Wastewater Infrastructure: Overview, Funding, and Legislative Developments

Congressional Research Service (CRS) | September 22nd, 2017

The collection and treatment of wastewater remains among the most important public health interventions in human history and has contributed to a significant decrease in

The collection and treatment of wastewater remains among the most important public health interventions in human history and has contributed to a significant decrease in waterborne diseases during the past century. Nevertheless, waste discharges from municipal sewage treatment plants into rivers and streams, lakes, and estuaries and coastal waters remain a significant source of water quality problems throughout the country. The Clean Water Act (CWA) establishes performance levels to be attained by municipal sewage treatment plants in order to prevent the discharge of harmful wastes into surface waters. The act also provides financial assistance so that communities can construct treatment facilities and related equipment to comply with the law. Although approximately $95 billion in CWA assistance has been provided since 1972, funding needs for wastewater infrastructure remain high. According to the most recent estimate by the Environmental Protection Agency and the states, the nation’s wastewater treatment facilities will need $271 billion over the next 20 years to meet the CWA’s water quality objectives. Meeting the nation’s wastewater infrastructure needs efficiently and effectively is likely to remain an issue of considerable interest to policymakers. The CWA authorizes the principal federal program to support wastewater treatment plant construction and related eligible activities. Congress established the CWA Title II construction grants program in 1972, significantly enhancing what had previously been a modest grant program. Federal funds were provided through annual appropriations under a state-by-state allocation formula contained in the act. States used their allotments to make grants to cities to build or upgrade categories of wastewater treatment projects including treatment plants, related interceptor sewers, correction of infiltration/inflow of sewer lines, and sewer rehabilitation. In 1987, Congress amended the CWA and created the State Water Pollution Control Revolving Fund (SRF) program. This program represented a major shift in how the nation finances wastewater treatment needs. In contrast to the Title II construction grants program, which provided grants directly to localities, SRFs are loan programs. States use their SRFs to provide several types of loan assistance to communities, including project construction loans made at or below market interest rates, refinancing of local debt obligations, providing loan guarantees, and purchasing insurance. In 2014, Congress revised the SRF program by providing additional loan subsidies (including forgiveness of principal and negative interest loans) in certain instances. The law identifies a number of types of projects as eligible for SRF assistance, including wastewater treatment plant construction, stormwater treatment and management, energy-efficiency improvements at treatment works, reuse and recycling of wastewater or stormwater, and security improvements at treatment works. In both FY2016 and FY2017, Congress provided $1.394 billion for the clean water SRF program. President Trump’s FY2018 budget proposal requests the same amount as provided for the previous two fiscal years. Although appropriation levels have remained consistent in recent years (in nominal dollars), policymakers have continued to propose changes to the funding program. Issues debated in connection with these proposals include extending SRF assistance to help states and cities meet the estimated funding needs, modifying the program to assist small and economically disadvantaged communities, and enhancing the SRF program to address a number of water quality priorities beyond traditional treatment plant construction—particularly the management of wet weather pollutant runoff from numerous sources, which is the leading cause of stream and lake impairment nationally.

Wastewater Reuse for Agriculture: Development of a Regional Water Reuse Decision-Support Model (RWRM) for Cost-Effective Irrigation Sources

American Chemical Society (ACS) | August 8th, 2016

Water scarcity has become a critical problem in many semiarid and arid regions. The single largest water use in such regions is for crop irrigation, which typically relie

Water scarcity has become a critical problem in many semiarid and arid regions. The single largest water use in such regions is for crop irrigation, which typically relies on groundwater and surface water sources. With increasing stress on these traditional water sources, it is important to consider alternative irrigation sources for areas with limited freshwater resources. One potential irrigation water resource is treated wastewater for agricultural fields located near urban centers. In addition, treated wastewater can contribute an appreciable amount of necessary nutrients for plants. The suitability of reclaimed water for specific applications depends on water quality and usage requirements. The main factors that determine the suitability of recycled water for agricultural irrigation are salinity, heavy metals, and pathogens, which cause adverse effects on human, plants, and soils. In this paper, we develop a regional water reuse decision-support model (RWRM) using the general algebraic modeling system to analyze the cost-effectiveness of alternative treatment trains to generate irrigation water from reclaimed wastewater, with the irrigation water designed to meet crop requirements as well as California’s wastewater reuse regulations (Title 22). Using a cost-minimization framework, least-cost solutions consisting of treatment processes and their intensities (blending ratios) are identified to produce alternative irrigation sources for citrus and turfgrass. Our analysis illustrates the benefits of employing an optimization framework and flexible treatment design to identify cost-effective blending opportunities that may produce high-quality irrigation water for a wide range of end uses.

Water and Suspended-Sediment Flux Measurements at the Golden Gate, 2016-2017

San Francisco Estuary Institute (SFEI) | December 1st, 2017

Sediment is an important resource for San Francisco Bay (SFB), in the context of restoration projects, dredging operations, ecosystem health, and contaminant transport an

Sediment is an important resource for San Francisco Bay (SFB), in the context of restoration projects, dredging operations, ecosystem health, and contaminant transport and fate. Understanding the transport and fate of sediment in SFB is important to ecosystem researchers and managers. Previous studies have shown that sediment exchange at the estuary-ocean boundary of SFB (Golden Gate inlet) is the most poorly understood element of the SFB sediment budget, owing to logistical challenges that inhibit routine field observations, and the fact that net flux is a small fraction of the instantaneous peak values experienced on a daily basis. Improved understanding of sediment exchange at the estuary-ocean boundary of SFB is essential to updating SFB-wide sediment budgets, which account for sources, sinks, and storage of sediment (and sediment-associated contaminants). In this study, field observations of water and suspended-sediment fluxes at the Golden Gate were made over one ebb tide and one flood tide on three occasions: 1) 21-22 March 2016, following a large storm event that triggered the first flow into Yolo Bypass flood control structure since 2011 2) 23 June of 2016, during a period of low freshwater inflow; 3) 27-28 February 2017, following several large storms of the wettest winter in northern California in recorded history.

Water and the COVID-19 Pandemic Impacts on Municipal Water Demand

Pacific Institute | July 2nd, 2020

Water and the Future of the San Joaquin Valley

Public Policy Institute of California (PPIC) | February 14th, 2019

The San Joaquin Valley—California’s largest agricultural region and an important contributor to the nation’s food supply—is in a time of great change. The valle

The San Joaquin Valley—California’s largest agricultural region and an important contributor to the nation’s food supply—is in a time of great change. The valley is ground zero for many of California’s most difficult water management problems—including groundwater overdraft, drinking water contamination, and declines in habitat and native species. Local water supplies are limited, particularly in the southern half of the region. To irrigate their crops, many farmers use water imported from the Sacramento–San Joaquin Delta. But in many places farmers have also relied on groundwater overdraft—pumping groundwater in excess of the rate at which it is replenished. Worsening droughts, increasing regulations to protect endangered native fishes, and growing demand by Southern California for Delta imports have compounded surface water scarcity. The state’s Sustainable Groundwater Management Act (SGMA) requires local water users to bring groundwater use to sustainable levels by the early 2040s. This will have a broad impact on valley agriculture and the regional economy in coming years—likely including some permanent idling of farmland. This report explores three key challenges facing the San Joaquin Valley and reviews the most promising approaches to address them:  Balancing water supplies and demands. To close the groundwater deficit, groundwater sustainability agencies in the valley’s overdrafted basins will have to augment supplies, reduce demands, or use some combination of these two approaches. A range of options are under consideration but they are not equally effective or practical.  Addressing groundwater quality challenges. Poor groundwater quality impairs drinking water supplies in disadvantaged rural communities, reduces long-term agricultural prosperity, and degrades ecosystems. Providing safe drinking water is an urgent priority. Over the longer term, parties will also need to manage water quantity and quality together, to take advantage of synergies and avoid unintended consequences. The necessary coordination will be challenging because the various programs addressing valley water quality issues are carried out by numerous local and regional entities, whose lines of responsibility and geographic boundaries do not neatly align.  Fostering beneficial water and land use transitions. Effectively addressing water scarcity and the resulting land use changes in the San Joaquin Valley offers opportunities to put lands coming out of production to good use—and gain “more pop per drop” from limited water resources. Multiple-benefit approaches to water and land management can enhance groundwater recharge and improve air and water quality. They can also promote healthier soils, new recreational opportunities, additional flood protection, improved habitat, and new revenue streams for private landowners engaging in conservation-oriented management. Addressing these complex and intertwined issues requires significant changes in water and land management and a major ramp-up in cooperation and coordination among a wide circle of stakeholders. Pursuing solutions that deliver multiple benefits will boost the chances of success overall. The entire region—and California as a whole—will benefit if solutions to these challenges are cost-effective and support the valley’s economy while improving public health and the natural environment.

Water Column Selenium Concentrations in the San Francisco Bay-Delta: Recent Data and Recommendations for Future Monitoring

San Francisco Estuary Institute (SFEI) | August 1st, 2017

The San Francisco Bay Regional Water Board developed a Total Maximum Daily Load (TMDL) and implementation plan for selenium in North San Francisco Bay (NSFB) in 2015.1 T

The San Francisco Bay Regional Water Board developed a Total Maximum Daily Load (TMDL) and implementation plan for selenium in North San Francisco Bay (NSFB) in 2015.1 The TMDL is based on attainment of water column and fish tissue target concentrations protective of human health, aquatic life, and wildlife, and was approved by the US Environmental Protection Agency in August, 2016. Analyses in support of the TMDL synthesized the results of different monitoring efforts to characterize selenium concentrations in water and biota in the Estuary. For water quality evaluation in the TMDL, the sources of observational data included studies of selenium speciation across the estuarine salinity gradient, performed in 1999-2000 and again in 2010 and 2012 (Cutter and Cutter 2004, Doblin et al. 2006, Tetra Tech, 2012), as well as samples collected by the San Francisco Bay Regional Monitoring Program (RMP). Changes in wastewater treatment from the five major refineries in NSFB were implemented in the late 1990s, leading to significant reductions in selenium loads. Data at Estuary center-line locations showed small changes for dissolved selenium in the mid-salinity range and no trends in particulate selenium (Baginska, 2015). As part of the TMDL, water quality modeling analyses were performed to characterize NSFB selenium concentrations under a range of hydrologic conditions and changing point-source loads (Baginska, 2015). Water column selenium concentration data in the NSFB and Delta continue to be collected at selected locations, although these data have not been systematically evaluated following the analyses presented in the TMDL reports. In the near term, possible changes that may cause selenium concentrations to change in the NSFB and Delta include concentration changes in the inflow from the San Joaquin River basin, changes in refinery inputs, changes in stormwater and tributary loads from the Bay margin, and changes in overall Central Valley hydrological conditions, such as the extreme wet and dry periods that occurred between 2012 and 2017. Other drivers, such as nutrient concentrations and algal levels, may also play a role, especially on the concentrations of selenium on particulates.

Water Quality Assessment of the State Water Project, 1998-99

California Department of Water Resources (DWR) | August 10th, 2000

This report describes water quality in the State Water Project during 1998 and 1999. The Executive Summary covers important drinking water parameters such as salinity and

This report describes water quality in the State Water Project during 1998 and 1999. The Executive Summary covers important drinking water parameters such as salinity and trihalomethane precursors. The rest of the report assesses all parameters including metals and pesticides.

Water Quality Challenges in the San Francisco Bay/ Sacramento-San Joaquin Delta Estuary: EPA’s Action Plan

U.S. Environmental Protection Agency (EPA) | August 22nd, 2012

The U.S. Environmental Protection Agency (EPA) developed this Action Plan after assessing the effectiveness of current regulatory mechanisms designed to protect water qua

The U.S. Environmental Protection Agency (EPA) developed this Action Plan after assessing the effectiveness of current regulatory mechanisms designed to protect water quality in the San Francisco Bay Sacramento-San Joaquin Delta Estuary (Bay Delta Estuary) and its tributaries. EPA’s assessment concludes that Clean Water Act (CWA) programs currently are not adequately protecting aquatic resources of the Bay Delta Estuary. In this document, EPA recommends actions to restore water quality for aquatic species protection using existing EPA authorities and resources, as well as actions EPA believes are important and appropriate for the State Water Resources Control Board (State Water Board). EPA is one of more than 25 state and federal governmental agencies with responsibilities in the Bay Delta Estuary. EPA’s major statutory mission in the Estuary is to implement the CWA. EPA has delegated many CWA program authorities to the State Water Board while providing financial support,1 technical assistance, and oversight (including, in some cases, review and approval of State actions). Much of EPA's work in this Action Plan (as well as elsewhere in California) is done in support of and in partnership with the State. For example, water quality standards, which define water quality goals for our waterbodies, are typically developed and adopted by the State with EPA assistance, review, and ultimately, approval or disapproval. In the Bay Delta Estuary, EPA focuses on assuring that the many designated uses of the Estuary’s aquatic resources are protected. EPA emphasizes the CWA goals of maintaining and improving water quality – the chemical, physical, and biological integrity of the water – to ensure the Bay Delta Estuary can function as a vibrant, healthy estuary. About 90 species of fish are found in the Delta. The Delta’s channels serve as a migratory route and nursery area for Chinook salmon, striped bass, white and green sturgeon, American shad, and steelhead trout. These anadromous fish spend most of their adult lives either in the lower bays of the Estuary or in the ocean. Resident fish in the Estuary include delta smelt, longfin smelt, Sacramento splittail, catfish, largemouth bass, black bass, crappie, and bluegill. All Bay Delta Estuary waters are impaired by one or more contaminants. In addition, the reduction in the quantity and quality of estuarine habitat limits the Estuary’s ability to support aquatic species. EPA’s Action Plan describes a suite of activities to: 1. Strengthen water quality standards to protect estuarine habitat 2. Advance regional water quality monitoring and assessment 3. Accelerate water quality restoration through Total Maximum Daily Loads 4. Strengthen selenium water quality criteria 5. Prevent pesticide pollution 6. Restore aquatic habitats while managing methylmercury 7. Support the Bay Delta Conservation Plan Collectively, these activities will contribute to the restoration of the Bay Delta Estuary. Even if they are all successfully implemented, however, they are not sufficient to resolve the complex problems that have stressed the ecosystem to the point of collapse. Any solution to the ecological problems of the Bay Delta Estuary must be multi-faceted, including providing sufficient flows, physical habitat which is sufficiently large, connected, diverse, and self-sustaining, as well as a reduction of many types of stressors, such as contaminants, invasive species, and predation.

Water Quality Conditions in the Sacramento-San Joaquin Delta and Suisun and San Pablo Bays during 2009

California Department of Water Resources (DWR) | December 28th, 2010

This report summarizes the results of water quality monitoring and special  studies conducted by the Environmental Monitoring Program (EMP) within the Sacramento-San Joa

This report summarizes the results of water quality monitoring and special  studies conducted by the Environmental Monitoring Program (EMP) within the Sacramento-San Joaquin Delta (Delta) and Suisun and San Pablo bays (the upper San Francisco estuary) during calendar year 2009. This monitoring is mandated by Water Right Decision 1641 (D-1641) and this report is being submitted to fulfill the reporting requirements of this decision. The EMP monitored water quality using a protocol implemented in 1996. Under this monitoring protocol, 13 sampling sites—2 of which were added after 1996—representing 8 regions of the upper San Francisco estuary (estuary) were monitored for 15 physical and chemical water quality parameters. The results gathered from the sampling of these 15 parameters are described in this report. Parameters such as water temperature, Secchi disk depth, dissolved oxygen (DO) concentration, specific conductance, dissolved inorganic nitrogen, orthophosphate, and volatile suspended solids were within their historical range. Measured parameters exhibited seasonal variation as well as changes in response to significant rainfall events and in flow rates. In addition to monitoring physical and chemical water quality parameters, biological sampling was conducted to monitor the productivity and community composition of phytoplankton, zooplankton, and benthic communities.

Water Quality Control Plan for Salinity (draft)

California State Water Resources Control Board (SWRCB) | October 15th, 1988