Turn the electric off to the water heater, remove the upper and lower panels to the thermostats, remove the two wires to each element and check for continuity. If they don't show continuity then you know one of them is defective.
If the tank is around 10+ years old you might have a defective dip tube.
If you have hard water or haven't drained the tank in some time the bottom element might be sitting in sediment/buildup fighting to heat the water.





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