OFFICE OF WASTEWATER MANAGEMENT

2011 ANNUAL REPORT
          Message from the Director

As we begin 2012, the challenges that face our nation’s water resources are significant and varied. Yet in

these financial times, we find ourselves doing more with less as we strive to meet our goal of providing clean

and safe water for future generations. Over fiscal year (FY) 2011, the Office of Wastewater Management (OWM),

in partnership with states, local governments, and the private sector, has risen to the challenge and continued to

make great strides in protecting and maintaining America’s water resources.  

Our aging infrastructure continues to face numerous challenges that are compounded by climate change

and a growing population. OWM continues to support and promote sustainable water infrastructure and water

efficiency efforts. In 2011, WaterSense celebrated its fifth year of helping consumers find simple ways to use less

water with water efficient products and services. Since its inception, WaterSense has saved consumers over 125

billion gallons of water and over $2 billion in water and energy bills. With over 2,300 partnering organizations

and individuals and over 4,000 labeled products , the WaterSense name is now synonymous with saving water.

In FY 2011, the Clean Water State Revolving Fund (CWSRF) Program continued to implement the American Re‐

investment and Recovery Act, providing assistance to wastewater utilities. Since it began in 1987, the CWSRF

has helped support over 33,000 projects involving wastewater treatment, nonpoint source control, and wastewa‐

ter and estuary management through providing more than $89 billion in financial assistance. Also in FY 2011 ,

OWM continued to encourage sustainable infrastructure through implementation of the Clean Water and Drink‐

ing Water Infrastructure Sustainability Policy as well as workshops and training sessions to help promote energy

management, effective utility management, and asset management.  

In 2011, the National Pollutant Discharge Elimination System (NPDES) program continued to imple‐

ment a number of important Clean Water Act protections and worked to improve the management and over‐

sight of state programs and explore mechanisms for improving public access to permit information. In October

2011, OWM issued a final pesticide general permit to better manage discharges of pesticides into our waterways.

Also, OWM proposed a Concentrated Animal Feeding Operation (CAFO) rule that would require CAFOs to

submit basic information to EPA so that the Agency can more effectively carry out its CAFO permitting pro‐

grams and ensure that CAFOs are implementing practices to protect water quality and human health.   

It is my pleasure to present to you the Office of Wastewater Man‐

agement’s 2011 Annual Report. While our work on individual products

often spans many years, this document presents a snapshot of this

year’s most significant accomplishments. Our programs encourage sus‐

tainable water infrastructure, responsible water usage and technologi‐

cally sound, cost‐effective wastewater management, serving Americans

in every part of their lives and providing clean water for tomorrow.  

James A. Hanlon, Director

Office of Wastewater Management

To help meet the nation’s clean

water goals by ensuring that

appropriate regulatory stan‐

dards, voluntary management

approaches, information, finan‐

cial resources, and technical

assistance are provided to

states, communities, and regu‐

lated entities.

Our Mission

2 
Message from the Director   2

Office of  Wastewater Management Mission   2  

About the Office of Wastewater Management   4‐5

Fostering a Diverse Workforce   5

Program Highlights   6

Results Areas

       

Clean Water State Revolving Fund   7

WaterSense Program  8

Stormwater Program  9

Sustainable Management Program  10

Rural Program  11

State & Regional Program  12

State & Tribal Water Pollution Control Grants  13

Industrial Program  14

Sustainable Communities  15

Integrity  

We aspire to the highest levels of

fiscal and scientific reliability for

our staff, programs, and research.  

Efficiency

Through strategic planning and

prioritizing and establishing real‐

istic goals, OWM has a successful

track record, delivering substan‐

tial environmental gains.  

Results

Setting realistic goals and reach‐

ing or surpassing those goals is

the cornerstone of OWM’s strate‐

gic plan.   

                    Table of Contents

3 
About the Office of Wastewater Management

4 

Clean Water is the goal of all Office of Wastewater Management programs. Overall, our programs are designed to ensure

that not only is our water safe to drink, but that our surface waters and aquatic ecosystems protect public health, support

economic and recreational activities, and provide a healthy habitat for fish, plants, and wildlife. OWM supports EPA’s goals

for clean and safe water and healthy communities and ecosystems.

While OWM helps regulate and promote effective and responsible wastewater treatment, our programs consist of more than

just wastewater management:  

• Since its inception, more than 20 years ago, the Clean Water State Revolving Fund programs have provided more than

30,000 low‐interest loans for wastewater treatment, control of nonpoint source pollution, and estuary protection.   

• Through WaterSense, we are helping to raise national awareness of water as a scarce resource; encourage water effi‐

ciency among utilities, manufacturers, retailers, and consumers; and make it easy for consumers to find products and

services that save water while ensuring product performance.

• Under our Sustainable Infrastructure Program, OWM is promoting widespread adoption of better management prac‐

tices, water efficiency, full‐cost pricing, and watershed approaches to reduce costs and increase system investments.  

• Through our Sustainable Communities Program, OWM is targeting technical and financial assistance with our partners

to support infrastructure development and the resulting reduced health risks and increased economic opportunity to

small and underserved communities that face a disproportionate lack of access to sufficient wastewater treatment.   

• Our Stormwater Program oversees the control of stormwater runoff through the issuance of NPDES stormwater permits

and provides outreach and support to EPA Regions and states on issuance and oversight of those permits. It also edu‐

cates local governments, industries, builders, and the public about the impact stormwater has on our local waterways

and how to keep pollutants out of stormwater.  

• The National Pollutant Discharge Elimination System

(NPDES) Program controls water pollution by regulating

point sources that discharge pollutants into our surface wa‐

ters.

• Our Green Infrastructure initiative focuses attention on an

approach to wet weather management that treats stormwa‐

ter as a valuable resource rather than as a problem. It pro‐

motes the use of green roofs, rain gardens, porous pave‐

ments, and other techniques that result in improved water

and air quality, energy and costs savings, enhanced water

supplies, habitat creation, and source water protection.   

In 2010, EPA’s Office of Water (OW) signed a

memorandum of understanding (MOU) allowing

OW and EPA Region 6 to offer employment oppor‐

tunities to qualified students and Texas A&M Uni‐

versity in Kingsville, TX, a Hispanic‐serving insti‐

tution. In FY 2011, OWM helped establish an MOU

steering committee, charter, and work plan to facili‐

tate implementation of the MOU.  

Through a successful partnership with the Hispanic

Association of Colleges and Universities (HACU),

OWM was able to hire two engineering students

from Texas A&M University as summer interns in

2011 through HACU’s National Internship pro‐

gram. OW was the only office in EPA to hire

HACU interns in 2011, and OW and OWM staff

have since come to serve as an expert resource for

other EPA offices using the HACU sole source pro‐

visions. OWM hopes to double the number of

qualified diverse students it hires during the sum‐

mer of 2012.      

Fostering a Diverse Workforce
About the Office of Wastewater Management

5 

In FY 2011, OWM’s programs, including state and tribal assistance accounted for almost $1.8 billion, or

nearly 21 percent of EPA’s budget. Through its programs and initiatives, OWM promotes compliance with

the requirements of the Clean Water Act (CWA). Under the CWA, OWM works in partnership with EPA

Regions, states, local governments, and tribes to regulate point source discharges into surface waters, in‐

cluding: wetlands, lakes, rivers, estuaries, bays, and oceans.  

Our Budget

The Office of Wastewater Management and its staff of more than 100 em‐

ployees promote effective and responsible water use, treatment, disposal,

and management and encourage the protection and restoration of water‐

sheds. OWM is comprised of an Immediate Office of the Director; the Water

Permits Division (WPD); the Municipal Support Division (MSD); and the

Planning, Information and Resources Management Staff (PIRMS).   

The Municipal Support Division manages the Clean Water State Revolving

Fund program; assists small communities and Indian tribes, U.S./Mexico

Border communities, and Alaska Native Villages; and implements special

appropriations acts projects. The Division maintains and regularly updates

inventories and cost estimates of existing and needed future municipal

wastewater treatment works and capital investments to meet the goals of the

Clean Water Act. In addition, the Division publishes technical information

about conventional and innovative municipal wastewater collection systems

and treatment technologies and provides support and technical assistance to

EPA Regions and states to promote the proper management of on‐site and

decentralized wastewater systems nationwide. Through the WaterSense pro‐

gram, it promotes a national ethic of water efficiency and market enhance‐

ment for water‐efficient products, programs, and practices.

The Water Permits Division provides national program direction to the Na‐

tional Pollutant Discharge Elimination System permit, pretreatment, and

sewage sludge management programs under the Clean Water Act, includ‐

ing: development of regulations, policy, and guidance; development of na‐

tional strategies; implementation management; compliance assurance; and

overview of Regional and state operations. The Division also coordinates

with the Office of Science and Technology in the development of national

standards for point source controls, indirect dischargers, and biosolids use

and disposal.

James Hanlon, Director

Randy Hill, Deputy Director

Planning, Information &   

Resources Management Staff  

Ben Hamm, Director

Municipal Support Division

Sheila Frace, Director  

Bill Anderson, Deputy Director

Sustainable Communities Branch

Kellie Kubena, Chief

Sustainable Management Branch     

Bonnie Gitlin, Chief

State Revolving Fund Branch      

George Ames, Chief

WaterSense Branch

Veronica Blette, Chief

Water Permits Division

Deborah Nagle, Director

Brian Frazer, Deputy Director

State and Regional Branch  

Tom Laverty, Chief

Ross Brennan, Asst. Chief

Municipal Branch

Connie Bosma, Chief

Rural Branch

  Allison Wiedeman, Chief

Industrial Branch

  Marcus Zobrist, Chief

OWM Leadership
                   Program Highlights

6 

Tribal Programs and Training — In the first training of its kind, the EPA

launched a nationwide initiative to train operators and managers of facilities funded by

American Recovery and Reinvestment Act (ARRA) funds on how best to efficiently and

effectively use and maintain their water and wastewater infrastructure, protecting fed‐

eral investment and increasing national facility sustainability. Each of the four trainings,

in Washington, Montana, Arizona and Kansas, was a three‐day tribal assistance pro‐

gram, educating a wide range of participants, from experienced operators to young

tribal environmental managers.  

Clean Water State Revolving Fund Green Project Reserve — The EPA

continues to demonstrate its support of and dedication to green infrastructure, water

and energy efficiency and environmental innovation through its distribution of ARRA

funds set aside in the green project reserve. Exceeding the ARRA’s mandate, states and

Regions granted 30 percent of ARRA funding to such green projects. OWM has contin‐

ued its active engagement with states to derive “lessons learned” for future projects and

continues to invest resources in workshops and studies tasked to better implement and

improve grant funding across the United States.

Pesticide General Permit — The EPA released the final version of the Pesticide

General Permit in October of 2011. The permit regulates point source discharges across

the United States and strives to better protect the various water ways that are being

polluted by the discharges associated with pesticides. The permit increases the EPA’s

ability to monitor and report possible threats associated with pesticide misuse and keep

our waters fishable, swimmable, and drinkable.

WaterSense 5th Year Anniversary — The WaterSense name, now synonymous with

water efficiency, celebrated its 5th year. The program has saved billions of gallons of water and

billions of dollars in utility waste and has partnered with thousands of distributors and manu‐

facturers, providing a clear guide to Americans as they seek the very best for their homes. Wa‐

terSense continues to implement its many yearly successful programs, such as Fix‐a‐Leak

week and honoring partners of the year who have distinguished themselves and their prod‐

ucts above the rest.

Concentrated Animal Feeding Operations Rule Making — In response to the

unique threat of nutrient and sediment pollution as identified by President Obama, OWM has

initiated a rulemaking process to better define and collect information from concentrated ani‐

mal feeling operations. OWM is now better positioned to provide better manure management

and curtail the harmful effect of nutrient runoff from such agricultural operations, better pro‐

tecting water quality and human health in every state.  

Green Infrastructure Strategic Agenda — In an effort to

build more livable communities and protect our nation’s waters,

the EPA has outlined a strategy to aide communities in the imple‐

mentation of green infrastructure. In April a partnership effort was

announced; 10 communities have been selected to implement, with

the help of the Agency, various green infrastructure initiatives,

serving as a model for a sustainably communities of the future.
   Clean Water State Revolving Fund

American Reinvestment and Recovery Act (ARRA) of 2009:

Management & Oversight – In 2010, the EPA allocated $4 bil‐

lion in ARRA funding, placing more than 1,870 projects under con‐

tract. By the end of FY 2011, more than 88 percent of these funds

had been expended to fund efforts improving our nation’s waste‐

water systems, public health, and the quality of environment while

also creating and saving jobs. Throughout FY 2009 ‐ FY 2011, the

CWSRF team conducted management and oversight of the ARRA

funds in all 50 states and Puerto Rico. EPA conducted onsite Re‐

gional reviews and state visits. EPA implemented a project inspec‐

tion program resulting in over 500 onsite inspections of ARRA‐

funded projects. The purpose of these efforts was to ensure recipi‐

ent compliance with new CWSRF provisions instituted under

ARRA, such as the requirements of the Buy American and Davis‐

Bacon Acts. Additionally, the Agency improved its online report‐

ing system, the CWSRF Benefits Reporting (CBR) System. This sys‐

tem played a critical role in tracking and monitoring funds. To en‐

sure accountability in the future and effective management, the

Agency will continue to electronically monitor funds in FY 2012.

Special Appropriations Act Project (SAAP) Management

Plan – The SAAP program made strides in FY 2011 to improve

management and oversight of Congressionally mandated projects.

OWM issued a SAAP management plan that establishes two key

programmatic goals: to award the grant within three years of ap‐

propriation and to successfully complete projects within five years

of grant award. The plan describes management strategies, like

outreach and enforcement of the project schedule, and standard‐

izes a process to identify and report on unawardable grants and

projects not making reasonable or sufficient progress. OWM’s

oversight of the SAAP program will be facilitated by expanded

reporting on projects not meeting the programmatic goals for

timely award and completion. Implementation of the management

plan was accompanied by improvements to the national database

that improved user friendliness and quality control.

CWSRF Green Project Reserve – ARRA mandated that at least

20 percent of states’ grants be awarded to projects that address a

growing need for investment in green infrastructure, energy or

water efficiency, or environmentally innovative activities. The

states and Regions far exceeded the requirements put forth by Con‐

gress, placing over $1.1 billion, or 30 percent of ARRA funds, in

such programs. The Green Project Reserve (GPR), introduced into

the CWSRF program by ARRA, was extended through the 2010

and 2011 CWSRF appropriation.  

During FY 2011, the CWSRF Program has continued to oversee the

GPR. The CWSRF Program worked with Alabama and Idaho to

provide an in‐depth evaluation of each state’s funding program

and lessons learned from ARRA. These evaluations provided the

foundation for dramatic changes to the state CWSRF program.

Three workshops were also held with state CWSRF program direc‐

tors across the country to discuss the first round of GPR funding

and evaluate the lessons learned from ARRA.   

In addition, three studies are underway to document the environ‐

mental benefits of GPR project and explore operation and mainte‐

nance issues related to green infrastructure, including:  

• An environmental benefits study that will quantify the energy

and water saved from efficiency projects, as well as renewable

energy generated and wastewater reused, and document the

amount of stormwater captured by green infrastructure pro‐

jects and the energy costs avoided for wastewater treatment,

• A cost/benefit study that will quantify the secondary benefits

of green infrastructure projects, and

• An operation and maintenance study that will explore funding

sources for operation and maintenance of ARRA funding pro‐

jects, as well as maintenance standards and responsible par‐

ties.  

Many state CWSRF programs funded GPR projects for the first

time through ARRA. These GPR evaluations and studies will help

demonstrate the environmental benefits of the projects as well as

contribute to evolving the green infrastructure, water efficiency,

and energy efficiency industries.  

In FY 2011, the CWSRF Program also co‐led the finance subgroup

of the Green Infrastructure Agenda and developed a robust set of

recommendations for EPA leadership related to financial concerns

about green infrastructure. The recommendations included pro‐

jects to address the risk of project performance, cost/benefit analy‐

sis of green versus gray infrastructure, and the need for additional

revenue to fund infrastructure investment.

Since the inception of the Clean Water State Revolving Fund (CWSRF) in 1987, more than $89 billion has been provided in

financing for important water quality protection projects via more than 33,000 assistance agreements. These projects include

wastewater treatment, nonpoint source pollution control, and watershed and estuary management. In 2011 alone, CWSRFs

provided low interest rates, flexible terms, and assistance to over 1,800 assistance agreements. CWSRF‐funded projects have

helped communities meet environmental standards, protect valuable resources, and ensure public health.

7 
                   WaterSense Program  

WaterSense Celebrates Five Years of Savings — In just

five years, WaterSense and its partners have helped Americans

save 125 billion gallons of water and over $2 billion in utility bills.

Nearly 2,300 WaterSense partners have produced and promoted

thousands of different models of WaterSense labeled toilets, fau‐

cets, showerheads, flushing urinals, and new homes. EPA Admin‐

istrator Lisa P. Jackson marked the anniversary with a visit to

Moen Incorporated, the WaterSense 2010 Manufacturer Partner of

the Year, in North Olmstead, Ohio. She said that WaterSense helps

us to marshal the forces of the consumer marketplace and the inno‐

vative capacity of the private sector. The end result is a situation

where we are using less water, saving consumers money, and

working together to create economic opportunities.

Program Updates

• In November 2010, WaterSense released a notification of intent

for cation exchange water softeners, which remove the calcium

and magnesium ions found in hard water by exchanging them

with sodium or potassium ions. This process can use 25 gallons

of water or more per day, or up to 10,000 gallons per year. De‐

velopment of this specification is currently on hold to consider

potential impacts of softener discharges on water quality.

• Also in November 2010, EPA announced the first WaterSense

labeled homes in the country. Four WaterSense labeled, new

homes were built by KB Home in Roseville, California, helping

families save an average of 50,000 gallons of water and at least

$600 on utility costs each year.  

• In January 2011, EPA released a revised draft specification for

weather‐based irrigation controllers for public comment. The

program also prepared for release of a final specification in late

2011 by opening new partnership categories and conducting

training.

• In order to ensure the efficiency and performance of high‐

efficiency commercial kitchen pre‐rinse spray valves (PRSV)

before they can earn a label, EPA conducted a field study to

assess PRSV water use, energy use, and performance. The re‐

port was published in March 2011.

• In September 2011, WaterSense released version 2.0 of the Wa‐

terSense Certification System to accommodate future growth

and expansion of the WaterSense program while balancing the

cost of certification with the need to maintain the integrity of

the WaterSense label. 

Third Annual Fix‐A‐Leak Week — The WaterSense pro‐

gram held its third annual Fix‐a‐Leak Week, March 14 to 20, 2011,

to encourage the public to improve the water efficiency of homes

and irrigation systems by checking for and fixing leaks. Partnering

with water utilities, manufacturers, retailers, communities, plumb‐

ers, and other professionals, WaterSense promoted ways to iden‐

tify and repair dripping faucets, running toilets, and leaky shower‐

heads. Dozens of WaterSense partners and other organizations

helped spread the word, hosting events nationwide. For example,

Arizona Municipal Water Users Association, in partnership with

EPA, held “We’re for Water – Join the Chase!,” a four‐mile race

featuring a running toilet mascot to raise awareness about finding

and fixing leaks. Area vendors also promoted Fix‐a‐Leak Week,

demonstrated leak fixing, and offered water‐saving tips.

2011 Partner of the Year Awards — More than 2,300 part‐

ners help the WaterSense program save water for future genera‐

tions by promoting water efficiency and WaterSense labeled prod‐

ucts. In 2011, EPA added two new partner categories—Builder

Partner of the Year and Licensed Certification Partner of the Year—

and named six partners as the 2011 WaterSense Partners of the

Year for their exceptional efforts in promoting WaterSense in 2010:   

• Promotional Partner of the Year: Cobb County Water System

(Georgia)

• Manufacturer Partner of the Year: Delta Faucet Company

• Retailer Partner of the Year: The Home Depot

• Builder Partner of the Year: KB Home

• Licensed Certification Provider Partner of the Year: Energy In‐

spectors Corporation

• Irrigation Partner of the Year: Christopher Curry, Sweeney +

Associates (Orange, California)   

In 2011, WaterSense also presented seven Excellence Awards,

which recognize additional organizations and individuals whose

WaterSense support stood out in one or more of the evaluation

following categories:

• WaterSense Labeled Product Promotions: American Water

• Strategic Collaboration: Public Service Commission of Wiscon‐

sin, and Lowe’s Companies, Inc.

• Education and Outreach: City of Dallas Water Utilities

• Participation and Collaboration in Promotional Events: Kohler

Co., Moen Incorporated, and Niagara Conservation Corp

WaterSense is a national symbol for water efficiency among utilities, plumbing manufacturers, retailers, and consumers. In

2010 alone, WaterSense labeled products helped consumers save billions of gallons of water. As of the end of September

2011, more than 2,800 bathroom sink faucets and faucet accessories, 865 tank‐type toilets, 90 flushing urinal fixtures and

valves, and 390 showerhead models had earned the WaterSense label, which helps consumers make informed decisions

when buying water‐efficient products.  

8 
   Stormwater Program

Strengthening Stormwater Regulations — The EPA has

initiated rulemaking to develop a stormwater regulation to protect

water bodies from the harmful effects of stormwater discharges

from newly developed and redeveloped sites and to make other

regulatory improvements to the nation’s stormwater program. The

proposed rule and cost/benefit analyses are still under develop‐

ment. The Agency is considering several rulemaking actions, such

as establishing specific performance standards to control stormwa‐

ter discharges from newly developed and redeveloped sites of a

certain size, expanding the protection of the municipal stormwater

program to additional discharges, and requiring certain regulated

municipal separate storm sewer systems (MS4s) to address dis‐

charges.

During the FY 2011, the Agency conducted extensive outreach to

gain input from stakeholders on the stormwater rulemaking. EPA

met with the small business community representatives, state and

local governments, tribal representatives, the regulated commu‐

nity, environmental groups, and other federal agencies, such as the

Federal Highway Administration. In addition, the Agency con‐

ducted 18 site visits throughout the country to gather information

on green infrastructure technologies and met with local representa‐

tives to discuss concerns about green infrastructure and water

rights. The Agency also facilitated a Chesapeake Bay listening ses‐

sion and webinar to seek input on bay‐specific concerns and to

provide a forum for the public to give input on possible environ‐

mental justice considerations and impacts that might arise as a re‐

sult of the rulemaking. To understand current condition and help

estimate the economic impact of regulatory changes, EPA also sur‐

veyed regulated and unregulated MS4s, NPDES permitting au‐

thorities, state departments of transportation, and owners/

operators of sites.  

EPA Sought Public Comment on Agency Memoran‐

dum for Effectively Addressing Stormwater Dis‐

charges — The EPA issued a memorandum on November 12,

2010, entitled Revisions to the November 22, 2002 Memorandum – Es‐

tablishing Total Maximum Daily Load (TMDL) Wasteload Allocations

(WLAs) for Storm Water Sources and NPDES permit Requirements

Based on Those WLAs, which reflected the considerable experience

states and the EPA have obtained regarding TMDLs and stormwa‐

ter management since 2002 and the recommendations made by the

National Research Council in their 2009 report, Urban Stormwater

Management in the United States.  

The memorandum provided updated information on how better to

address stormwater discharges using two key programs of the

Clean Water Act—the TMDL program and the National Pollutant

Discharge Elimination System (NPDES) permitting program. On

March 17, 2011,  in response to requests from stakeholders to com‐

ment on the memorandum, the Agency  opened up the memoran‐

dum for public comment.

Urban wet weather sources remain an important EPA priority because of the potential impacts on human health and the environment.

Stormwater is a source of water quality impairment for over 22,000 miles of river and streams, over 700,000 acres of lakes and over 800

square miles of estuaries. Stormwater runoff is generated when precipitation does not percolate into the ground. As it flows, the runoff

collects debris, chemicals and other pollutants that potentially pose a threat when  discharged untreated. Urban wet weather sources are

among the most significant sources of water pollution today that EPA can address through the Clean Water Act.  

9 

Sanitary Sewer Overflows (SSO) — This year, the Agency

held a workshop to solicit stakeholder input on strengthening the

NPDES permitting program’s approach to regulating SSOs and

peak wet weather discharges at publically owned treatment works

(POTWs). SSOs occur when raw sewage is discharged directly to a

water body rather than being sent to a POTW for treatment. The

workshop provided a discussion forum for representatives of inter‐

ested stakeholder groups, representatives of POTWs, state NPDES

permitting authorities, and nonprofit environmental groups and

was open to the public.

Green Infrastructure — On April 29, 2011, EPA issued its

new Strategic Agenda to Protect Waters and Build More Livable Com‐

munities through Green Infrastructure. The strategy outlines the

Agency’s activities to help communities implement green infra‐

structure approaches, clarifying how green infrastructure can be

used within the regulatory and enforcement contexts, outreach and

information exchange, financing, tool development, and capacity

building. In April, EPA also announced a green infrastructure com‐

munity partnership effort by introducing the first 10 communities

that will work with the Agency on green infrastructure implemen‐

tation issues. Concurrent with the release of the strategic agenda,

EPA’s Office of Water and Office of Enforcement and Compliance

Assurance also issued a joint memorandum encouraging commu‐

nities to use green infrastructure to manage wet weather and meet

CWA Requirements.
                   Sustainable Management Program  

Sustainability Policy — In October 2010, EPA issued its

Clean Water and Drinking Water Infrastructure Sustainability Policy to

promote sustainable water and wastewater infrastructure. The pol‐

icy emphasizes the need to build on existing efforts to promote

sustainable water infrastructure, working with states and water

systems to employ robust, comprehensive planning processes that

result in projects that are cost effective over their life cycle, resource

efficient, and consistent with community sustainability goals. Ulti‐

mately, the policy is the next step in EPA’s ongoing effort to

change how the nation views, values, and manages our water in‐

frastructure. To help implement the policy, OWM is nearing com‐

pletion of a sustainability planning handbook to help utilities inte‐

grate sustainability considerations into various phases of their

planning processes. The policy addresses three interdependent

levels of sustainability practices: sustainable water infrastructure,

sustainable water sector systems, and sustainable communities.     

Effective Utility Management — Building on its ground‐

breaking 2007 agreement with six national associations to promote

effective utility management (EUM) in the water sector, OWM con‐

tinued to work with industry partners to promote a number of

EUM tools, including the Effective Utility Management: A Primer for

Water and Wastewater Utilities, which provides a description of the

10 attributes of effective utility management, as well as an interac‐

tive version of the primer, located at http://www.watereum.org/. In

addition, EPA is working with the Water Research Foundation as

this organization develops a tool to help utilities benchmark their

performance based on the EUM attributes and associated perform‐

ance metrics. Finally, EPA is working with the U.S. Department of

Agriculture to sponsor a series of workshops for managers of small

utilities to provide education on and promote EUM practices and

explore ways to link other utility management approaches, like

lean manufacturing, to EUM.

Asset Management — OWM reached a milestone in its work

to promote asset management practices, delivering its 50th asset

management training session, having trained over 4,000 people.

Building on the popularity and success of these courses, OWM also

beta tested a new upper‐level asset management course. This

course is designed for those who are looking to strengthen their

existing asset management program and focuses on effectively

using risk to determine the end of life of assets.   

Energy Management — Using the 2008 energy management

guidebook, Ensuring a Sustainable Future: An Energy Management

Guidebook for Wastewater and Water Utilities, OWM has worked with

the EPA Regions to sponsor more than 20 energy management

workshops involving over 1,500 participants. As a result, eight

Regions are now working directly with over 150 water and waste‐

water utilities to help them develop energy management pro‐

grams. This work is helping to spark both awareness and progress

towards energy efficiency across the country.

Clean Watersheds Needs Survey — Every four years, the

EPA conducts the Clean Watersheds Needs Survey. The report esti‐

mates nationwide wastewater and stormwater pollution control

capital investment needs, wastewater treatment and collection sys‐

tem stability, and various parameters of America’s watersheds. In

preparation for the 2012 survey, OWM focused on revising its

methodology, as data and research becomes increasingly available,

and its data input system, hoping to provide an easier, faster, more

efficient method for data entry. In addition to various webinars,

OWM conducted trainings in Washington, DC; Chicago, Illinois;

San Francisco, California; and Kansas City, Kansas, to address is‐

sues of data collection and changing methodologies and to receive

input from the states and EPA Regions on the successes of the 2008

survey and possible areas of improvement.

Our nation’s water infrastructure systems are aging, and many will be reaching the end of its useful life in the next 20 to 40 years. To

address the mounting needs, OWM is collaborating with the Office of Ground Water and Drinking Water and other EPA offices and

across the infrastructure industry to change the way the country views, values, and manages its water infrastructure and to ensure that

this infrastructure also supports sustainable communities.

10 
   Rural Program

Pesticide General Permit — On October 31, 2011, EPA is‐

sued a final NPDES Pesticide General Permit (PGP) for point

source discharges from the application of pesticides to the waters

of the United States. The permit requires pesticide applicators to

minimize discharges through the use of pest management meas‐

ures and to monitor for and report any adverse incidents. This ac‐

tion was in response to a 2009 decision by the U.S. Sixth Circuit

Court of Appeals, in which the court vacated EPAʹs 2006 Final Rule

on Aquatic Pesticides and found that point source discharges of

biological pesticides, and chemical pesticides that leave a residue,

into waters of the U.S. were pollutants and, therefore, required a

permit under the Clean Water Act.

EPA’s PGP covers pesticide discharges in the areas where EPA is

the NPDES permitting authority, which include six states; Wash‐

ington, D.C.; all U.S. territories except the Virgin Islands; most In‐

dian Country lands; and federal facilities in four additional states.  

The remaining 44 states and the Virgin Islands are authorized to

develop and issue their own NPDES pesticide permits.

EPA conducted a precedent‐setting effort to coordinate with its

state partners in their development of pesticide general permits.  

Regular calls and meetings were held with the states to share drafts

of the permit and exchange valuable input and experiences. This

process was well received by the states. EPA also successfully con‐

cluded an Endangered Species Act consultation with the National

Marine Fisheries Service to ensure the PGP does not jeopardize

endangered species or their critical habitat.

EPA’s final permit covers discharges from the following pesticide

use patterns: mosquito and other flying insect pest control, weed

and algae control, animal pest control, and forest canopy pest con‐

trol. The provisions of the PGP are designed to improve protection

of our nation’s water quality by minimizing discharges of pesti‐

cides to waters of the United States.

Implementing the Concentrated Animal Feeding Op‐

eration (CAFO) Rule — EPA continued to provide technical

assistance to states and farmers to help them better understand and

comply with the 2008 CAFO Rule. EPA is developing guidance for

permit writers regarding how to review nutrient management

plans (NMPs). Additionally, OWM continued to support the Re‐

gions in reviewing state programs to ensure their compliance with

the 2008 rule requirements.   

  

OWM also provided direct technical support to farmers. Through

an $8 million grant, technical assistance was provided to livestock

operators, offering both environmental assessments and NMPs for

operators that were confidential and free of charge. The Compre‐

hensive Livestock Environmental Assessment and Nutrient Man‐

agement Plan (CLEANmp) provides environmental assessments,

reviews and updates of existing NMPs, and development of new

NMPs. To date, the CLEANmp has assisted over 850 projects.  

Reducing Impacts from CAFOs — In 2009, President

Obama issued Executive Order 13508—Chesapeake Bay Protection

and Restoration—calling for reductions in nutrient and sediment

pollution in the Chesapeake Bay. As a result, The EPA developed a

strategy, in consultation with states and key stakeholders, for pro‐

tecting Chesapeake Bay water quality. The Next Generation of Tools

and Actions to Restore Water Quality in the Chesapeake Bay report

identified agriculture as the single largest nutrient and sediment

polluter to the bay. In FY 2011, EPA initiated a rulemaking process

addressing CAFOs in the Chesapeake Bay watershed, seeking to

help states meet the reduction targets, protecting the valuable re‐

source of the  Bay.     

Collecting Information from CAFOs — On October 21,

2011, the EPA proposed a rule that would require CAFOs to sub‐

mit basic operational information to the EPA so the Agency can

more effectively carry out its CAFO permitting program on a na‐

tional level and ensure that CAFOs are implementing practices to

protect water quality and human health. This information will aug‐

ment efforts to estimate CAFO pollutant loading, determine poten‐

tial water quality impairment sources, and facilitate efforts to con‐

duct education and outreach to polluters. EPA anticipates that it

will take final action on the initiative in July 2012.  

The Rural Program strives to protect and improve water quality by developing and implementing NPDES programs to assist rural areas

and rural populations. The program develops regulations, policies, technical implementation guidance, and outreach for EPA Regions,

states, and the general public.  

11 
                   State and Regional Program  

Strengthening NPDES Permit Program Oversight

and Transparency — OWM continued to collaborate with the

Office of Enforcement and Compliance Assurance (OECA) to im‐

plement the Clean Water Act Action Plan and respond to Inspector

General reports recommending improvements to NPDES proc‐

esses. For example, OWM worked with OECA and Region 7 to

implement a business improvement process (the “Kaizen” process)

to improve efficiency and communication during the permit issu‐

ance process. EPA also worked to improve the availability and

management of program Memoranda of Agreements (MOAs), a

key underpinning of the state NPDES program’s integrity. As a

result of this and other OWM‐led processes, EPA is poised to pro‐

vide improved public access to MOAs, program withdrawal peti‐

tion documents, and general permits in FY 2012.

Reinventing EPA’s Process for State Oversight —

OWM continued its process for state program oversight of the

NPDES permit program, conducting permit quality reviews

(PQRs) in eight states and bringing greater attention to mining

issues in their reviews. OWM also launched two dramatic im‐

provements to the state oversight process by—developing a frame‐

work to transition the PQR process to the Regions and launching

an effort to integrate the Office of Water’s PQRs with OECA’s exist‐

ing State Review Framework process.

Electronic Applications and Reporting — OWM collabo‐

rated closely with OECA on a proposed rule facilitating electronic

reporting of NPDES information. OWM also expanded its elec‐

tronic Notice of Intent (e‐NOI) tools to cover thousands of vessels

and pesticide applicators who are subject to general permit re‐

quirements.

Providing Robust NPDES Tools, Training, and Clari‐

fications — In FY 2011, OWM worked on several rulemakings

to ensure the NPDES program reflects the best possible science and

policy.  

• Proposed Sufficiently Sensitive Test Method Requirement:

OWM submitted, for Office of Management and Budget re‐

view, a final rule codifying that “sufficiently sensitive” test

methods—which can detect and measure pollutants at or be‐

low the respective water quality criteria or permit limits—

must be used for NPDES permit development and for sam‐

pling and analysis requirements in a NPDES permit applica‐

tion process.  

• NPDES “Updates Rule”: OWM made great progress in devel‐

oping a proposed “Updates Rule” to eliminate inconsistencies

between NPDES regulations and application forms, improve

permit documentation and transparency, and provide clarifi‐

cations to the existing regulations.  

• Possible Offsets Rulemaking: OWM explored a regulatory

framework for the use of offsets to meet water quality‐based

effluent limitations and protect water quality standards.

NPDES Permit Writers Training — In FY 2011, OWM con‐

ducted five NPDES permit writers courses, developing new mod‐

ules for mountaintop mining and training materials for permit

writers and permittees in the Caribbean. Most significantly, a web‐

based version of the full permit writer’s training course was

launched, affording greater access and lower cost for both federal

and industry stakeholders.

The State and Regional Branch provides technical and policy support to help implement the NPDES permit program. Through coordina‐

tion with states and EPA Regions, the program guides the consistent and effective translation of water quality goals and standards into

permit limits and conditions. It resolves legal barriers that prevent optimal program implementation and provides proactive and consis‐

tent management of external legal drivers. It also provides timely information on the integrity of NPDES program implementation while

working cooperatively to produce efficient processes and measurable results.    

12 
State and Tribal Water Pollution Control Grants

State and Interstate Water Pollution Control     

Grants — Increasingly, EPA and states are working together to

develop basin‐wide approaches to water quality management. The

Section 106 Grant Program is helping to foster a watershed protec‐

tion approach at the state level by looking at statesʹ water quality

problems holistically and targeting the use of limited finances

available for effective program management. In FY 2011, more than

$193 million in Section 106 grant funding was provided to states

and interstate agencies to help restore impaired water bodies.  

Permitting and Enforcement Funding — Issuing and

ensuring compliance with NPDES permits is a key tool in meeting

water quality goals. Congress directed EPA to provide $10.7 mil‐

lion in Section 106 funding to states and tribes to conduct addi‐

tional permitting and enforcement activities. In 2011, states and

tribes enhanced and supported their permitting and enforcement

efforts using these funds through a variety of activities, including:

increasing the electronic submission of permit applications and

reports, increasing enforcement and compliance assessment activi‐

ties, and drafting and issuing state pesticide general permits.

Tribal Water Pollution Control Grants — For tribes,

Section 106 grants are a crucial, dedicated source of funding for

developing, maintaining, and expanding programs designed to

prevent, control and eliminate water pollution. Tribes began re‐

ceiving Section 106 funds in 1989. Since then, the tribal set‐aside

has grown from less than $1 million to approximately $27 million,

in FY 2011.  

Of the 562 federally recognized tribes, approximately 350 meet the

criteria to receive Section 106 funding, and 67 percent (254) of these

tribes were eligible to receive grants in FY 2011. Tribes across the

country are using Section 106 grants to identify and proactively

address water quality priorities and concerns.   

This year, OWM partnered with the Office of Wetlands, Oceans

and Watersheds (OWOW), Region 6, and Pojoaque Pueblo of New

Mexico to organize a CWA Section 106 and 319 National Tribal

Water Quality conference. This was the first national conference of

its kind—where programs funded by CWA Section 106 and Section

319 will ʺmeetʺ to share goals, knowledge, and lessons applicable

to enhancing the quality of tribal waters. This forum will focus on

tribal water quality by addressing monitoring and assessment,

watershed‐based planning, restoration efforts, and best manage‐

ment practices. A workgroup of 40 people, including EPA head‐

quarters, EPA Regions and tribes, was formed to plan the agenda

and hands‐on field activities to determine water quality and imple‐

ment best management practices. The conference was held Novem‐

ber 11‐14, 2011, at the Pojoaque Pueblo in New Mexico.

State and Tribal Water Monitoring Initiative — Using

approximately $18.5 million per year, OWM and OWOW are work‐

ing with states and tribes to enhance their water quality monitoring

programs and implement a multi‐year statistically valid survey of

the nation’s waters. In FY 2011, states and tribes conducted sam‐

pling and reported water quality monitoring data for the wetland

survey. The monitoring initiative allows EPA, states, and tribes to

continue to report on the condition of the nationʹs waters and make

significant progress toward assessing trends in water condition in a

scientifically defensible manner.

Section 106 of the CWA authorizes EPA to provide federal assistance to states (including territories and the District of Columbia), inter‐

state agencies, and eligible tribes to establish and implement ongoing water pollution control programs. Prevention and control measures

supported by water pollution control programs include ambient water quality monitoring, water quality standards and TMDL develop‐

ment, NPDES permitting and enforcement, advice and assistance to local agencies, training, and public information.  In FY 2011, more

than $238 million in Section 106 funding was provided to states, interstate agencies, and tribes to prevent and control water pollution.  

13 

OWM is partnering with the Environmental Council of States and the Association of Clean Water Administrators to update and quantify

current and future expenditures and resources for the management of state water quality programs, and to quantify the resources needed

to fully implement the Clean Water Act. The new EPA/state task force is updating the 1998 Resource Analysis based on recommendations

from a third‐party review by the National Academy of Public Administrators, which concluded that the effort was well designed and exe‐

cuted. With the results of the review, the task force is moving forward to improve collaboration and cultural learning, fine‐tune tools and

methods for estimating state resource needs, and improve the effectiveness of water quality programs. The resource analysis will provide

critical information on state expenditures and needs for Clean Water Act programs.

State Water Quality Management Resource Analysis
                   Industrial Program  

New Electronic Reporting Tool for Vessels Owners and

Operators – In October 2011, OWM released the electronic one‐

time report system for the Vessel General Permit (VGP). The owner

or operator of each vessel subject to the VGP is required to submit

a one‐time report between 30 – 36 months after obtaining permit

coverage. OWM is requiring this report to ensure that permittees

are complying with the provisions of the permit, learn how owners

and operators are implementing the permit, and gain a better un‐

derstanding about the universe of permittees. This electronic sys‐

tem will reduce the time needed to complete and submit reports

for most permittees.  

Shale Gas Extraction Wastewater Discharge Guidance – In

March 2011, OWM issued a frequently asked questions (FAQs)

document that addresses shale gas extraction (SGE) wastewater

disposal under the NPDES permit program. The FAQs discuss the

wastewater issues and pollutants associated with shale gas extrac‐

tion and how they can be addressed under existing regulations,

including issues associated with permitting, discharges of SGE

wastewater to centralized waste treatment facilities, publicly

owned treatment works, the pretreatment program, and stormwa‐

ter. The FAQs should assist EPA Regions and states in working

with the regulated community to address SGE wastewater.

Outreach on the Pretreatment Program – OWM has expanded

its training functions while educating pretreatment stakeholders by

providing solutions to their concerns through the very popular

Pretreatment 101 Series. In total, almost 6,000 people nationwide

participated in five webinars last year; OWM sponsors these webi‐

nars and OWM staff, along with invited experts, serves as speak‐

ers. The topics have included inspection, compliance monitoring,

pretreatment standards, and local limits. The most popular webi‐

nar reached more than 1,900 participants. In addition to these we‐

binars, OWM staff also spoke at a large number of conferences

across the country related to pretreatment.

Surface Coal Mining – OWM worked with staff in Regions 3, 4,

and 5; the Office of Wetlands, Oceans and Watersheds; and the

Office of General Council to finalize guidance to further clarify and

strengthen environmental permitting requirements for Appala‐

chian mountaintop removal and other surface coal mining projects,

in coordination with federal and state regulatory agencies. The

guidance document, Improving EPA Review of Appalachian Surface

Coal Mining Operations under the Clean Water Act, National Environ‐

mental Policy Act, and the Environmental Justice Executive Order, is‐

sued in July 2011, provides comprehensive guidance to EPA Re‐

gions with permitting responsibility in Appalachian states. The

guidance clarifies existing requirements of the Section 402 and 404

Clean Water Act permitting programs that apply to pollution from

surface coal mining operations in streams and wetlands. In finaliz‐

ing the guidance, OWM considered issues raised in thousands of

comments, information learned from permit quality reviews of

state‐issued permits for surface coal mines and associated adminis‐

trative records, and the view and experience of Regional offices.  

OWM expects the information in the guidance will lead to higher

quality permits and improve the consistency and predictability in

the NPDES permitting process.

Reissuance of the Introduction to the National Pretreat‐

ment Program Manual – In June 2011, OWM reissued the Intro‐

duction to the National Pretreatment Program, updating previous con‐

tent from 1999. The manual provides a brief overview of the pre‐

treatment program, and describes existing requirements for indus‐

trial dischargers and publicly owned treatment works under the

CWA and its implementing regulations at 40 CFR Parts 122, 123,

124, and 403, and chapter I, subchapter N. In association with the

printed material, EPA broadcast the companion webinar, Introduc‐

tion to the National Pretreatment Program, on June 30, 2011.

Understanding the Science of Ballast Water – OWM, in col‐

laboration with the U.S. Coast Guard, is committed to developing a

strong ballast water management program that is based on the best

available science which will reduce the risk of new introductions of

invasive species and, therefore, reduce the risk of further ecological

and economic disruption. As part of that process, OWM and the

U.S. Coast Guard cosponsored two independent scientific stud‐

ies—an EPA Science Advisory Board study evaluating ballast wa‐

ter treatment technologies, and a study from the National Research

Council’s National Academy of Sciences evaluating the risks posed

by ballast water discharges. Both studies were delivered to EPA in

2011. The studies will inform the development of ballast water re‐

quirements in the next Vessel General Permit.

Industrial wastewater discharges may contain pollutants that affect the quality of receiving waters. The industrial program works to pro‐

tect and improve water quality through technology and water quality based permitting of direct discharging industrial sources such as

vessels, coal mines, shale gas extraction operations, and steam electric power plans. These efforts include the National Pretreatment Pro‐

gram, which regulates thousands of industrial operations that discharge into municipal sewage treatment works.  

14 
   Sustainable Communities

U.S.‐Mexico Border Water Infrastructure Program — The

U.S.‐Mexico Border Water Infrastructure Program addresses the

unique public health and environmental challenges characteristic

of the border region by providing drinking and/or wastewater ser‐

vice to sensitive populations on both sides of the border. The pro‐

gram funds the most cost‐effective wastewater treatment facilities

in financially distressed communities. The program has provided

construction funding for 93 water and wastewater infrastructure

projects benefiting 8.5 million people and more than half a million

homes. In FY 2011, EPA completed construction of 13 projects for a

total of 78 completed infrastructure projects. These projects stimu‐

late local economies through public health‐related economic gains,

job creation, and increased demand for goods and services. In

March of 2011, EPA and the Mexican Water Agency, CONAGUA,

approved a standard operating procedures document to facilitate

the implementation of existing program requirements and stream‐

line information management.     

Tribal Programs and Training —The Clean Water Indian Set

Aside (CWISA) and Alaska Native Village (ANV) Infrastructure

Funding Programs, in conjunction with the Indian Health Service,

target federally recognized Indian tribes in the U.S. lacking access

to basic sanitation and safe drinking water. In 2011, the CWISA

and ANV programs supported over 400 drinking and wastewater

projects, affecting over 12,000 homes; over 60 percent of these pro‐

jects addressed first time access to safe water service. To ensure

these investments, OWM developed and adopted a national qual‐

ity assurance plan for high quality data collection and management

of EPA funded tribal projects.

OWM’s construction programs also provide opportunities for

tribal members to develop job skills and support Alaska’s state

training programs, which encourage sustainable management of

systems. In 2011, OWM offered the first tribal training workshops

across the country, designed to train operators and managers of

facilities funded with ARRA funds, protecting that federal invest‐

ment by increasing facility sustainability. The training focused on

operation and maintenance of treatment systems as well as finan‐

cial and managerial capabilities. Over 100 people attended the four

trainings, including 87 representatives from 47 tribes. Each work‐

shop spanned three days and assisted tribes in realizing the full

potential of their water and wastewater infrastructure. Attendees

were eligible to receive continuing education credits. OWM

worked closely with EPA’s Office of Ground Water and Drinking

Water and Indian Health Service (IHS) staff to design and deliver

the trainings. Additional workshops are scheduled in FY 2012

along with the development of online training modules.

Tribal Infrastructure Task Force — The Tribal Infrastructure

Task Force (ITF), an inter‐agency group initiated under an MOA

among the EPA, IHS, U.S. Department of Agriculture (USDA), De‐

partment of the Interior (DOI), and the Department of Housing and

Urban Development (HUD), renewed its commitment to support

increased access to safe drinking water and basic sanitation in In‐

dian Country and defined a broader focus to encourage increased

sustainability of tribal infrastructure. The ITF was created to ad‐

dress U.S. tribes in relation to the United Nations Millennium De‐

velopment Goal to improve access to safe drinking water and basic

sanitation around the world. With this renewed focus, the ITF in‐

vited tribal leaders to join the efforts of the federal partners to in‐

crease sustainable access to safe drinking water and basic sanita‐

tion. 

Improving Management of Decentralized Systems — In FY

2011, EPA’s Decentralized MOU Partnership recruited two new

partner organizations set to join the partnership in FY 2012: the

Centers for Disease Control and Prevention (CDC) and the Na‐

tional Sanitation Foundation (NSF) International. The Decentral‐

ized Wastewater Program also launched a dedicated, online decen‐

tralized wastewater treatment discussion forum to allow partners,

stakeholders, and the public at large to ask questions, collaborate,

and share information on best practices, research, events, and

news. Also in FY 2011, Ohio and Missouri adopted EPA’s Volun‐

tary National Guidelines for Management of Onsite and Clustered

(Decentralized) Wastewater Treatment Systems, bringing the total

number of states that have adopted the guidelines to 16. The guide‐

lines encourage enhanced management of onsite and clustered

wastewater treatment systems and can help communities find cost‐

effective means to meet water quality and public health goals and

protect consumers’ investment in their homes and businesses.   

EPA‐USDA Memorandum of Agreement (MOA) — The

EPA and USDA Rural Development Rural Utilities Service signed a

MOA in FY 2011, Promoting Sustainable Rural Water and Wastewater

Systems, to collaborate and leverage resources towards helping

systems that lack the ability to attain and maintain the technical,

managerial, and financial capacity to reliably and sustainably de‐

liver clean and safe water to their customers and provide wastewa‐

ter services. OWM has implemented an interagency agreement

with USDA in FY 2011 to co‐sponsor a series of three water and

wastewater systems sustainability workshops across the country to

educate system managers on how to effectively and sustainably

manage small and rural water systems and also to receive feedback

on how EPA and USDA can further assist small community sys‐

tems through new and refined tools.  

Many residents of small, rural communities, Indian reservations, and communities along the U.S./Mexico border have insufficient or no

access to basic wastewater services and as a result face increased health risks and substantial economic challenges compared to the rest of

the U.S. population.  The Sustainable Communities Program provides financial and technical assistance so these communities can gain

access to sufficient wastewater treatment, lower their risk of disease and reap the associated economic benefits.

15 
16 

Office of Wastewater Management

1200 Pennsylvania Avenue, NW (4201M)

Washington, DC 20460

EPA  832B12001

January 2012

http://Water.EPA.gov/Resource_Performance

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