Sewage and what to do with it has posed a complicated set of problems for the community of Cashiers — problems that could put in peril the area’s economic development as much as the public’s health.

The tribal council for the Eastern Band of Cherokee Indians recently approved a $28 million upgrade for the sewage treatment plant, which will double the capacity and accommodate demand fueled in part by growth of Harrah’s Cherokee Casino.

Greg Snyder was perturbed when he addressed the Maggie Valley Board of Aldermen in June.

In March, Snyder had plunked down $4,625 to connect five new RV sites at Twinbrook Resorts to the town’s sewer system. Less than two weeks later, the town board voted to change its sewer tap fee rates.

Waynesville has once again denied Haywood County’s proposition for extending its sewer lines several miles beyond the town limits toward Balsam along U.S. 23/74.

The county has asked the town to augment its sewer lines near the rest stop a couple of times before, specifically to serve a roadside rest area. But, new sewer lines would also bring the possibility of new and potentially uncontrolled commercial development along that stretch of highway.

Whittier’s $5 million wastewater treatment plant could be facing eventual financial insolvency, saddled with too much overhead and too few customers to make operation viable.

The sewer plant, in hindsight, was overbuilt for growth and development that failed to materialize along the U.S. 441 corridor in Jackson County that leads to Cherokee. Ten years later, the plant with a capacity to treat 200,000 gallons is handling a mere 8,000 gallons with just 36 customers.

There’s only enough money to keep operating, as-is, for two more years. Then it’s decision time for the Tuckaseigee Water and Sewer Authority. TWSA, formed to oversee water and sewer needs for Jackson County’s residents, is the reluctant manager of Whittier’s treatment plant, a role the authority inherited. Stakeholders such as Jackson County and the Eastern Band of Cherokee Indians also must make funding decisions when current payments and savings run dry. And, Jackson County would like to see Swain start helping out after learning that most of the customers are actually residents of that county.

“This could be a little touchy,” Joe Cline, executive director of TWSA, told Jackson commissioners recently. “But, the majority of this system lies in Swain County. And they’ve never been asked to participate.”

“Looks like we should be sending someone a bill,” Commissioner Doug Cody noted.

The plant was built with grant funding, including a nest egg to subsidize operations until the customer base grew. Jackson County and the tribe struck an agreement to pitch in during the initial start-up years.

Jackson County has kicked $300,000 into the plant. It relies on the facility to handle wastewater from nearby Smokey Mountain Elementary School.

The tribe originally bought into the plant concept, to the tune of $100,000 a year for three years, in hopes of using the facility to serve a recreation complex and golf course. Cherokee, which owes one remaining $100,000 payment, ended up taking care of its own wastewater needs from the complex and golf course, arguably getting little out of its investment but making good on its promise.

The Whittier Wastewater Treatment Plant has 25 residential and 11 commercial customers. It has added just a single three-bedroom house to the customer rolls since the plant came online just more than 10 years ago. The customers served by Whittier’s wastewater treatment plant chip-in a total of $20,000 a year to the cost of operating the plant, which comes to about $180,000 annually.

It processes so little sewer that its systems have trouble functioning at times.

“We have to haul sludge to the plant when school is out to keep it operating properly,” Cline said.

Before the sewer plant was built, projections showed 40 customers had an interest in tapping in to it. Of those, 10 or 15 weren’t close enough to tie on to the system after all. Another six or so had done something else while the plant was being built, such as put in individually owned septic systems.

“If the projections were correct, then at the end of two years, TWSA would have been able to take over and break even, debt free, with operating revenues to pay the costs of going forward. Problem is, the projections haven’t come true,” Jackson County Manager Chuck Wooten told county commissioners recently.

Wooten emphasized that he would like to see TWSA retain its role with the plant, which is technically under the management of the Whittier Sanitary District. That group has been the target of sharp criticisms for lack of accurate recordkeeping and failures to submit timely audits to the state as required.

Still, Wooten maintained, the plant “is an asset, there’s no doubt about it. It’s just a waiting game, it’s waiting on the development. But the plant will allow the development to take place.”

As of this week, Jackson County had not officially contacted Swain County about helping to offset costs at the Whittier wastewater treatment plant.

Such a big plant to serve so few: how the Whittier Wastewater Plant came to be

Just more than 10 years ago, setting the table for economic growth around Whittier seemed something of a no-brainer — the casino in Cherokee was booming, and it seemed inevitable that businesses such as restaurants and hotels would clamor for space in the gateway area along the U.S. 441 corridor leading into Cherokee.

Meanwhile, residents in the unincorporated community were complaining about failing septic systems. Whittier lies along the Tuckasegee River, saddling the borders of Jackson and Swain counties. There were some reports of straight-piping sewage into the Tuckasegee River. The nearby Church of God’s Western North Carolina Assembly wanted to expand. The septic system at Smokey Mountain Elementary School, a few miles along U.S. 441 in Jackson County, no longer could serve the number of students required. And, the Eastern Band of Cherokee Indians was completing a recreation complex and was intent on building a golf course not far away, both eventually finished and now open. Under the guidance of the Southwestern Development Commission, these stakeholders came together and built the Whittier Wastewater Plant.

A member of the Eastern Band of Cherokee Indians is suing the tribe over sewage overflows onto her property, which she says poses a health threat to her family.

Linda Lambert filed a suit against the tribe in May 2011 over alleged sewage spills from a nearby manhole and sewer pipes. In her complaint against the tribe, Lambert lists 17 specific days that she says sewage overflowed onto her property and into Adam’s Creek during the past two years.

The tribe, however, is asserting that the number of actual sewage overflows is much less. The tribe also contends the overflows were promptly dealt with.

In court documents, Lambert states that raw sewage from the tribe’s sewer treatment plant is seeping onto her land and into nearby Adam’s Creek. Such overflows forced her family to move elsewhere and prevented her from being able to fully enjoy her property, including fishing.

Lambert is seeking $60,000 in damages, including physical, mental and emotional stress. The damages are linked to claims of negligence, trespassing, nuisance, violation of her civil rights and the taking of her property without compensation.

“The fact that it’s overflowing is not in doubt,” said Mark Melrose, Lambert’s attorney with Melrose, Seago and Lay based in Sylva. “I know there are dozens of people who know about it.”

Melrose said they will know more information in the next couple of months as potential witnesses are interviewed.

In court documents, the Eastern Band states that on at least one occasion sewage has leaked into Adam’s Creek, the Oconaluftee River and onto Lambert’s land. However, the discharge was partially treated and posed no health hazard.

“There was an episode, yes,” said Chad Ray Donnahoo, an Asheville attorney hired by the ECBI for this suit. “All that was reported to the EPA.”

Donnahoo said that the tribe did its due diligence by testing any overflows to make sure the seepage was not hazardous and reporting any incidents to the Environmental Protection Agency.

The tribe is in the process of updating its dated sewage system and treatment plant. The last comprehensive upgrade was in 1997 when capacity of the plant was tripled — timed with the opening of Cherokee’s first casino and intended to handle the likely increase in volume. During the past 15 years, the casino has undergone two major expansions — including the recent $633-million enlargement. Adding additional capacity will be part of the coming upgrades, which are in the early planning stages.

The Eastern Band is questioning why Lambert waited until May 2011 to file a formal complaint.

Lambert went before tribal council a couple times before taking legal action, according to court documents.

“She has tried to seek a resolution politically,” Melrose said. “And, she didn’t get any relief.”

Tribal Council passed two resolutions — one in 2008 and another in 2010 — promising to remedy the overflow problems. However, the complaint against the tribe states that nothing has been done and sewage continues to leak onto Lambert’s land.

The tribe “negligently and intentionally” acted or did not act in a way that resulted in “the negligent and wrongful management, operation, maintenance and repair of the Tribe’s sewage collection and transmission system,” states the complaint.

The tribe is hoping to get the case dismissed on the grounds of sovereign immunity. Some government entities are immune against certain legal actions. However, if the entity obtains insurance to cover possible lawsuits, it waives its right to immunity.

“We are currently investigating with our insurance provider the coverage issues,” Donnahoo said.

Right now, it is unclear whether or not the Eastern Band’s insurance plan would cover such as case.

“Even if the tribe has the legal escape clause, (I’d hope) that they would do the right thing by tribal members,” Melrose said.

An aging system

Cherokee is required to make regular reports to the Environmental Protection Agency, which regulates the tribe’s wastewater discharges. The tribe is also supposed to report any overflows, but it failed to do so prior to November 2010, said Stacey Bouma, an environmental engineer with the agency.

Bouma added that it is not that uncommon: many plants do not realize that they must report overflows, whether they happened on land or in water. Many only report sewage leaks into waterways.

Since November 2010, the tribe has filed 23 reports with the EPA ranging from benign clogged lines to bona fide overflows. The majority are of little consequence.

The overflow reports include a couple of incidents of pipes being harmed during construction, which resulted in release of sewage.

After receiving complaints about overflows on the reservation, the EPA conducted an investigation and found that heavy rain was responsible for a number of overflows.

“The pipes couldn’t handle capacity when it rained,” Bouma said.

While rainwater is supposed to flow through gutters and storm drains, rain water is being funneled into the sewer system in some areas of Cherokee and overwhelming the lines.

“We have had a lot of problems with infiltration,” said Larry Blythe, vice chief for the Eastern Band of Cherokee Indians. “That pushes capacity to the limit.”

This is a common problem in towns with older sewage systems — nearby Bryson City has been plagued by this for years.

Overflows as a result of rain flooding the sewer system are luckily diluted, since the sewage is mixed with rainfall or melting snow.

In addition to reporting any water contamination, the treatment plant is required to tell the EPA if anything is coming out of a manhole connected to the sewer system.

The investigation also identified a manhole near Adams Creek as “a problem area,” Bouma said.

When a pump malfunctions or a leak in a sewage line occurs, the tribe reports it to the EPA, Blythe said. Many of the pipes that carry raw and treated sewage to and from the plant are old, and the tribe is working to replace them, he said.

The Eastern Band is planning to upgrade its sewer system and wastewater treatment plant, replacing old equipment and increasing its capacity. Blythe said the tribe is still working through estimates of what exactly the improvements will consist and how much they would cost.

He declined to address any legal issue regarding the wastewater treatment plant.

The treatment plant was first built in 1984 and was could process 0.9 million gallons of sewage each day. In 1997, however, the plant was updated and its capacity more than tripled. It is now permitted to treat up to 3 million gallons each day.

A houseboat on Fontana Lake was dismantled and hauled off this month after the owner repeatedly failed to dispose of waste properly.

For more than a year the houseboat owner dodged rules against straight piping sewage into the lake. The owner also skirted rules that limit how long a houseboat can sit in the same spot on the lake if it isn’t in a harbor.

The houseboat owner was sent warning letters from the Swain County Health Department, which polices sewage disposal by houseboats on the lake. After certified letters went unreturned, a notice was posted on the front door of the owner’s house, said Linda White, director of the Swain County Health Department.

After still no response, the county attorney sent him a final warning telling him to remove his houseboat or face fines and even criminal charges for violating the county’s houseboat waste disposal ordinance.

The houseboat owner finally took notice — but instead of complying he tootled down the lake to the Graham County side, out of Swain’s jurisdiction.

Graham County also has an ordinance that prevents houseboats from dumping their sewage into the lake, but after six months of getting nowhere, Swain authorities were happy to let someone else try. Graham didn’t have much luck either, however.

Meanwhile, the houseboat owner was loitering too long in one spot. Houseboats have to either be tied up in a harbor or on the move —  moving at least one nautical mile every two weeks. Tennessee Valley Authority flags boats that set up camp in one place on the open lake for too long. House boats outside a harbor aren’t supposed to be left unattended longer than 24 hours, either.

There are five private boat docks on the lake that will harbor houseboats in coves that branch off the main stem of the lake. Most of the 500 houseboats on the lake never budge from the boat dock where they lease harbor space. The owners use their houseboats as a home base on the water but use motorboats or pontoons to venture from the shoreline and play on the open lake.

The dock owners also handle houseboat sewage, using a fleet of pump boats to collect sewage from all the houseboats in their harbors and haul it to shore.

But this renegade houseboat owner simply idled around the lake.

“He refused to go to a harbor,” said David Monteith, head of the Fontana Lake Users Association and a Swain County commissioner. “He did not want to get into compliance and get into a harbor and sign a pumping contract.”

Ultimately, however, the lake itself dealt the houseboat a fatal blow. During a storm, it broke lose of its moorings and capsized.

“It was a navigation hazard,” said Darrell Cuthbertson with the Tennessee Valley Authority, which manages the lake. “Only two feet of one corner was sticking up from the water, and we were afraid someone was going to hit it so we drug it over to the bank.”

The closest shoreline happened to be National Park Service property. The Great Smoky Mountains National Park wasn’t exactly fond of a soggy, capsized houseboat on its lakeshore and asked the owner to claim his houseboat.

When he didn’t meet the deadline, Tennessee Valley Authority dismantled it and hauled off the scraps, Cuthbertson said.

Lake sewage rules

A local push to clean up Lake Fontana was set in motion about 10 years ago following a revelation that the bacteria level in the water was unsafe — five times above accepted fecal coliform counts.

All that sewage, not only from toilets but also “gray water” from showers and sinks, was polluting the lake.

Those who used the lake banded together under the Fontana Lake Users Association to address the issue. The group lobbied officials in Swain and Graham counties to pass ordinances regulating houseboat waste and secured more than $700,000 in grants to get a fleet of pump boats up and running.

Houseboats now collect their own sewage in tanks and have it pumped out and hauled ashore periodically by boat dock owners.

Houseboat owners must display a sticker on the outside of their boat showing they are in compliance with the law. To get a sticker, they have to provide a copy of their pumping contract with a boat dock owner.

Interestingly, houseboat owners go through the county property tax office to get their stickers since houseboat owners are supposed to pay property taxes on their boats anyway.

The sewage ordinance actually killed two birds with one stone: it cleaned up the lake and dramatically increased the number of houseboat owners paying taxes on their boats — much like your license plate renewal is tied to automobile inspection.

Monteith hopes this will be a lesson to any houseboat owner thinking of skirting the waste disposal laws on the lake.

“To me, it goes to show this is what could happen if you fail to get in compliance with this ordinance in Swain and Graham County. This is what could happen to anybody’s houseboat, it could be dismantled,” Monteith said.

Canton will be opening its doors to new business when a long-awaited upgrade to its Champion Drive sewer line is completed next year.

The update, which town officials say has been on the list of top priorities for several years, will cost $1.2 million and should take a little more than a year to complete.

Town Manager Al Matthews said that the current system is already overtaxed, and that’s preventing potential new businesses to set up shop in the corridor that runs from Interstate 40 into downtown Canton along Champion Drive.

“The line is drastically undersized for the new growth and development along Champion Drive,” said Matthews. “It [the upgrade] is a fairly broad-reaching economic development tool as well as meeting those needs that are in existence now.”

According to Matthews, the current line is at such capacity right now that even existing businesses in the area are unable to expand and maintain sewer service.

Once the larger line is in place, however, it will serve the new livestock market and provide capacity for both business expansion and new businesses alike.

The crux of the problem, said Matthews, is an over-extension of the line’s original intent. For example, the portion that serves the multitude of businesses between Sagebrush Steakhouse and Arby’s was only originally intended to serve the steak restaurant. But when Canton saw explosive growth along the road, the sewer capacity didn’t expand along with it.

Now, with the birth of a new urgent care center on the road imminent, appropriate sewage capabilities are urgently needed.

As Matthews said, the concept has been bandied about for some time, with the idea being that larger, big-box stores may look to Canton – almost equidistant between Waynesville and Asheville – as the prime location to draw shoppers from the outskirts of both cities. The industrial park that is also tied onto the line is another prime candidate for expansion and additional business creation.

Now, said Matthews, the area will once again have the trifecta necessary for new building of any kind – open real estate, water services and sewer capabilities.

Funding will be coming from several different sources, including a $100,000 grant from the Golden Leaf Foundation and a $600,000 grant from the N.C. Rural Center. Matthews said the county has agreed to pay a share of the costs, though to what extent is as yet unclear.

County Commissioner Kevin Ensley expressed support for the project, deeming it beneficial for the whole of the county in terms of economic growth and development.

“When a sewer line goes in, then business will follow,” said Ensley.

Work on the improvements is slated to begin within months, said Matthews, who hopes to have a permit for the construction in hand within 60 days.

One of three board members overseeing the Whittier Sanitary District resigned this month, saying he could not “in good faith” continue to serve with a group not in compliance with state law.

“In addition, refusing to file the necessary Internal Revenue Service forms to declare wages and benefits taken from the citizens of Whittier is wrong,” John Boaze, the board member, wrote in his resignation letter.

Boaze has persistently carried on a one-man crusade to force the Whittier Sanitary District board to adhere to the same rules governing other public boards, which he says they’ve openly flouted. Open meetings, audits, public records — rules like that.

To date, those with authority to intervene haven’t seemed to be listening.

That situation, however, might have shifted, at least marginally, in the wake of Boaze’s resignation.

The N.C. Department of the Treasurer, in an earlier response to Boaze’s complaints, sent the Whittier Sanitary District a strongly worded letter advising it to comply with state accounting practices. Last week, the Treasurer’s Department confirmed it’s monitoring the situation.

“If it is determined that the district is not consistently making an effort to follow sound accounting practices or general statutes, division staff do have authority to control the financial operations of the district,” said Heather Strickland, deputy director of communications.

Jackson Manager Ken Westmoreland said he had consulted with Kevin King, his counterpart in Swain County, to see what — if anything — needed to take place.

“The Whittier Water and Sewer District is an independent legal entity and if organizational change is to come about, it will have to be from state pressure in some form,” Westmoreland said.

Why the complacency?

Boaze likely encountered entrenched bureaucratic hesitancy for this reason: it’s all so danged confusing, and very few Whittier residents actually rely on the system — particularly when compared to the inordinately large number of governmental entities playing starring roles in the small, unincorporated community’s serial water-and-sewer drama.

Once someone pulls the first thread on this ball of twine, no telling what might come unwound.

The Whittier Sanitary District doesn’t oversee sewer needs in the Whittier community – the Tuckaseigee Water and Sewer Authority (TWASA), which operates in Jackson County, controls that service for Whittier.

The Whittier community encompasses land in both Jackson and Swain counties, meaning county commission boards in both have a hand in the district.

Though the Whittier Sanitary District doesn’t have anything to do with the day-to-day duties of handling the community’s sewer needs, the district does have responsibility for drumming-up customers for a new wastewater treatment plant, built to the tune of about $5 million. The board, to date, has failed to attract customers. The plant, which has the capacity to treat 200,000 gallons of wastewater a day, currently serves 12 customers.

Not a happy camper

TWASA, forced kicking and screaming a few years ago to take control of the wastewater treatment plant, isn’t happy. When extra money being chipped in by Jackson County and the Eastern Band of Cherokee Indians dries up, it appears the plant will be a massive drain on TWASA. Something akin to a fiscal sewer, as it were.

Jackson County is on its final year of a three-year agreement to provide $100,000 annually to TWASA. This $300,000 is on top of an initial $750,000 investment.

TWASA has encountered difficulty wresting the same amount in promised dollars out of the tribe, which has cited a different budget cycle than everyone else, among other reasons for the missing contributions. The check has been in the mail for about two years, with the first $100,000 payment promised to arrive any day. The tribe, like Jackson County, already paid about $750,000 to help build the plant.

Additionally, the Church of God added $500,000. Located near Whittier, the Church of God sports its own mini-version of the Methodist’s Lake Junaluska Assembly in Haywood County.

TWASA Executive Director Joe Cline says his board will decide at the beginning of the coming year whether to keep on keeping on when it comes to the wastewater plant. It might well decide, No thanks. In that case, who will operate it?

What the heck do they do, then?

Back to the Whittier Sanitary District board, and the reason it exists. The district’s board is tasked with overseeing the water system serving the Whittier community. There are about 100 customers relying on that system.

But, of course, it isn’t that simple. The Whittier Sanitary District board doesn’t actually maintain or operate the water system, either — that’s done by the Eastern Band, which has tracts of tribal land in and about the Whittier community. No one knows how much longer Eastern Band leaders will want to continue this task, which aids not only its neighbors but also those tribal members who live in the area.

Add one more item: Cline is on record saying TWASA does not want Whittier’s water system. The wastewater treatment plant is providing enough headaches, thank you very much.

Back about a decade ago, setting the table for economic growth around Whittier seemed something of a no-brainer — the casino in Cherokee was booming, and it seemed inevitable that businesses such as restaurants and hotels would clamor for space in the gateway area along the U.S. 441 corridor.

Meanwhile, residents in the unincorporated community were complaining about failing septic systems. Whittier lies along the Tuckasegee River, saddling the borders of Jackson and Swain counties. There were some reports of straight-piping sewage into the river.

The nearby Church of God’s Western North Carolina Assembly wanted to expand. The septic system at Smokey Mountain Elementary School, a few miles along U.S. 441 in Jackson County, no longer could serve the number of students required. And the Eastern Band of Cherokee Indians was completing a recreation complex and was intent on building a golf course not far away.

Ten years and some $5 million later, a wastewater treatment plant now serves all those needy entities.

Blame the economy, the parties involved certainly do; but the bottom line?

• Assessments about growth turned out to be wrong, at least to date. There are just 14 customers being served by a plant with annual operating costs of roughly $180,000 a year. The plant is capable of treating 200,000 gallons of wastewater a day — and the treatment facility was built with future expansion in mind.

• Jackson County residents continue to kick in $100,000 a year to subsidize the system. The county agreed to help pay for the system for three years, and has one more year to go.

• The Eastern Band also made the same deal, but the tribe — citing an unfinalized budget, and a different fiscal-year budget than other local governments, among other reasons — hasn’t yet made a payment. It is now $200,000 behind on its $300,000 pledge. The first $100,000 of the tribe’s commitment is in their current 2010-11 budget, which began Oct. 1. A payment is expected soon, Vice Chief Larry Blythe has assured parties involved.

• The Whittier Sanitary District, a three-member board that continues to oversee water for the community and is tasked with getting more customers for the wastewater treatment plant, instead hasn’t even met basic requirements the state sets for governing boards.

A letter last month to the district from the Department of State Treasurer complained that no budget has been adopted, the district operated at a net loss with actual expenses exceeding budgeted amount, board members were reportedly receiving utility services free of charge, an audit hadn’t been done as required, and the financial officer wasn’t bonded as the law stipulated. The district has since cut out the perks for board members but is still working at coming into compliance on the other matters.

All of this has created a hardship for the Tuckaseigee Water and Sewer Authority (TWASA), which became the reluctant manager of Whittier’s sewer system. TWASA was formed to oversee water and sewer needs for Jackson County’s residents, with the idea that one large entity would do a better job than the county and towns (there are four in Jackson) working alone could.

“It’s at the point we will have to decide whether to keep operating the plant, or turn it over to the Whittier Sanitary District,” said Joe Cline, executive director of TWASA.

That decision, he said, will be made around the beginning of the new year.

When the subsidies from the county and tribe dry up, the 14 current customers won’t be enough to cover the system’s costs.

Bill Gibson, executive director of the Southwestern Development Commission, a regional council for the state’s seven westernmost counties, is a dealmaker. And he was the man who helped put together the money needed to make the wastewater treatment plant a reality.

This was a complicated project, one of the most intricate deals Gibson has been involved in since taking the lead role for the commission in 1976. There were numerous private and public parties involved. Millions of dollars were needed.

Land, owned by the Jackson County Economic Development Commission, was available in an industrial park in Whittier. And in 2001, the N.C. Rural Economic Development Center agreed to give the project a $3 million grant.

Getting the necessary permits to build took two years. Among the delays — an archaeological site and the need to tunnel pipe under the Tuckasegee River.

During this time, prices on building supplies went up. The grant wasn’t large enough to cover the bids coming in. More money was sought and received from Jackson County, the Eastern Band and the Church of God. Total, Jackson and the Eastern Band invested about $750,000 each into the project. The Church of God, about $500,000. The N.C. Rural Economic Development Center added $200,000 more to its original grant amount, Gibson said.

For Jackson County’s part, Manager Kenneth Westmoreland said, the elementary school’s failing septic system presented a problem that had to be solved. Gibson estimated it would have taken more than a $1 million for the county to buy land and put in a new septic field and sewer system.

“Even with a new septic field, you are buying time, but it would eventually fail, too,” he said.

Though additional money was made available, some things had to be cut to make the sewage treatment plant a go.

“Some of the reason we don’t have the customers we thought is that we had to cut out some lines,” Gibson said.

The initial estimates were for 40 customers to tap in. Of those, 10 or 15 weren’t close enough to tie on to the system after all. Another six or so, Gibson said, had done something else while the plant was being built, such as put in their own septic systems.

Westmoreland recently noted the Whittier Sanitary District hasn’t been very aggressive in recruiting new customers.

There are a lot of ‘ifs’ before the building of a wastewater treatment plant in Whittier can be deemed a failure or success. If the economy rebounds, if investors see a reason to build on U.S. 441, if residents in Whittier tap in to the system, the plant will serve the purpose intended. Everything is in place for that to happen — in addition to sewer lines, there is also water, natural gas and high-speed fiber optic.

But 14 customers? That won’t turn the system into what was envisioned: self sustainable and justifiable.