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Water
Terrorism: An Overview of
Water & Wastewater Security
Problems and Solutions
Richard
Lancaster-Brooks
Khafra Engineering Consultants
February 2002
Richard Lancaster-Brooks is an environmental
engineer
from Toronto, Canada,
with over 10 years of experience
in the North American
water and wastewater
industry.
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Historically, sabotage to water and wastewater systems
has not received much publicity as a viable threat. Safe
and sustainable drinking water has been
taken for granted. Today, sabotage has to be considered not only as a viable
threat, but a plausible one. It is important that cities, counties, provinces,
and private companies that own or operate water and wastewater systems consider
what weaknesses may exist throughout their systems, what measures should be
taken to prevent future acts of sabotage, vandalism, or terrorism, and be ready
with a well-tested emergency response plan.
Two types of water system sabotage—vandalism
and terrorism—need to be considered. Vandalism interrupts the supply
of water and reduces its quantity. Terrorism contaminates the water and reduces
its quality. Supply interruptions include the destruction of, or interference
with, reservoir dams, water towers or storage facilities, pumping stations,
intakes, valves, treatment plants, the distribution system, or fire hydrants,
denying the population drinking water or firefighting protection. Supply interruptions
can be caused by any number of acts, including physical destruction, interruption
of the supervisory control and data acquisition system, or acts that could
reduce the water pressure in a system. Supply interruptions can also occur
as an indirect result of contamination. As drinking water is essential to human
life, denying it for any period could cause panic and disrupt society. Acts
of contamination could occur at the reservoir, intake structure, or treatment
plants or within the distribution system. Some types of contamination are less
effective than others.
With regard to wastewater systems, proximity or access
to critical buildings is the main problem. Sewers that run beneath or near
airports, critical structures, or federal facilities could allow explosives
or other energetics or combustibles to be detonated close enough to create
mass destruction. Individual treatment facilities should undertake their own
vulnerability assessment, as every facility has different strengths and weaknesses,
and then make appropriate modifications to their security systems. Emergency
response plans should be updated to reflect the vulnerabilities identified
during the assessment. To actively attempt to prevent all possible scenarios
of sabotage, vandalism, or terrorism is impossible, but steps can be taken
to reduce the chances of future occurrences and to make it as difficult as
possible for potential saboteurs to succeed.
To secure water and wastewater
systems against these possible threats, security will have to be scrutinized
with renewed vigor. Security has to be established to defend against people
with many motives, from teenage pranksters vandalizing property to international
terrorists bent on mass destruction. When looking at defense of facilities,
it is best to look at worst-case scenarios. In defending against saboteurs
whose objective is mass destruction, examining the worst-case scenario will
capture the lesser motives as well. To defend all water treatment facilities
against state-sponsored terrorists whose objective is mass destruction would
require resources that are not now available and probably never will be, so
it becomes necessary to have a plan to respond to these acts. In general, all
resources possible should be used to try to prevent an act of mass destruction.
However, plans should be in place to recognize possible problems, delay the
problem, and reallocate resources to contain the problem.
The following lists
of general, commonsense, and basic security practices are intended to be a
general starting point for water and wastewater facilities. These measures
are intended for large plants, but some of the measures will apply to smaller
systems. The information was gathered from sources such as foreign experts,
domestic facilities, the Environmental Protection Agency (EPA) and the Federal
Bureau of Investigation (FBI).
The following are general basic security measures to defend water facilities
from supply interruptions:
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| Anyone with access to a facility should be
checked against the FBI’s “Most Wanted” list.
Current employees, contractors, subcontractors, visitors,
delivery personnel, persons digging up water distribution
system components or accessing manholes and fire hydrants—all
should be checked. Vulnerable components include treatment
plants, reservoirs, reservoir dams, water storage facilities
and
towers, pumping stations, water intake facilities, chlorine
booster stations, and meter and valve boxes. |
| All employees should wear identification badges
and should accompany any visitors at the facilities. |
| New employees should be subjected to thorough
background checks, and all employees should be subjected
to periodic background checks thereafter. |
| All doors on-site should be locked at all
times. Keys should be monitored and codes changed daily,
access cards and keys returned if employees are dismissed
for any reason. |
| To prevent hacking, supervisory control and
data acquisition systems should not be connected to the Internet.
Remaining cybersecurity should be enhanced, and passwords
should be changed regularly. |
| All facilities (treatment plants, reservoirs,
reservoir dams, water storage facilities and towers, pumping
stations, water intake facilities, chlorine booster stations,
and meter and valve boxes) should be fenced, be well lighted,
and have a perimeter that is monitored by surveillance cameras
(with a minimum of seven tapes to record
a week’s worth of activities) and motion detectors. |
| All gates should be locked and Z barricades
set up to stop trucks from running through them. Landscaped
berms should surround reservoirs and storage facilities, with an approach slope
greater than what a truck could negotiate. Either security personnel should be
stationed at the front gate or the facility should not allow access except by
appointment or by buzzing the security office. |
| Fire hydrants and other entry points to the
distribution system should be tamperproof. |
| Surveillance cameras should be located on-site
at key points, such as at the chlorine storage facilities,
chlorine injection areas, filter beds, hazardous chemical
and fuel storage areas, and finished water storage areas. |
| Employees should make surveillance rounds
at varying times on each shift to check for anything out
of the ordinary. |
Redundancy should be built into all systems.
There should be a backup power source or generator available.
Portable pumps and other major equipment should not be stored together.
There should be good communication and coordination among neighboring water utilities.
Valved cross-connections should be established. If one facility goes down the
other could be used as a backup. Locations of all valves should be known and
they should be well maintained and easily accessible for emergencies.
All reservoir and tank-access panels and vents should be tamperproof.
The public should be sensitized to watching for and reporting suspicious vehicles
and people near water facilities, especially in remote locations. Increased surveillance
should be encouraged to act as a deterrent.
A vulnerability assessment should be conducted and employees should receive frequent
training on the importance of security and to look for anything out of the ordinary.
Employees should be told how to respond if they find themselves in a blackmail
situation. All employees should be tested to ensure that they are aware of the
emergency response plan and communication protocols.
Keys should not be left in unattended public vehicles.
A prioritized list of people and phone numbers to be contacted in an emergency
should be established, distributed to all personnel on-site and off-site, and
kept near all phones. A reverse-911 calling system to inform the public should
be considered. A reverse-911 system will call all lines within a certain area
and play a recorded message or warning.
Frequent hypothetical emergency drills should be held and evaluated based on
performance.Various types of bacterial, viral, radiological and chemical agents
might be used to contaminate a public water supply. Most agents, to effectively
cause widespread mass destruction, would need to be used in large quantities.
To effectively defend against a contaminating attack, the following points should
be considered:
There should be good communication and coordination with local police and fire
departments. Police units should make mandatory stops at water facilities (treatment
plants, reservoirs, reservoir dams, water storage facilities and towers, pumping
stations, water intake facilities, and meter and valve boxes) during their beats
at random intervals. Fire units should track all fire trucks in operation and
in reserve at all times. All portable pumps, operational and reserve, should
also be accounted for at all times.
Finished water reservoirs should be covered.
There should be one-way valves installed at strategic points in the distribution
system to prevent backflow.
Additional testing and monitoring of chemical agents delivered to the plant should
be conducted to make sure that the contents are what are indicated on the label.
Filtration and disinfection should be enhanced as much as possible to remove
bacterial agents. Reducing turbidity levels will increase the removal of microbial
and chemical agents.
Continuous monitoring for various contaminants in the influent and in the distribution
system should be conducted for various agents. Israel has developed sensitive
real-time water quality-monitoring devices to test for various chemical and biological
agents.
The chlorine delivery schedule should be known, and there should be a clear line
of communication with the supplier to discuss changes in the schedule. Chlorine
containers should be stored in secure, clean, ventilated, fire-resistant, sheltered
areas away from other chemicals. Chlorine storage facilities should be inspected
regularly. Police and fire departments should be aware of the location of chlorine
storage so that they can respond appropriately in an emergency. Emergency breathing
apparatus should be maintained on-site.
Areas in the distribution system that are especially vulnerable due to hydraulic
engineering should be monitored more closely.
Customer complaints about the color, taste, or odor of the water should be investigated.
Aquatic wildlife in source water bodies should be observed.
Alarm levels that trigger an investigative or emergency response should be established
for all monitored parameters.
Within the distribution system, pressure changes should be monitored for abnormalities.
The chlorine residual should be monitored frequently, and at various locations,
throughout the distribution system, because most biological agents will be destroyed
by the chlorine residual. Abnormalities in the chlorine residual levels might
indicate contamination.
Careful attention should be paid to significant changes in water quality at raw
water intakes, distribution system entry points, finished water storage reservoirs
and key monitoring locations within the distribution system.
According to the EPA, pH, turbidity, total and fecal coliform, total organic
carbon, ultraviolet absorption, color, and odor should be monitored at raw water
intakes; free and total chlorine residual, heterotrophic plate count, high volume
total and fecal coliform analysis, pH, color, odor, system pressure, and taste
(but not if there are other indicators of a possible problem) should be monitored
within the finished water and distribution systems. To protect groundwater sources,
all abandoned wells and boreholes should be securely capped or destroyed pursuant
to standard practices and local regulations. Wastewater utilities need to implement
many of the same security measures as water treatment facilities in terms of
securing their premises and preparing for emergency response. In addition, they
should
Inventory wastewater and storm-water assets and evaluate their locations relative
to sensitive locations.
Install tamperproof manholes and sensors in sewer and storm-sewer lines in sensitive
areas.
Monitor all chemicals that are stored on-site.
Establish alarm levels that trigger an investigative or emergency response for
all monitored parameters.
Monitor pH, corrosivity, oxidation-reduction, flammability, and air within the
collection system for explosivity, and monitor total chlorine residual at the
outfall as recommended by the EPA. Water and wastewater treatment facilities
need to be ready for the worst-case scenario in the event that their defenses
are compromised.
If defenses are breached, utilities must be ready with a regularly
tested emergency response plan. A good plan should include the following provisions:
Procedures to detect possible supply or quality problems; the procedures should
include establishing alarm levels for various parameters.
Procedures to delay and minimize the effects of a problem.
Clear procedures for reporting and response, including efficient and effective
communication of the problem with consumers, the media, and relevant law enforcement,
public health, environmental protection, and emergency response organizations.
Procedures to rectify the problem.
The emergency response plan needs to be regularly
tested. “Die Hard” scenarios need to be developed to test the emergency
response plan. The emergency response plan should be evaluated based upon performance
of these tests.Owners and operators of water and wastewater treatment facilities
began looking at security a few years ago when terrorist threats were being made.
At that time, some took small steps toward improving security by putting up fences
and cameras. Since the events of 11 September 2001, security has taken on a new
relevance. |
A random sampling of water and wastewater
treatment plants was conducted after
11 September 2001.
The following are examples of security
measures now in place at water treatment facilities throughout
North America:
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An on-site Security Manager position was created. |
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The water treatment facility was fenced in with barbed
wire on all sides. |
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All external and internal gates are locked except for the front gate. |
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Security passes are needed to open gates. |
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A police officer is posted at the front gate, and one is roving on the premises. |
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A dummy police vehicle is placed at the front gate. |
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Training includes checking all persons on-site against a book that contains photos
and names from the FBI’s “Most Wanted” list. |
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All visitors have scheduled appointments. |
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Delivery hours are limited. |
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All deliveries are checked to ascertain the nature of the material. |
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All staff are trained to report anything unusual and to be aware. |
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All staff are trained in emergency response and communication protocols. |
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Employee background checks are conducted. |
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Chlorine gas is locked in a storage room at all times. |
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All visitors are required to display identification and sign in at the front
gate. |
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Cameras are located at the intake (looking upstream and downstream), gates, around
the perimeter and at all other important locations within the facility. |
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Intrusion alarms are installed on buildings. |
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All personnel are required to wear photo identification. |
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Reservoirs and storage facilities are fenced in and watched by cameras. |
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Berms protect reservoirs. |
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Bar screens are located on intake pipes. |
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Dams are off-limits to the public and are protected by a police officer. |
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The facility coordinates with citizens to be aware and watch remote locations. |
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System pressures are monitored. |
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Wastewater manholes are secured. |
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Wastewater treatment plants are fenced, with an unarmed guard at the front gate.
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| The sites that were observed have started
to think seriously about security. As of 26 December 2001,
a bill (H.R. 3448) called the “Public Health Security
and Bio-Terrorism Response Act” had passed the House
of Representatives. The bill requires all water utilities
serving over 3,300 people to perform a
vulnerability assessment. |
The utility will have to certify to the EPA
that it has completed a vulnerability assessment by the following
dates:
| Utility Size |
Date |
| Utilities Serving Over 100,000 People |
31 Dec 2002 |
| Utilities Serving 50,000 to 100,000 People |
30 Jun 2003 |
| Utilities Serving 3,300 to 50,000 People |
31 Dec 2003 |
|
The scope of the vulnerability assessment,
as specified in the bill, included water collection, pretreatment,
treatment, distribution, storage, electronic or automated
systems, and the use, handling, and storage of all chemicals.The
bill also required utilities to certify to the EPA that they
have incorporated the results of their vulnerability assessment
into their emergency response plan within 6 months of completing
their vulnerability assessment. The plan must include actions,
procedures, and identification of equipment that can prevent
or significantly lessen the effectiveness of a terrorist
attack or intentional action against
the utility.
The Drinking Water State Revolving Fund can be used to help finance many of the
activities described above, and the Association of Metropolitan Water Agencies
is offering grants that should provide relief from any financial burdens that
inhibit the enhancement of security measures.General basic security checklists
follow; these are intended to help water and wastewater facilities defend against
quantity and quality interruptions.
If you would like to be sent an e-mail outlining new developments in this field,
please use the contact information below to request that your email address be
added to the list.Richard Lancaster-Brooks, Khafra
Engineering Consultants
(404) 525-0501 x254
(404) 315-7108
RichBrooks@Excite.com |
| Address correspondence
to J.A. Foran, WATER Institute, University of Wisconsin-Milwaukee,
600 E. Greenfield Ave., Milwaukee, WI 53204 USA. Telephone:
(414) 382-1700. Fax: (414) 382-1705. E-mail: jforan@uwm.edu
We are grateful for support provided by the U.S. Environmental
Protection Agency Office of Water, the American Water Works
Association Research Foundation, the U.S. Geological Survey,
and the University of Wisconsin-Milwaukee WATER Institute.
We extend thanks to J.R. Strickler and J.V. Klump for their
input to the manuscript. This conference was convened by
the Risk Science Institute of the International Life Sciences
Institute. Received
4 April 2000; accepted 8 May 2000. |
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