United States	Office of Water	EPA 813-B-92-003E
Environmental Protection	(WH-550)	September 1992
Agency
xv EPA
WELLHEAD
PROTECTION
IMPLEMENTATION
TRAINING
Module 5:
Financing
Wellhead Protection
Module 6:
Contingency Planning
Briefing	and
Instructor's
Emergency
Phone Numbers
"	555-2600
WHP MANAGER	555-5198
POUCE	555-1250
BULLDOZER
SERVICE	555-4245
LOCAL LAB	555-7776
VERTICAL PROFILE
Ground
	( Zone of Influence—H
Land I I	I
Surface
Zone of Contnbutton	,wuet
(/ Oiwto
PrepunpinB
Water Level I
Coneol
Depress*!" I
PLAN VIEW]
D-eciion o'
Groundwater
Flow
Grotsid
Waier
DrwJe

% m

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United States
Environmental Protection
Agency
Office of Water
(WH-550)
EPA 813-B-92-003E
September 1992
v^ERA
WELLHEAD
PROTECTION
IMPLEMENTATION
TRAINING
If
'wm
Module 5:
Financing
Wellhead Protection
Briefing	and
Instructor's
VERTICAL PROFILE
Ground
Zone of Contribution	»-j . water
Y Divide
Zone of Influence—H
Land
Surface l
Prepumping
Water Level I
Cone ol
Depression
PLAN VIEW]
Oection of
Ground Water
Flow
Drawdown
Contours
Ground
Water
Divide

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¦I Slide # F-01
Local Financing
Introduction
Where to get the Wherewithal?
$
v	y
Key Points to Cover:
•	One difficult question faced by local entities is how to fund their WHP program
activities
•	Management programs typically require funds to hire staff for program development,
oversight and enforcement; to conduct monitoring and research; and to provide for
land acquisition
•	The following discussion describes the issues to be considered when developing a
financial program and the basic funding tools used by local/tribal government
Notes

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Local Financing for Wellhead Protection
Introduction
Slide # F-01
The instructor may use this slide to introduce the local financing module and to discuss
the importance of establishing a local funding program.
Perhaps the most difficult question faced by local entities is how to pay for--finance-
their WHP program. Management programs typically require funds to hire staff for
program development, oversight and enforcement; to conduct monitoring and
research; and to provide for land acquisition. Even the most basic management
program costs money for administrative staff time, while more aggressive actions such
as ground water monitoring or land acquisition may costs millions of dollars.
The ability of ground water managers to authorize expenditures varies from state to
state. In many states, the raising and appropriating of funds is relegated to town
meetings and city councils. In this case, municipal funding is often a competitive and
uncertain process with appropriations changing with local sentiment and political
leadership. For this reason, in many areas local entities have sought to establish a
separate stable funding source for ground water protection and have used legislative
action to supplement their financial authority. The Spokane County case study
presented in the legislative tools module is an example.
The following slides describe the issues to be considered when developing a financial
strategy for wellhead and ground water protection.
For additional information on financing techniques, the instructor may wish to refer to
EPA's Technical Assistance Document, "Local Financing for Wellhead Protection".

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\ Slide it F-02
LOCAL FINANCING
CRITERIA
Equity
Efficiency
Political Acceptability
Local Financing
Introduction
Key Points to Cover:
• Factors to be considered when designing a local/tribal funding program include
the following:
1)	concerns for equitable cost sharing;
2)	efficient collection of funds; and
3)	political acceptability-will the voters approve the financing mechanism?
Notes

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j Slide # F-03
LOCAL FIN AN CINQ
EQUITY



WHO PA YS ?
Polluters - Consumers - Everyone
Local Financing
Key Points to Cover:
A locality must decide who should pay for a program: polluters, drinkers or
everyone. This question brings in issues of equity and political acceptability
• Dependent on the local/tribal political climate, equity may or may not be a major
factor in gaining public support for financing measures
Notes

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LOCAL FINANCING
Eisnr"
4 Slide # F-04
Local Financing
WILL THE REVENUE BE
STABLE
$

source a
source b
V	/
Key Points to Cover:
•	The stability of a funding source is important. A stable revenue source provides a
constant, efficient source of long-term funding
•	A funding source which is tied to new development will be less stable. The source
will reap funds in a growth economy but will provide little revenue during economic
downturns
Notes

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Local Financing
Introduction
Slide # F-02 to F-04
The instructor should discuss factors to be considered when designing a local funding
program. Three primary factors include: 1) concerns for equitable cost sharing, 2)
efficient collection of funds; and 3) political acceptability. Slides # F-03 and F-04 are
used to further discuss these factors.
Slide # F-03 is used by the instructor to discuss concerns for equitable cost sharing
and political acceptability. The local entity must decide who should pay for a program:
polluters, consumers or everyone. Depending on political climate, equity may or may
not be a major factor in gaining public support for funding measures. While it may be
easier to assess an across the board fee on all residents to provide program funding,
this will be less equitable in cases where a large proportion of residents will not
directly benefit from ground water improvements.
Slide # F-04 is used by the instructor to discuss the importance of obtaining a stable
funding source. It is impossible to plan for long-term improvements in cases where a
stable funding source is not provided. The stability of funding sources varies. For
example, a funding source which is tied to new development will fluctuate with
changes in the local economy. More stable funding sources tend to be tied to
consumers. A local entity providing a necessary service, such as water or sewer
service, is assured of a relatively stable funding source over the long-term.

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j Slide # F-05
TYPES OF FUNDING SOURCES
$
DISCHARGE
PERMIT
taxes fines / penalties fees
Local Financing
Key Points to Cover:
•	Note: The slide serves as an introduction to a discussion of sources of revenue
•	Three major sources of funding for local/tribal governments include taxes,
fines/penalties, and fees
Notes

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Local Financing
Slide # F-05
The instructor should use this slide as an introduction to a discussion of revenue
sources.
In this module, we discuss three primary sources of local funding: taxes, fines or
penalties, and fees. Further detail about these funding sources is provided in the
following slides.

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LOCAL FINANCING
TAXES:
-I Slide # F-06
Local Financing
Taxes
•	Excise or Commodity
•	Real Estate Transfer
•	Sales
•	Property
V	J
Key Points to Cover:
•	Governments rely on taxes to provide the majority of their revenue
•	Use of taxes is most suited to funding activities which provide broad-based benefits
to taxpayers
•	A disadvantage of local taxation is that allocation of tax revenues is often a competi-
tive process, and although tax revenues may be stable, their allocation for WHP may
vary with political or public sentiment
•	Local (non-tribal) governments rely primarily on property taxes for revenues. Few
local or tribal governments are capable of adopting excise or sales taxes for the
purpose of promoting WHP without legislative approval
No tes

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Local Financing
Taxes
Slide # F-06
Governments typically rely on taxes to provide the majority of their revenue. Use of
taxation is a somewhat "accepted" form of funding however use of taxes has its
drawbacks. The instructor should emphasize the fact that allocation of tax revenues is
often a competitive process and although tax revenues may be stable, their allocation
for WHP may vary with public sentiment. For this reason, use of taxation is best suited
to funding activities which provide broad-based benefits to tax payers. Taxation is less
equitable and politically acceptable in cases where the tax base includes only a small
percentage of benefactors.
The slide presents four types of taxation which may be used by local entities. The
instructor should explain how these forms of taxation may be used to promote
wellhead protection. In some cases legislative approval may be necessary for their
use, depending on current state laws.
Excise or Commodity Taxes
State governments typically exact a compulsory tax on a range of products or
commodities. For example, the State of Washington finances water pollution control
facilities and clean up activities through imposing a sales tax on all tobacco products
and water pollution control equipment. Likewise, a local government may impose a
tax on products such as plumbing fixtures, lawn fertilizers or pesticides, and water or
sewer consumption. Use of commodity taxes represents an equitable form of funding
for ground water protection programs in cases where there is a direct link between the
product being taxed and polluters or program beneficiaries.
Real Estate Transfer Tax
A real estate transfer tax may be imposed to provide funding for ground water
protection. One example of its use is the formation of the Nantucket Land Bank. In
1984, the Massachusetts Legislature approved "An Act Relative to the Nantucket
Island's Land Bank," which placed a tax on real property being transferred from one
party to another. Revenue generated by the transfer tax is used, among other specific
reasons, to fund land acquisition for the purpose of ground water protection.
Sales Tax
A sales tax may be imposed on the sale of products and services to fund ground water
protection, among other purposes. Spokane County, Washington, dedicates a portion
of its sales tax receipts for ground water protection measures such as sewers and
treatment facilities, and monitoring programs. Use of a dedicated sales tax presents a
reasonably stable revenue source, although some fluctuation will occur with changes
in the local economy.

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Property Tax
Local governments rely primarily on property taxes for revenues. Property taxes are
collected once or twice per year and are deposited in the municipality's general fund.
This fund is the principal pool of money with which local government conducts its daily
business. The school and police budget comes out of the general fund, as does the
park and open space budget, etc. The general fund provides the revenues for most
local government activities, therefore, getting a portion of the fund is a highly
competitive and often politically divisive process. For this reason, reliance on property
taxes does not generally provide a stable source of revenue for ground water
protection.

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NON-TEXT PAGE

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	| Slide # F-07
Local Financing
Fines or Penalties
Key Points to Cover:
•	Fines or penalties are used to correct actions which violate a local/tribal protection
or planning program
•	Once collected, fines or penalties should be deposited into "special accounts" to
avoid combining with general revenues


FINES / PENALTIES
$ Fines / Penalties
collected due to violation
of ground water discharge
permit
Notes

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Local Financing
Fines or Penalties
Slide # F-07
Fines or penalties may be used as a means to correct actions which violate a local
protection program. For instance, an industry might be fined for releasing effluent
exceeding contaminant levels specified in its discharge permit. At the local level, this
source of revenue is most effective in modifying actions, versus raising revenues.
While ideally the use of fines or penalties would raise significant revenue, the overall
financial benefit is often low due to the high cost of enforcement and litigation.
Nonetheless, use of fines/penalties is an essential aspect of any ground water
protection program since it encourages compliance with adopted ground water
protection regulations.
The instructor should point out the importance of local government establishing
special accounts for collected fines and penalties to avoid having funds co-mingled
with general revenues.

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4 Slide # F-08
FEES
Access
Service
Local Financing
Fees
Key Points to Cover:
•	Fees involve charging a user for the consumption of a product or service
•	An advantage of imposing fees is that there is a direct link between the users
demanding a product (drinking water) and the cost for providing the product
•	Common fees imposed by local government include access and service fees
•	Access fees are generally a one-time charge to new customers (e.g., water
hookup fee)
•	Service fees are generally charged over time with the charge being dependent on
the amount of a service which is consumed (i.e. a water bill charging for monthly
water consumption)
Notes

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Local Financing
Fees
Slide # F-08
Fees involve charging a user for the consumption of a product or service. An
advantage of imposing fees is that there is a direct link between the users demanding
a product (drinking water) and the cost for providing the product. Likewise, fees may
be imposed on polluters for the cost of cleanup associated with an activity. The link
between the consumer and services makes this technique an equitable funding
source.
Use of fees is a common means to recover the cost of environmental programs.
Through fees, the users of a particular product or service are charged an amount
necessary to finance current operations. Two types of user fees are generally used:
access fees and service fees. The instructor should explain the difference between
these two types of fees.
Access fees are generally a one-time charge to new customers. Examples of access
fees include water and sewer hook up fees. This fee is beneficial since it helps a
community recoup the cost of providing public facilities for future, as well as existing
users. However, the amount accrued through access fees will vary with development
trends.
Service fees are generally charged over time with the charge being dependent on the
amount of a service or product which is consumed. A common example of service
fees are water and sewer bills. Customers are typically charged some rate for each
gallon of water consumed or sewage generated.

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J Slide # F-09
IMPACT FEES
Local Financing
Impact Fees
Key Points to Cover:
•	Impact fees are a relatively new means of accruing revenue
•	Impact fees are charged by local/tribal governments to offset the cost of new
development
•	Developers are charged directly for the costs of services and infrastructure needed
to support new development (for example: public water, public sewer, roads,
schools, etc.)
•	Impact fees can only apply to new developments--they cannot be applied to pre-
existing development
Notes

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| Slide #F-10
LOCAL FWAHClNfl
IMPACT FEES
How They Work:
•	Local Staff Estimate Cost
to Provide Services and Infrastruc-
ture for New Uses / Development
•	Developer / Owner Makes a Lump-
sum Payment
Local Financing
Impact Fees
Key Points to Cover:
•	To set up an impact fee program, local/tribal staff must estimate the average cost of
providing a service to new developments
•	To ensure equity, the local/tribal government must be careful to impose a fee which
corresponds to the amount of a service/infrastructure consumed. For example,
a developer would be charged "x" dollars per gallon of water to be consumed or per
foot of water line to be constructed
The fee usually consists of a one-time lump sum payment
Notes

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-| Slide # F-11
LOCAL RNANONO



IMPACT FEES
Advantages :
•	The User Pays
•	May Accrue Significant Revenue
in Growth Economy
Local Financing
Impact Fees
Key Points to Cover:
•	One advantage of using impact fees is that they are equitable since the user pays
the fee for a specific service or product
•	Impact fees are a useful tool for areas which are otherwise unable to afford
the costs or impacts of additional growth
•	Revenue accrued will vary with changes in growth and development. Impact fees
will bring in little revenue during periods of slow growth
Notes

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\ Slide# F-12
( 		>
IL0CA1RHANC1N0
IMPACT FEES
Disadvantages:
•	May Dissuade Development
•	System is Expensive to Implement
Initially
•	Revenue Source is Unstable
\	
Key Points to Cover:
•	Use of impact fees may dissuade developers from locating in an area, especially
in cases where less expensive development options exist nearby
•	It is relatively expensive to implement an impact fee program since considerable
staff time and study is necessary to determine an appropriate charge for new
development
•	The revenue source is unstable since it is tied to new development
Local Financing
Impact Fees
Notes

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Local Fees
Impact Fees
Slide # F-09 to F-12
Slides # F-09 to F-12 are used by the instructor to discuss the advantages and
disadvantages of use of impact fees. The ability to impose impact fees varies from
state to state, and the instructor should encourage the workshop participants to
investigate its legality in their own state. Legislative action is required to gain approval
for impact fees in states where impact fees are not currently allowed.
Impact fees are a technique used to accrue revenue to pay for the cost of providing
infrastructure and services to new development. Through impact fees, developers are
charged directly for the costs of necessary infrastructure and services such as water
treatment, sewage treatment, roads, schools, etc.
Slide # F-10 is used to describe how impact fees work. To set up an impact fee
program, local staff estimate the average cost of providing a service to new
developments. To ensure equity, the local government must be careful to impose a
fee which directly corresponds to the amount of a service or infrastructure consumed.
For example, the developer would be charged a fee of X dollars per gallon of
projected water demand or sewage effluent, or per square foot of road. Developers in
turn typically distribute these costs to future home buyers and commercial and
industrial business owners. The fee generally consists of a one-time lump sum
payment to a local government.
Slides # F-11 and F-12 are used by the instructor to describe the advantages and
disadvantages of using impact fees. The primary advantage of imposing impact fees
is that the user pays. In areas where residents find it difficult to maintain existing
facilities, impact fees are a desirable tool to allow for increased growth.
Disadvantages include its potential to dissuade development, relatively high cost of
implementation, and lack of revenue stability. Use of impact fees may dissuade
developers from locating in an area, especially in cases where less expensive
development options exist nearby. Impact fees are also relatively expensive to
implement. To withstand public criticism and court challenges local governments must
be careful to impose a fee which corresponds to the services received. Therefore,
considerable administrative time and expense is expended to develop a fee structure
which accurately reflects development costs for services. Impact fees are an unstable
revenue source since they are tied to new development, they cannot be applied to
existing land uses or development. -The revenue accrued varies with development
trends, the variations reflecting periods of growth and downturn in the local economy.

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NON-TEXT PAGE

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j Slide #F-13
A THURSTON CO, WA
m 8 SPOKANB, WA
SANTA CLAM VAiL£t,
CALIFORNIA
LITTLETON, "A

Local Financing
Case Studies

V
» DADE COUNTY,
* FLORIDA
Key Points to Cover:
•	The slide indicates the location of areas with innovative financing programs
•	Later slides review the details of five (5) of these six programs
•	Further information about financing mechanisms and case examples is available
in EPA's technical assistance document entitled, "Local Financing for Wellhead
Protection"
Notes

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Local Financing
Case Studies
Slide # F-13
Examples of areas with innovative financing programs for wellhead protection are
provided in EPA's technical assistance document entitled, "Local Financing for
Wellhead Protection." This slide indicates the location of areas discussed in this
document, as well as other areas with innovative financing programs.
The following slides may be used to discuss five of these programs. Information on the
State of Iowa's financial program is available by contacting EPA's Water Management
Division (Region VII) in Kansas City, Kansas (913) 236-2970. The instructor may
choose to include one or all of the following case studies in his or her talk as examples
of successful financing programs.

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j Slide #F-14
CASE STUDIES
Town Government
County Government
State-Chartered Public Authority
Special Financing Agency-County
State Agency
Local Financing
Case Studies
Key Points to Cover:
•	The case studies illustrate the range of institutions/political entities that may oversee
management and funding of a WHP program
•	Town, tribal, and county governments may delegate responsibilities to various
departments, including the municipal water department
•	A public authority may be created by state charter to operate a water supply
•	Special financing agencies or powers may be established through legislation
•	State legislation may be used to designate a state agency responsible for WHP
Notes

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Local Financing
Case Studies
Slide # F-14
The case studies illustrate the range of institutions or political entities which may
oversee management and funding of a WHP program. In each case, care was taken
to find a fair and politically acceptable means for distributing the cost burden among
benefiting water users, potential polluters and general taxpayers.
The five political entities used to administer funding programs include: town
government, county government, a state-chartered public authority, a special financing
agency, and state government. Brief examples of each follow.
Town and county governments may delegate responsibilities to various departments.
For Littleton, Massachusetts, three departments of town government are responsible
for administering the wellhead protection program. In Metropolitan Dade County,
Florida, the county uses permit fees to finance its wellhead protection program.
A public authority may be created by state charter to operate a water supply. The
Santa Clara Valley Water District is a public authority which manages surface and
ground water. The district collects revenues by selling water to retail water utilities and
by imposing service fees for ground water withdrawals.
Special financing agencies or powers may be established through legislation. The
Spokane County, Washington case study presented under the legislative options
module is an example. Spokane County supports its aquifer protection program
through imposing a combination of service fees, access fees, a dedicated sales tax
and a real estate transfer excise tax. Additional examples include Thurston County,
Washington and Nantucket, Massachusetts. In Thurston County, a public authority
was chartered by intergovernmental agreement to manage wastewater collection and
treatment. Funding for these services is provided through a combination of service
fees, access fees, and user charges. In Nantucket, funding for land acquisition is
provided through imposing a real estate transfer tax.
State legislation may be used to designate a state agency responsible for WHP. An
example is the passage of an act authorizing a wellhead protection program for the
State of Iowa.
The following slides may be used to give more detailed explanation of five of the case
studies.

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4 Slide # F-15
STATE OF IOWA
Statewide Program - Legislated
Financing
Pesticide Sales Fee
Pesticide Licensing Fee
Nitrogen Fertilizer Fee • Farmers
Underground Storage Tank Fee
Solid Waste Service Fee
Activities
Ground Water Protection Activities
Local Financing
Case Study
State of Iowa
Option A
Key Points to Cover:
•	Legislation was passed in the State of Iowa to establish a range of ground water
protection activities
•	The program is overseen by a state agency
•	WHP activities are financed through several sources of funding: pesticide sales fee,
pesticide licensing fee, nitrogen fertilizer fee, underground storage tank fee, and
solid waste service fee
Notes

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Local Financing	Slide # F-15
Case Study
State of Iowa
Option A
The instructor may use the State of Iowa case study as an example of a state financed
ground water protection program. In this case study, the polluter pays for the cost of
ground water protection through the establishment of user fees.
The majority of persons in Iowa depend on ground water as their drinking water
source. Agriculture, commercial and industrial uses also depend heavily on ground
water. The state has experienced problems of ground water contamination due to the
following activities:
a)	manufacture, storage, handling, and application to land of pesticides and
fertilizers;
b)	disposal of solid and hazardous wastes;
c)	storage and handling of hazardous substances; and
d)	improper construction and abandonment of wells and septic systems.
The Iowa Groundwater Protection Act establishes policies aimed at protecting or
restoring the quality of the state's ground waters, and directs the Department of Natural
Resources to implement and oversee the state's program. The Department of Natural
Resources is responsible for several activities, including: 1) developing a ground
water monitoring network; 2) preparing an annual report of the number and
concentration of contaminants in ground water and other relevant data; 3) mapping
ground water hazards; 4) collecting, evaluating and disseminating water quality
information; 5) developing and maintaining a geographic information system (GIS)
and comprehensive water resource data system; 6) developing and adopting rules for
evaluating ground water protection programs; 7) conducting site investigations and
enforcement; and 8) developing an educational protection for the state's 7th and 8th
graders on water quality issues.
The state's ground water protection program is financed through the ground water
protection fund. Several accounts are created within the fund:
solid waste account;
agricultural management account;
household hazardous waste account;
storage tank management account; and
oil overcharge account.
The various accounts are funded through user fees, including a solid waste service
fee, pesticide sales fee, pesticide licensing fee, nitrogen fertilizer fee and underground
storage tank fee.

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4 Slide # F-16
ff»Til !¦ 		



TOWN OF LITTLETON , MA
•	Sole Source Aquifer • Town Bylaw
•	Financing
Property Taxes
Unit Charges
State Grant
•	Activities
Monitoring, Performance Controls
Install, Monitor Wells
Land Acquisition
Local Financing
Case Study
Littleton, Massachusetts
Option B
Key Points to Cover:
•	Littleton, Massachusetts adopted a WHP bylaw in 1981 to protect its sole source
aquifer (i.e., its only source of drinking water; not an EPA-designated sole source
aquifer)
•	The program is administered by three town departments: the Planning Board, the
Light and Water Department, and the Health Department
•	WHP activities include monitoring, adoption of engineering and site performance
controls, and land acquisition
•	Activities are funded through property taxes, unit charges on water use, and
impact fees
Notes

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Local Financing	Slide # F-16
Case Study
Littleton, Massachusetts
Option B
The Town of Littleton, Massachusetts is a suburb (population 7,000) in the Boston
Metropolitan Area which experienced rapid industrial and commercial growth in the
1980's. Industrial development in and around Littleton threatens the quality of the
town's ground water supplies-which is the town's sole source of drinking water.
To protect its sole source aquifer, the town adopted a wellhead protection bylaw in
1981. The bylaw establishes protection districts and requires site plan controls and
the installation of monitoring wells and water sampling from those wells. Land
acquisition is also sought in the protection areas. The program is administered by
three town departments: the Planning Board, the Light and Water Department, and
the Health Department. The Planning Board is responsible for implementing the
zoning bylaw which prohibits certain uses and establishes performance controls for
other uses requiring a special permit. The Light and Water Department supervises the
design and installation of monitoring wells. The Light and Water Department collects
and tests wells semi-annually and submits test results to the Health Department. The
Health Department is responsible for enforcement of monitoring requirements.
The wellhead protection program is financed through three mechanisms: property
taxes, user fees, and private corporation reimbursement. The site plan performance
control program is funded by property taxes. The monitoring well installation and
sampling program is funded by residents through their water bills and by developers
who are responsible for installing monitoring wells and reimbursing the town for
monitoring expenses.
The instructor may obtain further detail about this case study by reviewing the EPA
technical assistance document entitled "Local Financing for Wellhead Protection".

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I
Slide # F-17
Local Financing
Case Study
Santa Clara Valley Water
District, California
Option C
SANTA CLARA VALLEY
WATER DISTRICT, CA
•	Ground and Surface Waters
•	Special District - State Legislation
•	Financing
Pumping Service Fees
Property Taxes
Surface Water Sales
•	Activities
WHP Ground Water Monitoring and
Ground Water Recharge
Key Points to Cover:
•	The Santa Clara Valley Water District is a special state-chartered authority created
by the State of California to manage groundwater and surface water supplies
•	The three principle sources of funding include property taxes, groundwater charges,
and wholesale surface water sales
•	Groundwater users pay for the District's activities through a groundwater pumping
service fee. The fee varies among different regions of the District depending on the
relative costs of surface and groundwater development
•	The District conducts groundwater monitoring and promotes groundwater recharge
Notes

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Local Financing	Slide # F-17
Case Study
Santa Clara Valley Water District, California
Option C
The Santa Clara Valley Water District was created by state legislation as a special
district for the purpose of managing ground water and surface water supplies in the
County of Santa Clara. Approximately 1.4 million people live in the county. Water
users in the district rely on a variety of water sources including both surface and
ground water supplies. The district's primary activities include surface water storage,
ground water recharge, ground water monitoring, and water treatment and wholesale
delivery.
The Santa Clara Valley Water District has two primary functions: to manage water
supply and distribution; and to provide flood control services. Funding for these
functions are provided through two separate accounts, with water management and
distribution services being funded through a water supply account called the Water
Utility Enterprise. Funds are collected for water management using three primary
techniques: wholesale surface water sales, property taxes, and ground water charges.
Funds are co-mingled in the Water Utility Enterprise.
Surface water is sold through delivery contracts which contain a basic user charge
and, where applicable, a charge to recover electrical or fuel power costs of pumping, a
capital recovery charge, and a water treatment surcharge.
Property taxes are assessed based on district location.
A ground water charge is imposed on all ground water withdrawals, and is a form of
service fee. The State of California first authorized the district to impose a ground
water charge in the 1950s, and the District established these charges in 1964. The
purpose of the charge is to cover the costs of ground water protection. The ground
water table underlying the County is in a confined aquifer which fluctuates greatly
depending on the amount of pumping and recharge which occurs from year to year.
The District began to impose the ground water charge to fund its ground water
recharge program. The advantages of this program include its revenue yield and the
fact that beneficiaries pay for the product. In addition, the charge aids in managing
ground water demand through varying pricing with the amount withdrawn. The
primary disadvantage of this technique in the difficulty in measuring use and enforcing
payment of unmetered uses, such as household or agricultural uses. In this case, the
District estimates water use.
The instructor may obtain further detail about this case study by reviewing the EPA
technical assistance document entitled "Local Financing for Wellhead Protection".

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\ Slide # F-18
SPOKANE COUNTY,
WASHINGTON
•	Special Financing Area
•	Financing
Dedicated Sales Tax
Real Estate Transfer Tax
Access and Service Fees
•	Activities
Regulations, Monitoring, Public
Education, Sewer System Construction
Local Financing
Case Study
Spokane County,
Washington
Option D
Key Points to Cover:
•	Spokane County has developed and implemented a coordinated, comprehensive
wellhead protection program to manage the Spokane-Rathdrum Prairie Aquifer,
the region's only source of drinking water
•	The county regulates contamination threats through well monitoring, public
education, and regulatory controls
•	Sewer facilities are being built to eliminate a major source of pollution-failing septic
tanks
•	The regulatory component is financed through general revenues
•	Planning and construction activities are financed from groundwater withdrawal fees,
on-site sewage disposal fees, connection fees, a dedicated sales tax and a real
estate transfer tax
No tes


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Local Financing	Slide # F-18
Case Study
Spokane County, Washington
Option D
Spokane City and County are located in eastern Washington. Approximately 285,000
people live in this area. The Spokane-Rathdrum Prairie Aquifer is a sole source
aquifer for the region including parts of eastern Washington and Idaho. The geology
of the aquifer leaves this resource especially susceptible to contamination due to its
high permeability. Past study has indicated that major sources of contamination
include use of septic systems, and percolation of contaminants from industrial and
agricultural activities in the region. In 1983, the Board of County Commissioners
adopted an Aquifer Sensitive Overlay Zone. New developments in the sensitive area
are subject to restrictions and may be required to connect to existing sewers.
Spokane County has developed and implemented a wellhead protection program to
manage the Spokane-Rathdrum Prairie Aquifer. The County's wellhead protection
program consists of several activities including regulating threatening land uses and
practices, well monitoring, public education, and sewer construction. Program funding
is provided through several sources including general revenues, dedicated sales tax,
real estate transfer tax, state and federal grants, and access and service fees.
Administration of the overlay zone is the responsibility of the Planning Department and
Department of Building and Safety. Funding for regulatory activities is provided
through general revenues in the County budget.
The sewer facilities construction program is funded through several sources. Access
and service fees are paid by residents and businesses for the withdrawal of ground
water and the disposal of wastewater using on-site septic tanks. The sewer
construction program also receives funds from state and federal grants, a dedicated
county sales tax, a real estate sales excise tax, and a connection fee. The county has
dedicated 0.125 percent of the county sales tax for the purpose of paying a portion of
sanitary sewer costs. A 1.5 percent real estate sales tax also provides sewer
construction funds. Although the real estate sales tax is not specifically dedicated for
this purpose, the Board of County Commissioners has appropriated these revenues to
the sewer fund. A connection fee, referred to as a General Facilities Charge, is also
required for new connections to the County's sewer system.
The instructor may obtain further detail about this case study by reviewing the EPA
technical assistance document entitled "Local Financing for Wellhead Protection".

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\ Slide # F-19

METROPOLITAN DADE
COUNTY, FLORIDA
•	County Department - Two Trust Funds
•	Generates $6 Million / Year
•	Financing
Service Fees
Permit Fees
•	Activities
Management Measures
Operating Controls
V	
Key Points to Cover:
•	Metropolitan Dade County's Department of Environmental Resources Management
administers a water quality program for all public water supplies in the county
•	Revenues collected for WHP are managed through two trust funds (monies set aside
for specific use): one for water quality protection, the second for protection of water
and air quality
•	Revenues are collected through water and sewer utility service fees, industrial and
commercial permits, and plan review fees. Businesses require permits to ensure
proper waste disposal, and plan review fees are collected to support review of pro-
posed industrial and economical developments
•	Revenues are collected for implementation and oversight of management measures
and operating controls
•	$6 million/year figure was calculated in 1989-1990
Local Financing
Case Study
Dade County, Florida
Option E
Notes

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Local Financing	Slide # F-19
Case Study
Dade County, Florida
Option E
Increased growth and development have placed increasing demands on the Biscayne
aquifer, which is the county's only source of potable drinking water. Over 90% of the
county's population is served by local water utility companies. Increased development
has placed the aquifer at increased risk of rapid drawdown, saltwater intrusion and
contamination. A wellfield protection program was developed to address concerns
that then current zoning and environmental protection regulations were inadequate in
protecting water quality.
The Department of Environmental Resources Management administers the water
quality program for all the county's public water supplies. Program activities include
planning, studies, monitoring, enforcement, permitting and plan approval. These
activities are funded through service and permit fees. Revenues collected for WHP
are managed through two trust funds. Water and sewer utility service fees are
dedicated to a general water quality protection fund. In addition, the Department of
Environmental Resources Management collects permitting fees from businesses
which are dedicated to a second fund used to protect both water quality and air quality.
A third source of funding is derived from commercial and industrial plan reviews. This
fund is used to pay for necessary staff time in reviewing plans.
The instructor may obtain further detail about this case study by reviewing the EPA
technical assistance document entitled "Local Financing for Wellhead Protection".

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United States
Environmental Protection
Agency
Office of Water
(WH-550)
EPA 813-B-92-003E
September 1992
yvEPA
Emergency
Phone Numbers
FIRE
555-2600
WHP MANAGER 555-5198
POLICE	555-1250
WELLHEAD
PROTECTION
IMPLEMENTATION
TRAINING
BULLDOZER
SERVICE
LOCAL LAB
555-4245
555-777$
Module 6:
Contingency Planning
Briefing	and
Instructor's	N
VERTICAL PROFILE
Ground
Zone of Contribution	, water
y Divide
Land
Surface
Zone of Influence—H
Prepumping
Water Level
Cone ol
Depression
PLAN VIEW|
		i
Direction of i
Groundwater
Flow
Drawdown
Contours
Ground
Water
Divide

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J Slide # C-1
WELLHEAD PROTECTION
CONTINGENCY PLANNING =
Being Prepared to Take Action in
Response to a Realized Water
Quality Threat
Contingency Planning
Key Points to Cover:
•	This slide is used to introduce contingency planning under the wellhead protection
program
•	Because even the most well-thought out WHP plan may fail, a local/tribal govern-
ment must be prepared to respond to emergencies
•	The objective of a Wellhead Protection Program Contingency Plan is to prevent
contamination from reaching a water supply well
Notes

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Contingency Planning	Slide # C-1
Contingency planning is required by the Safe Drinking Water Act (SDWA) and the
Emergency Planning and Community Right-To-Know Act of 1986, enacted as Title III
of the Superfund Amendments and Reauthorization Act (SARA). The 1986
amendments to the SDWA established a new WHP program to protect public ground
water supply systems. Under this Act, each state must prepare a WHP plan containing
specific elements. These elements are discussed in the Module 1 of this training
program. Contingency planning to protect ground water supplies is one required
element of a state WHP program. Local governments are typically given responsibility
for implementing components of the state WHP program. Specifically, each public
water supplier in a state must provide a contingency plan to locate and provide
alternate drinking water supplies in the event of a well or wellfield contamination. A
contingency plan should not be limited to planning for alternative supplies, but should
also be used to identify and prevent both physical and operational threats from
contaminating or closing a public supply well.
In addition to the SDWA, Title III of SARA establishes an emergency network to plan
for and respond to emergency releases of hazardous chemicals. The emphasis on
contingency planning under SARA is devoted exclusively to hazardous chemical
spills, versus protection of ground water supplies from a range of threats. The
emergency network established under SARA may be used and supplemented when
developing a ground water supply contingency plan.

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Photo of a fire at a paint factory
in Dayton, Ohio
	| Slide # C-2
Contingency Planning
Case Study
Dayton, Ohio
Source: City of Dayton, Ohio
Key Points to Cover:
•	This is a picture of a fire at the Sherman Williams paint factory in Dayton, Ohio
•	The paint factory directly overlies the region's source of drinking water -- the
Miami Valley Aquifer
•	The aquifer is a shallow, water table aquifer of sand and gravel and the paint
factory is within the WHPA of the city's wells
•	Suppose you are the Dayton Water Superintendent of Dayton's supply -- Is the water
supply threatened?
What would you do?
Notes

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| Slide # C-3
Contingency Planning
Case Study
Dayton, Ohio (continued)
Source: City of Dayton, Ohio
•	By chance, the city's water superintendent noticed the fire and went to the site
•	He realized that in the process of putting out the fire with water, toxic chemicals
used in paint manufacture would be released and washed into the aquifer to
pollute Dayton's water supply
•	The water superintendent in consultation with the city's Environmental Health
Director spoke to the fire chief and suggested that rather than using water to
extinguish the fire, they let the fire burn
Notes
Photo of a fire at a paint factory,
continued
Key Points to Cover:

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\ Slide # C-4
Photo of the site on the next
day, Dayton, Ohio
Contingency Planning
Case Study
Dayton, Ohio (continued)
Source: City of Dayton, Ohio
Key Points to Cover:
• Despite liability and factory ownership considerations, the decision was made to
avoid infiltration of hazardous chemicals to ground water by letting the fire bum
Notes

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Photo of soil testing on the next
day, Dayton, Ohio
	| Slide # C-5
Contingency Planning
Case Study
Dayton, Ohio (continued)
Source: City of Dayton, Ohio
Key Points to Cover:
•	Soil and ground water tests were completed the next day. No ground water
contamination occurred
•	No contingency plan was in place. Contamination was prevented through sheer luck
and common sense
•	This is an example of what could have been a contingency plan
•	The City of Dayton, Ohio has now developed a contingency plan to deal with
emergencies
Notes

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Contingency Planning
Case Study
Dayton, Ohio
Slides # C-2 to C-5
This series of slides is used by the instructor to demonstrate the importance of
contingency planning.
The Miami Valley Aquifer provides potable water for the Dayton, Ohio region. The
Sherman Williams paint factory overlies the Miami Valley Aquifer in Dayton. Paint
factories typically handle, store and generate hazardous materials. Slides # C-2 and
C-3 are photos of the fire that occured in the evening. By chance, the city's water
superintendent noticed the fire and went to the site. The water superintendent, in
consultation with the city's Environmental Health Director, spoke to the fire chief and
suggested that they let the fire bum, rather than using water to extinguish the fire. Use
of water to extinguish the fire would bring increased risk of ground water
contamination through infiltration of contaminated water. The fire chief agreed to let
the factory burn.
Slide # C-4 is a photo of the site on the following day. The instructor should point out
the burned cans which potentially hold hazardous chemicals. Soil and ground water
tests were completed the day after the fire and indicated that no ground water
contamination occurred.
In this case study, Dayton, Ohio did not have a contingency plan to guide decision-
making during emergencies. Contamination was prevented through sheer luck and
common sense. The instructor should emphasize the fact that it was luck which
brought the water superintendent to the scene of the fire. If the water superintendent
had not arrived, the fire department would have extinguished the fire with water and
the result would likely have been contamination of the region's water supply.
In response to this emergency, the City of Dayton, Ohio developed a contingency plan.
However, other areas may not be so lucky. The instructor should stress the
importance of adopting a contingency plan now, before an emergency occurs.

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NON-TEXT PAGE

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4 Slide # C-6
fCQNimr.EHCv PiAtJrJiHfi |



SIX ELEMENTS OF A
WELLHEAD PROTECTION
CONTINGENCY PLAN
Contingency Planning
•	Inventory of Threats
•	Design of Response
•	Assignment of Responsibilities
•	Identification of Logistical, Technical,
and Financial Resources
•	Keep it Current
•	Involve the Community
V	y
Key Points to Cover:
• A wellhead protection contingency plan anticipates what might go wrong and out-
lines steps to take if it does
•	The first four elements listed here may be thought of as a progressive step by step
process in the development of a wellhead protection contingency plan
•	The last two elements listed here are characteristics needed for an effective plan
Notes

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Contingency Planning
Slide # C-6
Within the wellhead protection program, a contingency plan is a blueprint of what to do
in the event that a recognized potential threat of contamination becomes a realized
threat or becomes an imminent threat. A contingency plan prescribes what to do,
when to initiate action, who would do it, with what tools and materials, and how it
would be done. It is prepared in the absence of, but in anticipation of, the conditions
requiring the plan, and may be never actually needed or applied.
Contingency planning for wellhead protection anticipates a contamination event and
prescribes actions to prevent, or minimize, contamination of the well. For example, the
presence of railroad track within a WHPA is recognized as a potential threat to water
quality of the well and a plan of action (contingency plan) to prevent contaminants from
reaching the well is prepared for the possibility that a railroad accident causes the
release of contaminants. The plan is activated by knowledge that a spill has taken
place or that a derailment has occurred and a spill imminent.
A Spill Response Plan is a type of contingency plan that provides a blueprint of rapid,
predetermined and decisive actions to intercept spilled contaminants before they
reach a well, before they reach ground water, or even before they are released.

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4 Slide # C-7
INVENTORY OF THREATS
What Can Go Wrong
Contingency Planning
v	J
Key Points to Cover:
•	The very first step in developing a WHP Contingency Plan is to inventory the po-
tential threats which are present in the WHPA (see Module 3).
•	Case histories are another source of information on what can go wrong
•	Threats to ground water change over time and this part of a contingency plan must
be updated to remain effective
Notes

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Contingency Planning
Slide # C-7
The very first step in developing a WHP Contingency Plan is to inventory the potential
threats which are present in the WHPA. In some cases, it is not feasible to eliminate
water quality threats from a WHPA. Commonly, potential sources of contaminants
were present before the WHPA was delineated or even before the well was
constructed. The inventory of sources described in Module 3 is the main source of
information for this initial step in the contingency planning process. Identification of the
threats can take the form of a "What if exploration of all the land uses, possible
accidents, and possible spills or leaks in the WHPA. The instructor can stimulate
discussion by asking for examples of potential threats.

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4 Slide # C-8
DESIGN OF RESPONSE
What To Do About It
Contingency Planning
\	/
Key Points to Cover:
•	Design of response is dependent on the nature of the threats
•	Design of response is dependent on the value of the water supply threatened and
the availability of alternative sources
•	Design of response is dependent on the technology available
•	Design of response is dependent on the resources available
•	Community involvement in response design including source owners or operators,
water suppliers, health agents, fire departments, police, and the public will help
insure that the response plans are reasonable and supported by the community
Notes

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Contingency Planning
Slide # C-8
Communities use the planning process to design the responses needed to prevent the
contamination or minimize the contamination of the well, or determines where to get
an alternative supply. Developing the plan requires knowledge of the toxicity and
transport properties of the contaminant and the volume of it that may reach the well.
Case histories of similar known contamination events are extremely valuable in
designing and selecting the actions to be taken. Plans developed for other areas are
also a source of responses that could be incorporated into a contingency plan, but
they should be adapted to the specific conditions of the threat and hydrology within the
WHPA. The responses must be possible within the context of available resources
identified in the next two elements.
For uncommon potential contaminants with special physical or chemical
characteristics, technical assistance may be necessary to design effective and
appropriate responses. Some threats may be too small to warrant a response, and
others may be so overwhelming as to preclude effective action. Evaluation of the
worth of response (whether to take action) should involve the judgment of the
community. The instructor can stimulate discussion by asking examples of
contingencies that aren't worth planning for.
For a response part of a contingency plan to be effective, it must have an alarm,
"trigger" or signal when to initiate the response. This part of a plan should include a
communications (reporting) network and clearly state what conditions will initiate a
response, and what the response will be.
The instructor may use the example of two different responses to spills to emphasize
one of the advantages of a contingency plan. For example, where a leaking
underground gasoline storage tank was discovered and there was no contingency
plan, a public health official was forced to make a quick decision while being barraged
by a bewildering array of unevaluated information and opinion. He decided "Pump the
well and see what happens". More than 5 million dollars later, contamination of the
well is under control. Where there was a plan, a responsible official followed the plan;
ordered the immediate removal of the contents of a leaking underground storage tank,
followed by the initiation of vapor purging of the unsaturated zone above the tank and
removal of the tank and the contaminated soil. The well was never contaminated.
Judgments of how to respond to an emergency are better made when properly
informed with due time for consideration of all factors rather than hastily, when partially
informed with unverified data, rumors, and perhaps, political influence. The instructor
may wish to open a discussion on the advantages and disadvantages of having a pre-
determined response. Decisions made hastily with unverified data may create more
problems than they solve.

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4 Slide # C-9
ASSIGNMENT OF RESPONSIBILITIES
Who Will Do It
Contingency Planning
Key Points to Cover:
•	Identify who will make the responses
•	Identify that they have the capability to respond
•	Identify that they are willing, or committed to respond
•	Identify that they have the authority to make the response
•	Provide a means to assure that each element of the response takes place in the
proper sequence and at the proper time
•	It is most essential that this part of a contingency plan be kept current. If the phone
numbers are wrong - valuable time may be lost
Notes

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Contingency Planning
Slide # C-9
Identification of the response team and response team coordinator, how and what
agencies, having responsibility for accomplishing the response actions is an essential
element of a contingency plan. The plan contains an emergency list of names,
agencies, telephone numbers, FAX numbers, and addresses of those whose
commitment to the response has been established. Some very simple contingency
plans consist only of this list of who to call to get help. This list is subject to change
and it is essential that it be maintained and up-to-date. Personnel change and
agencies change names, change missions, and move to new addresses. A flow chart
showing who has responsibility for each of the response allows the coordinator to
manage the response team for timely and complete operation of the response.

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4 Slide #C-10
|COrjTirjr.rrjCY planhinC. j



IDENTIFICATION OF RESOURCES
Logistical - Technical - Financial
Where To Get Equipment And Help
Contingency Planning
Key Points to Cover:
•	It is essential that the resources for a planned response be available to carry out the
response
•	The materials and tools must be available
•	The know-how must be available
•	The bills will have to be paid
Notes

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Contingency Planning
Slide #C-10
This part of the contingency plan describes the logistics (where the materials and
equipment can be obtained) to implement the response, and it describes who or what
agencies and consultants have the knowledge, information and experience to provide
the needed technical guidance. The instructor may wish to ask for examples of
logistical and assistance needs.
Because a contingency plan may not be able to describe all the details of an incident
in advance (for example, on a railroad that transports varied cargo) the response team
may need assistance to design specific actions for an incident. For this reason, the
plan should include identification of agencies, departments, and consultants, and the
scope of their services and expertise. The instructor may wish to stimulate discussion
by asking for examples of logistical needs that might be included in this element of a
contingency plan.
This element can include identification of sources of financial support for the
emergency response. Some examples are FEMA (Federal Emergency Management
Agency), and HUD (Housing and Urban Development). The instructor may wish to ask
for examples of state and local sources which will differ from location to location.

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KEEP IT CURRENT
Up-To-Date
j Slide # C-11
Contingency Planning
v	/
Key Points to Cover:
•	It is important that a contingency plan be changed when the water quality threats
change
•	The contingency plan must be changed when the people who respond to it change
or their phone numbers change
•	The responses should be kept current with state-of-the-art equipment, materials,
and technology to be most effective
•	The scope of responses may change in response to the financial resources available
Notes

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Contingency Planning
Slide #C-11
It is important that contingency plan information be kept current, because time wasted
translates into movement of contamination toward the well. A sound contingency plan
should be a "living" document that is constantly being revised. Any revisions changing
the potential threats within the WHPA, new technology and approaches to intercept or
mitigate contamination, new suppliers, sources of assistance, personnel, agencies
and their addresses and phone numbers. Consider the usefulness of a plan that does
not take into account the change of tenants in a commercial building from a plumbing
distributor to a dry cleaner. The instructor may wish to stimulate discussion by asking
for additional examples of changes of threats in a WHPA.

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\ Slide # C-12
INVOLVE THE COMMUNITY
It's The Community's Plan
Contingency Planning
Key Points to Cover:
•	The planning process should include the community from the very beginning and
throughout the life of the plan
•	Community involvement means that those who are participating in the planning
process are representative of all the interests potentially involved when a potential
threat becomes realized (something goes wrong)
•	Community participation assures acceptance of the plan (that the planned responses
are commensurate with the community's perspectives and values)
Community participation fosters the public awareness and stewardship for ground
water resources
Notes

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Contingency Planning	Slide # C-12
The planning process should include the community from the very beginning and
throughout the life of the plan. This helps to assure that the contingency plan is
acceptable to the community and excepts the community's perceptions of threat to,
and the value of, it's water supply. The community may perceive a low value for a
threatened well, because of its low yield or already poor water quality and because
there are alternative supplies of superior quality available at little addition public
expense. Community involvement tends to assure that the inventory of existing threats
will be thorough and that the new potential threats will be identified and avoided. It
furthers community awareness of the location of the WHPA and the need to be vigilant
for conditions which could degrade the water supply. It expands civic responsibility to
include stewardship for the community water supply. For example, the citizen who
noticed and reported a tanker truck discharging wash water alongside the highway
within a WHPA, the chemical plant manager who alerted the contingency plan
manager to changes of chemicals used in the plant within the WHPA, or the distributor
of auto supplies, who reported that the inventory of absorbent clay which he stocks
could be available for the emergency clean-up of gasoline spills. Community
awareness and involvement facilitates responsiveness and cooperation to create a
more effective wellhead protection contingency plan.

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J Slide # C-13
Contingency Planning
Case Study
Source: US EPA, 1990
Key Points to Cover:
•	In-depth information about contingency planning is available through the EPA techni-
cal assistance document entitled, "Guide to Ground water Supply Contingency Plan-
ning for Local and State Governments"
•	The document covers steps involved in completing a contingency plan and presents
six case studies
•	The slide indicates the location of six case studies contained in the TAD

GAJCL£YkJt&BAS
' :
Notes

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Contingency Planning
Case Study
Slide# C-13
The slide presents the location of case studies which the instructor and audience may
use to identify potential concerns and solutions for wellhead protection.
The following slides are used to discuss two of the case studies reviewed in this
document.

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4 Slide # C-14
Map of Sioux Falls, South Dakota
Contingency Planning
Case Study
Sioux Falls, South Dakota
Source: US EPA, 1989
\	y
Key Points to Cover:
•	Sioux Falls is a major midwest city which relies on a shallow sand and gravel aquifer
for its drinking water
•	The unconfined aquifer is vulnerable to contamination due to its fast recharge rate
and shallow depth to ground water
Notes

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Photo of Sioux Falls pump house
and wellfield

Contingency Planning
Case Study
Sioux Falls, South Dakota
(continued)
Source: US EPA. 1989
Key Points to Cover:
• The slide presents Sioux Falls pump house and wellfield
The Big Sioux Aquifer is a shallow sand and gravel deposit which is vulnerable to
contamination
Notes

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J Slide # C-16
Photo of railroad track, Sioux Falls,
South Dakota
Contingency Planning
Case Study
Sioux Falls, South Dakota
(continued)
Source: US EPA, 1989
Key Points to Cover:
•	Agricultural chemicals are shipped by rail through the region. Sioux Falls is
considered an agribusiness center of the midwest
•	Transport of agricultural chemicals over the city's aquifer is a potential source of
contamination
Notice the wellhead pumphouse in the center of the photograph
Notes

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\ Slide # C-17
Map of the Sioux Falls WHPA

Contingency Planning
Case Study
Sioux Falls, South Dakota
(continued)
Source: US EPA, 1989
Key Points to Cover:
•	The map of the WHPA for the Sioux Falls water supply indicates the location of
another potential source of contamination: a pipeline running through the WHPA
•	A fuel leak occurred in the pipeline in 1987. The operator, and city and state agen-
cies responded quickly to the leak and major contamination was prevented. At that
time, Sioux Falls had no contingency plan to give guidance during spills
•	The rupture of the fuel line served as a warning to Sioux Falls that its aquifer is
vulnerable to contamination
Since the incident, Sioux Falls has completed a contingency plan
Some contingency plans do not to be very complex; they can be done in one
evening
Notes

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Contingency Planning
Case Study
Sioux Fails, South Dakota
Slides # C-14 to C-17
The Sioux Falls case study demonstrates the importance of having a contingency plan.
In this case study, a potentially disastrous pipeline leak spurred public support
necessary to develop a contingency plan.
Sioux Falls is located in northeastern South Dakota and has a population of
approximately 96,000 people. Slide # C-8 presents a map of Sioux Falls. The city
relies almost exclusively on ground water from the Big Sioux Aquifer to provide
drinking water. The Big Sioux Aquifer is the most accessible and most used water
source for the area, but is highly susceptible to contamination due to its shallow water
table (less than 20 feet) and high recharge rate. Slide # C-9 is a photo of a Sioux Falls
pump house and wellfield.
Increased development has resulted in increasing demand for water supplies and
services. At the same time, conflicting land uses and land practices have increased
the potential for ground water contamination. Sioux Falls is the central warehousing
and distribution point in the region for materials routinely used by agribusiness's. The
city is served by rail and highway routes which deliver pesticides, fertilizers, petroleum
products, organic solvents and metals for consumption and distribution. Slide # C-10
is a photo of a railroad track traversing the Big Sioux Aquifer. The instructor should
point out the fact that transport of agricultural and other industrial chemicals over the
city's aquifer is a potential source of contamination.
Slide # C-11 presents a map of the Sioux Falls wellhead protection area. The map of
the wellhead protection area indicates the location of another potential source of
contamination: a pipeline. The instructor should point out the location of the pipeline
for the audience. In April 1987, a break occurred in the gasoline transmission pipeline
within one-half mile of a city well. The pipeline company worked quickly with city and
state officials to correct the problem. The pipeline break demonstrated the potential for
extensive contamination and damage to the wellfield and served as a warning to the
city that a contingency plan is needed. At the time of this bill, no contingency plan was
in place.
In response to concern about the pipeline leak, the City of Sioux Falls accelerated its
efforts to develop a contingency plan. A bill was introduced to the state legislature
containing provisions for a comprehensive WHP program, including contingency
planning. With strong local support, a contingency plan was quickly developed.

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NON-TEXT PAGE

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\ Slide # C-18
Contingency Planning
Case Study
Tucson, Arizona
Source: US EPA, 1989
•	The problems which must be addressed differ among areas
•	Tucson, Arizona is located in an arid region which is prone to flash flooding
as depicted in the erosional channels in the slide
•	Water delivery problems occurred due to periodic flooding of the City's pump houses
•	One element of Tucson's contingency plan is floodproofing
•	Ground water contamination was not created by the flooding because depth to
ground water is 180 feet
Photo of Tucson, Arizona
Key Points to Cover:
Notes

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J Slide # C-19
Photo of wellfield protected by
fence, Tucson, Arizona
Contingency Planning
Case Study
Tucson, Arizona (continued)
Source: US EPA, 1989
Key Points to Cover:
•	In Tucson, problems related to theft also occurred. People would break into the
pump house to steal well operation tools and equipment
•	To deal with this problem, Tucson's contingency plan includes keeping extra tools
and equipment on hand at all times, and construction of a fence around the pump
house
• When developing a contingency plan, local/tribal governments must identify what
potential emergencies might occur affecting wellhead operation, maintenance and
protection. In many cases the solutions are simple and may be identified through
common sense anticipation of what can go wrong
Notes

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Contingency Planning
Case Study
Tucson, Arizona
Slides #C-18 to C-19
The problems which must be addressed by a contingency plan differ among areas.
Contingency plans should be developed to address not just contamination threats but
a whole range of environmental and operational problems. The instructor may use the
Tucson, Arizona case study to discuss the range of problems which an area may face,
and the need for strong leadership when developing a contingency plan.
Slide # C-12 is a photo of Tucson. Tucson is a large city in southern Arizona and has
a population of approximately 300,000 people. Tucson lies within the Sonoran Desert
and has a climate controlled by extensive mountain ranges surrounding the city and
long distances from water. Precipitation averages less than 12 inches per year and
nearly half of this is provided by violent thunderstorms in the summer months. These
storms result in flash flooding. The instructor should point out erosional channels in
the slide resulting from flash floods.
Ground water in Tucson is generally of excellent quality and its reserves are deep,
with average depth to ground water of about 200 feet. The extensive depth to ground
water and long time of travel de-emphasize the importance of contaminant spills or
releases to their supply in contrast with more likely problems of physical disruption of
service due to flash flooding. Therefore, flash flooding is one threat addressed in their
contingency plan.
In Tucson, problems related to theft and vandalism also occurred. Vandals would
break into the pump house to steal well operation tools and equipment. To deal with
this problem, Tucson's contingency plan includes keeping extra tools and equipment
on hand, and constructing a fence around the pump house. Slide # C-13 is a photo of
the wellfield protected by the fence.
The instructor should use this case study to discuss the importance of identifying the
potential emergencies which might occur affecting wellhead operation, maintenance
and protection. In many cases the solutions are simple and may be identified through
common sense.
The Tucson case study may also be used to discuss the need for strong leadership
when developing a contingency plan. The Pima Association of Governments (PAG) is
headquartered in Tucson and provided essential leadership for development of a
contingency plan. Several parties play a role in developing water supplies and in
providing water service in the Tucson metropolitan area, including the county, city, and
individual private water providers. Before PAG took a leadership role, ambiguity and
confusion existing among the various parties in terms of the benefits and
responsibilities in developing a contingency plan. PAG was able to bring most of the
major water providers together in the planning process by demonstrating the potential
benefit to all water providers, regardless of their size or geographic area. This allowed
PAG to pool the resources, knowledge and expertise of its water suppliers with the
result being the successful completion of a contingency plan.

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| Slide #C-20
Photo of professionals investigating
an incident
Contingency Planning
Source: Horsley & Wrtten, Inc. 1989
Key Points to Cover:
A variety of people are generally involved in WHP decisions. For example, the
press, an engineer, the landowner, neighboring landowners, state officials, a hydro-
geologist, and water superintendent
• A local/tribal government's contingency plan must spell out who does what, when,
where, and how
Notes

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Contingency Planning	Slide # C-20
This is the closing slide for the contingency planning module. The instructor should
use this slide to discuss the fact that a variety of people with different concerns and
expertise and responsibilities should be involved in wellhead contingency planning
The contingency planning process should include all applicable parties. The final
contingency plan must clearly indicate who does what, when, where and how.

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