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• pH@9.3• 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&#9

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