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 ------- 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 ------- 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 ------- 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 ------- 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 ------- 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 ------- 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 ------- 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 ------- 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 ------- 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 ------- 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 ------- 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 Page 9 ------- 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 Page 10 ------- 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- Page 11 ------- 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 Page 12 ------- 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. Page 13 ------- |