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!