Water Resources Research CenterUniversity of Arizona

April 29, 2020

Tucson Water Turnaround: Crisis to Success

Marie S. Pearthree, P.E.Michael J. McGuire, PhD, P.E.

2

Outline

• Conversion from GW to CAP water• Organizational Issues• Water Treatment• Distribution System• Debacle• Turnaround and Success• Lessons Learned

We are presenting Tucson’s story and have written a book about it so that this does not happen again—anywhere, as it did in Flint, MI and now in Newark, NJ.

Objectives

• Present policy decisions by the Tucson City Council that caused many of the problems• Explore the lack of technical planning and

management errors made by Tucson Water before and during the colored water crisis in 1992-94• Show how a successful management team

turned failure into a singular success• Present the “lessons learned” that are

applicable to any utility or organization3

Sources of Information

• Thousands of documents

• Over 50 interviews with people who were there

• Secondary sources• Interviews with

corrosion experts

4

From the beginning…

Tucson was a groundwater utility prior to arrival of the Central Arizona Project

However, groundwater levels were dropping drastically. A sustainable water source had to be found.

CAP Timeline

• 1973--Groundbreaking• 1985--Water arrives in

PhoenixPhoenix

Tucson

• 1991--Water delivered to Tucson area

• Nov. ‘92--Water served to Tucson customers

• 1968--Congress approves CAP

CAP and GW Quality

7

ParameterMedian Raw

CAP (a)Median Groundwater

(b)

pH, units 8.3 7.6

Total Dissolved Solids 691 276

Hardness 330 110

Sodium 105 37

Sulfate 295 33

Chloride 92 12

Nitrate 0.07 0.9

Iron 0.08 <0.05

Manganese 0.01 <0.05

Fluoride 0.34 0.3

Total Organic Carbon 2.9 0.24

(a) Median Values Colorado River at Lake Havasu, MWDSC, 1977-83(b) Median Values, Interior Tucson Wells, 1950-1981Source: Tables 4-1, 4-2, 4-3, Tables 2-5, 2-9 (MJB 1983)Units, mg/L except as noted

Tucson Water Table of Organization, 1990-94

8

Tucson Water Table of Organization, pre-1988

9

Wat

er Q

ualit

y

Engi

neer

ing

Plan

ning

Wat

er

Dis

tribu

tion

Wat

er

Prod

uctio

n

Dire

ctor

Fran

k Br

ooks

Asst

. Dire

ctor

Tucson Water Table of Organization, 1990-94

10

Plan

ning

Engi

neer

ing

Trea

tmen

t

Asst

. Dire

ctor

Asst

. Dire

ctor

Dire

ctor

Mik

e Tu

bbs

Wat

er Q

ualit

y

Managing the Conversion

11

• Not one manager in Tucson Water had ever converted a groundwater utility to a mixed surface water/groundwater system. Not one.

• What does a utility do in this situation?Hire the best consultants it can find.

• Two top-level joint ventures were contracted:• Montgomery-Johnson-Brittain, 1981-84,

to work with the community to set finished water quality

• Carollo, Black & Veatch, 1985-1994, to design and build the treatment plant

Tucson’s Disastrous Relationships with Consultants

• Consultants were viewed as the “enemy”by some Tucson Water managers

• Montgomery-Johnson-Brittain was fired

• Carollo, Black & Veatch was sued after WTP completion

• David Johnson, the project manager for the design of the WTP, called the design consultant “avaricious”

• He personally rejected recommendations for studying impacts of CAP water on distribution materials

12

Plea for Distribution Studies

• On numerous occasions in the 1980s, Carollo, Black & Veatch practically begged Tucson Water to authorize them to study the impact of CAP water on the distribution system.

13

Disastrous Policy Decision

• On May 29, 1984, the Tucson City Council adopted a THM goal of 20 µg/L

• Existing THM MCL was 100 µg/L

• Drove the design of the WTP

• Consequences were severe

14

:[

TUCSON WATER TREATMENT PLANT PROJECT

PH ASE I PRELI MINARY INVESTI GATION S

WATER QUALITY OBJECTIV E REPORT

(TASK 1.2)

M ONTGOMERY - J OHNSON - B RITTAIN

I~ A JOINT VENTURE

I James M. Montgom<.>ry. Johnson-Brittain

11 Consulting Engineers. Inc. & Associates. l"l'l,c.

Hayden-Udall Water Treatment Plant

• Tucson Water wanted a “Ferrari:” a cutting-edge ozone/direct filtration/chloramine treatment plant

Tucson Water chose the DIRECT FILTRATION plant

• Montgomery-Johnson-Brittain strongly recommended a conventional plant with sedimentation basins - a typical design to treat Colorado River Water

16FiltrationSHPS

Sludge Drying Beds

Used Backwash Treatment

CAP Canal, Pipeline

Cl2 CuSO4

Alum

URWI

SHPS Forebay

Cl2, NH3 NaOH ZnOPO4

Flocculation

FeCl3

Flash, Rapid Mix

Cl2

O3

Clearwell Reservoir

Clarifier

Thickener

Tucson Distribution System

Hayden-Udall Water Treatment Plant

PAC

LRWI

RWPS

Cl2 Polymer

150 mgd

November 1992: Direct Delivery of CAP Water Began

17

Tucson CAP Service Area and Colored Water Area

18

A J

CAP SERVICE AREAS IC] CAP SERVICE AREA

Note: Boundaries are approximate.

CAP Service AreaColored Water Area

200 Miles of Galvanized Steel Pipe in the DS

19Main replacement funding kept being stripped from

Tucson Water’s budget by the City Council

Treatment Plant: Effluent pH, 1992-94

206.5

7

7.5

8

8.5

9

11/4/92

11/24/92

12/14/92

1/3/93

1/23/93

2/12/933/4/93

3/24/93

4/13/935/3/93

5/23/93

6/12/937/2/93

7/22/93

8/11/93

8/31/93

9/20/93

10/10/93

10/30/93

11/19/93

12/9/93

12/29/93

1/18/942/7/94

2/27/94

3/19/944/8/94

4/28/94

5/18/946/7/94

6/27/94

7/17/948/6/94

8/26/94

9/15/94

pH, u

nits

Treatment Plant: ZnOPO4 Dose, Zn Residual, 1992-94

210

0.5

1

1.5

2

2.5

3

3.5

4

4.5

11/4/92

12/4/921/3/932/2/933/4/934/3/935/3/936/2/937/2/938/1/93

8/31/93

9/30/93

10/30/93

11/29/93

12/29/93

1/28/94

2/27/94

3/29/94

4/28/94

5/28/94

6/27/94

7/27/94

8/26/94

9/25/94

ZnOP

O4 D

osag

e, p

pm; Z

n Re

sidua

l, m

g/L

ZnOPO4Dose

ZnResidual

November 1992 to September 1994

• CAP turned on• Complaints begin• The stonewall era• Political solutions• Bifurcation• Continued

complaints• CAP turned off

22

Total Monthly Color Complaints

0

200

400

600

800

1000

Nov

-92

Jan-

93

Mar

-93

May

-93

Jul-9

3

Sep-

93

Nov

-93

Jan-

94

Mar

-94

May

-94

Jul-9

4

Sep-

94

Nov

-94

Jan-

95

Mar

-95

May

-95

Jul-9

5

Sep-

95

Nov

-95

Jan-

96

Mar

-96

May

-96

Jul-9

6

Sep-

96

No. o

f Com

plai

nts

per M

onth

CAP Turned Off

23

The Treatment Plant

24

Since that date, the surface water treatment plant has been rusting in the

sun

The Biggest Mistake a Water Utility Manager Can Make

• For the love of heaven, don’t say this…

“The water meets all federal and state drinking water standards.”

25

• When faced with this…

Why?

Turning Point: Public Apology, 5/27/97

• We’re Sorry…• A few years ago,

Tucson Water let you down

• We want to take responsibility for serving discolored water and apologize to each and every one of you.

26

"AT THE TAP"

Dear Tucson Water Customers,

We're SornJ. .. A few yeilrs ago, Tucson Willer let you down. The decisions Tucson Water manilgement made about the delivery of CAP water failed to meet the one standard that we should hilve been focused on all along - the quality of the waler in your homes ilnd businesses.

In 1993 and 1994, some of the water we delivered WilS discolored or smelled ilnd lasted bad - we want to take responsibility for serving thilt water and to apologize lo each and every one of you.

Today we' re announcing a different approach to the way we serve you. We're going to look at Willer "At the Tnp." We Wilnt lo work together with you lo determine what's importilnt lo you in your water and how to deliver a product that's acceptable to you in both quality and price. To assist us in this program, we've assembled a team of experts in water quality, corrosion control, waler treatment, and taste and odor. You'll be hearing and seeing a lot more in the future about what we're calling "At the Tnp" - the Customer Focus on Waler Quality Program . Watch for ilnnouncements ilnd updates about the program and how you can participate, in future waler bills, on television, in the newspaper, and elsewhere. For more information, contact us at 791-4331.

T 9 C: a O N

WATER

Estimados Clientes de Tucson Water,

Lo Sentimos ... Hace unos aiios, Tucson Water le fa\16. Las decisiones que la administracion de Tucson Water tomo sobre la entrega del agua del CAP fallaron en cumplir con la norma en la que tenfamos que habemos concentrado -la calidad de! agua en sus casa y en sus negocios . En 1993 y 1994, parte del agua que enlregardo estaba descolorida o oHa y sabfa mal - queremos asumir la responsabilidad por haber entregardo esa agua y pedirles disculpas a cada uno de ustedes.

Hoy anunciamos un enfoque diferente a la forma en que le servimos a usted. Vamos a tomar en consideracion al agua "De La Unt1e" (At the Tap.) Queremos colaborar con usted para determinar que es imporlante para usted y c6mo entregar un producto que pueda usted aceptar tanto en cuanto a su calidad como a su precio. Para ayudamos en este programa hemos reunido a un equipo de expertos en la calidad del agua, control de la corrosion, tratamiento del agua, saber y olor. En el futuro usted verA y oir.i mucho mas sobre lo que llamamos HDe Lt1 Llm,c" (At the Tnp) - el Programil del Enfoque del Cliente en la Calidad del Agua. Este pendiente de los anuncios y bolelines informillivos las proximas facturas del aguil, en Iii television, en el peri6dico y en otros lugares sobre el programa y c6mo puede usted participilr. Para mAs informacion llame al 791-4331.

§ ........ For more information contact us at 791-4331

111'5011 TrY#791-2639 City 0JT11cson tvrb silt /11/p://lvww.ci.11,cson.az.1.;

3-E---------------------------------------------------------------------We Need Your Help Necesitamos su ayuda You"'."' help us bqitn ou_r •,u lht T•p· progr•m by romploting lhls Pu«le u,le<l ayud.unos • commur el prognma ·o, LA LJap,• CAI t~, Tapl quC>llonnalte and tttumsng It along wnh your next waler blU. llenAndo esle cuestionono y drvolvihldolo jwllo con el p•go de su pnl,im., f•ctura

dol •gu• -We""' planning to publbh regular water qu•llty updotC>. What information would you he thee upi!otes lo ronwn7

Q O,lorine Q Hardne,.s OSodtum a Bactm• QC>thtt --- - - --- - - - -- - ---Do you hAve Myothorcomments7 __ __ ___ _ __ _

Major ams slrtt\S do,est to your hocne or business?

l'lane•mos publlcar n,gul•= bolc,tinn Worm,tlivos de la calldad <kl •gua . ;_Que informadon quien, ustod qllO contengan estos bolet.lnes inlormath·os7

OCJom QOUo _ ___ __ ___ _ ____ _ ____ _

,nene usted algun otro comenlario1 - --- -- --- -- -

,CuAI es el prinOp,,l cnott de callC> m.ls pnldmo • su domiclio o nqociot

Bench-Scale Corrosion Studies

27

Total Mass Iron, mg

Pilot-Scale Studies

• Pilot-scale studies included to determine non-corrosive, future water quality.

• Result: A blend of recharged CAP water and GW, pH of 8.2 and polyphosphate corrosion inhibitor

Customer Input on Water Quality

• Flavor Profile Analysis with expert panels, customers and the media

• Determined optimal blend for subsequent large-scale, public studies

Beginning in 1996—Central Avra Valley Storage and Recovery Project

30Tohono O'odham Nation

Shuk Toak District

IronwoodForest

NationalMonument

Saguaro National ParkWest Unit

98 Farm

WallisFarm

Cactus Mile Wide Farm

Cactus Mile Wide Farm

Davison Farm

WallisFarm

NSA

NDA

RIO

RD

N SAN JOAQUIN RD

W MILE WIDE RD

CAP DeliveryPipelineTurnoutControlBuilding

CAPBrawleyPumping

Plant

PRV Facility

Reservoir

BoosterStation

Tohono O'odhamTribal Property

CA-008A

CA-005A CA-004A

CA-003A

CA-002ACA-001A

AF-040B

AF-039B

AF-038BAF-037B

AF-036B

AF-034B

AF-031B

CA-017A

CA-015A

CA-014A

CA-013A

AF-032B

CA-016ACA-012A

CA-010A

CA-011A

CA-006A

CA-007A

CA-009A

CA-019A

CA-018A

Black Wash

Braw

ley

Was

h

14S11E07

14S11E06

13S11E31

14S11E08 14S11E09

14S11E05

13S11E32

14S11E04

13S11E33

13S11E30 13S11E29 13S11E28

14S11E16

14S11E17

WR-421B

WR-420A (MW)WR-419B (PZ)

WR-418A (MW)WR-417B (PZ)

WR-416A (MW)WR-415B (PZ)

WR-414A (MW)WR-413B (PZ)

WR-412A (MW)WR-411B (PZ)

WR-316A

WR-315A

WR-314A

WR-267AWR-266A

WR-264A

WR-262A

AF-040A

AF-039A

AF-036A

AF-032A

AF-031A

RB-101RB-101

RB-102RB-102

RB-105RB-105

RB-106RB-106

RB-104RB-104

RB-107RB-107

RB-108RB-108

RB-111RB-111

RB-103RB-103

RB-109RB-109

RB-110RB-110

Central Avra Valley Storage and Recovery Project

TucsonCAVSARP

0 0.50.25

Miles

ExplanationTucson Water Wells

Potable Recovery WellMonitor Well (MW)Piezometer (PZ)

CAVSARP Boundary

CAP CanalCAP AqueductMajor RoadMajor Wash

Recharge Basin

Section Grid

City of Tucson

Arizona State Land Department

US Bureau of Land Management

CAP Water Delivery PipelineGroundwater Recovery Pipeline

US Bureau of Reclamation

Private Parcel

US National Park ServiceTohono O'odham NationUS Bureau of Indian Affairs

Property Ownership

Tucson Water Farm Property

LOCATION MAP

Ambassador Neighborhoods Program

31

Blend Water Recharged CAP

Groundwater CAP

Groundwater Well

Transport Water

Deliver Water

21,000 Gallon Tank

Bottled Water of CAP/GW Blend

32

A New Water Team in Town

David ModeerOpen, approachable, teambuilder, strategic thinker, truth teller/believable, the face of Tucson Water

Hundreds of TW volunteers at events; Speakers Bureau; Info Van; PSAs; newsletters

Built partnerships in the community: Southern Arizona Leadership Council, UofA, businesses, organizations

Instituted real-time water quality information program for the public

Defeated even more restrictive 1999 Proposition

33

On May 3, 2001, the Clearwater Facility was put into operation

34

Outcome

35

• Water quality goals have been met.

• Tucson’s primary drinking water supply is

now Colorado River Water.

• Tucson Water has banked excess CAP

water for the future.

• Groundwater pumping has been curtailed

(over 80 wells shut down) reducing the risk

of land subsidence.

• Tucson has become one of the more

drought-resistant cities in the Southwest.

Ultimately, this is a success story.

If you think Tucson is unique….

Think again. These utilities have all experienced corrosion issues, customer outrage, and in some cases serious public health disasters.

Washington, D.C., 2001 Longview, WA, 2013Oklahoma City, OK, 2003 Flint, MI, 2014Fresno, CA, 2004 Woodland, CA, 2016Beijing, China 2008 Newark, NJ, 2018

36

Lessons Learned

1. Consultants are your partners—not the enemy.2. Leading edge can be the “bleeding edge.”3. Stringent water quality goals can have severe,

unintended consequences.4. Listen to your customers.5. Sampling customer opinion is fraught with

problems. 51% is not a mandate.6. Listen to your critics no matter how obnoxious.7. Develop a comprehensive customer complaint

database.

37

Lessons Learned (cont.)

8. Do the technical and public information work if you change supplies or treatment.

9. Break down management silos. If necessary, start firing and transferring people until they get the message.

10.If you are not out with your employees learning what they do and what their problems are, find another line of work.

11.If you do not take care of crumbling infrastructure, it will come back to haunt you. March on City Hall and demand funding.

38

An Example of Marching on City Hall

39Copyright: The Simpsons

Lessons Learned (cont.)

12.Do not lie to your customers or policy makers. Lies will break you. Transparency matters.

13.Communicate with your staff, customers, and policy makers until they get tired of hearing from you.

14.Always give the credit to someone else.15.Hire people who are smarter than you are.16.Be honorable.17.Be courageous and do what is right.

40

Lessons Learned (cont.)

18.Show up at every major pipeline break or service interruption; not just for the photo op. Get into the trench. Walk the pipe.

19.Redundancies in water supplies and treatment processes are gifts that never stop giving.

20.Celebrate success.

41

Senior managers as barbeque servers to TW staff

If you want to know the whole story…

• Read our book “Tucson Water Turnaround: Crisis to Success”

• Published by AWWA• Available from the

authors, Amazon and AWWA

42Thank you!