Sanitation/Health and Safety Issues             Prior to 1977, fecal coliform levels in the Russian River from Alexander Valley to Duncan's Mills, consistently exceeded the basin Plan's water quality objective for body contact recreation.  From 1985 to 1991, the objective level of reduced amounts were met in the Russian River with only a few exceptions.  Results of an intensive monitoring of popular swimming areas in the lower Russian River by the Sonoma County Health Department during peak recreational season in 1992, revealed exceedances for bacteria.  Increased levels of fecal coliform bacteria in surface waters can result from malfunctioning individual wastewater disposal systems.             Onsite Sewage Disposal Systems (OSDS) or septic systems can cause degradation of water quality.  There are inconsistent statewide standards and regulatory approach for OSDS and this is compounded by inadequate coordination between State agencies with a resultant lack of inspection and maintenance of OSDS.  A 1990 census of Mendocino County and Sonoma county shows respectively the use of 16,949 housing units with 5,932,150 estimated gallons per day, and 40,980 housing units with 14,343,000 estimated gallons per day.             Monitoring of the Russian River for bacteria is laid out in the Regional Water Quality Control Board's Basin Plan.  The objective is that the bacteriological quality of the Russian River not exceed natural background levels. Numerical objectives are 1) that the median concentration of fecal coliform, based on a minimum of not less than five samples for any 30-day period, exceed 50/100 ml and 2) that not more than ten percent of total samples taken during any 30-day period exceed 400/100 ml.             The Regional Board and the health departments of Mendocino and Sonoma Counties have enforced this prohibition of discharges of waste during the period of May 15 through September 30 and have enforced it through the waste discharge orders and septic tank ordinances.  Based on recommendations from the State Department of Health Services, the Sonoma County Department of Public Health has chosen to continue sample bathing areas along the Russian River for fecal coliform bacteria and not for E. coli or enterococci.  Results in the area of most concern, the Healdsburg Memorial Beach, indicate the need for increased sampling, which was implemented by the County Health Department and no further action was required.             SCWA manages the sewer plants at Graton, Forestville, Guerneville and Occidental. (It also manages the water systems with the exception of Forestville.)  In all, the SCWA runs 11 sewer systems.  With the additional duties of SCWA as of the beginning of 1995 for sewer systems in the County of Sonoma, increases in fees were instituted by the County Board of Supervisors.  A result of the increase in fees was a request by a citizen for review by the County Grand Jury in 1995