The bore sample taps were used by council staff to test the water and were not intended for public access, the report said.
The water from the sample taps could contain fluoride and the council had recently put up signs making that clear.
Angela Hair, of the Fluoride Free Hastings group, said she was aware of people visiting the bore sites to fill up containers for their week's supply of water.
"Generally on a Saturday morning around 10 o'clock there is a group of people that go down there, turn the tap on and get their water," she said.
Four independent sample tests had been done on the water taken from the bores and all had indicated only low background levels of fluoride, "so we were pretty confident it was not fluoridated," she said.
Mr Chapman's report said the unauthorised taking of water from the bore taps was "at a relatively low level but will continue until a more practical solution is found or the ability to obtain water from the bores is removed".
To solve the problem, staff are proposing spending about $28,000 on public unfluoridated water "filling stations" at two bore sites: Eastbourne Street and Frimley Park.
Ms Hair said the filling stations were a good solution.
"Given where we're at right now it's the best we can do. We're happy that people will have, hopefully, an option to be able to get fluoride-free water," she said.
"We'd love to see it in Flaxmere as well but at the moment two options will be better than no options."