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SAWS

The San Antonio Water System (SAWS) is a municipal owned by the City of , , that delivers safe , wastewater collection and , and recycled water services to more than 2 million customers across Bexar County and surrounding areas. Established on May 19, 1992, through the consolidation of three predecessor entities—the City Water Board, the City Wastewater Department, and the Alamo Water Conservation and Reuse District—SAWS was formed to centralize and modernize water management in a rapidly growing region historically reliant on the for its primary water supply. The utility oversees a vast network spanning approximately 13,000 miles of water and sewer mains, multiple plants, and advanced facilities that produce over 200 million gallons of water daily from diverse sources including aquifers, rivers, and . SAWS is recognized as a national leader in water innovation and sustainability, operating the largest direct recycled water system in the United States, which treats wastewater to high standards for non-potable uses such as irrigation and industrial applications to combat drought and population growth pressures by reducing demand on potable supplies. The organization also emphasizes conservation through public education, rebate programs for efficient fixtures, and large-scale aquifer storage and recovery projects that store excess water underground for future use. Governed by a customer-focused board and led by a professional executive team, SAWS invests heavily in infrastructure upgrades and environmental stewardship to ensure long-term resilience in one of the fastest-growing metropolitan areas in the U.S.

History

Formation

The San Antonio Water System (SAWS) was established on May 19, 1992, through the consolidation of three predecessor agencies: the City Water Board, the City Wastewater Department, and the Alamo Water Conservation and Reuse District. The City Water Board, formed on June 1, 1925, after the City of purchased the private San Antonio Water Works Company, had been responsible for potable and . The City Wastewater Department managed sewage collection and treatment, with operations dating to the early 1900s, including a fully operational collection system by 1900 that divided the city into districts for outfall sewers. The Alamo Water Conservation and Reuse District, created on June 16, 1989, focused on developing systems for the of treated to augment supplies. This consolidation was driven by the need to centralize water, wastewater, and reuse management in response to competing agencies and the pressures of rapid in Bexar County, where the area's population exceeded 1 million by the early 1990s. The City Council voted in December 1991 to create a single utility to streamline operations and ensure sustainable service for the expanding urban region. SAWS's initial mission emphasized integrated resource management, drawing primarily from the as its key water source. Early operations faced challenges in integrating the disparate systems of the predecessor agencies, including aligning , administrative processes, and financial structures. The merger was facilitated by the refinancing of approximately $635 million in existing and bonds, providing the necessary for unification. Initial funding came from city-issued revenue bonds authorized under the enabling Ordinance No. 75686, passed by the City Council on April 30, 1992, which established SAWS as a municipal and outlined its and financial framework.

Mergers and expansions

Following its formation in 1992, the San Antonio Water System (SAWS) pursued strategic to address regional water demands driven by . A pivotal development was the 2012 merger with the Bexar Metropolitan Water District (BexarMet), enacted through Senate Bill 341 passed by the in 2011 and approved by BexarMet voters in November 2011 with 74% support. The U.S. Department of Justice granted final approval in late January 2012, enabling SAWS to assume BexarMet's operations, including its customer base of approximately 94,000 accounts, which expanded SAWS's service area by more than 15% in terms of meters served. This integration, completed financially by 2016, incorporated BexarMet's infrastructure, such as its facilities, enhancing SAWS's ability to protect and manage the by adding 1,000 acre-feet of annual production capacity without immediate rate impacts on existing customers. In the , SAWS expanded its portfolio through targeted acquisitions of pumping rights, focusing on upstream regions to secure reliable supplies and mitigate risks. These efforts included purchases and leases of rights from agricultural users in Medina and Uvalde counties, where much of the aquifer's recharge occurs, allowing SAWS to reduce pumping during critical periods while supporting local economies. By the mid-, SAWS had committed to acquiring up to 50,000 acre-feet of additional annual rights under normal conditions (42,500 acre-feet during ), integrating these into its broader resource strategy without over-relying on any single source. This approach extended SAWS's influence beyond Bexar County, fostering partnerships for interruptible rights programs that compensated farmers for forgoing . Infrastructure expansions in the further scaled SAWS's capacity to accommodate rapid , with key projects connecting distant water sources to the core service area. The Regional Carrizo Water Project, operational since 2013, delivers up to 11,688 acre-feet annually from the Carrizo-Wilcox Aquifer in Gonzales County via a 72-mile , providing a drought-resistant supply. Complementing this, the Vista Ridge —spanning 142 miles from the Carrizo-Simsboro Aquifer in Burleson and Milam counties—began construction in 2016 and entered service in 2020, capable of supplying 50,000 acre-feet per year to offset up to 20% of peak demands. These initiatives, part of SAWS's long-range planning, supported service to over 1.7 million residents by 2020 across a 967-square-mile area encompassing parts of Bexar and four adjacent counties. These growth strategies were necessitated by San Antonio's population surge, from approximately 1 million residents in the SAWS service area at its 1992 inception to nearly 2 million customers by the early . Projections in SAWS's water management plans anticipated further increases to 3.3 million by 2070, prompting proactive expansions in coverage and to ensure sustainable supply amid into surrounding counties like and Uvalde.

Governance and organization

Board of Trustees

The San Antonio Water System (SAWS) is governed by a Board of Trustees consisting of the mayor of San Antonio, who serves as an ex officio member, and six trustees appointed by the San Antonio City Council. The six trustees include four who represent specific quadrants of SAWS's service area, one who represents the combined northern quadrants, and one who represents the combined southern quadrants, to ensure diverse geographic representation; all must reside within the SAWS service area or the city's extraterritorial jurisdiction. Trustees are appointed for staggered four-year terms beginning June 1 and ending May 31, with a limit of two consecutive terms unless filling an unexpired position. This structure promotes continuity and broad stakeholder input in decision-making. The Board's primary responsibilities include the complete , , and operation of SAWS, encompassing policy establishment, approval, rate recommendations to the City Council, and oversight of major capital projects. For instance, the Board approved SAWS's 2025 operating and capital of $1.08 billion, which funds infrastructure maintenance, loss reduction, and system resiliency without residential rate increases. The Board meets monthly to address these duties, delegating day-to-day execution to executive leadership while retaining ultimate accountability for financial and strategic direction. Historically, the Board's origins trace to June 1, 1925, when the City Water Board (CWB) was established as the city's utility, placing its management under a board appointed by the City Council. In May 1992, SAWS was created through the consolidation of the CWB, the City Wastewater Department, and the Alamo Water Conservation and Reuse District, transitioning to a unified owned by the City of but with management delegated to the Board under city ordinance and Local Government Code provisions. This evolution granted the Board operational autonomy while maintaining city oversight, evolving from a simple water-focused entity to a comprehensive and serving over 2 million people. Notable Board actions include approving a 9.7% increase in delivery rates and 4.5% in water supply rates effective January 2018 to support system investments, including recharge and protection initiatives. In 2023, the Board endorsed a rate restructuring that reduced average residential bills by $5.80 while modestly increasing commercial rates, allocating funds toward projects to enhance drought and protection. These decisions underscore the Board's role in balancing affordability with long-term .

Executive leadership

The executive leadership of the San Antonio Water System (SAWS) is headed by President and Robert R. Puente, J.D., who was appointed in May 2008 and oversees approximately 1,934 employees across various departments responsible for water and wastewater services. Puente, with a background in from St. Mary’s University and a Doctor of Jurisprudence from the University of Texas School of Law, previously served in the , including as Chairman of the House Natural Resources Committee. Key executives under Puente include Doug Evanson, Executive Vice President and Chief Financial Officer, who manages the financial operations of the $2.7 billion utility and holds an MBA from the University of Missouri-Kansas City, a BS from the , and certification as a , with prior experience in treasury and finance at firms like UtiliCorp United and . For , Donovan Burton serves as Senior Vice President of and Governmental Relations, focusing on developing and maintaining supplies, drawing from his expertise in . Wastewater operations are led by figures such as Andrea Beymer, Executive Vice President and , who directs a team of over 800 professionals in production, distribution, and collection, with a background in operational engineering; and Alissa Lockett, Vice President of Treatment Operations and Maintenance, who brings 23 years of experience in and facility , , , and operations. Under Puente's leadership, SAWS has achieved significant milestones, including diversification of water supplies through projects like the Vista Ridge Pipeline and the H2Oaks Water Recycling Center, attainment of the highest bond rating in the utility's history, and resolution of disputes with the Authority that saved $750 million in capital costs. These efforts have positioned SAWS as a national leader in and . Succession in SAWS executive leadership has been stable, with Puente providing continuity since 2008, including during major transitions such as the 2012 integration of (BexarMet), where SAWS assumed operations and service to over 200,000 additional customers following voter approval and federal clearance, streamlining regional water management without major leadership upheavals. The executive team reports to the Board of Trustees for strategic oversight.

Operations and services

Water supply management

The San Antonio Water System (SAWS) manages a diversified of water sources to produce approximately 243 million gallons of potable daily as of , drawing primarily from the while supplementing with from other aquifers, , and desalinated . This production supports the needs of over 2 million residents across Bexar County and parts of surrounding areas, with the serving as the main source, though detailed sourcing is covered elsewhere. SAWS also operates the largest direct potable reuse system in the United States, treating to standards and integrating it into the city's supply. Treatment processes occur at dedicated facilities where undergoes conventional purification steps, including , , to remove , chlorination for disinfection, and fluoridation to promote dental health at levels recommended by authorities. To ensure sustainable extraction, SAWS adheres to strict pumping limits regulated by the Edwards Aquifer Authority (EAA), which imposes an annual cap of 572,000 acre-feet across all users to protect the aquifer from over-extraction and maintain spring flows critical for ecosystems. SAWS holds one of the largest allocations under this regime, with permitted rights of approximately 281,000 acre-feet per year, and voluntarily reduces pumping during droughts—such as by up to 46,300 acre-feet in severe scenarios—to comply with EAA stages and avoid ecological harm. These practices are integrated into SAWS's long-term Water Management Plan, which emphasizes diversification to limit reliance on the Edwards to about 60% of supply. Distribution occurs through an extensive network of approximately 12,000 miles of water mains and service lines, serving more than 511,300 customer accounts, including residential, commercial, and industrial users. To minimize losses in this vast system, SAWS adopted advanced technologies in the , such as acoustic correlators and district metering analytics, which enable proactive identification and repair of underground leaks before they escalate. These efforts have helped reduce losses, estimated at around 20% of production due to factors like aging infrastructure and the region's geology. SAWS maintains rigorous quality assurance to meet or exceed U.S. Environmental Protection Agency (EPA) standards under the , conducting over 390 monthly bacterial samples across the distribution system with no E. coli detections reported in recent years. Annual Consumer Confidence Reports detail low levels of regulated contaminants, such as lead below action levels through control measures and disinfection byproducts well under maximum contaminant levels, confirming consistent compliance and high safety for potable use.

Wastewater treatment

The San Antonio Water System (SAWS) operates an extensive wastewater collection system spanning approximately 4,700 miles of sewer lines, serving more than 1.2 million people across Bexar County and portions of surrounding areas, supported by numerous pump and lift stations. This infrastructure collects residential, commercial, and industrial sewage, preventing overflows through ongoing maintenance and rehabilitation efforts as mandated by federal consent decrees. SAWS treats at five major water recycling centers, including the Salado Creek Water Recycling Center, which has a permitted capacity of 50 million gallons per day. These facilities employ conventional processes for biological treatment, followed by advanced tertiary filtration and disinfection to remove solids, organics, and pathogens, with additional nutrient removal technologies to minimize environmental impacts on receiving waters like the and Salado Creek. The combined treatment capacity across all plants exceeds 225 million gallons per day, ensuring reliable processing during peak flows. Through its recycled water program, SAWS reuses a significant portion of treated for non-potable applications, distributing approximately 55,800 acre-feet in 2024 for of golf courses, parks, and landscapes, as well as industrial uses such as power plant cooling. This direct reuse offsets potable water demands and supports base flows in local waterways, with distribution infrastructure capable of delivering up to 25,000 acre-feet per year to over 80 customers. In the 2020s, SAWS has invested in upgrades for enhanced reduction at its treatment plants, including chemical and biological nutrient removal systems, to comply with stricter Texas Commission on Environmental Quality (TCEQ) discharge permits aimed at protecting downstream . Notable projects include a $163 million of the Dos Rios Water Recycling Center, the system's largest facility, incorporating advanced treatment enhancements planned for completion around 2025. These improvements integrate with broader strategies by maximizing recovery for .

Infrastructure

Primary water sources

The San Antonio Water System (SAWS) relies primarily on groundwater from the , which supplies approximately 49% of its total water volume, or about 160,000 acre-feet annually as of 2024. This unique aquifer, formed from fractured , has a firm yield of 105,000 acre-feet per year under severe conditions, equivalent to roughly 94 million gallons per day. Its recharge zones span six counties—Kinney, Uvalde, , Bexar, Comal, and Hays—where percolates through porous rock to replenish the underground reservoir. A secondary groundwater source is the Carrizo-Wilcox system, accessed through multiple well fields and projects that collectively yield around 42,000 acre-feet per year, or approximately 38 million gallons per day. SAWS operates or partners on four key Carrizo projects, including 20 production wells in the local and regional fields, supplemented by desalination from the Wilcox at the H2Oaks Center, which produces up to 10 million gallons per day using . Surface water sources are limited but contribute to supply diversification, with Canyon Lake providing about 2% of SAWS's demand, or roughly 5,900 acre-feet in 2024 through a partnership with the Guadalupe-Blanco River Authority. Additionally, the Vista Ridge Pipeline, operational since , delivers up to 50,000 acre-feet per year of primarily Carrizo groundwater (about 77% from the Simsboro formation within the Carrizo-Wilcox system) via a 142-mile conduit from Burleson County. Following the severe 2011 drought, SAWS intensified diversification efforts to reduce reliance on the , which accounted for nearly 100% of supply in the . By 2024, the system draws from seven sources across 13 projects, lowering Edwards dependency to under 50% and enhancing resilience against future water shortages.

Treatment and distribution facilities

The Water System (SAWS) operates five water treatment facilities to process from primary sources into potable supply for . These plants collectively handle the utility's demand through conventional processes including , , , and disinfection. For example, the Water Treatment Plant has a capacity of 23 million gallons per day (mgd), serving northeastern service areas. SAWS manages three regional wastewater treatment plants, known as water recycling centers, which employ tertiary treatment processes such as advanced filtration, nutrient removal, and disinfection to produce high-quality effluent suitable for reuse or safe discharge. These facilities support the utility's recycled water program, enabling non-potable applications like irrigation and industrial use while protecting local waterways. The Steven M. Clouse Water Recycling Center, the largest in the system, has an average capacity of 125 mgd and uses a conventional process for treatment. The distribution infrastructure spans approximately 7,900 miles of water mains and 5,100 miles of sanitary sewers as of 2025, forming a vast underground network that delivers treated water to over 500,000 customer connections and conveys to treatment plants. To modernize this system, SAWS is rolling out advanced metering infrastructure (AMI), with ConnectH2O smart meters installed for nearly all of its approximately 598,000 customers by the end of 2025, allowing real-time monitoring to detect leaks and optimize usage. Addressing the challenges of an aging —with pipes averaging 40 years old—SAWS invests about $500 million annually in capital improvements. These funds support pipe rehabilitation, replacement of corrosion-prone materials, and system-wide upgrades to minimize breaks, reduce loss, and ensure reliability amid growing demand.

Environmental initiatives

Conservation programs

The San Antonio Water System (SAWS) implements residential rebate programs that provide incentives for installing low-flow fixtures such as toilets, showerheads, and faucets, contributing to broader efforts that have saved over 1 billion gallons of water annually in recent years. SAWS conducts extensive education campaigns to foster awareness, including school-based programs that integrate water literacy into curricula and annual WaterSmart events featuring workshops, demonstrations, and community outreach. A key component of SAWS's strategy is its tiered pricing structure, which applies progressively higher rates for residential water usage exceeding 10,000 gallons per month to incentivize efficiency; this approach has helped reduce daily consumption from approximately 154 gallons in 1992 to 114 gallons as of 2024. In response to the 2015 drought, SAWS enforced Stage 2 restrictions limiting to specific days and hours, along with public appeals and surcharges, resulting in a 20% reduction in overall demand during the period.

Sustainability and climate efforts

SAWS collaborates closely with the Edwards Aquifer Authority on aquifer protection initiatives to safeguard the , a critical source for the region. Through its Land Acquisition Program, established in 1997, SAWS has preserved approximately 9,140 acres in the recharge zone to prevent contamination and maintain , with notable joint projects including a 3,057-acre at Annandale Ranch. These efforts contribute to broader regional protection under the City of San Antonio's Edwards Aquifer Protection Program, which has conserved over 161,511 acres across the recharge and contributing zones as of 2022, enhancing long-term aquifer . In response to , SAWS released its 2024 Water Management , which incorporates modeling for potential reductions in annual precipitation of up to 9% by 2060 under high-emission scenarios (RCP 8.5), alongside projections for intensified affecting the by up to 41.86% in levels over a nine-year period by 2050. To build resilience, the utility has committed over $1.2 billion to sewer system improvements since 2013 and plans additional investments through its 2022 Facilities Master , exceeding $1 billion for capacity expansions and rehabilitations that mitigate and risks. These strategies align with the of San Antonio's SA Climate Ready , emphasizing diversified water supplies like to adapt to reduced rainfall and . SAWS advances adoption to reduce its and operational costs, with solar installations at treatment facilities such as the nearly 20-megawatt array at the Dos Rios Water Recycling Center, operational since 2012. The 2023 Energy Strategy Master Plan further promotes onsite solar at wastewater and water plants, leveraging the region's abundant sunlight, while recovery from at facilities like the Steven M. Clouse Water Recycling Center generates equivalent to significant portions of onsite power needs. Although specific targets for 10% renewable generation by 2025 are not explicitly stated, these initiatives support the plan's broader goal of 10% reduction by 2028 and contribute to the city's carbon neutrality ambitions by 2050. Biodiversity initiatives by SAWS focus on recharge zone preservation to support natural ecosystems and filtration processes, with land acquisitions under the Land Acquisition Program maintaining habitats that enhance aquifer recharge through vegetative cover and soil stability. Collaborative efforts with the Edwards Aquifer Authority and the Nature Conservancy have integrated wetland and riparian restoration elements in protected areas, such as those along creeks feeding the aquifer, to improve natural water purification and wildlife corridors. These measures not only bolster ecological diversity but also provide passive filtration benefits, reducing pollutant infiltration into the aquifer. In 2025, SAWS's emphasizes upgrades like addressing leaky mains to further support without residential increases.

Challenges and future outlook

Legal and regulatory issues

The Water System (SAWS) faced major legal challenges in the 1990s and 2000s over its pumping rights from the , a critical serving as 's primary water source. Downstream users, including agricultural interests and environmental advocates, sued SAWS and other entities, arguing that excessive pumping threatened spring flows, like the darter and Comal Springs riffle beetle, and interstate water rights under the Endangered Species Act (ESA). These disputes escalated to federal court, with the U.S. Fish and Wildlife Service threatening regulatory takeover in the early 1990s. In response, the created the Authority (EAA) in 1993 via Senate Bill 332, granting it regulatory authority to cap annual pumping at 450,000 acre-feet initially and allocate permits based on historical use. SAWS, as the largest user, secured a substantial portion of these permits. Litigation continued into the 2000s, including Texas Supreme Court cases like Edwards Aquifer Authority v. Day (2012), which upheld the EAA's ability to limit withdrawals without constituting a regulatory taking. A pivotal resolution came in 2007 when Senate Bill 3 raised the EAA's pumping cap to 572,000 acre-feet per year to avert federal ESA enforcement, enabling the Habitat Conservation Plan (EAHCP). Under this plan, SAWS received permitted pumping rights of approximately 281,000 acre-feet per year, reflecting its historical reliance on the aquifer while mandating reductions during droughts to protect ecosystems. These allocations balanced urban needs with environmental safeguards, though SAWS briefly averaged around 225,000 acre-feet in annual pumping in the mid-2010s before diversifying sources. The adjudication underscored tensions between rights under Texas's rule of capture doctrine and federal environmental protections. In 2013, SAWS resolved violations of the Clean Water Act and Texas Water Code through a with the U.S. Environmental Protection Agency (EPA) and Texas Commission on Environmental Quality (TCEQ), paying a $2.6 million for over 2,000 overflows between 2000 and 2012, many triggered by heavy rains overwhelming aging infrastructure. The decree, with a 12-year term ending in 2025, required SAWS to spend at least $1 billion on system upgrades, including capacity expansions and real-time monitoring, to prevent untreated wastewater discharges into local waterways like the . As of 2024, SAWS has invested approximately $1.2 billion, repairing or replacing nearly 500 miles of pipe, leading to enhanced stormwater protocols such as improved inflow and infiltration controls and reducing overflows by over 90% since 2020. Although no major fines have been issued since, SAWS continues annual reporting to TCEQ, with minor incidents during prompting ongoing compliance efforts. SAWS's 2022 rate study involved public hearings and a Rate Advisory Committee comprising advocacy groups focused on and affordability, particularly for low-income communities. While no immediate residential rate hike was approved—maintaining stability from prior years—the discussions addressed proposals for modest increases (around 5% in some scenarios) to fund $2 billion in capital projects, including sewer repairs. Groups like environmental and organizations contested the equity of uniform rate structures, advocating for tiered assistance programs to mitigate impacts on underserved areas, resulting in recommendations for expanded low-income rebates. These proceedings highlighted regulatory scrutiny under Public Utility Commission guidelines for municipal utilities. As of 2025, SAWS has maintained no residential rate increases for the fifth consecutive year, but officials have proposed hikes starting in 2026 to fund $3.2 billion in system improvements by 2030, continuing debates on affordability and . Under the federal , SAWS undergoes continuous EPA oversight through monitoring, reporting, and unannounced inspections to ensure contaminant levels in treated water remain below maximum limits. Since 2015, SAWS has reported no major violations, with annual Consumer Confidence Reports confirming compliance via rigorous testing for over 80 parameters, including nitrates and disinfection byproducts. This track record reflects investments in advanced treatment at facilities like the 223 million-gallon-per-day Dos Hastings plant.

Expansion plans

SAWS's expansion plans are guided by the 2025 Water Management Plan, which outlines strategies to meet projected water demands through 2070 amid and climate variability. The plan emphasizes diversifying supplies, enhancing efficiency, and investing in infrastructure to serve an additional 617,000 customers by 2040 while maintaining reliability during droughts. Key initiatives focus on protection, alternative sourcing, and technological integration to ensure sustainable growth without over-reliance on the . A of these efforts is the Vista Ridge Pipeline project, a 142-mile sourcing from the Carrizo-Wilcox and Simsboro aquifers in Burleson County. Operational since 2020, it delivers up to 50,000 acre-feet per year, representing about 20% of SAWS's total supply and providing drought-resilient water that reduces pumping from the . However, the project has faced controversies, including complaints from local landowners about depletion in the source area, with some wells experiencing drops of up to 50% and concerns over rural water access leading to legislative proposals and public scrutiny. The project, developed under a 30-year agreement with Vista Ridge LLC, had a total development cost of approximately $844 million and supports long-term by offsetting strain during peak usage periods. Desalination remains a priority for brackish treatment, with ongoing feasibility studies and expansions aimed at coastal and inland sources. SAWS operates the H2Oaks Brackish Plant, which currently produces 10 million gallons per day, with plans to expand capacity to 30 million gallons per day (over 33,000 acre-feet per year) in the long term, supported by a $26.7 million state loan awarded in July 2025 for design work and over $100 million in planned investments for enhancements at the site. Conceptual projects in the 2025 Water Management Plan include evaluating from the as a future option by the 2030s, potentially adding significant volumes to address projected shortages, though economic and environmental feasibility assessments are ongoing. To enhance reliability for a projected service area population approaching 3 million by 2040, SAWS is integrating technologies, including -driven and advanced metering . The ConnectH2O program deploys smart meters for real-time data collection, enabling to optimize distribution and reduce losses. Additionally, generative tools are being leveraged for integrating datasets in capital planning and risk assessment, supporting proactive adjustments to water use patterns influenced by and urban expansion. The Capital Improvement Program (CIP) underpins these expansions, with the 2025 budget allocating $625.8 million for infrastructure upgrades, including pipeline reinforcements, treatment facility enhancements, and new reservoirs. Over the 2025-2035 horizon, SAWS anticipates cumulative investments exceeding $6 billion through successive CIP cycles, guided by the Water Management Plan, to develop recycled water systems, expand , and construct additional reservoirs for a diversified portfolio. These efforts prioritize recycled water growth, currently at 18,000 acre-feet per year, with targets to increase non-potable reuse and indirect potable applications.

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