State Emergency Drinking Water Supply Plan
Instructions and Template
EPA Office of Water (4608T)
EPA 817-B-21-002

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State Emergency Drinking Water Supply Plan
Instructions and Template
Introduction
During an incident that disrupts the availability of drinking water on a large-scale or regional basis,
clarity in the roles and responsibilities of those involved with locating, securing, and delivering an
Emergency Drinking Water Supply (EDWS) will be critical. An EDWS Plan is an important tool for a state
drinking water primacy agency that will allow for optimum coordination with the state Emergency
Management Agency (EMA) and other stakeholders. This will ensure not only safe drinking water for
citizens but also compliance with federal regulations under 40 CFR 142, Subpart B.
An EDWS Plan maps out emergency water supply needs and other logistics to be coordinated during
drinking water incidents. It details how a state will locate, secure, and deliver an EDWS, specifically
outlining the roles and responsibilities of local, state, tribal, and federal agencies and other
stakeholders. The intent is to meet drinking water needs during an incident quickly and safely, while
minimizing duplication of effort.
The EDWS Plan instructions and template are targeted at:
•	State drinking water primacy agencies
•	State EM As
•	Regional and local government entities that may assist the state in providing an EDWS
In addition to the above, it may be helpful to include others in the planning and development process
depending on the needs of your state. These may include non-governmental organizations such as the
American Red Cross or private sector entities such as water and beverage distributors.
How to Use These Instructions and Template
The U.S. Environmental Protection Agency (EPA) has prepared these
instructions and template to provide state drinking water primacy agencies
a starting point in the development of a state-wide EDWS Plan. The instructions and template were
developed based on the California Emergency Drinking Water Procurement & Distribution Planning
Guidance (May 2014) and two EDWS state workshops sponsored by EPA in Colorado and Rhode Island.
As a result, these instructions and template offer general guidance regarding what states should
consider as they develop their individual plans, recognizing that not all elements may be applicable.
States should modify the template content to better meet their needs and circumstances.
Creating a State Emergency Drinking Water Supply Plan
There are no federal requirements for what an EDWS Plan should contain; however, the following steps
can help a state begin planning for locating, securing, and delivering an EDWS when needed. One way to
accomplish these steps is to convene an EDWS planning workshop or series of workshops with the
appropriate stakeholders.
W

STATE EDWS
PLAN TEMPLATE
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Step 1: Bring Together Knowledgeable Stakeholders
Developing an EDWS Plan should bring together the experience and knowledge of different local, state,
tribal, and federal agencies along with non-governmental organizations and private industries and
institutions. Many of these response stakeholders (see Table 1 in Section 3) have experience with
emergency planning and can bring knowledge and resources to aid the development of an EDWS Plan.
Some response agencies may have plans or protocols that outline existing coordination procedures for
providing drinking water during incidents. It will be important to review these documents to determine
if the process to locate, secure, and deliver an EDWS is discussed. The State Emergency Operations Plan
(SEOP) is an important document to review, as it may already outline processes and procedures for an
EDWS. Others might include:
•	Water Utility Emergency Response Plans (ERP)
•	County Emergency Operations Plans
•	Regional Plans
Step 2: Understand Roles. Responsibilities, and Resources
EDWS planning requires a clear understanding of each stakeholder's role, responsibilities, and available
resources (technical and financial) to locate, secure, and deliver an EDWS. During an EDWS planning
workshop, existing emergency plans and protocols should be reviewed to understand these aspects, as
well as to identify limitations in accessing an EDWS and relevant federal, tribal or state programs.
Step 3: Understand Legal. Regulatory, Financial, and Coordination Processes
Some entities and stakeholders must follow specific legal and regulatory requirements to locate, secure,
and deliver an EDWS. For example, a state's drinking water regulations might require public water
systems (PWSs) to maintain some EDWS capabilities. Or the state may need to approve a bulk water
hauler in advance of any EDWS delivery. States may also have procedures that must be followed to
purchase, acquire, or otherwise gain access to an EDWS. During an EDWS planning workshop, all local,
state, tribal, and federal requirements and protocols regarding EDWSs should be discussed and
understood prior to developing the plan.
Step 4: Identify Duplication of Effort. Vulnerabilities and Gaps
Bringing together key stakeholders will reveal where entities may be performing the same EDWS task
during incidents or where vulnerabilities and gaps might exist. For example, a water utility might think
the local EMA is responsible for providing emergency drinking water, but the local EMA might think the
water utility is responsible. Reviewing the SEOP and other protocols and plans at an EDWS planning
workshop can be very helpful.
Figure 1 on the next page contains a flowchart depicting this four-step process. You may also consider
developing a process flowchart to help visually present your EDWS plan both during development and
once completed.
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Figure 1. Process for Creating an Emergency Drinking Water Supply Plan
Step 1 - Bring Together Knowledgeable
Stakeholders
•	Convene an EDWS planning workshop of
all government and non-government
stakeholders.
•	Identity existing emergency plans and
protocols that involve an EDWS.
Step 4 - Identify Duplication of Effort and
Gaps
• Determine where efforts are duplicated
and can be eliminated, and where
comminication gaps might exist in locating,
securing, and delivering an EDWS.
Step 3 - Understand Legal, Regulatory,
Financial, and Coordination Processes
• Identify and understand the legal,
regulatory, financial, and coordination
processes that impact how an EDWS is
secured, stored, and distributed.
Step 2 - Understand Roles,
Responsibilities, and Resources
•	Develop a clear understanding of roles
and responsibilities of all stakeholders.
•	Outline available technical and financial
resources.
Updating Your Emergency Drinking Water Supply Plan
Your EDWS Plan is a dynamic document and should be revisited regularly to update protocols or
procedures and validate information, including roles and responsibilities, names, and contact
information (Section 3). A regular review schedule and training (e.g., twice a year) will help to ensure
that all plan information is current, and that staff are familiar with the contents and any recent changes
to the plan. In addition, you should exercise your EDWS Plan at least annually. Exercises allow you to
test and practice the procedures in your plan with response partners prior to any EDWS incident.
Additional information on developing a training and exercise plan can be found here.
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TABLE OF CONTENTS
1	Introduction	1
2	State Emergency Operations Plan	1
2.1	SEOP Overview	1
2.2	SEOP Priorities, Goals, and Strategies	1
2.3	SEOP Direction, Control, and Coordination	2
2.4	Intelligence Gathering and Situation Reporting	2
2.5	Public Information	2
3	Roles and Responsibilities	2
3.1	Water Sector Specific Position (WSSP)	4
3.2	Emergency Response Stakeholders	4
4	Emergency Drinking Water Supply Source and Distribution Considerations	5
4.1	Emergency Drinking Water Supply Sources	5
4.2	Emergency Drinking Water Supply Distribution	6
5	Appendices	7
APPENDIX A: References	7
APPENDIX B: Sample Local EDWS Plan	7
APPENDIX C: State Bulk Water Contract and List of Approved Bulk Water Haulers	7
APPENDIX D: State Bottled Water Contracts	8
APPENDIX E: Acronyms	8
APPENDIX F: Glossary	8
APPENDIX G: Emergency Assistance Agreements	8
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1	Introduction
Briefly describe how the EDWS Plan was developed, listing participating agencies, committees, and
other partners and stakeholders as appropriate. Identify the agency that is responsible for maintaining
and implementing the plan, along with any agency, committee, or task force that will assist this agency.
Purpose
Describe the purpose of the EDWS Plan. Some examples from the California Emergency Water
Procurement & Distribution Planning Guidance are:
•	Provide a state response concept of EDWS operations including roles and responsibilities,
resource management, and the descriptions of any state and local task forces and committees
focused on EDWS.
•	Enable development of an EDWS Plan that:
o Identifies who owns, deploys, and operates EDWS assets,
o Overcomes unexpected obstacles during an incident, such as political pressure,
o Ensures the availability of local and state EDWS resources.
•	Provide EDWS planning for the state.
•	Identify state level programs and resources related to EDWS.
2	State Emergency Operations Plan
2.1	SEOP Overview
Provide an overview of your state's SEOP, including the following aspects:
•	Current process and procedures for emergency management and/or responding to statewide
incidents. Highlight how the coordination to locate, secure, and deliver an EDWS is incorporated
into these procedures. Even if this information is available, it may be necessary to clarify the
roles and responsibilities of the stakeholders involved.
•	The Emergency Support Function (ESF) under which drinking water is managed. Describe how
this ESF is coordinated with local and regional EDWS plans/procedures/entities (as applicable).
•	Where the SEOP can be accessed (provide links if available).
Include a list of the jurisdictional levels in your state. Examples include PWSs, local government
(municipal, county, and special districts), regional government (as applicable), and state government.
Provide a brief description of how they broadly plan for EDWS incidents and how these plans dovetail
with the SEOP (as applicable).
2.2	SEOP Priorities, Goals, and Strategies
Provide brief statements about the operational priorities, goals, and strategies listed in the SEOP.
Examples are provided below. Highlight those that focus on an EDWS (as applicable).
•	Property Protection
•	Environmental Protection
•	Restoration of Essential Utilities and Program Functions
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2.3	SEOP Direction, Control, and Coordination
Describe who is responsible for emergency response based on statutory authority. The SEOP will most
likely list all state entities and their responsibilities for various kinds of emergency incidents. Highlight
those entities that assist efforts associated with an EDWS, as applicable.
2.4	Intelligence Gathering and Situation Reporting
Describe how information is managed, shared, and reported both during and after the incident. Briefly
describe the process outlined in the SEOP, including anything that might be specific to EDWS, if
discussed.
2.5	Public Information
Describe how information about an incident will be communicated with the public, including
coordination with other responders, focusing on EDWS incidents if discussed.
3 Roles and Responsibilities
During a statewide incident that disrupts the ability of
local PWSs to provide drinking water, your EDWS plan
should provide clear direction on the roles and
responsibilities of stakeholders. List all response
stakeholders at all jurisdictional levels in your state and
detail the functions they would perform during an
EDWS-related response. Highlight available emergency
response resources (e.g., labor, technical, material,
financial) and the appropriate contact person(s). Contact
information and available resources should be updated
periodically to ensure the plan is current. This list of
response stakeholders (Table 1) should be reflective of
those participating in the development of the EDWS
Plan, including (see next page):
NIMSand ICS
All domestic incidents in the United
States are managed under the
National Incident Management
System (NIMS). NIMS guides all levels
of government, NGOs, and the
private sector to work together to
prevent, protect against, mitigate,
respond to, and recover from the
effects of incidents. Under NIMS,
local on-scene incident management
is accomplished through the Incident
Command System (ICS). If you are not
familiar with NIMS and ICS, the
Federal Emergency Management
Agency (FEMA) offers free on-line
training here. EPA also offers training
that can be found here.
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Table 1. Response Stakeholders
Local Level
•	Public Water Systems (PWSs)
•	Municipal or County Government
•	Local Law Enforcement
•	Local Health Department
•	Local Emergency Management Agency
•	Local Emergency Planning Committee
State/Tribal Level
•	State Primacy Agency for Drinking Water
•	State Emergency Management Agency
•	State Public Health Department
•	State Environmental or Engineering Agency
•	State National Guard
•	State Department of Transportation
•	State Law Enforcement
•	State Emergency Response Commission
•	Governor's Office
•	Tribal Primacy Agency for Drinking Water
•	Tribal Council
•	Tribal Emergency Management Agency


Mutual Aid and Assistance/



Federal Level

Nongovernmental
Organizations


Private Sector
• U.S. Environmental

• Water and Wastewater

•
Private Utilities
Protection Agency

Agency Response Network

•
Industries
• Federal Emergency

(WARN)

•
Corporations and
Management Agency

• National Rural Water


Businesses
• U.S. Army Corps of

Association (NRWA),

•
Professional and Trade
Engineers

American Water Works


Associations


Association (AWWA), Rural
Community Assistance
Partnership (RCAP)

•
Academic Institutions (e.g.,
universities, colleges)
Hospitals


• Community-based and

•


faith-based organizations,





such as the American Red





Cross and Salvation Army



There is no standard way to present this information in an EDWS Plan, but it should be clear and
concise. Some of this information can be found in the emergency plans of others, such as your SEOP and
other state agency-specific plans. Overarching federal roles and responsibilities are outlined in the
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National Response Framework. The EDWS Plan template includes a table as an example of how this
information can be organized and displayed.
3.1 Water Sector Specific Position (WSSP)
Coordination of an
EDWS during an
incident is further
helped with the
designation of a
Water Sector Specific
Position (WSSP) at
both the state
emergency operations
center (SEOC) and
local EOCs. A WSSP
can be a Water Sector
Liaison, Drinking
Water Coordinator, or
Technical Specialist
for drinking water
issues. WSSPs (and
their assistants as
needed)can serve as
the primary contact
and coordinator
during drinking water
incidents. Your EDWS
Plan should outline
the role of this
individual and any support staff. In some states, a member of the state Water and Wastewater Agency
Response Network (WARN) may already serve in this role at the SEOC. You should also encourage water
utilities to work with their local emergency managers to establish this position in local EOCs. Figure 2
above provides an example of some of the roles and responsibilities of a WSSP.
Be the primary EOC
contact for all EDWS
procurement and
distribution matters
WSSP
Coordinate with primacy
agency, PWSs, and
others for appropriate
public information
announcements and
media outreach
Work with affected
PWSs, prioritize
distribution locations,
and recommend options
for EDWS procurement
and distribution
Identify transportation
and equipment needs
and secure required
Identify and secure
drinking water resources
Figure 2. Water Sector Specific Position
3.2 Emergency Response Stakeholders
Describe the roles and responsibilities of stakeholders involved in the response to an emergency event
that requires an EDWS. Include the available resources from that stakeholder and contact information.
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4 Emergency Drinking Water Supply Source and Distribution
Considerations
Planning for an EDWS source and distribution requires the
state drinking water primacy agency to consider many
factors, including legal and regulatory aspects. For example,
if bulk hauling of water in tanker trucks is an option, what is
the approved source of that water? And, once on-site, is
water quality testing required prior to distribution? Will
waivers from any of the Federal Motor Carrier Safety
Regulations be needed to ensure water haulers can stay on
the road? Funding is another important planning
consideration. You should have a conversation with your
state EMA regarding funding, as they may have an EDWS
funding strategy in place.
Also, how much EDWS will be needed? FEMA and the
Centers for Disease Control and Prevention (CDC)
recommend one gallon of drinking water per person per day as a minimum planning requirement.
Additional water is recommended for pets, cooking, and bathing. Critical infrastructure including health
care facilities (e.g., hospitals, skilled nursing facilities) require larger amounts of water to maintain
operations within the community and should be considered separately. You should encourage local
water utilities in your state to contact their critical customers to determine what EDWS plans they may
already have in place. Additionally, be aware of what plans drinking water utilities in your state may
already have to provide an EDWS. Some may have implemented EPA's guidance for providing EDWS
during large-scale disasters.
Each state and incident are different, and your EDWS Plan should outline any source and distribution
considerations to ensure that all options and their associated circumstances are understood by agency
decision makers.
4.1 Emergency Drinking Water Supply Sources
Identify the EDWS options available and the planning considerations for securing each. List as many
available options in your EDWS Plan as necessary, adding details as needed for implementation,
including references to state or local protocols. Examples include:
•	Treatment of available source water
•	Packaged or bottled water
•	Bulk/hauled drinking water
•	Emergency interconnections with neighboring systems
•	Other options (e.g., EDWS contracts held by your state contracting agency, interstate sources
obtained through the Emergency Management Assistance Compact)
Reimbursement
During a Presidentially declared
disaster, reimbursement for EDWS by
local or state agencies is permitted
under FEMA's Public Assistance
program. Page 117 of FEMA's Public
Assistance Guidance describes this
reimbursement for supplies and
commodities further. This
reimbursement eligibility for EDWS
may influence how your state and the
local agencies within your state
prepare for EDWS procurement and
distribution.
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As appropriate, provide reference links or attach documents to the EDWS Plan as appendices. Figure 3
describes EDWS sources that may be considered as you complete this section of the template.
Figure 3. Potential EDWS Sources
Treatment of
Available Source
Water
If the PWS treatment system is down, alternate treatment of the source water may be an
option. Planning considerations could include PWS consultation with the state drinking water
primacy agency for prior approval of options such as using a commercial portable water
treatment system.
Packaged or
Bottled Water
Planning for packaged or bottled water should consider available partners (e.g., to help with
purchasing and/or storing water). Your state emergency management agency may already
have plans for this.
Bulk/Hauled
Drinking Water
Consideration for bulk water haulers must include state regulations, policies, and best
management practices in addition to federal rules governing commercial driving licenses.
Understand what the water source is and how it will be transported to needed areas.
Determine if your state could negotiate a master agreement with a local distributor for EDWS.
Emergency
Interconnections
with Neighboring
Systems
Interconnections with neighboring PWSs may require approval by the state drinking water
primacy agency. This should be established as early as possible in EDWS planning, particularly
if capital investments are required. There may be opportunities for temporary
interconnections above or below ground under emergency conditions.
Other Options
Other options for an EDWS might include hydrant tapping, which would require coordination
between the PWS and state. Drilling new wells or developing other alternate sources might
also be considered, which requires more long-term planning and development.
4.2 Emergency Drinking Water Supply Distribution
Determine the factors that will impact the distribution of an EDWS and how you will plan for these
considerations. Examples include:
•	Operational drinking water distribution system (treatment system is down)
•	Non-operational water distribution system
o Transport
o Points of distribution
Planning considerations include how and where an EDWS will be distributed to customers, needed
agreements at points of distribution or "PODs" (e.g., a Memorandum of Understanding regarding which
agency staffs and operates a POD), and identifying potential jurisdictional conflicts or competing uses at
POD sites (e.g., has the site also been designated as an air lift site for medical emergencies?). Other
interdependencies should be considered as well, such as power and fuel supply. Figure 4 on the next
page further describes EDWS distribution considerations as you complete this section of the template.
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Figure 4. EDWS Distribution Considerations
Operational
Drinking Water
Distribution
System
If a PWS's distribution system is still operational and will be used to distribute EDWS, planning
considerations include the configuration of the system in the affected area, interconnectivity
with neighboring systems, availability of valve control options for isolating systems, rerouting
water, and identifying and installing the alternate treatment system for the avaiable source
water.
Non-operational
Water Distribution
System
When a water distribution system is no longer operational, the logistics of distributing EDWS
(e.g., bottled or bulk water) to affected populations may pose significant challenges. Factors
to consider in distribution include the transport of water to PODs as well as who will staff and
provide security at PODs.
Transport
Packaged water must be transported from its storage location to PODs. In some cases, water
from existing treated water reservoirs can be pumped into tankers or packaged on-site to
meet customer needs. Logistical concerns include fuel, clear roadways and planning for
forklifts to load pallets on/off trucks.
Points of
Distribution
PWSs/local governments and other organization that provide EDWS should identify the
locations for EDWS distribution and negotiate agreements for location and use. Special care
should be taken to avoid jurisdictional conflicts and competing uses. For example, PWSs and
local governments may require agreements at potential EDWS POD sites (such as a parking lot
of a local shopping center) to avoid any misunderstandings or conflicts regarding use.
5 Appendices
The following appendices are examples to consider including in an EDWS Plan. Your plan can include as
many appendices as appropriate to provide quick access to needed information during a drinking water
emergency.
APPENDIX A: References
Include important local, regional, and state planning documents, regulations, or other protocols that
affect EDWS and links to where they can be found online. Your SEOP should be listed here.
APPENDIX B: Sample Local EDWS Plan
If available, include a local EDWS plan that can serve as a model for your agency to share with PWSs and
local jurisdictions as needed.
APPENDIX C: State Bulk Water Contract and List of Approved
Bulk Water Haulers
If available, include your state's bulk water contract and list of approved bulk water haulers. Include any
regulations, policies and industry-related best practices that apply to bulk water haulers.
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APPENDIX D: State Bottled Water Contracts
If available, include your state's bottled/packaged water contract(s) here. This may be maintained by
your state Emergency Management Agency.
APPENDIX E: Acronyms
Include a list of acronyms for commonly used terms in the EDWS plan. A starter list is provided.
APPENDIX F: Glossary
Include a list of terms and phrases used throughout the EDWS plan and their definitions. A starter
glossary is provided.
APPENDIX G: Emergency Assistance Agreements
Include here copies of any available local, regional, state, tribal, and federal assistance agreements or
documents (e.g., Memoranda of Understanding) that support your state during a drinking water
emergency. Examples are provided in the template. Terminology may be different in your state.
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