Adapting to Unexpected Changes: A Case Study in Successful Program Management in a Changing Environment

Water and Wastewater Utilities operate in a constantly changing environment. Regulations, funding availability, utility workforce, and environmental conditions are all constantly changing and impact the needs and capabilities of utilities. However, despite the changing conditions, it is important to stay focused on long term utilities goals and objectives. By setting strategic goals, and employing a continuous improvement approach, (Plan-Do-Check-Act) organizations can become more resilient in pursing long-term goals and gain the ability to pivot when their operating environment changes. Winston-Salem/Forsyth County (WSFC) Utilities has made a long-term commitment to reducing SSOs and optimizing their collection system operations. In 2014 the US EPA issued a Letter of Violation citing poor collection system performance. In response to that, the Collection System Improvement Program (CSIP) was developed to improve operational and regulatory performance of the collection system. The PLAN Phase: Utility leadership established six high level objectives to guide utility actions in improving collection system performance. A detailed roadmap of specific actions was developed to make initial steps toward these goals. The DO Phase: The Utility completed initial studies, tool developments, and implemented the steps in the long-term road map to make first steps toward these goals. The CSIP program resulted in the dismissal of the pending EPA case, but that was not the end of WSFC Utilities commitment to improving collection system performance and focusing on those original long-term goals. The CHECK Phase: The environment had changed along the way. The Utility has experienced hiring freezes, staff shortages, and pandemic conditions. In addition to these phenomenon, the recent weather patterns have resulted in never-before seen levels of Inflow and Infiltration (I&I) of the collection system. The associated flows were now beginning to stress WWTP operations. The ACT Phase: The utility has decided to implement a comprehensive flow monitoring approach to address the high levels of I&I. In response to other changes in the operating environment the utility has also undertaken an extensive maturity and gap assessment to revisit the long-term goals and operational objectives of the collection system program. The result is a new set of initiatives (or roadmap) to establish a sustainable and long-term approach for the future of the collection system operations. This will include the specific tactics needed to continue to make progress towards the latest strategic goals for the program. Following this continuous improvement cycle has allowed for WSFC Utilities to realize over a 40% reduction in SSO events since the start of the CSIP. This has translated to the dismissal of the open EPA case against the utility without regulatory action in 2019. These results represent a significant milestone for the CSIP, but not an endpoint. New regulatory drivers we're surfacing including high peak flows at WWTPs because of I/I within the collection system. Using the continuous improvement framework, the CSIP was able to adapt to this change. Existing programs and activities we're able to be modified to address this new program driver and provide continued value to the utility without the formation of a new or different program. WSFC Utilities was able to use exiting condition assessment data, maintence observations, and flow information to model and understand I/I risk within the wastewater collection system. This information was then used to reprioritize further inspection and rehabilitation work to address this new concern. By adapting program activities to address new and emerging risks, WSFC Utilities has increased the resiliency of their operation. This has allowed the progress and accomplishments of the past to be leveraged to address the problems of the future. By implementing a cycle of continuous improvement, WSFC Utilities has been able to achieve short term goals while continuing to pursue a long-term mission and vision. Other organizations can learn from this example how to adapt to a changing operating environment in ways that deliver value to their staff, ratepayers, and communities.