f/EPA
United States
Environmental Protection
Agency
Robert S. Kerr Environmental
Research Laboratory
Ada OK 74820
O'lV
'M
Research and Development
EPA-600/S2-82-074 Sept. 1982
Project Summary
A Case Study of the Muncie,
Indiana, Water Quality
Control Program
David W. Shultz
This report is a case study about the
establishment, administration, and
effectiveness of a water quality
control program currently being oper-
ated to serve the community of
Muncie, Indiana, population about
100,000. The study was conducted
by Southwest Research Institute of
San Antonio, Texas, during the period
March 1978 to January 1981.
The purpose of the study was to
gather and publish information that
could be used by other communities of
similar size in establishing and con-
ducting, or perhaps expanding, their
own water pollution control programs.
Implementation of this program has
greatly reduced the heavy-metal
concentrations in the sludge produced
by the treatment plant. Additionally.
revenues generated from an industrial
surcharge program averaged $45,849
per year over a six-year period.
Approximately one-third of the pro-
gram's budget is chargeable to its
industrial monitoring and surcharge
functions.
There are approximately 2500
communities nationwide with publicly-
owned treatment works that are
required to establish and maintain an
EPA-approved water pollution control
program similar to the one reported in
this case study. It is likely that details
of this report will benefit other
communities of similar size and
characteristics.
This Project Summary was devel-
oped by EPA's Robert S. Kerr Environ-
mental Research Laboratory, Ada,
OK, to announce key findings of the
research project that is fully docu-
mented in a separate report of the
same.title (see Project Report ordering
information at back).
Introduction
Organized to function as an integral,
though independent, component within
the framework of the Muncie Sanitary
District (MDS), the program heavily
emphasizes the total management of
local water resources. Within the
Muncie area, water resources are
comprised of the White River and its
eight tributary streams; city drainage
(runoff) and sewerage systems; a
publicly-owned treatment works; and
industrial discharges. Domestic and
industrial water supplies are processed
from a surface reservoir. Management
of these water resources rests with the
Muncie Division of Water Quality
(DWQ), whose basic responsibilities are
briefly listed as follows:
(1) Perform all laboratory testing for
the wastewater treatment plant.
(2) Monitor all industrial dischargers
who use the MSD sewerage
system and wastewater treat-
ment plant.
(3) Enforce all ordinances relating to
sewer use and pretreatment and
develop new ordinances as nec-
essary.
(4) Prepare spill control and counter-
measure capabilities to minimize
spill effects on the environment.
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(5) Conduct investigations of heavy-
metal concentrations in fish that
inhabit the local waterways.
(6) Perform bacteriological tests of
community-operated public swim-
ming areas.
(7) Perform any necessary scientific
research covering all aspects of
area water pollution.
(8) Conduct workshops as requested
for the benefit of other communi-
ties.
(9) Monitor all area waterways and
identify illegal dischargers.
Empowered by federal, state, and
local statutes, the DWQ was developed
in March of 1972. Significantly, it was
established as an organizational "equal"
to other departments within the Muncie
Sanitary District. As such, it is separately
managed and budgeted. Headed by an
appointed director, the DWQ reports
directly to the MSD Board of Commis-
sions, who are elected by public vote.
Figures 1 and 2 illustrate the MSD and
DWQ organizations.
Over a period of 7 years, the Muncie
DWQ has developed an approach to
monitoring industrial plants in the
interest of water quality control. Com-
prised of monitoring and field sampling
schedules, as well as laboratory analyses,
their program effectively serves the
following purposes:
(1) Determines compliance with estab-
lished standards and ordinances.
(2) Provides data for determining
appropriate user surcharge fees.
(3) Supports necessary enforcement
action.
(4) Provides a data base to justify
ordinance and procedural modifi-
cations.
(5) Provides data for required re-
porting to state and federal agen-
cies.
(6) Promotes cooperation from the
industrial sector.
(7) Provides unbiased samples and
maximizes flexibility of sampling
schedules.
(8) Minimizes costs of monitoring
activities.
DWQ Program Elements
Principal elements of the Muncie
Water Quality Control program are
listed and briefly described in the
following subparagraphs.
Industrial Discharge Control
The need for a formal industrial
wastewater discharge control program
was based on due consideration of five
factors:
(1) Size of the industrial sector and
the unknown quantity of their
wastewater discharges.
(2) Suspected high metal concentra-
tions in industrial discharges.
(3) National Pollutant Discharge
Elimination System (NPDES) per-
mit requirements.
(4) Need for equitable fee assess-
ment to non-domestic users of the
MSD system.
(5) Sensitivity of the receiving stream
to treatment plant effluent.
To accomplish the objectives of the
program created as a result of these
considerations, the first requirement
was to develop an industrial user data
base that would ensure credibility of the
program. The approach chosen for this
task was to collect and analyze samples
in the DWQ laboratory in order to
produce the most reliable and consis-
tent data. Following identification of
every known or suspected industrial
discharger into the MSD system, the
next step was to organize and imple-
ment preliminary inspections of each
facility. Several significant advantages
accrued to the DWQ as a result of the
on-site visits, and this approach is
recommended when the tota I number of
users can be visited on a personal basis
within a reasonable period of time.
Upon completion of the visitations
and evaluation of the data collected,
each plant was ranked, using specific
criteria, to determine the order in which
each would be subjected to a field
sampling program. Plants that were
known to discharge industrial wastes
were scheduled ahead of those only
suspected of discharging industrial and
domestic wastes. Subsequently, sam-
ples were collected for both organic and
Voters
of
City of Muncie
Figure 1. Organizational chart — Muncie sanitary district.
Industrial and Stream
Surveillance Section
Biological
Surveillance Section
Figure 2. Organizational chart — Division of Water Quality,
Muncie Sanitary District.
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metals analysis; all sampling and
analysis was performed by DWQ per-
sonnel. (The initial effluent quality data
base should always be established
using results of sampling and analysis
performed or controlled by the regulating
authority. Once established, it must be
continually maintained and upgraded
through the medium of an effective
monitoring program.)
Remaining components of the indus-
trial discharge control program include
an enforcement program that provides
procedures for dealing with pollution
violations; a clean-water council that
provides an effective communication
mechanism between the DEQ and the
industrial sector; and an industrial
surcharge program that effectively
administers equitable fee assessments
based on the amount of organic and
solids loading in excess of normal
domestic loadings. Figure 3 illustrates
annual revenues generated from the
surcharge program.
Water Quality Monitoring
The second major element of the
Muncie water quality control program is
the monitoring of surface waters
beyond the points of runoffs and treated
discharges. This practice is primarily
aimed at identifying sources and trends
or changes with time in order to
measure or assess effectiveness of the
overall program. Secondary uses of the
monitored data are listed as follows:
(1) To determine suitability of public
waters for recreational use and
the propagation of aquatic life.
(2) To determine adherence to, or
violation of, applicable state and
federal in-stream water quality
standards.
(3) To determine pollution patterns
downstream from pollution sources.
(4) To provide a source of field
samples for additional research
activities.
(5) To establish a baseline record of
water quality for use in various
studies.
Water samples are extracted at 66
fixed points along the White River and
its eight tributaries; each point strategi-
cally located at a bridge over the
waterway to avoid interference from
fluctuating water levels. Sampling
frequencies are balanced between the
desirability of a large data base and the
evaluative resources available (staff,
uipment, etc.). With the exception of
ssolved oxygen and temperature
ladings, which are recorded in the
field, all samples are subjected to
analysis in the laboratory.
Laboratory Testing
The Muncie program's laboratory
testing activity includes not only testing
of samples from the various monitoring
stations, but also daily testing of
influent, effluent, and sludge samples
from the MSD wastewater treatment
plant. Additionally, bacteriological
testing is performed on samples of
domestic potable water, as well as
samples taken from local swimming
areas. Certified by the State Board of
Health, the DWQ laboratory further
supports the community by providing
public service testing of water samples
in conjunction with the state and county
Boards of Health.
Lead
Metal Loading in Raw and Final Waste Stream
—•— Influent
—•—Effluent
75 76
Year
Metal Removal
Removal
fib/day)
Removal
73
180
ti, 90-
74 75 76 77
Year
Metal Loading in Sludge
78
79
72 73 74 75 76 77 78 79
Year
Figure 3. Metal loadings and metal removal at the MSD Wastewater
Treatment Plant.
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Special Studies
Other significant elements of the
Muncie program are categorized as
special studies: urban sewer monitor-
ing; parking lot runoff monitoring;
ongoing research studies regarding
crop uptake, fish and macroinverte-
brates, and priority pollutants; fish kill
investigations, and spill response
activities.
The urban sewer monitoring program
is aimed primarily at analyzing samples
taken from domestic sewage conduits to
determine the amount of heavy metals
generated by normal households in the
area. Justification for this non-indus-
trial sewer monitoring program seems
evident by the results shown in Table 1
— data which indicates that a signifi-
cant concentration of heavy metals
exists in domestic sewage. Similarly,
metals data is extracted from samples
taken at specific parking lot runoff
locations to assess the impact of urban
runoff on water quality in the White
River.
"^e special study on priority pollu-
t,nts was initiated in 1980 with the
following objectives:
(1) To determine the presence and
concentrations of priority pollu-
tants of various stages of the MSD
wastewater treatment system.
(2) To determine the contribution of
priority pollutants from major
industrial dischargers to the MSD
system.
(3) To assess the impact of the
treatment plant on concentration
levels of priority pollutants.
Laboratory analysis results of priority
pollutant heavy-metals concentrations
(samples taken at 16 representative
stations within the treatment plant) are
presented in Table 2. These results
indicate that metal concentrations
generally increased from the influent
through primary clarification and acti-
vated sludge aeration.
Ongoing research activities in support
of the crop uptake study are aimed at
determining any contamination effects
from applications of waste treatment
sludge to area soils. Likewise, extensive
research is being conducted with
periodic examinations of various aqua-
tic specimens from area waters. This
research provides invaluable data for
assessing water quality and the effec-
tiveness of water quality management
at the local level. Fish kill investigations
and spill response activities, including
cleanup, are limited to occurrences of
these events.
Program Benefits
Perhaps one of the singly most
beneficial results attributable to the
Muncie program has been the signifi-
cant reductions in heavy-metals con-
centrations that have eventuated in
wastewater treatment sludge. Land
areas appropriated for sludge disposal
can thus be substantially reduced,
making land application economically
feasible. Heavy-metals reductions have
also contributed to better quality of
water in area streams that receive the
discharges. Figure 3 graphically illus-
trates data recorded for tead loadings
and removals at the MSD wastewater
treatment plant during the 7-year period
1972 to 1979.
Other benefits can be itemized and
listed as follows:
(1) Overall improvement in quality of
all water resources.
(2) Community approach to manage-
ment and control of local water
resources as opposed to govern-
mental control and management
(3) Contributions to control of water-
borne diseases.
(4) Improvement of local swimming,
boating, and fishing areas.
(5) Effective communications and
cooperation between local inter-
ests and the industrial sector.
(6) Establishment of a sound data
base that contributes to wa rra nted
judgements and enhances future
aspects of program improvements.
Summary and
Recommendations
The Muncie Sanitary District (MSD),
Muncie, Indiana, initiated a total
program to control water pollution in
1972 by establishing a new Division of
Water Quality (DWQ). The DWQ provided
the MSD flexibility to monitor water
quality and establish standards, control
industrial dischargers, and enforce pre-
treatment regulations.
To establish an industrial discharge
control program, the DWQ personnel
visited each plant within its boundaries
to evaluate discharge characteristics
and spill potentials. This approach is
recommended for all communities of
similar size to Muncie.
Table 1. Summary of Parking Lot Runoff Data ffjg/l)
Station No. Value Cadmium Chromium Copper Iron
Manganese Nickel Lead
Zinc
K-Mart North
(Formerly Mason's
Dept. Store)
Meadow's
Shopping
Center
Muncie Mall
Tillotson
Ave. Bridge
Val Dept.
Store
Min
Max.
Ave
Min
Max
Ave
Min
Max
Ave
Min
Max
Ave
Min
Max
Ave
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Table 2. Priority Pollutant Heavy Metal Concentrations for Stations 1-16 (tig/1)
Station
No. Ag As Be
1 .0119 .0016 <0001
2 .0550 .026 .0018
4 .0368 .028 .0011
3 .7275 .188 .0473
5 .690 .866 .0378
6 .0931 .051 .0026
7 .0260 .2210 .0077
8 .222 .608 .0250
11 .0439 .443 .0145
9 .0002 .0007 <0001
10 .0002 .0010 <0001
12 .0004 .0010 <0001
13 .0003 .0011 <0001
15 .0022 .0013 <0001
16 .429 1.29 .0436
The industrial surcharge program
revenues from 1973 through 1979
totaled $327,942. Average revenue per
year was $46,849. Approximately one-
third of the DWQ budget, or $95,243, is
chargeable to the industrial monitoring
and surcharge program. This cost
amounts to 87 cents per person served
by the MSD.
Implementation of the MSD industrial
discharge control and pretreatment
program has reduced the heavy-metals
concentrations in the sludge produced
by the treatment plant. Present concen-
trations of chromium, copper, nickel,
zinc, and lead are below reported mean
values for typical municipal sludges
reported by EPA. These reductions
mean that Muncie will require less land
area to dispose of sludge by land
application. For example, in 1974, the
MSD treatment plant was producing
sludge containing 142 pounds per day
of lead, or approximately 26 tons per
year In 1978, lead concentrations
decreased to 4 pounds per day or .73
tons per year. Using proposed EPA land
application criteria, land requirements
would have decreased from 52 acres to
1.5 acres. The decreases in metal
concentrations in the MSD sludge since
initiation of the industrial monitoring
and control program have decreased the
ultimate amount of land needed for land
application (based on metal loadings).
possibly making land application an
economically feasible option for the
MSD to continue into the future.
The full report was submitted in
fulfillment of Grant Agreement No.
R805529-01 by Southwest Research
Institute on behalf of the Division of
Water Quality, Muncie Sanitary District,
under partial sponsorship of the U.S.
Environmental Protection Agency.
Cd
.0004
.0052
.0038
.1669
.1563
.0082
.0733
.0897
.0540
<0001
<0002
.0001
.0001
.0001
.1963
Cr Cu Hg Ni
.0298 .062 <0003 .0134
.505 .680 <0003 .1682
.335 .450 .0023 .0952
9.03 20.6 .0066 4.50
7.73 17.0 .0053 5.04
.760 1.08 <0008 .2523
1.76 3.21 .0014 .6141
5.19 11.7 .0038 2.46
3.110 6.39 .0023 1.798
.0167 .0017 <0003 .0192
.0006 .0006 <0003 .0090
.0030 .0028 <0003 .0119
.0023 .0037 <0003 .0091
.0069 .016 <.0003 .0127
10.4 28.7 .0034 4.04
Pb
.427
.759
.430
31.0
14.5
1.08
2.95
8.38
5.06
.002
.001
.003
.003
.013
19.0
David W. Shultz is with the Southwest Research Institute.
Sb
<0085
<0085
<0085
.0288
.0238
<0085
<0087
.0151
•CO/62
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Environmental Protection
Agency
Center for Environmental Research
Information
Cincinnati OH 45268
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Fees Paid
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