Federally Supported Water Supply and Wastewater Treatment Programs

Federally Supported Water Supply and Wastewater Treatment Programs Claudia Copeland, Coordinator Specialist in Resources and Environmental Policy Betsy A. Cody Specialist in Natural Resources Policy Mary Tiemann Specialist in Environmental Policy Nicole T. Carter Specialist in Natural Resources Policy Megan Stubbs Analyst in Agricultural Conservation and Natural Resources Policy June 15, 2009 Congressional Research Service CRS Report for Congress Prepared for Members and Committees of Congress 7-5700 www.crs.gov RL30478

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Summary Although the federal government has played a significant role in developing water quality regulations and standards for municipal and industrial (M&I) water use, it historically has provided a relatively small percentage of the funding for construction of water supply and treatment facilities for M&I uses. Yet, several programs exist to assist communities with development of water supply and treatment projects, and it appears that Congress is more frequently being asked to authorize direct financial and technical assistance for developing or treating water supplies for M&I use. This report provides background information on the types of water supply and wastewater treatment projects traditionally funded by the federal government and the several existing programs to assist communities with water supply and wastewater recycling and treatment. These projects and programs are found primarily within the Department of Agriculture (USDA), Department of Commerce, Department of Defense (DOD), Department of Housing and Urban Development (HUD), Department of the Interior (DOI), and the Environmental Protection Agency (EPA). The focus of some programs has been enlarged over the years. The Department of the Interior s Bureau of Reclamation was established to implement the Reclamation Act of 1902, which authorized the construction of water works to provide water for irrigation in arid western states. Congress subsequently authorized other uses of project water, including M&I use. Even so, the emphasis of Reclamation s operations was to provide water for irrigation. Similarly, the U.S. Army Corps of Engineers (Department of Defense) constructed large reservoirs primarily for flood control, but was authorized in 1958 to allocate water for M&I purposes. Over the past 30- plus years, Congress has authorized and refined several programs to assist local communities in addressing other water supply and wastewater problems. These programs serve generally different purposes and have different financing mechanisms; however, there is some overlap. Federal funding for the programs and projects discussed in this report varies greatly. For example, Congress provided $829 million in regular FY2009 appropriations for grants to states under EPA s State Revolving Fund (SRF) loan program for drinking water facilities and $689 million for EPA s SRF program for wastewater facilities; funds appropriated for the USDA s rural water and waste disposal grant and loan programs are $538 million for FY2009; HUD Community Development Block Grant (CDBG) funds (used partly but not exclusively for water and wastewater projects) are $3.6 billion for FY2009. Congress also provided $180 million for environmental infrastructure projects of the U.S. Army Corps of Engineers. In contrast, Reclamation s Title 16 reclamation/recycling program received a total of $39.2 million for FY2009. Each also received FY2009 supplemental appropriations under the American Recovery and Reinvestment Act (P.L. 111-5). For each of the projects and programs discussed, this report describes project or program purposes, financing mechanisms, eligibility requirements, recent funding, and the Administration s FY2010 budget request. Congressional Research Service

Contents Introduction...1 Background...1 Department of the Interior...5 Bureau of Reclamation...5 Traditional Multi-purpose and Rural Water Supply Projects...6 Title 16 Projects...7 Department of Defense...9 Army Corps of Engineers (Civil Works Program)...9 Environmental Infrastructure... 11 Department of Agriculture...12 Rural Utilities Service (Water and Waste Disposal Programs)...12 Natural Resources Conservation Service (Small Watershed Program)...15 Environmental Protection Agency...19 Clean Water State Revolving Fund Loan Program...19 Drinking Water State Revolving Fund Loan Program...22 Department of Housing and Urban Development...24 Community Development Block Grants...24 Department of Commerce...27 Economic Development Administration (Public Works and Economic Development Program)...27 Tables Table 1. Federal Water Supply Program/Project Financing...3 Contacts Author Contact Information...29 Congressional Research Service

Introduction Although the federal government has played a significant role in developing water quality regulations and standards for municipal and industrial (M&I) water use, it historically has provided a relatively small percentage of the funding for construction of water supply and treatment facilities for M&I uses. Yet, several programs exist to assist communities with development of water supply and treatment projects, and it appears that Congress is being asked more frequently to authorize direct financial and technical assistance for developing or treating water supplies for M&I use. Recent proposals include rural water supply projects to be built and funded by the Bureau of Reclamation in the Department of the Interior (hereafter referred to as Reclamation), water recycling projects built and partially funded by Reclamation, and programs for water supply and wastewater treatment projects to be largely funded by the U.S. Army Corps of Engineers (Corps). Interest also has been growing in expanding the size and scope of the State Revolving Fund loan programs under the Clean Water Act and the Safe Drinking Water Act, as well as support for individual wastewater and drinking water projects through congressionally earmarked grants in appropriations legislation. This report provides background information on the types of water supply and wastewater treatment projects traditionally funded by the federal government and the several existing programs to assist communities with water supply and wastewater treatment. Projects developed by Reclamation and the Corps typically require direct, individual project authorizations from Congress. In contrast, projects funded by other agencies are funded through standing program authorizations. These programs are found primarily within the Department of Agriculture (USDA), Department of Commerce, Department of Housing and Urban Development (HUD), and the Environmental Protection Agency (EPA). The key practical difference is that with the individual project authorizations there is no predictable assistance, or even guarantee of funding after a project is authorized, because funding must be secured each year in the congressional appropriations process. The programs, on the other hand, have set program criteria, are generally funded from year to year, and provide a process under which project sponsors compete for funding. For each of the projects and programs discussed, this report describes purposes, financing mechanisms, eligibility requirements, and recent funding. The report does not address special projects and programs aimed specifically at assisting Indian Tribes, Alaskan Native Villages, and Colonias, 1 or other regional programs such as those associated with the Appalachian Region or U.S. Territories. Background The federal government has built hundreds of water projects over the years, primarily dams and reservoirs for irrigation development and flood control, with M&I use as an incidental, selffinanced, project purpose. Most of the nation s public municipal water systems have been built by local communities under prevailing state water laws. 1 Colonias typically are rural, unincorporated communities or housing developments near the U.S.-Mexico border that lack some or all basic infrastructure, including plumbing and public water and sewer. Congressional Research Service 1

The Bureau of Reclamation (Reclamation) was established to implement the Reclamation Act of 1902, which authorized the construction of water works to provide water for irrigation in arid western states. Congress subsequently authorized other uses of project water, including M&I use. Even so, the emphasis of Reclamation s operations was to provide water for irrigation. This emphasis is evidenced in part in the different payment mechanisms that evolved to finance projects (described below). Similarly, the U.S. Army Corps of Engineers (Corps) constructed large reservoirs primarily for flood control, but was authorized in 1958 (Water Supply Act of 1958, 72 Stat. 320; 43 U.S.C. 390b) to allocate water for M&I purposes. In this act, Congress emphasized the primacy of non-federal interests: It is declared to be the policy of the Congress to recognize the primary responsibilities of the States and local interests in developing water supplies for domestic, municipal, industrial, and other purposes and that the Federal Government should participate and cooperate with States and local interests in developing such water supplies in connection with the construction, maintenance, and operation of Federal navigation, flood control, irrigation, or multiple purpose projects. (43 U.S.C. 390(b)) Over the past 30-plus years, Congress has authorized and refined several programs to assist local communities in addressing other water supply and wastewater problems. The agencies that administer these programs differ in scope and mission. For example, the primary responsibilities of the Corps of Engineers are to maintain inland navigation, provide for flood and storm damage reduction and restore aquatic ecosystems, while EPA s mission relates to protecting public health and safeguarding the national environment. Others, such as HUD and the Department of Commerce, focus on community and economic development. Likewise, the specific programs discussed in this report while all address water supply and wastewater treatment differ in important respects. Some are national in scope (those of USDA, EPA, and the Department of Commerce, for example), while others are regionally focused (Reclamation s programs and projects). Some focus primarily on urban areas (HUD), others on rural areas (USDA), and others do not distinguish based on community size (e.g., EPA, the Corps). In addition, these programs serve generally different purposes and have different financing mechanisms (some provide grants, others authorize loans); however, there is some overlap. For example, the rural water and waste disposal program of the USDA typically authorizes water delivery assistance to improve community water systems and water quality, while EPA s drinking water infrastructure program is driven primarily by end of the pipe water quality requirements of the Safe Drinking Water Act (SDWA). Similarly, while the Clean Water Act sets performance standards for discharges of municipally treated sewage, it also provides financial assistance to municipalities for constructing and improving treatment facilities in order to comply with the law. Federal funding for the programs and projects discussed in this report varies greatly. For example, for FY2009, Congress provided $829.0 million in regular appropriations for grants to states under EPA s State Revolving Fund (SRF) loan program for drinking water facilities and $689.1 million for EPA s SRF program for wastewater treatment facilities; funds appropriated for the USDA s core rural utilities programs total $538 million for FY2009; HUD Community Development Block Grant funds (used partly but not exclusively for water and wastewater projects) are $3.6 billion for FY2009. Congress also provided $180 million for environmental infrastructure projects of the U.S. Army Corps of Engineers. In contrast, Reclamation s Title 16 reclamation/recycling program received approximately $39.2 million for FY2009 funding for the entire agency is $1.1 billion for FY2009. All of the FY2009 regular appropriations for these programs were included in the Omnibus Appropriations Act, 2009 (P.L. 111-8). Collectively, congressional funding for these programs in recent years has been somewhat eroded by overall competition among the many programs that are supported by discretionary spending, despite the Congressional Research Service 2

continuing pressure from stakeholders and others for increased funding. However, as shown in Table 1, each also received FY2009 supplemental appropriations in the American Recovery and Reinvestment Act (ARRA, P.L. 111-5), 2 and the President s FY2010 budget requests increased funding for most of the programs discussed in this report. It is also important to note that state and local contributions are a significant source of total funds available to local communities for drinking water and wastewater improvements. For example, from FY1991 through FY2000, states contributed about $10.1 billion to match $18.0 billion in EPA capitalization grants for drinking water and wastewater SRFs and made about $13.5 billion available for these activities under state-sponsored grant and loan programs and by selling general obligation and revenue bonds. 3 The following table summarizes financial and other key elements of the projects and program activities discussed in this report. Table 1. Federal Water Supply Program/Project Financing Agency and Projects or Program Project/ Program Purposes Type of Financial Assistance Federal/ Non- Federal Cost Share Average Amount of Assistance FY2009 Funding a FY2010 Funding Request USDOI Bureau of Reclamation Multi-purpose projects, which may include M&I b De facto loan 0%/100%, with interest for M&I uses c Not applicable Not readily available (Total agency approps. are $1.1 billion) (plus $1.0 billion total under the ARRA) (Total agency approps. request is $1.1 billion) USDOI Bureau of Reclamation (Title 16 of P.L. 102-575) Wastewater reclamation and reuse a De facto grant (see discussion on pages 5-9) Up to 25%/75%; dollar limits may apply $2.1 million $42.2 million (includes $3 million in Title 16 funds for another Reclamation program, CALFED) (plus $135 million under the ARRA) $9.0 million USDOI Bureau of Reclamation Indian and non-indian rural water supply a De facto grant (see discussion on pages 5-9), plus loan Non-Indian projects: average of 64%/26% ; Indian projects: average of $19.9 million $139.0 million (plus $200 million under the ARRA) $64.0 million 2 For information, see CRS Report R40216, Water Infrastructure Funding in the American Recovery and Reinvestment Act of 2009. 3 U.S. General Accounting Office (now Government Accountability Office), Water Infrastructure: Information on Federal and State Financial Assistance, November 2001, GAO-02-134, p. 18. Hereafter, GAO Water Infrastructure. Congressional Research Service 3

Agency and Projects or Program US Army Corps of Engineers (general) U.S. Army Corps of Engineers (multiple sections of WRDAs and select Energy and Water Development Approps. acts) USDA Rural Utilities Service, Water and Waste Disposal Program USDA Small Watershed Program EPA, Clean Water State Revolving Fund (SRF) Loan Program Project/ Program Purposes Multi-purpose water projects, which may include M&I b Environmental infrastructure b Municipal water supply and waste disposal Multiple activities, but generally must include flood control measures Municipal wastewater treatment, nonpoint pollution management, National Estuary Program implemen- Type of Financial Assistance Federal/ Non- Federal Cost Share 100%/0% Loans 0%/100%, with interest b Technical/ planning and design services or grants; design and construction services or grants Loans and grants Project grants and technical advisory services Grants to states to capitalize loan funds SRF loans to local project sponsors Average Amount of Assistance Not applicable 75%/25% Planning and design: $0.5 million to $25 million; design and construction: $0.2 million to $180 million 0%/100% for loans Up to 75%/25% for grants 0%/100% Varies according to purpose of improvement activity 80%/20% for grants to states to capitalize SRFs 0%/100% (Project loans are repaid 100% to Grants: $619,000 Direct loans: $1.064 million (FY2005) FY2009 Funding a FY2010 Funding Request $25.0 million $4.0 million $180.1 million (plus $200.9 million under the ARRA) $538 million (plus $1.38 billion under the ARRA) $650,000 $64.3 million ($24.3 million for Watershed and Flood Prevention Operations and $40 million for rehabilitation projects) plus $195 million under the ARRA ($145 million for Watershed and Flood Prevention Operations and $50 million for rehabilitation projects) Average capitalization grant to state: $13.5 million (FY2008) Average assistance from SRF: $2.87 million $689.1 million (plus $4.0 billion under the ARRA) None in FY2010 $546 million $40 million total, all for rehabilitation projects $2.4 billion Congressional Research Service 4

Agency and Projects or Program EPA, Drinking Water State Revolving Fund (SRF) Loan Program HUD, Community Development Block Grant Program EDA, Public Works and Economic Development Program Project/ Program Purposes Type of Financial Assistance Federal/ Non- Federal Cost Share Average Amount of Assistance tation states) (FY2008) Public water supply: projects needed to meet federal drinking water standards and to address serious health risks Multi-purpose community development projects, which may include water and waste disposal Multi-purpose economic development projects, which can include nonrural, nonresidential water and sewer Grants to states to capitalize loan funds SRF loans to local project sponsors Grants, 70% of which are reserved for urban areas Project grants 80%/20% for grants to states to capitalize SRFs 0%/100% (Project loans are repaid 100%) Average capitalization grant to state: $16.1 million (FY2008) Average assistance from SRF: $2.72 million (FY2006) 100%/0% Not readily available Generally 50%/50% Average grant $1.25 million (FY2007) FY2009 Funding a $829.0 million (plus $2.0 billion under the ARRA) $3.6 billion (plus $1.0 billion under the ARRA) $133.3 million (plus $150 million under the ARRA) FY2010 Funding Request $1.5 billion $4.2 billion $42.8 million a. FY2009 amounts identify both regular appropriations under the Omnibus Appropriations Act, 2009 (P.L. 111-8) and supplemental appropriations under the American Recovery and Reinvestment Act of 2009 (ARRA, P.L. 111-5). b. These projects generally must be authorized by Congress prior to construction. c. Although the ultimate federal cost-share may be 0%, unless otherwise stated, the federal government may provide 100% of initial construction costs allocated to M&I use, to be repaid over the life of the loan via repayment contracts (typically 40-50 years). Department of the Interior Bureau of Reclamation The Bureau of Reclamation (Reclamation) was established to implement the Reclamation Act of 1902, which authorized the construction of water works to provide water for irrigation in arid western states. Reclamation generally manages numerous municipal and industrial water supply facilities as part of larger, multi-purpose reclamation projects serving irrigation, flood control, power supply, and recreation purposes. Overall, these facilities serve approximately 31 million people, delivering a total of approximately 28.5 million acre-feet of water (an acre-foot is enough Congressional Research Service 5

to cover one acre of land one foot deep, or 325,851 gallons). Reclamation-funded municipal and industrial water deliveries total approximately 2.8 million acre-feet and have more than doubled since 1970. The Bureau is authorized to construct projects only in the 17 western states, unless otherwise directed by Congress. Reclamation M&I water deliveries are generally incidental to larger project purposes. However, since 1980, Congress has individually authorized construction of several rural water supply projects and more than 40 reclamation wastewater and reuse/recycling projects (at least one recycling project has been undertaken pursuant to general authorities). The recycling projects, discussed below, are known as Title 16 projects because they were first authorized in 1992 under Title 16 of P.L. 102-575. Title 16, the Reclamation Wastewater and Groundwater Studies and Facilities Act, also authorized Reclamation to undertake specific and general feasibility studies for reclamation wastewater and reuse projects and to research, construct, and operate demonstration projects. Historically, Reclamation constructed projects with federal funds, then established a repayment schedule based on the amount of total construction costs allocated to specific project purposes. Reclamation project authorizations typically require 100% repayment, with interest, for M&I water supply facilities; however, in some cases Congress has authorized other reimbursement terms. For example, for the non-indian portion of some Reclamation rural water supply projects, Congress has authorized 15%-25% repayment levels (85% and 75% federal cost-share, respectively), and in at least one case (the Perkins County Rural Water Supply System), a grant of 75% of total project costs. The federal share of costs for the Indian portion of Reclamation rural water projects is typically 100%. The federal share of costs for Title 16 projects is generally much lower than non-indian and Indian rural water projects; it is limited to a maximum of 25% of total project costs or, for projects authorized since 1996, a maximum of $20 million. In most cases, the federal share for Title 16 projects is non-reimbursable, resulting in a de facto grant to local project sponsors. Traditional Multi-purpose and Rural Water Supply Projects Unlike many other programs described in this report, Reclamation undertakes projects largely at the explicit direction of Congress. Local project sponsors may approach Reclamation or the Congress with proposals for project construction and funding; however, a project must be authorized by Congress before construction may begin. Because there is no program per se, there are no clear and concise eligibility or program criteria. Two exceptions to this generality are (1) the statutory authority for the Title 16 projects (Title 16 of P.L. 102-575; see discussion below), which outlines items to be considered during development of feasibility studies, and (2) new statutory authority for creation of a rural water supply program (P.L. 109-451). 4 Yet, even for these projects, Congress must authorize construction before it is to begin. Project Purposes Individual authorization statutes establish project purposes. Generally, M&I projects are part of larger, multi-purpose projects such as those built for irrigation water supply, flood control, and 4 Although a new Department of the Interior rural water supply program was authorized in P.L. 109-451, the program is in early stages of implementation. For more information see http://usbr.gov/rural water. Congressional Research Service 6

hydro power. This is not necessarily so for rural water supply projects, although nearly half of the rural water supply projects authorized to date are somehow connected to previously authorized irrigation facilities under the Pick-Sloan Missouri Basin Program (PSMBP), or otherwise related to water service anticipated but not received under earlier PSMBP authorizations. Financing Mechanism Projects are financed and constructed up front by the federal government, and costs for M&I portions of such projects are generally repaid 100%, with interest, via repayment contracts. Congress generally has authorized more favorable repayment terms for several rural water supply projects. The federal cost-share for these projects has averaged 64%, but ranges from 15% to 80% for non-indian rural water supply projects. Eligibility Requirements Generally, local governments and organizations such as irrigation, water, or conservation districts may approach Reclamation and/or Congress for project support. All construction project funding must be appropriated by Congress. As noted earlier, Reclamation only works on projects located in the 17 western states (32 Stat. 388; 43 U.S.C. 391 et seq.), unless specifically authorized. Funding Funding information for the M&I portions of multi-purpose projects is not readily available. Total regular Reclamation appropriations for FY2009 were $1.1 billion. The total FY2010 appropriations request for Reclamation is $1.1 billion. Funding for rural water supply projects in FY2009 was $139.0 million; the Administration has requested $64 million for these projects for FY2010. The Administration developed its FY2010 request for rural water supply projects by prioritizing projects serving tribal needs and those nearing completion. The average funding allocated for rural water supply projects in FY2009 was $19.9 million. Proposed project funding under the American Recovery and Reinvestment Act of 2009 is $200 million, to be divided among seven projects. Statutory and Regulatory Authority Reclamation carries out its water supply activities in 17 western states as authorized by the Reclamation Act of 1902, as amended (32 Stat. 388; 43 U.S.C. 391 et seq.). Title 16 Projects Title 16 of P.L. 102-575 directs the Secretary of the Interior to develop a program to investigate and identify opportunities to reclaim and reuse wastewater and naturally impaired ground and surface water (e.g., desalination of brackish groundwater). The original act authorized construction of 5 reclamation wastewater projects and 6 wastewater and groundwater recycling/reclamation studies. The act was amended in 1996 (P.L. 104-266) to authorize another 18 construction projects and an additional study, and has been amended several times since, resulting in a total of more than 40 projects authorized for construction. Water reclaimed via Title 16 projects may be used for M&I water supply (non-potable and indirect potable purposes only), irrigation supply, groundwater recharge, fish and wildlife enhancement, or outdoor recreation. Congressional Research Service 7

Project Purposes The general purpose of Title 16 projects is to provide supplemental water supplies by recycling/reusing agricultural drainage water, wastewater, brackish surface and groundwater, and other sources of contaminated water. Projects may be permanent or for demonstration purposes. Financing Mechanism Partial grants. Project construction costs are shared by the federal government and a local project sponsor or sponsors. The federal share is generally limited to a maximum of 25% of total project costs and in most cases the federal share is non-reimbursable, resulting in a de facto grant to the local project sponsor(s). In 1996, Congress limited the federal share of individual projects to $20 million in 1996 dollars (P.L. 104-266). The federal share of feasibility studies is limited to 50% of the total, except in cases of financial hardship; however, the federal share must be reimbursed. The Secretary may also accept in-kind services that are determined to positively contribute to the study. Eligibility Requirements Reclamation carries out water supply activities in 17 western states as authorized by the Reclamation Act of 1902, as amended (32 Stat. 388; 43 U.S.C. 391). Hence, the water reclamation and wastewater recycling program is limited to projects and studies in the 17 western states unless otherwise specified. 5 Authorized recipients of program assistance include legally organized non-federal entities, such as irrigation districts, water districts, and municipalities. Construction funding is generally limited to projects where (1) an appraisal investigation and feasibility study have been completed and approved by the Secretary; (2) the Secretary has determined the project sponsor is capable of funding the non-federal share of project costs; and (3) the local sponsor has entered into a cost-share agreement with Reclamation. Unlike other water supply or wastewater treatment programs administered by the EPA, USDA, or HUD (discussed below), Reclamation s Title 16 projects are statutorily authorized construction projects. While Reclamation has the authority to undertake general appraisal investigations and feasibility studies, it generally has interpreted the Title 16 language as requiring specific congressional authorization for the construction of new projects. During the 108 th and 109 th Congresses, several oversight hearings were held on the Title 16 program; however, no legislation updating the overall program authorization has been enacted since the 1996 amendments. The FY2010 budget justification document notes that Reclamation is working to improve the program through issuance of an internal Directives and Standards document (October 2007) to increase the consistency and effectiveness of the program. The Directives and Standards did not establish a mechanism for prioritizing authorized projects. 5 For example, P.L. 106-566 authorizes the Secretary of the Interior to conduct general planning and research activities in the State of Hawaii, and P.L. 109-70 authorizes construction of three projects in Hawaii. Congressional Research Service 8

Funding The total appropriation for the Title 16 program in FY2009 was $39.2 million. The Administration s FY2010 request is $9.0 million. Prior year program funding ranged from a high of $47.2 million in FY1998 to a low of $12.6 million in FY2007. Projects authorized prior to the 1996 amendments ranged in size from $152 million ($38 million for Reclamation s share), to $690 million ($172 million for Reclamation s share). Post-1996 project authorizations have been much smaller in size, ranging from $10 million ($2 million for Reclamation s share) to $280 million ($20 million for Reclamation s share). More than $600 million in federal funds would be required to complete already authorized Title 16 projects. Proposed project funding under the American Recovery and Reinvestment Act of 2009 is to be at least $135 million. Statutory and Regulatory Authority The statutory authority for the reclamation wastewater and reuse program is the Reclamation Wastewater and Groundwater Study and Facilities Act, Title 16 of P.L. 102-575, as amended (43 U.S.C. 390h et. seq.); the Reclamation Recycling and Water Conservation Act of 1996 (P.L. 104-266); the Oregon Public Land Transfer and Protection Act of 1998 (P.L. 105-321); the 1999 Water Resources Development Act (P.L. 106-53, Section 595); the Consolidated Appropriations Act for FY2001 (P.L. 106-554, Division B, section 106); a bill amending the Reclamation Wastewater and Groundwater Study and Facilities Act (P.L. 107-344); the Consolidated Appropriations Act for FY2003 (P.L. 108-7, Division D, section 211); the Emergency Wartime Supplementals Act of 2003 (P.L. 108-11); the Irvine Basin Surface and Groundwater Improvement Act of 2003 (P.L. 108-233); a bill amending the Reclamation Wastewater and Groundwater Study and Facilities Act (P.L. 108-316); the Hawaii Water Resources Act of 2005 (P.L. 109-70); the Consolidated Natural Resources Act of 2009 (P.L. 110-229); and the Consolidated Appropriations Act, 2008 (P.L. 110-161). Reclamation published program guidelines in December 1998 and internal Directives and Standards for the program s feasibility study review process in October 2007; formal regulations have not been promulgated. For information, see http://www.usbr.gov/pmts/writing/guidelines/ and http://www.usbr.gov/recman/dands.html. [This section prepared by Betsy A. Cody and Nicole T. Carter, Specialists in Natural Resources Policy, Resources, Science, and Industry Division (707-7229) and (707-0854), respectively.] Department of Defense Army Corps of Engineers (Civil Works Program) Under its civil works program, the U.S. Army Corps of Engineers (Corps, Department of Defense) operates water resources projects throughout the country to meet the agency s three principle missions navigation, flood damage reduction, and aquatic ecosystem restoration. Many Corps activities also provide other benefits, such as municipal and industrial (M&I) water supply, hydroelectric generation, benefits for fish and wildlife, and recreation. Congress has given the Corps limited authority for M&I water supply. The Water Supply Act of 1958 (Title 3 of P.L. 85-500) authorized the Corps to recommend economically justified M&I water supply storage space in new or existing reservoirs. More than 153 Corps reservoirs store 9.5 million acre-feet of M&I water. M&I water supplied from Corps reservoirs generally is Congressional Research Service 9

incidental to the reservoir s primary purposes. The provision of M&I water from Corps reservoirs is subject to availability, and the associated costs are 100% a local, nonfederal responsibility. Otherwise, the Corps general direct involvement in providing water supplies is limited to emergency/disaster relief, including during drought conditions or following natural disasters. Additionally since 1992, Congress has enacted more than 400 authorizations allowing the Corps to provide designated communities, counties, and states with design and construction assistance for drinking water and wastewater infrastructure and source water protection and development. As with Reclamation s rural water supply and Title 16 projects, implementing these authorizations has the potential to create a new mission for the Corps. Project Purposes As previously noted, Congress in the Water Supply Act of 1958 authorized the Corps to use its multi-purpose reservoirs to allocate excess supplies of stored water to local governments or organizations for municipal and industrial use. The act neither authorized the Corps to significantly modify its projects in order to provide for M&I water supply, nor did it authorize the Corps to sell or allocate quantities of water. Instead, the Corps M&I contracts are for space in the reservoir and provide no guarantee of a fixed quantity of water to be delivered in a given year. The Corps delivers the water if it is available in the storage space and if the delivery does not significantly affect the other authorized purposes of the Corps project. Financing Mechanism Projects are financed up front by the federal government, and costs for M&I project purposes are repaid 100%, with interest, via long-term (typically 30-50 year) repayment contracts. Eligibility Requirements Existing law and agency policy require that (1) water supply benefits and costs be equitably allocated among multiple purposes; (2) repayment by state or local interests be agreed to before construction; (3) the water supply allocation for anticipated demand at any project not exceed 30% of the total estimated cost; (4) repayment shall be either during construction (without interest), or over 30 years (with adjustable interest rates); and (5) users reimburse the Corps annually for all operation and maintenance or replacement costs. Occasional exceptions to the Corps general authority have been enacted by the Congress. Some short-term sales of surplus storage, as well as seasonal water storage (conservation) can be made adjunct to normal project operating procedures. Funding The Corps water supply expenses are largely funded via repayments, with annual appropriations requests generally around $5 million and enacted appropriations less than $25 million. Congressional Research Service 10

Statutory Authority Water Supply Act of 1958 (Title III of P.L. 85-500, as amended, 72 Stat. 320; 43 U.S.C. 390b). For information on the Corps civil works program, see http://www.usace.army.mil/services/ Pages/Services.aspx. Environmental Infrastructure Project Purpose Federal policy generally is that community water supply is largely a local responsibility. However, communities, particularly rural and small communities, increasingly have sought federal water supply assistance. Congress since 1992 has used the Corps to assist a number of these communities with design and construction of drinking water and wastewater infrastructure (including treatment, and distribution/collection facilities) and surface water protection and development projects. At the Corps, these projects are broadly labeled environmental infrastructure and are generally considered outside the agency s main missions. Financing Mechanism Under most Corps environmental infrastructure authorizations, financing is typically 75% federal and 25% nonfederal. The federal portion typically is provided by Congress to the Corps in annual Energy and Water Development Act appropriations legislation. The nature of the how the Corps and nonfederal financing is managed varies according to the specifics of the authorization. Sometimes the Corps is responsible and uses the funds to perform the work or contract out the work; under other authorizations, the Corps uses appropriated funds to reimburse nonfederal sponsors for their work. Eligibility Requirements Because environmental infrastructure activities are not part of a national Corps program per se, there are no clear and/or consistent general eligibility criteria. Because the activities are not traditional water resources projects, they are not subject to the planning requirements of most Corps projects (e.g., a benefit-cost analysis is not performed). Typically Congress has authorized the Corps to assist either an environmental infrastructure project in a specific location (e.g., a small city), or created a program for a defined geographic area (e.g., a county or a state). Consequently, an activity s eligibility is evaluated by identifying whether there is an authorization for the geographic area of the activity, and whether the type of activity is eligible under that authorization. Funding Appropriations have not kept pace with Corps environmental infrastructure authorizations; only a subset of authorized Corps environmental infrastructure projects have received appropriations. The Clinton and G.W. Bush Administrations left environmental infrastructure projects out of their Corps budget requests. The Obama Administration s FY2010 request similarly includes no environmental infrastructure funds. Congress, however, has consistently funded environmental Congressional Research Service 11

infrastructure activities in final enacted appropriations. Since 1992, the Corps has received more than $1.5 billion in appropriations for environmental infrastructure activities, with most recent years totaling roughly $180 million. Most recently, the omnibus Consolidated Appropriations Act, 2009, Division C, Title I (P.L. 111-8) included $180.1 million for these activities. The ARRA (P.L. 111-5) specified that $200.0 million of the $4.6 billion that the agency received under that legislation be used for environmental infrastructure; the Corps list of how it will distribute ARRA funds 6 included $200.9 million for environmental infrastructure. Statutory Authority Prior to 1992, the Corps generally was not involved with municipal drinking water treatment and distribution and wastewater collection and treatment; the agency is now authorized to contribute to more than 400 environmental infrastructure projects and programs. A Water Resources Development Act (WRDA) is the typical legislative vehicle for Corps authorizations. Beginning with Sections 219 and 313 of WRDA 1992 (P.L. 102-580), Congress has authorized the Corps to assist local interests with technical planning and design and design and construction assistance for environmental infrastructure projects. Subsequent WRDAs authorized new environmental infrastructure projects, and raised the funding ceilings for many of the projects previously authorized. Congress also has authorized Corps environmental infrastructure activities in selected appropriations legislation. [This section prepared by Nicole T. Carter, Specialist in Natural Resources Policy, Resources, Science and Industry Division (707-0854).] Department of Agriculture Rural Utilities Service (Water and Waste Disposal Programs) The USDA administers grant and loan programs for water and wastewater projects, with eligibility limited to communities of 10,000 or less. These programs are administered at the national level by the Rural Utilities Service (RUS) at USDA. RUS allocates program funds to the Rural Economic and Community Development (RECD) state offices through an allocation formula based on rural population, poverty, and unemployment. District RECD offices actually administer the programs locally. In recent years, approximately 65% of loan funds and 57% of grant funds have been obligated to water projects; the remainder have been obligated to waste disposal projects. Prior to enactment of the 1996 farm bill (P.L. 104-127), these grants and loans, as well as other USDA rural development assistance, were authorized as separate programs. In P.L. 104-127, Congress consolidated 14 existing rural development grant and loan programs into three categories for better coordination and greater local involvement. This program is called the Rural Community Advancement Program (RCAP). The three components are the Rural Utilities Service 6 See http://www.usace.army.mil/recovery/pages/projects.aspx. Congressional Research Service 12

(RUS, which includes water and waste disposal activities), Rural Community Facilities, and Rural Business and Cooperative Development programs. 7 There is heavy demand for water and waste disposal funds. At the end of FY2007, USDA reported a $2.4 billion backlog of requests for 928 water and wastewater projects. In addition to this, EPA s 2009 drinking water infrastructure needs survey showed over $59 billion needed by small water systems serving 3,300 or fewer people over the next 20 years to install, upgrade, or replace infrastructure to ensure safe drinking water. The 2004 EPA wastewater needs survey reported that small communities with a population under 10,000 need to spend $17 billion for their wastewater facilities to meet water quality objectives of the Clean Water Act. Program Purpose The purpose of these programs is to provide basic human amenities, alleviate health hazards, and promote the orderly growth of the nation s rural areas by meeting the need for new and improved rural water and waste disposal facilities. Funds may be used for installation, repair, improvement, or expansion of rural water facilities, including costs of distribution lines and well-pumping facilities. Financing Mechanism USDA provides grants and loans for water and waste disposal projects. USDA prefers making loans; grants are made only when necessary to reduce average annual user charges to a reasonable level. The split between loans and grants is about 72-28; the ratio of drinking water to sewer projects has been about 60-40 in recent years. There is no statutory distribution formula. Funds are allocated to states based upon rural population, number of households in poverty, and unemployment. There are no matching requirements for states. Water and Waste Disposal Loans. The Rural Development Act of 1972 authorized establishment of the Rural Development Insurance Fund under the Consolidated Farm and Rural Development Act. Among other activities, this fund is used for loans (direct and guaranteed) to develop storage, treatment, purification, or distribution of water or collection, treatment, or disposal of waste in low-income rural areas. Loans are repayable in not more than 40 years or the useful life of the facilities, whichever is less. USDA makes either direct loans to applicants or guarantees up to 90% of loans made by third-party lenders such as banks and savings and loan associations. Loan interest rates are based on the community s economic and health environment and are designated poverty, market, or intermediate. Poverty interest rate loans are made in areas where the median household income (MHI) falls below the higher of 80% of the statewide nonurban MHI, or the poverty level, and the project is needed to meet health or sanitary standards; by law, this rate is set at 60% of the market rate. The market rate is adjusted quarterly and is set using the average of a specified 11-bond index. It applies to loans to applicants where the MHI of the service area exceeds the statewide nonurban MHI. The intermediate rate applies to loans that do not meet the criteria for the poverty rate and which do not have to pay the market rate; by law, 7 RCAP is designed to give RECD state offices flexibility in targeting financial assistance to community and regional needs. Thus, within the three components of RCAP, up to 25% of funds can be transferred between programs within any state, as long as transfers do not result in changes in the national funding stream of more than 10%. Congressional Research Service 13

this rate is set at 80% of the market rate. 8 Interest rates on guaranteed loans are negotiated between the borrower and the lender. Water and Waste Disposal Grants. Grants for the development costs of water supply and waste disposal projects in rural areas also are authorized under the Consolidated Farm and Rural Development Act. Only communities with poverty and intermediate rate incomes qualify for USDA grants. An eligible project must serve a rural area that is not likely to decline in population below the level for which the project was designed and constructed so that adequate capacity will or can be made available to serve the reasonably foreseeable growth needs of the area. Grant funds may be available for up to 75% of the development cost of a project and should only be used to reduce user costs to a reasonable level. Grants are only made after a determination of the maximum amount of loan that a community can afford and still have reasonable user rates. Grants, which typically provide 35%-45% of project costs, may be used to supplement other funds borrowed or furnished by applicants for project costs, and may be combined with loans when the applicant is able to repay part, but not all, of the project costs. Priority is given to projects serving populations of less than 5,500. Emergency and Imminent Community Water Assistance Grants. RUS also is authorized to help rural residents where a significant decline in quantity or quality of drinking water exists or is imminent and funds are needed to obtain adequate quantities of water that meet standards of the Safe Drinking Water Act or the Clean Water Act. Grants, ranging from $10,000 to a maximum of $500,000, are provided for projects to serve a rural area with a population of 10,000 or less that has a median household income not in excess of the statewide nonmetropolitan median household income. Grants for repairs, partial replacement, or significant maintenance of an established system cannot exceed $150,000. Communities use the funds for new systems, waterline extensions, construction of water source and treatment facilities, and repairs or renovation of existing systems and may be awarded for 100% of project cost. Applicants compete on a national basis for available funding. The 2008 farm bill (P.L. 110-246) authorized $35 million per year through FY2012 for this program. Funding for it is mandatory through reservation of 3% to 5% of appropriated water and waste disposal grant funds. Amounts provided through this program have been quite variable over time, depending on need. In FY2008, $6.8 million was distributed to projects in 12 states. Eligibility Requirements Eligible entities are municipalities, counties, and other political subdivisions of a state; associations, cooperatives, 9 and organizations operated on a not-for-profit basis; Indian tribes on federal and state reservations; and other federally recognized tribes. USDA s loan and grant programs are limited to community service areas (including areas in cities or towns) with population of 10,000 or less. To be eligible for assistance, communities must have been denied credit through normal commercial channels. Also, communities must be below certain income levels. Loans and grants are made for projects needed to meet health or sanitary standards, 8 For current interest rates, see http://www.usda.gov/rus/water/int-rate.htm. 9 Rural electric cooperatives are private entities that build and manage rural utility systems. The 1990 farm bill (P.L. 101-624) authorized rural coops to expand from their traditional electricity and telephone services. An estimated 80 to 90 rural electric coops (less than 10% of the total number of coops nationwide) currently are involved in some aspect of drinking water or wastewater management, with the majority dealing with drinking water management. Congressional Research Service 14