Distribution System Operator Certification Is your state s program up to speed? Hidden away, mostly underground, a water distribution system is easy to forget. People generally don t think about those miles of pipes snaking along under streets. Unless they re in charge of the system s maintenance and repair, that is. Then they not only have those pipes in the forefront of their thoughts, but those pipes are right in their faces more often than they d like. Source: www.photos.com By Michelle Moore On Tap Associate Editor 1 On Tap Spring 2004
Drinking water distribution systems can demand as much, maybe more, from an operator as treating the water. The underground pipes are just one part of the network. Distribution system operators also oversee water storage towers, pumps, and other facilities. Distribution operators are the individuals who are responsible for the safe delivery of potable water from the water treatment plant to the consumer, says Stephen Ballou, executive director of the Association of Boards of Certification (ABC). They perform cross-connection inspections to protect the water system and its customers from chemicals and other contaminants and collect water samples to ensure the systems are meeting all of the regulatory compliance requirements. They also inspect and maintain fire hydrants to ensure adequate fire protection, and they carry out water main flushing programs to clear corrosion and other deposits from the pipes in order to keep them delivering at maximum capacity. When I m speaking at a training seminars, I always say that one single distribution operator affects the health of more individuals than most doctors or nurses do in any given area. That helps get the point across. [John Sullivan, Missouri s Public Water Supply District #3 Because these workers have such an important responsibility, the U.S. Environmental Protection Agency (EPA) determined that they must be certified and licensed just like water treatment plant operators. Distribution system operators need to be certified to maintain the system s integrity, says Jenny Bielanski, EPA drinking water utilities team leader. Distribution systems that are not properly operated and maintained can lead to inadequate public health protection. The 1996 Safe Drinking Water Act (SDWA) Amendments required EPA to issue minimum standards for certification and license renewal for all operators of community and nontransient noncommunity public water systems. States must also classify treatment and distribution facilities, specify education and experience requirements for operators (including taking and passing an exam), and outline continuing education requirements for certification renewal. States had to implement the EPA guidelines (or create an equivalent or more stringent state program) to avoid a 20 percent reduction of their drinking water state revolving fund (DWSRF) allocation. To ease the financial burden, states can use a portion of their DWSRF set-asides to support operator training. EPA has also provided grants to states through the Operator Certification Expense Reimbursement Grants Program, which reimburses operators of small systems (those serving 3,300 or fewer people) for training and certification costs, including a per diem for unsalaried operators who must be trained as a result of the federal requirement. Bielanski says that all states currently have EPAapproved operator certification programs. Before the EPA Operator Certification Guidelines were published, some states did not require distribution systems to have a certified operator. Those states had to incorporate that requirement into their existing programs. The deadline for implementing all aspects of the guidelines is July 1, 2004. (Read about how Virginia is working with their small systems operator certification training program on page 24.) What s the big deal? Distribution operators are the first line of defense to ensure that the drinking water reaching the consumer s tap is safe to drink, says Ballou. A community can spend millions of dollars to have all of the latest and best technologies at the treatment facility, but this is all for naught if the safety of the water is compromised in the distribution system. A water distribution system consists of several components, including piping, valves, fire hydrants, storage reservoirs, and booster stations. In addition to knowing the ins and outs of installation, maintenance, and repair, an operator needs to understand system pressure and hydraulics. Avoiding cross connections and preventing backflow are crucial to keeping the water supply sanitary. Then, he or she must also be aware of Occupational Health and Safety Administration (OSHA) regulations concerning trenching procedures, such as shoring and entering confined spaces. And, the operator of a utility s water distribution system must keep accurate records for tracking performance, maintenance, and operations. Sound like a lot to learn, doesn t it? Training is vital, says John Sullivan, general manager and secretary of Missouri s Public Water Supply District #3. When I m speaking at a training seminars, I always say that one single distribution operator affects the health of more individuals than most doctors or nurses do in any given area. That helps get the point across. Different States, Different Programs Many states already had distribution system operator certification as part of their licensing programs, either under treatment operator certification or as a separate license. Missouri, for example, has a distribution system operator-licensing program in addition to their treatment plant operator certification. There has been a requirement for a long time in the state for operators licenses, and now it s been split between the two. It s a great idea; it s long overdue, says Sullivan. Up until the last few years, many small systems and districts had a maintenance man mentality. They d hire the mechanic from the local garage or somebody who s retired to do these jobs. The skill level could be very good or abysmal. Certification ensures that the people who are directly affecting the quality of water have basic skills that inspire some level of confidence in the safety, the quality of the water. Without certification, there is no practical hammer to get small and very small systems to comply. www.ndwc.wvu.edu 2
Street traffic passes close by these workers as they repair a line in a distribution network. Photo by Chris Metzgar
Wyoming and Montana are both ahead in the operator certification game. Bill Mixer, director of the Environmental Training Center at Casper College, says that Wyoming was probably one of the first states to have both water treatment and distribution certification programs. To me, it s all integral, says Mixer. A treatment plant can have their water clean to the highest standard, but if the distribution system isn t being maintained and cleaned, that water may end up being in worse condition than when the process began. You just spent millions of dollars to clean this water up, and then you throw it into what an old professor here in Wyoming used to say a dirty bucket. Some states don t have distribution system operator certification in place yet, Mixer says, while others may have either voluntary separate certification or mandatory licensing. They ll have to create or expand their programs soon, though, because it s been federally mandated. I think they re struggling to find a way, he says. And right now they re pulling together a variety of players and groups within their states to see what they can do to implement the program. Jenny Chambers, manager of Montana s water and wastewater certification program says that they ve had operator certification since the late 1960s, so basically, it was just a matter of reviewing the federal guidelines and tweaking our rules and regulations a little bit to comply and be approved by EPA when the act came down. Chambers believes that certification helps people take their jobs more seriously. By getting certified, they feel that they ve completed something, and they ve gained some kind of acceptance into the program. A lot of them may only have high school diplomas, and by getting this, they feel they ve expanded their education. So I think it helps with morale. And, I think they take their work a little more responsibly, because their license could be revoked if something major went wrong. Mixer agrees and reiterates that the issue is public health. You hope that when you have trained, certified people that your incidents of problems within the distribution systems are going to drop. They re maintained and monitored; the regulations are better met. People will see a better quality of drinking water over the long haul. Matt Holmes, executive director of New Mexico Rural Water, says that meeting regulatory requirements in small communities is a challenge for his state, both for the primacy agency and the systems, even though New Mexico is keeping up with certification requirements. We ve got a very strong certification program, he says. Right now, in New Mexico, you can hold a separate distribution certificate, but most people don t take advantage of it. Mostly you re certified as an operator. Certainly if you re certified as an operator, then it covers the distribution, because again, our certification is pretty rigorous. Small systems in New Mexico, as in many states, are having difficulty meeting SDWA mandates for capacity development, of which operator certification is a part. Holmes says his state is concerned about bringing systems up to capacity and making sure they re effectively complying with current laws, especially with additional state requirements for conservation and drought-related planning. This isn t saying that they [small systems] are willfully not complying with the laws, Holmes says. Some of them want to comply very badly, but it s very difficult for them to do so. The tools are not in place, or they re not able to get the information they need from the primacy agency, or something is in the way that keeps the systems from achieving compliance with all the stuff that we have now. I m always sort of reluctant to add additional burdens on them. Train for the Right Job Water operators may be fulfilling their obligation to be licensed by going the full route of treatment certification when it may not be necessary. If a community uses groundwater as their drinking water source, a distribution system is basically all there is. Groundwater frequently doesn t need to be treated. You ve got a well; you pump it up, put it into a tank, and out it goes, says Mixer. The distribution system must be kept up and operated properly to reduce the potential for the water to be compromised in its delivery, but none of the various treatment Small towns may have a tough time paying a competitive wage, making it difficult to find someone willing to work as the water operator, let alone be willing to go to the trouble of [becoming certified and licensed. processes may be necessary. Systems using groundwater often don t even chlorinate. Sullivan says that many distribution system operators don t need the level of training and expertise that running a water treatment plant would require. Here in Missouri, by splitting them, the small system operators get adequate training. But it s tailored to the needs, and it s more cost effective for the systems also. All states require a high school or equivalency diploma to take the certification test. An operator in training (someone who has passed the certifying exam) must complete a set amount of time on the job to obtain full licensure. Distribution system licensing, depending on a state s program, usually is broken into several levels of expertise. The licensed operator becomes the operator in responsible charge. This person may have others working with him or her who have less expertise, but the license affords the operator the right to make decisions that work toward ultimately protecting the water supply s integrity. www.ndwc.wvu.edu 4
The distribution system is vulnerable to many kinds of pollutants during repair jobs. 5 On Photo by Michelle Moore
This municipal worker cuts through a water main to replace an old tee with a straight pipe. Photo by Chris Metzgar Operators with years of experience, and who demonstrate competence in their work, may be awarded a grandparented license. This license carries the stipulation that, upon its expiration (usually three to four years), the operator will still have to pass the exam and fulfill the other requirementss of certification. So what s really happening in Smallville? Small towns may have a tough time paying a competitive wage, making it difficult to find someone willing to work as the water operator, let alone be willing to go to the trouble of becoming certified and licensed. Community governments often balk at having to spend more money on certification and continuing education credits. What s more, some very small systems may only have a volunteer or two who oversee their drinking water system. How can small community leaders make sure that operators have the certification they need? First they have to understand that it s the law, say Sullivan. The Missouri Rural Water Association has been involved in training board members. As they re educated to their jobs and the jobs of the people they ve hired, and what is required, then they can understand. That helps more than anything else. And not only that they are enlightened to see what responsibilities and duties are out there that need to be met, but they also understand that if they do not meet these requirements, and someone sues, there s a certain degree of liability they re facing. Operators or anyone interested in becoming a certified distribution system operator should contact their state-licensing agency. You may also contact your state rural water office, state Rural Community Assistance Program, or one of the various environmental training centers. They can advise you of education requirements, training opportunities in your area, testing sites (whether at a training facility or via online courses), and fees. Contact your state s drinking water program for information about the Operator Certification Expense Reimbursement Grants Program. The National Drinking Water Clearinghouse can supply contact information for these groups. Call us tollfree at (800) 624-8301. Resources: The 2003 Operator Basics Groundwater Systems Training Series, Montana Water Center, Boseman, MT. Water system personnel can learn about small facility operations by working through a series of challenging and fun activities presented in this easyto-use computer program. Up to 13.6 hours of training can be credited by working through all 11 units of the groundwater series. Order this free CD from the NDWC by requesting item #DWCDTR18. Call (800) 624-8301 or (304) 293-4191, or e-mail us at ndwc_orders@mail.nesc.wvu.edu. The American Water Works Association (AWWA) publishes the Operator Certification Study Guide, Fifth Edition, and Water Distribution Operator Training Handbook, Second Edition. Order online at www.awwa.org, write to them at AWWA, 6666 W. Quincy Ave., Denver, CO 80235, phone (303) 794-7711 or (800) 926-7337, or fax (303) 347-0804. In addition to Michelle Moore's role as associate editor of On Tap, she is also NDWC's promotions editor. www.ndwc.wvu.edu 6