Most Frequently Cited Significant Deficiencies and Violations - Inspection Year 2023

The Field Services Section (FSS) wrapped up the 2023 inspection year (IY 23) in September 2023 and the new IY 24 inspection year started and is almost halfway over! We appreciate all the assistance from public water systems in completing 491 sanitary surveys in 2023. IY24 started October 1, 2023 and FSS inspectors have completed 297 site visits to date. In this article we will share the top 10 most frequently cited significant deficiencies and violations from IY23 and a sneak peek into IY24 trends to raise awareness and help operators identify and correct issues before they become a potential health threat or citations in a sanitary survey. 

According to Regulation 11, Section 11.3(72), a significant deficiency means: any situation, practice, or condition in a public water system with respect to design, operation, maintenance, or administration, that the state determines may result in or have the potential to result in production of finished drinking water that poses an unacceptable risk to health and welfare of the public served by the water system. Field-based Violations of Regulation 11 have either Tier 2 or Tier 3 public notice requirements that are dependent upon the severity of the violation and any potential public health effects, pursuant to Regulation 11, Sections 11.33(1)(a,b), 11.33(2)(a), 11.33(3)(a) and 11.33(4)(a). All issued notifications must comply with the general content and distribution requirements and notice reporting requirements that are included in Regulation 11.33(5),(6) and (7).

During the 2023 inspection year, 1,256 significant deficiencies and violations were cited in 491 sanitary surveys. The Top 10 most frequent inspection citations were:

Storage tank deficiencies (F310 and T310), in the distribution system and before the entry point (CT tanks) combined account for 16% of all citations in IY23 and 17% of all citations in IY22. Storage tank deficiencies can include improperly protected screens, hatches and overflows. This underscores the importance of robust routine tank inspections under the Storage Tank Rule and also for tanks that are used for contact time or before entry point. 

The next most frequently cited significant deficiency, with 9% of the total IY23 and IY22 citations, was for wellhead pathways of contamination (S030). This can include loose wellhead seals, missing or damaged vent screens, missing gaskets, broken/open electrical boxes/conduit, cracked sanitary seal plates and wellheads. 

Backflow prevention and cross connection control (BPCCC) has four violations and a significant deficiency that make the Top 10 list, including failure to develop BPCCC annual reports, failure to develop or implement the BPCCC program (both Tier 3 public notice violations), and failure to meet the assembly testing ratio and method inspection ratio which were a Tier 2 public notice violations. Combined, all the BPCCC violations and significant deficiencies make up 26% of the citations in IY23. In 2023 the Division streamlined the BPCCC rule with the Water Quality Control Commission and the assembly and method compliance ratios were combined. In IY24 the M614 and M615 violation codes were replaced with one code, the M619 for Inadequate Backflow Prevention Annual Compliance Ratio due to combining assembly testing ratios and method inspection ratio.

A newcomer to the Top 10 is the Bacteriological Sampling Plan R518 violation which can include not performing representative sampling of the distribution system, not having a sampling plan, not rotating sample locations or not following the plan. 

In IY24 to date, 673 significant deficiencies and violations have been cited. The majority of these citations are the same as the IY23 Top 10 with the addition of two other findings:

• Violation R536 - MONITORING DISINFECTION (T3); Failure to Monitor Groundwater EP Residual Disinfectant.
• Significant Deficiency T116 - GROUND WATER TREATMENT; Supplier could not demonstrate adequate operation of approved groundwater treatment processes which are being used for compliance with Regulation 11.

Please check your water systems for these issues to protect public health and avoid significant deficiencies and violations during your next sanitary survey. If you would like additional assistance on technical issues or sanitary survey preparation, please sign up for individualized coaching here.  For any questions or concerns about sanitary surveys please email our Field Services team at cdphe_wqcd_fss_questions@state.co.us. Thank you for all your efforts to protect public health!

➽ Heather Young, PE, CWP, Field Services Section Manager

Public Health Success in Partnership

Palmer Lake Mobile Home Ranch and The Town of Monument Partner to Provide Drinking Water

Town of Monument, CO

Palmer Lake Mobile Home Ranch successfully closed out their long-standing enforcement order after many hurdles and plot twists. This is a story of collaboration between water systems and with Department staff. Palmer Lake Mobile Home Ranch is a mobile home community in El Paso County that serves approximately 250 people. 

In 2014 to 2018, Palmer Lake Mobile Home Ranch was struggling to maintain compliance with a variety of regulatory requirements. As a result, in 2018, the Department issued an Enforcement Order due to the system's failure to comply with The Colorado Primary Drinking Water Regulations (Regulation 11) and The Water and Wastewater Facility Operators Certification Requirements (Regulation 100).  The purpose of the Order was to provide deadlines and oversight to keep Palmer Lake Mobile Home Ranch on track toward returning to compliance and maintaining long-term compliance with Regulation 11 and Regulation 100.

Later in 2018, water samples collected from a proposed well indicated elevated concentrations of combined radium -226 and -228 and resulted in violations of the maximum contaminant level (MCL). Radionuclides such as these can occur naturally in water sources as a result of the erosion of natural deposits. While they are not an acute health risk for short-term consumption, there are chronic risks including a higher risk of developing cancer if water with elevated radium levels is consumed over a long period of time. Even though Palmer Lake Mobile Home Ranch had resolved all but one of the prior violations, the Department issued an amendment to their Order to bring the new MCL violations into the corrective action oversight provided by the Order.

The owner of Palmer Lake Mobile Home Ranch expressed frustration at the complexity of this new MCL violation but continued to work with their contract Professional Engineer and the Department to explore affordable solutions. Even though this water system serves full-time residents, as a private, for-profit business, the owners could not qualify for funding assistance (grants or low interest loans) from local, state or federal agencies. Collaborative communication between the Department, the system, and contract engineers was dedicated to designing a solution that would effectively reduce the concentration of combined radium in the water. Several ideas were considered, but only a few were realistically going to ensure future compliance. The system decided to install treatment to remove radium, but complications developed throughout the process: the financial burden of the total cost of the project was becoming an increasing concern, and they were not allowed to discharge the removed radium as a waste stream which eliminated some treatment options. The remaining treatment option added extra cost beyond the treatment installation and operation/maintenance. They would need to use a treatment that captured the removed radium in a resin instead of discharging it in a waste stream. This would require obtaining a hazardous waste handler permit for the Palmer Lake Mobile Home Ranch itself, and they would also pay indefinitely for a specially permitted waste hauler service to remove the resin on a regular frequency. 

In 2022, a new partner entered the conversation. The Town of Monument informed the Department of plans to construct a water line that was going to run along the property edge of Palmer Lake Mobile Home Ranch as part of a new storage tank construction project. Given the complications that Palmer Lake Mobile Home Ranch was experiencing with installing treatment for their own water supply, they were enthusiastic about this new development. When the Department received confirmation from the Town of Monument that they were willing to provide a connection to Palmer Lake Mobile Home Ranch, as well as confirmation from Palmer Lake Mobile Home Ranch that they would accept the connection and disconnect their wells, the Department readily agreed to the change of plans.

Despite having exhausted significant effort and resources toward implementing solutions for an improved water system and treatment for combined radium, ultimately, Palmer Lake Mobile Home Ranch decided that the best way to return to compliance was to tie in with the Town of Monument. In December 2023, the connection was completed and the wells were disconnected. Palmer Lake Mobile Home Ranch is now classified as a consecutive system receiving finished drinking water from another regulated water system, and the water being distributed to its residents is now in compliance with Regulation 11. 

While Palmer Lake Mobile Home Ranch demonstrated admirable determination in attempting to independently return the water system to compliance with all regulations, ultimately, success was found in partnership, as expressed in these testimonials from Palmer Lake Mobile Home Ranch and The Town of Monument. This highlights the important lesson in weighing perseverance against the path of least resistance: sometimes the simplest option is the best option. The Department is committed to a culture of health that prioritizes safe drinking water for all consumers and works hard to facilitate success stories such as these.

It is also important to take into consideration how existing regulations now apply to Palmer Lake Mobile Home Ranch moving forward. Consecutive water systems are still required to comply with Regulations 11 and 100, there are just differences in the applicability of certain rules. Additionally, the new water quality testing program under the Mobile Home Park Water Quality Act will begin this year. This program is designed to address community member concerns, identify water quality issues, and remediate water quality issues at parks throughout Colorado.

Did you know that Colorado has hundreds of small mobile home parks that receive finished drinking water from a regulated water system? 

QUIZ: If a mobile home park does not have a well or treatment system, but bills customers for water, what regulations apply? Choose the correct answer:

1. The plumbing code alone
2. The plumbing code and the new Mobile Home Park Water Quality Act
3. The plumbing code, the new Mobile Home Park Water Quality Act, DOLA’s Mobile Home Park Oversight program, and Regulation 11 within the distribution system
4. None of the above are fully correct; it’s complicated!

Look for the answer in a future AquaTalk article!

➽ Lauren Fracasso Compliance Specialist for South Unit

➽ Emily Clark Enforcement & Field Findings Compliance Lead

Optimize corrosion control treatment NOW! Get it done now to put yourself in the best position for LCRI

In late 2023, EPA released the proposed Lead and Copper Rule Improvements (LCRI). See this article for more information on the proposed LCRI.The LCRI is intended to improve upon the requirements promulgated in early 2021 in the Lead and Copper Rule Revisions (LCRR). The LCRR/LCRI will affect more than 1,050 community and non-transient, non-community public water systems in Colorado, serving nearly 6.5 million people. The LCRI public comment period is closed and EPA is planning to finalize the rule in October 2024. The LCRI compliance date is estimated to be late 2027. This gives water systems time to prepare and optimize their corrosion control treatment (CCT) before the LCRI requirements take effect. 

What is corrosion control treatment (CCT)? CCT is chemical treatment at the water treatment plant that makes the potable water less corrosive to water lines and premise plumbing. CCT is typically achieved by adding a phosphate-based corrosion inhibitor or with pH/alkalinity adjustment. The Lead and Copper Rule (Section 11.26 of Regulation 11) requires installation of CCT for systems with action level exceedances (ALE) and requires optimal corrosion control treatment (OCCT) for all systems serving more than 50,000 people. Approximately 65 systems in Colorado are operating OCCT with Department set optimal water quality parameters (OWQP) to comply with the current Lead and Copper Rule. 

Several changes in the proposed LCRI may impact systems that either have corrosion control treatment (CCT) installed currently or that may need to install CCT as a result of elevated lead or copper levels. Proposed LCRI changes that may impact CCT include:

• Setting a lower lead action level at 10 parts per billion (ppb).
• 1st and 5th liter lead sampling at lead service lines may result in higher lead levels than seen under the current rule. 
• Corrosion control study required for large systems without OCCT that exceed the practical quantitation limit (PQL) of 5 ppb based on 90th percentile lead levels.
• Medium and large systems with lead service lines that are required to conduct a corrosion control study must use harvested lead pipe in a pipe loop rig.
• Deferred OCCT installation or re-optimization for systems that replace 100 percent of lead service lines within five years of the date they trigger CCT steps.
• Removal of hardness as a corrosion control treatment option and specifies any phosphate inhibitor must be orthophosphate.
• Small system compliance options (e.g., point of use devices, replacement of all lead-bearing plumbing materials) for community water systems with 3,300 people or less and all non-transient, non-community systems.
• Review of CCT during sanitary surveys.

While these changes were part of the proposed LCRI, we will need to wait for the final rule to see if all of these items are included and if new items are added. Also, under the proposed LCRI, water systems will also have to provide Tier 1 public notice to consumers within 24 hours after a lead action level exceedance.

Possible actions to take:

• Review your 90th percentile lead results: One of the key changes in the draft LCRI is setting the lead action level at 10 ppb; the current lead action level is 15 ppb. Since 2010, approximately 115 systems had 90th percentile lead levels that were between 10 ppb and 15 ppb. Investing in operational controls, treatment, and/or treatment optimization now may allow you to lower your lead levels below the 10 ppb action level before the LCRI takes effect.  
• Evaluate treatment at large systems that are deemed optimal: Systems that have a population of more than 50,000 people “large systems” are required to have optimal corrosion control treatment (OCCT). The majority of Colorado’s systems that serve over 50,000 people have been “deemed” to have OCCT based on low source water lead and 90th percentile lead concentrations less than 5 ppb. The proposed LCRI requires large systems with a 90th percentile lead value greater than 5 ppb to complete a corrosion control study (CCS). For systems with lead service lines, the proposed LCRI requires the CCS be completed using harvested lead lines in a pipe loop. Many large systems have treatment processes that may impact corrosion. If possible, you should work on optimizing any existing treatment to lower lead levels as much as possible. 
• For systems with CCT,  determine if you can optimize your treatment process: Analyze your treatment process and determine if your corrosion control treatment could be optimized. A great tool for this is a bench scale immersion coupon study.  
• pH/alkalinity CCT systems: Systems using pH/alkalinity adjustment may want to more tightly control pH and/or find the optimal target pH. The EPA guidance document recommends a pH range at the entry point of 0.4 s.u. (for example: 7.8 to 8.2 s.u.) and a 0.6 s.u. range within the distribution system. Maintaining a tighter pH range may also improve other water quality contaminants such as disinfection byproducts. Conducting an immersion study to determine the optimal pH target may also be beneficial.
• Phosphate-based inhibitor systems: Phosphate-based inhibitor systems may want to optimize their dosing. Orthophosphate is the chemical that is effective at corrosion control and the EPA generally recommends a minimum orthophosphate concentration of 1.0 mg/L as PO4 in the distribution system. Blended phosphate inhibitors are a blend of orthophosphate and polyphosphates, which are typically used to sequester iron and manganese. These systems may want to review the percentage of orthophosphate in their chemical to better control corrosion. A bench scale immersion coupon study may be advantageous to determine the more effective dose and/or chemical.  
• Systems with CCT and OWQPs should review their OWQPs: Systems with OWQPs should review their monitoring schedule to verify the required OWQPs at the entry point(s) and in the distribution system. You may want to request an OWQP modification if you have additional water quality data or immersion coupon study results. 

Making changes to your CCT now can help you meet the LCRI requirements that are coming down the pipe. If you have any questions, please contact Melanie Criswell at melanie.criswell@state.co.us.

Resources:

• LCRR guidance, FAQs, and forms are available on the department’s Lead and Copper Rule & Revisions Webpage.
• Review the department’s initial service line inventory development policy.
• Visit the department's drinking water training and assistance website to register for upcoming Lead and Copper Rule courses (online and in-person options available) and other free training opportunities.

➽ Melanie Criswell Lead Service Line, Corrosion, and Emerging Contaminants Engineer

➽ Haley Orahood Regulatory Development and Implementation Specialist