EPA-910/9-73-006
IDAHO
WATER
SUPPLY
98IOI
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IDAHO WATER SUPPLY PROGRAM
EVALUATION
EPA - 910/9-73-006
Water Supply Unit
Municipal Section
Air & Water Programs Division
Environmental Protection Agency
Region X
October 1973
I:
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PREFACE
This report presents the Environmental Protection Agency's
findings, conclusions and recommendations, with supporting data
and explanatory text, resulting from an evaluation of the Idaho
public drinking water supply program.
Field surveys to determine the adequacy of water system
facilities, water quality, State laboratory facilities and opera-
tions, and overall water supply surveillance were conducted in
late 1971 and early 1972. Additional information concerning
legislation affecting the water supply program, recent organiza-
tional changes establishing the Department of Environmental and
Community Services, and current manpower and funding expenditures
for public water supply surveillance has been included.
Information contained in this report has been condensed and
is further discussed in a companion report, Idaho Water Supply
Program Evaluation - Summary. The Summary highlights important
findings and principal needs of the State program for those who
have an interest in Idaho's drinking water program but do not
wish to study the details of the complete report.
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TABLE OF CONTENTS
Page
SUMMARY 1
RECOMMENDATIONS 17
INTRODUCTION 23
PLAN OF STUDY
WATER SUPPLIES IN IDAHO 27
WATER SUPPLIES STUDIED 27
EVALUATION CRITERIA
WATER QUALITY 37
FACILITIES 38
WATER SUPPLY PROGRAM 42
STUDY FINDINGS
WATER SUPPLY STATUS
Bacteriological Quality 47
Chemical Quality 49
Facilities 52
Operator Competence 53
Fluoridation 54
WATER SUPPLY PROGRAM
Legal Authority and Responsibilities 56
Regulations and Standards 60
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TABLE OF CONTENTS
Page
Organization 61
Activities 66
PUBLIC HEALTH RISK 73
PROGRAM NEEDS
AUTHORITY 81
REGULATIONS 84
POLICY 88
ACTIVITIES
Engineering Services 89
Laboratory Support - Bacteriological 94
Laboratory Support - Chemical 95
District Health Departments 97
REFERENCES 101
PARTICIPANTS 105
ACKNOWLEDGEMENTS Ill
APPENDICES
APPENDIX A - SUMMARY TABLES: WATER SUPPLIES STUDIED.. 115
APPENDIX B - ADEQUACY OF THE WATER FLUORIDATION
CONTROL PROGRAM IN IDAHO 125
APPENDIX C - BACTERIOLOGICAL LABORATORY SURVEY 151
APPENDIX D - CHEMICAL LABORATORY SURVEY 185
APPENDIX E - MANPOWER NEEDS AND COST ESTIMATES FOR
WATER SUPPLY ACTIVITIES 199
ii
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LIST OF FIGURES AND TABLES
Figure Page
1 Water Quality & System Condition Summary 3
2 Population Ranges Served by Public Water
Suppl ies 29
3 Public Water Supply Systems Surveyed 33
4 Fluoridated Water Supply Systems in Idaho 34
5 Idaho Department of Environmental and
Community Services 65
Table Page
1 Summary - Public Water Supplies in Idaho 28
2 Selection of Public Water Supplies 31
3 Water Supply Field Survey Sampling Schedule 39
4 Chemical Analyses Conducted on Survey Samples... 40
5 Bacteriological Quality of Distributed Water
Related to Chlorination Practice 48
6 Comparison of Water Quality By Population Group. 50
7 Comparison of System Surveillance By Population
Range 51
8 Water Supply Activities Resource Allocations 64
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SUMMARY
Approximately 482,000 people in Idaho, or 68 percent of the
State's population, are served by 274 public water supplies. The
health of this segment of the population is directly affected by
the quality of their drinking water, and under State law the
Department of Environmental and Community Services is responsible
for establishing requirements and providing surveillance of these
supplies to assure safe drinking water. The State water supply
program, therefore, has a significant impact on the health of a
major portion of the State population.
Recognizing this, James L. Agee, Region X, Administrator,
Environmental Protection Agency, when requested by the Honorable
Cecil D. Andrus, Governor of Idaho, to assist in supporting Idaho's
environmental program recommended as part of a total environmental
program assessment package an evaluation of the State water supply
program. Subsequent discussion in the fall of 1971 with State
water supply program personnel resulted in establishment of an
agreement for evaluation of the program. The effectiveness of the
program was to be judged primarily on the basis of the adequacy of
State statues, rules and regulations; examination of drinking
water quality and condition of water treatment and distribution
facilities in a representative 10 percent of the State's 274 public
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water systems; comparison of bacteriological and chemical water
quality with the criteria of the 1962 Public Health Service Drink-
ing Water Standards (1); and an overall evaluation of the water
supply surveillance program.
Principal findings and conclusions of the study follow.
WATER SUPPLY STATUS
The drinking water quality and the condition of the water
supply treatment and distribution system facilities were determined
from an evaluation of 10 percent of the total number of public
water supplies in the State. The supplies surveyed were selected
to provide a cross-section of the State's supplies from the stand-
point of geographical distribution, type of source and type of
treatment. These supplies provide drinking water to over 21 per-
cent of the population served by public water supplies and the
findings are judged to be representative of the overall conditions
in the State. Water quality and system conditions data as deter-
mined from the supplies surveyed are described below and are
summarized graphically in Figure 1.
Water Quality - Bacteriological
Seventy-five (75) percent of the public water supply systems
evaluated either did not meet the bacteriological quality standards
2 or more months during the 12 month period prior to the survey, or
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PARAMETER < 28 PUBLIC SUPPLIES SURVEYED )
PERCENT OF SYSTEMS NOT MEETING REQUIREMENTS
(l)
WATER QUALITY
BACTERIOLOGICAL QUALITY AND/OR SAMPLING FREQUENCY
BACTERIOLOGICAL QUALITY (1)
CHEMICAL QUALITY - MANDATORY (2)
CHEMICAL QUALITY - RECOMMENDED (2)
FACILITIES
SOURCE PROTECTION
TREATMENT OR ADDITIONAL SOURCE PROTECTION
DISTRIBUTION SYSTEMS
FLUORIDATION (3)
ADEQUATE FACILITIES (2)
FEED RATES TO ASSURE OPTIMUM HEALTH BENEFITS (2)
MONTHLY CHECK SAMPLES (I)
CROSS - CONNECTION CONTROL
BACTERIOLOGICAL SURVEILLANCE (1)
CHEMICAL SURVEILLANCE (4)
SANITARY SURVEYS (5)
OPERATOR TRAINING
(I) DATA FROM PERIOD 12 MONTHS PRIOR TO SURVEY
W DATA FROM SAMPLES COLLECTED DURING SURVEY
(3) EIGHT FLUORIDATED SUPPLIES OPERATIONAL
(•») REQUIREMENT - CHEMICAL SAMPLE WITHIN 3 YEARS PRIOR TO SURVEY
(5) REQUIREMENT - SANITARY SURVEY WITHiN I YEAR PRIOR TO SURVEY
FIGURE 1 WATER QUALITY & SYSTEMS CONDITION SUMMARY
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failed to collect sufficient samples during this same period to
determine the bacteriological quality. Considering only those
water samples collected during the survey, 18 percent of the
supplies failed to meet bacteriological quality standards.
Water Quality - Chemical
While only four (4) percent of the public water systems
examined did not meet mandatory chemical drinking water standards,
twenty-five (25) percent did not meet one or more of the recom-
mended chemical drinking water standards. The latter group of
systems serve over 80,000 people.
Facilities
Fifty (50) percent of the supplies surveyed need improvements
at the source and 36 percent need either additional treatment
facilities or additional protection of the source of supply.
Thirty-nine (39) percent of the supplies had either inadequate dis-
tribution system facilities or need improved operation of the
existing facilities. Without these additions and changes, contin-
uous production of safe drinking water may not be maintained.
An example of the impact of inadequate water distribution
facilities on the health of community residents is a situation
which existed in the south central Idaho community of Rockland in
the late 60's and early 70's. Periodic outbreaks of summer dysen-
tery were quite common during this period culminating with a
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widespread outbreak of gastroenteritis in June of 1970. An epide-
miological investigation disclosed pathogenic organisms, including
salmonella bacteria, in the drinking water. The apparent route of
contamination of the water was from septic tanks discharging
into a high ground water table which in turn found egress into the
poorly maintained water distribution system in areas of low pres-
sure. New sewage collection and water distribution systems were
installed in addition to elimination of one badly deteriorated
well and installation of chlorination equipment. With the advent
of these changes summer "pip" outbreaks are now a rarity in
Rockland.
Operator Competence
Twenty-nine (29) percent of the systems employ operators
who have participated in water supply operators short course
training. Many operators, although aware of their lack of
knowledge in critical public health aspects of water supply
operations, felt they could not be away from the job for even
short course training.
Fluoridation
Fourteen (14) public water supply systems were reportedly
fluoridating in 1971. None were found fully acceptable. Of the
14, only 8 fluoridation installations were in operation, the
remainder having been discontinued for various reasons. Of the
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8 facilities operating at the time of the survey, only two (25
percent) were fluoridating at a level high enough to assure
dental health benefits. In addition, two supplies (25 percent)
were fluoridating at a level above that recommended for optimum
health benefits.
Cross-Connectien Control
Only one supply surveyed had an adecuate cross-connection
control program to eliminate potential hazards from the distri-
bution system. Fifty (50) percent of the supplies indicated
having ordinances to require elimination of cross-connections but
nad implemented no program.
WATER SUPPLY PROGRAM
Legal Authority, Regulations and Standards
Basic health regulatory authority over public water supplies
is provided in Idaho Code, Title 37, Chapter 21, Sections 37-2102
and 37-2103. Section 2102 provides that the owner or operator of
a system providing v;ater for domestic purposes shall keep it free
from impurities, and that the State Board of Health, shall promul-
gate standards for protection of the system from impurities and
for water quality. Section 2103 specifies that failure to comply
with the provisions of Chapter 21 is a misdemeanor.
The Environmental Protection and Health /^ct of 1972,
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creating the Department of Environmental Protection and Health,
transferred the authority of the Board of Health and the Depart-
ment of Health to the new agency. Provisions of the Act are
included in Idaho Code, Title 38, Chapter 1. Sections 39-101
to 39-114 establish statutory definition of a public water
supply, provide for adoption of rules and regulations, empower
the department to enforce standards, and provide for civil
penalties. The 1973 Idaho legislature retitled the department
the Department of Environmental and Community Services, revised
the definition of a public water supply and added Section 39-118
requiring submission and approval of plans and specifications
for construction or modifications of public water supply systems.
Title 39, Chapter 4, Section 39-414 of the Idaho Code
provides that the District Boards of Health may administer and
enforce all state health laws, regulations and standards, and
all duties expressly delegated to them by the State Board of
Health. In June 1971 the State Board of Health delegated to
the seven Health Districts authority to enforce several state
public health laws. Public water supply was not included in the
delegation of authority.
The Idaho Code provides comprehensive administrative machin-
ery for the aquisition of water rights to both surface and ground
waters. In addition, Title 42, Chapter 2, Section 42-238
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requires the adoption of minimum well construction standards to
protect groundwater from contamination and the licensing of well
drillers. Regulations adopted by the Department of Water Reclama-
tion in 1968 require that public water supply wells shall also
meet all State health agency requirements.
General regulations governing protection of public water
supply were issued in November 1964. These regulations adopt the
1962 U.S. Public Health Service Drinking Vlater Standards and
provide that water systems be maintained in accordance with these
water quality standards. Additional standards cover design and
construction of facilities for collection, treatment, storage and
distribution of water for public use.
The enabling legislation and the 1964 rules and regulations
are generally adequate to permit operation of an acceptable public
water supply program. Elements necessary to improve the water
supply program's operational and legal base are:
1. Updating the water supply regulations to reflect
organizational changes, to require new and modified water quality
and monitoring criteria, and to reflect improved water treatment
and distribution practices,
2. Adopting legislation establishing a mandatory operator
certification program, and
3. Adopting legislation establishing a program to assure
coordinated development of public water supply systems.
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Resources and Activities
Funds expended for public drinking water protection in Idaho
have been inadequate to support a comprehensive program. The
water supply effort in FY 1971 and FY 1972, including field work,
administration and laboratory support, operated on a budget of
approximately $91,000. This expenditure amounted to $330 per
system or approximately 13 cents per capita. Total water supply
funding increased to $124,000 in FY 1973, resulting in an annual
expenditure of $450 per system or 17 cents per capita. Nationwide
studies by the Environmental Protection Agency indicate that an
adequate State drinking water program would require an annual
expenditure of approximately $1000 per system or 22 cents per
capita.
Total staffing for water supply activities during FY 1971
and FY 1972 was one man-year. The effort increased to 2.7 man-
years in FY 1973 and improved the State's water supply surveil-
lance activities. These staffing levels remain inadequate,
however, and have contributed to the inability of the water
supply program to fulfill its responsibilities.
Evaluation of the program activities in FY 1971-72 showed
that many important activities were not being performed or were
being performed superficially, thus reducing the effectiveness
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of the program. Evidence of this fact is illustrated in the
survey results which show that 78 percent of the systems had not
been subject to a sanitary survey within the previous 12 months
and that the average period since the last sanitary survey was
over 7 years. In addition, very few detailed survey reports have
been prepared in recent years. Many of those which have been
completed were sent to the purveyor a number of months after the
survey. Even more important, follow-up contact with the operator
of the supply to determine compliance with recommendations of
surveys has also been inadequate.
Although operating records are required by State standards,
few have been submitted and little effort has been made to encour-
age more complete reporting. Submitted reports receive only
cursory review by the engineers. Little effort has been made to
ensure that all water suppliers submit the required number of bac-
teriological samples each month. Of the 28 suppliers surveyed
68 percent failed to collect the required number of bacteriolog-
ical samples during 2 or more months of the previous 12 month
reporting period. Review of bacteriological records revealed
that little resampling or investigation was done following
samples showing contamination.
Seventy one (71) percent of the water suppliers surveyed
had not received a chemical analysis within the previous 3 years,
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the average period being 9 years. In addition, those analyses
which were completed did not include important health parameters
such as arsenic, cadmium, chromium, cyanide, lead, and silver.
No routine surveillance program has been carried out for
communities v.'hich adjust the fluoride level in their water supply.
Inspection visits of fluoridated water systems by water supply
program engineers averaged one visit every five years. Only 13
percent of the water suppliers adjusting fluoride levels were
submitting the required monthly check samples to the State
laboratory.
Few forual inspections and follow-up surveys of water system
facilities and limited review of water quality and operating
records result in little enforcement of established standards.
Enforcement is hampered not only by lack of manpower to carry out
field surveys and laboratory analyses, but also by the continued
use of a time consuming, manually operated data recording and
retrieval system.
One responsibility which has been carried out with some
degree of regularity by the water supply program is the review
of plans and specifications for new construction and modifications
to existing water system facilities. This effort, along with
providing technical assistance on special problems and emergen-
cies, accounts for the majority of the professional manpower
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resource allocation to water supply activities.
The Environmental Protection Division conducts an annual
three day water supply-wastewater operators short school. Although
the results of the effort have been beneficial, many of the water
supply operators who need training the most are not attending.
This is particularly true for the operators of small water
systems. These individuals are usually part-time operators with
other job responsibilities and are either unable or unwilling to
travel long distances or be away from their job responsibilities.
They do not attend training programs of the type necessary for
adequate knowledge of public health considerations or as prereq-
uisites for certification under the State's voluntary certifica-
tion program. This lack of training contributed significantly
to many of the operational deficiencies noted during the survey.
Laboratory support for the water supply program is provided
by the Department's Laboratory Section. Facilities and procedures
were evaluated at the chemical laboratory and at three of the
six bacteriological laboratories. Both bacteriological and
chemical laboratory procedures and operations were found in
general compliance with provisions of Standard Methods for the
Examination of Water and Wastewater (2). Additional emphasis
will be required to provide the laboratory capability to routinely
analyze for toxic chemicals in drinking water.
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Related Findings
Bottled water sales have not been considered a significant
aspect of the Idaho drinking water surveillance program. Current
evaluation procedures are to judge bottling practices against
State regulations for food preparation establishments and bottled
water quality against drinking water quality criteria. Little
surveillance of either bottling operations or bottled water quality
has been provided, however.
The State Board of Health did not include responsibility for
enforcement of the State public water supply regulations in its
June 1971 delegation of authority to the local Health Districts.
The State and Districts have had informal working agreements,
however. Certain Districts have been involved in the removal of
sanitary restrictions related to platting of new subdivisions,
approval of plans for small public water systems, follow-up on
unsatisfactory bacteriological samples, and consultation on
problems relating to private water supplies. The ultimate
potential for fully utilizing the Health Districts in selected
areas of surveillance and enforcement of water supply regulations
has yet to be developed.
Waterborne disease outbreaks have occurred in Idaho. Subse-
quent surveys have shown that in essentially all cases deficiencies
existed in the water supply systems during the period when disease
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was transmitted. Investigations also show that these deficiencies
were either unrecognized because of inadequate surveillance for
public health hazards, or were recognized but not remedied due to
ineffective persuasion or enforcement by health officials.
Deficiencies similar to those responsible for waterborne outbreaks
are present in water supplies in Idaho and were found during this
study. The requisites for repetition of the waterborne outbreaks
of the past, namely the presence of diseased individuals in the
State and the inadequate surveillance of public water supplies
and inadequate enforcement of public health standards, exist in
Idaho. Greater vigilance by Idaho's health officials and imple-
mentation of the recommendations of this report are needed to
assure the State's residents and visitors an adequate and safe
supply of drinking water.
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RECOMMENDATIONS
The public water supply program of the Idaho Department of
Environmental and Community Services is not providing the sur-
veillance and consultative services necessary to fulfill its
responsibilities to protect the health of the citizens of Idaho.
To properly provide such services, it is recommended that:
1. The water supply program be upgraded to a stature commen-
surate with its importance to the health of Idaho residents and
visitors with a minimum annual budget of $239,000 allocated as
follows:
a. Engineering surveillance and
activities $128,000
b. Laboratory services 71,000
c. Management and overhead 40,000
$239,000
2. The water supply program manpower resources be increased
to a minimum of 6 man-years of professional staff and 2 man-years
of secretarial support to provide essential surveillance, training
and program direction activities.
3. The bacteriological surveillance program be redirected to:
a. Encourage water supply purveyors to develop their
own bacteriological monitoring program,
b. Charge a reasonable fee to cover the cost of
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routine bacteriological analyses, and
c. Conduct a check sampling program, at State expense,
to assure validity of routine sampling by purveyors.
4. The chemical surveillance pronrar, be expanded and
modified to:
a. Conduct as least one complete chemical analysis
on each surface water supply annually and on each ground water
supply triennally, and
b. Discontinue the practice of performing chemical
analyses for operational control which are considered the respon-
sibility of the water supply purveyor.
5. Enabling legislation be adopted requiring:
a. Mandatory certification of all public water supply
facility operators,
b. Coordinated planning and development of new public
water supply systems and the consolidation of the large number
of small suppliers in certain regions of the State, and
c. Fluoridation of community water supplies not
containing dentally significant concentrations of natural fluo-
rides. Enactment of this requirement should be delayed until
qualified operators are available and the Department's surveil-
lance and monitoring program improves.
6. The 1964 Idaho Drinking Water Standards (3) be revised
to:
a. Recognize recent organizational changes,
b. Update water quality and monitoring criteria,
c. Incorporate special design, operation and monitor-
ing requirements for small public water supplies and bottled
water facilities,
d. Establish chlorination as the minimum treatment
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for all public water supplies and filtration for all surface water
sources with individual cases being exempted at the discretion of
the Administrator if the purveyor can demonstrate adherence to
the standards with disinfection alone, and
e. Reflect improved water treatment and distribution
practices.
7. A program be established to document present and
future policy decisions for distribution in a water supply
program policy manual.
8. Surveillance of all public water supplies be increased
to provide at least the minimum levels set forth in the Drinking
Water Standards and the Manual for Evaluation of Public Hater
Supplies (4), including but not necessarily limited to:
a. Development and continued updating of a compre-
hensive inventory of public water supplies,
b. Thorough annual sanitary surveys of each system
with follow-up as required,
c. Increased effort to assure minimum bacteriological
sampling along with the required check samples from all supplies,
d. Establishment of a routine complete chemical
sampling program for each supply,
e. Establishment of a program to encourage adoption of
local cross-connection control ordinances and institution of viable
surveillance programs for elimination of backflow conditions,
f. Increased emphasis on surveillance of fluoridated
supplies to assure adequacy of these operations, and
g. Initiation of a surveillance program to assure
that bottled water quality and bottling practices comply with
established standards for food packaging and water quality.
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9. Operator training be improved by:
a. The Department working more closely with the State
universities and community colleges on operator entry level and
upgrade training programs, and,
b. Increased program flexibility to meet the needs
and schedules of both full and part-time operators.
10. Computer services be utilized for storage and retrieval
of water quality data, engineering report information, monthly
operating report records and inventory data.
11. A memorandum of agreement be developed with each Health
District for surveillance of and technical assistance to the
State's small public and recreational water supply systems.
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INTRODUCTION
The great strides made in water treatment in past years have
reduced the threat of the once feared major water-borne epidemics.
With this technological advancement has come a sense of assurance
that our drinking water supplies are failsafe and free from
potential health hazards. This false sense of security is
reflected not only by the average citizen but has spread to por-
tions of the water supply industry itself. Many supplies have
become victims of their own success. They have maintained a
status quo without concern for improving the reliability of their
system or for meeting the challenge of newer and more stringent
quality standards.
The Community Hater Supply Study (5) indicated that com-
placency is not restricted solely to the citizenry and utilities,
but has spread also to the regulatory agencies. In general, state
agencies are much less active in drinking water supply surveil-
lance today than in past years. Program emphasis and resources
have been reallocated to meet the demands of new pollution control
mandates. Although extensive water pollution control efforts can
provide improved raw water quality, these programs alone do not
assure safety or reliability of drinking water. Such assurance
is attainable only through renewed awareness of the public health
significance of drinking water and the establishment of active
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water supply programs at the state and local levels.
Recognizing this, James L. Agee, Region X Administrator,
Environmental Protection Agency, when requested by the Honorable
Cecil D. Andrus, Governor of the State of Idaho, to assist in
supporting environmental programs in Idaho, recommended as part
of a total environmental program assessment package an evaluation
of the State's water supply activities. Subsequent correspond-
ence and discussion with State water supply program personnel
established that the purposes of the evaluation would be:
1. To ascertain the condition of Idaho's water supplies
through field surveys of water supply systems, laboratory analyses
of drinking water samples for bacteriological, chemical, and
radiochemical constituents, and examination of pertinent data
recorded in the State files,
2. To determine the adequacy of legal statutes, regula-
tions and policies, budget and manpower resources, laboratory
support, surveillance activities, and operator training,
3. To evaluate the effectiveness of the Idaho water supply
program as determined by the condition of a representative number
of the State's water supplies, and
4. To recommend improvements and additions which may be
needed to assure an adequate supply of safe drinking water for
residents of Idaho.
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PLAN OF STUDY
WATER SUPPLIES IN IDAHO
Resident population in Idaho, according to the 1970 census,
is 713,008. Approximately 482,000 of these people, or 68 percent
of the population, are served by 274 public water supplies. Table
1 presents a summary of information concerning these supplies.
Many of the State's remaining 231,000 people live in rural areas
and obtain their drinking water from individual water systems.
In addition to the public supplies, there is an unknown number
of systems, generally designated semi-public supplies, which
serve State residents and the traveling public at restaurants,
service stations, recreation facilities, trailer courts and
similar establishments. Presently these supplies are neither
listed nor under surveillance by the State.
Figure 2 illustrates the percentage of supplies serving
various population ranges. Over 75 percent of the public water
supplies in Idaho serve a population of less than 1000. This is
significant as the Community Mater Supply Study (5) showed that
these smaller systems have the most difficulty in continuously
providing safe drinking water to their customers.
WATER SUPPLIES STUDIED
Discussions were held in August 1971 with Mr. Vaughn Anderson,
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TABLE I
ri.oLic VAT:?. SIT-LIES u; IDAHO
Source of liumber Percent of Population Percent Pop. Nurber Percent Nun^er Percent
Supply Total Served Served by Filtered Filtered Disinfected Disinfected
PUS I/
Surface
38
3.9
51,000
10.6
17
44.7
30
78.9
Ground 228 83.2 395,000
81.9
0.9
47
20.7
Dual i/ 8 2.9 36,000
7.5
25.0
100.0
Total 274
100.0 482,000
100.0
21
7.7
85
31.0
I/ PWS - Public Water Supplies
2/ Both surface and cround sources
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Director of Categorical Programs, formerly the Environmental
Improvement Division, to review the scope and procedures to be
used in conducting the study. Agreement was reached to follow in
general the procedures used in the national Community Water Supply
Study. The principal objective was to evaluate the total Idaho
water supply program and recommend improvements in the program
that would assure an adequate supply of safe drinking water for
the residents of Idaho. It was agreed also that investigation of
a representative number of water supplies would be sufficient to
evaluate the effectiveness of the State program. No individual,
or semi-public water supplies were to be selected for study.
Two factors were considered in selecting the water supplies
to be studied. First was a need to select supplies representative
of the sizes of systems, types of sources, methods of treatment
and geographical distribution throughout the state. Second was
a need to select a sufficient number of supplies to enable com-
parison of the findings of the Idaho study to those of the
national Community Water Supply Study. To accomplish these
objectives it was determined that at least 10 percent of Idaho's
274 public water supplies would be surveyed. These 28 supplies
would be selected at random from the respective percentage of
supplies within predetermined population groupings. Table 2
illustrates the population groupings and the determination of the
number of systems to be selected within each group.
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TABLE 2
SELECTION OF PUBLIC WATER SUPPLIES
POPULATION
GROUP
Over
5,000 -
1,000 -
500 -
Under
25,000
25,000
5,000
1,000
500
POPULATION
SERVED
152,500
150,081
120,597
28,170
30,551
NUMBER OF
SYSTEMS
3
12
53
42
164
% SYSTEMS
1.1
4.4
19.3
15.3
59.9
(% SYSTEMS) (28)
0.3
1.2
5.4
4.3
16.8
NUMBER
SELECTED
1
1
5
4
17
TOTAL
481,899
274
100.0
28.0
28
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The 28 supplies selected are listed in Appendix A, Table 1
along with their respective populations served, sources of supply
and treatment provided. Following the random selection, a check
was made to determine the representation from the standpoint of
geography, type of source, and type of treatment. All three
factors were found acceptable. Location of the supplies is shown
in Figure 3.
These 28 supplies serve over 106,000 people or about 15 per-
cent of the total state population and approximately 22 percent of
those served by public water supplies in Idaho.
According to State dental health records, fourteen (14) of the
274 public water supply systems in Idaho adjust the fluoride
content of their water for dental health protection. In view of
the small number of systems reportedly fluoridating, a special
fluoride study was conducted of all fourteen supplies. Figure 4
shows the location of the fluoridated systems surveyed.
32
-------
boundary
lL9j
bonner
kootenai
120
.26
22
5 benewah ;shoshone*
latah "1
O I
I ' ' clearwater
nez percej^ ^-^
2--V Pr
lewisb
^ idaho
3
i
2
3
4
5
6
7
8
9
10
11
12
12
14
BOISE
LEWISTON
GRANGEVILLE
ST. ANTHONY
ST. MARIES
ABERDEEN
ARCO
COUNCIL
POTLATCH
RIRIE
HORSESHOE BEND
HAGERMAN
FRANKLIN
LAPWAI
15
16
17
18
19
20
21
22
23
24
25
26
27
28
HAZELTON
FIRTH
ARIMO
ROCKLAND
MOYIE SPRINGS
ATHOL
MIDVALE
EAST HOPE
CASTLEFORD
STANLEY POND W.A.
MURPHY
HOPE
HOLLISTER
EUGENE OUTLOOK W.A.
\
1
24
28
/ lemhi
adams'l valley '
l*{ /X>\
i 4.1 ^ 1 (' ^'^^' \I—V*^ r1 A
Washington^ jL custer '*> Jf dark f 4
^—Vf-fbTB'e \ VT r— rfrem°nt
payette/ | ^ ,; L-(" I K .^,
"El 11 X" 1 -/~-\, 1 ' nefferson ! tet n
\ / ; ^"7 \js^ ^-^utte ' _ _I^^--1
\ 'ada'Y'^ f* Sblaine -^ pt'l bonneville ~"~
i i ' 1
canyon
r-J"lbonneville
\ jaud ; i ^ -», p" •—-^_
""""'..•|5* |elmore lea mas L_ '--y'bingham U"
FIGURE 3
PUBLIC WATER SUPPLY SYSTEMS SURVEYED
-------
BOWERS FERRY
COUNCIL
JEROME
LAPWAI
LEWISTON
:ALL
9
iO
n
12
bejewah jshoshone
"IONTPELIER
MOUNTAIN HOME
ORIFINO
PRESTON
"ALMQN
;3 SANDPOINT
i4 SHOSHONE
nez perc
canyon i \
*\ ' ''TV' I4' I6'1'"*
X f 7 i I j
^Lada (elmore .camas L_
's. I •/» I TT:
T~^ V gooding!
owyhee
i r~" fremont
^ L._{—'I K
\ 'Jefferson I teton
'>,!!«• I
'bingham
,
ingam i
' i --- • -- ^C~
l
•.P°werV ban nock
| twin j
! falls ' cassia
-
I on
.r'
oneida
'.bear
lake
i~ i
r franklin
.1 ft-
11
FIOURK 4
FLUOMIDATBD WATKR SUPPLY SYSTKMS IN IDAHO
-------
EVALUATION CRITERIA
The effectiveness of the Idaho water supply program in
protecting public health was judged on the basis of drinking
water quality, reliability of system physical facilities and
adequacy of sanitary surveillance. Criteria used in each aspect
of the evaluation follows.
WATER QUALITY
Adequacy of drinking water quality was based on the follow-
ing bacteriological and chemical criteria
1. Bacteriological quality - Comparisons were made of the
bacteriological sampling record of each supply for 12 months
prior to the survey against the bacteriological sampling frequency
and quality criteria of the 1962 United States Public Health
Service Drinking Hater Standards (1), hereafter referred to as the
Drinking Hater Standards. A supply was considered unsatisfactory
if the bacteriological quality failed to meet the Drinking
Water Standards two or more of the prior 12 months, or if insuf-
ficient samples were collected during two or more of the prior
12 months in order to determine bacteriological quality. Since
many of the smaller supplies routinely do not meet the sampling
frequency, bacteriological samples were collected from the dis-
tribution system of each supply at a rate of 10 percent of the
-------
number required per month by the Drinking Hater Standards.
These samples were analyzed by EPA and health district laborator-
ies and the results used to provide additional background on
water quality. Any sample having a total coliform density
greater than 4 per 100 ml was considered to have failed the
bacteriological standard. In addition, a supply was
considered unsatisfactory if the arithmetic mean coliform
density of the samples collected during the survey exceeded
one per 100 nl.
2. Chenical quality - Samples for chemical analyses were
collected from each supply in accordance with the schedule shown
in Table 3. These samples were analyzed by Environmental Pro-
tection Agency Laboratories for the parameters listed in Table 4.
Each sample was compared to the chemical quality criteria of the
Drinking Hater Standards and rated as either:
1. Meeting the Standards for all parameters,
2. Failing to meet one or more of the "recommended" limits,
but meeting all of the mandatory limits, or
3. Failing to meet one or more "mandatory" limits.
FACILITIES
Adequacy of water supply system facilities was judged on the
basis of the Manual for Evaluating Public Drinking Water Supplies
(4) and the Drinking Water Standards. System elements considered
38
-------
TABLE 3 - WATER SUPPLY FIELD SURVEY SAMPLING SCHEDULE
Population
Group
Over 25,000
5,000-25,000
1,000-5,000
500-1 ,000
Under 500
System
Boise
Lewis ton
Source
36 Wells
Treatment
Chlo
River & 3 Wells Filt/Chlc/Fluo
St. Anthony 4 Wells Ohio
St. Maries
Grangeville
Aberdeen
Arco
Horseshoe Bend
Council
Ririe
Potlatch
Hagerman
• Arimo
Firth
Castleford
Eugene Outlook
Moyie Springs
Athol
Hope
Hoi lister
Murphy
Lapwai
Rock! and
Stanley-Pond
Hazel ton
East Hope
Franklin
Midvale
Rochat Creek Chlo
2 Wells Chlo
3 Wells
4 Wells
None
Chlo
4 Wells None
3 Springs/2 Wells Chlo/Fluo
2 Wells
5 Wells
Spring
None
None
Chlo
Springs & Well Chlo
2 Wells None
Well Chlo
Well None
Skin Creek
Well
Spring
2 Wells
2 Wells
2 Wells
Well
Well
2 Wells
Creek
6 Springs
2 Wells
Filt/Chlo
None
None
None
None
Fluo
Chlo
None
Chlo
Filt/Chlo
None
None
Source
Raw
Bact.
36
4
4
1
2
3
4
4
5
2
5
1
3
2
1
1
1
1
1
2
2
2
1
1
2
1
6
2
Source
Finished
Distribution
System
Wet Trace Rad. Other Bact. Trace
5
36
2 4
1 4
1 1
1 2
1 ' 3
1 4
1
2
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
4
5
2
5
1
3
2
1
1
1
1
1
2
2
2
1
1
2
1
6
2
5
2
1
1
1
1
4
1
2
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
Special
_
Special
_
_
_
_
_
_
_
_
_
_
_
_
Special
-
_
_
_
_
_
_
_
Special
-
10
4
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
10
4
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
-------
TABLE 4
CHEMICAL ANALYSES CONDUCTED ON SURVEY SAMPLES
Routine For All Supplies
Arsenic (As)
Barium (Ba)
Cadmium (Cd)
Chloride (Cl)
Chromium (Mexavalent - Cr+6)
Cobalt (Co)
Color
Copper (Cu)
Fluoride (F)
Iron (Fe)
Lead (Pb)
Manganese (Mn)
Mercury (Mg)
f'ethylene-Blue Active Substances
(MBAS)
Nickel (Ni)
Nitrate (NOo)
pH
Radiochemical
Gross alpha
Gross beta
Selenium (Se)
Silver (Ag)
Specific Conductance
Sulfate (504)
Total Dissolved Solids (TDS)
Turbidity
Zinc (Zn)
Special For Selected Supplies
Cyanide (Cn)
Carbon Chloroform Extract (CCE)
Carbon Alcohol Extract (CAE)
Insecticides
Aldrin
Lindane
Chlordane
ODD, DDE, DDT
Dieldrin, Endrin
Heptachlor, Heptachlor-
epoxide
Methoxychlor, Toxapiiene
Herbicides
2, 4-D
2, 4, 5-T
Si 1 vex
-------
were:
1. Source - Each source was judged by compliance of its
chemical quality with the Drinking Water Standards, protection
against contamination, and adequacy of quantity as determined by
past experience and current water demands.
2. Treatment - Facilities were judged on the basis of the
degree of treatment provided, maintenance and operation of equip-
ment, and overall reliability of operation including standby
equipment.
3. Distribution - Finished water storage facilities and
system pressure were included in evaluating the distribution
system. Storage was considered adequate fron the standpoint of
quality protection if reservoirs were covered and well maintained.
Storage volume was judged adequate if sufficient quantities of
water were available during periods required for repair of treat-
ment and/or punping equipment. Pressure in various parts of
the system was used as a measure of the adequacy of pipe sizing
and looping. A pressure of at least 20 psi in all parts of the
system was considered adequate.
4. Quality control - A supply was judged adequate if proper
records of system operation were being maintained; appropriate
bacteriological and chemical testing was being performed; and a
cross-connection surveillance, elimination, and device testing
program was being implemented.
41
-------
Each supply was rated on the above four system elements as
shown in Appendix A, Table III. A public health risk factor,
ranging from 0 to 10, was then assigned for each supply. A risk
factor of zero indicates least or little risk, while a rating of
10 indicates most or high risk.
WATER SUPPLY PROGRAM
Adequacy of the State surveillance program was evaluated on
the following
1. Legislative authority - Reviews were made of the State
statutes pertaining to protection of the State's water resource
for drinking purposes and to provisions for safe water supplies.
2. Regulations and policy - Rules and regulations promulgated
by the Department of Environmental and Community Services and
the program policies adopted by the Environmental Protection
Division were reviewed to determine their adequacy with respect to
current water supply practice.
3. Surveillance of water supplies - Reviews were made of
bacteriological monitoring, chemical monitoring and field surveil-
lance. These program elements were considered adequate if:
a. The number of bacteriological samples examined for
each supply met the minimum number specified in the Drinking
Water Standards 11 of the 12 months immediately prior to the
survey,
42
-------
b. Chemical analyses, including all parameters listed
in the Drinking Water Standards, had been performed within the
previous three years,
c. The results of bacteriological and chemical samples
not meeting the Drinking Hater Standards were reviewed and the
necessary follow-up performed routinely,
d. A field survey of the supply had been conducted
within 12 months prior to the survey, and
e. Follow-up surveys to previously identified system
facility and operational deficiencies were performed routinely.
4. Laboratory support - Surveys were made of the State
bacteriological and chemical laboratories in Boise as well as the
Department's bacteriological laboratories in Lewiston and Idaho
Falls. Each laboratory was evaluated to determine its capabil-
ity to provide adequate support for the program and the compliance
of its procedures with Standard Methods for the Examination of
Hater and Wastewater (2).
5. Budget and staffing - Present staffing and program
funding levels were evaluated and compared with the adequacy of
program elements described above.
6. Other program activities such as operator training and
certification, cross-connection control, fluoridation, and
technical assistance were also evaluated.
43
-------
STUDY FINDINGS
WATER SUPPLY STATUS
Bacteriological Quality
Review of the bacteriological sampling records indicated
that 21(75%) of the 28 supplies evaluated either failed to meet
the bacteriological quality limits of the Drinking Water Standards
(1) two or more of the 12 months prior to the survey or failed
to collect sufficient samples during the period to adequately
determine bacteriological quality. These systems serve over
13,750 people or approximately 13% of the population served by
public water supplies surveyed.
Further breakdown of data, as shown in Appendix A, Table II,
indicated that nine (35%) of the 26 supplies submitting bacter-
iological samples failed to meet the bacteriological quality
standards at least one month during the period. Tv/o supplies had
submitted no samples. Of these two, one failed to meet the bac-
teriological standards for the samples collected during the
survey.
The ten supplies failing to meet the bacteriological standards
either during the 12 month period prior to the survey or as a
result of samples collected during the field investigations were
evaluated in an attempt to relate bacteriological quality to
disinfection practices. As shown in Table 5, there is no
-------
TABLE 5
BACTERIOLOGICAL QUALITY OF DISTRIBUTED WATER
RELATED TO CHLORINATION PRACTICE
Type of Source Chlorinaticn
Practiced
Surface Water
Source
Mixed Ground
and Surface
Water Source
Spring Source
i/.'sll Source
[iixed Spring
and Well Source
All Types
llO
Yes
No
Yes
No
Yes 2J
No
Yes
tlo
Yes
No
Yes
Number of
Systems
0
2
0
1
2
2
15
3
1
2
18
10
Percent Systems
Exceeding
Col iform Limit I/
0
0
100
100
33
33
0
50
39
40
Number of
Systems v.'ith
Inadequate
Chlorination
0
0
2
1
1
4
]_/ Bacteriological data from State record for 12 months prior to survey.
Where no samples submitted during this period, survey data was used.
2J Some springs chlorinated.
-------
apparent correlation between bacteriological quality and
either type of source or disinfection. Of importance, however,
is the relationship between the adequacy of chlorination, as
determined by field survey observation, and bacteriological
quality. In addition to the statistical significance noted,
examination of individual system data confirms that the supplies
with inadequate chlorination exceeded the bacteriological
standards.
Comparisons of bacteriological quality with system size
were also made. Table 6 shows the relationship of bacteriological
quality to population served. These results indicate that
smaller water systems in Idaho distribute poorer quality water.
Chemical Quality
As shown in Table 7, the average period since the last state
chemical analysis for the 28 supplies surveyed was 9 years. The
chemical constituents routinely reported from these analyses
were those for which recommended standards have been established.
Constituents such as arsenic, barium, cadmium, chromium, copper,
cyanide, lead, mercury, MBAS, organics (CCE, CAE), phenols,
silver and selenium were not routinely monitored. Adequacy of
chemical quality for the 28 supplies surveyed was determined,
therefore, from samples collected during the field surveys.
Details of particular constituents exceeded in these samples are
found in Appendix A, Table II.
49
-------
TABLE 6
COMPARISON OF WATER DUALITY BY POPULATION GROUP
BACTERIOLOGICAL STANDARDS NOT MET
Samples Collected
POPULATION
GROUP
Over 25,000
5,000-25,000
1 ,000-5,000
500-1 ,000
Under 500
Combined
Survey
NUMBER OF
SYSTEMS
SURVEYED
1
1
5
4
17
28
During
Number
of
Systems
0
0
0
1
4
5
Survey
Percent
of
Systems
0%
0%
0%
25%
24%
18%
Samples Submitted
Prior 12
Number
of
Systems
0
0
0
3
6
9
Months
Percent
of
Systems
0%
0%
0%
75%
35%
32%
CHEMICAL STANDARDS NOT MET
RECOMMENDED
NOT MET
Number
of
Systems
1
0
2
0
3
6
Percent
of
Systems
100%
0%
40%
0%
18%
21%
MANDATORY
NOT
Number
of
Systems
0
0
0
0
1
2
MET
Percent
of
Systems
0%
0%
0%
0%
6%
7%
-------
TABLE 7
COMPARISON OF SYSTEM SURVEILLANCE BY POPULATION SERVED
RANGE OF POPULATION
Over 25,000
5,000-25,000
1,000-5,000
500-1,000
Under 500
Combined
Survey
NUMBER
OF
SYSTEMS
SURVEYED
1
1
5
4
17
28
AVERAGE
NUMBER
OF YEARS SINCE
LAST
Chemical
Analysis
1
2
5
8
11
9
STATE
Sanitary
Survey
1
1
5
6
9
7
SYSTEMS
NOT MEET
ING
SURVEILLANCE REQUIREMENTS
Chem.l/
Anal .
n°/
U/o
0%
80%
75%
76%
71%
San.2/
Survey
0%
0%
80%
100%
82%
78%
Bact.3/
Anal .
0%
0%
40%
100%
47%
54%
OPERATOR
TRAINING
Short
School
100%
100%
60%
25%
12%
36%
Total Population Served by Systems Surveyed: 106,035
Total State Population - 1970 Census: 713,008
Percent Population Surveyed: 15%
]_/ Sampling Frequency: Within 3 years
2/ Survey Frequency: Annual
3/ Bacteriological Sampling As Required to Meet USPHS Drinking Water Standards
-------
Results of the analyses indicated only one supply (4%) not
meeting the mandatory chemical standards. Drinking water failing
to meet the mandatory chemical standards poses a threat of toxic
material hazardous to human health. Supplies or individual
sources from which samples have been confirmed as failing to
meet these standards should be rejected.
Seven (25%) of the systems surveyed failed to meet one or
more of the recommended chemical limits. Concentrations of chem-
ical constituents exceeding these limits may impart objectionable
taste, odor and/or undesirable physiological effects. Since
these render drinking water less than desirable or aesthetically
inferior, supplies or individual sources failing to meet these
standards should be evaluated for treatment or used as standby
for alternate higher quality sources.
These results illustrate the importance of routinely pro-
viding complete chemical analyses to detect potential health
problems.
Facilities
Information obtained during sanitary surveys was used to
rate systems Adequate (A) or Inadequate (I) in each of four
system elements: source, treatment, distribution and quality
control. A risk factor was then assigned on the basis of the
relationship of noted facility deficiencies to potential water
quality deterioration and public health risk. Ratings for
individual system elements and the assigned risk factors are
52
-------
presented in Appendix A, Table III.
The risk factor is an overall judgment of the system by the
surveying engineer rather than a summation of deficiencies in
individual system elements. The factors, ranging from 1 to 8
with an average of 3.9, indicate that significant facility prob-
lems exist. As shown in Appendix A, Table III, 14 (50%) of the
supplies were considered to have inadequate protection of the
source against contamination. Even more significant is the fact
that 9 (64%) of these 14 supplies were also found to have either
inadequate treatment or none at all.
Thirty nine (39) percent of the system were judged to have
inadequate distribution system facilities and 96 percent were
providing inadequate quality control to assure protection of the
water supplied. A number of the larger supplies were providing
appropriate bacteriological sampling, chemical testing and oper-
ating records. Only one supply, however, was judged to be carry-
ing out an adequate cross-connection control program. Most of
the smaller supplies were deficient in one or all of these areas.
Operator Competence
Proper system operation and maintenance is essential in
providing an adequate supply of safe drinking water. A good
operator knows more than how to start a pump or open a valve.
He also should be knowledgeable about the importance and prac-
tice of treatment required for his supply, as well as elementary
53
-------
water chemistry and microbiology.
Evaluation of the operators and their qualifications for the
28 water supplies surveyed revealed that only 3 (11%) employed
full-time water system operators. Five supplies (18%) utilized
full-time employees but divided their responsibilities between many
areas of the public works department.
Most of the operators interviewed were conscientious and
concerned about doing a good job. None, however, had received
any college level training in water supply operations and only
8 (29%) had participated in any operator short school training.
Many of the operators, although aware of their lack of knowledge
in critical public health aspects of water supply operations,
felt they could not afford the time away from the job for even
short course training. Several stated that the city would not
reimburse them for expenses incurred for such training or permit
them to leave the local area.
Fluoridation
Fluoridation is a proven public health practice which pro-
vides an optimum level of fluoride ion for the prevention of
tooth decay. Proper operation and maintenance of fluoridation
equipment, as well as concern on the part of the operator, are
essential if maximum health benefits are to be realized.
54
-------
At the time of the survey 14 suppliers were reported by the
Department of Environmental and Community Services to be fluori-
dating. Field surveys of all 14 revealed, however, only 8 instal-
lations in operation. Six had discontinued feeding fluoride for
various reasons, including equipment breakdown and disfavor of
fluoridation by the operator.
The actual level of fluoride in the distribution system is
the single most important factor in evaluating the adequacy of a
water fluoridation program and the benefits which will be received.
Of the eight installations in operation only two (25% were found
to be providing a fluoride ion content in the distribution system
within the 0.8-1.3 mg/1 range recommended by the State. Five
(63%) were underfeeding, thereby significantly reducing the health
benefits of fluoridation, and two (25%) were overfeeding. Samples
collected from one system were both above and below the recommended
fluoride ion range.
Operators at two of the eight installations were not con-
ducting fluoride ion analyses and in fact had no test equipment
or facilities for such analyses. Of the six performing fluoride
ion analyses only three were conducting analyses daily and none
were analyzing raw water for natural fluoride content on a regular
basis. Only one operator was routinely sending the required
monthly check sample to the State Laboratory.
Fluoride feed equipment and facilities were found adequate
55
-------
at 4 (50%) of the installations operating!. Maintenance was judged
satisfactory at only 4 (50%) of the facilities even though plant
operators had been advised of the survey. Storage arrangements
for chemical conpounds were unsatisfactory at 4 of the 8 installa-
tions, and 6 of the operators interviewed either did not. have
available or were not using safety eauipr.ent in their operation.
A trained operator with a genuine interest in feeding
fluoride is essential to the satisfactory operation of a fluori-
dation installation. Two of the eight facilities were operated
by personnel not completely familiar with the chemical feed
equipment at their plants, and three cf the six operators per-
forming fluoride analysis were not adequately trained in use of
the test equipment. In addition, 3 of the 8 operators interviewed
did not favor fluoridation of public water supplies.
WATER SUPPLY PROGRAM
Legal Authority and Responsibilities
Regulatory authority over health aspects of public water
supplies in Idaho is provided in Idaho Code, Title 37, Chapter 21,
Section 37-2102: Domestic water to be protected. Section 37-2102
provides:
1. That any person, corporation, or officers of a
municipality owning or operating a systen for the purposes of
providing water for domestic purposes shall protect the system
and keep it free from impurities, whether bacterial or chemical,
56
-------
2. That the State Board of Health shall annually
promulgate standards for protection from impurities and standards
for bacterial and chemical purity which must be consistent with
the drinking water standards of the U.S. Public Health Service,
and
3. The State Board of Health authority to issue
reports and post signs indicating compliance with the standards.
Section 37-2103 specifies that any person, corporation or
officers of a municipality failing to comply with the provisions
of Chapter 21 shall be guilty of a misdemeanor.
Title 39, Chapter 4, Section 39-414 of the Idaho Code pro-
vides that the District Boards of Health shall have and may
exercise the powers and duties to administer and enforce all State
health laws, regulations and standards, and to do all duties
expressly delegated to them by the State Board of Health. On
June 16, 1971 the State Board of Health delegated to the seven
District Boards of Health authority to enforce State public
health laws and Board of Health rules and regulations in the
areas of food service establishments, meat and meat products,
milk, solid waste, septic tanks, swimming pools and vital statis-
tics. Public water supply was not included in the delegation of
authority and thus primary responsibility for enforcement of the
public water supply regulations renains with the State health
agency.
57
-------
The Environmental Protection and Health Act of 1972, creating
the Department of Environmental Protection and Health, transferred
the authority of the Board of Health and the functions of the
Department of Health to the new agency. Provisions of the act
are included in Idaho Code, Title 39, Chapter 1.
Sections 39-101 to 39-114 establish statutory definition of a
public water supply; empower the administrator of the department
to enforce standards, rules and regulations relating to public
water supplies, enable the Board of Environmental Protection and
Health to adopt, amend, or repeal rules, reoulations, codes and
standards, and provide for civil penalties of up to $1,000.00
per day for non-compliance with provisions of the act or any
rule or regulation promulgated thereunder.
The 1973 Idaho Legislature enacted three measures impacting
the water supply program as follows:
1. Section 39-103, Idaho Code, relating to definition
of terms is amended to define a public water system as all facil-
ities actually used or intended for use in serving water for
drinking or domestic use to ten or more separate premises or
households, or any other supply which serves water to the public
and which the Department of Environmental Protection and Health
declares to have potential health significance.
2. Section 39-118 is added to Chapter 1, Title 39,
Idaho Code providing for the submission of plans and specifica-
58
-------
tions for the new construction of or modification to all public
water supply systems or public water treatment systems and for
the approval of the plans and specifications by the Department
of Environmental Protection and Health prior to initiating con-
struction. The requirement may be waived by the Department if
the facility v/ill produce no impact on the environment or public
health.
3. The Department of Environmental Protection and
Health is merged with the Department of Social and Rehabilitation
Services, and the State Youth Training Center and is designated
the Department of Environmental and Community Services. All codes,
rules, regulations, standards, plans, licenses, permits., and
certificates of the former departments remain in effect and the
Board of Environmental Protection and Health is retitled the
Board of Environmental and Community Services. The Governor is
also authorized to establish substate administrative regions to
improve the delivery of environmental, health and social services.
The Idaho Code provides comprehensive administrative mach-
inery for the acquisition of water rights to both surface and
ground waters. In addition, Title 42, Chapter 2, Section
42-238 of the Code vests in the Department of Water Administration
the power and duties relating to minimum well construction stand-
ards for protection of ground water resources and to the licensing
of well drillers.
59
-------
Regulations and Standards
The standards currently in use by the Division of Environ-
mental Protection for public water supplies were adopted in
November 1964. These standards reference the appropriate sections
of the Idaho Code, provide definitions of key terms, and specify
the type of source, treatment, operational and water quality
standards upon which the adequacy of the supply is judged.
Water supply is to be obtained from the most desirable source
with effort being made to prevent or control source pollution. If
adequate source protection is not provided, treatment is required.
Frequent surveys are to be made by the purveyor to identify health
hazards. Correction of health deficiencies is to be made in
accordance with a program approved by the regulatory agency. The
agency or individual responsible for the condition of the system
is also defined.
Approval of water supplies is dependent in part upon enforce-
ment of rules and regulations, adequate protection of water
quality throughout the system, proper system operation under
qualified personnel acceptable to the regulatory agency, adequate
system capacity, satisfactory record of laboratory examinations
showing compliance with water quality standards, and submission
and approval of engineering plans and specifications for construc-
tion or expansion of the system.
60
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Water quality must meet criteria adopted from the 1962 U. S.
Public Health Service Drinking Water Standards. These criteria
include standards for sampling, bacteriological quality, physical
characteristics, chemical quality, and radioactivity. Recom-
mended analytical methods for determining compliance with the
standards are also included.
Construction and design standards are also included. Part I
outlines the format and material to be included in submitting
plans and specifications. Parts II and III describe requirements
for utilization of surface and ground water sources. Parts IV
through XII include recommendations and requirements for pre-
treatment, high rate treatment units, softening, filtration,
disinfection, iron and manganese removal, taste and odor control,
and fluoridation. Part XIII outlines standards for the location
of pump stations, construction of buildings, and the construction
and installation of pump units. Part XIV lists requirements for
the design, location, material, interior protective coating, and
disinfection of storage reservoirs and pressure tanks. Part XV
prescribes acceptable distribution system materials, pipe sizes,
locations and pressures as well as specifying disinfection
requirement for water mains and prohibiting cross-connections.
Organization
Considerable reorganization of health and social service
61
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agencies has occurred recently in Idaho. At the time of the
field survey in 1971-1972, the Idaho water supply program was
organizationally located within the Idaho Department of Health.
The water supply activity was not an identifiable unit within
the organization and had no specific manpower or budget alloca-
tions. General direction for program activities was provided
by the Chief of the Engineering Division. Field work was
accomplished by individuals in the three Health Department
Regional Offices. Total manpower allocation for public water
supply activities in FY '71, including clerical support, was
estimated by the Department to be 1.0 man-year. Estimated
water supply program expenditures, excluding laboratory support,
were $22,000. Laboratory support for this same period was cal-
culated at $69,000. The total expenditure of $91,000 for FY '71
amounts to approximately $330 for surveillance of each of the
274 public water supplies in Idaho, or about 13 cents per capita.
Creation of the Department of Environmental Protection and
Health by legislative mandate in 1972 resulted in certain organ-
izational changes and the establishment of the Division of
Environmental Protection. Water supply activities remained
located in two of the three organizational units under the
Division. General program direction was provided by the Director
of Categorical Programs with field work being carried by the
62
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regional office staff under direction of the Director of Regional
Operations. Manpower and budget for FY '72 water supply activi-
ties remained the same as that in FY '71.
Estimated manpower and budget figures for FY '73 water supply
surveillance activities show an increase in manpower expenditures
to 2.7 man-years and a budget increase to $44,000. These figures
include program direction, plan review and field surveillance.
Laboratory support increased to $80,000 for the period. Total
estimated expenditures for FY '73 are $124,000, which amounts to
approximately $450 per supply or 17 cents per capita. Table 8
illustrates the status of water supply budget allocations for
the period FY 1971 to FY 1973.
Creation of the Idaho Department of Environmental and
Community Services by the 1973 Idaho Legislature has had little
influence on the basic organization structure of the State's
environmental programs. An organization chart for the Department's
Environmental Protection Division is shown in Figure 5. Signifi-
cant for improving the posture of water supply activities in the
State, however, is the inclusion of a public health engineer
position under the Director of Categorical Programs specifically
for water supplies and swimming pools. This individual will be
primarily responsible for standards revision, policy development,
training coordination, and overall water supply program direc-
tion. As in the past, field surveillance for all environmental
63
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TABLE 8
WATER SUPPLY ACTIVITY RESOURCE ALLOCATIONS
FISCAL
YEAR
1971
1972
1973
MANPOWER
FOR
ENGINEERING
(MAN- YEARS)!/
1.0
1.0
2.7
DOLLAR EXPENDITURES
ENGINEERING
ACTIVITIES
22,000
22,000
44,000
LABORATORY SUPPORT
(BACT. + CMEM.)
56,500+12,500
55,700+13,300
58,000+22,000
TOTAL
91,000
91 ,000
124,000
PER SYSTEM
330
330
450
PER CAPITA!/
,13
.13
.17
_]_/ Includes clerical support
2/ Calculation based on total State population, 1970 census
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FIGURE 5
ORGANIZATIONAL CHART-IDAHO DEPARTMENT OF ENVIRONMENTAL AND COMMUNITY SERVICES
DEPAR1
OFFICE OF PROGRAM
SUPPORT
LABORATORY SECTION
GOVERNOR
1
ADMINISTRATOR
FMENT OF ENVIRONMENTAL & COMMUNITY SERVICES ~
1
BOARD OF ENVIRONMENTAL
PROTECTION & HEALTH
ASSISTANT ADMINISTRATOR
ENVIRONMENTAL PROTECTION DIVISION
1
DIRECTOR
AIR & WATER PROGRAMS
Planner
Engineer Permits
Env. Quality
Specialist
Engineer
Air Pollution
Sup. Env. Quality
Specialist
Env. Quality
Specialist
Specia
DIRECTOR
CATEGORICAL PROGRAMS
Solid Waste
list
Engineer | —
Equip. Oper. | — '
Public
Water
Swimm
Visual Pollution
Control
Noise Pollution
Control
Health Engineer
ing Pools
Vector
Control
Reg
P
T . . .
Hygiene
Quality
Control
Milk Prog. Cord.
Food & Drue Cord.
Radiati
Control
on
DIRECTOR
REGIONAL OPERATIONS
1
. Env. Dir. Reg. Env. Dir. Reg. Env. Dir.
ocatello Boise Couer d'Alene
Env: Quality
Specialist
Env. Quality
Specialist
Hr • 1
Engineer |
— 1 Aquatic Biologist
Health Physicist
Env. Quality
Specialist
Env. Duality
Specialist
— Engineer
— Env. Quality
Specialist
_ Aquatic Bi-
ologist
Env. Quality
Specialist
— Env. Quality
Specialist
— Engineer
-------
program activities will be carried out by the staff of the
three Regional Offices.
The Regional Environmental Directors are registered profes-
sional engineers and have water supply experience. At least one
other member of each Regional Office staff is also an engineer.
However, additional time will be required for these individuals
to obtain water supply experience.
Laboratory support for water supply activities is provided
by the Laboratory Section under the Department's Office of
Program support. The Laboratory Section operates a central
laboratory in Boise which provides chemical analyses capability
for all Department programs. Bacteriological analyses are pro-
vided by the central laboratory and five branch laboratories
located in Coeur d'Alene, Lewiston, Twin Falls, Pocatello and
Idaho Falls. These laboratories provide bacteriological capa-
bility for all State and Health District program activities.
Activities
Engineering activities and responsibilities concerning public
water supplies, as outlined in the previously stated regulations,
are:
1. Development of rules and regulations to assure protection
of domestic water supplies,
2. Review of plans and specifications for new construction
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and modification to existing systems,
3. Inspection of facilities and operation of all public
water supplies,
4. Review and evaluation of operating reports and water
quality data fron public water supplies, and
5. Enforcement of sanitary standards to protect the quality
of water served to the public.
In addition, other services performed include:
1. Training of water plant operators,
2. Technical consultation with consulting engineers and
water supply purveyors on special problems and during emergency
conditions, and
3. Assistance to Federal and other State agencies.
Past manpower and budget limitations have prevented the
water supply program from meeting these responsibilities. Rules
and regulations for protecting public water supplies in Idaho
were last adopted by the State Board of Health in 1964. Although
these rules and regulations contain standards for both water
quality and facility design and construction, they are in need of
revision to incorporate new quality criteria and to reflect cur-
rent construction, operation and maintenance practices.
Necessary routine field inspections of public water supplies
and complete and timely reviews of operating report and water
67
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quality data have not been accomplished because of restricted man-
power. The cross section of public water supplies surveyed
during this evaluation showed that 78 percent of the systems had
not been surveyed within the previous 12 months and that the
average period since the last survey was over 7 years.
Well-written reports, outlining the findings and recommenda-
tions of water supply inspections, are essential to obtain desired
improvements. However, very few detailed reports have been pre-
pared in recent years. Many of those which have been completed
were sent to the communities a number of months after the survey.
To be effective, a report should be submitted to the community
within a month of the survey while the findings and recommenda-
tions are still fresh in the minds of the engineer and the
system operator. Follow-up contact with the operator by phone,
letter or field survey is important to determine compliance with
the recommendations of the survey report. Here again, insuffi-
cient manpower has prevented adequate follow-up.
Surveillance of water quality includes review of bacter-
iological and chemical data as well as routinely submitted oper-
ating reports. Very little has been done recently in this area
by the water supply program. Although operating records are
required by the Idaho Drinking Hater Standards (3), few are
submitted and little effort is made to encourage more complete
reporting. Those reports submitted receive only cursory review
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by the engineers. The bacteriological sampling program has also
suffered from lack of staff. Little effort has been made to
ensure that all water supplies are submitting the required number
of samples per month. Of the 28 water supplies surveyed during
the evaluation, 68 percent had failed to collect the required
number of bacteriological samples during 2 or more months of the
previous 12 month reporting period.
A copy of each bacteriological analysis is provided to the
appropriate regional engineer. The engineer is responsible for
following up on unsafe samples and ensuring that resamples are
submitted. A review of the bacteriological records revealed that
little resampling or investigation was done after a sample showed
contamination.
The chemical sampling program has been inadequate also. Of
the 28 supplies surveyed 71 percent had not received a chemical
analysis within the previous three years. Credability of a
chemical sampling program depends not only on the frequency of
sampling but also on the completeness of the analyses with respect
to the health parameters contained in the standards. Review of
the chemical sampling program revealed that, in general, the anal-
yses did not include health parameters such as arsenic, cadmium,
chromium, cyanide, lead, silver, etc. Analyses of these parameters
is basic in determining the acceptability of the supply for human
consumption.
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Routine surveillance of communities which adjust the fluoride
level in their water supply is important in providing health pro-
tection for those served. Regular inspections of the fluoridation
installations and frequent check samples of fluoride levels in
the system must be conducted to assure proper operation. Review
of the water supplies adjusting fluoride levels showed only 13
percent submitting monthly check samples to the State. Results
of these check samples are provided to the Dental Health Section.
The water supply program was not provided with this information.
Inspection visits to the fluoridated water systems by water supply
program engineers averaged one visit in five years. The complete
report of fluoridation practice in Idaho is included in Appendix B.
Since there are few formal inspections and follow-up surveys
of water system facilities and limited review of water quality
and operating reports, little enforcement is accomplished. Hhere
changes are implemented, the regional engineer may not return to
the system for a year or more to verify that proper action was
taken. Enforcement of the Idaho Drinking Water Standards is
hampered by the lack of manpower to carryout both field surveys
and laboratory analyses as well as by a time consuming, manually
operated data recording system.
One responsibility which has been carried out with some
degree of regularity by the water supply program is the review
70
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of plans and specifications for new construction and modifica-
tions to existing water system facilities. This effort, along
with providing technical assistance on special problems and
emergencies, accounts for the majority of the resource alloca-
tion to water supply activities.
The Environmental Protection Division and its predecessor
departments conduct an annual three day water supply-wastewater
operators short school. The State currently maintains voluntary
operators certification programs for both water supply and
wastewater operators. As of July 1973, 178 operators representing
38 communities (13%) have been certified under this program.
Although the results cf these efforts have been beneficial, many
of the operators who need the training the most are not attending.
This is particularly true for the operators of small systems.
These individuals are usually part-time operators or have other
responsibilities in the municipality and thus are unable or
unwilling to travel long distances or to be away from their job
responsibilities to attend training programs of the type necessary
as prerequisites for certification.
As noted previously, bacteriological and chemical laboratory
support for the water supply program is provided by the Depart-
ment's Laboratory Section. Facilities and procedures were eval-
uated at the central bacteriological and chemical laboratories
71
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and at two of the five branch bacteriological laboratories. Com-
plete reports for the bacteriological laboratories are included
in Appendix C. These reports conclude that the three bacteriolog-
ical laboratories generally met the provisions of Standard Methods.
A number of facility and operational recommendations were made.
Primary among these was the need to provide new quarters or
increased facilities in Idaho Falls. The report notes the limited
facilities could influence the quality of work and reliability
of data. On July 1, 1973, the Idaho Falls laboratory moved into
new quarters providing twice the space of the previous facility.
Additional equipment has also been purchased.
A complete report for the chemical laboratory is included in
Appendix D. The report notes that in 1971 the laboratory anal-
yzed samples from only approximately 1/3 of the number of water
supplies considered necessary for a minimal operation. Adding to
the inadequacy of the chemical surveillance program was the fact
that the laboratory routinely analyzed only 11 of the 25 sub-
stances included in the Drinking Water Standards. The report
concludes that although the equipment is available for carrying
out analyses on all but two of the parameters specified in the
Drinking Water Standards, more personnel are needed to carry out
the analyses of additional chemical parameters and the desired
increase in sampling.
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PUBLIC HEALTH RISK
Since the middle of the nineteenth century, when Dr. John
Snow conducted ins classical study on the transmission of
cholera through a water supply, it has been generally recognized
that disease epidemics can, and do, result from consumption of
water containing pathogenic microorganisms. Diseases most com-
monly associated with drinking water are cholera, typhoid fever,
dysentery, and infectious hepatitis. Spread of these diseases
occurs most commonly when body wastes from an infected persons
are ingested. While person-to-person contact is recognized as
the common method of transmission for low incidence levels
currently found in this country, the potential for catastrophic
epidemics transmitted by drinking water supplies which serve
thousands cf people remains.
Human body wastes from an infected person, when present in
inadequately treated drinking water, have caused waterborne dis-
ease outbreaks in Idaho. Three outbreaks involving public water
supplies have been reported during the past 15 years. Fortu-
nately, none of the outbreaks resulted in a fatality. The most
well documented case occurred in Wilder during April 1958. In
this incidence approximately 200-250 persons became ill reportedly
suffering from vomiting, headache, fever, and diarrhea. Surveys
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of the water system showed deficiencies which could have con-
tributed to contamination of the system. Results of bacteriolog-
ical analyses confirmed the presence of Shigella organisms in the
system. The suspected cause of the contamination was a jail cell
above an underground water storage reservoir. The jail cell had
no toilet facilities and shigella organisms v.'ere isolated from
floor areas in the cell.
An outbreak of infectious hepatitus occurred in Kamiah during
September 1958. At least 50 cases were reported. Sanitary sur-
veys of the system led health officials to list the probable cause
as contamination of the spring water supply by septic tank seepage
from areas above the spring.
Numerous complaints of summer diarrhea were reported in
Rock!and during the late 1960's. In June 1970, there were wide-
spread cases of diarrhea in Rockland and, following an epidernolo-
gical investigation, the cause was attributed to various viruses
and bacteria, including salmonella, in the water system. Con-
tamination of the system was the combined result of deteriorated
distribution system piping, a high water table, seepage from
septic tanks, and low pressure in the system during the period
of constructing a new distribution system.
Other illnesses occurring at Strike Dam and at Mack's Inn
are suspected to have been caused by drinking water supplies con-
taminated with sewage. A study of gastroenteritis in the Mack's
Inn area in 1946 concluded that the source of infection developed
74
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primarily from contaminated water which acted as a reservoir
of the infection. Although the native population was not affect-
ed, visitors to the area who used the water showed a high rate
of illness.
While epidemological records generally do not show widespread
incidence of waterborne disease, this may reflect incomplete
reporting, inaccurate diagnosis and the fact that much enteric
illness is not treated by physicians, rather than an absence of
waterborne disease. These circumstances have led some health
authorities to suggest that the actual incidence of diseases such
as gastroenteritis and infectious hepatitus may be as high as 100
times the number reported.
After reviewing waterborne disease data over the last three
decades, Craun and McCabe (6) report that outbreaks are no longer
on the decline in the United States. The consistent and dramatic
decrease in the number of waterborne outbreaks noted during the
period 1938-1955 has reversed and since the period 1951-55 a
slight increase has occurred. It is not known if this represents
a real increase or is due to improved diagnosis and reporting.
The significance, however, is that there appears to be no decline.
The authors note that, if similar conditions continue to exist in
the future, the current average of one waterborne disease out-
break per month can be expected to continue.
75
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In recent years, concern also has been directed to the
possible chronic diseases which may result from use of water con-
taining certain chemicals. These potentially dangerous substances
include heavy metals, pesticides and toxic industrial products.
Few clinical cases of illness caused by the presence of toxic
chemicals in drinking water are recorded. Lack of documentation
is not surprising as affected individuals may have unrecognized
symptoms and health agency statistics are limited usually to com-
municable diseases. Heavy metals such as selenium, cadmium, lead,
zinc and arsenic occur naturally in the earth and can be present
in water sources. Agricultural and industrial discharges contain
pesticides and chemicals which may be hazardous to human health.
Certainly, it is evident that every water supply serving the
public should have a complete chemical analysis performed
routinely.
In essentially all documented cases of waterborne illness,
definite deficiencies have existed in the water supply systems
during the period when the disease was transmitted. Furthermore,
these deficiencies either were unrecognized because of inadequate
surveillance for public health hazards, or were recognized but
not remedied due to ineffective persuasion or enforcement by
health officials. Deficiencies similar to those responsible for
epidemics definitely are present in the water supplies of Idaho
and were found during this study. The requisites for repetition
76
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of the waterborne outbreaks of the past, namely the presence of
diseased individuals in the State and the inadequate surveillance
of public water supplies and inadequate enforcement of public
health standards, exist in Idaho. Greater vigilance by Idaho's
health officials and the water supply industry will be required
to minimize public health risk from drinking water.
77
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PROGRAM NEEDS
Previous sections of this report present the findings of
water quality and water system facilities and their relation to
the current status of the public water supply program in Idaho.
These findings clearly demonstrate that the water supply program
is inadequate in the health evaluation and engineering services
necessary to provide the level of surveillance required to
assure low risk to the citizens of Idaho.
There is a definite need to immediately strengthen all
aspects of the State's water supply program. As Idaho's perma-
nent population grows and as more recreational developments are
planned, the need for additional resources to insure safe and
wholesome drinking water for Idaho's citizens and visitors will
become more critical. This section of the report presents nec-
essary improvements to provide Idaho an adequate water supply
program.
AUTHORITY
Idaho statutes require protection of all domestic water
supplies and provide the Department of Environmental and Community
Services with broad regulatory powers to establish and enforce
standards, rules and regulations relating to public water supplies.
Section 39-103, Idaho Code as amended by the 1973 Idaho legislature
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now provides an adequate definition of water supplies to be pro-
tected under rules and regulations. Particularly significant is
the expansion of the definition to include "...any other supply
which serves water to the public and which the Department of
Environmental Protection and Health declares to have potential
health significance." This provides legislative authority for
protection of small recreation area water supplies and supplies
serving facilities at rest stops, service stations and restuarants
along Idaho's highways. Including these installations in the
definition of supplies to be protected is the first step toward
providing adequate health protection to this class of previously
exempted supplies. Other actions necessary for preventing public
health problems will be the establishment of a Department policy
outlining the specific type of supplies to be covered under the
option and the development of standards for design, operation and
surveillance of these special classes of supplies. Specific
recommendations for development of standards and policy will be
discussed later in the report.
Idaho's voluntary water supply operator certification program
is inadequate and should be phased into a mandatory program by
means of proper legislation. This action will assist in assuring
that public water supplies are operated by qualified personnel.
To provide for orderly implementation and to prevent the imposition
of hardship on smaller communities, an implementation schedule
82
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should be developed based on water system complexity. As an
example, water systems designated Class I, or most complex, should
be required to employ on each shift at least one certified opera-
tor within 6 months of passage of the legislation. Similarly,
Class II, III and IV supplies should be required to employ at
least one certified operator within 12, 18 and 24 months respec-
tively. Regulations should be established to require by some
later date minimum numbers of certified operators for the more
complex systems.
In view of the considerable benefits of fluoridation, it is
recommended that the Department of Environmental and Community
Services more actively promote and support fluoridation of com-
munity water supplies. Where the fluoridation of an entire
community water supply is not feasible, school water supply
fluoridation should be considered. Proper fluoridation tech-
niques could be incorporated easily into the State operator cer-
tification program. As qualified operators are available and as
the Department's surveillance and monitoring activities improve,
the program should culminate in enactment of legislation requiring
fluoridation of community water supplies not containing dentally
significant concentrations of natural fluorides.
No provision is made in the Idaho Code to promote the coordi-
nated planning and development of new public water supply systems
and the consolidation of the large number of small supplies
83
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existing in certain regions of the State. This lack of authority
to promote proper planning has resulted in the proliferation of
small public water supply systems which tend to provide poorer
quality, less efficient and more costly service to customers. It
is recommended, therefore, that legislation be enacted to assure
efficient and coordinated development of public water supply
systems. Fewer systems also will assist in the orderly and effi-
cient administration of State surveillance programs for public
water systems.
REGULATIONS
The most recent revision of the Idaho Drinking Water
Standards (3) was adopted in November 1964. These regulations
need updating and strengthening to recognize the Department's
organizational changes, to require new and modified water quality
and monitoring criteria, and to reflect improved water treatment
and distribution practices. The following specific recommenda-
tions are made for improvement of the regulations.
1. The introduction of the Idaho Drinking Hater Standards,
which provides quotations of the Idaho statutes upon which the
regulations are developed, should be expanded to include recent
legislative action impacting the water supply program.
2. References to the powers and duties of the Department,
as well as instruction for implementing the regulations, should
84
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be updated to reflect recent organizational changes.
3. The regulations should define the types of waterworks
facilities which are considered public water supplies. This
definition would go beyond that specified by the legislature
to define or categorize the supplies determined by the Department
to have potential health significance. Included should be supp-
lies serving facilities such as campgrounds, motels, restaurants,
service stations, highway rest stops, etc.
4. Certain portions of the Idaho drinking water quality
standards and recommended analytical procedures need revision.
For example, the outlined procedures for bacteriological analyses
prescribe incubation temperatures and media which are no longer
valid. In addition, the definition of a standard bacteriological
sample limits the procedure to use of the multiple - tube fermen-
tation test. These portions of the regulations should be revised
to incorporate new analytical techniques and to permit increased
latitude in bacteriological analyses. Idaho's drinking water
quality criteria should be updated to reflect new concerns for
the toxicity of chemical contaminants. New standards should be
adopted for pesticides, mercury and organics. Others may be
altered or deleted. The U.S. Public Health Service Drinking Mater
Standards (1), upon which the existing Idaho water quality stand-
ards are based, are currently under revision. It is recommended
that the Department revise the Idaho standards to provide
85
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regulations at least as stringent as the updated Federal standards.
5. Special design and surveillance regulations should be
developed for small public water supplies such as those serving
recreation facilities, motels and restaurants.
6. Special water quality criteria and surveillance regula-
tions should be developed for bottled water and water bottling
facilities.
7. The guidance provided by the current regulations for
determining the type of treatment required for a particular source
is vague. It is recommended that standards be developed specifying
the treatment required for various types of water sources, water-
shed characteristics and raw water quality. As a minimum, all
public water supplies, regardless of source, should receive treat-
ment by disinfection. All supplies utilizing surface water sources
should provide filtration in addition to disinfection unless field
survey and sampling data substantiate that all source protection
and water quality criteria can be met continuously.
8. Bacteriological and chemical sampling frequencies should
be updated to reflect expanding system sizes and increased public
health concern for chemical contaminants. Specifically, the table
or graph of bacteriological sampling requirements should be
expanded to illustrate the minimum number of finished water samples
required from cities with larger populations. Requirements should
also be established for minimum monthly raw water sampling from
86
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surface water supplies. More detail should be incorporated into
the requirements describing the frequency and extent of physical,
chemical and radiochemical sampling. Consideration should be
given to specific requirements or policy based on source and
treatment.
9. The current Idaho Drinking Water Standards state that
approval of a water supply is based in part upon enforcement of
rules and regulations, protection of water quality throughout the
entire system, proper operation by qualified operators, adequate
capacity and pressure, satisfactory record of laboratory examina-
tions, submission of treatment records, and submittal of plans
and specifications for approval prior to construction and exten-
sion of water supply systems. The intent of these requirements
is commendable. Enforcement authority is lacking, however, as
there is no requirement that a public water supply must be approv-
ed. It is recommended, therefore, the regulations be revised to
eliminate this inadequacy and to strengthen each of the essential
program requirements. For example, each purveyor should be
required to keep records of operations and analyses as establish-
ed by the Department. The more complex systems, as defined by
the classification system recommended in Item 3, should be re-
quired to submit to the Department copies of the reports monthly.
The systems also should be required to submit to the Department
annual reports summarizing the system's operations, facility
87
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changes, etc. for the preceding year. Regulations for submission
of plans and specifications should be strengthened to require
their submittal to and written approval from the Department prior
to the start of construction.
10. The current regulations covering cross-connection
control should be expanded. It is recommended that regulations
be developed defining backflow; describing the types of backflow
devices acceptable to the Department; defining typical backflow
situations and proper protection for each; outlining required
minimum testing programs for devices: and defining the responsi-
bility of the purveyor, customer, health officer, and plumbing
authority in implementing the regulations.
11. Requirements should be incorporated in the drinking
water regulations to assure that provisions are made for proper
disposal of water treatment plant wastes such as sanitary, labor-
atory, clarification, softening, filter backwash and brines.
Reference may be made to waste treatment regulations for detailed
design and effluent requirements.
POLICY
As the number of individuals in the central and regional
offices involved in water supply activities increases, it will
become essential to institute a procedure whereby policy is
established and documented for reference. The program will be
88
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beneficial not only to the Department staff but also to consult-
ing engineers and others preparing plans for construction or
modification of v.'ater supply systems. It is recommended, there-
fore, that a program be established to document present and future
water supply policy decisions and to prepare and distribute such
statements for inclusion in a water supply program policy manual.
Program policy statements should be made available to all water-
works industry groups routinely and to individuals upon request.
ACTIVITIES
Engineering Services
Commitments in other environmental programs have caused the
water supply surveillance effort to deteriorate steadily until
in fiscal years 1971 and 1972 only one man-year was expended for
surveillance of the State's 274 public v/ater supplies. Although
the resource allocation for water supply activities increased to
2.7 man-years by the end of FY 1973, the effort remains inadequate.
Surveillance activities should be upgraded. There is
obvious need for an inventory of all public water supplies in
Idaho. Such an inventory has been initiated in conjunction with
the national water supply inventory being developed by the U.S.
Environmental Protection Agency. There is evidence indicating
that the completed Idaho inventory will show a significant in-
crease in the number of known public water supplies for which
89
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the Department is responsible. This inventory should be inte-
grated into the water supply program to permit continuous
updating.
A comprehensive engineering inspection should be conducted
for each water supply at least once per year. A written report
should be returned to each supply within a month of the survey
while the survey and findings are fresh in the minds of both the
regional engineer and the purveyor. Supplies which fluoridate or
have serious deficiencies should be surveyed more frequently.
In addition to field inspections, a surveillance program
must include bacteriological and chemical monitoring to assure
compliance of water quality with established standards. Data
collected in the monitoring program are also beneficial in ascer-
taining trends in water quality and thus help assess the adequacy
of present and future treatment needs. Findings of this study
show Idaho's water supply monitoring program to be inadequate.
Both the bacteriological and chemical sampling programs must be
improved. Additional emphasis should be placed on assuring that
at least the minimum number of bacteriological samples is col-
lected monthly from each public water supply, that bacteriological
laboratory results are systematically reviewed and recorded, and
that a resampling program for unsatisfactory samples is carried
out in accordance with the drinking water standards. This
90
-------
program will require improved coordination with the Laboratory
Section.
The chemical sampling program for drinking water supplies
should be expanded to assure not only compliance with the minimum
sampling frequency but also inclusion of all constituents listed
in the drinking water standards. It is recommended that chemical
samples be collected and analyzed from each system according to
the following schedule unless more frequent analyses are indicated
by the presence of excessive levels of harmful constituents:
1. Surface (river or lake) - at least once per year, and
2. Ground (well or spring) - at least triennially.
New sources should be sampled more frequently than the above
schedule until a satisfactory data base is established. If no
problems are evident sampling should then revert to the routine
schedule. In addition, all public water supplies should be
analyzed triennially for radiochemical constituents contained in
the drinking water standards.
Programs to prevent contamination of drinking water systems
from actual or potential backflow conditions have not been
actively pursued in Idaho. It is recommended that a program be
established to encourage adoption of local cross-connection con-
trol ordinances and institution of viable surveillance programs
for elimination of backflow conditions. The water supply program
should establish guidelines for local programs, maintain lists of
91
-------
acceptable backflow prevention devices, establish testing proce-
dures and frequencies for backflow devices, and develop spe-
cialized training programs for cross-connection surveillance and
for certification of backflow prevention device testers.
A specialized fluoridation surveillance program should be
initiated. The program should include routine surveillance and
technical assistance to supplies adjusting the fluoride content
of their water and closer surveillance of water supplies with
naturally occurring high fluoride content. Responsibility for
monitoring the fluoride check sampling activity should be
relocated from the dental health to the engineering surveillance
program.
Bottled water sales have not been considered a significant
aspect of the Idaho drinking water surveillance program. There
are no specific State standards regulating bottling practices or
the quality of bottled water. Current evaluation procedures are
to judge bottling practices against State regulations for food
preparation establishments and bottled water quality against
drinking water standards criteria. Little surveillance of either
bottlers or finished water quality has been provided. It is
recommended that increased coordination be maintained between the
State water supply and food service programs to assure that
bottled water complies with the same health related constituent
limits and monitoring requirements which are applicable to drink-
ing water.
92
-------
Operator training and certification activities should be
expanded. The State's current operator training program is not
reaching the operators who most need the training. Findings of
the evaluation show only 29% of the operators interviewed had
received training through the short school program. Those not
receiving short school training were found to operate the smaller
size, poorer quality systems. It is recommended, therefore, that
a more flexible program be established to meet the needs and
commuting schedules of both full and part-time operators. It is
also recommended that the Department work closely with the State
universities and community colleges to establish entry level and
upgrade operator training programs.
Approximately 180 operators have been certified under the
current voluntary water supply certification program. These 180
operators represent 38 utilities or 14 percent of the total number
of municipal water supplies in the State. It is recommended that
the Department continue the present voluntary certification pro-
gram at an increased level of activity and work actively for
passage of a mandatory certification program by the legislature.
Successful administration of a water supply surveillance
program requires the accumulation, processing, analyses and
retrieval of large quantities of information. Data storage and
retrieval are currently accomplished manually. The growing quan-
tity of water quality data, engineering inspection report
93
-------
information, inventory data, and monthly operating report records
expected as the water supply program effort increases will require
reorganization of this activity under a computerized system and
the services of a system analyst. It is recommended that the
water supply program utilize the existing State's computer capa-
bility on a time sharing plan with other State programs.
The primary need of the engineering services portion of the
water supply program is sufficient numbers of thoroughly trained,
strategically located personnel to fulfill its responsibilities.
Staffing needs will require personnel to carry out standards revi-
sion, planning, surveillance, training, and technical assistance
activities of the program plus secretarial support. Environmental
Protection Agency experience in working with State water supply
programs has been used to develop estimated personnel needs and
program costs for an effective water supply program in Idaho.
Assumptions used and calculations made are included in Appendix E.
In summary, it is recommended that the total manpower allocations
for engineering services be 6 man-years of professional staff and
2 man-years of secretarial support. Direct program cost for these
services is estimated at $128,000 annually. Management and over-
head costs for engineering add approximately $26,000 to the
overall surveillance program operations cost.
Laboratory Support-Bacteriological
A strong bacteriological surveillance effort is an essential
94
-------
part of a State water supply program. Bacteriological monitoring
is considered to be an operational procedure to be performed at
the expense of the water supply purveyor. The State is respon-
sible for performing a minimum number of analyses to assure that
the analyses performed by the purveyor are properly performed.
It is recommended that the State of Idaho establish a self-sup-
porting bacteriological surveillance program. Water supply
purveyors should be encouraged to develop their own bacteriolog-
ical monitoring capability or should be charged to cover the cost
of analyses at State laboratories. The State should establish a
program to examine monthly from each system either five percent
of the minimum number of distribution system samples required by
drinking water standards or two samples, whichever is greater.
Cost of this check sampling program should be borne by the State.
The State should also perform periodic surveys of all
laboratories utilized by purveyors of public drinking water.
This surveillance should be provided at least triennially.
It is estimated that the cost of both the check sampling
program and the laboratory surveillance activity would be $36,000
per year. Management and overhead will add approximately 20
percent to the overall program cost. Assumptions and calculations
upon which the above figures are based are presented in Appendix E.
Laboratory Support-Chemical
The performance of chemical analyses for operational control
95
-------
and special analyses for contaminants known to be present at
levels approaching established drinking water standards are
considered to be the responsibility of the water supply purveyor.
The State should be responsible for sufficient sampling and
analyses to ensure that water of satisfactory chemical quality
is delivered to consumers served by public water supply systems.
It is recommended that the State chemical laboratory anal-
yze all drinking water standards constituents in accordance with
the sampling frequency previously recommended for ground and
surface water supplies. This will require considerable increase
in the number of constituents routinely analyzed, additional
professional and technician personnel, and additional space and
equipment.
The State should also perform periodic surveys of all lab-
oratories utilized by purveyors of public drinking water. It is
estimated that there will be few laboratories in the State
equipped or staffed to analyze all drinking water standards con-
stituents. Therefore, the cost for the chemical quality control
program will not be great. The smaller water utility laboratories
equipped for physical and chemical analyses for operational con-
trol should be evaluated by State agency personnel during the
routine annual sanitary survey of the utility.
It is estimated that the cost of both the laboratory surveil-
lance and chemical sampling programs would be $35,000 per year.
96
-------
Management and overhead will add an additional 20 percent to the
overall program cost. Assumptions and calculations upon which
the above figures are based are presented in Appendix E.
District Health Departments
Experience has shown that strong local health agencies can be
instrumental in improving private, small public, and recreational
water supply systems within their area of jurisdiction. Since
they have a smaller area to cover, the local staff can provide
surveillance and technical assistance more readily than the State.
There are seven such Health Districts in Idaho. It is recommended
that the State develop a memorandum of agreement with each of the
Health Districts for surveillance of and technical assistance to
these type water supplies in Idaho. The agreements should be
tailored to the manpower and water supply experience capabilities
of each individual Health District. They should identify the size
and class of systems for which the Health District will be respon-
sible and specify that Health District regulations and policy be
at least as stringent as those adopted by the State.
In addition to their responsibilities for surveillance of
the smaller water supplies, the Health Districts could improve
the overall water supply program by:
1. Assisting in developing and maintaining an up-to-date
inventory of all public water suppies,
97
-------
2. Assisting with bacteriological and chemical sampling
programs,
3. Assisting with enforcement of well construction
standards,
4. Assisting in special studies, and
5. Providing immediate follow-up assistance on water
supply problems.
It is recognized that a certain amount of technical assistance
will be required from the State's water supply program staff to
support the Health Districts. In fact, the Health District's may
desire to turn responsibility for surveillance of some of the more
complex small water supply systems back to the State. Overall,
however, proper utilization of the Health Districts will greatly
broaden the public health protection provided for water supplies
in Idaho.
98
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REFERENCES
1. Public Health Service Drinking Water Standards, 1962 ed.
USPHS Pub. No. 956, U.S. Government Printing Office,
Washington, D.C., 1969.
2. Standard Methods for the Examination of Water and Wastewater, 31th ed.
American Public Health Association, New York, New York, 1971.
3. Idaho Drinking Water Standards. State of Idaho, Boise, 1964.
4. Manual for Evaluating Public Drinking Water Supplies.
U.S. Environmental Protection Agency, U.S. Government Printing Office,
Washington, D.C., 1971.
5. Community Water Supply Study - Analyses of National Survey Findings.
U.S. Public Health Service, Bureau of Water Hygiene, July, 1970.
6. Craun, G.F. and McCabe, L.J. - Review of the Causes of Waterborne-
Disease Outbreaks. Journal AWWA 65:1:74 (Jan. 1973).
101
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PARTICIPANTS
The following persons and/or agencies made major contribution to
the successful completion of this study.
Study Director
William A. Mullen, Chief, Water Supply Unit
Air & Water Programs Division, EPA, Region X, Seattle
Study Advisor
Francis L. Nelson, Chief, Technical Support Branch
Surveillance and Analysis Division, EPA, Region X, Seattle
Field Evaluation
Howard L. Burkherdt, Regional Environmental Engineer,
Idaho Department of Environmental Protection & Health, Pocatello —'
Thomas N. Hushower, Chief, Special Studies Section
Water Supply Division, EPA, Washington, D.C.
Earl F. McFarren, Supervisory Chemist, Standards Attainment Branch
Water Supply Research Laboratory, NERC, EPA, Cincinnati
William A. Mullen, Chief, Water Supply Unit
Air & Water Programs Division, EPA, Region X, Seattle
Harry D. Nash, Microbiologist, Standards Attainment Branch
Water Supply Research Laboratory, NERC, EPA, Cincinnati
Francis L. Nelson, Chief, Technical Support Branch
Surveillance and Analyses Division, EPA, Region X, Seattle
Jeffrey T. Pearlman, Dental Technician, Dental Health Section
Idaho Department of Environmental Protection & Health, Boise I/
James E. Warren, Staff Engineer, Surveillance and Technical Assistance
Section
Water Supply Division, EPA, Washington, D.C.
Arthur W. Van't Hul, Regional Environmental Engineer
Idaho Department of Environmental Protection & Health, Lewiston I/
Jerry L. Yoder, Regional Environmental Engineer
Idaho Department of Environmental Protection & Health, Boise —'
105
-------
Laboratory Support
Fluoride Laboratory, Uater Supply Division, EPA, Washington, D.C.
Cincinnati Water Hygiene Laboratory, EPA, Cincinnati, Ohio —'
Gulf Coast Water Hygiene Laboratory, EPA, Mobile, Alabama I/
Northeast Water Hygiene Laboratory, EPA, Narragansett, Rhode Island
Northwest Water Hygiene Laboratory, EPA, Giq Harbor, Washington 3/
Southwest Radiological Health Laboratory, EPA, Las Vegas, Nevada I/
Idaho Department of Environmental Protection & Health Laboratory,
Boise I/
Idaho Health District Laboratory, Coeur d'Alene
Idaho Health District Laboratory, Idaho Falls
Idaho Health District Laboratory, Lewiston
Idaho Health District Laboratory, Pocatello
Idaho Health District Laboratory, Twin Falls
Data Processing -Water Supply Division, Data Processing Unit, Cincinnati
Grace D. Bardo, Statistical Clerk
Arthur F. Hammonds, Computer Systems Analyst
George C. Kent, Chief, Water Quality Register Branch
Richard L. Manning, Computer Systems Analyst
106
-------
Report Preparation
Karen M. Ihrig, Principal Typist
William A. Mullen, Chief, Water Supply Unit
Francis L. Nelson, Chief, Technical Support Branch
]_/ Agency subsequently renamed Idaho Department of Environmental and
Community Services.
2J Laboratory subsequently renamed Water Supply Research Laboratory,
National Environmental Research Center-Cincinnati.
3/ Laboratory subsequently consolidated with Water Supply Research
Laboratory, NERC-Cincinnati.
4/ Laboratory subsequently renamed National Environmental Research
Center-Las Vegas.
107
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ACKNOWLEDGEMENTS
The assistance and cooperation of Mr. Vaughn Anderson,
Director of Categorical Programs, Environmental Protection
Division, Idaho Department of Environmental and Community
Services, is greatly appreciated. Mr. Anderson and his office
staff gave freely of their time and contributed valuable back-
ground information during the formative stages of the study.
The effort expended by the Regional Engineers in scheduling
the field surveys and accompanying the survey officers is
greatfully acknowledged. Dr. Darrell Brock, Director,
Laboratory Section, Office of Program Support, Idaho
Department of Environmental and Community Services, and the
staff members of the State laboratories providing bacter-
iological and chemical analyses made significant contribu-
tions. A special thank you is also given to all the residents,
waterworks personnel and utility officials who provided
information and generously cooperated in the study.
Ill
-------
APPENDIX A
SUMMARY TABLES
WATER SUPPLIES STUDIED
-------
APPENDIX A
TABLE I
PUBLIC WATER SYSTEMS STUDIED
CTl
SYSTEM
NUMBER
1
2
3
4
5
6
7
8
9
10
11
12
13
14
NAME OF
SYSTEM
Boise Water Corporation
Lewiston
Grangeville
St. Anthony
St. Maries
Aberdeen
Arco
Council
Potlatch
Ri ri e
Horseshoe Bend
Hagerman
Franklin
Lapwai
POPULATION
SERVED
75,000
12,600
3,636
2,877
2,571
1,542
1,244
899
871
575
511
436
400
400
AVERAGE DAILY
DEMAND (MGD)
16.00
3.80
0.55
0.80
Unknown
Unknown
Unknown
Unknown
0.07
Unknown
Unknown
Unknown
Unknown
Unknown
SOURCE
38-Wells
Clearwater R.
3- We 11s
4-Wells
2 Springs
4-Wel 1 s
(1 Standby)
Rochat Creek
St. Joseph River
3-Wells
4-Wells
3-Sprinqs
2- Wells"
4-Wells
(2 Standby)
2-Wells
4-Wells
Spring
6-Springs
2-Wells
TREATMENT!/
PD
CSFDLAF1
D
None
D
(Standby)
None
None
DF1
None
None
None
D
None
hi
-------
TABLE I (Cont'd)
NO.
15
16
17
18
19
20
21
22
23
24
25
26
27
28
NAME OF
SYSTEM
Hazel ton
Firth
Arimo
Rock! and
Moyie Springs
Athol
Midvale
East Hope
Castleford
Stanley Pond Water Assn.
Murphy
Hope
Hollister
Eugene Outlook
POPULATION
SERVED
396
362
252
209
203
190
176
175
174
100
75
63
57
40
AVERAGE DAILY
DEMAND (MGD)
Unknown
Unknown
Unknown
0.046
0.04
Unknown
Unknown
0.02
Unknown
Unknown
Unknown
Unknown
Unknown
Unknown
SOURCE
2-Wells
2-Wells
Springs & Well
2-Wells
Springs
Well
(1 Standby)
2-Wells
Creek
Well
Well
2-Wells
Spri ng
2-Wells
Well
TREATMENT I/
D
None
None
D
Some D
None
None
FD
D
None
None
None
None
None
Water Association
]_/ A - Aeration
C - Coagulation
S - Sedimentation
F - Filtration
D - Disinfection
L - Lime
LA~ Soda Ash
Fl- Fluoridation
P - Phosphates
-------
APPENDIX A
TABLE II
WATER QUALITY - PUBLIC WATER SYSTEMS
SYSTEM
NUMBER
BACT
ERIOLOGICAL STANDARDS
NOT MET
DURING SURVEY I/
1
2
3
4
5
6
7
8
9
10
11
12
Number
Samples
12
4
3
2
2
3
2
2
2
1
2
3
Density
>4/ 100ml
0
0
0
0
0
0
0
0
0
0
0
0
DURING YEAR 2/
Average
Density
0.0
0.0
0.7
0.0
0.0
0.0
0.0
0.0
1.1
0.0
0.0
0.0
Months
0-12
0-12
0-12
0-10
0-8
0-5
0-10
2-8
1-7
1-6
0-5
2-5
CHEMICAL STANDARDS NOT MET 3/
RECOMMENDED
Plant
Fe (0.77 & 0.55
& 1.80)
Mn (0.054 & 0.79
& 0.053 & 0.13 &
0.36 & 0.055 &
0.098 & 0.13)
Color (30)
0
Fe (1.40 & 0.65)
0
0
Fe (2.2 & 4.1)
Mn (0.07)
0
0
0
0
0
0
Dist. Sys.
0
0
0
0
0
0
0
0
0
0
0
0
MANDATORY
Plant
0
0
0
0
0
0
0
0
0
0
0
0
Dist. Sys.
0
0
0
0
0
0
0
0
0
0
0
0
-------
APPENDIX A - TABLE II (COM'T)
SYSTEM
NUMBER
BACTERIOLOGICAL STANDARDS
NOT MET
DURING SURVEY I/
13
14
15
16
17
18
19
20
21
22
23
24
25
26
27
28
Number
Samples
2
2
2
1
2
2
2
2
2
2
2
1
2
2
3
1
Density
>4/ 100ml
1
0
2
0
0
0
0
0
0
0
0
0
0
2
1
0
DURING
Average
Density
4.6
0.0
12.6
0.0
0.0
0.0
0.0
0.0
0.0
0.0
0.0
0.0
0.0
14.0
3.0
0.0
YEAR 2/
Months
No Samples
0-8
2-11
0-11
0-3
0-7
1-10
0-12
0.4
0-12
0-11
0-12
No Samples
6-6
1-4
0-12
CHEMICAL STANDARDS NOT MET 3_/
RECOMMENDED
Plant
0
0
As (.012)47
Mn (.063)
0
0
0
0
0
0
0
As (.02)47
TDS (662.0)47
0
0
0
0
0
Dist. Sys.
0
0
0
0
Zn (18.3)
0
0
0
0
0
0
0
0
0
F (2.2)57
0
MANDATORY
Plant
0
0
Se (.017)47
0
0
0
0
0
0
0
0
0
0
0
0
0
Dist. Sys.
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
-------
ro
o
Footnotes
iy Distribution Samples Only
2J State Health Dept. Monthly Summary Data - may contain treated water from source as well as distribution
samples.
ZJ Only chemical constituents failing to meet the Drinking Water Standards are shown.
Color expressed in standard units, all others in mg/1.
4/ Constituent not measured in distribution system.
5/ Constituent not measured at source.
-------
121
APPENDIX A
TABLE III
WATER SUPPLY FACILITIES APPRAISAL
SYSTEM
NUMBER
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
21
22
23
24
25
26
27
28
SOURCE
A
I
I
A
I
A
I
I
A
A
I
A
I
A
I
I
A
A
I
A
I
I
A
A
I
I
A
TREATMENT
A
A
A
N/A
A
N/A
N/A
I
N/A
N/A
N/A
A
N/A
N/A
I
N/A
I
A
I
N/A
A
A
N/A
N/A
N/A
N/A
N/A
DISTRIBUTION
A
I
I
I
I
A
A
I
I
I
A
A
A
A
I
A
A
A
A
A
A
A
A
I
I
I
I
QUALITY
CONTROL
I
A
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
RISK
FACTOR
3
2
4
3
5
2
5
8
3
4
5
2
7
2
6
3
4
2
6
2
3
4
1
3
8
7
3
Percent 50%
Inadequate
33%
39%
96% Avg. = 3.9
Key: A - Adequate
I - Inadequate
N/A - Not Applicable
]_/ Weighted numerical rating assigned by survey engineer.
1 equals least public health risk and 10 equals high p
risk.
A rating of
public health
-------
APPENDIX A
TABLE IV
PUBLIC WATER SUPPLY SURVEILLANCE
ro
IX)
SYSTEM
NUMBER
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
BACTERIOLOGICAL LABS
TYPE
SHD I/
SHD
SHD
SHD
SHD
SHD
SHD
SHD
SHD
SHD
SHD
SHD
SHD
SHD
SHD
SHD
CERTIFIED
SHD-EPA !/
SHD
SHD
SHD
SHD
SHD
SHD
SHD-EPA
SHD
SHD
SHD-EPA
SHD-EPA
SHD
SHD
SHD
SHD
BACTERIOLOGICAL SAMPLES
REQUIRED
Per Month
I/
90
18
4
2
2
2
2
2
2
2
2
2
2
2
2
2
NUMBER
Avg.2_/
100
25
2
2
1
1
2
1
1
1
1
1
0
1
2
2
EXAMINED
Range/Month
80-150
18-28
2
0-2
0-2
0-2
0-4
0-4
0-2
0-2
0-4
0-2
0
0-2
0-2
0-4
MONTHS
WITHOUT
SAMPLES
0
0
0
2
4
7
2
4
5
6
7
7
12
4
1
1
YEARS
SHD SURVEY
1
1
4
7
4
1
8
11
2
5
6
16
12
1
2
5
SINCE LAST
CHEMICAL ANAL.
1
2
4
7
4
1
10
14
3
7
none
10
16
1
1
25
-------
APPENDIX A - TABLE IV
PUBLIC WATER SUPPLY SURVEILLANCE (CON'T.)
SYSTEM
NUMBER
17
18
19
20
21
22
23
24
25
26
27
28
I/ Minimum
BACTERIOLOGICAL LABS
TYPE
SHD
SHD
SHD
SHD
SHD
SHD
SHD
SHD
SHD
SHD
SHD
SHD
number of
CERTIFIED
SHD
SHD
SHD
SHD
SHD-EPA
SHD
SHD
SHD-EPA
SHD-EPA
SHD
SHD
SHD-EPA
samples requi
BACTERIOLOGICAL SAMPLES
REQUIRED
Per Month
I/
2
2
2
2
2
2
2
2
2
2
2
2
red to meet
NUMBER
Avg.2/
1
1
2
2
1
2
2
2
0
2
1
2
No
Drinking
EXAMINED
Range/Month
0-2
0-6
0-4
2
0-2
2
0-4
2
0
0-4
0-2
2
. Deficient 5/
MONTHS
WITHOUT
SAMPLES
9
5
2
0
8
0
1
0
12
6
8
0
= 19
YEARS
SHD SURVEY
17
7
14
11
1
2
10
8
17
14
13
1
No.>l = 22
SINCE LAST
CHEMICAL ANAL
19
11
14
11
1
17
4
17
14
13
1
No.>3 = 20
Water Standards.
2/ Average number examined/month during the 12 month period proceeding the study rounded to the nearest whole number.
3/ SHD - State Health Department
4/ EPA - Environmental Protection Agency
5/ Number failing to collect sufficient bacteriological samples two or more months during 12 month period.
-------
APPENDIX B
ADEQUACY OF THE WATER FLUORIDATION
' CONTROL PROGRAM IN IDAHO
-------
Adequacy of the Water Fluoridation
Control Program in Idaho
An Evaluation of the Water Fluoridation
Installations in the State of Idaho
Thomas N. Hushower, P.E.
Chief, Special Studies Section
Office of Water Programs Operations
Environmental Protection Agency
-------
129
IDAHO WATER SUPPLY PROGRAM EVALUATION
ADEQUACY OF THE WATER FLUORIDATION CONTROL PROGRAM IN IDAHO
Introduction
The Idaho State Board of Health by a Resolution on Fluoridation, approved
August 6, 1966, "recommends and encourages the adoption of controlled
fluoridation in communities with public water supplies" as an important
public health measure for the prevention of tooth decay. Section 37-2102
of the Idaho Code requires that the standards for chemical (including
fluorides) and bacterial purity of the public water supplies in Idaho
shall be consistent with the Drinking Water Standards of the U.S. Public
Health Service. Construction and design standards for fluoridation
installations in the State and operating and control procedures for the
facilities are outlined in Part XII - Fluoridation of Public Water Supplies,
of the Idaho Drinking Water Standards. Responsibility for the approval
and surveillance of the fluoridation installations rests with the Environ-
mental Improvement Division of the Department of Health. There is no
State law requiring the fluoridation of public water supplies, however,
legislation (HR #515) has recently been introduced to amend the State
Code to provide for the fluoridation of all water supply systems serving
more than one hundred (100) residences.
On October 1, 1971, fourteen public water supply systems were reported by
the Department of Health to be fluoridating out of a total of 280 public
water supplies in the State. _!/ Field visits to the fourteen supplies,
I/ Water supply systems serving populations of twenty-five or more.
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130
however, revealed only eight fluoridation installations were in
operation. The fluoridation practices at six water supply systems
at the time of the survey had been discontinued for various reasons.
Figure 1, Fluoridation Water Supply Systems in Idaho, locates the
fourteen reported fluoridated water supplies in the State and
Table I summarizes pertinent information on each supply. Thirty-
four communities were using one or more water sources containing
natural fluorides of 0.7 mg/1 or higher; and, seven communities
(Buhl, Bruneau, Filer, Grand View, Hollister, Newdale and Teton) were
using one or more water sources containing natural fluorides of greater
than 2.0 mg/1 fluoride. 2J
Evaluation Procedures
To evaluate the adequacy of the Idaho water fluoridation control program,
the eight fluoridated public water supply systems in the State operating
under the approval of the Department of Health were examined with respect
to: fluoride content in the distribution system; analytical control of
the fluoride level; fluoride feed equipment and facilities; fluoride
compound-storage and handling; operator training and interest; and,
surveillance. A field inspection visit was conducted at each of the
eight fluoridated water systems in operation, survey forms were completed _3/
and water samples for fluoride ion analysis were collected. Officials
in charge of the installations were given advance notice of the visit.
2J 1968 Compilation of Chemical Analysis of Public Water Supplies in the
State of Idaho, Idaho State Department of Health.
_3/ A copy of the questionnaire used in the Idaho Fluoridation Survey is
appended.
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IDAHO WATER SUPPLY PROGRAM EVALUATION
Figure 1
FLUORIDATED WATER SUPPLY SYSTEMS IN IDAHO
1-Bonners Ferry
2-Council
3-Jerome
4-Lapwai
5-Lewiston
6-McCall
7-Meridian
8-Montpelier
9-Mountain Home
10-Orifino
11-Preston
12-Salmon
13-Sandpoint
14-Shoshone
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Idaho Water Supply Program Evaluation
TABLE I
FLUORIDATED WATER SUPPLY SYSTEMS IN IDAHO
Water Supply
System
Bonners Ferry
Council
Jerome
Lapwai
Lewistonr./
McCall
Meridian
Well //2
Well //3
Well #5
Well #6
Montpelier
Mountain Home
Orif ino
Preston
Salmon
Sandpoint
Shoshone
Fluoride Compound
Location
(County)
Boundary
Adams
Jerome
Nez Perce
Nez Perce
Valley
da
Bear Lake
Elmore
Clearwater
Franklin
Lemhi
Bonner
Lincoln
Date of
Fldn.
8/52
1/54
7/58
6/71
6/47
1/52
12/54
7/53
11/57
4/54
1/52
9/52
4/52
7/55
Population
Served
2
1
4
12
2
2
2
7
3
3
2
4
1
,500
,000
,200
400
,000
,000
,500
,640
,000
,800
,500
,940
,500
,300
: Analysis Method:
VS - Sodium Silicof luoride
VT - Sodium Fluoride
S —
SS -
SPADNS
Scott-Sanchis
Source of Av
Supply
Myrtle Creek &
Kootenai R.
2 -Wells & 3 Sprs.
2 -Wells
2 Wells
Clearwater R. &
1 Well
Payette Lake
4-Wells
13- Springs &
3-Wells
8-Wells
Clearwater R.
Berquist Spr .
Jesse Creek &
Pollard Creek
Sand Creek
Pend Oreille Lake
2-Wells
g. Flow Fluoride
(MGD)l/ Compound
0.50
2.00
0.52
0.40
1.20
0.33
4.20
1.08
1.17
1.73
2.50
0.53
1.20
4.75
1.70
3.60
0.50
Type of
V-l Volumetric
V-2 Volumetric
- W&T
- W&T
W
S
W
s
4_/
A/
A/
w
s
Feeder
A-378
A-635
VS
VT
VS
VT
VS
VS
VT
VS
VS
VS
VS
VS
VS
VS
Roll
Screw
Type of
Feeder
V-l
P-l
VE-1
PS-1
V-l
V-2
P-2
P-2
P-2
P-2
VE-1
5/
V-4
VE-1
V-l
V-3
VE-1
Type
Type
Analysis
Method
SS
3/
SS
S
SS
3/
SS
S
SS
SS
3/
S
S
I/
Test
Equip.
T-l
I/
T-l
T-3
T-2
3/
T-l
T-3
T-l
T-2
3/
T-3
T-3
I/
Test Equipment:
T-l Color Comparator - Hellige Aqua Tester
T-2 Nessler Tubes, 100 ml
T-3 Photometer - Hach DR-A
I/ W - Winter; S - Summer
"2Y Two Water Systems - Lewis ton Orchards' System is not Fluoridated
3Y No Fluoride Analysis Conducted by Operator
4/ Plant Capacity - No Flow Records Kept by Operator
~5J Fluoridation Discontinued April 1971 - Equipment Dismantled
V-3 Volumetric - W&T A-690 Screw Type
V-4 Volumetric - BIF 50-A Rotating Disk
VE-1 Volumetric - W&T A-378 Roll Type; Eductor
P-l Piston Pump - W&T M-902
P-2 DiEpluam Pump - W&T A-747 Metering Pump
PS-1 Diaphram Pump - W&T A-745 Metering Pump; W&T Saturator
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133
The actual level of fluoride ion in the distribution system is the single
most important factor in evaluating the adequacy of a community water
fluoridation effort and hence in evaluation of the state program responsible
for approval and surveillance of the installation. However, as distribution
system samples collected on one particular day may not give a true picture
of day-to-day operating conditions at the facilities, the installations
were further evaluated with respect to the following:
I. Analytical Control of the Fluoride Level
A. Were the fluoride ion analyses conducted at the water
plant accurate within +0.1 mg/1 of the value determined
by the EPA Water Supply Programs Division?
B. Were finished water samples analyzed daily or more
frequently for fluoride ion content?
C. Were raw water samples analyzed regularly for fluoride
ion content?
D. Were laboratory equipment and facilities at the water
plant adequate to conduct fluoride ion analysis according
to one of three standard methods?
E. Was laboratory equipment clean and given responsible care?
F. Were complete records kept of the fluoridation operation?
II. Fluoride Feed Equipment and Facilities
A. Were the fluoride feed equipment and facilities adequate
to control the fluoride ion level in the finished water?
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134
B. Was positive protection provided against overfeeding?
Was equipment location and point of fluoride chemical
application at the best practical site? Was backflow
protection provided? Was the feed equipment site
uncluttered?
C. Was the fluoride chemical feed installation operated
continously for the past twelve months without an
interruption of more than one day?
D. Were the fluoride chemical feed equipment and facilities
maintained satisfactorily?
III. Fluoride Compound - Storage and Handling
A. Was the fluoride chemical compound stored in a safe,
protected and orderly manner?
B. Was safety equipment available and were safe procedures
followed in handling the fluoride chemical compound?
C. Were fluoride chemical shipping containers disposed of
satisfactorily or re-used only for fluoride chemical storage?
IV. Operator Training and Interest
A. Was the treatment plant operator well-trained to operate
the fluoride chemical feed equipment and facilities?
B. Was the individual conducting the fluoride ion analyses
knowledgeable of his test equipment and standard procedures
for analysis?
C. Was the water plant official interviewed in favor of
fluoridation and was he interested in adding fluorides
to public water supply systems?
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135
V. Surveillance
A. Were check samples for fluoride ion analysis submitted to
the State as required?
B. Had the water fluoridation installation surveyed been
inspected in the past twelve months by a representative
of the State water supply program surveillance agency?
Summary of Findings
Data collected on the water supply systems fluoridating in the State of
Idaho indicated only two (25 percent) of the eight installations fluoridat-
ing at the time of the survey evidenced a fluoride ion content in the
distribution system within a range of 0.8 - 1.3 mg/1. 4/ Five (63 percent)
of the eight installations were underfeeding, i.e., the fluoride ion levels
in the samples collected from the distribution systems were less than 0.8
mg/1, and two installations (25 percent) were overfeeding. Water samples
collected from one system (Preston) were both above and below the recommended
fluoride ion level. Table II, Analysis Of Samples From Fluoridated Water
Supply Systems, tabulates the fluoride ion analysis results of the water
samples collected at each facility surveyed,5_/
The operating conditions observed at the eight fluoridation installations
inspected during the time of the survey are summarized as follows:
kj 1962 Drinking Water Standards for an annual average maximum daily air
temperature of 63.1°F (Boise, Idaho 30-yr. Avg. 1931-60).
_5_/ Water samples were analyzed for fluoride ion content by the Water Supply
Division, Environmental Protection Agency, Washington, D. C. using the
Electrode Method.
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Idaho Water Supply Program Evaluation
TABLE II
ANALYSIS OF SAMPLES FROM FLUORIDATED WATER SUPPLY SYSTEMS
CO
en
Water Supply System
Bonners Ferry
Council
Jerome -./
Well #1
Well #2
Lapwai _£./
Lewiston
McCall A/
Meridian
Well #2
Well #3
Well #5
Well #6
Montpelier
Mountain Home —
Or if ino
Preston
Salmon I/
Sandpoint
Shoshone — '
Date of
Sample
12/1
11/29
10/20
11/30
11/29
10/19
10/21
11/30
10/21
10/22
12/2
10/20
Raw
Water
0.05
0.23
0.46
0.47
0.15
0.06
0.17
0.16
0.14
0.30
0.15
0.13
0.04
0.05
0.04
0.20
Check Samples
(Operator) (EPA)
1.1
I/
1.1
I/
1.2
0.8
1.0
1.6
0.62
0.3
I/
1.23
!/
1.25
0.95
1.00
0.79
1.13
0.39
0.13
0.15
0.76
1.17
(Fluoride, mg/1)
Distribution System
1.35
0.28
1.00
0.04
0.87
1.25
0.16
0.17
1.17
1.35
0.45
1.10
0.04
0.60
0.69
0.66
1.70
1.17
_!/ No fluoride analysis conducted by operator.
_2/ Fluoridation discontinued Oct. 16, 1971 - Chlorinator repairs required
3/ Fluoridation discontinued approx. June 25, 1971, (2 wks after start up) - Well pump failure & indifference.
4/ Fluoridation discontinued approx. Nov. 15, 1971 - Equipment repairs required.
_5/ Fluoridation discontinued April 1971 - Equipment dismantled
_6/ Fluoridation discontinued April 14, 1971 - Equipment repairs required and indifference
]_/ Fluoridation discontinued Sept. 11, 1971 - Chlorinator repairs required.
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137
I. Analytical Control of the Fluoride Level
Practices to analytically test and control the fluoride
ion level in the water distribution systems varied con-
siderably. Only three (50 percent) of the plant operators
conducting fluoride ion analysis were within jf 0.1 mg/1 of the
sample results analyzed by the EPA, Water Supply
Division. The operators at two of the eight installations
surveyed (Council and Preston) were not conducting fluoride
ion analysis and had no test equipment or facilities to
analyze water samples for fluoride ion content. The
operators of the two facilities reported sending one sample
per month to the State Lab for analysis; however, State
Health Department records for 1970 showed only three samples
from one system and eleven from the other were received
during the year for fluoride ion analysis.
Standard Methods or modified versions of the three Standard
Methods were used by each operator conducting fluoride ion
analysis; however, daily finished water fluoride ion analysis
was conducted at only three (38 percent) of the eight installa-
tions and no operator was analyzing raw water for fluoride
ion content on a regular basis. Adequate analytical equipment
and facilities were available at four (50 percent) of the
installations visited and care for laboratory equipment was
judged satisfactory at only three (50 percent) of the plants
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138
where fluoride ion analysis was conducted. Records of the
fluoridation operation were acceptable at three (38 percent)
of the facilities surveyed.
II. Fluoride Feed Equipment and Facilities
Fluoride chemical feed equipment and facilities were found
deficient at four (50 percent) of the eight installations
surveyed and only five (63 percent) of the feeding arrange-
ments were acceptable, i.e. protected against overfeeding,
preferred point of chemical application, protected against
backflow, and good housekeeping in the feeder area. One
(13 percent) of the operators reported one or more interrup-
tions in fluoridation of one or more days duration in the
past twelve months. Maintenance was judged satisfactory at
only four (50 percent) of the facilities surveyed even
though the plant operators had been alerted to the inspection
visit.
III. Fluoride Compound - Storage and Handling
Storage arrangements for the fluoride chemical compound fed
were unsatisfactory at four (50 percent) of the eight installa-
tions surveyed. Six (75 percent) of the operators interviewed
did not have available or were not using safety equipment in
handling the fluoride chemical compounds. All the operators
reported satisfactory disposal practices for the empty fluoride
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139
chemical shipping containers. Only sodium fluoride and sodium
silicofluoride were being used as a source of fluoride ion at
the installations surveyed.
IV. Operator Training and Interest
A trained operator with a geniune interest in feeding fluorides
is essential to the satisfactory operation of a fluoridation
installation. Two (25 percent) of the facilities surveyed
were operated by personnel not completely familar with the
fluoride chemical feed equipment at their plants. The operators
at three (50 percent) of the facilities conducting fluoride ion
analysis were not adequately trained in the use of the fluoride
ion test equipment provided and the procedures to follow in
conducting a fluoride ion analysis. Three (38 percent) of
the eight operators questioned did not favor feeding fluorides
to public water supply systems.
V. Surveillance
Frequent check samples of fluoride ion levels in the distribution
system and regular inspection visits to the water fluoridation
installation by state water supply program personnel must be
conducted to assure the facility is operating satisfactorily.
The Health Department's policy is for one water sample per month
to be submitted from each fluoridated water supply to the State
Health Department Laboratory for fluoride ion analysis. The
sample is a 4-oz daily composite collected in one container,
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140
mixed and a 4-oz. sample drawn and mailed for check analysis.
A review of state records, and discussions with the operators
at the eight fluoridated water supply systems revealed just
one (13 percent) of the operators was submitting the recommended
monthly check sample to the state laboratory for fluoride ion
analysis. Only one (13 percent) of the fluoridation installations
had been visited in the past twelve months by a representative
of the state water supply program surveillance agency. Inspection
visits to the eight fluoridated water supply systems in Idaho
averaged one visit in five years.
Figure 2, Operating Conditions At Fluoridated Water Supply Systems
In Idaho, summarizes the operating conditions observed at the
installations inspected during the time of the survey. Table III,
Adequacy Of The Fluoridation Installations In Idaho, summarizes
the adequacy of the operating conditions at each facility rated.
Conclusions and Recommendations
1. Eight public water supply systems in Idaho of a reported 280 public
water supply systems in the State were fluoridating October 1, 1971.
Thirty-four (34) supplies were known to use one or more sources
containing natural fluorides of 0.7 mg/1 or higher. Therefore
only three percent of the 246 public water supply systems in
Idaho not using one or more water sources containing natural
fluorides of 0.7 mg/1 or higher were attempting to supply water
having a fluoride ion content within recommended limits.
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Idaho Water Supply Program Evaluation
FIGURE 2
OPERATING CONDITIONS AT FLUORIDATED WATER SUPPLY SYSTEMS IN IDAHO
% OF FLUORIDATED WATER SUPPLY SYSTEMS
PARAMETER EVALUATED
Fluoride Content in the Distribution System !_/
Fluoride Level 0.8 - 1.3 mg/1 2/
Fluoride Level 0.8 mg/1 _3/
Fluoride Level 1.3 mg/1 _3/
Analytical Control of the Fluoride Level
Operator Analysis +0.1 mg/1 EPA Value 47
Daily Finished Water Fluoride Analysis
Regular Raw Water Fluoride Analysis
Adequate Analytical Equip. & Facilities
Adequate Care for Laboratory Equipment
Adequate Records
Fluoride Feed Equipment and Facilities
Adequate Feeding Equip. & Facilities
Adequate Feeding Arrangements
Feed Interrupted 1-Day in Past 12-Mos.
Adequate Maintenance
Fluoride Compound - Storage and Handling
Adequate Storage Arrangements
Acceptable Safe Handling Provisions
Satisfactory Disposal of Shipping Containers
Operator Training and Interest
Adequately Trained to Operate Feed Equipment
Knowledgeable of Test Equip. & Procedures 47
Accepts and Interested in Fluoridation
Surveillance
Monthly Check Samples to State
Installation Inspected by State in Past 12-Mos.
20
40
60
80
—r~
100
—I
25
63
25
50
38
•50
-50
•38
50
63
50
50
25
•88
75
50
63
13
•13
17 Eight Installations Rated. Fluorides not being fed at Six Installations when Surveyed.
27 Per 1962 Drinking Water Standards for an Annual Avg. Max. Daily Air Temp, of 63.1°F (Boise, Idaho 30-Yr. Avg. 1931-60)
_3/ Distribution Samples from Preston were 0.8 and 1.3 mg/1.
47 Six Installations Rated. Two Operators at Eight Installations Fluoridating did not Conduct Fluoride Ion Analysis.
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Idaho Water Supply Program Evaluation
Table III
ADEQUACY OF THE FLUORIDATION INSTALLATIONS IN IDAHO
Parameter Evaluated
n| u
G. AJ -H U
Fluoride Content in the Distribution System
Fluoride Level 0.8 - 1.3 mg/1 Tj
Fluoride Level < 0.8 mg/1
Fluoride Level >1.3 mg/1
Analytical Control of The Fluoride Level
Operator Analysis ±0.1 mg/1 EPA Value
Daily Finished Water Fluoride Analysis
Regular Raw Water Fluoride Analysis
Adequate Analytical Equip. & Facilities
Adequate Care For Laboratory Equipment
Adequate Records
Fluoride Feed Equipment and Facilities
Adequate Feeding Equipment & Facilities
Adequate Feeding Arrangements
Feed Interrupted < 1-Day in Past 12-mos.
Adequate Maintenance
Fluoride Compound - Storage and Handling
Adequate Storage Arrangements
Acceptable Safe Handling Provisions
Satisfactory Disposal of Shipping Containers
Operator Training and Interest
Adequately Trained to Operate Feed Equip.
Knowledgeable of Test Equip. & Procedures
Accepts and Interested in Fluoridation
Surveillance
Monthly Check Samples to State £/
Installation Inspected by State in past 12-mos. 9/
8/
N/A
x 8/
x N/A
N/A
x x
x N/A
X - Satisfactory or applicable for community surveyed
II - Fluoridation discontinued Oct 16, 1971 - Chlorinator repairs required
~2J - Fluoridation discontinued approx. June 25, 1971, (2 wks. after start-up)-Well pump failure and indifference
3V - Fluoridation discontinued approx. Nov. 15, 1971 - Equipment repairs required
4/ - Fluoridation discontinuedApril, 1971 - Equipment dismantled
3/ - Fluoridation discontinued April 14, 1971 - Equipment repairs required and indifference
bj - Fluoridation discontinued Sept. 11, 1971 - Chlorinator repairs required
TJ - Per 1962 Drinking Water Standards for an annual avg. max. daily air temp, of 63.1°F (Boise, Idaho; 30-yr. Avg. 1931-60)
jj/ - No Fluoride Analysis conducted by operator
~jj - Per 1970 State Health Dept. records
Tj/A - Not Applicable
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143
Recommendation:
The Idaho Department of Health should more actively promote and support
fluoridation in Idaho. A concentrated effort should be made to provide
the benefits of fluoridated water to the population served by the more
than 235 small public water supplies in the State not fluoridated or
containing dentally significant concentrations of natural fluorides.
Where the fluoridation of a community water supply system is not feasible,
school water supply fluoridation in that community should be considered.
2. Seven public water supply systems in Idaho were reported using one or
more water sources containing natural fluorides greater than 2.0 mg/1.
Recommendation:
When the natural fluoride ion level exceeds two times the optimum, the
following should be considered so the finished water will have a fluoride
ion level within the limits recommended by the State: blending of water
containing high levels of fluoride ion with a low natural fluoride water,
development of an alternate source of water, or defluoridation of the
water source.
3. Only two (25 percent) of the eight fluoridated water supply systems
in Idaho evidenced a fluoride ion content in the distribution system
within a range of 0.8 - 1.3 mg/1. Five (63 percent) were underfeeding
and two (25 percent) were overfeeding. Water samples collected from
one system were both above and below the recommended range. Three
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144
(50 percent) of the operators at the six fluoridated supplies conducting
fluoride ion analyses were within +0.1 mg/1 of the sample results
analyzed by the EPA Water Supply Programs Division. Two operators
did not conduct fluoride ion analysis and had no test equipment.
Daily finished water fluoride ion analysis was conducted by the
operators at only three (38 percent) of the installations and no
regular raw water fluoride ion analysis was conducted at any of
eight facilities.
Recommendation:
The State of Idaho should provide the necessary training and technical
assistance to the water plant operators at the fluoridation installations
to control the fluoride ion level in the distribution system within the
recommended range, and to conduct fluoride ion analysis according to
Standard Methods to within +0.1 mg/1 of the value reported on the State
check sample. Daily finished water fluoride ion analysis, regular raw
water fluoride ion analysis, adequate laboratory equipment and care of
equipment, and complete records on the fluoridation operation should be
required at all fluoridation installations.
4. Fluoride chemical feed equipment and facilities to control the
distribution system fluoride ion level to within the recommended
range were satisfactory at four (50 percent) of the installations
surveyed and feeding arrangements were judged adequate at five
(63 percent) of the plants visited. One (13 percent) of the
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145
operators reported one or more interruptions in fluoridation of
one or more days duration in the past twelve months and maintenance
conditions were less than satisfactory at four (50 percent) of the
facilities visited.
Recommendation:
The State of Idaho should provide design assistance to all communities
proposing to install fluoridation facilities, thoroughly review all
proposed installations before the operation is approved, and assist
the operator as needed during the "start-up" period. All interruptions
in the fluoridation operations should be required to be reported to
the state water supply program surveillance agency. A preventative
maintenance program should be established for each facility and closely
followed for the installation to receive continued approval for operation.
5. Fluoride chemical storage arrangements and safety precautions
for handling the compounds were judged inadequate at four (50
percent) of the installations surveyed. Six (75 percent) of the
operators did not have available or were not using safety equipment
in handling the fluoride chemical compounds.
Recommendation:
The State of Idaho should instruct all water plant operators feeding
fluorides on safe handling and storage practices for fluoride chemical
compounds. Safety regulations for the handling and storage of fluoride
chemicals should be adopted and included in Part XII - Fluoridation
of Public Water Supplies, of the State Drinking Water Standards.
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146
6. A trained operator with a genuine interest in feeding fluorides
is essential to the satisfactory operation of a fluoridation
installation. Training deficiencies were noted in the operators'
knowledge of his fluoride feed equipment and his acquaintance
with the test equipment and procedures used in conducting fluoride
ion analysis. The plant operators at two facilities were not
trained to conduct fluoride ion analysis and three (38 percent) of
the operators questioned did not favor feeding fluorides to public
water supply systems.
Recommendation:
The State of Idaho should provide training in fluoride feed equipment
operation and fluoride determinations in water for the operators of all
fluoridated water supply systems. The benefits of water fluoridation
and the importance of maintaining the fluoride ion level within the
recommended range should be stressed. Satisfactory completion of the
course should be a mandatory requirement of the plant operator for approval
of his installation to feed fluorides. The operators at all fluoridation
facilities should conduct daily fluoride ion analysis.
7. Surveillance of each water fluoridation installation must be on
a regular, continual basis to assure the facility is operating
satisfactory. Only one (13 percent) of the operators interviewed
was submitting the recommended monthly check sample to the state
laboratory for fluoride ion analysis. Inspection visits to the
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147
fluoridated water supply systems in Idaho by a representative of
the state water supply program surveillance agency averaged one
visit in five years.
Recommendation:
The State of Idaho should require at least monthly check samples be
submitted by the operators of all fluoridated water supply systems to
the State Laboratory for fluoride ion analysis. These should be grab
samples in preference to composite samples. The state water supply
program surveillance agency should conduct a minimum of two field
inspection visits per year to each water fluoridation installation in
the state and visit immediately all plants employing new operating
personnel placed in charge of the fluoridation operation. All
interruptions in the fluoridation operations should be investigated.
A full time engineer with the necessary travel funds and laboratory
support is estimated to be needed for an adequate fluoridation
surveillance program in Idaho.
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148
I)\TK
IDAHO FLUORIDATION SURVEY
\iater System:
Population Served:
Date Fluoridntion Started:
Source of S
Tre it
F I v or i d e \ nn I y s i s
TV aw 'nalcr:
I'M uoridat ion Kriui Tii.ic
Manufacturer:
Type:
Model:
Location:
'•oint of atvli cat ion:
Cou'litiou of
Avoraire Flow:
Finished 0,'ater:
Oncrational problems:
Ovcrfeedin"1: safeguards;
Planned Ir;;nrovcr,ient5:
J?eiiiar!cs:
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149
Fl uor i do ('oi-iMound -
Chcmi r,.-, 1 : Cost,:
Sour-c •?:
'•^r i > " sh j nincnt
'^tora^e facilities;
Quantity u -cd :
Safety provisions:
Remarks:
i f ii;n>- j (Lit i on -
of s.i'U'jlim1.;:
R.'itt v,-;.tcr: Fini.shed water;
Sfimpl in
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150
Operator ''iiali Pi c"'tions -
lOxnerience : C las si f i cat ion:
Training:
Intore -.t:
Remarks:
Survci1 Iancc -
Check STi.spies:
Last vi.- it by SI ,-te :
Avai l.iblli ty of tcclmical assistance:
Remarks:
Co ""rents
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APPENDIX C
BACTERIOLOGICAL LABORATORY SURVEY
-------
Report of a Survey of the
Idaho Department of Health
Central Water Laboratory
2150 Warm Springs Avenue
Boise, Idaho 83701
on November 29-30, 1971
by
Harry D. Nash, Ph. D.
Microbiologist
Environmental Protection Agency
4676 Columbia Parkway
Cincinnati, Ohio 45268
The equipment and procedures employed in the bacteriological analyses of
water by this laboratory conformed with the provisions of Standard Methods
for the Examination of Water and Wastewater (13th edition - 1971) and with
the provisions of the Interstate Quarantine Drinking Water Standards, except
for items marked with a cross "X" on the accompanying form EPA - 103
(Rev 3-71). Items marked with a "U" could not be determined at the time of
the survey. Items marked "O" do not apply to the procedures programmed
in the laboratory. Specific deviations are described with appropriate remedial
action for compliance in the following recommendations:
Recommendations
Item 3 Sample bottles
Samples taken in narrow-mouth bottles are more subject to accidental contam-
ination, especially if the person collecting the sample is inexperienced. There-
fore, it is recommended that wide-mouth bottles be phased into service as part
of the normal replacement of broken and lost bottles.
Items 2, 4 Collection procedures and transportation and storage
When two or more samples are shipped in the same container, each sample
must be marked to correspond with the appropriate sample sheet. Each
sample sheet should contain complete information relating to the sample,
including the date of collection and the exact location sampled. It is also
suggested that a space be provided to enter residual chlorine values.
It is recommended that the instructions on the back of the State of Idaho Dept.
of Health form DH 61271, figure 1, relating to the volume of sample to be
collected, be changed. Presently the sample collector is instructed to fill
-------
154
the sample bottle two-thirds (2/3) full. Since the capacity of the sample
bottle is 120 ml, the volume received for analysis would only be 80 ml and
the minimum recommended sample volume is 100 ml. The present sample
bottle could be marked to assure that a. minimum of 100 ml is collected with
ample space remaining for adequate shaking. Then samplers could be in-
structed to fill the bottle to this mark. It is also recommended that the last
sentence in item 4 on the back of the State of Idaho Department of Health form
DH 61058, figure 1, "if samples must be held for some time they should be
refrigerated, " be deleted. All samples should reach the laboratory within 30
to 48 hours after collection. Therefore, it is suggested that sample collectors
be instructed to coordinate sample collection and shipment with existing mailing
and shipping schedules in their area.
Item 5 Record of Laboratory Examinations
The procedure for reporting results of bacteriological analyses depends upon
the type system examined. Results of samples from municipal supplies are
reported directly to the purveyor with copies of the report sent to the Environ-
mental Improvement Division (EID). It is the responsibility of EID to initiate
a program for remedial action when unsatisfactory samples are reported.
However, results relating to private and semi-public supplies are reported
differently. These results are sent to the purveyor or owner and a copy sent
to the District Health Department. If the sample is unsatisfactory, a form
letter similar to Exhibit A, is sent along with the report. The EID is not con-
tacted.
A semi-public supply is defined as: (1) new subdivisions not yet included in
municipal supplies, (2) schools, and (3) industries.
Basically there is no resampling program for remedial action when unsatis-
factory samples are obtained, table 1. Regulations do recommend that unsatis-
factory samples should be reported and a program be initiated which provides
for daily samples to be collected from the same sampling point and examined
until the results obtained from at least two consecutive samples indicate that
contamination is no longer present. Such regulations are outlined in the Public
Health Service Drinking Water Standards, 1962, and the Surgeon General's
memorandum to all State Health Officers, dated February 15, 1963.
Items 7, 9 Incubators
A daily record of incubator temperatures is required in the absence of a
recording thermometer. This record should include the date, temperature
and initials of the person who records the data. Any deviation greater than
the variance permitted should be corrected by proper thermostat adjustment.
Maintaining such a record will also alert laboratory personnel to any gradual
changes which may reflect possible metal fatigue in the bi-metallic strip of the
thermostat.
-------
155
INSTRUCTIONS FOR COLLECTING SAMPLES
1. This bottle has been sterilized. Do not remove cap from bottle
until just before collecting sample. Hold cap and bottle so that
neither the inside of the cap nor the lip of the bottle are touched
by the fingers or other objects.
2. If from faucet or pump allow the water to run three to five
minutes before collecting. FILL THE BOTTLE ABOUT TWO-
THIRDS (2/3) FULL and return to laboratory promptly.
3. Please fill out the reverse side of this form as completely as
possible.
Form DH 61271
INSTRUCTIONS FOR COLLECTING SAMPLES
1. Select a clean faucet and sterilize by thorough flaming before opening.
2. Allow water to run three to five minutes before taking sample.
3. Do not remove the cap from the bottle until just before filling. While
filling hold cap and bottle so that neither the inside of the cap or the
lip of the bottle are touched by the fingers or other objects.
4. Samples should reach the laboratory as soon as possible after they
have been collected. If samples must be held for some time they should
be refrigerated.
5. Please fill out the reverse side of this form as completely as possible.
*lf the water sample is collected at the source prior to chlorination, it
is considered a "well" sample. Samples collected at various points
throughout the distribution system should be checked as "system"
samples regardless of whether or not the water is chlorinated.
DO NOT FILL BOTTLE MORE THAN TWO-THIRDS (2/3) FULL
Form DH 61058 Figure 1
Instructions for collecting samples from municipal (DH 61058)
and private and semi-public (DH 61271) water supplies
-------
EXHIBIT A
156
CITY COUNTY HEALTH DEPT.
1455 North Orchard
BOISE, IDAHO 837OA
Boise, Idaho CITY-COUNTY HEALTH DEPARTMENT Telephone 375-5211
CONTAMINATED DRINKING WATER
Laboratory examination of your water sample indicates that the water
is contaminated with intestinal type of bacteria. This indicates that
the water is polluted by organisms normally found in sewage and continued
use may result in disease.
Corrective measures can be divided into two categories. The first
is aimed at preventing surface water or other contaminating material
from gaining access to the well, and the second is aimed at disinfecting
the well.
OLD WELLS: These wells may be contaminated because of poor construction
or because the source of water itself is contaminated. If
the latter is the case, (usually shallow wells) little can
be done to improve the situation except to have a well
driller seal (case) off this shallow contaminated water and
seek safe water at a greater depth. Dug wells commonly show
contamination because it is almost impossible to keep out
surface or seepage waters.
NEW WELLS: It has been our experience that new wells or recently
repaired old wells and water systems commonly show contami-
nation. This is because the materials used are ordinarily
contaminated. Disinfection, as outlined below, will usually
correct this trouble.
DISINFECTING WELLS
Wells may be disinfected by adding chlorine solutions, (Clorox,
White Magic, Purex, etc.) or chlorine powders (H.T., B.K., Chloride of
Lime, etc.) directly to the water in the well. About a quart of solu-
tion or 1/4 Ib. of powder should be added to a 4-inch well but pro-
portionately more is required for larger wells. Larger quantities may
be required where unusual conditions are encountered. Add this material
directly to the well itself in the evening and operate the pump until
chlorine can be detected at all taps, then allow to set all night. Pump
out the well thoroughly the following morning until no smell or taste of
chlorine is left and sample again (for laboratory examination) on the
following day. Sample bottles supplied by the Department of Health,
Laboratory Services, should be used for this purpose. Periodic sampling
should be done to be reasonably certain that the difficulty has been
corrected.
ADA COUNTY HEALTH OFFICER
-------
157
EXHIBIT A
When it is suspected that the water is contaminated because of'
poor design or construction there are a number of conditions to check.
1. Is the well deep enough to get satisfactory water? Water
from shallow wells and pitcher pumps is always subject to
contamination.
2. Is the well tightly cased? Make certain the casing is not
perforated or cracked and that the joints are tight in the
contaminated area or upper strata.
3. Is the well or casing tightly sealed at the top? This is
important to keep out surface contamination and rodents.
4. Is the top of the well in a pit? This is a poor situation
unless special protection is offered.
5. Is the surface drainage toward the well and are irrigation
waters close? If so, these conditions should be remedied.
6. Are outdoor toilets, septic tanks, cesspools or sewer lines
close to the well? If so, this is a definite hazard.
7. Is your well in lava formation where crevices may carry
contamination great distances?
8. Are there other conditions which could contribute to the
contamination of the water?
If you are still in doubt concerning the safety of your well or the
quality of your water, write or call the City-County Health Department.
We shall be glad to advise you or perhaps a sanitarian can call on
you. After all, remember that a safe water supply is one of the founda-
tions of good family and community health.
-------
158
Table 1
Resampling Intervals on Reported Positive Samples
January - October 1971
Name of Municipal
Water Supply
Date Approx. time interval
Collected Reported* Resampled for resample
Bliss
Boise (Boise Water Corp)
Boise (Eugene Outlook)
Boise (Lucky Lane)
Boise (Malad Hilton)
C aid well
Emmett (Municipal)
Haggerman
Idaho City
Marsing
Mt. Home
5/10
1/27
5/5
6/9
9/27
8/27
2/11
5/29
8/11
1/25
5/11
4/8
8/26
9/2
4/5
8/2
10/18
5/13
1/30
5/8
6/12
9/30
8/30
2/14
6/1
8/14
1/28
5/14
4/11
8/29
9/5
4/8
8/5
10/21
6/9
2/3 -
5/12
6/16
10/4
9/28
2/19
6/9 -
9/22
4/12
5/24
2/12
- 6/1
- 6/23
- 10/6
- 3/18
7/12
10/18
9/11
9/15
5/25
none
none
- 7/20
27
4
4
4
4
29
5
8
39
74
10
158
13
10
47
not resampled
not resampled
*The time interval between sample collection and reporting averaged three days.
Item 12
Thermometers
The accuracy of all thermometers should be verified at selected temperatures
within the minimum and maximum range of intended use by comparison with a
thermometer certified by the National Bureau of Standards or one of equivalent
accuracy. One certified thermometer would be sufficient if it were available
to all regional laboratories.
Item 32 Buffered Dilution Water
A fresh stock buffer solution should be prepared if the turbidity indicates bio-
logical growth in the stock solution. Microorganisms are capable of survival
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159
and growth in buffered dilution water which could adversely influence the
effectiveness of the buffer solution. Rather than storing the entire supply of
stock buffer in one container, it is suggested that 25-30 ml portions be dis-
pensed in screw-cap test tubes, autoclaved for 15 minutes at 121°C and
stored at 5 - 10° C. Having several smaller volumes available will eliminate
accidental contamination of the entire supply.
Item 33 pH Measurements
A record of the pH, medium lot number, and date of preparation should be
maintained on each batch of culture medium prepared. The minimal require-
ment is to maintain such a record for each new bottle of medium used. By
monitoring final medium pH, a check can be made on possible errors in
weighing, excessive heating or sterilization which could cause lactose
hydrolysis, chemical contamination, or deterioration of ingredients that
might occur during storage of the dehydrated medium.
Item 34 Sterilization of media
It is suggested that liquid media containing carbohydrates be sterilized at
121° C for 12 minutes. This will reduce the chance of lactose hydrolysis
resulting from excessive exposure of lactose to heat. Such hydrolysis
produces glucose and galactose which can be fermented by non-coliform
organisms resulting in false-positive reactions.
Item 48 Completed test
The confirmed test can yield positive reactions in the absence of the coliform
group (false-positive test). Therefore, it is necessary to establish the
validity of the confirmed test by comparison with the completed test. The
number of comparative procedures depends on the individual location and
waters being examined. Approximately 20 comparative procedures each
three months should be sufficient when there is good agreement. The number
should be increased if results from the confirmed and completed tests differ.
The completed test is the reference standard.
Item 50 MF Procedure
The present practice of applying continuous vacuum during the entire mem-
brane filter procedure is not recommended. In order to avoid uneven dis-
tribution of organisms over the membrane and accidental breaking of the
filter, vacuum should be applied only during the actual filtration process.
Air bubbles between the membrane and agar can easily be recognized on
m-Endo (MF) agar medium as colorless (white) spots in the membrane. A
membrane properly placed is uniformly pink. To eliminate bubbles, lift
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160
the membrane with sterile forceps and re-roll it onto the agar surface. Desic-
cation and death of coliform organisms may occur where air bubbles are formed
which could result in a lower count than is actually present in the volume of
sample filtered.
Laboratory Evaluation Program
Mr. Owen Carpenter, Assistant Director of Laboratories, is designated as the
State Water Laboratory Survey Officer. He is knowledgeable in the field of
water bacteriology, familiar with coliform detection methods, laboratory
apparatus, media requirements and analysis of laboratory records for com-
pliance of sampling to meet requirements in water quality standards.
Idaho has seven public health districts, Exhibit B, with the central laboratory
in Boise serving two districts and five regional laboratories serving the re-
maining five, table 2. These laboratories are the only ones examining potable
water supplies in the state.
Table 2
Regional Laboratories Certified to Examine Drinking Water
Laboratory and
Location
Coeur d'Alene
Lewiston 1C*
Twin Falls
Pocatello
Idaho Falls 1C
District
Served
1
2
5
6
7
Date
Certified
8/29/69
8/28/69
12/10/69
11/19/69
10/12/69
Surveying Officer
0.
0.
0.
0.
0.
Carpenter
Carpenter
Carpenter
Carpenter
Carpenter
^Laboratories examing water supplies serving Interstate Carriers.
Remarks
At present the Boise Laboratory is using both Gelman (Metricel) and Millipore
membrane filters. Both have currently been evaluated and are rated as being
of comparable quality. However, it is recommended that a surveillance of
the quality of both be conducted during routine use. Such a surveillance should
include:
1. Increase or decrease of filtration time
2. Increase of filtration through individual portions of the membrane
3. Toxicity of the ink used to print grid markings
4. Diffusion of ink when membranes are incubated, especially when
used in the membrane filter fecal coliform procedure.
-------
EXHIBIT B
PUBLIC HEALTH DISTRICTS
Effective July 1, 1971
efferson [—^_.
[Mad i son'.Te to
V. South Central District
VI. Southeastern District
-------
162
Specific deviations observed at the Idaho Falls and Lewiston Regional Labor-
atories can not be corrected at the regional level and the major responsibility
for corrective action must be initiated at the State level. This is recommended
since all purchasing authority is at the State level and the Regional Labora-
tories are entirely dependent upon the State Health Department for their needs
and procedural guidelines.
Table 3 lists the item number and short description of each deviation. Refer-
ence should be made to the individual survey report on each regional laboratory
for specific information relating to the deviation and corrective recommenda-
tion.
Table 3
Deviations at Regional Level Requiring State Action
Regional
Laboratory
Idaho Falls
Lewiston
Item
Number
2 and 4
3
5
9
12
60
61
2 and 4
3
5
12
13
Brief description of deviation
Laboratory forms accompanying
Sample bottles
sample
Reporting results and remedial action
Water bath incubator
Thermometers
Physical facilities
Laboratory safety, autoclave
Laboratory forms accompanying
Sample bottles
samples
Reporting results and remedial action
Thermometers
pH meter
Personnel Approved
Mrs. Connie Roberts, Microbiologist, is approved for the application of the
multiple tube fermentation and membrane filter procedures for the bacteriological
examination of drinking water for total coliform and the application of the multiple
tube fermentation procedure used in stream quality measurements for total and
fecal coliform.
-------
163
Conclusions
The procedures and equipment in use at the time of the survey complied in
general with the provisions of Standard Methods for the Examination of Water
and Wastewater (13th edition - 1971) and the Interstate Quarantine Drinking
Water St andards, and with correction of deviations listed, it is recommended
that the results be accepted for the bacterial examination of waters under
interstate regulations.
-------
165
Report of a Survey of the
Idaho Department of Health
Idaho Falls Regional Laboratory
520 Legion Drive
P.O. Box 661
Idaho Falls, Idaho 83401
December 1, 1971
by
Harry D. Nash, Ph. D.
Microbiologist
Environmental Protection Agency
4676 Columbia Parkway
Cincinnati, Ohio 45268
The equipment and procedures employed in the bacteriological analyses of
water by this laboratory conformed in general with the provisions of Standard
Methods for the Examination of Water and Wastewater (13th edition - 1971)
and with the provisions of the Interstate Quarantine Drinking Water Standards,
except for items marked with a cross "X" on the accompanying Form EPA -
103 (Rev 3-71). Items marked with a "U" could not be determined at the time
of the survey. Items marked "O" do not apply to the procedures programmed
in the laboratory. Specific deviations are described with appropriate remedial
action for compliance in the following recommendations:
Recommendations
Item 3 Sample bottles
Samples taken in narrow-mouth bottles are more subject to accidental con-
tamination, especially if the person collecting the sample is inexperienced.
Therefore, it is recommended that wide-mouth bottles be phased into service
as part of the normal replacement of broken and lost bottles.
Item 2, 4 Collection procedures and transportation and storage
When two or more samples are shipped in the same container, each sample
must be marked to correspond with the appropriate sample sheet. Each
sample sheet should contain complete information relating to the sample,
including the date of collection and the exact location sampled. It is also
suggested that a space be provided to enter residual chlorine values.
Instructions to sample collectors
It is recommended that the instructions on the back of the State of Idaho
Department of Health form DH 61271, figure 1, relating to the volume of
-------
166
sample to be collected, be changed. Presently the sample collector is in-
structed to fill the sample bottle two-thirds (2/3) full. Since the capacity of
the sample bottle is 120 ml, the volume received for analysis would only be
80 ml and the minimum recommended sample volume is 100 ml. The present
sample bottle could be marked to assure that a minimum of 100 ml is collec-
ted with ample space remaining for adequate shaking. Then samplers could
be instructed to fill the bottle to this mark. It is also recommended that the
last sentence in item 4 on the back of the State of Idaho Department of Health
form DH 61058, figure 1, "if sample must be held for some time they should
be refrigerated, " be deleted. All samples should reach the laboratory within
30 to 48 hours after collection. Therefore, it is suggested that sample
collector be instructed to coordinate sample collection and shipment with
existing mailing and shipping schedules in their area.
Item 5 Record of laboratory examination
The procedure for reporting results of bacteriological analyses depends upon
the type supply examined. All results are reported by mail unless a special
request is made for telephonic notification. All results concerning municipal
supplies are reported to the municipality and to the State Regional Engineer.
A report is not sent directly to the Environmental Improvement Division in
Boise. Results concerning private and semi-public supplies are sent to the
purveyor or owner and to the County Environmentalist. The State Regional
Engineer is not notified by the laboratory. If samples from private or semi-
public supplies are unsatisfactory, a form letter, similar to Exhibit A,
accompanies the report.
A semi-public supply is defined as one serving: (1) new subdivisions not yet
included in municipal supplies, (2) schools, and (3) industries.
Basically there is no resampling program for remedial action when unsatisfactory
samples are reported, Table 1. Regulations do recommend that unsatisfactory
samples be reported and a program be initiated which provides for daily
samples to be collected from the same sampling point and examined until the
results obtained from at least two consecutive samples indicate that contami-
nation is no longer present. Such regulations are outlined in the Public Health
Drinking Water Standards, 1962, and the Surgeon General's memorandum to
all State Health Officers, dated February 15, 1963.
Item 9 Water bath incubator
The model water bath which is used for fecal coliform incubation is not adequate.
The design is such that a uniform temperature of 44. 5_f 0. 2°C cannot be
maintained. In addition, the same water bath is used for certain clinical
diagnostic examinations which require changing the temperature controls from
-------
167
INSTRUCTIONS FOR COLLECTING SAMPLES
1. This bottle has been sterilized. Do not remove cap from bottle
until just before collecting sample. Hold cap and bottle so that
neither the inside of the cap nor the lip of the bottle are touched
by the fingers or other objects.
2. If from faucet or pump allow the water to run three to five
minutes before collecting. FILL THE BOTTLE ABOUT TWO-
THIRDS (2/3) FULL and return to laboratory promptly.
3. Please fill out the reverse side of this form as completely as
possible.
Form DH 61271
INSTRUCTIONS FOR COLLECTING SAMPLES
1. Select a clean faucet and sterilize by thorough flaming before opening.
2. Allow water to run three to five minutes before taking sample.
3. Do not remove the cap from the bottle until just before filling. While
filling hold cap and bottle so that neither the inside of the cap or the
lip of the bottle are touched by the fingers or other objects.
4. Samples should reach the laboratory as soon as possible after they
have been collected. If samples must be held for some time they should
be refrigerated.
5. Please fill out the reverse side of this form as completely as possible.
*lf the water sample is collected at the source prior to chlorination, it
is considered a "well" sample. Samples collected at various points
throughout the distribution system should be checked as "system"
samples regardless of whether or not the water is chlorinated.
DO NOT FILL BOTTLE MORE THAN TWO-THIRDS (2/3} FULL
Form DH 61058 Figure 1
Instructions for collecting samples from municipal (DH 61058)
and private and semi-public (DH 61271) water supplies
-------
EXHIBIT A
168
CITY COUNTY HEALTH DEPT.
1455 North Orchard
BOISE, IDAHO 83704
Boise, Idaho CITY-COUNTY HEALTH DEPARTMENT Telephone 375-5211
CONTAMINATED DRINKING WATER
Laboratory examination of your water sample indicates that the water
is contaminated with intestinal type of bacteria. This indicates that
the water is polluted by organisms normally found in sewage and continued
use may result in disease.
Corrective measures can be divided into two categories. The first
is aimed at preventing surface water or other contaminating material
from gaining access to the well, and the second is aimed at disinfecting
the well.
OLD WELLS: These wells may be contaminated because of poor construction
or because the source of water itself is contaminated. If
the latter is the case, (usually shallow wells) little can
be done to improve the situation except to have a well
driller seal (case) off this shallow contaminated water and
seek safe water at a greater depth. Dug wells commonly show
contamination because it is almost impossible to keep out
surface or seepage waters.
NEW WELLS: It has been our experience that new wells or recently
repaired old wells and water systems commonly show contami-
nation. This is because the materials used are ordinarily
contaminated. Disinfection, as outlined below, will usually
correct this trouble.
DISINFECTING WELLS
Wells may be disinfected by adding chlorine solutions, (Clorox,
White Magic, Purex, etc.) or chlorine powders (H.T., B.K., Chloride of
Lime, etc.) directly to the water in the well. About a quart of solu-
tion or 1/4 Ib. of powder should be added to a 4-inch well but pro-
portionately more is required for larger wells. Larger quantities may
be required where unusual conditions are encountered. Add this material
directly to the well itself in the evening and operate the pump until
chlorine can be detected at all taps, then allow to set all night. Pump
out the well thoroughly the following morning until no smell or taste of
chlorine is left and sample again (for laboratory examination) on the
following day. Sample bottles supplied by the Department of Health,
Laboratory Services, should be used for this purpose. Periodic sampling
should be done to be reasonably certain that the difficulty has been
corrected.
ADA COUNTY HEALTH OFFICER
-------
EXHIBIT A
169
When it is suspected that the water is contaminated because of
poor design or construction there are a number of conditions to check.
1. Is the well deep enough to get satisfactory water? Water
from shallow wells and pitcher pumps is always subject to
contamination.
2. Is the well tightly cased? Make certain the casing is not
perforated or cracked and that the joints are tight in the
contaminated area or upper strata.
3. Is the well or casing tightly sealed at the top? This is
important to keep out surface contamination and rodents.
4. Is the top of the well in a pit? This is a poor situation
unless special protection is offered.
5. Is the surface drainage toward the well and are irrigation
waters close? If so, these conditions should be remedied.
6. Are outdoor toilets, septic tanks, cesspools or sewer lines
close to the well? If so, this is a definite hazard.
7. Is your well in lava formation where crevices may carry
contamination great distances?
8. Are there other conditions which could contribute to the
contamination of the water?
If you are still in doubt concerning the safety of your well or the
quality of your water, write or call the City-County Health Department.
We shall be glad to advise you or perhaps a sanitarian can call on
you. After all, remember that a safe water supply is one of the founda-
tions of good family and community health.
-------
170
Table 1
Resampling intervals on reported positive samples
January - October 1971
Name of municipal
water supply
Ashton
lona
Newdale
Ucon
Collected
2/17/71
5/26/71
10/1/71
4/12/71
5/17/71
7/12/71
7/12/71
7/16/71
Date
Reported
2/20/71
5/30/71
10/8/71
4/17/71
5/22/71
7/15/71
7/15/71
7/19/71
Re sampled
3/2/71
none
none
8/20/71
7/20/71
7/20/71
7/16/71
7/20/71
Time Interval
for Resampling
10 days
over 4 months
approx. 2 mos.
5 days
1 day
1 day
one setting to another depending on the test. Such constant changing of the
controls is not desirable because of the uncertainty of temperature stabilization.
It is recommended that a water bath equipped with a gabled cover to reduce
water and heat loss be purchased for incubating fecalcoliform cultures. A
daily record should be maintained to assure proper incubation temperature
is achieved.
Item 10 Hot air sterilization oven
The commercial type oven used to sterilize dry glassware should be checked
in order to verify that sterilization temperature is reached and maintained
(170° - 180° C for two hours). This can be done by placing a thermometer in
a can filled with fine sand and placed in the oven so that the thermometer can
be read immediately after the oven door is opened. The sand will prevent an
immediate thermometer fluctuation and permit adequate verification of the
maximum temperature obtained.
Item 12
Thermometers
The accuracy of all thermometers should be verified at temperatures within
the minimum and maximum range of intended use by comparison with one
certified by the National Bureau of Standards or one of equivalent accuracy.
It is suggested that this service or such a thermometer be requested from the
central laboratory in Boise.
Item 31 Laboratory water quality
Distilled water used for bacteriological tests should be free of inorganic and
organic substances either toxic or nutritive which may influence the survival
-------
EXHIBIT B
PUBLIC HEALTH DISTRICTS
Effective July 1, 1971
nsida J ' |
j Frank I i n»
IV. Central
District
V. South Central District
VI. Southeastern District
-------
172
or growth of microorganisms. Several factors can influence the quality:
(1) design of the distillation equipment, (2) source of water, (3) storage
chamber for reserve supply, (4) temperature of stored supply, (5) duration
of storage before use. These factors may contribute varying degrees of
contaminants such as metal ions, ammonium hydroxide, hydrochloric acid,
chlorine from the source water, and carbon dioxide from the air. In order to
assure the quality, it is recommended that a distilled water suitability test be
conducted at least once a year. This procedure for monitoring distilled water
quality can also be done by the Central Lab as a service to the regional laboratory
system.
Item 32 Buffered dilution water
A fresh stock buffer solution should be prepared if the turbidity indicates bio-
logical growth in the stock solution. Microorganisms are capable of survival
and growth in buffered dilution water which could adversely influence its
effectiveness. Rather than storing the entire supply of stock buffer in one
container, it is suggested that 25-30 ml protions be dispensed in screw-cap
test tubes, autoclaved for 15 minutes at 121° C and stored at 5 - 10° C. Having
several smaller volumes available will eliminate accidental contamination of
the entire supply.
Item 33 pH measurements
A record of the pH, medium lot number, and date of preparation should be
maintained on each batch of culture medium prepared. The minimal requirement
is to maintain such a record for each new bottle of medium used. By monitoring
final medium pH, a check can be made on possible errors in weighing, excessive
heating or sterilization which could cause lactose hydrolysis, chemical contami-
nation, or deterioration of ingredients that might occur during storage of the
dehydrated medium.
Item 34 Sterilization of media
It is suggested that liquid media containing carbohydrates be sterilized at 121°C
for 12 minutes. This will reduce the chance of lactose hydrolysis resulting from
excessive exposure of lactose to heat. Such hydrolysis produces glucose and
galactose which can be fermented by non-coliform organisms resulting in false-
positive reactions.
Item 50 MF procedure
It is recommended that sterile buffered water be used to rinse the funnel after
filtering the sample. The pH of sterile distilled water may have an adverse
effect, especially on attenuated organisms, if the pH of the distilled water
indicates it to be too acid or basic.
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173
Item 52 Counting - verification of coliform colonies
Verification of coliform or suspected coliform colonies should be conducted by
picking colonies and inoculating either lactose or lauryl tryptose broth and then
transferring positive cultures to brilliant green lactose bile (BGB) broth. The
present practice of picking colonies and inoculating directly into BGB broth
should be discontinued. Atypical colonies may be developing from attenuated
coliform organisms and as a result the typical sheen will not be observed.
Therefore, an enrichment procedure, inoculation into either lactose or lauryl
tryptose broth, is required.
Item 60 Physical facilities
Mr. Dennis Paananen should be commended for his ability to conduct the number
and variety of examinations in a laboratory having such limited space. It would
be beneficial for the overall mission of this laboratory to provide new quarters
or increase the facilities at the present location. Mr. Owen Carpenter also
indicated the need for additional space in his laboratory evaluation report dated
October 7, 1969. This laboratory conducts clinical diagnostic and water bacteri-
ological examinations. The amount of space available for bench work, storage
of both sterile and non-sterile media and equipment, and office facilities is
insufficient. Such limited facilities could influence the quality of work and reliability
of date unless corrected in the near future.
Item 61 Laboratory safety
It is recommended that periodic inspection and maintenance be conducted on the
present autoclave. It appears that the drain becomes clogged periodically and
at present there is no screen in the drain to retain material which causes block-
age. Although this autoclave appears to function adequately, it is relatively old
and replacement parts may be difficult to obtain. It is suggested that a new auto-
clave be purchased in the event that the present one can not be properly serviced
and maintained.
Remarks
It is suggested that the Boise Central Water Laboratory assume the major respon-
sibility for correction of deviations listed in items 2, 3, 4, 5, 9, 12, 60, and 61
because all purchasing authority is at the State level and the Regional Laboratories'
are entirely dependent upon the State Health Department for their needs and pro-
cedural guidelines.
Personnel Approved
Mr. Dennis Paananen, Microbiologist, is approved for the application of the
multiple tube fermentation and membrane filter procedures for the bacteriological
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174
examination of drinking water for total coliform and the application of the
multiple tube fermentation procedure used in stream quality measurements for
total and fecal coliforms. Although Mr. Paananen is approved for the application
of the multiple tube fermentation procedure used to detect fecal coliform, the
data obtained using the present water bath incubator may be considered question-
able if needed as official data.
Conclusions
The procedures and equipment in use at the time of the survey complied in
general with the provisions of Standard Methods for the Examination of Water
and Wastewater (13th edition - 1971) and the Interstate Quarantine Drinking
Water Standards, and with correction of deviations listed, it is recommended
that the results be accepted for the bacterial examination of waters under inter-
state regulations.
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REPORT OF A SURVEY OF THE 175
IDAHO DEPARTMENT OF HEALTH
LEWISTON REGIONAL LABORATORY
122) F STREET
LEWISTON, IDAHO 83501
on December 2, 1971
by
Harry D. Nash, PhD., Microbiologist
Water Supply Programs Division
Environmental Protection Agency
U676 Columbia Parkway
Cincinnati, Ohio ^5268
The equipment and procedures employed in the bacteriological analyses
of water by this laboratory conformed in general with the provisions of
Standard Methods for the Examination of Water and Wastewater (13 edition -
1971) and with the provisions of the Interstate Quarantine Drinking Water
Standards, except for items marked with a cross "X" on the accompanying
form EPA 103 (Rev 3-71). I terns marked with a "U" could not be determined
at the time of the survey. I terns marked "0" do not apply to the procedures
programmed in the laboratory. Specific deviations are described with
appropriate remedial action for compliance ii the following recommendations:
RECOMMENDATIONS
Item 3 Sample Bottle
SampleStaken in narrow-mouth bottles are more subject to accidental
contamination, especially if the person collecting the sample is inexperi-
enced. Therefore, it is recommended that wide-mouth bottles be phased into
service as part of the normal replacement of broken and lost bottles.
Item 2 and k Collection Procedures and Transportation and Storage
Each sample sheet should contain complete information relating to the
sample including date of collection and the exact location sampled. It is
also suggested that a space be provided to enter residual chlorine values.
Instructions to sample collectors
It is recommended that the instructions on the back of the State of
Idaho Department of Health form DH 61271, figure 1, relating to the volume
of sample to be collected, be changed. Presently the sample collector is
instructed to fill the sample bottle two-thirds (2/3) full. Since the
capacity of the sample bottle is 120 ml, the volume received for analysis
would only be 80 ml and the minimum recommended sample volume is 100 ml.
The present sample bottle could be marked to assure that a minimum of
100 ml is collected with ample space remaining for adequate shaking. Then
samplers could be instructed to fill the bottle to this mark. It is also
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176
recommended that the last sentence in item k on the back of the State of
Idaho Department of Health form DH 61058, figure 1, "If sample must be
held for some time they should be refrigerated", be deleted. AH samples
should reach the laboratory within 30 to 48 hours after collection. There-
fore it is suggested that sample collectors be instructed to coordinate
sample collection and shipment with existing mailing and shipping schedules
in their area.
I tern 5 Record of Laboratory Examination
The procedure for reporting results of bacteriological analyses
depends upon the type supply examined. All results are reported by mail
unless a special request is made for telephonic notification. AH results
concerning municipal supplies are reported to the municipality and to the
State Regional Engineer. A report is not sent directly to the Environmental
Improvement Division in Boise. Results concerning private and semi-public
supplies are sent to the purveyor or owner and to the County Environmentalist,
The State Regional Engineer is not notified by the laboratory. If samples
from private or semi-public supplies are unsatisfactory, a form letter,
similar to Exhibit A, accompanies the report.
A semi-public supply is defined as one serving: (1) new subdivisions
not yet included in municipal supplies, (2) schools, and (3) industries.
Basically there is no resampling program for remedial action when
unsatisfactory samples are reported, Table 1. Regulations do recommend
that unsatisfactory samples be reported and a program be initiated which
provides for daily samples to be collected from the same sampling point
and examined until the results obtained from at least two consecutive
samples indicate that contamination is no longer present. Such regu-
lations are outlined in the Public Health Drinking Water Standards, 1962,
and the Surgeon General's memorandum to all State Health Officers, dated
February 15, 1963.
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177
INSTRUCTIONS FOR COLLECTING SAMPLES
1. This bottle has been sterilized. Do not remove cap from bottle
until just before collecting sample. Hold cap and bottle so that
neither the inside of the cap nor the lip of the bottle are touched
by the fingers or other objects.
2. If from faucet or pump allow the water to run three to five
minutes before collecting. FILL THE BOTTLE ABOUT TWO-
THIRDS (2/3) FULL and return to laboratory promptly.
3. Please fill out the reverse side of this form as completely as
possible.
Form DH 61271
INSTRUCTIONS FOR COLLECTING SAMPLES
1. Select a clean faucet and sterilize by thorough flaming before opening.
2. Allow water to run three to five minutes before taking sample.
3. Do not remove the cap from the bottle until just before filling. While
filling hold cap and bottle so that neither the inside of the cap or the
lip of the bottle are touched by the fingers or other objects.
4. Samples should reach the laboratory as soon as possible after they
have been collected. If samples must be held for some time they should
be refrigerated.
5. Please fill out the reverse side of this form as completely as possible.
*lf the water sample is collected at the source prior to chlorination, it
is considered a "well" sample. Samples collected at various points
throughout the distribution system should be checked as "system"
samples regardless of whether or not the water is chlorinated.
DO NOT FILL BOTTLE MORE THAN TWO-THIRDS (2/3) FULL
Form DH 61058 Figure 1
Instructions for collecting samples from municipal (DH 61058)
and private and semi-public (DH 61271) water supplies
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178
EXHIBIT A
CITY COUNTY HEALTH DEPT.
1455 North Orchard
BOISE, IDAHO 83704
Boise, Idaho CITY-COUNTY HEALTH DEPARTMENT Telephone 375-5211
CONTAMINATED DRINKING WATER
Laboratory examination of your water sample indicates that the water
is contaminated with intestinal type of bacteria. This indicates that
the water is polluted by organisms normally found in sewage and continued
use may result in disease.
Corrective measures can be divided into two categories. The first
is aimed at preventing surface water or other contaminating material
from gaining access to the well, and the second is aimed at disinfecting
the well.
OLD WELLS: These wells may be contaminated because of poor construction
or because the source of water itself is contaminated. If
the latter is the case, (usually shallow wells) little can
be done to improve the situation except to have a well
driller seal (case) off this shallow contaminated water and
seek safe water at a greater depth. Dug wells commonly show
contamination because it is almost impossible to keep out
surface or seepage waters.
NEW WELLS: It has been our experience that new wells or recently
repaired old wells and water systems commonly show contami-
nation. This is because the materials used are ordinarily
contaminated. Disinfection, as outlined below, will usually
correct this trouble.
DISINFECTING WELLS
Wells may be disinfected by adding chlorine solutions, (Clorox,
White Magic, Purex, etc.) or chlorine powders (H.T., B.K., Chloride of
Lime, etc.) directly to the water in the well. About a quart of solu-
tion or 1/4 Ib. of powder should be added to a 4-inch well but pro-
portionately more is required for larger wells. Larger quantities may
be required where unusual conditions are encountered. Add this material
directly to the well itself in the evening and operate the pump until
chlorine can be detected at all taps, then allow to set all night. Pump
out the well thoroughly the following morning until no smell or taste of
chlorine is left and sample again (for laboratory examination) on the
following day. Sample bottles supplied by the Department of Health,
Laboratory Services, should be used for this purpose. Periodic sampling
should be done to be reasonably certain that the difficulty has been
corrected.
ADA COUNTY HEALTH OFFICER
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179
EXHIBIT A
When it is suspected that the water is contaminated because of
poor design or construction there are a number of conditions to check.
1. Is the well deep enough to get satisfactory water? Water
from shallow wells and pitcher pumps is always subject to
contamination.
2. Is the well tightly cased? Make certain the casing is not
perforated or cracked and that the joints are tight in the
contaminated area or upper strata.
3. Is the well or casing tightly sealed at the top? This is
important to keep out surface contamination and rodents.
4. Is the top of the well in a pit? This is a poor situation
unless special protection is offered.
5. Is the surface drainage toward the well and are irrigation
waters close? If so, these conditions should be remedied.
6. Are outdoor toilets, septic tanks, cesspools or sewer lines
close to the well? If so, this is a definite hazard.
7. Is your well in lava formation where crevices may carry
contamination great distances?
8. Are there other conditions which could contribute to the
contamination of the water?
If you are still in doubt concerning the safety of your well or the
quality of your water, write or call the City-County Health Department.
We shall be glad to advise you or perhaps a sanitarian can call on
you. After all, remember that a safe water supply is one of the founda-
tions of good family and community health.
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180
Table I
Resampling intervals on reported positive samples
January - October 1971
Name of municipal
water supply sampled
Bovi 1 1
(three sampl ing
po i n t s )
Crai gmont
(two sampl ing
points)
Ferdinand
(three sampl i ng
points)
Mi 1 1 view Water Co.
(two sampl i ng
po i n t s )
Sti tes
(ei ght sampl ing
po i n t s )
Date
col lected
2/8
2/8
3/10
7/23
9/7
7/2 b
7/26
9/20
8/2
9/27
1/18
1/18
5/17
7/19
7/19
8/16
8/16
11/1
Date
reported
2/11
2/11
3/15
7/28
9/13
7/30
7/30
9/24
8/5
10/1
1/21
1/21
5/20
7/2?
7/22
8/19
8/19
11/5
Date
resampled
3/10
none
5/12
8/2
none
9/20
none
11/7
none
1 1/2
2/18
none
6/21
none
8/16
9/20
none
none
Time interva
for resampl i
27 days
1
ng
approx 2 months
5 days
52 days
44 days
52 days
28 days
32 days
25 days
32 days
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EXHIBIT B
PUBLIC HEALTH DISTRICTS
Effective July 1, 1971
V. South Central District
VI. Southeastern District
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182
Item 12 Thermometers
The accuracy of all thermometers should be verified at temperatures
within the minimum and maximum range of intended use by comparison with
one certified by the National Bureau of Standards or one of equivalent
accuracy. It is suggested that this service or such a thermometer be
requested from the central laboratory in Boise.
I tern 13 pH Meter
The pH meter was sent to the central laboratory in Boise approximately
one [month ago for repairs. During this time, media has not been checked
for proper pH. It is recommended that the central laboratory provide a
replacement when pH meters or similar instrument? are being repaired.
The pH of media is cr;tical and must be monitored.
I tern 31 Laboratory Water Quality
Distilled water used for bacteriological tests should be free of
inorganic and organic substances either toxic or nutritive which may
influence the survival or growth of microorganisms. In order to assure
the quality, it is recommended that a distilled water suitability test
be conducted at least once a year. This test can also be used to evaluate
newly installed distillation apparatus, recently repaired or cleaned
distillation equipment, and as a periodic check for loss of tin plating
over a copper base of existing stills. This procedure for monitoring
distilled water qutility could also be done by the Central State Laboratory
as a service to its regional laboratories.
I tern 33 pH Measurements
A record of the pH, medium lot number, and date of preparation should
be maintained on each batch of culture medium prepared. The minimal
requirement is to maintain such a record for each new bottle of medium used.
By monitoring final medium pH, a check can be made on possible errors in
weighing, excessive heating or bteri1ization which could cause lactose
hydrolysis, chemical contamination, or deterioration of ingredients that
might occur during storage of the dehydrated medium.
Item 3^ Sterilization of Mfdia
It is suggested that liquid media containing carbohydrates be sterilized
at 121°C for 12 minutes. This will reduce the chance of lactose hydrolysis
resulting from excessive exposure of lactose to heat. Such hydrolysis
produces glucose and galactose which can be fermented by non-coliform
organisms causing false-positive reactions.
Item ^8 Completed Test
The confirmed test can yield positive reactions in the absence of the
coliform group (false-positive test). Therefore, it is necessary to establish
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183
the validity of the confirmed test by comparison with the completed test.
The number of comparative procedures depends on the individual location
and waters being examined. Approximately 20 comparative procedures each
three months should be sufficient when there is good agreement. The number
should be increased if results from the confirmed and completed tests differ,
The completed test is the reference standard.
I tern 50 MF Procedure
The filtration unit, funnel and receptacle, should be sterile at the
start of each filtration series. Sterilization may be done by boiling,
autoclaving, or ultraviolet radiation.
It is recommended that sterile buffered water be used to rinse the
funnel after filtering the sample. The pH of sterile distilled water may
have an adverse effect, especially on attenuated organisms, if the pH
indicates that the distilled water is too acidic or basic.
I tern 52 Counting - Verification of Coliform Colonies
Verification of coliform or suspected coliform colonies should be
conducted by picking colonies and inoculating either lactose or lauryl
tryptose broth and then transferring positive cultures to brilliant green
lactose bile (BGB) broth. The present practice of picking colonies and
inoculating directly into BGB broth should be discontinued because of the
inherent lower recovery in more selective medium. Atypical colonies may
be developing from attenuated coliform organisms and as a result the
typical sheen will not be observed. Therefore, an enrichment procedure,
inoculation into either lactose or lauryl tryptose broth, is required.
RE-MARKS
It is suggested that the Boise Central Water Laboratory assume the
major responsibility for correction of deviations listed in items 2, 3,
4, 5, 12, and 13 because all purchasing authority is at the state level
and the regional laboratories are entirely dependent upon the State Health
Department for their needs and procedural guidelines.
PERSONNEL APPROVED
Mr. Jack Bennett, Microbiologist and Mrs. Sally Nick, Assistant
Microbiologist are approved for the application of the multiple tube
fermentation and membrane filter procedures for the bacteriological
examination of drinking water for total coliform and the application of
the multiple tube fermentation procedure used in stream quality measure-
ments for total and fecal coliform.
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184
CONCLUSIONS
The procedures and equipment in use at the time of the survey complied
in general with the provisions of Standard Methods for the Examination of
Water and Wastewater (13th edition - 1970 and tne Interstate Quarantine
Drinking Water Standards, and with correction of deviations listed, it is
recommended that the results be accepted for the bacterial examination of
waters under interstate regulations.
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APPENDIX D
CHEMICAL LABORATORY SURVEY
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187
Survey of Water Chemistry Laboratory
Laboratory Division
Idaho State Department of Health
Boise, Idaho
Conducted by
Earl F. McFarren
Analytical Quality Control
Water Supply Programs Division
The offices of the Environmental Improvement Division in downtown
Boise and the Public Health Laboratory on Warm Springs Road were visited
on January 26 and 27, 1972. I was accompanied on this visit and introduced
to the various personnel by Mr. William Mullen, Water Supply Consultant,
Region X. Mr. Mullen, however, was able to stay only for the first day of
the survey.
Substances Determined
The water laboratory routinely determines turbidity, chlorides, fluorides,
nitiates, sulfates, total dissolved solids, copper, iron, lead, manganese and
zinc as specified by the drinking water standards. In addition, they also
routinely determine total solids, alkalinity, hardness, calcium, sodium,
phosphate, silica and ammonia on potable waters even though these are not
required. They generally never do color, odor, cyanide, carbon chloroform
extract, surfactants, arsenic, barium, cadmium, chromium, selenium,
silver, mercury, gross beta, radium 226, or strontium 90. Thus, in summary,
although they routinely do twenty-three determinations, only eleven of these
are required by the drinking water standards and fifteen substances specified
in the drinking water standards are seldom, if ever, done. In addition, although,
not at present specified by the drinking water standards, they have the capacity
through the services of the EPA, Pesticides Community Study Laboratory
located in the same building to do at least some water pesticide analysis, but
none were done last year.
Laboratory Apparatus
Although they have the equipment for the determination of color (see item
6a of survey form) they do not routinely do this determination. Likewise, they
have the equipment to do cadmium, chromium, and silver (item 8a); mercury
(item 8c); barium (item 8b); arsenic (item 16); cyanide (item 17); and fluoride
with distillation (item 18), but they do not do these determinations. Fluoride,
however, is done by the direct colorimetric SPA DNS procedure and is probably
generally satisfactory.
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188
However, since the electrode procedure is more accurate and free from
interferences, it was recommended that they purchase an electrode. They
do not have equipment for the determination of the carbon chloroform extract
(item 19) or the determination of radium 226 (item 29a). Since carbon
chloroform extraction equipment is not presently available, it was recom-
mended that they wait until the new mini-sampler procedure and equipment
becomes available.
Samples
While the sample identification form is generally satisfactory, the sample
collectors are generally very careless in filling-in the required information
and as a result many samples are poorly identified. In addition, there is no
place to indicate whether the sample is a raw or finished water or whether a
grab or composite sample (item 33b).
Records
A compilation dated January 1968, and listing the results of analysis of
public water supplies was obtained from Mr. Vaughn Anderson's office,
Director of the Environmental Improvement Division, but the latest results
were dated 1966, and most were the results of even earlier analyses. However,
Mr. Anderson did have in his files results of more recent analyses on many of
the supplies. These have been key punched, but no recent print-out was avail-
able. Results of all municipal water supplies analyzed last year were available
at the laboratory and a review of these files indicated that a total of 209 samples
were analyzed last year. However, 50 of these were for fluoride only, and
seven for iron and manganese only. Of the remaining 31 were analyzed for 20
substances and 121 for 23 substances. However, these 209 samples represented
only about 46 different supplies, since 128 were wells (many of which were
different wells in the same system). Nineteen of the samples were distribution
samples and only 12 were from water supplies using surface water as a source.
According to Mr. Anderson there are about 300 municipal water supplies
in the state, and about 20 of these have surface sources. However, from the
above search of the records it appears that only about 35 or 40 ground water
supplies and 10 or 12 surface water supplies were analyzed last year. Thus,
in conclusion if, as a minimum, the surface water supplies are analyzed twice
a year they should have done (20 x 2) 40, whereas they only did 10 or 12, and
they should have analyzed at least one third of the 280 ground water supplies
(once every three years) or about 95, whereas, they only did 35 or 40 (see
item 36a). In addition, about 17 supplies are supposedly fluoridated, but a
review of the records indicate that several were overfluoridated and most of
the others were underfluoridated to the extent that it was useless. Since there
is no other check on the fluoridated supplies these supplies should be analyzed
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189
at least once a week, which would mean about 884 (12 x 52) a year, whereas
only about 200 were done. There is another problem, however, in that many
of the supplies are wells scattered throughout the system and each well is
separately fluoridated, so actually the total number should be much higher.
In such cases, however, I wonder if it really is practical to attempt fluori-
dation. The City of Boise, for example, has 37 wells which would need to be
separately fluoridated and checked during peak consumption periods in the
summer time.
Other problem areas, as indicated from a review of the records, which
may require more or less continuous surveillance, are a few wells which
produce waters with total dissolved solids over 500, or nitrates over 40,
and others with high iron and manganese values which causes difficulties
in the operation of water heaters and boilers.
Laboratory
The water chemistry laboratory which is responsible for analysis of
both polluted and potable waters, consists of one 2 module (about 20 by 20)
and a one 1 module laboratory (about 10 by 20) which also serves as an
office for the chief chemist. Although these laboratories are perhaps
adequate for the three people which at present occupy them, they do not allow
for an expansion of either the number of persons or an increase in activity.
Even now there is inadequate storage space for chemicals and glassware,
and no separate space for storage and handling of sample bottles.
Quality Control
The laboratory does routinely check the quality of their distilled and
deionized water, but otherwise, has no routine program for checking the
quality of their analyses (item 42).
If the laboratory desires to be certified for analysis of those chemistries
which they are now running routinely, it will be necessary for them to
establish their proficiency by analyzing a reference sample which we can
supply.
Staff
The water chemistry staff consists of a chief chemist (Merle Maxwell)
who has a masters degree in chemistry, an assistant with a bachelor's
degree in biology (with some training and experience in chemistry), and a
technician. In general, the salaries of all appear to be low, and the number
is inadequate to carry out the desired chemistries with the desired frequencies.
In addition, another person is needed on Mr. Anderson's staff to be in charge
and responsible for carrying out an effective water supply program.
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190
Conclusions
The water chemistry laboratory routinely analyzes for 23 substances,
however, only 11 of these are required by the drinking water standards,
and 14 substances that are in the standards are seldom if ever run.
The laboratory analyzed about 35 or 40 ground water supplies and 10 or
12 surface water supplies last year, whereas, even as a minimal operation
they should have analyzed at least 95 ground water supplies and 40 surface
water supply samples.
About 17 water supplies are supposedly fluoridated and hence, as a
minimal operation the laboratory should have analyzed about 884 samples for
fluoride, whereas, they did only about 200. The results of analyses indicate
the need, since a review of the records revealed that a few were overfluoridated
and most of the others were underfluoridated to the extent that it was useless.
In order to increase the accuracy of the analysis, it is recommended that the
laboratory purchase a fluoride electrode, since they are at present using the
SPADNS procedure without distillation.
The equipment is available so that all of the chemistries specified by the
drinking water standards, except the carbon chloroform extraction and radium
226, could be carried out, however, more personnel would be needed to carry
out these additional chemistries and the desired increase in sampling. At
least two additional persons (one chemist and a technician) are needed in the
laboratory and an additional person to be responsible for carrying out an
effective water supply program is needed in the Environmental Improvement
Division.
There already is inadequate storage space for chemicals and glassware
in the laboratory, and no place is provided for receiving and shipping or
storage of samples and sample bottles. If additional personnel are hired,
more laboratory space also will be required.
Salaries of all laboratory personnel appear to be low.
Earl F. McFarren
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SURVEY OF WATER CHEMISTRY LABORATORIES
191
ENVIRONMENTAL PROTECTION AGENCY
Office of Water Programs
Water Hygiene Division
Indicating conformity with the 13th
edition of Standard Methods for the
Examination of Water and Waste -
water (1971).
Survey by Earl F. McFarren
Date 1-26-72
X = Deviation U = Undetermined
O = Not Used
Laboratory Public Health Laboratory
Street Warm Springs Road
City Boise
Director pr. Darrell W. Brock
Chief Chemist Merle Maxwell
State Idaho
Water Supply Chief Vaughn Anderson
1.
3.
Substances Determined
Physical determinations
a. color
b. odor
c. turbidity
Method
nephelometric
2. Miscellaneous anions, organics and solids
a.
b.
c.
d.
e.
f.
g.
h.
i.
Metals
a.
b.
c.
d.
e.
f.
g-
h.
i.
3-
k.
1.
m.
chlorides
cyanide
carbon chloroform extract
fluorides
nitrates
sulfates
surfactants
total dissolved solids
other
arsenic
barium
cadmium
chromium
copper
iron
lead
manganese
selenium
silver
mercury
zinc
other
mercuric nitrate titration
•
SPADNS without distillation
ultraviolet spectrophotometr|c
turbidimetric
gravimetric at 103°
atomic absorption
atomic absorption
atomic absorption
atomic absorption
atomic absorption
X
X
X
X
X
X
X
X
X
X
X
-------
4. Radioactivity
a. gross beta_
b. radium 226"
9.
c. strontium 90
d. other
5. Pesticides
a. aldrin
b. chlordane
c. dieldrin
d. DDT
endrin
heptachlor
e.
f.
g. heptachlor epoxide
h. methoxychlor
i. lindane
j. toxaphene
k. total organic phosphates plus carbamates
1. chlorinated phenoxy alkyl pesticides
m. other
Laboratory Apparatus
Make
Model
6. Color comparators
a. visual
Taylor disc comparator
b. filter photometer
Spe ctrophotomete r
a. visible
b. flame
c. other
Beckman
Model B
Beckman
Model R
Beckman UV and Visible
Atomic absorption spectrophotometer
a. air-acetylene burner
nitrous-oxide burner
cold
-------
Laboratory Location Date
Warm Springs Road 193
Public Health Laboratory Boise. Idaho 1/26/72
Make Model
10. Other chromatographic equipment
a. thin-layer Yes
b. Kuderna-Danish evaporator Yes
c. other
11. Turbidimeter Hack 2100
20. Drying oven Precision
21. Steam bath Precision
22. Hot water bath Yes
23. Muffle furnace Yes
12. Amperemeter Q
13. Titrimeter Q
14. pH meter Radiometer. Beckman expanded scale. Corning
15. Fluoride electrode O
16. Arsine generator have X
17. Cyanide still have X
18. Fluoride still have X
19. Carbon-chloroform extraction equipment
a. high or low flow columns X
b. carbon drying oven X
c. extraction apparatus X
d. manifold for solvent evaporation v
24. Distilled water still Two 10 gallons per hr. Barnstead
•f "- «... i . I, fc — • • • —
25. Water deionizer mixed bed, large cartridge
26. Conductivity meter Wheatstone bridge, and YST
27. Balance, sensitive to 0. 1 mg. Three Mettler balances
28. Automatic analyzer for
a. nitrates plus nitrites
b. nitrites
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194 . Make Model
28. Automatic analyzer for (Continued)
c. chloride
d. sulfate
e. cyanide
f. fluoride
g. other
29. Radiation Counting Equipment
a. internal proportional counter Beckman, Wide-beta II
b. alpha-scintillation counter
c. other gamma scan Radiation Instruments
30. Other Instruments or Equipment
a. ' K jeldahl
b- . BOD
c- con
d.
Samples
31. Containers
a. Non-reusable plastic containers preferred for the
collection of samples for general inorganic analysis. . .
b. Glass bottles with teflon lines caps preferred for
collection of pesticide samples
c. Other kind nalgene% reuse able .
32. Preservatives
a. Samples for metal analysis preserved by the addition
of nitric acid to a pH of about 2.0
b. Nitrates and methylene blue active substances preserved
by addition of mercuric chloride
c. Cyanide preserved by the addition of sodium
hydroxide to a pH of 11
d. No known or required preservative for turbidity, color,
pH, chloride, sulfate,. fluoride, specific conductance
and total dissolved solids
e. If no preservative is used, in general samples are
analyzed within 72 hrs,. if. not .samples are frgz§n.
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Laboratory Location Date
„ , .. TT ,., T , . Warm Springs Road 1/126/72
Public Health Laboratory r & / /
Boise. Idaho
33. Identification
a. Every bottle should be identified by attaching an
appropriately inscribed tag, a label or a number
corresponding to a sample identification sheet
b. The minimum information required on the tag or
correspondingly numbered sheet includes; name
of the water supply sampled, location of sampling
site, exact date and time of collection, type of
sample (raw, finished, grab or composite) by
whom collected, and kind of preservative if added
34. Collection
a. Samples from wells collected after pumping for
a sufficient time to assure that the sample is
representative of the ground water which feeds
the well fj
b. Finished (treated) water sampled at the plant by
use of a pipeline drip device or the collecting
and compositing of hourly (or other interval) samples U
c. Distribution samples obtained at several different
points in the sj^stem; usually grab samples obtained
without first flushing the line, although both kinds of
samples may at times be desirable U
Records
35. Availability
a. Assay results assembled and available for inspection
b. Notation made of those water supplies which did not
comply with one or more standards, and some sort
of follow-up program instigated
36. Number analyzed annually
a. private supplies
b. semi-public
c. municipal 46 supplies analyzed last year
(1) sources 128 wells (35 or 40 supplies)
(2) finished 12'from rivers, lakes or springs
(3) distribution 19
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37. Frequency
a. Physical characteristics measured at least once a week
and preferably every day at the treatment plant ......... X
b. Chemical characteristics determined at least once every
three years on ground water supplies and semi-annually
on surface water supplies unless previous data has indicated
a potential problem which needs to be monitored more frequently y
Laboratory
38. Physical facilities
a. Bench top area adequate ................... X
b. Sufficient cabinet space for chemicals and glassware ...... X
c. Adequate hood space ..................... _
d. Office space available for record keeping and
processing reports ..................... X
e. Space for storage and handling of bottles X
39. Glassware
a. Thoroughly washed with suitable detergent and warm water . . .
b. Rinsed immediately in clean tap water to remove detergent . . .
c. Final rinse with distilled water
d. Bichromate cleaning solution used for difficult to
clean glassware
e. Glassware used for pesticide analysis should receive a
final rinse with A. R. grade acetone or ethyl acetate
40. Organization
a. Total number of laboratories examining water
b. Water laboratory is a separate unit, and not part of a
food, drug, or toxicological laboratory
c. Each of the other regional laboratories have the same
capabilities
d. Radiation chemistry is a part of the water laboratory .
Quality Control
41. Laboratory water quality
a. Conductivity of water checked at regular intervals . .
b. Use of deionized water for metal analysis
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Laboratory Location Date
Public Health Laboratory Warm SPrin§S Road 1/26/72
Boise. Idaho .
42. Control Samples
a. A control sample of known composition (in addition to
any necessary standards) is analyzed every time one or
more unknown samples are analyzed -^-
b. A control sample is available and used for each
substance specified in the drinking water standards X
c. A control chart has been constructed for each substance,
and the precision of each determination has been
calculated X
43. Reference Samples
a. Accuracy and ability of laboratory to perform each
analysis checked by requiring them to analyze an
unknown reference sample(s) supplied by the surveying
office or laboratory at least once a year X
Staff
44. Personnel
a. Total number of staff 3 X
b. Number with degrees in chemistry i X
c. Does state operate under a merit system
d. Are job descriptions written
e. Does state encourage attendance at professional
meetings, short courses, etc
45. Salaries
a. Chief chemist $nj 972 _ ............. ... X
b. Assistant chemist $g_ 975 _ .............. X
c. Aids $5620 ................... X
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APPENDIX E
MANPOWER NEEDS AND COST ESTIMATES
FOR WATER SUPPLY ACTIVITIES
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MANPOWER NEEDS AND COST ESTIMATES FOR WATER SUPPLY ACTIVITIES
Engineering Surveillance
Environmental Protection Agency experience indicates that on
the average, at least four man-days per year are required to pro-
vide review of plans and specifications, meetings with governing
bodies, field surveys, report writing, review of operational and
water quality reports, and informal on-the-job training. Cross-
connection control activities are excluded from this estimate as
this activity is the responsibility of the purveyor. However,
it is estimated that surveillance for cross-connection control
in the smaller Idaho communities may be accomplished by the
regional engineer within the four day allocation. Average annual
estimated personnel cost for the above activities is $20,000l/.
This figure includes salary, fringe benefits, travel, office
supplies and space, and the cost of 1/3 secretary.
Assuming a man-year is equal to 225 man-days, one individual
can provide surveillance over (225 man-days per year/4 man-days
per system) = 56 systems/year. The average cost per system for
engineering surveillance is ($20,000/56) = $335 per year.
The known number of public water supplies in Idaho is
currently 274. Early indications from the water supply inventory
in progress is that this number will increase significantly.
]_/ All cost estimates and calculations are rounded to nearest
$1,000.
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However, for the purposes of these calculations a figure of 274
public water supplies was used. On this basis, the following
annual personnel requirements and cost estimates for engineering
surveillance are:
i
A. Personnel:
1. Professional:
(274 systems) X (4 man days/system) =1100 man-days
(1100 man days) / (225 man days/man year) =4.9
man-years
2. Clerical:
(4.9 man-years professional) X (1/3 clerical/pro-
fessional) = 1.6 man-years
B. Cost:
($355/system) X (274 systems) = $97,000
Training
Two types of training, State staff and waterworks operators,
are considered with the following assumptions. Each professional
should receive 5 days training per year at an estimated cost of
$100 per day to cover tuition, travel and per diem. On the basis
of each professional providing surveillance over 56 systems, the
cost of training State staff is ($500)/(56) = $9 per system.
Assume also that utilities or operators are responsible for
entry level training, that the State will adsorb the cost of short-
term training to update operator skills and knowledge of new
regulations, and that one operator per system receives on the
average one day of training per year. The cost to the State is
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estimated to be $60 per system per year with 0.5 man-year profes-
sional staff allocated to coordination of the training program.
The annual personnel requirements and cost estimates per
system for training are:
A. Personnel: 0.5 man-year professional staff
0.2 man-year support staff
B. Cost:
($9/system) + ($60/system) = $69/system
($69/system) X (274 systems) - $19,000
Standards Revision & Planning
Revision of existing standards and regulations, development of
new standards and policy, establishment of program plans, and coor-
dination of activities are essential to a well administered program.
Resource expenditures for these water supply activities are esti-
mated at 0.6 man-year professional staff, 0.2 man-year support
staff, and $12,000 annually.
Bacteriological Surveillance
Bacteriological analyses are considered an operational expense
of the utility. The State is responsible for performing a minimum
number of check sample analyses and for conducting periodic surveys
of laboratories. Assume the State will examine from each system
5% of the distribution system samples required by the drinking
water standards, or two samples, whichever is greater. On the
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basis of population served by the 274 public water supplies and
the minimum number of bacteriological samples required for each
supply, the estimated number of bacteriological samples to be
analyzed by the State laboratories in Idaho is 7000 per year.
Assuming a cost of $5 per bacteriological sample, including
postage, the estimated cost to the State for bacteriological
sampling is $35,000 per year.
An additional aspect of the program is laboratory surveillance.
It will be necessary to certify triennually all laboratories used
by the utilities for bacteriological analyses. Assume the need for
surveillance of five state laboratories and five utility or private
laboratories. Many of the medium size communities may elect to
reimburse the State for analyzing their samples in State labora-
tories. Environmental Protection Agency experience indicates the
cost of triennial surveillance of State bacteriological labora-
tories to be $130 per laboratory per year. Small laboratory costs
are estimated at $85 per year. The estimated cost for laboratory
certification is approximately $1000 per year.
Total State cost for bacteriological surveillance is estimated
to be $36,000 per year.
Chemical Surveillance
Chemical analyses for proper operational control as well as
special analyses for contaminants known to be present at levels
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205
approaching established drinking water limits should be performed
routinely by the utility. The State is responsible for sufficient
sampling to insure that water of satisfactory chemical quality is
delivered to customers of public water supply systems. Environ-
mental Protection Agency experience indicates the following lab--
oratory personnel requirements (man-days per sample) for various
analyses: wet chemistry parameters, 1.8; trace metals, 0.4;
pesticides, 0.8; organics, 0.6; radiochemical, 0.6. Estimated
personnel costs including salary, equipment, supplies and secre-
tarial support are $20,000 per man-year.
Of the 274 known public water supplies in Idaho, approximately
45 utilize surface or a combination of ground and surface water.
Assuming that each supply utilizing solely ground water requires
a wet chemistry, trace metals, and radiochemically analysis tri-
ennial ly and each supply utilizing surface water or combination
ground and surface water requires a complete chemical analysis
annually and radiochemical analysis triennally, the resource
requirements for an adequate chemical sampling program are:
A. Personnel:
1. Surface Supplies:
(45 surface supply samples) X (1.8+0.4+0.8+0.6+(0.6/3)
man-days per samples) = 171 man-days
2. Ground Supplies:
(229 ground supply samples) X 1/3(1.8+0.4+0.6 man-days
per samples) = 214 man-days
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3. Total Estimated man-years for chemical analyses:
(171 man-days + 214 man-days)/(225 man-days per
year) =1.7 man-years
B. Cost:
(1.7 man-years X ($20,000/man-year) = $34,000
It is anticipated in Idaho that in the foreseeable future
only the State laboratory will have the staff and equipment to
analyze wet chemistry, trace metals, pesticide, organic and
radiochemical samples. Occasionally a contract laboratory may be
called upon by a public water supply for chemical analyses. There
may be no more than 6 or 7 laboratories in the State and, there-
fore, the annual cost of chemical laboratory surveillance in Idaho
will be low. Based on Environmental Protection Agency experience,
the cost of certification of chemical laboratories is approximately
$390 every 3 years or $130 annually. The estimated cost of the
chemical laboratory evaluation and certification program will be
less than $1000 per year.
State cost for chemical surveillance is estimated to be
$35,000 per year.
Management and Overhead
Personnel costs and supervisor salaries are estimated to be
20% of the surveillance, training and program development costs.
This does not include costs for centralized services such as
accounting, purchasing, etc. The estimated annual management
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and overhead costs for Idaho's water supply program are:
20% (Engineering Surveillance + Training +
Standards Revision and Planning + Bacteriological
Surveillance + Chemical Surveillance)
20% ($97,000 + $19,000 + $36,000 + $35,000)
.20 ($199,000) - $40,000 per year
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