Water Systems for Small Communities

A Puzzle Guide for Local Officials
Bulletin 910

Public Communication

Tony Nye, Extension Agent, Clinton County, Ohio State University Extension
Lori Libby, Center for Public Management and Regional Affairs, Miami University
Holly Doughman, USDA-Rural Development
Karen Mancl, Professor Food, Agricultural and Biological Engineering, The Ohio State University

Communicating with the public about water system decisions is one of the most essential tasks of local officials. Water systems are supported and paid for by their customers and members of the community. Since elected officials are judged by the decisions they make during their term of office, effective communication about public water service gives the electorate the information they need to support the water system and the public officials who represent their interests.

The U.S. Congress recognized this need for public communication. When they amended the Safe Drinking Water Act in 1996, they made a minimum level of public communication mandatory. Congress felt so strongly about public communication that they imposed monetary penalties, criminal penalties, and even job loss if a water system fails to keep the public informed.

Public communication is essential and beneficial in four instances.

1. System planning—Customers and the general public benefit from being informed and involved in water system planning. As a water system improves and grows, decisions must be made about who will be served, placement of hydrants and storage tanks, land acquisition, easements, and levels of water treatment. At a minimum, customers and the general public appreciate being informed about the decisions being made. Some individuals will feel strongly about a particular decision and demand to be involved. While public hearings may be required by law to announce decisions being made on the expenditure of federal or state funds, public hearings are a poor mechanism for public communication. Instead, include a wide variety of interests early in the planning and decision making processes through brainstorming sessions, group discussions on the merits and limitations of all planned improvements, and community surveys. Customer complaints and the risk of legal action can be replaced by public support for the water system if customers have an opportunity to give meaningful input.
2. System maintenance—Keeping customers and the general public informed when planned water system maintenance is going to occur avoids problems and upset. Road closures or interruptions in service can be tolerated if individuals are notified and can plan for the inconvenience.
3. Drinking water quality—Customers are understandably interested and in some cases concerned about the quality of their drinking water. Congress required in the 1996 amendments to the Safe Drinking Water Act that water systems prepare an annual report for all of their customers about the quality of their drinking water. These Consumer Confidence Reports, while a legal requirement, if properly done can help build support for the public water system. The American Water Works Association (AWWA) has developed some tools to help small communities produce a Consumer Confidence Report that not only meets the legal requirements, but also helps present the information in a positive way. Contact AWWA at 800-366-0107 to learn more about these tools. Ohio EPA also provides guidance at www.epa.state.oh.us/ddagw/ccr.html/.
4. Emergencies—Congress also requires through the Safe Drinking Water Act that public water systems notify customers when health risks occur. Congress ordered the U.S. Environmental Protection Agency to set minimum drinking water standards to protect the public health. If required tests reveal that a water system exceeds one of these standards they must notify the public. Since the severity of these violations varies, three levels, or tiers, of notification requirements have been developed.

Tier 1—If short-term exposure presents significant potential for serious human health effects, customers must be notified within 24 hours.

Tier 2—If long-term exposure presents significant potential for serious human health effects, customers must be notified within 30 days.

Tier 3—Any other violations that do not directly affect human health must be included in the annual Consumer Confidence Report.

Methods of Communication

A range of interests in a public water system will be evident in any community. Some people will want to know details of decisions being made, while others will show little interest in their water system until a problem occurs. People also have preferences in how they receive information about issues that concern them. Keeping differences and preferences in mind, a variety of communication mechanisms are needed to effectively keep the public informed.

When developing a public communication plan, include the following considerations:

• The importance and value of safe drinking water in the community should be stressed and communicated frequently. For example, many people may not appreciate how many jobs are tied to reliable water service. Express how planned improvements will better protect public health or safety, increase reliability, and/or increase service.
• Keep initial messages about water system plans and issues short. Pictures can have a greater impact than written words. When communicating with the public, use simple graphs, diagrams, and photographs to help illustrate key points.
• Opportunities to learn more or how to get involved should be communicated to the public. A small, often vocal, percentage of people will want to take advantage of these opportunities. Forming a community advisory group is one mechanism to discuss upcoming issues, seek advice, build support, and help get the word out about the accomplishments of the water system.
• Use a variety of media to communicate with the public. Not everyone will see an article published in a local newsletter or posted on a community bulletin board, but everyone might see a notice in the water bill. Door-knob hangtags are a good method of notifying customers of upcoming maintenance activities that might close a street or interrupt water service. Think about where people in your community have time to study a notice on their water system. Programs at school events, paper placemats in local restaurants, or signs near busy intersections can be tools in getting information to the public. Also think about when and where people use water. Yard signs can help explain lawn watering recommendations as a part of a water conservation program. Small signs in bathrooms in public buildings can point out the benefits of improving water treatment. Signs near local ponds and lakes can stress the need to protect a water source or the need to develop fire protection systems.

Remember, legally required public communication for emergency notification, Consumer Confidence Reports, and public hearings are only the minimum communication that should occur between a water system and its customers. Responding to public concerns about their right-to-know, Congress mandated public communication for all community water systems. To gain public support, water system managers must go farther than what is required to sustain a safe, reliable water system in any community.