Homeowners are skeptical about replacing lead pipes. Here’s how one utility makes the case.

In theory, getting homeowners to accept a free lead service line replacement should be easy. The new pipes can reduce the risk of lead in drinking water and increase property values.

But after launching its voluntary program in 2016, Greater Cincinnati Water Works had a hard time getting people to sign up.

Program managers Kevin Kappers and Bridget Patton found that several communication issues were holding them back from meeting their replacement goals. These include distrust of the government, people not answering calls from unknown numbers and struggles to explain the program to residents.

“Some people think it’s too good to be true,” Kappers said about the program, which focuses on areas where GCWW has already planned infrastructure projects, like water main replacements and sinkhole repairs.

“We’re calling to offer a free program that will increase your home’s value and remove a risk,” he continued. “To some people, that raises red flags – and you can understand why.”

That’s why the GCWW team has developed a strategy around a few key concepts: simple language, consistent messaging and community advocates.

But it all starts with building trust.

Trusted community partners

GCWW created its lead program in 2016 following the well-publicized incident in Flint, Michigan . Cincinnati hasn’t experienced anything like the Flint incident but lead pipes do exist. Usually, additives to the water supply protect people from lead, but if those lines get disturbed, the risk greatly increases.

That situation created a potential “mixed messaging” challenge, Kappers said. On one hand, they were telling people their water was safe; on the other hand, they were saying they needed to replace their line.

“The truth is, it’s a little bit of both,” Kappers said. “But we stress that this isn’t about suffering health consequences tomorrow if you don’t do the replacement.”

Initially, the Cincinnati program covered 40% of the replacement cost, up to $1,500. Because the customer still paid the majority, participation rates were low, around 35% Even after replacement became completely free in 2021, the public remained skeptical and customer participation only rose to 50%.

Kappers, a certified engineer, said the topic of lead in water can be a difficult notion to convey to someone who doesn’t have an engineering degree or a chemistry background, especially during a telephone call or in a single email.

To that end, GCWW has worked to simplify its messaging, changing most collateral material to rely on visuals and infographics instead of text. The copy that was kept foregoes technical jargon in favor of easy-to-follow, digestible information. For example, the lead team replaced a multi-page booklet explaining the program with a colorful, two-sided flier that is more visually appealing and much quicker to process.

GCWW’s outreach begins with a colorful postcard to catch their attention (“Something important is coming your way!”), then it sends the actual contract and details of the program via mail.

After that, there are a couple rounds of automated telephone calls to remind customers to check their mail as well as reminder emails and social media posts targeted at specific neighborhoods.

In total, there are about 10 direct touchpoints with homeowners.

“We’re going to blitz the area when we’re working in it, to try to get everybody,” Patton said. “We’re going to hit you with every possible way we can to get the message across.”

Being part of the community

The real key to success, according to Patton, lies in the program’s community-based outreach efforts.

GCWW has made a concerted effort to partner with trusted neighborhood entities to build on its credibility and have them share the program’s benefits with the community. This might include local community council members, church leaders or other respected neighborhood figures.

“We show up everywhere,” Patton said, from local council meetings to major festivals.

These community connections have proven invaluable, especially in reaching residents who may be wary of government outreach, Patton said.

“All of that builds goodwill and trust in the community,” Patton said.

The program’s success stories have also become powerful tools. They lean into those testimonials – using social media to share brief stories of the individuals and families affected on social media posts. They range from a couple thanking the utility making their home safer for their son to a woman outlining the ins and outs of the placement process.

“The lead service line replacement took less than a day,” said program participant Mandy Ackerman. “They dug up the shut-off valve at the street, tunneled under my yard to the house, cleaned up the basement, and came back the next day to seed around the valve.

The East Price Hill then went on to stress that the entire process is free and that there was no disruption to her yard.

“When someone stands up and says, ‘Yeah, I participated, and it was painless,’ that’s really powerful,” Patton said.

Consistent but targeted messaging

Homes affected by lead pipes include both those belonging to the wealthy and those living in poverty. People who’ve struggled financially often become disenfranchised, which has made them more distrustful, according to GCWW.

That’s where personalized outreach becomes important. Many of the residents prefer in-person contact and being able to ask questions in real time, Kappers said. But the key is to make sure it remains consistent.

Even with these strategies in place, the team at GCWW knows that their work is far from over. Reaching residents with language barriers or limited access to technology remains a persistent challenge.

“We’re a known entity for a lot of folks now,” Kapper said. “We show up, we’re there, we’re consistent. And that helps break down those barriers of distrust.”