United States
Environmental Protection
Agency
Decontamination  and  Recovery Planning
               WATER AND WASTEWATER UTILITY CASE STUDY
  BACKGROUND
  Decontamination is a critical component
  of the recovery phase of a water system
  contamination incident. Pre-planning and
  coordination for decontamination and
  recovery of a water system can minimize
  the impacts of a water contamination
  incident to public health and the
  environment. Most utilities are familiar
  with decontamination methods such as
  flushing and chlorination associated with
  returning a broken distribution line to
  service or a water system contaminated
  with a conventional, regulated
  contaminant. However, to decontaminate
  and return a water system to service
  following a non-conventional chemical,
  biological, or radiological contamination
  incident requires effective pre-planning,
  communication, and coordination.

  Purpose of the Study: The primary
  purpose of this case study was to
  document the planning and experiences
  of a large water and wastewater utility's
  activities related to decontamination and
  recovery.

  Document Audience:  This case
  study's audience includes members of the
  water sector, particularly water and
  wastewater utilities and associated
  stakeholders.

  What's Inside?
  The Case Study Utility	1
  Pre-planning and Coordination for
  Decontamination and Recovery	3
  Response Actions and Information for
  Decontamination and Recovery	7
  Recovery Experience	9
  Acknowledgements	10
  Attachments	10
  For EPA water security information, visit
  www. epa. gov/wate rsecu rity.
                          The Case Study Utility

                          The utility described in this case study is a large combined water and
                          wastewater utility, located in the southeastern coastal United States. The
                          utility was selected for the case study based on its demonstrated
                          commitment to security and emergency preparedness, its ongoing
                          coordination with local emergency response agencies, and its willingness
                          to participate in this study and share its  experiences. The utility's
                          emergency management plans are largely driven by the threat of
                          hurricanes with multiple contamination and threat scenarios that could
                          impact critical customers and assets being served. The utility has adopted
                          an all-hazards approach to manage and mitigate diverse risks and its
                          emergency preparedness includes planning for response, recovery, and
                          mitigation phases of an incident. For security reasons the name of the
                          utility is not identified.
                            How Planning for Decontamination      /^ Prepared ness
                            and Recovery is Part of Preparedness
                            Preparedness includes planning
                            for mitigation, response, and
                            recovery phases. Each of these
                            phases, not mutually exclusive,
                            includes activities such as risk
                            communication, training and
                            exercises, and coordination with
                            key agencies and stakeholders.
             Incident
             Specific
             Planning
                                                                           Decontamination
                                                                           Plans
/Response
          Risk Communication
           Coordination with
            Key Agencies
                                                                   Mitigation
Recovery
                           Utility Emergency Prepardness Timeline
                           The utility completed its vunerabiliy assessment (VA) in 2003, in
                           response to the 2002 Bioterrorism Act. In 2005, after updating its VA,
                           the utility consolidated all plans and associated documents in a
                           single functional emergency response plan called the Utility
                           Integrated Contingency Plan (UICP). The UICP also included all
                           documents necessary for compliance with various regulations and
                           utility needs. The UICP is a comprehensive guide on the utility's
                           approach for planning,  mitigation, response, and recovery from
                           different types of incidents that threaten its water and wastewater
                           infrastructure. The utility's pre-planning and preparedness for

                           Disclaimer
                           The information presented in this case study is not intended to revise
                           or update EPA policy or guidance on decontamination or recovery.
                           VAs and response plans are prepared by water utilities to address
                           the specific threats and vulnerabilities relevant to the utility, and may
                           or may not be consistent with those of the case study utility. Mention
                           of trade names or products does not constitute endorsement for use.
          Office of Water (4608T)  EPA 817-F-08-004  September 2008  www.epa.gov/watersecurity

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                            Decontamination and Recovery Case Study
                                                                                       page 2


Bioterrorism
Act, 2002
Jan Jun
2003


Dec
Complete
VA
Continuous

Jan
2004


Jun


FIGURE 1 :
Dec
Jan
2005

UTILITY EMER
Update
VA
Jun
Dec
Update ERP to meet
Bioterrorism Act
_ requirements
Update












GENCY PREPAREDNESS TIMELINE
Update ERP and
consolidate to UICP
Jan
2006

June
Dec Jan
200
Training
Coordination
Jun
7


Coordinated
Agency
Response
Training
with Outside Agencies












  decontamination and recovery is an active and
  ongoing process. Figure 1 provides an overview of
  the utility's emergency preparedness timeline.
  Utility Integrated Contingency Plan

  Figure 2 provides an overview of the UICP. The
  UICP includes the following information:
    Written procedures encompassing the activities
    necessary to prepare the utility staff to respond to
    intentional, natural, accidental, indirect and/or
    technological emergencies and disasters as
    outlined in Figure 3.

    Information on  the implementation for those
    incidents that pose an unreasonable risk to human
    health and safety and/or the environment, and/or
    have the potential to cause a catastrophic impact
    on the operations of the utility.

    A format adapted from the National Response
    Team (NRT) Integrated Contingency Plan
    Guidance and is intended to meet the National
    Fire Protection Association (NFPA) 1600
    Standard2 for Disaster/ Emergency Management
    and Business Continuity.

    The NFPA 1600 "Standard on Disaster
    Emergency Management and Business
    Continuity Programs" is designed to be a
    description of the basic criteria fora
    comprehensive program that addresses
    disaster recovery, emergency management,
    and business continuity.

    Information on  applicable  Federal, State, and local
    regulatory requirements for emergency
    management planning and reporting and National
                                                 Incident Management System (NIMS)
                                                 compliance.

                                              •   Multiple integrated elements that are critical during
                                                 the decontamination and recovery phase of a
                                                 response to a contamination incident, which are
                                                 contained within its three volumes; Planning and
                                                 Mitigation; Response Actions; and Reference
                                                 Material.

                                              •   The utility's Response Actions volume is
                                                 organized to include the NRT Integrated
                                                 Contingency Plan's three main sections;
                                                 Introductory Sections, Core Plan, and Supporting
                                                 Annexes.

                                              •   The structure of the utility Response Actions and
                                                 annexes is based on the structure of NIMS
                                                 Incident Command System (ICS).
                                                FIGURE 2: UTILITY INTEGRATED CONTINGENCY PLAN
                                                        CORE ELEMENTS FOR RECOVERY
4 Incident Specific
   Information

I   Emergency
J    Contacts

•I Incident Command   |-»

1    Finance/
  Procurement

•I    Logistics

^  Continuity of
    Business

^    Incident
  Documentation
Planning
and
Mitigation

c



nd











1
E)
Re

Ct

H
                                                                       Planning
 Training and
 Exercises/Drills

Regulatory Cross
  Reference

 Contracts/MOU/
  Mutual Aid

 Hurricane Plan
Reference
Documents






s

/




E
Pr



Fe





                EPA Response
                Protocol Toolbox
                                                                                     CDC Health
                                                                                     Advisories
                                                                                    Federal Response
                                                                                        Plan
                                                                                     EPA Message
                                                                                      Mapping
                                                                                      EPA Lab
                                                                                     Compendium
'http:// www.nrt.org
2 http://www.nfpa.org/assets/files/PDF/NFPA1600.pdf
                                              3 http://www.fema.gov/emergencv/nims/index.shtm

Office of Water (4608T)  EPA 817-F-08-004  September 2008  www.epa.gov/watersecurity

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                           Decontamination and Recovery Case Study
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•   Site and system schematics; multiple location-
    specific response plans and different hazard
    category-specific flow charts and numerous
    checklists (see Figure 3 for example hazard
    categories); and prewritten press releases to be
    used during contamination incidents.

   FIGURE 3:  EXAMPLE HAZARD CATEGORIES IN UICP

 Natural Disasters
     •   Hurricanes
     •   Tornados
     •   Flooding
     •   Earthquakes
     •   Thunderstorms
     •  Winter Weather
     •   Flu Pandemic

 Threat of Physical Attack
     •   Civil Disturbance
     •   Fire/Explosion
     •  Vandalism
     •   Cyber Intrusion
     •   Main Breaks - Sewer and Water
     •  Weapons of Mass  Destruction or Bomb
         Threat
     •   Hazardous Material Spill
UICP Field Manuals

The utility has one field manual, the "Quick Guide,"
which is based on its UICP for use by its employees. It
is distributed to employees and facilities and placed in
all vehicles. The Quick Guide contains information on
immediate response actions for employees during the
discovery of a threat/hazard and until a management
incident commander takes over. The Guide also
includes emergency contact information, the Incident
Command/Response Management System overview,
threat levels, and incident-specific operations.
Utility Pre-Planning and
Coordination for
Decontamination and Recovery

Decontamination and recovery planning and related
activities will be incident- and contamination-specific
and will begin during the "confirmed" phase (once
information collected provides definitive evidence that
there is a contamination) of a response to a
contamination incident. However, the utility has
included plans and information to facilitate and guide
decontamination and recovery operations in the event
of a contamination incident. This section describes the
utility's pre-planning and coordination efforts for
decontamination and recovery.
                                                       Roles and Responsibilities

                                                       The utility roles and responsibilities for incident
                                                       response and recovery activities are based on the
                                                       NIMS ICS, which organizes both near-term and long-
                                                       term field-level operations for small to complex
                                                       incidents. The utility ICS is structured to facilitate
                                                       activities in the five major functional areas: command,
                                                       operations, planning, logistics, and  finance and
                                                       administration. Figure 4 provides a  generic overview of
                                                       the ICS structure.
FIGURE 4: UTILITY INCIDENT COMMAND

Utility
Specific
Staff
1
f Incident A
1 Command J
' Tnciflent ~\
( Response Team V« 	
s ~"
/ Evacuation ^
1 Coordinators /

^ First Aid Team V« 	
s ^
1
' Operations A f Planning
, Section J \ Section




)(

SYSTEM
f Information A
*l Officer J
/
A 	
Safety
Officer
~)

f Liaison A
^ Officer )
1
Logistics
Section

)
1
(Finance/ ^v
Administration
Section J
The UICP also recognizes the establishment of a
Unified Command. A Unified Command is an
application of ICS when there is more than one
agency with incident jurisdiction or when incidents
cross political jurisdictions. Agencies work together
through the designated members of the Unified
Command to establish their designated Incident
Commanders at a single Incident Command Post
(ICP) and to establish a common set of objectives and
strategies. A Unified Command is used when the
complexity of an incident and incident management
has grown beyond the utility's capability, is
geographically dispersed or other jurisdictions  have
some authority to the incident (e.g. law enforcement if
it is a crime). In addition to the roles and
responsibilities of the regular ICS title positions, the
UICP also includes the roles and responsibilities of
other utility title positions reporting to the Incident
Commander (1C); Incident Response Team (IRT),
Evacuation Coordinators, and the First Aid Team.
Figure 4 shows how each of these positions fit into the
utility command structure and the roles of each
position are detailed below:

 •  Incident Response Team (IRT) - managers and
    senior staff that respond to various emergency or
    potentially dangerous situations such as chemical
    leaks and spills; fires; and terrorist activities
    o  Initiates facility and community alarms
    o  Mobilizes emergency response equipment
       and prepares the site for off-site responders
    o  Mobilizes containment materials
           Office of Water (4608T)  EPA 817-F-08-004  September 2008  www.epa.gov/watersecurity

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                           Decontamination and Recovery Case Study
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 •  Evacuation Coordinators - responsible for
    ensuring all personnel are accounted for
    o  Assist in evacuations and sheltering
    o  Report results on head counts to the 1C
    o  Serve as primary point of contact between the
       1C and personnel at the assembly area

 •  First Aid Team - meet at the primary assembly
    area and then report to the 1C
    o  Respond to all first aid  requests and
       administer care  as appropriate
    o  Notify municipal first aid, ambulance or
       hospital as required and coordinate their
       arrival

Categories of Incident Commanders
The 1C will have the authority to coordinate
decontamination and recovery  planning and all related
activities including termination and follow-up activities,
unless delegated to a Recovery manager.

Depending on the location and  nature of the incident,
the utility has designated different senior personnel
familiar with the system that may be affected by the
contamination incident (i.e. source,  treatment, storage,
distribution, and wastewater) as the 1C and establishes
the chain of command under these senior personnel
instead of naming a primary 1C for the whole utility.
Table 1 provides example categories of utility ICs,
based on the location of the incident. The supervisor
on-site at the incident location serves as the acting 1C,
until relieved by the pre-designated 1C.

Table 1 - Examples of Designated Incident
Commanders (ICs) Based on Location of Incident
INCIDENT SITE
Watershed (WS)
Water Treatment
(WT)
Water Distribution
(WD)
Wastewater Collection
(WWC)
Wastewater
Treatment (WWT)
Other
INCIDENT COMMANDER (1C)
PRIMARY
WS Manager
WT Manager
WD Manager
WC Manager
WWT Manager
Safety Director
SECONDARY
Water Quality
(WQ) Manager
Asst. WT
Manager
WT Manager
WWT Manager
Asst. WWT
Manager
Asst. Safety
Director
TERTIARY
WT Manager
WD Manager
WQ Manager
WD Manager
WQ Manager
Deputy General
Manager
Coordination with Outside Agencies

The utility recovery planning process is integrated with
other local emergency response agencies and
jurisdictions. The UICP includes plans for utility
coordination with outside agencies during a
contamination incident through the utility Liaison
Officer. Figure 5 provides examples of key
coordinating agencies.
        FIGURE 5: KEY COORDINATING AGENCIES

  •   Law Enforcement

  •   Fire Departments

  •   HazMat

  •   Local Health Departments

  •   County Emergency Management Agency
     (EMA)

  •   State  Primacy Agency

  •   FBI

  •   EPA

Contamination incidents involving non-conventional
biological, chemical, radiological and/or nuclear
terrorism related contamination incidents will be
coordinated at the local, State, and/or Federal level.
Incidents that are not site specific, are geographically
dispersed, or evolve over longer periods of time will
require additional coordination between Federal,
State, local, tribal, private-sector, and
nongovernmental organizations.


Incident Operations to Mitigate the Impact
on Decontamination and  Recovery

Response  to Threat Levels

The utility uses Operating Condition (OPCON)  levels
to convey the magnitude of a potential incident or
threat level  (Figure 6). As the OPCON level increases,
the utility's level of preparedness increases on  a scale
of 5 to 1. This includes the level of activation of
emergency operations and resources. Level 5 is the
least complex and includes normal readiness and
operations and training and exercises for emergency
response. Level 1 is the most complex with the highest
level of preparedness-requiring full activation of
emergency operations and resources.  Response
actions to decontaminate and recover the water
system following a contamination incident are
activated at level  1. OPCON levels 3 to 2 include
response actions such as shutting down/isolation of
sections of the water system and system pressure
monitoring,  to minimize the impact on the water
system decontamination and recovery following an
emergency situation.
           Office of Water (4608T)  EPA 817-F-08-004  September 2008  www.epa.gov/watersecurity

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                           Decontamination and Recovery Case Study
                                         page 5
Fic
OP
2—
3—
4—
5—
iURE
CON
^\

6:
Le
^
UTILITY OPERATING CONDITION LEVELS
\te\ Level of Readiness
Disaster or emergency situation in effect; full fledge
emergency response operations on going; highest
state of emergency operations
Disaster or emergency situation in effect; maximum
preparedness level; full activation of the EOC
Disaster or emergency situation likely or imminent.
Full or partial activation of EOC; activate ICP and the
appropriate specific impact hazard emergency plan.

Possibility of an emergency of disaster situation that
may require a partial or full activation of the EOC.

Day-to-day operations to include normal training and
exercises.

Each OPCON level is declared when a pre-determined
set of criteria has been met and is coordinated with the
County Emergency Management Agency and other
governmental agencies. Specific security and
response actions to be taken and notification
procedures to be followed for each OPCON level are
identified within the UICP.

Incident Specific Planning

In pre-planning for decontamination and  recovery, the
utility has considered actual or potential incidents or
threats of contamination by identified or unknown
agents such as a witnessed introduction  of an agent
into the water or a verbal threat. Flow charts and
supporting tables are provided to assist the
responders to make the necessary notifications,
assess the situation, and initiate appropriate response
actions. The flow charts and supporting action  plans
and tables are designed as "rip and run"  sheets for
field use by responders and Incident Command staff at
any location of the water system including:

•   Source water contamination

•   Water treatment plant contamination

•   Finished water storage tank contamination

•   Water distribution system contamination

•   Water and sewer main breaks

•   Natural hazards

The specific response actions to be taken during a
contamination incident are identified under the
following core plan elements:

•   Discovery
•   Initial Response
•   Sustained Actions
•   Remediation and Recovery
•   Termination and Follow-up
The response actions to be taken for decontamination
and recovery can begin at any time following a
"confirmed" contamination incident during the
sustained actions. See Attachment 1 for an example
rip and run sheet highlighting decontamination and
recovery components during a distribution system
contamination incident.

Hurricane Planning

To maintain the integrity of the water system and to
minimize the impact on recovery following a hurricane
event, the utility activates its Hurricane Plan in the
UICP. Approximately 40% of the UICP is dedicated to
hurricane preparedness with the remaining 60%
focusing on other potential hazards. The specific steps
to be taken will be those appropriate for the OPCON
level and will be based on the approaching hurricane's
category and the likelihood of a  disaster situation. The
utility's main objectives for hurricane preparedness
are:

•  To shut down and isolate the water and
   wastewater facilities in a timely manner that
   protects personnel and equipment

•  To make the most efficient use of limited
   resources

•  To leave the facilities in the  most protected
   situation possible, allowing for quick reactivation

•  To coordinate actions with other State and local
   agencies while supporting their activities

Examples of hurricane plan activities to mitigate the
impact of recovery include:

•  Implementing hurricane preparedness procedures
   as scheduled, including mitigation steps
   (discussed later) to minimize the impact on
   decontamination and recovery

•  Dispatching emergency teams to designated
   locations

•  Communications and notifications to customers

•  Closing down components of the water system as
   the storm approaches to minimize the impact

•  Operation of the water system to keep lines
   pressurized and water tanks filled

•  Protecting the wastewater system wherever
   possible, according to utility guidance

•  Providing emergency services, including alternate
   water supply

•  Re-activating and restoring the system,  including
   decontaminating and repairing damages from
   water treatment plant outward

•  Restoring service to customers according to the
   Service Restoration Priorities in the UICP
           Office of Water (4608T)  EPA 817-F-08-004  September 2008  www.epa.qov/watersecurity

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                           Decontamination and Recovery Case Study
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Training and Exercises

The utility routinely conducts tabletop exercises on the
UICP and provides the opportunity for staff to
participate in NIMS/ICS training. Training and
exercises increase preparedness by educating utility
staff on emergency situations. The utility has identified
appropriate training needs for its staff. Table 2
provides examples of training needs. In  addition, the
utility uses the Emergency Response Tabletop
Exercises for Drinking Water and Wastewater Utilities
publication by EPA4 to  conduct exercises.

The utility recently participated in a large scale
tabletop exercise with regional responders including
public health agencies, law enforcement, HazMat,
government agencies,  and Utility personnel. The
exercise provided training on activation of the UICP
and emergency operations center (EOC) for a
contamination incident.

Table 2 - Examples of Identified Training Needs for
Selected Utility Staff
STAFF POSITION
Water System
Managers
Water System
Operators
Field Support
Administrative/
Communication
Support
TRAINING NEEDS
• Emergency Response Planning (e.g. UICP,
FEMA/NIMS ICS courses; participation in The
NIMS Compliance Assistance Support Tool
(NIMSCAST); table top exercises)
• Emergency Response/Risk Communication
• Issuing Health Advisories
• Participation in post event recovery operations
• Emergency Response Planning (e.g. UICP,
FEMA/NIMS ICS courses, table top exercises)
• Emergency Response Communication
• Suspicious activity training
• Participation in post event recovery operations
• Emergency Response Communication
• Suspicious activity training
• Emergency Response Planning (e.g. UICP,
FEMA/NIMS ICS courses; participation in
NIMSCAST, table top exercises)
• Emergency Response/Risk Communication
Risk and Crisis Communication

The UICP includes a communication protocol with a
flow chart to be followed during the response to a
contamination incident (see Attachment 2 for an
example flow chart). The utility employs the Message
Mapping tool to effectively and efficiently communicate
the risks and status of utility actions during a water
system incident5. Figure 7 provides examples of the
utility's planned crisis  and risk communication
4http ://cfpub. epa. gov/safewater/watersecuritv/trainingcd.cf
m
5http ://www .epa. gov/nhsrc/news/news040207 .html
methodologies for use during response and recovery
activities. Ongoing communications with the public and
media will occur during decontamination and recovery
actions for reporting on:

    Implementation of usage restrictions
    Decontamination and recovery goals and
    objectives
    Results of sampling and analysis
    Nature of the contamination, risks, and risk
    reduction measures during ongoing
    decontamination and recovery activities
    Mitigation of incident impacts
    System return to service
    Suspension of restrictions
    Post incident analysis and reporting


  FIGURE 7: PLANNED CRISIS AND RISK
  COMMUNICATION METHODOLOGIES FOR USE DURING
  INITIAL RESPONSE AND DECONTAMINATION AND
  RECOVERY BY THE UTILITY

  •   Utility hotline with recorded message
  •   Utility call center
  •   Utility web-site
  •   Door-to-door notification
  •   Reverse communication phone systems
  •   Pre-scripted messages using EPA Message
     Mapping
  •   Press releases/conferences
  •   Public service announcements
  Message Mapping is a science-based risk
  communication tool that enables utility responders
  to quickly and concisely deliver the most pertinent
  information about an emergency. Message maps
  can be developed for area decontamination,
  damage to water distribution infrastructure,
  massive power failure response and recovery
  scenarios.


Alternative Water Supply

The utility has resources for emergency supply of
alternate  water in response to partial or total loss of its
primary surface water supply or loss of treatment,
storage, and distribution system during
decontamination and recovery operations. These
resources include:
           Office of Water (4608T)  EPA 817-F-08-004  September 2008 www.epa.gov/watersecurity

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                           Decontamination and Recovery Case Study
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•   Utility emergency supplies for partial or total loss
    of surface water supply - the utility has ground
    water sources that can be activated in an
    emergency to partially replace the primary surface
    water supply. This includes both ground water
    wells and aquifer storage and recovery wells.

•   Mutual aid  agreement with the county for the utility
    to supply alternate water supplies and sanitation
    (portable toilets) to county residents - this service
    will be provided through  a combination of the state
    national  guard (tanker trucks) and via a contract
    with a supplier (bottled water and portable toilets).

•   Identified bottled water and tanker sites - the utility
    has predetermined and arranged for bottled water,
    tanker locations and sites for portable toilets. The
    contract  includes hauling and disposal of liquid
    wastes.
Utility Response Actions and
Information for
Decontamination and Recovery

Once an incident has occurred, the utility has in place
specific mitigation, decontamination and recovery
steps. These steps depend on the type of incident.
Overall, the goal is to mitigate the impact on the water
system and return the system to service as quickly as
possible.

Mitigation

Mitigation efforts to minimize the impact on
decontamination begin once a response to an incident
begins. This section highlights the main response
actions used by the utility for minimizing the impact of
decontamination and recovery.

Monitoring and Isolation

To quickly identify potential problems and isolate the
system to mitigate the impact on decontamination and
recovery, the utility performs ongoing monitoring.

•   Pressure Monitoring and Isolation

The utility closely monitors the water pressure in the
distribution lines to detect anomalies in the normal
water pressure-especially during the approach of a
hurricane. A drop in water pressure indicates a main
break and the utility quickly takes measures to isolate
the affected distribution lines to prevent backflows and
mitigate water loss and  potential further
damage/contamination to the system.

•   Water Quality Monitoring

The utility monitors basic water quality parameters
such as pH, conductivity, total chlorine residual, total
coliform, bacteriological count, TOC, alkalinity,
hardness, ammonia, nitrate/nitrite, odor, color and
turbidity to quickly identify contamination. Key
sampling locations and sampling protocols are
identified in the Water Contamination Sampling
Standard Operating Procedures (SOP) within the
UICP.

•   Customer Complaint Surveillance

Customer complaints are tracked and mapped using a
Geographical Information System (CIS) during
incidents to assist in identifying potential
contamination source(s) and in isolating portions of the
distribution system. Customer information software
was developed by the utility to track and respond to
customer complaints  based upon the AWWA Water
Quality Complaint Investigator's Field Guide5.
When a contamination incident is perceived as
"possible" or "credible" through the above monitoring
practices and also through observed security
breaches, witness accounts, notifications, or public
health notifications, the utility will implement its
standard operating procedure  (SOP) to isolate the
affected area and implement the relevant response
activities.

•   Water Hydraulic Model

A Water Hydraulic Model of the utility distribution
system is used to understand flow characteristics and
to determine isolation or unidirectional flushing
alternatives during response and recovery activities.

Switch from Chloramines to Chlorine

In an actual pre-hurricane incident the utility will
consider a temporary switch from chloramines to free
chlorine to provide:

•   better disinfection/deactivation to minimize
    contamination impacts and

•   enhanced monitoring of the distribution system
    during the incident and the recovery phase since
    changes in free chlorine levels are more effectively
    detected through online monitors
Global Positioning System (GPS) Tracking of
Underground Utility Lines and Other Components

In order to prepare for accurate and timely location of
water distribution system assets after a major incident,
such as a hurricane, the utility has recorded latitude/
longitude positions for critical resources. The ability to
find valves, hydrants,  and other water distribution  and
sewer system equipment and pipelines is  valuable in
the recovery process when normal  location
descriptions may no longer be valid or available.
                                                        5 http://www.awwa.org/bookstore/product.cfm?id=20574
           Office of Water (4608T)  EPA 817-F-08-004  September 2008  www.epa.qov/watersecuritv

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                           Decontamination and Recovery Case Study
                                        page 8
Decontamination Information
Some chemical and biological agents contaminating a
water system can be removed through the utility
treatment processes such as oxidation and UV
treatment, or by flushing the system. SOPs for
oxidation, chlorination, and  "unidirectional" flushing
have been adopted by the utility for ongoing water
quality improvement activities. These SOPs have been
used with success on multiple occasions to
decontaminate and disinfect water distribution lines
during line breaks and conventional contamination
incidents.

Elevated or residual chlorine levels can also be
effective fordeactivation of  some non-conventional
biological and chemical agents in water systems. The
utility has identified the characteristics and behavior of
chemical and biological agents in drinking water with
elevated and residual chlorine and chloramine levels
(Table 3). This information advises the utility on the
effectiveness of conventional treatment methods to
decontaminate specific non-conventional
contaminants.

Table 3 - Examples of Decontamination
Information for Selected Agent Classes in the
UICP



CLASS

Biological
Biotoxin
Chemical
Nerve Agent
Blister Agent
U)
U

haracteris
o
X
X
X
X
X


V U)
ApplicabI
Standard

-
-
X
X
X



Symptom

X
X
X
X
X

o

Response
Chlorine

X
X
X
X
X

o aj

Response
Chloramir

X
X
X
X
X
Recovery and Return to Service

The utility has identified specific steps for recovery and
return to service within the different incident-specific
response and recovery plans. However, the utility
believes that decontamination of some or all of the
water infrastructure materials may be difficult or
impossible in some specific contamination scenarios.

The UICP includes discussions of decontamination
and recovery actions and staff roles and
responsibilities to be taken when recovering and
returning a contaminated system to service. These
actions are incident-specific and included in the
various rip and run sheets. Table 4 provides examples
of the utility recovery and return to service activities
highlighted in the incident-specific response and
recovery plans.

The UICP also includes considerations for the removal
and replacement of contaminated infrastructure
components such as distribution lines, if needed, to
lessen the psychological impacts on customers and
future use of the water system.

Table 4 - Examples of Recovery and Return to
Service Activities
DECONTAMINATION AND
RECOVERY ACTIONS
System Characterization
Provide Long-Term Alternate
Water Supply
Inspect, Flush, Decontaminate
Disposal of Contaminated
Water
Sampling and Analysis
Verification of Clean-up Goals
Coordination with Health
Departments
Notification and Risk
Communication
Return to Service
Post Incident Analysis
DESCRIPTION
Scientific and engineering methods to
observe and record the physical, chemical
and biological quality of the water and
affected system components.
Planned distribution of bulk and bottled
water to homes and businesses during
decontamination and recovery.
Process to determine and implement the
measures needed to decontaminate a water
system and resume service.
The process to treat in-situ or collect,
remove, and/or dispose of contaminated
water in accordance with regulatory and
safety requirements.
Prescribed procedures to assess potential
contamination and interpret data collected
on water quality.
Independent analysis of results to
determine the validity of water quality data.
Preparedness activities on a formal and
informal basis to ensure the timely response
by local and state regulators to a water
emergency.
Concise presentation conveying information
to the public and media on a public health
crisis.
Resumption of normal operating parameters
following a contamination event and the
decontamination process.
Continuous analysis of water quality
parameters to ensure the mitigation of
contamination. Review of lessons learned
and analysis of feedback received from
participants and stakeholders.
Management of Contaminated Water

In the event the water system becomes contaminated
with a biological, chemical, or radiological agent, the
utility has identified steps to prevent the spread of
contamination, to contain the contaminated water, and
to manage the contaminated water, including:
•   Isolating the contaminated areas - requires a
    good understanding of the distribution system
    configuration and hydraulics and having a plan to
    ensure valves work when needed.
           Office of Water (4608T)  EPA 817-F-08-004  September 2008  www.epa.gov/watersecurity

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                           Decontamination and Recovery Case Study
                                        page 9
•   Depending on the contaminant and contamination
    location in the water distribution system,
    discharging the contaminated water to the utility
    wastewater system for storage or treatment may
    be feasible

•   Identifying  holding tanks (water) and collection
    systems (wastewater) for containment

•   Pre-negotiated agreements with contractors to
    provide portable tanks or pumper-trucks to haul
    the contaminated water

Resources

The utility has incorporated the following resources to
support decontamination and recovery in the UICP:

•   Technical expertise from the local Fire
    Departments and Hazmat and Exposure Teams

•   Pre-negotiated agreements with support
    contractors (laboratory analysis, hazardous
    materials, engineering, designing)

•   Information Resources including EPA Response
    Protocol Toolbox (RPTB)6, Centers for Disease
    Control and Prevention (CDC) Priority
    Contaminant Profiles7, NIOSH Pocket Guide to
    Chemical Hazards8, EPA Water Contaminant
    Information Tool (WCIT)9, EPA Lab
    Compendium10, and Jane's Chem-Bio Handbook11

•   Mutual aid  and assistance agreements
    o  State Water/Waste water Agency Response
       Network12 (WARN)

•   Large Incident Partnerships
    o  County Department of Public Works

•   Memorandums of Understanding (MOUs). Some
    examples include:
    o  Highly  specialized analytical support systems
    o  Obtaining additional  staff and equipment -
       pre-arranged contracts for engineering,
       construction, supplies, debris removal, cost
       recovery and additional staff or equipment
       through the recovery phase of an incident

•   Additional miscellaneous resources:
    o  Water bottling
    o  Porta-jons
 http://www.epa.gov/safewater/watersecuritv/pubs/rptb resp
onse guidelines .pdf
7http://www.atsdr.cdc. gov/toxfaq.html
8 http://www.cdc.gov/niosh/npg/pdfs/2005-149.pdf
9 http://www.epa.gov/wcit/
10 http://www.epa.gov/compendium
nhttp://catalog.janes.com/catalog/public/index.cfm?fuseacti
on=home.ProductInfoBrief&product_id=98327
 A WARN is a network of utilities helping utilities.
 Each utility that is a part of the WARN signs a
 mutual aid and assistance agreement which covers
 administrative items such as activation,
 reimbursement, worker's compensation, liability,
 and other terms and conditions to allow for
 resources to be shared more efficiently and
 effectively. WARN supports continuity of operation
 and fast response when disaster strikes. WARN
 could also be used for recovery purposes if other
 sources for resources are not available.

 Why WARNS Work?
 •   Expected access to resources
 •   Improved planning and coordination
 •   Consistent with NIMS
 •   Participation is voluntary
 •   Can be activated before emergency declaration
Cost Recovery

The utility has in place plans for cost recovery during
and following a major incident. These plans include:

•   Contingency funds for response and initial
    recovery

•   Established reserve fund

•   Specialized hazard insurance coverage

•   FEMA cost recovery protocols coordinated
    through contractor support (FEMA Public
    Assistance Grant Program)


Recovery Experience (Lessons
Learned)

The utility has learned from multiple experiences in
decontamination and recovery, including:

•   The importance of exercising the UICP through
    relevant tabletop exercises and training, which
    identify specific locations and incidents and
    include worst case scenarios, based on
    experiences with Hurricanes Floyd and Hugo

•   Preparation for decontamination  and recovery
    processes from large-scale events affecting critical
    interdependent infrastructure and exceeding the
    scope  of utility recovery plans, learned when
    providing mutual aid assistance in Mississippi
    during the post-Katrina recovery  process
12
 http://www.nationalwarn.org
           Office of Water (4608T)  EPA 817-F-08-004  September 2008  www.epa.gov/watersecurity

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                           Decontamination and Recovery Case Study
                                       page 10
    The importance of effective communication
    systems, backup systems, GPS to locate
    infrastructure, and enough fuel and resources for a
    long recovery period, which were the lessons from
    a utility in the Florida panhandle that experienced
    a direct hit from Hurricane Ivan

    Effective risk communication strategies to impose
    water restrictions  until recovery operations (bridge
    and water main repair) are complete - learned
    when a tug and barge striking a bridge damaged
    the water main crossing the bridge serving an
    island community.

    The importance of contaminant monitoring,
    continuous sampling and  analysis, rapid response,
    and risk communication to customers and the
    public to maintain confidence in the  integrity of the
    water supply and  preserve public perception of
    utility staff professionalism - learned during an
    accidental industrial hazardous chemical spill into
    source water upstream of the utility water intake.

    The importance of temporary modifications to the
    conventional water treatment process to quickly
    respond to a water contamination incident as well
    as proactive risk communication, to  reassure
    customers of the safety of the water when the
    source water was affected by naturally occurring
    tannic and humic  acids causing taste and odor
    problems

    Sustained and persistent  communication with the
    public on the utility's progress on recovery and
    decontamination activities that became necessary
    when the utility used a cement-lined pipe without
    preconditioning; this caused turbidity and
    undesirable taste  and odor in the drinking water
    distribution system

    The importance of having a pre-negotiated
    contract with a HazMat contractor and consultant,
    for expedited cleanup was tested when an
    accidental chemical spill caused  an  exothermic
    reaction due to two water treatment  chemicals
    being mistakenly added together by a vendor
Attachments
An example "rip and run" flow chart for a distribution
system contamination event highlighting
decontamination and recovery actions (Attachment 1).

An example crisis and risk communication flow
diagram for a contamination incident (Attachment 2).
Acknowledgements

The identity of the case study utility is not being
provided as a security pre-caution. However, EPA
acknowledges and appreciates the utility's invaluable
efforts in support of this project.

This case study was developed by EPA with support
provided under Contract No. EP-C-05-045.
           Office of Water (4608T)  EPA 817-F-08-004  September 2008  www.epa.gov/watersecurity

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                ATTACHMENT 1

      EXAMPLE RIP AND RUN FLOW CHART

CONTAMINATION IN WATER DISTRIBUTION SYSTEM





/- AI A [[[
V Discovery of Threaty Y///////////////. -.Y. Y.Y.Y.Y. Y.Y.Y.Y. Y.Y.Y.Y. Y.Y.Y.Y. •
\s.
'
B
Internal N
1
1
B2
Isolate Affected
Sections of
Distribution System
as Needed and
Adjust System
Operations
J
B3
1C Act
Emer
Operatic
(EOC)
Incident 1
Team

ivates
gency
is Center
and the
Response
(IRT)
D5
Termination
and Fo
HI
si
2
O
1
low Up
B4
Threat/
-> Contamination
Credib 1 ty
Determination

Credible



I
•^*

C1
• Initiate Sampling
Protocol to Confirm
Contamination
• Obtain Guidance
from Outside
Resources
• Arrange for Short
Term Water Supply if
Necessary
B5
Notify Outside Agencies
(Law Enforcement,
Local Health
Department, etc.)
X:X:XYX:X!X:X:X:X:X
B6
IRT Updates Operating
Conditions Level
	 i 	
B7
IRT Communicates with
Public & Outside
Agencies as Necessary

—I

/•••( C
•••\ Pot
	



;X;X;X;





.•.Y.Y.Y.Y.Y.Y.Y.Y.Y.Y. • C2
	 Evaluate Final Lab Results (Independently Verified) and Determine if:
	 '.'.' 	 > • Water in Distribution System is Potable
Y. Y.Y.Y.Y.Y.Y.Y.Y.Y.Y • Water in Distribution System Can Be Used with Restrictions
.Y.Y.Y.Y.Y.Y.Y.Y.Y.Y.', • Water in Distribution System Cannot Be Used
Y.Y.Y.Y.Y.Y.Y.Y.Y.Y.YY.Y.Y.Y.Y.Y.Y.Y.YY.Y.Y.Y.Y.Y.Y.Y.Y.Y.Y.I.Y.Y.Y.Y.Y.Y.Y.Y.Y.Y.-.Y.Y.Y.Y. Y.Y.Y.Y.Y
3 "VY.Y
able /*. . . .
	
Y.Y.Y.Y.Y.Y*Y.Y.Y.Y.Y.Y
C4
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as Necessary
Y.Y.Y.Y.Y.Y*Y.Y.Y.Y.Y.Y
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Distribution System
to Normal
Operational Mode
x-x;x:x::Jx-x:x;x::
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IRT Return to Normal
Operations
'f^
System [
V Ser
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i/ice ^/
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with
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.Y.Y.Y.Y.Y.Y.Y.Y.Y.Y.TkY.Y.Y.Y.Y.Y
	 • C6
.Y.Y.Y.Y. 1C:
	 • Restore Distribution
	 System to Normal
	 Operational Mode
	 • Continue Sampling
	 as Necess
•:::::;::::::::::::::,
.Y.Y.Y.Y.M C
Y.Y.Y.Y.' Notify Cus
.Y.Y.Y.Y.] Restrict
ary
Y,,,,,,,,,,
7
tomers of
ted Use
•.•^//m.^C8 ^
* Y.Y.Y.Y.Y. .\Potable?X
:-:-:-:-:-:-:-:-:-:-:-:-:-:-:-:-:-^Y^:-:-:
	 C9
	 Return to C2
	 1
S.Y.Y.Y.Y.Y.Y.Y.Y.Y.Y.Y.Y.Y.'jJ C
JY.Y.Y.Y.Y.Y.Y.Y.Y.Y.Y.Y.Y.'l Not U


Y.Y.YES'
NntPs-
E6
Coordinate
with WWTP or
other
receiving
entity
HEM
E5
Disposal of
Contaminated
Water (as
Needed)
E8
Coordinate
with Health
Depts. to
Verify
Completion
	 m 	


*-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.,
o Siii
sable /v?
	 \r 	
:•:•:•:•: EI
•X'X- System
X-!Y! Characterization
vXv (if necessary)
	 4 	 — 	
	 ir 	
E3
•!Y!Y Inspect, Flush,
X'X^ Decontamination
• •••• Operations
X'X'! Determine Decon
•'•'•'•'• Goals
11^1

ifr"*
E2
Arrange for Long
Term Alternate
Potable Water
Supply

E4
Sampling and
Analysis (as
Needed)



•.YES'.'.'.-.-// ^/////////////////////////•'•'•'•'•'•'•'.
x-x:x^ E7 XY.-NP.X:X-X:X:X:X:X:X:
• • X/ Have Decon N, 	
^YYX Goals Been XY. ........................
•.•.•.•.•.•/SsCompletedT/^'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.'.
||::;:|^|:|||||:|||:::
.•N-O-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-.-
V.V.-X-X E9 X..Y.Y.Y.Y.Y.Y.Y.Y.
.-.•.•.:•. •.•'^otab\e?^ •••••••••••'•••••••••••••'•••••••••














Decontamination and Recovery Case Study
A
Discovery

B
Initial
Response

C
Sustained
Actions

D
Termination
and Follow-up

E
Remediation
and Recovery
                                                            •  Response and Recovery Activities following a "Confirmed Contamination" are shown

                                                              within the shaded area


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                 Decontamination and Recovery Case Study
              page 12
                               ATTACHMENT 2
     Example Crisis and Risk Communications Flow Diagram
      IC & IRT determine that public \
         notification is necessary   J
 Note:
Provide information on
 decontamination and
 recovery goals and
     objectives
                                                                             m
                                                                      Provide information on
                                                                         short/long term
                                                                      alternate water supply,
                                                                          if necessary
                                                                             m
                                                                        Provide ongoing
                                                                          updates on
                                                                       decontamination and
                                                                        recovery activities
                                                                       System is restored to
                                                                        normal operations
                                                                        Suspend any Boil
                                                                        Water Alerts and
                                                                          Restrictions
                                                                       Notify customers that
                                                                        incident has been
                                                                           mitigated
                                                                       Post-incident briefing
                                                                        or report to media
                                                                      Post incident analysis
    Communications during decontamination and recovery activities are shown within the shaded area
Office of Water (4608T)  EPA XXX-X-XX-XXX September 2008  www.epa.gov/watersecuritv

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