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2018 Test and Measurement Conference
Johannesburg Drinking Water Quality Framework outline
Nondalo Shandu1
Loyiso Magadla2 and Letlakana Sebata3
Johannesburg water, 17 Harrison Street, Marshal Town, Johannesburg, 2001, South Africa
Phone: 011 483 9500 Fax: 011 483 9564
Abstract
In recognition of the importance of safe drinking water to public health, Johannesburg water
has developed water quality Incident response framework to enable effective management of
drinking water quality and the protection of public health. Waterborne disease remains one
of the major health concerns in the world. Diarrheal diseases, which are largely derived from
contaminated water and inadequate sanitation, account for 2.4 million deaths each year and
contribute over 73 million Disability Adjusted Life Years (a measure of disease burden,
WHO 1999). Johannesburg water (JW), City of Johannesburg municipal entity, is fully
equipped with its own monitoring plan; water safety plan; Policies and Regulatory standards;
and SOP’s in place to ensure that the Greater Johannesburg communities are supplied with
good quality water. Water suppliers (JW) should therefore acquit their operation in a duly
diligent manner such that reasonably foreseeable harm is identified; prevented and reasonable
measures are taken to protect the consumer. The drinking water quality management plan is
also developed with a number of supportive documents and standard operating procedures
and tools to provide the water sector with the information needed to monitor, manage,
communicate and regulate drinking water quality. Measures in place may showcase good
efficiencies, however challenges are met communication plays a key role in enabling forward
movement to properly assess and allocate resources accordingly, In addition, there is a
growing realisation that for risk communication to be effective it should be a continual and
evolving process and not simply a crisis management measure. Time lines and overall
Turnaround times are continuously affected if stakeholders are non-responsive and delay the
processes in place. This project seeks to evaluate Johannesburg drinking water quality
monitoring framework using incidents captured and investigate possible efficient framework
and to enable effective management of drinking water quality for protection of public health.
To Improve Communication channels in order to; Improve Time lines and Turnaround
Times; Implement and re-enforce documentation and make use of Current Systems to
improve response time
1. Introduction
The Johannesburg framework illustrates a systematic process that, when followed, will help
monitoring stakeholders assess and convey the information needed to understand, protect,
restore our water and most importantly supply the public with quality potable water. Safe
drinking water that complies with the South African National Standard (SANS) 241 Drinking
Water Specification does not pose a significant risk to health over a lifetime of consumption,
including different sensitivities that may occur between life stages (babies and infants, the
immunocompromised and the elderly). Improving access to safe drinking water can thus
result in tangible benefits to public health and every effort should be made to achieve a
Peer-reviewed manuscriptTest and Measurement 2018 Conference and Workshop
2018 Test and Measurement Conference
drinking water quality that complies with national safety standards. (Kim Hodgson1 and
Leonardo Manus., 2006)
Assessing Johannesburg framework accurately, effectively, and efficiently requires that all
stakeholders work collaboratively and strive for water quality improvement. Factors that can
impede collaboration and comparability include critical differences in monitoring design,
sampling protocols, analytical methods, data management, and data accessibility.
1.1 U.S. Environmental Protection Agency- A Framework for Water
Quality Monitoring
U.S. Environmental Protection Agency has adopted framework by The National Water
Quality Monitoring Council (Council) to address some of the obstacles that can impede
collaboration with stakeholders involved, these were input from the monitoring community,
of which they have developed the Framework for Water Quality Monitoring:
Fig 1. A unique and deliberate feature of the framework containing the “3 Cs”
Three C’s stresses the need for communication, coordination, and collaboration within and
among monitoring entities at every step of the process.
• Communicate, Coordinate, Collaborate:
The “3 Cs” indicate the importance of inclusiveness in the monitoring process. This can be
enhanced by including State and Regional Monitoring Councils as partners in monitoring
efforts as well as encouraging appropriate public participation throughout the monitoring
process.
1.2 National Drinking Water Quality Management Framework for
Ghana The Ghana Framework is an illustrative document, which expands on all aspects of Water
safety, however for this exercise the concentration is on, management of incidents and
emergencies. Although preventive strategies is intended to prevent incidents and emergencies
from occurring, some events cannot be anticipated or controlled, or the probability of their
occurring is so low that providing preventive measures would be too costly. For such
incidents, there must be an adaptive capability to respond constructively and efficiently.
2018 Test and Measurement Conference
Emergency protocols and communication planning are therefore critical in minimizing public
health risks associated with drinking water failure.
Wherever possible, emergency scenarios should be identified. Incident and emergency
protocols, including communication procedures, should be planned and documented.
Establishing procedures on the run’ is a recipe for inefficiency, lack of coordination, poor
response times and potential loss of public confidence.
Fig2. Figure Illustration of incident management protocol (June 2015)
The main idea Ghana Incident Protocol seize to achieve is:
• Define potential incidents and emergencies and document procedures and response
plans with the involvement of relevant agencies.
• Train employees and regularly test emergency response plans.
• Investigate any incidents or emergencies and revise protocols as necessary.
1.3 A drinking water quality framework for South Africa
This initiative took place in 2005, In recognition of the importance of safe drinking water to
public health, DWAF, now known as DWAS, initiated a project to draft a Drinking Water
Quality Framework for South Africa to enable effective management of drinking water
quality and the protection of public health. The Framework is based on a preventative risk
management approach, which is comprehensive from catchment to consumer. The approach
promotes an understanding of the entire water supply system, the events that can compromise
drinking water quality and the operational control necessary for optimising drinking water
quality and protecting public health. However, the Framework also recognises the challenges
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facing water services authorities (WSAs) in South Africa, and advocates a continual
incremental improvement approach towards long-term targets.
Current investigations show that an unacceptably high incidence of poor drinking water
quality occurs in non-metro South Africa. Reasons for failure of drinking water standards
include:
• A lack of understanding by WSAs regarding the requirements for effective drinking water
quality management
• Inadequate management including monitoring of drinking water services
• Inadequate asset management
• Inadequate WSA institutional capacity (staffing, funding, expertise, education)
• Lack of intervention to address poor drinking water quality when detected.
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Figure3. Incident Management protocol of Operational Alerts from Routine sampling
summarized
1.4 A drinking water quality framework for South Africa- Johannesburg
In recognition of these challenges faced by WSAs in South Africa, the Department of Water
Affairs and Sanitation (DWAS), as the lead institution for the regulation of drinking water
quality in South Africa, identified key stakeholders and appropriate mechanisms for their
involvement in a task team and subsequent development of a Drinking Water Quality
Framework for South Africa. Key stakeholders included:
• DWAS, National and Regional Offices
• Department of Health (DoH)
• South African Local Government Association (SALGA)
• Department of Provincial and Local Government (DPLG)
• Water Research Commission (WRC).
Johannesburg thereafter, through direction of Lead institution for the regulation of drinking
water quality in South Africa formulated its own internal Framework that has supporting
documents and supporting stakeholders that all play an important role in water quality
management.
1.4.1 Responsibilities
The laboratory is responsible for reticulation water sampling in the greater Johannesburg
area. Samples are analysed for compliance to SANS 241: 2015 which includes testing for
microbiological and Chemical analysis.
The Affected depot is responsible for rectifying the problem. Where problems exist in storage
facilities then the electro-mechanical depots are responsible.
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Fig 3, Johannesburg water quality Framework
• Emergency protocols and communication plans ensure that during drinking water
failures:
• Key stakeholders are kept fully informed; Roles and responsibilities of
individuals and organisations are clearly outlined to avoid miscommunication and
duplication of effort; Timeous interventions are taken to rectify the situation; and
affected communities are properly informed and have alternative safe drinking
water for the duration of the problem.
• Emergency protocols and communication planning are therefore critical in
minimising public health risks associated with drinking water failure.
2. Aim To evaluate Johannesburg drinking water quality monitoring framework using data captured
and investigate possible efficient outline and to enable effective management of drinking
water quality and the protection of public health.
3. Objective • Improve Communication channels
• Improve Collaboration Coordination
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• Improve and re-enforce documentation, training and make use of Current Systems to
improve response time
4. Methodology
The approach promotes an understanding of the entire water supply system, the events that
can compromise drinking water quality and the operational control necessary for optimising
drinking water quality and protecting public health. However, the Framework also recognises
the challenges facing water services authorities (WSAs) in South Africa, and advocates a
continual incremental improvement approach towards long-term targets. (Hodgson, K.,2006)
This was conducted by assessing Investigations and observing repeat or continual challenges
5. Results and discussion
5.1 Challenges observed
• Communication is significant when implementing this Framework it requires the
support and commitment of all water sector stakeholders. A number of institutional
stakeholders are responsible for drinking water quality management in Johannesburg
when implementing and adhering to existing policies or Standard Operating
Procedures. A flow of communication needs to be kept alive and everyone involved
should be up-to-date. This risks collaboration being affected and hence affecting
coordination.
• Training of employees and regularly test emergency response plans.
• Reports to be written for any major or minor incidents, internal or external incident
after investigated any incidents or emergencies and revise protocols as necessary.
• Implementation
• Contact list not updated timeously
• Protocol or strategy to follow when communicating with other departments not
followed leading to duplicate or misinformed
5.2 Common factors when comparing Frameworks
5.2.1 U.S. Environmental Protection Agency
U.S has incorporated Supporting documents that align itself to water quality monitoring.
What stood out for U.S is the following:
• The Importance of Training staff and stakeholders
• The importance of awareness for stakeholders and also community
• Supporting Programmes
• The Importance of Communication
• The importance of collaboration and coordination
5.2.2 Ghana
Ghana has incorporated Supporting documents that align itself to water quality monitoring.
What stood out for Ghana is the following:
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• Test of Emergency Response – Very critical because documents may theoretically
work but when put into practise failures occur.
• Revision of Contact list every 6 months
• Supporting Programmes
• The Importance of Communication
•
5.2.3 South Africa
South Africa has incorporated Supporting documents that align itself to water quality
monitoring. What stood out for South Africa is the following:
• The Importance of Training staff and stakeholders
• The importance of awareness for stakeholders and also community
• Supporting Programmes
• The Importance of Communication
5.2.4 South Africa – Johannesburg
South Africa has incorporated Supporting documents that align itself to water quality
monitoring. What stood out for South Africa is the following:
• The Importance of following protocol and outlining responsibilities
• The importance of awareness for stakeholders and also community
• The Importance of Communication
6. DISCUSSION / RECOMMENDATIONS
6.1 Recommendation by Department of Water and Sanitation
6.1.1 Training
• Stakeholder Awareness and Training knowledge, skills, motivation and commitment
of staff involved in Drinking Water Quality Management ultimately determine the
ability of WSAs or WSPs to successfully operate a water supply system. It is thus
important to ensure that the level of awareness, understanding and commitment to
optimising and continually improving drinking water quality is developed and
maintained.
• Water Services Authority Employee Training- The training of employees in issues
relating to drinking water quality is essential to the provision of a safe and reliable
drinking water supply. Water treatment employees must be appropriately skilled and
trained in the management and operation of water supply systems as their actions can
have a major impact on drinking water quality.
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• Employees should have a sound knowledge base emergency protocol from which to
make informed operational decisions. This includes training in the methods and skills
required to perform their tasks in an efficient and competent manner as well as the
knowledge and understanding of the impact their activities can have on water quality.
• Training needs should be identified and it should be ensured that employees
performing tasks that could have a significant impact on drinking water quality are
competent to perform those tasks. Employees assigned responsibilities for managing
drinking water quality should be qualified on the basis of appropriate education,
training and experience as required. Accredited training programmes and certification
of operators are desirable. Water Services Authorities should utilise the services of
the ESETA (Energy Sector Education and Training Authority) to build the capacity of
their treatment works operators.
• Appropriate training to address specific needs should be developed and implemented,
and adequate resources made available to support training. Examples of relevant areas
to address include general water quality, and specific training to optimise system
performance such as: coagulant control testing; proper filter operation; disinfection
system operation; reticulation management; sampling, monitoring and analysis;
interpretation and recording of results, and maintenance of equipment.
• Employees should also be trained in other aspects of Drinking Water Quality
Management including incident and emergency response, documentation, and
reporting.
• Training should be documented and records of all employees who have participated in
training maintained. Mechanisms for evaluating the effectiveness of training should
also be established and documented. Training is an ongoing process and employee
training requirements should be regularly reviewed. For those activities that have a
significant impact on drinking water quality, periodic verification of the competence
of operations staff is necessary
6.1.2 Awareness
• Water Services Authority Employee Awareness and Involvement Increasing
awareness and understanding of Drinking Water Quality Management are essential
elements in empowering and motivating employees to make effective decisions. All
employees should be aware of the characteristics of the water supply system, what
preventative strategies are in place throughout the system, regulatory and legislative
requirements, roles and responsibilities of employees and departments, and how their
actions can impact on water quality and public health.
• Employee awareness can be delivered and enhanced in various ways including the
development of employee education/induction programmes, newsletters, guidelines
and manuals, notice boards, seminars, briefings and meetings
6.1.3 Documentation
2018 Test and Measurement Conference
• A detailed investigation should be carried out to identify source of the problem,
following the catchment to consumer approach. The stakeholders should meet to
further discuss possible interventions.
• Several issues may be identified and prioritised, including upgrade of infrastructure,
sourcing of funds to address water quality problems and monitoring of industrial
effluent or diffuse source discharges.
2018 Test and Measurement Conference
7. Conclusion
In conclusion- the factors that impede process flow of the plans should be dealt with
immediate effect to keep the flow of communication, collaboration and coordination
It is important every after an incident, whether minor or major to do an incident re-call so to
assess the efficiency of your incident plan
Communication tools within internal departments to be efficient and the plan to clearly
outline the protocol
Communication between internal departments and external should always flow and the plans
should ensure all stakeholders are on board
Communication to communities must not be limited, make use of local radio stations and its
counsellors (Create a contact list- to send a chain sms)
Testing of incident plans should be periodical, whether annual basis or every 6 months – and
to use every incident as an opportunity to improve existing programmes
Contact List of Emergency team should be updated at least every 6 months so to keep
updated and to have alternative numbers.
Standard Operating Procedures or strategic documents should be made available on
communication. Our Framework to be on constant reviewed and tested to see if our
emergency response plans are adequate.
2018 Test and Measurement Conference
References
1. Department of water affairs & forestry (1997) water services act: no. 108 of 1997.
2. Department of water affairs and forestry, department of provincial and local
government and national treasury (September 2003) strategic framework for water
services, Pretoria.
3. Department of water and sanitation, a drinking water quality framework for south
Africa (2005)
4. Government gazette no. 22355 (8 June 2001) regulation gazette no. 7079.
5. WHO. (2011). Guidelines for drinking water quality. (4th, Ed)