ICPjRJDj001 ENGLISH ONLY
.... MEEI'ING OF 'lHE WID w::>RKING ~ ON PIANNING FOR QlEMICAL EMERiENCIES
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Convened by the WESTERN PACIFIC REGIONAL CENmE FOR 'lHE PllI:H7l'ION OF ~ PIANNING AND APPLIED S'IUDIES (PEPAS)
Sirgapore 10-14
April 1989
Not for sale
Printed
am distributed by the
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Western Pacific Regional Centre for the Pranotion of Enviromnental Planning
am
Applied studies (PEPAS)
P.O. Box 12550 50782 RUala Lumpur
Malaysia September 1989
'!he views expressed in this report are those of the participants in the Worki.n::J Group ani do not necessarily reflect the policies of the World Health Organization.
'lhis report has been prepared by the Western Pacific Regional Centre for the PratDtion of Enviroronental PlaI'll'l.i.n3 ani Applied studies (PEPAS) for Govemments of Member states in the Region ani for the participants in the MeetilT:J of the WOO Workin] Group on PlaI'll'l.i.n3 for Cl1emical E:!nexgencies held in S~re fran 10 to 14 April 1989.
1.
:E>CEa.Jl1IVE stJt.t1AR.Y' ...................................................................................... .. mIB)[IJCl'IOO ................................................................................................ .. O~
(ii) 1 1 1
2. 3.
SESSICIil .......................................................................................... ..
OBJECl'IVES ~
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5. 6.
~GUJP~
2 3 3
smtWUES OF PAPERS PRESENI'ED
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6.1 An OITerview of WlD chemical safety proglal11meS ••••••••••• 6.2 International cooperation in control of c:flsni.ca.l ~ies ...................................................................... .. 6.3 An OITerview of WlD c:flsni.cal safety activities in. tile Westen1 Pa.cific .................................................................. .. 6.4 WlDjEIJRO pIogIamte f= the management of d'lernica.l ~ies .............. ,. .. '" .................................................. .. 6.5 ~ I?laJ'lIlin;J CJl;ridelines fOr chemical 1nC1dents ~ AustralLa .......••••.•••••••..........••••. 6.6 '!he role of poison Control Centres in chemical ~ies ........••....•.................. 6.7 '!he MARC progranune in the Asia Pacific Region ••.••.••••. 6.8 case studies f= chemical a=ident control ...•••••....•. 6.9 DeVelcpnent of infomation systems, hazard llIaWin:J am cxmmmity participation •••••••••••.••••••••• 6.10 Ccmm..mication in the management of chemica.! ~ies ................................... . 6.11 A regional case study in oontin:;rency plan develcpnent ••• 6.12 Post-incident review procedures for chemical incidents 6. 13 Chemical incidents durin:J transportation .••••••••...•••• 6.14 Emergency response system at the local
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5 6
7
9 9
10 10 11 11 12
13 14
(community) level - the APELLprocess •••••••••••••••••• 7. 8. mlCIlJI)Dl(;
................................. SESSlOO .......•.•••.....•.•...•••.••.....•.•••••..
15 19/20
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ANNEX 1 - LIsr OF MEMBERS, OBSE:Rl1ERS AND
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25 ANNEX 3 - ffiOVISIONAL 1\GENIlA. ANNEX 4 - LIST OF W:>RKING PAPERS, ~ 00ClJMENI'S AND ADDITIONAL REl'ERENCE MATERIAlS ANNEX 5 - SUMMARIES OF COUNTRY REPORfS •••••••••••••••••••••••
29 33 37
1
;W'ORLD HEA L TH
ORGAN I ZA TlON
WESTERN PACIFIC REGION
REGIONAL CENTRE FOR THE PROMOTION OF ENVIRONMENTAL PLANNING AND APPLIED STUDIES (PEPAS) Te'-phone: 1480311 1480312 1480881
9 October 1989
With the complimen 01 the
No Action
0~I~r,' f'" .
DET/WPRO:
Acting
I Oate/h:4tial;: ,. --: (lor your Inlormatl~~----j Director
WPRIl " r ;.,~, REG. . ;'; ,d ,:'iI;e;
• Attached herewith is the recommendations and implementation plans of the Working Group on Planning for Chemical Emergencies, 10-14 April 1989, Singapore, for your further action~
r
~Wr'\
Unlversltl Pertanlsn Campus, Serdang, Selangor, Malaysia P.O. Box 12550,50782 Kuala Lumpur, Malaysia, Cable: UNISANTE KUALA LUMPUR, Telex: WHO MA 31064 be, l!~, oO-3-94~2349
WHO WORKING GROUP ON PLANNING FOR CHEMICAL EMERGENCIES 10-14 APRIL 1989, SINGAPORE
Plan for Implementation of Recommendations.
General comments on implementation With an appropriate cover letter, the report of the WHO Working Group on Planning for Chemical Emergencies will be Widely distributed to Ministries of Health,Environment and other related Government agencies of Member States in the Region and should stimulate internal discussion regarding the recommendations contained herein. PEPAS will actively encourage Member States to implement the report's recommendations, especially through field visits and follow-up correspondence between PEPAS and national authorities. Constraints in implementing the recommendations will be identified and cooperation to overcoming them extended.
• Note that recommendations to WHO (I, 3-4, 7, 10-12, 14, 16, 18, 20, 22, 24) and Member States (2, 5-6, 8-9, 13, IS, 17, 19, 21, 23) have been grouped together in this document but retain their original numbering sequence which they were assigned in the Working Group report.
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RECOMMENDATIONS TO WHO
RECOMMENDATIONS RECO~ATION
PLAN FOR IMPLEMENTATION
1: 1.1 PEPAS will intensify its present information exchange programme between Member States and between other UN agenCies and countries in the Western Pacific Region.
WHO should cooperate with the Member States in developing and, where appropriate, enhancing national, provincial and local preparedness and response plans for 'dealing with chemical emergencies. Consideration should be given to integration of chemical emergency plans with existing plans for natural disasters.
1.2
The Regional Committee will be approached to have integration of natural, technological and man-made disasters raised as a matter of discussion at the 1990 Regional Committee Meeting • • 1.3 PEPAS will continue to provide technical cooperation to Member States in development of national, provincial and local chemical contingency plans.
RECOMMENDATION 3: WHO, with other international agencies in the Region, should assist Member States in the Region in the development of information systems through workshops, training courses or other suitable mechanisms. 3.1 PEPAS will contact PARO, EURO, UNEP and UNDRO to obtain data on information systems presently available. PEPAS will collaborate in the conduct of national workshops/ training courses with those Member States developing emergency response information systems.
3.2
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RECOMMENDATIONS RECOMMENDATION 4: WHO should develop guidelines to facilitate a consistent approach to regional and national planning for preparedness and response to chemical emergenCies. These guidelines should include elements on preparedness for, response to, and rehabilitation after any chemical emergency.
PLAN FOR IMPLEMENTATION
4.1
PEPAS will provide regional inputs to planned WHO and UNEP emergency guidelines. In the broader sense of technological accidents, PEPAS will actively promote the UNEP 'Awareness and preparedness for emergencies at the local level' (APELL) programme within the Western Pacific Region.
REo)MMENDATION 7: WHO shall facilitate the prov1s10n of the necessary health and environmental sector inputs to the Member States. 7.1 PEPAS will further strengthen its activities in all aspects of cooperation in developing national emergency response planning in Member States. In particular, Ministries of Health, Agriculture and Environment will be encouraged to increase intersectoral coordination both between central government agencies and state and local emergency services.
RECOMMENDATION 10: Educational programmes should take advantage of the broadest range of health and environmental resources available. For example, the Working Group recommends that the media should be involved in all aspects of these public awareness programmes which could also be promoted through industry, nongovernmental organizations (NGOs), community groups and educational and research institutions.
10.1 PEPAS will investigate the practicality of developing "media packages" for hazardous materials of particular concern.
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RECOMMENDATIONS RECOMMENDATION 11: Wherever practicable, at the request of the Member States, WHO should assist in the provision of information and other resources to promote public awareness programmes in regard to all aspects of chemicals control within the Member States.
PLAN FOR IMPLEMENTATION
11.1 PEPAS will expand its chemical information services to include a broader audience. 11.2 Translation and distribution of key United Nations and other international documentation in chemical safety will be undertaken in cooperation with national government agencies.
RECOMMENDATION 12: The relevant agencies of the United Nations be asked to review the availability, appropriateness for specific purposes, and distribution of information bases on chemicals, and eliminate excessive information. 12.1 A listing of potentially overlapping and duplicated materials will be prepared and forwarded through WPRO for WHO consideration and possible discussion with other relevant United Nations agencies.
RECOMMENDATION 14: WHO should cooperate with the Member States of the Region in the development of all levels of training programmes in the field of chemical safety. 14.1 PEPAS will continue to promote United Nations and other international training programmes including core syllabus development. 14.2 Within resource limitations, PEPAS staff will actively participate in national and regional group activities in chemical safety. RECOMMENDATION 16: WHO should review and report on regional needs for chemical safety equipment, facilities and associated training. 16.1 PEPAS, using the recently developed EURO listing formats, will encourage Member States to provide data on existing safety equipment and facilities for cCHDpilation.
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RECOMMENDATIONS RECOMMENDATION 18: WHO should facilitate the establishment of appropriate intercountry, regional and international cooperation to assist Member States in informing neighbouring countries of any chemical emergency which may potentially impact upon their neighbours. RECOJo91ENDATION 20: WHO should develop guidelines to ensure adequate chemical emergency reporting within the Region.
PLAN FOR IMPLEMENTATION
18.1 PEPAS will support in any practicable manner the necessary global initiatives to establish a convention governing notification of transboundary chemical releases.
20.1 Reporting guidelines are presently being prepared by WHO/EURO and IPCS in cooperation with other intergovernmental agencies. When available, these guidelines will in cooperation with Member States be adapted to regional circumstances.
RECOMMENDATION 22: To facilitate the establishment of reporting mechanisms for chemical emergencies, WHO should provide regionally applicable guidelines to assist in the development of a common reporting system, and the interchange of reports between Member States. 22.1 PEPAS will encourage national implementation of common indicators for reporting of chemical emergencies. 22.2 PEPAS will establish and maintain a list of authorities responsible for management of chemical emergencies in Member States of the Region.
RECOMMENDATION 24: WHO should develop guidelines to assist in the preparation of review procedures and in the development of appropriate indicators to measure the effectiveness and efficiency of all aspects of chemical emergency response plans. 24.1 PEPAS will examine the activities of other United Nations agencies, particularly those of UNDRO to ascertain the viability of developing review procedure guidelines compatible with planning for natural disasters.
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RECOMMENDATIONS TO MEMBER STATES
RECOMMENDATIONS RECOI'ttENDATION 2: To achieve an adequate level of preparedness, Member States of the Region should consider: (a) reviewing and, as necessary, establishing or upgrading national chemical emergency preparedness and response mechanisms; (b) reviewing available environmental and health information systems and, where necessary, increasing access to such systems; (c) developing the necessary profiles of their communities and environment. This would include examination of past experience with chemicals and assessment of environmental and health hazards for their present and predicted chemical usage; and (d) involving primary health care workers, environmental speCialists, land-use planners, emergency services, and the community in the development of preparedness and emergency response planning systems, including community profiles.
PLAN FOR IMPLEMENTATION
2.1
Ministries of Health, Environment and Agriculture and provincial and local agencies should review and upgrade national emergency response plans with special emphasis on off-site planning.
2.2 Translation of emergency procedures documentation should be made for all involved parties, particularly primary health care personnel.
RECOMMENDATION 5: Each Member State should designate a national government statutory authority charged with the responsibility for developing, implementing and evaluating an integrated preparedness and emergency response mechanism, which should include consideration of both environmental and health aspects. The same government authority should also be responsible for establishing all necessary coordination procedures. 5.1 Countries should undertake compilation of a national listing of governmental authorities and others having expertise in chemicals management.
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RECOMMENDATIONS RECOMMENDATION 6:
PLAN FOR IMPLEMENTATION
Each Member State within the Western Pacific Region should ensure that there is provision for adequate health and environmental sector inputs in their assessment of chemicals for use in the country, and in the development, implementation and evaluation of chemical preparedness and emergency response plans. RECOMMENDATION 8:
6.1
Countries should ensure participation in emergency planning by all involved sectors of the community. Member States should develop national notification and assessment procedures for chemicals.
6.2
Where appropriate, Member States should be encouraged to seek assistance from WHO in the establishment of either an appropriate centre of chemical information or a contact, on a 24-hour basis, with such a centre. RECOMMENDATION 9:
8.1
Member States should develop poison control centres.
Member States of the Western Pacific Region should promote at all levels within their populations public awareness of the potential risks of chemical exposures and the measures available to minimize those risks. Both acute and chronic exposures should be taken into conSideration. RECOMMENDATION 13:
9.1
CoUntries should undertake translation and distribution of information on risks associated with chemical (particularly pesticide) exposures.
Each Member State within the Region should undertake training programmes for concerned personnel including primary health care workers, on provision of emergency response services, preparation and trial of response plans, and in the preparation and assessment of incident reporting systems.
13.1 Countries should develop a listing of substances of particular concern and cooperate with Member States in development of suitable educational primers.
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RECOMMENDATIONS RECOMMENDATION 15: The Member States should prepare national, provincial and local inventories of equipment and facilities available for coping with chemical emergencies. These inventories should form a basiS for national governments to identify and assess their existing and future requirements. RECOMMENDATION 17: Member States in the Western Pacific Region should give conSideration to the need for a mechanism to inform neighbouring countries of any chemical emergency which may potentially impact upon their neighbours. RECOMMENDATION 19: The Member States should examine their own needs and capabilities for an adequate chemical emergency reporting system. They should develop and implement appropriate systems in keeping with their national requirements. RECOMMENDATION 21: Member States of the Region should develop appropriate intercountry reporting mechanisms for chemical emergencies. RECOMMENDATION 23: Each Member State should have in place a system for evaluation and review of its chemical emergency response plans.
PLAN FOR IMPLEMENTATION
15.1 Member States to implement.
17.1 Member States to implement.
19.1 Member States to implement.
21.1 PEPAS will encourage Member States to adopt a common reporting system.
23.1 Member States should develop performance indicators appropriate to their requirements.
(ii)
... It is internationally recognized that the widespread am increas~ use of chemicals has brought both great benefits am considerable potential risks to human health am the environment. '!his was agreed by WHO Member states at the seventy-third session of the EKecut:ive Board in its resolution EB73.RIO. MerrthPr states were called upon by WHO, where they had not done so, to establish chemical safety programmes am the capabilities to ensure that hmnan health am the enviromnent were adequately protected in the manufacture, storage, transport, use am disposal of chemicals. Particular E!I'lPJaSis was placed on the need to ensure that there is adequate ooordination aIIXJI'J3' the varioos authorities CXII'lCel:lled with the cxmtrol of chemical han:il~ qJeratians. 'lhe needs of Member states of the Region in relation to chemical safety were examined at a workshc:p held in l\lJala I/..mp.Ir, Malaysia, in November 1986, at which time guidance on planning for chemical errergencies was identified as one of the priority areas for urgent consideration.
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Resolution WHA 34.26 of the 1981 World Health Assembly called upon the Director General to ~ the Organization's capacity to deal with disasters, ''with a view to pranotin;J the developnent of awroac:ttes to the prevention of adverse health effects of disasters, when possible through the preparedness of Member states to deal with such disasters". 'lhe introduction of the United Nations Decade for Natural Disaster Reduction in 1990 gives added reasons for the developnent of preparedness programmes. Consideration is to be given to the expansion of these initiatives to include preparedness pl~ for technological, including chemical, disasters as well as natural disasters • As a aonsequence of these prior activities, am of the increas~ inportarx:e of chemicals am chemical safety in the Western Pacific Region, a Workin3' Group Meeting on Pl~ for ClJemi.cal Emergencies was held to provide guidance to both the Western Pacific Regional Office (WPm) am the Member States of the Region. 'lhe WorkIDJ Group was =nvened in S:in;Japore from 10 to 14 April 1989.
...
'lhe Meet~ which was attended by members from Australia, Brunei Larussalam, ati.na, Fiji, Hong Kong, Japan, Malaysia, New Zealam am the l'hilippi.nes reported 13 specific findings anj made 24 reccmnendations to WHO anj to the MenI:ler states. 'lhese relate to:
(a) (b) (c)
the establi.stmart: am ~lementation of preparedness am response progLdUiOOS for deal~ with chemical emergencies; the need for an OIYJO~ review of all aspects of preparedness ability to cope with chemical emergencies;
....
am
the designation of appropriate authorities in each Member state to ooordinate both pl~ for anj respollse to chemical errergencies; the involvement of both health pl~
... ...
(d)
am envi.ronJrental authorities in
for chemical emergencies;
(iii)
(e) (f) (g)
the need for access to 24-hrur emergency advice on chemicals; the desirability of ccmmmity involvement in all aspects of chemical safety pIo:jl:anales;
the need for a review of available Unite:i Nations information on chemicals; the acceptance of ~ p:togLamaes as an essential CCJIIlClI1eIl1: of chemical emergency preparedness am response plamun:p the need for adequate equipnent am SUWOrt se:rvices to deal with chemical emergencies that may ocx::ur; the possible trans-frontier effects of chemical incidents; the establishment of ~iate chemical incident report:in;J systems within Member states; the:inteJ:'dlan;Je between Member states of infonnation on chemical incidents; am the need for regular review am updat:in:J of chemical emergency preparedness am response plans.
(h)
(i) (j) (k)
(1)
(m)
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'!he meetin;J of the WHJ WorJdn;J Groop on PlaI'II'Iin;J for Chemical Emergerx::ies was held at the Environment &lildin:J, Ministry of the Environment, SiIY;Japore fran 10 to 14 April 1989. Ten members fran nine CCJW'ltriesjareas in the Western Pacific Region, a repzeseIltative fran UNDP an.:1 one d:lserver each fran National university of SiIY;Japore ani Monitorin;J ani Assessnent Research Centre (MARC) attemed the meetin;J. A list of the members, official d:lservers ani secretariat is given in Annex 1. 2. OPENING SESSlOO
On behalf of Dr S.T. Han, Regional Director, WHJ Regional Office for the Western Pacific, Dr L.R. Verstuyft, WHJ Representative for Malaysia, SinJapore ani Brunei Darussalam, \1Iel.CCIlEId the Worl<:in; Groop 1IIE!I!bers. WHJ was very =ncerned about the risks to health of eJqXlSUrCS to hazardous materials ani especially so when exposures resulted in d1emical emergencies. WHJ attached great fupJrtance to the deliberations of the WorkiIY;J Groop, particularly as it was ackrowleclged that the lack of plaI'II'Iin;J strategies for preparedness an.:1 response to chemical emergencies represented a crucial (> '''[,ollent of prilnaly health care which had not received c::x:mprehensive attention in many Countries an.:1 areas of the Reg'ion. '!he full text of the address is given in Annex 2A.
lin official address was given by Dr Ahmad Mattar, Minister for the Environment, Sin;Japore, W'el~ the members to the Ministry who were pleased to host the meetin:;J. Dr Mattar enqi1asized the fupJrtance of risk an.:1 hazard assessnent within all hazarc:1a.Is in:iustrial sectors. He also stressed the need to p:rovide plarmin;J illp.rt:s for the sitin;J of proposed potentially hazardoos facilities in order to miIlllnize risks at the earliest possible stage. '!he full text of his remarks is given in Annex 2B.
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OBJECTIVES
'!he objectives of the worJdn;J Groop were as follows:
(a)
...
current situation in the Reg'ion concerning the factors, processes an.:1 activities likely to cause d1emical accidents affectinJ human health an.:1 the environment; to assess the to identify (i) problems arisinJ cut of the above situation; an.:1 (il) emergency services available fran bilateral anjjor IIIll.tilateral soorces; to devel~ guidelines for national ~ plans to minimize the damage to human health an.:1 the env:il:unmeut in the event of accidental releases of d1emical substances; an.:1 to make IECUUllerdatians regardin:J the developnent of future regional activities concerning the prevention ani nanagernent of
(b)
(cl
(d)
d1emical emergencies •
...
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•
A Regional Workshop on Qlemical Safety convened at PEPAS fran aJIIJQ] its highest priorities the need for national contin;Jency plans for dealin;J with the possible health anj environmental. effects of d!emical emergencies. 24
to 28 NoveoiJer 1986 identified
'!he reo iIiIerrlations of the 'A'Orkshop participants eJIP!asized the serious health anj enviLameutal prd:>lems arisin;J fran inadequate preparedness anj response to d!emical emergencies in many countries/areas of the Region. In addition, they stressed the need for international organizations to provide collaborative inputs to encourage countries to develope contin;Jency plans for hazardous materials. '!he major prd:>lems relatln;J to preparedness anj response to d!emical emergencies in the Region were recognized as inadequate plannin:J, particularly at the early developnent stages for new industries; failure to involve all affected groups iIx:J.1.II:lin;J industry, national, state anj local authorities anj the mnmmity; the non-unifonnity of lal:lellin;J, anj the identification of hazardous materials clurin;J transportation; anj a lack of national poisa! control progranmes.
Bearin;J in min:l. the oonc:ems expressed by the 'A'Orkshop participants, to convene a Working Group to specifically address the problems of plannin:J anj response for d!emical emergencies. In particular, the Working Group was dlarged with the respollsibility of drawing up regionally applicable re' lIiIerrlations regardin;J the creation of future activities to minimize the damage to human health anj the envirorment follCMing a=idental releases of hazardous chemicals. WHO decided
'!he openin;J session saw the election of the follCMing officers fran the members: <l1ainnan
Vice <l1ainnan Rapporteur -
Mr L. Mortimer (New Zealanj) Dr Qin 'iuhui (QUna) Mr J .M. Nash (H'on;J R'org)
'!he provisional agema, as prc:plSed, was adq7ted. '!he agema anj the list of 'A'Orking papers, backgram:i material, etc. provided to the participants are given in Annexes 3 anj 4 respectively. '!he <l1ainnan invited the members to present their country reports with a view to c:1etenn:inin; the status of preparedness anj response to d!emical emergencies in the OOI.UItries represented as 'Nell as identifyin;J particular national collsLraints anj progress. Eadl pres3l1tatiaJ was followed by questions anj discussions. Brief SIlIIIIIaries of the country reports are given in Annex 5. '!he secretariat presented a number of worKing papers to infonn the WorJdn;J Group of develCPIEllts, at bath international anj regional levels. Copies of the papers are available aJ request fran PEPAS.
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In addition to the plenazy sessions, the 1IIf'IItlE!rs were divided into three discussion groups to consider the follCMinq topics: Group I
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strategies to assure oont:in:Jerx::y pl.annin;J for dlemi.cal emergencies inc:lmirg legislation, inplementation, guidelines ani developrent • Moderator
Raworteur Technical Secretazy }ofeni?ers
.
:
Mr I¥all ~ (New ZM1ani) Mrs Rcsnani. Ibrahim (Malaysia) Dr K. Bentley (PEPAS) Latin siti Hajar (Brunei Larussalam) Mr I<hoo Olin Hean (Singapore) Dr R.N. n.we (Fiji)
Group II
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Information ani trainin;p PUblic awareness • Moderator Technical Secretazy Members
RaWOrteur
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: : :
Mrs Marissa V. DaVid (:Rliliwines) Dr Harley Wright (AUstralia) Dr J.T. Jones (WID) Mr I.uo BinIjun (China) Dr H. Ogawa (PEPAS) Professor P.J. Peterson (MARC)
Group III
Monitorin;J ani evaluation of programmes to ensure chemical safety: - Develc::puant of indicators; ani - Post-incident reportiIq. Moderator
Raworteur Technical Secretazy MerOOers :
...
Dr Dr Mr Mr Mr
Foe SWee Chen3' (Singapore) Peter Yates (WID Consultant) Takashi. Hayase (Japan) J .M. Nash (~ Kon;J)
Qin Yuhui. (China)
'lhe views expressed in the diso'ssion groups were sumnarized by their respective m:xierators at a plenazy session of the Work:inJ Group. 'lhese are reflected in the Findirgs ani Fe 'ii"errlations section of this report.
A visit was made to the Petrochemical Corporation of Singapore where the 1IIf'IItlE!rs had the OfPJLtunity to 00sel:ve on-site imustrial preparedness pro:JLdllWICS for chemical emergencies.
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6.
SUMMARIES OF PAPERS Im:SENTED
6.1 An overview of WHO
chem:i.gal
safety
m;CXlLil1l1l1leS
..
Dr John A. Haines, International Progranme on Chemical Safety (IPCS) gave an overview of the activities of the World Health Organization (WHO) in the field of chemical safety. He referred to the Global ani six
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Regional constituencies of WID, as well as to the International JIqercy for Research on cancer (IARC), each of which has chemical safety activities. 'lhe OITPrView was a description of global activities since activities within the Western Pacific Region arxi PEPA'> 10Iere to be described later. Chemical safety was defined as the prevention arxi management of adverse effects, both acute arxi chronic, to humans arxi the environment fran the production, storage, transportation, use arxi disposal of chemicals. In this field, WID pm;ued a series of catplementary activities t:hroogh seven prCYLdlliles. One major thrust was undertaken jointly with the International IalxJur OLganization (liO) arxi the United Nations Environment ProgLanma (UNEP) through the IPCS. '!his joint venture provided a worldwide effort to assess the risk of chemicals to human health arxi the environment. It was directed at stLerxftl1en:in national capabilities in the field of chemical safety. Activities arxi outputs urDer each of the six IPCS objectives 10Iere described. One cbjective dealt with emergencies arxi accidents involv:in:J chemicals . WID catplementary activities on chemical safety to IPCS arxi those us:in:J IPCS outputs 10Iere also described. 'lhese activities incluie: control of envirornnental. health hazards, vector biology control, food safety, cx::cupational health arxi ~ceuticals. ,Reference was made to the c::ocpmItion with IARC in this field. 6.2
International cooperation in control of chemical emeroenc;ies
Dr John T. Jones, Regional Officer for the Prevention of A=idents, European Regional Office of WID (EtOO) described the various disasters that had oc=Jrred in Europe, such as the earthquakes in TUrkey, Gz:eeoe arxi the
Union of Soviet Socialist Republic, the nuclear accident at OleLnobyl arxi the chemical accident in SWitzerlarxi. He stressed that disaster preparedness arxi emergency response 10Iere parts of the same process arxi should deal with all types of disasters -natural, tectmological arxi manmade. WID's responsibility within the United Nations system was for the health aspects. He went on to define a disaster as be:in:J a disruption of human ecology, the effects of which the local rnummity cannot cope with utiliz:in:J its own resc::JIlL'CPS. He described several phases of a typical disaster scenario, viz, the silent Plase (the time for preparation), the pre-msaster ~ (the alert), the isolation ~ (the time of inpact), the phase of external assistance, arxi the Plase of the rehabilitation of the people arxi the recanst:ruction of their environment. Dr Jones stressed that althollgh Member states needed to foLllBllate their own DUlti-sectoral plans arxi emergency health care to cope with disasters, WID had the mandate to support them in this, as requested, arxi also to coordinate international health aid because of the plethora of organizations which may be<:"'e involved in any major disaster.
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within the United Nations system, the United Nation Disaster Relief Office (UNIR» had the overall coordinat:in:J responsibility, not only for disaster preparedness but also for relief at the tine of inpact. In Member states, the Resident Representatives of the United Nations Developnent Pragranne (UNDP) acted on behalf of UNDRO. WID was respollsible for health assessnents as part of the UNDRO team.
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Many other United Nations agencies, intergovemment organizations (!G0s) ani llClnpIernmental organizations (NGOs), principally, the league of Red cross ani Red Crescent Societies (LICRlSS) were also involved. It was
therefore essential, in order to avoid unwante:i, ~te aid at the tiJne of a disaster, that internatiooally there shculd be agreed tenninology, needs aSSMSDPnt protocols ani infomaticn exdIaIJ3e prooedJrres.
Coordination of international preparedness plog1aIldl&> was also required ani tJNr.R) ani WID were involved jointly in this. LICRlSS worked very closely with UNJR) ani WID in develq;>inJ trainin;J pI03ICIIlIllleS for use in countries. Questions were raised on the hamlinJ of media coverage, the lltpxtance of balanced ani accurate pI'MS releases, ani the need for coontry specific pIOglanuuM stgXlrted by international agencies.
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6.3
An ove.IView of WID chemical safety activities in the Western Pacific
Dr Keith Bentley, Cbemi.cal Safety Adviser, PEPAS described the regionally ani nationally applicable activities of WPRO in chanical safety < At the national level, activities needed to be enoooraged within the coontry's perceived capabilities ani priorities to provide for CCllIprehensive chemical management practices. As a first priority, chemical in:iustries producinJ highly hazardous materials needed to be catalogued ani their control practices assessed.
A growinJ rn.nnber of countries were expressinJ concern about the hazards to the envirorunent arisinJ fran chemical accidents which affect health. Several recent accidents involvinJ exposure to chemical residueS ani hazardous wastes of local popllations had accentuated the need for governments to prevent accidents involvinJ chemicals ani to provide facilities for the treatment of poisoned patients, as well as to rehabilitate ani restore the envirorunent after such accidents.
.. ..
WPRO activities in env:ircnmental health were laJ:gely praooted through its Centre for the Pranotion of Env:ircnmental Planning ani AWlied studies (PEPAS) located at ~a Il.IiTplr in Malaysia. '!he principal oojectives of the Centre were to promote ani facilitate effective collaboration between scientific institutions ani individuals in the Western Pacific ani to support the develcpnent of self reliant institutions for envirOlmelltal health in the Member states. PEPAS provided collaboraticn to Member states, for exanple, in legal framework ani institutional develcpnent:. 'lhis included drawing up national worl<plans, ani national ani local emergency continJency plans for onsite/off-site ani transportation accidents; rehabilitatinJ abandoned toxic waste dI.nrp;; ani fonrulatinJ ql9rational parameters for hazardous waste incineration facilities • PEPAS initiated Regional ani national trainin;J prograrmnes, either alone or with United Nations or other agencies. 'lbese traininJ programmes included a Regional Qlemical Safety Workshop, ani courses on hazardous waste lan1fills (with UNEP) ani risk management (with carl Dljsbet'g Gesellschaft e. V./Asian Productivity Organization) providinJ applied
- 6 -
professional develcpnent for government policymakers, regulatory personnel am ~i.neers. PEPAS also provided tedmi.cal suwort to seminars, conferen::es am syn'pOSia in a number of coontries/areas in the Region. PEPAS d1emical safety activities also included providin;
suwort to
the llDjUNEPjWfI) sponsored International Programme on Cllemi.cal Safety (IPCS) am at country level to UNEP's International Register on Potentially Toxic Cllemi.cals (IRPI'C). PEPAS was holdirg discllssions with a number of national agencies in the Region with a view to transla~ am jointly publishin:J key materials on d1emical preparedness am respo!lSe plannin;J. 6.4 WH:l1EXJRQ orV4lanme for the management of d1emical emergencies
Dr Jones described the WH:ljEXJRO programne for the management of d1emical emergencies. Disasters am major emergencies were included in the same proqra!lIOOS with a shift in enpJasis fran relief to preparedness. Resolution EDR/RC33,IRS called upon the D.Jrc.pean Regional Office of WHO:
(a)
to assist Member states in 'ftlOrkirq out the health 0CIlp:)tlE!Ilt of their preparedness progranmes am to prepare itself to resporxi quickly am effectively to the health needs of the Member states at the tilre of an emergency; to establish a core team of experts (assessors) who could assist Member states at short notice at the tilre of a disaster. 'lhey would coordinate int:eInational health-related aid, am assist in preparedness plannin;J; am
(b)
(c)
to assist Menb>.r states in disaster preparedness.
traiIri.rJJ
personnel in the health aspects of
SUbsequently, the scope of the progranmes was expanded to inco:qx>rate technological disasters. 'lhe progranme's basic elements were infOImation, epidemiology, services, health, the environment, transport, ocmm.mication, education am traiIri.rJJ. 'lhe overall awroadl was throogh camnmity participation am primary health care.
In disa1ssin:; d1emical emergencies, Dr Jones stated that in sane regards d1emical disasters differed fran natural disasters, e.g. the relationship between deaths am injuries (ratio). Cllemi.cal emergencies could have t:ransboI.IrDar effects; chemicals had specific actions; prevention of the emergency was nearly always possible; psydlosocial factoLS were very ilnportant; there was a diversity of chemicals - but a basic list was needed; am there was a well defined acute toxicity phase am inteImediate am long-tenn phases.
Prevention strategies included of chemical installations, adequate carryin:; out of safe processes, am legislation. camm.mity involvement personnel.
the control of lalXi use am the si~ maint:enan:::e, the introduction am the folll'l.1lation am enforc:ement of was essential, as was the trainin:; of
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Regarc:ling preparedness, the assessment of risk (incluclin;J hazard analysis) ani health effects (in:::luclin;J injuries) was essential. Education of the public, which takes into acx::cunt the way it perceives the health risks, should be incl\Ded in the pLugLaaues.
For effective emergency respollse, CXJllllmity involvement is very iJqx>rtant. '!he ~ should be within an overall disaster plan, with specialized advice available. HanocInization of the infcmoation system reganlin;J chemicals, ani the protection of resOlers ani health personnel who go to the site of the emergency, are essential. EIOO had sane experience with rehabilitation prograaues follONin:J the chemical accident in Seveso (Italy) ani the earthquake in Annenia, USSR, but lIOre developnent work was necessary. A team of Assessors had been established. 'nIese were drawn fran experts in various aspects of disaster ploglattmLin;J ani emergency care (nurses, environmentalists, sociologists, psychologists, psydUatrists , epidemiologists, toxicologists, accident ani emergency specialists, primary health care workers ani veterinary specialists). '!hey 'NOrked closely with Member states in develq>irq preparedness PrugLaI,d,e5 as 'Nell as durirq E!l'IIeIgeI'ICies. EIOO has its am action plan which i11 p.rt;s into effect at the tilIIe of an E!l1IeIgency in a Member state. A small :in-house task force coordinates the response (e.g. the provision of aid, ani preparirq situation reports). '!he action plan was put into effect durirq the earthquakes in Erzerum (TUrkey), Kalamata (Greece), Annenian SSR, USSR ani durirq the Olemabyl nuclear accident.
'!he activities of the progranune include preparirq guidelines on primary health care, envircnmerrt:al. hygiene, ani the assessment of health needs. Future guidelines will deal with chemical accidents, nuclear accidents ani the psydlosocial factors of disasters. ~ sessions had been held for the AssessOIS an::} national 'NOrkshops organized in Member states, as 'Nell as i n t = t r y courses in En:Jlish ani French. A WID collaboratirq centre for chemical accidents had been established in Finlani •
•
6.5 Emeroency plannim guidelines for dlemical incidents in Australia
..
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nri.s paper was presented by Mr Peter Yates. Chemicals are an essential part of m::xiem life. Mankin:l. uses chemicals to inprove ani protect his agricultural pICduce, to enharx:e his iniustJ:y, cxmnerce ani material quality of life, ani to protect his environmental quality of life. Potentially hannful chemicals or chemical products are to be fouIrl in hcmes across the 'NOrld in all but the lOOSt primitive societies. Rlannaceuticals, pesticides, poisons, chemical drugs, plastics, fertilizers, industrial ani household chemicals; all are recognized as beirq beneficial to society if properly used ani cOIlLtolled. yet if they are misused or abused, they may easily give rise to both actual ani perceived environmental problems. Preparedness is iJqx>rtant in 'Cont.in3'ency Plannin;J for Chemical Emergencies' • Plannirq is the key factor, but knc7.v'ledge of all chemicals used c:cmnercially (up to 40 000 different chemicals in Australia alone) can be difficult to acquire. Groupirq is possible, but it is the canplexity
..
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associated with so many potentially hannful chemicals whidJ. makes emergency response plaIll'lin3' for dlemical in::idents so difficult. A "cradle-to-qrave" management scheme is very lnpxtant to maintain oontrol of chemicals. In Australia, IIDSt of the responsible regulatory authorities have adcpted this management aw=adJ. f= chemicals. It includes the management of raw materials or natural resources used to produce dlemicals; the d!emi.cal manufact:urin;J process; the by-products am =ntami.nants; the transportation, storage, sale am use of the chemical products; am disposal of the d!emi.cal wastes.
PlaIll'lin3' for this a~ is required before the introduction of new dlemicals. In Australia, this awroach resulted in the develq;ment of chemical emergency conti.n:1ency plaIll'lin3'. Such plaIll'lin3' necessarily involves: (a) (b) (e)
lam-use planners am developers - the notification am assessment of new/am new use chemicals; manufacturers - site an:ljor area plans; ~/exporters - the notificatmn am assessment of new/new use chemicals; overseas disposal PLoposalS;
(d) (e) (f) (g)
transporters - in Australia 60% of incidents transportation; transportation cont~ency
cx=Jr
duriR3'
plans required;
emergency seLVices; environmental, health am other S\lRXlrt seLVices; govenment - national/statejlocal;
(h) (i) (j)
media; am the cxmmmity. '!he primary needs for a prqleL' respollse to a chemical incident
are:
(a)
accurate concise infOLmation al:x:ut the chemicals involved (identification); this infonnation needs to be at or accessible to a centralized distribution point with effective c:c.mtrunication Jrodes;
(b)
an appreciation of the hann that those chemicals, either alone or jointly, may cause to human health am safety am to the environment; awLcpLiate equipoent am methods to contain, treat, collect ani dispose of the chemicals involved;
(e) (d)
well-trained personnel; am a c:x:mprehensive krxMledge of the responsibilities ani abilities of all oLganizations available to deal with the incident (cooperation and cooLdination) •
(e)
- 9 -
'nIe paper ccn::luded by stressin;J the clear cl:lsezvation fran the world's experience with chemicals that, while they can brin;J great benefits to scx::iety, they can also cause considerable hann to human health ani property ani to the envuolluent if mishamled or misused.
Consequently, it is iDperative that all those who manufacture,
transport, use or dispose of dlemicals ani chemical wastes, be prepared to deal with any conceivable incident or E!IIe.l:gel'X:y. Whether used by an in::lividual or by a whole :iniustry, it is essential that chemical incident respa!SE! plans be developed ani practised so as to prevent or minimize
adverse environnental effects. 6.6 '!he role of Poison CbIiLroI
Centres in chemical emergencies
'nIe tmique role of poison information or CXJIluol celiues as a partner in prevention ani respc:rlSe to chemical energencies was dj scnssed by Dr Jdm A. Haines based on the experience of sudl centres in the IFCS network of poison CXJIILroI centres. In those camtries where they operate, these centres function on a roun:i-the-clock basis ani are specialized units whidl have infonuation on the toxic effects -of chemicals ani how to manage poisoned patients. If an E!IIe.l:gel'X:y cxx:.urs, a poison information oentJ:e can provide advice on the identification ani properties of chemicals ani on ha.r to respcni nedically to vict:ims of the energen::y. It also provides information on what nedical facilities are available for emergency response services, nedical professionals, authorities, the p.Jblic ani the nedia. 'nIe infonuation ani advice is adapted by the oentJ:e to the specific circumstances of the emergency, the type of a=ident ani con:litions of the vict:ims involved, takin;J into consideration the level of technical urx:lerstarxlin of the enquirer ani the purpose for whidl the information is to be used. Centres nay also contrib.tte nedical expertise in ~ plannID:J; they nay provide nedical trainin:J for members of rescue teams for dlemical a=idents ani for personnel treating poisoned vict:ims. '!hey nay advise hospitals ani health facilities on establishirg their own energerx::y response plans. '!hey also keep stocks of essential antidotes ani pharmaceUticals. After an emergency, poison CXJIluol centres should follow
up poisoned victim cases in order to evaluate possible nedium- am longterm effects. Planned sbtulated energencies are important trainin:J experiences for staff of the centres. -,
Poison infonuation,lCXiluol centres nay also help to identify toxicological ani chemical energencies in the society sudl as the contamination of food, am natural toxins that give rise to poisoning.
Not all chemical disasters are man-nade; many vict:ims nay be affected by emissions of chemicals fran volcanic origin. Natural fires floods often lII:1bilize veI'lalDlS species whidl nv:>re readily attack human bein:Js. Poison centres should have antivenom sera available in sudl energencies.
am
6.7
'nIe MARC pr!XII§ule in the Asia Pacific Region
varioos ptOYIQllmes 10Iere described by Professor Peterson, incluciin:J the GldJal EnvuOIlllellt:al Monitoring system (GEM3) whidl covers the IlDI1i.toring of air quality, water quality, am food contamination. 'Ihese programnes have resulted in three state-of-the-envirorment reports.
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'!he Human Exposure Assessment Location (HFAL) measures the envircnmental health effects at specific localities. Various m:mitor:i.rY,l strategies are offered inllu:iirJ3' plblic health IOOI'Iitor:i.rY,l am. the IOOI'Iitor:i.rY,l of metals in the envil:"orment. '!he assessment activities inllude a listing of dan;JerCA.lS substances. In Scuth East Asia, weD\: is mainly centred in Malaysia - environnvantal planr1in;: am. China - the m:mitor:i.rY,l of water pollution am. pollution caused by metal smelters. 6.8
rase studjes for c:henical accident control
Mr Rhoo Cllin Hean presented videos a selection of slides related to Liquefied Petroleum Gas (IRi) explosions incidents inllu:iirJ3' a detailed event/consequenoe tree. He went on to show slides of the Mexi= City Lro explosion. One major =ncem related to safety aspects was the
am.
am.
ubiquity of uman enc::roadlment aram:l hazardous facilities. rarn-use planr1in; requ:irements, particularly a review of l:Alffer zones aram:l these facilities, were seen as a pre-requisite. In sane areas, squatters were often a major problem. 'Ihese peeple were often nat imnroiately subject to pl~ provisions. '!he provision am. sit:i.rY,l of relief centres am. the pt: esance of an evacuation plan were essen1;.ial. '!he contirgency plan should facilitate the evacuation of people. '!here should nat be a reluct:arre to evacuate because of adverse political consequen::es. Legal liability was a p:rd:>lem in the United states of America in respect to accidents, with loot:i.rY,l sanet.imes oc:curr:i.n;J dur:i.rY,l the evacuations. 'Ihe above issues shool.d be clarified, determined am. defined prior to an incident. In particular, the roles of goverrnnent am. irrlustry should be defined with :r:espect to the responsibility am. acxnmtability of irrlustry for health am. safety.
6.9
Develogoont of info:r:mation participation
svst:ems.
hazard mapping
am.
CO!lIl!I.!!litv
Dr Jones introduced the session by stat:i.rY,l that info:r:mation was requi:r:ed for preplann:i.rY,l, the assessment of health needs am. evaluation. To assess the health needs at the time of the disaster, it was essential to know the type of disaster - earthquake, fire, etc: the ilrpact on the pc:pllation: the :rescue services needed: the damage to health care facilities am. personnel: the damage to foodjwater supplies; the damage to housing/shelter: sewerage disruption; am. the damage to transport infrast:r:uctur an:i OCIlII'llIlications.
For preparedness, am. to assess the :resources required after ilrpact, a camunity profile was an essential pre-requisite of the plan, especially 'Nbere people lived in areas prone to natural disasters or where there were hazardous installations. '!he major clenLy:r:aphic, sccial am. infrast.ructural elements were requi:r:ed to be known befo:r:e any relief could be provided. Meteorology was also iIrportant in c:henical incidents. Info:r:mation was necessary on: iIrportant elements related to food such as diet, markets, distribution; exist:i.rY,l health care installations am. teams, namely, the st:r:ucture, the location, first aid skills; am. transport for health services. Environnvantal data relat:i.rY,l to hous:i.rY,l, water, air, sanitation, food, animal health, am. environnvantally sensitive areas an:i species, should also be included.
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within the CXI!I!!!mity profile data shcllld be included on installations, incl\ld.in;1 a hazaJ:d map for each site, anj for each chemical. Infonnation shcllld be included on the storage, disposal, transportation, toxicology, analytical anj back-up facilities in the area.
.....
'lbe people at risk also needed to be listed incl\ld.in;1 those in the plant anj the surroun:iin::J area, e.g. squatters, dwellin3s, hospitals, clinics anj personnel, sdlools anj other special groups such as the elderly anj
the haniicarped.
'!his infonnation, as well as resources at risk, e.g. water supply, and food; anj a list of services, contact names anj ~ rnnnbers nust be available to the disaster plarmers. A CCIIIIJ:'E!hensive infonnation network was required, incl\ld.in;1 a poison infotmation centre. 'lbe hospital plan shcllld include a ward that is specialized in dealing with chemical emergencies, i.e. specialized beds, anj treatment facilities incl\ld.in;1 antidotes. Specialized teams require training anj protective clothing •
..
6.10 Ca!m.Jnication in the manageJreIlt of chemica) emergencies
,
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While pzesenting this paper, Dr H. Ogawa, Environmental Systems ErJ;Jineer, PEPAS said that CCIlUlI.ll1i.cation played a key role in every step in an emezgerq response to a chemical aa::ident. ruring an emergency situation, accurate infOtmation nust be transmitted pluupLly to those who require it to prot:ect:. the health anj safety of people anj to avoid eoonunic losses. Inaccurate infonnation could cause wnn;J decisions on the actions in the re5pUlSe, anj slow transmission of infonnation often leads to an in::reased level of damage due to a delayed re5pUlSe. A reliable ccmrunication system ItI.ISt be devel~ for every anticipated emezgerq situation, anj the drill practice of such a system should be conducted periodically to ensure its reliability in an emergency situation. '!his type of preparatory work is essential for a successful emergency response, otherwise ccmrunication during an emezgerq may be faulty anj may cause panic anj chaotic responses. A chemical emergency may be a minor incident which can be contained within the vicinity of the incident site, or it may be a major one affecting a large area. It can also occur at a chemical processing plant or in storage or during the transportation of chemicals or the disposal of chemical wastes. Altho.lgh an emergency response CXl!!I!!!mication system should be develqled for each of these cases, this paper dj scussed IOOStly a oonmmication system for a potentially major chemical emergency at a chemical plant, principles of which can be awlied to any site-specific emergency CCIlUlI.ll1i.cation systens. 6.11 A regional case study in contimency plan develognent An exanple of a contingency plan at Port Dickson, Malaysia was presented by Dr K. Bentley. 'lbe varioos levels of re5pUlSibility within the natiooal and state structure ....ere defined. 'lbe ta./n's geography anj refinery locations were di scussed. 'lbe power station, the hospital anj emergency services were all close to the potential hazard, as were
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....
-12-
railways, major roads, etc. IllrinJ a disaster, evacuation would be difficult, particularly i f a traffic blockage occurred. Hence, planniIg for the emergency is difficult ani ccnplex. stnlcture ani zonal planniIg were also urx3er stress because of the squatters near the various chemical plants. Proposed prevention strategies included lani-use planninJ; sitinJ; cxmmmity involvement; equipoent maint:enance; the developoent of safe processes; ani information exchan;Je ani traininJ.
-
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Preparation of the catmmity profile was di srossed in the context of preparedness for an emergency, incl~ hazard mawinJ ani popIlation groops at risk. Sane risk reduction measures were suggested such as the dissemination of chlorine gases (at the power station) into multiple containers. lJpgrac1ing the road network watid be a pre-requisite to drawinJ up an adequate plan, possibly with financial assistance fran irous:b:y. 6.12 :fa>t-incident review pro mures for chemical incidents '!his paper was presented by Mr P. Yates fran AUstralia. 'Ihe review of incidents to inprove contin;Jency plans is of vital inp:>rtance. Questions such as: What caused the incident? Was it, avoidable? Could it have been han:lled better? need to be addressed as soan as possible after the incident. 'lhus, the reportinJ of incidents in an orderly, systematic ani predetennined way is necessary. While there may be no legal requirement to prepare an incident report, there shcul.d always be a designated authority with responsibility for collatinJ an incident report. 'Ihe ~ of this watid be to review the incident ani its causes, ani to make recoI\1IIIE!ndations on both measures to reduce the risk of future similar incidents, ani the emeJ:gency response procedures. After
-
-
-
any incident, atteupts shcul.d be made to obtain factual reports
fran: Manufacturers/~-exporters Transporters - both the cx:'II'plIly ani the
driver
Emergency services
suwort authorities ani organizations Government regulatory authorities Media Local authorities/CCIIlIII.lI'li.ty groops crucial information needed for the report, the objectives ani ~ of the docnment, are major areas which need to be defined. 'Ihese parameters may be = t r y specific. In New South wales, AUstralia, for exanple, three objectives of the reportinJ system were to ascertain causes, to review pxocednres, ani to define legal responsibility. since opinions vary widely on the types of data to be collected, it was crucial that incidents on which reports were required shcul.d be carefully defined. Failure to do this would result in either the costly collection of unnecessary data or in inadequate data on which to base an effective review of accident prevention measures ani of chemical incident continJency plans.
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It was suggested that reports were needed on ''Major Incidents" ani on "Potentially Serious (or Near-M:iss) Incidents" that could escalate into major incidents. It was stressed, ha.1ever, that precise definitions of these incident types were required before the reportin;J system could be adopted. Definitions were ~ted. A definition of minor incidents which do not need to be reported was also required. Reportin] systems may be manual or c::atplter-based. Two options were presented settin1 out a sinple manual. system ani a lIDre caoprehensive system better suited for 0ClIlp.lter-bas storage. In New 5alth Wales, a statutory Hazardous Chemicals lIdvisory camdttee (HCAC) reviews incident reports ani advises on matters pert.ainin;J to the enviIonment:al control of hazardcus chemicals.
'!he paper concluded that reliable infoJ:mation =llected in the afteJ:math of a Major Incident or Potentially Serious Incident was a vital tool for inprovin] the management of major chemical hazards.
...
A public display of incident reports in the workplace was considered HcMever, sane CXJl'{'3l1ies may not want to do this. SUch displays would also inprove localjcamm.mity awareness. '!he constitution ani legal stan:linJ of the New 5alth Wales HCAC were disC!)ssed, partio.!larly with reference to the possible need for the iJwolvement of the legal profession, ani of the aweal provisions to be a good idea.
6.13 Chemical incidents durirp transportation Introducin] this paper, Mr Yates remarked that in Australia, the vast majority of incidents were transport related. '!he life cycle of a chemical was significant in umerst:arxiin] transport hazards. },gain, the "cradle-tograve" management awroac:h provided useful assistance. Arrj chemical's life cycle affects transport ani disposal considerations.
-
Transport incidents may occur at arr./ tilDe or place. 'nle exact nature of the chemicals iJwolved may not be immediately known, so trained ani properly equiWed personnel may not be available to respond to the incident. lOOSt '!he causes of chemical transport incidents inclme human error (the a:xLKton cause), failure of the vehicle, faulty design of the container, inprcper stowage of containers, ani inadequately trained personneL
were generally regarded as beinJ negative, non-prcductive ani expensive exercises. '!he key for avoiding these =sts was in prevention, ani it is for this reason that legislation, codes ani procedures had =ncentrated so 1IUCh. on measures to prevent chemical incidents. A number of preventive measures were identified. 'nlese included sound containment durin] =nveyance; adequate infonnation on manifest, safe stowage, partio.!larly of mixed loads; adequate ani pertinent trainin] of personnel; sound cp=!tIDJ ani maintenance procedures; the security of loads, arx:l placarding. '!he use of HAZCHEM symbols does not prevent accidents but may prevent incidents arx:l is of great assistance in quickly deteDnining the =rrect respoJJse prclC"€d!Jres.
Responding to chemical incidents ani cleaning up spilled chemicals
..
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Hazardous chemical wastes 'Nere materials that contained one or lIDre dlemical constituents which may be dan:1eroos to humans arn,tor the environment, an:l which had no furt:he.r value to the CMl'ler. It was usually the CMl'ler'S desire to dispose of these materials at the lowest possible oost by a legally acceptable mathod. '!he difficulty with hazardous waste disp?Sal in lIDSt countries is that there are often no acceptable neans of disposal. Even where disposal neans are available, for exaI!ple, high tenperature incineration, they are very expensive an:l the in:lenti.ves for illegal disposal are increased because of
-
this. consequently, waste miniInization should be practised as IIII.lch as possible. '!be issue of hazardoos dlemical waste transportation, especially trans-frontier, is a <XIIPlex one. '!be matter is bein;J addressed internationally within the United Nations, but so far without arrt
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resolution. '!he paper concluded that the transportation of chemicals currently resulted in lIDre incidents than arrt other si.n;Jle activity involvi.n;J dlemicals. While there 'Nere international an:l national codes, legislation an:l guidelines detaili.n;J requirements for. the safe transportation of dlemicals, the practice an:l enforcement of requirements still 'Nere not c:onprehensive. ruri.n;J the disOIssion follc::Jlolinq the pnsentation, enforcement was seen Transport routes could be prescribed but education was vitally inpJrtant.
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to be a major problem of the various codes.
6.14 Errergency response system at the local (c:amm.mityl level
- the APELL process Dr Jones introduced the subject of the errergency response system at the local (c::armmity) level: the APELL pnx:ess developed by the United Nations Environment PrograImne (UNEP). He said that experience had shown that at the time of inpact, the local c::armmity rust be able to cope an:l therefore III.Ist be capable of assessi.n;J its own needs includin:J health needs to ensure that, if required, the aid requested met those needs. APELL =vered technological but not rruclear disasters. It set out a scheme for overall plaJ'll'lin;J for disasters an:l defined the steps the cannumity should take to introduce the pnx:ess.
'!be pl:ocess had been evolved through the partnership of UNEP, iIrlustry an:l WID. An APELL hanJbook had been developed to help in the followi.n;J:
(a)
the developnent of awareness/preparation of cooperative plans by local CXl!JI!Imities, because each event has potential :inpacts, t.ransbc::luIDa effects, lOl'l3"-tenn =nsequences, etc;
(b) (e) (d)
hazards identification an:l protection;
the developnent of an emergency plan (information provision - plan);
risk analysis; an:l
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(e)
flexible awlication of the plans to suit the sociocultural pattern of the CXJ!!l!lmity, ani the fom of administration.
APELL cbjectives were to provide infonnation, review/update procedures ani increase CXl!l!lmity involvement. '!be partners shruld be the local iIrlustry, the local authority ani camm.mity leaders. 'Ihe main requirements were the preparation of hazani maps, a review of local authority ani government plans; fonnin;J bridges 1Jeb;een iIrlustry, the cammmity, ani the government; ani the settin;J up of coordina~ groopsjmedlanisms. hew'
Comnunity awareness could be built by allayin;J concerns, detenninin;J to CXJ!!l!lmicate with the CXl!l!lmity ani assignin; the responsibility for
this OCIIIlII.IlIication, rnarketin;J the system ani elqllainin; it, ani by in::xn:p::>ra~ the DEdia into the team. 'Ihe APELL procedure has a lO-step awroach for its introduction, inplementation ani evaluation. Olrrently, the pzcx::e;s is being tried out in countries in Europe, the Middle East ani China. In discllssions, it was agreed that there 1Jeb;een
were indeed various steps
awareness ani preparedness ani that education was crucial for all
of them. Problems of bias, prejudice ani,m:>tivation within the rxmmmity were identified. Knowledge of social ani cultural 1'lOJ:I!S of the cammmity was essential. 7. FINDINGS AND ~ONS
'Ibis listing of fi.nd:in;Js ani re:xii1llli3l'Dations is a concise presentation of the fi.nd:in;Js ani recutllendations of the three Discussion Groups established at the l'klrk:ID] Group Meetin:]. Details of the disOlssions ani fi.nd:in;Js of each individual group are available fran PEPAS on request.
(1)
Firrlim: In view of the l~ diversity of developnental stages anDn1 Member states in the Western Pacific Region, the l'klrking Group recxlgI1izes that for many =tries the establishment ani inplementation of preparedness ani response Plo:JLanuxes for dealing with c:hem.i.cal eurargencies will have to be done step by step. Rece:l!m!leJPa,tion 1: wm shaJ.ld CXXlperate with the Member states in develcpin;J ani, where awrcpriate, enhancing national, provincial ani local preparedness ani response plans for dealing with chemical emergencies. consideration shruld be given to integra~ c:hem.i.cal eurargency plans with existin;J plans for natural disasters.
(2)
Firrljm: In view of the increasing diversity ani use of chemicals in the Western Pacific Region ani the consequential increased risk of chemical emergencies, there is a need for each ccmrt:ry within the Region to un:iertake an ongoing review of all aspects of its
preparedness ani ability to cope with chemical emergencies. Recc:mnenjation 2: To achieve an adequate level of preparedness, Member states of the Region should consider:
- 16 -
(a) (b) (c)
reviewiJx.J an::l, as necessary, establ:ish:in;J or upgradi.rxJ national chemical emergency preparedness an::l response medlanisms; reviewin:J available envira'lmental an::l health infomation system; an::l, where necessary, ilx:reasirg access to such systems; developirg the necessary profiles of their cannumities an::l envira1ment. 'lhis IroUlld include examination of past elqlerience with chemicals an::l assessment of environmental an::l health hazards for their present an::l predicted chemical usage; an::l involvirg pr:iJnary health care workers, enviranrleltal. specialists, lan::l-use planners, emergency services, an::l the CX'J!l!lmity in drawirg up preparedness an::l emergency response pl.annin:J systems, incl.udin3" CX'J!l!lmity profiles.
(d)
Reg;ti!!!t:nJation 3: WOO, with other international agen;;ies in the Region, should assist Member states in creatirg an::l iInprovirg infoonation systems through workshops an::l trainirg caJrSE!S. Recamnerrlation 4: WOO should develop guidelines to ensure that there is a consistent awroach to regional, an::l national plannirg for preparedness an::l response to chemical emergencies. '1hese guidelines should include elements on preparedness for, respollse to, an::l rehabilitation after any chemical emergency. A llXlre detaile:i explanation of these elements is given in the body of the report. (3) Firdioo: '!he Workin:J Grwp recognize:i that many agencies an::l organizations, within both the pJblic an::l private sectors, are involve:i in health an::l environmental isslles associate:i with preparedness an::l response plannirg for chemical emergencies. Coordination is, therefore,' essential to ensure the best use of resoorces an::l to prevent confusion at the time of an emergency.
RecaI1nerdation 5: Each Member state should designate a national govermrent statutory authority responsible for developirg, illplementirg an::l evaluatirg an integrate:i preparedness an::l emergency response mechanism which should consider both environmental an::l health aspects. '!he same government authority should also be responsible for establishinJ all the necessary coordination procedures. (4) Firdioo: '!he health an::l enviranrleltal. sectors, in their broadest te=s, have a responsibility to provide. inp.Its to chemical preparedness an::l response plannirg to protect both pJblic an::l
occupational health an::l the enviraJnueut fran the consequences of chemical emergencies. Ra;g,u,oomdation 6: Each Member state within the Western Pacific Region shoo.l.d ensure that there is adequate. health an::l environment:al sector input in their assesswen\: of chemicals for use in the coontry, an::l in the develcpne.nt, illplementation an::l evaluation of chemical preparedness an::l emergency response plans. Recommendation 7: WOO should provide the necessary health an::l envirornnental sector inputs to the Member states.
- 17 -
..
(5)
Findirg:
d'X'E'SS to emergetx::y advice on chemicals.
Many Member states of the Region do not Cl.Irrently have a centre of dlemical infOl:lllation or other 5aIrOe of 24-hour
8: Where apprqn:iate, Member states should be enc:ouraged to seek collalxn:ation fran an intemational organization such as WOO to establish either an ~ropriate centre or a contact on a 24-hour basis, with sudl a c:enLte. ' (6)
Fe' (","",dation
Firdirg: Given pmlic perception of the potential for hannful effects fran chemical exposures, it is inportant: that the ClCIIIIIlnity shoold be involved in all aspects of chemical safety prognmmes. '!he United Nati~ Envil:OllU-=ut Programne (UNEP) has develcped an ~ropriate O'1TI!IllUty response process known as the Awa%eness ani Preparedness for !mergencies at Local Ievel (APELL) pLC::UOSS. RecaL4LIE!lDation 9: Member states of the Western Pacific Region shoold prcmJ1:e pmlic awareness of the potential risks of chemical exposures ani the measures available to minimize those risks. Both acute ani chronic exposures shoold be taken into consideration. ResMLRLeOOation 10: Fducational pLo,n:aillnes should take advantage of the broadest range of health ani environmental resources available. For example, the Workirg Group recc:mneoos that the ne:lia shoold be involved in all aspects of these plblic awareness prcgranmes which coold also be pLutr:Jted through in:lustry, nongoverranent: organizations (!«OOs), catm.mi.ty groups and educational and research institutions. RecaLLilo;:n:lation 11: Wherever practicable, at the request of the Member States, WOO shoold collaborate in the provision of infonnation and other resoorc:es to prcmJ1:e plblic awareness p:rog:ranaues in regard to all aspects of chemicals control within the Member States.
...
(7)
(8)
F:irdirg: It was noted' that several United Nations bcxlies provide detailed and often duplicated infonoation on chemicals and chemical safety. Reg;!JLuL!t!l$tion 12: '!he relevant agen:::ies of the United Nations shoold be asked to review the availability, aw:ropr:iateness for specific puzpc:ses, and distribution of infOl:lllation bases on chemicals, am eliminate excess infonnation. Firdirg: In view of the COItplexity of chemical safety issues, training at all levels is essential for any progranrre of chemical emergency preparedness and respo!lSe plannin;J. Reg;!JLiLeIklation 13: Fac:h Member State within the Region shoold un:iertake training pra;JtdlllLes for concerned personnel, iIx=lud:inJ priJ1Iary health care YlOrkers, on the provision of emergency :response services, the preparation am trial of respo!lSe plans, and the preparation and assesSLrent of incident reportim systems. Reg;!JLlLo;:n:lation 14: WHO shoold coc:perate with the Member States of the Region in develqlim all levels of trai.nin;r pLog:ranaLes in the field of chemical safety.
-
- 18 (9)
Ejrrljrp: Not all Member states in the Regic;n have ~te equipnent and associated facilities to deal with chemical emergeIlCl.es that may
-
ocx:ur. ReC)lII!lerPation 15: 'lbe Member states ~d prepare ~?c;naI-"-"abl provincial and local inventories of eqw.pnent and facill.ties avCU-J. e for cql:i.rr;J with dlEmical emergencies. 'lbese inventories ~~ f,?= a basis for national governments to identify and assess thel.r existin3' and future requirements. Rapll1eOOation 16:
WOO shoold :review and report on regi~ needs for chemical safety equipDent, facilities and associated trainin;J. In sane ciromstames, dlEmical emergencies may result in trans-l:lc::A.lrPary effects and response action may be necessary in lIDre than one coontJ:y.
....
,
(10) Firnjm:
Recg\1!neTDation 17: Meni?er states in the Western Pacific Region shoold consider the need for a way to inform neighbcuri.nJ countries of any chemical emergerx:y which may affect them. peqmenQation 18: WOO shoold facil~tate the establishment of awrcpriate irrt:.ercruntIy, interregional and international cooperation to assist Member states in these activities. (11) FirPhy: An effective reportin;J system is an essential «, "(anent of any chemical preparedness and emergerx:y response plan. 'lbe report:i.rr;J system and capabilities, and the needs of each Member state, however, vary widely within the Region. Nevertheless, there are advantages in
-.,
"
,
hav:i.rr;J a basic mininI.Jm checklist.
Recutallti!OOation 19: 'lbe Member states shoold exand ne their CMll needs and capabilities for an adequate dlemi.cal emergency reportin;J system. 'lbeY shoold develcp and inplement ~iate systems in keep:i.rr;J with their national recpirements.
Be) ....lti!OOation 20:
WOO shoold develcp guidelines to ensure adequate chemical emergerx:y report:i.rr;J within the Region.
~,
(12) Firnjrp: Few Member states of the Region have extensive experience in the management of major chemical emergencies. Clearly, an exchanJe of infoxmtion between Member states in the Western Pacific and other regions of WOO would be valuable in regard to emergencies that have occurred or may ocx:ur in the future.
...
,
Recx:mnerxlation 21: Member states of the Region shoold set up irrt:.ercruntIy report:i.rr;J nedIan:isms for chemical emergencies. Reo ililerdation 22: To facilitate the establishment of such systems, WOO shoold provide regionally ?R?licable guidelines so that Member States have a CCiliOClh reporting system, and can inteJ:ctlame reports
easily.
I
- 19/20 -
,
(13) Firrlirs:
To be fully effective, chemical emergency respollSE! plans need to be regularly :reviewed ani updated.
Mentler state should have in place a system for evaluatiD] ani :reviewin:J its chemical emergency response plans. Member states should develop perfOJ:IDaOCe indicators appropriate to their requirements.
Reqq!wi!¥rlation 23: Each
Be' '''"IO¥rlation 24: WIt:) should develop guidelines to assist in the ~~tion of :review pro eilu:es ani in the developnent of appropLiate :in:ticators to measure the effectiveness and efficiency of all aspects of chemical emergency response plans.
'!he ClIainnan thanked the Itle!lIbars for their participation in the IreE!ti.ng ani o:n:JLatulated them on their valuable CXlI'Itributions which had resulted in a clearer un::lerstan:1in of the essential elements of chemical preparedness ani respollSE! plOogLdlli09S. Dr K. Bentley, <l1emical safety Adviser, PEPAS, thanked the Worki.ng GLwp I!!E!Dtlers for their active participation. '!he findin:Js ani Ie:) I!![e.mtions \wl:Uld provide valuable guidaIx:e to WIt:) in the developD3Ilt of chemical safety ani, in particular, chemical preparedness ani respOIlSE! activities in the Region. '!he q:portunities provided for enhancin:J the chemical emergency preparedness progra!!IIle as an integral part of national disaster plaI'll'lin} strategies in the a::.min] D=cade Activities were stressed. Dr Bentley pl:qlOSE!d that the Itle!lIbars should encourage their agencies ani national govemments to increase their cooperation by sharin:J their experiences amng the coontries/areas within the Western Pacific Region. '!he rEO i1luerdations developed by the Worldng GLoop wruld require active =llaboration between WIt:) ani the relevant national authorities for SlJo:."eSsful inplementation. He hoped that the Itle!lIbars wruld actively p.m;ue the necessary activities when they returned to their countries. j
•
....
'!he Claiman, on behalf of the participants, expressed appreciation to the World Health Organization ani, in particular, to the =nsultants ani secretariat for the oLganization of a IrOSt successful meetin:J fran which he hoped future benefits wruld aCCLUe for all the Member states in the Western
Pacific Region • '!he Working Group expressed its thanks ani appreciation to the Ministl:y of the Envirornnent, Sin:Japore, for hostin:J the meetin:J ani, in particular, to its staff nembers who provided excellent assistance and cooperation in ensurin:J the success of the meetin:J.
... ,..
- 21 ANNEX 1
LIST OF MEMBERS, OBSERVERS AND SECRE:I2\RIAT
Meute!"" 1. Dr Harley Wright
Designation azx:l J\ddress Manager
<l1emical , Wastes Division state Pollution Corrt:rol O"mn; ssion of New South Wales 157 Liverpool street G.P.O. Box 4036 Sydney 2001
AUstralia 2.
i)ltin Siti Hajar
~
Hj Yussof Assistant Director of Medical , Health Services (Fhallnaoeutical Services) Mini.st:ry of Health Barrla r seri !3Egawan Brunei Dmlssalam I
3.
Dr Qin Yuhui
Associate Professor/Dep.rty Director Institute of Environmental Health Monitorirg Chinese Academy of Preventive Medicine 29 Nan Wei Road Beijing
People's Republic of China 4•
Mr I.llo Bin:r.j\D'l
vice Director ihe Office for Toxic Chemicals
ofNEPA Chinese Research 1Icademy of Envirornrental Sciences (CRAE'S) Beiyuan Beijim People's Republic of China 5. Dr R.N. D.IVe
Principal Research Officer (Cllemi.stl:y) Koronivia Plasearch station Box 77, Nausori Fiji Progranme Coordinator Guam Env:ironmerrt:al
6.
Mr Francis
Dam; an*
Protection
ooam
P.O. Box 2999
hJercY
Guam 96910
*
Invited J:ut was unable to attend
- 22 -
7.
Mr John M. Nash
Senior Environmental Protection Officer waste control Group EnvuOllIDelltdl Protection IJepartlDent
Hon:J Kon;J
GoVerrnnent
28/F Southern Centxe 130 Hennessy Road
warrl!ai 8.
Hon:J Kon;J Dep.Ity Director Division of Water QJality Control IJepartlDent of Water QJality Management, Environment Agency 1-2-2, Kasumigaseki
Mr Takashi Hayase
~100
Japan 9.
Mrs Rosnani ]]:)rahim
Assistant Principal Director DepartJnent of Environment 13th Floor wisma Sime Darby
Jalan Raja !aut 50662 }(\l"l a Ilmp.!r
Malaysia 10. Mr Lyall Mortimer
Principal Health Protection Officer IJepartlDent of Health P.O. Box 5013 Wellirgton New Zealan::l Pollution control Spec; a] ist Envirornnenta1 Management 8Jreau
11.
Ms
Marissa V. !:avid
6th Floor, me arlldin:J East Avenue, Dililnan
Quezon city BliliWines Representatives/Observers 1. Mr !:avid M. 'Ihorup
Dep.Ity Regional Representative United Nations Develc:pment PLogLanma (UNDP)
wisma U.N. Block C, Ka!plek Pejabat Damansara, Jalan 1:mJ:]un, Damansara Heights, 50490 19.Ia1a Ilmp.!r
Malaysia
- 23/24 -
2.
Professor P.J. Peterson
Director
lblit:orin:J
ani AssesS'Y'nt Research Centre (MARC) 'lhe Old Coadl House C"'anpien Hill Iprrlon W8 7M)
unite::! Kinpan 3. Dr Foo SWee Olen;
Senior Lecturer Department of Ccmrllnity, Occupational ani Family Medicine National university of S~re 10 Kent Ridge Crescent sirmpn~ 0511 ~lic of Sin;Japore
Bffrr"f'tgriat 1.
Dr Paul Guo Dr K.W. Bentley Dr H. Ogawa Mt" Rhoo Chin Hean*
1\ctin;J Director, PEPAS ~cal
2. 3. 4.
Safety Adviser, PEPAS
Environmental systems Ergineer, PEPAS
woo
TeapoLCU:Y Adviser
5.
Dr J.T. Jones
Regional Officer for Prevention of Accidents, WOO Regional Office for Europe, Copenhagen WOO Headquarters, International P1:cyxanma on Olemical Safety WOO Consultant Administrative Officer, PEPAS Administrative Officer, WHO sin;Japore Special Assistant, PEPAS
6. 7. 8. 9.
Dr Jcim Haines Mt" Peter Yates** Mt" S. P. Sardana Mt" S. Cbida Ms Tan Yit May Ms Elaine Ng
~
10. 11.
Administrative Assistant WOO, RUala l.unp.Ir
* **
Head, POllution Centrol Department, Ministry of the Envirornnent, S~re
Cbief - ~ Sydney, Olemical ani wastes Division, state POllution control Camtission of New South Wales, Sydney, Australia
r
- 25 -
ANNEX 2
A. OPENIN:; AIXRESS BY 1HE WfI) REmESmrATIVE ctl BmAIP OF 1HE RmI~ DIREx::TI>J> ...l1 .... QRlD
Cl'l behalf of Dr S.T. Han, Regic:nal Director of the WfI) Regic:nal Office for ~ Western Pacific Regioo, I have pleasure in weloc:min] yen to this woIidJ'J;J groop on the plaJ'IJ'Iin;J for d!emical eDergeI'lCies.
Cllemicals are increasin;ly a part of daily life. 'nleir inp::>rtance in in:iustri.al. an:i agricultural develqment in the natic:nal econanies of the Member states of the Region cannot be urXIerest:iJnat.ed. '!he use of chemicals is critical in preventin; an:i controUin; the incidence of infectioos an:i vector-borne disease, in :in::reasin; agricultural projuctivity an:i in the storage an:i presel:Vation of food. '1he global production level was two or three million kilo;JLCliliS in the late 1930s. Now, after an al.nost ~ increase in bath voltnne and diversity, the several hurxhed of million 'ki1CX:JLams of sane 60 000 to 70 000 distinct chemical products are marufacb.u:ed ea.dl year.
-
fllblic concern about the pat:.entia.l inpact of accidental releases of hazardous materials an:i the urgent need to establish safe hanllin; practices has been heightened by a nuni:ler of recent major chemical accidents. '1hese include the release of toxic 2, 3, 7, 8 tetrachlorrrlibenzo-p-dioxin into the a~ frail a factory In Seveso, Italy, in July 1976; the release of toxic methyl :isocyanate at Bhopal, Irxli.a., in December 1984, which killed lIDre than 2 500 peq:lle; the release of radioactive substances fran the nuclear reactor at <lleznc:lbyl, USSR, in April 1986, with the spread of radiation far am wide; an:i the discharge of toxic chemicals into the Rhine fran factories in Switzerlan:l., in November 1986. WfI) is very It1.1ch concerned about these risks to health am is therefore very actively involved in providin; orientation on chemical safety and planning for chemical ~ies. '!he Regional Workshop on Cllemical Safety held in NoverIi'Jer 1986 concluded that emergency response was one of the priority areas req.ti.rin; attention. It reoat'IIIeI'ded that national contingency plans for dealin; with chemical E!IImgencies and their possible effects on human health an:l. the environment shoold be develcped. SUch plannirKJ can greatly ra;luce the mntler an:l. inpact of dlemical accidents. '!hey can increase attention to on-site .irxiust:ri.al safety practices an:l. increase plblic awareness, particularly aTOOI'¥J those livinJ in close proximity to hazanloos installations.
... ,..
Not all chemical emeJ:genCies have the spectacular features of the Alt:lloogh statistics are frequently inadequate an:l. in sane situations al.nost non-existent, evidence clearly inticates that globally the majority of injuries am deaths arise from small emeJ:genCies in dlemical manufa~ operations and transport accidents which often involve less than 100 exposed intividuals • Bhopal and ChernciJyI incidents.
- 26 -
'!he safe production and ~ of ~calS are o~ ~, ~y, as a prOOlem solely of highly irxlustrialued coont:rtes. W~th the grtlWJn:J international trade in chelnicals and the recent industrialization of many OOU!1tries there is an ever-in;reasirg production of dlemicals throoghout the 'w'Orld: often withoot adequate kncMledge of their poss~le ~ effects on human health and the enviroruDent. '!he prevention of detrimental effects IIIlSt be regarded as absolutely essential for safe and sustained econanic develqment.. '!he prOOlems of controllirg chemicals are particularly serioos in develcpirg OOU!1tries where skilled IDaJIPCliier is l.acJdn;J. National lalNS and regulations are generally inadequate to CQ'ltrol the l'IIaJ'Alfacture, inportation, :registration, labellirg, packagirg, ~, transport, storage, treatment and disposal of dlemicals. 'lhJJs there is an urgent need to develcp prograIimes for their safe and SClI.IOO management, both in planning for emeJ:geIlCy situations and in day-~y operations. '!he lack of planning strategies for dlemical emergercies as part of a SClI.IOO c::arprehensive prcgranme for chemical control remains one of the ~ dIallerqes in many Mentler states of the Re;Jion. Your efforts in guidilY;J us to pnllOJte the developnent of this i.np:>rtant work will be extremely valuable.
I wish ~ every success in ~ 1IIE!etil'q and look forwatd I!Ud1 needed contrlbItions and U:OA'doe:njations. B. SPEEXlI BY [R AHMAD MATmR
to your
MINISTER FOR '!HE ENVIIalMENl' MINISTRY OF '!HE ENVIIalMENl', S:rnG1IroRE
Rapid tec:tmological advances aver: the last ffiM decades have led to Cd1 a wide ran::Je of dlemicals. carrespon::ti.nly, the ran::Je of hazards these dlemicals present have also
i=reased use and dependency
i=reased.
sane one to two thoosan:i new c:hemicals enter the IDillXet eadJ. year. 'lhi.s imrease in the types of chemicals used is often not matched by an adequate kncMledge and expertise to safely manage the hazards they present in many ooontries. '!he US National Research Council's sw:vey shoI.ied that only 10-20% of the 65 725 dlemicals in (11[1 .. on use today have oarplete health hazard evaluations. 'Ihese do not iIx::l.ude imustrial accidents whose mass disaster effects were often leamed only ~ real life situations. As a result, the consequences of irxhlstrial accidents involvirg such dlemicals have been dire and tragic accidents continue to ha!;pen in spite of repeated wamirgs and alar!lS raised by the cautioos environmerrt:alists. Accidents such as these that ~ in B1cpal, Mexico City and Switzerland hold several lessons for the rest of us. '!he leak fran a pesticide factory in B1cpal released toxic gases that killed IIDre than 2500 pecple ani injured 200 000 more. Mexico City's disaster involvirg flanwnable gases killed a thoosan:i pecple, leavirg thcK.Jsanjs !IDre homeless. '!be River Rhine received the bnmt of the wareho.Ise fires in Switzerlani,
-.
-
- 27 -
killin:] most of its marine life ani threat.enirq the dr:inkirY;r water supplies of West Germany ani the Netherlands. Nothin;J can cxupmsate f= such loss of life ani prqlerty ani serialS envitOlulielltal damage. Although these disasters involved different types of dlemicals ani hazards, all point to the need to site such installations lMa'f fran densely pq:W.ated areas ani inportant water resources as well as the need f= an established ani worJd.Iq emergency plan. For many of us, Slopal. ani Mexico City are far away places ani we tend to cx:mfort ourselves that such acx::idents will not ~ in our own backyard. M:Ist: peeple in iniustry will also assure us that iIdustria.l plants are after all designed ani maintained in acoordaooe with high imustrial safety stamards. Nevertheless, other factors are of equal iItpntance in prevent:in;J iIdustria.l acx::idents. very rE!I!Dte. '!his does not mean that acx::idents will not oocur. 'n!rcugh scientific, tec:.iloological ani E!IJ3ineerin:J advances the risk of an acx::ident occurrin:] can be reduced. '!he unfortunate reality is that such
c:x::c:uzrin:J
A plant may be well designed ani the prOOability of an acx::ident
risks, however m:inboal, renain ani the hazards posed can never be totally eliminated. Experierx:e in many oamtries showed \:hat acx::; dents do not oocur due to poor design = inadequate safety measures. M:Ist: investigations conclude that acx::idents were often due to lruman errors either durin;J operation, in maintenance ani even in respalSE! to emerg:en:::ies arisin:] art: of an in:1ustrial acx::ident. '!he man at the groon:l., who lII.ISt not only kn<:lw his job well, but also be vigilant at all times, is a key factor. Increasin:]ly, ani irarlcally, the dlemical risk has grown collcanitantly with the quest for IOOre dlemi.cal safety. '!he developin:] countries, like ScA.rt:heast Asia, latin America, Africa, have all shown significant growth in production facilities of in:1ustrial ani other dlemicals, while seminar growth in develcpn coontries has slCMed down. '!he levels of un:1erstandin:J of the hazards posed by these dlemicals CIl1Pn:J the operators ani the general plblic are not high in these developin:] countries. In many of these places, the plant personnel are not provided with the fUll information of the product ani techrx>logy they hanile. '!he dan:Jer is tlrus even greater. Havin;J acx:epted that sane acx::idents cannot be totally prevented, we need to draw clear guidelines ani emergency plans f= potential imustrial acx::idents. We also need Iesponsible, matured ani well-infomed people to be in dIarge at all levels. Systematic procedures that help ensure plblic safety lII.ISt be strictly follCMed. PUblic education ani awareness are also :important ani shcW.d be included as an item in arrj emergency plan to jnprave c:cmm.mity awareness. '!he extent of loss ani damage depems to a large extent on the preparedness of the pec¢e involved ani the cammmity aroun:l such facilities. '!he best of cxoulLrols do not help if such installations are poorly sited. Next to densely pcp.llated areas, plblic exposure is great ani the critical time requiIed to lII.ISter an emergency response in an acx::ident becanes even shorter. '!his calls f= joint action by both goverranent ani
- 28 -
ilxb..IstIy to cooperate am stren;Jthen national capability am ensure that public safety is not oc:upranised. Risks an:i hazards IIllSt be taken into aClOaD'lt in the initial decision of sit.in;J the dlemical plants. ~ency plans shcAlld be tested regularly an:i inpxtant rescue :resoorces shcAlld be readily available in the event of an acx:;c!ent.
'!he consequences of in:lustrial acx:idents may not be confined within national bcA.lnlal:y. '!he Basel in:lustrial fire in switzerlan:i clearly deDalstrated this international link. Neighba.Jr:in:J nations will need to cooperate with one another in emergency plannin; for acx:iclents in ha.zarcloos facilities located within their territories by sharin;J information, technologies and eq.ri.poent. In S:in:Japore, risk an:i hazard assessments of new in:lustries are carried out at the plaIlllin} stage. At this point in time, before even en;ineer:in:J plans an:i ~ are ready, studies 'oII:W.d be con::lucted to establish suitable sites for such installations. 'lhroogh judicious plannin;J and the establishment of suitable I:Alffer zones VIe try to reduce as IIIlCh as possible public exposure to the hazards of itx:1ustri.al. installations. At the same time, the ilxb..IstIy is required to inco~rate in its design all available safety measw:es to reduce and mitigate the risk of an accident occurr:in:J.
Positive t.rems am develq;:ments in irdustrial safety an:i dlemical emargencies have been seen followiIx] several major disasters in recent years. '!he various progLallutes of the UN agencies have been very useful in provi.dirg guidance and assistan::e to national enviromental ~ies in draw:in:J up chemical emergency response plans. 'lhese included the information available fran the data files of the International Register of ~ially Toxic Chemicals, the infOIlDdtion disseminated through the International P1:ogLalllle on Chemical safety, and the world Bank Guidelines for the Assessment of lfazardoos Installations. '!he Regional Centre for the Praocltion of Environmental PlaIlllin} and Applied studies has also organized a series of ~rkshops and seminars on related subjects like c:hemicals and ha.zarcloos substances, environmental :i:qlact assessments, etc. to enhance the awareness level of professionals in this Legion. 'lhis Workin;J Groop I s LeCC.'IlIlIen:ltions 'oII:W.d fonn an inportant inpIt in the chemical emergency plans of coontries in the Legion. SUCh preparation 'NOOld lead to a better urx:lerstand:in of the hazards an:i thus to IlOL'e preventive action. 'Ihrough d; s"1ssions, neetings and catferenoes, it is lqled that future acx:idents can be prevented through greater awareness an:i if not, loss can be minim; zed. through better preparedness. Only then can VIe convince ourselves that all the rapid technological advances made V/ere to saLVe
mankind. On this note, I 'oII:W.d like to declare this ~ of the Workin;J Groop on PlaIlllin} for Chemical Emergencies qJell and I wish you a fruitful
me.etin:.J •
-
- 29 ANNEX 3
... Morxlay. 10 April 1989 Introduction of participants by Dr K. Bentley, O1emical Safety AdviserjPEPAS 1ldm:inistrative briefim Election of officers klq:ltion of provisional agenda 1\genda Item No.
0830 - 0845
1 2 3 4 5
...
0845 - 0900 0900 - 0915 0915 - 0930 0930 - 1015
-
Inaugural session Address by WHO Representative for Brunei Drrussalam, Malaysia am sinJapore on behalf of Dr S.T. Han, Regional Director, WHO Regional Office for the Western Pacific ClpeJ'Iin;J address by Dr Ahmad Mattar, Minister, Ministry of the Environment, SinJapore
1015 - 1045
Reception Group photogrnph
-
1045 - 1100 1100 - 1130 1130 - 1155
An overview of WHO chemical safety pLLqLdIlllll3S
-
6 7
Dr J.
Haines,
WHOIHQ
International coc:peration in c:xntrol of
...
chemical E!!IIla'geJ'lCies Dr J.T. Jones, WHOjElffiO
1155 - 1215
An overview of WHO chemical safety activities in the Western Pacific Dr K. Bentley, O1emical Safety Adviser, PEPAS
8
-
1215 - 1345 1345 - 1515
Illnch camtJ:y reports - AUstralia (~01) (~-o02)
9
- Brunei 03russaJam - chlna (CR-003) 1515 - 1530 1530 - 1700
Break camtJ:y reports - Fiji (CR-004) - ~ (CR-D05) - Hon:3' Kon:J (CR-006) 9 (Contd)
- 30 -
1\gerDa
Item No. TUes9ay. 11 April 1989
0830 - 1000
coontl:y
reports - Japan (CR-007) - Malaysia (CR-D08) - New zealard (CR-009)
9 (COntd)
-
1000 - 1015 1015 - 1145
Break Country reports - Rlilippines (CR-D10) - S:in:Ja.pme (CR-011) SulIIIIal:y of CCI\ll'ltIy
9 (Contd)
1145 - 1215
reports
9 (Contd)
-
Dr H. PEPAS
Ogawa, Environmental Systems En;Jineer,
1215 - 1315 1315 - 1415
l1.U1Ch
WOO;mro pl:CXJlOdlMle for the manageII'Sllt of chemical eme:tgencies - Dr J.T. Jones, WOO;mro Emergency plannin;J guidelines for chemical incidents in Australia - Mr P. Yates, WOO Consultant
10
1415 - 1515
11
1515 - 1530 1530 - 1615
Break '!he role of Poison control Centres in chemical emergencies - Dr J. Haines, WOOfH2 'Ihe MARC P:tO:Jl:diIUle - Prof. P.J. Peterson, Director, Monitorin;J ard Assessment Research Cent:te (MARC), University of IDn::lon 12 I I
1615 - 1700
13
I
J
I
Wednesday. 12 April 1989 0830 - 0900
P:tesentation on case studies for chemical accident control - Mr Khoo Chin Hean, Head, Pollution control Department, Minist:ty of the Environment, Sirgapore Develcptent of infonnation systens, hazard napping ard canmunity participation - Dr J.T. Jones, WfDjEIJro
14
0900 - 1015
15
-
1015 - 1030
Break
-
.... - 31 -
l\gema
Item No. 1030 - 1115
.... 1115 - 1215
OJrrmmication in the management of dlemical emergen:::ies Dr H. Ogawa, Envizonmeutal systems Engineer, PEPAS
16
-
A regional case study in c:ont:iD;Jen::: plan
17
-
... 1215 - 1315 1315 - 1430
developnent Dr K. Bentley, OJemical safety Adviser/PEPAS ani Mr Jalal\rl:lin T5IMi 1, Department of Environment, Malaysia
IJJnch
... 1430 - 1515 1515 - 1530 1530 - 1630
-
Post-incident review incidents
prcxMlI"es
for dlemical
18
Mr P. Yates, WHO Consultant
Chemical incidents dur:in;J transportation Mr P. Yates, WfD Consultant Break
19
Emergency response system at the local ( CCIIIlUJlity) level - the APELL pl:cx:es5 - Dr J.T. Jones, WfDjEXJl10
20
1630 - 1700
Review of topics for group discussions - Dr K. Bentley, <llemical Safety MviserjPEPAS
21
Thursday. 13 April 1989 0830 - 1215 Gra.lp disOlssions
Grgup I:
strategies to assure c:ont:iD;Jen::: plannin;J for dlemical emergencies includi.IxJ legislation, institution, guidelines develcpoent
21 (Contd)
..... Participation: Brunei Darussalam, New Zealani*, Malaysia+, Fiji : Dr K. Bentley, Cllemical safety Mviser, PEPAS Mr Rhoo Orin Hean, Head, Pollution COntrol Department, Ministty of the Environment, Sin:Japore
... * Disc!]ssion leadersjm:Jderators
+ R.aworteurs
.
- 32 -
l\genda
Item No. Group II:
Infonnation ani
trainin1:
~lic
awareness
21 (Contd)
Participation: Australia+, China, Fhilippines* SUpport : Dr J.T. Jones, WlDjEIJro Dr H. OgaWa, EnviJ:a'noontal. Systems
•
E:n:3ineer, Group III:
PEPM>
Monitorin;!' ani evaluation of pro:Jxanmes to ensure chemical safety: - Developnent of in:ticators: ani - Post-in::ident ~ Participation: Japan, China*, S:iIgapoLe+ Han:] Kon;J
21 (COntd)
SUpport
: Mr P. Yates, WIIJ consultant Dr J. Haines, IPCS, WlDjHQ
1215 - 1315 1315 - 1515 1515 - 1530 1530 - 1700 Draft reports of group discussi.ons
PLesentationjdisOIssion ani formulation of re< , '!I,erdations
22
-
Friday, 14 April 1989 0800 - 1215 1215 - 1315 1315 - 1515 1515 - 1530 1530 - 1600 1600 - 1630
Field visit to J?et.roohemi.cal of Singapore
Co~ration
Final di sCllssions ani review of draft report
23
-
1\doption of
recx:alil....ldations
24
Closin;!' xemarks
+ Rapporteurs
* DLC:OIssi.on
leadersjIooderators
-
-
- 33 -
ANNEX 4
LIST OF WJRKING PAPERS, ~CIQ:;ROOND IXlCllMENTS AND AOOITIONAL REFERENCE MATERIAlS
An overview of WfD d!emical safety progranulES.
By Dr J. Haines
Intemational cooperation in oontrol of chemical emergencies. By J.T. Jones
An overview of WfI) dlemical safety activities By Dr K. Bentley WfDjEORO progranune
in the Western Pacific.
for the management of chemical emergencies.
By Dr J.T. Jones
Emergerx:y plann:in] guidelines for chemical incidents in Australia. By Mr P. Yates
...
'!he role of Poison Control By Dr J. Haines
centres in chemical emergencies.
Develcpnent of information systems, hazard mcq::pin] am CXIIIlIlIlity participation. By Dr J.T. Jones
...
CcmTunication in the management of chemical emergencies. By Dr H. Ogawa
A regional case study in contin;Jency plan developnent. By Dr K. Bentley am Mr Jalaluddin Isnail Post-incident review prcceim:es for d1emical incidents. By Mr P. Yates
Chemical incidents durin] transportation.
By Mr P. Yates
Emergerx:y response system at the local (cxmmmity) level - the APEIL prcoess. By Dr J. T. Jones
CR.-OOl CR-002 CR-003
Australia. Brunei. By
By Dr Harley Wright
Oitin Siti Hajar FOI<SS Hj Yussof
China. Fiji. Guam. Hc:II'q
By Dr
Qin Yuhui ani Mr IlIo BiD;r.jun
CR.-o04
By Dr R.N. Dlve By Mr Francis
...
CR.-o05 CR-006
Deunian
I<'on:J.
By Mr John M. Nash
.
. - 34 CR-007 CR-008
Japan.
By Mr
Takashi Hayase Rcsnani Ibrahim
Malaysia. New
By Mrs
CR-009 CR-olO CR-oll
Zea1am.
By Mr
I¥all M:>rtimer
Ihll~ines.
By Ms Marissa V. LUvid By Mr I<hoo
sinTcq:lore.
Olin Hean
Mditional reference materials 1.
Silane, V. Evaluation of public health hazards associated with dlemical a=idents. Mexico City: Pan-American centre for Iruman Ecology
am
Health, 1987.
2.
PreVention of arute dlemical IX>isonirgs: high risk circumstances. Copenhagen: WID Regional Office for Em'ope, 1987 (Environmental Health Series, No. 28). United NatiOl'lS Environment P1:OYLdI'I'oe~ APEIL: Awareness am prepaLedness for emergencies at local level. A process for respon:ling to technological a=idents. Paris: UNEP IndustLy am EnviLormmt Office, 1988. Australia. National Ocx:upational Health am Safety o:mnission. Australian stamard for hazardous material in::ident reportin:J. Proposal for a mi.niILum data set. canbeLra, 1987. S\oleden.
3.
4.
5. 6.
Coonb:y Cruncil of stockholm.
Emergency plan for chemical
a=idents. Australia. National Disasters Organization, Department of Defence. Toxic chemical in::idents. Prc;o>edirv;JS of a symposium held at the Australian Ccmrt:er Disasters College, 5-9 October 1987. Australia. state R:lllution control CoLgn; ssian, Sydney. in::idents pLocehrres harDbook. Sydney, 1988. Chemical
7. 8.
United states. National Response Team of the National oil am Hazaz:daJs SUbstances Contin;Jen::y Plan. Hazaz:daJs materials emergency planning guide. washin:Jton, D.C., 1987. National Response Team of the National oil am Hazaz:daJs COnt~ency Plan. Criteria for review of hazardous materials. Emergency plan. washin;Jton, D.C., 1988. United states. World Health Organization Regional Office for Em'ope. Chemical a=idents. Report of a joint EXJmjHQ ~ of assessors. Huopio, Finland, 22-24 February 1988. Copenhagen, 1988. World Health Organization Regional Office for Em'ope. Rehabilitation following dlemical a=idents: A guide for public officials. Copenhagen, 1989.
9.
10.
11.
-
- 35/36 -
12. 13.
Hambook for the Transport of Hazartb.Is SUbst:aIres on Land. Association of New Zealand, MP 200:1988.
st:arxl.ards
Safe Management of PCBs. Code of Practice, 2ni Fdition. PCBs Core Group Hazartb.Is wastes Task Group, December 1988, Department of Health, Wel1:in;Jton, New Zealand.
14.
Iwstralia.
HazarclcAls Industry Planning J\dvisxy Paper No. l. Irxiust:l:y Emergency Planning Guidelines. Department of Environment and Planning, Sydrriq, 1988.
15.
Iwstralia. Protect:in:J the Environment fl:an <hemicals. 'nle Envirarunentally Hazartb.Is <hemicals Act, 1985. state Pollution Control CUllldssion, Sydrriq, Iwstralia •
...
- 37 ANNEX 5 SUMMARIES OFaxJNI'RY REroRlS
1.
Australia
Dr Wright gave a detailed ov&view of the situation in Australia stressin;J that while its per capita usage of d1ani.cals was very high, the coorrt:J:y had a relatively small chemical in:iustry crnpared with most deve1q;led camtries. He desc:ribed the relevant governmental. ani legislative structures UOOer which each state had deve1q;led its own prog.r:amme. He further ~ized that plarminJ for chemical emergencies was fairly advaooed within the three tier government stnlcture ani that the states were the main centre of CXJjluol, the varioos states havin;J flexible response capability UOOer the overall framework of Australia-wide ~ Goods Codes. He ~ on to relate the provisions made by the Australian Cllemical In:lustJ:y ca.mcil (Acre), the peak in:iustry body, with regard to an eurargency response plarmin] marual ani the availability of a 24-hoor advice 'hotline'. H:::1.Iever, overall CXJjILrol laid with strict transport codification (the Australian Code for the Transport of ~ Goods by Road & Rail) ani the front-line, first response, role of the Fire Brigade ani Police. Dr wright described the prav.}sions of a Datad1em S&Vice operatin;J ~ the Fire Brigade. lldditionally, the state of new South Wales had produced a Cllemical Incidents Procedures Handbook to streamline the functions ani responsibilities of the several agencies ani organizations involved in dealirg with chemical emergencies. Dr Wright identified the followin;J issues:
"Cradle-to-grave" managenent of d1ani.cals. Local c:ontin;ency plans to prCiiDte better preparedness.
un:ierstan:iin:
ani
-.
Education, ~ publications, videos, ani trainin;r courses for both the public ani the varioos authorities ani chemical iIxlustries involved. Inplementation of d1emical identification requirements. statistical data base provision. catdJment (water supply) integrity. DisolSSion included the difficulty of provision of subjudice information on d1ani.cal spills, the restriction of transport through critical catchments, the inclusion of radioactive substances UOOer the ~ Goods Code ani the provisions in the Code for mixed (quantities) d1emicals • 2.
..
Brunei P!nlSSa'am
ihe speaker observed that Brunei's situation had many paralle1S with that of Fiji. ihe relative population density was very small with total population amountin;J to only 250 000. Control of chemicals was fairly
- 38 -
centralized by the Mini.stzy of Health urxler the Director of Medical ani Health Services, who acted as a poisons licensin3 offioer. Pollution IXilILLol ani environmerrt:al iss1ffi TNere sanewhat fLagilellt:ed ani were administered thrrugh a rn.miJer of ministries. However, one major concern was the control of pesticides. No pesticide regulations TNere currently available bIt draft:in:J of a Pesticides Act was r.iel.l advanced urrler the auspices of the Mini.stzy of h;Jriculture. Residues were examinecl/tested by the Mini.stzy of 1\griculture. Transport of chemicals ani dan;Jeroos goods was IXilILrolled via international guidelines sudl as the International Civil Aviation Cede & Guidelines. oil storage facilities relied on private sector safety guidelines rather than govemmental. ones. Transport of dargera.IS goods by lani was relatively unregulated ani there was a need for sane suitable guidelines. Several other areas of dlemi.cal safety ani IXilILLol had been identified as bein:J required. 'nIese TNere as follows: lDq:lrol/'ement of
existin3"
regulations ani control measures. re.I
IlIplementation ani fanJUlation of upgradj.nJjcreation of laboratory, facilities.
legislation. ani quality control
t:.est.in3
Appointment of =nsultants to assist in the above schemes. Fornulation of public education packages to i.ncrease awareness. Developnent of sdlemes for management of chemical wastes.
Fornulation of a chemical emergerx::y plan (based on the existin3 overall disaster plan) • 'Ibis plan sbruld be part of the fraInework of the overall plan, bIt contain specific provisions for dlemi.cal emergencies. 3.
China
'llle dlemi.cal in:iustry in China had developed rapidly ani the number of related incidents had :i.nc::reased prqxn:tionally. 'llle state Camcil of China enacted regulations for the control of chemicals in 1987. 'Ibis legislation provided for the management of dargera.IS chemicals durin3 their lDiilUIfacture, use, storage, sale ani transportation. '!he Mini.stzy of Cbemical In:iust:ries had pza1Illgated a series of regulations for ocolpdtional ani environmental health, incl\ll:iin3 regulation for iIxiustrial hygiene ani prevention of OCOlpdtianal diseases; regulation for safety ani health in chemical iIxiustries; management for prevention ani treatment of ocolpdtianal poisonil'xJ; ani management of Jronitorin3 of haz~ factors in the IOOrkplace in dlemical iIxiustries. 'Ihese regulations TNere still not ~ive ani greater efforts will be made to enhaooe the chemical safety ptCXJLCUIDeS in China.
'lhere is at present no national P%Q3Ldll1lDE! to cope with chemical emergencies althl::u:lh the GoveLTIment plans to establish a system for chemical emergerx::y Lesponse in the future. '!he major '" "i onents are develq:ment of data bases for toxic dlemi.cals, poisanin3 a=idents, ani experts ani response systems for toxic chemical emergencies.
- 39 -
'!he paper also gave details on China's legislative infrastructure ani
ecananics incll.Kiin1: statistics on chemical accidents. other periIiJeral legislation on the regulation ani COIluol of dan;JerooS chemicals. Transport of dan;JerooS goods. Besponsiliility of varicus gove.rrment:al agencies.
At the national level, the system of report:inJ of chemical in:::idents involves (a) the EnVironmental Protection 9Jreau (E.P.B.); (b) the MinistIy of Public Health; ani (c) the MinistIy of TabaJr. FUture projects ani requirements may in:::lude the foll~:
Defini.rJ;J prcblems in management of chemicals. ~
of pertinent laws ani regulations.
Coordination of response - evaluat.iIq ani :iJJprovin;J the pr:sellt
system. Awareness - in:::reas:i.n; general ani sPecific awareness of chemical safety.
Provision of COIluol centres, infonnation centres an3,/or Poison Centres. PEPAS collaboration may be requested in clevelcpoent of legal ani institutional controls; provision of technical c:oc:p!ratiOl1/experience; preparation of guidelines ani safety marruals; ani trainin:]/education.
'!he economy of the =try is based on primaJ:y industries, particularly the ~ in:lustry. No large scale chemical in:lustry exists in the =try, but a wide ran::Je of chemicals are inp::>rt.ed ani used in varicus :iniustrial sectors. Particular note was made of cyanide use in gold lIIiniD:J ani of pesticides ani other agrodIemicals. Institutionally, no s:i.n;le statutory authority had been assigned to deal with the control of chemicals in the =try. As a cansequence, there was no fonnal chemical emeJ:geI1Cy :t:esponse ptOj:t:dlwe in Fiji. other factors of relevance in the case of Fiji we:t:e: Exports - many use chemicals in production sequence, eg, gold.
C11emicals used on inp::>rts. Prima:t:y produce - food, agrochemicals, all required the use of chemicals. Emergency preparedness is SClDeWhat lackin;J although the relevant agencies ani govemmental stxucture for deal:i.n; with emergencies were in place. '!his required coonli.nat:i.n; in tenns of chemical eme:rgency respcnse.
.. - 40 -
..
Main problem areas TNere identified as iIxhlstrial chemicals (e.g. cyanide used in gold minin;J imustry) and tini?er treatment preservatives; and pesticides used in agricultural. activities. Dr D.lve stressed that Fiji was at ptOcscnt
.
not prepared for chemical
emergencies • Discussion involved the follCJWirr;J main areas: 'Ihe CXIUntJ:y needs to advise WHJ what it needs so that WHJ can help
foDllllate a suitable ptOcxp:auma. Envirormlental iIDpact assessments (EIAs) usin;J New Zealand guidelines were now oan:mcted by the TahaJr Ministry on major hazardaJs installations. Use of chemicals in agriculture, the time scales between spray and use of crop (the withholdin;J periods) TNere critical - was any data
. 5.
available on doses and
tilni.n:1
of agrochemicals.
Guam (REpn: t suJ::.mi.tted, J::u:t:
not presented)
Pecal1se of the te=itorial relationship with the United states, the U.S. Federal laws and regulations TNere awlicable in Guam. 'Ihe major legislation on chemical emergency plannin:J was Title III of the SUperfun:J. Amen:hnents and Reauthorizatian Act (SARA) of 1986, involvin;J four main (X
"'loooents: emergency plarmin;n emeJ:gE!I'X:y notificatian; to-krnI report:iIJ;J; and toxic chemical release report:inJ.
(XlI'IIl!nity
rlght-
In :response to the requirements of SARA, Guam had prepared a draft hazardous materials emergency operations plan which outlined policies and ptOOCOOnres for chemical emeJ:gE!I'X:y preparedness, :response and ret:XNerY. In the plan, the responsibilities of each aqercy involved (e.g. Fire
..
Deparbnent, Police Deparbnent, Emergency SerVices Office/Civil Defense Office and Envirormlental Protection 1\gelq) TNere clearly specified . 6.
Hom Kom
No formalized chemical emergency:response prCXjLauma was in place in the Territory of Hong Kcrl1, althcugh general emeJ:gE!I'X:y preparedness was
quite satisfactory. 'Ihe main legislation and government.al. structures for dealin;J with chemical emergencies TNere described and the iltpJrtance of correct disposal of residues was stressed. Control of the initial incident was normally by the Fire Services Deparbnent and Police. A rrumber of ordinances related to the use and control of chemicals. 'Ihe main ones dealin;J with chemical waste managBlliil1t amjor emergencies in the Territory :iJx:luded the Dal'J3"ElL'OOS Goods ordinance and the waste Disposal Ordinance. A mnnber of govenunent agencies uOOertook plarmin;J for chemical emergencies. 'Ihe initial response to serioos incidents was nonnally carried cut by the civil emergency services (fire, police, ambulance). Details of current and future arrangement:s for co-di sposal and treatment/destruction of chemical wastes TNere given. Details concerning the potential hazards of landfill gas in the Territory TNere also given .
.
- 41 -
Response to chanical indclents an:l. emet:gendes in Hong Korg was generally rapid an:l. involved close cooperation betw'een various authorities. However, the Government may consider estahlishin;J a liaison officer or coordination unit sha.Ild the need arise.
Disalssion centred mainly on the various aspects of hazarclcus waste di.sp:lsal an:l. its oontrol. 7. ~
Mr Takashi gave backgra.u:d infonnation regard:in;J environmental problems in the 19608 an:l. 19708 due to industrial expansion. since then, water pollution <XIIPli.an::e had bJprcved oonsiderably particularly with regard to metals. A total of 431 cases of acx::idental pollution had been reported since 1971, resultin;J fran various causes (human error in aba.It 30% of these cases). Over 70% of acx::iclents involved leakage of chemicals, resultin;J in inpacts such as fish kills. Mr Takashi described other statistical details on chanical incidents an:l. indicated that ~lic concern ~ to be on the increase in Japan. '!his had resulted in a desire to improve risk evaluation tedlniques an:l. review the exi.stiJx:J legislation. Mr Takashi went on to review a case 9f sodium cyanide leakage (500 litres) caused by faulty valves in a chemical plant. 'lbe leakage affected a river (Samane River) which provided dr:inlcirg water to one million people. Water treatment an:l. SUWly had to be suspeOOed. Mr Takashi reviewed the relevant legislation an:l. explained the division of respollsibilities an:l. inplementation of regulations incllldi.rxJ those cover:in:J emergency response. '!he main laws involved ~:
Fire Services raw Poisonous & Deleterious SUbstances raw Air Pollution Control raw High-pressure Gas Control law Petrochemical CclTplex - Disaster Prevention law In the case of the Disaster Prevention raw, each Japanese prefecture had a headquarters which prepared plans, etc. to deal with disasters in its
awn area.
Mr Takashi made the follCJWin]
clos:in:J dJservations:
lIc:ute an:l. low level chemical exposure measures
~ required. Coordination of respollSE! was a major requirement. Exdlan:Je of information was essential to iIIprove starnards. Private sector involvement with accident :response was good.
0Jr:in:J the disQlssion on this country report, it was suggested that leaks ~ sanetimes deliberately contrived to get rid of toxic chemicals. It was also noted that a majority of chemical accidents occurred dur:in:J transport. It was noted that dJronic lCInJ-term pollution of the env:iranment was an ilIp:)rtant factor requir:in:J i.n::reased oonsideration.
- 42 -
8.
Malaysia
'nle situation in Malaysia was reviewed ani the speaker described briefly the eoonany ani infrastructure of the CCJUnt:J:y. It was observed that there are over 5000 in:iustrial san:ces of pollution in Malaysia ani that arcuIXl 1000 in:iustries generate 380 000 albic melLes of wastes. 'nle relevant legislation was reviewed ani the various responsible agencies identified. 'lWenty eight pieces of legislation toere relevant ani seven ministries toere involved to saDe degree. '!he main legislative ' provisiCl1S toere:
Pesticide Act 1974 - Ministry of Agriculture Poison 0Zdinance 1952 - Ministry of Health Factories & Madlinel:y Act 1967 - Ministry of TaOOJr pLlXJIdllmes
for off-site .iJK::i.dent:s, ani ccn::luded that expertise was c:m:rently l.ack:in:J, but a National Emergency Plan was umer p:teparation for the handlin;J of major a=idents or emergencies involvin;J-release of dlemicals. '!he fire services ani police toere the first J:espoIders in Malaysia ani would be eJql£'cted to be the main coordinators of sudl a plan. 'nle plan would be eJql£'cted firstly at National level ani thereafter at state ani local levels. In response to a query, Mrs Rcsnani ooofiIllBi that the Ministry of Health would be the respoIlSible agercj for CXlillLol aver the exportjinpnt
was available to set up emergency preparedness in Malaysia, althalgh several major hazardous installations had established their own emergency ptocedures for on-site accident prevention ani CXlillLol. Mrs Rcsnani reviewed the preparedness capability in Malaysia No specific legislation
of contaminated fcxxl. She was also asked abcut J:espoIlSibility of waste transport contractors, ani confiIllBi that prosecutions toere possible umer various ordinances ani lalolS.
9.
New Zealani
Mr ~ Oltlined the ~ ani econany of New Zealani am dlserved that the three million rq'n1ation occupied mainly the northem half of the North Islam. '!he ecxuDY was mainly agriculture based. No priJnary cilemicals toere manufactured but a palLoc:hemical in:1ustry was rapidly develcpin;J.
A nnnJ-p.r of agencies toere involved in the use ani safety of chemicals incl\ldinJ the Department of Health, Deparbnent of Labour, am the Ministry of Transport am local authorities. '!he National Oleni.cal Safety ProgJ:cmma was described ani a major cilemical fire .iJK::ident reviewed, in tohich the Ministry for the Environment had taken the lead role in settin;J up an enquiry. '!he roles of other related authorities such as Local Councils, Harbour Boards, ani Regional water AUthorities, toere also described, particularly in relation to pl.anning provisions. '!he role of the Civil Defence organization was highlighted (umer the Civil Defence Act) am the iltiJortance of overall disaster plaJ'll'linJ, e.g. earthquakes, was stressed. Each region had an Emergency se:rvices coordination carmittee (ESO:) headed
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by the RJliae. the Hazardous SUbstances Technical TJaison (HST!C) headEd by the Fire Department acted as a sutxxmni:ttee of the ESCC an::l sLL -sed the plannin;J, preparedness for an::l debrief:in;J after a chemical incident. Fach regicn had dedicated facilities for disp->sal of hazardous wastes - mainly lan::lfills. '!he National RJisons an::l Hazardoos Olemicals Infomaticn Centre provided a 24-hCiur sezvioe on emergency response
camu.ttee
information. '!he National Olemi.cal Safety Pl:O;P:dIiue had be' "e increas:in;Jly inportant in recent years due to the I'UIi:ler of chemical incidents. Mr M:lrtimer described several chemical incidents ~ch were detailed in his paper. He c:i:Jserved that as a result of these incidents, the plblic had developed I c.\1enq:tld:lia I • He went on to state that plaIU'linJ for all aspects
of chemical <X41LLol was at a tu:rnin;J point. National legislation was scmewha.t fragnented thrrugh varioos legislaticns an::l agencies, an::l the division of responsibility still requires clarificaticn an::l definition. Mr M:lrtimer reviewed varioos legislative provisicns related to chemicals an::l their use an::l disp->saL He drew attention to disposal of OCB wastes whidl were current:ly exported for incineration. In SUlIIIIal:Y, the main prOOleus an::l rec}Uirenents in New Zealan::l
were:
Fragoented information - reed for a database
Emergency sezvioes to be given statutory authority for contairment an::l stabilization
storage of chemicals shoold be placarded with Hazdlem details Formal t.rainin;J was required An accident appraisal sdlelle to be developed on a national/regional
basis. 10. Rlilippines
Mrs D:lVid 0CIIIlleIl0ed by reviewinJ the geogz<lIi1y, ecaunics an::l i.rx:lust:ry of the country of 58 million people. 'lbere were current:ly no oatprehensive an::l specific legislation on chemical emergerx:y plannin;J althcllgh several laws were related to the use an::l health an::l safety aspects of toxic chemicals. '!he country had about 85 000 manufacturirg establishments, half of whidl were located in the densely pc:p.1l.ated Metro Manila area. Provision for chemical emergency plannin;J was mqently required, particularly in Metro Manila. '!he history of the varioos envuOJlllental agencies was reviewed an::l the current situation described. A rnnriJp.r of recent chemical incidents were :reviewed concltnirg that the relevant authorities lacked the followin;J essential provisions: An energen:::y plan.
Equip!Allt for oantrol, :rescue an::l analysis.
-,
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Legislation, particularly with regard to :i:nport of toxic dlemicals Massive in=reases in :i:nportation of many dlemical inports had ~ between 1984 am 1987. I:!!provement of dlemical waste di'¥'Ml methods which were cw:rent.l.y fairly CJ:Ude in nature am which lacked adequate =ntrol.
.'D;le relevant legislation was reviewed =n:::l1ldin;J that the misuse of pesticides was of great cxn:::ern. A key piece of legislation was the Presidential Decree on National Disaster Coordination. Major =ncerns existed regard:in;J the lam transport of clan3'etQJS goods • • Future W'Ot'k involved survey of waste producers, policy fODllllation, chemical IDtification system, inventory of toxic substances, plblication of codes/primers directed at education of i.rdJstJ:y am the Plblic, develq:ment of a Toxic Subst:arx;es COntrol 1II::t, am fonnation of a National Camnittee on the Han:ilin;J am Disposal of toxic nateri.als (incll.Xii.m NGOs) •
•
'l1le econany am protection of the environment were often seen to be at odds in develCllin;J countries, am hence controls were often not in place or fully :iJIplemented. National b.ldget suwort was often quite 101<{. Transfrontier IlJ:M!IJIeIlt of wastes was a najor problem in tenDs of regulations c:overin;J entJ:y to the Fhilippines. Internally, an :invent:my of toxic am hazardrus wastes was uroer preparation. One other najor requirement was the fODmllation an:! iltplementation of an education PLogldlliue.
11.
SiJpaoore
Because of its dense pcpllation am :industrial carplexity, the Sin;Japore government recognizes the high potential for disastrous chemical accidents, although. no such ao::ident had occurred in the past.
Conuol of hazardrus substances an:! cocmlination between ministries was not well develq:>ed prior to 1985 rut had now inproved. In 1985 the Ministry of the Environment was assigned to IoIOrk out a cx:tZprehensive program!e for hazardrus substances managatent. 'Ihe underlyin;J strategy for the hazardous substances CXllluol prograzme had three the!Ies: avoidance, prevention, an:! mitigation of chemical hazards. 'Ihe Govenment was currently in the process of developin;J a national energency plan for chemical in=idents. In this process, all hazardous chemicals used in the countJ:y an:! hazarcioos installations had been identified, hazard assessnents carried out, an:! the responsibility am authority of each aqency involved had been deteImine.d. 1II::tivities of the various agencies were coordinated by the Police Department.
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'!he national energency plan is nearly finalized. It will be tested through various practices and trials. 'Ihe nain factors considered were avoidance, prevention, mitigation an:! nulti-organizational pl.armin:J. '!he
diffia.ll.ties in eadl area were e!IPlaSized. Discussion took place on the follCJW"in;J areas: details of plann.in::J for hazards. the overall control of chemical incidents an:! energencies am the use of inpict m:xlelsjUS EnviIumelltal Protection Agency hotline.
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