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Anadolu Üniversitesi Bilim ve Teknoloji Dergisi A- Uygulamalı Bilimler ve Mühendislik
Anadolu University Journal of Science and Technology A- Applied Sciences and Engineering
2016 - Volume: 17 Number: 3
Page: 572 - 584
DOI: 10.18038/btda.67184
Received: 17 June 2016 Revised: 13 July 2016 Accepted: 04 August 2016
URBAN WATER LOSSES MANAGEMENT IN TURKEY: THE LEGISLATION AND
CHALLENGES
İ. Ethem KARADİREK *
Department of Environmental Engineering, Akdeniz University, Antalya, Turkey
ABSTRACT
Water losses from water distribution networks (WDNs) have become a crucial problem in many countries such as Turkey,
where country average non-revenue water (NRW) is almost 45% of system input volume (SIV). Municipalities are responsible
for water supply in Turkey but only a few of them have started to improve their WDNs for management of water losses and
provide good application examples; whereas many of the other municipalities have no activities to reduce water losses. The
Turkish Ministry of Forestry and Water Affairs issued a new directive to control and reduce water losses from WDNs recently.
With the issue of the new directive, all municipalities are now obliged to reduce water losses in WDNs within a given time
frame. This paper represents a discussion and evaluation for the contents of the new Turkish directive on water losses
management for the first time. Moreover, other existing guidelines and some country practices are presented to provide
recommendations for the management of urban water losses. Reduction of water losses contributes directly to protection of
water quality in WDNs and public health.
Keywords: Apparent water losses, Management challenges of water losses, Physical water losses, Urban water losses
management, Water losses directive in Turkey
1. INTRODUCTION
Water resources are currently under pressure due to climate change and increasing water demand, caused
by the increase in population, urbanization and industrialization [1,2]. Thus, sustainable water
management is becoming more crucial. A World Bank study showed that each year more than 32 billion
m3 of treated water is lost due to leakage from WDNs around the world, while 16 billion m3 of water is
used but not paid [3].
The difference between system input volume (SIV) and authorized consumption is defined as water
losses while the difference between SIV and billed water consumption is defined as non-revenue water
(NRW) [4]. Water losses in water distribution networks (WDNs) are classified as real/physical losses
and commercial/apparent losses. Real losses are mainly due to leakage on transmission and distribution
mains, leakage on service connections and leakage and overflows at storage tanks while apparent losses
are mainly due to unauthorized consumption, customer meter inaccuracies and data handling errors [5,
6]. Water losses from WDNs are not only a revenue problem but it also results in waste of sources such
as water, energy and chemicals [7]. Management of water losses from WDNs results in: i. reducing
demand on water supplies, ii. reducing costs and energy demand for water abstraction, transmission and
treatment chemicals needed for treatment and supply. Reducing water losses from WDNs provides
additional water for future demands and water authorities save time and money by postponing their
projects on water supply and infrastructure. However, most of the water authorities are not fully aware
of these facts [8]. Financial gains from reduced water production increase water revenue. Also, possible
delay of capacity expansion of water supply system could be achieved by reducing water losses from
WDNs. Moreover, leakage points may provide intrusion pathways under negative pressure conditions
in WDNs [9]. Consequently, water losses problem from WDNs is not only economic and environmental
but also a public health issue [10]. Reduction of physical water losses reduces the risk of potential
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contamination from leak points. Accordingly, many utilities have started to develop methods to control
water losses from WDNs [11, 12, 13].
International Water Association (IWA) developed the standard water balance concept to create a
common terminology for evaluation of WDNs [14]. Later on, IWA standard water balance was modified
by introducing economic dimensions of the volumetric IWA standard water balance [15] and also adding
a minimum charge difference component [16]. IWA developed a set of 170 performance indicators (PIs)
for assessment of water distribution efficiency [17]. The basic and most widely used PIs provided by
IWA are i) total water losses and real losses as a percentage of SIV, ii) volume of real water losses per
service connection per unit time, iii) volume of real water losses per property per unit time, iv) volume
of real water losses per length of system per unit time, where length of system equals to sum of length
of mains and length of service connections up to point of customer metering, v) infrastructure leakage
index (ILI) which is the ratio of current annual real losses (CARL) to unavoidable annual real losses
(UARL) [18]. ILI has no unit which makes it suitable for comparison between different WDNs in
different countries and is an efficient tool for assessment of WDNs in terms of management of real water
losses at current operating pressure [18]. ILI was developed by considering the fact that real water losses
cannot be eliminated totally. A simple matrix was developed, which can be used for classification of
real water losses in WDNs, as given in Table 1 [19].
Table 1. Real water losses assessment matrix [19]
ILI
Band General description of categories
Developed
Countries
Developing
Countries
1-2 1-4 A
Further loss reduction may be uneconomic unless
there are shortages;
careful analysis is needed to
identify cost-effective improvement
2-4 4-8 B
Potential for marked improvements; consider
pressure management,
better active leakage control
practices, and better network maintenance
4-8 8-16 C
Poor leakage record; tolerable only if water is
plentiful and cheap; even
then, analyze level and
nature of leakage and intensify leakage
reduction
>8 >16 D
Very inefficient use of resources; leakage reduction
programs
are
imperative with high priority
The lowest achievable annual volume of real losses for well-managed systems is named as UARL which
can be calculated using the following equation developed by IWA Water Loss Task Force [4].
180,8
25 (1)
where Lm is the length of mains in km, Nc is the number of service connections, Lp is the total length of
underground pipe between the edge of the street and customer meters in km, and P is the average
operating pressure in meters [4].
1.1. Methods for Water Losses Reduction
The formation of district metered areas (DMAs) which makes it possible to divide WDNs into small,
isolated WDNs provides an efficient way to manage water losses [7, 20, 21]. There are four basic
methods to control real water losses: i) pressure management, ii) active leakage management, iii)
pipeline and assets management and iv) speed and quality of repairs [22]. Pressure management, which
can be achieved by implementing DMAs, aims to reduce excess water pressure in WDNs, whereas active
leakage management aims identifying and quantifying physical losses on a regular basis, basically by
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performing acoustic leakage methods. Pressure management through hydraulic modeling, is also
reported as an efficient tool to reduce real losses from WDNs [23]. Pipeline and assets management,
which aims to increase efficiency while reducing costs, deals with the management of all physical
components of WDNs such as pipe, valves and pumps. Speed of repairs affects the volume of real losses
in case of pipe bursts whereas repair quality is important for sustainability. On the other hand, the main
four components of apparent water losses are illegal consumption, meter reading errors, data handling
errors and meter under-registration depending on factors such as installation method, water quality, type
and class of water meter [24, 25].
1.2. Water Losses Levels & Guidelines
The issue of water losses and NRW from WDNs is a common problem in many countries such as Turkey
where country average NRW is 43.6 % of SIV based on water statistics of Turkish Statistical Institute
[26]. Percentage of SIV as the sole PI for water losses in WDNs is not recommended; however,
percentage of SIV is the only available PI for water losses in Turkey. Therefore, water losses and NRW
levels as a percentage of SIV are summarized in Table 2 for some countries to compare their water
losses/NRW levels. It can be noticed from the table that WDNs in some European countries, such as
Italy and Portugal, exhibit high water losses, which are above 30% of SIV. Still, water losses from new
WDNs are not expected to be none where the losses could reach up to 10% of SIV. A few countries
have clear and direct guidelines for water losses management although it is a serious problem in many
countries.
Table 2. Water losses and NRW levels in some countries around the world
Country Water Losses / NRW Reference
Turkey NRW, 43.6% [26]
Latin American Water Utilities NRW, 40-55% [27]
Brazil Water losses, 39.1% [28]
Italy Water Losses, 36% [29]
Portugal Water losses, 36% [30]
Slovenia Water losses, 25-30% [31]
Spain NRW, 24% [32]
North America NRW, 23.1% [33]
UK Water losses, 20-23% [34]
Denmark Water losses, 7% [35]
Netherlands Water losses, 3-7% [36]
To control water losses, the DVGW (German Association of the Gas and Water Sector) has issued a
guideline titled “W 392 - Network inspection and water losses - activities, procedures and assessments”
replacing the old three guidelines namely i) W 390 - Control of Water Supply Networks, ii) W 391 -
Water Losses in Water Distribution Systems, iii) W 393 - Leak Detection Methods for Water Supply
Pipelines. English language version of this guideline, including IWA water balance and definitions, was
published. Many concepts such as pressure relation with leakage have also been included in this
guideline [37]. German water losses guideline gives volume of real water losses per length of system
per unit time as a PI in WDNs. According to the German guideline, water utilities are divided into three
different categories based on network structure, namely urban – large cities, urban and rural areas,
whereas the level of real water losses is divided into three different categories as low, medium and high.
Low level of real water losses might be considered as UARL, medium level should not be more than
twice of UARL while high levels of real water losses require a water losses reduction program to be
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undertaken [37]. Italian Decree 99/97, issued in 1997, introduced some recommendations such as
DMAs, reduction of excess pressure, flow and pressure measurements in WDNs to reduce water losses.
Currently, Italian water utilities are required to calculate and report water losses of each WDN according
to Italian Decree 99/97 where volume of water losses as percentage of SIV is given as a PI [38].
In 2014, Turkish Ministry of Forestry and Water Affairs issued a directive titled “Control of Water
Losses from Drinking Water Distribution Systems” [39]. The aim of this paper is to discuss and evaluate
the contents of this recent Turkish directive on water losses for the first time and to provide
recommendations for other countries.
2. DESCRIPTION OF WATER SERVICES IN TURKEY
In Turkey, 52.5% of drinking water is supplied from surface water resources including dams, rivers,
lakes and sea while 47.5% is abstracted from wells and springs [26]. According to the official Turkish
water statistics of the year 2012, physical, conventional and advanced treatment methods were applied
to 55.3% of supplied water to the network while the remaining 44.7% was supplied to the network after
only disinfection process due to good raw water quality [26]. In Turkey, there are 30 metropolitan
municipalities, 51 provincial municipalities, 519 metropolitan district municipalities, 400 district
municipalities, and 396 town municipalities [40]. Municipalities are the only responsible organization
for water supply in Turkey and they are classified into five types as follows:
i) Metropolitan municipality: This is the municipality of an urban area that is the central settlement of a
province with a population in excess of 750000 capita [41]. A metropolitan municipality serves to a
province including both urban and rural areas. Each metropolitan municipality has a legally separate
and financially autonomous municipal water and wastewater administration that serves to the whole
province.
ii) Provincial municipality: This is the municipality of an urban area that is the central settlement of a
province with a population less than 750000. A provincial municipality provides water services only to
the capital city of the province [41].
iii) Metropolitan district municipality: This is the municipality of a central urban settlement of a district
within the boundaries of a metropolitan municipality [41]. A metropolitan district municipality is not
responsible for water services.
iv) District municipality: All districts in provinces, which are outside the boundaries of a metropolitan
municipality, have district municipalities and they provide water services to each district [41].
v) Town municipality: If an urban settlement is neither within a central urban settlement of a province
nor of a district, then it has a town municipality and it provides water services to the town [41].
There is no single water related directive and no single institution charged with developing policies for
water supply in Turkey. Instead, there are many water related directives and many institutions to apply
these directives and this situation causes a lack of coordination and cooperation between the responsible
institutions for water. Bank of Provinces, a related establishment of the Ministry of Environment and
Urban Planning, is responsible for financing of water supply and sanitation projects. The Ministry of
Forestry and Water Affairs is in charge of developing, monitoring and management of water resources
while the Ministry of Health is in charge of monitoring drinking water quality. Therefore, a number of
governmental entities form the framework of the sector whereas local governments play a central role
as water service providers. There was no directive regulating quantitative management of water in
WDNs at national level until the issue of the directive entitled “Control of Water Losses from Drinking
Water Distribution Systems”. The only existing guideline was on “project preparation of water supply
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576
systems” issued by Bank of Provinces in 1985 which provides figures for water consumption per capita
and water pressures. In this guideline, allowable minimum water pressure in WDNs was set as 20 m
H2O in settlements with a population up to 50000 and 30 m H2O in settlements with a population in
excess of 50001 while the allowable maximum water pressure was 80 m H2O. In this guideline, there is
also an item describing a target of 10% water losses reduction in water mains. However, this guideline
is all about project preparation and gives no method for operation and evaluation of WDNs.
3. CHALLENGES OF WATER LOSSES MANAGEMENT IN TURKEY
Due to a fast increase in population from 45 million in 1980’s to 77 million in 2014, available fresh
water resources has decreased from around 4000 m3 to 1500 m3/capita/year, and as a result, Turkey has
started to experience water stress [42, 43, 44]. Average NRW in Turkey is 43.6% of SIV [26]. Many
metropolitan municipalities in Turkey have recently established SCADA (Supervisory Control and Data
Acquisition) systems for the on-line continuous monitoring of water quantity such as flow rates, water
pressures, water levels in distribution reservoirs. SCADA system can provide numerous data sets that
can be used for understanding and management of water losses. There are a number of good examples
for water losses management in several Turkish municipalities such as Antalya, Istanbul, Ankara, Izmir
and Kocaeli. In these municipalities, the WDNs were divided into a suitable number of DMAs where
the water inputs to each DMA were intensively monitored by the SCADA systems. On the other hand,
there are many other municipalities where there is no single flow or water pressure meter to measure the
supplied water and the pressure. The recent values of water losses and NRW in some Turkish
municipalities were gathered following a survey carried out by the Turkish Ministry of Forestry and
Water Affairs, as shown in Figure 1. In this figure, a comparison of water losses and NRW values in
some municipalities of Turkey is illustrated based on annual reports of 2013 [45, 46]. In Figure 1, water
losses and NRW values were sorted in a descending order of population for municipalities which starts
with the highest population of around 14 million and ends with the lowest population of around 500000.
The average value of water losses in these municipalities is about 39.2% while NRW is about 43.2%.
Water losses values in Istanbul, Diyarbakir, Safranbolu and Çanakkale municipalities were reported as
equal to NRW rates. On the other hand, NRW value in Malatya municipality was reported as almost
two times more than water losses value. This evaluation shows the necessity of a detailed water audit
and common terminology for water losses management at national level in Turkey.
Figure 1. Water losses and NRW values of some municipalities in Turkey [26, 45, 46]
Istanbul Izmir Burs a Adana Kocaeli Diyarbakir Samsun Malatya Safranbolu Canakkale
0
20
40
43.6
60
80
100
%
Water Losses
NRW
Countr y Average NRW
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Aging infrastructure, inadequate assets management, poor maintenance of networks, water theft, and
insufficient reliable data for evaluation of WDNs are the main challenges of water losses management
in Turkey. Many municipalities started to improve and update their infrastructure. It was estimated that
around 50% of WDNs in Turkey is older than 50 years old [47]. The elements and components of
WDNs, which are known only by a few technicians, are not digitized into GIS.
There are many small municipalities that have no facilities and/or activities for estimating or reducing
water losses. In many cases, the WDNs at these municipalities have no single flow or pressure meter;
therefore the amount and cost of water losses are not properly quantified. Funding for water losses
management is required in short term; however it is a self-financing program in long term.
Unfortunately, there is often a shortage to get funds for such activities [8]. Consequently, the average
value of water losses in Turkey is still high when compared with many European countries.
4. THE TURKISH DIRECTIVE ON WATER LOSSES CONTROL
In 2014, Turkish Ministry of Forestry and Water Affairs issued a directive titled “Control of Water
Losses from Drinking Water Distribution Systems” to reduce water losses from WDNs [39]. The
directive has three parts. The first part includes aim, scope, legal basis and definitions. The second part
is about the management of water distribution systems and reduction of water losses while the third part
is about reporting. Technical procedure of this directive is under development by the Ministry of
Forestry and Water Affairs. In the following sections, some brief information about the new directive is
introduced, rather than a translation of the whole contents, to present a good code of practice. The aim
of the directive is to protect water resources and provide water use efficiency through reduction of water
losses from water distribution systems. In this manner, this directive could be a good guide and example
for many developed and developing countries.
4.1. Management of WDNs and Reduction of Water Losses
The directive [39] states that municipalities should carry out the following activities to manage WDNs:
Water consumption and unit cost of water supply should be determined and submitted as an
annual report each year.
Municipalities should determine their water consumption and budget needs of water supply,
carry out cost benefit analysis for water supply and include necessary precautions for water
losses reduction methods in their strategic plans.
Monitoring, reporting and determination of water consumption and revenues should be carried
out. For this purpose, customer water meters should be installed at all water users for analysis
of water audit, measurements and monitoring of water pressure at critical points should be
conducted.
Digitizing the elements of WDNs and updating existing GISs of WDNs should be carried out
by the municipalities.
Recommended activities under the title of reduction of water losses start with water balance, which is
needed to adopt new technologies such as use of flow meters for analysis of water audit. The
recommended form of water balance follows the IWA Best Practice of water balance and the definitions
of its components with a slight change in physical losses components [4], as illustrated in Table 3. IWA
Best Practice of water balance includes three components for physical losses: i) leakage on transmission
and distribution mains, ii) leakage and overflows at storage tanks, iii) leakage on service connections up
to point of customer water meter. Leakage on transmission and distribution mains and leakage on service
connections up to point of customer water meter components were unified as one component, so physical
components of water balance recommended by the directive has now two components for physical
losses.
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Table 3. Recommended form of annual water balance [39]
System Input
Volume
… m3/year
(100%)
Authorized
Consumption
… m3/year
(...%)
Billed Authorized
Consumption
… m3/year
(...%)
Billed Metered Consumption
… m3/year
(...%)
Revenue Water
… m3/year
(...%)
Billed Unmetered
Consumption
… m3/year
(...%)
Unbilled Authorized
Consumption
… m3/year
(...%)
Unbilled Metered
Consumption
… m3/year
(...%)
Non-revenue
Water
… m3/year
(...%)
Unbilled Unmetered
Consumption
… m3/year
(...%)
Water Losses
… m3/year
(...%)
Apparent Losses
… m3/year
(...%)
Unauthorized Consumption
… m3/year
(...%)
Customer Meter Inaccuracies
… m3/year
(...%)
Real Losses
… m3/year
(...%)
Leakage on Transmissions
and Service Connections
… m3/year
(...%)
Leakage and Overflows at
Reservoirs
………………………
m3/year
(...%)
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Municipalities should carry out the following activities to reduce water losses:
Pressure management: Maximum pressure is defined as 60 m H2O in the directive. The former
value of the allowable maximum pressure in WDNs was 80 m H2O. The former allowable
maximum pressure in WDNs has been replaced with the new value.
Speed and quality of repairs: Municipalities should provide proper repair where pipe bursts are seen.
Maintenance of pipeline systems: Rehabilitation, maintenance and repairs should be carried out
regularly depending on system needs.
Active leakage control: Municipalities should carry out an active leakage control program using
proper monitoring systems such as SCADA.
Pipeline and assets management: Selection and installation of components of WDNs should be
done properly to prevent physical water losses.
Forming pressure zones and DMAs: New WDNs should be designed considering pressure zones
and DMAs. Hydraulic modelling should be carried out in existing WDNs which should be
divided into DMAs and pressure zones where it is applicable.
Prevention of illegal usage: installation of proper consumer water meters based on consumption
profile of consumers, replacement of water meters that are older than ten years with new and
more accurate ones should be practiced to reduce apparent losses.
Appropriate technologies for detection of pipe bursts should be selected to reduce physical water
losses.
Employment of qualified personnel to control and reduce water losses is necessary as well.
Metropolitan and provincial municipalities are obliged to reduce water losses by 30% of SIV within 5
years and 25% of SIV within 9 years after the issue of the new directive. Additionally, other
municipalities are obliged to reduce water losses by 30% of SIV within 9 years and 25% of SIV within
14 years [39].
4.2. Reporting Duties of Water Authorities
According to the new directive, water authorities are obliged to give information about water
consumption, water losses, NRW and other data related to management of WDNs. For this purpose,
each water authority should prepare an annual report including general information about water losses
reduction program carried out by the water authority. Recommended water balance, given in Table 3,
and an inventory form, given in Table 4, should be prepared by each municipality annually [39].
4.3. Evaluation of the Turkish Directive on Water Losses
The Turkish directive on water losses management gives the percentage of SIV as a water loss target
and PI. Systems with higher SIV show lower level of water losses compared to systems with lower SIV
[37]. Expressing water losses as a percentage does not reflect any other influencing factors such as
number of service connections and the length of water mains; however it is better than having no targets.
The elements and components of WDNs, which are vital for dividing WDNs into DMAs, modeling
issues and using PIs such as ILI which allows international comparisons of assessment of WDNs, are
only known by a few technicians in many municipalities. So it seems that many municipalities are not
ready for such activities yet. The municipalities are recently obliged to digitize and update the
components of WDNs, to install flow meters and customer water meters. Therefore such activities might
be conducted after these requirements are implemented. Although water potential and the conditions of
network structures in Turkey differ between regions, the target level of water losses is the same which
is also independent from economic level of water losses. Financial resources should be allocated to
enhance the basis in terms of capacity building of both infrastructure and human resources with the issue
of the new directive. Raising awareness for decision makers and training for technical personnel are
required to achieve the targets given in the new directive.
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Table 4. Inventory form of water losses in water distribution networks [39]
Groundwater Surface water Total
1 Water abstraction for municipal water supply
network (m3/y) (Name of source)
2 Treated water (m3/y)
(If treatment applicable)
3 SIV (m3/y)
4 Number of consumers
5 Authorized consumption (m3/y)
6 Water Losses (m3/y)
7 Length of mains (m)
8 Is there any SCADA system? Yes No
9 Is there any GIS software? (If yes, define it.)
10 Is there any consumer information system?
(If yes, define it.)
11
Is there any work for inspection and reduction of
water losses? (Active leakage management,
DMAs, pressure management, etc.)
(If yes, define it.)
Yes No
12
Is there any working team for inspection of
water losses? (If yes, indicate the number of
employees.)
Yes
No
13 Number of reported and unreported bursts in
WDN.
Reported:
Unreported:
14 Unit price of water per m3
Residential Industrial Other
15 Types and numbers of customer water meters
4.3. Evaluation of the Turkish Directive on Water Losses
The Turkish directive on water losses management gives the percentage of SIV as a water loss target
and PI. Systems with higher SIV show lower level of water losses compared to systems with lower SIV
[37]. Expressing water losses as a percentage does not reflect any other influencing factors such as
number of service connections and the length of water mains; however it is better than having no targets.
The elements and components of WDNs, which are vital for dividing WDNs into DMAs, modeling
issues and using PIs such as ILI which allows international comparisons of assessment of WDNs, are
only known by a few technicians in many municipalities. So it seems that many municipalities are not
ready for such activities yet. The municipalities are recently obliged to digitize and update the
components of WDNs, to install flow meters and customer water meters. Therefore such activities might
be conducted after these requirements are implemented. Although water potential and the conditions of
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network structures in Turkey differ between regions, the target level of water losses is the same which
is also independent from economic level of water losses. Financial resources should be allocated to
enhance the basis in terms of capacity building of both infrastructure and human resources with the issue
of the new directive. Raising awareness for decision makers and training for technical personnel are
required to achieve the targets given in the new directive.
5. CONCLUSION
Management and reduction of water losses in WDNs is a global issue and it requires a common
understanding from both social and technical sciences. The social part is related to conservation of water
for the next generations and maintaining direct and reliable regulations for coordination between the
responsible organizations and enforcement. The technical part is related to use of the best technology to
reduce water losses in WDNs using cost effective approaches. It is inevitable to eliminate water losses
totally and even the existing WDNs in highly developed countries have real and apparent water losses.
The critical action is to reduce water losses to the minimum acceptable level considering both
economical and technical constraints. Municipalities in Turkey are now obliged to manage water losses
with the issue of the new directive that will help increasing awareness for protection of water resources
and saving water. Water losses management needs investment on some new technologies such as
SCADA and GIS which are crucial for management and operation of water supply systems. With the
application of the new directive, municipalities will be forced to invest in such technologies to improve
their service and contribute to resilience of water in WDNs. All these improvements necessitate funding
in short term, however, water losses management is a self-financing program in long term. Following
the positive advances in water losses reduction programs, public perception on the quality of distributed
water will be improved in the successful municipalities and public will be more volunteered to consume
tap water instead of bottled water. Reducing water losses in WDNs and the overall improvements in
water supply systems will contribute to protect water quality in WDNs and reduce possible
contamination risks of distributed water. Consequently, management of water losses in WDNs will
contribute to protection of public health by reducing the risks for water-borne diseases.
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