On-Site Wastewater Treatment System Self-Help Loan Project
for the Colonias of El Paso County, Phase B:
Summary of the STEP II Application Submitted to the
Last update (July 3, 1996)

Type of Project: Wastewater Treatment (On-site)

El Paso County is home to more than 635,000 residents. According to the latest figures from the Texas Water Development Board (TWDB), an estimated 72,754 persons in the county live in 151 subdivisions known as Colonias. The TWDB defines colonias as residential subdivisions in which: 1) water or wastewater treatment service are inadequate to meet the minimal needs of residential users, 2) financial resources are inadequate to satisfy minimal water and wastewater service needs, and 3) there are at least five housing units.

This project is designed to implement a $110,000 annual on-site wastewater treatment loan and self-help construction project so that 250 colonia families can help themselves over a five-year period in three different areas of El Paso County. This project builds upon an existing program run by the non-profit community action group EPISO (El Paso Interreligious Sponsoring Organization) and is considered the second phase (Phase B) of the project.

EPISO has been an effective and organized organization that has represented colonia residents in El Paso County over the last 15 years and has taken a leading role in trying to make loan programs more useful, less costly and accessible. Due to their frustration with a nearly three-year delay in the implementation of a $2 million Colonia Plumbing Loan Program grant for El Paso by the Rio Grande Council of Government to become "available" EPISO began to conduct house-to-house visits to discuss setting up their own program to install septic tanks in colonias.

Assisted by a $20,000 grant from Levi-Strauss, and a partnership with the University of Texas at El Paso's engineering students and its Center for Environmental Resource Management, EPISO has now successfully built ten septic tanks, mainly in San Elizario and the outlying areas of Socorro. EPISO considers this part of the project to be Phase A.

The present proposal (Phase B) is intended to build on EPISO's experience and expand the program into other areas. If certified by the BECC and funded either by the NADBank or other entities, the focus of the program would shift to rural colonias. Phase B seeks $55,000 in additional loans or grants to construct 50 on-site wastewater treatment systems per year utilizing sweat equity and the existing partnership with the School of Engineering and CERM.

The project helps colonia residents afford septic tanks and other on-site wastewater treatment systems if they are not scheduled to receive centralized wastewater treatment service in the next five years. Phase B will target three areas in which EPISO has been organizing and working for adequate infrastructure over the last 10 years: the East Clint area near Horizon City, the East Montana/Homestead MUD Area, and some colonias within San Elizario and Socorro which are not eligible for funding from the Texas Water Development Board under the Economically Distressed Areas Program or will not be served by this program for at least five years.

All three of these areas could potentially utilize on-site wastewater systems, depending upon individual soil conditions and lot size. According to projections provided by the Public Service Board's Colonia Outreach program as well as information from the Texas Water Development Board's database, there are over 30,000 residents who do not presently have centralized wastewater services in these areas, and will not receive it in the next five years. Based upon an estimate of 5 residents per household, the program could potentially serve over 6,000 residences. The numbers are likely to increase, according to El Paso Water Utilities population projections over the next 10 years. A list of the individual colonias and their populations included within the three areas is shown in the original application.

The present proposal will serve approximately 1,250 of these residents over the next five years. In particular, Phase B of EPISO's project would target specific colonias where other entities are not likely to reach and where families are in need of no-interest loans. For example, EPISO has already received requests for loans for 13 households in Gran Valle, 13 households in Bosque Bonito and over 20 households in colonias in the East Clint area. Thus, it is likely in the first year of the program, work would center on these specific colonias, although a final work plan would depend upon need and interest. This would allow the program to serve about 10% of the population in these three colonias in the first year alone.

El Paso Interreligious Sponsoring Organization (EPISO)
Maribeth Larkin, Lead Organizer
709 N. Octavia
El Paso, Texas 79902
(915) 532-4001 Telephone
(915) 532-2553 Fax

Contractor Information:

Ms. Nancy Lowery
University of Texas at El Paso
Center for Environmental Resource Management (CERM)
El Paso, TX 79968-0645
915-747-5494

Dr. Jeffrey Brannon
Assistant Director -- Center for Inter-American and Border Studies
Professor - Department of Economics and Finance
University of Texas at El Paso
El Paso, TX 79968
915-747-5245

Several UTEP engineering students, guided by Dr. Jeffrey Brannon from UTEP, will be collaborating with EPISO on the project through funding and assistance provided by CERM. In addition, a licensed engineer will collaborate in approving the design of the systems.

The colonias of El Paso County are located in the United States outside of the Corporate City Limits. Specifically, three areas are targeted: the Lower Valley colonias east of the city along the Rio Grande River, the East Clint colonias, near Horizon City, also east of the city, and East Montana, north-east of the city along Montana Road but before Hueco Tanks State Park.

Four maps in the original project application show clearly the proposed location sites. Map A is a County-wide map showing the location of El Paso's colonias as they had been identified in 1992 by the Texas Water Development Board, Map B Shows the colonias of the Lower Valley and the East Clint/Horizon City Area, Map C shows a close up of the East Clint/Horizon City Area, and Map D shows the location of the colonias of East Montana.

Map A

Map B

Map C

Map D

The proposed site locations to carry out EPISO's project were selected precisely because they are areas which are suitable for on-site wastewater systems, because residents are already living in the area, and because centralized wastewater systems are not likely to service these areas in the next five years. In all cases, local and state on-site wastewater treatment regulations would be followed in the design of the systems to assure that enough land was available for the proper system operation.

Rates of water-borne diseases are high in El Paso County. For example, the rate of tuberculosis and hepatitis A in El Paso County is two times higher than in the rest of Texas. In one El Paso colonia, 35 percent of all children eight or older have had hepatitis A, and by the age of 35, about 90 percent of the residents have contracted the disease. The lack of adequate wastewater treatment service is a factor in these high-rates of water-born diseases. It is because of statistics like these that such a program is so necessary.

From an environmental standpoint, the use of cesspools, pit privies, leach fields and unsuitably designed septic tanks have contributed to the contamination of surface aquifers (which are used for well water in the area), irrigation canals and soils. On-site wastewater systems for these areas of El Paso County would help prevent this existing and possible contamination of water and soils. Septic tanks and other similar on-site wastewater systems remove solid wastes and greases in the tank itself while soil infiltration and absorption helps break down the remaining pollutants. Other environmental problems resulting from the lack of wastewater treatment include non-point source pollution of both groundwater and surface water such as the Rio Grande.

One alternative to setting up an on-site wastewater system loan project would be to bring centralized wastewater systems to these areas. In some of the areas targeted by this program, this may eventually be the best alternative. At present, however, there are no plans to bring wastewater service to two of the three areas. In fact, in some cases it might be counterproductive, as it would spur growth in areas which lack other basic infrastructure needs. In addition, the expense of either bringing such service to these areas or setting up a separate centralized system would be too great. In the case of the third area -- San Elizario -- EPISO will continue to monitor the progress of plans to bring centralized wastewater service to that area.

Besides on-site wastewater treatment systems and centralized treatment, another viable options might include small cluster systems, such as packaged wastewater treatment plants or extended aeration activated-sludge systems. However, these systems can be more expensive than on-site wastewater systems and do require much more operation and maintenance. They would also likely require setting up a management structure such as a utility district to operate them. Thus, given the expense of centralized treatment systems and the greater operation and maintenance requirements of cluster systems, on-site systems are the best alternative. It should be noted that while the focus of EPISO's program is septic tanks, other alternative on-site wastewater systems such as mound systems, or composting toilets may in some cases be viable options as well.

Another alternative would be to rely upon existing loan program mechanisms to serve the outlying colonias. However, the other programs in the County are presently either not functioning well, serving different areas or are not designed to build on-site systems. EPISO will attempt to supplement, not replace these programs.

The Rio Grande Council of Governments (RGCOG) has yet to begin making hook-up and plumbing improvement loans from its $2 million share of the Colonia Loan Program funds, although they have funded one septic tank. The RGCOG first received a commitment of $2 million from the Texas Water Development Board in early 1993, courtesy of the $15 million Colonia Loan Plumbing Program administered by the TWDB and funded by the Environmental Protection Agency. Despite best efforts, there have been numerous delays in the implementation of the program.

There are three major drawbacks to the program. One is that it is a low-interest loan program, meaning families have to pay back the loan with interest. Secondly, colonias which are EDAP ineligible will not be able to benefit from the program. Finally, under the so-called 40-48 law, colonia residents who have not either made 48 consecutive payments on their home or paid off 40% of their contract are not eligible for the loans. Still, EPISO recognizes this program as potentially very important. EPISO's program will try to target those who would not benefit from this program.

The Lower Valley Water District is administering the Section 306 (c) hook-up grants in the Sparks subdivision of El Paso County. The total amount being administered by the District is $784,000. To qualify for these grants, families must prove they own their home and meet federal government income guidelines, which are slightly stricter than HUD poverty guidelines. The grants can range up to $5,000 and can be used for water and sewer hook-ups and plumbing improvements.

Approximately $480,000 of the money has been distributed to 375 families. The additional funds will be used to bring the water into these homes once the new centralized sewer system is up and ready. Although residents are fairly positive about the 306 (c) grant program, it can not be used to build septic tanks and is only available for communities of less than 10,000. Thus, EPISO's program needs are not directly served by this program.

Currently the longest-running hook-up loan program for colonia residents, the Lower Valley Water District (LVWD) began making small loans to residents within its district in mid-1990. Known as the Deferred Payment Program, the initial $500,000 in loan funds came from the Ford Foundation through the El Paso Community Foundation. The funds were lent to the Community Foundation at 1% annual interest rate. The Community Foundation then lent the money at 2% annual interest to the LVWD. In addition, the Ford Foundation has provided nearly $200,000 in grants to the LVWD for administrative salaries and support.

Since the program began, some 937 contracts with individual families have been made with the Ford loan. Three banks (Montwood National Bank, SunWest Bank and First National Bank of Fabens) have since agreed to put a total of $600,000 into the program. Unfortunately, the banks are lending the District the money at prime rate (about 9%), and the District is in turn lending it out at 12%. EPISO has been concerned about the high interest rates for the program. In addition, this project does not lend money for on-site wastewater treatment systems.

In the spring of 1995, the Adults and Youth United Development Association Inc. (AYUDA) received a $35,000 community grant as part of the Border XXI Program from the Environmental Protection Agency mainly to help families build septic tanks. Under the grant, AYUDA will have $600 to grant to 13 families to help cover the costs of installing the septic tanks in San Elizario. AYUDA is expected to come up with a similar amount to donate to two other families. The Community Grant also is intended to provide some garbage service to 15 families. The program could be an important addition to EPISO's efforts but is limited to 13 families.

On-site wastewater systems are considered the most economically viable solution to the environmental and public health problems resulting from the lack of adequate wastewater treatment service. If EPISO's project is financed and implemented, 250 families -- or 1250 residences -- will reduce their exposure to water-borne diseases while improving the soil and groundwater in their area. Their neighbors will similarly benefit. If the program is to target a few specific colonias in the first year of the program, an entire area with inadequate wastewater treatment service could resolve their own problems. EPISO is working with families and communities which lack the up-front funds to design and construct the septic tanks themselves.

All of the loans and on-site wastewater treatment systems will be in El Paso County, located in the United States. However, the project could potentially benefit residents and the environment of Mexico. For example, several of the colonias targeted by the project are located near tributaries and irrigation ditches that flow into the Rio Grande or near the Rio Grande itself. A colonia family whose wastewater was treated adequately by a septic tank or other on-site wastewater system would reduce the possibility of contaminating these irrigation ditches or the Rio Grande itself, either because of flooding or infiltration into aquifers connected to these surface waterbodies.

The project presented in this application to the BECC establishes Phase B, a five-year on-site wastewater loan project which builds on Phase A, EPISO's pilot loan project. The purpose will be to provide septic tank or other suitable on-site wastewater systems to areas not likely to receive centralized service in the next five years. During the first year of the program, 50 on-site wastewater treatment systems such as septic tanks will be constructed. Depending upon the success of the first year and the needs identified within the community, this total may be increased in the second year of the program, although the goal is to construct 250 systems over the five-year period.

The project development and financing plan can be divided into several stages or phases:

Properly constructed and maintained, septic tanks and other on-site wastewater systems should have no negative impacts upon the environment.

About 25 percent of the U.S. population lives in areas where individual on-site treatment systems are used. Septic tanks are the most common type of system. Septic tanks remove solid wastes and greases as wastewater moves through the tank. Soil infiltration and absorption helps break down the remaining pollutants in the soil absorption field. On the proper site, a well designed, installed and maintained system is a suitable alternative to more expensive centralized wastewater systems. The US GAO has reported that in such cases, "on-site septic systems can function as effectively and permanently as centralized treatment facilities and are generally more cost-effective".

Environmental and health problems can result when septic tanks are improperly constructed or installed, or where the area is not suitable for their use. Areas where the soil does not have proper drainage characteristics or the minimum percolation rates required for soil absorption systems, can result in wastewater bubbling up to the surface. In addition, areas where the groundwater table is high are not appropriate for septic tanks since the wastewater can contaminate the shallow aquifers. Similarly, flood plain areas could result in wastewater contaminating either underground aquifers or the surface. In addition, over development of an area could cause a soil absorption drainage field to fail. In all of these cases, septic tanks can lead to environmental and public health problems instead of solutions.

There are several county and state regulations EPISO's project must meet to successfully install on-site systems. The County Commissioners of El Paso have passed several rules regulating on-site sewage facilities. On July 13, 1987, the County Commissioners approved the Sewage Disposal Plan Requirements in subdivisions (see Appendix in the original document). These requirements forced subdividers to provide plans on how on-site sewage systems would be built within the subdivision to meet the needs of its future residents. On January 15, 1988, the County Commissioners Court approved the "Rules of El Paso County, Texas for Private Sewage Facilities." These rules were later modified and approved by the Commissioners Court on July 11, 1988 and sent to the Texas Department of Health for final approval (See Appendix B of the original document). The rules were further amended on December 5, 1988.

The Rules for Private Sewage Facilities, also known as the Private Sewage Facilities Order, is the principal environmental regulation governing the construction of on-site wastewater systems in El Paso County. The order makes the El Paso City-County Health District responsible for registering, licensing and enforcing the construction and maintenance of private on-site wastewater systems. All parties wishing to construct an on-site system must first apply to the City-County Health District for a Permit to Construct. If granted, upon construction but before cover-up of the system, the El Paso City-County Health District must inspect the system and issue an on-site written approval, followed by a License to Operate.

Finally, the State of Texas has its own regulations. Until 1991, the Texas Department of Health was in charge of setting standards and regulating on-site sewage facilities. In November 1989, the Texas Department of Health adopted "Construction Standards for On-Site Sewerage Facilities," which beginning January 1, 1990, became the state guidelines for on-site sewerage system construction and operation (A copy is presented in Appendix F of the original document). The Texas Department of Health has approved the El Paso County rules for on-site sewerage construction.

EPISO's self-help loan project will assure that all septic tanks and other on-site wastewater treatment systems will be built according to both the state and county rules. For example, all families wishing to construct septic tanks through EPISO's program must first submit an application and application fee to the El Paso City County Health District. In addition, the application must be accompanied by a design approved by a licensed engineer with scale drawings, three percolation tests and five soil samples. Providing the design is approved and a Permit to Construct is granted, two important steps must occur: 1) a licensed septic tank installer must be present at the construction site, and 2) an inspector from the City-County Health District must be present to approve the septic tank before it is covered up.

Only then will the Health District inspector issue an on-site approval of the system. Within 10 days, the family should receive an official License to Operate. EPISO coordinates with the design, engineer, septic tank installer, the family and the inspector to assure that these regulations are correctly followed. The City-County Health District has several inspectors as well as an acting director. For more information, contact:

Roberto Gonzalez

On-site Wastewater System Inspector
El Paso City-County Health District
9060 Socorro Rd.
El Paso, TX 79907
Phone: (915) 860-2378

No permits or special authorizations are required to enact the overall project. Permits for individual septic tanks will be solicited from regulatory agencies on an on-going basis as described earlier.

All environmental issues are addressed in Section c "Environmental Assessment."

In 1995, the Texas Legislation passed a bill which designated the El Paso Water Utilities Public Service Board as the regional water planner for El Paso County and to be the leader in discussions with New Mexican and Mexican officials about water supply and demand issues. Under the bill -- signed into law in 1995 by Governor Bush -- the PSB must receive notice and have the ability to comment on any plans affecting water supply or service in the county. EPISO's proposed loan program has been presented to the PSB and input on the project has been received. EPISO recognizes that the proposed program must meet the PBS's management and delivery plans for the area. Additional input on the proposed project is welcomed by EPISO.

In 1991, the PSB produced a region-wide water master plan, called the El Paso Water Resource Management Plan. The plan addresses colonia residents who could be served by PSB, either through management service contracts with other entities or directly by the PSB itself. The BECC has a copy of this plan from an application previously filed by the PSB.

The contact person(s) for El Paso Water Utilities Public Service Board are General Manager, Edmund G Archuleta or Deputy General Manager, David Brosman.

1154 Hawkins Blvd.
PO BOX 511
El Paso, TX 79961-0001
(915) 594-5502

EPISO's loan program is targeting areas that presently do not have wastewater treatment service and where there are no immediate plans to bring wastewater to the area. Thus, the program conforms with the El Paso Water Utilities Public Service Board's El Paso Water Resource Management Plan.

As part of the El Paso Water Resource Management Plan, the PSB established a policy for the extension of water and sewer services outside of its city limits. On December 13, 1990, the PSB adopted a change to the previous prohibition against extending service outside the city corporate limits. As detailed in the Management Plan, the PSB worked with an eight-member Steering Committee to prioritize areas for water service, including colonias within Socorro, several in the Northwest Planning Area within Canutillo and three along Montana Road just east of the Airport. All of the colonias targeted by EPISO's loan program are outside of the areas identified as immediate priorities by the PSB. EPISO will coordinate its project with the PSB and other authorities such as the Lower Valley Water Authority to make sure its work is not counterproductive or does not conflict with other attempts to bring wastewater service to the people.

EPISO is not required to submit an environmental assessment by any local state or federal regulatory agency. However, as part of this application, basic environmental data was collected and an environmental assessment follows. Much of the information was collected from environmental assessments and reports previously submitted for these areas by other entities. Specifically, as part of this application, EPISO has submitted six environmental assessment documents:

1. El Paso County Lower Valley Water District Authority, Community of San Elizario, Texas: Environmental Information Document (Hicks and Company and Moreno Cardenas, El Paso, TX, August 1993.

2. El Paso County Lower Valley Water District Authority, City of Socorro, Texas: Environmental Information Document (Hicks and Company and Moreno Cardenas, El Paso, TX, August 1993.

3. El Paso County Lower Valley Water District Authority, Amendment to the Environmental Information Document for Community of San Elizario, Texas, Water and Wastewater Facilities (El Paso Water Utilities Service Board, John Carollo Engineers, Parkhill, Smith and Cooper, El Paso, TX, July 1995).

4. El Paso County Lower Valley Water District Authority, Amendment to the Environmental Information Document for City of Socorro, Texas, Water and Wastewater Facilities (El Paso Water Utilities Service Board, John Carollo Engineers, Parkhill, Smith and Cooper, El Paso, TX, July 1995).

5. US Department of Agriculture's Rural Economic and Community Development, County of El Paso (East Montana) El Paso Texas, Class II Environmental Assessment.

6. Parkhill, Smith and Cooper and Boyle Engineering Company, "Environmental Assessment, East Montana Area Facility Engineering Plan for the Texas Water Development Board EDAP, (Prepared for El Paso Water Utilities Public Service Board, El Paso Texas, September 1994.

The STEP II application includes a full environmental assessment with baseline environmental information on topography, wetlands, prime farmland, climate, endangered species, socioeconomics, land use and hydrology among other factors.

There are alternatives to a septic tank loan program. One option is to let local political entities seek funding to bring centralized wastewater service for the targeted areas. In fact, in many of the colonias this may be the best option. For example, in East Montana, currently septic tanks and other on-site systems, when properly constructed and maintained, work well because groundwater is deep, it's sandy and residents have large lots. However, as potable water is brought to the area and population increases, it may be more economically and environmentally viable to construct a centralized wastewater system. In Socorro and San Elizario, there are some soils which are not suitable for septic tanks and residential lots are often too small for a conventional soil absorption system. Again, for these areas, conventional sewers are a better alternative.

However, EPISO is specifically targeting those areas which are not likely to receive such service in the next five years. The program is flexible enough so that if areas are scheduled to receive such service in the near future, they can be eliminated for consideration from EPISO's septic tank loan program. In addition, the design of these on-site systems by EPISO's program will meet the unique needs of each area.

If the project is not implemented, those colonia residents in the areas targeted would not have access to an important source of funding to construct septic tanks. While detailed information on families within particular colonias is not available, survey data suggests that most families in the areas do not have suitably installed septic tanks. The no action alternative would mean families would have to rely on failing septic tank systems or cesspools and pit privies which violate county and state regulations. For example, the environmental impact documents prepared for the Lower Valley Water Authority found that a large number of lots -- maybe as high as 75% -- in Socorro and San Elizario are too small (less than 1/2 acre) for conventional septic tanks (Lower Valley Water Authority, Socorro Environmental Information Document, 69).

In East Montana, sewage treatment consists of individual septic tank systems. Because groundwater levels are deep, soils are sandy, and development scattered, septic tank systems have worked satisfactorily. Nonetheless, many families lack these systems.

The purpose of EPISO's program is to design on-site systems that work, by utilizing the expertise of UTEP's School of Engineering, a licensed engineer and the skills of the families themselves, where septic tanks or other on-site wastewater treatment systems can be used properly.

There are, as discussed elsewhere in the application, other loan programs for septic tanks. However, EPISO's unique program will reduce costs, while serving families which do not qualify for the other programs. Without this program, there are families which would not be served. A program such as EPISO's is needed specifically by families living in colonias that are EDAP "ineligible" or that do not meet the 48-40 rule where families must have paid off 40% of their contract or made payments for 48 consecutive weeks.

Small diameter sewer systems with cluster collection systems could be a viable alternative for some of the colonias in Socorro, San Elizario and East Clint, especially since a larger centralized system is not likely in these areas. However, there is a lack of slope in most of the areas, making gravity flow small diameter sewers impossible. In addition, the operation of such systems would necessitate an operation and maintenance structure and governing body. Nonetheless, in some cases, such cluster systems could be a viable option. In addition to the small diameter sewer systems, other alternative small systems could include sand filters or evapotranspiration beds. EPISO's program does not preclude the creation of such systems where they are appropriate. In fact, the program seeks to utilize the expertise of UTEP, CERM and others to design alternative systems where conventional septic systems are not appropriate.

Construction Activities and Destruction of Vegetation. These adverse impacts are all short-term and negligible. These short-term negative impacts can be mitigated to some extent. For example, care will be taken to place the septic tanks and drainfields in areas which are not heavily vegetated. In addition, normal construction practices to minimize the creation of dust and deposition of oils and gases will be taken. The ground can also be watered before and after construction to minimize dust, particularly during a windy day. Erosion will be limited because the piles of dust, soil and sewer rock will only be on-site for one construction day before being replaced.

The environmental assessment pointed out that water use will likely increase among the families that receive a working on-site system. In addition, once up and running, if the family does not do a good job maintaining the system, it could lead to water quality problems.

As part of the septic tank loan program, EPISO will develop and provide information in Spanish and English on proper water conservation techniques. This information is already available to customers of the El Paso Water Utilities Public Service Board and the Lower Valley Water District. EPISO will make use of this and other information.

This information must be supplemented with additional operation and maintenance measures. For example, the installer on-site should provide the following maintenance and conservation information and advice to the owner:

1) An on-site sewerage system should not be treated as if it were a city sewer;

2) Economy in the use of water helps prevent overloading of a sewerage system that could lessen its usefulness;

3) Leaky faucets and faulty commode fill-up mechanisms should be carefully guarded against;

4) Garbage grinders can cause a rapid buildup of sludge or scum resulting in a requirement for more frequent cleaning and possible system failure;

5) Excessive use of garbage grinders and grease discarding should be avoided.

More detailed information is provided in the Operation and Maintenance section.

Land use and population increase. While the program itself will not affect land use, it could increase the attractiveness of the area for other residents and spur growth and further conversion of range land, natural areas and agricultural land to residential and commercial use.

There is little to prevent this occurrence as population increases. It is a trade-off of urbanization and development. One mitigation measure is simply to make sure local subdivision ordinances are enforced so that some balance is maintained.

Water quality degradation due to additional pumping of the Hueco Bolson. Again, as water use increases, the mining of the aquifer and consequent degradation will also occur. One mitigation measure is to educate the users of EPISO's program about water conservation. Another would be to promote alternative water conservation measures such as greywater systems.

Increased socioeconomic status of residents. Land values and consequent property values may increase.

Transboundary Effects. The project could have transboundary effects. Many of the colonias targeted in San Elizario are within miles and in some cases 100s of meters from the Rio Grande, the border with Mexico (see map of area). Potentially, run-off from failed septic tanks or other on-site wastewater treatment services are polluting the Rio Grande and Mexican tributaries. In addition, the lack of adequate wastewater treatment may be affecting local aquifers shared by Texas and Mexico. Finally, during a flood situation, pollution of both the Rio Grande and aquifers could be more widespread, affecting Mexico. The effect of enacting the program would be beneficial to Mexico as it would reduce these transboundary effects.

1. Wastewater Quantity/Quality. The average septic tank built by the EPISO program will have a liquid capacity of 1,000 gallons. This is to meet county and state design standards, which require 1,000 gallon tank when average daily use is expected to be 251 to 350 gallons of wastewater produced per day. Thus, over the five-year life of Phase B of the program, a total of 62,500 to 87,500 gallons of wastewater per day would be produced by the 1,250 residents. The quality of wastewater should be within the parameters of normal wastewater from residences.

ii. industrial wastewater control program. Only residences, not commercial or industrial operations, will be offered the possibility of receiving funding to install septic tanks. Therefore, no wastewater control program is needed. However, users of the systems will be provided with written and verbal informational material to make sure they understand that oils and greases, pesticides and other toxic materials should not enter their septic tanks.

iii. projection of wastewater volume. If 250 systems are constructed over the five-year life of Phase B of the program, then between 62,500 and 87,500 gallons per day will be produced at the end of the program. Multiplying these numbers by 365 days and by 15 years for the average life of a septic tank would give between 370 and 480 million gallons of water.

iv. design of collection system. As part of this application, a copy of the Texas Department of Health's Construction Standards for On-Site Sewerage Facilities is provided. For EPISO's program, the collection system used will be a standard residential septic tank design. These designs may vary slightly, with some septic tanks having two compartment tanks, and others consisting of two or three septic tanks in a series, each with a single compartment. In all cases, the total volume capacity of the tanks will meet state and county standards.

iv. design of treated wastewater discharge or reuse system. In the majority of the 250 on-site systems built by EPISO's program, either a soil absorption trench drainfield or, where space is more limited, soil absorption beds, will be used as the effluent disposal system. Again, the state's construction standards will be followed. Alternative effluent discharge standards could also be used, including evapotranspiration beds, pressure dosing systems, mound systems or gravelless drainfield piping could also be used where normal disposal practices do not allow soil treatment and absorption. Finally, other disposal alternatives could include greywater systems, composting toilets or other water reuse systems. However, EPISO would probably need to do additional research to consider these systems.

vi. treated wastewater quality analysis. State and county regulations require occasional testing of effluent from septic tanks. For single family dwellings with standard systems, three tests per year to make sure that fecal coliform does not exceed 200 MPN/1000 mL and residual chlorine does not exceed 1 mg/L residual, will be taken to make sure the water quality is sufficiently clean and the septic tank is functioning properly.

vii. sludge treatment systems. Sludge must be cleaned out of septic tanks before it approaches the bottom of the outlet device. Because it is not practical to check the sludge levels on a regular basis, owners should clean the tank at two-to-three year intervals and can use a commercial service to perform the operation. Owners of septic tank systems shall engage only persons registered with the State of Texas to transport and dispose of septic tank sludge, known as "septage."

EPISO's program has built-in criteria to choose appropriate technology. The specifications of the project's on-site wastewater collection and treatment systems vary. Each family which benefits from the program will have an on-site system specially designed for them based upon the site evaluation, soil samples and percolation tests and the size and lay-out of the lot and family residence. In most cases, the on-site collection system chosen will be a septic tank and the disposal system chosen with be either absorption trenches or beds. Alternative disposal systems might include evapotranspiration beds, a soil-absorption mound system -- which actually puts the absorption and treatment of the wastewater in a mound above the natural terrain -- a pressure dosing system or gravelless drainfield piping. Sand filters, composting toilets and greywater systems might be considered in special cases, particularly as the students and EPISO learn more about better water conservation practices.

In all cases, the technical design will meet state and county on-site wastewater regulations. The amount of wastewater treated will depend on the size of the family and the number of bedrooms. The septic tank must meet size standards found in 30 Texas Administrative Code, Chapter 285. Thus, a single family residence with one or two bedrooms has an expected water usage of 250 gallons per day and therefore must purchase a septic tank with a volume of at least 750 gallons.

The effluent disposal system will depend upon a site evaluation, the size of the lot, the type of soil and the percolation tests. See Table IV of the State Construction Standards for details. If the site is not acceptable for standard subsurface disposal methods, alternative disposal systems will be explored. If the site is acceptable, then the type of disposal system depends upon the percolation test. For example, a percolation test ranging from 5 to 30 minutes per inch would lead to use of absorption trenches, also referred to as drainfields. A result of 30 to 60 minutes would result in an absorption bed as the preferred system. Finally, a result outside of these ranges might lead to an evapotranspiration beds or other alternative system.

There is no separate quality control program for EPISO's program. Instead, all matters of design and construction are supervised as part of the program. For example, the design of the on-site wastewater systems must be approved both by a licensed engineer and then submitted to the El Paso City-County Health District. The construction of the septic tank will have both an approved septic tank installer as well as one of the students present during the construction. In addition, an inspector from the El Paso City-County Health District must be present before construction can be finalized.

See 1. General Project Description, g. Project Work Tasks

Phase A of the On-Site Wastewater Treatment Self-Help Loan Project has been financed with a $20,000 grant from Levi-Strauss in addition to financial help provided by UTEP to pay for its students. The Levi-Strauss money has been placed in a checking account at a local Texas Commerce Bank and is managed separately from other funds. EPISO has hired a full-time bookkeeper to manage its accounts, including this one. The bookkeeper maintains a daily financial record of the account. The Texas Commerce Bank also maintains a daily financial record as another control mechanism.

In addition, EPISO director and lead organizer Sister Maribeth Larkin is required to check the bookkeepers logs and must balance all canceled checks from the Self-Help On-Site Wastewater Loan Project account.

Finally, all families receiving a loan through the project must sign a contract with EPISO which details how much the family owes in all, including materials, what their monthly payments will be, and the number of monthly payments needed to cancel their debt. These contracts are kept in individual folders for each family with the bookkeeper. Sister Maribeth Larkin, Judy Donovan and volunteer program coordinator Teodoro Trujillo also have access to these files. Families can either bring their monthly payments directly to the EPISO office or give a check, money order or cash to EPISO leaders living in the colonias, who then bring the money to the EPISO office. As soon as the money arrives to the office, the total amount of payment is entered by the bookkeeper in her books as well as in the individual folder of the family and a receipt is given to the family member with the total payments remaining.

EPISO first received a grant in 1995 from Levi-Strauss and has used most of the money to construct 10 septic tanks. For the first nine septic tanks, $8,435 was loaned out to nine families, with another $1,000 expected to be loaned out in May. All of this money will be paid back to EPISO over time. In addition, $3,136.83 has been used on non-refundable non-loan expenses with another $200 in non-refundable expenses to be spent in May. Thus, approximately $16,500 should become available for Phase B of the program.

As the budget shows, there are four sources of financing for the project. The first is the Levi-Strauss grant. EPISO expects to have available about $16,500 of the original $20,000 Levi-Strauss grant for Phase B of the program. In addition, EPISO has applied for a renewal grant which is expected to add another $20,000 to be used for loans. Secondly, UTEP is contributing to student travel, design, stipends and licensed engineer and has applied for a $10,000 grant from Levi-Strauss to cover these expenses for the first year. In all, these two sources of funds should pay for 41% of the program budget. UTEP will need to continue to provide about $10,000 per year to cover its expenses over the five-year period and has applied for additional sources of funding.

This application requests the assistance of BECC and the NADBank to obtain $55,000 in grant money from other sources that both institutions, in coordination with EPISO, will seek to identify. EPISO understands the NADBank cannot make grants, and has chosen not to seek a NADBank loan. (A previous financial analysis showed that if a loan were assumed for the project, even at a theorical zero interest rate, the project would not be feasible). Thus, while neither BECC nor the Bank control the grant process, or the timing or the amount of the grants, both institutions will provide all the assistance possible to help identify grant funds.
It's important to mention that the final source of financing is the sweat equity provided by the families themselves as well as EPISO volunteers. Based upon an estimated two family members and three volunteers per septic tank, working a full day at the minimum wage, about $190 per septic tank -- or $9,500 per year -- would be contributed from this source. Over the five-year life of the program this source would contribute $47,500 to the program, or about 25% of the total budget. Thus, the family themselves are one of the biggest sources of financing for Phase B of the project.
On the long term, whatsoever, the project needs an adequate and centralized management, not overseeing the actual and future Operation and Maintenance costs by establishing an additional fee for all the families involved, in order to insure the provision of the funds on this subject. To establish a $15 fee per household is recommended by the BECC.

The economic benefits of the project are discussed in the Social Issues section, under "Economic Impacts."

According to the 1990 Census, there were 591,610 people residing in El Paso County. However, the 1990 Census Post Enumeration Survey estimates an undercount of approximately 18,000 people, bringing the total closer to 610,000. The City of El Paso estimates that 635,800 people lived in El Paso County in 1994, not including the population undercount, with 81,450 of that total living outside city limits. El Paso County is one of the fastest growing metropolitan areas in the country, with 2010 projections showing a nearly 4% annual growth rate. The growth rate outside of the city is significantly higher, indicating a growing colonia population.

Due to its proximity to Mexico and traditional ties to the South, El Paso County has a high number of residents born in Mexico and a high percentage of residents identified as Hispanics. According to the 1990 Census, about 70% of El Paso County were Hispanics, and 24% were born outside of the United States. El Paso County is also one of the poorest counties in Texas and the U.S. median family income was $25,100, or about 75% of the Texas and U.S. average. Per-capita income was even lower, totaling 65% of the U.S. and 59% of the Texas average. Finally, El Paso County had a fairly high number of residents per housing unit at 3.2 persons compared to a national figure of 2.8.

In the colonias of El Paso County, the percentage of Hispanics, those born in Mexico, and the average number of persons per household are significantly higher than in the city itself, according to a recent Texas Department of Human Services survey. Nearly all homes in these colonias are single-family, owner-occupied dwellings. In El Paso County, 4.3 people per household lived in the colonias. About 96% of the population was Hispanic and more than two-thirds -- 68% -- were born in the U.S. Still, Spanish was the main language for 89% of the residents surveyed. The average annual household income was only $11,497.

According to the latest figures available from the Texas Water Development Board, an estimated 72,754 persons in the county live in 151 identified subdivisions known as Colonias. While all of these residents obtain potable water in some manner, many rely upon tank-hauled water or groundwater of poor quality pumped from individual wells. Many residents in the East Montana area frequently pay bills of $100 per month to ship water in. According to a 1995 Texas Department of Human Services, 22% of the residents in El Paso County did not have potable water in their homes. A number of the projects undertaken with funding from the Texas Water Development Board are addressing these problems.

Wastewater treatment service is even scarcer. Wastewater disposal is generally provided by on-site means, either through septic tanks, pit privies or cesspools. About 60 percent of the soil in El Paso County is characterized by the Soil Conservation Service as "severe", meaning that soil conditions are so unfavorable that these on-site facilities are not feasible. In addition, about 12.5% of the county is on the floodplain of the Rio Grande, making traditional on-site systems such as septic tanks problematic. According to the 1995 survey by the Texas Department of Human Services, more than two-thirds -- 66% -- of El Paso County colonia residents relied upon cesspools or outhouses for their wastewater "treatment" service.

In the areas to be served by EPISO's project, the lack of wastewater service is severe. None of the colonias targeted by the project have centralized wastewater service, and many of the residents have cesspools, pit privies or poorly constructed or maintained septic tanks. Both the East Montana and East Clint areas are not likely to receive centralized service any time soon.

The present proposal has identified approximately 31,000 people -- about 43% of all colonia residents -- who could potentially benefit from EPISO's proposed on-site wastewater treatment system loan program. However, the actual beneficiaries will be less. The current proposal would benefit about 50 families -- 250 residences -- in the first year of the program. If the program were to continue for five years, 1,250 residents could be assisted. However, the program could be expanded depending upon its success. Moreover, the program should serve to increase information about other programs, such as the Rio Grande Council of Government's Colonia Plumbing Loan Program, which residents could benefit from. Thus, the program should serve to stretch the benefit of other loan programs being enacted in El Paso County.

In addition to the immediate benefit to these 250 residents, local economic development would result because of the employment of a backhoe operator, the purchase of septic tanks and sewer rock from local companies, and the payment to UTEP engineering students. These students will also increase their skills and their connection to the wider community. Furthermore, many of the EPISO members involved in the program are licensed septic tank installers and they may derive an economic benefit either within the program or outside of it. Finally, the education and training received by those involved in the program, including the families which dig the septic tank holes, will increase skills within the community.

The most important economic benefit, however, may be the improved health and quality of life of colonia residents who receive septic tanks or other on-site wastewater treatment facilities. In one El Paso colonia, 35% of all children eight or older have had hepatitis A, and by the age of 35, about 90% of the residents have caught the disease.

Based upon the previous environmental assessment and the assessments accompanying the application, there are no expected impacts on cultural resources. In the event such cultural materials are found during construction of a on-site wastewater system, work should cease in the area and the State Historic Preservation Officer and Secretary of Interior will be contacted.

Other project impacts discussed in the Environmental Impact Assessment section.

EPISO's Comprehensive Community Participation Plan for the On-Site Wastewater Treatment System Self-Help Loan Project is composed of three elements: a local committee to oversee the project as well as a loan review committee; a grass-roots participation plan consisting of a series of meetings with local organizations and among colonia residents; and a public meeting, held May 28th to inform the public of the BECC application and Phase B of the project.

A separate steering committee was not set up for EPISO's project. However, EPISO has a policymaking board of directors called Co-Chairs, which guides and advises EPISO on actions. All EPISO projects involving money must be presented before this diverse group of Co-Chairs and approved. EPISO is utilizing the Co-Chairs for this project to serve as a steering committee.

Currently, EPISO's Co-Chairs are composed of 12 individuals, including five women and seven men. The majority (11) are of Hispanic descent. The group includes three parish Catholic priests, two education workers, four mothers involved in volunteer activities, one unemployed worker, one real estate agent, and a former hospital administrator. One of the Co-Chairs, Teodora Trujillo, has been serving as the volunteer coordinator of Phase A of EPISO's project and will continue to serve in that role for at least part of Phase B. Another of the Co-Chairs, Ignacio Escandon, has been an active volunteer in the project. On May 7th, 1996, at the monthly Co-Chairs meeting, Maribeth Larkin and Judy Donovan made a presentation about the BECC application and Phase B of the project. Co-Chair member Ignacio Escandon moved that EPISO submit STEP II of the application as soon as possible. The vote in favor of the motion was unanimous.

In addition to the Co-Chairs, EPISO is also relying on a volunteer coordinator, Teodora Trujillo, and several volunteer outreach coordinators within the colonias to inform residents about the options available to them through EPISO's project as well as to gather applications. EPISO, as part of its Comprehensive Community Participation Plan, will continue to utilize these and other leaders within the colonias to inform the public and gather applications.

EPISO is a grass-roots organizing effort dedicated to the participation of all its members. EPISO's organizing mechanism are house-to-house meetings as well as meetings with political representatives and interested parties. It was after the City/County Health District began to strictly enforce El Paso County's on-site septic regulations that EPISO became more directly concerned with locating funds to help families construct septic tanks. Appendix F of the original document details the numerous meetings and consultations with colonia residents and others in the development of the project.

EPISO began to hold house-to-house meetings as well as wider meetings to discuss what could be done to assist families being enforced for having an improperly registered or working septic system or not having one at all. EPISO and its members first approached the Rio Grande Council of Governments about utilizing funds from their $2 million Colonia Plumbing Loan Program to assist these families. However, it became apparent that obtaining the money would not be easy.

Instead, EPISO and its members began the work to obtain funding and build septic tanks themselves. In the Fall of 1994, EPISO met with the University of Texas at El Paso to discuss setting up a septic tank cooperative. In two separate training sessions in 1994 and early 1995, EPISO arranged to have approximately 30 of its members take a septic tank installer course to help defray the high cost of hiring a septic tank installer. EPISO members held dozens of house meetings to discuss the possibility of installing septic tanks themselves with the help of UTEP students. Soon a list of families who desperately needed a septic tank was drawn up. Money from the Levi-Strauss Foundation was sought and obtained. Building upon an existing collaboration with the University of Texas - El Paso and its Center for Environmental Resource Management, EPISO began the pilot loan project. In June of 1995, the first two on-site systems were constructed.

Residents and participants have shown throughout a high level of expectation for the program and EPISO has a long waiting list of families wishing to be served. A copy of a letter from one thankful resident in contained in Appendix Fof the original document. EPISO and its participants have made special presentations regarding the program to residents of the East Clint colonias, Ascension Park, in addition to house meetings about the program in East Montana, San Elizario and Socorro. EPISO will use this experience during the next phase of the project and will continue to hold house meetings about how the project works.

Authorities such as the El Paso Water Utilities Public Service Board and Judge Chuck Mattox have also expressed their support for the project. Copies of a letter of support from PSB General Manager Edmund Archuleta, as well as comments on STEP I from the PSB, are included in Appendix F.

iii. Public Meeting. In addition to ongoing informal meetings, EPISO will sponsor a one-day public meeting with the wider community. Minutes from this meeting will be incorporated into this Community Participation Plan.

A public meeting was held on May 28th at 7 p.m. at the La Purísima Mission in Socorro. A public notice was published April 25th in the El Paso Herald-Post, El Paso Times and the Diario de Juarez in Mexico, which is read by many of the colonia leaders. In addition, EPISO posted flyers announcing the meeting in colonias and community centers in San Elizario, Socorro, the East Clint area and East Montana. Minutes from the meeting have been incorporated into the application and the community participation plan. All public comments on the project were very positive. Several community members who have installed septic tanks through this program expressed the importance and benefits of this program. A copy of the meeting notice appears below.

The El Paso Interreligious Sponsoring Organization (EPISO) will hold a public meeting on Tuesday, May 28th at 7 p.m. at La Purísima (Socorro Mission Church), 328 S. Nevarez Rd. in Socorro to discuss a proposed self-help septic tank loan and construction program for the colonias of El Paso County. The meeting will provide the public with information about EPISO's program, which loans money to help families living in Socorro, San Elizario, the East Clint area and East Montana design and construct a licensed septic tank. About 250 families in these areas could benefit from the program. EPISO has submitted an application for certification by the Border Environment Cooperation Commission (BECC) for financial assistance from the North American Development Bank for $55,000 to run the program.

A copy of the documents and application material is available for public review at EPISO's offices at 709 N. Octavia in El Paso or at the BECC offices in Ciudad Juarez (Blvd. Tomas Fernandez #7940, 5th floor. 011-52-16-29-23-95). The public meeting will begin at 7:00 p.m.. For more information, please call Maribeth Larkin or Judy Donovan at (915) 532-4001.

Comprehensive community participation is an ongoing process in Phase B of EPISO's project. For example, the Co-Chairs will continue to monitor the development and progress of the project. EPISO volunteer coordinator Teodora Trujillo will continue to run the program. A loan review committee composed of Trujillo and other colonia residents will also be set up as part of the post-certification plan. Finally, EPISO will continue to work with political leaders so that all loan programs will work for the benefit of colonia residents and that septic tanks will be constructed where they make environmental and economic sense. In addition, because EPISO's project involves the sweat equity of the families themselves, the BECC can be assured that the project will always have community participation.

The steps to start-up the infrastructure will be performed by the individual families, not by EPISO. However, EPISO and the engineering students, and licensed engineer will be available to help correct any defects resulting from workmanship.

Again, it is the family's responsibility to operate and maintain the on-site wastewater systems, although EPISO will be on call to assist.

As part of the EPISO's project, $500 per year has been budgeted to the production and dissemination of information relating to water conservation, and operation and maintenance of on-site systems. EPISO has begun the process of collecting information related to these issues in English and Spanish and will develop a standard packet of information for residents. Depending upon the system being used, additional information can supplement the packet

There are many sources of water conservation, and operation and maintenance information in the El Paso area. EPISO has identified the following institutions as places to seek such material:

*Lower Valley Water District Authority

*El Paso Community Foundation

*University of Texas at El Paso: Center for Environmental Resource Management (Program: Agua para Beber)

*El Paso Water Utilities Public Service Board

*El Paso City/County Health District

*Texas A & M Agricultural Extension Agents

Some information has already been gathered and examples are contained in Appendix G of the original document.

The State of Texas' Construction Standards for On-Site Sewerage Facilities provides a section devoted to on-site sewerage system maintenance and water conservation. EPISO will incorporate these points into its information packet and also make sure that verbal information covering these points is made by the septic tank installer. As part of the development of Phase A of the project, 30 local colonia residents enrolled in and received certified training in septic tank installation. These septic tank installers must understand these basic operation and maintenance rules as part of their training.

In addition to these maintenance rules, the Construction Standards for On-Site Sewerage Facilities includes 13 water conservation measures that will reduce the load on on-site facilities and will also be incorporated into EPISO's information packet.

Finally, the Construction Standards give further maintenance and operation advice for the correct functioning of these on-site systems. Most importantly, septic tanks must be cleaned out before the sludge accumulates to a point where it approaches the bottom of the outlet device. Commercial cleaners can be used and only persons registered with the Texas Department of Health are allowed to transport the material for disposal. Again, this information must be incorporated into an English and Spanish packet by EPISO.

EPISO's project includes basic safety measures during construction, as well as training for personnel. Safety rules include:

-no children are allowed in the construction area;

-all volunteers, students and the back hoe operator must wear hard-hats, gloves and, when needed, facemasks;

-during backhoe operation, students, family members and volunteers must stay out of the trenches;

-only a licensed backhoe operator is allowed to use this heavy equipment;

-all work must be supervised by a licensed septic tank installer;

-all design must be approved by a licensed engineer;

-the student designer of the system must be present to supervise the work;

-an inspector from the City/County Health District must inspect the facilities and approve them before they are covered up;

-during dust storms, or inclement weather, work will be put on hold or cancelled.

As part of the development of Phase A of the project, 30 local colonia residents enrolled in and received certified training in septic tank installation. Thus, there are 30 EPISO septic tank installers licensed to supervise work on a site.

No pollution prevention plan was needed as part of this application. Information will be provided to benefiting families about what is not appropriate to put down their septic system.

Not applicable.

EPISO's on-site wastewater treatment loan program is sustainable and meets the sustainable development principles found in the BECC criteria. First of all, the project will help 250 residents a year enjoy a healthier and more productive life, while keeping their local environment -- their yards, homes, neighborhoods and local aquifers and soils -- clean of environmental contamination.

In addition, the project is intended to provide on-site wastewater treatment in an appropriate and equitable fashion. Only those homes where an on-site system is needed and will be effective will qualify for a loan. The technology is appropriate for the residents and in some cases is preferable to centralized wastewater treatment. For example, rather than extend wastewater collection and treatment lines out to rural colonias, promoting taxpayer expense and possibly leading to further growth and destruction of natural habitat, this project promotes individual systems to meet the present needs will be constructed. This will keep growth more in harmony with the environment.

Finally, the program puts environmental protection and health at its center. The continued use of improperly constructed septic tanks, cesspools and outhouses is having a negative impact on local plants, soils, aquifers and surface water bodies as well as the health of local residents. The program's goal is to eliminate this negative impact.

The present proposal meets the BECC criteria to strengthen the ability of the community to face its own environmental problems by improving the skills and capacities of the local populace. Both the individuals and EPISO's capacities will be improved by this project.

First of all, EPISO as an institution representing colonia and low and mid-income residents of El Paso County will be strengthened. EPISO will gain experience by setting up a service and implementing a program benefiting the wider community. The program will result in both the formation of a loan review committee, and possibly a septic tank installer cooperative. All of these "new" institutions will help support the program.

Moreover, individuals within El Paso County will improve their skills and capacities. Several colonia residents, low-income members with limited formal education, will be involved in the program. For example, the loan review committee and the volunteer coordinators and outreach personnel will all involve low-income residents. The volunteer coordinator will receive a stipend of approximately $200 per month for her work. Their skills and political involvement will be improved.

Residents will also be involved on the technical side. For one, families will be helping -- under the guidance of a UTEP student -- build their own septic tank systems. In addition, trained septic tank installers will be on hand to assist as well. Thus, long-term capacity building will result from the program as local residents learn how to construct, operate and maintain these systems while resolving health and environmental problems. Finally, as part of the operation and maintenance program, information packets on water conservation and correct maintenance practices will be developed. This too will help local residents build their capacity to resolve their own problems in a more sustainable manner.