EPA
United States
Environmental Protection
Agency
Office of Water
WH-550
EPA810-R-92-001
October 1992
EPA's Ground Water and
Drinking Water Program:
Making a Difference
.,* Printed on recycled paper
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EPA's Ground Water and
Drinking Water Program:
Making a Difference
Annual Report
October, 1992
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A Message From the Director
Protecting the nation's ground water and ensuring the safety of our drinking water is
at the heart of the Environmental Protection Agency (EPA) mission. In 1992, EPA
revitalized its commitment to safeguard ground water—one of nature's finest gifts—
and continued to make progress in fulfilling the promise of safe drinking water under
the federal Safe Drinking Water Act. Through a partnership with states, local govern-
ments, water suppliers, and professional and citizen organizations, the vision
of clean ground water and safe drinking water for all Americans is becoming a reality.
Making a Difference is the first Annual Report highlighting the successes of EPA's
newly formed Office of Ground Water and Drinking Water and its counterparts in
the EPA Regional Offices. The report chronicles a year of change and progress and
describes plans for meeting the many important challenges facing the program.
Building on past accomplishments, our program is now tackling the most important
remaining threats to ground water and drinking water. Continued success will depend
on our ability to strengthen our partnership with the states and all of our "customers,"
including local ground water managers and water suppliers.
Ultimately, our customers are the people who demand safe, high-quality drinking
water in their homes and expect sound stewardship of the nation's precious reserve of
clean ground water. I look forward to the challenge of meeting these expectations and
hope that this report helps to show how EPA's ground water and drinking water
program is providing leadership in protecting our health and environment.
James R. Elder, Director
Office of Ground Water and
Drinking Water
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EPA Regional Offices
4 —Alabama
10 —Alaska
9 —Arizona
6 —Arkansas
9 —California
8 —Colorado
1 —Connecticut
3 —Delaware
3 — D.C
4 —Florida
4 .— Georgia
9 —Hawaii
10 —Idaho
5 —Illinois
5 —Indiana
7 —Iowa
7 —Kansas
4 —Kentucky
6 —Louisiana
1 —Maine
3 —Maryland
1 —Massachusetts
5 —Michigan
5 —Minnesota
4 —Mississippi
7 —Missouri
8 —Montana
7 —Nebraska
9 —Nevada
1 —New Hampshire
2 —New Jersey
6 —New Mexico
2 —New York
4 —North Carolina
8 —North Dakota
5 —Ohio
6 —Oklahoma
10 —Oregon
3 —Pennsylvania
1 —Rhode Island
4 —South Carolina
8 — South Dakota
4 —Tennessee
6 —Texas
8 —Utah
1 —Vermont
3 —Virginia
10 —Washington
3 —West Virginia
5 —Wisconsin
8 —Wyoming
9 —American Samoa
9 —Guam
2 —Puerto Rico
2 —Virgin Islands
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)duction
Introducing the Ground Water and
Drinking Water Program
While many parts of the world are still plagued by the outbreak of waterborne diseases,
most Americans take safe drinking water for granted. Yet the forces of nature com-
bined with human activities in a modern, industrialized society present many threats to
the quality of our drinking water supplies and the sustainability of our ground water
resources.
Allied with EPA's Regional Offices, EPA's Office of Ground Water and Drinking Water
(OGWDW) is making a difference in protecting the nation's water supplies for today
and the future. However, EPA's ground water and drinking water program is only
part of the picture. Water quality depends on a partnership involving the federal
government, states, local communities, and water suppliers.
EPA sets standards for drinking water quality and requirements for treatment under
the federal Safe Drinking Water Act (SDWA). There are now 84 standards established
to control both manmade and naturally occurring contaminants. Through the SDWA-
authorized Public Water Supply Supervision program, all systems must comply with
these standards and treatment requirements. In most cases, states have the primary
responsibility for oversight and enforcement. EPA supports states through grants and
technical assistance and, if necessary, enforces SDWA regulations.
To protect ground water, EPA is implementing its Ground Water Strategy for the 1990s.
OGWDW and the Regional Offices are leaders in implementing this Agency-wide
effort. The strategy emphasizes pollution prevention and draws upon federal environ-
mental laws that control solid and hazardous waste, pesticides, surface waters,
underground storage tanks, and waste cleanup as well as drinking water. As part of a
new initiative, the Comprehensive State Ground Water Protection Program, states are
beginning to integrate all federal and state programs that relate to ground water. To
help build the foundation for this program, the Regional Offices awarded $12.2 million
of Clean Water Act funds in 1992 through negotiated grant agreements with states.
Two prevention-oriented ground water programs — the wellhead protection program
and the underground injection control (UIC) program — are authorized by the SDWA
and implemented by OGWDW and the Regional Offices. The wellhead protection
program helps states establish locally managed pollution prevention efforts in areas
where water wells may be threatened. The UIC program regulates the disposal of
waste through injection wells, thus preventing pollution.
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tents
Introducing the Office of Ground Water and Drinking Water
1. Protecting Public Health and Environment 1
2. Strengthening State and Indian Tribe Programs 7
3. Helping Localities 11
4. Promoting Technical Excellence 15
5. Enforcing the Rules . 17
6. Providing International Assistance 21
7. Building Partnerships with Customers 23
_^
8. Managing for Success 25
9. Anticipating Future Challenges 27
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Chapter
Detecting
>ublic Health
md the
•nvironment
The ground water and drinking water
program is making a significant difference
in protecting public health and the
environment. The program regulates
200,000 of the nation's public water
supplies, controls underground injections
in nearly a half-million wells, and with a
renewed emphasis safeguards ground
water, a growing source of drinking water
and an important ecological resource.
Protecting Health
OGWDW establishes regulations to
control contamination of drinking water
provided by public water systems
(see Figures 1 and 2). As a result of the
regulations, waterborne diseases have
been drastically reduced (see Table I).
In 1992 the ground water and drinking
water program focused on implementing
the new lead and copper rule and the
nitration and disinfection regulations for
surface water systems. The Regions and
OGWDW strengthened assistance to
states and local water systems to achieve
compliance with these and other rules
and continued developing new regula-
tions to meet the mandates of the SDWA.
Lead and Copper
As a major program focus in 1992, the
ground water and drinking water staff are
working to get the lead and copper out of
drinking water. In 1991, when EPA set
new standards to reduce the level of lead
in drinking water, Administrator Reilly
announced that "approximately 600,000
children will have their blood lead
content brought below our level of
concern because of these standards."
Lead in drinking water contributes
approximately 20 percent of total lead
exposure in young children and can cause
a reduction in their IQ levels.
The new lead and copper rule requires
public water suppliers to evaluate tap
water, follow treatment requirements,
install or improve corrosion control as
needed, and educate the public about how
to avoid high lead levels.
Because of the complexity of the rule,
Regional Offices and OGWDW held
implementation workshops in 1992 for
all states, involving hundreds of state
officials. In turn, several states have
conducted workshops for public water
system operators. OGWDW issued
Figure 1. Regulated
Public Water Systems
60,000 community
systems serve
residential
/ customers
114,000 serve
visiting populations
at campgrounds
and rest stops, etc.
25,000 serve
year-round
businesses
and institutions
OGWDW Annual Report
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monitoring and treatment guidance for
operators of large, medium, and small
public water systems, as well as guidance
on the conduct of material surveys,
corrosion control, monitoring, and public
education.
In early 1992 the ground water and
drinking water program notified all large
water system operators in the country of
their responsibility to start monitoring for
lead and copper. Early returns from these
operations indicate that many systems
will need to'reduce lead levels. To assure
compliance with the lead and copper
monitoring and treatment requirements,
OGWDW issued enforcement guidance in
the spring of 1992 that urges EPA and
states to concentrate first on those systems
presenting the greatest potential health
risks from lead.
In addition to traditional implementation
approaches, OGWDW and the Regions
are using public education to protect
public health. One highlight of the lead
education effort is the Region V and
Purdue University educational software
program, "Lead Contamination Informa-
tion System," being used to inform the
public about lead contamination in
drinking water. The program provides
simple steps to help consumers minimize
their exposure to waterborne lead.
Pathogens
Perhaps the most prevalent drinking
water problem is the presence of disease-
Table 1. Estimated Health Benefits of Drinking Water Regulations
Lead and Copper Rule: Protects an additional 600,000
children from unsafe lead levels
Surface Water Treatment Rule Eliminates 83,000 illnesses
plus Total Coliform Rule:
Organic and Inorganic Chemicals Prevents 400-700 cancer cases a
Regulations: year
Radionuclides Rule (Proposed): Will prevent 80 additional cancer
cases a year
causing microorganisms in source wa
To address this problem, the ground
water and drinking water program is I
moving aggressively to implement thl
surface water treatment rule, which
establishes criteria for filtration and
disinfection of surface water systems.)
Filtration protects against pathogens 1
pose a significant threat to public hea
One of these pathogens, Giardia, caus
severe gastrointestinal illness and i
lead to deetth from dehydration. The
requirement for filtration, coupled •>
the total coliform rule, is expected to I
eliminate more than 83,000 cases of iT
a year.
In 1992 states were required to deter
which of their unfiltered surface wat^
systems would need filtration. Regie
II, and X have the majority of the nat
unfiltered water systems and were
involved in helping the states make 1
determinations. EPA Regional Offic
have found indications that 75 perc
the unfiltered systems serving 10,0001
more people wUl be required to filterl
Enforcement of the surface water trea
ment rule will be a high priority as 1
requirement to filter becomes effectiv
1993. In preparation for 1993, OGV ~
has already issued enforcement guidd
for use by Regions and states. In add!
Regional Offices are working closely j
states to respond to violations. For
example, Region I staff assisted the Si
of Massachusetts to issue notices of
violations to 33 systems and joint EPJ
state letters have also been sent, notif
systems of their obligation to comply
surface water treatment requirement:
offering to work with systems to ensil
compliance.
Adoption of Rules
Adopting new rules poses a challengl
states (see Section 3). After EPA publ
tion of a new drinking water regulatil
states update their own state laws to [
reflect new federal directives. Once al
adopts the new rules, EPA can grant [
authority, or primacy, to the state for|
implementing the federal law.
To encourage state primacy, OGWDl]
and the Regional Offices are working
state programs to adopt standards <
regulations and enhance their enforc
2 OGWDW Annual Report
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Chapter 1
Regulatory Negotiations: A New Approach
To avoid the potential time and
tesources expended for litigation,
peveral programs at EPA have used a
Dllaborative decisionmaking process,
negotiated rulemaking, to involve
Stakeholders in developing new rules.
" i process leads to rules that are
kgreed upon in advance by parties with
pften conflicting points of view. Draw-
ig from the experiences that other EPA
brograms have had with this approach,
JGWDW is exploring the use of
Regulatory negotiations for the disinfec-
nts and disinfection by-products rule.
jWDW published a Federal Register
Kotice in September of 1992 seeking
it and implementation capabilities.
: pace of state adoption is a measure of
bgress in implementing the SDWA.
"are, the Regions and OGWDW
bnsored workshops and worked closely
" i states to adopt regulations for
jithetic organic chemicals (SOC) and
rganic chemicals (IOC), a major
|phasis in 1992. Of the 15 states that
Dpted the SOC/IOC regulation to date,
adopted it in 1992. Table 2 outlines
; progress in adopting the rules and
Jeiving EPA approval for primacy.
Rules Development
ay 1992, OGWDW issued drinking
|ter standards for an additional 23
uc and inorganic contaminants,
lluding pesticides, some of which may
se cancer.
•further protect public water supplies, a
Tulation is under development to limit
[ concentrations of disinfection by-
pducts in drinking water systems. This
Tulation poses a unique dilemma for
blic health protection. On one hand,
' rfection is needed to control patho-
> that cause serious illness. On the
ler hand, by-products of the disinfec-
li process may react with organic
Itter in the water to form cancer-
ping substances. It is a major challenge
flevise a rule that balances these risks
I provides the greatest overall public
ilth protection.
public comment on the feasibility of
using the negotiated process and held
a public meeting with potential partici-
pants shortly thereafter. ,
A new approach was also used by the'
underground injection control program,
where OGWDW established a federally
chartered advisory committee to ,
recommend changes to regulations for
injection wells associated with oil and
gas production. The committee/which
included broad representation, recom-
mended changes mat will provide
greater environmental protection.
Significant progress has been made on
several other rules:
• A pre-draft ground water disinfection
rule was issued to obtain early public
comment prior to formal proposal. A
computerized model is being used to
help develop this rule.
• A new regulation on arsenic is now
under development. Arsenic is a
known human carcinogen found in
water supplies primarily in the western
part of the country.
• A regulation covering numerous
synthetic organic and inorganic
contaminants is scheduled for proposal
in June 1993.
• Work is under way that will lead to the
development of a final rule covering
radionuclides. Currently OGWDW is
reviewing more than 600 comments on
the radionuclides rule proposed in
July 1991.
The formulation of these regulations
depends upon the expertise of OGWDW
and other EPA staff. Components of the
rules include health assessments, esti-
mates of occurrence of illness throughout
the United States, analytical methods for
identifying the presence of contaminants
in drinking water supplies, treatment
technologies for reducing contaminant
levels, and economic impact analyses for
complying with regulatory requirements.
Safeguarding the Environment
Almost half of all Americans rely on
ground water as their drinking water
source, and the value of ground water
for sustaining ecosystems is increasingly
appreciated. At the same time, ground
water is being threatened by contamina-
tion from poor agricultural practices,
leaking underground storage tanks,
faulty septic systems, improper landfills,
misused injection wells, and other
sources.
Table 2. National Primary Drinking Water Regulations: State Adoption/Primacy
Rules
Volatile Organic ;
Chemicals (VOC) ;
Public Notification .
Total Coliform
Surface Water Treatment:
SOC/IOC
Lead/Copper
States
Adopted
(No.).
,55
•55
46
43
15
1,
Total State
States Primacy Approvals
w/Primacy in 1992
(No.) (No.)
39
NA ; :=
ft"''"
10
12
9
8
NA
1
"includes U.S. territories and District of Columbia
OGWDW Annual Report
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Because of growing concern over ground
water contamination and the absence of a
coordinated federal response mechanism,
EPA published the Ground Water Strategy
for the 1990s last year. The strategy
emphasizes pollution prevention, inte-
grates authorities under several laws, (see
Figure 3) and fashions a comprehensive
approach to protecting ground water
resources. The centerpiece of the strategy
is assistance arid support to states in
developing and implementing Compre-
hensive State Ground Water Protection
Programs.
Integrating Programs
To promote integration under the Strategy
for the 1990s, EPA established a "regula-
tory duster" staffed by OGWDW to
review all EPA regulations affecting
ground water. In addition, a policy
committee of high-level Headquarters and
Regional Office managers was formed to
guide overall implementation of the
strategy.
OGWDW is working through a new
ground water '"regulatory cluster" to
incorporate Agency principles into
regulations including, but not limited
to, shallow well injection disposal of
industrial and municipal wastewater,
septic system drainfields, and auto-
motive service station waste oils and
solvents. As another part of the Agency's
ground water integration efforts, ground
water data collected under various
environmental statutes are becoming
more standardized.
The strategy calls for greater reliance on
states to set priorities and guide imple-
mentation of EPA ground water laws. To
Figure 3. Integrated Laws Protecting
Ground Water
Figure 2. Regulated Universe of Community Water Systems
Size of System % Systems %Population Served
Over 3,300 pop. 13% 89%
Under 3,300 pop! 87% 11%
Totals 59,000 -232 million
Solid and
Hazardous
Waste
Drinking
Water
Pesticides
Toxic
Substances
Coastal
Zone
anagement
Superfund
Clean
Water
Clean
Air
accomplish this goal, the ground water |
and drinking water program assists in
identifying threats to ground water;
locating vulnerable areas.
Protecting; Wellhead Areas
The aim of the wellhead protection
program is to prevent pollution before:
threatens ground water. Under the
SDWA, states are charged with develot
ing wellhead protection programs that
reduce threats to ground water by I
identifying and managing recharge area
associated with wells or wellfields and'
addressing sources of contamination.
Despite only limited federal financial
assistance, 26 state programs have bee
approved (see Figure 4). Texas' innovaJ
tive use of senior volunteers to assist ii
locating contaminated sources has
become a model for communities natioi|
wide. Arizona's program, the first
approved statewide program in Regie
IX, is being used as a model to encoural
other western states and territories to
develop wellhead programs.
This year EPA Region II completed a pi
project in Cortiand County, New York,!
that shows a successful integrated effor
to protect ground water, by focusing
primarily on wellhead protection. By
coordinating with federal, state, and
county officials, EPA enhanced local
capacity and increased public awarenea
of aquifer vulnerability. The project
4 OGWDW Annual Report
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Chapter 1
Ided inspections of 127 injection
(ties, 15 solid waste landfills, 11
Irground storage tanks, 13 spill sites,
fe number of potential and existing
Irfund sites. Moreover, a permanent
raphic information system was
* oped. The success of this project has
i similar Region II initiatives in other
| York counties.
trolling Underground
ctions
igh the underground injection
al (UIC) program, EPA and states
kge underground injection wells (see
e 5) used for a variety of purposes,
Iding the disposal of hazardous and
|cipal waste and waste from oil and
perations and mining. The program
Ires that injection operations apply
|onmental safeguards that protect
3und sources of drinking water
Table 3).
: Ground Water; A Valuable Resource
Ground water comprises .more than ,.
95 percent of the fresh water on earth "
(excluding the polar ice caps and
glaciers), Itprpvide^drinMngwater -
for 40 to 50 percent of the United ,
States population, supports •
approximately 40 percent of the
surf ace water stream flow, and is vital '
' lor a variety of industrial, agricultural,
',< and ecological uses. Despite its ,, '
importance,, debate continues on basic
ground water management issues:
1 Who "owns" ground water? Who is'
responsible for protecting it? For ^
whose benefit? "' - , ^ < f
" Wliile some of these issues may -
remain, undecided for years, EP.A has'
moved forward with'it'
1990s, wWch reaffirms the need fpr ' s
, statesjtp take a leadership role Iri »-
identifying ground water priorities- -,
,'and guiding protectiorf efforts. TQ be ,
successful, states need to use the best ,
- available sciertfific'toolsj iridudiitgup'-
tq-date ground water assessment ' •
-methodologies and data-management"" -
systems, ThrougB the support of
research and conferences, such as-the ,
, First International 'Gonferen.ce on
Grounci Water Ecology held in April ',
,1992 and a conference soti the value of -
ground water held;in October 1992, -
OGWDW is' helping^o^advance "
.understandjng of ground water, and of
ways to protect it in society's best %
interest.' « • ,'",".--'
Igure 4. States with EPA-Approved Wellhead Protection Programs
prior to FY1992
(includes Puerto Rico)
in FY 1992
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Currently the UIC program is revising
rules for oil and gas operations to enhance
safeguards on their operations. For the
shallow injection wells, regulations are
under development to help eliminate the
disposal of industrial wastes and other
potentially harmful practices, such as
those involving service station drainage
wells. The UIC effort also emphasizes
OGWDW's interest in maximizing
ground water protection through
integration with waste programs under
EPA's Office of Solid Waste.
While new regulations are being
developed, Regional Offices have initiated
numerous ongoing shallow injection well
activities including outreach, technical
assistance, permit call-ins, and
enforcement actions. All of these efforts
focus on preventing pollution before it
reaches drinking water supplies.
Among other 1992 accomplishments,
OGWDW issued three major UIC guid-
ance documents on follow-up procedures
for mechanical integrity failure; operating,
monitoring, and reporting requirements
for commercial salt water disposal wells;
and managing and monitoring oil and gas
wells with a '"temporarily abandoned"
status. A final rule clarifying require-
ments for wells authorized by rule,
financial responsibility, mechanical
integrity, and data submittal is expected
to be published early next year. In
addition, EPA was upheld in a legal
challenge to the approvals of no-migra-
tion petitions for Class I hazardous waste
injection wells.
Table 3. UIC Regulations
Type
Well
Class
Status
I
II
III
IV
V
Hazardous wastes or industrial and
municipal wastewaters
Related to oil and gas production
Solution mining
and mineral extraction wastes
Regulated
Regulated
Regulated
Shallow radioactive or hazardous wastes Banned
Nonhazardous shallow injection
well wastes
Regulations
under
development
in 1992
6 OGWDW Annual Report
Figure 5. EPA and State UIC Programs
| State
Primad
| EPA
Prima
ssi « a
Guam CNM1 American Samoa Palau Puerto Rico
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Chapter 2
Strengthening
>tate and
Indian Tribe
^rograms
The states are critical links between EPA's
water quality requirements and the reality
of safe drinking water and dean ground
water for all Americans. The ground
water and drinking water program helps
states and Indian tribes develop the
capability to implement and enforce
programs that ensure high-quality water.
To protect ground water, control
improper underground injections, and
ensure safe drinking water, the program
provides grants, technical assistance and
information, and training to state and
Indian programs.
Protecting Ground Water
As part of the Strategy for the 1990s, EPA is
beginning to actively assist states to take a
comprehensive approach to preserving
ground water resources. Recently EPA
cooperated with states to profile and
assess state activities to develop a baseline
of information. This information will be
used to identify gaps in protection
programs. The Agency is now providing
technical assistance to strengthen state
programs, reviewing and approving
bmitted
assistance to support ground water
protection activities.
State Guidance
OGWDW and the Regional Offices kicked
off the development of comprehensive
state programs with a series of roundtable
discussions among EPA and state offi-
cials. These discussions led to the 1992
draft National Comprehensive State Ground
Water Protection Program Guidance, which
describes coordination among all Agency
ground water work and aims to protect
the resource by preventing pollution.
More than 700 state and Indian tribal
officials participated in 13 meetings to
develop guidelines that include setting
goals and documenting progress, charac-
terizing and setting priorities for ground
water, developing and implementing
prevention and control programs, and
clarifying federal and state roles (see
Figure 6). Hundreds of comments from
states and other organizations are now
being reviewed.
The intent of the guidance — to promote
comprehensive ground water
protection—is a concept already being
Figure 6. Comprehensive State
Ground Water Protection
PUBLIC PARTICIPATION
IMISPDISISIBILITIIS
IM PLEM ENTAtrbWllll
OGWDW Annual Report
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implemented under the pesticide and
ground water state grant programs and
by the Office of Water effort to protect
watersheds. Ten states and two tribal
governments are being selected for
projects to demonstrate effective compre-
hensive ground water protection pro-
grams and to show the relationship
between the comprehensive ground water
protection and the watershed protection
approaches.
State Ground Water
Protection Programs
As part of its effort to assist state ground
water protection programs, OGWDW
developed case studies, produced training
materials, held workshops on transporta-
tion-related sources of contamination, and
developed a case study guide for plan-
ners. In addition, a special UIC grant
program has accelerated integrated
ground water protection efforts by states
and Indian tribes. These projects are now
showing successes such as improved
operational controls and design criteria,
new information systems, and techniques
for using computerized geographic
information. In Missoula, Montana, for
example, a computerized data base of
area shallow wells was established, with
a special focus on wellhead protection
areas.
Region VI awarded its first multimedia
grant to the Cheyenne/Arapaho tribes of
Oklahoma to protect ground water and to
educate the public about how to protect
wellheads. The tribes have already
conducted inventories of contaminating
sources and identified new well sites.
They have also conducted workshops
using tools for local government adapted
to tribal needs and have educated stu-
dents by producing informative book
covers and "Kidswheels" on hazardous
household products.
Other Regions also worked successfully
with states during 1992:
• The Pennsylvania Ground Water
Policy Education Project, which in-
volves experts from Perm State
University and leaders from the
League of Women Voters, is educating
the public and local officials while
implementing ground water protection
initiatives around the state.
• Through federal, state and local
cooperation, West Virginia and
Pennsylvania are successfully
protecting ground water through I
coordinated pesticides managema
wellhead protection projects. Usii|
geographic information systems 1
target 'vulnerable areas, these pr
serve as models on methods for
determining areas of vulnerabilit
applying best management prac
• The Idaho Ground Water Qualit
Plan was unanimously passed;
two years of concerted legislative
effort. The comprehensive plan
recognizes the importance of join|
federal, state, and local manag
of ground water resources.
• Several Regional Offices are
cooperating with states to me
"Farm*A*Syst," a joint EPA-Dep
and drinking water program award!
$1 million in grants for 25 demonstrl
projects to states, local communities!
universities.
Following are some examples of the|
innovative projects:
• Region. VH is addressing probler
\ related to unplugged injection wd
an effort to prevent pollution. Un
plugged wells act as a direct cond
for contaminants to enter ground
water. It is estimated that as man|
10,000 unplugged wells might <
one area of Kansas alone.
8 OGWDW Annual Report
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Chapter 2
Region DC is supporting a multi-agency
field study of increased salinity in the
sandstone aquifer in the Aneth Oil
Field area of the Navajo Nation. The
$750,000 four-year study will help
determine if the salinity is associated
with the production of oil.
In an effort to combine underground
injection control and ground water
protection, Region VET is funding a
senior environmental employee to
provide technical assistance to
Colorado communities for developing
wellhead protection. The employee is
I helping with an inventory of high-risk
injection wells, an activity that will
lead to either local closures or permits,
as appropriate.
I addition to funding innovative
lojects, OGWDW and the Regions
Jonsor technical assistance and educa-
L programs. One program was directed
yard Spanish-speaking inspectors. To
L these inspectors, the first
lational Spanish-language training
;e on underground injection control
as held in San Juan, Puerto Rico, in May
92.
Improving Drinking Water
Irograms
piping states to implement new drinking
iter requirements and retain primacy is
i priority of the ground water and
•ig water program. To support state
forts, the program is acting on four
its: increasing federal grants to states,
[pporting state efforts to increase
:>acity, setting priorities, and mobilizing
Etside resources.
Grants to States
> help states retain primacy and imple-
nt new rules, OGWDW has increased
iding for state programs. This is critical
ause federal requirements are outpac-
state resources (see Figure 7). The
§ency's fiscal year 1992 budget to
residential request passed by Congress
Intains an increase of almost $9 million,
118 percent, for state grants.
Figure 7. Federal Mandates Outpace
State Drinking Water Program Resources
Federal Mandates - Implementation Costs - Needs
1988
1989
1990
1991
1992
1993
State Capacity Building
States are increasing their own funding
for drinking water programs, as well as
receiving increased federal grants. Most
often they look to alternative funding
mechanisms, such as user fees and service
fees, to generate income. This year, even
though 30 states are experiencing state-
wide budget shortfalls, 20 states have
sought additional funds for drinking
water programs. EPA has been working
through its mobilization strategy and
other efforts to help states develop
revenue sources and increase program
capacity. So far, 14 states have won
increases totaling about $18 million
collectively (see Figure 8).
* [ ' '„ t''- Maintaining Primacf ',.'*'' '.,
The ability of states to manage new,requirements under theSafe Drinking
Water Act is critical to fhe success of fhe program. The ground water and,,
drinking water program, led'by the Regions, is working with'states as they " -
adopt the rules into their own regulations. States,; however, are'finding it , '
increasingly difficult to keep up with Hie new rules. Also working with the '''
ground water and drinking water program are EPA's Offices of Enforcement
and General Counsel, which are being consulted in'case' -a state cannot "meet"
rrunimum^requirements and primacy is returned to EPA. , ^ ' ^ \
One of the major successes was repbrted'by the State of-Idaho, which retained
primacy for the public water supply program after a two-year effort. State and
EPA cooperativesworjc that led to this result included'an Association of State '
Drinking Water Agencies''assessment, a Contractor budget needs assessment,, <
additional EPA funds and staff support, and much wpr^by-Haho's-Drinking 'f
Water Advisory.Committee'and state environmental agency.'" * is
OGWDW Annual Report
-------
The Virginia Department of Health, for
example, has been working with public
interest groups to support both the
retention of primacy and an alternative
funding mechanism to pay for the
drinking water program implementation.
As a result, the legislature passed a fee bill
that is expected to generate $1.7 million in
1993 and $2.8 million in 1994.
The ground water and drinking water
program is also helping to build state
capacity by investing in human resources.
This is exemplified by OGWDW's 1992
award of 41 fellowships to state drinking
water employees to enhance the
capability of state agencies through job-
focused academic credit for their career
employees.
In addition, OGWDW has developed a
national resource model to determine
specific information about resource needs
based on the cost of an activity. Through
the model, states will be able to estimate
costs and resources needed to run their
public water supply program, and EPA
will be able to assess needs nationwide.
Priority Setting
State costs are likely to continue to
outpace both federal and state increases.
To help states manage the workload while
maintaining adequate public health
protection, OGWDW has set priorities
based on risk. In cooperation with
Regions and states, OGWDW established
risk-based goals for the public water
supply program in June 1992. This
approach focuses federal and state
resources on the highest priorities for
protecting public health and gives states
time to develop additional resources for
carrying out their programs. It also
identifies the state functions that are
critical for maintaining primacy.
Mobilization
The ground water and drinking water
program is continuing its successful effort
to mobilize outside resources and to
facilitate partnerships among EPA, states,
and other organizations. This year
OGWDW and the Regional Offices
streamlined and focused the mobilization
strategy. The new strategy identifies three
initiatives for concentration: state capac-
ity, small systems, and public education.
(See State Capacity Building above and
Helping Localities below; many of these
activities are organized as part of the
mobilization effort.)
To spread the word, OGWDW published
four issues of a new progress report that
keeps members of the mobilization
network in touch with one another and
highlights successful efforts. In addition,
case studies described in Meeting the
Challenge focus on small system restruc-
turing and viability. To date, more than
5,000 copies of two compendiums of
Meeting the Challenge have been distrib-
uted to Regional Offices, states, localities,
and organizations.
Figure 8. State Drinking Water Programs That Increased Funding
in 1992
I Appropriations Increases in 1992
I User Fee Increases in 1992
The mobilization coordinators in each
Region facilitated the efforts of state
advisory committees and task forces and
industry and advocacy groups, which arj
increasingly active in promoting state
program priorities. Their efforts are
reflected in the many successful activitie|
documented throughout this report.
Drinking Water Programs
for Indian Tribes
EPA published rules in 1989
making it possible for Indian
tribes to apply as states for
primacy to run their own
public water supply programs.
This year, a series of ten
educational workshops was
concluded and $240,000 in
development grants were given
to tribes who have "state
status" and are applying for
primacy. Regional Offices have
been actively supporting the
efforts of these tribes to apply
for primacy.
The Minnesota Chippewa
Tribe, for example, with
financial and technical assis-
tance from Region V, is devel-
oping an implementation
program for public water
supplies on the reservation,
and its laboratory is becoming
certified for coliform and
nitrate analysis. In addition,
approximately 30 tribal
drinking water utility manag-
ers and operators from more
than a dozen tribes attended
one of ten workshops spon-
sored by Region IX. The
Standing Rock Sioux Tribe, the
first to achieve "treatment as
a state," has received three
development grants from
Region VIII. The next step is
primacy for the tribe.
10 OGWDW Annual Report
-------
Chapter 3
Hping
>calities
The water supply industry spends more
than $3 billion a year on water treatment,
including compliance with regulations.
But drinking water protection depends
not only on water treatment; it also
requires the protection of drinking water
sources—watersheds, wellhead recharge
areas, and other critical locations.
OGWDW, Regions, and states have been
helping communities around the country
to comply with requirements for safe
drinking water and to protect its sources.
Technical assistance and training are at
the heart of this support. Special assis-
tance is targeted to small communities
that lack the resources needed to comply
with drinking water rules or implement
ground water programs.
Attaining and Maintaining
Compliance
Under the SDWA, both large and small
systems must comply with rules estab-
lished to protect public health. For small
systems, compliance has proven to be a
major challenge. Small and very small
water systems serve less than 3,300 people
and are often located in suburban and
rural areas and in trailer parks (see
Figure 9). About 87 percent of the
systems supply drinking water to 11
percent of the population. The vast
majority of systems are very small;
therefore, as Figure 10 shows, most
violators are very small systems.
Committed to ensuring safe drinking
water for all Americans —no matter
where they live— the ground water and
drinking water program provides help for
all systems. Grants and demonstration
projects show how compliance can be
achieved and help gain public support.
For example, a demonstration project in
Camden, New Jersey, to remove
hexavalent chromium from wells received
an EPA award of $600,000. This project
led to a grant from New Jersey of $8.6
million to build a full-scale facility for
removing hexavalent chromium from the
city's water supply.
To improve small system compliance,
restructuring and consolidation efforts are
being promoted as a major emphasis of
the mobilization strategy. For example,
satellite or contract management—
banding together of several communities
to hire one trained operator, to consoli-
date data management and bookkeeping
services, or to purchase supplies—can
help reduce costs. In some cases, a
complete restructuring may be needed;
Figure 9. Community Water System Size
People Served
n Very Small = 25 - 500
• Small = 501 - 3,300
9 Medium = 3,301 - 10,000
II Large = 10,001 -100,000
H Very Large > 100,000
59,000 Total Systems
OGWDW Annual Report 11
-------
the new Restructuring Manual outlines
how to determine whether restructuring
is needed and tells how to restructure. A
restructuring brochure is now available as
well.
Providing Technical Assistance,
Training, and Education
OGWDW has developed the Composite
Correction Program (CPP), a systematic,
comprehensive approach for identifying
and correcting performance problems in
surface water treatment plants. The CCP
helps operators eliminate the causes of
poor plant performance and minimize
compliance costs by avoiding costly
facility construction.
The CCP techniques, described in a 1992
handbook, have been introduced to EPA
Regional Office and state drinking water
managers through a series of seminars.
After working with the OGWDW CCP
team, several states have incorporated the
CCP into their own programs. Current
program focus is on expanding the CCP
to additional states and to nonregulatory
groups such as consulting firms and other
technical assistance providers. Wide-
spread use of CCP techniques would
greatly improve compliance with the June
1993 surface water treatment require-
ments.
FigurelO. Size of Community Water Systems In
Violation (1991) Total Systems = 16,439
Putting It All Together
J
In Puerto Rico there are about 2!|
small, rural systems with major
compliance problems. To addreJ
this, EPA has worked with Puer|
Rico to develop a strategy that'
combines enforcement, educatic
technical assistance, and most
recently financial assistance.
.'Highlights in 1992 include a nev
revolving loan fund through a
public-private partnership with I
Pharmaceutical Industries AssoJ
tion, the continued demonstratisj
of a slow sand filter process, a
Spanish-language drinking wat
curriculum for students K thrqi
12, and issuance of 40 bilateral
compliance agreements. The
initiative is making a difference|
Quarterly monitoring data for 1"
systems are now being provided
the Department of Health and 1
number of systems in compliansj
showing steady'improvement.
Small
12 OGWDW Annual Report
Very
Small
Medium
Large
Very
Large
The National Training Coalition I
a joint effort of EPA and five associl
tions—American Water Works Ass
tion, Association of State Drinking |
Administrators, National Rural Wa
Association, Rural Community As
Program, and National EnvironmeJ
Training Association—to improve [
training for drinking water system I
operators and to create a communil
and decision-making forum. The I"
developing training coalitions of (
water system organizations respor
for training in each state, beginning
pilot projects in Maryland, Minnes
and Washington. The NTC also prc
a drinking water resources directoij
material to assist in developing anc]
conducting training.
In 1992 OGWDW helped water pla
operators understand new reqv
by distributing six new fact sheets i
water testing, lead and copper, VO|
SQC/IOC, total coliform, and surfJ
water treatment. In conjunction wiif
variety of public and private group
OGWDW is also educating the ]
-------
Chapters
It drinking water issues to help create
pter willingness to support water
eases. Because the average
lold water bill is only about $250 a
L small amount compared with
• utilities—many systems are consid-
: rate increases to offset the cost of
[monitoring and treatment costs.
ill System Assistance
t violations of SDWA requirements
r failing to monitor or meet report-
equirements rather than for exceed-
" ig water standards (see Figure
is is particularly true for small
> with fewer customers to share the
| cost of monitoring. Therefore under
egulations, states have the flexibility
low small suppliers to reduce
poring frequency.
)W has initiated a monitoring cost
' in response to concerns about the
Durdens of regulations on small
is. In addition, OGWDW is seeking
J-term funding solutions for drinking
|r projects through better coordina-
Tianisms, working with the U.S.
it of Agriculture Rural
^Lopment Administration and other
ig agencies.
Special Publications for Small Systems
• Helping Small Systems Comply with the Safe Drinking Water Act: The
Role of Restructuring is a brochure that briefly explains what small
suppliers need to know about restructuring.
H Obtaining Low Cost Technologies for Small Drinking Water Systems,
soon to be published, is a workbook that helps owners and opera-
tors of small drinking water systems evaluate, select, and obtain
appropriate water treatment equipment for attaining and maintain-
ing compliance with the SDWA.
• Consensus Protocol for Evaluation and Acceptance of Alterate Surface
Water Filtration Technologies in Small System Applications, recently
prepared by western states and supported by OGWDW, provides
some uniformity in state approaches.
• Guide for Conducting Contaminant Source Inventories for Public
Drinking Water Supplies helps state and local managers.
• Pocket Sampling Guide assists small system operators needing
guidance on compliance monitoring sampling. It is printed on
water-resistant paper.
Two popular training manuals recently updated and reissued by OGWDW:
• Manual of Small Public Water Supply Systems provides practical
assistance to small public systems.
• Manual of Individual and Nonpublic Water Supply Systems
provides assistance to homeowners with private wells.
:igure 11. Most Violations Are For Failing To Monitor or Report
Total
Systems
with
Violations
71%
Failure to Monitor
or Report
29%
Exceeding Drinking
Water Standards
OGWDW continued during 1992 to
provide training and on-site assistance to
small drinking water systems through
grants and cooperative efforts with
associations that serve small suppliers:
• National Rural Water Association
(NRWA) conducts training and
technical assistance under a new three-
year agreement with OGWDW that
focuses on rural and small public and
nonprofit water supply systems,
including service to mobile home
parks. During the past two years,
NRWA and its state affiliates trained
75,000 people and produced 47 educa-
tional documents, reaching 48 states.
OGWDW Annual Report 13
-------
OGWDW's Bob Blanco discusses drinking water compliance issues in
rural Oklahoma.
• Rural Community Assistance Program
(RCAP) activities include technical
assistance to drinking water systems in
rural and low-income communities.
RCAP has worked with state training
coalitions to train small system opera-
tors. Under a new 1993 agreement, the
focus is on three areas: compliance
training for at least 128 noncompliant
systems in 24 states, information and
assistance addressing small systems
and environmental equity and in-
service training for RCAP field staff. In
the last year, RCAP assisted
morethan!14 communities in 19 stales
and trained 860 people.
• This yearOGWDW began providing
information to and coordinating
activities with the National Drinking
Water Clearinghouse and National
Environmental Training Center for
Small Communities at West Virginia
University. They maintain a toll-free
telephone (800-624-8301) for training
information, provide databases and
educational products, and collect and
develop braining resources.
OGWDW has an active program to
promote lower cost technology. The
initiative uses private donations to
demonstrate the application of conven-
tional and new technologies to meet small
system needs.
The Spicewood, Texas, demonstration
was completed during the summer of
1992, and a final report containing
operational and analytical data has been
produced. In cooperation with industry
and individual water systems, 11 demon-
strations of the effectiveness of low-cost
solutions for meeting drinking water
standards are now in operation or starting
up. A summary report covering all the
projects will be developed when the
individual projects are completed.
Supporting
Ground Water Projects
In its first year of operation, the
OGWDW-funded National Rural Water
Association Ground Water/Wellhead
Protection Program is a big success. More
than 700,000 people are served by 410
communities that are developing and
implementing their own programs. Of
these communities, 163 are managing
their own wellhead protection plans; 26
have contingency plans and are develop-
ing future plans. All are coordinated with
state plans and with UIC, underground
storage tank, and hazardous and solid
waste programs.
Assisted by OGWDW and the Regional
Offices, many local efforts to protect
ground water are under way, including
these examples:
• The Region VI sole source aquifer
program installed an innovative
sewage treatment system at a
Louisiana housing development.
• In Delaware, the state, Region III, i
an agricultural processing firm are
cooperating to develop wellhead
protection in an area of high nitrati
contamination.
To further support community endeal
$1.4 million was made available in 191
communities for wellhead protection [
demonstration projects. These awarda
go directly to local communities, eve
states without EPA-approved wellhe
protection programs.
14 OGWDW Annual Report
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Chapter 4
Demoting
technical
•xcellence
The ground water and drinking water
program commitment to safe drinking
water requires that "safe water" be
defined. Guidelines must tell how to test
water to detect contaminants, how to
recognize what levels of contaminants are
too high to be safe, and how to turn this
knowledge into action. A concerted effort
among government and private-sector
laboratories, researchers, and managers is
necessary to promote and achieve techni-
cal excellence.
improving Methods
As part of its efforts to examine the
quality of data that underpin basic
regulatory decisions, EPA is taking a
closer look at how and why it generates
chemistry data. EPA is also examining the
method and form it requires others to use
for similar information. Currently the
Agency relies primarily on control-based
methods—specified procedures that are
expected to achieve desired results if
followed precisely. Another approach
now under consideration is a perfor-
mance-based method, which would allow
for the use of any procedure or instru-
ment as long as the specified quality of
results is achieved.
noVatiW fe^inpl^o^
^'-tf'iOvfCji^^^
DW staff is 'seektog.btetter- testfmeth6ds Mtdfdpproachesifopde^ctiBgJ ; -tl\.-,
l
.of the Jtotal dplif^rm.^rp^p;' their; pjfesericef in 3Wr|kmg,waterj is j£tr<5ng
^ofj5ecent;sejj^^
6ttist0tai;eblif6rrns and' 'E. Hrfzori I 's'lnsde^ tesfc frfie; test" i&mwle.Mex-?
2art reducfrmbratorMg costs; especially; for 'smaller sVstejtnsUTest kits for' \,
••.': _• „ .SLJ-U -LMlTf? 'ni ;5;...tV_.."..'itT..si:*lt.."i3_-, Hi ,^L-WTW^ »,."». .?*„<-.•• "•-
Collecting Data
EPA is developing data on the chemistry
and toxicology of drinking water disinfec-
tants used in place of chlorine, primarily
ozone and chloramine and their reaction
by-products. Soon many municipalities
will consider using alternatives to
chlorine for disinfection to avoid high
levels of chlorinated disinfection by-
products. Study of these alternatives is
needed to guide their use and efficacy.
A field test of a new and unique EPA-
developed computer model is being
conducted with the American Water
Works Association-Research Foundation.
This first-of-its-kind study will assess
levels of virus contamination in vulner-
able ground waters. This information will
be used to calculate disinfection require-
ments for the development of the ground
water disinfection rule.
OGWDW, in partnership with other
Agency offices, is focusing on ground
water studies of subsurface transport and
fate processes and agricultural processes
that affect ground water. The results of
this research will provide for better
assessments of human exposure to
ground water contamination. New
approaches to managing ground water
quality within wellhead protection areas,
developing methods for detecting con-
taminants, and controlling underground
injections are being explored.
The ground water program is working to
improve ground water data collection
through new guidelines specifying the
type of data that should be reported. This
and other efforts promote the use of
geographic information systems.
In addition, OGWDW revised the High
Plains State Ground Water Recharge
Demonstration Program, Quality Assurance/
Quality Control Plan and completed a Sole
Source Aquifer Background Study Update.
OGWDW Annual Report 15
-------
Certifying Laboratories
In cooperation with Regional Offices and
state certification officers, three well-
attended laboratory certification work-
shops have been conducted. The work-
shops provide an update on drinking
water regulations under consideration as
well as cited methodologies. The work-
shops, mostly self-supporting, are
sponsored by the American Water Works
Association and are of particular interest
to those laboratory personnel who
analyze water for compliance monitoring.
For the first time, Regional laboratory
reviews are being conducted to improve
program coordination. Five reviews were
completed in 1992.
The LabCert Bulletin was published
quarterly in 1992, updating methods and
monitoring rides and other laboratory-
related requirements. A key element of
the laboratory certification effort, the
bulletins are sent to Regional Offices,
states, and the regulated community.
16 OGWDW Annual Report
-------
Chapter 5
iforcing
le Rules
A vigorous enforcement program is
critical for compliance under the SDWA.
In 1992, enforcement became an even
higher OGWDW priority. EPA takes
enforcement action to supplement or
strengthen state enforcement, or when
states do not have primacy. OGWDW and
the Regions work with states to improve
their enforcement authorities and actions
and to ensure that enforcement is a
prominent component of their programs.
During 1992 OGWDW published impor-
tant guidance for taking emergency
action, worked with Regions to issue far-
reaching UIC administrative orders, and
improved SDWA enforcement capabili-
ties. Highlights include developing
guidance on the enforcement of the
surface water treatment rule and report-
ing requirements, issuing an enforcement
strategy for the lead and copper rule, and
developing a settlement policy for the
public water supply program.
As a result of EPA activities, the vast
majority of Americans are served by
community water systems that fully
comply with EPA drinking water stan-
dards (see Figure 12). Of these violations,
most fail to comply with monitoring and
reporting requirements. By the year 2000,
the ground water and drinking water
Expedited Enforcement
\ ^ f K A
Final guidanceissued for emer- ' ,
gency authority under the Safe-
Drinking Water Act, Section 1431/
shows EPA's commitment to
expedite action when risks ares
present or imminent While still in '
ar^early stage, the new guidance -
" has proven to be effective in
fostering creative erif orcement
tools. For instance^ using Section
1431 authority, EPA Region IV,
issued its first drinking water
emergency order to the Mt. Zion,
Alabama, Water Authority,
resulting in rapid compliance, with
the SDWA. The order required
, temporary provision of "bottled '
water and led to the system's
'connection to a safe«ource of
drinking water nearby. Regions El,<
"
. ,
IX have also taken action under
Section 1431-. ' < "' '
program hopes to reach its goal of 95
percent compliance for community water
systems.
Figure 12. Community Water System Quality (1991)
No Violations
43,000 Systems
Total Number of Systems = 59,000
One or More Violations
16,000 Systems
OGWDW Annual Report 17
-------
UIC Silver Medal Award Team: Back Row(/. to r.): Frank Brock, UIC Section,
Kurt Hildebrandt, UIC Section, Reg VII,; Don Olson, UIC Compliance & Enforcer
Section, OGWDW; Glen Kedzie, UIC Compliance & Enforcement Section . Fron
Row(7. to r): Karen Johnson, UIC Section, Reg III; Francoise Brasier, UIC BrancH
OGWDW; William Reilly, Administrator, EPA; Susan Sullivan, Office of Enforcer1
Addressing Highest Risks First
Risk-based priority setting is the guiding
principle behind OGWDW's enforcement
initiatives. On September 13,1991, EPA
issued unprecedented administrative
orders on consent with ten major oil
companies. These orders require exten-
sive inventory information, cessation of
injection, pollution prevention measures,
extensive closures, and penalties totaling
more than $800,000. Staff from
Table 4. Enforcement of UIC Program
Federal UIC Enforcement Summary
Proposed AOs
Final AOs
Penalties Assessed
Civil Referrals to Department of Justice
FISCAL YEAR 1992
-138 ' '
76
$241,857
11
Headquarters, Regions II, HI, and'
were critical to the success of this ej
and received EPA's Silver Medal,
As a result, more than 1,700 service
station bay drain wells that receivel
automofive-related wastes, like oil f
antifreeze, have been shut down. ]
monitoring compliance with this oJ
and is assisting companies having
difficulty in compliance.
In 1992 OGWDW began working i
Regions and EPA's enforcement of
another major enforcement initiate]
involving shallow injection wells al
service stations owned and operat
oil companies. This team also beg
working on federal government ve]
service stations. Settlement negot"
are expected to be conducted
during 1993.
Using Civil and
Crimiinal Authority
The use of civil and criminal penalj
been increasing in recent years. Ex
include the following:
18 OGWDW Annual Report
-------
Chapters
igure 13. State and Federal Drinking Water Enforcement
3500 T
State Enforcement Actions
Federal Enforcement Actions
3,225
1,948
1990
1991
_ resolution of a major enforcement
le in North Adams, Massachusetts,
p year required the city to build a
oration plant and pay $67,200 in
alties, setting an important
cedent.
; Silver Bow Water Company in
[intana is under court order to build
Itration system after repeated
idity violations affected water
Implies for more than 30,000 people.
(ing Data
pved data quality and data reporting
> are high priorities for the ground
I and drinking water program. EPA
lorked to identify and take action
t systems that provide false data.
pmple, the owner of a mobile home
pubmitted false laboratory informa-
> Region DC. Close scrutiny of the
Jhowed they had been "doctored," a
i to which the owner pled guilty. In
L I an investigatory strategy led to
I cases of data falsification and
criminal charges. Efforts to audit
lata and ensure that compliance is
ly determined have become
|isingly visible.
ig Innovative Action
! Regional Offices have used a
|>er of innovative approaches to
re compliance this year. For in-
b, in an enforcement action taken by
In X against a few small, nonviable
systems near Granite Falls, Wash-
ington, an area-wide problem may have
been solved. The orders allow the neigh-
boring systems to consolidate and make
other improvements that will lead to
compliance. The systems are jointly con-
sidering restructuring options, including
the formation of local utility districts.
Other examples of innovative enforce-
ment actions are these:
• Region m has undertaken a major
shallow well inspection program,
conducting more than 550 inspections
of industries in unsewered areas,
issuing nearly 100 Notices of Violation,
and closing 90 wells. Most of this work
was conducted by senior environmen-
tal employees in Pennsylvania and
Virginia.
• Region IV took enforcement action
against oil company leases in Kentucky
as a result of inspections under various
authorities. The company has repeat-
edly violated environmental require-
ments and has impaired both under-
ground sources of drinking water and
surface waters. The case was referred
to the Department of Justice; both
compliance and cash penalties are
being sought.
• In Region V, administrative orders for
intermittent nitrate violations to public
water supplies in Illinois include an
option for wellhead protection and
watershed management. This action
will encourage a long-term solution to
the problem of nitrate contamination in
intensively farmed areas.
• Region VI recently negotiated a
consent agreement that resolved an
enforcement action against a Louisiana
town. As part of the agreement, the
town will tie about 50 private well
owners to the municipal water system
and will remove them from question-
able drinking water sources.
• To require compliance of drinking
water systmes at migrant labor camps,
Region DC has issued notices of viola-
tion to camp owners and the California
Department of Health. At this time, 68
of these systems are now in compli-
ance, 34 are being addressed and
several have been closed. Region DC
also issued an administrative order
against a major oil company for
disposing of oil and gas wastes in
unfined pits on the Navajo reservation.
Improving
Enforcement Capability
During 1992, OGWDW increased its
overall empasis on federal and state
enforcement of Safe Drinking Water Act
regulations (see Tables 4 and 5) by
working with the Regional Offices and
states—the front line of enforcement—to
improve their effectiveness. In one recent
effort, EPA and the Association of State
Drinking Water Administrators spon-
sored an enforcement conference for state
drinking water and attorneys general
staffs. In support of underground
injection control efforts, OGWDW held
settlement policy training in Regions IV,
VIE, and IX to help the staff negotiate
underground injection control adminis-
trative cases. As shown in Figure 13, both
federal and state enforcement has
increased since 1989; however, state
enforcement is progressing more slowly.
The program is committed to helping
improve state enforcement actions. For
example, OGWDW awarded a one-year
grant to the Louisiana Rural Water
Association to determine if training
linked to enforcement is a viable tool in
accelerating compliance. Louisiana will
issue administrative orders to selected
system operators, requiring them to
attend a special training program
designed to address small system
compliance.
OGWDW Annual Report 19
-------
Table 5. Enforcement of Drinking Water Regulations
Federal Enforcement Summary Fiscal Year 1992
Notices of Violation
Proposed Administrative Orders (AOs)
Final AOs
Complaints for Penalty
Civil Referrals to Dep't of Justice
1485
539
352
32
5
Operators who fail to attend or whos
systems remain noncompliant will b^
penalized.
To improve assistance to systems and
alert them to existing or potential vie
tions, Region V is developing a data |
management system that provides
violation detection and response infcj
tion for the Regional Office and state|
public water supply programs. The
system maintains public water systel
inventories and tracks compliance f
total coliform and surface water treafl
rules and soon will track compliance
other contaminants. Beyond improv
enforcement, this automation helps
educate small water supply operator
20 OGWDW Annual Report
-------
Chapter 6
^oviding
International
assistance
The protection of ground water and
drinking water has become an important
component of United States international
assistance programs. Because relatively
small investments in basic drinking water
treatment can result in significant im-
provement in human health in developing
areas, helping the countries of Central and
Eastern Europe and other developing
regions to improve their environmental
protection programs complements
broader United States efforts to promote
democratization and economic develop-
ment.
In 1992, OGWDW spearheaded water
program efforts in assisting the Agency
for International Development-funded
projects in Poland, Hungary, and
Bulgaria. Assistance to the Czech and
Slovak Republics, Romania, and Ukraine
also was outlined. Projects are selected on
the basis of overall support to program
goals that include
• Building strong institutions for
prevention, control, and remediation of
surface and ground water pollution.
• Transferring appropriate technologies
and management concepts.
• Serving as a well-respected partner in
the overall United States program
aimed at economic restructuring and
quality of life improvements in the
region.
A few of the most noteworthy projects,
carried out with active staff support from
the Regional Water Management Divi-
sions and the EPA Office of International
Activities (OIA), include the following:
• Providing drinking water and waste-
water treatment equipment for
Krakow, Poland (with the Office of
Wastewater Enforcement and Compli-
ance). Technical studies and specifica-
tions for over $2 million on ozonation
equipment and support were initiated.
• Establishing the Water Technical
Exchange Program, which pairs United
States specialists and water utilities
with their counterparts in Central and
Eastern Europe to provide solutions for
critical technical and managerial
problems. Through cooperative
agreements with the Water for People
program of the American Water Works
Association and the Water Environ-
ment Federation, the United States is
tapping an extensive network of
volunteer experts. Exchanges are being
established to cover water utility
management treatment technology,
monitoring strategies, and wellhead
protection.
• Providing support to the Danube River
Basin Task Force, in cooperation with
riparian countries, the World Bank, the
European Bank for Reconstruction and
Development, and other donors. The
EPA role has been to help focus
investments by these donors on sub-
basins and facilities with the greatest
potential for avoiding health risks. A
framework for assessing general
impacts, including drinking water, is
being established.
• Helping OIA and Central and Eastern
European environment ministries on
wetlands reconstruction activities near
Tata, Hungary, and on water quality
management for the Mazurian Lakes
region in Poland.
• Assisting in the establishment of the
Poland Agricultural and Water Quality
Protection Project with Region VII.
In-field demonstration sites are being
set up in Szczecin and Ostrolenka,
Poland, where watershed protection
principles are being used to protect
surface and subsurface drinking water
sources. This project has also served as
a focus for coordination and leveraging
of Department of Agriculture endeav-
ors in Central and Eastern Europe.
• Regions VI and IX assumed an active
role in developing the Integrated
Border Plan for addressing ground
water-related concerns along the
Mexican-United States border.
This year has seen the growth of
OGWDW support in arenas beyond
Central and Eastern Europe. EPA drink-
ing water standards experts are well
connected with their counterparts in the
World Health Organization (WHO) and
other groups. This year special attention
was placed on WHO's guidelines and
their implications for analytical methods
and treatment technologies; OGWDW
served as the only consultant to WHO at a
OGWDW Annual Report 21
-------
major workshop in the United Kingdom. EPA Is Helping Hungary with Its Ground Water Problems
Other examples of efforts in Western
'r>' irope include OGWDW participation in • '
ajor meetings with French water utility
Eu:
major mee—0-
specialists and regulatory officials and
with the European Community on
enforcement. These interactions have
provided insights on both technical and
institutional solutions for participants on
both sides of the Atlantic.
OGWDW expertise in underground
injection control and wastewater treat-
ment was a further point for international
collaboration outside the United States
this year. An OGWDW senior staff
member accepted an invitation to Spain
to address the feasibility of underground
injection of treated sewage and to Norway
to discuss regulatory approaches for
disposal of oil field wastes. A staff
engineer was in Chile this year, assisting
the new environmental agency on the
development of controls for the pulp and
paper industry.
' "*•:
' So
Leaking underground storage tanks near Budapest, Hungary, have contaminated
ground water. Photos by Ron Hoffer.
Finally, OGWDW has been playing <
leading role in planning EPA's grow
international agenda, which will shaJ
the program in Fiscal Years 1993 thrcT
1995. Planning support to the Office I
Water and OIA addressed the imple
tation of the Mexican Border Plan, 1"
Asia Partnership (on water treatment
technology), and the sustainable devl
ment initiatives following the Unitec
Nations Conference on Environmentl
Development held in Brazil.
Sampling of ground water confirms threat to Budapest drinking water wells.
22 OGWDW Annual Report
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Chapter 7
luilding
partnerships
rith Customers
As discussed throughout this report,
OGWDW and the Regional Offices have
reached out to states and localities and to
the associations interested in providing
clean water. These groups include the
Association of State Drinking Water
Administrators, American Water Works
Association, Ground Water Protection
Council/Association of Metropolitan
Water Agencies, National Rural Water
Association, Rural Community Assistance
Program, National Association of Water
Companies, and others. In addition,
OGWDW provides expert help to other
federal and international agencies and
programs that share OGWDW's interest
in protecting ground water and providing
safe drinking water supplies.
Providing information
To support all drinking water customers,
the OGWDW Safe Drinking Water
Hotline (800-426-4791) responds to about
3,000 to 4,000 calls a month (see Figure
14). The majority of calls this year have
been about lead in drinking water. The
Hotline also responds on hundreds of
policy and technical matters. The Hotline
even answered calls this summer from
Florida residents concerned about
Hurricane Andrew's effect on their
drinking water.
Through the Federal Reporting Data
System (FRDS), reports have been pro-
vided about new rules and reporting
requirements. More than 50 requests each
quarter are received under the Freedom of
Information Act for information about
drinking water supplies. OGWDW also
responded to about 200 written inquiries
from members of Congress, concerning a
variety of policy and legislative issues.
OGWDW is promoting a number of
advances in data management. For
example, FRDS is being upgraded as a
result of a strategic planning initiative to
improve information systems for the
public water supply program. The future
of FRDS is being assessed to determine
how it can better meet the needs of states
and EPA. Future new data collection
initiatives under consideration in replac-
ing FRDS are parametric data, compliance
status data, and location data, as well as a
stronger data management role for EPA
Regional Offices and Laboratories.
User-friendly personal computer software
on national drinking water regulations,
distributed in 1992, enables easy access to
selected information. For example, a user
of this program can quickly find specific
rules for a community system that relies
on ground water and serves fewer than
10,000 people. This "regs-in-a-box"
software was distributed to every Re-
gional Office, state, and major association,
and can be customized by states.
Reaching Out
To promote ground water protection,
OGWDW created a new technical assis-
tance document designed to help local
wellhead protection managers set priori-
ties for managing potential pollution
sources. It is entitled Managing Ground
Water Contamination Sources in Wellhead
Protection Areas. The program also
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OGWDW Annual Report 23
-------
sponsored a networking workshop for 18
local project managers of the Ground
Water Education Project in San Antonio,
Texas, in January 1992. The project is one
part of a cooperative agreement with the
League of Women Voters to encourage
communities to protect their .ground
water.
To help operators of shallow wells
understand Agency concerns and require-
ments, OGWDW released a series of fact
sheets that describe good housekeeping
practices for an array of industrial and
commercial operations.
In 1992, OGWDW produced a total of 50
informational documents, including fact
sheets and technical reports, and 35
Federal Register documents. To reach
specialized audiences, senior managers
and staff presented papers and speeches
at nearly 30 conferences and forums.
In addition, OGWDW and the Regional
Offices have made a special effort to reach
out to the general public to enlist their
help in the preservation of drinking water
sources and to help them protect them-
selves from possible unsafe sources (see
box).
Getting Early input
The National Drinking Water Advisory
Council, a statute-mandated, independent
advisory body composed of representives
of OGWDW customers, meets twice a
year to advise the Administrator on
policy and other matters including
regulations, guidelines, and strategic
planning under the Safe Drinking Water
Act.
The council is charged with providing
practical and independent advice;
recommending special studies, policies,
and actions; identifying emerging issues;
and proposing activities that promote
cooperation between EPA and other
government agencies, interested groups,
and the public on drinking water quality.
Figure 14. Safe Drinking Water Hotline
Responds to 3,000 to 4,000
Calls a Month
Consultants
23%
Water Supplie
6%
State and Ll
Governmel
5%
Others
17%
Reaching Out to the Public:
A Selected List of Outreach Projects
Getting the Lead Out, an EPA. pam-
phlet, is aimed at the public to help
show people how to deal with lead
problems.
A Compendium of Local Wellhead.
Prqtectjon Ordinances, containing
nearly 200 ordinances, was distrib-
uted to Regional ground water >
representatives and the public.
•" :
A public outreach program was
initiated for shallow injection wells
and oil and gas wells through a
grant to the Ground Water Protec-
tion Council.
j- "
A chart on drinking water standards
was prepared and widely distrib-
uted.
To ensure that the media are well
:: informed, OGWDW prepares both
I,1 ..print and electronic information. For
example, a background paper was
developed for a U.S. News and World
Report article on drinking water
safety.
A booklet, Why Do Wellhead
Protection? was distributed.
Teacher Activity Kits were prepared'
to mail with information promoting
National Drinking Water Week.
=PA Why Do Wellhead
Protection?
• A traveling exhibit was'used at 151
'>, conferences around the country. ''
m Region HI identified target audi-
1 ^ences and distributed more than
9,000 copies of a pamphlet on '
injection well discharges.
• Region IVprovided press materials
and set up media interviews to < >
publicixejhe April 199,2 Interna-/
tional Ground^ Water Ecology
Conference in Tampan Florida. ,
24 OGWDW Annual Report
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Chapter 8
lanaging
>r Success
The ground water and drinking water
program is people. Without these dedi-
cated individuals working as a team, EPA
could never do its part to achieve safe,
high-quality ground water and drinking
water for ail Americans.
Supporting People
The OGWDW Human Resources Council
is a group of people dedicated to support-
ing the professional needs of staff. In its
monthly "brown-bag" meetings, the
council deliberates on awards and other
ways to recognize staff achievements,
proposes projects and ideas for improving
work conditions, and plans social events.
As a result of the council's work, two new
awards are available: Team Awards
recognize tine importance of teamwork in
accomplishing the OGWDW mission by
giving $500 quarterly to be shared by the
winning team. Peer Awards extend the
existing On-the-Spot Awards by making a
certificate and $25 available to any
colleague who makes a special contribu-
tion that year. Based on recommendations
of the council, the OGWDW Quarterly
Awards process was revamped, allowing
staff to nominate and select recipients.
Even though funds for salaries and
expenses were limited this year, the
awards program was expanded to show
appreciation of staff commitment. Beside
Team Awards and Peer Awards, Employ-
ees-of-the-Quarter receive a certificate
plus $400 and On-the-Spot Award
recipients get $100. In 1992, a Silver
Award was presented to one OGWDW
team and several Bronze Awards were
given for other outstanding staff perfor-
mances.
Personal career growth is another
OGWDW emphasis. An Upward Mobility
Program has elevated one secretary to an
entry-level professional position. To
promote personal development, supervi-
sors have Individual Development Plans
and many people took advantage of
career development program "details"
and "rotations" to other EPA offices to
broaden their experiences.
Total Quality Management (TQM)
training and Quality Action Teams
(QATs) are increasingly used in
OGWDW. TQM training has been
provided to OGWDW and Regional staff
with positive results:
• The Ground Water Protection Division
formed an Office Improvement Team
that is using TQM to develop and carry
out improvements in everyday office
functions.
Murlene Lash is
congratulated by Jim Elder
Quarterly Awards Ceremony
OGWDW Annual Report 25
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• The Technical Support Division reports
that all staff members have been
formally trained in the principles and
techniques of TQM and participate in a
program of continuous reinforcement,
practicing skills in special purpose
QATs.
• Region Hi's Water Division is pursuing
a TQM cultural change by focusing on
customers, employee involvement, and
commitment to continuous improve-
ment. Numerous QATs have been
formed to improve principle program
processes.
• Region VI has an active Interdivisional
Ground Water QAT. Through the work
of this QAT, an efficient process for
coordinating a comprehensive ground
water program is under way.
• Region VET and other Regions have
formed QATs to improve a range of
operational functions, such as grant
management, enforcement, and Indian
tribe assistance.
The OGWDW staff is enhanced by the
valuable work performed by summer
interns, "stay-in-school" students, and
Senior Environmental Employees.
Though not civil service employees, these
people provide outstanding support.
Teamwork at the Annual Picnic
Improving Management
Since merging separate offices of drinking
water and ground water, management
efforts toward total consolidation are still
not complete. However in some areas,
such as contract management, the Office
is moving toward consolidation.
Efforts to improve staff support and
Office efficiency include the "PC Plan,"
designed to provide staff with full aj
to current hardware and software fo
increased productivity and graphics
capability while carefully deter
selection of new personal computer I
technologies. The personal compute!
strategy is now being implemented. I
OGWDW's personal computer pla
process included 45 staff members,1
were interviewed to determine comil
needs and possibilities. "
In addition, OGWDW has recently-
launched the "supervisor evaluatiorl
project" recommended by the Offic
Human Resource Council. The proje
designed to help supervisors under
employee needs and sharpen manag
ment skills.
Management improvements are alsc]
under way in the Regions. Region F
Mississippi developed an Automat
Resource Information System I
Region VHI completed a prototype
computer-based expert system for dj
permits for Class IIUIC wells, and.
Ill developed a computerized grant |
management system in response to;
survey oi: state needs.
OGWDW Annual Picnic
26 OGWDW Annual Report
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Chapter 9
jnticipating
iture
Ihallenges
Throughout this report, the ground water
and drinking water program is credited
with many significant accomplishments.
To maintain this success, the program
must meet a number of challenges in the
next few years. Perhaps the most formi-
dable challenge is maintaining and
strengthening the federal-state partner-
ship in ground water and drinking water,
in fight of the escalating costs of federally-
mandated programs. Continued state
primacy is clearly vital to the future
success of SDWA implementation.
Similarly, strong state programs are at the
heart of the EPA Ground Water Strategy for
the 1990s and the related wellhead and
UIC programs.
There are several challenges associated
with state capacity and primacy concerns.
Under the public water supply program,
the number of regulations is growing fast,
sometimes pushing the limits of scientific
and technical knowledge and straining
the federal-state relationship. Small
systems are being asked to comply with
regulations at a time when many are
struggling just to provide basic services.
Affordable technologies for water treat-
ment and testing show promise, but they
may not be in widespread use for several
years. Monitoring expenses for small or
disadvantaged systems are increasingly
affecting low-income households. While
mostly supportive of the comprehensive
ground water protection approach, state
governments continue to need additional
funding for ground water programs.
Meeting these challenges requires the
thoughtful attention and creativity of the
ground water and drinking water pro-
gram and the careful allocation of federal,
state, and local resources. To focus on
long-term solutions, the ground water
and drinking water program has estab-
lished two results-oriented goals:
• By the year 2000,95 percent of the
people using community water
supplies will be served by a system in
full compliance with SDWA regula-
tions (both ground water and surface
water systems).
• By the year 2000,75 percent of the
nation's sensitive ground water areas,
identified and designated as critical for
domestic water supplies or ecosystem
support, will be protected by compre-
hensive state programs.
These ambitious goals show the
program's commitment to pursue and
measure environmental results. The goals
will guide decisionmaking on all facets of
program delivery, ranging from technical
assistance and enforcement to budget and
legislative proposals.
As a start, OGWDW has initiated some
promising new approaches for meeting
the goals:
• A geographic pollution prevention
approach, which will draw on the
ground water and wellhead protection
programs, is likely to help solve, in
part, the problems faced by small
drinking water systems.
• It is hoped that innovations in regula-
tory development will lead to greater
flexibility and future savings for both
states and water systems.
• Partnerships and coalitions formed
under the mobilization effort will
enhance the delivery of technical
assistance.
• Continued efforts to develop low-cost
treatment and testing methods, if
successful, hold great promise for
small water suppliers.
• Widespread use of some of the new
and creative enforcement tools summa-
rized in this report will help reach the
95 percent compliance goal.
• Better integration of UIC programs and
state ground water programs will help
identify priority needs and save
resources.
In the final analysis, it will be through the
hard work and dedication of OGWDW
staff, together with Regions, states, and
the ground water and drinking water
community, that greater strides will be
made toward protecting human health
and the environment.
OGWDW Annual Report 27
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Thanks to the Regional Offices for providing information and to the OGWDW focul
group for guiding the preparation of this Annual Report: (/. to r.): John Reeder, Stl
Clark, Jan Auerbach, Charlene Shaw, John Trax, George Hoessel, and Beth Hall]
present are Bob Blanco, Cindy Bultman, Dennis Herrin, and Al Stevens.
28 OGWDW Annual Report
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