In my work (municipal govt) often times it's not that they "can't" pay the water bill, it's that they're too busy, too lazy, too disorganized, or they just plain lose the little postcard bill and then forget it until no water comes out of the tap. I've worked in several cities/towns - all of them have a policy that IF someone who truly can not pay before their service is scheduled for disconnect, they simply call in to the water department and make arrangements to pay the past due amount on a particular date when they will have the funds and no interruption in service is experienced. People wouldn't believe how many CPAs, doctors, attorneys have their water shut off for non-payment.... uhhhh, they have the money - just not the personal organizational skills to take care of their own finances and business.