Who guidelines for safe wastewater use—more than just numbers

9
IRRIGATION AND DRAINAGE Irrig. and Drain. 54: S103–S111 (2005) Published online in Wiley InterScience (www.interscience.wiley.com). DOI: 10.1002/ird.190 WHO GUIDELINES FOR SAFE WASTEWATER USE—MORE THAN JUST NUMBERS y RICHARD CARR* ,z World Health Organization, Geneva, Switzerland ABSTRACT The use of wastewater in agriculture is occurring more frequently because of water scarcity and population growth. Often the poorest households rely on this resource for their livelihood and food security needs. However, there are negative health implications of this practice that need to be addressed. WHO developed Health Guidelines for the Use of Wastewater in Agriculture and Aquaculture in 1989. The Guidelines are currently being revised based on new data from epidemiological studies, quantitative microbial risk assessments and other relevant information. WHO Guidelines contain both microbial guideline values and good practices to reduce health risks. They must be practical and offer feasible risk management solutions that will minimize health threats and allow for the beneficial use of scarce resources. It is important that the Guidelines are based on actual health risks and an evaluation of what is a tolerable risk. This will vary from country to country. WHO Guidelines, therefore, need to be adapted to the unique social, economic and environmental factors in each situation. To achieve the greatest impact on health, guidelines should be implemented with other health measures such as: health education, hygiene promotion, provision of adequate drinking water and sanitation, and other measures such as vaccination. Copyright # 2005 John Wiley & Sons, Ltd. key words: agriculture; guidelines; health protection; sanitation; wastewater use/reuse; WHO RE ´ SUME ´ L’utilisation d’eaux use ´es dans l’agriculture se produit plus fre ´quemment a ` l’heure actuelle en raison du manque d’eau et de la croissance de ´mographique. Ce sont souvent les foyers les plus de ´munis qui de ´pendent de cette ressource pour leurs moyens d’existence et leurs besoins en se ´curite ´ alimentaire. Toutefois, cette pratique pre ´sente pour la sante ´ des implications ne ´gatives qu’il faut aborder. L’OMS a re ´dige ´ des Directives de sante ´ relatives a ` l’utilisation des eaux use ´es dans l’agriculture et l’aquaculture en 1989. Ces directives sont en ce moment mises a ` jour a ` partir de nouvelles donne ´es originaires d’e ´tudes e ´pide ´miologiques, d’e ´valuations quantitatives des risques microbiens et d’autres informations pertinentes. Les directives de l’OMS comportent a ` la fois des valeurs microbiennes indicatives et des me ´thodes ade ´quates pour re ´duire les risques de sante ´. Ces directives doivent e ˆtre pratiques et offrir des solutions faisables de gestion des risques susceptibles de minimiser les menaces pour la sante ´, tout en tenant compte de la ne ´cessite ´ d’utiliser les ressources rares a ` bon escient. Il est important que ces directives se basent sur les risques de sante ´ re ´els et sur une e ´valuation de ce qu’est un risque tole ´rable, e ´valuation qui variera d’un pays a ` l’autre. C’est pourquoi les directives de l’OMS doivent e ˆtre adapte ´es aux facteurs sociaux, e ´conomiques et environnementaux uniques a ` chaque situation. Received 29 March 2005 Copyright # 2005 John Wiley & Sons, Ltd. Accepted 8 April 2005 *Correspondence to: Richard Carr, World Health Organization, WSH/PHE/SDE, 20 Avenue Appia, CH-1211 Geneva 27, Switzerland. E-mail: [email protected] y Directives de l’OMS pour une utilisation sans risque des eaux use ´es—plus que de simples chiffres. z The opinions expressed in this paper are those of the author and do not necessarily reflect the views and policies of WHO.

Transcript of Who guidelines for safe wastewater use—more than just numbers

IRRIGATION AND DRAINAGE

Irrig. and Drain. 54: S103–S111 (2005)

Published online in Wiley InterScience (www.interscience.wiley.com). DOI: 10.1002/ird.190

WHO GUIDELINES FOR SAFE WASTEWATER USE—MORETHAN JUST NUMBERSy

RICHARD CARR*,z

World Health Organization, Geneva, Switzerland

ABSTRACT

The use of wastewater in agriculture is occurring more frequently because of water scarcity and population growth.

Often the poorest households rely on this resource for their livelihood and food security needs. However, there are

negative health implications of this practice that need to be addressed. WHO developed Health Guidelines for the

Use of Wastewater in Agriculture and Aquaculture in 1989. The Guidelines are currently being revised based on

new data from epidemiological studies, quantitative microbial risk assessments and other relevant information.

WHO Guidelines contain both microbial guideline values and good practices to reduce health risks. They must be

practical and offer feasible risk management solutions that will minimize health threats and allow for the beneficial

use of scarce resources. It is important that the Guidelines are based on actual health risks and an evaluation of

what is a tolerable risk. This will vary from country to country. WHO Guidelines, therefore, need to be adapted to

the unique social, economic and environmental factors in each situation.

To achieve the greatest impact on health, guidelines should be implemented with other health measures such as:

health education, hygiene promotion, provision of adequate drinking water and sanitation, and other measures such

as vaccination. Copyright # 2005 John Wiley & Sons, Ltd.

key words: agriculture; guidelines; health protection; sanitation; wastewater use/reuse; WHO

RESUME

L’utilisation d’eaux usees dans l’agriculture se produit plus frequemment a l’heure actuelle en raison du manque

d’eau et de la croissance demographique. Ce sont souvent les foyers les plus demunis qui dependent de cette

ressource pour leurs moyens d’existence et leurs besoins en securite alimentaire. Toutefois, cette pratique presente

pour la sante des implications negatives qu’il faut aborder. L’OMS a redige des Directives de sante relatives a

l’utilisation des eaux usees dans l’agriculture et l’aquaculture en 1989. Ces directives sont en ce moment mises a

jour a partir de nouvelles donnees originaires d’etudes epidemiologiques, d’evaluations quantitatives des risques

microbiens et d’autres informations pertinentes. Les directives de l’OMS comportent a la fois des valeurs

microbiennes indicatives et des methodes adequates pour reduire les risques de sante. Ces directives doivent etre

pratiques et offrir des solutions faisables de gestion des risques susceptibles de minimiser les menaces pour la

sante, tout en tenant compte de la necessite d’utiliser les ressources rares a bon escient. Il est important que ces

directives se basent sur les risques de sante reels et sur une evaluation de ce qu’est un risque tolerable, evaluation

qui variera d’un pays a l’autre. C’est pourquoi les directives de l’OMS doivent etre adaptees aux facteurs sociaux,

economiques et environnementaux uniques a chaque situation.

Received 29 March 2005

Copyright # 2005 John Wiley & Sons, Ltd. Accepted 8 April 2005

*Correspondence to: Richard Carr, World Health Organization, WSH/PHE/SDE, 20 Avenue Appia, CH-1211 Geneva 27, Switzerland.E-mail: [email protected] de l’OMS pour une utilisation sans risque des eaux usees—plus que de simples chiffres.zThe opinions expressed in this paper are those of the author and do not necessarily reflect the views and policies of WHO.

Pour obtenir un impact maximum sur la sante, les directives doivent etre mises en œuvre avec d’autres mesures

de sante telles que: l’education a la sante, la promotion de l’hygiene, la fourniture d’eau potable et d’installations

sanitaires adequates, ainsi que d’autresmesures telles que la vaccination. Copyright# 2005 JohnWiley&Sons, Ltd.

mots cles: agriculture; directives; protection de la sante; installations sanitaires; utilisation/reutilisation des eaux usees; OMS

INTRODUCTION

The importance of increasing access to sanitation for unserved populations has been given renewed emphasis with

the adoption by the United Nations General Assembly of the Millennium Development Goals in 2000 and similar

International Development Targets developed at the World Summit on Sustainable Development in Johannesburg

in 2002. Because much of the future population growth is expected to occur in or around urban centres, increased

sanitation coverage will often take the form of sewerage with a subsequent increase in the generation of

wastewater. The use of wastewater in agriculture may actually help to prevent some of the downstream health and

environmental impacts especially when the alternative is to discharge wastewater (frequently without adequate

treatment) directly into surface waters.

The use of wastewater in agriculture is growing due to water scarcity, population growth and the recognition of

its resource value. Wastewater can be used to substitute for other better quality water sources, especially in

agriculture. However, the uncontrolled use of wastewater in agriculture has important health implications for

product consumers, farmers and their families, produce vendors, and communities in wastewater irrigated areas.

Negative health impacts from the use of untreated or inadequately treated wastewater have been documented in

many studies. Less attention has been paid to the positive health impacts of the use of wastewater in agriculture that

may arise because of improved household food security, better nutrition and increased household income.

WHO Guidelines contain both microbial guideline values and good practices to reduce health risks. They offer

feasible risk management solutions that will minimize health threats and allow for the beneficial use of scarce

resources. The Guidelines are based on actual health risks and an evaluation of what is a tolerable risk. This will

vary from country to country. WHO Guidelines are meant to be adapted to the unique social, economic and

environmental factors in each situation.

This paper will look at some of the issues surrounding the use of wastewater in agriculture, the history and

philosophy of the WHO Guidelines, health issues, risk management strategies, and guideline implementation.

BACKGROUND

At least one-tenth of the world’s population is thought to consume foods produced by irrigation with wastewater

(Smit and Nasr, 1992). In many countries, wastewater and excreta used in crop production are not adequately

treated. It has been estimated that at least 20 million ha in 50 countries are irrigated with raw or partially treated

wastewater (van der Hoek, 2004; Hussain et al., 2001). Wastewater and excreta are also used in urban agriculture

which often supplies a large proportion of the fresh vegetables sold in many cities, particularly in developing

countries. For example in Dakar, Senegal, more than 60% of the vegetables consumed in the city are grown in

urban areas using a mixture of groundwater and untreated wastewater (Faruqui et al., 2004).

WHO/UNICEF (2000) estimates the median percentage of wastewater treated by effective treatment plants to be

35% in Asia, 14% in Latin America and the Caribbean, 90% in North America and 66% in Europe. Other figures

are even lower: for example, Homsi (2000) estimates that only around 10% of all wastewater in developing

countries receives treatment. Given these circumstances, WHO Guidelines must include feasible strategies for

maximizing health protection when untreated wastewater is used in agriculture.

The safe use of wastewater and excreta also has social equity issues. A significant percentage of wastewater and

excreta use in agriculture occurs at the subsistence level. Wastewater and excreta are often seen as resources which

help to improve food security and positively impact household nutrition and, thus, health.

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The regulation of water quality for irrigation is of international importance because agricultural products grown

with contaminated water may cause health effects at both the local and international levels. International trade in

agricultural products across regions is growing. Exports of contaminated fresh produce from different geographical

regions can facilitate the spread of both known pathogens and strains with new virulence characteristics into areas

where the pathogens are not normally found or have been absent for many years (Beuchat, 1998).

For food exports, it is important that the wastewater is treated to the WHO recommended levels for unrestricted

irrigation. This is to ensure that the risks of consuming such food are low for consumers who may not have

immunity to locally endemic diseases. For food products to be consumed locally, national authorities may adapt

the guideline values to fit their own circumstances.

HISTORY OF WHO GUIDELINES

To protect public health and facilitate the rational use of wastewater and excreta in agriculture and aquaculture

WHO developed the document ‘Reuse of Effluents: Methods of Wastewater Treatment and Public Health

Safeguards’ during the period up to 1973. The first WHO Guidelines (WHO, 1973) were developed in the

absence of good epidemiological studies and borrowed essentially a low-risk approach from the USA. The

Guidelines specified a low microbial limit (100 coliforms 100ml�1) and gave specific recommendations on

treatment (Havelaar et al., 2001).

In the two decades after the initial Guidelines were developed, the use of wastewater in agriculture expanded in

many arid and semi-arid countries. Increasing use and the health and safety questions concerning this practice

became driving forces for conducting a number of epidemiological studies. A thorough review of epidemiological

studies was prepared by Shuval et al. (1986). As epidemiological evidence was compiled it became clear that the

previous Guidelines needed to be revised. The following issues needed to be considered:

� Current bacterial standards were overly conservative and not based upon actual health risks as determined by

epidemiological studies;

� Overly strict standards were impossible to achieve in many situations and were often ignored and

� Guidelines needed to include risk management approaches which would complement available treatment

processes or could be used in the absence of wastewater treatment to reduce health risks.

Based upon these considerations theWHOGuidelines were updated in 1989 (WHO, 1989; Mara and Cairncross,

1989). These Guidelines have been very influential and many countries have adopted or adapted them for their

wastewater and excreta-use practices. WHO is currently updating the 1989 Guidelines to incorporate new health

evidence including risk assessment. The revised Guidelines will include more information about defining tolerable

risks to society based upon the actual disease situation in any given country. This will help policy makers to better

evaluate the risks in their countries and develop strategies to address the greatest health risks first.

In order to better package the Guidelines for appropriate audiences it was decided to present the Guidelines in

three separate volumes: Guidelines for the Safe Use of Wastewater and Excreta in Aquaculture; Guidelines for the

Safe Use of Wastewater in Agriculture and Guidelines for the Safe Use of Excreta and Grey Water.

WHO GUIDELINE PHILOSOPHY

WHO Guidelines are based upon best available scientific evidence and broad participation. The Guidelines

incorporate a risk–benefit approach and are developed around ‘‘good practices’’. The Guidelines are meant to be

adapted to local social, economic and environmental factors. Where the Guidelines relate to technical issues, for

example wastewater treatment, technologies that are readily available and achievable (from both technical and

economic standpoints), are explicitly noted. Overly strict standards may not be sustainable and, paradoxically, may

lead to less health protection because they may be viewed as unachievable under local circumstances and, thus,

ignored. The Guidelines therefore strive to maximize overall public health benefits and the beneficial use of scarce

resources.

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It is important to recognize that in many situations where wastewater is used in agriculture, effective treatment

of wastewater may not be available for many years. WHO Guidelines must therefore be practical and offer feasible

risk management solutions that will maximize health protection and facilitate the beneficial use of scarce

resources. To achieve the greatest benefits to health, Guidelines should be implemented with other health measures

such as: health education, hygiene promotion, provision of adequate drinking water and sanitation, and other

health-care measures.

In order to properly interpret and apply the Guidelines in a manner appropriate to local conditions, a broad-based

policy approach is required that will include legislation as well as positive and negative incentives to alter

behaviour and monitor and improve situations. Local, national and international standard-setting bodies may

develop standards that differ between regions and within regions according to differences in these factors.

EVIDENCE FOR HEALTH IMPACTS

In 1989, the evidence at that time suggested that the use of untreated wastewater in agriculture presented a high

actual risk of transmission of intestinal nematodes and bacterial infections especially to product consumers and

farm workers; there was limited evidence that the health of people living near wastewater irrigated fields was

affected. There was less evidence for the transmission of viruses and no evidence for the transmission of parasitic

protozoa to farm workers, consumers or nearby communities. The review of epidemiological evidence by Shuval

et al. (1986) also indicated that irrigation with treated wastewater did not lead to excess intestinal nematode

infections among field workers or consumers (WHO, 1989).

In 2002, Blumenthal and Peasey completed a critical review of epidemiological evidence of the health effects of

wastewater and excreta use in agriculture for WHO (Blumenthal and Peasey, 2002). This review was used as a

basis for estimating threshold levels below which no excess infection in the exposed population could be expected.

Further information on the risks of infection attributable to the exposure, and in particular the proportion of disease

in the study population attributable to exposure (and therefore potentially preventable through improvement in

wastewater quality), was used to inform proposals on appropriate microbiological guidelines for wastewater reuse

in agriculture. The results of this epidemiological review are presented in Table I.

In many countries, industrial wastewater is often mixed with municipal wastewater and is used for irrigation.

Industrial wastes may contain toxic organic and inorganic chemicals that can be taken up by crops or enter

groundwater resources. It is difficult to assess the impacts on health because of the problem of associating chronic

exposure to chemicals with diseases having long latency periods. However, health effects from both organic

chemicals and heavy metals have been observed in some countries where industrial wastewater has been used for

irrigation. The health risks associated with chemicals found in wastewater and sludge may need to be given more

attention, particularly as industrialization increases in developing countries. The best defence against exposure to

toxic chemicals during crop irrigation is to prevent their addition to the wastewater in the first place. This can be

achieved by treating industrial wastewater separately, preventing it from being discharged into municipal

wastewater streams or requiring pretreatment of the industrial wastewater before it is added to the municipal

wastewater stream.

In general, wastewater of domestic origin is not likely to contain toxic chemicals in concentrations likely to lead

to health problems for either the farmers or the crop consumers.

WHO GUIDELINES AND RISK MANAGEMENT

The protection of public health can best be achieved by using a ‘‘multiple barrier’’ approach that interrupts the flow

of pathogens from the environment (wastewater, crops, soil, etc.) to people (Figure 1). Human pathogens in the

fields do not necessarily represent a health risk if other suitable health protection measures can be taken. These

measures may prevent pathogens from reaching the worker or the crop or, by selection of appropriate crops (cotton,

for example), may prevent pathogens on the crop from affecting the consumer (WHO, 1989; Mara and Cairncross,

1989). The available measures come under five main categories:

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� waste treatment

� crop restriction

� irrigation technique

� human exposure control, and

� chemotherapy and vaccination

It will often be desirable to apply a combination of several methods. Sometimes partial treatment to a less

demanding standard may be sufficient if combined with other measures such as crop restriction, but it may need to

be supplemented by additional measures to protect agricultural workers.

Waste treatment

The removal or inactivation of excreted pathogens is the principal objective of wastewater treatment; and

treatment to levels proposed by Blumenthal et al. (2000a) should be adequate to protect public health.

Conventional wastewater treatment options (primary and secondary treatments) are often better at removing

environmental pollutants than removing pathogens, however, and many of these processes may also be difficult and

costly to operate properly in developing country situations. Waste stabilization ponds (WSP), when designed and

operated properly, are highly effective at removing pathogens and can be operated at low cost where inexpensive

land is available. They are designed to use natural processes of biodegradation, disinfection by sunlight, and

particle settling under gravity, to purify the water. They form a series of shallow ponds linked together to maximize

retention time. However, WSPs should be designed, operated and maintained in such a way as to prevent disease

vectors from breeding in the ponds.

Where effective treatment is not available, it may be possible to consider other options that improve microbial

water quality, such as storage reservoirs to partially treat wastewater or water abstraction from surface waters some

Table I. Summary of health risks associated with the use of wastewater in irrigation

Group Health threatsexposed

Nematode infection Bacteria/viruses Protozoa

Consumers Significant risks of Ascarisinfection for both adults andchildren with untreatedwastewater; no excess risk whenwastewater treated to< 1nematode egg/litre exceptwhere conditions favour survivalof eggs

Cholera, typhoid and shigellosisoutbreaks reported from use ofuntreated wastewater; sero-positiveresponses for Helicobacterpylori (untreated); increasein non-specific diarrhoea whenwater quality exceeds 104

FC 100ml�1

Evidence of parasitic protozoafound on wastewater irrigatedvegetable surfaces but no directevidence of disease transmission

Farm workersand theirfamilies

Significant risks of Ascarisinfection for both adults andchildren with contact withuntreated wastewater; risks remain,especially for children whenwastewater treated to< 1 nematodeegg/litre; increased risk ofhookworm infection to workers

Increased risk of diarrhoeal diseasein young children with wastewatercontact if water quality exceeds104 FC 100ml�1; elevated risk ofSalmonella infection in childrenexposed to untreated wastewater;elevated seroresponse to Norovirusin adults exposed to partiallytreated wastewater

Risk of Giardia intestinalis infec-tion was insignificant for contactwith both untreated and treatedwastewater, Increased risk ofamoebiasis observed with contactwith untreated wastewater

Nearbycommunities

Ascaris transmission not studiedfor sprinkler irrigation but sameas above for flood or furrowirrigation with heavy contact

Sprinkler irrigation with poor waterquality 106–8 TC 100ml�1, andhigh aerosol exposure associatedwith increased rates of infection;use of partially treated water 104–5 FC100ml�1 or less in sprinkler irrigationis not associated with increasedinfection rates

No data for transmission of proto-zoan infections during sprinklerirrigation with wastewater

Source: Carr et al. (2004).

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distance from wastewater discharges where dilution has already taken place. For example, in Mexico, irrigation

with untreated wastewater was frequently associated with Ascaris infections and diarrhoea in farm workers and

their families, which could be prevented by using wastewater that had been retained in a series of reservoirs

(Cifuentes et al., 2000). If reservoirs are designed specifically to increase residence time they can be effective in

improving microbial water quality. Reservoirs have the added advantage of storing the wastewater for use in the

dry season—often a time of peak demand.

There is a need for research and development work to improve the helminth-egg removal efficacy of wastewater

treatment systems to meet the microbial standards. In some situations, the quality of primary or secondary-treated

effluents can be improved by further treatment in a single polishing (maturation) pond of 5 days’ retention time

(Blumenthal et al., 2000b).

Crop restriction

Water of poorer quality can be used to irrigate non-vegetable crops such as cotton or crops that will be cooked

before consumption (e.g. potatoes). However, crop restriction may protect the health of consumers but not farm

workers and their families. It is therefore not an adequate single control measure, but should be considered within

an integrated system of control (Blumenthal et al., 2000b). In Chile the use of crop restriction when implemented

with a general hygiene education programme significantly reduced the transmission of cholera from the

consumption of raw vegetables; it has also been used effectively in Mexico and Peru (Blumenthal et al., 2000b;

Peasey et al., 2000).

Irrigation technique

Because of the formation of aerosols, spray/sprinkler irrigation has the highest potential to spread contamination

on crop surfaces and affect nearby communities. Where spray/sprinkler irrigation is used with wastewater it may

Crop/

Soil

Humans/

Animals

Wastewater/

Pathogens

TreatmentApplication Techniques

Exposure ControlVaccination

TreatmentApplication Techniques

Crop RestrictionApplication TimingExposure Control

Vaccination

Figure 1. Risk management points

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be necessary to set up a buffer zone (e.g. 50–100m from houses and roads) to prevent a health risk for local

communities.

Farm workers and their families are at the highest risk when flood or furrow irrigation techniques are used,

particularly when protective clothing is not worn and earth is moved by hand. Localized irrigation techniques (e.g.

bubbler, drip, trickle) offer farm workers the most health protection because the wastewater is applied directly to

the plants; but are problematical if the wastewater has suspended material in it which clogs the water emitters.

Although these techniques are generally the most expensive to implement, drip irrigation has recently been

adopted by some farmers in Cape Verde and India (FAO, 2001; Kay, 2001). Drip irrigation also improves crop

yields and reduces water use.

Cessation of irrigation for 1–2 weeks prior to harvest can be effective in reducing crop contamination. Many

vegetables need watering nearly until harvest to increase their market value, but this option may be possible with

some fodder crops that do not have to be harvested at the peak of their freshness.

Human exposure control

Four groups of people are at potential risk:

� agricultural field workers and their families

� crop handlers

� consumers (of crops, meat and milk), and

� those living near the affected fields.

Agricultural field workers are at high risk of parasitic infections. Exposure to hookworm infection can be reduced,

even eliminated, by the use of less contaminating irrigation methods (as above) and by the use of appropriate

protective clothing (i.e. shoes for field workers and gloves for crop handlers). A rigorous health education

programme that targets consumers, farm workers, produce handlers and vendors is needed. Hand washing with

soap is a very important behaviour that needs to be emphasized. The simple act of handwashing with soap can

reduce the transmission of diarrhoeal disease by up to 33% (WHO, 1993). Field workers should be provided with

adequate sanitation facilities and safe water for drinking and hygiene purposes, in order to avoid the consumption

of, and contact with, wastewater. Similarly, sanitation facilities and safe water should be provided at markets for

washing and ‘‘freshening’’ produce. Vendors need to practise good personal and food hygiene. Consumers can

cook vegetables, meat and milk, and practise good personal and domestic hygiene to protect their health. Meat

should be inspected and carcasses infected with tapeworm larvae should be rejected (WHO, 1989; Mara and

Cairncross, 1989).

Chemotherapy and vaccination

Anti-helminthic treatment and immunization cannot normally be considered as an adequate strategy to protect

farm workers and their families. Immunization against helminthic infections and most diarrhoeal diseases is

currently not feasible. However, for highly exposed groups or sensitive subpopulations (e.g. tourists), immuniza-

tion against typhoid and hepatitis A may be worth considering. Anti-helminthic treatment of intense nematode

infections in children and the control of anaemia in both children and adults, especially women and post-menarche

girls, is important. Treatments must be reapplied at regular intervals to be effective—several times a year for

children living in endemic areas (Blumenthal et al., 2000b; Peasey et al., 2000).

HOW THE GUIDELINES ARE IMPLEMENTED

It is important to consider the health implications of any standards or regulations which are enacted. In countries

where low sanitation standards prevail very little of the faecal–oral disease may actually be associated with the use

of wastewater irrigation. Thus, even enacting stringent standards on the use of wastewater may not have a

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measurable impact on disease transmission. Therefore, an attempt to define a tolerable risk to society may be

necessary for prioritizing the greatest health risks first. The revised Guidelines include discussion of tolerable risks

and methods for prioritizing health threats.

Phased implementation of the WHO Guidelines may be necessary as treatment is gradually introduced and

improved over a period of time (e.g. 1–15 years). Implementation of the WHO Guidelines will protect public

health most when it is integrated into a comprehensive public health programme that includes other sanitary

measures such as personal and domestic hygiene education. For example, it may be possible to link health

education and hygiene promotion to agricultural extension activities or other health programmes (e.g. immuniza-

tion programmes).

Guideline implementation will be different in each setting. For example, urban and peri-urban areas are likely to

pose challenges because of the dispersed nature of agriculture in these areas and the greater number of small plots.

Inspectors may have a hard time ensuring that effective crop restriction is taking place or visiting all of the areas

where wastewater is used in agriculture. Crop restriction will be more effective if the types of crops that can be

grown are in demand and command an adequate price (e.g. potatoes or maize) in the local market. However,

markets may offer additional points of intervention where local authorities may have more control over water

supplies, hygiene and sanitation facilities.

The key to guideline implementation is setting realistic standards and flexibility. WHO Guidelines need to be

adapted for the social, economic and environmental conditions of each country. When countries with high levels of

excreta-related disease background levels and inadequate resources for wastewater treatment adopt overly strict

water quality standards for use in agriculture, it may lead to a lower level of health protection because, in these

circumstances, the standards may not significantly change the background level of disease and/or may be viewed as

unachievable and thus ignored entirely.

Flexible solutions are needed. Wastewater treatment could be in the form of small, locally developed,

decentralized facilities closer to where the wastewater is generated. An initial aim of partial treatment—e.g. to

meet the WHO helminth guideline value—may be required, eventually phasing in the other requirements over a

period of years as the infrastructure becomes available. For example, in Mexico, the wastewater treatment

infrastructure was often not able to reduce nematodes to the guideline value of less than one viable intestinal

nematode egg per litre, so they established the standard at less than five eggs per litre. Improving the water quality

to the standard of five may still yield some health benefits and when combined with aggressive anti-helminthic

campaigns targeted at farmers this can help to mitigate some of the negative health consequences (Blumenthal et

al., 2000a; Peasey et al., 2000).

Similarly, in order to gain acceptance by local farmers, crop restriction requirements in Mexico had to be

flexible to allow farmers to grow chillies (a crop often eaten raw) with water that did not meet unrestricted

standards. If this was not the case it is likely that crop restriction would have failed entirely in this situation.

CONCLUSIONS

WHO Guidelines are based upon scientific evidence and built around good practices. WHO Guidelines are meant

to maximize the protection of public health and allow for the safe use of important resources. Countries should use

the WHO Guidelines as a scientific point of departure and adapt the Guidelines to their own special situations.

The use of wastewater in agriculture can be managed in a way that makes it safer—even when adequate

wastewater treatment is unavailable. Strategies for managing health risks to achieve the health targets include

wastewater treatment to achieve appropriate microbiological quality guidelines, crop restriction, waste application

methods, control of human exposure, chemotherapy and vaccination. A combination of the above strategies will

offer the most health protection. In situations where resources are very limited, steps should be taken to address the

greatest health risks first. For example, in many areas partially treating wastewater to remove helminth eggs will

offer some health protection. Phased implementation of the WHO microbial water quality standards may be

necessary as treatment is gradually introduced and improved over a period of time (e.g. 1–15 years). For maximal

public health effect, the Guidelines should be co-implemented with other health interventions such as hygiene

promotion, provision of adequate drinking water and sanitation, and other health-care measures.

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REFERENCES

Beuchat LR. 1998. Food Safety Issues: Surface Decontamination of Fruits and Vegetables Eaten Raw: a Review. Food Safety Unit, WHO:

Geneva.

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