Milwaukee, WI

Milwaukee, Wisconsin

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Milwaukee, Wisconsin Case Study

Starting in early 2017, Milwaukee Water Works began working to reduce potential exposure to lead in drinking water through a comprehensive plan, aiming to replace roughly 70,000 residential lead service lines. This program provides residents with tools to identify if their home has a lead service line, a filter immediately prior to replacement, and access to free water testing after replacement. Full service line replacement is required for qualifying properties. In 2024 a prioritization program was instituted to accelerate the annual replacement rate. Citywide progress can be tracked through a public dashboard.

Project Overview

In late 2016, former Milwaukee Mayor Tom Barrett signed an ordinance that required full  lead service line replacement under specific circumstances. Replacements began in January  2017. While Milwaukee’s water meets all federal and state water quality standards when it leaves the treatment plant, lead may enter the water from contact with various parts of water infrastructure, primarily lead service lines. Elevated levels of lead can seriously affect all people’s health, but particularly children’s; recognizing this risk, Milwaukee has been proactive in taking steps to reduce the possibility of lead exposure through water.

Background

Project Implementation

Milwaukee’s plan for lead service line replacement takes a holistic approach to solving  this problem, factoring in both immediate risk mitigation and long-term infrastructure improvements:

  1. Address Search: Milwaukee offers an accessible, public repository of lead service line locations so residents can look up if their home or property is serviced by a LSL.

  2. Service Line Inventory and Replacement: Milwaukee Water Works has conducted a thorough inventory of over 70,000 residential water service lines to identify those containing lead or galvanized materials. Identified lead service lines to 1-4 unit residential properties and licensed childcare facilities are replaced at no cost to the owner. Eventually all LSLs will be replaced, but the utility also offers an Owner Request pathway for homeowners interested in pursuing earlier LSL replacement.

  3. Water testing: after LSL replacement, Milwaukee Water Works provides a free water testing kit so residents are sure their water is safe to drink again.

  4. Filter Distribution: Prior to the replacement of a lead service line, Milwaukee Water Works provides free NSF/ANSI certified water pitcher filters to residents.  This measure ensures lead particles disturbed during line replacement are removed from the water supply during the transition period. Milwaukee Water Works also provides residents a voucher for a water filter pitcher if water service is interrupted or the location is within the limits of a pavement reconstruction or sewer replacement project.

Funding

The Milwaukee Water Works has proactively secured funding sources to support its already efficient Lead Service Line Replacement Program, ensuring the initiative progresses without imposing financial burdens on residents.

  • In 2024, Milwaukee received approximately $30 million in Infrastructure Investment and Jobs Act (IIJA), funding via the State of WI DNR’s Safe Drinking Water Loan Program to replace nearly 2,700 lead service lines.

  • Milwaukee received approximately $34 million in IIJA funding to replace 3,500 lead service lines in 2025.

  • Milwaukee applied for $50 million of IIJA funding to replace 5,000 lead service lines in 2026. 

  • Milwaukee previously received funding from Wisconsin’s state-wide Private LSLR Program, funded by the Water Infrastructure Fund Transfer Act (WIFTA). This provided funding to municipalities to assist in their efforts of replacing lead service lines. Any remaining funds will be used in combination with IIJA funding.

  • Wisconsin was chosen as one of four states selected for the EPA’s Lead Accelerators Program, funded with IIJA funds intended to help accelerate the ability of Wisconsin utilities and others across the country to adopt and implement effective, efficient, and equitable replacement programs.

  • The Wisconsin Department of Natural Resources has created a $4 million Lead Service Line Replacement Community Outreach Grant Program, providing financial assistance for community outreach efforts in support of LSLR.

Although Milwaukee has been a leader in lead pipe replacement for years, the funding provided by IIJA has been essential, helping the city double the number of lead pipes replaced in 2024 as compared to 2023.

Milwaukee by the Numbers

  • Lead Service Lines: Wisconsin ranks 9th in the nation for its lead pipe burden, with an estimated 150,000 utility-owned and 134,000 customer-owned lead service lines still in the ground at the end of 2023. Approximately 46% of all service lines in Milwaukee are LSLs.

  • Service Line Replacements: more than 12,000 services have been replaced as of November 1, 2025.

  • Lead Exceedance: As of 2016, 3.3 percent of Milwaukee children tested were reported to have blood lead levels at 10 µg/dL, and 11.6 percent of Milwaukee children tested were reported to have blood lead tests at 5 µg/dL.

Best Practices Implemented

  • ‍Proactive replacement response: Milwaukee has been actively engaged in LSLR since 2017, before the city was awarded federal funds to ramp up replacement. 

  • Comprehensive Planning: The city developed an efficient strategy to eliminate lead exposure risks, including the addition of orthophosphate during the water treatment process, which coats the inside of pipes to inhibit lead release, ongoing water quality monitoring and a long-term LSLR program financed through a combination of local rates, state revolving funds, and federal grants.

  • Objective Replacement Prioritization: Milwaukee’s LSLR program relies on an objective set of criteria to assign a score to every Census Block Group in the city, focusing on areas with the greatest need.

  • Community Engagement: By actively involving residents through accessible resources in a centralized location, Milwaukee empowered the community to fully understand LSLR.

Conclusion

Milwaukee’s dedication to and comprehensive approach to LSLR serves as a model for communities facing similar challenges. Through Milwaukee’s practices of creating public, digital repositories of information, offering free water testing kits, distributing certified pitcher filters, and committing to comprehensive infrastructure improvements, the city effectively protects its residents from lead exposure. Milwaukee’s actions demonstrate the importance of proactive action, long-term planning, and comprehensive understandings of lead exposure and its mitigation in safeguarding public health.

Recommendations for Other Communities

Commit to Long-Term Infrastructure Upgrades: Implement comprehensive LSLR programs with clear timelines and funding strategies to ensure sustainable public health improvements prioritizing vulnerable populations.

Seek Federal Funding: By using federal funding to support the program, Milwaukee Water Works has been able to move faster on their LSLR program while reducing the burden on ratepayers.

Engage the Community: Involve residents in the process through educational initiatives and accessible resources, fostering trust and collaboration.

By adopting these best practices, communities can effectively reduce lead exposure from drinking water and protect the health of their residents.