Imted States Environmental Protection Agency An Indian Fellowship Training Program For Small Water Supply System Operators ------- ------- AN INDIAN FELLOWSHIP TRAINING PROGRAM FOR SMALL WATER SUPPLY SYSTEM OPERATORS This document is prepared by Kenneth D. Kerri Office of Water Programs Applied Research and Design Center School of Engineering California State University, Sacramento and Michael Cherniak and John Carnegie Environmental Training Consultants, Inc. Corvallis, Oregon as a Final Report for Training Grant No. T-901565-01-1 Ken Hey and Al Havinga, Project Officers U.S. Environmental Protection Agency Office of Drinking Water 1988 ------- U.S. ENVIRONMENTAL PROTECTION AGENCY NOTICE The objective of this document is to provide persons responsible for the training of Indian opera- tors of small water supply systems with a guide to various effective modes of training available. The procedures described in this document are the result of a pilot training program on tribal water supply systems located in the states of Arizona, Nevada, New Mexico, Montana, Utah and Wyo- ming. Copies of this document are limited and not scheduled for reprinting. DISCLAIMER Mention of trade names or commercial products does not constitute endorsement nor recommenda- tion for use by the Environmental Protection Agen- cy; California State University, Sacramento; Environ- mental Training Consultants, Inc.; or the Indian tribes participating in this project. ------- CONTENTS AN INDIAN FELLOWSHIP TRAINING PROGRAM FOR SMALL WATER SUPPLY SYSTEM OPERATORS PAGE WATER SUPPLY SYSTEM NEEDS 5 PILOT PROJECT OVERVIEW 6 Purpose 6 Program 6 Participants 6 Outcomes 6 NEED FOR TRAINING PROGRAM 7 PILOT PROJECT IMPLEMENTATION ........................................ 8 Startup Activities [[[ 8 Training Procedures ................................................ 8 Factors Affecting Project Implementation .............................. 9 PILOT PROJECT OUTCOMES ............................................ ] ° Project Completion Rates .............. ............................. 1 ° Certification Levels ................................................. 1 ° Benefits of Trainer Visits .............................................. 10 System Improvements Reported by IHS Officials .......................... 11 Participants' Comments ............................................. 12 Problems Remaining ................................................ ' 2 What Needs to be Done ............................................. ] 2 RECOMMENDED TRAINING PROGRAMS ................................... 13 Tribal Managers [[[ ' [ ^ New or Untrained System Operators ................................... ' 3 Additional Suggested Training Sessions ................................. 14 SUMMARY [[[ ]jj Accomplishments .................................................. ]^ Tribal Councils [[[ ] 5 APPENDICES A. Evaluation of Water Supply System O & M Program ....................... 17 1 . Administrative Support System Self-Assessment ...................... 17 2. Cost Analysis Checksheet ......................................... 3. O & M Checklist .................................................. 20 B. Essentials Of An Effective Training Program ............................ 22 C. Elements of a Quality Water Utility ................................... 25 D. Summary of Systems (Reservations, Tribes, Operators and Systems) .......................... * ' ------- WATER SUPPLY SYSTEM NEEDS Small water supply systems on reservations must be properly operated and maintained by trained and enthu- siastic operators. Water supply system operators can deliver high quality drinking water provided their Tribal Councils and officials support and encourage the opera- tors. This Indian Fellowship Training Program has helped operators gain the knowledge and skills essential for delivering good drinking water. A very serious problem facing most of the water supply system operators who participated in this program was the need for reliable and adequate sources of revenue to support the system. Serious technical and managerial problems were encoun- tered at numerous reservations and many of these prob- lems were resolved during this training project. This report discusses the operator training program, what the opera- tors learned, and the ways Tribal Councils and officials can help operators do a better job. ------- PILOT PROJECT OVERVIEW Purpose: The purpose of this pilot training project was to train water supply system operators and refine a three- pronged training approach designed to produce opera- tors capable of delivering safe drinking water. Training took place in Indian communities in Arizona, Nevada, New Mexico, Montana, Utah, and Wyoming during the period from October, 1985. to May, 1988. Program: The training project, directed specifically to the needs of small system operators in Indian villages, consist- ed of: 1. Direct training in classrooms conducted by persons recognized for their expertise in both classroom teach- ing and the operation and maintenance of water supply systems; 2. Correspondence training which required the operators to study a training manual on the operation and maintenance of water supply systems and to pass objective tests (12 tests) at the end of each chapter in the training manual; and 3 On-the-job (over-the-shoulder) training conducted by the direct trainers and the Indian Health Service (IMS) area representatives. This portion of the program con- sisted of helping the operators apply the other phases of training to their particular water supply facilities and assistance with arithmetic problems related to water supply facility operation and maintenance (O & M) and certification examinations. 4. Workshop training one year after final technical train- ing to serve as a refresher, assistance with implementa- tion of previous training, and enhancement of man- agerial skills. Participants: Participants were selected on the basis of demonstrated dedication to their job, motivation to par- ticipate, and employment (or expectation of employ- ment) with a tribal water supply system. Most were high school graduates although a few were not; a few had completed one or two years of college course work. Of the 47 operators recruited to participate in this program, 35 successfully completed the entire program, and two were unable to complete all of the course work. The other ten either did not attend any sessions or only the first session. Following completion of the project, three participants upgraded their certification levels and 16 became newly certified. Outcomes: This pilot project enabled the trainers to refine the three-pronged training approach to more closely meet the specialized needs of Indian operators of small water supply systems. Evaluations by participants, instruc- tors, and IMS representatives unanimously judged the overall project successful. Included in this report is a detailed outline of the revised training strategy recom- mended by the trainers for future projects of this kind (see Appendix B). In terms of hands-on operator training, the project produced some notable advances in operator skills and knowledge (detailed in the body of this report). At the same time, it has become apparent to the trainers that increased effort must be directed towards the goal of greater involvement of Tribal Councils whose active sup- port is absolutely crucial to a utility operator's success. ------- NEED FOR TRAINING PROGRAM For decades, Indian tribal groups have defended their right to govern their own affairs. They have sought inde- pendence from external regulation and attempted to establish self-sufficient communities. In many cases, small, isolated Indian communities are trying to deal with the complexities of providing utility services, including safe drinking water. The operators of these small water supply systems face a very difficult and often discouraging situation. In many cases, they have had little or no actual training in how to operate a water supply system, how to set up a preven- tive maintenance program, or how to estimate costs and manage funds. Yet, their job responsibilities include all the tasks of managing a small water supply system, some of which are listed below. Maintain wells, pumps, storage tanks, distribution pipes and hydrants, and all other system equipment; Schedule the operation of pumps and water storage facilities, maintenance work, and parts and supply purchases; Adjust electronic controls and chemical feeders; Collect samples and perform laboratory tests; Conduct safety inspections and follow safety rules; Maintain records, including operating logs, chemical usage and inventories, equipment maintenance and daily diaries; Read water and electrical meters; and Develop budgets, allocate available resources, and plan for the future. Most small water supply system operators would be expected to perform these functions. In addition to these responsibilities, however, the operators of water systems on Indian reservations and villages also must respond to a set of problems and expectations unique to their Indian communities. For example: Operators' mechanical ability often makes them the first person the tribe contacts to weld broken equip- ment, maintain buildings, repair plumbing, grade roads, and fix vehicles. As a "public servant," operators are also frequently asked to assist community members in plowing fields. harvesting crops, baling alfalfa, and digging graves. Tribal community and extended family relationships influence an operator's ability to impose and collect utility user fees and delinquent account assessments. The attitude of the community's governing body, the Tribal Council, greatly influences a utility operator's success in achieving a self-sufficient water supply system for the community. An indifferent or uninformed Council cannot expect its utility operator to do the job alone. Without Council support, operators are essen- tially powerless to upgrade services and their own skills. An extremely important step for a tribe towards achiev- ing self-sufficiency is creating a water supply program that functions on its own revenues. Water supply system operators are the most important people for making sure a community has a dependable and safe drinking water supply. Everyone expects a clear, refreshing drink of water when they turn on the faucet; water supply system operators are the people responsible for making this happen. To do this job, however, operators need the support of their Tribal Councils to get appropriate training. It is not enough to rely on someone's knack for fixing things. Operators could do their jobs better and more efficiently if they could receive some specific training in operating a water supply system. While such training is not widely available to operators in remote areas, it can be made available through the active involvement of Tribal Councils. Considerable time and effort is necessary to set up and maintain a self-sufficient water supply system. This re- quires a full-time paid position with back-up assistance and relief help when necessary. A successful program requires strong administrative support and a committed Tribal Council. Council leadership in defining the goals of the commu- nity is an important first step. Most successful water utility agencies spell out their goals in very specific terms. This process enables them to evaluate their system's strengths as well as its shortcomings; to establish priorities when allocating resources; and to measure their progress to- wards self-sufficiency. Typical water utility goals include the following: Deliver sufficient water of suitable quality when and where needed. Protect the public health of the community (avoid "boil water" notices). Minimize breakdowns, disruption of service and emer- gency repairs. Develop and implement a preventive maintenance program which minimizes the costs of operating and maintaining a water supply system. Conduct a safety program dedicated to the preven- tion of safety hazards and accidents. Develop and implement a water-user charge program which produces sufficient revenue to cover the costs of operating and maintaining the water supply system, as well as contributing to an equipment replacement fund. Appendix A of this report contains a self-assessment form that can be used by water utility agencies to review the status of their water supply system and to establish their own system goals. ------- PILOT PROJECT IMPLEMENTATION Startup Activities: An organizational meeting was the first activity of this training project. EPA officials from the Office of Water Supply in Washington, DC, the Project Director, and both direct trainers met with regional EPA officials, IMS officials and IMS regional field representatives in Billings, Montana, and Phoenix, Arizona. The objectives of these meetings were to: Acquaint everyone with the purpose and details of this project, Determine selection procedures for the EPA Fellowship Operators, Schedule proposed training dates, Identify potential problem areas, and Prepare a strategy for success. During this initial meeting, project staff emphasized the need for Tribal Council support of the operators and the water supply system. Forty-seven operators were selected for this training project based on demonstrated dedication to their job, motivation to participate, and employment (or expecta- tion of employment) with a tribal water system. In each case, appropriate tribal officials were promptly notified of the selections and were asked to provide whatever sup- port they could to ensure the operator's successful com- pletion of the program. Training Procedures: 1. Direct Training - Four direct training sessions were held for the operators. The training sessions were held between two and three months apart depending on the season of the year, holidays and scheduled tribal ceremonies. Each training session started after lunch the first day, lasted the entire second day, and finished at noon on the third day. These training sessions emphasized operator participation in classroom discussions. Special attention was given to water supply problems actually confronting the opera- tors. Classroom worksheets were developed for classroom assignments and to encourage operators to share with each other how they attempted to solve specific prob- lems related to their water supply systems. The correspon- dence training manual was used as the basic classroom textbook. Topics covered in the classroom included: 1. The Water Supply System Operator, 2. Water Sources and Treatment, 3. Wells, 4. Small Water Treatment Plants, 5. Storage Facilities, 6. Distribution System Faciliites, 7 Water Quality Considerations in Distribution Systems, 8. Distribution System Operation and Maintenance, 9. Disinfection, 10. Fluoridation, 11. Safety, and 12. Laboratory Procedures. Class presentations were enhanced by slides, over- heads, demonstrations and handout material. Each oper- ator was provided with an electronic calculator and special evening sessions were held for operators needing practice solving arithmetic problems. 2. Correspondence Training - The direct training sessions covered material in the training manual, WATER SUPPLY SYSTEM OPERATION. After each direct training session, specific objective tests consisting of true-false and multi- ple choice questions were assigned to the operators. The operators were expected to review the material when they returned home, to work the objective tests, and to submit the completed test to California State University, Sacramento. The tests were graded, missed questions explained, solutions to arithmetic questions provided as necessary, and returned to the operator. Copies of the results were provided the direct trainers, IMS officials, and EPA's project manager in Washington, DC. 3. On-The-Job Training - IMS area representatives met regularly with the operators throughout the duration of this project. They encouraged the operators to work the objective tests, provided assistance when necessary, and related the training project to the actual operation and maintenance of the operator's water supply system. The direct trainers visited each operator after the first direct training session. The purpose of this visit was to determine the components of each operator's system, to evaluate existing O & M practices, and to identify prob- lems hindering the operators' and water supply systems' performance. - ------- Each operator was visited at his facilities after the final direct training session. The Project Director, direct trainer and at least one IHS representative participated in this visit. Tribal officials were notified in advance regarding the date of the visit and were advised that their operator had successfully completed a rigorous university training program. If tribal officials were available, the Certificate of Completion was presented during this meeting. This meeting provided an opportunity to inspect the opera- tor's facilities, to review operator accomplishments, and to note problems still confronting the operator. Approximately one year after the final direct training session the trainers met with each operator at his facility. Progress to date was reviewed during this meeting, sug- gestions were made how to implement additional im- provements, and each operator was given an assignment for presentation at the workshop training session. The workshop training session provided the operators an op- portunity to explain their successes to the other operators and to discuss solutions to areas needing improvement. Emphasis was placed on enhancing maintenance pro- grams, communications and managerial skills. Factors Affecting Project Implementation: Information gathered by the trainers during the initial class sessions and site visits was used to refine the remainder of the training program. Factors considered important by the trainers in making program revisions included problems faced by operators in their present positions and the status of operators' water supply systems when the pro- gram began. Almost all of the operators were confronted with the problem of inadequate tribal support. Operators report that supervisors and tribal officials do not understand the time and effort an operator's job requires, nor do they fully appreciate the importance of a dependable, self-suffi- cient water supply system. The operators themselves recognize the importance of job training but lack the time and resources to become certified through their own efforts. They will need the help of the Tribal Council to upgrade their skills and to find suitable ongoing training opportunities. Most participants also cite the following problems: An excessive number of assigned "extra" tasks includ- ing hauling water to isolated homes; working on live- stock water supply systems; pumping septic tanks; managing the wastewater collection system; and col- lecting and hauling garbage, A lack of relief and back-up operators, A lack of written operating procedures, preventive maintenance policy, or spare parts inventory, and Inadequate budgets (most operators work for mini- mum wages or volunteer their labor) due to ineffective or nonexistent mechanisms for collecting water-user charges. Ten additional observations about operators and their facilities influenced revisions of the training program. Our observations were as follows: 1. Most operators had a high school education. Some had one or two years of college while others had not completed high school. Operators exhibited a high level of water supply system O & M interest, enthusiasm and service to their reservation. Many operators worked for minimum wages or what amounts to a voluntary contribution. Most operators used their own vehicles and were not reimbursed. 2. Most water supply systems were in adequate to good physical shape to supply, treat, store and distribute water to homes. 3. Equipment and facility problems resulting from im- proper design were not a limiting factor to proper system O & M. 4. Four out of five water supply systems lacked specif- ic utility budgets. Although most water supply sys- tems had a fee structure in place, effective mecha- nisms for collecting fees were lacking. Close family and friendship ties compound enforcement actions of delinquent accounts. Water is typically viewed as an inalienable tribal right. Formal financial sup- port for water supply monitoring and O & M pro- grams was deficient in over 75 percent of the villages. The water supply system O & M funding, often subsidized from general revenues, was usually on the bottom of the priority list for available funds. 5. There was a general lack of formal water usage logs. 6. Sampling programs required under the Safe Drink- ing Water Act (SDWA) were being conducted rou- tinely on some reservations and not on others. 7. Younger operators lacked training in technical, me- chanical, recordkeeping and interpersonal man- agement skills. 8. Three out of every five systems lacked spare parts inventories and formal purchasing procedures (use of purchase orders and appropriate authorization). 9. Generally there existed an inadequate knowledge of the importance of sanitary practices (disinfec- tion). 10. A lack of management skills in determining work priorities, scheduling and purchasing procedures was observed. In summary, the facilities were adequate, the operators were intelligent and dedicated; however, there was a lack of financial and/or philosophical commitment to a consumer-supported water supply system. The lack of adequate funding was caused by an absence of an effective mechanism for collecting water-user charges or the funds were diverted to the tribe's general fund rather than into a special utility fund. ------- PILOT PROJECT OUTCOMES The success of this project can be measured in several ways, by both formal and informal methods. This section contains specific data about how many operators com- pleted the program, how many dropped out and why. and about operator certification levels before and after the program. Also included are detailed specific water system im- provements as identified by the direct trainers, the IMS officials, and the operators themselves. Program Completion Rates: Forty-seven operators were recruited to participate in the training project; thirty-five successfully completed the training program. Two were unable to complete all of the objective tests at the end of the chapters in the correspondence course. Ten operators did not complete the course. Of these ten, four never attended any of the training sessions. Apparently they lacked the necessary motivation and/or Tribal Council support. Two operators quit and left the business One operator had a six-month temporary posi- tion and quit when he was not given a permanent position. Another operator was relieved of his job be- cause he did not or was unable to get his driver's license renewed. Two of the people were officials from a utility commission. They were allowed to participate to provide an opportunity to evaluate the interest and performance of nonoperators in responsible positions. They quit when they learned the training program required participants to study and pass exams. No one dropped out of the program after the first training session. Certification Levels: Certification is an examination ad- ministered by a state or professional association that operators take to indicate a level of professional compe- tence. Operators should be encouraged to pursue certifi- cation. Certification is documentation that a competent operator is responsible for the tribe's water supply system. Many of the operators participating in this training program expressed a desire to become certified. Five of the operators were certified at the beginning of the project and three have since improved their level of certification. One operator failed his first certification attempt with a score of 40 percent, but passed his next certification exam after this program. The certification record at the time of preparation of this report is as follows: Improved Level of Certification 3 Newly Certified 16 Benefits of Trainer Visits: The purposes of the trainer visits to the operator's facilities were to familiarize the trainer with the water supply system and to relate the classroom training to the operator's operation and maintenance problems. Other benefits included the opportunity for the trainer to develop a rapport with the operator in an informal situation and also to encourage and motivate the operator. The following is a listing of some of the actual benefits that resulted from direct trainer visits to the operator's facilities. OPERATION Disinfection of a water storage reservoir was demon- strated. Operators were shown how to perform jar tests and apply the results. Operators became more comfortable adjusting chemical feeders. Operators learned how to prevent fluoride feed lines from clogging. On-site instruction was provided on how to operate pumps on an alternating basis. MAINTENANCE A filing system was developed and implemented on valve and hydrant maintenance. An inventory of a utility shop was conducted. A time clock was discovered that was not working properly and the appropriate adjustments were made so the clock functioned properly. A cracked diaphragm on a chemical feed pump was discovered and repaired during a troubleshooting ses- sion. A broken bushing was discovered on a circulating pump. The correct use of a tapping machine was explained and demonstrated. SAMPLING Operator developed and established sampling proce- dures. Operator unable to measure chlorine residual 200 feet downstream from chlorine injection point. Substances in water interfering with test were identified as cause of problem. : ------- DESIGN Trainer assisted operator in redesign of intake, pre- treatment, clarification and chemical feed systems. The lack ot surge control equipment on a pumping system was identified as the cause of damaging vibra- tions and burst water mains. The cathodic protection system for a natural gas transmission main was identified as the probable cause of a serious corrosion problem in a well. The connection of pipes to a meter of dissimilar metal was identified as the cause of a corrosion problem. The use of plastic fittings was recommended to cor- rect the problem. Operators discovered cross-connections in an irriga- tion system and learned how to correct the problem. COMMUNICATION Trainer recommended operator improve documenta- tion of activities and request relief assistance. Opera- tor improved documentation, requested and received relief assistance. Other benefits resulting from the trainers' visits included an incentive for operators to clean up their facilities to impress the trainers. These visits also enhanced the pres- tige of the operators in the eyes of the tribal officials who met with the trainers. System Improvements Reported by IMS Officials: One means of evaluating the effectiveness of training pro- grams is to observe improvements implemented by oper- ators in the actual operation and maintenance of their systems. IMS officials have reported the operator accom- plishments listed below. OPERATION Operators are questioning how and why things are done, rather than just repeating what was done by the previous operator. Forms showing flows pumped and chemicals used are better kept in pump houses. Chlorine residuals are run after a water main break has been repaired to verify if system has been properly disinfected. Analysis of water supply and demand quantities has been conducted to better utilize available pumping and storage capacities. Operators understand the need to perform alkalinity tests and apply the results. MAINTENANCE Repair of emergency situations is taking less time due to improved skills and better inventory of needed repair tools, supplies and materials. Administrators are more committed to a scheduled preventive maintenance program. They are more will- ing to purchase the necessary tools and equipment and also to commit the necessary manpower within the constraints of their budget. Operators have improved their spare parts inventory and have made purchases of several key pieces of equipment, such as a trash pump and some wrenches. Service on fluoride and chlorine feed equipment has improved. Seal replacement is now scheduled on an annual basis. The work order system for preventive maintenance has been improved. A distribution system flushing program has been devel- oped and implemented. Valves in the distribution system are being exercised on a regularly scheduled basis. Fire hydrant valves are being exercised for the first time in several years. SAMPLING Many reservations have a long history of compliance with the Safe Drinking Water Act (SDWA) sampling requirements. At other reservations formal sampling programs have been developed and implemented. Where sampling and reporting had been inadequate, the number of samples has increased to meet EPA requirements and recordkeeping has vastly improved. One operator is performing his own coliform tests immediately upon notification from a certified lab of a positive result from a coliform test. Operator has obtained a fluoride test kit and is using results to adjust chemical feed rates. RECORDKEEPING Recordkeeping of O & M practices has improved. Operators have a better understanding, interpretation and application of recorded data. All tools have been marked and a record is being kept as to what tools belong with each piece of equip- ment. A sign-out board is being used by all operators to maintain and upgrade shop tool inventory. 11 ------- WATER USER RATES A rate study was conducted and a rate increase was instituted as a result of the study. The billing system for water usage and the user fee collection program have both improved. COMMUNICATION Operators from different tribes are communicating with each other, sharing equipment and helping each other during emergencies. Operator requested and obtained a utility vehicle and back-up labor assistance. Operators have displayed greater confidence in com- municating with supervisors, customers and water board members. Operators are more vocal regarding need for in- creased revenue and back-up support to operate their systems. TRIBAL COUNCILS Tribal leaders and water committee members are aware of the training program. Tribal authorities recognize the importance of water, but many are reluctant to require the collection of essential fees to support the water supply system. RECOGNITION AND AWARDS Operator was assigned the responsibility to assist in the instruction of new operators and granted the responsi- bility for a new wastewater treatment plant. An operator was promoted to water supply system manager. Two operators received a regional award for the best fluoridation program. Two operators have achieved certification for the first time and three have improved their level of certifica- tion to date. Four operators have received pay raises. Participants' Comments: At one of the last training ses- sions operators were asked to comment anonymously regarding the training program. Every operator who re- sponded had enthusiastic comments. Typical statements indicated that the operators learned: A lot of valuable information related to their jobs; How to determine what tools and equipment are needed to do a job and how to acquire needed tools, equipment and supplies; Helpful arithmetic skills, but still need more assistance and practice; How to properly operate and maintain their facilities; Techniques to explain to their superiors the impor- tance of adequate resources and proper O & M; Other operators have similar problems; and Procedures to determine the costs involved in the operation and maintenance of water supply systems. Many operators commented that they would appreci- ate refresher courses and advanced courses on these topics and other subject matters related to their jobs. Problems Remaining: The previous paragraphs have do- cumented the improvements in water supply systems as a result of this training project. Some water supply systems had relatively few problems at the start of this project. Many of the items listed represent improvements at one system. Many water supply systems still have serious tech- nical and managerial problems that could be resolved by more training, additional funds and greater Tribal Council support. What Needs to be Done: Discussions with operators, trainers and officials involved with this project reveal the following tasks could enhance the work accomplished by this training project. 1. Operators desire and need an annual follow-up train- ing session. This session will provide them the opportuni- ty to develop in subject areas where they could bene- fit from more training. The follow-up training could include management and communication. The opera- tors currently look forward to comparing and sharing their problems and solutions with their fellow operators. 2. Operators would appreciate additional visits to their facilities by the direct trainers to discuss their specific problems and potential solutions. 3. Tribal Council Awareness - Efforts must continue to make tribal officials aware of the knowledge and skills required of operators to properly operate and main- tain their water supply systems. Operators are currently overworked and underfunded. They need more re- sources to do their jobs. If they are given additional assignments because of their talents and mechanical abilities, the operators must be given more help. 4. Budgets - Operators need help determining how to prepare budgets, calculating water-user rates, and collecting fees from users. Sufficient revenue should be generated by the consumers to cover the costs of electricity, chemicals, vehicles, travel, spare parts, maintenance, repairs and replacement of pumps and other equipment. 5. Codes - The requirement for a self-sustaining water utility agency needs to be codified for each tribe and/or reservation. The codes should encourage a policy for the collection of sufficient user charges to finance the operation and maintenance of the water supply system. Adequate revenues for a water supply system are a critical step towards tribal self-sufficiency. An informed Tribal Council could help establish the necessary codes. 12 ------- RECOMMENDED TRAINING PROGRAMS Training programs should be considered for three dis- tinct categories of water supply system personnel: tribal managers, trained operators, and new or untrained sys- tem operators. An appropriate program is outlined below, Tribal Managers: Tribal utility managers and council members must be provided with instruction directed to- ward a better understanding of the operation, mainte- nance, monitoring, management and financial require- ments of their systems. Completion of an instructional seminar should enable the governing officials to: Understand the importance of maintaining a safe and palatable water source and system, Identify the essential components of a water supply system, Develop and implement a water supply sampling pro- gram in compliance with regulatory guidelines, Describe methods to monitor and support the system operation and maintenance personnel, Determine the costs of operating their systems, and Understand the need for and development of a fair and equitable user fee program. These objectives could be accomplished in a day to day-and-a-half seminar conducted at central state or regional locations. Invitation and overall coordination of the program should be conducted by IMS and EPA personnel. Promo- tion should be focused on "Achieving Water System Inde- pendence." The use of an independent instructor would be helpful in distinguishing the program as non-regulatory in nature. Trained Operators: Operators who have received pre- vious training should be provided further professional in- centive and motivation by participation in an annual update/skills improvement seminar. Sessions should focus on: Updating knowledge of regulatory requirements, Sharpening technical skills in such areas as pump maintenance, electrical controls, disinfection tech- niques and line repairs, Interpersonal skill development with managers and other employees, Preventive maintenance program development, Preparing reports and presentations for councils, and Math skills brushups. The conference would be held over a two- to three-day period at central state or regional locations. Presenters should include tribal managers, operators, technical spe- cialists and IHS/EPA representatives as appropriate. Plan- ning should focus on "Improving System and Individual Performance." New or Untrained System Operators: Many system oper- ators have not yet received training on the proper O & M considerations of their systems. These individuals should receive specific instruction that would enable them to: Protect a well from contamination, Keep accurate records of water usage, Maintain pumps, storage tanks, water lines and equip- ment, Adjust electronic controls and chemical feeders, Read water and electrical meters, Repair and replace broken water mains, Maintain records including operating logs, chemical usage and inventories, equipment maintenance and daily diaries, Perform math calculations relating to storage volumes, Order chemicals, repair parts and tools, Collect samples and perform laboratory tests. Conduct safety inspections and follow safety rules, and Pass certification examinations. Instruction should be delivered in half-day or full-day topic specific sessions, conducted on-site at various reser- vations. A roving trainer approach would allow a trainer to visit from 3 to 6 reservations per week. A rotating schedule of training would provide for return visits at each site. Other operators could be invited from neighboring sys- tems. The correspondence course and technical handouts could serve as operator study material. Recruitment pro- motion should be focused on "Understanding Your Sys- tem." ------- Additional Suggested Training Sessions: Almost all of the operators in this training program are also responsible for the operation and maintenance of tribal wastewater collection and treatment systems and also solid wastes. These operators have requested and would benefit from training programs covering these two important areas of responsibility. 1. Wastewater Collection and Treatment System Oper- ations This training program should, at a minimum, provide the operators with the following information: Characteristics of wastewater, Components and functions of collection systems, Role of collection systems on waste treatability, Cleaning and flushing of collection systems, Collection system safety considerations, Components, operation and maintenance of lift sta- tions, Pond treatment processes, Sample collection, pond monitoring and grease/al- gae control, Pond operating strategies and troubleshooting, and Preventive maintenance and recordkeeping. The training program would be delivered in a similar three-pronged approach using classroom sessions, the California State University, Sacramento, correspondence course and supplemental site visits to cover all aspects of reservation wastewater collection and treatment. Such a program could be delivered in multiple-day sessions in a centralized location or be taken into the field in a short-burst topic-oriented approach. Water supply system and solid waste problems could also be addressed during field visits. 2. Solid Waste Training - Solid waste training programs are also being requested by operators. People must realize that a sanitary landfill is "sanitary" only when properly operated by committed personnel. Following completion of a landfill training program, the operator should be able to: Describe the importance of proper solid waste dispos- al, List the essential considerations of landfill design and operations, Describe the elements of cell construction and cover, Outline litter control techniques, Describe approaches to such operating problems as a high water table, poor compaction, wet or cold weather operation, poor soil conditions and hard-to- handle wastes, Perform duties safely in the landfill, Develop an equipment preventive maintenance pro- gram, and Construct an effective collection routing and pick-up program. The program would be approximately 20 to 40 hours long and be held in a centralized location. Three two-day sessions conducted over a six to eight month period would provide adequate time to address and absorb knowledge related to solid waste management. Field visits to individual sites would also be an effective supple- ment to the program. .: ------- SUMMARY Accomplishments: Thirty-five operators successfully com- pleted this training. The major accomplishments of these operators include learning: 1. Why their water supply systems work, 2. How to operate and maintain water supply systems, 3. The importance of a safe and reliable water supply system, 4. An appreciation that all operators are confronted with similar problems, 5. The necessity of having trained relief and back-up operators, and 6. The need for written operation and maintenance pro- cedures. All three modes of training contributed to the success of this project. If possible, greater efforts could be expended during site visits on how to improve operation and mainte- nance procedures for each water supply system. Tribal Councils: Although there are many demands on a Tribal Council's limited budget, the community water supply system is one of the most important. In addition to financial support, Tribal Councils and authorities can also provide very helpful support for water supply systems by: 1. Encouraging operators to participate in training pro- grams and recognizing or rewarding operators for successful accomplishments. 2. Providing operators the opportunity to present their needs to Tribal Councils and to discuss their justifica- tions. 3. Assigning additional help and back-up relief when needed, 4. Establishing goals for the water supply system and diligently attempting to achieve these goals. 5. Participating in training programs designed to help Tribal Councils and authorities understand water supply systems and how they should be administered and managed, and 6. Developing an equitable water-user rate system and collecting fees from everyone connected to the water supply system. : ------- APPENDIX A EVALUATION OF WATER SUPPLY SYSTEM O & M PROGRAM 1. ADMINISTRATIVE SUPPORT SYSTEM SELF ASSESSMENT The following instrument is designed as a discussion aid between water system operators, their managers and/or council authorities. OUR WATER SUPPLY OPERATOR(S) Maintain a chlorination system. Maintain a fluoridation system. Maintain gravity storage tanks. Maintain pressure storage tanks. Maintain the distribution system, associated valves and hydrants. Perform our own pump maintenance and repair. Measure chlorine residuals. Measure fluoride residuals. Operate and maintain the wastewater treatment system. Operate and maintain the solid waste disposal systems. YES NO COMMENTS OUR SYSTEM Has a properly running chlorinator. Has a properly running fluoridator. Submits Bac-T samples as required. Has developed and uses a daily work procedure checklist. Has a written preventive maintenance program. Has the appropriate tools to perform the required work assignments. Has an adequate spare parts inventory. Has adequate relief labor assistance available. Has a utility vehicle supplied by the tribe. Reimburses our operators for personal vehicle use. YES NO FOLLOW-UP ACTION - COMMENTS 17 ------- 1. ADMINISTRATIVE SUPPORT SYSTEM SELF ASSESSMENT OUR WATER SUPPLY DEPARTMENT Provides our operators with a budget to work within. Allows our operators to approve purchases within this budget. Has designated an official to approve purchases. Has designated a supervisor or manager for the operators to report to or discuss problems with. Understands what our system costs to operate and maintain. Charges a monthly user fee. Is successful in collecting fees. (less than 25% delinquency rate) Reports to the Tribal Council on a monthly or periodic basis. Has strong Tribal Council support for activities and goals. Sets aside reserve funds for future equipment replacement. Pays sufficient wages to attract and retain qualified operation and maintenance staff. YES NO FOLLOW-UP ACTION - COMMENTS 18 ------- 2. COST ANALYSIS CHECKSHEET The following checksheet is designed to provide a simple format to review operating costs for small water systems. By providing some very basic information on power, chemicals, parts and labor costs, a utility will be able to assess current O & M costs against current user fees. User costs may be viewed from a household, per person, or per gallon basis. COST ANALYSIS CHECKSHEET A, Number of Households B. Total Population Served C. Water Usage (Average Gals/Mnth) D. Power Consumption (Avg KW-Hrs/Mnth) E. Power Cost ($) = D. x Cost (KW-Hr) F. Chemical Consumption (Pounds/Mnth) G. Chemical Cost ($) = F. x Cost ($/lb) H. Labor (Hours per month) I. Labor Costs ($) = H. x Rate ($/hour) J. Parts/Supplies Costs ($) (Avg. monthly) K. Personal Operator Expenses ($/month) L. Monthly Reserve for Future Equipment Replacement(s) M. Total Costs/Month = E. + G. + I. + J. + K. + L N. Monthly Cost per Household ($) = M./A O. Monthly Cost per Person ($) = M./B P. Monthly Cost per Gallon ($) = M./C COST ANALYSIS REFERENCE INFORMATION 1. POWER COSTS If true cost is not known, use $0.06/kw-hr (national average). 2. CHEMICAL COSTS If true cost is not known, use $2.00/gallon for sodium hypochlorite and $1.20/pound for HTH (65%). 3. LABOR COSTS a) Use actual salary or hourly rate x 1.25 (overhead). b) Use $8.50/hour. 4. PARTS/SUPPLIES a) Use actual costs or b) Use estimate ranging from $50 - 500/month. Discuss. 5. PERSONAL EXPENSES Use $.22/mile for personal vehicle use. 19 ------- 3. O & M CHECKLIST LOCATION DAILY Well House Storage Area ITEM Water Meter Electric Meter Discharge Pressure Gage Pump(s) 0 & M CHECKLIST TASK Readings Readings Readings Heaters Chlorinator Fluoridator Fluoridator Storage Tank Hydropneumatic Tank ASSIGNED TO Readings Noise Temperature Leakage Pressure, Operation and Temperature Chemical Level Chemical Level Exercise Encrustation Valve Water Level Pressure Reading WEEKLY Well House Storage Pump(s) Valves Chlorinator Fluoridator Housekeeping Storage Tank Lubrication Packing Check Exercise Tubing Connections Tubing Connections Clean Interior Secured Hatch Check Air Vent Float Operation MONTHLY Well House Storage Distribution System Pump Meter Pump Chemical Pumps Storage Tank Sampling Amperage Reading Bearing Temperature Oil Levels Ladder Inspection Tank Leak Inspection Collect/Submit BAC/samples QUARTERLY Well House Storage Chlorinator Fluoridator Electric Panel Grounds Storage Area Hydropneumatic Tank Clean Pump, Tubing, Tank Clean Lines Loose Wires Landscaping Landscaping Change Compressor Oil and Filter 20 ------- LOCATION SEMI-ANNUAL Well House Storage Distribution System ITEM O & M CHECKLIST (Continued) TASK Electric Panel Pump Meter Roof Storage Tank Hydrants ASSIGNED TO Clean Contactors and Starter Armatures Change Oil in Gear Case Inspect Condition Exterior Checks for Cracks/Leaks Flush and Exercise Valves ANNUAL Well House Storage Distribution System Pump(s) Pump(s) Storage Tank Valve Boxes Repack Clean and Paint Clean Interior Inspect 21 ------- APPENDIX B ESSENTIALS OF AN EFFECTIVE TRAINING PROGRAM 1. Objectives - Following completion of a training program for water supply system operators, the operators should be able to: 1. Protect a well from contamination, 2. Keep accurate records of water usage, 3. Maintain pumps, storage tanks, water lines and equipment, 4. Adjust electronic controls and chemical feeders, 5. Read water and electrical meters, 6. Repair and replace broken water mains, 7. Maintain records, including operating logs, chemi- cal usage and inventories, equipment mainte- nance and daily diaries, 8. Perform arithmetic calculations relating to storage volumes, 9. Order chemicals, repair parts and tools, 10. Collect samples and perform laboratory tests, 11. Conduct safety inspections and follow safety rules, 12. Prepare written justification and status reports, and 13. Pass certification examinations. 2. Tasks - TASK 1. Recruitment of Coordinators and Operators At each area office training site someone must be designated as the "Coordinator" in consultation with the "Direct Trainers" and other appropriate officials involved in the training project. The Coordinator will recruit operators in the area around the site to partici- pate in the training program. Additional assistant coor- dinators may be approved as necessary to visit an operator's facility. Coordinator Responsibilities: 1. Coordinator will distribute, collect and review appli- cation forms from interested operators. The applica- tion form must contain signatures of approval from the appropriate tribal authority and an IMS official familiar with the operator. (See end of this section for an application form.) 2. The Coordinator will provide the necessary training facilities classroom, audio-visual aids. 3. The Coordinator or approved assistant will visit each fellowship operator on a monthly basis to encourage the operator, to relate the training program to actu- al system O & M, and to monitor progress in the training program. The Project Director and Direct Trainers will work closely with the Coordinator throughout the entire project. TASK 2. Organizational Meeting An organizational meeting should be held before the start of the actual training. The objective of the meet- ing is to discuss and agree upon the management and organizational details of the training program. Topics to be discussed should include: 1. Payment of operators for travel expenses, 2. Meetings with tribal officials, 3. Training facilities, 4. Visits to plants, 5. Coordinators and instructor (Direct Trainer) respon- sibilities, 6. Communications with operators, 7. Site visits following completion of training sessions, and 8. How to best identify and remedy any weaknesses in arithmetic skills. TASK 3. Direct Training 1. Payment of Operators for Travel Expenses Fellowship operators should be paid travel costs plus meals and lodging during four two-day direct training sessions scheduled during a twelve-month time span at the training facility. The training ses- sions should start after lunch the first day, continue through the entire second day, and finish at lunch on the third day. 2. Training Session No. 1 (Two Days) a. Instructor and Coordinator will meet with tribal officials to explain objectives of program. b. All fellowship operators meet at area training facility. Operators are introduced and the objec- tives of the training project are discussed. Oper- ators describe their facilities and any problems they are having with the O & M of their system. Topics covered should include the responsibility of the water supply system operator, water sources and treatment, and wells. Any arithmetic associated with these topics should also be cov- ered. This session should be handled by a Direct Trainer. 3. Small Water System Visit Immediately after Training Session No. 1, the Direct Trainer (instructor) should visit the system of each fellowship operator in the program. The purpose of this visit is to familiarize the instructor with the facili- ties of each operator. The instructor should relate material in the training manual to the operator's actual facilities. Using this approach the operator should be encouraged to identify problems, imple- ment solutions, and improve system O & M. 4. After Training Session After each training session the fellowship operator returns home and studies the assigned chapters in the operator training manual, WATER SUPPLY SYS- TEM OPERATION. The first three chapters should be completed and answers to tests submitted to CSUS or the Coordinator for grading before the next training session. Coordinator should visit fellowship operators approximately once a month. 5. Between Training Sessions Between each training session the instructor will contact each operator who can be reached by phone. The purpose of this call is to determine the operator's progress, to relate training material to any plant problems, and to offer encouragement to the operator. 6. Training Session No. 2 (Two Days) Direct training sessions should be scheduled every two to four months. Session No. 2 reviews the pre- vious material and also covers material on small water treatment plants (including fluoridation), storage facilities and distribution system facilities. 22 ------- Arithmetic associated with these topics should also be covered. Emphasis is placed on those aspects which relate to the actual O & M of the fellowship operator's facilities. Operators try to complete chapters four through six before the next training session. 7. Training Session No. 3 (Two Days) Session No. 3 reviews the previous material and also covers material on water quality considerations in distribution systems, distribution system operation and maintenance, and disinfection. Operators try to complete chapters seven through nine before the last training session. 8. Training Session No. 4 (Two or Three Days) Session No. 4 reviews the previous material and also covers material on safety, laboratory procedures and any other additional topics the fellowship oper- ators feel are essential for successful performance of their jobs. An extra day may be added to the final session to ensure that all fellowship operators successfully complete the program. 9. Audio-Visual Materials One complete set of slides used during the training session should be left with the Coordinator if opera- tors wish to review them. The slides may also be used for future courses. TASK 4. Final First-Year Visits Approximately one month after the training sessions are completed, the instructors visit each operator in the field. The purpose of the visit is to evaluate the progress of the operator and the success of the train- ing program. The final visit includes a meeting with tribal authorities to inform them of the achievements and newly acquired abilities of the operators. TASK 5. Annual Reinforcement Visit and Workshop Annual visits to each operator's facilities can verify an operator's progress and reveal subject areas where additional training is needed. Operators tend to keep their facilities clean and properly maintained when they know trainers will be visiting their water supply systems. Information gained during the annual visits can be used to prepare an effective training program for an annual workshop which all the operators are encour- aged to attend. A training advisory committee of operators should be formed to provide input for the annual workshop. TASK 6. Final Report A final report should be prepared and submitted to the sponsoring agency. The report documents the procedures developed and evaluates the success of the training program. Copies of the report should be distributed to other areas to provide the basis for the implementation and evaluation of similar programs. 3. Selection and Retention of Operators - Operators should be selected for this training project on the basis of their: 1. Dedication to their job. 2. Motivation, and 3. Employment with a water supply system, or an expectation that their tribe will soon require a qualified operator. The selection process should Include: 1. A brief application form with which operators apply for the training program, and 2. A form to be signed by a tribal official committing tribal support for the operator's efforts including permission to attend training sessions and, if possible, financial support. (Samples of these two forms are included in the next two pages.) 4. Time, Effort and Budget - Considerable time and effort is required to recruit operators, provide a suitable classroom environment, and deliver an effective training program. This section is included to help people estimate the time require- ments. More time is required the first time a training program is offered than subsequent efforts due to planning and preparation. The time requirements listed below are in terms of per course or per operator because the number of operators participating signifi- cantly influences the time spent with each operator in the field. Travel times are NOT included because travel requirements depend on the distance between each operator's reservation and the locations of all reserva- tions in the training program. TRAINER TIME Project Director 20 days/course" Administrative, Secretarial 30 days/course Direct Trainers 50 days/course* IMS Coordinators 30 days/course* IMS Field Personnel 8 days/operator * Depends on number of sites to be visited (assumed 15) and does not include travel time. Budget preparation for a training program must in- clude the following costs: 1) personnel; 2) travel for trainers and operators (mileage, per diem); 3) copying and reproduction of training materials; 4) office sup- plies; 5) telephone; 6) postage; and 7) final report. For details on the effort required, see Section B of this Appendix, "Essentials of an Effective Training Program," Part 2, "Tasks." 5. Costs per operator for a fellowship training program depend on the number of operators enrolled in the program and the location(s) of the operators' facilities with respect to the other operators and the training site. If all budget items listed above are considered, the costs for the first year of a fellowship training program can be estimated using the following information: Number of operators 10 to 20 Cost per operator $3500 to $5000 Cost per operator(wrrhout two site visits) $2800 to $3300 Cost per class hour $500 to $700 Cost per class hour(without two site visits) $400 to $470 Site visits are an extremely important aspect of the fellowship training program. These visits enable the instructor and the operator to become acquainted with each other and provide the instructor the opportu- nity to adjust the training effort to meet the specific needs of the operators. Operators appreciate relevant instruction and respond to personal attention. A quality fellowship training program requires a qualified instruc- tor with the time and ability to gain the confidence and respect of the operators. 23 ------- APPLICATION FORM for WATER SUPPLY SYSTEM OPERATOR TRAINING PROGRAM A water supply system operator training program is being planned by the (insert agency name). If you are accepted for this program you will will not receive reimbursement for your travel, lodging and meal expenses. NAME, TITLE OR POSITION. ADDRESS PHONE (If Available). Please describe your system if appropriate to the best of your knowledge (it's OK to estimate the answers). NAME OF SYSTEM NUMBER OF HOMES OR CONNECTIONS TYPE OF SYSTEM(S) (Wells or Surface Water). DISINFECTION Yes No FLUORIDATION Yes No STORAGE TANKS Yes No If selected to participate in this training program, I will do my best to attend the training sessions and complete the train- ing program. Date. (Your signature) Please obtain the approval of the appropriate officials listed below. I certify that the Tribal Council is aware that (insert operator's name) is applying to participate in a water supply system operator training program. We support this effort, will grant the opertor permission to attend the training sessions and will do our best to support the oper- ator and the system financially. Signature - Tribal Official Title of Official Date I certify that (insert operator's name) is qualified to participate in a water supply system operator training program. This operator will benefit from the training and is motivated to contribute the effort re- quired to successfully complete the program. Signature - IMS Official Title of Official Date Submit this completed application to Name of Official Agency Address 24 ------- APPENDIX C ELEMENTS OF A QUALITY WATER UTILITY The successful operation and management of a com- munity water utility system involves many consider- ations. The following guidelines and suggestions were discussed and recommended by tribal operators, man- agers and administrator representatives of 14 commu- nities. The ideas and recommendations constitute a framework of "Elements of a Quality Water Utility." Water Board Establish a Water Board ot 5-9 individuals who are appointed by the Tribal Council. The Board should act as a "buffer" between the Council and the Utility O & M Organization. Members should represent all villages or water systems being served. The following representatives might be considered for appointment to the Board: Governor 2-3 Council Members - Utility Operators/Supervisors - School Board Representative - Housing Representative - Health Board/Hospital Representative - Banking/Financial Representative Business Owners Homeowners Interested Citizens Members should meet monthly, at a minimum. Consid- eration should be given to paying the members a stipend of $10-50/meeting. Appointees should be prepared to serve 1-2 years with at least half the members holding overlapping terms. Members should be active in community affairs. knowledgeable about the water system, indepen- dent and aggressive. The goals and objectives of the Board should be considered as follows: ' Provide citizen representation of all user systems. Develop and implement a set of operating by-laws. ' Define community water system problems and pro- pose solutions. * Provide staffing, salary and personnel management oversight to the O & M Organization. ' Support the O & M Organization through the provi- sion of: Tools to do the job. Competitive/adequate personnel compensa- tion. - Personnel training opportunities. Operator incentives, encouragement and appre- ciation. " Develop user rates and annual budgets that reflect a goal of fiscal self-sufficiency. ' Emphasize the need for, and adequately explain to Council and users, the concept of depreciation reserves. * Research all potential operating/utility funding sources. ' Develop strategies for acquiring needed equip- ment. * Develop fee collection policies and grievance pro- cedures. ' Prepare and deliver an annual report to the Tribal Council. " Develop community education/awareness pro- grams. The Water Board should provide monthly verbal status reports to the Tribal Council and written quarterly/ semi-annual reports to the Tribal Council. Tribal Council The Tribal Council has a defined role relative to the successful operation of a water utility system. The Council should: Give the Board the authority and freedom to operate, plan, budget and set user rates consistent with overall Tribal interests. Allow the Board to manage its own finances. Support a program of utility fiscal self-sufficiency. Support Board recommendations. Support financial reserves for depreciation. Support the Organization's efforts by touring the sys- tem annually with the Board. 25 ------- O & M Group The Operation and Maintenance Organization may vary from one part-time individual to a staff of 3-10 individuals. Their roles and responsibilities should be defined as fol- lows: Provide an adequate supply of potable water to users. Comply with sampling and Safe Drinking Water Act requirements. Protect the Organization's capital investment, and assure that all systems function properly. Implement a preventive maintenance program for pumps, hydrants, storage and distribution facilities. Perform corrective maintenance as necessary. Maintain good housekeeping procedures. Maintain records including, but not limited to: System maps and as-builts Pumping/Water usage Chemical/Power usage Maintenance logs Inventory and purchase adequate spare parts and supplies. Assist Board in planning efforts. Maintain a positive public image by answering com- plaints promptly and diplomatically. Inform the Board of system and/or job needs. Lines of Communication Meeting and communication protocols are an important aspect of a successful program. The following ideas should be considered when formulating your utility organi- zation: The Water Board should deliver a monthly verbal status summary to the Tribal Council. A written report should be submitted on a quarterly, semi-annual or annual basis. During the monthly meetings, the Board should accentuate the positive effects of their work while also pointing out issues requiring tribal consider- ation and resolution. At all times, the Utility Organiza- tion's operators should be encouraged to attend these meetings. The Board's written annual report should address at a minimum: Utility Organization progress System and financial status Positive efforts Operating needs Goals The O&M Utility Manager should meet monthly with the Water Board. At this time a written summary of activities should be submitted which addresses: Water usage Repair activities Daily logs/hours worked System conditions Chemical/Power use Expenditures Sampling results Anticipated activities Anticipated problems Operators should be encouraged to take photo- graphs and/or slides of their systems for use in these presentations. Written minutes of the meetings should be maintained. System Finances Water utility organizations should seek to be financially independent of tribal reserve monies. A self-sufficient budget is one which is within 15 percent above or below actual costs. The O&M Manager or Supervisor should work closely with the Water Board and Tribal accounting office in developing a budget. The budget must consider "direct costs" such as: Salaries and benefits Parts, supplies and materials Equipment/tools Chemicals Power Vehicle O&M Training and travel expenses Postage and office supplies Lab analyses (consider special annual testing re- quirements) Capital equipment Board meeting costs and member stipends The budget must reflect "indirect costs" such as: Bookkeeping Insurance Phone use Taxes Depreciation reserves The budget process should plan for some inventory purchases, i.e.' valves, piping, repair supplies and elec- trical components. The budget process should plan for the non-collection of delinquent accounts, either from a lost revenue or short-term cash flow standpoint. Are there any special projects planned for the future? Consider the purchase of fencing, lumber, cement, paint, etc. The budget should make allowances for possible "emergency" expenditures of between $1000 and $5000. No particular expenditure authorization cap should be set on the O&M Manager. Once a budget is approved, the Manager needs the freedom to be able to purchase or contract the equipment or ser- vices needed to perform the job. The Water Board 26 ------- should seek Council approval of this issue. Open accounts should be set up with electrical, plumbing and hardware outlets. Verbal or written agreements for parts exchange, purchasing or labor assistance agreements should be set up with neighboring pueblos, villages or systems wherever possible. Unused budget monies should be invested in short- term annuities, treasury bills or other devices until needed. The Water Board must develop a plan to "sell" its program to the Council. Following development of the budget, the Board and the O&M organizations should be able to describe the goals, objectives and benefits the tribe and users will receive for the coming year. The justification package should address: How the O&M costs are allocated What services the user will receive Planned project descriptions What will be saved by implementing the proposed budget What will happen if the budget is not approved User Rates Rates should be set to attain a financially self-sufficient operating system. With many of the systems surveyed, such customer charges fell between $10 and $15 per month, for water service only. Sewer services were charged independently of water fees, but could be billed together as one monthly "utility" fee. Other considerations concerning rates include: Utilize a "flat rate" system for simplicity. Conduct careful research on the true administrative and O&M costs of metering the entire community. Conduct an annual review of rates. Plan ahead. Consider the need for rate increases at least 2-3 years in advance. Start selling the Tribal Council and citizens on this need as soon as possible. Research the possibilities for formulating an "elderly" subsidy or a "lifeline" program. Such programs should be made part of the Water Board's By-Laws. Fee Collections The collection of monthly user fees is a sensitive and complex issue for many tribal water utility systems. The following approaches may reduce the rate of delinquen- cy in paying for services: Collection policies must be consistently adhered to and enforced. All system users must be treated the same. This must be known and understood by all users. All customers should receive, review and sign a cus- .tomer agreement (see following example) which de- fines services, costs, collection policies and action/ penalties for delinquency in payment. Considerations might also include a $15-$30 hookup fee and the collection of one month's fee as a deposit. Services are usually provided by the utility to the curb stop. Additional services for the household might be defined and offered at established prices for the community. Billing policies could include a program allowing "di- rect payment" to a bank each month for all tribal utilities. This eases billing problems and is an easier way for the consumer to handle such payment. Payment policies should be flexible. Consider an annu- al payment plan for users which includes advance quarterly, semi-annual or annual payments. Should payment not be received, a notice of delin- quency should be sent out 30 days later. This notice should inform the customer that they have "X days" (consider 7-15) to bring their account current. A sec- ond notice should spell out a date of disconnection (consider an additional 7 days). At this time, the customer should also be notified of a "reconnection" fee of $25-$50. Furthermore, the customer should be told that any "tampering" with the system could result in an additional charge of $25-$50. Personnel as- signed to the task of disconnection should be trained to discuss the problem with the user during their visit and accept payment prior to closing the system off. The Water Board By-Laws should consider the inclusion of a court resolution policy for users who violate fiscal policies. Staffing Finding and keeping quality personnel is important to maintaining efficient and effective water utility services. Considerations, skills and qualifications of utility staff are described as follows: Potential staff should be interested in the work and have a desire to learn. It is important that operators/ supervisors be prepared to pursue additional knowl- edge and skills relating to water systems, either through home-study courses or outside training oppor- tunities. Operators must be reliable and well organized. They should be able to read, write and perform basic mathematical functions. They should articulate their desire to stay in the posi- tion for a while. Other candidate selection characteristics include ba- sic knowledge of: Plumbing, mechanical and electrical systems. Ability to keep logs and records. " Ability to work unsupervised. Ability to perform physical tasks, including reason- able and appropriate lifting, climbing and digging. Ability to work well with the public. 27 ------- When staffing an organization, consider the need for or advantages of hiring individuals who can operate a backhoe. All operators should be prepared to pursue state certification as soon as possible. Staff Oversight Keeping qualified staff involves several elements. Tribal management must: Provide adequate tools to perform the job. Compensate operators with salaries comparable to industry standards, typically $6.00-$10.00 per hour. Provide benefits including, but not limited to, over- time, health insurance, retirement and personal vehi- cle use reimbursement. Keep all staff informed of goals, actions and progress of the Tribal Council and Water Board. Encourage staff suggestions. Acknowledge contribu- tions with verbal, written or financial "pats on the back." Make training opportunities accessible for the staff. Encourage or mandate their participation in state operator certification programs. Provide periodic staff evaluations. Public Education Community education and support for the Tribal Utility System is an important facet of a successful operation. Efforts should be on-going and might include the following elements: Include articles of interest to consumers with billing notices. Post informative articles in public places, i.e. stores, community center. Arrange informative tours of system components for school children, citizens, and Council members. Make complaint forms readily available to citizens for reporting problems, concerns, etc. Indian Health Service Role The role of the Indian Health Service in the operation, maintenance and management of tribal water systems has not always been clearly understood. The following are highlights of the agency's role in providing direct assis- tance: Provide assistance in the planning and development of water utility by-laws. Assist in the development of plans of operation, main- tenance manuals and user rate studies Conduct annual sanitary surveys. Provide troubleshooting assistance to correct system problems. Conduct engineering studies and monitor field con- struction projects. Identify unmet tribal water system needs Plan, coordinate and/or deliver training programs to utility staff, either on a regional or statewide basis. 28 ------- Shoshone Utility Organization APPLICATION FOR WATER SERVICE GENERAL INFORMATION: Present monthly rates are $12.00 for Shoshone & Arapahoe Indian homes for maintenance charges and an additional $2.00 per month for Non-Indian homes. The additional $2.00 is being charged to reflect the cost of the water. Therefore, the Non-Indian charge will presently be $14.00 monthly. Curb stop or shut-off valves and meters (if required) shall be located three feet outside the highway right-of-way fence. All homes will be required to have a 5/8" x 3/4" water meter with a Pulsar Direct Read Box placed on the outside of the home. Shoshone Utility Organization reserves the right to install saddles, corporation stops, curb boxes and/or meters, charges for which will be included in the connection fee. Water bills will be based upon a flat monthly fee, but meters will be read periodically by the Utility Systems Operator. All water from the Fort Washakie System is to be used for domestic purposes. Watering of livestock is not permitted. Fees are listed below for commercial or residential connections. Bills are due and payable 10 days from receipt. If a customer wishes to disconnect service, this must be accomplished by formally submitting a request for discontinuance of service. In entering into this agreement with the Shoshone Utility Organization, you are granting the Utility Organization the right to ingress and egress into your property. The Applicant hereby applies for service for an initial minimum period of 12 calendar months and agrees that he will pay all required minimums and meter charges for that period, regardless of usage. The Applicant acknowledges that minimum billings for the entire 12-month period must be paid in addition to all other charges before a voluntary disconnect will be made, and that no refund for any minimum billing during the 12-month period will be made under any circumstances. This contract, including the tariff made a part thereof, shall at all times be subject to such changes or modifications as shall be ordered from time to time by any legally constituted regulatory body having jurisdiction to require such changes or modifications. Meters installed shall become the property of the Shoshone Utility Organization; if paid for initially by the property owner, such meters shall be considered a contribution in aid of construction to the Shoshone Utility Organization. YOU WILL BE SUBJECT TO THE RULES AND REGULATIONS OF THE SHOSHONE UTILITY ORGANIZATION. SIGNED APPLICANT DATE APPLICATION APPROVED APPLICATION DISAPPROVED SIGNED DATE CHAIRMAN, SHOSHONE-UTILITY ORGANIZATION CONNECTION APPROVED CONNECTION DISAPPROVED SIGNED DATE CHAIRMAN, SHOSHONE UTILITY ORGANIZATION FEES: CONNECTION FEE $ MONTHLY CHARGE $ Approved SUO - 8-24-82 29 ------- Shoshone Utility Organization APPLICATION FOR WATER SERVICE Service Requested For: (Name, Mailing Address, & telephone Number TYPE OF ACCOUNT: House Mobile Home Enrolled YES NO Business Type of Business Attach a sketch of how you plan to run water service giving the following information: Inspector Verification (Not to be completed by customer) 1. Line Size (160 PSI High Molecular PE is recommended) 2. In ground materials (Brass Recommended) 3. Curb Stop Box (Minneapolis Pattern Recommended) 4. Fittings below ground 5. Name of Contractor G. Name of Plumber 7. Estimated Delivery Pressure at household o. Estimated Delivery Pressure of water before tap at connection 9. Estimated Delivery Pressure of water after tap at connection 10. Attach sketch 11. Rights of way and easements required_ 12. If a business, number of points of supply (faucets, restroom fixtures, sprinkler system, etc) 13. Other After approval has been made by the Shoshone Utility Organization Committee, you will receive a zerox copy of your application with an estimated connection charge rate and monthly rate. The connection fee must be paid before the water!ine is installed. Please contact Shoshone Utility at 332-3458 concerning when your contractor will run service. Maintenance personnel from Shoshone Utility Organization will inspect the water line as it is being installed to assure specifications are followed and will do the actual tapping to the water line. Contractor will not make waterline installations on weekends. 30 ------- APPENDIX D SUMMARY OF SYSTEMS BILLINGS AREA OPERATORS BLACKFEET RESERVATION (Blackfeet Tribe) A. Participants Bill Burd, Manager, High Plains Solid Waste Program Lawrence Mad Plume, High Plains Solid Waste Program B. Systems (No formal O & M organization yet) Community # of Homes Type of System Babb 12 Ground water, gravity w/storage Blackfoot 18 Ground water, hydropneumatic Heart Butte 90 Ground water, gravity w/storage Last Star 50 Ground water, gravity w/storage Seville 55 Ground water, gravity w/storage Starr School 61 Ground water, gravity w/storage FLATHEAD RESERVATION (Salish and Kootenai Tribes) A. Participants Allen R. Sloan, Program Manager, Tribal O & M Branch Albert F. Plant, Maintenance, Tribal O & M Branch B. Systems Community # of Homes Type of System Arlee 34 Ground water, hydropneumatic Clarice Paul 13 Ground water, hydropneumatic Dayton 4 Ground water, gravity w/storage Dixon 35 Ground water, gravity w/storage Elmo 57 Ground water, gravity w/storage Evaro 14 Ground water, gravity w/storage Houle Villa 5 Ground water, gravity w/storage Mission Dam 22 Ground water, gravity w/storage Pache 46 Ground water, gravity w/storage Schley 27 Ground water, gravity w/storage St. Ignatius-So. 97 Ground water, gravity w/storage Turtle Lake 57 Ground water, gravity w/storage Woodcock 28 Ground water, gravity w/storage FORT BELKNAP RESERVATION (Assiniboine and Gros Ventre Tribes) A. Participants Milton (Sommers) Horn, Utilities Commission Manager B. Systems Community # of Homes Type of System Agency 208 Surface water plant, Microfloc Hays/White 59 Ground water, gravity w/storage Cow Canyon Jenny Gray 7 Ground water, hydropneumatic Lodgepole 10 Ground water, gravity w/storage Mission 37 Ground water, gravity w/storage CROW RESERVATION (Crow Tribe) A. Participants Byron C. Bad Bear, Water Plant Operator, Bureau of Indian Affairs Ronald L. Littlelight, Lead Water Plant Operator, BIA Harold Brien, Water Plant Operator, BIA George W. Peters, Water Plant Operator, BIA Ettinge Little Owl, Water Plant Operator, BIA B. Systems Community # of Homes Type of System Crow Agency 246 Surface water treatment plant 31 ------- ROCKY BOY RESERVATION (Chippewa and Cree Tribes) A. Participants Earl (Butch) Nault, Safety & Maintenance Tech., Rocky Boy Health Board Joe Whitehorse, Environmental Supervisor, Rocky Boy Health Board B. Systems Community Azure Box Elder Eagleman Newtown Parker Sangrey # of Homes Type of System 26 Ground water, gravity w/storage 29 Ground water, gravity w/storage 10 Ground water, gravity w/storage 34 Ground water, gravity w/storage 8 Ground water, gravity w/storage 28 Ground water, gravity w/storage NORTHERN CHEYENNE RESERVATION (Northern Cheyenne Tribe) A. Participants Eugene Seminole, Manager, Northern Cheyenne Utilities Commission Leslie S. Baker, Plumber, Northern Cheyenne Utilities Commission John Paul Flying, Chairman, Northern Cheyenne Utilities Commission B. Systems Community # of Homes Type ot System Ashland Hsg 28 Ground water, gravity w/storage Birney 25 Ground water, gravity w/storage Busby 99 Ground water, gravity w/storage Lame Deer 408 Ground water, gravity w/storage Muddy Cluster 43 Ground water, gravity w/storage 32 ------- WIND RIVER RESERVATION (Arapahoe Tribe) A. Participants L. Patrick Harris, Manager, Northern Arapahoe Utility Organization Mike Quiver, Maintenance, Northern Arapahoe Utility Organization B. Systems Community Arapahoe Ethete # of Homes Type of System 147 Ground water, gravity w/storage 227 Ground water, gravity w/storage WIND RIVER RESERVATION (Shoshone Tribe) A. Participants Michael D. LaJeunesse, Water Plant Operator, Shoshone Utility Organ. Wayne Molting, Manager, Shoshone Utility Organization B. Systems Community # of Homes Type of System Ft. Washakie 408 Surface water plant, Microfloc PHOENIX AREA OPERATORS FORT YUMA INDIAN RESERVATION (Quechan Tribe) A. Participant Craig E. Menta B. System Community FortYuma # of Connections 270 Type of System Ground water, gravity w/storage, chlorination and fluoridation DUCK VALLEY RESERVATION (Shoshone-Paiute Tribes) A. Participant Larry Manning B. System Community Owyhee # of Connections 245 SALT RIVER TRIBE (Salt River Tribe) A. Participant Robert Correa B. System Community Salt River # of Connections 850 WASHOE TRIBE (Washoe Tribe) A. Participants Tom Crawford and Ron Heim B. Systems Community Dresslerville Carson Colony Woodfords # of Connections 116 78 44 Type of System Ground water, gravity w/storage, chlorination and fluoridation Type of System Ground water, ground storage with variable speed pumps, chlorination and fluoridation Type of System Ground water, gravity w/storage, fluoridation and chlorination Ground water, gravity w/storage, chlorination Ground water, gravity w/storage, fluoridation and chlorination 33 ------- WALKER RIVER INDIAN RESERVATION (Walker River Paiute Tribe) A. Participant Darrel "Woody" Smokey B. System Community # of Connections Type ot System Schurz 225 Ground water, gravity w/storage, chlorination HOPI INDIAN RESERVATION (Hopi Tribe) A. Participant Jayson Nieto B. System Community # of Connections Type of System Kykotsmovi 165 Ground water, gravity w/storage, Village chlorination and fluoridation HOPI INDIAN RESERVATION (Hopi Tribe) A. Participant Claude Pahona B. System Community # of Connections Type of System Polacca 340 Ground water, gravity w/storage. Village hydropneumatic booster system 34 ------- U AND O INDIAN RESERVATION (Ute Indian Tribe) A. Participant Kernel Murdock B. Systems Community # of Connections Type of System Ute Tribal 300+ Spring fed infiltration galleries. Water System chlorination, fluoridation, gravity w/storage, distribution system Whiterocks 90 Spring fed infiltration gallery. Water System chlorination, fluoridation, gravity w/storage, distribution system Arcadia Water 16 Ground water, gravity w/storage, System distribution system TOHONO O'ODHAM RESERVATION (Tohono O'Odham Tribe) A. Participant Roy Montana B. Systems Community # of Connections Type of System 24 systems 25-50/system Ground water, solar powered jack pumps and submersible pumps, hydropneumatic and gravity w/storage ALBUQUERQUE AREA OPERATORS ISLETA PUEBLO A. Participant Daniel Lujan, Operator, Isleta Pueblo Water System B. System Community # of Connections Type of System Isleta Pueblo 840 Wells, gravity w/storage JEMEZ PUEBLO A. Participant Stanley Loretto, Operator, Jemez Pueblo Water & Sewer Systems B. System Community # of Connections Type of System Jemez Pueblo 390 Wells, gravity w/storage LAGUNA PUEBLO A. Participant Harold Johnson, Operator, Laguna Pueblo Water System B. System Community # of Connections Type of System Laguna Pueblo 1033 Wells, gravity w/storage PICURIS PUEBLO A. Participant Joe Quanchello, Operator, Picuris Pueblo Water & Sewer Systems B. System Community # of Connections Type of System Picuris Pueblo 47 Wells, gravity w/storage 35 ------- SANTO DOMINGO PUEBLO A. Participant Joe Reano. Operator, Santo Domingo Pueblo Water & Sewer Systems B. System Community Santo Domingo Pueblo # of Connections Type of System 368 Wells, gravity w/storage SAN JUAN PUEBLO A. Participant Jose Cruz. Operator, San Juan Pueblo Water & Sewer Systems B. System Community San Juan Pueblo TAOS PUEBLO A. Participant Tony Mirabel B. System Community Taos Pueblo # of Connections Type of System 523 Wells, gravity w/storage # of Connections Type of System 360 Wells, gravity w/storage ZUNI PUEBLO A. Participant Straillie Edaakie, Operator, Zuni Pueblo Water & Sewer Systems B. System Community * of Connections Type of System Zuni Pueblo 1537 Wells, gravity w/storage -- ------- APPENDIX E Group Photographs BILLINGS AREA PHOTO (Left to Right) Front Row: John Carnegie, Albert Plant, Skip Hayes, Allen Sloan, Ron Perkins, Byron Bad Bear, John Paul Flying, Leslie Baker Middle Row: Bill Burd, Milton Horn, Mike Quiver, Patrick Harris, Ron Littlelight, Harold Brien, Ettinge Little Owl, Lawrence Mad Plume, Joe Whitehorse Back Row: Dan Heintzman, Rick Rubendall, Earl Nault, Wayne Molting, Henry Gardipee, Jim Sorensen, Bill Stiffarm, Mike LaJuenesse, George Peters, Eugene Seminole, Jim Glen ) ------- SOUTHWEST AREA PHOTO (Left to Right) Front Row: Joe Olguin, Stanley Loretto. Claude Pahona. Mike Cherniak Middle Row: Len Pardee. Tony Mirabel, Joe Reano, Roy Montana. Harold Johnson, Strallie Edaakie, Darrel Smokey, Ron Heim Back Row: Kernel Murdock. Robert Correa, Jose Cruz, Craig Menta, Daniel Lujan, Tom Crawford, Larry Manning Not Pictured: Jayson Nieto and Joe Quanchello 38 ------- APPENDIX F IMS Field Contacts Sam Bradshaw, Section Chief Phoenix Area IMS 3738 North 16th St., Suite A Phoenix, Arizona 85016-9581 (602)263-1655 Robert (Skip) Hayes, PE O&M IMS-PO Box 2143 711 Central Avenue Billings, Montana 49103 (406) 657-6451 Joe Olguin Assistant Principal Engineer Albuquerque IMS 505 Marquette NW, Suite 1502 Albuquerque, NM 87102 (505) 766-2139 ------- 40 ------- ------- r \ ------- |