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Why is the rate flat instead of being based on consumption?

based consumption flat rate
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Why is the rate flat instead of being based on consumption?

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Simplicity, efficiency and economy. Roughly 90% of California sanitation districts use flat rate for their residential customers. Consumption based billing would require every household to install an irrigation water meter to separate irrigation water usage from water flowing to the sewer. A household water meter installation costs approximately $3,000.

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