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NATIONAL HAZE ACTION PLAN OF BRUNEI DARUSSALAM

OBJECTIVE
· To safeguard the health and safety of the public from the effects of haze.

· To prevent and mitigate land and forest fires and control emissions, including the prohibition of open burning during the dry period.

POLICIES
· Obtain information on state of air quality as well as useful meteorological and weather information.

· Determine source of haze.

· Provide the public and relevant government agencies the necessary information on air quality and corresponding action.

· Safeguarding public health and safety.

PSI Value	Air Quality	Health Advice
0 - 50	Good	None
51 - 100	Moderate	None
101 - 199	Unhealthful	Reduce physical outdoor activity, especially those with lung and heart diseases, children and the elderly. Drink plenty of water Wear protective masks whenever necessary.
200 - 299	Very Unhealthful	The sick especially those with lung and heart diseases, and the elderly should stay indoors and reduce their physical activity. No outdoor activity for the rest. Drink plenty of water. Wear protective masks whenever necessary.
300 and above	Hazardous	The sick, elderly and children should stay indoors with windows and doors closed. The rest should avoid unnecessary outdoor functions. No physical indoor and outdoor activity for all. Wear protective masks whenever necessary.

· Ensure there is adequate medical

and health facilities.

· Prohibit open burning during the dry period.

· Attend to local fires with the aim of achieving zero smoke emission.

STRATEGIES
Monitoring and early warning

· National air quality monitoring network (Medical and Health Department, Ministry of Health and Department of Civil Aviation, Ministry of Communication). Presently there are:

- Eight particulate samplers

- One station monitors the five PSI 'criteria pollutants'.

· Meteorological and weather information provided by meteorological office of Department of Civil Aviation

- Access to ASEAN Specialised Meteorological Center (ASMC) intranet.

· Obtain satellite imageries

- Help identify source, movement and extent of haze

· Information exchange among ASEAN Member Countries

- Satellite imageries (spot & high resolution)

- Air quality (PSI or API levels of haze affected areas)

- Visibility

- Occurrence of haze generating fires

- Experiences in mitigating impact (environment technology and fire fighting).

Institutional set up

· Convene the National Committee on Haze as well as its subsidiary bodies in the event of a haze episode.

- Activation of national haze response action plan (including various individual departmental action plans (e.g. Ministry of Health's, Ministry of Education's, Ministry of Religious Affairs' and District Office's)

* general health advice to the public

* monitor cases in hospitals and clinics

* ensure there is adequate medical facilities and stock of medical supplies

* ban open burning

* stop operation of food stalls

* reduce or stop smoke or dust emitting activities

* distribution of protective masks

* closure of schools

* prayers

* review of situation

- Technical sub-committee on combating fires

* review fire fighting operations

* assessment on non-conventional fire fighting techniques and equipment

- Sub -committee on information

- Sub-committee on socio-economic impact

· Operationalize a Haze Information Center in the event of a haze episode

- Provides visibility and PSI readings

- Haze outlook

- Receive complaints on open burning

- Press releases

- Media briefings

- Feedback from public

- Information brochures

- Promote awareness through electronic and print media.

· Operationalize the fire fighting operations center at Fire Services Department Headquarters in the event there are outbreak of fires to coordinate the various field operations centers.

- The Field Operations centers are manned by an on scene commander and support team with the necessary resources and other logistical support.

Legislation and enforcement

· Below are among the procedures used to enforce the prohibition of open burning activities and reduction of emissions from activities that emits dust and smoke in the event of a haze episode.

- ground patrol

- complaints can be received by the Haze Information Center

- offenders approached by Royal Brunei Police

- through administrative orders

· Minor Offence Act (1972, c. 77)

- Section 6: burning or setting fire to any material to the annoyance, inconvenience or danger to the public is an offence.

· Offences in the Penal Code (1952, c.22)

- Sections 268, 290 and 291: Under section 268, a common or public nuisance which causes, or which must necessarily cause, common injury, danger or annoyance to the public, is an offence. Sections 290 and 291 deal with punishment not otherwise provided in the Part for the offence of common nuisance.

- Section 278: Vitiating atmosphere - this section creates the offence of contaminating the atmosphere so as to make it noxious to health of persons.

- Sections 285 and 289: Negligent conduct with respect to fire or combustible matter and explosive substances is an offence.

· His Majesty the Sultan and Yang Di-Pertuan of Brunei Darussalam has approved new provisions in the law to deal with open burning during dry seasons and prolonged drought.

- The new law is contained in the Emergency (Penal Code Amendment) Order 1998. A new section 277A provides for offences relating to open burning to be punishable with a fine of up to B$1000,000. Where such offences cause pollution to the atmosphere or endanger human life or property the punishment is a fine of unlimited amount and or imprisonment for a term of up to 5 years.

- For the purpose of these new provisions of the Penal Code the Minister who is designated by His Majesty the Sultan and Yang Di-Pertuan of Brunei Darussalam as the Minister responsible for environment will from time to time fix the "prescribed period" during which the new provisions would be enforced. The Minister may declare such period whenever there is a prolonged drought. The Minister may, by order publish in the Gazette, declare any period beginning with such date to be the commencement, and ending with such date to be the termination, of the prescribed period during which open burning is prohibited throughout the country.

- An important feature of the new offence under section 277A is that the registered landowner and the occupier can be made responsible for fires on their land.

- The Penal Code already contains in sections 278 and 285 provisions in respect of offences relating to fire which causes pollution to the atmosphere or endangers human life or property. Under section 278 the punishment for such offence is a fine not exceeding B$2,000. In view of the present situation, the fine has been increased to a maximum fine of B$100,000. Under section 285 the punishment is a fine not exceeding B$4,000. The fine has also been increased to an unlimited amount.

- With regard to minor offences involving fires, which do not endanger human life or property, these can be dealt with under the Minor Offences Act (Chapter 30) where the punishment for such minor offences is a fine of B$250.

Fire fighting operations

· Operationalize the fire fighting operations center at Fire Services Department Headquarters in the event there are outbreak of fires to coordinate the various field operations centers.

- The Field Operations centers are manned by an on scene commander and support team with the necessary resources and other logistical support.

- Supporting agencies include: Royal Brunei Armed Forces (infantry and air force), Royal Brunei Police, Independent Fire Fighting Agencies, Public Works Department, Electrical Services Department, Forestry Department, private sector and volunteers.

· Individual command post to decide on tactical approach of combating fires and identify as well as source resources required. Reports to Technical Sub-committee on combating fires.

- Demarcation of fire area

- Establish goal

- Decide on approach and resources required

- Review operations

- Test the use of alternative fire fighting technique and equipment.

· Surveillance:

- Ground patrol

- Watchtower (where available)

- Air surveillance to help identify location and extent of fires

- Use of thermal imaging camera

- Satellite imagery

· Methodology employed in combating fires:

- Conventional method of hosing fires with water

- Construction of temporary water reservoirs / channel / piping

- Construction of fire breaks to help contain fires as well as provide access

- Flooding method to extinguish ground/peat fires

- Aerial fire fighting with the use of helicopters (water bucket / helitanker)

- Use of fire retardant

- Use of fire suppressing foam

- Tilling of burnt ground in mopping operation.

· Where necessary cooperate with bordering states to combat fires that affects Brunei Darussalam's air quality.

- Information sharing with fire fighting counter parts

- Seek necessary clearance to cross national boundary

- Share resources.

· Establish communication with source of potential international assistance to combat fires via:

- Independent sources

- Embassies / High Commissions

- ASEAN Secretariat

- ASEAN counterparts.

Pssst....What's the PSI?

Eddie Dato Paduka Haji Sunny
Environment Unit
Ministry of Development
BRUNEI DARUSSALAM

Ambient Air Quality and the PSI

Ambient air quality monitoring is generally conducted to observe long-term trend, assess effectiveness of environmental policies, and evaluate risks on human health. Air quality monitoring cannot prevent or cure episodes of air pollution. However it enables authorities to formulate policies or regulations, and activate precautionary measures.

The PSI or Pollutant Standards Index is a system of reporting ambient air quality developed by the United States Environmental Protection Agency (USEPA). The use of the USEPA guidelines is widespread throughout the world.

There are 5 pollutants designated as 'criteria pollutants' in the reporting of the PSI. They are:

· dust or particulate matter of 10 micron in size (PM10),

· sulphur dioxide,

· nitrogen dioxide,

· carbon monoxide and

· ozone.

The recorded levels of these pollutants are used to produce a single index (PSI) on a scale of 0 - 500. The highest reading of only any one of the criteria pollutants when converted into its corresponding PSI values shall be reported as the air quality level for the day. In effect, air quality reporting is to report the worst level of exposure; there is no need to report the levels of the other pollutants which records better readings. It is a simple concept to understand and is very much alike when going to the doctor, we only report the part of our body that is suffering; we do not complain about the rest of the body that is not in pain.

Different pollutants at different level and time exposure obviously have different effect on human health. The United States National Ambient Air Quality Standard (NAAQS) on which the USEPA-PSI is based has determined the limits for the level and time exposure of the various pollutants. The limit of time exposure also corresponds to how long the averaging period should be.

For instance, for air quality below which no adverse health effect has been observed (i.e. up to moderate level), the level for PM10 should not exceed an average concentration of 150 microgram/m³ over 24 hours. For sulphur dioxide the level is 365 microgram/m³ over 24 hours, for ozone it is 235 microgram/m³ over 1 hour and for carbon monoxide it is 10 microgram/m³ over 8 hours. For nitrogen dioxide there is no index value reported at lower levels, although 1,130 microgram/m³ over 1 hour corresponds to a PSI value of 200.

This potentially confusing array of figures, levels and averaging time, necessitated a simplified system of reporting the air quality. Thus the PSI was developed to give a uniform air quality index between all the pollutants.

Intervals on the PSI scale are related to the potential health effects of the measured concentrations of those pollutants. The index value of 100 corresponds to NAAQS set by the USEPA to represent the concentration for each pollutant below which no adverse health effect has been observed. Simply put, anything below 100 is all right.

Thus, the PSI intervals as already well known are:

PSI Value	Air Quality	PM10 Average Concentration Over 24 hours in microgram/m³
0 - 50	Good	0 - 50 microgram/m³
51 - 100	Moderate	50 - 150 microgram/m³
101 - 199	Unhealthful	151 - 350 microgram/m³
200 - 299	Very Unhealthful	351 - 420 microgram/m³
300 and above	Hazardous	420 microgram/m³and above

Currently, sophisticated equipment are available and can instantly calculate the moving hourly average concentration, 8 hour average concentration, or 24 hour concentration in accordance to the specified standards. If the equipment or software is set to record the moving average concentration of a pollutant over 24 hours, this means the equipment will take into account the latest pollution concentration up to the instant it calculates the preceding 24 hour average.

PM10 and Air Quality Monitoring in Brunei Darussalam

In Brunei Darussalam, the air quality monitoring network was installed at the height of the haze in 1997. Experiences of neighbouring countries have shown that in haze episodes, the highest recorded pollutant is the PM10. Therefore the present network in Brunei Darussalam is geared specifically towards recording the levels of PM10.

The body's defence mechanisms are generally adequate to remove inhaled dust or particulates in excess of 10 micron (1 micron is a millionth of a millimeter, or 100 micron is a hair's width). Some of this dust will either be filtered out by our nose hairs, or removed through coughing and sneezing.

Particulate matter at sizes below 10 micron on the other hand are invisible to the naked eye, inhalable, and can enter and be deposited in the respiratory system . PM10 then is more relevant to health consideration; thus its inclusion as one of the criteria pollutant in air quality monitoring.

24 Hour Average or 1 Hour Average?

For PM10, if we were to convert the concentration readings into PSI value, we should take the average concentration for 24 hour. Only then the PSI value and its corresponding health warnings are functional. This is the standard as set and there is no need to re-invent the wheel. This average concentration over 24 hour can be reported hourly as a moving average.

Before the advent of continuous monitors, PM10 were measured using high-volume sampling. Ambient air is drawn through a filter by means of a turbine blower for 24 hours. The filter is weighed before and after sampling so that the mass of collected sample is determined. The concentration of the dust, in this case PM10 is computed as the mass of collected particulates divided by the volume of air sampled and expressed in microgram/m³_,or m g/m³.

However, sophisticated equipment and softwares are now available and can instantly calculate the moving hourly average concentration, 8 hour average concentration, or 24 hour concentration in accordance to specified standards. If the equipment or software is set to record the moving average concentration of a pollutant over 24 hours, this means the equipment will take into account the latest pollution concentration up to the instant it calculates the preceding 24 hour average.

Strictly speaking, concentrations of PM10 averaged over 1 hour need not be converted into the PSI scale. This is simply because there is no such standard or reference in the USEPA-PSI. Nevertheless, because of overwhelming public concern over the potential health risks from instantaneous exposure, concentrations of PM10 averaged over 1 hour were converted into PSI as an indicator and published by the National Haze Committee for public consumption.

It has to be emphasised that the moving average concentration over 24 hour for PM10 would have taken the real-time concentration in its up-to-the-instant calculation anyway.

Presently the National Haze Committee publishes on hourly basis both the PM10 concentrations averaged over 24 hour and the moving averaged over 1 hour.

Should I Believe The Readings?

The present monitoring equipment for PM10 are the type approved by the USEPA as either the reference method or designated method. These are the R&P Tapered Element Oscillating Microbalance.

Like any other exceptionally sensitive electronic equipment, there will be occasional spikes in the measurements. The spikes are more easily disregarded when the air quality is good. Unfortunately in conditions such as at present, the spikes are not as easily discounted.

The equipment are regularly re-calibrated and the filter changed. Unfortunately at more than B$50,000 each, it is not as easy as purchasing 10 rulers and placing all of them side by side to compare the length, or to compare concentration readings in the case of these equipment. However these equipment are of the approved type and have performed as expected during good air quality conditions. There is no reason to doubt the integrity of these equipment now.

Also, localised conditions such as the terrain, changing wind directions and such like will affect the distribution or movement of the haze. As such, different monitoring points will record different readings as frequently seen in the PSI's for Bandar Seri Begawan, Kuala Belait, Tutong and Temburong.

In addition, readings of averaged concentration over 24 hours, because of its averaged nature, can appear much lower or higher than at any given instant. But one must always remember the health warnings on the PSI scale are only functional for concentrations averaged over 24 hours and presently there is no standard or internationally accepted advice available for levels of concentrations of PM10 averaged over only 1 hour.

How Can The Readings Be Low When The Haze Is Visibly Thick?

Remember PM10 is invisible. If you can see the haze, you are actually looking at the larger particulates. The available equipment only measures the concentrations of particulates at invisible sizes. So thick (visible) haze need not necessarily correspond to high PM10 (invisible) readings all the time.

Also remember smoke comprises condensation and vapours as well as dust. In the morning, there might well be mists as well. These also add to the reduced visibility. Condensation and vapours are not measured by the equipment because the air is dried before it is passed over the sensor.

PM10, being smaller and lighter than the bigger dusts, can also travel faster and further. Therefore it is also possible that a thick (visible) haze which is a few days old contains only the bigger and slower moving particulates. Most of the (invisible) PM10 may have already blown away, especially if there are no fresh new source of the lighter PM10.

How Serious Is This Haze?

The unhealthy level for PM10 on the PSI scale starts at 100. This corresponds to a concentration average of 150 microgram/m³ over 24 hours.

To put this into perspective, a whif of a ciggarette smoke can generate a reading of around 3,000 microgram/m³. In addition, cigarette smoke also contains nicotine.

We should view the haze problem in its proper perspective.

Health Advice