Water Security Handbook: Planning For And Responding To .

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A Water Security Handbook:Planning for and Responding toDrinking Water ContaminationThreats and IncidentsWaterSecurityIncidentsThreats

Printed on Recycled Paper

Note to Readers: The U.S. Environmental Protection Agency (EPA) prepared thisguide to help you enhance the security of your water system. This document does notimpose legally binding requirements on EPA, states, tribes, or the regulated community,and it may or may not apply to a particular situation, depending on the circumstances.EPA and state decision-makers retain the discretion to adopt approaches on a case-bycase basis that may differ from this guide where appropriate. Any decisions regarding aparticular community water system should be made based on the applicable statutes andregulations. Therefore, interested parties are free to raise questions and objections aboutthe appropriateness of the application of this guide to a particular situation, and EPA willconsider whether the recommendations or interpretations in this guide are appropriate inthat situation based on the law and regulations. EPA may change this guide in the future.To determine whether EPA has revised this guide or to obtain additional copies, contactthe Safe Drinking Water Hotline at 1-800-426-4791 or visit the EPA’s Water Securitywebsite at yWater Security Handbooki

Table of ContentsLOist of Acronyms and Abbreviations .vverview .1What is the Water Security Handbook? .1Why Is This Handbook Important? .2How Can This Handbook Help Me? .2Who Should Read This Handbook?.31.Water Utility Planning Guide .4Introduction .4Why is Water Security Planning Important? .4What Are Contamination Threats and Contamination Incidents? .4Should We Be Concerned About Contamination Threats and Contamination Incidents? .5Is Intentional Contamination Possible or Probable? .6How Serious Could Intentional Water Contamination Be? .6What is Due Diligence? .7How Do I Prepare For A Contamination Threat or Incident? .72.Contamination Threat Management Guide .10Introduction .10Roles and Responsibilities .11Federal Roles: The National Response Plan (NRP) .11Federal, State and Local Roles: The National Incident Management System (NIMS) .12Federal, State and Local Roles: The Incident Command System (ICS) .12Local Role: Incident Command at the Water Utility .13Federal, State and Local Roles: Unified Command .14Your Role and Responsibilities .15A General Plan for Threat Response and Threat Management .18Step 1: Decide if the Threat is ‘Possible’ .19Step 2: Determine if the Threat is ‘Credible’ and Protect Public Health .21Step 3: ‘Confirm’ the Threat .23Step 4: Remediate the Affected Water System .24Step 5: Recovery of the System .25iiWater Security Handbook

3.Site Characterization and Sampling Guide .26Introduction .26Investigating the Site.26Who Does the Site Characterization and Sampling? .27Ensuring Safety and Protection for Personnel .27What Does Site Characterization Involve? .27Initial Hazard Assessment Before Entering the Site .28Approaching the Site and Doing a Field Safety Screening .29Characterizing the Site .30Collecting Samples .31Exiting the Site .314.Analytical Guide.32Introduction .32What Do I Need to Know About Laboratory Analyses?.32Safety Considerations for Water Utilities and Others .33Types of Labs and Analyses Performed .33Non-Utility Laboratories That Perform Chemical Analyses .34Non-Utility Laboratories That Perform Biological Analyses .35Obtaining High-Quality Lab Results .35Approaches to Analytical Screening For Unknown Contaminants .36Why Analytical Laboratories Should Plan for Threat Response .385.Public Health Response Guide .39Introduction .39Response Planning for Protection of Public Health .39Step 1. Plan the Public Health Response Before a Threat Occurs .39Step 2. When a Threat or Incident Occurs, Determine the Public Health Consequences .41Step 3. Carry Out Operational Response Actions .42Step 4. Notify the Public .43Step 5. Provide an Alternate Water Supply for the Short Term.44Water Security Handbookiii

6.Remediation and Recovery Guide .45Introduction .45Who is Responsible? .45Remediation and Recovery .46Step 1. Find an Alternate Water Supply for the Long Term .46Step 2. Do a System Characterization and Feasibility Study .46Step 3. Do a Risk Assessment .46Step 4. Evaluate Remediation and Rehabilitation Alternatives .46Step 5. Choose the Right Remediation Technology .47Step 6. Design the Remediation .47Step 7. Do the Remediation .47Step 8. Do Post-Remediation Monitoring .47Step 9. Communicate With the Public to Restore Confidence .47The Final Step – Full Recovery .47Final Thoughts .48Glossary of Terms .49Additional Resources .54List of Contacts for States, Commonwealths, and Territories .58List of EPA Regional Contacts .61ivWater Security Handbook

List of Acronyms and PUSAMRIIDUSCGWaterISACWaterSCWCITWMDWUERMAgency for Toxic Substances and Disease RegistryCenters for Disease Control and PreventionChemical Weapons ConventionU.S. Department of Homeland SecurityU.S. Department of EnergyEmergency Operations CenterU.S. Environmental Protection AgencyEmergency Response PlanEnvironmental Technology Verification ProgramFederal Bureau of InvestigationFederal Emergency Management AgencyFreedom of Information ActFederal Radiological Monitoring and Assessment Centerthis Water Security HandbookHazardous materials specialists, including specialists from government agencies andprivate contractorsU.S. Department of Health and Human ServicesHomeland Security Information Network for Critical SectorsIncident Command SystemLocal Emergency Planning CommitteeLaboratory Response NetworkMemorandum of UnderstandingNational Environmental Methods IndexNational Environmental Methods Index for Chemical, Biological and RadiologicalContaminantsNational Homeland Security Research CenterNational Incident Management System (NIMS) Integration CenterNational Institutes of HealthNational Incident Management SystemNational Response CenterNational Response PlanNational Response TeamQuality Assurance and Quality ControlResponse Protocol Toolbox: Planning For and Responding to Drinking Water ContaminationThreats and IncidentsTechnical Support Working GroupTechnology Testing and Evaluation ProgramU.S. Army Medical Research Institute for Infectious DiseasesUnited States Coast GuardWater Information Sharing and Analysis CenterWater Security ChannelWater Contaminant Information ToolWeapons of Mass DestructionWater Utility Emergency Response ManagerWater Security Handbookv

OverviewWhat is the Water Security Handbook?As a water utility manager, your role inwater security planning and threat responseis critically important. This Water SecurityHandbook was developed by the U.S. EPA tohelp you, the water utility official, protect yourwater system and respond effectively to threatsand contamination incidents involving yourwater system.EPA also wrote this Handbook in responseto calls for a short, simplified document thatsummarizes the comprehensive documententitled Response Protocol Toolbox: Planning Forand Responding to Drinking Water ContaminationThreats and Incidents (also known as the ResponseProtocol ToolboxToolbox).The Handbook is also intended to be acompanion to EPA’s Response Protocol Toolbox:Planning For and Responding to Drinking WaterContamination Threats and Incidents: ResponseGuidelines. The Response Guidelines providesmany forms and checklists to help you organizeand carry out your emergency response andplanning efforts. This Handbook describes thebasic concepts and procedures involved in watersecurity planning and threat response. Together,the Handbook and Response Guidelines providesuccinct recommendations concerning watersecurity planning and response actions.While the Response Protocol Toolbox is aimed atall utilities, agencies and other organizations thatmay be involved in responding to drinking waterthreats and incidents, this Handbook is aimedprimarily at water utility managers and staff.This Handbook should help you to: Understand the “basics” of responding tocontamination threats and incidents; Plan for responding to water contaminationthreats and contamination incidents; Learn about key concepts of water securitycovered in the Response Protocol Toolbox; and Learn how to use the Response ProtocolToolbox, the Response Guidelines, and otheravailable tools to help you provide 2.3.4.5.6.OverviewYou can use this Handbook as a guide to the Response Protocol Toolbox, because chaptersin this Handbook correspond to modules in the Toolbox:Water Utility Planning GuideContamination Threat Management GuideSite Characterization and Sampling GuideAnalytical GuidePublic Health Response GuideRemediation and Recovery GuideWater Security Handbook1

Why Is This Handbook Important?How Can This Handbook Help Me?Contamination of a drinking water systemcan cause illness, disease, or even death. Awater system can be contaminated, damagedor disrupted through intentional terrorist orcriminal actions or by an accident. Intentionalcontamination poses one of the most seriousthreats to a water system because of the intentto harm human health or cause damage. Whena contamination threat is received or acontamination incident happens, it is criticalthat you act quickly and effectively to protectpublic health and the environment.This Handbook should help you in the followingways:This Handbook should help you to developyour own utility’s plan for quickly andeffectively responding to contamination threatsor contamination incidents, even in situationswhere information may be limited. Help you to plan for unforeseen emergenciesinvolving your water system; Help you to review and improve your waterutility’s Emergency Response Plan (ERP) onan ongoing basis to address contaminationthreats and intentional incidents. Federallaw required that drinking water systemsserving more than 3,300 customers developan ERP (see the “Public Health Security andBioterrorism Preparedness and Response Actof 2002”, also known as the BioterrorismAct of 2002). Although the deadlines forcertifying ERPs for approval have passed,all utilities should continue to review andimprove their plans as their water systeminfrastructure, staff, technology andcapabilities change. Provide pointers on how to respond tocontamination threats and incidents; and Introduces and summarizes the morecomprehensive Response Protocol Toolbox.OverviewPlease note that this Handbook providesgeneral advice and general procedures forresponding to a water system contaminationthreat or contamination incident. Becauseevery water system and incident will bedifferent, it would be impossible to develop aone-size-fits-all emergency response template.The steps described in this Handbook arerecommendations, not rules.Although this Handbook is not a regulatorydocument nor is it a template for an EmergencyResponse Plan, it can help you to review,update and implement your own ERP, becauseit describes the planning you would do tocreate such a plan. For example, in your ERP,you should provide answers to the followingquestions:2Water Security Handbook

For more information on ERPs, see EPA’sdocument entitled Emergency Response PlanGuidance for Small and Medium Systemsto Comply with the Public Health Securityand Bioterrorism Preparedness and ResponseAct of 2002, the Emergency ResponsePlan Outline, and other emergencyresponse planning documents. Thesedocuments can be downloaded fromEPA’s water security website at www.epa.gov/watersecurity. You may also obtain agov/watersecuritycopy by calling EPA’s Safe Drinking WaterHotline at 1-800-426-4791 or by sendinga request to the Hotline via e-mail at www.epa.gov/safewater/hotline. Who will respond? What level of personal protection doresponders need in order to protect theirhealth and safety? Who can I call for help and advice? When and where should samples becollected? Who will collect samples? Who will analyze water samples to identifythe contaminant(s)? Who will make public health decisions? Who will manage remediation and recoveryactivities?Addressing these kinds of questions should helpyou to update your own ERP for respondingto a water contamination threat or incident.Utilities may also want to share their ERPs withlocal response partners in order to improvecoordination when an incident or emergencyactually occurs.Who Should Read This Handbook?This Handbook was written for water systemowners and managers, water utility emergencyresponse managers (WUERMs), and utility staffwho maintain public and private drinking watersystems, regardless of their size. In addition, anyonewho may be involved in an emergency responseconcerning drinking water, such as public healthofficials, emergency responders, law enforcementofficials, environmental protection officials and othergovernment officials should read this Handbook.Utility managers in the wastewater sector may findthis Handbook useful because it describes a generalprocess for threat and incident response.In the next chapter, water security planning isdiscussed.Where To Get More Information:For more informationon a specific topic,please refer to thefull Response ProtocolToolbox. You candownload theentire Toolbox, thisHandbook, theResponse Guidelines,and other watersecurity documentsfrom the EPA Water Security website at www.epa.gov/watersecurity. This frequently updatedepa.gov/watersecuritywebsite also contains other useful informationon water security planning, requirements andtraining opportunities. You can also request acopy of these documents by calling EPA’s SafeDrinking Water Hotline at 1-800-426-4791 orby sending a request to the Hotline via e-mailat www.epa.gov/safewater/hotline. Finally, thesection on “Additional Resources” at the endof this Handbook describes many useful watersecurity resources.Water Security HandbookOverviewEmergency Response Plans (ERPs):3

Water Utility Planning GuideIntroduction1 TWater Utility Planning Guidehis chapter discusses why you, as a waterutility manager or officer, should knowabout water security planning for effectiveresponse to contamination threats and incidents.This chapter also defines water contaminationthreats and incidents and describes howwater security planning is done. Chapter1 corresponds to Module 1 of the ResponseProtocol Toolbox. See EPA’s Water Securitywebsite at www.epa.gov/watersecurity for moreinformation.The first water security planning step is todesignate an individual to be the lead emergencyresponse manager for your utility, as well as analternate. At a small utility, you may be thisindividual. The second step is to plan yourutility’s response to a contamination threator contamination incident. In responding,you should decide if the threat or incidentis ‘possible’, ‘credible’, or ‘confirmed’. Ifthe threat is ‘confirmed’, then it becomes acontamination incident, requiring remediation(cleanup). Following successful remediation,the system is returned to normal safe operations(recovery).Why is Water Security PlanningImportant?Water security planning is critical because ofthe increased threat of terrorism and otherintentional attacks since 9/11. There aremany ways in which water systems can bethreatened by contamination or be intentionallycontaminated. Responding to contaminationthreats and contamination incidents requirescareful planning and preparation.4What Are Contamination Threatsand Contamination Incidents?There are two kinds of water contaminationproblems that you may have to dealwith: contamination threats and actualcontamination incidents.A contamination threat is a suggestionor an indication that water has been orwill be contaminated, but no conclusiveproof has been collected yet to confirm thatcontamination has actually occurred. Athreat may be written, verbal, or based onobservations or other evidence.Here are some examples of contaminationthreats:1) A suspicious empty container with anunknown residue is left next to a reservoir. Thisis a contamination threat. In this case, there isphysical evidence that suggests something haspotentially been added to the water supply, butcontamination has not yet been ‘confirmed’through testing or other conclusive evidence.2) Someone phones to say that they observedsomeone adding something to the waterreservoir. As before, you have become aware ofa threat and there is not yet any proof that thecontamination has actually occurred.A contamination incident has occurred if youanalyze water from the reservoir, distributionsystem or another part of your water system andfind that the water contains levels of a harmfulWater Security Handbook

Should We Be Concerned AboutContamination Threats andContamination Incidents?contaminant above baseline or backgroundlevels. This is no longer a contamination threat,but an actual contamination incident. Inshort, a contamination threat has not yet beenproven (or ‘confirmed’), while a contaminationincident has already occurred. Be alert tothe possibility that field or lab testing maynot be comprehensive enough to detect thecontaminant that may be present; for example,a Microtox analysis should tell you whetheror not there is a toxin present, but it does notmeasure radioactive materials or metals.A drinking water contamination incidentoccurs when the presence of a harmfulcontaminant has been ‘confirmed’; that is,verified.To protect your water system, you shouldbe ready to respond to both contaminationthreats and contamination incidents. Youmight not know whether a threat constitutesa contamination incident until you get moreinformation. However, if you ignore a threatand it turns out to be a contamination incident,public health and/or the water system might beharmed. You should always investigate a threatand determine whether or not a contaminationincident has occurred. Cause harm to public health (illness, disease,or death); Cause fear or loss of public confidence; Disrupt the water system or cause long-termshortage of clean, safe water to customersor prevent use of the water supply for firefighting; Disrupt businesses and services that dependon a safe water supply; Cause damage to the water systeminfrastructure (e.g., water plant, pumps,pipes, wells, treatment system, distributionsystem, electrical system or computernetwork) resulting in contamination orinterference with treatment or delivery; Create a need to remediate and replaceportions of the water system to make it safe,which could in turn create water shortages oroutages; Result in significant costs for remediation orreplacement; and Impact other critical infrastructures thatrely on safe water, due to interdependencies(e.g., food processing and refineries, amongothers).Since any one of these impacts could haveserious consequences, you should be concernedabout contamination threats and incidents.Water Security Handbook5Water Utility Planning Guide1Contamination threats and contaminationincidents could impact the public in thefollowing ways:

Is Intentional ContaminationPossible or Probable?1How likely is intentional contamination of thedrinking water system? Could it happen again?How serious would it be? These are the kindsof questions you should consider when planningfor water security.It is possible to intentionally contaminate awater supply in many ways. However, “possible”and “probable” are two different cases. It isalways possible that intentional contaminationcould be carried out, but the probability of thisactually happening should be determined at eachindividual water system.Water Utility Planning GuideQuestion: Compared with otherpossible terrorist targets, how likely isan intentional contamination incidentinvolving a water system?Answer: The likelihood of anintentional contamination incidentoccurring may be low, but the likelihoodthat a contamination threat will occur ishigh. In fact, such threats have occurredoften and are well documented.Security experts have warned that terroristorganizations may be considering watersystems as possible targets for weapons of massdestruction, known as WMD. WMD includesome chemical, biological and radiologicalcontaminants whose purpose is to cause harm.It has always been possible to intentionallycontaminate a water system, but 9/11 and otherrecent events have suggested that the likelihoodthat an intentional contamination incident willhappen has increased. This is why we all shouldplan and prepare to protect our drinking water.6How Serious Could IntentionalWater Contamination Be?There are many ways in which water can beintentionally contaminated, just as there aremany different contaminants. Each contaminanthas different effects on humans, animals and theenvironment, depending on its concentration(level) and toxicity (harmfulness).Examples of Possible Contaminants:Pathogens are harmful microorganisms thatcan impact human health, such as E. coli,Cryptosporidium, polio virus, Hanta virus,smallpox virus, and the microorganismsresponsible for anthrax, bubonic plague,cholera and other illnesses;Toxic metals such as arsenic, cadmium,mercury, osmium, and others;Toxic organic compounds such as biotoxins(Ricin), pesticides, chlorinated compoundssuch as dioxin, or volatile organic compoundssuch as mustard gas; andRadioactive materials such as radioactiveisotopes used in hospitals, research labs,universities and nuclear reactor fuels.A few contaminants are so dangerous that verysmall amounts could sicken or kill many humansor animals. These include certain pathogenicbacteria and viruses, some biotoxins, and somehighly toxic chemicals that can persist in waterfor a long time before they break down intoWater Security Handbook

less harmful chemicals. Other contaminantscould cause death or illness in people who areespecially at risk, such as children, the elderly,those who are already ill due to other causes orothers who are particularly sensitive. There arehundreds of contaminants that could disruptnormal operations and cause the public to loseconfidence in the water system, but whichwould not cause illness or death.How will you know when you have done enoughto evaluate and respond to a contaminationthreat or incident? This is where due diligencecomes in. Due diligence involves a carefulevaluation of any contamination threat and anappropriate response based on the evaluation.The response flow chart on the back cover ofthis Handbook shows what steps to take whena threat or incident occurs. Carrying out eachof these steps in a responsible, careful, efficientand timely manner should help to ensure duediligence.Due diligence should be determined locally, andlocal authorities should decide what level of riskis reasonable in a threat situation. If the threatis ‘possible’, appropriate responses to a threatcould include immediate operational responseactions and site characterization. If the threat is‘credible’, more significant response actions maybe needed, such as restrictions on water use. Fora ‘confirmed’ incident, authorities may be facedwith a potential public health crisis, and responseactions should include all steps necessary toprotect public health, supply an alternate sourceof drinking water, and begin remediation of thesystem.Due diligence means that you have doneeverything suitable, sensible and responsibleto evaluate a contamination threat or incidentand respond appropriately.It is up to you and your response partners todecide when due diligence has been exercised,because response capabilities vary. As part of thisdecision, you should decide how much risk isacceptable. You may also want to ask for help inresponding to a threat. Keep in mind, however,that over-responding to a threat may causeproblems too, espec

Water Security Handbook 1 Overview As a water utility manager, your role in s a water utility manager, your role in water security planning and threat response water security planning and threat response is critically important. This Water Security Handbook was developed by the U.S. EPA

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