WEST VIRGINIA DEPARTMENT OF HEALTH AND HUMAN RESOURCES HARMFUL ALGAL BLOOM RESPONSE PLAN FOR RECREATIONAL WATERS August 2017 Version 1.0 State of West Virginia 2017 Harmful Algal Blooms Response Plan for Recreational Waters PROMULGATION LETTER The West Virginia Department of Health and Human Resources (DHHR), Bureau for Public Health (BPH), Center for Threat Preparedness (CTP) is committed to protecting the well-being of West Virginia Citizens as well as property and facilities. The vision of the Bureau for Public Health is to have healthy West Virginians in healthy communities. The mission is to help shape the environments within West Virginia so communities can be safe and healthy. To help ensure that, we as a public health agency are as prepared as we can be to protect the state and the occupants in the event of a serious threat, hazard or emergency situation. The following Harmful Algal Bloom (HAB) Response Plan for Recreational Waters was developed for DHHR through a collaborative multi-agency effort including the BPH’s Office of Environmental Health Services (OEHS) and the CTP; the West Virginia Department of Environmental Protection; the West Virginia Division of Natural Resources; the U.S. Army Corps of Engineers; and Local Health Departments. These are the agencies primarily responsible for responding to HABs in West Virginia. The principal objective of DHHR’s HAB Response Plan is to provide a unified statewide approach to address HABs in West Virginia’s recreational waters and to protect people and animals from toxins produced by cyanobacteria. No plan can completely prevent the consequences of an incident, whether to property or to life. However, good plans executed by knowledgeable and well-trained personnel can and will minimize harm and losses. This plan establishes specific general policies and specific procedures that should be followed when a potential HAB is observed in public recreational waters and is designed to help DHHR employees and partners respond appropriately. While the development of a HAB is fairly unpredictable, this plan allows for an immediate response by DHHR and partners, thereby protecting public health. This plan is considered a living document and will require regular evaluation for updates and revisions. The OEHS and CTP will be responsible for maintenance and updates. This plan will be considered a component of the West Virginia Public Health Threat Response Plan which supports Annex G of the West Virginia State Emergency Operations Plan. The authority and responsibility to implement this plan begins immediately upon notification of authorities. Questions about this plan should be directed to the Director of OEHS, Walter Ivey, at 304-356- 4272; the Interim Director of CTP, Donnie Haynes, at 304-558-6900. Respectfully Submitted, Donnie Haynes, Interim Director Center for Threat Preparedness West Virginia Bureau for Public Health Page 1 of 56 State of West Virginia 2017 Harmful Algal Blooms Response Plan for Recreational Waters SIGNATURE PAGE We the undersigned endorse this plan and agree to support DHHR by accomplishing, to the best of our abilities, the assigned responsibilities in advance of, during, and following a recognized public health threat. These activities are aimed at reducing injury, disease, disability and death among WV’s citizens: ___________________________ Director, Office of Environmental Health Services ___________________________ Interim Director, Center for Threat Preparedness Page 2 of 56 State of West Virginia 2017 Harmful Algal Blooms Response Plan for Recreational Waters RECORD OF DISTRIBUTION Individual Change Date of Section Making Description of Change Number Change Change RECORD OF CHANGES Individual Change Date of Section Making Description of Change Number Change Change Page 3 of 56 State of West Virginia 2017 Harmful Algal Blooms Response Plan for Recreational Waters ACKNOWLEDGEMENTS The development of this document could not have been possible without a close collaboration between the West Virginia Bureau for Public Health, West Virginia Department of Environmental Protection, West Virginia Division of Natural Resources, Wheeling-Ohio County Health Department, Kanawha-Charleston Health Department, U.S. Army Corps of Engineers and Ohio Environmental Protection Agency. The State of Ohio’s “Harmful Algal Bloom Response Strategy for Recreational Waters” served as the foundation for this document. Page 4 of 56 State of West Virginia 2017 Harmful Algal Blooms Response Plan for Recreational Waters TABLE OF CONTENTS PROMULGATION LETTER…………………………………………………………………......1 SIGNATURE PAGE……………………………………………………………………………...2 RECORD OF DISTRIBUTION……………………………………………………………...…...3 RECORD OF CHANGES………………………………………………………………………...3 ACKNOWLEDGEMENTS.............................................................................................................4 TABLE OF CONTENTS.................................................................................................................5 I. PURPOSE……………………………………………………………………………………….7 II. SCOPE AND APPLICABILITY……………………………………………………………....7 III. SITUATION AND ASSUMPTIONS…………………………………………………………8 A. Situation………………………………………………………………………………..8 1. Rationale for Harmful Algal Bloom (HAB) Response Plan ..............................8 2. Cyanobacteria and Cyanotoxins……………………………………...………...9 3. Cyanobacterial Blooms………………………………………………………....9 4. Cyanotoxin Exposure and Health Impacts…………………………………….10 5. Cyanotoxin Advisory Thresholds for Recreational Waters…………………...11 B. Assumptions………………………………………………………………………..…12 IV. CONCEPT OF OPERATIONS–GENERAL………………………………………….….....12 V. AGENCY ROLES AND RESPONSIBILITIES AND RESPONSE ACTIVITIES………….12 A. Agency Roles and Responsibilities...............................................................................12 1. Bureau for Public Health………………………………………………….......12 2. Department of Environmental Protection……………………………………..12 3. Division of Natural Resources…………………………………………….......13 4. Local Health Departments……………………………………………...…......13 5. Joint Agency Collaboration…………………………………………….……..13 B. Response Activities…………………………………………………………………...14 1. Observation and Reporting of Potential HABs……………...………………...14 2. Reporting HAB-related Illness in Humans or Animals…………………….....15 3. Sampling, Screening and Cyanotoxin Analysis…………………………….....15 4. Data Management and Information Sharing………………………………......16 Page 5 of 56 State of West Virginia 2017 Harmful Algal Blooms Response Plan for Recreational Waters 5. HAB Advisory Postings…………………..…………………………………...16 a. HAB General Information Sign……………………..………………...16 b. Recreational Public Health Watch Advisory…………………….…....17 c. Recreational Public Health Warning Advisory…………………….….17 6. Public Awareness and Education……………………………………………...18 7. Media Outreach for HABs………………………………...…………………..18 GLOSSARY……………………………………………………………………………………..20 ACRONYMS………………………………...…………………………......................................21 APPENDICES APPENDIX 1 – Table 1. Cyanobacteria and Their Associated Cyanotoxins ……...…...22 APPENDIX 2 – Table 2. Public Health Advisory Thresholds for Cyanotoxins in Recreational Waters……………………………………………………...............24 APPENDIX 3 – Table 3. Roles and Responsibilities of State Agencies…………….…..26 APPENDIX 4 – Regulated Beaches……………………..……………………...……….28 APPENDIX 5 – Algal Bloom Report Form…………………………..……………........31 APPENDIX 6 – HAB-Related Human Illness and Animal Illness Report Forms…....…33 APPENDIX 7 – Safety Precautions and Sampling Protocol…………………………….38 APPENDIX 8 – Suggested Materials for Grab Sample Collection…….….…………….42 APPENDIX 9 – Laboratories Available for Cyanotoxin Analysis……….…..….............44 APPENDIX 10 – HAB General Information Sign………………………………………46 APPENDIX 11 – Recreational Public Health Watch Advisory...……………………….48 APPENDIX 12 – Recreational Public Health Warning Advisory……………………….50 APPENDIX 13 – 2017 HAB Contacts…..........................................................................52 Page 6 of 56 State of West Virginia 2017 Harmful Algal Blooms Response Plan for Recreational Waters I. PURPOSE The purpose of West Virginia’s Harmful Algal Bloom Response Plan is to provide a unified statewide approach to address harmful algal blooms (HABs) in West Virginia’s recreational waters and to protect people and animals from toxins produced by cyanobacteria. The focus of this plan is on public recreational waters, although these principles and practices can apply to any body of water. This HAB response plan is an annex to the West Virginia Department of Health and Human Resources (DHHR) Public Health All Hazards Threat Response Plan. See the DHHR Public Health All Hazards Threat Response Plan and the West Virginia State Emergency Operations Plan for more information. A separate response plan for responding to HABs in sources of drinking water is available from the West Virginia Bureau for Public Health (BPH) at http://www.wvdhhr.org/oehs/public_health/blue_green_algae.asp. This plan follows the U.S. Environmental Protection Agency’s (EPA) “Recommendations for Public Water Systems to Manage Cyanotoxins in Drinking Water” (2015) and includes guidance on testing private drinking water sources for the presence of cyanotoxins and treatment options. II. SCOPE AND APPLICABILITY This annex facilitates coordination between agencies responsible for responding to HABs by defining agency roles and responsibilities and detailing response procedures. Specifically, this plan includes:  Background information on cyanobacteria and cyanotoxins and health effects of exposure to cyanotoxins  Information on environmental sampling for cyanobacteria and screening and analysis for cyanotoxins  Information to educate the recreating public  Procedures for reporting potential HABs observed in public recreational waters  Procedures for reporting HAB-related illness in humans and animals  Numeric cyanotoxin thresholds for making public health advisory decisions  Guidance for issuing, posting, and lifting public health advisories  Procedures for data management and information sharing  Resources and websites for more detailed information  Description of the State’s response/coordination process Page 7 of 56 State of West Virginia 2017 Harmful Algal Blooms Response Plan for Recreational Waters III. SITUATION AND ASSUMPTIONS A. Situation 1. Rationale for HAB Response Plan Since cyanotoxins have been associated with numerous animal deaths and human illnesses, they are a growing environmental and public health concern. Harmful algal blooms and algal toxins have increased globally in geographic range, frequency, duration, and severity in recent years. In 2012, the Centers for Disease Control and Prevention (CDC), the EPA and the U.S. Geological Survey (USGS) established the Inland Harmful Algal Blooms Discussion Group to address HAB issues nationwide. The increasing importance of this issue was underscored in 2014 when a HAB impacted the drinking water of approximately 500,000 residents of Toledo, Ohio. Health advisories provide states, drinking water utilities, and the public with information on health effects of cyanotoxins, analytical methods to test for cyanotoxins in water samples, and treatment technologies to remove cyanobacteria toxins from drinking water. Due to the potency of these toxins and no known antidote, it is recommended that public health and other regulatory agencies take a conservative approach when setting recreational water thresholds to avoid human exposure to these toxins. In 2015, the EPA released drinking water health advisories for the cyanobacterial toxins microcystin and cylindrospermopsin. In 2016, the draft of “Human Health Recreational Ambient Water Quality Criteria and/or Swimming Advisories for Microcystins and Cylindrospermopsin—2016” was published by the EPA. This draft includes recommended threshold concentrations of microcystins and cylindrospermopsin for issuing advisories in recreational water that are protective of human health. While these recommended criteria are not regulations, these values can be used in making decisions whether to close, open, or warn about concerns in recreational waters in a manner consistent or similar to their current recreational water advisory programs. It is not clear how expansive the algal problem is in West Virginia. DEP’s lakes monitoring program collects observational and nutrient data but has not conducted algae identification or toxin analysis. Some algal blooms have been observed on small lakes with minimal or no contact recreation areas or drinking water intakes. In the summer of 2015, HABs occurred in the Ohio River and in R.D. Bailey Lake, a USACE lake in Wyoming County. These recent blooms have identified a need for a multi-agency, statewide HAB response plan in West Virginia. Page 8 of 56 State of West Virginia 2017 Harmful Algal Blooms Response Plan for Recreational Waters 2. Cyanobacteria and Cyanotoxins Cyanobacteria, or blue-green algae, are photosynthetic microorganisms present in streams, lakes, wetlands, and oceans worldwide. Cyanobacteria can grow in the water column (planktonic), aggregated on the water surface (metaphytic), attached to other algae (epiphytic), or attached to substrates (benthic) depending on the species. Some cyanobacteria produce toxins called cyanotoxins that can cause illness and death in humans and animals. Toxin production is strain specific and many cyanobacteria can produce one or several different types of toxins including hepatotoxins (acting on the liver), neurotoxins (acting on the nervous system), and dermatotoxins (causing skin irritation) (see Appendix 1, Table 1). Cyanotoxins can be found within bacterial cells or can be released into the water column in great concentration following the sudden die-off of an algal bloom (e.g. when an algaecide is used) or gradually as some bacteria die during the lifecycle of a bloom. Cyanotoxins are colorless, odorless, and tasteless and can persist in the water column after a HAB is gone. Toxins are degraded by bacterial action and sunlight over time. 3. Cyanobacterial Blooms Most cyanobacteria species occur in low concentrations, however, when environmental conditions are favorable, cells can multiply rapidly forming either planktonic or benthic blooms. Formation of algal blooms is regulated by three primary environmental conditions: water temperature, light exposure, and trophic status of the water. Algal blooms often arise when there are warm temperatures, sunny conditions, eutrophic conditions (excess organic matter and nutrients such phosphorus and nitrogen), and low-flow or low-water conditions. Cyanobacterial blooms can vary in species composition and toxin production over time and within a water body. Not all cyanobacterial blooms result in cyanotoxin production. When blooms are dominated by potentially toxigenic genera of cyanobacteria, they are referred to as “harmful algal blooms” (HABs). The specific mechanism and conditions necessary for toxin production are not yet fully understood. Cyanobacteria blooms can be distributed evenly throughout a body of water, or they may be irregularly distributed by weather and lake conditions, water movement, and topographic features. Cyanobacteria populations may accumulate at 1 or 2 cm below the water surface. These surface accumulations, or scum, can develop during calm, sunny weather and can extend to depths of more than 1 meter. Many species of planktonic cyanobacteria possess specialized intracellular gas vesicles which enable the organism to regulate its buoyancy. These species actively seek water depths with optimal growth conditions during calm, non-mixed conditions. Page 9 of 56