SUMMARY
EVALUATION OF
THE WYOMING WATER
SUPPLY PROGRAM
ENVIRONMENTAL PROTECTION AGENCY, ROCKY MOUNTAIN PRAIRIE REGION
-------
SUMMARY
EVALUATION
OF THE
WYOMING WATER SUPPLY PROGRAM
WATER SUPPLY BRANCH
AIR AND WATER PROGRAMS DIVISION
ENVIRONMENTAL PROTECTION AGENCY
'REGION VIII
/
DECEMBER, 1972
-------
PREFACE
This SUMMARY is condensed from the report, EVALUATION OF THE
WYOMING WATER SUPPLY PROGRAM. It presents the significant study
findings and major recommendations needed to give Wyoming an
effective Water Supply Program. More detailed information con-
cerning the quality and protection of drinking water in Wyoming
is included in the complete report, available from the Wyoming
Department of Health and Social Services as well as from the
Environmental Protection Agency.
-------
TABLE OF CONTENTS
Page
INTRODUCTION 1
PLAN OF STUDY 4
Water Supplies In Wyoming 4
Purpose of Evaluation 4
Water Supplies Studied 5
Program Evaluation 7
SUMMARY 10
Evaluation of Water Supplies 10
Water Supply Program Evaluation 15
RECOMMENDATIONS 19
ACKNOWLEDGEMENTS 23
STATE AND FEDERAL AGENCY ADDRESSES 24
REFERENCES 25
-------
INTRODUCTION
-------
EVALUATION
OF THE
WYOMING WATER SUPPLY PROGRAM
INTRODUCTION
Americans are served the finest and safest drinking water in the
world. Since water was first implicated in the transmission of infec-
tious diseases, more than 100 years ago, water treatment methods and
technology have improved steadily. The dreaded water-borne epidemics,
which one scourged vast areas, are no longer a concern in the United
States, testifying to the efficiency of modern water treatment. As a
result, a certain complacency has developed among our citizens concern-
ing drinking water. The Community Water Supply Study indicated that
this complacency also has spread to the water utilities and regulatory
agencies. The states are much less active in the regulation and sur-
veillance of public water supplies. Public and legislative emphasis
is being placed now on water and air pollution. In order to meet the
outcry and spate of new pollution controls and implementation plans, the
states have had to commit more and more of their resources to these new
environmental concerns. Therefore, less time and money is being devoted
to the drinking water programs. Contrary to popular belief, extensive
water pollution control programs do not assure the public will receive
safe and reliable drinking water. Such assurance can be gained only
from a renewed awareness of the public health importance of drinking
water and the establishment of active water supply programs at the State
level.
-------
2
Recognizing these considerations, Mr. Arthur E. Williamson, P. E.,
Director of Sanitary Engineering Services for the Wyoming Department of
Health and Social Services, requested the Water Supply Branch of the
Environmental Protection Agency to evaluate the Wyoming Water Supply
Program.
The purpose of the evaluation was to determine the effectiveness
of the Wyoming Water Supply Program as well as to recommend any improve-
ments that may be needed to assure the Wyoming residents safe and whole-
some drinking water.
-------
PLAN OF STUDY
-------
4
PLAN OF STUDY
Water Supplies in Wyoming
Wyoming is rich in history, scenery, and wide open spaces. The
population of 332,416 is spread over 97,914 square miles. About 74% of
these people are served by the 107 public water supplies listed by the
State. There are an unknown number of small public supplies, which pre-
sently are not listed or under surveillance by the State. Over 70% serve
less than 1,000 people, which is significant since it is these small sys-
tems which have the most difficulty providing safe drinking water consis-
tently to their consumers. There are an estimated 31,000 private (indi-
vidual) and 600 semi-public water supplies serving 26% of the total popu-
lation. The bacterial and chemical quality of these supplies is, for the
most part, unknown. The semi-public supplies are of particular concern
since they include trailer parks, campgrounds, restaurants, and similar
establishments which serve the more than six million tourists who visit
Wyoming each year.
Purpose of Evaluation
1. To determine the general condition of Wyoming's public, private,
and semi-public water supplies by on-site evaluation, bacteriological and
chemical analyses and examination of existing records.
2. To evaluate the adequacy of the Water Supply Program based on
existing legislation, regulations, manpower, budget, policies, surveil-
lance, laboratory resources, operator training, and the condition of
the water supplies.
-------
5
3. To make any necessary recommendations needed for Wyoming to have
and maintain an effective Water Supply Program in order to assure the
State's citizens and visitors safe drinking water.
Water Supplies Studied
After discussions with Mr. Arthur E. Williamson, P. E., Director of
Sanitary Engineering Services, three of Wyoming's twenty-three counties
were selected for in-<^epth studies of the public, private, and semi-
public water supplies. The three counties - Campbell, Lincoln, and
Natrona - were selected to reflect differences in type of water supply
and surveillance being used. Figure 1 shows the location of water
supplies studied.
Twenty-three public supplies were surveyed in the three counties.
These systems serve about 57,000 people, representing 20 percent of the
State's population using public water supplies. Twelve of the supplies
(the pipeline companies in Lincoln County) were not listed as public
water supplies by the State and had not received any surveillance before
the study. However, they are public water supplies as defined in the
Wyoming Public Health Laws, and therefore were included in the study.
In addition, the communities of Laramie, Saratoga, Sinclair, Rawlins,
Thermopolis, and Worland, which add fluoride to their water supplies were
surveyed to determine the adequacy of the fluoridation program.
Thirteen semi-public supplies, serving over 18,000 people annually,
were surveyed. These supplies represent two percent of the estimated
600 semi-public systems in Wyoming.
A total of 127 individual or private water supplies were evaluated
in the three counties. These systems serve 820 people, or about one
-------
Figure 1
Water Supplies Studied
STATE OF WYOMING
MEPARED 6V THE
WYOMING STATE HIGHWAY DEPARTMENT
PLANNING DIVISION
SCALE
•o o -o n w «OMM
IULIJ-—~::i— x- -- ±rr^
LEGEND
WTERSTATE NUMBERED HIGHWAY ^
U S NUMBERED HIGHWAY ®
STATE NUMBERED HIGHWAY (E3
STATE CAPITAL * Public Water Supply
Public Water Supply
*•'"Complete Study
COUNTY SEAT
OTHER CITIES AND TOWNS ..
*"Fluoridation Study Only
KM*
-------
7
percent of those served by private supplies in Wyoming.
Overall, it was felt that these were a representative cross-section
of Wyoming's water supplies and would provide a good indication of the
effectiveness of the Water Supply Program.
The chemical and bacteriological quality of each supply was judged
on the basis of the 1962 U. S. Public Health Service Drinking Water
Standards (hereinafter referred to as the Drinking Water Standards).
Program Evaluation
The Water Supply Program was evaluated on each of the following:
1. Surveillance of Public Water Supplies - The adequacy of the
State's routine bacteriological, chemical, and facilities-surveillance
activities was evaluated on the basis of available records and the
field surveys.
2. Surveillance of semi-public and private water supplies - This
evaluation was based primarily on the conditions encountered during the
field surveys. The adequacy and responsiveness of the Program to the
problems found was the major area of consideration.
3. Legislative authority - The existing legislative authority of
the Program was reviewed to determine if it has sufficient policy and
regulation-setting power in order to conduct properly its activities and
protect the public health.
4. Regulations and policy - The Program's existing regulations and
policy were reviewed to determine if they were adequate and reflected '
current water supply practices.
5. Laboratory support - A survey of the bacteriological and chemical
laboratories was conducted to determine the capability of each laboratory
to provide adequate support to the Program.
-------
8
6. Budget and staffing - Based on the findings in the above cate-
gories, budget and manpower requirements were calculated and compared with
those of the current Program.
7. Other factors such as the level and adequacy of operator training
and certification, amount of emphasis being placed on fluoridation and
cross-connection control programs, coordination with and technical assist-
ance given to other agencies concerned with water supply, and the status
of water supplies on the national parks were evaluated during the study.
-------
SUMMARY
-------
10
SUMMARY
Evaluation of Water Supplies
Bacteriological Water Quality
Bacteriological testing is essential to determine if drinking water
is safe. Since the isolation of pathogenic (disease-producing) organisms
is complex and time-consuming, coliform bacteria are used as indicators
of the sanitary quality of water. These bacteria are normal inhabitants
of the intestines in warm-blooded animals; therefore are present in
their fecal discharges. The Drinking Water Standards recognizes the
coliform group as a reliable indicator of the bacteriological quality
of drinking water. The presence of coliform organisms in drinking water
suggests either inadequate treatment or access of contaminants to the
water after treatment. Failure to meet the bacteriological quality
standards indicates that drinking water is a potential carrier of in-
fectious disease. Such a situation is a serious potential health hazard
and calls for immediate corrective action.
1. Thirty-three percent (33%) of the 107 public water supplies
failed to meet bacteriological quality standards for one or
more months during 1971. These systems serve approximately
32,500 people.
2. Thirty-one percent (31%) of the 13 semi-public supplies tested
failed to meet bacteriological quality standards. These
systems serve an estimated 1,900 people annually.
-------
11
3. Twenty-eight percent (28%) of the 127 individual water supplies
tested failed to meet bacteriological quality standards. These
supplies serve about 240 people.
Chemical Water Quality
Drinking water should not contain substances which are toxic or cause
adverse health effects in man. Many harmful elements do occur naturally
in the earth; therefore can be present in any water supply. The Drinking
Water Standards has established mandatory chemical standards for such
substances. If the mandatory limits are not met, the water supply should
be rejected.
1. Nine percent (9%) of the 23 public water supplies studied
failed to meet mandatory chemical drinking water limits. These
systems serve about 3,230 people with water that could cause
adverse health effects.
2. Seven percent (7%) of the 127 individual water supplies tested
failed mandatory chemical drinking water standards. These
supplies serve about 60 people.
Good quality drinking water should not contain substances which
adversely affect its appearance, odor, or taste, and cause undue discom-
fort to man. The Drinking Water Standards has set recommended chemical
limits to assure that drinking water contains no substance in concentra-
tions which would render it undesirable. When the recommended standards
are not met, consideration should be given to selecting a more suitable
source of water supply.
1. Thirty-five percent (35%) of the 23 public water supplies tested
failed to meet recommended chemical drinking water standards.
-------
12
These systems serve approximately 52,540 people with aesthetically
inferior water.
2. Forty-six percent (46%) of the 13 semi-public supplies tested
failed to meet recommended chemical drinking water standards.
These systems serve about 2,300 people annually.
3. Sixty-five percent (65%) of the 127 individual water supplies
tested failed to meet recommended drinking water standards.
These supplies serve 530 people.
Facilities
Water supplies include everything needed for the collection, treat-
ment, storage, and distribution of drinking water from the source to
the consumer's tap. Whether the facilities include an elaborate treat-
ment plant or just a chlorinator, they must be able to produce consistently
adequate quantities of safe drinking water and prevent contamination
from entering the system at any point. Any condition, device, or
practice in the water supply system and its operation, which allows water
of questionable quality to be provided to the consumer, constitutes a
health hazard.
1. Of the 23 public water supplies studied:
a. Seventy percent (70%) needed additional treatment facilities
and eighty-three percent (83%) needed improvement in the
operation of present facilities in order to assure safe
drinking water at all times.
b. Ninety-six percent (96%) were not providing adequate dis-
infection (chlorination). Unsatisfactory disinfection
removes the margin of safety against disease transmission
by water.
-------
13
c. Ninety-six percent (96%) had operators with little or no
training in water treatment or systems, which accounts for
the poor operation, maintenance and quality-control noted
during the study.
2. Of the six public water supplies in Wyoming which fluoridate:
a. Only two were maintaining a fluoride concentration within
the range recommended by the State. The other four were all
underfeeding, significantly reducing the benefits of fluori-
dation.
b. Four had inadequate fluoride feed and control equipment.
3. Of the 13 semi-public water supplies studied:
Eighty-five percent (85%), serving an estimated 14,300 people
annually, were given an overall unsatisfactory rating due to
deficiencies. None of the 13 systems disinfected their water
supplies.
4. All of the 127 individual supplies studied had one or more
facility deficiencies. Very few were constructed to prevent
entrance of contamination.
Surveillance
The surveillance of water systems is one of the most important duties
of state and local health officials. It demands constant vigilance over
water quality, water system facilities and operational practices. The
bacteriological and chemical quality of drinking water must be routinely
monitored to detect possible contamination. To prevent serious health
hazards from developing in a water supply, the physical facilities and
operational procedures must be reviewed regularly by personnel trained'
in proper water supply practice.
-------
14
1. Not all of the public water supplies are listed or under sur-
veillance by the State. Twelve of these supplies were found
during the study.
2. Of the 107 public water supplies listed by the State:
a. Only nine percent (9%) had a formal inspection during 1971.
b. Twenty-seven percent (27%) have not had an engineering evalu-
ation since 1967.
c. Thirty-five percent (35%) failed to submit the required
number of bacteriological samples for two or more months
during 1971.
d. Fourteen percent (14%) have been rated unsafe by the State
for at least three years.
e. Ninety-six percent (96%) have never had a complete chemical
analysis performed on their water. There is no routine
chemical sampling program. This is a serious deficiency
since certain chemical constituents can cause adverse
public health effects.
3. Of the six water supplies which fluoridate:
a. None submitted routine check samples to the State during
1971.
b. Only two were inspected during 1971.
4. With the exception of Natrona County, there is no effective
surveillance of the estimated 600 semi-public supplies. The
actual number of supplies is unknown. Sanitary surveys of the
water sources are not being conducted. Very few are submitting
routine bacteriological samples and none are submitting samples
for chemical analysis.
-------
15
5. An effective level of surveillance of semi-public and indivi-
dual supplies was being provided by the local health department
(Casper-Natrona County Health Department) studied. Extensive
bacteriological testing is being conducted, as well as sanitary
surveys of water sources and septic tank installations. As a
result, Natrona County had a much lower percentage of contami-
nated Individual supplies than the other two counties surveyed.
6. There are__only two local health departments in the State, which
limits the overall surveillance and technical assistance programs.
Water Supply Program Evaluation
Several Wyoming statutes place legal responsibility concerning public
and semi-public water supplies in the Department of Health and Social Ser-
vices. Presently, the Water Supply Program activities are conducted by
Sanitary Engineering Services (public water supplies) and Environmental
Surveillance and Control Services (semi-public and individual supplies).
However, these agencies have many other program responsibilities, includ-
ing water pollution control, solid wastes, food service establishments,
hospitals, nursing homes and schools. The result has been a steady de-
emphasis on water supply activities. The funds and man-years available
for drinking water protection in Wyoming are inadequate to support an
effective program. A total of only about $44,000 was spent on drinking
water activities during fiscal year 1971. As a comparison, almost twice
that amount was expended for water pollution control. The percentage of
Sanitary Engineering Services1 budget alloted to public water supplies
actually decreased from 23% in fiscal year 1971 to 19% in fiscal year 1972.
-------
16
Staff limitations have prevented the Water Supply Program from ful-
filling its responsibilities. Only 1.7 professional man-years are avail-
able, which represents a 50% decrease in staff during the last ten years.
However, the number of water supplies and responsibilities has continued
to increase. As a result, important water supply activities are not
being performed, or they are being performed only in a -cursory manner
seriously reducing the Program's effectiveness.
Stronger State action is needed to correct water supply system defi-
ciencies, especially when systems are rated unsafe year after year. The
penalties for violating public health regulations are ill-defined and
insufficient in regard to water supplies. The lack of legislation enab-
ling the Department of Health and Social Services to adopt drinking water
standards and a plumbing code also hampers surveillance activities.
Wyoming has very few regulations concerning development, construc-
tion, acceptable treatment, and operation of water supplies. There are
no chemical quality standards for raw or finished drinking water, nor
definitions of minimum acceptable treatment for types of water sources.
No provisions are made for the orderly development of new public water
supplies, nor minimum design or construction requirements. There are
construction standards for water wells, issued by the State Engineer's
Office, but they are not being enforced. Water well contractors are not
required to be licensed. The lack of well-defined regulations and poli-
cies has caused problems for Water Supply Program staff as well as water
works officials.
Operator training and certification activities have just started,
therefore; most operators have little or no training, resulting in many
of the operational difficulties noted during the study.
-------
17
A false sense of security exists-concerning the safety of water
supplies in Wyoming. The Wyoming Water Supply Program is not meeting
its responsibility of protecting the quality of water served to the
State's residents and visitors. This situation has resulted from the
steady decline in resources allocated to water supply activities. The
time has come to reverse this trend. Waterborne disease outbreaks
have occurred in Wyoming, and essentially in all the cases, it was
shown that deficiencies existed in the water supply systems during
the time when disease was transmitted. Furthermore, these deficien-
cies either were unrecognized because of inadequate surveillance for
public health hazards, or were recognized but not remedied due to in-
effective persuasion or enforcement by health officials. Deficiencies
similar to those responsible for the outbreaks are present in the
water supplies of Wyoming and were found during this study. The
requisites for repetition of the tragic waterborne outbreaks of the
past, namely inadequate surveillance of water supplies serving the
public, and the presence of diseased individuals, definitely exist
in Wyoming. An increase in the occurrence of waterborne disease
obviously would cause needless human suffering and might result in
a sharp reduction in the $150 million which tourism brings into
Wyoming each year. In other words, Wyoming no longer can afford to
overlook the importance of the Water Supply Program and shirk its
responsibilities to protect the public health of its citizens.
The recommendations of this report need to be implemented if Wyoming
is to assure each resident and visitor an adequate and safe supply
of drinking water.
-------
•i •;,' UM
X U. li.tl
RECOMMENDATIONS
-------
19
RECOMMENDATIONS
A primary purpose of the evaluation was to propose recommendations
needed for Wyoming to have an effective and responsive Water Supply Pro-
gram. These recommendations are listed below:
1. A Water Supply Branch be formed within Sanitary Engineering
Services to be responsible for all public, semi-public and
individual water supply activities. The Branch should have
a minimum annual budget as follows:
a. Water supply activities - $105,000
b. Laboratory services - $ 45,000
Total - $150,000
2. The Water Supply Branch be staffed initially with six profes-
sionals and three secretaries.
3. The water supply activities be decentralized by assigning one
man-year each to district offices in Rock Springs, Worland,
Gillette and Torrington.
4. Adequate space and equipment be provided for suitable bacterio-
logical and chemical laboratory facilities in order to conduct
routine drinking water analyses. An additional bacteriologist,
two chemists, and a secretary should be hired specifically for
this purpose.
5. Legislation be enacted concerning the following items:
a. To change the definition of a public water supply to include
all water supplies which serve the public.
b. Delegating authority to the Department of Health and Social
Services to adopt drinking water standards.
-------
20
c. Delegating authority to the Department of Health and Social
Services to specify required minimum forms of treatment for
water sources.
d. Phasing the voluntary certification program into mandatory
certification of waterworks and wastewater operators.
e. Mandatory fluoridation of community water supplies serving
more than 500 people.
f. Adoption of a State Plumbing Code with specific provisions
prohibiting cross-connections.
g. Mandatory certification of water well contractors.
h. Adoption of procedures for the orderly development of new
public water supplies.
6. The Water Supply Regulations be revised and expanded to reflect
current water supply practice. The following specific items
should be included:
a. Adoption of the 1962 U. S. Public Health Service Drinking
Water Standards or their latest revision.
b. Mandatory disinfection of all water systems serving the public.
c. The proper development and planning of new water supplies,
including minimum design criteria.
d. Require that plans and specifications be prepared by a pro-
fessional engineer registered in Wyoming.
e. Require all supplies which serve the public to submit routine
samples for bacteriological and chemical analyses.
f. Require an engineering inspection in addition to bacteriolo-
gical and chemical analyses before any system which will
serve the public is allowed to go into service.
-------
21
g. All communities which fluoridate be required to submit
routine check samples for analysis.
h. Require that a legally constituted group be designated in
charge of each public water supply.
i. Require each public water supply to submit operating reports
on a periodic basis.
7. The Water Supply Program increase and improve its surveillance of
public and semi-public water supplies to at least the minimum
levels outlined in the Drinking Water Standards and the Manual for
Evaluating Public Water Supplies. These activities should include
but not necessarily be limited to:
a. Thorough periodic sanitary surveys of each system, setting
priorities and time schedules for those systems having defi-
ciencies. Normally, all supplies should have a formal inspec-
tion, including a report, annually. Supplies which fluoridate
should be surveyed at least twice a year.
b. Bacteriological surveillance sufficient to meet the 1962 U. S.
Public Health Service Drinking Water Standards.
c. Routine complete chemical analyses of all supplies.
8. Cooperative compliance with the Regulations of the Water Supply
Program continue to be emphasized. However, if cooperation and
persuasion fail to achieve prompt compliance, strong enforcement
measures should be taken to protect drinking water and public
health.
9. The State actively promote and assist in the establishment of
local health departments.
-------
22
10. Provisions be made for close coordination between the Water
Supply Program and other governmental functions which affect
water supplies, including:
a. State Engineer's office,
b. Farmers Home Administration,
c. Local health departments.
Regulations of other state agencies should reflect that princi-
pal authority for regulation of water supplies rests with the
Water Supply Program.
-------
23
ACKNOWLEDGEMENTS
The assistance and cooperation of the following people and their
respective staffs are acknowledged gratefully:
Mr. Arthur E. Williamson, Director, Sanitary Engineering Services -
Wyoming Department of Health and Social Services.
Mr. Robert Coffman, Director, Environmental Surveillance and Control
Services - Wyoming Department of Health and Social Services.
Mr. Nix Anderson, Director of Environmental Health -
Casper-Natrona County Health Department.
Mr. Don Hansen, County Supervisor, Lincoln County -
Farmers Home Administration.
A special thanks is expressed to all residents, waterworks personnel
and community officials who provided information and generously cooperated
in the study.
THE MENTION OF PRODUCTS OR MANUFACTURERS IN THIS REPORT DOES NOT
IMPLY ENDORSEMENT BY THE UNITED STATES ENVIRONMENTAL PROTECTION
AGENCY.
-------
24
STATE AND FEDERAL AGENCY ADDRESSES
A. State:
Wyoming Department of Health and Social Services
Division of Health and Medical Services
Sanitary Engineering Services
State Office Building
Cheyenne, Wyoming 82001
Telephone: 307/777-7513
B. Federal:
Environmental Protection Agency, Region VIII
Air and Water Programs Division
Water Supply Branch
1860 Lincoln Street
Denver, Colorado 80203
Telephone: 303/837-3914
-------
25
REFERENCES
Bureau of Water Hygiene, U. S. Public Health Service,
Community Water Supply Study - Analysis of National Survey Findings,
Washington, D. C., Government Printing Office, 1970. Ill p.
U. S. Public Health Service, Drinking Water Standards,
Washington, D. C., Government Printing Office, 1962. 61 p.
Bureau of Water Hygiene, Environmental Protection Agency.
Evaluation of the Tennessee Water Supply Program. Atlanta, 1971,
208 p.
U. S. Public Health Service, Manual for Evaluating Public Drinking
Water Supplies. Washington, D. C., Government Printing Office,
1969. 62 p.
------- |