looking forward after 40 years of the sdwa
TRANSCRIPT
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Looking Forward After
40 Years of the SDWA
Adam Carpenter
Regulatory Analyst
AWWA – Washington, DC
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Presentation Outline
• Where we came from
– Summary of legislative and regulatory history
– Past SDWA and reg. accomplishments
• Regulatory “shapings”
• 25 versus 40
– Young versus middle-aged
– Tough 40th anniversary year
• Future success will be challenging
– Five big issues
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Three Iterations of the SDWA
• Initial 1974 SDWA set up the federal
standard-setting process
– Not enough regulations were developed
• 1986 SDWA – prescriptive reg schedule
• 1996 SDWA refined contaminant
identification and risk management
– New state programs for DWSRF, capacity
development, operator certification, and
source water assessments
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Regulatory History
• 19 regulations for 91 contaminants
between 1975-2013
• Nine prior to 1996 SDWA Amendments
– Primarily numerical MCLs based on annual
average of quarterly samples
• Ten after 1996 SDWA Amendments
– Harder to treat contaminants and/or more
complex regulations
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Where We Came From
0
20
40
60
80
100
120
NIPDWR
Phase II, LCR
TTHMR
1980
Phase I
SWTR,TCR
Phase II
19902000
2010
CCRR,Stage 1 DBPR,
IESWTR
Radionuclides, PNR
Arsenic, SFBR
GWR, LT2ESWTR,
Stage 2 DBPR
ST-LCRRTCR
ICR
Number of Regulated Contaminants
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Past SDWA Accomplishments
• Translation from USPHS guidelines to
federal standards for state adoption
• Standardized monitoring framework
• Regulating 91 contaminants – many risks
have been addressed
– Microbials (including Cryptosporidium), DBPs,
nitrate, arsenic, and others
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SDWA Accomplishments (cont.)
• Several accomplishments from 1996 SDWA
– DWSRF - $14.7 billion appropriated thru 6/12
• $23.6 billion with leveraging – 9,900 projects
– Consumer Confidence Reports (CCRs)
• Electronic delivery option in 2013
– Five years cycles for CCLs/UCMRs/RegDets
for identifying new contaminants
– Six-year reviews of existing regulations
– 18 Work Groups under National Drinking Water
Advisory Council
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Past Regulatory Accomplishments
• Microbial regulations
– 1989 SWTR and TCR
– 2006 Groundwater Rule
– 2013 Revised TCR
• Chemical regulations
– Arsenic, important industrial and agricultural
chemicals, lead, etc.
• Paired regulations in M/DBP Cluster
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Waterborne Disease Outbreaks
Source, CDC MMWR
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DBP Reductions
• Two historical comparisons
– 1975-1976 TTHM mean 68-µg/L 90th-150 µg/L
– 1997-1998 ICR mean-28 µg/L 90th-60 µg/L
• 60% reduction
– Pre-Stage 1 DBPR to Post-Stage 1 for SW
• Average TTHM decreased from 42.3 to 35.0 µg/L
• Average HAA5 decreased from 29.1 to 22.5 µg/L
– Comparable reductions for groundwater
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Cancer Incidence Rates* for Men, US, 1975-2000
*Age-adjusted to the 2000 US standard population.
Source: Surveillance, Epidemiology, and End Results Program, 1975-2000, Division of Cancer Control and
Population Sciences, National Cancer Institute, 2003.
0
50
100
150
200
250
1975
1976
1977
1978
1979
1980
1981
1982
1983
1984
1985
1986
1987
1988
1989
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
Prostate
Lung
Colon and rectum
Urinary bladder
Non-Hodgkin lymphoma
Rate Per 100,000
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Regulatory “Shapings”
• No GAC in TTHM Rule
• Lead and Copper Rule
– No lead service line replacement on private
property
– No lead MCL at the tap
• Arsenic at 10 ppb instead of 5 ppb
• Uranium at 30 ppb – SDWA BCA discretion
• No radon rule
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More “Shapings”
• Filter backwash recycling rule
– No mandated treatment for filter backwash
• M/DBP Cluster
– Pairing of the regulations
• Stage 2 DBPR
– 80/60 LRAA for TTHM/HAA5 instead of 40/30
– “Hotaling OEL” instead of single 100 ppb
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More “Shapings”
• LT2ESWTR toolbox for compliance
• RTCR
– No total coliform MCL
– “Find and fix” regulatory framework
• Electronic delivery of CCRs
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25 versus 40
• Young at 25 (1999) vs. middle-aged at 40
• USEPA and primacy agencies in 1999
– DWSRF, op cert, capacity development, SWAP
– Regulations – CCR, Stage 1 DBPR/IESWTR
– First Contaminant Candidate List (CCL1)
• Today at 40 – possibly lost a step
– No new contaminants have been regulated
since 1996 SDWA
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Tough 40th Anniversary Year
1. January 9th – Tank leak in Charleston, WV
2. Feb. 2nd – Coal ash dam failure adjacent to
Dan River near VA/NC border
3. April 16th – Reservoir issue in Portland, OR
4. April 30th – Train derails in Lynchburg, VA
5. August 9th – Cyanotoxin in Toledo, OH
6. August 18th – Diesel fuel spill on Ohio River
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Five Observations from 40th
1. Somebody else’s fault
2. Hindsight is always 20/20
3. Man-made incidents
4. No easy solutions from the SDWA
5. A SDWA regulation to address one of
these would take a decade to develop
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Future Success Will Be Challenging
1. Funding
2. The regulatory development process
3. Distribution systems and premise
plumbing
4. Data
5. Preparedness
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Funding
• Everyone in the drinking water sector is
grappling with decreased funding
– EPA and states – decreased budgets
– Water systems – recession impacts and
decreasing demand
• Infrastructure replacement costs are 5-10X
the compliance costs of all regulations
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Regulatory Development Process
• “Low-hanging fruit” already regulated
• Future regulations are complicated and
will be challenging to finalize and justify
– Perchlorate
– Chlorate and nitrosamines
– cVOCs
– Lead
– Hexavalent chromium
– Fluoride
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Observations
• The era of simple drinking water
regulations is long gone
• A decade to develop a new drinking water
regulation is not optimal
– Or is it?
• Should we (AWWA) be taking a more active role in
developing new regulations that make sense?
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Regulatory Process (cont.)
• No new contaminants have been
regulated since 1996 SDWA
– Negative determinations a positive result
• Several contaminants with 0-5 detects in UCMRs
• Should CCLs be shorter?
– Should future UCMRs be targeted?
• Should we focus on compliance versus
new regulations?
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EPA Drinking Water Data
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Community Engineering Corps
www.communityengineeringcorps.org
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Opportunities for Members
• Volunteer with project
teams to work with
communities
• Mentor student
project teams
• Volunteer committees
• Fundraising
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Distribution Systems
• Is a distribution system rule warranted?
• Storage tanks
– Should water systems be required to have a
tank maintenance and inspection plan?
• Disinfectant residual
– Should residual be a number versus detect?
• Louisiana emergency rule in 2013 of 0.5 mg/L
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Waterborne Disease Outbreaks
Source, CDC MMWR
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Premise Plumbing
• Legionella
– 22,418 reported cases in 2000-2009
• Actual incidence likely higher
• Premise plumbing is the responsibility of
the building owner
• Water systems needs to work with building
owners/operators to educate them about
water quality & their responsibilities
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Data
• The water sector is data/information-poor
– Health effects data
• Solid health effects data is needed to justify the
cost of compliance
– Occurrence data
• Methods can be a hindrance for occurrence data
• Automation and on-line monitoring may
not necessarily solve the problem
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Preparedness
• Water systems met the past regulatory
requirements for VAs and ERPs
– But more may be needed
• Charleston, WV and Danville & Lynchburg, VA
– Threats range from weather events, human
error, malevolent, mechanical failures, etc.
• How do water systems prepare for low-
probability, high-consequence events?
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Collaborations
• Collaborations are key for the future
• Complicated regulatory issues warrant
collaborations to solve the underlying
technical and policy issues
– For both regulatory & non-regulatory solutions
• Build upon past collaborative solutions
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Adam CarpenterRegulatory AnalystEmail: [email protected]: (202) 326-6126
American Water Works AssociationGovernment Affairs Office 1300 Eye Street, NW, Suite 701WWashington DC 20005Gen. Office: (202) 628-8303
Questions?