All very valid points. A water meter was optional for the longest time at least in private and two-family homes.
The frontage charge (a flat rate for unlimited usage) crept up every so slowly, but steadily. Word eventually got our that a water meter resulted in SMALLER water charges.
You'd be amazed at how quickly homowners "opted-in" to have one installed. Manipulative genius, AND the installers were not overwhelmed with a RUSH.
Logic was, at first, that the city did not want poeple living in such close proximity to one another to fear the cost of water. WASH! CLEAN! BATHE, USE IT! It was believed to be in the interest of public health, hygiene and sanititation to have very inexpensive water
As I have said WAY too many times before, if it ever stopped raining in this area, specifically Long Island, there would be still literally 150 years worth of water in the ground.