I suspect that much of that 40% are folks who WON’T pay their water bill (but could should they so desire). I’m not heartless, I just live in Realville.
Detroit has had this problem for years, it’s a matter of WON’T pay, they think water is sposed to be free. Well it is free but costs to deliver clean water to your home.
There was TV news stories one lady complaining about the expensive bill had flat screen TV and a PlayStation in the background.
If they prioritized their expenses they could pay the bills. However new designer clothes and other items become more important to certain groups.