Copyright 1999 Federal News Service, Inc.
Federal News Service
OCTOBER 20, 1999, WEDNESDAY
SECTION: IN THE NEWS
LENGTH:
2956 words
HEADLINE: PREPARED STATEMENT OF
DR.
NORINE E. NOONAN
ASSISTANT ADMINISTRATOR FOR RESEARCH AND DEVELOPMENT
ENVIRONMENTAL PROTECTION AGENCY
BEFORE THE HOUSE
COMMERCE COMMITTEE
HEALTH AND ENVIRONMENT SUBCOMMITTEE
BODY:
INTRODUCTION
Thank you, Mr.
Chairman, for providing this opportunity to address the Committee today
concerning the Environmental Protection Agency's (EPA) drinking water research
program. We would like to update you on the status of our research program to
support the implementation of the Safe Drinking Water Act (SDWA) Amendments of
1996. We would also like to share with you the activities that have been
initiated in recent months to assess future drinking water research needs and
resource requirements, to improve internal tracking mechanisms, and to further
strengthen our interactions with stakeholders.
The Amendments of 1996
identified a wide range of critical research requirements to improve the
scientific foundation for decisions to protect the health of both the general
public and subgroups that may be at greater risk than the general population.
EPA has responded to these needs by establishing drinking water as one of our
highest priority research programs. The annual investment in drinking water
research in the Office of Research and Development has essentially doubled from
a level of $20.8 M in 1995 to $41.5 M in the FY 2000 President's Budget.
Research partnerships with outside research entities have been strengthened, and
a strict adherence to the peer review process has been followed for all research
plans and scientific products developed by the Office of Research and
Development. These and other measures discussed below have enabled the Agency to
improve the science and technologies needed to support priority rule makings and
risk management decisions required by the 1996 SDWA Amendments.
RESEARCH TO
SUPPORT PRIORITY REGULATORY ACTIVITIES
EPA has been highly successful in
addressing the critical near-term research needs and requirements of the 1996
Amendments. A targeted research program has been implemented with an emphasis on
health effects, analytical methods and exposure, risk assessment and risk
management research. Research priorities have also been addressed through the
use of interagency agreements, cooperative agreements, and grants with such
federal and non-federal entities as the Centers for Disease Control and
Prevention, the National Institute for Environmental Health Sciences, the U.S.
Geological Survey, the American Water Works Association Research Foundation, and
universities across the country.
Research on Microbial
Pathogens and Disinfection By-Products
EPA's research
activities on microbial pathogens and disinfection by-
products (DBPs) in drinking water are consistent with the highest
priorities identified in the Research Plan for Microbial
Pathogens and Disinfection By-Products in Drinking Water. This
research program represents hundreds of projects to support more informed risk
management decisions for the Stage 1 and Stage 2 DBP rules and the new
microbial rules that apply to surface water and ground water.
Microbial Pathogens
EPA research on waterborne
pathogens in recent years has provided new information and methods to better
characterize and control the risks posed by microbial
contaminants in drinking water. Studies to determine the infectious dose of two
important waterborne pathogens, Cryptosporidium and Norwalk virus, have
demonstrated that exposure to low levels of these agents in drinking water may
cause infection in healthy humans. Less conventional treatment methods such as
membrane filtration and alternatives to chlorination have been evaluated to
determine their effectiveness in removing or inactivating waterborne pathogens.
New technologies have been developed for increasing the operational efficiency
of treatment processes to control microbial and chemical
contaminants, and new methods for monitoring and predicting
disinfectant concentrations in the distribution system have
been developed to help ensure the safety of drinking water delivered at the tap.
Current areas of emphasis include research to determine the nature and magnitude
of waterborne disease in the U.S., and the development of simple inexpensive and
accurate detection methods for well-known waterborne pathogens such as
Cryptosporidium and for emerging pathogens such as microsporidia. EPA
researchers are also evaluating the effectiveness of water treatment systems for
small communities, and are conducting research to better understand how
microbial intrusion into the distribution system occurs and can
be prevented.
Disinfection By-Products
EPA has been a
leader in development of an expanding scientific data base to assess DBP health
effects. New and improved tools for conducting toxicology and epidemiology
research on these substances are being applied to better understand the
mechanisms by which effects occur in laboratory animals and humans, and to
characterize the nature and magnitude of the problem in both the general
population and in subpopulations that may be more susceptible to harm. In
addition to the long-standing research program addressing the carcinogenic
potential of DBPs, a major new investment has been made to better understand
whether adverse reproductive, immunological, or neurologic effects may also be
of concern.
As with microbial issues, DBP methods
development is an essential focus both to improve occurrence information, and to
expand our knowledge about what DBPs are formed from different treatment
processes. To address these needs, EPA is developing analytical methods to
support large-scale exposure surveys and facilitate regulatory compliance
monitoring. Researchers are applying highly sensitive analytical techniques to
identify previously uncharacterized by-products that are formed
with the use of alternative disinfectants. EPA is also
conducting a range of studies to determine the effectiveness of various
treatment processes in minimizing and controlling the formation of DBPs, with a
special focus on the needs of small systems.
Finally, I am pleased to report
to you on the success of the largest data collection effort in the history of
the drinking water program, commonly referred to as ICR (Information Collection
Rule) data. Working closely with industry and other stakeholders, we have
recently completed 18 months of data collection from 500 plants across the
country. These data provide essential new information on source water, treatment
train, and distribution system concentrations of DBPs and pathogens. The data
represent over a $130 million investment in good science by the drinking water
industry and will play a central role in the ongoing development of Stage 2 DBP
and microbial public health measures.
Research on Arsenic
The Safe Drinking Water Act Amendments of 1996 mandate that EPA promulgate a
new regulation for arsenic by January 2001, and develop a plan for long-term
research. The Agency's peer reviewed Research Plan for Arsenic in Drinking
Water, which describes both short-term and long-term research activities to
address key areas of scientific uncertainty, has guided the planning and
implementation of research conducted by EPA scientists as well as by outside
investigators.
Researchers at EPA are conducting studies to better
characterize the toxicity of arsenic and the factors that influence human
susceptibility. Improved analytical methods are being developed to better
distinguish toxic forms of arsenic in the diet and in biological materials.
Another important area of research is the evaluation of cost-effective treatment
technologies for small water systems.
We are pleased to report that EPA has
completed or is on schedule to complete all of the short-term research that we
made a commitment to finish in the Research Plan for Arsenic in Drinking Water.
The EPA will consider the existing information on health effects, exposure and
risk management, along with new information that is available, as we assess the
risks and evaluate treatment options in support of a new rule for arsenic by the
statutory deadline in 2001. As a practical matter, research initiated in late FY
1999 and in FY 2000 by EPA and outside sources will not be available in time to
inform the final rule making in 2001. This is because of the long-term nature of
some of the more complex research issues, particularly in the area of the health
effects of arsenic at low doses. Many of the projects conducted or financed by
EPA and outside organizations are long-term research activities that will
support the required review and revision, as appropriate, of the arsenic
standard subsequent to the establishment of a new rule in 2001.
Research on
the Contaminant Candidate List
The Contaminant Candidate List (CCL) was
established by EPA, with considerable involvement of outside technical groups
and the stakeholder community, to aid in priority setting for the Agency's
drinking water program. A number of contaminants on the CCL have already been
identified as having sufficient data available, or limited data needs that can
be quickly addressed. Regulatory determinations for the August 2001 statutory
deadline will be made on contaminants selected from this category. Many other
chemicals and microbial pathogens on the list may require
additional data on health effects, monitoring methods, treatment or occurrence
before a regulatory determination can be made.
The EPA has completed a draft
CCL research plan that has been shared with stakeholders in a collaborative
effort to identify and prioritize research needs (see additional discussion
about stakeholder involvement below). Although the plan will not be finalized
until mid- 2000, research on a number of critical contaminants on the CCL (e.g.,
MTBE, perchlorate, and waterborne microbial pathogens such as
Norwalk virus) is already being conducted by EPA or collaborating institutions,
and general solicitations have been made under the Agency's external grants
program. In the FY 2000 drinking water research program, there is an increased
emphasis on addressing needs for CCL contaminants in the areas of health
effects, analytical methods, treatment and occurrence, following the priorities
outlined in the CCL research plan that is currently under development.
Research on Subpopulations at Greater Risk
The 1996 SDWA Amendments
emphasize the importance of research to identify and characterize groups that
may be at greater risk than the general population of adverse health effects
from exposure to contaminants in drinking water. EPA is addressing this issue by
developing health effects data in laboratory animals and conducting assessments
in target populations (e.g., pregnant women and infants) that are exposed to
chemical contaminants and waterborne pathogens. Studies are being conducted to
evaluate biological factors, such as differences in metabolism, that may be
responsible for greater susceptibility in selected subpopulations. Research is
also directed at improving estimates of exposure to the general public and
special subpopulations, using a more comprehensive consideration of such factors
as personal activity factors and exposures through the diet. As required by the
1996 Amendments, these research activities will be summarized in a Report to
Congress that will be submitted by August, 2000.
RESEARCH PLANNING AND
BUDGETING
EPA has an extensive, coordinated research planning process that
involves a comprehensive consideration and prioritization of all of the Agency's
research needs, including those to support drinking water decision making. This
process ensures that the media-specific needs of one regulatory program are
considered in the context of the needs identified by other programs, and that
the areas of greatest need, such as drinking water, are given the highest
priority. The Office of Research and Development works in close partnership with
the Office of Water, as well as in consultation with scientific advisory groups
and stakeholders, to evaluate and prioritize research needs. Planning activities
are closely linked to the annual budget cycle. A new multi- year planning effort
for drinking water has been initiated to link strategic, long-term research
priorities with annual planning and budgeting.
Peer reviewed research plans
and strategies provide a basis for planning and monitoring the progress of
research on important programs such as drinking water. As described above,
research plans have been finalized for M/DBPs and arsenic, and the CCL research
plan will be finalized by mid-2000. A comprehensive research strategy that
describes near- and long-term research needs for M/DBPs, arsenic, CCL
contaminants, the review of existing standards, and other emerging issues will
be completed by the end of 2000. The strategy will be used to guide discussions
within the EPA and with stakeholders concerning research needs and resource
requirements for the entire drinking water research program.
Yearly budget
requests for drinking water reflect a careful analysis of the highest priority
research needs, considering EPA's need for research across all environmental
activities (e.g., Clean Air, Clean/Safe Water, Children's Health) and keeping
balanced budget constraints in mind. EPA has determined that the level of
funding for drinking water research that was received in FY 1999 and requested
for FY 2000 is sufficient to meet the near-term regulatory requirements. The
Agency is committed to ensuring that the budget request for FY 2001, which is
currently being developed by the Administration, will also adequately address
the highest priority research needs.
RESEARCH TRACKING
The EPA uses a
comprehensive system to ensure fiscal controls and to track resources at the
research project level. The management information system developed by the
Agency was designed to produce accurate and timely reports for use by the Office
of Research and Development's laboratories and centers according to:
(1)
fiscal year; (2) goal (e.g., air, water, waste); (3) program results code; (4)
organization; (5) research area; and (6) task. The system was not designed to
track resources by individual regulation. Recognizing the importance of research
to future drinking water regulatory decisions, EPA is currently examining ways
to provide information that is more closely aligned with the rule making efforts
so that we can better track and communicate the status of our priority drinking
water research activities that will feed into the regulatory decision making
process.
INVOLVEMENT OF STAKEHOLDERS
EPA places a high priority on
sharing information with stakeholders regarding the status and plans for
research on drinking water contaminants. Representatives from EPA participate
regularly in numerous stakeholder meetings and other public events to share
information on research that is being planned or conducted in support of the
Agency's rule makings. In addition, EPA staff work closely with other federal
agencies and serve on numerous research coordination committees and advisory
groups with stakeholder groups. These efforts offer opportunities for more
coordinated utilization of resources and to ensure that research conducted or
supported by these organizations is complementary, not duplicative.
EPA is
taking steps to further strengthen these interactions to ensure that all groups
are fully informed and have an opportunity to provide input concerning research
needs and activities. One recent example of a highly successful effort to
involve stakeholders early in the research planning process was the Drinking
Water Research Needs Workshop, co-sponsored by EPA and the American Water Works
Association Research Foundation on September 27-29, 1999. The goals of this
expert workshop, which involved participants from the water industry, academia,
various government agencies and the private sector, were to: (1) identify and
prioritize the research needs related to unregulated drinking water
contaminants; (2) describe the proper sequencing for the studies; and (3)
develop resource needs estimates. Contaminants on the CCL were the major focus
of the workshop, and EPA's draft CCL research plan was used as a starting point
of the discussions. The EPA considers this workshop to be a excellent model for
involving stakeholders early in the process of identifying and prioritizing
research needs relating to future drinking water issues.
ENSURING SUCCESS IN
MEETING THE RESEARCH CHALLENGE
EPA has made considerable progress in meeting
the research challenges posed by the 1996 Amendments. We have significantly
increased the research budget for drinking water over the past five years. We
have developed peer reviewed research plans to guide research supporting the
current major rule makings, and we are developing new research plans to support
future regulatory activities. EPA has initiated a new multi-year planning effort
for drinking water research that will facilitate the linkage of strategic,
long-term research planning to the yearly budget cycle. We have conducted and
are now refining a comprehensive resource needs assessment to address future
requirements. A priority has been placed on strengthening partnerships with
outside research entities and involving the academic community in helping to
address critical research needs. We have made extensive efforts to share
information with stakeholders about the status and plans for research to support
drinking water regulations, and we have initiated new activities to make further
improvements in this area. Taken together, these measures have enabled us to
successfully meet the near-term needs and requirements of the 1996 Amendments,
and will position us to meet the challenge of providing a sound scientific
foundation for future drinking water regulatory decisions.
END
LOAD-DATE: October 23, 1999
