173 Q IWA Publishing 2010 Water Science & Technology—WST | 61.

1 | 2010

The World Health Organization’s water safety plan

is much more than just an integrated drinking
water quality management plan
F. C. Viljoen

ABSTRACT

South Africa is a country of contrasts with far ranging variations in climate, precipitation rates, F. C. Viljoen
Water Quality Specialist Services, Rand Water,
cultures, demographics, housing levels, education, wealth and skills levels. These differences PO Box 1127,
Johannesburg 2000,
have an impact on water services delivery as do expectations, affordability and available
South Africa
resources. Although South Africa has made much progress in supplying drinking water, the same E-mail: cviljoen@randwater.co.za

cannot be said regarding water quality throughout the country. A concerted effort is currently
underway to correct this situation and as part of this drive, water safety plans (WSP) are
promoted. Rand Water, the largest water services provider in South Africa, used the World Health
Organization (WHO) WSP framework as a guide for the development of its own WSP which was
implemented in 2003. Through the process of implementation, Rand Water found the WHO WSP
to be much more than just another integrated quality system.
Key words | assessment tool, outcomes-based training, protocol, water safety plan

INTRODUCTION

South Africa is a country of contrasts, often described as a
world in one country consisting of coastal plains, extensive
mountain ranges, tropical forests, grassland savannas, semi-
desert and deserts. Rainfall is sporadic, seasonal in nature,
not evenly distributed varying from 100 mm to more than
1,200 mm per annum with an average precipitation rate for
the country of 458 mm, which is less than half of that
recorded for the world. Demographically South Africa is
also very diverse, with 11 official languages, far-ranging
differences in development, culture, education, skills,
expectations, housing and wealth levels.
It is not only the availability of adequate raw water of
acceptable quality that impacts water supply, but also the
vastness of the country, the spread and nature of habitation
and affordability of services that further complicates the
situation. Despite these challenges, South Africa has made
vast inroads with regard to the provision of piped water to
its people. Figure 1 (Stats South Africa 2007) provides a
doi: 10.2166/wst.2010.792
breakdown of water supply to households in South Africa,
demonstrating progress achieved since 2001.
Whilst the supply of water (Figure 1) is well documen-
ted, the same cannot be stated regarding the quality of these
supplies. The necessity also manage quality, has now been
entrenched in the national drinking water standards by
promoting the use of WSPs in the new addition to the South
African National Standard for drinking water (SANS 241
of 2006). Rapid changes in staff, exodus of skilled baby
boomers from the industry and scarcity of suitable experi-
enced staff in the water industry, emphasises the need for a
well formulated and documented integrated water quality
management system such as a WSP (Viljoen 2006).
Rand Water and the WHO water safety plan
Rand Water, is the largest water services provider in South
Africa, providing 3,800 mega litres of water daily to

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 174 F. C. Viljoen | WHO water safety plan
Figure 1 | Percentage distribution of households by main source of water.
12 million consumers residing within an area of 18,000 km2
(Rand Water 2007). Rand Water finds itself at the one end
of the water supply spectrum in South Africa in contrast to
the rural areas where people rely on boreholes, hand
pumps, tanked water and, in some unfortunate situations,
on streams for their daily water requirements.
Rand Water has had a well-defined water quality
management system for the past 104 years and to date has
never recorded a health-related water quality incident. It
consistently produces water that meets the national water
quality standards (SANS 241:2006; DWAF 2007) as well as
the WHO drinking water quality guidelines, which are
used as an international benchmark (WHO 2004). In
keeping with modern international trends, Rand Water
implemented its WSP in 2003 and has just completed the
first revision of the WSP.
The Rand Water WSP was adapted from the WHO
framework (Davidson et al. 2002) and it is the view that this
WSP provides a logic risk based approach that is relatively
easy to implement (Figure 2). The Rand Water WSP is
essentially similar to the WHO framework, the main
difference being that record keeping in the Rand Water
framework has been entrenched in each of the procedures.
Record keeping in respect of monitoring programs is
dealt with in procedure 8 which also requires appropriate
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laboratory procedures, data and information management
systems. Sound record keeping is also a prerequisite for
procedure 9 which deals with water quality verification.
Items included under the support programmes also differ,
from those in the WHO framework.
During the development of the Rand Water WSP it
was necessary to consider the following aspects:
1. Rand Water has several sites, divisions and departments
that all needed to become part of the development
process to secure the necessary skills and cooperation;
2. Rand Water, prior to the implementation of the WSP,
was already a fully ISO 9001 accredited organisation, so
the WSP needed to be integrated into the existing ISO
9001 quality manuals of the respective sites;
3. To ensure compatibility with the existing ISO quality
manuals, all the WSP procedures were compiled,
using the ISO 9001 (Noatschk B. 2003) procedure
writing methodology;
4. A decision was taken to separate Water Quality Control
(WQC) from Water Quality Assurance (WQA). WQC
included all the water quality-related activities performed
by the operations staff at the purification sites and
throughout Rand Water’s extensive distribution system.
The responsibility of WQA was allocated to the Corporate
Scientific Services Division, which was tasked with the
 175 F. C. Viljoen | WHO water safety plan Water Science & Technology—WST | 61.1 | 2010

Figure 2 | Rand Water WSP which was adapted from the WHO framework.

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 176 F. C. Viljoen | WHO water safety plan
responsibility of ensuring that the necessary systems are in
place to address all legal and customer water quality
related requirements. This included maintaining a water
quality monitoring programme, water quality verification
system, the production of water quality audit reports and
the facilitation of independent (External to Rand Water)
water quality audits of the final product;
5. Scientific Services (WQA component) was allocated the
responsibility for drafting and maintaining the WSP; and
6. The need was identified for an ongoing WSP training
programme.
During the development of its WSP, it became evident
that the WSP is more than just another integrated water
quality management plan. The manner in which Rand Water
implemented its WSP also had the following advantages:
1. It provided an independent verification tool with respect
to the adequacy of existing ISO 9001 quality systems and
was easy to integrate into the existing ISO quality manuals;
2. During the development of procedure 10 (corrective
action) protocols were developed for all the constituents
that, in the view of the WSP steering committee, required
a proactive and integrated (across all sites, divisions and
departments) management plan; and
3. The methodology used to develop the WSP was ideally
suited to develop an outcomes-based training pro-
gramme for staff. This, did not only add value in respect
of understanding the WSP, but also provided a detailed
understanding of the corporate water supply chain.
Independent verification tool
As stated, at the time of implementation, all Rand Water
sites, divisions and departments were already ISO 9001
accredited with well-established quality manuals. Because
these sites are conducted as independent business units, the
implementation of a WSP had to accommodate the existing
structures, especially with regard to procedures 6 (Identify
critical control points), 7 (Establish operational limits), 8
(Monitoring programme) and 10 (Corrective actions).
A critical component of the implementation strategy
was the inter-divisional WSP steering committee, which
included staff from all sites and all elements of the water
supply chain, starting in the catchment, progressing through
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the purification system, distribution system and ending at
the point of delivery. Several workshops were held, during
which each of the WSP procedures were developed. Where
required, sub-committees were established to assist with
gathering of information and compilation of specific
procedures such as procedure 4 (Construct flow dia-
gramme), Procedure 5 (Conduct risk and hazard assess-
ment) and procedure 8 (Compile monitoring programme).
Three iterations of the WSP were compiled, each following
an extensive review process allowing all key staff within the
organisation to provide comment.
The WSP has to date not been ISO 9001 accredited. It
is currently being used as an overall evaluation tool to
ensure that all the requirements of the WSP are entrenched
in the existing ISO 9001 quality manuals of the respective
sites. This is affected by means of a reference system
(Figure 3) indicating:
1. Procedure;
2. Critical control point;
3. Operational site;
4. Purpose of the ISO procedure;
5. ISO 9001 procedure reference number;
6. ISO9001 procedure custodian; and
7. ISO 9001 procedure location.
The approach of separating quality assurance from
quality control has provided Rand Water with a water quality
evaluation tool that is independent of sites and holistic in
nature. This approach has additional benefits in that it
entrenched the need for managing water holistically, pro-
vided new staff with a documented account of the corporate
integrated water quality management system, promoted
common goals across all sites and clearly identified specific
accountabilities and responsibilities throughout the entire
supply chain.
Corrective actions
During the development of procedure 10 (Corrective
actions) two tiers of corrective actions were identified:
† Tier one relates to specific unit processes, such as
coagulation, filtration, disinfection etc. Necessary cor-
rective actions were identified, developed and included
as part of the standard operational procedures in ISO
 177 F. C. Viljoen | WHO water safety plan
Figure 3 | ISO 9001 referencing table.
9001 quality manuals. These actions are triggered when
routine monitoring indicates non-conformance to speci-
fied operational limits.
† The second tier relates to water quality variables such
as E-coli, pathogenic protozoa, algal toxins, taste and
odour and dirty water (Turbidity . 5) for which proto-
cols were developed. Protocols differ from tier one
procedures in that non-conformances can result from
several critical control points along the supply chain,
hence requiring an integrated approach to resolve
such problems.
Protocols consist of three parts. The first part contains
easy-to-follow user directives, the second part contains a
single page decision and responsibility matrix (Figure 4),
outlining all activities and responsibilities. Part three of the
protocol provides a description of all the actions indicated
in the matrix. The table was developed in such a manner
that it is useable on its own and can be pinned to a board for
easy access. Some of the key aspects in the table include the
following (Refer Figure 4):
1. Activities required to resolve a particular incident are
listed across the top of the table and the persons
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responsible for performing the specific activities are
listed along the side of the table;
2. Actions have been divided into three categories, namely:
monitoring [m], communications [c] and remedial action [r];
3. Three alert levels have been developed and specific
activities defined for each of the three alert levels. The
nature of each specific activity is dependent on the
impact of the problem and the intervention required to
correct the problem.
4. Specific activities in respect of alert levels and categories
have also been sequentially numbered to facilitate a
systematic and sequential progression of activities and
for referencing the descriptive part of the protocol
(Part 3) if a more detailed outline of the specific activity
is required.
Because the same format is used for the development
of all the protocols, users are familiar with the use of
protocols, thus ensuring consistent application of protocols.
An added advantage of this methodology is that specific
responsibilities and decision making authorities are clearly
indicated in the matrix, thus removing all uncertainty
regarding accountability.
 178 F. C. Viljoen | WHO water safety plan
Figure 4 | Decision and responsibility matrix.
Training programme
Water safety plans are not complex, but require a sound
understanding of the entire water supply chain and the
interdependency of the various procedures of the WSP.
Rapid turn-over of staff and the unavailability of suitably
experienced staff resulted in the need for Rand Water to
develop a WSP training programme for new staff.
During the development of the WSP it became evident
that the WSP, based on 11 logically sequenced procedures,
is ideally suited to the development of an outcomes-based
training programme. The nature of the 11 procedures
included in the WSP framework also allows the framework
to find wide application as it is independent of the nature or
complexity of the water treatment system.
The training programme comprises a three day hands-
on workshop during which all 11 procedures are presented
dealt with. Understanding of each procedure is evaluated
via worksheets related to each of the procedures and a
workshop project, which requires participants to develop a
WSP framework for their own works. A workbook
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describing the requirements for each procedure is provided
for this purpose.
Material is presented in four modules, consisting of
the following:
Module 1: Introduction to WSP. During this module
learners are introduced to key concepts of the water
supply chain, water quality, the need for integrated water
quality management systems, the water safety plan and
ISO 9001 procedure writing methodology.
Module 2: Defining the WSP. In this module proce-
dure 1 (Assemble team and other resources), procedure 2
(Define corporate quality commitment), procedure 3
(Define scope of work) and procedure 4 (Construct flow
diagramme) are presented.
Module 3: Setting up the WSP. This module includes
procedure 5 (Conduct hazard and risk assessment), proce-
dure 6 (Establish critical control points) and procedure 7
(Set operational limits).
Module 4: Implementing the WSP. The final module
includes the monitoring, verification, corrective actions
and support programme procedures.
 179 F. C. Viljoen | WHO water safety plan
Adopting this mode of training yielded the following
benefits:
† Introduction of learners to the concepts of risks, criteria,
water quality, water safety plans and ISO 9001 quality
systems.
† The manner in which the training material was devel-
oped and the outcomes required from the respective
worksheets, enabled trainers to assess current knowledge
of learners in respect of each of the eleven procedures.
† Because the training programme is conducted in a
workshop environment, trainers are able to provide
learners with necessary information to complete the
respective worksheets and then guide learners through
the development of a WSP framework applicable to their
own work environment.
† Completion of the project tasks in the workbook enables
trainers to evaluate learner’s understanding of the WSP
principles and requirements. Trainers are also able to
identify areas where the learners are not yet competent
and assist such learners in attaining the required
competencies.
† A completed workbook provides learners with a docu-
ment that can be used as a framework for the develop-
ment of a WSP.
CONCLUSIONS
The WHO water safety plan is a useful guideline document,
logical in design and relatively easy to follow and adapt for
specific requirements. Although not complex, the WSP
requires dedication, clearly defined responsibilities and
much attention to detail, without which it will not succeed.
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The need therefore exists for staff that are fully conversant
with issues pertaining to water quality, the water supply
chain, the functioning of WSPs and how the respective
WSP procedures relate to each other. Finally, the method
employed by Rand water to integrate its WSP into existing
site specific ISO 9001 quality manuals had an added
advantage in that it enabled near-full alignment with the
requirements of the two new draft water supply related ISO
24510 and 24512 international standards.
REFERENCES
Community Survey 2007 Statistics South Africa. Statistical release
P0301.
Davidson, R., Howard, G., Stevens, M., Callan, P., Kirby, R., Deere, D.
& Bartram, J. 2002 Water Safety Plans. World Health
Organization, Geneva.
Department of Water Affairs and Forestry 2007 A Drinking Water
Quality Framework For South Africa. 2nd edition, May 2007.
ISO 24510 2007 Activities relating to drinking water and
wastewater services—Guidelines for the assessment and
improvement of the service to users. 1st edition, 2007-12-1.
ISO 24510:2007(E).
ISO 24512 2007 Activities relating to drinking water and waste
water services—Guidelines for the management of drinking
water utilities and for the assessment of drinking water.
Noatschk, B. 2003 Rand Water Corporate Quality Compliance
Manual.
Rand Water 2007 Annual report.
South African National Standards, Drinking Water 2006 SANS
241:2006. ISBN 0-626-18876-8.
Viljoen, F. C. 2006 A critical overview of water quality management
into the future– a holistic approach is essential, WISA biennial
conference Durban South Africa May 2006.
WHO 2004 Guidelines for drinking water, 3rd edition. (Vol. 1).
World Health Organization, Geneva.