component 2.2 water safety plan warsaw, march 2009 oliver schmoll, ingrid chorus federal environment...
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Component 2.2Water Safety Plan
Warsaw, March 2009
Oliver Schmoll, Ingrid Chorus
Federal Environment AgencyBad Elster and Berlin, Germany
Water Safety Plan (WSP)
Twinning Programme component 2.2
Warsaw, March 2009
Component 2.2Water Safety Plan
Warsaw, March 2009
Framework for Safe Drinking-water
Health-based targets(Regulatory body)
Independent surveillance(Surveillance agency or third party)
Water Safety Plan(Water supplier)
Component 2.2Water Safety Plan
Warsaw, March 2009
Rationality for WSP
Limitations of end-product testing:• Limited early warning capability of microbial testing
• Water volumes tested are rarely statistically representative
• Limited capability to detect short term fluctuations of water quality
Quality management procedures focusing on keeping processes under control have advantages:• Emphasis on prevention
• Focus on process control
• Designed to reduce, eliminate and prevent contamination
Component 2.2Water Safety Plan
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WSP in simple
Continuous cycle
What are the hazards in my supply system?
How do I fix the hazards?
How do I know that the hazards are fixed?
Component 2.2Water Safety Plan
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Prepare WSP
Describe water supply system
Control hazards
Implement and manage control measures
Define monitoring of control measures
System assessmentIdentify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
Prepare management procedures
Verify and audit WSP
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WaterSafetyPlan
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Prepare WSP
Describe water supply system
Control hazards
Implement and manage control measures
Define monitoring of control measures
System assessmentIdentify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
Prepare management procedures
Verify and audit WSP
PL
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Step 1
Component 2.2Water Safety Plan
Warsaw, March 2009
Management commitment
Clear signal from senior management is imperative for successful WSP development:• To secure manpower and financial resources
• To obtain support for changes in working practices
• To get commitment from all management levels
• To increase acceptance of operational staff
Management needs to actively promote water safety as a goal of the water supplier
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The WSP team
Interdisciplinary team with collective responsibility for planning, development and implementation of the WSP
Qualifications of team members:• Engineers (operations, maintenance, design)
• Water quality control staff (microbiologists and chemists)
• Technical staff involved in day to day operations
• Health scientists
Team leader for pushing and steering the project
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WSP teamExternal support
WSP is feasible without heavy external input
Water supplier should take the lead in WSP development and implementation:• Relocation of responsibility to consultants is not intended
• External specialised competence can be sought, if necessary
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NPrepare WSP
Describe water supply system
Control hazards
Implement and manage control measures
Define monitoring of control measures
System assessmentIdentify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
Prepare management procedures
Verify and audit WSP
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Step 2
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Document and describe the system
Comprehensive description of the water supply chain from catchment to consumer:• Describe all processes which may influence water quality
• Compile information concerning individual supply steps:
Source water and catchment, treatment processes applied, storage within the distribution system, distribution system
• Define areas of primary responsibility
• Identify areas beyond the suppliers responsibility
• Summarise regulatory requirements
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Document and describe the system
Construct conceptual flow diagram to improve understanding and system overview
WSP team must validate completeness and accuracy of flow diagram “out of the office”
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Layout planExampleCommunity
Layout plan1:10,000
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Hydraulic scheme Example
Component 2.2Water Safety Plan
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Catchment mapExample
Description ofhazards
Hazard
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Prepare WSP
Describe water supply system
Control hazards
Implement and manage control measures
Define monitoring of control measures
System assessmentIdentify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
Prepare management procedures
Verify and audit WSP
PL
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Step 3
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System assessment
Identify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
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What is a hazard?
“Hazard“:• Any biological, chemical, physical or radiological agent that has
the potential to cause harm to public health
• Hazards may be present or may originate throughout the water supply chain from catchment to consumer
Pathogens:• Bacteria, viruses and protozoa from human or animal faeces
Chemicals:• From geological formations (e.g. fluoride, arsenic)
• From man-made activities (e.g. nitrate, pesticides)
• From distribution system materials (e.g. lead, copper)
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What is a hazardous event?“Hazardous event”:• An event that introduces hazards to, or fails to remove them
from, the water supply
Examples for hazardous events:• Heavy rainfalls which cause runoff of pathogens into water
• Disturbance or breakdown of a treatment step
• Burst of a transmission pipeline
Example for hazardous condition:• Prolonged use of mineral fertilizers in agriculture which is
not adapted to the hydrogeological environment
• Poorly protected well-head
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Biological hazardsPathogens: bacteria, viruses and protozoa• Main source: Human or animal faeces
Non-pathogenic organisms:• Relevant to acceptability of drinking-water as the consumer may reject
water and use potential unsafe sources
Toxic cyanobacteria
Chemical hazardsAny agent with negative impact on water quality:• From geological formations (e.g. fluoride, arsenic)
• From human activities (e.g. nitrate, pesticides)
• From treatment (e.g. flocculants, disinfection by-products, impurities in treatment chemicals)
• From distribution system materials (e.g. lead, copper)
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Hazard identification
For each step of the flow diagram:• Systematically identify hazards and corresponding events
• “What could go wrong and where?”
Understand the relationship between the source of a hazard, its pathway thru the environment and its occurrence in water
System tailored assessment
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Hazard identificationStarting points
Hazard analysis should be based on existing experience and knowledge from within the supply:• Be pragmatic!
• Interview of staff in on-site operations
• Systematically analyze previous incidents or failures
• Supported by sanitary inspections
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Generic checklistsCatchment
Rapid variations in raw water quality
Sewage and septic system discharges
Land use (e.g. animal husbandry, agriculture, forestry, industrial area or discharge, waste disposal, mining)
Chemical use in catchment areas
Major spills (both accidental and deliberate)
Human access (e.g. recreational activity)
Wildlife and livestock
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Generic checklists Offtake and Distribution system
Inadequate wellhead structure / condition
Unsuitable well or intake location
Low internal pipe pressure or “pressure waves” leading to ingress/infiltration of contaminated material
Backflows drawing in contaminated water
Pipe bursts leading to the ingress during repair, replacement or installation of mains
Open/insecure water storage reservoirs/aqueducts resulting in faecal contamination
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System assessment
Identify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
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Determine existing control measures
Control measures are “barriers to contamination”
Control measures may include:• Preventing contaminants (hazards) gaining access to water
• Removing hazards from the water
• Inactivating pathogens in the water
• Maintaining the quality of the water during distribution by choosing adequate materials for piping and maintaining pressure
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Determine existing control measuresDescription /1
Control measures are “barriers to contamination”
Control measures are activities and processes applied to• Prevent hazard occurrence
• Directly improve / maintain drinking-water quality
• Collectively ensure that water consistently meets health-based targets
• collectively form the “multiple-barrier principle”
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Determine existing control measures Description /2
Control measures may include:• Preventing contaminants (hazards) gaining access to water
• Removing hazards from the water
• Inactivating pathogens in the water
• Maintaining the quality of the water during distribution
Various natures of control measures:• Catchment: wide range of planning activities to protect raw
water quality (preventative nature)
• Treatment, storage and distribution: focus on design, construction, operation and maintenance (technical nature)
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Determine existing control measures – examples:
Supply step Catchment area Catchment area
Hazard Nitrate Pathogens
Hazardous event Regular over-fertilisation in vulnerable groundwater catchment and nitrate accumulation in source water
Run-off of manure into creek as a result of heavy rainfall and short-circuit with aquifer
Control measures Training programme for farmers on fertilising regimes adapted to the hydrogeological environment (periodical)
Extension of storage volumes for manure (once)
Incentives for intercropping (continuously)
Blending of different source waters for achieving water quality target (continuously; over limited period of time)
Training programme for farmers on manure use patterns that prevent source water pollution by pathogens (periodical)
Purchase of vulnerable land (once)
Extension of storage volumes for manure (once)
UV-disinfection (continuously)
Distribution system
E. coli
Contamination due to construction or maintenance works
Work is performed by certified company in accordance with specified good practices (continuously over construction period)
Flushing and disinfection of constructed/maintained network sections employing good practices (once)
Testing and commissioning of network section (once)
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System assessment
Identify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
Component 2.2Water Safety Plan
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Risk prioritizationWhy?
Decide whether any event present a significant risk
Identify hazards or events that need most urgent action
Methods available:• Simple team decision
• Quantitative or semi-quantitative approach
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Risk prioritizationSimple team decision
Informed team judgment to rule events in or out• Assess all events identified at each step in the process
• Determine whether they are under control
• Document whether those events need urgent attention
Significant Clearly a priority The risk should be considered further by the team to define whether additional control measures are required and whether a particular process step should be elevated to a key control point in the system.
Uncertain Unsure if event is or is not a significant risk
The risk may require further studies to understand if the event really is a significant risk or not.
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Insignificant Clearly not a priority Note that the risk will be described and documented as part of a transparent and diligent process and will be revisited in future years as part of the WSP rolling review
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Risk prioritizationExample: output
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Risk prioritizationSemi-quantitative risk matrixes
Risk is calculated by multiplying ‘Likelihood’ by ‘Severity’
Likelihood or frequency:• How often or likely will a hazardous event occur?
Severity or consequence: • What will be the consequences for public health or the
consumer acceptance?
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Risk prioritizationExample from Jordan
I (1) II (2) III (3)
A (3) M (3) H (6) H (9)
B (2) L (2) M (4) H (6)
C (1) L (1) L (2) M (3)
SEVERITY / CONSEQUENCESL
IKE
LY
HO
OD
RISK MATRIX
For translation into Polish only – please delete ths box afterwards: L=low;
M=medium;
H= high
Component 2.2Water Safety Plan
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SEVERITY CATEGORIES:I No impactII Impact on aesthetic quality (i.e. consumer acceptance)
OR quantityIII Regulatory impact
OR impact on consumer health
LIKELYHOOD CATEGORIES:A Daily to weeklyB Monthly to quarterly (seasonally)C Yearly or above
RISK CATEGORIES:H High Urgent management attention needed
(= immidiate action)M Moderate Management attention neededL Low Routine procedures
Risk prioritizationExample from Jordan
I (1) II (2) III (3)
A (3) M (3) H (6) H (9)
B (2) L (2) M (4) H (6)
C (1) L (1) L (2) M (3)
SEVERITY / CONSEQUENCES
LIK
EL
YH
OO
D
RISK MATRIX
Component 2.2Water Safety Plan
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Risk prioritization Example: output
Component 2.2Water Safety Plan
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Risk prioritizationSemi-quantitative risk matrices
Each identified hazardous event will receive a value
Events can be compared and be classified (prioritized)
Basis for a relative assessment of single risks within one supply utility
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Risk prioritizationDirect your thinking before start
Be specific about what the risk is in terms of:• Risk of a specific event
• Leading to a specific hazard
• Reaching a specific and problematic concentration
• At a specific point in time and space
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Risk prioritizationResults
Which hazards (and hazardous events) are covered by sufficient control measures?
Which control measures are most important?
Which hazards require further measures to control the hazard adequately?
Is there insufficient knowledge about hazards and/or control measures (knowledge and research demands)?
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System assessment
Identify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
Component 2.2Water Safety Plan
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Additional/improved control measures
Significant risks identified require further investigation:• Additional control measures need to be identified
• Existing measures may need to be modified or improved
• Interim solutions may be necessary
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Action plan
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Prepare WSP
Describe water supply system
Control hazards
Implement and manage control measures
Define monitoring of control measures
System assessmentIdentify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
Prepare management procedures
Verify and audit WSP
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Step 4
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Control hazards
Implement and manage control measures
Define monitoring of control measures
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Implement control measures Combination of control measures
Type and number of control measures will vary for each system
For each hazardous event identified as a significant risk, efficient control measures need to be implemented
Each control measure needs to be described in a sufficiently precise and comprehensible manner
Standard operating procedures support the effective realization of individual measures
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Determine existing control measures Example of an instruction
Maintenance instruction Nr. 5-2
Critical point Backwatering of the Wildenstein creek
Maintenance area
(What is to be judged and maintained?)
Backwater prevention valve of Wildenstein creek
Time
(When and how often?)
a) monthly
b) after each heavy rain event
Working instruction
(What to do?)
1. Judgment
2. Maintenance
1. Judgment
ι Is valve free of bulky material and sediments?
ι Is the valve damaged?
ι Does the valve function accurately?
2. Maintenance
ι Clean backwater prevention valve
ι Grease valve and open/close it two times
Confirmation of performed work
(Who did it and when?)
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Control hazards
Implement and manage control measures
Define monitoring of control measures
Component 2.2Water Safety Plan
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Establish operational monitoring
Operational monitoring assesses the performance of control measures at appropriate time intervals
Monitoring Plan:• What will be monitored?
• How it will be monitored?
• Where it will be monitored?
• When it will be monitored?
• Who will do the monitoring?
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Establish operational monitoring
Monitoring intervals need to be defined individually for each control measure
Intervals may vary widely, e.g.:• On-line control of residual chlorine
• Quarterly inspection of the integrity of the plinth surrounding a well
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Establish operational monitoring
Simple and measurable tests:• Turbidity, pH, chlorine residual, conductivity,
precipitation events etc.
Observable features:• Integrity of technical infrastructure
(e.g. wellhead, fences, distribution, storage)
Definition of operational limits:• Upper or lower limits or tolerance ranges
• Monitoring results that exceed limits trigger corrective action(s)
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Define corrective actions
Planned and routine response to be taken when the results of operational monitoring at a control point indicate a loss of control during standard operation
Corrective actions should be specific and pre-determined to enable their rapid enaction
Most corrective actions are capable of being handled by• Automated systems
• Trained system operators
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Establish operational monitoringSimple monitoring procedure
Control point instruction Nr. 7-1
Critical point Turbidity
Location
(Where to measure/to control?)
Inlet tube
Time
(How often and when?)
Continuously
Measurement category
(What is to be measured or controlled?)
Siegrist turbidity measurement equipment (Photometer CT 65 B22-F3)
Documentation
(How to document/archive?)
Documentation on-site with multi channel writer. Longtime archiving by foreman
Given value and tolerance range < 0.24 FTU
Corrective actions
(How to alarm and what has to be done?)
Exceeding of critical limit: Automatic rejection of spring water
Phone alarm of well’s foreman
Responsibilities
ι For corrective actions
ι For inspection of measurement equipment
Wells foreman
Measurement equipment supplier, yearly
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Prepare WSP
Describe water supply system
Control hazards
Implement and manage control measures
Define monitoring of control measures
System assessmentIdentify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
Prepare management procedures
Verify and audit WSP
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Step 5
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Improvement and upgrade plan
If significant risks are identified: • Improvement and upgrade plan
• Define “owners” to take responsibility
• Define target implementation dates
Incremental improvement is pivotal• Short-, medium- or long-term programs
• Reflecting priorities
• Reflecting resources available
Component 2.2Water Safety Plan
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Improvement and upgrade planIssues
Capital investments
Capacity building
Enhanced managerial and operational procedures
Research and development
Developing incident protocols
Communication and reporting
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Prepare WSP
Describe water supply system
Control hazards
Implement and manage control measures
Define monitoring of control measures
System assessmentIdentify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
Prepare management procedures
Verify and audit WSP
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Step 6
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Management procedures /1
Accessible management procedures:• For actions in normal operation of the system
(Standard Operating Procedures = SOPs)
• For corrective actions and incident conditions
Written by experienced staff:• Interview staff and ensure their activities are captured
Updated as necessary:• Implementation of the improvement/upgrade plan
• Reviews of incidents, emergencies and near misses
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Management procedures /2
Accountabilities and contact details for key personnel
Clear description of the actions required in the event of a deviation
Location and identify of the SOPs and required equipment
Location of backup equipment
Relevant logistical and technical information
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Prepare WSP
Describe water supply system
Control hazards
Implement and manage control measures
Define monitoring of control measures
System assessmentIdentify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
Prepare management procedures
Verify and audit WSP
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Step 7
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Verification and auditing
Step provides sufficient evidence to demonstrate that the supply system is working effectively and will meet the health-based targets, i.e. that the WSP is adequately set up and implemented
Verification of water quality:• “Does the water produced meet the quality objectives?“
Auditing of operational activities:• ”Is the WSP being implemented in practice as it was
designed to be?”
Component 2.2Water Safety Plan
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Prepare WSP
Describe water supply system
Control hazards
Implement and manage control measures
Define monitoring of control measures
System assessmentIdentify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
Prepare management procedures
Verify and audit WSP
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Step 8
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Periodic review /1
Review process is essential in the overall implementation
Regular review assesses that the WSP is still valid• Analysis of the data collected as part of the monitoring
process
• Learning from experiences and new procedures
Provides the basis from which future assessments can be made
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Periodic review /2
When is it time for review ?• At regular intervals, taking into account the results of WSP
implementation
• Immediately after an emergency/incident/near miss
• Immediately if there is a significant change of circumstances
Review may result in reassessment of risk
Review may alter improvement/upgrade plan
Any change as a result of a review should be documented !
Component 2.2Water Safety Plan
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Prepare WSP
Describe water supply system
Control hazards
Implement and manage control measures
Define monitoring of control measures
System assessmentIdentify hazards
Determine existing control measures
Prioritize risks
Identify additional or improved control measures
Prepare management procedures
Verify and audit WSP
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Step 9
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DocumentationWhat should be considered?
Description and assessment of the drinking-water system
Upgrade programs
Description of control measures, the plan for operational monitoring and verification plan
Water safety management procedures for routine operation
Incidents and emergency response plans
Description of supporting programs, including training programs, communication protocols
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Keep in mind /1
Maintain basic simplicity and straightforwardness of the WSP strategy !
WSP is a systematic, ongoing and dynamic process:• A WSP is never completed
• A WSP is not just another operating procedure
• It is not about writing a “plan” in its own right
• A WSP process may result in a document which you may wish to label “Our WSP”
• A WSP should not end up as bureaucracy and paperwork!
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Keep in mind /2
There is no one single right way to develop your WSP
It is important that the WSP team has adequate experience and expertise
A WSP cannot be done solely as a desk study
Overcome complacency: nothing should be taken for granted
Don’t start from the scratch:
It is important to get started!
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New Zealand
Why to prepare PHRMP: public health responsibility
Explanation of coverage in plain words:• What could happen to cause the water quality
to deteriorate and become unsafe to drink?• Which of these factors need urgent attention?• How do you know when the water quality is
deteriorating to a point where action is needed?• How do you respond if action is needed?• How do you stop this happening in the future?
How to prepare a PHRMP: simple 3 step process
What to do with the plan: guide day-to-day actionsand long-term planning
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New Zealand: Small but beautiful
www.moh.govt.nz/water
Component 2.2Water Safety Plan
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New Zealand: Training tools
Component 2.2Water Safety Plan
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New Zealand: Training DVDs
Component 2.2Water Safety Plan
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New Zealand: “Pathogens Anonymous”
Component 2.2Water Safety Plan
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Bangladesh: Generic WSP
Vast number of rural water supplies in country with limited resources
Nature of hazards and hazardous events sufficiently similar to allow technology generic WSP
Developed in a participatory fashion based on local expert opinion
Workshops with key sector professionals
Component 2.2Water Safety Plan
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Bangladesh: Generic WSP
www.buet.ac.bd/itn/
Component 2.2Water Safety Plan
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Switzerland
Simple guidance
Made to assist in complying with regulations
9 Steps:• Clear instructions • Pro-forma based• Case examples
Component 2.2Water Safety Plan
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Switzerland