Making the State Revolving Funds Work for Everyone: Advocacy, Partnerships, and Progress in New Jersey
The Clean Water and Drinking Water State Revolving Funds (SRFs) are the U.S. Environmental Protection Agency’s largest water infrastructure financing program, providing below-market loans and principal forgiveness for clean water, drinking water, and stormwater projects. The New Jersey Water Bank, a partnership between the New Jersey Department of Environmental Protection (NJDEP) and the New Jersey Infrastructure Bank (I-Bank), administers the SRFs. Because SRF financing is so advantageous, it is critical that these funds reach the communities with the greatest need, including disadvantaged communities (DACs).
EPA requires states to publish annual Intended Use Plans (IUPs) that set the rules for project prioritization, subsidy distribution, and the definition and measurement of DACs. Since 2022, New Jersey Future has reviewed New Jersey’s IUPs and submitted recurring comments to highlight what is working and recommend improvements, grounded in data analysis and informed by ongoing relationships with NJDEP, the I-Bank, and water sector partners, to strengthen the program’s equity outcomes.
Advocacy and Partnership Building are not Mutually Exclusive
New Jersey Future and several partners first weighed in on the IUPs in 2022, offering comments as unprecedented federal funding for water infrastructure arrived through the Infrastructure Investment and Jobs Act. One of the first items NJF raised was that the SRF cannot operate as a passive program while still claiming equitable outcomes. A shift away from a “first-come, first-served” dynamic was needed, and NJF and its partners urged the Water Bank to proactively identify high-need communities and help move critical projects through the planning, design, permitting, and application stages. That same year, NJF and its partners urged the state to use all available tools, within the SRF program and through supplemental funding streams, to make financing more accessible for overburdened communities. This included recommending that American Rescue Plan Act (ARPA) dollars for water infrastructure be used flexibly as grants (not only principal forgiveness) and to fund planning and design so communities could develop “shovel-worthy” projects and compete for future SRF dollars. NJF also emphasized that technical assistance is the bridge between “funding exists” and “communities can actually use it,” recommending proactive support, access to qualified consultants, and assistance across every phase of the SRF process, not as a one-time ARPA strategy, but as a core feature of an equitable Water Bank.
A key ingredient to achieving successful advocacy outcomes has been the diverse partnerships and relationships built through Jersey Water Works (JWW), a statewide collaborative of organizations and individuals working toward the shared purpose of transforming New Jersey’s water infrastructure. NJF is both the backbone organization for JWW, convening and facilitating its many moving parts, and an engaged member of the collaborative. Through committees, events, and research collaborations, JWW creates a space where utility leaders, advocates, state regulators, and financing partners can find common ground in that shared purpose while holding one another accountable to it. The relationships built over time through collaboration strengthen the effectiveness of NJF’s advocacy when submitting IUP comments. These partnerships have been crucial to NJF’s success by supporting and providing critical feedback on research and analysis, helping track and interpret annual SRF/IUP updates, shaping practical recommendations, and expanding the network of partners needed to keep advocacy grounded in real-world implementation. NJF also participates in the SRF State Advocates Forum, further strengthening coordination with national and regional partners.
NJF also co-produced a report with the Environmental Policy Innovation Center (EPIC): Improving a Program That Works: Recommendations to the New Jersey Water Bank for Advancing Equity. The report includes a data-driven look at who has historically benefited from the NJ Water Bank and why. The report’s recommendations were informed by focus groups with utility leaders, community advocates, the Jersey Water Works Lead Service Line Replacement (LSLR) implementation group, and the Jersey Water Works Steering Committee. Critically, NJF shared a draft of the report with the Water Bank in August 2023, when the IUPs for the following year were being actively shaped. That “pre-draft” step mattered:
- It demonstrated that the intent wasn’t to “call out” the agencies; it was to help disadvantaged communities and to contribute research capacity that the agency may not always have internally.
- It gave the agencies something actionable while decisions were being made, not after.
- The report also created a tool that other advocates can use, a shared foundation for understanding the SRF and showing up with informed recommendations.
How have the IUPs Changed?
The Water Bank has adopted several significant changes in the final IUPs from SFY22 to SFY26 that align with NJF’s recommendations. Currently, SFY27 is still in its proposal stage and has not been included in this analysis. As of right now, there are no major updates between the final SFY26 IUP and the proposed SFY27 IUP. Below is a list of changes in the IUPs to date:
- Tiered affordability packages / more targeted principal forgiveness
The Water Bank implemented a tiered system (AC1 vs AC2) explicitly designed to provide the most beneficial packages to the most economically challenged communities. - A major expansion of technical assistance through NJDEP (NJ-TAP) and the I-Bank focused on DACs and overburdened communities
The Water Bank created state technical assistance programs that deploy early engineering and engagement support, help communities understand available funding, and provide application/permitting navigation, specifically targeted to affordability-criteria communities and overburdened communities.
- Planning & design grants tied to technical assistance
The Water Bank created a clearer path for DACs participating in technical assistance, making them eligible for significant planning and design grants and guaranteed principal forgiveness. This change is also an example of maximizing allowable SRF set-asides—an approach NJF has consistently recommended to help communities build “shovel-worthy” projects and access funding.
- Fee relief for communities receiving PF/grants
The Water Bank clarified that sponsors receiving only PF or grants do not need to pay the Water Bank loan origination fee.
- Maintaining/strengthening workarounds for credit barriers (e.g., “Sponsors Under State Supervision”)
The IUPs include a pathway for 100% allowable-cost loans for municipalities under state financial supervision, even when they don’t meet I-Bank credit policy.
Changes in Progress
- Customer cost share for LSLR
NJF and its partners have argued that cost share is inequitable and discourages full replacement. The Water Bank has not prohibited it outright as an SRF condition, but does require that principal forgiveness be applied to the customer-owned portion when applicable, to reduce or cover the customer’s share.
- Affordability reform discussions are happening, but the formula is still MHI-dominant
The Water Bank has acknowledged concerns with the SRF Affordability Criteria metric and held a stakeholder focus group to discuss possible changes. In SFY26, the Water Bank refreshed the source data using 2022 census figures and raised the eligibility threshold from 80 to 86.19, expanding the number of eligible municipalities from 130 to 141. But the methodology still relies primarily on median household income (MHI), with unemployment and population trends serving as limited adjustments, rather than a more comprehensive hardship measure such as the Municipal Revitalization Index (MRI).
Continuing Priorities for Improving SRF Access and Affordability
These are the major recommendations that remain unresolved (as of final SFY26 IUPs):
- Maximize federal SRF set-aside funds to support regionalization studies and implementation (e.g., feasibility analysis, governance/legal work, engineering planning, and start-up costs) so small and disadvantaged systems can pursue consolidation or shared-service models that improve long-term affordability and capacity.
- Elimination or sharp restriction of Congressionally Directed Spending, also known as earmarks, that bypass normal priority-setting and disadvantage DACs.
- The Water Bank has implemented a two-tier approach (e.g., AC1 vs. AC2) to direct greater benefit to the most disadvantaged applicants. NJF continues to recommend more robust, multi-tier sliding-scale assistance that better aligns with actual affordability constraints and differentiates support across a broader range of financial hardship.
- The Water Bank has expanded the use of interest-free financing within affordability packages. NJF continues to push for broader and more consistent deployment of 0% loans as a standard affordability tool across categories, so assistance is not limited to a narrow set of funding packages.
- DEP has introduced important credit-access workarounds and exemptions to help more borrowers qualify. NJF continues to advocate for a more durable, systematic creditworthiness pathway (and, where needed, authorizing tools such as credit enhancements/alternative underwriting) so that communities with the greatest need are not blocked by credit barriers year after year.
Why these Efforts Matter
The SRFs are one of the biggest levers New Jersey has to advance public health and equity, but they only work if all water systems can access them, especially those serving communities with the greatest need. NJF’s approach has been consistent: do the research, show up every year, and push for practical changes that reduce barriers. Just as importantly, this advocacy is most effective when done in partnership, through sustained, open dialogue and relationships built over time across utilities, community advocates, NJDEP, and the I-Bank, so real implementation challenges inform recommendations and can translate into durable program improvements.
The SFY27 IUPs are still in the proposal stage, and NJF has already submitted comments with recommendations with the same requests and themes previously submitted, as well as attended public comment hearings and verbally provided recommendations. Overall, the IUPS are moving towards more targeted subsidies, more technical assistance, clearer pathways for DACs, and a growing recognition that “equity” has to be baked into program design, not just stated as a goal.
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