the lead and copper rule cedar rapids’ journey to compliance · cedar rapids’ journey to...
TRANSCRIPT
TheLeadandCopperRuleCedarRapids’JourneytoCompliance
BarbWagner,CedarRapidsWaterDepartmentShelliLovell,CentralIowaWaterAssociationJohnNorth,IowaAssociationofWaterAgencies
Iowa’sDrinkingWater:CouldFlintHappenHere?• Intheearly1990s,CedarRapids’wasinviolationofthenewstandardforleadindrinkingwater.Theexceedancewas:• Major,extensive&overaprolongedperiodoftime• Bothsimilarities&dissimilaritiesbetweeneventsinFlintandCedarRapids
• Thispresentationwilldiscuss:• ScopeandnatureoftheCedarRapids’leadcorrosionphenomenon• Ourresponse– Initialandlong-term• Howweultimatelyachievedcompliance• Lessonslearned
• Thispresentationwillalsodiscuss:• Our“dirtylaundry”– whatweshouldhavedonebetterordifferently• Our“pointsofpride”– whatwedidright
LeadandCopperRule(LCR)NationalPrimaryDrinkingWaterRegulation(NPDWR)PromulgatedonJune7,1991• Addresses corrosion of lead and copper in drinkingwaterprimarily from leadservice lines and householdplumbing(brassfixtures)
• MaximumContaminantLevelGoals(MCLGs)• Lead- 0ug/l(microgramsperliter)• Copper– 1.3mg/l(milligramsperliter)
• Requiresatreatmenttechnique(optimizedcorrosioncontrol)ratherthanaMaximumContaminantLevel(MCL)
• TapSampleresultsarecomparedtoanActionLevel(AL)standard• Lead- 15ug/l(or0.015mg/l)• Copper- 1.3mg/l
• Actionlevelforleadisascreenorindicatorforoptimalcorrosioncontrol.Itisbasedontreatmentfeasibility;NOTonahealththreshold
RegulatoryStandardforLeadinDrinkingWater• PriortoJune1991• MaximumContaminantLevel(MCL)forLead- 50ug/l• Sampledatthepointofentryintowaterdistributionsystem• Leadrarelydetectedandcompliancegenerallynotanissue
• SubsequenttoJune1991• ActionLevelforLead– 0.015mg/l(or15ug/l)
• Monitoring– Atrepresentativelocationsindistributionsystemdeemedtobehighestrisk• Minimum#ofsamplesbasedonpopulation(CRminimum- 100samples)• 90%ofallsampleresultshadtobelessthantheALof15ug/l
• SamplingProtocol:Conditions/locationsmostconduciveforleadcorrosion• Homeswithleadservicelines• Homesconstructedbetween1982-1986• First-drawsamplesafterperiodofprolongednon-use(6hoursminimum)
LeadandCopperRuleRegulatoryIntentandGoals
• UniversalConcernsre:DetrimentalHealthEffectsofLead• Youngchildren• Pregnantwomen• Allconsumers
• LeadandCopperRule• Provideaprotectivestandardforwaterasitconsumedorused• Complementothernewstandardsforleadcontent(e.g.solder,brassfixtures)
• PotentialSourcesofLead(corrosionorleaching)• LeadServiceLines• LeadSolderJoints• BrassFixtures– faucets,watermetersetal.
ExceedanceoftheActionLevelActionsTriggered
• Ifthe90th percentileofasystemsleadsamplingresultsexceedtheActionLevelforlead,asystemmust:• Optimizecorrosioncontrol
• Identifyandinstalloptimalcorrosioncontroltreatment• ComplywithState-specifiedoptimalwaterqualitycontrolparameters
• PublicEducation• Mandatorylanguageforpamphletsandbrochuresonlead• Medianotice(radio,TVandnewspaper)• Deliverinformationalmaterialsto:
• Allcustomers• Organizationsthatservesensitivesubpopulations(e.g.schools,pediatricians)
• TriggeredLeadServiceLineReplacement• Requiredifunabletoachievecompliance(viacorrosion-controltreatmentstrategy)• Replacetheportionoftheleadservicelinesownedbythewaterutility• Offertoreplacethecustomer’sportionoftheservicelineatcost• Replace7%ofleadservicelineseachyear
CedarRapidsWaterSystem•WaterServiceLineMaterials- Priortoabout1945to1947• Leadline– FromMaintoStopBox(Utilityownedandresponsibility)• GalvanizedPipe– Fromstopboxtohouse(Propertyowner’sresponsibility)
•MonitoringSitesforLCRCompliancein1992• Homeswithleadservicelines
• Olderhomesincoreorolder,centralareaofCedarRapids• Higherpercentageoflower-incomefamilies
• Homesconstructedbetween1982-1986• NewhomeconstructionconcentratedintwonewdevelopmentsonfringesofCR• Predominantlymiddletohigherincomefamilies
CedarRapidsWaterSystem• CorrosionControlStrategy– Priorto1992• Finishedwaterchemistry
• Shallowalluvialwells,limesofteningandchloramination• [email protected]• AdditionofPolyphosphatesasacorrosioninhibitor• AslightlypositiveLangelier Index(i.e.watertendstodepositprotectivecoatings)
• Immediatelypriortofirstroundofcompliancemonitoring• GeneralAssumption:Protectivebiofilm/depositionlayerwasinplace• Conductedpreliminarymonitoring
• Limitednumberofsamples(about20)• Majoritytakenfromhomeswithleadservicelines• Noindicationofsignificantleadcorrosionand/orpossiblecomplianceissues
CRWD– FirstRoundofComplianceMonitoringJanuary– July1992
• RegulatoryComplianceRequirements• Minimumof100samples• Locationsandconditions(first-draw,6hoursofnon-use)mostconducivetoleadcorrosion• 90th percentvalueforleadtestresultsmustbe<0.015mg/l
• LeadMonitoringResults• Samples– 105locations• 90th percentvalue- 0.055 mg/l (Or2.7timeshigherthantheA.L.)• #ofsamplesexceedingA.L.– 59 (Or56%ofallsamples)• AverageValue– 0.027mg/l• MedianValue– 0.017mg/l• MaximumValue– 0.174mg/l
• FrontPageofUSATodayasa“TopTenCityforLeadLevelsinDrinkingWater”
CRWD’sInitialResponse• Hiredaconsultingengineer• Continuedtomonitorrepresentativesites• Conductedbenchteststoevaluatewaterchemistryadjustments• ConsultedwithIowaDNR• ImplementednewfinishedwaterchemistryinNovember1992• Switchedfrompolyphosphatestozincorthophosphate(ZnPO4)• Addedzincorthophosphateatahigherthannormaldose• LoweredfinishedwaterpHto8.3(fromprior9.3target)
• SecondroundofcompliancemonitoringcompletedinNov-Dec,1992• Wesharedtestresultswithhomeowners
LeadComplianceMonitoringResultsthroughRound#2
Round#1Jan-Jun,1992
Round#2Nov– Dec,1992
# ofsamples 105 101
90th PercentileValue 0.055 mg/l 0.042mg/l
#exceedingtheA.L. 59 50
MeanValue 0.027mg/l 0.029mg/l
MedianValue 0.017mg/l 0.015mg/l
MaximumValue 0.174mg/l 0.428mg/l
LeadComplianceMonitoringResultsthroughRound#3
Round#1Jan-Jun,1992
Round#2Nov– Dec,1992
Round#3December1994
# ofsamples 105 101 103
90th PercentileValue 0.055 mg/l 0.042mg/l 0.026mg/l
#exceedingtheA.L. 59 50 15
MeanValue 0.027mg/l 0.029mg/l 0.011mg/l
MedianValue 0.017mg/l 0.015mg/l 0.002mg/l
MaximumValue 0.174mg/l 0.428mg/l 0.472mg/l
LeadComplianceMonitoringResultsthroughRound#4
Round#1Jan-Jun,1992
Round#2Nov– Dec,1992
Round#3December1994
Round#4December1995
# ofsamples 105 101 103 100
90th PercentileValue 0.055 mg/l 0.042mg/l 0.026mg/l 0.014mg/l
#ExceedingtheA.L. 59 50 15 10
MeanValue 0.027mg/l 0.029mg/l 0.011mg/l 0.006mg/l
MedianValue 0.017mg/l 0.015mg/l 0.002mg/l 0.003mg/l
MaximumValue 0.174mg/l 0.428mg/l 0.472mg/l 0.027mg/l
ExceedanceExcursionsRounds#7,#8	
Round#7Nov- Dec,1998
Round#8May - June,1999
Round#9Nov- Dec 1999
Round#10Jan- July2000
# ofsamples 100 100 100 191
90th PercentileValue 0.018 mg/l 0.028mg/l 0.015mg/l 0.009 mg/l
#ExceedingtheA.L. 14 22 10 11
MeanValue 0.008mg/l 0.012mg/l 0.006mg/l 0.004mg/l
MedianValue 0.002mg/l 0.004mg/l 0.003 mg/l 0.002 mg/l
MaximumValue 0.201mg/l 0.133mg/l 0.071mg/l 0.090mg/l
LeadComplianceMonitoringSummary1992through2015
0.000
0.010
0.020
0.030
0.040
0.050
0.060
Leadcon
centratio
nmg/l
90th PercentileValueforLead
90thPercentileValue ActionLevel
LeadComplianceMonitoringSummary1992through2015
0
10
20
30
40
50
60
70
NumberofSamplesabovethe0.015mg/lActionLevel
CRWD’sResearchandResponseExtensiveandProlongedDistributionSystemMonitoring
• ResearchandMonitoringat“High-Risk”Homes• Homeswithleadservicelinesorconstructedbetween1982-1986• First-Drawlead&coppersamples• Waterchemistryprofiles• Twoormorelocationsinsamehome• Analysisofmultiple,sequentialone– litersamples
• Leadservicelines:Capture&analyzewaterindirectcontactwithleadserviceline• 1982-86Homes:Leadcorrosionatthefaucetorelsewhereinhome’splumbingsystem?
• AnalysisofSamples– Unfiltered&filtered(Solubleorparticulatematter?)
• MonitoringthroughoutDistributionSystemtoensure:• Nodegradationofgeneralwaterqualityparameters• Nolossofdisinfectantand/orbacterialgrowths• Appropriatedispersionofcorrosioninhibitor– ZnPO4
CRWD’sResearchandResponseExtensiveandProlongedLoopStudies
• 8- 10Loopsconstructedtosimulatehome’sinternalplumbingsystem• Approximately25feetofcopperpipingwithandw/osolderjoints• Faucets• Solenoidvalves/timersforcontrolled“flowusageorflushing”
• Researchfocusor“variables”studied• Waterchemistry• Corrosioninhibitors
• DifferentProducts:Polyphosphates,ZincOrthophosphate,PhosphoricAcid,etal• DifferentManufacturersorformulationsofsame“generic”product(especiallyZnPO4)• Differentconcentrationsofsameproduct
• ResearchandMonitoringActivities• Waterchemistryprofiles• Monitoringoffirst-drawlead&coppersamples• Analysisofsequentialone– litersamples• AnalysisofSamples– Ascollected(unfiltered)thenfiltered
CRWD’sResearchandResponseDistributionSystem
• ImplementedPolicy:Removeleadservicelinesateveryopportunity• Streetprojects• Waterlinereplacementprojects• Watermainandservicelinebreaks
• Encouragedhomeowners:Replaceyourportionofserviceline(galvanized)• Majorprojects:CRWDsolicitedunitcostquotesforservicelinereplacementwork• Forfinanciallystrappedcustomers:
• CRWDunderwrotetheservicelinereplacementcostsincurredbythecustomer• CustomerrepaidtheCRWDoverfiveyearsviaasurchargeontheirutilitybill
CRWD’sResearchandResponseExtensivePublicRelations&InformationEfforts
• OurCommitmentsorGuidingPrinciples:• ProtectionofPublicHealthisParamount• Befullyopenandhonest• Beasresponsiveaspossibletopublicinquiriesandconcerns
• MailingsandDistributionofInformationalMaterials• EPAMandatedInformationandLanguage• AdditionalInformationabout:
• Scopeandnatureoftheleadcorrosionproblem• Currentactivities• Strategicplanforidentifying&implementing“treatmentregimenforoptimalcorrosioncontrol”
• TargetedMailingsandOutreaches• Schools,daycarecenters,et.al.• Pediatriciansandotherhealthcareproviders
• Coordinatedandworkedcloselywith:• LinnCountyHealthDepartment• Localnewsmedia,especiallytheCRGazette• IowaDepartmentofNaturalResources
• RegularStatusReportstoCityCouncil(televised)
LessonsLearned– Scientific&ResearchFindings• Waterchemistryandleadcorrosionarecomplex• Multiplefactorsmayaffectorcontributetoleadcorrosion• Therearenosimpleexplanationsorcauses• Therearenoeasyanswers• Therearetrade-offs(e.g.ZinccreatesacompliancechallengeforWPC)
• Possiblefactorsthatmightaffectleadcorrosion• Rawwatersource– surfacewater,shallowordeepwells• Typeofwatertreatment(minimaltreatmentorlimesofteningorothermethod)• pHofthefinishedwater• Stabilityoffinishedwater(slightlydepositingversusslightlycorrosive)• CorrosionInhibitor– typeandfeedrate• Disinfectionmethod– chlorinationorchloramination
LessonsLearned– Scientific&ResearchFindings• Switchinwaterchemistry&corrosioninhibitor
• Isaslow,long-termendeavor• Mayexperience“spikes”duringthetransition
• LeadServiceLineswerenot amajorsourceorcontributorinCR• Demonstratedviaanalysisofsamplesinprolonged,directcontactwithlead• Hightestresultsduetonewlyinstalledfaucetsand/orrecentplumbingwork
• Preponderanceofhighresultswerefromhomesconstructed1982-1986• Brassfixturesand/orsolderjointswerelikelytheprimary“culprits”inCR• Occasionalhighresultslikelyduetoleadparticles(i.e.notsolublelead)
OtherQuestions,Observations&Musings• Somebrass(manufacturers,lotsetc.)mightbemoresusceptibletocorrosion
• Monitoringofsimilarsitesshowedconsistent&significantlydifferentlevelsoflead• Monitoringofimmediatelyadjacenthomes- samecontactor,ageandbrandoffaucets• Monitoringofmultiplefaucetsinsamehometoincludeside-by-sideunitsinamasterbathroom
• Replaceda“problem”faucet– newunitincompliancewithin30days• Anecdotalevidencethatsomeimportedbrassmighthavebeenmoresusceptibletoleadcorrosion
• Qualityofplumbingworkmanshipapossiblefactor(excessive,loosesolder?)
• ApparentvariationinefficacyofZnPO4fromdifferentmanufacturers
• ZincOrthophosphatehassomeaestheticissues• Discolorationofplumbingfixtures• Discolorationoftoilettanks
OtherQuestions,Observations&Musings
• Wasthetreatmentregimenchangethe“right,long-term”decision?• Nocomplianceissues@otherIowacitieswithcomparablewatertreatmentregimens• Lament:Notabletoresearchwhythepriortreatmentregimen/inhibitorfailed
• Explanationforefficacyofthenewtreatmentregimen/corrosioninhibitor?• ZnPO4providesamoreeffectiveprotectivelayerthanpolyphosphates?• Readilyavailableleadandleadparticulatematterwereleached/flushedovertime?• Orsomecombinationoftheabovefactors?• Orotherunknownfactors?
OtherQuestions,Observations&Musings• CedarRapidsexpendedanenormousamountofmoney&timeinresearching/resolvingitsleadcorrosionproblem(Est.@$1.0Millionplus)• Ina“perfectworld”,amorebeneficialusewouldberemovaloflead-basedpaintfromhomes
• CRWDcompiledasignificantamountofmonitoringdata,observationsandinformationregardingCRWD’sleadcorrosionchallenges• Lamentisthatwedidnothavethetimeandresourcestodosoinafullycomprehensive,methodicalmannerthatwouldfacilitateresearchoftheleadcorrosionphenomenom (e.g.scientificpublication)
LessonsLearned– “CrisisManagement”• BestApproach
• RecognizethatProtectionofPublicHealthistheultimategoal• Beopenandhonest• Admitwhenyoudon’tknow• CitizenConcerns:Listen,acknowledgeconcernsanddemonstrateempathy• Communicate,communicate,communicate!• Dothe“RightThingfortheRightReason”
• Allowappropriateindividualstomaketheappropriatedecisions• Primaryfocusshouldbetheproblem(s)andsolution(s)
• Recognizethatotherswillcallintoquestionyourindividualorteam’s• Professionalcompetency• Honestyandintegrity
LessonsLearned– A“Self-Critique”Whatwedidwrongorwishwecouldhavedonebetter
• Weweretoocomplacent!Priortocompliancemonitoring,weshouldhave:• Beenmorequestioning– Isthistheoptimalfinishedwaterchemistry&corrosioninhibitor?• Donemoresampling– Dowehaveaproblem?
• Weputourselvesinapositionwherewehadtomakedecisions“onthefly”• WhatistheoptimalwaterchemistryandcorrosioninhibitorforCR?• Willthe“quickanddirty”benchstudiesworkonasystem-widescale?• Didwemaketherightorbestdecisionforthelong-term??
• “TheCrisiswasmanagingus– WewerenotmanagingtheCrisis!”
A“Self-Critique”WhatWeDidRight!
• Afterourwakeupcall,We• Acknowledgedthesituation• MadeProtectionofPublicHealthourprimaryfocus• Marshalledallofourresources• Workedasateamandwererelentlessanddeterminedinourefforts
• WedeferredtoMedicalProfessionalsre:potentialhealthissues• LinnCountyHealthDirector:“Threeprimarycausesofelevatedleadlevelsarelead-basedpaint,lead-basedpaint,andlead-basedpaint”
• CRCityLeadersandCitizens• Deferredtousontechnicalmatters***• Priority– Researchingandresolvingtheproblem***• Minimalfinger-pointing,posturingand“CYA”activity***• AllowedusanopportunitytoregaintheirTRUST***
***Thereweresomeexceptions
TheCRWD“ResponseTeam”• CitizensofCedarRapids
• MayorandCouncil,especiallyMayorSerbousek&CouncilmanLyleHanson• Customers,especiallythosethatservedassamplesites
• CedarRapidsWater&WPCDepartments• Laboratory– TomNoth,RogerPfeiffer,BarbWagner• CRWDStaff– especiallycustomerserviceandplantmaintenancecrew• CedarRapidsWPCLaboratory– completedallthemetalanalyses
• LocalAgencies– LinnCountyHealth,CRGazette&localnewsmedia
• IowaDNR– DennisAlt,RoyNeyandDianeMoles
WaystoReducePotentialExposuretoLeadinDrinkingWater
• Alwaysflushlinebeforedrawingwaterforconsumptionpurposes(drinking,preparationoffoodorbabyformula)• Afterprolongedperiodsofnon-use:Flushuntilwaterisascoldasitisgoingtoget• Duringperiodsofnormaluse:Flushlongenoughtopurgethewaterindirectcontactwiththefaucet
• NeverUseHotWater forconsumptionpurposes(drinking,preparationoffoodorbabyformula)• Hotwaterwillleachleadmuchfasterthancoldwater
• Questionsaboutyourdrinkingwater• ConsumerConfidenceReport(WaterQuality)– Postedonline• Contactyourwaterutility