816R06004
Analysis on the Use of
Drinking Water State Revolving Fund Set-Asides:
Promoting Capacity Development
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Office of Water (4606M)
EPA816-R-06-004
December 2007
www.epa.gov/safewater
Printed on Recycled Paper
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
Table of Contents
I. Executive Summary 1
II. History 1
III. Analysis 3
IV. State Program Administration 5
V. Uses in Capacity Development 5
VI. Outreach and Training 8
VII. Technical Assistance 9
VIII. Restructuring 12
IX. Targeted Assistance 12
X. Summary Analysis 14
Appendix A: State Intended Use Plan (IUP) Summary Matrices A-l
Alabama A-2 Nebraska A-52
Alaska A-4 Nevada A-54
Arizona A-6 New Hampshire A-56
Arkansas A-8 New Jersey A-58
California A-10 New Mexico A-60
Colorado A-12 NewYork A-62
Connecticut A-14 North Carolina A-64
Delaware A-16 North Dakota A-66
Florida A-18 Ohio A-68
Georgia A-20 Oklahoma A-70
Hawaii A-22 Oregon A-72
Idaho A-24 Pennsylvania A-74
Indiana A-26 Puerto Rico A-76
Iowa A-28 Rhode Island A-78
Kansas A-30 South Carolina A-80
Kentucky A-32 South Dakota A-82
Louisiana A-34 Tennessee A-84
Maine A-36 Texas A-86
Maryland A-38 Utah A-88
Massachusetts A-40 Vermont A-90
Michigan A-42 Virginia A-92
Minnesota A-44 Washington A-94
Mississippi A-46 WestVirginia A-96
Missouri A-48 Wisconsin A-98
Montana A-50
Appendix B: EPA DWSRF Regional Contact Information B-l
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
Table of Exhibits
Chart 1: Annual Assistance Provided Over the Life of the DWSRF 1
Table 1: Financial Data for 2005 DWSRF Set-Aside Funding and Utilization ...4
Chart 2: State Drinking Water Initiatives Funded by the Local Assistance and
Other State Programs (15%) Set-Aside 4
Map 1: States that Use the 10% Set-Aside to Fund Primacy Agency
Management 5
Map 2: States that Use Set-Aside Funds to Implement/Manage a Capacity
Development Strategy 5
Chart 3: Prevalence of Set-Aside-Funded Program Administration Tasks 6
Chart 4: How DWSRF Set-Asides Promote Program Integration 7
Map 3: States that Use Set-Aside Funds to Support Public Education Efforts ....8
Map 4: States that Use Set-Aside Funds to Train System Personnel and
Decision-Makers 8
Chart 5: Use of DWSRF Set-Asides for Outreach and Training Activities 9
Chart 6: States' Use of DWSRF Set-Asides for Technical Assistance 11
Map 5: States that Use Set-Aside Funds for Consolidation and Restructuring
Efforts 12
Map 6: States that Use Set-Aside Funds to Target Small and Disadvantaged
Systems 13
December 2007 ii
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
I. Executive Summary
The purpose of this document is to identify the multiple uses of the Drinking Water State
Revolving Fund (DWSRF) set-asides in promoting capacity development efforts. This national
"one-year snapshot" addresses the four different types of set-asides and highlights some of the
more common applications being used by states. The body of the document includes specific
examples of set-aside uses that states may find applicable within their own jurisdictions. In
examining this report, states and regions can become exposed to a variety of effective and
allowable uses of the DWSRF set-asides. These uses can be seen as potential "tools in the
toolbox" that states may not have yet considered.
The analysis is based on two primary sources of set-aside-related data: the DWSRF National
Information Management System (DWNIMS) and states' DWSRF Intended Use Plans (lUPs).
All data from state lUPs used to identify trends and set-aside uses in the body of this document
have been summarized by state in Appendix A.
This report cites numerous examples of state-specific set-aside uses as illustrations. However, the
reader should recognize that many states have comparable examples of such usages. Appendix A
can serve as a reference for the reader to contact states for further information. It should be noted
that this document is not intended as a report card, but merely as a review of what state co-
regulators deem a sustainable infrastructure initiative supported by funds from the DWSRF set-
asides. Further information can be obtained either by contacting each state's primacy agency
directly or by contacting the EPA DWSRF Coordinator in the appropriate Region (See Appendix
B).
Chart 1: Annual Assistance Provided Over the
Life of the DWSRF
II. History
$1.8
Since the 1996 Amendments to
the Safe Drinking Water Act
(SDWA) were passed, EPA and
its state co-regulators have been
enhancing established programs
and implementing new ideas that
promote sustainability in public
water systems (PWSs). This
programmatic approach, referred
to as capacity development, is
utilized by all 50 states and
Puerto Rico.
e
—
~o
Q
*^
o
V)
c
o
m
$0.0
1997 1998 1999 2000 2001 2002 2003 2004 2005 2006
Year
Public drinking water systems serving 10,000 or fewer customers represent over 97 percent of
the nation's PWSs (Safe Drinking Water Information System [SDWIS] Data, 2005). Smaller
systems often have more challenges in technical, managerial, and financial (TMF) resources than
their larger counterparts. Many small systems were created to provide small communities or
December 2007
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
subdivisions drinking water when regulatory standards were less protective and less demanding.
Some PWS challenges, for both large and small systems are:
• The need to upgrade or replace aging infrastructure with inadequate funds.
• Maintaining the quantity and quality of source water.
• The public's increasing demands for lower utility costs.
• The establishment of enhanced and more protective regulatory requirements or rules.
In recognition of the challenges facing smaller PWSs, Congress established several provisions of
the 1996 SDWA Amendments with a small system focus, including the implementation of
capacity development programs. This provision places a significant emphasis on assisting PWSs
of all sizes in acquiring and maintaining their TMF capacity. TMF capacity is the ability to plan
for, achieve, and continually provide safe and affordable drinking water to customers.
As part of the 1996 SDWA Amendments, the DWSRF was established to provide states with a
financing mechanism to ensure the delivery of safe drinking water to the public. Since 1997,
states have been able to use federal capitalization grant money to create funding accounts from
which PWSs can borrow money to finance infrastructure improvements. States have the
flexibility to target certain percentages of these capitalization grants, in the form of set-asides, for
different activities that can help implement and expand their drinking water programs.
These set-asides enable states to address specific aspects of water system operation and
management and emphasize enhanced institutional capacity as a means of better achieving
sustainability. This analysis summarizes the use of DWSRF set-aside funds by the states and
Puerto Rico.
The assessment and tabulation of set-aside-funded activities cuts across the four individual set-
asides as noted below:
• Small System Technical Assistance (2%)
Up to 2 percent of the federal capitalization grant may be set aside to provide technical
assistance to small community water systems (CWSs) serving 10,000 or fewer persons. All
but two states have taken advantage of this set-aside. Activities paid for with these funds
include project planning, circuit riders, and special small system training.
• Administration and Technical Assistance (4%)
Up to 4 percent of the capitalization grant may be set aside for costs associated with
administering state DWSRF programs. Every state sets aside some portion of its annual
DWSRF allotment to administer its DWSRF program and/or to provide technical assistance
to PWSs.
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
• State Program Management (10%)
This set-aside allows states to use up to 10 percent of their annual allotment to develop and
implement capacity development and operator certification programs, administer source
water protection programs (which includes technical assistance to prevent contamination of
sources), or fund a portion of their public water supply supervision (PWSS) programs. The
state must provide a 100 percent match for this set-aside with either a 1:1 dollar match, an
"in-kind" match, or a combination of the two.
• Local Assistance and Other State Programs (also called 1452(k) Activities) (15%)
States may use up to 15 percent of their annual allotments to fund a variety of activities and
assistance associated with efforts such as source water protection, wellhead protection, and
capacity development. A maximum of 10 percent of funds set aside can be spent on any
single effort.
III. Analysis
The following analysis is based on two primary sources of set-aside-related data: DWNIMS and
states' DWSRF lUPs, which are submitted individually as a condition of receiving the DWSRF
capitalization grant. These two sources are different in scope and purpose and, as such, present a
number of minor inconsistencies in examining each of the four set-asides. While DWNIMS data,
compiled at a national level, provide an authoritative accounting of set-aside funding and
utilization, it offers little detail on how, or in what context, funds are actually spent. State lUPs,
on the other hand, provide greater detail on how states are planning to use their set-asides, but
vary in the amount of available information they contain due to a lack of standardized format and
level of content. For instance, many states did not include information regarding the
Administrative and Technical Assistance (4%) set-aside in their IUP. As a result, where this
report describes state activities funded by set-asides as reported in lUPs, these descriptions
should not be considered comprehensive accounts of all state activities. Additionally, this
analysis does not take into account the specific use of set-aside funds by Illinois, which only uses
its 4% Administrative set-aside, and Wyoming, since they do not use DWSRF set-asides.
Discrepancies that arise from inconsistent data will be appropriately qualified. Therefore, 49
states use the 4% set-aside, while all states, except for Wyoming and Illinois, use the 15% set-
aside to assist them in their capacity development program initiatives and efforts.
The same data show that the Small Systems Technical Assistance (2%) set-aside is nearing full
participation, with 48 states making use of these funds. Participation in the State Program
Management (10%) set-aside is lowest at 44 states. Several states in the past have indicated that
they are unable to obtain the dollar-for-dollar match funds that are required for this type of set-
aside.
In terms of overall funding, the total amount set aside within all four categories since their
inception in 1996 is $1.049 billion. As of June 30, 2005, cumulative set-aside expenditures
totaled slightly more than $699 million, leaving a cumulative balance for all four set-asides of
approximately $349.8 million.
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
Table 1 presents set-aside award and utilization data for the four set-asides as of June 30, 2005.
These data represent the use of respective set-aside funds by all participating states (source:
DWNIMS).
Table 1: Financial Data for 2005 DWSRF Set-Aside Funding and Utilization
(in Millions of Dollars)
DWSRF Set-Aside
Admin, and Technical Assistance
Small System Technical Assistance
State Program Management
Local Assistance and State Programs
Total
Set-Aside
Awards
$28.4
$15.1
$44.9
$36.5
$123.9
Set-Aside
Expenditures
$26.8
$13.4
$38.3
$26
$104.5
Set-Aside
Balance
$1.6
$1.7
$6.6
$10.5
$19.4
The level of variability in how states use funds from the individual set-asides differs for each set-
aside. For example, funds drawn from the Administration and Technical Assistance (4%) set-
aside are restricted to the implementation of DWSRF activities and the provision of technical
assistance. There is relatively more flexibility, however, in the use of Local Assistance and Other
State Program (15%) set-aside funds; this set-aside offers the discretion needed to target state-
specific drinking water priorities. The relative limitation and flexibility of these two set-asides is
reflected in most state lUPs.
Chart 2 illustrates the range and number of drinking water-related initiatives funded by the Local
Assistance and Other State Programs (15%) set-aside. It is noteworthy that of the 95 initiatives
cited in the state lUPs, the 90 percent majority are clearly focused on the set-aside's three
primary objectives: source water protection, wellhead protection, and capacity development.
Chart 2: State Drinking Water Initiatives Funded by the Local Assistance and
Other State Programs (15%) Set-Aside
Wellhead Protection
Source Water
Assessment / Protection
OperatorTraining &
Certification
Operating Permit Program
Land Acquisition/
Conservation
Capacity Development
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
Map1
IV. State Program Administration
Funding for the administration of
state DWSRF program activities is
drawn primarily from the
Administration and Technical
Assistance (4%) set-aside. State
lUPs indicate that 33 states
(including Puerto Rico) are using
set-aside funds to administer their
respective DWSRF program. As
noted, DWNIMS data indicate that
all states are utilizing the 4% set-
aside for this purpose and/or
technical assistance. DWNIMS data
show that participating states used a total of $26.8 million from the 4% set-aside to fund DWSRF
administration in the 2005 funding cycle.
In addition to DWSRF program administration, many states are using the set-asides to
supplement funding towards the management of their primacy agencies. States are able to apply
funds from the State Program Management (10%) set-aside to support their PWSS efforts. Based
on their lUPs, 37 states are drawing from the 10% set-aside to fund primacy agency management
(Map 1). DWNIMS data show that participating states used a total of $38.3 million from the 10%
set-aside to support their individual PWSS activities in 2005.
Use the 10% Set-Aside to Fund
Primacy Agency Management
Map 2
V. Uses in Capacity Development
Another critical use of DWSRF set-
asides is the support of state Capacity
Development Programs. Capacity
development underlies each state's
effort to ensure an adequate, long-term
supply of safe drinking water. By
investing in the TMF capabilities of a
state's drinking water program, set-
aside funds can be used to improve
system performance, safety, and
reliability. In total, 45 states and
Puerto Rico report in their lUPs using
set-aside funds to implement/manage a
capacity development strategy (Map
2).
The DWSRF set-asides are used to fund a number of specific efforts tied to capacity
development, including inspections, enforcement, sanitary surveys, and data management.
Use Set-Aside Funds to Implement / Manage
a Capacity Development Strategy
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
According to state lUPs, most states are using the Administration and Technical Assistance (4%)
and the State Program Management (10%) set-asides to fund these tasks.
Additional details on the specific uses of set-aside funds are provided below:
• 28 states use set-aside funding to support drinking water-related inspections.
This includes annual PWS inspections, construction inspections, food and lodging
inspections, complaint and water quality alert investigations, small system inspections,
capacity development reviews, and random compliance inspections.
• 16 states use set-aside funding to support enforcement efforts.
This includes targeted systems, general PWSS enforcement, and enforcement of
operator certification requirements.
• 27 states use set-aside funds to support sanitary survey processes.
This includes training for survey completion and use of surveys as an opening for
capacity development initiatives and small system assistance programs.
• 40 states use set-aside funding to support data management activities.
This includes maintaining and updating Safe Drinking Water Information System
(SDWIS)/State and program-specific (e.g., wellhead protection) databases, migration to
electronic records keeping, integration of PDA/handheld technologies, implementing
Web-based access, expansion of GIS capabilities, and software and hardware upgrades.
Chart 3 illustrates the number of states using DWSRF set-aside funds to support the program
administration tasks presented above. These totals are drawn exclusively from the state lUPs.
Chart 3: Prevalence of Set-Aside-Funded Program Administration Tasks
Inspections
Enforcement Sanitary Surveys Data Management
Program Administration Task
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
Notable Examples of Capacity Development Uses:
A number of states use the program administration tasks listed above to meet multiple objectives.
In West Virginia, PWS inspections now include backflow prevention testing and device
certification. Moreover, sanitary surveys of small PWSs in West Virginia are completed as part
of the state's on-site technical support program. While nearly one-third of states indicate they
will use set-aside funds to increase or enhance enforcement efforts, Alaska reports that it will
work with EPA to target specific systems for enforcement and/or comprehensive technical
assistance.
Chart 4: How DWSRF Set-Asides Promote Program Integration
Operator
Certification
Public Involvement/
Right to Know
Source Water
Protection
DWSRF Set-Asides
Capacity
Development
Sanitary Survey
Inspections
Improving System
Security and
Emergency Response
Rule Implementation
In addition to linking sanitary surveys to capacity development (South Carolina, like many
states, reports that the surveys are a "major component" of its capacity development strategy),
some states (e.g., Utah, Hawaii) also contract with local departments of health or other
organizations to conduct the surveys.
States are able to assist multiple programs by using set-asides to fund investment in data
management. For example, North Carolina is using set-aside monies to fund software and
hardware upgrades for its wellhead protection efforts. Connecticut's Operator Certification
Program will benefit from a database of eligible operator renewal training courses. In Iowa, the
10% set-aside will be used to upgrade computer programs and systems for a PDA-based sanitary
survey project. Web-based access is another compelling technology option for states. Oklahoma
is developing a secure Web site that allows field staff to modify and add to existing datasets.
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
VI. Outreach and Training
Outreach and training at the state level are key tools for improving capacity among system
owners and operators. Additionally, outreach and training raise public awareness in local
drinking water systems, offering a degree of transparency and insight into system operation and
management. In the best-case scenarios, outreach and training will increase both system
performance and consumer confidence, assuring high-quality drinking water from well-
maintained, well-regulated suppliers.
To this end, a majority of states are using DWSRF set-aside funds to support outreach and
training activities. Because these activities may fall under the umbrella of a variety of state
programs, from operator certification to source water protection, applicable funds are drawn
from across the 2%, 10%, and 15% set-asides.
DWSRF set-aside funds support public
education efforts in 39 states (Map 3).
This includes newsletters, Consumer
Confidence Reports (CCRs), and
public-access Web sites with drinking
water program and system information.
A number of state-specific source water
and wellhead protection programs also
use set-aside funds to promote public
awareness and program objectives,
including teacher training and
community outreach.
Map 3
Use Set-Aside Funds to Support
Public Education Efforts
Notable Examples of Outreach and Training Uses:
States also employ set-aside funds to train PWS operators and managers on how to improve their
TMF capacity. Set-aside funds are used by 41 states and Puerto Rico to train system personnel
and decision-makers (Map 4).
Operator certification is another area
where states can have a significant
impact on the capacity of PWSs.
Maryland, for example, uses the
number of systems with certified
operators as a measure of capacity
improvement. Many states use
DWSRF funds to present workshops,
seminars, and other training events that
provide operators with ongoing
educational opportunities. This
"continuing education" is frequently a
Map 4
Use Set-Aside Funds to Train System
Personnel and Decision-Makers
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
prerequisite for maintaining or renewing operator certification. Several states' data management
activities are linked to operator certification/licensing; these states are working to integrate
databases that will enable more functional operator tracking and monitoring. Overall, 32 states
use DWSRF set-aside funds to manage operator certification programs. DWNIMS data show
that participating states have used nearly $16 million from the 10% set-aside since 1996 to fund
operator certification programs.
States are using a range of strategies to provide broad access to comprehensive operator
certification and training programs, many of which, incorporate contract agreements. The Internet
is also proving useful in the presentation of Web-based training sessions and access to online
lists of approved courses, as in the case of Pennsylvania. In Delaware, the Delaware Technical
and Community College will receive one-half of the state's Small System Technical Assistance
(2%) set-aside (approximately $83,000) as the sole provider of operator certification training.
Under this agreement, the community college will test and train 350-400 operators over the
course of a year, according to state regulations. This type of agreement is representative of the
approach many states are taking to maintain their operator certification program.
Chart 5 summarizes the number of states using DWSRF set-aside funds for outreach and training
activities.
Chart 5: Use of DWSRF Set-Asides for Outreach and Training Activities
10
Public Education PWS Staff Training Operator Certification
Outreach and Training Activity
VII. Technical Assistance
Technical assistance to PWSs is integral to capacity development and frequently provides a
critical service for systems that are out of compliance. Such assistance is especially relevant for
small systems (those serving fewer than 10,000 persons), many of which lack the TMF capacity
to successfully address on their own the challenges they face. Similar to outreach and training-
related activities, technical assistance is provided in a wide variety of contexts. This means that
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
states draw from across the DWSRF set-asides to fund technical assistance initiatives. For the
purposes of this analysis, technical assistance consists of the following efforts:
• 30 states use set-aside funds to support site visits, many through circuit riders, as
reported in the lUPs.
Site visits by qualified water system personnel form the mainstay of technical
assistance in many states, particularly for small, rural PWSs. Site visits provide an
opportunity for a hands-on, face-to-face exchange between operators and experts. In
addition to remedying technical difficulties or addressing problems of non-compliance,
many states structure site visits to provide managerial and financial guidance as part of
their capacity development strategies.
Circuit riders offer states a cost-effective means of meeting demand for on-site
technical assistance and other site visits. Many states contract with Rural Water
Association (RWA) and similar groups to ensure adequate circuit rider coverage.
Maine, for example, is applying its Small System Technical Assistance (2%) set-aside
funds to pay for two Water Quality Specialist circuit riders through the Maine RWA.
The two circuit riders will visit 50-70 PWSs per month.
• IUP data indicate 3 states are using set-aside funds to conduct rate studies.
Rate studies allow PWSs to determine if their rates are sufficient to cover the costs
associated with collecting, storing, treating, and distributing a safe drinking water
supply. Rate studies are particularly valuable in the context of managerial and financial
capacity development.
• 6 states are using set-aside monies to fund pilot studies, according to state lUPs.
Like rate studies, pilot studies are useful in exploring options for improving PWS
operation. Kentucky, for example, is using money from the 2% set-aside to fund a
disinfection byproduct (DBP) pilot program evaluation.
• 11 states are using set-aside funds for Area-Wide Optimization Program (AWOP)
activities, according to state lUPs.
AWOPs are used by states to target for assistance those high-risk PWSs with treatment
processes in place that are not being optimally utilized. By developing prioritization
criteria and evaluating system performance, states can focus investment and capacity
development efforts on the most critically at-risk systems, often generating substantial
increases in public health protection at low cost.
• 8 states are using set-aside funds for leak detection/efficiency programs, according
to state lUPs.
Assisting PWSs with leak detection and water efficiency programs conserves resources
and can increase suppliers' fiscal health. A number of states are using set-aside funds to
support leak detection and water efficiency programs. Noteworthy examples include
Massachusetts, which offers local assistance grants for leak detection; Florida, which
provides training on leak detection during monthly Florida RWA meetings; and Texas,
which is funding water conservation and drought contingency programs.
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
• IUP data show that 13 states are using set-aside funds for security-related efforts.
Technical assistance for security-related issues includes assistance preparing
Vulnerability Assessments (VAs) and Emergency Response Plans (ERPs). Arkansas,
for example, uses set-aside funds to assist PWSs in drafting ERP documents as part of
its wellhead protection program. Missouri's set-aside funds support the completion of
VAs as part of the state's capacity development strategy.
• 43 states are using set-aside funds for source water/wellhead protection initiatives.
IUP data show most states are pursuing source water/wellhead protection programs.
The success of these initiatives depends on participation by PWSs statewide, many of
which require technical assistance to effectively implement protection-related efforts.
Set-aside funding makes it possible for states to assist smaller PWSs with source water
and wellhead protection. Minnesota, for example, helps small systems using
groundwater to identify and manage potential sources of contamination. New
Hampshire provides grants for at least six source water protection projects per year.
Chart 6 summarizes the number of states using DWSRF set-aside funds for technical assistance
activities.
Chart 6: States' Use of DWSRF Set-Asides for Technical Assistance
Site Visits
Rate Studies
Pilot Studies
AWOPs
Leak
Detection/Water
Efficiency
Form of Technical Assistance
Security
Source
Water/Wellhead
Protection
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11
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
VIII. Restructuring
In some cases, the long-term viability of a PWS will depend on a partnership, consolidation, or
similar restructuring effort. These measures are intended to correct a system's TMF inadequacy.
These efforts also reflect a trend towards regionalization. Regionalization—the integration of
otherwise disparate PWSs across a large geographic area—is predicated on the economies of
scale enjoyed by larger systems. These systems typically possess superior TMF resources,
making them better equipped to maintain compliance and sustain long-term public health
protection.
Map 5
In general, few states report using set-
aside funds to encourage partnerships,
consolidation, or restructuring (Map
5). Virginia is a notable exception. As
part of its capacity development and
technical assistance strategy, Virginia
uses money from its 15% set-aside to
fund a receivership program. The
program is designed to improve water
quality for PWSs in receivership until
either their sale or connection to an
existing PWS is complete. The
Virginia receivership program
requires a stringent showing of urgent
conditions and dire lack of capacity at the PWS to appoint a receiver. The receivership funds can
then be allocated for short-term activities essential to restore the basic functioning of the PWS.
Use Set-Aside Funds for Consolidation
and Restructuring Efforts
IX. Targeted Assistance
Because they often have more limited TMF resources, small PWSs are particularly challenged in
complying with state and federal water quality standards. As additional standards take effect,
increasing the number of requirements systems must meet, it is important that states provide
these systems with targeted assistance. Disadvantaged systems, designated by the SDWA as
PWS service areas that meet affordability criteria established by the states in which they are
located (1452[d][3J), also benefit from concerted state support. The Small System Technical
Assistance (2%) set-aside provides states with the funds needed to help small PWSs develop
TMF capacity and maintain compliance. Data from DWNIMS indicate that more than $106
million has been awarded under the 2% set-aside through mid-2005.
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
Notable Examples of Targeted Assistance Uses:
According to their IlJPs, 44 states and Puerto Rico are targeting assistance to small systems with
set-aside funds, including those drawn from the Small System Technical Assistance (2%) set-
aside.1 Of those 44, five states are using set-aside funding for targeted assistance to
disadvantaged systems (Map 6). Much of the assistance provided to these systems is delivered as
part of a capacity development strategy or in the context of broader technical assistance
activities. Tennessee, for example, provides small PWSs with training in proper sampling
techniques. Michigan is helping small systems initiate wellhead protection efforts cost-
effectively by using existing datasets to model groundwater dynamics. As part of its capacity
development strategy, Georgia is supporting 85 technical assistance visits to help small systems
with compliance over a two-year period.
States also allocate funds from the 2%
set-aside to support small systems in a
variety of other ways. Indiana and
Ohio use set-aside monies to fund
distinct technical assistance programs:
the Small System Technical
Assistance Fund (SSTAF) in Indiana;
and the Small System Technical
Assistance Program (SSTAP) in
Ohio. States like Mississippi, Nevada,
and New Jersey use contract
arrangements to ensure small PWSs
receive the technical support they
need.
Map 6
\ _ \ Use Set-Aside Funds to Target Small Systems
^B Use Set-Aside Funds to Target Disadvantaged Systems
While disadvantaged PWSs need not be small, they are similarly at-risk in terms of maintaining
compliance and ensuring the continued delivery of high-quality drinking water. Many states use
consumer data, such as median income, to define a system as disadvantaged. In addition to
receiving targeted assistance through the DWSRF set-asides, the infrastructure needs of
disadvantaged systems are often prioritized through the loan application review and project
ranking processes.
In some instances, set-aside-funded programs offer disadvantaged PWSs a bridge to DWSRF
loans. South Dakota, for example, uses set-aside monies to help disadvantaged systems obtain
funding for infrastructure upgrades. In New Mexico, disadvantaged systems benefit from
assistance preparing Preliminary Engineering Reviews and environmental assessment
documentation. Michigan uses set-aside monies to help disadvantaged systems meet project
planning costs.
1 This figure differs from the DWNIMS data, which indicate that 48 states are providing technical assistance to
small systems with funding from the 2% set-aside.
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
X. Summary Analysis
In examining the organization and objectives of the programs and activities funded through the
DWSRF set-asides, several overarching trends emerge. States are applying set-aside monies in
accordance with the intent of capacity development—the need to protect public health by
investing in the increased TMF performance of PWSs. Set-aside funds can be easily aligned with
state capacity development priorities, which help to achieve a reliable supply of high-quality
drinking water for the American public. In this regard, efforts to assist small and disadvantaged
PWSs, in particular, can be seen primarily as exercises in capacity development.
The use of set-aside funds to undertake a variety of activities that build on regular contact with
PWS owners and operators offers a concrete example of how the tactical aspects of PWSS or
program administration can support more strategic capacity development objectives. Maintaining
a direct relationship with PWSs statewide, either through technical assistance, operator
certification, or other training or regulatory activities, is key to most states' efforts to increase
compliance through enhanced institutional capacity.
Similarly, states' investment in information technology and data management is an effective
management and outreach tool in promoting capacity development that exemplifies the use of
DWSRF set-aside funds to expand institutional capabilities, outreach, and overall PWS
assistance. While maintaining or upgrading SDWIS/state systems is an important data
management effort, the integration of handheld/PDA technology into state networks offers
another means of streamlining data collection and reporting. State-managed operator certification
programs also depend on accurate, up-to-date information regarding qualifications, and ongoing
trainings. The proliferation of source water and wellhead protection programs has created
demand for dedicated systems to manage GIS and hydrologic and geologic data, inventories of
potential contaminants, and source water assessments. Use of the Internet as a tool for internal
and external communication and outreach (e.g., remote access for operators and regulators,
public information Web sites) has also required continued investment in information technology.
These investments span the variety of state activities, contributing to capacity development at
multiple levels.
As can be clearly seen throughout this document, states vary in their approach to using set-
asides. With such diversity, it is important to recognize that what may work for one state may not
be appropriate for use in another. Identifying what "works" is crucial in managing a successful
DWSRF program. States should continue to review their current assistance strategies and PWSS
program priorities regularly in order to determine the overall effectiveness of historical and
current set-aside usage. Only through appropriate programmatic review and accountability will
we, as a nation, be able to continually provide water safe to drink for a sustainable future.
December 2007 14
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
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Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
Appendix B
EPA DWSRF Regional Contact Information
December 2007
-------
Analysis on the Use of DWSRF Set-Asides: Promoting Capacity Development
US EPA - DWSRF Regional Contact Information
Region I: CT, ME, MA, NH, RI, VT
U. S. EPA One Congress Street JFK Federal
Building
Boston, MA 02114-2023
DWSRF contact:
Jackie Leclair (MA, ME, VT)
(617)918-1549
Mark Spinale (CT, NH, RI)
(617)918-1547
(617) 918-2064 (fax)
Region II: NJ, NY, Puerto Rico
U. S. EPA 290 Broadway
New York, NY 10007-1866
DWSRF contact:
Alicia Suarez
(212)637-3851
(212)637-3891 (fax)
Region III: DE, MD, PA, VA, WV, DC
U.S. EPA 1650 Arch Street
Philadelphia, PA 19103
DWSRF contact:
Mary T. Brewster
(215)814-5456
(215) 814-2782 (fax)
Region IV: AL, FL, GA, KY, MS, NC, SC, TN
U. S. EPA 61 Forsyth Street
Atlanta, GA 30303
DWSRF contacts:
Sheryl Parsons (GA, FL, NC, KY)
(404) 562-9337
Carl Biemiller (AL, TN, MS, SC)
(404) 562-9341
(404) 562-8692 (fax)
Region V: IL, IN, MI, MN, OH, WI
U. S. EPA 77 West Jackson Blvd.
Chicago, IL 60604-3507
DWSRF contact:
Andrew Lausted
(312)886-0189
(312) 886-0168 (fax)
Region VI: AR, LA, NM, OK, TX
U. S. EPA 1445 Ross Avenue
Dallas, TX 75202-2733
DWSRF contact:
Velma Smith
(214)665-7153
(214) 665-6490 (fax)
Region VII: IA, KS, MO, NE
U. S. EPA 901 North Fifth Street
Kansas City, KS 66101
DWSRF contact:
Judy Novak
(913)551-7360
(913) 551-7765 (fax)
Region VIII: CO, MT, ND, SD, UT, WY
U. S. EPA 999 18th Street, Suite 300
Denver, CO 80202-2466
DWSRF contacts:
Brian Friel (ND, SD, WY)
(303)312-6277
Ron Hill (CO, MT, UT)
(303)312-6265
(303)312-6131 (fax)
Region IX: AZ, CA, HI, NV, Guam,
American Samoa
U. S. EPA 75 Hawthorne Street
San Francisco, CA 94105
DWSRF contact:
Jose T. Caratini
(415)972-3566
(415) 947-3549 (fax)
E-Mail: caratini.jose@epa.gov
Region X: AK, ID, OR, WA
U. S. EPA 1200 Sixth Avenue
Seattle, WA 98101
DWSRF contact:
Rick Green
(206)553-8504
(206) 553-0165 (fax)
December 2007
B-2
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