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Decentralized Wastewater Treatment Systems
A Program Strategy
USEPA Office of Water
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"Proper septic system maintenance is a commonly overlooked
responsibility. Failing systems are a significant threat to our health
and our water quality. Property owners can save themselves a lot
of money and trouble by following a few simple guidelines."
A message from Ben Grumbles,
Assistant Administrator of the Office of Water
Decentralized wastewater treatment systems (commonly called septic systems) are a significant
component of this nation's wastewater infrastructure. They can be an effective option for
protecting public health and the environment if properly designed, installed, and managed.
They can be a significant threat to public health and the environment if they are not.
I am pleased to publish this Strategic Plan to improve the performance of decentralized
wastewater treatment systems. This Strategic Plan presents our key goals and planned actions
for our decentralized wastewater treatment system program. It builds on existing partnerships
to provide a solid foundation of information, training, management, and oversight. It includes
components for regulators, service providers, and property owners. I believe this Strategic Plan
is a significant step forward for communities that choose a decentralized approach to help
protect the health of their citizens and the environment.
Decentralized Wastewater Treatment Systems: A Program Strategy
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11 Decentralized Wastewater Treatment Systems: A Program Strategy
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Decentralized Wastewater Treatment Systems:
A Program Strategy
This strategy presents EPA's vision,
mission and actions to improve the
performance of decentralized wastewater
treatment systems, thereby providing
better protection of public health and
water resources.
EPA's VISION
Decentralized wastewater treatment systems are appropriately managed, perform
effectively, protect human health and the environment, and are a key component of
our nation's wastewater infrastructure.
EPA's MISSION
EPA will provide national direction and support to improve the performance of
decentralized systems by promoting the concept of continuous management and
facilitating upgraded professional standards of practice.
STRATEGIC GOALS AND ACTIONS
This program strategy builds upon EPA's 2003-2008 Agency Strategic Plan, which
identifies septic systems as a source of pollution. The program strategy includes the
principles and strategic goals that will guide EPA's decentralized wastewater program
over the next five years. To accomplish these goals, EPA will implement a series of
actions internally and externally through partnerships with state and local governments
and national organizations representing practitioners and the public (see Key Strategic
Goals and Actions section).
Decentralized Wastewater Treatment Systems: A Program Strategy
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Scope
i ..
Decentralized wastewater systems, often called "septic" or "onsite"
systems, derive their name from their locationthey treat wastewa-
ter close to the source, typically providing treatment on the property
of individual homes or businesses. Decentralized systems also
include systems serving clusters of individual homes, large capacity
septic systems, and small collection and treatment systems (includ-
ing "package plants"). These systems similarly treat wastewater
close to the source, typically using small pipes for collecting small
volumes of domestic wastewater, unlike centralized urban wastewa-
ter treatment systems that pipe large amounts of wastewater many
miles through sewers prior to reaching the treatment facility.
Centralized wastewater treatment facilities typically discharge treated
waste to surface streams, while decentralized systems (especially
smaller ones) usually disperse treated waste under the ground
surface, where the soil provides further treatment. Some decentral-
ized systems are designed to discharge to surface waters following
treatment, and these systems are also addressed in EPA's program
strategy.
Problem Statement
Decentralized systems are an issue of national concern. Based on current information,
decentralized systems:
Serve 25% of the U.S. population3
Are used in about one-third of all new housing and commercial development3
Are typically utilized in rural areas, however, more than half of the 25 million
systems are found in suburban areas3
Decentralized systems protect human health and water quality when they are properly
sited, designed, installed, operated and maintained. However, it has been estimated that:
Between 10 and 20% of all onsite systems are not adequately treating waste
(actual failure rates are unknown); the failure rate for cluster systems which
discharge is being researched3'13
Half are more than 30 years old, and more likely to malfunction3
Septic systems are the second greatest threat to groundwater quality0 (as
viewed by State water quality agencies)
There is currently limited information to document health and water quality problems
resulting from poorly designed, operated and maintained systems, partly due to their
widely distributed nature. The amount of impact to groundwater and surface water
a U.S. Department of Commerce, U.S. Census Bureau, American Housing Survey for the United States-1995, issued September 1997.
b V.I., Nelson, S.P. Dix, and F. ShefhatA, Advanced Onsite Wastewater Treatment and Management Scoping Study, May 1999.
c U.S. Environmental Protection Agency, National Water Quality Inventory-. 1996 Report to Congress, EPA 841-R-97-008,1998.
Decentralized Wastewater Treatment Systems: A Program Strategy
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from sub-surface dispersal or surface-discharging decentralized systems is generally
unknown. These impacts are currently being investigated by EPA.
While complete quantitative information is lacking, there are many examples of improp-
erly functioning onsite and other decentralized wastewater systems contributing to
water quality impairments. These types of wastewater systems have been identified as
contributors to numerous water quality problems, including swimming beach closures,
drinking water source impairments, and shellfish bed closures.
This program strategy identifies how EPA will address water quality impacts by working
with state and local regulators and other key stakeholders to upgrade the performance
of decentralized systems through better management practices (siting, design, installa-
tion, permitting, inspections, operation and maintenance, etc.), as well as to upgrade
professional standards in the decentralized wastewater industry. The strategy also speci-
fies how the recommended management practices will be integrated in the activities and
approaches being applied in the various EPA water programs, thereby helping to achieve
mutual water quality objectives and public health protection goals.
Historical Background
The use of septic tanks for primary treatment of wastewater began in the late 1800s,
and discharge of septic tank effluent into gravel-lined subsurface drains became a
common practice during the middle of the 20th century. Public health departments
were charged with enforcing the first onsite wastewater "disposal" laws, which were
mostly based on soil percolation rates. During the 1950s, states began to adopt laws
upgrading onsite system design and installation practices. Despite these improvements,
many regulations are based on prescribed system designs that require site conditions to
fit system capabilities rather than the reverse. The prevailing philosophy was based on
the assumption that centralized wastewater collection and treatment services would be
available in the future. The result was a wide variety of state and local regulations and
codes controlling decentralized systems.
The 1970s saw an increase in research and
technology development, creating a host of alter-
native decentralized systems capable of meeting
secondary and advanced levels of treatment.
However, the management of these systems
(site evaluation, installation, operation and
maintenance) remained at the pre-1970s level
of sophistication, as did the levels of aware-
ness and education of the property owner and
regulator. As a result, many systems have been
sited, designed, installed, operated and main-
tained based on outdated codes, regulations and
information.
Decentralized Wastewater Treatment Systems: A Program Strategy
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Findings - Report to Congress
In 1996, Congress directed EPA to develop a report addressing: (a) the ability of decen-
tralized systems to make more efficient use of the limited funding available for wastewa-
ter infrastructure, (b) whether these systems were appropriate alternatives to centralized
treatment, and if so, (c) what actions EPA would take to implement the alternatives.
In April 1997, EPA developed its Response to Congress on Use of Decentralized
Wastewater Treatment System". In this document, EPA concluded that decentralized
systems can protect public health and the environment, typically have lower capital and
maintenance costs for rural communities, are appropriate for varying site conditions, and
are suitable for ecologically sensitive areas when adequately managed. However, several
major barriers to the improved performance of these systems were identified, including:
Lack of awareness about system maintenance requirements, and public
misperception regarding system performance and capability
Regulatory and legal constraints
Lack of management
Fear of liability; financial disincentive for engineering consultants
Financial constraints
Until significant progress toward eliminating these major barriers is made, it is likely that
decentralized systems will continue to cause health and environmental problems, and
will not be recognized as a key component of our nation's long-term wastewater infra-
structure.
Stakeholder Involvement
A wide variety of stakeholders involved in regulating and servicing
decentralized systems have expressed an interest in EPA involve-
ment. This includes regulatory agencies at the Federal (USDA and
HUD), state and tribal (health and environmental agencies), and
local levels. Other stakeholders include service providers such as
planners, developers, site evaluators, designers, operators, inspec-
tors, manufacturers, pumpers and waste haulers. In addition, home-
owners are increasingly interested in advice on proper maintenance
and cost-effective solutions to wastewater issues.
EPA has initiated an extensive outreach program to obtain assistance in reaching the vari-
ous stakeholders. Many stakeholders are represented by national organizations that have
agreed to partner with EPA, including:
State onsite regulators
National Onsite Wastewater Recycling Association
National Environmental Services Center
National Environmental Health Association
National Association of County Officials
Decentralized Wastewater Treatment Systems: A Program Strategy
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National Association of City and County Health Officials
National Association of Towns and Townships
Rural Community Assistance Partnership
National Association of Waste Transporters
Consortium of Institutes for Decentralized Wastewater Systems
Water Environment Federation
Guiding Principles
The following principles will guide the efforts of EPA to ensure implementation of systems
that protect public health and the environment:
o Protection of Public Health and the Environment. EPA supports the most
sustainable approach to implementing protective water pollution control solutions
whether it be centralized or decentralized. Where used, decentralized systems
must provide protection of public health and the environment for their served
communities. This applies equally regardless of the economic status, race or size of
the community.
o Local Decision-making. The decision to implement a centralized or decentralized (or
combination) solution to wastewater treatment needs is made at the local level.
o Watershed-wide Integration. Integrated wastewater facility planning and
management of water resources on a watershed level promotes sound and
sustainable communities. The role of properly sited, designed, installed and managed
decentralized systems that provide for recycling and reuse of treated wastewater
for groundwater recharge, replenishment of aquifers and protection of ground and
surface water, should be considered in planning.
o State, Tribal and Local Government Authority. States, Tribes and some local
governments are responsible for regulating and managing decentralized systems.
Flexibility is needed to craft and implement cost-effective management programs
that are suitable for each individual community.
o Agency-wide Coordination. Most water programs have a role, either direct or
indirect, in managing or working with decentralized systems. In dealing with
decentralized systems, all water programs should facilitate improved siting, design,
installation and management that protect human health and the environment.
Agency programs (including point source, non-point source, groundwater, and
funding programs) should regularly coordinate on issues that affect decentralized
systems.
o Cost Effectiveness. Implementation of this strategy will provide for a broader
range of cost effective options for communities to consider in meeting their needs,
particularly in those communities that are less densely populated.
Decentralized Wastewater Treatment Systems: A Program Strategy
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o Partnerships. Implementation of this strategy will depend on voluntary partnerships
with States/Tribes, local governments, service providers and other stakeholders.
o Targeted Efforts. Given the wide variety of barriers to address, implementation of
this strategy will focus on those activities that produce the greatest environmental
and public health benefit.
Key Strategic Goals and Actions
Strategic Goal #1: Strengthened internal and external partnerships
Action 1: Develop action plans in each Regional office to address Regional
and watershed-specific activities to support the Program
Strategy. Hold annual meetings of EPA coordinators.
Action 2: Conduct forums in each Regional office to promote collaboration
between regional, state and local regulators.
Action 3: Develop a Memorandum of Understanding with external partners
to solidify their support for the program.
Action 4: Identify and pursue opportunities for improved coordination
among water programs (point source, non-point source, estuar-
ies, watersheds, water quality cooperative agreements, source
water assessment and protection, UIC, TMDL).
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Decentralized Wastewater Treatment Systems: A Program Strategy
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Strategic Goal #2:
Improved system performance through improved practitioner
competency, management practices, and technology transfer.
Action 1: EPA, working with the stakeholders, will publish a Management
Handbook and other tools that serve as implementation guidance
for the Management Guidelines.
Action 2: Provide assistance in upgrading training, registration, certifica-
tion and licensing programs for practitioners (i.e., site evaluators,
designers, installers, inspectors and maintenance providers).
Action 3: Provide assistance with implementation of a model regulatory
code using performance-based standards developed using sound
science.
Action 4:
Strategic Goal #3:
Identify efforts needed to improve acceptance of appropriately
managed systems.
Improved accountability, control and oversight through
enhanced state and local program implementation and
regulatory reform.
Action 1: Continue to manage projects demonstrating approaches for
improved state and local management programs. Share the
results with interested parties.
Action 2: Conduct study to characterize the impact of malfunctioning
decentralized systems, discharging and non-discharging, on
surface and groundwater quality. Encourage states and local
communities to inventory and assess systems. Develop easy to
use software for inventorying and tracking systems.
Action 3: Provide assistance to states in adopting the Management
Guidelines and meeting commitments under the Government
Performance Results Act measure.
Action 4: Reaffirm policies that integrate EPA programs that share regula-
tory authority over various decentralized activities to assure com-
pliance with regulatory requirements. These programs include
permits for wastewater and stormwater discharges, underground
injection control, source water assessment and protection, non-
point source control, watersheds management, total maximum
daily loads, enforcement and compliance, and coastal zones .
Action 5: Initiate efforts to improve management practices for key problem
areas, including cesspools, communities lacking basic sanitation
and significantly impacted source waters.
Decentralized Wastewater Treatment Systems: A Program Strategy
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Strategic Goal #4: Improved local decision-making through improved public
awareness.
Action 1: Continue to develop outreach and education materials, dis-
seminate materials, and reach out to organizations representing
state and local officials, practitioners, financing authorities, and
environmental advocacy groups.
Action 2: Explore options to promote development of appropriate manage-
ment programs when funding decentralized systems using SRF.
Major Accomplishments/Actions to Date
EPA's 1997 Response to Congress on Use of Decentralized Wastewater Treatment
Systems is considered a landmark document that, for the first time, articulated
EPA's position on decentralized systems. The report is at least partly responsible for
increased activity and progress in the decentralized field.
Since 1998, Congressional interest has increased, resulting in $46 million in funding
specifically directed towards addressing the barriers outlined in the 1997 report to
Congress.
In 1999, the first annual meeting of state onsite regulators was held. The sixth
annual meeting is planned for March, 2005.
In May 2001, EPA issued a determination that Class V well regulations under the
Underground Injection Control program are adequate to protect drinking water from
existing large capacity septic system(s). As an additional layer of protection, EPA
efforts to develop guidance for improving management practices were cited.
In February 2002, EPA published its Onsite Wastewater Treatment Systems
Manual, an extremely popular document used for designing onsite systems using a
performance-based approach.
In February 2003, EPA's highly successful "Wastewater Month" featured the
distribution of thousands of brochures to inform homeowners of their responsibility to
properly maintain septic systems.
In March 2003, EPA released Voluntary National Guidelines for Management of
Onsite and Clustered (Decentralized) Wastewater Treatment Systems.
EPA's Strategic Plan, completed in September 2003, recognizes decentralized
systems as an important part of the nation's wastewater infrastructure. The Strategic
Plan incorporates a Government Performance Results Act measure to assist states in
their adoption of EPA's Management Guidelines.
In September 2003, the first national meeting of the EPA Regional Coordinators
for the Decentralized Wastewater Program was held. Another is planned for March,
2005, and annually thereafter.
8 Decentralized Wastewater Treatment Systems: A Program Strategy
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In June 2004, EPA's Septic System Website became one of the first designed under
the Agency's topics-based requirement ("web-lite").
As of September 2004, five states have adopted the Management Guidelines:
Arizona, Florida, New Jersey, North Carolina and Rhode Island.
Next Steps
EPA will share this program strategy with its partners and work toward the
vision of appropriately performing and managed decentralized wastewater
systems.
The strategy will be evaluated and updated, as appropriate, every five years.
EPA headquarters will work cooperatively with the EPA regional offices to
implement the actions under each of the identified strategic goals.
Decentralized Wastewater Treatment Systems: A Program Strategy
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Decentralized Wastewater Treatment Systems: A Program Strategy
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United States
Environmental Protection
Agency
Additional copies of this document, (EPA 832-R-05-002),
can be obtained from:
U.S. EPA Publications Clearinghouse
P.O. Box 42419
Cincinnati, OH 45242
Telephone: 800-490-9198
Fax: 513-489-8695
EPA 832-R-05-002
January 2005
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