A Targeted Approach to Lead Service Line Replacement in Detroit

The Great Lakes Region is home to half of the top ten cities in the United States with the highest number of lead service lines. Many homes in the region were built when lead pipes were standard, especially homes built before 1986 when Congress banned the use of lead pipes in public water systems. With a targeted approach driven by data and informed by equity, the Detroit Water and Sewage Department’s (DWSD) Lead Service Line Replacement Program (LSLRP) is one of the highest-ranked lead line replacement programs in the United States. As the city of Detroit features approximately 80,000 lead service lines out of a total of 300,000 water lines, DWSD has been “determined to get ahead of the issue,” says Bryan Peckinpaugh, DWSD’s Public Affairs Director, with the city taking proactive measures to address this public health concern.

Using Maps to Prioritize Sensitive Populations

A cornerstone of the LSLRP is the strategic use of data, particularly mapping technology. The city employs ArcGIS to pinpoint areas with high population density, significant numbers of elderly residents and children, and low-income neighborhoods. These areas are prioritized because their residents are more vulnerable to the adverse effects of lead-contaminated water. Exposure to lead in drinking water in even the smallest amounts can cause irreversible damage to the brain and nervous system, with children under the age of six, pregnant people, and elderly people being especially vulnerable. Importantly, the replacement services are provided entirely free of charge to these communities. “We don’t charge the customer anything.” says Peckinpaugh of the intention behind the free program. “We don’t want to put it on the backs of homeowners, and we want to make sure that replacement is not a prohibitive cost.”

Beyond population data, DWSD uses several layers of data in ArcGIS to determine which neighborhoods to target. They evaluate permit data to see when permits were issued, when the service line was installed in a home, and if the homeowner has since replaced the service line. They also add layers to examine where the city has done water main work to determine which service lines still need to be inspected. This stream of information is constantly being updated, and DWSD technicians can indicate the materials for service lines through an app as they make routine repairs throughout the city. 

Adapting Outreach for Equitable Community Engagement

When conducting outreach to residents for service line replacement, DWSD quickly realized that traditional outreach methods were not effectively reaching their target audiences. For example, they originally began with reaching out to attendees of city council meetings before finding that these were residents who were largely not living on the neighborhood blocks that would soon have the lead replacements. To remedy this, they adopted a block-by-block approach, initiating outreach efforts 40 days in advance of any work and having contractors go door-to-door to inform residents about the upcoming projects and answer questions. After receiving community feedback, DWSD switched from using mail to door hanger packets for distributing information, ensuring that residents received crucial details in a timely manner directly at their doorstep. For specific language needs, they leverage the resources of other city departments to get information to people in their native languages.

The process of replacing lead service lines begins with obtaining a signature from any adult resident, which does not necessarily have to be the homeowner. Once permission is granted, crews excavate up to the water meter on private property and the stop box to assess the material of the service line. If the line is copper, they proceed without replacement. If the line is lead, an appointment is scheduled to replace it with a safer alternative.

Extending Benefits throughout the Workforce

As for the internal aspect of the program, responsibility for the city's lead response is distributed throughout various departments of DWSD, rather than being confined to a specific team. This integrated approach includes departments such as procurement and public affairs, ensuring a comprehensive and coordinated effort. Funding for the program comes from multiple sources, including capital funds, the American Rescue Plan Act, and the Bipartisan Infrastructure Act.

The benefits of the LSLRP extend beyond the realm of public health. “We have individuals we have hired who have used the generative income of this work that wouldn’t otherwise be there” says Peckinpaugh. The program has generated employment opportunities for the local community, allowing individuals hired for the replacement work to gain financial stability and make significant personal milestones, such as purchasing their first homes.

Looking Ahead

Since the LSLRP’s start, Detroit's lead pipe replacement rate has increased from 700 lines per year to 8,000 lines per year. Millions of lead pipes run under America cities, delivering contaminated water into homes, and recently-proposed federal rules would require every lead pipe in the country be replaced in the next decade. This ten year goal is already underway in Detroit, and achieving this will require sustaining community engagement and the continued use of data to guide their efforts. As Detroit advances towards a lead-free future, the program stands as a model of how data-driven strategies and community-focused approaches can effectively eliminate the prevalence of lead pipes and improve public health.