Office of Water
EPA 810-R-24-004
August 2024



U.S. Department
of Veterans Affairs


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CONTENTS

Foreword	i

Executive Summary	ii

Section 1: Overview of Federal Interagency Water Workforce Working Group	1

Section la: Legislative Mandate	1

Section lb: Interagency Water Workforce Working Group Members, Activities and Topics	2

Section lc: Non-federal Stakeholder Consultations	3

Section 2: Water Workforce Overview: Key Pillars and Challenges	3

Section 2a: Key Pillars of an Effective Water Workforce	4

Section 2b: Water Sector Workforce Challenges	11

Section 3: Federal Efforts to Develop the Water Workforce	17

Section 3a: Water-Focused Federal Agency Efforts	17

Section 3b: Broader Federal Efforts Applicable to the Water Sector	22

Section 4: Stakeholder Organization Water Workforce Efforts	28

Section 4a: Workforce Efforts Led by Water Workforce Associations	28

Section 4b: Workforce Development Approaches Identified by Drinking Water and

Wastewater Utilities	30

Section 5: Findings of Federal Interagency Water Workforce Working Group	32

Conclusion	36

Appendices	39

Appendix 1. Rosters	39

Appendix 2. Agendas of Meetings of the Interagency Water Workforce Working Group	40

Appendix 3. Summary of Federal Efforts to Develop the Water Workforce	44

Appendix 4. Bibliography	48

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FOREWORD

Ensuring that people have access to clean water
that meets Federal standards is a top priority for the
U.S. Environmental Protection Agency (EPA). Each
day communities and businesses depend on clean
and safe water for daily routines that can range
from drinking a glass of water, to irrigating the crops
that support our food supply, to providing water for
various manufacturing processes. Behind each of
these daily routines are the hundreds of thousands
of skilled workers who comprise America's Water
Sector Workforce. This water workforce provides clean
drinking water and safe wastewater treatment every
day.

A major challenge facing our nation is the likely
potential for a staff shortage in the water workforce
that operates and maintains our essential drinking
water and wastewater infrastructure. In the next five
to 10 years, water sector workers will be eligible to
retire at levels that would stress the Nation's ability
to operate this critical infrastructure. The clean and
safe water and the way of life we have come to enjoy
in this country cannot be sustained without our water
protection specialists.

EPA recognizes this pending shortage and is helping to
address it through focused engagement at all levels of
government and with public and private water sector
partners. The need for this collaborative approach
led EPA to launch America's Water Sector Workforce
Initiative in October 2020. The Initiative was a call to
action and emphasized the need to recognize the vital
role water professionals serve in their communities.
It also brought forth efforts made by EPA and its
Federal partners to work with states, tribes, utilities,
local governments, and other stakeholders across the
water sector to ensure that the workforce is strong,
diverse, and resilient, and attracts talented individuals
from many different backgrounds. EPA looks forward
to continuing work with its federal partners and non-
federal stakeholders to capture innovative ideas and
collaborative actions so EPA can take meaningful steps
to ensure America has a strong water sector workforce
for generations to come.

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EXECUTIVE SUMMARY

As part of the America's Water Infrastructure Act of 2018 (AWIA) Section 4304, as amended by Section 50211
of the Infrastructure Investment and Jobs Act of 2021 (IIJA), Congress directed EPA to establish and coordinate
a Federal Interagency Working Group that focuses on the drinking water and wastewater utility workforce.

This report provides a summary of the Working Group's efforts and serves as an opportunity to gain a deeper
understanding of the challenges and opportunities related to recruitment, retention, and training of water utility
workers.

This report summarizes major challenges identified through a workforce literature review and various
engagements with water stakeholders, as well as Federal and water sector efforts and programs starting to
address these issues. Consistent with the legislative direction provided by Congress, this report seeks to inform
decision makers about the opportunities to address the workforce challenges. These opportunities, listed
below, are described in terms of the "key pillars" of an effective workforce: recruitment, training, retention,
and partnerships. The pillars provide an essential workforce development framework that can help utilities
and communities identify the approaches that best address their specific needs and circumstances. This report
also includes a series of examples on what these opportunities look like when they are implemented locally by
utilities, as well as the communities and organizations that support the utilities' needs and the needs of the
people they serve.

Recruitment: Promoting awareness and value of water workforce careers can provide opportunities
for improving recruitment.

Training: Collaborations between Federal agencies, states, and the water sector can create
opportunities to scale workforce development efforts nationally.

Retention: Utilities can improve retention by working to address specific needs (e.g., upward
career movement, competitive salaries, or wrap-around supportive services such as transportation,
accessible technology, housing, or childcare subsidies).

Partnership: Collaboration between utilities and various partners such as community colleges, training
organizations, and other water sector organizations is critical for:

I Educating and attracting a diverse group of individuals into meaningful careers in water.

b Ensuring a diverse, highly trained, and sustainable workforce that can operate and maintain
critical water infrastructure.

4
A

A
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SECTION 1: OVERVIEW OF FEDERAL INTERAGENCY
WATER WORKFORCE WORKING GROUP

Drinking water and wastewater utilities (referred to as water utilities) are anchor institutions that protect the
environment and provide services that are vital to the health, safety, and economies of communities throughout
the United States. The water workforce is essential to these efforts. Estimates indicate that about one-third of
the water workforce is nearing retirement age—the majority being workers with trade jobs in mission critical
positions (Curtis & Jones, 2021). The water workforce is also losing experienced workers to employment
opportunities outside the sector. At present, there is limited staff to replace these workers. The loss of workers'
experience and knowledge, along with the need for new ski I Isets to leverage evolving technologies, meet new
regulations, and satisfy customer expectations, pose a significant challenge for water utilities.

To address this challenge, water utilities and their partners—including Federal and state agencies, nonprofit
and educational organizations, and the private sector—have been developing and implementing innovative and
equitable strategies to recruit, train, and retain a high-performing workforce. In 2020, EPA led the America's
Water Sector Workforce Initiative to document a number of planned activities from Federal agencies and various
water workforce partners to be taken to address water workforce challenges (U.S. EPA, 2020).

In the America's Water Infrastructure Act of 2018 (AWIA), Congress recognized that water utilities:

1)	provide workers access to stable, high-quality careers; and

2)	through investments in critical infrastructure, can also invest in the development of local workers and
small businesses to ensure a strong, sustainable pipeline of skilled and diverse workers for the water
workforce.

Congress also urged Federal, state, and local governments to increase collaboration to further the goal of
ensuring this pipeline. In 2021, Congress directed EPA to establish and coordinate a Federal Interagency Working
Group (referred to as the Working Group) to address recruitment, training, and retention challenges in the
water workforce in consultation with state operator certification programs (AWIA Section 4304, as amended by
Section 50211 of the Infrastructure Investment and Jobs Act of 2021 [IIJA]). In addition to federal coordination,
the I IJA provides an unprecedented investment in repairing America's aging water infrastructure, making it more
important than ever to collaborate effectively and to aggressively champion the water workforce.

The legislative mandate that established the Working Group is described in greater detail in Section la. Section
lb describes the membership and activities of the Working Group conducted in accordance with the legislative
mandate. Section lc describes the stakeholder consultation procedure, including consultations with state
operator certification programs. Section 2 discusses the landscape of challenges facing the water workforce and
the key pillars of an effective utility workforce.

Section 1a: Legislative Mandate

AWIA Section 4304, as amended by Section 50211 of the I IJA, directs EPA to:

1)	establish and coordinate a Federal Interagency Working Group on water workforce challenges,

2)	consult with state operator certification programs, and

3)	submit to Congress a report describing potential solutions to address the identified water workforce
challenges by November 2023.

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Infrastructure Investment and Jobs Act

Sec. 50211. Water Infrastructure and Workforce Investment.

2. (D) Section 4304 of the America's Water Infrastructure Act of 2018 (42 U.S.C. 300j-19e) is
amended —in subsection (b)— by striking paragraph (4) and inserting the following:

(4) WORKING GROUP; REPORT. -

(A)	IN GENERAL. —The Administrator shall establish and coordinate a Federal interagency
working group to address recruitment, training, and retention challenges in the water and
wastewater utility workforce, which shall include representatives from—

(i)	the Department of Education;

(ii)	the Department of Labor;

(iii)	the Department of Agriculture;

(iv)	the Department of Veterans Affairs; and

(v)	other Federal agencies, as determined to be appropriate by the Administrator.

(B)	REPORT.—Not later than 2 years after the date of enactment of this subparagraph, the
Administrator, in coordination with the working group established under subparagraph
(A), shall submit to Congress a report describing potential solutions to recruitment,
training, and retention challenges in the water and wastewater utility workforce.

(C)	CONSULTATION.—In carrying out the duties of the working group established under
subparagraph (A), the working group shall consult with State operator certification
programs.

Section 1b: Interagency Water Workforce Working Group Members,
Activities, and Topics

This Working Group included representatives from five Federal agencies (see below) and was co-chaired by staff from
EPA's Office of Ground Water and Drinking Water and Office of Wastewater Management. The full membership list of
participants is included in Appendix 1.

4	U.S. Environmental Protection Agency (EPA)

4	U.S. Department of Labor (DOL)

4	U.S. Department of Veterans Affairs (VA)

4	U.S. Department of Agriculture (USDA)

^	U.S. Department of Education (ED)

EPA hosted a series of Working Group meetings to identify and discuss workforce development activities led by
federal partners and water workforce organizations. Working Group meeting agendas are provided in full in Appendix
2. Meeting topics with Federal partners included water-specific initiatives undertaken by Federal agencies; broader
assistance grants; apprenticeship programs; and other Federal programs without a specific water focus but with
potential future applications. The Working Group also convened to review this report.

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In addition, one-on-one meetings with each Federal agency, including the Working Group member(s) and additional
colleagues, were conducted to discuss the Federal agency's activities relating to water workforce development. These
programs and activities are discussed in further detail in Section 3.

Section 1c: Non-federal Stakeholder Consultations

The Working Group also identified and consulted with other non-federal stakeholders, including state operator
certification programs and associations. These consultations were conducted in three groups:

Group 1: Perspectives on Workforce Challenges and Their Nexus with Federal Operator Certification
Requirements and Implementation by States (State Focus)

Group 2: Perspectives on the Certification Challenges Facing the Water Workforce (Water Sector Focus)

Group 3: Perspectives on Other Challenges Facing the Water Workforce (Utilities, Academia, Others)
(Water Workforce Stakeholder Focus)

Organizations represented in these non-federal consultations included water workforce associations; various state
agencies involved in the management of water, such as public health and environmental quality departments;
administrators of water operator certification, training, and apprenticeship programs; and staff members of water
utilities. The consultations sought additional perspectives on water workforce challenges. Insights were provided
regarding non-federal programs and current initiatives to address water workforce recruitment, training, and retention
challenges, as discussed in Section 4. These stakeholder consultations also fulfilled the legislative directive to consult
with state operator certification programs.

Section 5 of this report describes opportunities to address recruitment, training, and retention challenges in the water
workforce as identified through Working Group consultations with Federal partners and non-federal stakeholders.

SECTION 2: WATER WORKFORCE OVERVIEW: KEY
PILLARS AND CHALLENGES

The number of workers in the United States water workforce is
declining. According to the Brookings Institute, roughly one-
third of water and wastewater treatment plant and system
operators were reported to be 55 years old or older in 2021
(Kane, 2022). Staffing the water workforce is essential to
meeting national drinking water and water quality standards
and to maintaining and operating critical water infrastructure
to provide the public with sustainable, safe water services.
The impact of a labor shortage in the water workforce will
have lasting consequences on public health and the economy
at large. Section 2a describes the key pillars of an effective
water workforce including recruiting, training, retention, and
partnerships. The workforce challenges, which can intersect
with one more of these pillars, are discussed separately in
Section 2b.

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A

fa 	¦<

What is the Water Workforce?

trenching, excavating, and preparing sites for septic
systems;

cleaning storm basins and sewers;

managing financial plans for water utilities such as
overseeing water rates and utility revenue;

analyzing and operating remote or automated
systems at water utilities such as supervisory
control and data acquisition (SCADA) software;

facilitating trainings to provide education on water-
related topics;

managing social media, communication materials,
and public meetings to inform and build support
within the community about the critical nature of
the work performed by the water utilities;

monitoring water quality through sampling and
laboratory analysis; and

providing environmental consulting services in
support of regulatory compliance by water utilities.

Workers performing these and other associated roles at water utilities are referred to as the "water

workforce."

Section 2a: Key Pillars of an
Effective Water Workforce

Key pillars of an effective water workforce include
recruitment, competency (training), retention, and
partnerships (U.S. EPA, 2022). Each pillar contributes
to the objective of ensuring there are enough trained,
qualified individuals who can perform the necessary
functions to ensure that the public continues to have
access to reliable water and wastewater services.
Effective recruitment ensures that we maintain a
diverse and sufficiently large pool of applicants for
water workforce positions. Public health depends on
minimizing knowledge gaps as the operation of critical
water infrastructure transitions to the next generation
of workers. In this way, retention of water workers



There are a wide range of critical roles in the
water sector; some examples include:

providing drinking water, treating water and
wastewater, and managing stormwater that are
in compliance with regulatory standards;

maintaining critical water infrastructure (e.g.,
storage tanks, water mains) and associated
activities to ensure minimal disruption in
services;

responding to emergencies (e.g., water main
breaks);

overseeing water, sewer line, and related
structures construction (e.g., lead service line
inventorying and removal);

overseeing dredging and flood control project
construction;

installing and servicing plumbing equipment;

An Effective
Water Workforce

Partnerships

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is essential in succession planning and to maintain institutional knowledge at water utilities. Skill competency,
developed through education and training, is also important to enable water workforce members to perform at a
high level and further their careers. Investing in their knowledge and hands-on experience is necessary not only to
perform current water workforce functions, but also to create a strong foundation to address current and future
water-related challenges. Partnerships with various organizations such as unions, community groups, academic
institutions, and other utilities are an essential part of providing services (e.g., targeted outreach and training) that
allow utilities to achieve their objectives of recruiting, training, and retaining a sustainable workforce. Additionally,
partnerships help foster a larger water workforce community of practice. The following sub-sections provide an
overview of these key pillars and how they are essen tial to the water workforce.

Recruitment

Water utilities require highly skilled workers to safely
operate and maintain their facilities. Strong recruitment
initiatives can help a water workforce employer compete
effectively for needed skills and talent as well as retain
a stable, robust, and qualified pool of applicants. There
is a wide range of skillsets that translate to available
positions within the water workforce. In addition to
water utility operators, there are workers who conduct
sampling, manage bill payments, communicate with
the public, lead community outreach efforts, conduct
water quality laboratory analyses, and perform many
more distinct roles, contributing overall to a robust
water workforce and a sustainable community. In many
cases, the public is not aware of the diversity of careers
available related to providing water and wastewater
services.

To effectively recruit, applicants need to understand the
tasks to be performed, opportunities for a meaningful
career, and the purpose and importance of the role
water utilities play in the community. The water workforce plays an integral role in protecting the public by providing
an essential service and preventing the spread of disease, but lacks public visibility. Many people interact with
other professionals like medical personnel, road crews, and first responders, and can visualize the services that they
perform. The contributions of the water workforce to the community are largely unseen and intangible to the public.
Therefore, targeted recruitment efforts to enhance awareness about the water workforce are essential.

Ensuring that current and future job seekers are aware of the wide array of careers that are worth pursuing in
water is important. Intentional actions to foster this awareness through recruitment are necessary at multiple
levels. Teachers, career counselors, transition specialists, and college instructors can be instrumental in ensuring
young people are aware of the water workforce opportunities early and pursue the coursework or training that best
prepares them for their career of interest. Apprenticeship programs can similarly increase interest by offering a wage
to apprentices as they receive on-the job training and job-related education. Recruitment activities for youth may
include events and workshops about water, programs around environmental stewardship, school talks, water utility
tours, and career fairs.

At the organizational level, job roles must be clearly defined with the expectation that many people are not well-
versed in water-specific terminologies. Clear, specific language describing the position and the skills required to be
hired and which ones can be learned on the job are important. Many water workforce skills can be learned through
on-the-job experience, and there are positions that do not require a two- or four-year college degree. Clearly defined
listings could help encourage and attract potential applicants to the water sector who may not have realized their

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construction, laboratory, communication, or other skillsets are transferable. The inclusion of salary information
within these listings could further encourage and attract potential applicants. Media campaigns or public events
about water careers can also help recruitment by increasing job visibility. Water workforce careers are jobs located
where people are, as there are water utilities operating in communities of every size across the United States.

Finally, intentional and focused outreach to historically underrepresented groups in scientific and technical fields is
needed to recruit a more diverse group of individuals into the water workforce. Recruitment efforts in these areas
must work to both increase awareness and reduce barriers to career entry. Example activities can include developing
commitments to hiring local labor; offering wrap-around supportive services, like housing stipends, transportation
budgets, accessible technology, childcare, or work clothing as a job feature; and creating mentorship programs
designed to benefit people from underrepresented backgrounds, including people with disabilities.

Source: "Making Water a Career of Choice: A Compendium of Water Workforce Case Studies from Across the
Country" (U.S. EPA, 2022)

San Francisco Public Utilities Commission (SFPUC) has a focused recruitment initiative called their
Kindergarten-to-Career strategy. This strategy involves developing science, technology, engineering, and math
outreach events and school engagements. There are different programmatic elements for elementary, middle,
and high school students and the experiences are scaled for their educational level. Example youth activities
under this strategy include animated videos about water topics, tours of treatment plants, and the Our Water
Curriculum. This curriculum is a set of lesson plans, worksheets, and content guides around the history of
San Francisco's water supply. SFPUC has also established career awareness pilots, grants to fund student-led
environmental activities, and a paid internship program called SSIP CityWorks. Since 2012, these efforts have
engaged more than 77,000 youth in San Francisco.

Milwaukee Metropolitan Sewerage District (MMSD) provides several programs that demonstrate the
effectiveness of different types of recruitment efforts to reach broad audiences at multiple life stages. For
example, MMSD also has an established partnership with WRTP BIG STEP, a statewide nonprofit which
supports nontraditional candidates entering construction careers through services such as skill-building,
networking, and General Educational Development (GED) tutoring. MMSD provides financial support to WRTP
BIG STEP, employing the knowledge and experience of the nonprofit organization to successfully engage with
underserved communities. In return, the water utility gains direct access to a pipeline of workers who have
developed industry relevant skills and have a support system in place as they transition into permanent roles.

Competency (training)

Training is key to develop and retain the necessary skillsets for water professionals. Training programs related to the
water workforce are critical because of the large number of skills, tools, and technologies needed to perform distinct
positions within the water sector. There is a wide skill range that is pertinent to the management of water utilities,
such as engineering, chemistry, waste management, machinery operation, finance, laboratory skills, surveying, and
pipefitting. Training programs can help prepare recruits and existing workers with the skills needed for their role
within the water workforce. These can include job shadowing or "earn while you learn" models of apprenticeship
that place new hires under the guidance of a trained worker and compensate the new hires while they build requisite
skillsets. Training programs can also help develop skills the water workforce needs to become future-ready, such as

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computer coding, monitoring smart water utilities, and operating drones. Lastly, to encourage and promote trainings
there may be services provided like childcare or transportation subsidies.

Knowledge retention for all workers is critical to help keep their abilities current, use clear written and virtual
procedures to perform their work, become aware of changes to regulations and requirements around water, and
develop into workplace leaders. Training activities for existing workers can take the form of leadership academies,
state organized training sessions, mentorship programs, apprenticeships, and funding for partnering with educational
programs. Training is also important to ensure water utility workers have the necessary knowledge to complete
additional certifications and exams. For example, both engineers and water operators may be required to pass
exams to demonstrate their competence in areas such as engineering design or certain water treatment processes,
and to complete continuing education to stay current with the latest developments and technologies in their field.
Coursework and exam preparation are needed to enable workers to achieve their certification/license.

Training can be a part of both recruitment and retention efforts. In addition to technical training, training on
leadership, diversity, equity, inclusion, and accessibility (DEIA) principles and management styles can help workers
learn to support an overall positive working environment that encourages worker retention and increases workplace
satisfaction overall. Training programs can also recruit those undergoing major life transitions by creating a bridge
into new careers or back into the workforce. For example, training programs that allow for obtaining new skills while
being compensated can be attractive to the workforce in general, including service members returning to the civilian
workforce, professionals returning from extended work gaps or parental leave, and people with minor criminal
histories seeking new employment.

Training can be in-house, facilitated with the help of partners, or offered entirely externally to the water workforce
employer. Apprenticeships, internships, certification classes, leadership training programs, job shadowing, exam prep,
and college credits are examples of the many types of training activities that can benefit future members of the water
workforce.

Source: "Making Water a Career of Choice: A Compendium of Water Workforce Case Studies from Across the
Country" (U.S. EPA, 2022)

Ensuring the availability of sufficient training and certifications is necessary to develop and maintain a reliable
and high-quality water workforce nationwide. The 1996 Amendments to the Safe Drinking Water Act (SDWA)
directed EPA to develop information on recommended operator certification requirements. As a result, EPA
created partnerships with states, water utilities, and the public. The State-EPA Work Group provided guidelines
on minimum standards for certification and recertification of operators. Although specific requirements
vary from state to state, the program's goal is to ensure safe drinking water through proper treatment and
distribution. In an example of taking operator certification requirements further, the Central Utah Water
Conservancy District (CUWCD) created a voluntary Lead Operator Training Program. This program involves
peer-to-peer learning sessions in which participants choose from 120 possible technical skill areas, including
water treatment processes or machinery operation, and conduct three months of research and a presentation
about the topic. Program outcomes include a monetary bonus for completion, reductions in rotating shiftwork,
and promotion opportunities. CUWCD found that creating a voluntary worker development program helped
address their challenges with high turnover rates and small candidate pools. Overall, the program has an 80
percent completion rate and has contributed to a 75 percent reduction in job turnover through improved job
satisfaction and increased confidence in job skills among CUWCD workers.

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Retention

In addition to recruitment efforts that can attract new
talent to the water workforce, it is also important that
employers retain the interest and abilities of people
already in these careers. Retaining workers who are
knowledgeable about the water utility, for example,
is critical to the operation and maintenance of water
infrastructure and to meet water quality standards.

There are several factors to consider related to retention.

Workers remain at organizations that meet their needs.

They understand the value of a good job that provides
stability and security for them and their families.

Organizations should consider the quality of the jobs
as a tool for retaining workers, specifically, job quality
principles that assure positions provide workers with
fair compensation, guidance, and support to build skills
around the expected requirements of their position,
safe working environments, supportive services,
opportunities to advance, and workplaces that are free
from discrimination, harassment, and violence. The Departments of Commerce and Labor released the Good Jobs
Principles, to identify what comprises a good job and could be used as a framework for workers, employers and
others to develop a shared vision of job quality that leads to better recruitment and less turnover.

Water utilities are often publicly owned organizations (e.g., municipalities and water districts). These organizations
face competition for their workers from private industry and in-demand fields with adjacent skill requirements, like
construction. Groups of water utilities or water associations may find it beneficial to conduct landscape analyses
or state of the industry assessments to broadly evaluate compensation and recommend areas of improvement.
Water utilities need to find ways to appeal to their utilities' existing talent. Water workforce employers can leverage
benefits, job security, or work-life balance attributes that can make positions more desirable. Water workforce
employers can also make benefits available that help retain workers as they encounter life changes or transitions.
Examples include tuition reimbursement for workers seeking further education, flexible hours, parental support
through childcare subsidies or on-site daycare, and accessible accommodations for workers who have become
disabled to continue their work. Workers may also need to be supported through policies that ensure paid time off
benefits, including sick leave, parental leave, or safe leave (i.e., to cover days that workers take off to attend court,
seek counseling, deal with domestic violence issues, transition to new housing, etc.).

Additionally, there are many aspects of successfully holding a position that workers must navigate, including reliable
and accessible transportation to the job site, child or eldercare, accessible technology, appropriate attire (especially
for positions that may require safety precautions), and basic housing and nutrition needs. Employers can create
wrap-around services to support workers who are experiencing difficulties maintaining their employment or are
otherwise at risk. Wrap-around services can include providing reimbursement for public transportation or company
vehicles to get to and from work, issuing work uniforms, reimbursing internet costs or equipment costs, accessible
technology, providing subsidies for childcare or on-site childcare, providing housing subsidies, and more.

Other retention activities can help workers adjust to the workplace and build their abilities over time. Newer workers
may experience a learning curve or challenges as they adjust to the demands of their position. Mid-level workers may
need opportunities to grow their management and leadership abilities to advance within the organization's hierarchy.
Orientations and onboarding activities, social life/team-building activities, leadership training opportunities, allyship,
employee resource groups, sponsorships, and mentorship programs are some initiatives that employers might
pursue to improve retention.

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To retain a diverse workforce, efforts must be placed on
creating safe and welcoming work environments free
from discrimination, harassment, and violence. Water
workforce employers should strive to integrate DEIA
principles into their workplace. Studies indicate that
the water workforce is predominantly Caucasian and
male (Kane & Tomer, 2018). Groups that are currently
underrepresented in their work environments need allies
to find community, mentorship, and career support. To
better support all workers, employers can create a forum
for workers to share their unique experiences. Safe and
harassment-free workplaces are essential for retaining
women and people of color in careers where they are
historically underrepresented. DEIA-centered workplaces
can make important strides toward educating staff on fair
treatment and eliminating harassment.

Safety, at large, is very important for satisfying and
retaining workers. Employers should provide safety
training, certifications, and proper fitting personal protective equipment on work premises to protect workers in
accordance with Occupational Safety and Health Administration (OSHA) standards. Water workforce employers can
also consider working closely with unions and state and Federal guidelines in support of fair labor and safe working
conditions for workers over the course of their careers.

Retention efforts can help ensure qualified, motivated, diverse, and resilient workers throughout the water
workforce. Effective retention efforts seek to engage, mentor, and support workers, and result in improved job
satisfaction and decreased job turnover.

Source: "Making Water a Career of Choice: A Compendium of Water Workforce Case Studies from Across the
Country" (U.S. EPA, 2022)

Retention efforts can help workers reach the next stage of their careers and motivate them to remain at an
organization long term. The Moulton Niguel Water District in California developed an internal leadership
academy to help improve management styles and advance workers into leadership roles. Attendance at the
Leadership Academy has resulted in 65 internal promotions in the first three years since the academy was
founded.

In another example, South Platte Renew, a wastewater treatment system in Colorado, made organizational
changes to improve worker retention in a process to update their organization's Vision, Mission, and Values
(VMV). This process resulted in adding an worker appreciation committee, building redundancies in staff into
various departments to improve institutional knowledge retention if any staff were to leave, adding a social
committee, and requiring monthly all-staff and manager meetings. The VMV changes have contributed to each
worker receiving on average $3,000 a year in benefits such as training, recognition, or tuition reimbursement.
Subsequently, the utility has observed a less than 10 percent turnover in staff since the launch of the new VMV.

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Partnerships

Partnerships with community groups that have specialized expertise can help utilities enhance recruitment,
competency, and retention goals and challenges. Partnerships can play a crucial role where an individual water
workforce employer, such as a utility, may not have the resources to identify and address their challenges.
Partnerships can vary in type and scope. Examples of potential partners include other water utilities, community
colleges, job skills training organizations (frequently in partnership with unions), social services organizations, and
local workforce development boards. Partnerships can
be short-term, such as linking up with a local park or
event space to host a career fair or an informational
event. Long-term partnerships can include partnering
with basic job skills organizations in disadvantaged
communities, offering a Registered Apprenticeship, or a
water workforce employer developing a water-related
curriculum with a college or university and recruiting
students upon their graduation. Whether short- or long-
term, partnerships can help fill gaps outside of a water
employer's administrative capabilities.

Finally, recruitment centric partnerships can include
coordinating an assembly for a water-related activity
with the local school district or contributing to the
curriculum for a water treatment technologies course
administered at a community college. Water workforce
employers can also partner with trained human
resources professionals or consultants to improve job
listings to better set expectations, workplace accessibility
accommodations, and more aspects of retention.

Partnerships can also be used to facilitate trainings and provide educational materials that may be outside the
employer's capacity or expertise.

One particularly strong approach to partnership is sectoral partnership, which is a systems-level approach to
equitable workforce development that aligns employer demand for a skilled workforce with available workers by
bringing together a range of key partners to train and place workers into high-quality jobs. In sectoral partnerships,
multiple employers support shared resources and are supported by a backbone coordinating organization. DOL's
Employment and Training Administration (ETA) Sector Strategies Technical Assistance Initiative: State Support
For Sector Partnerships; A Guide For Action states that "At their core, these efforts bring together businesses (by
industry) and connect them with community colleges, universities, economic development, the workforce system
and other community partners in an organized effort to better align education and training to the needs of the
economy." Sectoral partnerships have been demonstrated to be highly effective talent development engines for
industry, and have produced superb labor market results for workers, including historically underserved workers.

Partnerships can connect water workforce employers to communities and involve community leaders and locai
advocates. Collaborating with partners can help strengthen communities in several ways, such as providing
participants with the education, life skills, and career readiness needed to secure full-time employment and financial
independence. Water workforce employers can align their workforce strategy and hiring practices to support their
community's broader economic development and social impact goals to benefit both the organization and their
partners. Partnerships between water utilities, communities of color, women, and others can help develop a more
diverse water workforce of the future. Water associations, regional and national organizations, and Federal and state
agencies that focus on the water workforce are instrumental in establishing and continuing partnerships.

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Source: "Making Water a Career of Choice: A Compendium of Water Workforce Case Studies from Across the
Country" (U.S. EPA, 2022)

The City of Atlanta's Department of Watershed Management (DWM) created a series of workforce initiatives
to address recruitment issues and challenges. For example, DWM partnered with other city offices and local
educational institutions to provide water operator certification programs for historically underrepresented
groups. DWM also partnered with:

1)	WellSpring Living, a program for at-risk women and victims of sexual exploitation, to launch an
apprenticeship program as a pathway to full-time employment; and

2)	The City of Atlanta Department of Corrections, the Georgia Department of Corrections, and the
Urban League of Greater Atlanta to create the Preparing Adult Offenders to Transitions through
Training and Therapy (PAT) program. PAT aims to reduce the recidivism rate and reintegrate individuals
who have been incarcerated back into the community through vocational training. DWM has
permanently hired 13 program participants from the PAT program since 2018.

In another example, the Philadelphia Water Department (PWD) partnered with other agencies including
Philadelphia Parks and Recreation and the Philadelphia Department of Human Services to design a workforce
development program called PowerCorpsPHL. PowerCorpsPHL is a multiphase program for young adults aged
18 through 28 to gain job readiness skills and secure meaningful employment. The program is specifically
designed to support disconnected young adults, and collaborates with social service programs, including
alternative high schools, foster care, and probation officials, to recruit more than 50 percent of their
participants. The program consists of two phases:

1)	a full-time, crew-based service focused on team building, such as community clean ups or
maintenance of public parks. Upon completion participants can earn an education award of up to
$2,000; and

2)	an industry academy, which can involve working directly with PWD.

Participants are compensated during both phases. This partnership has helped PWD complete more projects
and work orders, increase their community engagement and visibility, and successfully develop new talent. As
of the end of 2022, 30 PowerCorpsPHL members are employed at PWD.

Section 2b: Water Workforce Challenges

The challenges the water workforce is facing surrounding recruiting, training, and retaining workers leaves both
water utilities and the public vulnerable. This Section summarizes major challenges facing the water workforce.

These were identified through a workforce literature review and various engagements with water stakeholders, such
as the 2018 National Water Sector Workforce Convening, EPA's 2020 America's Water Sector Workforce Initiative, and
the interviews and consultations conducted in the development of this report.

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Workforce Challenge 1: The water workforce is aging.

As the baby boomer generation reaches retirement age, it will be a major challenge to ensure enough incoming
members to the water workforce. The median age of the current workforce is 48 years old, which is slightly older
than the national median across all occupations (Kane, 2022). Estimates indicate one-third of the United States water
utility operators will be eligible for retirement within the next 10 years (Kane, 2022). Meanwhile, only 10 percent of
the water workforce is under the age of 24 (Kane & Tomer, 2018). With an insufficient influx of new, trained talent,
extensive job vacancies in the water workforce are a concerning issue that is already taking form. Institutional
knowledge about water utilities cannot afford to be lost. The source of water, necessary treatment, equipment
idiosyncrasies, water quality issues that may occur seasonally, and the concerns of consumers are all system-specific
and take experience to manage. Not having enough water workers and the loss of staff overlap, where potential
mentors can pass on system-specific knowledge, are risks to both the maintenance of critical infrastructure and
public health.

Workforce Challenge 2:
Replacement of aging water
infrastructure creates a high
demand on the water workforce.

With approximately 850 daily water main breaks in the
United States, wasting trillions of gallons of drinking
water and costing more than $3 billion annually in
repairs, the water workforce is in great demand for the
repair and maintenance of infrastructure; however,
only about 53 percent of water utilities indicate their
organizations are fully prepared for meeting long-term
water needs (Flancher, 2022). The aging condition of
many water infrastructure systems beyond their usable
service life increases vulnerability to leaks and pipe
failures. Deterioration of infrastructure components is
a significant threat to the treatment and distribution
of drinking water, and to reliable sanitation and waste management. The IIJA, also known as the Bipartisan
Infrastructure Law (BIL), provides a historic investment in repairing this aging infrastructure and thus will increase
the current demand on the nation's water workforce. For example, the recent focus on identifying and replacing lead
service lines compounds the need for additional workers. Additionally, there are emerging concerns around long-
term water availability in certain regions during drought conditions and as populations increase. To meet increasing
demand and overcome water infrastructure strains, the water workforce must achieve a new level of robustness and
sustainability, greater than its current status.

Workforce Challenge 3: Recruitment and retention of workers is subject to
wide variation in the capacities of water utilities across the United States.

The highly localized nature of water operations can make it challenging to recruit for job openings. Several water
utilities detailed some of the major workforce challenges from their perspective to the Working Group. There is wide
variation in the capacities of water utilities across the United States. Depending on the resources available to them,
there are differences among utilities in their abilities to recruit, retain, and train workers. For example, financial
constraints of water utilities can limit their ability to offer competitive wages and advancement opportunities to
retain workers over time. A water utility's ability to recruit and retain workers also varies depending on its geographic
location. Small utilities in rural areas may have a limited pool of candidates for vacant operator positions and may
offer less compensation compared to a larger utility, making worker recruitment and retention difficult due to

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limited resources. The working demands can be very high, and there are limited funds to operate the water utility
and pay for necessary upgrades to the system. Small water utilities often have only a single operator, who must be
available every day. Frequently, the operation of these water utilities necessitates a wider range of expertise than
that required for larger utilities, which can make recruitment challenging. They also often rely upon volunteers or
share operators to reduce costs for operating the utility. This can result in contract operators being responsible for
multiple utilities spread over large distances, limiting their time on site. Additionally, a lack of available supervisor
positions in these small utilities can result in individual workers looking for advancement opportunities to seek other
employment.

More broadly, in areas where other career options are readily available, water workforce careers might lack
competitive salaries compared to other local technical industries, like manufacturing or construction, and have
trouble attracting and retaining skilled talent. It is difficult to recruit new workers as some people may not want
to move for job placements, especially if the salaries are lower. A representative from Missouri consulted by the
Working Group described a limited pool of candidates in the rural area of the state to fill water treatment operator
positions. Overall, water utilities of any size may struggle with their capacity to address the increasing demands and
complexity of operating a utility. The introduction of new regulations, as well as the integration of new treatment and
information/cybersecurity technologies, requires existing workers to receive additional training and new workers to
develop more skills. Additionally, state agency representatives consulted by the Working Group noted pay disparities
across the state for operators with the same certification/license. For example, an Ohio representative described that
a Class 4 operator (i.e., the highest-level in the state) can earn around $54,000 annually in the southeast area of their
state, whereas within a larger city, the Class 4 operator would likely make $125,000. These pay discrepancies can
cause varied retention by geographic area.

Workforce Challenge 4: Water workforce careers lack public visibility.

Across the utilities, water sector organizations, education programs, and state agencies that were consulted, many
described issues around public perceptions of the water workforce. The water workforce is vital for protecting
public health by ensuring high quality drinking water and safe sanitation. However, at large, many people do not
understand the critical nature of these careers, the efforts required to manage water and sanitation, and that water
utility workers are often first responders during emergencies. Although water workforce careers provide stability and
require lower post-secondary education levels than the market average, recruitment is still a challenge due to a lack
of visibility about water workforce opportunities. In 2018, workers within the water workforce earned on average an
hourly wage that ranged between $14.01 to $17.67 while the national average of hourly salaries was between $9.27
and $11.60 (Kane & Tomer, 2018). Although water workforce wages are higher than national averages, they are not
necessarily commensurate with wages of other technically skilled industries nor wages offered by private industry.
For example, according to the U.S. Bureau of Labor Statistics' May 2023 National Industry-Specific Occupational
Employment and Wage Estimates, the median hourly wage for Water, Sewage and Other Systems is $25.98, while
other utility industry medians such as Electric Power Generation, Transmission, and Distribution ($47.88) and Natural
Gas Distribution ($45.01) are nearly double.

Additionally, most people are not aware of water workforce career opportunities and the types of careers available
(e.g., treatment operator, billing clerk, superintendent). Specifically, a Working Group representative from the
DOL mentioned that reaching out to their grant recipients about jobs pertaining to the water workforce may be a
challenge as these jobs are not widely understood and may not be perceived as high-demand occupations because
they employ relatively few workers in absolute terms and most job openings are due to the need to replace retiring
workers. However, while these jobs may not be projected to grow substantially, often such workers are providing an
essential service to the community, and outreach to DOL grant recipients, workforce organizations, and jobseekers
could focus more on the importance of these jobs rather than just projected growth. The public perception of the
cost of water is extremely critical, and there is a disconnect in understanding between water rates that consumers
pay and the cost of operating and maintaining the water utility (including paying for the operators). Outreach by the
water utility to various stakeholders in the community to help the public better understand the operations and needs

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of the utilities that underlie the water services, such as water treatment and maintenance work, can help strengthen
the utility's credibility and the sector's overall visibility. Additionally, numerous water utilities often adopt cutting-
edge technologies, like deploying robots for sewer line inspections or drones for water tower checks, alongside
technology that necessitates skillsets in cybersecurity. Showcasing and incorporating innovation into outreach efforts
could help appeal to a younger population. Water utilities can no longer be the silent service provider. Focused
actions to recruit talent into the water workforce are needed.

Low public awareness makes it harder to attract and recruit new hires as well as creates difficulties with retention.
The Working Group also explored the important role that education and research programs have in workforce
development. The education stakeholders consulted highlighted several issues that make it particularly challenging
to promote the water workforce to students. In addition to the lack of public awareness about the water workforce,
there is a lack of collaboration between employers and schools in facilitating water workforce opportunities such as
pre apprenticeships, apprenticeships, and internships. There are also barriers to entry into the water workforce, such
as state or local civil service exams, background checks, strict hiring practices, and financial barriers. Education and
research programs also described the importance of developing strong curricula for training programs. They noted
that many of the hands-on skills learned through on-the-job training at water utilities can be challenging to replicate
through remote learning options. Additionally, they noted that apprenticeships are needed at all career levels, not
just within the skilled trade or equipment-heavy disciplines, to attract and train a range of talent into the water
workforce.

Workforce Challenge 5: The water workforce lacks diversity.

The water workforce struggles with recruiting and retaining
candidates of diverse backgrounds. There are severe demographic
disparities in race and gender: nearly two-thirds of the water
workforce is white and nearly 85 percent of workers in the water
sector are male (Kane & Tomer, 2018). There is also a lack of
individuals from historically underrepresented backgrounds holding
higher paying positions. While there are more Hispanic workers
employed in the water workforce than the national average of
all occupations within the United States, the types of positions
held indicate a high amount of construction and day laborer roles
within the water workforce and do not reflect a diverse presence in
leadership roles. Also, of the 15 percent of women who make up the
water workforce, 95 percent of them hold administrative jobs (Kane
& Tomer, 2018). Less than two percent of the women in the water
workforce are plumbers, and about five percent are water treatment
operators (Kane & Tomer, 2018). A representative from the DOL's
Office of Disability and Employment Policy (ODEP) estimated that
people with disabilities only made-up 3.4 percent of the water
workforce in 2016 (personal communication with U.S. DOL, 2024).

Reducing employment barriers to water workforce career entry can improve the diversity of individuals who
participate in the water workforce. Through the Working Group consultations, several barriers to entry were
identified, including the cost and study time needed for necessary exams, the appearance that those with disabilities
need not apply, strict hiring practices, and the job requirements of reliable and accessible transportation, accessible
technology and childcare. For example, depending on the exam required (e.g., civil service, licensure) there may
be several hundreds of dollars in registration fees, preparatory course fees, and preparation material costs. A
representative from the DOL's ODEP also described the need for reducing employment barriers for those who have
disabilities. The ODEP representative noted that when engaging with infrastructure employment sectors (e.g.,
construction, water, and energy industries and their unions), there is a lack of awareness about disability issues in

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the workforce, and employers do not understand the types of reasonable accommodations that can be offered, A
Working Group representative from the VA also indicated that veterans with service-connected disabilities may need
additional context about water workforce positions and descriptions of the physical requirements of those positions.
In addition, the physical workplace may not be accessible via public transportation and may require visits to remote
locations or across uneven terrain which may be challenging to accommodate for those with accessibility challenges.
Direct challenges relating to water workforce hiring are not fully understood. However, the need for DEIA recruitment
in the water workforce is clear given the demographic disparities identified by Kane & Tomer (2018) in the paragraph
above. Water utilities need to ensure they are fostering DLIA focused working environments that will retain workers
in the long-term and attract future generations of workers. Federal participants in the Working Group also detailed
challenges around accessibility of these careers, and how considerations such as flexible working hours, accurate and
descriptive job postings, and efforts to improve employers' understanding of potential workplace accommodations
could help people with disabilities participate in the water workforce. The Working Group also recognizes the
challenges related to the tribal water workforce. In 2019, EPA convened a Tribal Infrastructure Task Force Workforce
Workgroup that identified issues including high expenses to hire on-site trainers and longer travel times for trainees
(U.S. EPA, 2019).

Workforce Challenge 6: There are inadequate resources to support skill
development and training programs in the water sector.

Water workforce members and potential recruits need technical training. Approximately 78 percent of the overall
positions related to the water workforce require at least one year of relevant work experience (Kane & Tomer,
2018). Further, specific career paths of water treatment operators, plumbers, and technicians require two to four
years of related work experience. Many positions in the water workforce require technical knowledge of science,
technology, engineering, and mathematics (STEM) concepts including chemistry theory, hydraulics principles, water
and ventilation systems, basic plumbing, math, and statistics (Kane & Tomer, 2018). A subset of engineering positions
in the water workforce also requires professional engineering (PE) licensure, which is earned through individual
state licensure boards. Once earned, workers must, over
the course of their careers, continually meet state-specific
continuing education requirements to maintain their PE
licensure. These requirements pose additional resource
needs in the form of added technical training, PE licensure
examination and registration fees, and facilitation of
state PE license reciprocity in instances where workers
accept positions in another state. Additionally, many
water workforce workers must understand operating
manuals and plumbing specifications, operate precision
instruments, and communicate technical and non-
technical information. On average, members of the water
workforce use 63 different tools and technologies each
(e.g., hand tools, construction and excavation equipment,
accounting, design, and mapping software), compared to
the six tools and technologies typically used by workers
in all occupations nationally (Kane & Tomer, 2018). An
ED representative participating in the Working Group
emphasized the need for advancing K 12 STEM education
initiatives to help bolster the future technical workforce.

As many as 53 percent of the water workforce has a high

school diploma or less (Kane & Tomer, 2018). Personnel can continue to develop their skills through on-the-job
training, apprenticeships, certification programs, and vocational/technical school training. A skillset gap is growing,
especially as the current water workforce retires and technology advances.

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Another challenge in this area detailed in Working Group consultations is that training materials and operator
courses tend to focus only on entry-level work. Operators need training and study materials to advance to higher-
level certifications. A stakeholder from Missouri described an increasing need for the creation of upper-level training
courses to help workers prepare for promotions, be more hirable, and continue their career growth. However, it
may be challenging to train instructors and develop materials related to more advanced treatments and innovative
technologies. There is a need for increased planning and investment in developing adequate training programs at
different career stages, from various entities including Federal agencies, state agencies, and utilities, to increase
public awareness around these training opportunities.

Workforce Challenge 7: There is a lack of reciprocity for water operator
certifications from state to state.

EPA sets guidelines that provide states with the minimum standards for developing, implementing, and enforcing
operator certification programs for drinking water systems. However, state-level requirements for operator
certifications/licenses may have different exam, education, and training requirements. Variations by state can result
in issues in securing employment for recently relocated operators. Some of the participating stakeholders described
how the lack of standardization of the different operator classes results in challenges for states in assessing which
tasks a certain class of out-of-state operator is qualified to perform. Often, the qualifications of water operators are
integrated into state statute and are therefore difficult to change. According to state agencies that were consulted,
the drinking water sector could benefit from additional state efforts to facilitate reciprocity of water operator
certifications. This could help water utilities employ new operators from out of state by allowing their qualifications
to transfer more easily when they relocate.

Workforce Challenge 8: Many water workforce positions have challenging
working conditions or demanding workloads.

Some potential recruits to the water workforce may be
deterred by difficult working conditions. Water workforce
workers may struggle with shift work as well as routinely
working weekends, nights, and holidays. Additionally, some
of these positions require field work and require work
during poor weather and responsibility during emergencies.

These demands may impact worker retention in preference
for a position where they are not exposed to the elements
and are not on call for emergency work. Additionally, water
utilities may have challenging interactions with the public
over issues such as water availability, interruptions in water
service, water quality, and water rates. One state agency
representative provided an example in which an operator
may be responsible for disconnecting a household's drinking
water if the customers are not paying their water bill,
which can be a difficult and potentially dangerous situation.

Certain responsibilities of these positions can also deter
workers from moving forward with their certifications. In
one example provided by a stakeholder in the Working
Group consultations, an attorney in Pennsylvania held a
workshop outlining the significant legal liabilities of an
operator in protecting public health. This raised concerns
among operators and may have affected their willingness to
pursue certification/license.

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SECTION 3: FEDERAL EFFORTS TO DEVELOP THE

WATER WORKFORCE

Government agencies, industries, and technical
experts have a history of successfully collaborating
to support the water workforce and help ensure
communities' water needs are met. For example, EPA
convened with stakeholders, including water workforce
associations and other Federal agencies, to develop
the 2020 Initiative report about the water workforce.

Representatives from those agencies continued these
discussions as part of this new Working Group. One-
on-one calls with each Federal agency or department
represented in the Working Group contributed
additional insights on programs conducted across
agency offices and their grantees. Section 3a describes
both existing and upcoming Federal agency efforts
that directly relate to the water workforce. Section 3b
describes broader Federal efforts and initiatives that
have potential synergy with or applications to the water
workforce. Appendix 3 provides a comprehensive list of
the Federal programs detailed below that 1) focus on

water workforce challenges directly; or 2) represent cross-sector workforce development efforts with
for future applications to the water workforce.

the potential

Section 3a: Water-Focused Federal Agency Efforts

This section, organized by Federal agency, summarizes Federal efforts specifically focused on the recruitment,
training, and reten tion of the water workforce. Working Group members from EPA, DOL, VA, USDA, and ED described
current activities and provided updates on efforts that were previously described in the 2020 Initiative report.

EPA has been integral in convening stakeholders to discuss water workforce challenges and documenting case
studies (U.S. EPA, 2018; U.S. EPA, 2020; U.S. EPA, 2022). Specific examples of water workforce efforts undertaken
by EPA include:

A Water Sector Workforce and Building the Capacity of Drinking Water Systems websites: EPA developed
and manages these websites which provide a wide array of information.

Water Sector Workforce Web;iws and Case Stud;e.s: Since 2019, EPA has hosted a series of webinars
highlighting programs implemented by utilities and associations to support the water workforce. Topics
have included: Women in Water (September 2023 and June 2022), Ensuring Diversity, Equity, and
Inclusion in the Water Workforce (March 2023), Role of Academic Institutions in Creating the Water
Workforce of the Future (August 2022), Technology Adoption at Utilities (December 2020), and more.

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EPA has also published a compendium of Water Workforce Case Studies describing in detail how a
number of utilities are implementing innovative programs to address their unique workforce challenges.

^ Knowledge Retention Tool Spreadsheet for Small Water Systems: EPA developed a suite of interactive
tools for water utility owners and operators that includes the Knowledge Retention Tool Spreadsheet for
Small Water Systems. This tool is designed to assist in the event of staffing changes or to pass knowledge
to new or inexperienced staff and helps to improve the overall retention of institutional knowledge
about the water utility.

6 Water Operator Hiring and Contracting Guide: This resource helps water utilities navigate the process
of hiring or contracting operators and outlines the role of operators to support compliance with
regulations.

4 Innovative Water Infrastructure Workforce Development Program: Established in 2021, this grant

program's purpose is to fund initiatives to build public awareness around drinking water and wastewater
career opportunities. EPA awarded grants to nine organizations including community colleges,
universities, water workforce associations, trusts, and council groups, receiving a total of $3.8 million
in funding. The Innovative Water Infrastructure Workforce Development Program has funded activities
such as:

fe preparing, educating, and informing interested students of pathways to water workforce
careers;

^ providing training and other assistance to help individuals pursue a career in water with local
water utilities;

establishing internship programs for high school students to learn about water utilities and
natural resource management; and

^ enhancing the management and leadership skills of water utility administrative professionals.

4 Training and Technical Assistance to Improve Water Quality and Enable Small PWSs to Provide Safe
Drinking Water grant program: This program supports small drinking water utilities with building their
technical, managerial, and financial capacity to provide safe drinking water. It provides funding to
organizations that work side-by-side with these water systems, giving these systems the training and
technical assistance they need to build their capacity. Improved capacity can also help attract and retain
operators.

^ Drinking Water State Revolving Funds (DWSRF): Established by the 1996 amendments to the SDWA, the
DWSRF is a financial assistance program to help water systems and states achieve the health protection
objectives of the Act. This program is covered by the Justice40 Initiative.1 Additionally, eligible projects
are also eligible to receive assistance from the Water Infrastructure Finance and Innovation Act (WIFIA).
Some workforce training costs are eligible for funding under the DWSRF program:

, By statute (SDWA section 1452), DWSRF funds are available as loans or other financial

assistance supporting the planning, design, and construction of capital infrastructure necessary

Established by Executive Order 14008 on Tackling the Climate Crisis at Home and Abroad, the Justice40 Initiative has set a goal that
40 percent of the overall benefits of certain federal investments, such as climate, clean energy, and other investment areas, flow to
disadvantaged communities that are marginalized by underinvestment and overburdened by pollution.

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for eligible water systems to achieve or maintain compliance with the SDWA. Workforce-
related project start-up costs, such as training for equipment operation, are eligible under the
DWSRF infrastructure loan fund if those costs are included as part of the construction contract
or engineering services. For example, if the DWSRF is funding a treatment plant upgrade at a
community water system, as part of the DWSRF loan, the system can, for a limited time, pay for
training its operator(s) to use the new/upgraded equipment.

By statute (SDWA section 1452), state DWSRF managers have the authority to take a portion of
the federal capitalization grants from EPA as "set-asides" for specific purposes. These set-asides
may be used for a variety of work-force related training programs, including on-the-job-training,
operator certification programs, training demonstrations of monitoring technology and
techniques, training on new and existing drinking water regulations, and training in contingency
and emergency response. This training is wholly separate from the capital infrastructure-
related training mentioned above. States have the discretion to set aside up to approximately
31 percent of each federal capitalization grant for set-aside activities.

4 Clean Water State Revolving Funds (CWSRF): The CWSRF was established by the 1987 amendments
to the Clean Water Act (CWA). The CWSRF is a financial assistance program for a wide range of
water quality infrastructure projects, including municipal wastewater treatment, nonpoint source
pollution control, and stormwater runoff mitigation. This program is covered by the Justice40 Initiative.
Additionally, eligible projects may also be eligible to receive assistance from the WIFIA. Some workforce
training costs are eligible for CWSRF funding:

By statute (CWA section 603(c)(1)), CWSRF funds may be provided for the "construction of
publicly owned treatment works." Similar to the DWSRF, project start-up costs, such as limited
training during the start-up period for equipment operation, may be eligible under the CWSRF
infrastructure loan fund if those costs are included as part of the construction contract or
engineering services.

4 State Revolvinfi Fund (SRF) BIL Implementation Memo: EPA's March 8, 2022, memorandum outlines
a strategy for collaborative implementation, with states, local communities, and Tribes, of the $43
billion in water infrastructure funding that is flowing through the Clean Water and Drinking Water SRFs
under the BIL. It covers Clean Water and Drinking Water SRF provisions of the BIL. EPA listed supporting
American workers and renewing the water workforce as one of the key priorities, committing to working
with states, tribes, and territories - as well as labor organizations, employers, and educators - to renew
America's water workforce and create good-paying jobs in communities across America. The memo
reiterates that workers on projects receiving SRF BIL funding are required by law to be paid prevailing
wages under the Davis-Bacon Act, and that states should be enforcing those requirements as they
implement SRF BIL funding. It also encourages pre-apprenticeships, Registered Apprenticeships, and
youth training programs that open pathways to employment. Recipients of SRF funding are encouraged
to support safe, equitable, and fair labor practices by adopting collective bargaining agreements, local
hiring provisions (as applicable), project labor agreements2, and community benefits agreements.

"Project labor agreements are pre-hire collective bargaining agreements negotiated between construction unions and construction
contractors that establish the terms and conditions of employment for construction projects. For more information, see the DOL's
Project Labor Agreement Resource Guide.

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• Lead Service Line Replacement Accelerators: Established through BIL's historic investment in water
infrastructure, this partnership between EPA, four states, and about forty communities aims to
address barriers and accelerate progress toward eliminating water pipe materials made of lead,
including documenting the location of these lines and replacing them. The program will support the
development of community engagement plans which aim to engage community members in these
water infrastructure improvement projects to identify and replace lead service lines. As EPA works
directly with these states and their communities, the Agency will glean information on labor and
workforce development challenges and share those lessons learned nationally, to help other states
and communities facing similar challenges. For example, Accelerator communities in New Jersey are
exploring collaboration with local community colleges, technical colleges, and universities to support the
lead service line inventory process. Students would be trained in service line material identification, and
then would survey lines across their campuses and community, collecting and reporting the data. Their
work would be incorporated into the service line inventory and expose students to a career in the water
workforce.

4 Water Technical Assistance (WaterTA): Also established through BIL's investment in water infrastructure,
EPA's WaterTA program is working with individual communities to understand their needs and to develop
tailored solutions. In addition to water infrastructure, EPA's WaterTA providers can assist communities
with establishing programs and practices that address workforce needs. Under the WaterTA Community
Solutions Team pilot program, Tunica County, Mississippi leveraged the technical assistance it received to
assess workforce needs and develop sustainable solutions that integrate workforce programming, such
as expanding a local apprenticeship program.

^ Tribal Infrastructure Task Force Workforce Workfiroup: In 2019, EPA convened a workgroup including
tribal utility personnel, tribal consortia representatives, technical assistance providers, and Federal
representatives from the Indian Health Service, Bureau of Indian Affairs, USDA, and EPA. Many tribal
water utilities support small populations in remote rural communities and may face difficulties
maintaining a full workforce due to a variety of factors. These include longer travel distances for trainees
or lack of educational resources compared to urban areas. The subsequent report identified approaches
to address recruitment, training, and retention challenges for the infrastructure sector with applications
to water (U.S. EPA, 2019). These approaches included:

-< launching a public relations campaign around infrastructure career opportunities;

analyzing training needs and providing support to the water workforce in gaining access to
appropriate certifications and trainings; and

providing resources to existing staff through competitive compensation and recruiting
management positions from within the water utility.

4 WaterSense Program: This voluntary program focuses on advancing water-efficient products and

services. It also labels profirams that certify irrifiation professionals who are trained on water efficiency.
To date WaterSense has labeled 8 programs throughout the country. One of the programs, the Qualified
Water Efficient Landscaper Program, operated by the Sonoma-Marin Saving Water Partnership, has been
adopted by 20 organizations including water utilities, non-governmental organizations, and academic
institutions. Their educational program is also offered in Spanish. These and other WaterSense-labeled
programs have certified more than 4,500 professionals throughout the country, including water utility
staff, and have been useful in areas seeking to build a trained workforce that can tackle outdoor
water use.

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DOL's Office of Apprenticeship within the ETA ensures equitable access to Registered Apprenticeship programs,
provides training to employers and training programs, and helps establish guidelines around apprenticeable
occupations. An apprenticeable occupation is one which requires independent judgement and the application
of manual, mechanical, technical, or professional skills, which are best learned through an organized on-the-job
training course with related and supplemental instruction.

In 2023, the DOL signed a Memorandum of Understanding with EPA seeking to promote cooperative efforts
between both agencies in promoting good jobs that support the green economy and to develop strong training
and career pathways into these jobs. The 'green economy' represents a wide range of industries essential to
protecting the environment and human health. It includes water infrastructure as well as other environmentally
related fields (e.g., engineering; environmental preservation, protection, and remediation; and environmental
justice). Specifically for workforce development, the memorandum describes collaborative efforts towards:

^ Exploring strategies for ensuring that EPA's unprecedented BIL and Inflation Reduction Act (IRA)
investments, such as workforce training and development programs funded under the IRA's
Environmental and Climate Justice Block Grants, produce high quality jobs for workers.

6 Evaluating EPA's existing workforce development programs, including the Innovative Water Infrastructure
Workforce Development program, to identify opportunities to enhance, scale, and align those programs
with other workforce development initiatives to maximize their impact.

4 Encouraging and incentivizing state and local governments to leverage funding to invest in environmental
job training through EPA's State Revolving Fund resource program.

4 Promoting best practices for creating and expanding education and training programs, including how
state, tribal, and local governments can partner with the state and local workforce boards, job centers,
community colleges, and apprenticeship and training programs.

Additional examples of DOL programs directly related to the water workforce include:

6 Appenticeship.fiov: DOL developed and manages this one-stop portal for jobseekers, and employers, and
other workforce system entities. Presently, the Registered Apprenticeships Job Finder has more than 300
open positions across the United States related to the keyword "water," including:

k PI umbing/Well Water Apprentice

fe Apprentice Lineman/Water Operator

b Water Pipefitter Apprentice

b Water/Wastewater Treatment Plant Operator Apprenticeship
Utilities Maintenance Mechanic Apprentice in Water Production

4 Water and Wastewater Competency Model: In 2016, DOL and EPA co-led a workgroup to update this
model, which identifies skills required for various water workforce positions and can be used to help
design and guide future apprenticeship programs.

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VA hoiistically supports service members and eases their transition into the civilian workforce. In 2020, EPA
and the VA signed a Memorandum of Understanding agreeing to collaborate on promotional activities that
will support career development opportunities for veterans with disabilities within the water workforce. The
following program has integrated part of the MOU agreement to promote a veteran workforce in the water
sector:

^ VA Non-Paid Work Experience (NPWE) profiram: This program provides eligible service members and
veterans with technical training and practical job experience in Federal, state, or local government
agencies. The NPWE program is a crucial effort toward developing water workforce opportunities for
military personnel. NPWE provides participants monthly allowances to cover their living expenses. As
NPWE offers direct allowance to eligible participants, this program is provided to agencies at no cost.
EPA continues to coordinate with water sector organizations to highlight the important benefits that the
NPWE program offers to state and local employers in meeting government water workforce needs.

USDA administers a variety of grant programs related to water infrastructure improvements which are
available to support organizations and associations focused on workforce development and advancing rural
communities. In February 2020, EPA Office of Water and USDA-Rural Development Rural Utilities Service signed
a Memorandum of Afireement which describes continuing efforts to support the water workforce and promote
awareness of rural water sector careers. The program below relates to efforts by USDA to support the water
workforce:

4 Technical Assistance and Traininfi (TAT) Grant: This grant program managed by USDA allows public
entities, Federally-recognized tribes, and private nonprofit corporations to receive technical support
to improve community water and wastewater utilities. Water workforce development has been
funded through and supported by the TAT grant program since fiscal year 2018. The national water
apprenticeship program and the delivery of water and wastewater training programs for tribal water and
wastewater workforce development were included among the project descriptions recommended for
TAT fundinfi in fiscal year 2022.

Section 3b: Broader Federal Efforts Applicable to the Water Sector

Issues with recruitment, training, and retention in the water workforce are a subset of larger workforce
challenges across the infrastructure sector. Transportation, energy, structures, and water are among the
different critical infrastructure sectors for which there is an increasing demand for labor, especially to deliver on
objectives funded by the HJA such as: deliver clean water to all American families and eliminate the nation's lead
service lines, repair and rebuild roads and bridges, and upgrade power infrastructure to deliver clean, reliable
energy across the country. There is a broad need for workers with technical abilities, vocational training, and
other infrastructure-relevant skills. Various Federal agencies have programs addressing workforce development,
STEM education, and other initiatives to help the United States prepare for future challenges around both

USDA

United States
Department of
Agriculture

U.S. Department of Agriculture

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an aging population and aging infrastructure. This section describes the broader assistance grants, inclusive
apprenticeships, and other Federal programs reported by the Working Group members that provide cross-
sector workforce development opportunities and which have the potential for future applications to the water
workforce.

The majority of EPA's workforce development efforts are specific to a given environmental objective (e.g.,
workforce efforts supporting water sector programs, or workforce efforts supporting brownfields and land
revitalization programs). Several of EPA's water workforce-specific efforts are detailed in Section 3a, including
the Innovative Water Infrastructure Workforce Development Profiram. During a 2018 national water sector
workforce convening facilitated by EPA, participants identified a broader potential initiative that may have future
water workforce applications, indicating there are transferable skills between careers in transportation and in
water (e.g., engineers, construction workers, electricians, and machinists), and that Federal efforts to recruit,
train, and retain workers with infrastructure sector-applicable ski I Isets can directly benefit the water workforce
with additional planning and coordination (U.S. EPA, 2018).

DOL is a workforce-centric department, with offices including the Women's Bureau (DOL-WB), ETA, and ODEP.
The DOL contributed information via this Working Group about broader initiatives that could have future water
workforce applications. These initiatives include:

4 Women in Apprenticeship and Nontraditional Occupations (WANTO): This DOL-WB program provides
technical assistance to employers and labor unions to encourage the recruitment, training, and retention
of women in apprenticeable and nontraditional occupations. In 2022, the WANTO grant program
awarded $3.4 million to five community-based organizations for technical assistance activities which can
include offering a pre-apprenticeship program, providing presentations for employers, and facilitating
conversations about difficulties in recruiting and retaining women. A DOL Working Group representative
noted that the WANTO program could have important parallels that should be considered in the process
of developing registered water workforce apprenticeship opportunities. Recent WANTO grant recipients
focus on Registered Apprenticeship programs related to construction, information technologies, and
manufacturing, which are relevant skills to the water sector. The recipients will provide one or more of
the following types of technical assistance:

b developing pre-apprenticeship or nontraditional skills training programs to prepare women for
a variety of careers;

providing ongoing orientations for employers, unions, and workers on creating a successful
environment for women to succeed in those careers; and

I setting up support groups, facilitating networks, or providing support services for women to
improve their retention.

^ Job Corps: This program is the largest residential youth career training program with 123 campuses
nationwide. Job Corps addresses training and recruitment by providing eligible young people from the

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ages of 16 through 24, personal and career counseling, academic and career technical training, support
services and job placement services to enter into an entry-level job, Registered Apprenticeships, military
or further post-secondary education. Job Corps has served over two million individuals since 1964.
Technical training currently provided by Job Corps can potentially provide transferrable skills into the
water workforce. Additionally, introducing technical training specifically related to the water workforce
may provide program participants with knowledge and skills relating to the water workforce. This
program is covered by the Justice40 Initiative. Job Corps currently offers career technical training in 10
high-growth industry sectors, several of which are within the infrastructure sector:

1.

Advanced Manufacturing

2.

Automotive and Machine Repair

3.

Construction

4.

Finance and Business

5.

Flealthcare

6.

Flomeland Security

7.

Hospitality

8.

Information Technology

9.

Renewable Resources and Energy

10. Transportation

4 Good Jobs Initiative: This DOL initiative provides guidance to agencies that receive BIL and IRA funds.

This guidance is focused on the creation of high-quality job opportunities as well as the characteristics of
those opportunities, with an emphasis on supporting underserved communities. DOL provides technical
assistance through this initiative by developing job quality and equity standards, and ensuring that these
standards reflect the goal of retaining workers and ensuring retaliation-free work environments. The
DOL's publication, Good Jobs in Federal Investments: a toolkit for employers, workers and government,
provides information and tools on how to increase job quality through federal funding but the
information can also inform employers on how to create good jobs in their respective sectors. State and
local water workforces can apply the toolkit model to improve existing or new positions in the water
sector, thus aiding in retention. Additionally, the Good Jobs Initiative website features an example of a
high-quality job and describes a partnership between the City of Newark, New Jersey, labor unions, and
local and state government to replace lead service lines in the water utility. Newark set forth contracting
goals for the work including 25 percent minority-owned businesses and seven percent women-owned
businesses. The project also included project labor agreements that required the contractors to hire
inclusively from underrepresented populations for jobs in active construction. Many workers who were
trained for this project experienced improved financial conditions and have been retained into the water
workforce. This example demonstrates how the Good Jobs Initiative guidance can continue to be applied
to recruitment, training, and retention challenges in the water workforce.

4 Apprenticeship Building America (ABA) Grant Program: This ETA program aims to strengthen and
increase enrollment in Registered Apprenticeship programs. These services are primarily provided
through state and local workforce development systems. Many water occupations are positioned to be
supported under this program as they are already considered apprenticeable or suitable for Registered
Apprenticeship training.

^ Job Accommodations Network (JAN): ODEP created JAN as the leading source of free, expert, and

confidential guidance on job accommodations and disability employment issues. An ODEP representative

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^ mentioned that certain employment sectors are aware of this network and ways to make workplaces more
accessible, but some sectors, including various infrastructure partners ODEP has worked with, are less
aware. This program is offered to employers across any job sector. Employers in the water workforce can
utilize JAN to better understand and receive guidance on accommodating people with disabilities in the
water workforce.

^ Transition Assistance Program (TAP): TAP provides information, resources, and tools to service members
and their family, including children and spouses, to help transition from military to civilian life. TAP is
cooperatively managed by the DOL, the Departments of Defense and Homeland Security, ED, VA, and
the Small Business Administration. This program was established by Congress in the National Defense
Authorization Act (NDAA) for Fiscal Year 1992. Service members begin TAP one year prior to separation
or two years prior to retiring. TAP's interactive online courses and modules are designed to engage,
educate, and empower service members as they prepare to transition from active duty. TAP covers career
and employment topics such as civilian occupations and related assistance programs. TAP also provides
information on priority of service for veterans in the receipt of employment, training, and placement
services provided under qualified DOL job training programs. Providing resources related to the water
workforce and creating water workforce programs that qualify as DOL training programs can aid in
recruitment and training for veterans to the water workforce.

^ YouthBuild: This pre-apprenticeship program provides job training and educational opportunities for youth
ages 16 to 24 who left high school without a diploma and face other barriers to employment. YouthBuild
focuses on developing vocational skills in construction and other in-demand industries, including health
care, information technology, and hospitality. An ETA representative stated that skills developed via
YouthBuild are likely transferrable to the water sector. This program is covered by the Justice40 Program.

VA | |H rfveSnsXs U.S. Department of Veterans Affairs

The following VA efforts relate to supporting service members and their families through employment services
and could have future extensions toward promoting veteran participation in the water workforce:

4 Veteran Readiness & Employment (VR&E): This program provides employment options and addresses
education and training needs for military members with service-connected disabilities. A Working Group
representative from VA stated that a challenge they face is reducing barriers for those with disabilities.
The representative suggested creating reference materials describing the most sought-after positions
in the water workforce and listing the physical requirements of those positions to help market these
positions through the VR&E program. If Federal, state, or local government agencies provide water
workforce opportunities through the program, this could help promote recruitment and training.

4 Integrated Disability Evaluation System (IDES): This program is a joint Department of Defense and VA
disability evaluation process for Service members who have been found potentially unfit for continued
service for medical reasons and referred to IDES by their branch of service. Through this integrated
program, the Department of Defense assesses a Service member's fitness for continued service using
the same examinations and standards that VA uses to determine eligibility for disability compensation
benefits. If a Service member is found unfit for continued service, they are eligible to receive VA VR&E
services. This program also addresses training and recruitment. While the VA's VR&E Service focuses on
connecting veterans with jobs after they leave the service, the IDES program can serve as a resource to
increase awareness of water workforce careers among transitioning Service members.

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^ Economic Development Initiatives (EDI): These initiatives connect veterans located in specific geographic
areas with various benefits, services, and employment opportunities. A VA representative explained that
the program provides in-person events, such as career fairs. During the career fairs, employers from
the water workforce can participate in recruitment. EDI also provides in-person events in economically
distressed areas twice a year. The 2020 Initiative report described a collaboration between EPA and VA
Outreach, Transition, and Economic Development (VA-OTED) to facilitate water sector participation in
the VA Economic Investment Initiative program, now referred to as EDI, which is still ongoing.

^ Personalized Career Planning and Guidance (PCPG): This program supports service members who have
specialized goals with job preparedness. PCPG services include career choice assistance, educational and
employment plans, academic and adjustment counseling, VA benefits coaching, resume writing, and
interviewing skills. Incorporating resources and career guidance specific to the water sector may aid in
recruiting and training service members, veterans, and their dependents to the water sector.

^ SkillBridge: This program gives service members opportunities to obtain civilian work experience.

During the last 180 days of service, a service member's job training and work experience are matched
with civilian work opportunities. SkillBridge members receive military compensation and benefits while
participating in civilian work experience to help them transition out of the service. Industry partners
provide the training and work experience. Efforts to identify additional industry partners within the
water workforce as potential placements for SkillBridge participants could help recruit veterans into the
water workforce.

USDA supports many activities to bolster the economies of rural geographical areas by providing workforce-
related opportunities such as training courses, leadership/management development programs, and resources
to obtain equipment for educational purposes. More than 97 percent of drinking water utilities in the United
States serve fewer than 10,000 people and most of these utilities serve small communities in rural areas.
Therefore, water workforce careers may be a viable option for people seeking work in areas targeted by USDA
programs. The following programs may provide opportunities to address water workforce challenges:

4 Resource Guide for Rural Workforce Development: The USDA Rural Development Innovation Center
created this guide as a consolidated summary of job creation, technical assistance, and training
opportunities for individuals living and working in rural areas. The guide highlights topics such as
workforce development planning; infrastructure financing; and education, training, and apprenticeship.
Several programs highlighted within the guide have potential future applications for training people from
rural communities in new, employable skills.

4 Rural Economic Development Loan and Grant (REDLG) program: This program funds projects to create
jobs and retain workers in rural areas. Funds can be awarded for a variety of projects that help create or
enhance jobs, including obtaining facilities and equipment for education and training purposes.

^ Rural Business Development Grant (RBDG) program: This program provides support for projects that
encourage economic development of a rural area. It can fund activities such as training, leadership
development, and providing technical assistance to existing or prospective rural entrepreneurs and
managers. The RBDG program also funds rural distance learning programs that provide educational
instruction or job training instruction related to potential employment or job advancements for adult
students. This includes workforce development training.

USDA

United States
Department of
Agriculture

U.S. Department of Agriculture

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Water & Waste Disposal Loan & Grant Program: This program provides funding and grants to drinking
and wastewater utilities in small, rural communities. Projects focus on improving the capacity of water
infrastructure. This includes adding water service connections, developing sewer lines, and constructing
pump stations. Investments through these projects also improve the economic viability and living
conditions in rural communities, which can attract and retain workers. Opportunities may exist to engage
communities and increase public awareness about the water workforce while improvements funded
by the Water & Waste Disposal Loan & Grant Program are being implemented locally. This program is
covered by the Justice40 Program.

Educateionrtment °f Department of Education

ED's Office of Career, Technical, and Adult Education (OCTAE): OCTAE provides national leadership and oversight
for career and technical education (CTE) services to youth and adults primarily in high schools and technical
and community colleges. Under OCTAE, recipients can receive the tools necessary to obtain higher paying jobs.
An OCTAE representative noted that many community and technical colleges offer programs that relate to
the water workforce including plumbing, installation of utility equipment, and operator courses. Community
colleges have a framework to advance these technical programs and can be utilized in developing water
workforce technical training moving forward. In addition, ED has several STEM education and technical skill-
building initiatives that could have water workforce extensions.

Support provided by OCTAE includes assistance to states for improving the quality and implementation of
technical career programs, analysis of current job market skill needs, support establishing national initiatives to
states implementing CTE programs, and discretionary grant programs, which are provided through the Perkins
Career and Technical Education Act. ED has several STEM education and technical skill-building initiatives that
could have water workforce extensions:

4 The Carl D. Perkins Career and Technical Education Act of 2006 (Perkins V): Perkins V provides Federal
funds to States, local education agencies, and community and technical colleges to improve the quality
of CTE. To better meet the needs of current and future job market skills, local education agencies and
community and technical colleges conduct comprehensive local needs assessments to ensure the
program offerings address state, regional, and local workforce and economic development needs.

Perkins V grants provide funds for CTE programs for youth and adults. Since 2020, EPA, in collaboration
with ED and local education agencies, has worked to identify states whose water and wastewater
training or educational programs could benefit from this grant. For example, the State of New Jersey
described in their Perkins V Plan that they have recently approved the use of state bonds to expand CTE
programs to increase the number of students participating in construction, utilities, and energy career
pathways.

^ Raise the Bar: Unlocking Career Success (UCS) Initiative: The UCS initiative is a partnership between ED,
and the U. S. Departments of Commerce, and Labor to increase and expand access to high-quality CTE
programs to help young people pursue jobs in in-demand fields. Among the goal of the program is to
enable all high school graduates to earn up to 12 college credit hours. OCTAE stated that, as the initiative
takes form, some of the credit hours could be granted in chemistry, hydrology, engineering, or other
water workforce relevant subject areas.

^ Career Connected High Schools Initiative— Perkins Innovation and Modernization Grant Program, cohort
2023: This program awarded grants to partnerships between local education agencies, institutions of

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higher education (including community colleges), and employers. The objective of this program is to
support early enrollment in postsecondary and career-connected coursework, work-based learning
opportunities, and academic and career-connected instruction across the last two years of high school
and the first two years of postsecondary education. The activities related to the Career Connected High
Schools Initiative are authorized under the Perkins Innovation and Modernization (PIM) grant program.
The purpose of the PIM grant program is to identify support, and rigorously evaluate evidence-based
and innovative strategies and activities to improve and modernize CTE and ensure that workforce skills
taught in CTE programs funded under the federal Carl D. Perkins Career and Technical Education Act of
2006 (Perkins V), align with labor market needs.

SECTION 4: STAKEHOLDER ORGANIZATION WATER
WORKFORCE EFFORTS

In addition to the Federal-partner-led workforce development activities discussed in the previous Section, the
Working Group discussed and identified workforce development activities led by water-affiliated organizations.
In accordance with the legislative mandate, the Working Group also hosted dedicated sessions to consult with
state operator certification programs and other non-federal stakeholders to hear their perspectives on water
workforce challenges. The Working Group heard from a variety of stakeholders, including water workforce
associations, educational and research programs, state-level agencies, and water utilities. Section 4a summarizes
workforce development efforts taken by water sector associations and Section 4b focuses on efforts by utilities.

Section 4a: Workforce Efforts Led by Water Workforce Associations

^ National Rural Water Association

(NRWA): This nonprofit organization—in
collaboration with 50 affiliated State Rural
Water Associations—provides support to
water utility professionals in small or rural
communities across the country. NRWA
offers training on operator certification,
financial sustainability, environmental
compliance, utility management, and
governance in all 50 states. NRWA hosts
several programs and initiatives aimed
toward addressing water workforce
challenges:





v ,

NRWA Apprenticeship program:

In 2017, NRWA developed their
Registered Apprenticeship program

with USDA grant support and through collaboration with State Rural Water Associations, DOL,
EPA, and local water utilities. This apprenticeship program is the first nationally recognized
DOL Registered Apprenticeship program for water and wastewater utilities operators. It offers
little-to-no-cost training through the earn-and-iearn apprenticeship model to attract, train, and
retain the next generation water workforce. NRWA developed a National Guideline Standard

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(NGS) for Water and Wastewater Systems Operation Specialists. The NGS is an industry
recognized template of high-quality program standards for apprenticeship programs. NRWA
currently has 24 state apprenticeship programs, 506 registered apprentices, and 96 graduated
apprentices.

-< Utility M anagement Certification: In 2020, NRWA established a nationally recognized credential
which allows water operators to obtain a designation indicating their occupational proficiency.
Established credentials allow an worker's work experience to be recognizable to other
employers nationwide, increasing their employment opportunities.

^ Rural Community Assistance Partnership (RCAP): RCAP offers technical assistance, trainings, resources,
and support to rural communities and tribal lands. The partnership includes more than 300 technical
assistance providers in all 50 states as well as Puerto Rico and the U.S. Virgin Islands. Additionally, RCAP
has utilized EPA funding to successfully develop and deliver training that addresses compliance with the
SDWA. RCAP's work relates to water workforce development in the following areas:

I WaterOperator.org: RCAP, in partnership with the University of Illinois and funded by EPA,
developed a website and database consisting of more than 17,000 free resources for small
utility operators. The website also provides information on both RCAP training events and
other water-related training events nationwide, with more than 11,000 training events added
annually.

, Water Operator-In-Training programs: In 2022, RCAP provided trainings about water utility
management and operations to approximately 537 board members, 872 operators, 619 utility
staff, and a total of 2,359 attendees funded by the USDA Technical Assistance and Training (TAT)
Grant program and exceeding goals established in the 2020 Initiative report.

6 Water Environment Federation (WEF): This technical association, with more than 30,000 individual
members, serves water professionals, researchers, industry practitioners, and more. WEF contributes to
the increased availability and variety of technical resources related to the water industry and regularly
hosts conferences and trainings. Example water workforce efforts from WEF include:

, WorkForWater.org: In a joint effort with the American Water Works Association (AWWA), WEF
developed this website of resources for students and job seekers to find and prepare for jobs
in the water workforce. The website features descriptions of various career paths in water, job
boards, and a map graphic that offers state-specific certification information for all 50 states as
well as Puerto Rico and the District of Columbia.

^ Introducing Future Leaders to Opportunities in Water (InFLOW) program: This program,
founded in 2018, increases diversity and inclusion in water workforce careers through
scholarship opportunities to attend WEF training programs and events. The program has two
tracks, which focus on exposure to water science topics and job readiness. More than 100
scholars have participated since the program was founded. The program has partnerships with
historically black colleges and universities and other academic audiences to provide online
learning activities, conference registrations, and networking opportunities.

-< National Green Infrastructure Certification Program (NGICP): Green infrastructure focuses on
nature-based designs which restore or mimic the natural flow of water through rain gardens,
permeable pavements, and other tactics. WEF and several partner water and wastewater
utilities developed the NGICP to create a standard for implementing these designs and help
water workforce workers gain certification in this marketable new skill area. As of 2023, 616
individuals have been certified under this program.

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4 Association of State Drinking Water Administrators (ASDWA): This professional organization supports
state drinking water programs by providing technical resources and national representation on issues
relating to drinking water management. ASDWA has a variety of resources, reports, and events related to
advancing the water workforce such as:

State Drinking Water Contract Operator Laws and Resources Table: Contract operators (i.e.,
the operator works for a company and typically manages multiple water utilities) are used
by many utilities nationwide. Rules and requirements around their work, such as how many
utilities one operator can be responsible for, may vary from state to state. ASDWA developed a
comprehensive table of all state drinking water program contractor operator laws to help share
information and resources among the states. This resource can help states when they need
to determine the qualifications of operators who relocate to their state or how a certification/*
license from another state compares to their requirements, and therefore can assist with
securing employment and retaining water operators.

^ American Water Works Association (AWWA): This professional society's membership includes more
than 4,300 water utilities and 51,000 individuals from the water workforce. AWWA offers technical and
education materials around water, advocates for safe water, and conducts knowledge-sharing through
publications. In addition to developing WorkForWater.org with WEF, AWWA provides outreach, events,
and learning materials for the water workforce including:

State of the Water Industry Report: AWWA has published an annual State of the Water industry
Report since 2004,The report provides insight into challenges, opportunities, and trends
impacting the water sector, via information collected through surveys and interviews. The
most recent report highlighted workforce shortages as a key issue and the need to expand the
workforce pipeline (Flancher, 2022).

Operator Licensing Requirements Across the United States Report: AWWA conducts research
and prepares information regarding standardization and reciprocity in water operator
certification/license. This report describes four types of operators (water treatment,
distribution system, wastewater treatment, and collection system) and details certification
criteria across all 50 states as of its publication in 2018.

Transformative Water Leadership Academy: Founded in 2022 as a grantee of EPA's Innovative
Water Infrastructure Workforce Development Program, this 10 month program involves
experiential learning, mentorship, and a locally relevant capstone project for early-career water
utility workers. The program is conducted annually, and each cohort consists of approximately
50 participants. According to an AWWA representative, women make up more than 60 percent
of those who have participated to date and about half of the participants identify as non-white.

Section 4b: Workforce Development
Approaches Identified by Drinking
Water and Wastewater Utilities

The Working Group also consulted with representatives from
individual water utilities for their perspectives on addressing
water workforce challenges around recruitment, training,
and retention. These representatives reiterated many of
the major challenges from Section 2b and described the
following approaches to address these challenges:

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4 Making changes to recruitment strategies. Water utilities discussed revising recruitment efforts to
reduce potential barriers for prospective candidates, such as revising nondescript job postings and
lengthy interview processes. Additionally utilities discussed modernizing recruitment techniques to
advertise positions, especially to reach historically underrepresented applicants. Based on the collective
experience of the Working Group, workers tend to learn about available positions through word of
mouth, which can result in insufficient outreach to youth and diverse audiences.

^ Holistic support for workers. Many people face food or housing insecurity and lack the transportation,
proper clothing, and equipment needed to stay employed. Water utilities are implementing a variety
of approaches, or wrap-around services, to retain at-risk workers. Some utilities, who are financially
capable of doing so, offer subsidies for day care facilities or childcare services. Debt and student loans
also burden applicants, so tuition reimbursement programs have been implemented as a strategy to help
attract and retain workers long-term.

I Hampton Roads Sanitation District (HRSD) installed washers and dryers at treatment plants
for worker use along with a closet of free clothes and additional work uniform allotments as
needed. HRSD also offers remote workers $500 to buy a desk and chair for the home office, as
well as a monthly internet allowance.

^ Conducting apprenticeship programs. Several water utilities have established in-house apprenticeship
programs to help the participant network and learn the skills needed to join the utility with which they
conduct their training.

fe HRSD created a DOL-approved wastewater industry apprenticeship program. Their 4-year
program offers paid, on-the-job training; reimbursement for mileage to attend the program;
free course materials; and veteran's benefits when applicable.

4 Incentivizing employment at water utilities. These techniques can include increasing the pay for off-
hour shifts, bonuses to gain new certification levels, longevity bonuses for long-term workers, and sign-
on bonuses.

^ Making changes to the working environment. Water utilities are implementing flexible, hybrid, or

remote working opportunities when possible. However, some positions such as operators and mechanics
do not have the ability to be fully remote.

^ Partnering and outreach with educational institutions. Several utilities discussed outreach efforts with
younger demographics ranging from grades K-12 and college students to increase awareness of the
water workforce. Specifically, water utilities have created education programs and hands-on learning
activities related to the necessary skills for careers in the water workforce.

fe In the past 20 years, Lancaster Area Sewer Authority (LASA) in Pennsylvania has doubled in size
with the support of a recruitment partnership with Thaddeus Stevens College of Technology in
Lancaster County. More than 30 graduates from the college's 2-year degree program in Water
and Environment Technology now work for LASA.

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SECTION 5: FINDINGS OF FEDERAL INTERAGENCY
WATER WORKFORCE WORKING GROUP

The findings of this report describe the current
workforce development approaches of various
agencies and stakeholders convened via the
Working Group, which can be leveraged as
opportunities to address challenges facing the
water workforce Federal efforts supporting the
water workforce are instrumental in developing
a stronger workforce for today and tomorrow.

For example, in 2018 EPA hosted a national water
workforce convening with over 70 recognized
experts, including staff from other Federal
agencies, to discuss various challenges facing
the water workforce and potential actions to
address these challenges. Representatives
from those Federal agencies continued these
discussions as part of this new Working Group.

The Federal representatives in the Working
Group identified each of their agencies' existing
and upcoming efforts that directly relate to the
water workforce (Section 3a), and those that have
potential synergy with or applications to the water
workforce (Section 3b). These efforts include providing financing and grants to improve water infrastructure
and water utility technical, managerial, and financial capacity; technical assistance, training, and apprenticeship
programs; and a service members and veterans work experience program. The table in Appendix 3 provides a
comprehensive list of Federal efforts to develop the water workforce.

Non-federal stakeholders, such as water workforce associations, educational and research programs, state-
level agencies, and water utilities are critical partners in the efforts to create a sustainable water workforce.
National water professional associations provide important platforms and services that assist the water
workforce to recruit, train, and retain workers in communities throughout the country. Examples include "earn
and learn" apprenticeship programs, a Utility Management Certification program for operators (Section 4a),
programs designed to attract students from minority academic institutions, and on-site and virtual trainings and
technical assistance. National associations are also instrumental in collaborating with their members and other
stakeholders to develop standards and technical and education materials, advocate for safe, clean water, and
share effective practices through efforts such as conferences, publications, and training events.

Water utilities need the support of a strong workforce to protect public health and support the vitality of our
communities, natural environment, and economy. Leveraging opportunities to develop and scale the existing
approaches to address water workforce challenges can help water utilities continue to perform now and in the
future.

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Water Sector Workforce Approaches and Opportunities

The Working Group noted the following opportunities to improve workforce development through each of the
major utility workforce pillars:

1)	Improve recruitment by promoting the value of water utility services, the importance of the water
workforce, and water workforce career opportunities;

2)	Sustain and expand training efforts by identifying funding and other resources for continued workforce
development;

3)	Improve the retention of water workforce members over time by meeting the water workforce's
needs; and

4)	Create and maintain strong water workforce partnerships.

Each of these opportunities is described briefly below.

Improve recruitment by promoting the value of water utility services,
the importance of the water workforce, and water workforce career
opportunities

Many people are not aware of how the water workforce protects public health and the environment. Jobs
in the water workforce provide stable employment, meaningful careers, technical training (including using
innovative technologies), and a chance to make a real difference in communities across the nation. Increasing
public awareness about the value of the services the water workforce provides, the importance of the water
workforce, and the opportunities and benefits of careers in the water workforce helps with recruiting workers
into this sector. Many current and potential future workers are motivated by a desire to make a difference
in their communities through mission-driven work, and the water workforce provides that opportunity.
Promoting the value of water utility services and the importance of the water workforce to the public can
also increase customer support for increasing water utility budgets, which can help the sector offer more
attractive compensation packages to workers and also contribute to better retention. A variety of campaigns
at the national, regional, and local levels are used to promote public awareness about the value of water utility
services, the importance of the water workforce, and water workforce career opportunities.

^ One example is the Value of Water Campaign, which is led by leaders in the water sector and supported
by the U.S. Water Alliance. The campaign provides tools, resources, and information to educate the
public about the value of water and infrastructure investments, including a Workforce Diversity Toolkit.

^ During a Working Group call, a VA representative suggested that short descriptions of registered water
workforce apprenticeship programs, which could be developed by Federal partners, water associations,
or the apprentice program coordinators, would be beneficial to inform counselors who work with
veterans on job placements about these opportunities.

^ The water sector can also expand its target outreach and work with educational, youth, and other
community-based organizations to promote the value of water services and pathways to water sector

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careers. An example is the San Francisco Public Utilities Commission's (SFPUC) Kindergarten-to-Career
strategy, which is an outreach effort with students that is scaled by age group and ranges from animated
videos on water topics, to lesson plans, tours, hands-on environmental activities, and internships. This
broad set of engagements provides models that could be replicated in other areas (see Section 2a).

Sustain and expand training efforts by identifying funding and other
resources for continued workforce development

The Working Group identified that efforts to train workers and develop their competencies over time are
essential to upkeep and expand the water workforce. Collaborations between Federal agencies and water
sector organizations, such as NRWA's apprenticeship program (see Section 4a), creates opportunities to scale
training efforts nationally. From the challenges described, there are also opportunities to improve and expand
trainings through the development of offerings at a range of experience levels. These opportunities include
training for more experienced workers to advance their certifications/licenses or learn more complex treatments
and technologies, and training in a variety of topic areas that can advance overall workforce performance, like
community engagement, communicating with customers, management, leadership, and business operations.

^ For example, Grand Rapids Community College in Michigan offers Water and Wastewater Treatment
certification programs. Some of the learning tracks include non-operator career paths such as chemist
and supply chain apprenticeships.

^ In another example, Charlotte Water created a Customer Care Program, in which staff are trained in
community engagement strategies. The goal of the program is to train the water utility staff in improved
techniques for managing at-risk customer accounts and has resulted in staff matching thousands of
customers, whose accounts were in danger of service disconnection, with financial aid assistance.

Many of the effective training and outreach approaches identified by the Working Group and its partners rely on
funding for implementation. The water workforce could also benefit from identifying potential new sources of
funding to help expand training efforts. The Working Group and its partners recognize the importance of Federal
leadership in helping to coordinate efforts to ensure that the United States has a strong water workforce for
generations to come. Continued Federal support is also critical to ensure that adequate resources are available
to advance water workforce development.

Improve the retention of water workforce members over time by meeting
the water workforce's needs

The Working Group identified challenges and approaches related to changing workforce trends and the
needs of workers s. Certain positions within the water workforce have demanding hours, or require physical
labor, responsiveness during emergencies, and a high level of responsibility to the public. There are many
opportunities to improve working environments and to increase the competitiveness of compensation and
benefits toward better retention of water workforce members.

Approaches identified by the Working Group included expanding remote or hybrid work policies (where possible
as a retention tool for certain types of positions), developing clear career paths to foster worker upward
movement, offering more competitive salaries when feasible, and providing holistic supports for workers
such as transportation allotments, clothing allocations, and childcare subsidies. Additionally, benefits like paid
parental leave, adequate and flexible sick leave policies, resources for longer non-pregnancy leave, programs to
ensure light duty or similar modifications for pregnant/nursing women may attract more women to the water
workforce.

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For example, as part of their holistic support services, HRSD in Virginia provides washers and dryers at
treatment plants, a closet of free clothes, and additional work uniform allotments for their workers (see
Section 4b).

Water utilities can improve retention through fostering safe working environments free from harassment
and retaliation and in line with Federally recognized job quality principles. Efforts to enhance job quality and
promote equitable workforce development are proven strategies to address labor shortages that can benefit the
water workforce.

4 For example, DOL-WB runs the WANTO grant program, which provides hands-on technical assistance
to employers and labor unions to successfully recruit, mentor, train, and retain women in the full range
of industries in which they are historically underrepresented or disproportionately concentrated in the
lower-wage occupations in these industries (see Section 3b). Key best practices that DOL-WB identified
for retaining women in these programs include ensuring women have opportunities for structured
mentorship and working with role models; union membership and union committees focused on
women; supportive services including but not limited to childcare, transportation, internet access,
accessible technology, tuition assistance, and funds for work related gear/equipment in women's sizes;
and intentional efforts to combat discrimination and harassment of women and women of color in the
workplace.

Create and maintain strong water workforce partnerships

EPA and its partners need to continue to collaborate to identify emerging challenges and advance water
workforce development. Many water utilities are also engaging in innovative work to build community
connections to attract new, talented people to the water workforce. Sharing effective practices and lessons
learned from this work can help other utilities advance their workforce programs.

A key barrier to scaling effective approaches throughout the water workforce is the large number of
organizations that compose the workforce. There are more than 148,000 public drinking water systems and
16,000 publicly owned wastewater treatment systems in the United States. These 164,000+ systems each have
unique infrastructure, organization, and needs. As a result, some non-federal stakeholders pointed to ongoing
communication barriers between water sector organizations and water workforce-related programs that often
are siloed from each other. One approach to address this issue is strong partnerships. The water sector uses a
variety of platforms to share information and scale effective workforce practices such as national and regional
programs, conferences, and websites.

^ For example, EPA's partnership with state drinking water agencies, mainly around operator certification,
is especially critical for the water workforce. EPA partnered with the states, water utilities, and the
public to provide guidelines on minimum standards for certification and recertification of drinking water
operators. EPA also continues to assist states with operator certification program implementation (see
Section 3a).

Other approaches discussed during consultations were related to developing strong and consistent curriculums
for training programs, sharing insights from research with water utility operators, and partnering with water
sector organizations to assist in their efforts. These approaches provide opportunities to address workforce
challenges more strategically and extensively through leveraging partnerships.

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CONCLUSION

Every day in communities across our nation, the dedicated workers who operate and maintain over 164,000
public drinking water and wastewater utilities ensure that our water is clean and safe for hundreds of millions
of Americans. These "water protection specialists" are at the front line of providing clean and safe water for
communities across the nation and serve as the foundation for virtually all aspects of our society. This report
represents a coordinated effort between EPA and various Federal agencies to describe both the challenges and
the opportunities for ensuring a trained, motivated, and diverse water workforce that is ready to provide these
essential services.

Major challenges were identified through a workforce literature review and various engagements with water
stakeholders. These challenges are highlighted below and discussed in Section 2b. They correspond with one or
more of the workforce development approaches for each of the key pillars for an effective workforce.

4 An aging workforce. Estimates indicate one-third of the United States water utility operators will be
eligible for retirement within the next 10 years (Kane, 2022). With an insufficient influx of new, trained
talent, extensive job vacancies in the water workforce are a concerning issue that is already taking form.
Not having enough water workers, and the loss of staff overlap, where potential mentors can pass on
system-specific knowledge, is a risk to both the maintenance of critical infrastructure and public health.

^ A lack of public visibility. The water workforce is vital to protecting public health by ensuring high-

quality drinking water and safe sanitation; however, many do not understand the critical importance of
the work and the types of careers and opportunities available (e.g., treatment operator, billing clerk,
superintendent, construction worker). Increasing public awareness is vital to attracting and recruiting
new hires and retention.

4 Wide variability in utilities' capacity for recruitment and retention. The highly localized nature of
water operations can make it challenging to recruit for job openings because of the wide variation in
the capacities of water utilities across the United States. Geographic location can also play a role; for
instance, small utilities in rural areas may have a limited pool of candidates for vacant operator positions
and may offer less compensation compared to a larger utility, making worker retention difficult due to
limited resources.

4 Recruitment barriers from non-standardized operator requirements. Exam, education, and training
requirements for operator licenses for drinking water systems vary by state. The lack of standardization
between states poses challenges in classifying which duties an out-of-state operator is qualified to
perform. Often, the qualifications are integrated into state statute and are therefore difficult to change.
Facilitating inter-state reciprocity of water operator certifications can help water utilities employ from
out-of-state by allowing operators' qualifications to transfer more easily when they relocate.

^ Inadequate resources to support skill development and training. Water workforce members and potential
recruits need technical training; however, a skillset gap is growing, especially as the current water
workforce retires or technology advances. Approximately 78 percent of the overall positions related to
the water workforce require at least one year of relevant work experience (Kane & Tomer, 2018), and
many positions require knowledge of STEM concepts.

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^ The nation's aging infrastructure places a high demand on the already limited water workforce. The
water workforce is in great demand for the repair and maintenance of infrastructure; however, only
about 53 percent of water utilities indicate their organizations are fully prepared for meeting long-term
water needs (Flancher, 2022).

^ Challenging working conditions and workloads. Water workforce recruits may be deterred by difficult
working conditions and routinely working weekends, nights, and holidays. Some of these positions also
require field work and emergency response duties, further hindering recruitment and retention.

^ A lack of diversity. The water workforce struggles with recruiting and retaining candidates of diverse
backgrounds. There are severe demographic disparities in race and gender, with nearly 85 percent
of the workers in the water sector identifying as male and two-thirds as Caucasian (Kane & Tomer,
2018). Additionally, infrastructure employment sectors (e.g., construction, water, and energy industries
and their unions) lack awareness on disability issues in the workforce and the types of reasonable
accommodations that can be offered. Strict hiring practices also may limit those with minor criminal
histories from pursuing these careers.

These challenges facing the water workforce are not new nor will they be fully addressed overnight. They will
require ongoing collaboration among local, state, and federal agencies as well as many other stakeholders.
Federal collaboration with water organizations, as well as those in other sectors such as education, also will
continue to be a critical element. This collaboration will not only help educate and encourage innovation,
but also will offer national scale-up opportunities that will promote greater community access to workforce
development resources, accelerated career pipelines, and, ultimately, workforce sustainability.

Consistent with the legislative direction provided by Congress, this report seeks to inform decision makers
about the opportunities to address the workforce challenges, using the key pillars of an effective workforce:
recruitment, training, retention, and partnerships. These key pillars provide an essential workforce development
framework that can help utilities and communities identify the approaches that best address their specific
needs and circumstances. The Working Group noted the following workforce development approaches
associated with each of the key pillars. These approaches are discussed more specifically in Section 5.

^ Improve recruitment by promoting the value of water utility services, the importance of the water

workforce, and water workforce career opportunities. Increasing public awareness of these elements can
help with sector recruiting, and many potential workers are motivated by a desire to make a difference in
their communities through mission-driven work like that of the water workforce.

^ Sustain and expand training efforts by identifying funding and other resources for continued workforce
development. Training workers and developing their competencies over time are essential to upkeeping
and expanding the water workforce. Effective training approaches rely on funding for implementation;
thus, the water workforce could benefit from efforts to identify new potential resources. Federal
leadership is also key to helping to coordinate such efforts.

^ Improve the retention of water workforce members over time by meeting the water workforce's needs.
Certain positions have demanding hours or require physical labor, responsiveness during emergencies,
and a high level of responsibility to the public. Retention could be improved through approaches that
expand remote or hybrid work policies where possible, develop clear career paths to foster worker
upward movement, offer more competitive salaries when feasible, and provide holistic supports for
workers (e.g., transportation allotments, clothing allocations, funds for accessible technology, and
childcare subsidies).

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^ Create and maintain strong water workforce partnerships, in particular sectoral partnerships. EPA and
its partners need to continue to collaborate to advance development of the nation's water workforce.
Many water utilities are engaging in innovative work to build community connections to attract new,
talented people to the water workforce. Collaboratively sharing effective practices and lessons learned
from this innovative work can help utilities advance their workforce programs. Sectoral partnerships are
a particularly promising, sustainable approach to workforce development partnership.

The Federal government is in a strong position to work with a variety of stakeholders to deliver resources
that help address the challenges at a national scale and in a coordinated manner. Particularly for the drinking
water workforce, the Federal government can promote greater national coordination between states' operator
classifications, reducing the inter-state reciprocity challenges several states identified during development of
this report. Continued leadership and support by the Federal government in close collaboration with various
stakeholders will be critical to ensure the United States has a strong water workforce for generations to come.
It also will be critical to ensure communities, including those who historically have been disadvantaged or
underserved, have access to resources that will enable them to develop workforce programs that are effective
in providing clean and safe water through sustainable water infrastructure.

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APPENDICES

Appendix 1. Rosters

Table A-1: Members of Interagency Water Workforce Working Group
Name	Affiliation

Teresa Acuna

Department of Labor, Good Jobs Initiative

Alberto Avina

Department of Veterans Affairs, Veterans Benefits Administration, Office
of Outreach, Transition, and Economic Development

Sequoya Bua-lam

EPA Office of Ground Water & Drinking Water

Lorrie Davis

Department of Agriculture

Eleanor Delamater

Department of Labor, The Women's Bureau

Gayle Goldin

Department of Labor, The Women's Bureau

Jim Home (Co-Chair)

EPA Office of Wastewater Management

Matt Reed

EPA Office of Ground Water & Drinking Water

Robin Utz

Department of Education, Division of Academic and Technical Education,
Office of Career, Technical, and Adult Education

Edward Viveiros (Co-Chair)

EPA Office of Ground Water & Drinking Water



Table A-2: Water Industry Representatives

Name

Affiliation

Barbara Martin

American Water Works Association

Cindy Goodburn

Cindy Goodburn Consulting, LLC

Diane Taniguchi-Dennis

Clean Water Services

Dorissa Pitts-Paige

Hampton Roads Sanitation District

Julie Parks

Grand Rapids Community College

Steve Harrison

Water Environment Federation

Mike Kyle

Lancaster Area Sewer Authority

Brandon Tyler

Oklahoma Resources Board

Pam Moss

American Water Works Association

Bud Mason

Great Lakes Community Action Partnership

Steve Wilson

Illinois State Water Survey

Shannon Walton

National Rural Water Association

Andrew Barienbrock

Ohio Environmental Protection Agency

Darlene Helmig

Missouri Department of Natural Resources

Mike Wentink

Nebraska Operator Certification Program Supervisor

William Sullivan

Connecticut Operator Certification Program Supervisor

Deirdre White

Association of State Drinking Water Administrators

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Appendix 2. Agendas of Meetings of the Interagency Water Workforce
Working Group

Federal Interagency Water Workforce Working Group

Kick-Off Meeting Agenda
November 21, 2022 (9 AM ET)

20 min Welcomes and Introductions

•	Ashley Arayas, Facilitator, The Cadmus Group

•	Welcome from EPA management (Yu-Ting Guilaran and Wynne Miller)

•	Overview of Agenda

•	Introductions (Name, Job Title, Agency, Dept)

55 min Working Group Charge, Workplan, and Milestones

•	Charge to the Working Group

•	Congressional Request Review

•	Operating Procedures

•	Non-Federal Partner Engagement - Operator Certification Programs and Engagement with Other Potential Partners

•	Workplan Review

•	Discuss Milestones/Approach

30 min Round Robin Discussion

•	Federal Workforce Programs Addressing Recruitment, Training, and Retention Challenges

What are the relevant water workforce development programs within your agency that aim to address these
challenges?

•	Consultation with State Operator Certification Programs

Are there other partners, outside of the federal family, that could be included in the consultation process for
the Working Group's report to Congress?

15 min Next Steps

•	Next Meeting - Scheduling and Agenda

Adjourn

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Federal Interagency Water Workforce Working Group

Meeting Agenda
December 13, 2022 (9 AM ET)

5 min Welcome

•	Overview of Agenda

30 min Working Group Report Outline

•	Review Report Sections

•	Provide a brief overview of the proposed outline for the report to Congress

•	Identify which sections of the draft outline will be updated based on input from the Working Group's agencies

40 min Federal Efforts to Develop Water Workforce Round Table (See Outline Section 3)

•	Water Focused Federal Agency Efforts (See Outline Section 3a)

Identify and discuss current activities by Working Group agencies that address water workforce recruitment,
training, and retention challenges

Identify and discuss updates to existing programs and any new undertakings by Working Group agencies
since the 2020 America's Water Sector Workforce Initiative report (link to report; see action items listed by
Department in Appendix 1, pp. 30-35)

•	Broader Federal Efforts Applicable to Water Sector (See Outline Section 3b)

Discuss any other assistance grant, apprenticeship, or other Federal programs that could also provide
opportunities to address water workforce recruitment, training, and retention challenges

15 min Next Steps

•	Briefly discuss the anticipated agenda for the January meeting

•	Identify any interim action items from this meeting and establish timeframes for completion
Adjourn

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Federal Interagency Water Workforce Working Group

Meeting 3 Agenda
January 17, 2023 (9 AM ET)

5 min Welcome

•	Overview of Agenda

30 min Recap and Follow Up

•	Discuss last round table on report Section 3 topics, including:

•	Water Focused Federal Agency Efforts

•	Broader Federal Efforts Applicable to Water Sector

40 min Partner Organization Water Workforce Efforts Round Table (See Outline Section 4)

•	Discuss actions partner organizations are taking that encourage and facilitate innovative water workforce efforts to
address recruitment, training, and retention

15 min Next Steps

•	Briefly discuss the anticipated agenda for the next week's meeting

•	Identify any interim action items from this meeting and establish timeframes for completion
Adjourn

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Federal Interagency Water Workforce Working Group

Meeting 4 Agenda
February 14, 2023 (9 AM ET)

5 min Welcome

•	Overview of Agenda

15 min Overall Status

•	Project milestones and progress

15 min Consultation with State Operator Certification Programs Approach

•	Discuss anticipated procedures and format for upcoming meetings with non-federal stakeholders.

•	Does the working group have any additional non-federal stakeholders to recommend for the consultation?
20 min Questions from Working Group Members

5 min Scheduling One-on-One Discussions

•	Provide Cadmus with names of additional colleagues to include

Adjourn

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Appendix 3. Summary of Federal Efforts to Develop the
Water Workforce

The following table provides a comprehensive list of the Federal programs detailed in Section 3. These are
programs that focus on water workforce challenges directly\ or represent cross-sector workforce development
efforts with the potential for future applications to the water workforce.

Table 1: Federal Efforts to Develop the Water Workforce and Related Efforts

Federal
Agency

Program

Summary of Program

Website Link

Water-Focused Federal Agency Efforts (See Section 3a)

EPA

Water Sector Workforce website

Website provides resources and information
relating to the water workforce.

https://www. eoa.gov/
sustainable-water-in-
frastructu re/water-sec-
tor-workforce

EPA

Building the Capacity of Drinking
Water Systems website

Website provides resources and information
relating to drinking water systems building
capacity.

https://www. eoa.gov/
dwcaoacitv

EPA

Water Sector Workforce
Webinars and Case Studies

Webinars and case studies highlight programs im-
plemented by utilities and associations to support
the water workforce.

httos://www. eoa.gov/
sustainable-water-in-
frastructu re/water-sec-
tor-workforce -we b i -
nars

EPA

Knowledge Retention Tool
Spreadsheet for Small Water
Systems

Tool is designed to assist in the event of staffing
changes at a water utility or to pass knowledge to
new or inexperienced staff.

httos://www.eoa.
gov/dwcaoacitv/
i nte racti ve-tool s-own -
ers-and-ooerators

EPA

Water Operator Hiring and
Contracting Guide

Resource guide helps water utilities with hiring
or contracting operators and outlines the role of
operators to support compliance with regulations.

httos://www. eoa.gov/
dwcaoacitv/water-oo-
erator-hiring-and-con-
tracting-guide

EPA

Innovative Water Infrastructure
Workforce Development
Program

Program to increase public awareness around
drinking and wastewater career opportunities and
recruit water workforce talent. This program is
ongoing.

httos://www.eoa.

gov/sustainable-wa-

ter-infra structure/

innovative-water-in-

frastructure-work-

force-develoo-

ment-orogram

EPA

Training and Technical Assistance
to Improve Water Quality and
Enable Small PWSs to Provide
Safe Drinking Water grant
program

Program supports small drinking water utilities
with building their technical, managerial, and
financial capacity to provide safe drinking water.
This program is ongoing.

httos://www.eoa.

gov/dwcaoacitv/train-

ing-and-technical-as-

si sta n ce-i m o rove-wa-

ter-aualitv-and-en-

able-small-oublic-wa-

ter-0

EPA

Memorandum: Implementation
of the Clean Water and Drink-
ing Water State Revolving Fund
Provisions of the BIL

Outlines a strategy for collaborative
implementation, with states, local communities,
and Tribes, of $43 billion in water infrastructure
funding through the BIL. EPA listed supporting
American workers and renewing the water
workforce as one of the key priorities.

httos://www.eoa.
gov/svstem/files/
documents/2022-03/
combined srf-imole-
mentation-memo fi-

nal 03.2022.odf

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Federal
Agency

Program

Summary of Program

Website Link

EPA

Lead Service Line Replacement
Accelerators program

Program will support workforce development
through engagement with community
members during lead service line
identification and replacement projects.

https://www. eoa.gov/

water-infrastructure/

lead-service-line-re-

olacement-accelerators

EPA

Water Technical Assistance
(WaterTA)

Program works with individual communities
to understand their needs and to develop
tailored solutions. This program is ongoing.

https://www. eoa.gov/
water-infrastructure/
water-technical-assis-
tance-waterta

EPA

Tribal Infrastructure Task Force
Workforce Workgroup

Working group including tribal utility
personnel, tribal consortia representatives,
and technical assistance providers identified
approaches to address recruitment, training,
and retention challenges for the infrastructure
sector.

https://www. eoa.gov/
tri bald ri nki ngwater/
tribal-water-work-
force-workgrouo-find-
ings

EPA

WaterSense Program

Voluntary program that focuses on advancing
water-efficient products and services and
labels programs that certify irrigation
professionals who are trained on water
efficiency.

httos://www. eoa.gov/

watersense/orofession-

al-certification-0

DOL

Office of Apprenticeship

Ensures equitable access to Registered
Apprenticeship programs, provides training to
employers and training programs, and helps
establish guidelines around apprenticeable
occupations.

httos://www. dol.gov/

general/tooic/training/

aoorenticeshio

DOL

Apprenticeship.gov

One-stop portal for jobseekers and employers.
Currently, the apprenticeships job finder has
more than 300 open positions across the
United States related to the keyword "water."

httos://www.aooren-
ticeshio.gov/aooren-
ticeshio-iob-finder

DOL

Water and Wastewater Competency
Model

On-line tool identifies the specific skill sets
and competencies required for workers in the
water and wastewater industry.

httos://www.ca-

reeronestoo.org/

ComoetencvModel/

comoetencv-models/

water-sector.asox

VA

VA Non-Paid Work Experience
program

Program provides eligible service members
and veterans, who actively participate in the
VA's VR&E Program, technical training, and
practical job experience in Federal, state, or
local government agencies, including certain
water-related positions. This program is
ongoing.

httos://www.vaforvets.

va.gov/vaforvets/

veteran-resources/

docs/Non-oaidWork-

Exoerience.odf and

httos://www. va.gov/

careers-emolovment/

vocational-rehabilita-

tion/eligibilitv/

US DA

Technical Assistance & Training
Grants

Grant program that provides technical
assistance and training toward water and
wastewater challenges. This program is
ongoing.

httos://www.rd.usda.

gov/orograms-ser-

vices/water-environ-

mental-orograms/

water-waste-disoos-

al-technical-assis-

tance-training-grants

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Federal
Agency

Program

Summary of Program

Website Link

Broader Federal Efforts Applicable to the Water Sector (Section 3b)

EPA

Innovative Water Infrastructure
Workforce Development Program

Working group identified approaches to
address recruitment, training, and retention
challenges for the infrastructure sector.

https://www.epa.

gov/sustainable-wa-

ter-infra structure/

innovative-water-infra-

structure-workforce-de-

velopment-program

DOL

Women in Apprenticeship and
Nontraditional Occupations grant
program

Grant program that provides technical
assistance to employers and labor unions
to encourage the recruitment, training, and
retention of women in apprenticeable and
nontraditional occupations. This program is
ongoing.

https://www.dol.gov/

agencies/wb/grants/

wanto

DOL

Job Corps

Program helps eligible young people from the
ages of 16 through 24 complete their high
school education, train them for meaningful
careers, and assist them with obtaining
employment. This program is ongoing.

https://www.iobcorps.
gov

DOL

Good Jobs Initiative

Provides critical information to workers,
employers, and government agencies as
they work to improve job quality and ensure
harassment-free working environments. This
program is ongoing.

https://www.dol.gov/
general/good-iobs

DOL

Apprenticeship Building America
Grant program

Program aims to strengthen and increase
enrollment in Registered Apprenticeship
programs. This program is ongoing.

https://www.ap-

prenticeship.gov/

investments-tax-cred-

its-and-tuition-support/

apprenticeship-build-

ing-ameri-

ca-aba-grant-program

DOL

Job Accommodation Network

Program provides free, expert, and
confidential guidance on job accommodations
and disability employment issues. This
program is ongoing.

https://www.dol.gov/

agencies/odep/resourc-

es/ian

DOL, ED, VA,
and Homeland
Security

Transition Assistance Program

Program provides resources to service
members to help prepare the move from
military to civilian life. This program is
ongoing.

https://www. benefits,
va.gov/transition/tap.
asp

DOL

YouthBuild

Program provides job training and
educational opportunities for youth with
barriers to employment. Program provides
training in construction and other in-demand
industries. This program is ongoing.

https://www.dol.gov/

agencies/eta/vouth/

vouthbuild

VA

Veteran Readiness & Employment

Program provides skills and benefits for
veterans looking to find a new career path.
Support provided under this program
includes educational counseling and benefits.
This program is ongoing.

https://www.va.gov/ca-
reers-emplovment/vo-
cational-rehabil itation/

VA

Integrated Disability Evaluation
System

Program is an evaluation process to assess
a Service member's eligibility for disability
compensation benefits and can serve as a
resource to increase awareness of water
workforce careers. This program is ongoing.

https://benefits.va.gov/

PREDISCHARGE/ides.

asp

Interagency Water Workforce
Working Group Report to Congress

46


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Federal
Agency

Program

Summary of Program

Website Link

VA

Economic Development Initiatives

Program provides training and investment
in activities related to new job creation and
workforce training. This program is ongoing.

httDs://benefits.va.eov/
transition/economic-in-
vestment-initiatives.aso

VA

Personalized Career Planning and
Guidance

Program supports service members who
have specialized goals with job preparedness.
Program benefits include job counseling,
resume writing, and interview preparation. This
program is ongoing.

httDs://benefits.va.gov/
TRANSITION/PCPG.aso

VAand DOL

Skill Bridge

Program provides service members the
opportunity to gain civilian work experience
through specific industry training by matching
civilian opportunities to a service member's job
training and work experience. This program is
ongoing.

https://ski II bridge, osd.
mil

US DA

Resource Guide for Rural Workforce
Development

Guide provides a consolidated summary of
job creation, technical assistance, and training
opportunities for individuals living and working
in rural areas.

httos://www.rd.usda.
gov/sites/default/files/
usdard ruralworkforce-
guide508.odf

USDA

Rural Economic Development Loan
and Grant program

Program funds projects to create jobs and
retain workers in rural areas, including
obtaining facilities and equipment for
education and training purposes. This program
is ongoing.

httos://www.rd.usda.

gov/d rogra m s-servi ces/

business-programs/

rural-economic-devel-

ooment-loan-grant-Dro-

gram

US DA

Rural Business Development Grant
program

Program supports projects that encourage
economic development of a rural area and can
support activities such as training, leadership
development, and providing technical
assistance to existing or prospective rural
entrepreneurs and managers. This program is
ongoing.

httDs://www.rd.usda.

gov/orograms-services/

business-orograms/

rural-business-develoo-

ment-grants

USDA

Water & Waste Disposal Loan &
Grant Program

Program provides funding and grants to
drinking and wastewater utilities in small, rural
communities. This program is ongoing.

httos://www.rd.usda.
gov/d rogra m s-servi ces/
water-environmen-
ta 1 -d rogra m s/wate r-
waste-disoosal-loan-
grant-orogram

ED

The Carl D. Perkins Career and
Technical Education Act of 2006
(Perkins V) grant program

Grant provides support to states, local
education agencies, and community and
technical colleges to improve the quality of CTE
programs. This program is ongoing.

https://cte. ed.gov

ED

Raise the Bar: Unlocking Career
Success Initiative

Program aims to increase and expand access
to high-quality CTE programs to help young
Americans pursue jobs in today's in-demand
fields and be prepared for careers of the future.
This program is ongoing.

httos://cte.ed.gov/un-

locking-career-success/

home

ED

Career Connected High Schools
Initiative- Perkins Innovation and
Modernization Grant Program,
cohort 2023

Program promotes partnerships between
local education agencies, institutions of higher
education (including community colleges),
and employers to support early enrollment
in postsecondary and career-connected
coursework, work-based learning opportunities,
and academic and career-connected
instruction. The 2023 cohort is ongoing.

https://cte. ed.gov/
grants/innova-
tion-and-moderniza-
tion-grant-orogram

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47


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Appendix 4. Bibliography

Curtis, C., & Jones, S. (2021). Apprenticeships and Internships: Opportunities for Equity and Inclusion Journal
AWWA, 113, 76-82.

Flancher, D. (2022). State of the Water Industry: Workforce, Water Supply Infrastructure Among Top Concerns.
Journal AWWA, 114(5), 74-77.

Kane, J. (2022). Seizing the U.S. Infrastructure Opportunity: Investing in Current and Future Workers. Brookings
Report.

Kane, J. & Tomer, A. (2018). Renewing the Water Workforce: Improving Water Infrastructure and Creating a
Pipeline to Opportunity. Brookings Report.

U.S. DOL. (2016). ETA Sector Strategies Technical Assistance Initiative: State Support For Sector Partnerships: A
Guide For Action. https://businessenRaRement.workforceRps.orR/resources/2016/05/12/14/10/State
Sector-StrateRies-An-Overview.

U.S. DOL. (2024). Personal communication regarding the disability employment analysis the Department of
Labor's Office of Disability Employment Policy developed for the water industry. Transmitted via email
to Edward Viveiros and Jim Florne (U.S. EPA's Office of Ground Water and Drinking Water and Office of
Wastewater Management, respectively) on June 3, 2024.

U.S. EPA. (2022). Making Water a Career of Choice: A Compendium of Water Workforce Case Studies from
Across the Country. https://www.epa.Rov/sites/default/files/2021-01/documents/wf case study
compendium.pdf.

U.S. EPA. (2020). America's Water Sector Workforce Initiative: A Call to Action. https://www.epa.Rov/sites/
default/files/2020-ll/documents/americas water sector workforce initative final.pdf.

U.S. EPA. (2019). Building the Tribal Water Workforce of the Future: Key Findings from the 2019 Tribal Workforce
Workgroup. https://www.epa.Rov/svstem/files/documents/2021-12/tribal-water-workforce-
document-11.17.21.pdf.

U.S. EPA. (2018). National Water Sector Workforce Convening. Post-Convening Synthesis. November 14 - 15 ,
2018.

Interagency Water Workforce
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