Imted States
Environmental Protection
Agency
An Indian Fellowship Training
Program For Small Water
Supply System Operators
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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
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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.
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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) .......................... * '
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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.
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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.
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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.
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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.
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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.
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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.
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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.
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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.
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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.
.:
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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.
:
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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
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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
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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
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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
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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
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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
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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
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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
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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
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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
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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.
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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.
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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
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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
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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
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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
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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
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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
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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
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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
--
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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
)
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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
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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
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