SUBMITTED TESTIMONY
TO
THE SENATE ENVIRONMENT AND PUBLIC WORKS
SUBCOMMITTEE ON FISHERIES, WILDLIFE, AND WATER
REGARDING
THE FEDERAL ROLE IN MEETING WATER SUPPLY NEEDS
PRESENTED BY
JAY L. RUTHERFORD, P.E., DIRECTOR
WATER SUPPLY DIVISION
VERMONT DEPARTMENT OF ENVIRONMENTAL CONSERVATION
ON BEHALF OF
THE ASSOCIATION OF STATE DRINKING WATER ADMINISTRATORS
NOVEMBER 14, 2001
Testimony of the Association of State Drinking Water
Administrators
Before the Senate Environment and Public Works
Subcommittee on Fisheries, Wildlife, and Water
Regarding
The Federal Role in Meeting Water Supply Needs
November 14, 2001
Introduction
The
Association of State Drinking Water Administrators (ASDWA) is pleased to
provide testimony before the Senate Environment and Public Works Subcommittee
on Fisheries, Wildlife, and Water regarding the Federal role in meeting water
supply needs. ASDWA represents the
drinking water programs in each of the fifty states, territories, and the
District of Columbia in their efforts to ensure the provision of safe, potable
drinking water to all Americans nationwide.
ASDWA=s primary mission is the protection of public health
through the effective management of state drinking water programs that
implement the Safe Drinking Water Act.
Overview
For
more that 25 years, state drinking water program administrators have been
involved in issues primarily relating to water quality rather than quantity,
although a reliable source of drinking water is a prerequisite for good public
health protection. ASDWA=s members carry out regulation of public drinking
water systems that serve 25 or more people per day. Public water systems have the benefit of both Federal and state
regulation and this oversight typically provides for improved source
protection, planning, and operation of those systems to the benefit of the
consuming public.
In
response to the questions posed by the Subcommittee, ASDWA polled its member
states regarding the adequacy or capacity of their public water supplies. The responses received emphasized that each
state=s situation is unique.
Is there a water supply
problem?
Declared
drought conditions exist in all or portions of approximately half of the
states. States generally concurred that
these conditions either do or will affect the supply of available drinking
water. From ASDWA members= perspective, the primary cause of stressed water
supplies is weather-related B principally a
lack of rainfall or snowpack. Some states
also reported stresses attributable to population growth; competition for use
among agricultural, manufacturing, and environmental initiatives; and, in some
areas, stress due to development, although this issue was much less significant
than stresses caused by the weather.
Most
states have developed, or are developing, management systems to address the
reliability of their water supply.
These efforts usually involve coordination among a variety of state and
local agencies and, as needed, further coordination with selected Federal
agencies. Slightly more than half of
state drinking water programs are housed in Departments of Environment or
Natural Resources, generally the state agency responsible for water supply
management. The remaining state
programs fall under the purview of Departments of Health where water supply
management is not part of the program=s
mandate. This distinction has led to a
variety of lead agencies with regard to primary responsibility for water
quantity issues. However, state
drinking water programs, regardless of their location, all contain initiatives
directed toward source water assessment and delineation as part of their
responsibilities under the 1996 Amendments to the Safe Drinking Water Act
(SDWA).
What is the appropriate
Federal role?
The
1996 SDWA Amendments offered state drinking water programs several
opportunities to respond with enhanced flexibility to Federal requirements in a
manner that targeted specific state needs and recognized that states frequently
know how best to manage their resources responsibly. Federal water supply management initiatives may benefit from a
similar approach. Water supply
management is, of necessity, very different east and west of the Mississippi
River.
In
the East, water supplies are generally more plentiful. States recognize, however, that plentiful
does not mean unlimited. Many states
already have well- and long-established interagency working relationships
primarily to address drought but also to look at broader water management
issues such as protection against contamination and/or smart growth. Many states have developed water management
and conservation plans to respond to immediate short-term concerns such as
water outages as well as longer range coordinated mechanisms to ensure
continued sufficient water supply.
For
example, Georgia is developing a State Water Plan and a State Drought Plan that
includes regional drought management models and a statewide comprehensive water
conservation plan. As well, Georgia is
studying ways to reduce agricultural water use while still protecting the
prosperity of farmers and agricultural communities. These initiatives call upon the combined state level expertise of
the Department of Natural Resources through both the Pollution Prevention
Division and the Environmental Protection Division, the Departments of Wildlife
Resources and Community Affairs, the Georgia Emergency Management Agency, the
Georgia Association of County Commissioners, and the Georgia Municipal
Association. Federal participation is
principally through the US Army Corps of Engineers.
In
Tennessee, the state has enacted legislation that will require registration and
permitting for all interbasin transfers of water. A special panel has been created to consider water supply
policies for the state. Tennessee
expects that water supply legislation to conduct an inventory of water
availability will be introduced and considered during the next legislative
session. To respond to drought and
other water shortage situations, the Department of Environment and Conservation
works in collaboration with the state offices for economic and community
development, policy and planning, and municipal pollution control. At the Federal level, Tennessee works with
the Tennessee Valley Authority, Corps of Engineers, and the Environmental
Protection Agency.
Vermont,
in contrast, has taken a different approach.
The state=s policy is to
encourage rather than mandate water conservation initiatives at the local
level. Conservation is perceived as a
locally managed issue. However, for a
number of years, Vermont has taken a conservative approach toward allowing
development of new public drinking water sources. This long range planning effort has been instrumental in reducing
drought impacts for those systems. Additionally, the state requires that all
community water systems develop a Source Protection Plan which includes a
contingency plan to address system failures and outages.
Other
states such as Connecticut, Rhode Island, and Minnesota require that all public
water systems serving, generally, a population of 1,000 or more develop water
management plans as part of the permitting process. Although drinking water is regulated under the Department of
Health in these three states, each program is directly involved in working with
the Department responsible for water supply management to address drought and
conservation initiatives.
In
the West, water supply management has a very different history and
tradition. Because supplies are so
limited, water use has been bound by a complex allocation scheme known as water
rights. Much of the water supply in the
western United States is controlled by the U.S. Bureau of Reclamation through its
oversight and management responsibilities for Federal dams and reservoirs. Additionally, the U.S. Fish and Wildlife
Service plays a critical role in water supply allocation as it strives to
provide sufficient water to support endangered marine and other species. The Corps of Engineers also play a
significant role in its management and restoration of wetlands as well as its
more traditional dredging activities.
Western
states face unique water supply management challenges due to these water rights
issues that force irrigated agriculture, technology and other industries, fish
and wildlife, and the consuming public into an ongoing struggle for severely
limited supplies. The significant level
of Federal involvement adds yet another layer to the mix. However, states have proved adequate to the
challenge through water management and conservation plans designed to address
the needs of their particular combinations of geography, population, and
limited sources of supply.
States
in the West have worked diligently to find the appropriate balance that
addresses the concerns of these competing interests. California, for example, has its longstanding State Water Project
that addresses supply concerns between the northern and southern regions of the
state. California also participates in
a state/Federal water supply partnership and has designed several regional and
individual efforts to increase supply through water reuse, water banking, and
increased surface storage systems.
Additionally, California requires that any developer of a project with
more than 500 service connections must identify an appropriate water source
before receiving approval to proceed.
The
State of Washington, too, is working diligently to resolve some of its supply
issues through adoption of smart growth plans, increasing water reuse
capabilities, and developing water management plans. The state is working to determine how best to integrate these
efforts and how to incorporate additional fish protection requirements into a
comprehensive management strategy. The
state expects that its next legislative session will focus largely on water
supply management issues for public water providers as well as consideration of
issues such as utility responsibilities for environmental management, water use
efficiency, and water system infrastructure funding.
Arizona
has had a comprehensive water resource management plan in place for more than
20 years. The plan requires state
regulation of groundwater use to ensure that dependable water supplies are
available for current and future use.
The plan places conservation requirements on both municipal and
agricultural water use and promotes renewable water supplies. The state=s
Department of Environmental Quality has modified its regulations relating to
reuse of effluent to allow more reuse while maintaining necessary water quality
standards; thereby conserving potable water sources for human consumption and
domestic uses.
Each
of these western states has designed a water management plan that addresses its
unique needs B whether it be water transfers between northern and
southern California; water management plans to coordinate competing uses in
water-rich Seattle or high desert Spokane, Washington; or water conservation
planning and management for the arid Arizona desert. Each has developed a methodology that incorporates collaboration
between and among different state agencies as well as cooperation with a host
of Federal agencies and inclusion of public input through stakeholder
involvement.
In
the drinking water arena, each of these states has also developed a plan for
source water assessment and protection.
These initiatives will allow states to further coordinate their water
supply management activities through identification of areas that may need
increased protection from contamination; areas that should not be developed as
part of a prevention approach to protection; and the ability of source water
protection initiatives to assist in directing state determinations for
appropriate smart growth and other land use decisions.
The
clear message from state drinking water programs is that water supply matters
must be addressed primarily at the state and local level. Federal involvement with the states should
be limited to a facilitative role in meeting the interest of the states.
What, if any, actions
should Congress take?
State
drinking water programs are reluctant to provide legislative advice or
direction on matters not typically under their purview. ASDWA can recommend continued Congressional
support for programs such as the source water protection initiatives found
within the SDWA that carry many incentives for participation, few overarching
regulatory mandates, and allow states to pursue compliance strategies tailored to
their individual needs. One of the best
methods of support for these flexible programs is increased funding for the
Drinking Water State Revolving Loan Fund (DWSRF). The DWSRF allows Federal funding, coupled with a 20 percent state
match, to create a loan program that distributes much needed infrastructure
improvement dollars to qualified applicants as well as offer drinking water
utilities the means to work toward protecting their drinking water sources;
identifying and removing potential sources of contamination; and establishing
reasonable land use or smart growth strategies. Each of these initiatives demonstrates an approach to effective
water supply management. All are possible
due to the flexibilities offered under the DWSRF for source water protection.
ASDWA
also reiterates that each state is unique in its needs, strategies, and
solutions. States are in the best
position to manage and coordinate the multi-level efforts among Federal, state,
and local perspectives. As well, states
are best positioned to balance competing priorities among local communities,
interest groups, and Federal agencies as they are the only entity to have
direct responsibilities to each of the participating parties. Tensions are often exacerbated when
longstanding state-local working agreements are overridden by Anew or revised@
Federal mandates that can Aundo@ compromises that took years to reach. Almost without exception, states have
programs in place to address drought conditions as well as water management
plans that represent years of effort to reach a delicate balance that fairly
represents competing interests.
History
has taught us that without cooperation in water supply management efforts, the
economic consequences will be dire. Direct
Federal intervention is not the only, and frequently not the best,
solution. States must be allowed to
manage their own resources B they are the
primary stewards B and are responsible to the public that they serve.
ASDWA
appreciates this opportunity to provide information to the Subcommittee. ASDWA
believes that each state faces unique challenges in addressing the issues
surrounding water supply management.
States have developed coordinated efforts that incorporate local and
Federal perspectives within the construct of identified state needs. The Federal role should be both facilitative
and supportive of these ongoing initiatives.
From a drinking water perspective, one of the best ways to accomplish
this is for continued Federal support for programs such as the DWSRF that
offers the incentives and financial wherewithal to address identified water
supply issues.