Water production statistics!

We just received our Consumer Confidence Report from our Water Department. It states that we consumed 894 million gallons of water. Residential 566 million and commercial/industrial 126 million. The report states that 19.6% is unaccounted for. Using their figures (894-566-126=202) the percentage is 22.5%. How can over 200 million gallons of water be "unaccounted for". What is worse is that the percentage of "unaccounted for" water is 31% more than last year. Based on our exorbitant water rates, that is an extreme amount of money being washed away. Didn't we just have star of the art water meters installed throughout the distribution system? Who is held accountable for the lost income due to the "unaccounted for" water?