TD778
.S47
1986
xvEPA
United States
Environmental Protection
Agency
Office of
Ground-Water Protection
Washington, DC 20460
                                    July 1986
            Water
Septic Systems and
Ground-Water Protection
An Executive's Guide
            OOOR86102

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SEPTIC SYSTEMS AND GROUND^^TER RIOTECTION
               AN EXECUTIVE'S GUIDE
         U.S. Environmental Protection Agency
          Office of Ground-Water Protection

                 Washington, D.C.
                    July 1986
             IT " V.itH

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                         ACKNOWLEDGEMENTS
This document was prepared for the U.S. Environmental Protection Agency Office  of
Ground-Water Protection (OGWP) by ICF Incorporated. Mr. Lee Braem of OGWP served
as the  Task Manager for this project.  Ms. Marian Mlay, Director of OGWP, provided
additional guidance.
The approaches  and recommendations described  in this document reflect the views of a
Technical Panel on Septic System Management that was organized under the auspices of the
Office of Ground-Water Protection.  The views of the Technical Panel do not necessarily
represent EPA policy.  The Technical Panel included the following members:
     William Boyle
     Jerry Canfield
     Frank Gargiulo
     Carol Kocheisen
     Jim Kreissl
     Nancy Kuhn
     Terry Langan
     Jay Lehr
     Ted Loudon
     Ken Lustig
     Michael Luzier
     Randy May

     Joseph McDade
     Carl Myers
     Elissa Parker
     Marie Perez
     David Rickert
     Frank Sagona
     Dick  Scalf

     Velma Smith
     Mark Sobsey
     Edith Tanenbaum
     Bill Tenison
     Mike Thomas
     Carol Wood
     Lloyd Woosley
     Marylynn Yates
University of Wisconsin - Madison
Minnesota Pollution Control Agency
Palm Beach County Health Department
National League of Cities
EPA Municipal Engineering Research Laboratory
Garden Club of America
Indian Health Service
National Water Well Association
Michigan State University
Idaho Panhandle Health District
National Association of Home Builders
Connecticut Department
of Environmental Protection
Dow Chemical
EPA Office of Water Regulations and  Standards
Environmental Law Institute
EPA Office of Municipal Pollution Control
U.S. Geological Survey
Tennessee Valley Authority
EPA Office of Research and
Development, Kerr Lab
Environmental Policy Institute
University of North Carolina - Chapel Hill
Long Island Regional Planning Board
National Association of Home Builders
EPA Office of Toxic Substances
EPA Region I, OGWP
EPA Region IV, OGWP
EPA Office of Research and
Development, Kerr Lab
The ICF Incorporated staff who were principally involved in drafting this document included:
Paul Bailey, Jan Edwards, and Bill Ward

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             SEPTIC SYSTEMS AND GROUND^'VATER RIOTECTION
                                 AN EXECUTIVE'S GUIDE
The  U.S.  Environmental Protection  Agency has
prepared this document to assist mayors, commis-
sioners, state program executives and other state
and local government officials in improving exist-
ing regulations and codes for septic systems to
provide better  protection of the nation's ground
water.   This document  draws heavily from the
judgments of a panel of nationally recognized ex-
perts, state government officials, and special inter-
est representatives.  The panel identified the prin-
cipal reasons why  many existing  septic system
management programs have  not been  effective
and made recommendations for improvements.

This Executive's Guide briefly  summarizes  the
need for action and discusses important ideas for
making improvements  in septic system manage-
ment programs.  We recommend several critical
activities including:


 * Requiring site evaluations before de-
    signing or  approving individual septic
    systems;


 * Making regulations more comprehen-
    sive to accommodate the wide range of
    conditions under which septic systems
    are installed;

 + Encouraging the use of alternative sep-
    tic system  designs in situations where
    conventional systems are inappropriate;


 * Developing public education programs
    to  help property owners take an active
    pan in septic system management;


 * Promoting water conservation to im-
    prove septic  system performance;


 + Adopting provisions to ensure proper
    septic system operation and mainte-
    nance;
  •  Controlling septage disposal;


  *  Controlling the use of septic tank
     cleaning solutions;


  •  Managing commercial and industrial
     users of septic systems; and


  *  Implementing strong enforcement pro-
     grams to ensure that management pro-
     grams are working.


The EPA also has produced a companion volume
to this document entitled, "Septic Systems and
Ground-Water Protection:  A Program Manager's
Guide and Reference Book."  This second volume
is designed for program managers and other pro-
fessional  staff who develop or  implement septic
system management programs. It provides a more
in-depth  discussion of the topics  raised in this
overview.


If you would like to take positive steps toward pre-
venting ground-water contamination from septic
tanks in your community and addressing a serious
threat to  public health,   "Septic  Systems  and
Ground-Water Protection:  A Program Manager's
Guide" will be of interest to you. The "Decision-
Maker's Guide and Reference  Book"  describes
many examples of existing state and local pro-
grams and provides valuable information concern-
ing  the administrative  and economic aspects of
improved  septic system management, as well as
plenty of advice on where to find even more infor-
mation.   Copies  are available from the  Govern-
ment Printing Office.  To obtain  a copy of the
"Program  Manager's Guide" on septic  systems,
request GPO Document No. 055-000-00257-6.
To  obtain additional copies of this "Executive's
Guide",   request    GPO   Document    No.
055-000-00256-8.
                                           Page 1

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    THE   NEED FOR  ACTION
Septic systems provide a good method for on-site
waste disposal.  But they can constitute a serious
threat to ground water that serves  as a  drinking
water source in  many parts of the United States.
The 1980 Census estimated that there are about
22  million  septic systems  operating in the U.S.,
serving nearly one-third of the nation's popula-
tion.  Together, they  discharge about one trillion
gallons of  wastewater to  our  soils  and ground
water every year, a sobering thought given that
over 50 percent of  all drinking water used  in the
U.S. is ground water.1
Ground-water  contamination  by  septic
systems has been responsible for disease
outbreaks and chemical contamination of
drinking water.

Despite efforts to regulate their placement  and
use, septic systems represent the largest reported
cause of ground-water contamination resulting in
disease outbreaks in the U.S.   Bacteria and vi-
ruses found in household wastewater are the prin-
cipal identified  causes  of  water-related  disease
outbreaks.2

The literature contains many reports  of  disease
outbreaks attributable to ground water contami-
nated by septic system effluent and the pathogenic
organisms it carries. The Center for Disease Con-
trol  has estimated that between 1946  and 1980,
the majority of all illnesses attributable to  ground
water were caused by microorganisms.3 Effluent
from septic systems is the  most  frequently cited
source  of ground-water contamination leading to
outbreaks of diseases such as acute  gastrointesti-
nal illness, hepatitis A, and typhoid.
Infectious diseases are not the only concern.  The
improper use of septic systems has been shown to
contribute to the contamination of ground water
by toxic chemicals.   For  example, commercially
used  septic systems  have been  identified  as a
source of  chemical contamination at several Su-
perfund sites that are among the  nation's highest
clean-up priorities.  Serious legal and financial re-
sponsibilities have accompanied these incidents of
ground-water contamination.


Chemicals  that  may  enter  and  contaminate
ground  water through septic systems include ni-
trates, heavy metals  (such  as lead,  copper, or
zinc),  and  certain synthetic  organic chemicals
(such as toluene,  trichloroethylene, chloroform,
1,1,1-trichloroethane, and  tetrachloroethylene).
Nitrate (a  form of nitrogen)  is readily transported
in ground  water.  High levels of nitrate can cause
Experts estimate that approximately one-half
million new septic systems are installed in the
U.S.  every year.
methemoglobinemia    (the    "blue-baby   syn-
drome"),  a life-threatening condition in infants.
Heavy metals  or  toxic  organic  chemicals may
originate from small commercial establishments
(for example, printers, photographic studios, dry
cleaners,  and  small commercial or  educational
laboratories).  Some household products are also
toxic.  Finally, organic chemicals, such as chloro-
form and trichloroethylene, are typically found in
septic  tank cleaning products.   Some of these
chemicals are suspected of causing cancer, and
they generally are ineffective as septic tank clean-
ers.
                                                   1 Bitton,  G.  and C.P. Gerba, eds.  1984.  Groundwater
                                                   Pollution Microbiology. John Wiley & Sons, New York.

                                                   2 Yates, M.V.  1985. Septic tank  density and ground-
                                                   water contamination.  Ground Water. 23:586-591.

                                                   3 Lippy, B.C. and S.C. Waltrip.  1984.  Waterborne dis-
                                                   ease outbreaks 1946-1980: a thirty-five year perspective.
                                                   J. Amer. Water Works Assoc. 76:60-67.
                                              Page 2

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 As a threat to human health, septic system failures
 should not be taken lightly. A severe failure is all
 too evident,  usually involving surfacing of waste:
 wastewater floods a yard or sewage backs up into
 a home. If this occurs, people may be exposed to
 pathogenic bacteria and viruses.  Serious health
Owners are  ultimately responsible for  their
systems and for any  damage  a poorly func-
tioning system might cause.
 areas where public  sewer and  wastewater  treat-
 ment systems are not economically feasible.  Ex-
 perts estimate that approximately one-half million
 new septic systems are installed  in the U.S.  every
 year.4  Generally, these systems  consist of a septic
 tank and soil absorption drain field (shown in Ex-
 hibit 1). In the tank, physical processes separate
 the sludge, scum, and wastewater. The wastewater
 flows out through pipes into the drain field.  In
 and under the  drain  field,  the  wastewater  is
 treated  as  it percolates through the soil.  Ulti-
 mately,  some of the effluent enters the ground
 water.
hazards may result.  (In fact, this was one impor-
tant reason for putting septic systems underground
in the first place.)  Ground-water contamination,
caused by other  types of system failures,  is less
obvious and can go on for years without being rec-
ognized, while residents with  nearby wells un-
knowingly drink contaminated water.

To complicate the problem, many homeowners
know little  about how to operate  and maintain
their septic systems.  In spite of this  lack of aware-
ness,  owners are ultimately responsible for their
systems and for any damage a poorly functioning
system might cause.  If a septic system fails to op-
erate effectively, the owner must accept responsi-
bility — which might involve making necessary re-
pairs and compensating injured parties.


This document will tell you about  this important
potential source of pollution in your community,
which, without proper management, will cause (or
may  already  have caused)  property damage,
ground-water  pollution,  and serious health  haz-
ards.

In the proper  environment and with proper,  rou-
tine maintenance, septic systems are an excellent
waste management alternative, especially in rural
Septic systems will operate effectively if, and only
if, they are designed properly, situated  in areas
that allow  proper operation, used  only  for pur-
poses for which they were designed, and given pe-
riodic maintenance.  To make sure that the right
septic system is installed, certain  questions about
the characteristics of  the property and its owner
must be answered:  How large is the lot?  Is the
soil sandy,  full of clay, or too rocky?  Does the lot
slope? How much rain  falls each year? What  is
the depth to ground water?  Will the system serve
a home or  business?  If the system is for  a home,
how many  people will live in the house?  If the
Septic systems are an  effective means of do-
mestic  waste  management,  when  properly
sited, designed, installed, and maintained.
system is for a business, how many people will be
served weekly or daily? What type of business will
be conducted?  Will the  waste have special char-
acteristics? The answers  to these and many other
questions  determine the  appropriate design char-
acteristics, installation techniques, and mainte-
nance practices for the septic system.
                                                   4 Scalf, M.R., W.J. Dunlap,  and J.F.  Kreissl.   1977.
                                                   Environmental  Effects of Septic Tank systems.   U.S.
                                                   EPA-600/3-77-096.
                                              Page 3

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                                          EXHIBIT 1
                             A  TYPICAL  SEPTIC  SYSTEM
                             .:::s*Dtic Tank::::::::::::.•:.Drain Fi«id
                 ::::::Solid wastes
                 '.:'. Settled on Bottom


                                                                                     Water Tatte
There are a few rules of thumb that tell us gener-
ally when septic  systems are most likely to func-
tion  properly  and minimize  ground-water  con-
tamination.


  •  Good soil makes a good system.  If
     the soil is appropriate, it should facili-
     tate treatment and disposal of septic
     system wastewater; for example, soils
     made of a combination of sand, silt,
     and clay work well.  On the other
     hand if too  much clay is in the soil,
     the waste may not percolate through; if
     the soil contains too much sand and
     large particles, wastewater may pass
     through to the ground water untreated.
Waste treatment in the soil occurs
more readily above the water table
where the soil  is relatively dry and
contains plenty of oxygen. The
greater the depth to water, the longer
the wastewater remains in the  unsatu-
rated soil  where it can be treated most
effectively.


Sep.tic systems  need enough  space to
do their job well.  Not all microor-
ganisms and chemicals are removed
from wastewater as it travels through
the soil.  Even  a properly operating
system will discharge nutrients  (phos-
phates and nitrates) and some bacteria
                                             Page 4

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     or viruses to the ground water.  To
     avoid heavy loading of ground water
     with septic system effluent, systems
     should be installed on lots that provide
     enough space.  The proper amount of
     space varies for individual lots, and
     many factors  need to be considered.


     Proper design and use  mean every-
     thing.  Each  septic system is designed
     to treat and dispose of a specific vol-
     ume and type of wastewater in the
     conditions found at the site.   The sys-
     tem must not be overloaded by dispos-
     ing of a greater volume or different
     type of wastewater than the septic sys-
     tem was designed to handle.   Hazard-
     ous chemicals or grease should not be
     disposed in septic systems. Water con-
     servation will  help prevent overloading
     and extend the life  of the system.
Improved regulation of septic system sit-
ing,  design,  installation,  operation, and
maintenance are needed to  protect our
ground-water resources.
Experience has taught us that the old, traditional
ways of managing septic systems can be improved.
Our health and the integrity of our drinking water
are at stake.
Sanitary codes are designed  to  protect human
health and the environment. All codes share this
same common purpose.  But what sort of code will
work best? Most state and local health and envi-
ronmental officials used to rely on  codes that liter-
ally forced everyone in a given community to have
the  same  type  of conventional  septic  system,
which was installed  and  operated  according  to
simple, uniformly applied  guidelines.
  •  Routine maintenance is critical to
     preventing system failures.  Septic
     tanks must be pumped regularly.  Over
     time, sludge and scum accumulate in
     the tank and, if allowed to  remain for
     too long,  will eventually cause the tank
     to overflow and clog the soil absorp-
     tion system.


Of course, following these rules is no simple task.
Following one  or two or even all of them all of the
time is no guarantee that all septic systems in a
community will never fail.  In fact, there are no
guarantees  for a single system or for an entire
community.  Good judgment in planning and de-
sign  and diligent maintenance, therefore, are the
most important aspects of an effective septic sys-
tem  management program.


Enforcement of local ordinances that regulate sep-
tic system installation and operation cannot pre-
vent all septic  system failures.  But  adopting  a
strong and comprehensive code and diligently en-
forcing that code can drastically reduce the possi-
bility of serious property damage, health hazards,
or drinking water contamination.
Local government  officials cannot by them-
selves solve  the problem of inadequate septic
systems.  They must act together with devel-
opers, public  health  officials,  and land use
planners.
Unfortunately, in many instances, such uniformity
was not the answer. Many communities, realizing
that the site conditions and waste management re-
quirements on  a farm are quite  different from
those of other septic system users (such as, for ex-
ample,  a dry-cleaning establishment) are taking
an enlightened  approach  to septic system regula-
tion — by adopting more comprehensive sanitary
codes, which, while maintaining certain minimum
standards, allow local officials to adapt the design,
location, and/or operation of waste disposal sys-
tems  to account for site-specific environmental
conditions.
                                             Page 5

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In addition to adopting strict, uniform sanitary
codes, many governments have tried to reduce the
likelihood  of  septic system failure  by instituting
zoning restrictions  and land use controls.  The
most frequently used zoning control establishes a
minimum lot size for residences.  Observing the
rule of allotting plenty of space for individual sep-
tic systems, several states require that all homes
using such systems  have at least a  half-acre lot.
Other  areas have  imposed larger  minimum  lot
sizes, sometimes up to five acres, depending  on
local characteristics.   Requiring a  minimum  lot
size reduces the density of septic systems in  an
area.   By restricting the number of systems in a
given area, the community is able to limit the total
quantity  of effluent entering the ground water.
But these kinds of "blanket" land use controls do
not confront the most common causes of  poor
septic system performance: poor design, inappro-
priate  location, and neglect.  So zoning  restric-
tions alone will not solve the problem.


Designing an effective  septic system management
program  requires making some difficult decisions.
The special problems posed by septic systems that
serve  commercial businesses, industrial facilities,
and multiple family dwellings must be examined.
All of these considerations can have  long-term
implications for zoning and community develop-
ment.
        WHAT CAN BE  DONE ?
Local government officials cannot by themselves
solve the  problem of inadequate septic systems.
They  must act together with  developers, public
health officials, and land use planners.  Govern-
ment  officials must recognize that,  in some situ-
ations, conventional septic systems simply cannot
be  effective  and alternative waste management
techniques will be necessary.  Codes must there-
fore be amended to allow individuals or communi-
ties to find and implement innovative solutions in
situations  where  the  use  of conventional  septic
systems is  likely  to result in ground-water con-
tamination.


Local officials also must recognize that septic sys-
tem management  cannot  rely  exclusively on
"command  and control"  regulations.  If local
problems with septic systems arise out of a lack of
proper operation and maintenance or simple ne-
glect, sanitary codes may do little to change this
behavior.  Accordingly, other management alter-
natives, such as public education or training, must
supplement a regulatory program.


Defining the role that septic systems  play in com-
munity  waste  management is an important  first
step in  managing septic systems.  Septic systems
are not the only potential source of ground-water
contamination in a community.  Thus,  any revi-
sions to zoning ordinances  or  sanitary  codes
should be developed as part of a comprehensive
planning process that  examines  all  potential
sources of ground-water pollution and sets goals
for ground-water protection.
Local  governments  should base  individ-
ual septic system designs and installation
procedures on site-specific information.

Knowing where to install a septic system and what
kind of system will  work best requires familiarity
with the types of waste that will be disposed and
the features of the site — both above and below
the ground. Newer sanitary codes require the use
of information  drawn from hydrogeologic evalu-
ations.   This information,  taken  from existing
documents and collected by field measurements,
helps  system designers  and installers  determine
whether conditions at the site  are favorable for a
septic system.  The hydrogeologic evaluation iden-
tifies the site's strengths and weaknesses with re-
spect to septic systems.  It can allow an engineer
to identify ideal sites and sites where septic sys-
tems are not likely to work at all.

Hydrogeologic evaluations are conducted in two
general steps.  First, regional information,  such as
soil characteristics and climate conditions, is col-
lected to  find the  type  of system  that would be
most appropriate for the  area.  Second, site-spe-
cific field measurements are  made to  determine
the best system design and installation configura-
tion for an individual site.  This approach allows
local officials to gather the site-specific informa-
tion that is needed in an area to ensure that septic
systems will be designed and installed  properly.
Gathering and using this information substantially
improves the effectiveness  of septic system man-
agement programs.
                                             Page 6

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 Sanitary  codes should  allow regulators,
 engineers,  and contractors to  work  to-
 gether  to ensure  that septic  system  de-
 signs take advantage of recent experience
 and  learn from past mistakes.

 As we said earlier, the old approaches to manag-
 ing septic systems work only under a limited set of
 ideal  circumstances.  They give the impression of
 being protective, but in  reality,  can allow  septic
 systems to be installed in situations where they are
 doomed to fail because the  soil is inappropriate,
 or the water table is  too high, or some other rea-
 son.  Many communities are finding that adopting
 more  comprehensive approaches to managing sep-
 tic systems assures that good judgment is  used as
 each system is designed and installed.
Rather than, or in addition to, dictating any
one acceptable  design,  construction materi-
als, and  location  specifications,  new  codes
may state general performance standards for
septic systems or make provisions for  vari-
ances to rigid standards on the basis of site
characteristics.
needs of a vacation home.  They may account for
unique lot characteristics such as the presence of a
small creek or pond, or for modifications needed
to accommodate a large  swimming pool  or  out
buildings. The design is then reviewed by one or
more regulatory officials to assure that it meets
regulatory requirements.  In summary, if the land
is to be developed, a more comprehensive  ap-
proach  to septic  system management allows  the
property owner to install the kind of system that
will perform most effectively in the environment
in which it will be situated.


A community's ability to implement a more com-
prehensive septic system control program depends
on available resources.  Very comprehensive pro-
grams can require considerable resources.  It's not
necessary, however, to anticipate  and  establish
specifications for all possible situations; substantial
improvements  can  be achieved  with  relatively
small changes to a management approach.  Many
variations on comprehensive programs are possi-
ble, ranging from those that specify general princi-
ples and leave nearly all decisions to case-specific
evaluations to  others that provide  individuals or
officials with specific well-defined  options. The
"Program Manager's Guide" provides some ex-
amples of programs that cover the range  of possi-
bilities and will help you select one that is practical
for your community.
More comprehensive codes allow for variations in
septic system designs (we discuss this in more de-
tail later).  They also allow for variations in septic
system placement relative to other septic systems,
drinking water wells,  lakes and streams, and  to
the ground water.  Rather than, or in addition to,
dictating any one acceptable design, construction
materials, and location specifications,  new codes
may state general performance standards for sep-
tic  systems or make provisions for variances  to
rigid standards on the basis of site characteristics.


Under this new approach, the actual specifications
for each system are proposed by  the  system de-
signer (working together with a regulatory official)
in order to meet performance standards, take ad-
vantage of favorable site characteristics, and ac-
count for the limitations of the site.   For exam-
ple,designs can be tailored to meet the high-vol-
ume needs of a commercial septic  system for a
restaurant or retail store,  or to meet  the special
Recent  advances in septic system  tech-
nologies provide good alternatives for dif-
ficult environments where conventional
systems  are inappropriate.

The past decade has seen the emergence of sev-
eral  new,  nonconventional waste  management
technologies.  Often referred to  as innovative and
alternative (I&A) technologies,  these include the
following:


  * Mound or Fill Systems — These sys-
    tems use sand or other fill  material to
    create an elevated drain field when the
    original soil at the site  is inadequate.
    These systems are common in certain
    parts of the country.


  • Buried and Recirculating  Sand Fil-
    ters — A sand filter consists of several
    layers of sand sunk in  the ground.
    The wastewater flows evenly over the
                                             Page 7

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     filter, is purified by the bacteria pre-
     sent, and then is discharged.


  +  Evapotranspiration Systems —This
     system takes advantage of evaporation
     by planting carefully selected vegeta-
     tion over the soil absorption field.
     The plants use water and nutrients, as
     needed, and release excess water to
     the air as vapor.  These systems are
     generally used only in  dry climates.


  *  Pressure Distribution Systems —
     These systems provide uniform distri-
     bution of effluent over the drain field
     to prevent system failure.


Reliance on conventional methods may appear to
be  the safest bet but  is not without  its  conse-
quences.   Communities that opt  for convention
over technological advancement may  experience
unanticipated sanitation problems when, for  ex-
ample, the conventional system that was installed
despite inappropriate soil conditions fails to oper-
ate effectively, causing health hazards, property
damage, and ground-water contamination.


It may be in many communities' best interests to
consider alternative technologies.  Yet, it  is pre-
cisely  because these  new technologies have  not
been fully tested under a wide range of environ-
mental conditions that the  choice must be made
with care  and by trained personnel.


Several  states,   including  Washington,   Idaho,
Maine, Connecticut, and Minnesota have adopted
codes  that permit the use of alternative systems.
Their  code provisions  can serve  as models  for
other  states.  Typically, these codes  allow  the
property owner or builder to file a permit applica-
tion providing specific details for  the proposed
system. The codes generally require that the  de-
signer  of the system be a licensed professional  en-
gineer  or professional sanitarian. Washington and
Idaho  have created special panels of technical  ex-
perts to review these applications.  The panels as-
sess the suitability of the requests and assign spe-
cific design and operation  requirements.   The
cades also require frequent and intensive monitor-
ing  and inspection programs. Site evaluations and
construction inspections are also mandatory.  Ex-
tra  fees may be assessed to the property owner to
cover  the extra monitoring costs.   In addition,
Maine  and Idaho  require  that the applications
demonstrate that enough space is available on the
lot to build a new septic system should the alterna-
tive system fail.  Further details of the Washing-
ton,  Idaho, Maine,  Connecticut,  and Minnesota
codes are provided  in the "Program Manager's
Guide."


Another equally  effective tactic is to allow com-
munity-wide  pre-approval of specific alternative
technologies.  For example, communities located
in regions where soils are known to be inadequate
for waste disposal might adopt codes that encour-
age the use of mound or pressure distribution sys-
tems  meeting certain specifications as alternatives
to conventional systems.  This approach still en-
tails system approval and construction inspections
but can eliminate the need to obtain special vari-
ances and undergo costly and discouraging admin-
istrative procedures to gain approval for an alter-
native system.


Whether evaluations are case-specific or apply to
entire communities,  the overriding concern  must
be to establish that the alternative technology has
been  tested and proven effective under conditions
substantially similar to those occurring in the com-
munity.  On-site disposal systems cannot  elimi-
nate  all contaminants  from the wastewater.   But
the contaminants that remain  in the effluent must
be at a low enough concentration  to pose little or
no risk to human health or the environment.  In
making the decision as to which system will be the
most  effective in  reducing contaminant levels, the
following must be considered:

  * The type of waste;

  •* The volume of waste flow;

  * The pattern of flow; and

  * Soil properties.

Finally, it is sound policy to require that all alter-
native systems  be designed by a licensed profes-
sional engineer or professional sanitarian and in-
stalled by a certified contractor.


Information on developing and testing alternative
technologies is available in the trade literature.
Manufacturers  and vendors are normally able to
supply quantitative  performance  data.    Depart-
ment  of Agriculture  Extension Services and  state
universities can also  provide information on test-
ing and application of new technologies.
                                              Page 8

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 Local  governments should institute pub-
 lic  education  programs  to  encourage
 property owners  and contractors  to  ac-
 tively  participate  in efforts  to  improve
 community waste management.

 Education and outreach  programs should be es-
 tablished  for septic system owners (homeowners,
 businessmen, industry  representatives), builders,
 buyers,  system installation contractors, inspectors,
 and enforcement personnel.  Local officials  and
 residents  need to  understand enough about  on-
 site wastewater management so that they  can as-
 sess their own problems and needs.   With  this
 awareness, responsible citizens can work together
 with local authorities and septic system profession-
 als to reduce the risk of contamination from mal-
 functioning septic systems.
 An informed public can be a powerful tool for as-
 suring that septic  system  management programs
 work.   By educating septic system owners,  local
 officials can give them the means to contribute to
 environmental protection and resource conserva-
 tion.  A system owner can be a 24-hour monitor
 when he or she  knows the rules of proper septic
 system  operation and maintenance and  how to
 look for the early warning signs of system failure.


 Educated  consumers are better equipped to evalu-
 ate the work of septic tank pumpers and installers.
 A good code alone cannot make a good program.
 Good programs rely on good people. In short, the
 amount of money and effort spent on public edu-
 cation and outreach is well worth the result: prop-
 erly functioning, effective septic  systems and a
 safer environment.
Public education efforts can take a number of dif-
ferent forms,  ranging  from distributing  printed
handouts  to  conducting  training programs,  and
should, if possible, be tailored to the needs of the
audience.  In Idaho, for example, where a suc-
cessful public education and public relations pro-
gram has been implemented, health officials show
slides and talk to small groups, such as civic clubs,
schools, and  professional and environmental or-
ganizations.  While the same basic key points are
presented to all groups,  the talks are geared to the
special interests of each audience.  For example,
building associations  and industry representatives
are usually most interested in how the septic  sys-
tem program will affect their industries;  schools
and environmental groups want  to know how the
environment will be affected. Idaho officials have
also used television and radio spots on public  sta-
tions to reach a wider audience.


The State of Minnesota offers a training program
for those  having an  interest in  the technical as-
pects of septic systems.  The program is presented
in conjunction with the University of Minnesota
and has a modest enrollment fee. So far, the pro-
gram has been popular.  Its success has spawned
the development of a second course in which par-
ticipants perform a site  evaluation in the field.


Printed brochures can be used to disseminate ba-
sic  but essential information to system owners.
Many are currently  available from  a  variety of
sources.  Information about  how to  obtain these
materials  is presented in the "Program Manager's
Guide".
An informed public can be a powerful tool for
assuring that septic system management pro-
grams work.
Local governments should promote water
conservation and waste  reduction prac-
tices to extend septic system life and im-
prove  performance   by  reducing daily
loading.

Conserving water use in the home or business is a
good way for property owners to improve the per-
formance  of their septic  systems.   Reducing the
volume of wastewater handled by a septic system
offers multiple benefits,  including extending the
life of septic systems, saving money, and protect-
ing ground-water resources from contamination
and depletion.

Reducing the flow of wastewater to the septic tank
involves simply cutting back on  water use.  Low
water-use toilets, reduced-flow showerheads and
faucets, and washing machines with  adjustable cy-
cles are all examples of water-saving  appliances
that can be used in the home or in  a commercial
business.  Systems that recycle or reuse household
wastewater provide even greater opportunities for
conservation.  Wastewater recycle-reuse systems
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use bath or laundry water for non-potable uses,
such as toilet flushing and lawn sprinkling, and re-
duce the amount of water that goes to the septic
tank.
In addition to water conservation, waste load re-
duction will also improve  septic  system perform-
ance.  Reducing waste load involves cutting back
on the waste constituents  that go into the septic
tank.  Some  techniques include:  eliminating the
use of garbage disposals (these wastes can be ef-
fectively disposed of in the garbage can), eliminat-
ing the use of detergents with  phosphorus and
other filler solids, and installing  "suds-savers" in
laundry machines.


By encouraging water conservation and waste load
reduction,  a community  can  involve property
owners in septic system management.  A height-
ened awareness  of  the problems associated  with
septic systems can  help dispel the  out-of-sight,
out-of-mind  mentality that  contributes  to poor
septic system operation and maintenance.
Ensuring regular  septic system  mainte-
nance  is a  critical aspect of an effective
management program.

To avoid the unpleasant and possibly hazardous
consequences of neglect, septic tanks should be
inspected and pumped at regular intervals.   Sys-
tem owners need to be made aware of the respon-
sibilities that go along with  using a septic system
and must be reminded that there is no short cut to
proper tank maintenance.  The addition of com-
mercially available solvents  or other chemicals to
dissolve scum  layers  will not eliminate  the need
for regular tank pumping. Regular inspection and
pumping are necessary, whether tank additives are
used  or not.   Moreover,  concerns have been
raised about the potential of additives to contami-
nate ground water (we discuss this later in more
detail).


A septic tank servicing  company  measures the
scum and sludge  layers  in  the tank, and pumps
the tank if the level is too deep. Most tanks re-
quire pumping every  three  to  five years.  Most
states require that septic maintenance firms be li-
censed  in  order  to  pro1 'de some  assurance to
property owners that  their tanks will be well-serv-
iced and their wastes  will be handled properly and
disposed of at approved sites.
Some states and local governments have gone be-
yond licensing tank maintenance firms to provide
still  more  assurance  that  systems  are properly
maintained.  In some localities,  property owners
are prevented by law from using their septic sys-
tem  unless they have a permit, revalidated each
year, certifying that a licensed septic maintenance
firm has inspected and, if necessary, pumped their
septic tank.  In other states, property owners must
present evidence of a properly maintained and/or
working system before their mortgage is approved
or title transferred.  Pre-sale inspections have also
been required and property owners with improp-
erly  functioning septic  tanks  have been fined.
That so much attention has been focused in this
area underscores the importance of properly func-
tioning septic systems to the entire community  as
well  as to individual owners.
Septage disposal is a community-wide is-
sue that must be addressed as part of a
septic system management  program.

As  sludge accumulates at the bottom of a septic
tank, a layer of grease and scum  forms on the top
of the wastewater.  Over time, the tank begins to
fill until, eventually, the scum and sludge must be
pumped out.  Commonly called  scavenger waste,
or septage, this material must be disposed of prop-
erly.  Many communities require that the septage
be placed only in  approved disposal sites — in
special drying beds or in a sewage treatment plant
capable of treating very concentrated waste.


Septage is generally  high in bacteria, ammonia,
and organic nitrogen. It may contain pathogenic
bacteria or viruses, chemical solvents that have
been  used  as tank cleaners,  or  waste chemicals
such  as paint thinnsr  or  cleaning solvents  that
have been dumped into household drains.  Some-
times, septage is handled improperly and mixed
with hazardous or  toxic industrial  wastes  during
transport to a disposal  site.  This makes illegal
dumping even more dangerous.


Improper septage disposal has been the cause of a
great deal of concern because of  the potential for
serious human health  hazards.    Unscrupulous
pumpers and haulers  may find it easy to dump the
contents of their trucks from a  bridge  or into a
remote ditch  or vacant lot.  A lack of approved
disposal areas nearby may  lead  some haulers to
dump the septage illegally to avoid  travelling long
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 distances to an approved site.  Penalties for illegal
 dumping of septage have been exacted too seldom
 and, when imposed, have not been severe enough
 to deter repeat performances.  Unfortunately, it is
 the  residents  living or  working near areas  that
 serve as dumping grounds for this septage who are
 the  unsuspecting victims of this dangerous prac-
 tice.


 Local authorities can control improper and illegal
 septage disposal in a number of ways.  Additional
 approved disposal sites can be established, and ef-
 forts should be made to  locate them at an accessi-
 ble  distance from areas of high septic system us-
 age. Some communities are developing programs
 to track the transport  and disposal of septage.
 Penalties for illegal dumping should be stiff  and
 enforcement actions should be publicized so  that
 septage haulers understand  that improper septage
 disposal will not only cost them financially but can
 hurt their reputations  as well.
Penalties for illegal dumping of septage have
been exacted too seldom and, when  imposed,
have not been severe enough to deter repeat
performances.
 The organic chemicals found in  septic system
 cleaning solvents  can  contaminate  under-
 ground sources of drinking water, and many
 of the chemicals are suspected  of causing
 cancer.  Ironically, many experts believe that
 the cleaning solvents are totally ineffective as
 well.
 In New York, innovative steps have been taken to
 control ground-water contamination from organic
 chemicals in septic system cleaning solvents:


  *  The State of New York prohibits the
     sale of septic system additives contain-
     ing halogenated hydrocarbon and aro-
     matic  hydrocarbon chemicals in Nassau
     and Suffolk Counties.


  +  Suffolk County prohibits the sale of
     any product for the purpose of clean-
     ing or unclogging on-site systems or
     sewer  drains, unless it has been ap-
     proved by the County Department of
     Health Services.
The use of septic  tank cleaning solvents
should  be discouraged because they can
damage septic systems and  contaminate
ground  water with toxic chemicals.

A variety of products are available  that promise to
make septic system operation "worry free." They
also claim to extend the life of septic tanks and to
make routine pumping a rare necessity by dissolv-
ing away  the scum layers that clog outlets, pipes,
and  drain  fields.  Unfortunately,  such cleaning
solvents often contain toxic organic chemicals that
destroy the useful bacteria that aid  in biological
degradation of wastes in septic  systems.  In addi-
tion, the  organic chemicals found in septic system
cleaning  solvents can  contaminate underground
sources of drinking water, and many of the chemi-
cals are suspected of causing cancer. Ironically,
many experts believe  that the cleaning  solvents
are totally ineffective as well.
Unaware property owners may be attracted by the
low cost and apparent ease of using cleaning sol-
vents.  Banning the use and sale of cleaners is one
way to help prevent a ground-water contamina-
tion legacy for future generations.
Commercial and industrial septic systems
must be managed  carefully because they
present special hazards.

Many documented cases of chemical contamina-
tion of ground water have resulted from using sep-
tic systems to dispose of commercial or industrial
waste. Under its Superfund Program for clean-up
of environmental contamination incidents, EPA
has identified many  sites  where septic  systems
were the source  of  chemical contamination  in
ground water.  In one case, for example,  aban-
doned septic tanks that once served a dry-clean-
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ing establishment leaked toxic solvents (trichloro-
ethylene and perchloroethylene) to ground water.


The potential for such  contamination is not lim-
ited to a few types of establishments.  The hazards
of industrial wastes are  commonly known.  Com-
mercial wastes, however, can be equally as dan-
gerous.  Laundries and laundromats dispose  of
soil and stain removers.  Paint  dealers and hard-
ware stores dispose of harmful solvents and clean-
ing products.  Restaurants must dispose of large
quantities of grease and cleaners.  Gasoline and
service stations deal with waste oils, degreasers,
and other automotive fluids.  Laboratory wastes
contain an endless variety of dangerous chemicals.
Even  beauty  shops handle  potentially harmful
products, such as dyes.
drinking water supply.  Most such programs re-
quire ground-water discharge permits that  are
granted through a comprehensive evaluative proc-
ess designed to ensure that the systems will be op-
erated in a way that is protective of human health
and the environment.
The well-known legal  liability of a business that
mishandles hazardous waste provides a strong fi-
nancial incentive for avoiding the use of septic sys-
tems to dispose of dangerous waste.  Relying  on
this alone, however, is  risky.  Local officials must
recognize the potential  for ground-water contami-
nation and take positive steps to prevent the dis-
charge of dangerous chemical wastes to septic sys-
tems.
Ground-water contamination is invariably the re-
sult of disposing of such dangerous wastes in septic
systems because  these systems  are  designed  to
treat domestic waste only.  The physical and bio-
logical waste treatment processes  that occur  in
septic systems cannot effectively treat hazardous
chemical waste.  Communities that allow the use
of septic systems by commercial and industrial es-
tablishments must recognize the potential dangers
and take the necessary precautions.
Communities that allow the use of septic sys-
tems by commercial and industrial establish-
ments must recognize the  potential  dangers
and take the necessary precautions.
Strong enforcement provisions are a nec-
essary component of septic system man-
agement programs.
Any  septic  system  management  program  is
doomed to fail if effective measures for ensuring
compliance are not established.  A typical pro-
gram  operates by applying standards or substan-
tive requirements through activities such as per-
mitting and licensing.   Compliance  with some or
all of these standards is maintained by making
them enforceable and providing for  fines or other
sanctions or incentives.  The fundamental goal is
to design a program that will be stringent enough
to protect human health and the environment but
will not be so stringent as to promote non-compli-
ance.
Many states and local governments are limiting
the types of wastes  and waste constituents that
may be discharged to septic systems by  commer-
cial and  industrial users.  States that have strong
regulatory programs for commercial and industrial
systems include Massachusetts, New York, Mary-
land, and New Hampshire.  Each has designed its
program to help protect potentially vulnerable
drinking water supplies by considering a number
of factors, including the characteristics  of waste
entering  septic  systems,  the  vulnerability of the
ground  water in the area,  and the proximity of
homes or communities using the ground water as a
Septic system management programs typically in-
clude many or all of the following provisions:


  *  Detailed septic system designs,  certified
     by licensed engineers or sanitarians,
     are required of property owners or
     builders.


  4  Site inspections must be conducted by
     qualified personnel before construction
     is allowed.
    All permitted systems must be installed
    by licensed contractors
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     Site inspections are conducted during
     and/or after construction to ensure
     that the system has been properly in-
     stalled.
tion that the system  has been  properly  main-
tained.  The taxes are used as credits toward any
expenses incurred by the homeowner if and when
sewer lines are connected to the home.
  *  Operating or discharge permits are re-
     quired before the system can be used.


  *  System operation and maintenance are
     monitored by conducting periodic  site
     inspections or by requiring annual
     mail-in certifications to ensure that
     systems are regularly inspected and
     pumped by licensed septage handlers.


  *  Mortgage-approval or pre-sale inspec-
     tions are  required.


Most states establish standards within each of the
above provisions and leave enforcement to local
agencies,  such as county health boards.  States
with strong regulatory programs also ensure that
each implementing  agency,  at a  minimum, em-
ploys qualified personnel and abides by a number
of state program guidelines.


Several  states  or localities have  adopted  unique
approaches to strengthen septic  system manage-
ment.  Wisconsin and Maine require licensing of
individuals who perform soil evaluations to deter-
mine the suitability of a site for a particular septic
system design.  Minnesota conducts seminars for
septic system installation contractors  and certifies
those who have completed the training courses. In
Idaho, one health district has adopted the use of
negotiated contracts (called "sewage management
agreements") between a health district and indi-
vidual municipalities to  clearly stipulate  the  de-
sign, construction, and maintenance of. septic sys-
tems in the community.  Nevada assesses taxes on
septic system users and  requires annual certifica-
Compliance with the above programs is principally
assured through financial sanctions  or incentives.
These sanctions or incentives include fines or a
requirement that homeowners pay  for repairs to
failing systems.   Pre-sale inspections and mort-
gage approvals that are tied to proper operation of
existing systems provide an indirect incentive for
homeowners to maintain their septic systems. In
addition, homeowners  always have the added in-
centive of wanting to prevent ground-water con-
tamination that may affect  their drinking water
supply.
   SOME CONCLUDING THOUGHTS
Septic systems are an important part of commu-
nity waste management in many jurisdictions and
will continue to be for years to come. A well-de-
signed and properly maintained septic system in-
stalled in the proper hydrogeologic setting can
provide effective treatment  of domestic waste-
water. For many, especially in  rural areas, on-
site waste management is the only practical solu-
tion.  In  fact, the reliance on septic systems is so
great  that system users have taken  them  for
granted and  overlooked  their  responsibility to
make sure that system use does not exceed system
capability.  Today, our environment is  beginning
to show the effects of generations  of ineffective
management, poor maintenance,  and  improper
use of septic systems.  Acting now to improve sep-
tic system management and  getting septic system
owners involved in the process will help protect
the nation's ground water and will produce bene-
fits today  and for future generations.
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