technical paper Water Treatment

ISSN 2206-1991 Volume 1 No 4 2016 http://dx.doi.org/10.21139/wej.2016.036 ABORIGINAL COMMUNITIES WATER AND SEWERAGE PROGRAM

Improving the health and wellbeing of Aboriginal people living in discrete communities by providing safe and effective water and sewerage services

W Henderson, P Byleveld, J Standen, S Leask

ABSTRACT and health outcomes for Indigenous not meet general NSW community The New South Wales Aboriginal Australians in many areas progress standards. Inadequate water supply Communities Water and Sewerage has been far too slow’ (Commonwealth and sewerage systems were identified Program aims to improve the health of Australia 2015). as a major factor in the poor health status of some Aboriginal communities and wellbeing of Aboriginal people Access to clean water is essential (NAHSWP 1989). Where water sources living in discrete communities by to health (WHO 2010). The New South were found to be unsafe , often there providing safe and effective water Wales Aboriginal Communities Water and was no option other than to issue a and sewerage services, which are Sewerage Program aims to bring about equivalent to the standard expected in sustainable improvements by committing boil water alert to communities. the wider community. to operation, maintenance and monitoring The Program was established in of water and sewerage services in The Program is a joint initiative of the 2008 with the signing of an agreement discrete Aboriginal communities. NSW Aboriginal Land Council and the between the NSW Aboriginal Land NSW Government. More than $200 Before the commencement Council and the NSW Government. million is being invested over 25 years of the Program in 2008, Local Several NSW Government agencies for routine operation, maintenance, Aboriginal Land Councils (LALCs) and other organisations have a monitoring, repairs and replacement were responsible for the water and vital role in the Program. The NSW of infrastructure. sewerage infrastructure on their Government agencies include community land. Most had small Aboriginal Affairs NSW, NSW Introduction populations, could not generate Aboriginal Housing Office, NSW Aboriginal people are disadvantaged sufficient income for routine Department of Primary Industries in health outcomes. The Health of operations and lacked technical Water (DPI Water), NSW Health, Aboriginal People of NSW: Report skills to sustain services. These Treasury NSW and NSW Department of the Chief Health Officer found arrangements presented a number of Premier and Cabinet. Other key a significant disparity between of difficulties, especially for very organisations include individual local Aboriginal and non-Aboriginal people small communities that are a long government councils (water utilities), across most population health way from service providers. There Local Aboriginal Land Councils, indicators (NSW Health 2012). The was no systematic process to contracted service providers and Closing the Gap Prime Minister’s address operation and maintenance. industry bodies for local Government Report stated that ‘Although there has In some Aboriginal communities, (Local Government NSW) and water been some improvement in education water and sewerage services did utilities (NSW Water Directorate).

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Although the risk to health of poor Table 1. Water and sewerage service arrangements. sanitation is widely known, there is Service type Water Sewerage very little Australian data to quantify this risk. Studies elsewhere have Own water and/or sewerage system 9 24 shown that the risk of diarrhoeal Supplied by water utility to community boundary 34 - disease associated with sub-standard Fully serviced system supplied by water utility to 20 39 water and sewerage systems is individual houses between 2.5 and 3.85 times higher Total 63 63 than in communities with well- *63 communities were surveyed managed systems. There is also an elevated risk for many other diseases such as respiratory infections dwellings were visited by experienced Under the Program, experienced (Pruss et al. 2002). personnel to assess the condition and service providers, such as local water adequacy of the water and sewerage utilities (generally local councils), Highlights systems. It was found that a number are contracted to provide support Since the implementation of the of communities received service from to communities. Formal service Aboriginal Communities Water and a local water utility while others were agreements are entered into by Sewerage Program: entirely responsible for their own the Local Aboriginal Land Council, • More than 6000 people in 61 services (Table 1). service provider and DPI Water for the communities are receiving improved Discrete Aboriginal Communities water utility to provide full water and water and sewerage services in New South Wales are usually one sewerage services. • Aboriginal communities participate parcel of privately owned land. Water in developing management plans, The service providers bring their utility services (where provided) meetings and regular inspections expertise and experience to the generally extend only to the boundary • Local water utilities (predominantly Program and take responsibility for of the community rather than to each councils) are engaged to provide the day-to-day operation, monitoring dwelling. This left the communities services to nearby Aboriginal and maintenance activities. The responsible for infrastructure on their communities Program is managed by DPI Water land including reticulation networks, • Regular monitoring ensures water and overseen by a Steering Committee pumping stations and tanks. Some quality is maintained and improved with representation from relevant communities had their own water • Employment and training government and non-government treatment system, but often these opportunities for Aboriginal people organisations. were not working correctly or had are being created. failed. The situation was similar Engagement with each community is Process with sewage management facilities, central to the Program. Communities To establish the business case for the including septic tanks, aerated were involved in the establishment of Program, more than 60 communities wastewater treatment systems, and the program and continue to be key across NSW containing 1,268 oxidation ponds. stakeholders. Regular consultation meetings between community members, Local Aboriginal Land Councils, DPI Water, Public Health Units and service providers examine infrastructure, identify issues, and discuss actions to maintain and improve water and sewerage services.

Community representatives, DPI Water, NSW Health and other key stakeholders worked together to develop and implement risk-based water and sewerage management plans for each community, based on the Australian Drinking Recent infrastructure upgrades in one Aboriginal community. The Aboriginal Water Guidelines Framework for Communities Water and Sewerage Program ensures ongoing operations, Management of Drinking Water maintenance and monitoring of infrastructure. Quality (NHMRC/NRMMC 2011).

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The management plans include an Table 2. Water quality before and after Program commencement assessment of water and sewerage (% samples free of E. coli). systems, the steps necessary to Water supplier Before commencement After commencement manage any risks and verification (average 2001-07) (2010-15) monitoring of drinking water quality. Aboriginal 80.1% A, B 98. 6% B The management plans also include communities guidance for the community, water utility and other service providers Local water utilities 97.7% B 99.28% B on responsibilities, communication (regional NSW) processes and who to contact if a A. Colisure Monitoring Program, B. NSW Drinking Water Database problem arises. Australian Drinking Water Guidelines not meet the ADWG target and were Local Public Health Units are in (ADWG) 2011, water quality monitoring well below the quality of mainstream regular contact with communities and has included a comprehensive communities. Water supplies in participate with DPI Water, community screening in all communities including Aboriginal communities were more members and land councils in four- microbiology, inorganic chemistry, likely to be contaminated with E. coli monthly inspections and reviews. a radiological survey (which will be bacteria, experience boil water alerts repeated five-yearly for surface water and interruptions to supply. Outcomes supplies and two-yearly for bore The Program is providing services to Almost all the communities now water), pesticides (repeated monthly more than 6000 people in 61 eligible meet the microbiological criteria of the for 12 months), and disinfection communities. Implementation of Australian Drinking Water Guidelines byproducts (repeated monthly for 12 management plans has improved (2011) (Table 2). months). Ongoing monitoring includes the understanding and control of microbiology (monthly), comprehensive Three of the sixty communities do risks, resulting in safer, more reliable chemical analysis (twice yearly) and not have disinfected drinking water operation of water and sewerage regular field tests for free chlorine, supplies. These are independent systems. Management plans were in turbidity, and pH in reticulation systems supply systems and the Program place for many Aboriginal communities (NSW Health 2005). is aiming to provide disinfection, well before this was a requirement following community consultation. of public water utilities by the NSW The national guideline for drinking The Program has provided some Public Health Act 2010. water quality is the Australian Drinking Water Guidelines (ADWG) 2011. E. coli employment and training opportunities The plans play an important indicate faecal contamination and the for Aboriginal people, although an role in assuring the safe delivery possible presence of more harmful independent review of the Program of drinking water. A five-yearly micro-organisms. Monitoring for E. coli indicated greater investment in this review of all mangement plans area is needed. Water and sewerage has been carried out in some Aboriginal commenced in 2015. The plans have plumbing apprenticeships have been Communities since 1999. prompted improvements through the partially funded by the Program to identification of potential hazards In more remote communities testing provide mentoring opportunities to the water supply. Critical control was performed by Community Water and wages for community members points have been established and Samplers, supported by local Public to be employed with a local water response protocols developed in the Health Units, using presence/absence utility. One Aboriginal person gained event of adverse monitoring results. “Colisure” test kits. Information from permanent employment with a council this monitoring led to corrective actions after being contracted to work on the Backlog maintenance and capital in these communities and supported construction of a new water treatment works have been completed in many the case to establish the Program. plant. Further training and employment communities. This includes repairs and strategies are being developed. upgrade to treatment infrastructure The development and such as replacement of failed water implementation of water and sewerage Communities have provided disinfection systems, and construction management plans under the Program positive feedback on the Program. of sewerage schemes. has established robust preventive Relationships between many measures. There have been marked communities and local councils The Program has provided the improvements in drinking water quality have improved. opportunity to regularly monitor water since their establishment. quality. The NSW Health Drinking Water Consultation with community Monitoring Program was expanded Prior to the commencement of the members has occurred throughout in 2008 to include the Aboriginal Program average microbiological the development of formal service Communities. In accordance with the results for Aboriginal Communities did agreements and management plans.

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A mechanism for community feedback distributed to warn of the health risk and ultraviolet (UV) disinfection. The is provided via four-monthly meetings, (NSWALC NSW Government 2009). UV system was old and broke down regularly, leading to possible exposure and multiple agency support is In 2010 an agreement was signed to inadequately treated water. assured via the Steering Committee. between the LALC, local water utility This strategy of communication and (council) and the then NSW Office The management plan process raised stakeholder engagement is central of Water, for the local water utility awareness of the risks. These were to the success of the Program. A to provide operation, maintenance initially controlled with the installation comprehensive independent review and monitoring services for the of backup chlorine disinfection if the of the Program commenced in 2015. water and sewerage systems. In UV failed, and the use of boil water A health outcomes evaluation will 2011 a new effluent irrigation system alerts if back-up disinfection was not also commence soon. The aim of was completed. The drinking water available. Under the Program a new UV the evaluation is to examine the chlorination system was upgraded and system was installed in 2013, including association between improvements included the provision of a backup telemetry to alert the operator and in operation, maintenance and dosing pump, connection of telemetry, community of any failures (NSWALC and NSW Government, 2015). Back up monitoring of the water and sewerage installation of a wash station, splash protection and a safety shower (NSW chlorination is provided by the service systems and the health outcomes of Aboriginal Land Council and NSW provider if needed. people living in discrete Aboriginal Government, 2015). Four-monthly communities. meetings and ongoing maintenance Community 4 (Water Bulk The case studies below provide and monitoring continue. Supplied, Own Sewerage some examples of how the Program System) Community 2 (Own Water has contributed to improvements in This remote community of 250 the water and sewerage systems in and Sewerage Systems) permanent residents receives a bulk This community also had responsibility Aboriginal communities. drinking water supply from the local for its own water and sewerage water utility to the boundary. The Case Study supplies. It consists of over 50 houses sewerage system, however, consisted of and has a population of 300 people. very old aerated wastewater treatment Community 1 (Own Water The first site visit to this community systems connected to each of the and Sewerage Systems) uncovered significant operational houses in the community. The water supply is sourced from problems. A broken sewer pipe in the The system was designed to enable two bores, disinfected with chlorine, pump station caused recirculation of treated effluent to be pumped to the rear and distributed to 17 houses and a the sewage. A broken water main was also found nearby. One of the two of the properties, to be used for irrigation peak population of 200 people. A sewage pumps was constantly turning via a sprinkler system. Outdoor play community member was trained to off due to overload and the other pump areas were being spray irrigated with the operate and maintain the system. was operating almost continuously. effluent. Disinfection of the wastewater However this person left the treatment system was not maintained, community and no one continued the The pumps were repaired and a leading to risks of disease on exposure. operation and maintenance program. further breakdown of the system The local water utility agreed to take averted. Timely repairs also responsibility for the operation and The sewerage system consisted of substantially reduced electricity bills maintenance of the water and sewerage two primary digesters, a biological and water disinfection costs (NSWALC systems. With capital funding from the contactor, an effluent sump where NSW Government, 2009). It is likely Program, a new reticulated sewerage chlorine was added, and a rising main that some of this cost would not have scheme was completed and connected to a wet weather pond. However, been incurred if there had been a to the town system in 2014. New water effluent was being diverted from the system of operation and maintenance supply mains were also completed rising main to be used for pasture in place. A service agreement has in early 2015 (NSWALC and NSW irrigation. The community was been signed with the local water utility Government, 2015). generally unaware of the risk of to monitor and maintain these systems. exposure. Due to the immediate risk to Community 5 (Own Water and Community 3 health, new effluent application areas Sewerage Systems) (Own Water Supply) were presented to the community, The community had its own drinking The community received water from which supported the changes. An water supply sourced from an infiltration a local creek. It consists of 180 interim irrigation system was installed bore close to a local creek. The supply permanent residents and up to 2000 that diverted the effluent away from was disinfected with chlorine and people during an annual festival. the pasture and temporary fencing distributed to the community of up to 300 was installed around the old and Water was pumped from an people. The disinfection unit often failed the new irrigation areas to prevent infiltration bore near the creek and and boil water alerts were issued in 2000, access. An information pamphlet was passed through a river infiltration filter 2005, 2007, and twice in 2009.

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A boil water alert was in place when the Aboriginal Communities Water Supplies Sandy Leask began working Program commenced in this community. and Sewerage Program. Paul has also with water in 1995 doing A service agreement was signed with the worked with the Australian Government macroinvertebrate surveys local water utility in 2010 and in the same and the Red Cross in post-conflict with the NSW EPA. He joined year an upgraded chlorine disinfection and natural disaster settings (including system was installed. Further work has tsunami, earthquake, typhoon and floods). the NSW Health Water Unit in 2005 after also been carried out on this community’s completing a Masters of Public Health. In Wendy Henderson joined sewerage treatment plant (NSWALC and this role he has been involved in the NSW the NSW Health Water Unit NSW Government 2015). Aboriginal Communities Water and in 2012 as a Project Officer Sewerage Program, the implementation of Conclusion and holds a Bachelor of risk-based drinking water management This Program is a unique partnership Science, and Master of between the the NSW Aboriginal Land Public Health from the University of systems, NSW Health’s support for Council and the NSW Government to Sydney. Wendy has over 14 years drinking water monitoring, the re- help close the gap in services for discrete experience in the water industry, development of the web based NSW Aboriginal communities. The Program including 10 years with as Drinking Water Database, and water provides a mechanism to address long a Water Quality Scientist. fluoridation standing operation and maintenance In her current position Wendy is issues that put the health of communities responsible for supporting water utilities References at risk. As a result Aboriginal communities Commonwealth of Australia 2015. in NSW in relation to drinking water safety Closing the Gap report are now benefiting from improved water provisions under the Public Health Act http://www.dpmc.gov.au/sites/default/files/ and sewerage services. 2010 and Public Health Regulation 2012. publications/Closing_the_Gap_2015_ Report_0.pdf Jeff Standen, Manager Acknowledgment Accessed 01/02/16. The Program’s Steering Committee NSW Health Aboriginal NAHSWP (National Aboriginal Health Strategy is acknowledged for the guidance Environmental Health Working Party) 1989. A National Aboriginal and contribution it has made to the Unit and Chair of the Health Strategy: report of the National Health establishment and implementation of National Aboriginal and Strategy Working Party. Canberra: Department the Aboriginal Communities Water and Torres Strait Islander Environmental of Aboriginal Affairs. Sewerage Program; in particular Belinda health Working Group National Health and Medical Research Council Cormack and Rachel Ardler (Aboriginal (NHMRC) and Natural Resource Management Jeff Standen is the Manager of the NSW Ministerial Council (NRMMC) 2011 Australian Affairs NSW), Wayne Franklin (Water Health Aboriginal Environmental Health Drinking water Guidelines. NHMRC, Canberra. Directorate), Julia Strano (formerly Unit and Chair of the National Aboriginal NSW Aboriginal Land Council (NSWALC) NSW Aboriginal Land Council), Sascha and Torres Strait Islander Environmental and NSW Government 2009 Aboriginal Moege and Constance Chatfield (Local Health Working Group. Communities Water and Sewerage Program Government NSW), Thangamany Highlights and Achievements Brochure Balaraju (Bala) and Steve Palmer (DPI Jeff has been working in the field NSW Aboriginal Land Council and NSW Water). NSW Health Public Health Units of environmental health for the past Government 2015 Aboriginal Communities are also acknowledged for their support 30 years, most of that time with Water and Sewerage Program Highlights and of the Program. Aboriginal communities in NSW and Achievements 2008-2014 the NT. He has a Bachelor of Applied NSW Health 2012. Centre for Epidemiology and The Authors Science (Environmental Health) from Evidence. The Health of Aboriginal People of NSW: Report of the Chief Health Officer Dr Paul Byleveld manages the University of Western Sydney and http://www.health.nsw.gov.au/epidemiology/ the New South Wales Health a Master of Public Health from the Publications/Aboriginal-Health-CHO-report.pdf Water Unit, which is . Accessed 01/02/2016 responsible for public health He is currently responsible for the NSW Health 2005. Drinking water monitoring regulation and advice on development of evidence-based program. NSW Department of Health drinking water, waste water management, environmental health policy and Pruss A., Kay D., Fewtrell L.,Bartram J. 2002 water recycling, and recreational waters. programs in Aboriginal communities Estimating the burden of disease from water, sanitation and hygiene at a global level. Environ Paul has coordinated statewide monitoring in NSW, including the Housing for Health Perspect. 110(5):537-42 programs and helped investigate and Health program and Aboriginal Public Health Act 2010 No 127 (NSW) rectify water contamination. Paul has Environmental Health Officer Training http://www.legislation.nsw.gov.au/ contributed to the development of the Program and Jeff was responsible for inforcepdf/2010-127.pdf?id=e20f1d11-6a0d- Australian Drinking Water Guidelines and co-leading the business case and is ec9a-fe79-d31ae57c52c3 the WHO Guidelines for Drinking Water helping and assists with overseeing World Health Organization 2010 Guidelines for Quality. Paul was responsible for co- the implementation of the $200 million Drinking Water Quality 4th ed leading the business case and is helping Aboriginal Communities Water and http://www.who.int/water_sanitation_health/ oversee implementation of the $200 million Sewerage Program. publications/dwq_guidelines/en/

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