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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