
Copper in Drinking Water is Section 22.06E of the Drinking Water
Regulations
Water Utilities that Have Lead Service Line Replacement
Programs
DC Water and Sewer - Lead Service Pipe Replacements
Green Bay Wisconsin Water Utility
Hamilton Ontario Canada Public Works - Lead Pipe Service Replacement
Program
Lansing Michigan, Board of Water& Light - Lead Service Line Replacement
Program
Louisville Kentucky Water - Lead Service Line Replacement Program
Madison Wisconsin Water Utility - Lead Service Replacement Program
Toronto Canada - Priority Lead Water Service Replacement Program
Winnipeg Canada - Lead Pipe Replacement Program
1905 Massachusetts State Board of Health Annual Report
This 1905 report (PDF) notes the materials used for water service pipes in cities
and towns throughout Massachusetts. This article includes a table listing the
number of water service pipes made from different materials for many
Massachusetts communities. The water service pipe materials include: lead, lead
lined, wrought iron, galvanized iron, cement lined, and tin lined.
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Additional Service Line Information
Images of Lead Water Services from Google
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Updated March 2, 2021