Annual report on drinking water quality in Victoria 2012 13 Safe water, healthy communities
Annual report on drinking water quality in Victoria 2012 13 Safe water, healthy communities
Accessibility If you would like to receive this publication in an accessible format please phone 1300 761 874 using the National Relay Service 13 36 77 if required, or email <water@health.vic.gov.au> This document is available as a PDF on the internet at <www.health.vic.gov.au/water>. Copyright, State of Victoria, Department of Health, 2014 This publication is copyright, no part may be reproduced by any process except in accordance with the provisions of the Copyright Act 1968. Authorised and published by the Victorian Government, 50 Lonsdale St, Melbourne. Except where otherwise indicated, the images in this publication show models and illustrative settings only, and do not necessarily depict actual services, facilities or recipients of services. Print managed by Finsbury Green. Printed on sustainable paper. March 2014 (1310006)
Secretary s foreword Clean, safe drinking water is a cornerstone of good health and wellbeing in our communities. That s why the Department of Health is tasked through the Safe Drinking Water Act 2003 to be Victoria s regulator for drinking water quality. Together with the water industry and our regulatory partners, we strive to continuously improve the quality of our drinking water and safeguard our supplies for future generations. I am pleased to present the department s annual report on drinking water quality in Victoria. Consistent with our vision to achieve the best health and wellbeing for all Victorians, the department has successfully continued its collaboration with Victoria s water businesses to deliver safe drinking water to the 95 per cent of Victorians serviced by a reticulated, or piped, drinking water supply. This year 98 per cent of people supplied through our reticulated system had access to drinking water that complied with the state s drinking water quality standards. The number of notifications made to the department by water businesses regarding water quality issues continues to decrease every year. While acknowledging this high level of ongoing compliance with regulatory standards, we must avoid complacency, as the consequences associated with failure are serious. The department has adopted a continuous improvement model in our regulatory approach. We have initiated a rolling review of the guidance we provide to the water industry, as well as our internal procedures, to ensure that our processes and procedures are effective, reflect contemporary regulatory practice, and provide good value to Victorians. Highlights from our work this year include productive and mutually beneficial exchanges with interstate and international regulatory agencies and the certification of the first water treatment operators under Victoria s operator competency framework. We face a number of future challenges to the continued supply of safe drinking water, including strengthening our risk assessment and risk management processes, finding ways to better measure and demonstrate the effectiveness of our water treatment processes, and securing our supplies for the long term. The provision of safe drinking water has been a public health priority for over a century, and will continue to be an important area of health policy in the future. The department is committed to being an active player in whole-of-government actions to ensure that Victorians continue to have access to affordable, safe drinking water. Dr Pradeep Philip Secretary, Department of Health
Contents Introduction 1 Highlights and achievements of 2012 13 2 How the Victorian Government safeguards our water supply 3 Victoria s safe drinking water regulatory framework 4 The role of the Minister for Health 4 The role of the department 4 The role of water businesses 6 Managing water quality from catchment to tap 8 The eight steps of water treatment 8 A quality approach to protecting public health 10 Risk management 10 Standards and benchmarks 11 Water plans 13 Performance against Water Plan 2 13 Preparation for Water Plan 3 (2013 18) 15 Drinking water quality performance in 2012 13 16 Compliance with the drinking water quality standards 16 Compliance with the fluoridation code of practice 18 Risk management plan audit activity 18 Notifications 20 Undertakings 23 Incidents 24 Regulated water declarations 27 Quality improvement activities over 2012 13 28 Towards a more contemporary regulatory system 28 Strengthening regulatory compliance 29 Improving the competency of the water industry workforce 29 Working with our partners to protect public health 31 Value for money review of the administrative levy 33 Alternative water supplies 34 Promoting the safe use of alternative water supplies 34 Class A recycled water 34
Education and promotion 37 Advocacy and representation 37 Research 39 Guidance provided by the department 39 Financial statement 40 The department s expenditure on drinking water safety 40 Future challenges 41 Improving our assessment of hazards and risks 41 Operational performance monitoring 41 Liveability and cities as water supply catchments 42 Appendix A: Victoria s water businesses 43 Appendix B: Water sampling localities that were noncompliant with the drinking water quality standards in 2012 13 45 Appendix C: Regulated water declarations 46 Appendix D: Guidance provided by the department 47 Guidance notes 47 Drinking water audits 47 Annual reports 47 Other relevant resources and guidance 47 Water fluoridation 48 Alternative water supplies 48 Recycled or reclaimed water 48 Other resources 48 Recreational water 49 Emergency management 49 Abbreviations 50 Glossary 51
List of tables and figures Tables Table 1: Drinking water quality standards 11 Table 2: Standard and target for optimal fluoride levels 12 Table 3: Notification s under s. 22 of the Safe Drinking Water Act 2003 22 Table 4: Undertakings activity in 2012 13 24 Table 5: The department s expenditure to administer the Safe Drinking Water Act 2003, 2010 to 2012-13 40 Table 6: Water businesses contact details 44 Table 7: Water sampling localities noncompliant with one drinking water quality standard 45 Table 8: Water sampling localities noncompliant with two drinking water quality standards 45 Table 9: Current declarations for regulated water supply as at 30 June 2013 46 Figures Figure 1: Victoria s multijurisdictional water regulatory system 3 Figure 2: Drinking water treatment the eight steps 8 Figure 3: Safeguarding Victoria s drinking water supply through continuous quality improvement 10 Figure 4: Comparison between commencement and conclusion of Water Plan 2 (2008-09 to 2012-13) for non compliant localities and notifications 14 Figure 5: Water sampling localities noncompliant with the drinking water quality standards 2007 08 to 2012 13 (does not include fluoride standard) 16 Figure 6: Rates of water sampling localities compliance with the drinking water quality standards and fluoride standard from 2010 11 to 2012 13, by standard 17 Figure 7: Change in water sampling localities compliance with the drinking water quality standards and fluoride standard from 2011 12 to 2012 13, by standard 17 Figure 8: Compliance of water businesses risk management plans with the Safe Drinking Water Act 2003 19 Figure 9: Notifications from 2007 08 to 2012 13 21 Figure 10: Water business boundaries 43
Introduction This annual report is the ninth produced under the Safe Drinking Water Act 2003. It has been prepared in accordance with s. 32 of that Act, which requires the Secretary to the department to provide the Minister for Health with an annual report on the quality of Victoria s drinking water. The report is then presented to each house of parliament. The department aims to improve water quality, ensure safe water supplies and protect public health by employing a number of strategies such as monitoring, performance management, guidance and education. This annual report describes the regulatory and other activities undertaken by the department in 2012 13 to protect public health from hazards both in drinking water and in alternative water supplies. Performance of individual water businesses Each water business is required to report on their performance under the Safe Drinking Water Act 2003 through their own drinking water quality annual report. These annual reports are available on the water businesses own websites. A list of the water businesses and their websites is at Appendix A. In addition, the department has prepared a summary of water businesses 2012 13 annual reports. This summary is available at <www.health.vic.gov.au/water>. Access to safe drinking water plays a critical role in the health and wellbeing of communities. The importance of such access, and the infrastructure that provides it, is recognised in the Victorian health priorities framework 2012 2022 as foundational to public health. 1
Highlights and achievements of 2012 13 In 2012 13 the department s Water Program continued to build on its track record of excellence as the public health regulator for drinking water quality. With our partners in the water industry and other government agencies, we continued to improve the quality of drinking water systems and maintain a high level of safety. Highlights and achievements over the year are noted below. Performance against the drinking water quality standards remained excellent throughout the period 98 per cent of the 95 per cent of Victorians who received a reticulated drinking water supply had access to drinking water that complied with Victoria s drinking water quality standards. The number of notifications made to the department by water businesses in 2012 13 under s. 22 of the Safe Drinking Water Act 2003 was the lowest since reporting began in 2004. This is a clear demonstration that Victoria s water businesses have embraced risk management principles and are proactively driving quality improvements. Invited and sponsored by the World Health Organization (WHO) and the International Water Association (IWA), staff from the department s Water Program presented at an international meeting in April 2013 in Manila on Victoria s drinking water risk management approach. The first group of water treatment operators achieved certification under Victoria s new framework for water treatment operator competencies. Victoria s Chief Health Officer presented the operators with their certificates in December 2012 at a ceremony hosted by the department. Work began on the Victorian Government s review of the Safe Drinking Water Regulations 2005. The department convened a reference group and three working groups to consider future policy directions in managing drinking water quality, and to inform a discussion paper for consultation with industry and stakeholders. To complement and inform the regulatory review, the department s Water Program conducted an industry survey to determine what level of operational performance monitoring (OPM) water businesses are currently undertaking. The survey yielded valuable insights into the application of risk management practices across the water industry. In line with its continuous quality improvement approach, the Water Program began a review of its internal standard operating procedures and industry guidance to ensure that procedures and documentation are up to date and reflect contemporary regulatory practice. Where the review discovers gaps, new standard operating procedures and guidance material will be produced. The Safe Drinking Water Act 2003 (s. 51) requires water businesses to pay an administrative levy to defray the costs of regulatory oversight. During 2012 13 the department began a review of its administration of the levy to ensure that the funds collected are sufficient for effective regulatory oversight, and that expenditure provides value for money to the water industry and the community. 2
How the Victorian Government safeguards our water supply In line with community and governmental expectations that Victorians have continuous and ready access to safe drinking water, Victoria s water industry is effectively regulated through a comprehensive, multijurisdictional regulatory approach. Four government agencies are involved in planning, managing and regulating Victoria s water resources and water businesses. Each agency has a clearly defined regulatory and oversight role. The Environment Protection Authority (EPA) Victoria protects Victoria s water through administering the Environment Protection Act 1970, designing and implementing policies and regulatory controls to prevent pollution and protect the environment. The Department of Environment and Primary Industries (DEPI) ensures the sustainable management of water resources through catchment management and resource allocation, and through governance of the water industry, by administering the Water Act 1989. The Essential Services Commission (ESC) determines water pricing and oversees the service standards to be achieved by Victoria s water businesses. The Department of Health regulates drinking water quality to protect public health. While each agency has a clearly defined regulatory role, there is a high level of interagency collaboration, to ensure that there is an integrated and coordinated approach to planning and oversight activities for the water industry. More information about regulation and governance of the water industry is available on DEPI s water website at <www.depi.vic.gov.au/water/governing-water-resources>. Figure 1: Victoria s multijurisdictional water regulatory system Department of Health Public health Environment Protection Authority Victoria Environment Water businesses Essential Services Commission Pricing Department of Environment and Primary Industries Water resources and governance 3
Victoria s safe drinking water regulatory framework Victoria s drinking water supplies are regulated under a comprehensive safe drinking water regulatory framework. The framework is concerned principally with the quality of drinking water supplies and aims to ensure a consistent, reliable supply of high-quality and safe drinking water to the 95 per cent of Victorians who have access to a reticulated supply. The regulatory framework consists of: the Safe Drinking Water Act 2003 the Safe Drinking Water Regulations 2005 made under s. 56 of the Safe Drinking Water Act 2003 the Health (Fluoridation) Act 1973. The regulatory framework is also consistent with the risk management approach that underpins the Australian Drinking Water Guidelines 2011. The Safe Drinking Water Act 2003 includes: a catchment-to-tap risk management framework a set of drinking water quality standards information disclosure requirements for water businesses. The role of the Minister for Health Victoria s safe drinking water regulatory framework establishes a number of decision-making functions for the Minister for Health, including: declaring non-potable water to be regulated water varying aesthetic drinking water quality standards exempting water suppliers from complying with the drinking water quality standards imposing conditions in relation to varying drinking water quality standards setting and collecting a levy for the purpose of administering the regulatory framework. The role of the department The department has an important role in safeguarding drinking water supplies and facilitating the safe use of alternative non-drinking water supplies to both protect and enhance public health and wellbeing. The Secretary to the department is the authority designated under s. 3 of the Safe Drinking Water Act 2003 to administer Victoria s safe drinking water regulatory framework. The specific functions of the Secretary as prescribed in s. 27 of the Safe Drinking Water Act 2003 are to: protect public health in relation to the supply of drinking water monitor and enforce compliance with the Safe Drinking Water Act 2003 and the Safe Drinking Water Regulations 2005 report on the performance of water suppliers and water storage managers in relation to the requirements imposed on them under the Safe Drinking Water Act 2003 investigate and report on any aspect of drinking water quality in Victoria make recommendations to the Minister for Health on any matter relating to drinking water or regulated water promote industry and public awareness and understanding of drinking water quality issues. 4
The Secretary can enter into undertakings with water businesses to achieve particular requirements related to drinking water quality and can provide directions to a business if there is a risk to public health. The Water Program The department s Water Program administers Victoria s safe drinking water regulatory framework on behalf of the Secretary. The department s regulatory approach is based on up-to-date knowledge about health-related drinking water risk management together with fair, transparent and effective regulatory oversight. The department s philosophy is to proactively manage risk to prevent problems. Recognising that safe drinking water is a foundation for the health and wellbeing of all Victorians, the department takes a broad approach to its regulatory role. It is also involved in raising awareness, promoting health and wellbeing, and informing state and national water policy. The activities of the Water Program include: reviewing and assessing the health significance of notifications made to the department under s. 18 and s. 22 of the Safe Drinking Water Act 2003 providing guidance and advice to water businesses on drinking water quality issues working with water businesses that are found to be noncompliant with the Safe Drinking Water Act 2003 or the Safe Drinking Water Regulations 2005 to help them achieve compliance endorsing technical reports and management plans for the treatment of alternative water supplies and water fluoridation dosing plants overseeing fluoridation delivery system technologies to ensure reliability in terms of safety and desired oral health benefits leading the Victorian Government s emergency response during emergencies related to the contamination of drinking water supplies preparing and disseminating guidance material on aspects of the regulatory framework keeping abreast of current research and emerging drinking water quality issues, and contributing to research providing input into national guidelines and policy development advocating and raising awareness across government, industry and the community on public health and wellbeing issues related to drinking water. In carrying out these functions, the Water Program works closely with the water industry, government agencies and peak bodies representing key stakeholder groups: the Water Group in DEPI the ESC EPA Victoria drinking water quality regulatory agencies in other states and territories the Victorian Water Industry Association Inc. (VicWater) the Water Services Association of Australia (WSAA) the Water Industry Operators Association of Australia (WIOA) the Office of Living Victoria (OLV). 5
The Water Program has established strong relationships with these partners through open communication and engagement. Our approach is based on our values of collaborative relationships, appropriate and effective governance, and responsive leadership. The Water Program strives to build trust and confidence in the way it protects public health from hazards in water through effective communication and by systematically developing the program s capacity and capability to provide leadership in health protection. The Water Program s good-practice service standards Be an effective regulator. Provide an efficient, responsive and flexible service. Develop and maintain positive working relationships. Provide clear, accurate and consistent advice. Ensure we value the people and organisations we engage with, and treat them with respect. Anticipate trends and emerging issues relevant to protecting public health from hazards in water. The role of water businesses The first of its kind in Australia, the Safe Drinking Water Act 2003 places obligations on Victoria s water businesses to provide safe, good-quality drinking water. The Safe Drinking Water Act 2003 is applicable to a range of designated water businesses and other statutory authorities that supply drinking water to the public, including Parks Victoria and alpine resort management boards. At 30 June 2013 there were 25 water businesses regulated by the department under the regulatory framework. These businesses are listed in Appendix A. Each water business covers a discrete geographic area that is divided into a number of water sampling localities. There are a total of 477 water sampling localities across the state. A list of these localities is on the department s website at <www.health.vic.gov.au/water>. The Safe Drinking Water Act 2003 defines two types of water business water suppliers and water storage managers. Together they are known as drinking water businesses. An overview of drinking water business boundaries across Victoria is at Appendix A. 6
Water suppliers Water suppliers, also known as urban water corporations, supply drinking water to about 95 per cent of Victoria s population. Some water suppliers also manage regulated (non-potable) water supplies, for example, water that is used for irrigation or stock, or for non-drinking domestic uses. Victoria s water suppliers consist of three metropolitan retail water corporations, 13 regional water corporations, five alpine resort management boards and Parks Victoria. Water storage managers Water storage managers store the raw water that is supplied to water suppliers. Some of the obligations that apply to water suppliers do not apply to water storage managers for example, complying with the drinking water quality standards. However, a water storage manager may also treat water. Victoria s water storage managers include Goulburn-Murray Water and Southern Rural Water (both supply raw water to water suppliers), Melbourne Water (which supplies treated drinking water to water suppliers), South Gippsland Water and Grampians Wimmera Mallee Water (GWMWater) (both are water suppliers and water storage managers). 7
Managing water quality from catchment to tap Water businesses source drinking water from catchment areas. This is where surface water (that is, rivers and streams) and groundwater collects. The businesses are responsible for bringing this raw water up to drinking water standard. The level of treatment depends on the original quality of the raw water. Raw water harvested from catchments that is of a higher quality requires less treatment to produce safe drinking water. In general Victoria s raw water is already of quite good quality because in many cases it is sourced primarily from protected natural catchments. The water is treated as required and directed to households and businesses through reticulated distribution systems. About 95 per cent of Victorian homes and businesses receive reticulated treated drinking water. A list of localities and towns with a reticulated drinking water supply is available on the department s website at <www.health.vic.gov.au/water>. Somewhere up on Mt Baw Baw is the ill-defined source of the Yarra and one of the purest public water supplies on earth. Rain that falls within a forested catchment enclosed from any form of human intrusion for 114 years is captured and stored in a series of massive dams that ultimately supply 80% of Melbourne s enviable water. RoyalAuto, November 2012 The eight steps of water treatment The eight steps involved in water treatment are described in Figure 2. Figure 2: Drinking water treatment the eight steps Catchment management Coagulation and flocculation Clarification Filtration Disinfection Fluoridation Storage Distribution Raw water is collected, stored and managed in catchments. Smaller particles bind with larger ones for subsequent removal. Particles sink to the bottom of the clarifier for later removal. Filters remove the larger particles and pathogens. Chlorine compounds or ultraviolet light control pathogens. Fluoride is added to promote oral health. Water is stored in large tanks to ensure a continuous supply. Water is distributed via a reticulated network to homes and businesses. 8
Further information about the water treatment processes used by individual water businesses can be found in their annual reports, which are available on water business websites (listed in Appendix A). Prevention of contamination provides greater surety than removal of contaminants by treatment, so the most effective barrier is protection of source water to the maximum degree practical. Australian Drinking Water Guidelines 2011 Fluoridation The Victorian Government is committed to improving the oral health of all Victorians, and water fluoridation is an essential component of this commitment. Victoria s Action plan for oral health promotion 2013 2017 was launched in May 2013 by the Minister for Health the Hon. David Davis, MLC. The plan identifies community water fluoridation as the most effective population-wide intervention to prevent tooth decay. The government has allocated additional funding from 2012 to build water fluoridation plants in regional Victoria, including a new plant at Gisborne in north-west Victoria. Since the state s decade-long drought Gisborne has been receiving water from Melbourne, but is now returning to local water sources. Investment in local water fluoridation ensures this important public health measure is maintained for Gisborne and other regional communities. During 2012 13 one new fluoride plant commenced operation. The plant at Silvan was replaced, and is part of the supply system that provides drinking water to Melbourne. Community water fluoridation helps protect against tooth decay and is the most effective way of allowing everybody access to the benefits of fluoride. Action plan for oral health promotion 2013 2017 docs.health.vic.gov.au/docs/doc/action-plan-for-oral-health-promotion-2013-2017 9
A quality approach to protecting public health The state s drinking water, and the system that delivers it, is closely managed and monitored by the state s water businesses and by the department s Water Program. To ensure safety and quality, and to protect public health, the department and the water businesses it regulates use an approach of continuous quality improvement founded on comprehensive planning, risk management and auditing, and on regular water quality testing. This approach allows water businesses and the department to proactively manage potential risks before they become problems and to regularly identify opportunities to improve and update approaches, policies and processes. Figure 3: Safeguarding Victoria s drinking water supply through continuous quality improvement Planning Risk management plans Water plans Reporting Annual reports Water quality data Resource management Water treatment Infrastructure management Issues management Notifications Undertakings Incidents Monitoring Testing Audits The safe drinking water regulatory framework Safe Drinking Water Act 2003 Safe Drinking Water Regulations 2005 Health (Fluoridation) Act 1973 Risk management Water businesses take a proactive approach to managing water quality through comprehensive risk management plans that are developed in accordance with the requirements of the Safe Drinking Water Act 2003. The risk management approach requires water businesses to have a risk management plan detailing activities, procedures and management systems to ensure that the drinking water supplied to customers is of a quality that protects their health and complies with the guideline values described in the Australian Drinking Water Guidelines 2011. 10
Risk management plans are the primary tool that water businesses use to ensure the safety of the drinking water they supply to their customers. The risk management plans include a monitoring regime that is required by regulation. Water businesses regularly test drinking water quality throughout the reticulation system to ensure that drinking water at the point of supply to customers meets a number of quality standards and benchmarks. Standards and benchmarks Drinking water quality standards Victoria has developed a set of drinking water quality standards that are enshrined in Schedule 2 of the Safe Drinking Water Regulations 2005. Water suppliers must demonstrate compliance with these standards. The standards identify parameters for assessing drinking water quality, the required sampling frequency and the maximum acceptable level of each parameter. This is detailed in Table 1. Table 1: Drinking water quality standards Parameter Sampling frequency per Standard water sampling locality Aluminium Bromate Chloroacetic acid (MCA) Dichloroacetic acid (DCA) Escherichia coli (E. coli) Formaldehyde Trichloroacetic acid (TCA) Trihalomethanes (THM) Turbidity One sample per month One sample per week One sample per month One sample per week 0.2 milligrams per litre of drinking water (acid-soluble) 0.02 milligrams per litre of drinking water 0.15 milligrams per litre of drinking water 0.1 milligrams per litre of drinking water At least 98 per cent of all samples of drinking water collected in any 12-month period contain no E. coli per 100 millilitres of drinking water 0.5 milligrams per litre of drinking water 0.1 milligrams per litre of drinking water 0.25 milligrams per litre of drinking water 95 per cent upper confidence limit of the mean of samples of drinking water collected in any 12-month period must be less than or equal to 5.0 Nephelometric Turbidity Units 11
Victoria s drinking water quality standards Victoria s drinking water quality standards are consistent with the guideline values found in the Australian Drinking Water Guidelines 2011. There are two types of guideline values: health-related values and aesthetic values. The health-related values are designed to protect public health. Health-related values are levels of certain physical, chemical and microbiological parameters of drinking water that will not result in any significant risk to people s health over a lifetime of consumption. Values are based on the best available science. Safety or uncertainty factors are used to provide conservative values that are considered to be protective of public health. The aesthetic values relate to water that is pleasant to drink and free of objectionable tastes and odours. More information on the guideline values for specific parameters can be found in the Australian Drinking Water Guidelines 2011, which can be accessed at <www.nhmrc.gov.au/guidelines/publications/eh52>. Tailored monitoring In addition to complying with the drinking water quality standards, water businesses develop tailored water quality monitoring programs for individual drinking water supplies that include additional parameters. These programs are incorporated into their risk management plans. Water businesses regularly test their supplies to ensure that risks identified under their risk management plans have been satisfactorily controlled. Details of these monitoring programs can be found in water businesses drinking water quality annual reports, which are available on their websites. A list of water businesses is at Appendix A. Fluoride standards The department has implemented a code of practice to guide the fluoridation of drinking water supplies. The code of practice describes the steps needed to deliver fluoride safely to achieve an oral health benefit. The department engages external experts to independently assess the effectiveness of, and compliance with, the code of practice. While the Health (Fluoridation) Act 1973 specifies that the average optimum concentration of fluoride in drinking water must not exceed one part per million parts of water (1.0 mg/l), the code of practice provides specific guidelines about designing and operating systems to achieve optimum levels of fluoride. A water business will meet its obligation to achieve an optimum level of fluoride if the annual average concentration is greater than 0.6 mg/l. Continuous fluoride monitoring linked to an appropriate alarm system and an automatic shutdown mechanism is required for all plants. In addition to monitoring at the plant, water businesses must also apply appropriate monitoring in the distribution system. Table 2: Standard and target for optimal fluoride levels Parameter Sampling frequency per Standard Obligation water sampling locality Fluoride One representative sample per week per water sampling locality The rolling annual average of all samples of drinking water collected in any 12-month period must not exceed 1.0 mg/l. The annual average of all samples should be above 0.6 mg/l. 12
Water plans Water plans are an important mechanism for ensuring that Victorians are getting value for money from the water industry. The primary function of water plans is to set water pricing for a period of up to five years. Water businesses prepare a plan for each cycle that describes: the outcomes they need to deliver the actions they need to undertake to achieve those outcomes performance indicators to measure outcomes proposed water prices capital and operational costs associated with achieving the outcomes. As the economic regulator for the Victorian water industry, the ESC reviews the water plan of each water business and then approves the prices that the business can charge for its service. Under the provisions of the Essential Services Commission Act 2001 the department contributes to water plans by advising water businesses and the ESC on priorities for investment to safeguard the quality of drinking water supplies and to protect public health. A memorandum of understanding with the ESC sets out the information-sharing arrangements between the department and the ESC. Performance against Water Plan 2 During the 2012 13 reporting period, the water industry in Victoria was operating under Water Plan 2. Water Plan 2 commenced on 1 July 2008 and concluded on 30 June 2013. The public health gains achieved and the department s primary expectations in relation to drinking water quality during Water Plan 2 are highlighted in Box 1. Box 1: Investment priorities in relation to drinking water quality for Water Plan 2 Improve health-related aspects of drinking water quality due to existing problems. Mitigate any risk identified by a risk management plan audit. Operate or upgrade water treatment or disinfection facilities to maintain drinking water quality standards or to cater for increased demand. Address risks arising where disinfected-only (that is, unfiltered) drinking water supplies draw water from multi-use or unprotected surface water catchments. Remediate lands, water storages or streams to improve water quality from catchments. Upgrade a water supply from regulated (non-potable) to drinking water standard, where the decision to move to drinking water resulted from a due consultative process. Undertake water supply security upgrades to protect the water from contamination 13
The improvements in drinking water quality that have been seen over the period of Water Plan 2 indicate that water businesses complied with the department s regulatory expectations, and invested wisely in improvement works to deliver better drinking water quality across the state. There are two key measures of performance against the department s regulatory expectations for Water Plan 2. The first measure is compliance with the state s drinking water quality standards, as described in Schedule 2 of the Safe Drinking Water Regulations 2005. The number of noncompliant localities has dropped steadily over the five years of Water Plan 2, from a rate of 14 per cent (67 out of 486) in 2008 09 to a rate of five per cent (23 out of 477) in 2012 13 a drop of nine per cent. The second measure is the number of water quality notifications by water businesses to the department under s. 22 of the Safe Drinking Water Act 2003. These have steadily declined from 172 notifications in 2008 09 to 69 notifications in 2012 13, a drop of 60 per cent. Figure 4 briefly summarises this improved performance. More detailed data and information about these measures is contained in the sections below. Information about the performance of individual water businesses against Water Plan 2 is contained in water businesses own annual reports, which are available on their websites. Appendix A has contact details for all Victoria s water businesses. Figure 4: Comparison between commencement and conclusion of Water Plan 2 (2008-09 to 2012-13) for non compliant localities and notifications 200 180 160 172 140 120 100 80 60 67 69 40 20 0 2008-09 2012-13 23 Noncompliant localities Notifications 14
Preparation for Water Plan 3 (2013 18) Water Plan 3 commenced on 1 July 2013, and will run through to 30 June 2018. During 2012 13 the department worked with water businesses and the ESC to ensure the department s regulatory expectations for Water Plan 3 were incorporated into businesses water plans. Box 2 summarises future opportunities and the department s expectations in relation to drinking water quality for Water Plan 3. Box 2: Investment priorities in relation to drinking water quality for Water Plan 3 Improve health-related aspects of drinking water quality due to existing problems. Address risks arising where disinfected-only (that is, unfiltered) drinking water supplies draw water from multi-use or unprotected surface water catchments. Ensure that by the end of Water Plan 3 issues of recurrent noncompliance with the drinking water quality standards in Schedule 2 of the Safe Drinking Water Regulations 2005 are resolved. Address water supplies with elevated levels of total dissolved solids, to ensure that all drinking water supplies are pleasant to drink. By the end of Water Plan 3, water suppliers will have ensured that their water treatment operators meet the minimum competency requirements detailed in the Victorian framework for water treatment operator competencies: best practice guidelines. 15
Drinking water quality performance in 2012 13 Compliance with the drinking water quality standards In 2012 13 just 4.8 per cent of localities (23 out of 477) were noncompliant compared with 2007 08 when 17.5 per cent of water sampling localities (85 out of 486) were noncompliant (Figure 5). The only exception to this positive downward trend was an increase during 2010 11 when turbidity and disinfection by-product levels were adversely impacted by the 2010 Victorian floods. Figure 5: Water sampling localities noncompliant with the drinking water quality standards 2007 08 to 2012 13 (does not include fluoride standard) 2012-13 23 Reporting period 2011-12 2010-11 2009-10 2008-09 38 50 62 67 2007-08 85 0 10 20 30 40 50 60 70 80 90 Number of water localities The instances of noncompliance in 2012 13 were minor. Of the 23 noncompliant localities, 22 localities were noncompliant with only one drinking water quality standard. One locality was noncompliant with two standards. A table showing the water sampling localities with details of noncompliance is at Appendix B. Figure 6 shows a more detailed analysis of water sampling localities compliance with individual standards from 2010 11 to 2012 13. In this analysis it can be seen that, while there has been a slight downward trend against some of the standards, the compliance rate continues to be very high, with the lowest compliance rate at 97 per cent for any one standard in 2012 13, while five of the standards achieved a 100 per cent compliance rate. Compliance with the aluminium standard continues to be lower than that achieved against the other standards. With the exception of the Dimboola water sampling locality, where two noncompliant results were recorded, in all other noncompliant localities single elevated concentrations of aluminium were recorded. In all cases, the repeat samples were found to comply with the aluminium standard. While compliance with the aluminium water quality standard is the regulatory goal, none of the recorded instances of noncompliance posed a risk to public health. 16
Figure 6: Rates of water sampling localities compliance with the drinking water quality standards and fluoride standard from 2010 11 to 2012 13, by standard Turbidity THM Water quality standard TCA MCA Formaldehyde Fluoride E. coli DCA Bromate Aluminium 2010 11 2011 12 2012 13 90 92 94 96 98 Rate of compliance (%) 100 Figure 7 illustrates changes in rates of compliance with the individual standards between 2011 12 and 2012 13. There were significant improvements in compliance with the turbidity standard as well as for the standards for disinfection by-products THM and DCA. As noted earlier, while lifting compliance with the aluminium standard continues to be a regulatory goal, the slight drop in noncompliance from 2011 12 to 2012 13 did not pose a risk to public health. In relation to fluoride, during 2012 13 none of the water sampling localities exceeded the maximum value contained in the Health (Fluoridation) Act 1973. Figure 7: Change in water sampling localities compliance with the drinking water quality standards and fluoride standard from 2011 12 to 2012 13, by standard Water quality standard Turbidity THM TCA MCA Formaldehyde Fluoride E. coli DCA Bromate Aluminium No change No change -1-0.5 0 0.5 1 1.5 2 2.5 3 Change in compliance from 2011-12 to 2012-13 (%) 17
Exemptions from compliance with a water quality standard Section 20 of the Safe Drinking Water Act 2003 allows the Minister for Health to exempt a water supplier from the obligation to comply with a drinking water quality standard. During 2012 13 for the first time since the Safe Drinking Water Act 2003 was enacted the Minister approved an exemption. The exemption applies to the Cavendish water sampling locality for the aluminium drinking water quality standard, for the period 30 June 2013 to 30 June 2018. Aluminium sulphate (alum) is often added to water during treatment as a coagulant to assist the flocculation process. However, the higher level of aluminium present in the Cavendish water supply is naturally occurring in the source water drawn from the Grampians National Park it is not from alum added to the water by Wannon Water. As aluminium does not have an established health-based guideline value in the Australian Drinking Water Guidelines 2011, granting the exemption does not create an unacceptable health risk. Nonetheless, to ensure that public health remains protected, the exemption requires Wannon Water to monitor the concentration of aluminium in the drinking water being supplied to Cavendish, and to take corrective action should a value of greater than 0.9 mg/l be detected. Compliance with the fluoridation code of practice As required by the Health (Fluoridation) Act 1973 and the Code of practice for fluoridation of drinking water supplies, the department assesses the plans and specifications of newly constructed fluoridation plants before operation commences. An initial technical appraisal is undertaken to assess the water business ability to operate its fluoridation plant in a safe and effective manner at the required optimum fluoride concentration. The department commissions a follow-up audit 12 months after fluoridation commences to ensure that the plant is compliant with the code of practice and is operating in a safe and effective manner. In most cases the audit results in a number of matters to be addressed, and water businesses provide a work plan in order to complete the audit process. Eight fluoride plants completed audits in the 2012 13 period. Another four fluoride plants one new plant and upgrades to three existing plants were assessed during 2012 13. One of these was a technical appraisal for an upgrade of an existing plant that will require a follow-up audit in 2013 14. The other three audits were still ongoing at the end of the reporting period. Risk management plan audit activity In 2007 the department implemented an auditing regime in accordance with s. 11 of the Safe Drinking Water Act 2003 to ensure that water businesses risk management plans comply with the obligations imposed under the Act. 1 Since that time the Secretary has initiated three rounds of audits in 2008, 2009 and 2011 12. The next round of audits is due in 2013 14. During 2012 13 the department provided updated guidance material to water businesses and auditors to prepare them for this next round of audits. 1 Section 10 of the Safe Drinking Water Act 2003 describes a risk management plan audit as an audit by an approved auditor in relation to the risk management plan. 18
Since the auditing regime was implemented the rate of compliance by water businesses with their risk management obligations under the Safe Drinking Water Act 2003 has risen from 60 per cent to 92 per cent. Figure 8 demonstrates this significant improvement over time. Figure 8: Compliance of water businesses risk management plans with the Safe Drinking Water Act 2003 2011-12 2 23 Year of audit 2009 2008 2 10 15 23 0 5 10 15 20 25 Number of water businesses Compliant businesses Noncompliant businesses Note: The noncompliant businesses in 2011 12 were not the same as those in 2009. The next round of audits is scheduled for 2013 14. Audits in 2012 13 Risk management plan audits were undertaken by Coliban Water and Westernport Water during 2012 13. These audits were undertaken to follow up noncompliance issues identified during the 2011 12 audit process. Westernport Water completed their follow-up audit in November 2012. They were found to be compliant with their risk management obligations under the Safe Drinking Water Act 2003. Coliban Water completed their follow-up audit in November 2012. Results indicated that they continued to be noncompliant with their risk management obligations under the Safe Drinking Water Act 2003, and the department and Coliban Water agreed on a course of action to improve their risk management practice. As part of the agreed course of action, the department appointed an independent drinking water risk management specialist to identify opportunities for improvement to Coliban Water s risk management processes and practice. Coliban Water entered into an undertaking with the Secretary to the department under s. 30 of the Safe Drinking Water Act 2003 in May 2013 (see Undertakings ). 19
Closing out the 2011 12 audit process The department and water industry takes a continuous improvement approach to the risk management plan audit process. The department followed up the 2011 12 audits by holding debriefing sessions with risk management plan auditors in August 2012, and with the water industry in November 2012. The purpose of these sessions was to get feedback from auditors and businesses about the strengths of the audit process and opportunities for improvement, as well as gathering any general observations on the process. The feedback received during the two debriefing sessions was used to update the department s guidance note for the 2013 14 round of audits. Preparing for the 2013 14 audits The next full round of risk management plan audits is due to occur between 1 September 2013 and 30 April 2014. In May 2013, the department released an updated guidance note for the 2013 14 round of audits, and held briefing sessions with auditors to work through the changes to the audit process and answer questions. Notifications Victoria s risk management approach allows water businesses and the department to proactively manage potential risks before they become problems. Despite this proactive approach problems occasionally do occur. Water businesses must notify the department when they believe or suspect on reasonable grounds that water supplied, or to be supplied, for drinking purposes may: be the cause of an illness be the means by which an illness is being, has been or will be transmitted contain any pathogen, substance, chemical or blue-green algae toxin, whether alone or in combination, at levels that may pose a risk to human health cause widespread public complaint. Generally speaking, water businesses resolve issues without involving the department. Response protocols that are already built into the water businesses risk management plans minimise risk to public health. The department reviews all notifications, and in a small number of cases the issues associated with the notification are more complex and a water business may need support, advice or additional expertise. In these cases the department works with the water business to take action aimed at protecting public health. These situations are called incidents. 20
Notification trends The number of notifications that water businesses make to the department has been steadily declining over the past several years (Figure 9). This decrease can be related back to the water businesses investment in water quality improvement works and improvements they have made to their risk management practices. The only exception to this positive trend was an increase in notifications during 2010 11 when large parts of the state were adversely impacted by the 2010 Victorian floods. Figure 9: Notifications from 2007 08 to 2012 13 2012-13 69 Reporting period 2011-12 2010-11 2009-10 2008-09 127 156 172 199 (floods) 2007-08 198 0 50 100 150 200 250 Notifications in 2012 13 Number of notifications During 2012 13 water suppliers, water storage managers and a local government submitted a total of 69 notifications to the department under s. 22 of the Safe Drinking Water Act 2003. As with previous reporting periods, the majority of notifications (50 per cent) related to the detection of E. coli. Details of these notifications are available in individual water businesses drinking water quality annual reports, which are available on their websites (see Appendix A for contact details of water businesses). Table 3 summarises the notifications by category and reporting period. During 2012 13, five notifications involved circumstances where risk to public health required the department s intervention. These are described in more detail in the section of this report entitled Incidents. 21