Water and Sanitation in the City of Cape Town. Integrated Analysis Baseline Report

Transcription

1 Water and Sanitation in the City of Cape Town Integrated Analysis Baseline Report submitted by The Sustainability Institute, South Africa E-Systems, Holland under the UNF-funded project, Integrated Resources Management for Urban Development (UNDP Project No ) Compiled by Sonja Pithey, Cape Town Stellenbosch

2 Acknowledgements Professor Mark Swilling, Sustainability Institute - project management Lisa Thompson-Smeddle, Sustainability Institute - project coordination Sonja Pithey, Sonja Pithey Consulting - report compilation John Frame, John Frame Consulting - financial inputs Osman Asmal, City of Cape Town (CCT) - project overview Shirene Rosenberg, CCT - information and report review Wouter Roggen, CCT - information and report review Barry Coetzee, CCT - information on policy and legislative issues Craig Haskins, CCT - information and report review 2

3 CONTENTS SUMMARY INTRODUCTION PROJECT LOCATION PROJECT SCOPE AND OUTCOMES POLICY AND KNOWLEDGE CONTEXT NATIONAL WATER AND SANITATION LEGISLATION, POLICES AND STRATEGIES Constitution of South Africa Water Supply and Sanitation Policy, 1994, and the 1997 White Paper The Water Services Act National Water Act 1998 (NWA) Municipal Structures Act Municipal Systems Act Basic Household Sanitation Policy National Water Resource Strategy National Water Conservation and Water Demand Management Strategy Strategic Framework for Water Services National Disaster Management Act National Environmental Management Act 1998 (NEMA) Environmental Conservation Act 1989 (ECA) Municipal Finance Management Act PROVINCIAL LEGISLATION, POLICIES AND STRATEGIES CCT WATER AND SANITATION LEGISLATION, POLICIES AND STRATEGIES CCT Integrated Development Plan City Development Strategy (Sakha Ikapa 2030) Metropolitan Spatial Development Framework (MSDF) Integrated Metropolitan Environmental Policy (IMEP) CCT Water Services Development Plan CCT Water Conservation and Demand Management Strategy By-Laws CCT State of the Environment Reports MILLENNIUM DEVELOPMENT GOALS SUSTAINABILITY OF WATER AND SANITATION PROVISION IN CAPE TOWN CAPACITY BUILDING STRATEGIES WESTERN CAPE RECONCILIATION STUDY AND BERG RIVER CMA PROCESS REGULATORY AND INSTITUTIONAL ENVIRONMENT REGULATORY SYSTEM INSTITUTIONS Historical background Current and future institutional arrangements WATER CONSERVATION AND WATER DEMAND MANAGEMENT Progress to date Case Studies WATER AND SANITATION INFRASTRUCTURE AND USAGE WATER SUPPLY Surface water resources

4 4.1.2 Groundwater resources Water supply infrastructure Alternative water sources WATER DEMAND End use Water losses and unaccounted for water BASIC SANITATION AND WASTEWATER TREATMENT Basic sanitation Wastewater treatment infrastructure State of infrastructure Wastewater effluent and environmental impact Sewage sludge Wastewater reuse Grey water SERVICE LEVELS URBAN WATER CYCLE ASSET MANAGEMENT GREENHOUSE GAS EMISSIONS ASSOCIATED WITH WATER AND SANITATION Biogas SUMMARY OF ENVIRONMENTAL IMPACTS TECHNOLOGICAL INTERVENTIONS EXISTING TECHNOLOGIES AND ENERGY ALTERNATIVE TECHNOLOGY OPTIONS Alternative sources of water Technologies to reduce water consumption Wastewater treatment technologies Catchment planning and integrated urban water management (IUWM) Centralised vs. decentralized wastewater treatment technologies FINANCIAL ASPECTS WATER DEMAND AND WASTEWATER DISPOSAL Tariffs, income and expenditure SEWERAGE TREATMENT Alternative sanitation technologies BILLING SYSTEM HOW WASTEWATER TREATMENT PLANT BUDGETS ARE DETERMINED HOW NEEDS ARE DETERMINED HOW PRIORITIES ARE SET HOW FINAL DECISIONS ARE MADE CHALLENGES AND CONSTRAINTS CONSTRAINTS, CHALLENGES AND FUTURE RECOMMENDATIONS INSTITUTIONAL ISSUES FINANCIAL ISSUES ENVIRONMENTAL AND HEALTH ISSUES TECHNOLOGY AND INFORMATION ISSUES FUTURE RECOMMENDATIONS ACRONYMS REFERENCES

5 SUMMARY 1. Background This report provides baseline information on water and sanitation in the City of Cape Town. It is one of three reports for the Integrated Resource Management for Urban Development Project, which identify current and more sustainable practices in the water and sanitation, energy and waste sectors. This water and sanitation baseline study has the following chapters: 1) Introduction 2) Policy and Knowledge Context 3) Regulatory and Institutional Environment 4) Water and Sanitation Usage Patterns 5) Technology Interventions 6) Financial Aspects 7) Challenges, Constraints and Future Plans. Despite significant economic growth, Cape Town faces huge socio-economic and development challenges. In the water and sanitation sector, years of inadequate investment in infrastructure has led to a crisis situation. An estimated R1, 5 billion is required to upgrade wastewater treatment facilities to meet legal discharge requirements, and development has been curtailed in areas with inadequate supply infrastructure and/or overloaded wastewater treatment plants, at a huge social, economic and environmental cost. In spite of constraints, most formal households in Cape Town have reliable access to clean water and proper sanitation services. The City of Cape Town Municipality (CCT) has developed by-laws and a service delivery plan aligned with its growth and development objectives. CCT recently committed R759 million to a Water Conservation and Demand Management Strategy which aims to reduce demand by 323 Ml/day over the next 10 years. 5

6 However, most citizens who live in un-serviced areas and overcrowded dwellings would question the extent to which water and sanitation service delivery objectives are being met. Key issues and findings are summarised below. 2. Institutional challenges Human resources - Emerging strategies require additional, highly-skilled personnel, a full staff complement and ongoing capacity development to ensure the necessary competencies. Restructuring - Ring-fencing of Water and Sanitation Services and the separation of Water Services Authority (WSA) and Water Services Provider (WSP) roles need to be completed. The Berg River Catchment Management Agency (CMA) process provides an opportunity to revisit approaches to water services provision. Integrated planning and operations - The CCT 2007 Water Services Development Plan is the first that is aligned with the city s Integrated Development Plan. External integration with national and provincial policy and processes, and internal integration with line function planning and operations remain ongoing challenges. Integrated Urban Water Management (IUWM) - The changing institutional landscape provides the ideal opportunity for CCT to adopt IUWM, as the international best practice approach to water resource management. 3. Operational challenges Capital requirements - The financial viability of water and sanitation services is at risk, with a rising debt of R2 billion. Last year, operational costs were R2, 6 billion and capital costs R450 million. R1, 5 billion is required to ensure that wastewater treatment plants meet discharge standards. Revenue collection, cross-subsidisation and sustainable tariffs are essential to fund service provision. Water demand management - Effective water restrictions and demand management have decreased water use from 920 Ml/day in 2000 to the current 6

7 745 Ml/day. R759 million has been budgeted over the next ten years to further reduce water demand by 323 Ml/day, which should ensure an adequate supply beyond The strategy should save R1 694 million, but sustained capital investment will be needed to achieve this target. Unaccounted for water - 23% of the city s current water use cannot be accounted for, due to unmetered consumption, leaks or billing/meter errors. The loss of revenue for the unaccounted for 186Ml/day is huge. Wastewater treatment - Years of under-investment in wastewater and reticulation infrastructure have led to the current crisis. Treatment plants are overloaded and discharge substandard effluent to the environment, in contravention of various Acts. More than 50% of the current budget (R404 million) is for rehabilitation of the aging reticulation network. Basic sanitation - More than people in Cape Town do not have access to basic sanitation, and no provision has been made to meet the basic needs of informal dwellers that arrive each year. Water and sanitation provision and environmental impacts in many informal settlements do not meet legal requirements and standards. 4. Resource management challenges Water - The 2007 DWAF Reconciliation Study will prioritise water supply options to meet future demand. Most of the 81 million m 3 of water from the new Bergwater Dam will be allocated to the city, which has reduced demand to well below the 2003 crisis level. Groundwater use is under-developed and only 7% of treated effluent is currently being reused. A pilot desalination plant aims to test the financial viability of this option. Loss of environmental services - Most rivers receiving treated effluent are severely degraded and many beaches are not safe for swimming during summer, due to contaminated wastewater discharges. Many urban water bodies have lost their ability to clean up pollution and are not fit for recreational use. Human health risks - Toxic algal blooms and polluted run-off from poorly serviced settlements pose a serious health risk to communities. Clear 7

8 correlations between pollution and human health and quality of life are necessary to highlight these environmental conditions and related health risks. Energy and green house gases (GHGs) - Local information linking water and sanitation to energy and GHG emissions is scarce. The Athlone wastewater treatment works vents the electricity generation equivalent of R2, 8 million in biogas, and a pilot project could test alternative technologies that use this resource. The potential contribution of sewage sludge to the energy sector is unclear. Feasible energy saving technologies for the water and wastewater sector have been identified and could be tested. This study substantiates the following strategic interventions for the water and sanitation sector proposed by the National Strategy for Sustainable Development: Sustaining our ecosystems and using natural resources efficiently Investing in sustainable infrastructure Creating sustainable communities Enhancing integrated planning systems Building capacity for sustainable development. 5. Key recommendations The following recommendations are in addition to those in the comprehensive CCT Water Conservation and Water Demand Management Strategy: Resolve institutional reform issues and appoint staff as matter of urgency Develop internal financial and business skills Adopt IUWM to align national, provincial and local planning Gauge progress of, and ensure commitment to the WC/WDM strategy Develop capacity to enforce by-laws Investigate alternative technologies for wastewater treatment and disposal, including for sewage sludge Investigate decentralised technologies for wastewater treatment Develop indicators linking human health and quality of life to environmental degradation 8

9 Develop wastewater effluent reuse guidelines Conduct a water and sanitation service energy audit to identify cost-saving interventions Investigate the use of energy from wastewater (biogas and sludge, e.g. the Athlone pilot project). Water resource management in CCT provides many opportunities for innovation and transformation in terms of water conservation and cost saving, and sustainable options for water provision, water resource management and environmental protection. The conceptual work has already been done, and operational planning and implementation are now necessary. 9

10 1. Introduction The Sustainability Institute has secured UNF funding for an Integrated Resource Management for Urban Development Project. This baseline study on Water and Sanitation services in Cape Town (together with Energy and Waste studies), form part of the first phase of the project, which aims to assist the City of Cape Town (CCT) to identify and implement more sustainable practices. 1.1 Project location The project focuses on the City of Cape Town in the Western Cape, South Africa. 10

11 Figure 1: Project location Cape Town has an extremely long coastline relative to its total area, and a varied topography, ranging from the low-lying Cape Flats to high mountains such as Table Mountain, which towers 1000m above sea level. Cape Town s generally small rivers are not used for domestic water supply and most have been degraded by urban development, have poor water quality 1 and high levels of alien infestation and siltation. Rivers in the city include the Salt, Diep, Black, Eerste, Kuils, Moddergat and Lourens rivers. Rivers used as water sources are the large Berg River and its tributaries, the Wolwekloof and Banhoek, Sonderend, Palmiet, Klein Berg and Leeu rivers, which all lie outside the city. 64% of the Western Cape population lives in Cape Town (Census 2001), which generates 76% of provincial Gross Domestic Product (GDP). The city is blessed with unique geophysical features and natural resources, which support a lucrative tourism industry. The mountains, coastline and rich biodiversity that are part of this valuable natural heritage are all threatened by the pressures of urban development. The city s socio-economic and development challenges are huge. Over the past decade, poverty and unemployment have almost doubled, the housing backlog has more than doubled, drug-related crime has tripled, HIV prevalence has increased tenfold and public transport has deteriorated 2. This social deterioration has occurred despite significant economic growth (4% annual increase in GGP), improved basic service provision (water, waste, electricity) and expansion of the tourism industry. Decades of distorted development in the city have resulted in a highly-skewed distribution of income and wealth. Poverty has increased, from 25% of households in 1996 to 38% of households in 2005 living below or marginally above the poverty line. High levels of poverty and unemployment raise the issue of service affordability. This 1 See Water Quality indicators in the Sustainability Report, COCT, CCT, 2007 :Executive Summary :Water Services Development Plan (WSDP) 11

12 report highlights these and other critical issues facing the water and sanitation sector in the city. 1.2 Project scope and outcomes This baselines report summarizes available information on water and sanitation systems in Cape Town, sourced mainly from unpublished internal CCT documents. This document is submitted electronically and consists of two components: Water and Sanitation in Cape Town Integrated Analysis Baseline Study - MS Word text document Water Resource References MS Excel spreadsheet with hyperlinks to actual source document (where available). This report has the following chapters: 1) Introduction and background 2) Policy and Knowledge Context 3) Regulatory and Institutional Environment 4) Water and Sanitation Usage Patterns 5) Technology Interventions 6) Financial Aspects 7) Challenges, Constraints and Future Plans. The report summarizes key issues and publications, and facilitates further investigation via the Water Resource References spreadsheet and accompanying CD, which collate key policies, documents and research papers. Where available, hyperlinks have been provided to actual documents. To remain an effective tool, the spreadsheet should be updated regularly to reflect changes in the sector. 12

13 2. Policy and Knowledge Context South Africa is a water-poor country, and prior to 1994, little was done to address this reality. Water allocation and sanitation provision were driven by racial bias, and the previous National Water Act 54 of 1956 placed industrial and agricultural water needs above social and environmental water needs. This mismatched distribution of water between various user groups is still evident today. Though new SA water policy, based on the principles of equity, sustainability and efficiency, is internationally acclaimed, the gap between policy and practice remains a key challenge for all tiers of government. 2.1 National water and sanitation legislation, polices and strategies This section provides an overview of national water legislation in SA since Where indicated, hyperlinks provide access to source documents in the Water Resource References spreadsheet on the CD which accompanies this report Constitution of South Africa 1996 The Constitution embodies an overarching obligation to sustainable environmental management, and calls on local government to provide services in a sustainable manner, provide a safe and healthy environment for all communities, promote social and economic development and ensure transparent governance. Section 156 of the Constitution prescribes the functions of local government, which include services such as water and sanitation, transport, and environmental and stormwater management. The right to a healthy environment, protected for present and future generations, is affirmed in Section 24. Recent legislation such as the Promotion of Administrative Justice Act supports effective enforcement of the constitutional rights of citizens. Equitable access to water has been a political issue since the Freedom Charter (1956), and Section 27 (1) (b) of the Constitution which states that Everyone has the right to have access to sufficient water, paved the way for a fundamental review of water law. 13

14 The following table, from a Water Research Commission (WRC) review, gives an overview of the major phases of the water policy review process. Figure 2: Water Policy Process: Major phases and activities 3 The review also covers the influence of macro policy development processes such as the Reconstruction and Development Programme (RDP) on water policy development. 3 From : An Assessment of the Water Policy Process in South Africa ( ), WRC Report No TT232/04, June

15 2.1.2 Water Supply and Sanitation Policy, 1994, and the 1997 White Paper These documents indicate a fundamental shift in national government involvement in the delivery of basic water and sanitation services to previously disadvantaged people (many living in rural areas), and introduced the principles of domestic water for basic human needs and realistic water tariffs The Water Services Act 1997 This Act legislated municipal provision of water and sanitation services, based on the Constitutional right to sufficient water, and gives municipalities the authority to manage their own water supply. The Act stipulates that every municipality as a Water Services Authority (WSA) must prepare a Water Services Development Plan (WSDP) 4 that includes measures to promote water conservation and demand management, as part of their Integrated Development Plan (IDP) National Water Act 1998 (NWA) The NWA, recognized internationally as one of the most progressive water acts, was the outcome of a consultative water law review process started in It emphasizes the principles of equity, efficiency and sustainability, which drive all water sector policies and strategies. The NWA governs the protection, use, development, conservation, control and management of groundwater and surface water resources, based on the Constitutional right to an environment that is not harmful to health and well-being. It provided for increased legal protection of water sources and all water users, and required that all phases of the hydrological cycle be considered and managed Municipal Structures Act 2000 This Act established various categories and types of municipalities, and the division of functions and powers between them, including for water services. District or local 4 WSDP : A business plan setting out the ways in which the Water Services Authority must plan and deliver water services to business and individuals in the area of jurisdiction 5 IDP: A strategic plan drawn up by the Municipality to guide all future development. 15

16 municipalities may be authorized by the Minister of Provincial and Local Government as WSAs and/or WSPs Municipal Systems Act 2000 This Act focuses on the internal systems and administration of municipalities. It differentiates between the function of an authority and a provider, identifies alternative mechanisms for providing services, and sets out requirements for entering into service delivery partnerships. The Act requires that all municipalities draw up an IDP to guide all development in their areas Basic Household Sanitation Policy 2001 Four key themes emerged from this policy 6 : Demand driven development Affordable systems Dual responsibility Full participation. The Department of Water Affairs and Forestry (DWAF) sees demand driven development as the most important of these National Water Resource Strategy 2004 This strategy provides the blueprint for water management in South Africa. It clarifies the differences between the National Water Act and the Water Services Act, and reconciles demand for water with available supply. The role of DWAF as central decision maker is clearly defined, and cooperation amongst various tiers of government and various water management institutions such as Catchment Management Agencies (CMAs) is promoted as the key to successful water resource management. 6 Impumelelo, 2004 Series of Best Practice, Water 16

17 2.1.9 National Water Conservation and Water Demand Management Strategy 2004 The Water Conservation and Water Demand Management Strategy for the Water Services Sector (WC/DMS -WSS) is one of three components of the NWC/DMS. The others are the Agriculture Sector and the Industry, Mining and Power Generation Sector strategies. The NWC/DMS contributes to the National Water Resource Strategy (NWRS) required by the National Water Act. The WC/DM - WSS outlines the objectives, constraints and opportunities, and the institutional roles of those involved in water conservation and demand management. It also gives guidelines and tools for implementing the strategy Strategic Framework for Water Services 2003 This key policy document sets out the future approach for provision of water services. Of the national targets set, the most critical for Cape Town are 8 : All people are to have access to functioning basic water supply by 2008 (achieved in CCT in 2005/06) All people are to have access to functioning basic sanitation by 2010 (CCT is aiming for 2012, due to the extent of the requirement and its unique challenges) Investment in water services infrastructure should total > 0,75% of GDP Institutional reform of regional WSPs to be completed by 2013, with water services managed and accounted for separately Annual reporting on key performance indicators to be started National Disaster Management Act 2002 The National Disaster Management Act emphasizes preparedness, prevention and mitigation, and requires disaster management plans which outline contingency plans and emergency procedures. Of particularly significance for water services is the requirement to develop contingency plans and emergency procedures for floods, dam safety, droughts and water pollution. 7 DWAF, 2004: Water Conservation and Water Demand Management Strategy for the Water Services Sector, Pg From CCT, 2007 WSDP 17

18 National Environmental Management Act 1998 (NEMA) NEMA gives effect to the Constitutional right to a healthy living and working environment, and provides legal powers to prevent or limit environmental degradation by government and the private sector. NEMA is an overarching Act that provides a framework for environmental principles and policies and their implementation 9. NEMA principles such as the polluter pays, environmental justice and integrated environmental management, and requirements such as community participation, empowerment and environmental education bring new challenges to governance, management and enforcement. The demand for social, environmental and economic sustainability is relevant to all service sectors. Section 24 of NEMA requires Environmental Impact Assessments (EIAs) for activities which could have a significant impact on the environment Environmental Conservation Act 1989 (ECA) The ECA aims to reduce the potential negative environmental impacts of activities related to development, and to promote sustainable development. Activities requiring an EIA are listed under Section 21 and 22, and Section 26 sets out procedures for conducting an EIA. Various activities involved in water and wastewater services fall under the EIA regulations Municipal Finance Management Act 2003 This Act outlines the roles and responsibilities of municipalities in terms of their financial management systems. Supply chain management and procurement procedures are specified. Although intended to streamline procurement, the lengthy procedures and contract limitations of the Act often hinder service delivery in the water sector. 9 Impumelelo, 2004 : Series of best practice : Environment 18

19 2.2 Provincial legislation, policies and strategies The Spatial Growth and Development Strategy, 2006 and the Western Cape Provincial Spatial Development Framework, 2006 are overarching growth and development frameworks for the Western Cape. Key challenges and opportunities are highlighted and targets are set, including for water and sanitation, providing a medium-term strategic framework for municipal IDPs. 2.3 CCT water and sanitation legislation, policies and strategies This section outlines key CCT polices and strategies, developed to meet provincial and national requirements CCT Integrated Development Plan 2007 CCT s IDP identifies development priorities and forms the basis for operational plans and allocation of resources. The IDP aims to alleviate poverty, boost local economic development, eradicate unemployment and promote reconstruction and development 10. The Municipal Systems Act and the Municipal Financial Management Act require that an IDP is a five year plan that is reviewed annually City Development Strategy (Sakha Ikapa 2030) CCT is currently developing a long-term Human Settlement Plan that should result in substantial changes in settlement patterns, land use, energy and water provision and waste management Metropolitan Spatial Development Framework (MSDF) The MSDF guides future settlement development in order to promote integration, equity, redistribution, environmental protection and quality of life. The MSDF defines the spatial implications of IDP projects and provides the framework for all public and private development. The highly fragmented spatial planning of the past has made the integration of more than 200 local development frameworks into the MSDF a complicated and time-consuming task. 10 CCT, 2005 Integrated Development Plan 2005/6 19

20 2.3.4 Integrated Metropolitan Environmental Policy (IMEP) IMEP, the overarching CCT environmental policy adopted in 2001, is a statement of intent and a commitment to environmental principles and values. IMEP formed the basis for various sector strategies which detail goals, targets and programmes to ensure sustainable resource use and management. It provides a vision for the environment of Cape Town in 2020, which includes the following 11 : Wastewater treatment facilities will be efficient and comply with legislative requirements Water and energy resources and utilisation will be optimally and efficiently managed. The CCT Integrated Metropolitan Environmental Management Strategy outlines the implementation plan for achieving the 2020 vision CCT Water Services Development Plan The Water Services Act, 1997, requires that all Water Service Authorities (WSAs) prepare a Water Services Development Plan (WSDP). WSAs must periodically review, update and adapt WSDPs, and report annually on implementation progress. The CCT WSDP is a five year business plan for water service delivery in its area CCT Water Conservation and Demand Management Strategy 2007 CCT recently adopted a new Water Conservation and Demand Management Strategy 12 based on the requirements of the Water and Water Services Acts and the vision and principles of the Water Services Department. The 2007 WC/WDM strategy replaces earlier programmes 13, and presents a very comprehensive, albeit optimistic future commitment for water services. This strategy is presented in more detail in the next chapter By-Laws The following table provides a summary of CCT by-laws regarding water services. 11 CCT, 2001 Integrated Environmental Management Policy 12 CCT, 2007 Water Conservation and Water Demand Management Strategy (Final Draft) 13 Replaces 2001 Policy and Point Conservation Plan 20

21 Date Description Effect on Water By-law promulgated Services Water 1 September To control and regulate More effective 2006 water services in the city management of the use of water and sanitation services by users Wastewater 1 September To control and regulate More effective and 2006 sewerage and industrial management of the Industrial effluent and discharges discharge of industrial Effluent effluent by users Credit Control Still in draft To give effect to the Water Services is and Debt form Council s credit control and more financially Collection debt collection policy, its sustainable (Existing policy implementation and dated June enforcement, as required 2004) by Section 98 of the Municipal Systems Act, 32 of 2000, and to give effect to the duty imposed by Section 96 of the Municipal Systems Act to collect all money that is due to the Council. By-law 23 September To provide for the More effective relating to 2005 regulation of stormwater management of the Stormwater management and to discharge of Management regulate activities which stormwater by users may have a detrimental effect on the development, 21

22 Date Description By-law promulgated operation or maintenance of the stormwater system Treated In preparation To control and regulate the Effluent use of treated effluent in the City Table 1: By-laws affecting Water Services 14 Effect on Water Services More effective management of the use of treated effluent by users CCT State of the Environment Reports These reports track the health of the city in terms of key sustainability indicators. Water and sanitation matters covered include the health of rivers, vleis and coastal bathing areas, and access to basic services. These reports provide a means of benchmarking and tracking overall progress and performance. 2.4 Millennium Development Goals The UN Millennium Declaration was adopted in September 2000, during the largest gathering of world leaders in history. 147 Heads of State and 189 member states committed their nations to a new global partnership to reduce extreme poverty. The resulting Millennium Development Goals (MDGs) are a set of time-bound targets, with a deadline of The declaration contains 8 goals, 18 targets and 48 indicators for addressing extreme poverty in its many dimensions: income poverty, hunger, disease, lack of adequate shelter and exclusion, while promoting gender equality, education, and environmental sustainability. In the context of this review, the following extracts 15 from the MDGs are particularly significant: Goal 7: Ensure Environmental Sustainability Goal 7 has the following targets: 14 CCT, 2007 WSDP 15 From UN Millennium Project website : 22

23 Target 9. Integrated the principles of sustainable development into country policies and programs and reverse the loss of environmental resources Target 10. Halve, by 2015, the proportion of people without sustainable access to safe drinking water and basic sanitation Target 10 has the following two water and sanitation related indicators: Indicator 30: Proportion of population with sustainable access to an improved water source, urban and rural Indicator 31: Proportion of population with access to improved sanitation, urban and rural South Africa s commitment to sustainability is evident and its progress in meeting the MDG s is outlined in the Department of Environmental Affairs and Tourism (DEAT) strategy for sustainable development (See below). At the World Summit on Sustainable Development in Johannesburg in 2002, the commitment to sustainable development was reaffirmed and poverty eradication was placed at its centre. DEAT s National Framework for Sustainable Development (NFSD) in South Africa 16, outlines a national strategy and action plan to achieve the MDGs. The vision of the National Strategy for Sustainable Development (NSSD) is: South Africa aspires to be a sustainable, economically prosperous and selfreliant nation state that safeguards its democracy by seeing to the fundamental human needs of its people, by managing it limited ecological resources responsibly for current and future generations and by advancing the efficiency of integrated planning and governance through collaboration nationally, regionally and globally. 16 DEAT, 2006 : National Strategy for Sustainable Development. (Draft Integrated Strategy for Review) 23

24 The NSSD identifies the following water and sanitation related risks: Water shortage due to a combination of climate change and increased demand, if exiting technologies and management practices remain unchanged Declining quality of water supplies and resultant cost increases, if infrastructure design and expenditure do not take into account the need to mitigate pollution impacts from human systems Shrinking supply relative to demand, coupled to an agriculture and industry bias in pricing structure, which push up prices for domestic households beyond affordability levels of poor communities Impact of climate change on both water supplies and irrigation requirements of the agricultural sector in certain critical river catchment areas Rising levels of sewerage output, as middle-class settlements expand and pit latrine systems are installed in low-income areas where the soil structure is inappropriate, with limited efforts to reuse and recycle these flows of nutrients and chemicals. The NSSD also identified the following priority areas for strategic intervention: Sustaining our ecosystems and using natural resources efficiently Investing in sustainable infrastructure Creating sustainable communities Enhancing systems for integrated planning Building capacity for sustainable development. The Preamble of the National Water Act, 1998 states 17 that: The ultimate aim of water resource management is to achieve the sustainable use of water for the benefit of all users. 17 DWAF, 1998 National Water Act 24

25 Sustainable management of our scarce water resources has been the priority in all post-1994 water management legislation and policy. CCT has made sustainable resource management the basis of policies and strategies in the IDP, MSDF and IMEP. The first vision statement of the City s IDP is: To establish Cape Town as a sustainable city that offers a future to our children and their children. Under the IDP Strategic Focus Area: Sustainable Infrastructure, the following is particularly significant: Objective Improved leveraging of the available funds without compromising the Council s ability to sustain service delivery. The strategic intent of Water Services is expressed in their vision 18 : To become a leader in the provision of equitable, sustainable, peoplecentred, affordable and credible water services to all. In order to reduce paper use, the CCT recently compiled a reference CD containing over 800 pages of policy and strategy documents on sustainable development 19. However, many current water resource management practices contradict the intent of the policy documents governing water management. 2.5 Sustainability of water and sanitation provision in Cape Town CCT has made great strides in developing sustainable policies, but citizens who endure the realities of un-serviced and/or overcrowded dwellings, polluted rivers and oceans, and an environment degraded by inappropriate development would question the extent to which commitments on paper are being met. Although SA water law is at the frontier of international water law development, and despite the abundance of water and sanitation laws, policy documents and 18 CCT, 2007(Power Point Presentation) :Water and Sanitation -WSDP Executive Summary 19 CCT, 2006 (CD): City of Cape Town policy and strategy documents towards sustainable development through integrated environmental management 25

26 processes, the reality for many remains far from these ideals, and presents major challenges regarding implementation. Critical water and sanitation challenges identified in the most recent CCT Water Services Development Plan (WSDP) 20 were: Eradicating the backlog of basic sanitation services Achieving the essential targets for reducing water demand Meeting the wastewater effluent standards and thereby reducing the impact on the water quality of urban rivers Asset management and ensuring that infrastructure is extended in time to meet the development growth demands Ensuring full cost recovery and debt management at a fair tariff, and financing of capital investment. The WSDP includes the following alarming facts: Of the R750 million required for capital expenditure, the Water and Sanitation Services Department is currently only getting approximately R450 million (2006/7 budget) - a shortfall of R300 million in capital funding. Block capital finance to relay water mains was eliminated in 2001/02, and the water reticulation system is suffering from budgetary neglect. In 2005/6 CCT eliminated its contribution to the Capital Renewal Reserve - a fund for upgrading and replacing infrastructure, funded from the surplus made in previous financial years. Finances for the Water and Sanitation Services Department have been deteriorating due in part to poor revenue collection and increasing bad debt, and there is currently no funding source for infrastructure maintenance. No funding to upgrade and replace infrastructure was available up until June 30 th, CCT, 2007 :WSDP Executive Summary 26

27 Finally, the pressures to deliver (or speed at which results need to be achieved) often pose the biggest threat to the sustainability of projects. Pressures could be legal, political, financial, social or environmental, or a combination of these. A pilot service delivery project in Kalkfontein 21, which used DWAF s Dense Settlement Strategy, highlights the importance of community participation in all aspects of a project. Time constraints in service delivery projects often lead to token or no public involvement. In Rethinking Delivery, 1999, Scmitz 22 highlights concerns regarding the accelerated pace of delivery, and developed the following checklist. Project Sustainability Check List Needs-driven projects are easier to implement than desktop-developed projects (bottom up vs. top down approach) Alignment should be ensured with broader strategies and policies (e.g. Acts, IDP, MSDF etc.) Community participation is required at all levels, from planning to operations Monitoring and evaluation systems should be determined before implementation, and be sustained Appropriate technology that meets social, economic and environmental requirements should be used Affordability of service: capital and long-term operational costs should be determined, and committed to over the long-term Ownership and accountability is required throughout the lifetime of a project. These items are particularly significant for fast-tracked water and sanitation projects in high-density, low-income areas, where basic services are often politicised. 21 Della Togna M & Pithey S, 2003 (VIDEO and CD). Improving Services Trough Dialogue. The Kalkfontein Stormwater Project. Rainbow Circle Films, Cape Town. 22 Scmitz, T, 1999 : Rethinking delivery : A review of efforts of DWAF, CPS Policy Analysis 27

28 2.6 Capacity building strategies The CCT Water Conservation and Water Demand Strategy prioritised capacity building, and the Hlonipha Amanzi (Respect Water) Programme 23 was launched in 2006/07 by Water and Sanitation Services in 30 informal areas. The project informs and educates informal communities on basic services, and encourages community cooperation to better manage valuable resources such as water, and to keep the environment and themselves clean to prevent the spread of diseases associated with an unhealthy environment. The sustainability and effectiveness of the project needs to be assessed. 2.7 Western Cape Reconciliation Study and Berg River CMA Process The Western Cape Reconciliation Study aims to develop strategies to reconcile projected water demands with the supply from the Western Cape Water Supply System (WCWSS) 24. It will shortlist options for feasibility studies, and will include public input on the options. This study will also be used to launch the process to establish a CMA for the Berg Water Management Area (WMA). The Berg CMA will manage water resources and involve all stakeholders in the protection, use, development, conservation, management and control of water resources in the Berg WMA 25 (see next chapter). The following table lists options to be considered in the study and should be read in conjunction with the accompanying map. 23 From COCT 2007, WSDP 24 WCWSS : The system includes five large dams, namely the Upper and Lower Steenbras and the Wemmershoek Dams owned by the City of Cape Town, and the Voëlvlei and Theewaterskloof Dams owned by the Department of Water Affairs and Forestry. In addition, there are a number of smaller dams and weirs including the Kogelberg, Rockview, Kleinplaas and Misverstand Dams. 25 From DWAF, 2005 Newsletter 1 : Western Cape Reconciliation Study and Berg River CMA Process 28

29 WS - Wide Spread implementation of options across the system area OMA - Outside Map Area 29

30 Water Supply Options Water Demand Management Options SURFACE WATER SCHEMES AGRICULTURAL WATER DEMAND MANAGEMENT Dams: River Release Management: 1 Twenty-Four Rivers 23 Riviersonderend 2 Waterval River 24 Berg River 3 Lower Wit River 25 Voëlvlei/Misverstand 4 Upper Wit River Irrigation Practices: 5 Upper Campanula Scheme WS Canal and Farm Dam Losses Diversions: WS Crop-Deficit Irrigation 6 Lourens River WS Drip/Microjet /Sprinkler irrigation 7 Eerste River 8 Olifants River (Keerom) TRADING OF EXISTING ALLOCATIONS 9 Upper Wit River 26 Eikenhof Dam 10 Upper Molenaars River 27 Lower Berg River 11 Michells Pass 28 Greater Ceres Dam (Koekedouw Scheme) 12 Voëlvlei Augmentation Phase 1 Dam Raisings: REMOVAL OF INVASIVE ALIEN PLANTS 13 Misverstand WS Within catchments 14 Lower Steenbras WS Riparian Zones 15 Theewaterskloof 16 Voëlvlei Augmentation Phases 2 and 3 URBAN WATER-DEMAND MANAGEMENT Transfers: WS Leak detection and repair 17 Brandvlei to Theewaterskloof Transfer WS Pressure management WS Use of water-efficient fittings GROUND WATER SCHEMES WS Metering and plumbing repairs in low income areas 18 Table Mountain Group Aquifer WS Use of grey water 19 Cape Flats Aquifer WS Use of well points and boreholes 20 West Coast Aquifers including recharge WS Metering 21 Newlands Aquifer WS Tariffs and surcharges / credit control WS Water User education DESALINATION WS Rainwater tanks 22 Desalination alone/with co-generation of energy WATER RE-USE OTHER SCHEMES WS Exchange reclaimed wastewater for commercial irrigation OMA Congo River Options WS Industrial re-use OMA Tanker /Inflatable bladders WS Reclamation to potable water standards OMA Orange River (Sea/Surface Pipeline) WS Urban irrigation OMA Towing of Icebergs WS New housing (dual reticulation) WS Aquifer recharge Table 2: An initial list of Water Demand Management and Water Supply Options to be considered in the Western Cape Reconciliation Study 30

31 cation of initial Water Demand Management and Water Supply Options to be considered in the Western Cape Reconciliation Study 26 Fig ure 3: Lo 26 DWAF 2005 Western Cape Reconciliation Process and Berg River CMA Process, Newsletter May

32 3. Regulatory and Institutional Environment 3.1 Regulatory system The current regulatory system and its institutions are based on laws, policies and regulations which, in our evolving democracy, are constantly being amended, updated or replaced. Many municipal managers and officials are so overburdened by operational responsibilities that they have little time to stay abreast of legal changes. 3.2 Institutions This section gives an overview of historical, current and future institutional arrangements in the water and sanitation sector in Cape Town Historical background It is important to understand historical developments in Municipal Water Services in Cape Town, to better understand current practices. The following section is from the 2007 draft Water Service Development Plan 27 : Prior to 1994, the current CCT area consisted of a large number of smaller municipalities or councils. The dominant municipality was the Cape Town City Council (CCC), which at the time owned and operated the bulk water supply system. Outside of the CCC area, the bulk supply system and the secondary distribution systems of the various municipalities were separated, with metered bulk off-takes used by the CCC for billing purposes. In the CCC area, however, the bulk and secondary systems were integrated, and all consumers were billed directly. With political changes in 1994, smaller municipalities in the city were amalgamated into 6 Metropolitan Local Councils (MLC s), with the Cape Metropolitan Council (CMC) as the regional local authority of bulk services. This prompted the separation of the bulk and secondary systems in the old CCC area. 27 COCT, 2007: WSDP 32

33 In December 2000 however, the six short-lived MLC s and former CMC were amalgamated to form the unified City of Cape Town (CCT). CCT currently operates the bulk water supply system via the Bulk Water Branch, supplying water to eight reticulation districts, which then distribute the water to end users. These eight districts are required to interact with 22 sub-councils to ensure political coordination and integration. The number of reticulation districts may be reduced from eight to four to increase operational efficiency. The Drakenstein and Stellenbosch municipalities, located outside the CCT area, also purchase bulk water from the CCT. Raw water is treated at water treatment plants, operated by the Bulk Water Branch, and then distributed via a network of large diameter pipelines and reservoirs to the districts. The bulk networks, up until the metered connection points of the districts, are operated by the Bulk Water Branch, while downstream of the meters, the secondary distribution networks are operated by the respective districts. Wastewater collection is done by the Reticulation Branch and treatment is done by the Wastewater Treatment Branch Current and future institutional arrangements DWAF national are the custodians of South Africa s water resources, and municipalities are accountable to DWAF regarding all water matters. The current organizational structure for water management in CCT is as follows. 33

34 Water Services Directorate WDM & Strategy Customer & Revenue Management Technical Services Bulk Water Supply Wastewater Treatment Water and Sewerage Reticulation Figure 4: Water services organisational structure 28 Reports on institutional matters are riddled with references to lack of capacity, significant staff losses, delays in the transformation process and low staff morale. Two institutional reform processes are currently underway that could have major implications for the future operation and management of water services in CCT: The separation of WSA and WSP roles Establishment of the Berg River Catchment Management Agency (CMA). The following section provides a synopsis of these processes and the anticipated consequences Separation of Water Service Authorities and Water Services Providers CCT intends to follow the national agenda by setting up a public, tariff-based service for water provision, with economic growth and job creation as high priorities. The decision to set up a separate WSA and a ring-fenced WSP was reconfirmed by Council in June 2004, based on a review of potential business units 29. This institutional reform process is also guided by the Strategic Framework for Water Services (SFWS) 30 which provides the following definitions. 28 CCT 2007 Water Conservation and Demand Management Strategy for Cape Town 29 ODA, aloecap and Africon, 2004 : High level review of the project to establish internal business units for Electricity, Water and Sanitation and Solid Waste Management Services 30 DWAF, 2003, Strategic Framework for Water Services 34

35 Water Services Authorities (WSAs) have the constitutional responsibilities for planning, ensuring access to and regulating provision of water services within the area of jurisdiction. They provide waters services themselves and/or contract external water services providers to undertake the provisions function on their behalf. They are responsible for securing licenses from DWAF (or CMA s where established) and regulate provision of water through by-laws and contracts. Water Services Providers (WSPs) are organisations that assume operational responsibility for providing water and/or sanitation services, and where services are provided on behalf of a given WSA, this must be in terms of a service delivery agreement (contract) with the WSA. The SFWS sets goals and targets for water services in SA and provides guidelines for the separation of WSAs and WSPs. However, in CCT the process has been delayed by delays in the transformation process. The above developments in SA are in line with the following international trends in institutional development in the water and sanitation sector, identified by a WRC survey 31 in 1994: A move towards integrated water cycle management Separation of regulatory and operational responsibilities A move towards the decentralization of operations Increasing emphasis on public participation, especially in policy making and planning A move towards treating water as an economic resource Adoption of commercial management practices and techniques Increased private sector involvement. 31 WRC, 1994 Financial and Institutional Review Survey Report: Palmer Development Group 35

36 Establishment of the Berg River Catchment Management Agency The National Water Act provides for the establishment of CMAs, as statutory bodies to manage water resources in hydrological catchments, called Water Management Areas (WMAs). Cape Town is in the Berg River (and Breede River) WMA, and is a key roleplayer in the establishment of the Berg River CMA. Initial CMA functions are 32 : To investigate and advise on the protection, use, development, conservation, management and control of the water resources To develop a catchment management strategy To coordinate the activities of water users and water management institutions To promote community participation in the protection, use, development, conservation and control of water resources To promote coordination between the implementation of its catchments management strategy and the WSDP of the WSA, (the municipality). 3.3 Water Conservation and Water Demand Management The City of Cape Town has adopted a multi-million rand water savings strategy for the next ten years. - CCT, In 1995 CCT committed to a 10% reduction in demand for water, but only in 2002 did the Integrated Water Resource Planning (IWRP) study 34 provide a comparative evaluation of water demand and supply augmentation schemes, that was needed to develop a comprehensive Water Conservation and Water Demand Management (WC/WDM) strategy. The study concluded that WC/WDM ranked highly in terms of affordability, implementation time frames, environmental impact and social acceptance. In 2001 CCT s Khayelitsha Pressure Management Project was very successful and received national recognition. However, implementation of the 2001strategy was not sustained 32 DWAF, 2005 Western Cape Reconciliation Process and Berg River CMA Process, Newsletter May CCT, 2007 Media Release 11 June 2007, Communications Department 34 CCT, 2001 : Integrated Water Resource Planning study Main Report 36

37 due to institutional challenges and lack of resources, and WC/WDM was significantly reduced during the period, when WDM was not a budget priority. CCT recently adopted a new WC/DM strategy 35 based on the vision and principles of the Water Services Department, and the WC/WDM requirements of the Water and Water Services Acts. The 2007 WC/WDM strategy replaces and incorporates all previous plans and programmes 36, and is a very comprehensive, albeit optimistic, future commitment for water services. The purpose of the 2007 WC/WDM strategy is to: Ensure the long-term balance between available water resources and water demand, postpone the need for expensive capital infrastructure projects for as long as it is economically viable, and to minimise water wastage. CCT hopes to achieve this by: Reducing operating costs by reducing non-revenue demand / Unaccounted for Water (UWA) Improving operation and maintenance Postponing the need for expensive infrastructure projects Increasing water services income through more equitable tariffs and capacity building amongst non-paying consumers (Current levels of income loss could be as high as R205 million per annum, for 20% of total demand, at an average selling price of R3.5 /kl) 37. The 2007 strategy has 5 goals containing 21 objectives, in two categories: Implementation Goals and Objectives resulting in a direct reduction of water demand Enabling Goals and Objectives addressing the institutional and financial aspects of the strategy. 35 CCT, 2007 Water Conservation and Water Demand Management Strategy (Final Draft) 36 Replaces 2001 Policy and Point Conservation Plan 37 CCT, 2007 WSDP 37

38 Implementation goals and objectives Goal A: CCT must by 2010 reduce and maintain the non-revenue water to below 15% of the total average demand and within accepted international benchmarks. Goal B: Water wastage by consumers should be reduced and maintained below 2% of the total demand by 2012 and most consumers should achieve acceptable water efficiency benchmarks by Goal E: Reduce the projected potable water demand to an average growth rate of no more than 1% pa for the next 10 years to conserve CCT s water resources. Enabling goals and objectives Goal C: CCT must by 2009 ensure and maintain ongoing effective management systems and implement IWRP in all decisions regarding water resources augmentation, bulk infrastructure development and water efficiency projects. Goal D: CCT must adopt WC/WDM as a key water service delivery strategy, and must give priority to its implementation by ensuring an enabling environment Progress to date In the past two years CCT has implemented successful WC/WDM projects, including the Mfuleni Integrated Leak Repair Project, the Fixit Project, education campaigns, treated effluent recycling and various pressure management projects. The focus of these projects is reducing non-revenue demand. In addition, tariffs for treated effluent reuse are being rationalised and should generate additional income, to be used to fund future WC/DM projects COCT, 2007 :WSDP Executive Summary 38

39 The expected WC/WDM budget for 2007/2008 is approximately R7 million for operations and R22 million for the following capital projects 39 : Pressure reduction - Mitchells Plain Recycling of treated effluent - Athlone Awareness and consumer education - city-wide Enhancing existing infrastructure Comprehensive leak projects in low-income areas Fixit Leak Project (ad-hoc repairs of large leaks) Other small projects city-wide (on a priority basis). The strategy estimates the following savings as a result of these interventions: Reduction of water wastage from an estimated 148 Ml/day to 111 Ml/day Reduction of inefficient water usage from 210 Ml/day to 147 Ml/day Further treated effluent reuse of approximately 65 Ml/day Reduction in the natural growth rate due to new consumers by 25 % per annum. Reduce growth rate from 3% to 2% (excluding reduction of existing water usage). It is estimated that water demand can potentially be reduced by 323 Ml/day. The financial requirements for the project for the next ten years are given in the following table. 39 CCT, 2007 : (Council Report) Adoption of long-term water conservation and water demand management strategy and financial plan, incorporating adoption of treated effluent strategy and master plan 39

40 WC/WDM strategy, budget summary of key projects (representing 85% of the budget) Objective Programme Operating Capital Total x 1000 Objective A1 A1.1 Pressure reduction R R R A1.2 Establishment of leak detection task teams R R R Objective A2 A2.1 Comprehensive water supply management R R projects in previously disadvantaged areas R Objective A3 A3.2 Preventative maintenance R R 0 R Objective A4 A4.2 Meter management /replacement programme R 0.0 R R Objective B1 B1.1 Consumer awareness campaign R R 0 R B1.2 Consumer education campaign R R 0 R B1.3 School education R R 0 R B1.4 Special events R R 0 R Objective B2 B2.2 enforcement of by-laws R R 0 R Objective B5 B5.1 Implement a plumbing retro fit programme R R 0 R B5.4 Implement an on-going support programme for R R 0 large consumers R Objective E1 E1 Recycling of water from wastage plants to R R parks & industry R Objective E2 E3.1 Support working for water programme R R 0 R Objective C1 C1.1 Establish Distircti management areas R R R Objective C2 C2.1 Management Information System R 0.0 R R C2.2 Upgrading the telemetry system, remote R 0.0 R communications (cell) R Other Small projects R R R Total R R R Table 3: WC/WDM Budget requirements of key projects (10 year total) The estimated funding for the next ten years is R759 million, whereas the benefit of implementing WC/WDM is estimated at approximately R1 694 million 40. This saving is summarised as follows: Operating costs saving Increased revenue, reduce commercial losses, debt management Saving from deferring capital projects Revenue from sale of treated effluent Sub total Less cost of strategy COCT, 2007 : (COUNCIL REPORT) ADOPTION OF LONG-TERM WATER CONSERVATION AND WATER DEMAND MANAGEMENT STRATEGY AND FINANCIAL PLAN, INCORPORATING ADOPTION OF TREATED EFFLUENT STRATEGY AND MASTER PLAN 40

41 Total net economic benefit Case Studies Pressure management The WC/DM strategy estimated that pressure reduction (where pressure is reduced in a supply zone, reducing losses through leaks) can reduce the overall water demand by Ml/day. The results of CCT pressure management projects in Mfuleni and Gugulethu reported in the WSDP 41 are summarized below. Mfuleni - The average pressure was reduced from 7 to 4 bar, generating a saving of kl (R ) per month. Night flows were significantly reduced by more than 50%. The low project cost of R had a payback period of only 2 months. Further reduction of night pressure by means of time-modulated specialist controllers is being investigated. Gugulethu - Pressure reduction has saved about kl (R ) per month. The payback period is only 1 month, and further savings can be obtained from the system installed. It is estimated that combined reductions in demand from these projects has already resulted in savings of approximately 2.5Ml Leak management CCT recently undertook two projects in this programme that involves fixing of leaks in domestic plumbing on private property. Mfuleni Integrated Leaks Project This project by CCT Water and Sanitation Services includes capacity building and training to develop plumbing skills in the community. Average monthly water consumption per property was reduced from 18,5kl /month to 11,4kl/month. For the 41 CCT, 2007 WSDP 41

42 roughly properties in this area, a 7kl /month saving each amounted to kl/month, and a project payback period of about 5 months. FixIt Leaks Programme This programme targets indigent homes (properties valued at < R ), 10% of which used in excess of 30kl per month, which was deemed unacceptably high. The project focused on these largest-volume users. As an incentive, it was agreed that arrears would be written off, if the owner kept their property leak-free for 6 months after the repair. To date leak repairs have been completed, with an average saving of 25kl/household per month. It is estimated that an investment of R will continue to yield an approximate saving of R per month. 4. Water and Sanitation Infrastructure and Usage The limited financial situation in the City versus the high demand for new housing has created a scenario where the City is not in a position to maintain existing infrastructure and to provide the required bulk infrastructure for connection of new developments. WSDP, 2007 The current state of bulk water and wastewater infrastructure is constraining social upliftment, growth and development, and economic prosperity in the City. An assessment and valuation of infrastructure and fixed assets in , estimated the replacement value of all water and sanitation infrastructure at R17,5 billion, broken down as follows: Water supply infrastructure Replacement value R mil Dams and catchments 932 Treatment Works Water Reticulation Water Pump Stations 314 Reservoirs Shands, Asch and Africon Engineering : Review of the infrastructure and fixed assets of the Water and Sanitation Service,

43 Depots (shared) 30 Sub Total Wastewater infrastructure WW treatment works Sewer Reticulation Sewer Pump Stations 284 Depots (shared) 30 Sub Total Total Table 4: Water and wastewater infrastructure replacement cost 43 In short, the City has failed keep up with the maintenance and development of infrastructure. International good practice dictates that about 2% of expenditure should be on Operations and Maintenance. The following section provides a summary of water supply and sanitation infrastructure and highlights some of the shortcomings identified in the asset review. 4.1 Water supply Surface water resources The map below shows the location of key components to the water supply system. 43 CCT, 2007 :WSDP Executive Summary 43

44 Figure 5: Main components of the Water Supply Infrastructure 44 The major dams from which CCT is supplied (Wemmershoek, Theewaterskloof and Voelvlei) are outside the City of Cape Town. Theewaterskloof Dam, near Villiersdorp, is the major water source, and forms part of a large inter-basin water transfer scheme that regulates the flow from the Sonderend, Berg and Eerste rivers. The Voëlvlei Dam near Gouda relies on diversion works in the Klein Berg, Leeu and 24 rivers for its water supply. The Wemmershoek Dam in the mountains near 44 CCT, 2006 WSDP 44

45 Franschhoek is supplied from various small rivers in the Wemmershoek Mountains (e.g. Tierkloof and Olifants rivers). The Steenbras Upper Dam and Steenbras Lower Dam are situated inside the CCT boundary near Gordon s Bay, and serve the dual purpose of providing an upper reservoir for the Steenbras Pumped Storage Scheme and for supplying water to the city. Other smaller dams include the Woodhead, De Villiers, Hely Hutchinson, Victoria and Alexandra dams on Table Mountain, which supply water to the southern suburbs and the Peninsula, and the Kleinplaas and Lewis Gay dams at Simons Town, which provide water to the Peninsula. 97% of Cape Town s 440,5 Mm 3 /year of water is surface water stored in dams over the wet winter months for use during the dry summer months. Groundwater sources only account for 6,64Mm 3 /year or 1,46% of the total. The following table gives CCT s water sources, their ownership and yields. DAMS/RIVERS APPROXIMATE % OWNED & OF TOTAL SUPPLY OPERATED BY REQUIREMENTS** FIRM YIELD* (1:50 YEAR) M m 3 CCT Registered Usage Major Sources % M m 3 Theewaterskloof Dam/ Kleinplaas Dam DWAF DWAF 48.3% Voëlvlei Dam DWAF 23.2% Palmiet River DWAF 5% 22, Wemmershoek Dam CCT 11.9% Steenbras Upper and Steenbras Lower Dam CCT 8.8% Total 97.1% Minor Sources Approx. yields 45

46 Simon s Town: DAMS/RIVERS APPROXIMATE % OWNED & OF TOTAL SUPPLY OPERATED BY REQUIREMENTS** FIRM YIELD* (1:50 YEAR) M m 3 CCT Registered Usage Lewis Gay Dam CCT 0,4% 1, Kleinplaas Land en Zeezicht Dam (From Lourens River) CCT 0,1% 0,5 0.5 Table Mountain: Woodhead Hely-Hutchinson De Villiers Dam CCT 0.88% 4 4 Victoria Dam Alexandra Dam Grand Total 98.5* * *Excludes the Groundwater resources: Atlantis Aquifer and Albion Springs **Approximate % : On an annual basis the usage from the various sources may vary. The Western Cape Water System (WCWS) is operated so as to minimise spillage by placing a water demand on the dams that are most likely to spill during the wet winter period Table 5: Surface Water Resources % of the city s water is from DWAF dams, with the balance from CCT sources. The total yield is about Mm³ for a 1:50 rainfall year. The next graph shows the fluctuation in storage capacity over a 12 year period. The strained capacity in 2004/ 2005, with dams reaching a 12 year low of 26% in April 2005, resulted in the water 45 CCT, 2007 WSDP 46

47 19-Jan 02-Feb 16-Feb 01-Mar 15-Mar 29-Mar 12-Apr 26-Apr 10-May 24-May 07-Jun 21-Jun 05-Jul 18-Jul 02-Aug 16-Aug 30-Aug 13-Sep 27-Sep 11-Oct 25-Oct 08-Nov 22-Nov 06-Dec 20-Dec % FULL conservation and demand management strategies outlined in the previous chapter. CITY OF CAPE TOWN DAMS: 12 YEAR GRAPH INDICATING % OF TOTAL STORAGE CAPACITY DATE Figure 6: City of Cape Town dams: 12 Year trends in storage capacity Groundwater resources The following table summarizes the available information. Aquifer No. of Boreholes Firm Yield (1:50 yr) % of Total Requirements Mm 3 /year Albion Spring Not applicable Approx % of total resources Atlantis 44 5 Cape Flats Not yet developed 18 Newlands Not yet developed 10 Total 6.64 Table 6: Table Groundwater resources 47

48 Albion Spring in Rondebosch, completed in 1890, has a treatment capacity of 4,5 Ml/day. Raw water is obtained directly from the spring, the ph is adjusted by aeration, and the water is chlorinated and then pumped directly into the CCT distribution system. The Atlantis supply scheme comprises two aquifers at Witsands and Silwerstroom, with 44 boreholes extracting groundwater. The Cape Flats Aquifer has an estimated storage capacity of 128Mm 3, but the rate of natural recharge is estimated at only 18 Mm 3 /annum 46. Its use, and that of the Newlands Aquifer, which could yield an estimated 10 Mm3/annum, has not been developed. According to the most recent draft WSDP, the total amount of treated water supplied by CCT is as follows. 2001/02 (mil m 3 ) 2002/03 (mil m 3 ) 2003/04 (mil m 3 ) 2004/05 (mil m 3 ) 2005/06 (mil m 3 ) Total water treated The total bulk water supplied 2005/2006 was 272 million cubic meters (average 745 Ml/day), including Unaccounted-for-Water (UAW) and losses in bulk pipelines. CCT also supplies about 62 Ml/d to WSAs and other minor consumers outside its area, giving a total of 807 Ml/d. The historic growth in demand between 1973 and 1997 was about 4% per annum Water supply infrastructure A review of infrastructure in gave a detailed account of all water services fixed assets, and indicated their condition, book value and replacement value. For more details, see the review and an internal CCT document on bulk water supply infrastructure 48. The following summary gives an overview of the situation. 46 CCT, 2005 : Water Resources and Water Resource Planning, Background information for WSDP (Internal Document) 47 Ninham Shands, Asch and Africon Engineering : Review of the infrastructure and fixed assets of the Water and Sanitation Service, CCT, 2005 : Existing Bulk Water Supply Infrastructure. Background Information for Water Services Development Plan(Internal Document) 48

49 Dams and springs Figure 5 indicates that CCT operates 5 major dams and one spring. These dams vary in age from 1896, when the Table Mountain dams were constructed, to 1980, when the Wemmershoek dam was completed. The replacement value of the dams was estimated at R 932 million. Depots Water Services has nine operational depots, with a replacement value of R58 million. Water treatment plants CCT has 13 water treatment plants with a a treatment capacity of 1 669,5 Ml/day and a replacement value of R1 billion. The oldest treatment plant at Kloofnek was constructed in 1926, and the most recent at Witsands was completed in Water storage reservoirs CCT operates 20 bulk water and 117 smaller reservoirs, of which Faure, Plattekloof and Blackheath are the largest. Reservoirs have a combined storage capacity of Ml and an estimated replacement value of R1,3 billion. Pump stations More than 55 water supply pump stations have a combined power of kw and an estimated replacement value of R314 million. Water reticulation The km of pipeline which convey bulk and treated water account for 70% of the value of the water supply infrastructure. The replacement value of this asset is estimated at R8 billion. The total replacement value of all water supply infrastructure is estimated at R11,6 billion. The bulk water system in the northern areas is under stress during peak periods and the EIA for an augmentation scheme in this area is underway. In general, water losses due to the state of the reticulation system are alarmingly high, and there is an urgent need to assess the entire system and plan a programme for its remediation. 49

50 4.1.4 Alternative water sources Various studies have indicated that Water Demand Management and Water Conservation (WC/WDM) are the most feasible water augmentation options to meet the growing water demand in the city 49. However, alternative sources of water currently under construction or investigation include: Dams - Berg Water Project: Construction is underway of a new dam, supplemental scheme and ancillary works that will provide 81Mm 3 of water. Groundwater - Table Mountain Group Aquifer Option 50 exploratory drilling phase is to be complete by June The Cape Flats and Newlands aquifers also require further investigation and development. Seawater - (Desalination) CCT is currently negotiating with V&A Waterfront regarding a possible desalination pilot plant. Advances in desalination technology over the past decade have decreased the costs of this technology significantly. It is currently estimated that the cost of water from a desalination plant would be in the order of R5 /m 51. Rain harvesting - The most common method is to collect rainwater from rooftops in tanks. Due to the winter rainfall and high cost of tanks, this method has not been explored in Cape Town, but the most recent WC/DM strategy 52 has proposed investigation of this option for low-income areas, to stimulate food gardens. Possible unconventional water sources, not currently under investigation, but listed in the WC/WDM strategy include iceberg harvesting, weather modification (cloud seeding), capturing stormwater discharge, importing water by ship, suppression of evaporation, recharging of ground water aquifers and water trading. 49 CCT, 2007 WSDP 50 For more information on the Table Mountain Aquifer Investigation go to 51 CCT, 2007 WSDP 52 CCT, 2007 WC/WDM 50

51 Water trading with other water users in the region is a feasible option needing investigation, as CCT could purchase water from other users such as agriculture on a temporary or permanent basis. The Reconciliation Study extract in Chapter 2 summarises the supply potential and status of alternative sources currently under investigation. 4.2 Water demand Water demand dropped from 920 Ml/day to 745 Ml/day in 2000 In 2006/2006 the city used 272 Mm 3 /year or 745 Ml/day of water. The distribution of water demand in Cape Town, from the latest WSDP is as follows. Category %age Commercial & Industrial 15% Departmental Cluster 2% Domestic Cluster 6% Domestic Full 45% Government 2% Miscellaneous 5% Municipal 3% Schools and Sports fields 2% Non-Revenue Demand 21% Table 7: Distribution of water demand Domestic use accounts for 51% of the demand for water. The second biggest user, Non-Revenue Demand (Unaccounted for Water) at 21%, is an alarming statistic, which due to discrepancies in calculations, is currently being reviewed 53. Indications are that this figure may be as high as 23 %. The third biggest water user is 53 John Frame, (Pers Com) : Ongoing revised calculations of Non-Revenue Demand 51

52 Commerce and Industry (15%). CCT currently provides a full level of service to approximately registered customers, in the following categories. Customer Type Number Commercial Industrial Department Miscellaneous Domestic* TOTAL * Includes cluster housing and sectional title. Table 8: Customer base with full level of service 54 Domestic customers include customers in cluster and sectional title housing. Customers in backyard shacks number about (2005 figure). The following graph shows the demand trend since CCT Demand Projections s ) e e tr m ic b u c n ilio (m d lie p u S lk u B Existing Supply Supply incl. BWP Unconstrained Low Water Demand Actual 2007/08 IDP WDM Strategy Year BWP= Berg Water Project, with addition of new Skuifraam Dam, increasing supply by 81Mm 3 Figure 7: Water demand curves against the backdrop of existing supply CCT, 2007 WSDP 55 CCT, 2007 WSDP 52

53 Actual demand declined from 1999 to 2001 due to the drought and water restrictions, and increased again from 2001 to 2003, but never reached the 1999 level. From 2003 demand declined again due to further restrictions. The current level of 272 million m 3 per annum (745 Ml/day in 2006) is 64 million m 3 less than the demand in 2000, which was 336 million m 3 per annum (920 Ml/day). We currently use 14% less water than in 2000, which can be ascribed to successful restrictions and water conservation and demand management strategies. The effectiveness of water demand management is evident from the drop in demand since The risk of severe restrictions has been reduced, and the Berg Water Project will provide an additional 81Mm3 of water from the end of With its water demand strategy and restricted use, CCT has attained minimal growth in water demand, way below water demand projections in 2002 IDP and WDM projections, which anticipated that further water resources would be required by The latest CCT projections indicate that the need for new water resources could be postponed until much later End use The most recent information on end use is in the 2005 Water Consumption Study for the City of Cape Town 56, and there is an urgent need for more accurate end use data. Global standards for unit demand are 50, 300 and 650litres/capita/day (low, middle and high). SA low, typical and high demands are 50, 150 and 300 l/c/d. Limited information is available on indoor and outdoor end-use, with the latter using the greater proportion, if a garden was present and irrigated, but the % of water used for gardens varies considerably between studies. Toilets, bath-showers and washing machines account for 75% of indoor use. Regarding price elasticity, it was found that garden water demand reduces more than indoor water demand if the price of water is increased. 56 CCT, 2005 Water Consumption Study, Community Engineering Services 53

54 4.2.2 Water use distribution Information on use distribution was presented according to the previous Metropolitan Local Council (MLC) boundaries, and is therefore given accordingly. The six previous MLC s have subsequently been replaced by 22 Sub Councils. Figure 8: Previous 6 Metropolitan Local Councils The following (past and projected) population statistics have been extracted: City of Cape Town Population 2001 Population 2006 Ave. Growth % Population 2016 Ave. Growth % Population 2031 Ave. Growth % Cape Town 1,130,175 1,187, ,253, ,280, Tygerberg 976,412 1,075, ,174, ,214, Blaauwberg 173, , , , South Peninsula 406, , , , Oostenberg 319, , , , Helderberg 148, , , , Total 3,154,217 3,547, ,997, ,255, Table 9: Projected population growth for the City of Cape Town 57 The following table summarizes the average yearly consumption per area for the period For further reference, this data contains monthly use per MLC for the Jan 2004 Dec and yearly total usage for the period CCT, 2006 WSDP 54

55 City of Cape Town Population 2006 Table 10: Water usage per previous MLC boundary billing area Within MLCs there is a direct link between population size and water usage. For example, the Cape Town MLC, with 33% of the population, used 34 % of the water and Helderberg, with 5% of the population, used 6% of the water Water losses and unaccounted for water Information in this section on unaccounted water (UAW) is from a recent report 59 to the Trading Services and Infrastructure Portfolio Committee. The SA Bureau of Standards (SABS) Code of Practice (SABS 0306:1999): The Management of Potable Water in Distribution Systems defines UAW as: The difference between the measured volume of water put into the supply and distribution system and the total volume of water measured to authorized consumers whose fixed property address appears on the official list of the water services authority. Average yearly water usage in kl % Use Cape Town 1,187, Tygerberg 1,075, Blaauwberg 271, South Peninsula 437, Oostenberg 389, Helderberg 186, Total 3,547, UAW as defined above comprises the following physical and non-physical losses: Physical losses o authorised but unmetered consumption o authorised but unmetered usage o reservoir overflows and leakage o distribution main bursts and leakage. 58 From King,Peter 2007, Unpublished Water Usage tables 59 CCT, 2007 Understanding Water Losses: Report to Trading Services and Infrastructure Portfolio Committee 55

56 Jun-05 Jul-05 Aug-05 Sep-05 Oct-05 Nov-05 Dec-05 Jan-06 Feb-06 Mar-06 Apr-06 May-06 Jun-06 Non-physical losses o unauthorized, unmetered connections o inaccurate meters o errors in billing and administrative systems. UAW is any water leaving the system that is not measured in some way. Summary of the water balance for 2005/06 Total water treated 290,698,195 m 3 Total water supplied to consumers 235,776,671 m 3 Total UAW 54,921,524 m 3 Total UAW as % of total water treated 18.9 % The following table presents a 12 month moving average of CCT unaccounted for water in 2005/06. UAW 12 Month Moving Average 25.0% 20.0% 15.0% 10.0% 5.0% 0.0% Figure 8: 12 Month moving average of UAW 56

57 The 2007 WC/WDM strategy 60 estimates the total UAW at 23.3% or 186 Ml/day, but explains that statistics on UAW do not necessarily reflect the amount of water wasted. Minimum Night Flow (MNF), consisting of reticulation losses and consumer wastage, is proposed as an alternative indicator. In a residential area where there is no industrial water usage, it can be assumed that most MNF recorded is wastage due to: leaks in the reticulation systems plumbing leaks on consumers properties indiscriminate wastage of water (e.g. taps left open) automatic flushing urinals (e.g. in schools and public buildings). However, the overall MNF in Cape Town cannot be accurately calculated due to some inadequate district management areas. The overall MNF is estimated at 20 % to 35% of the total average demand, i.e Ml/day. A recent Council Report on Unaccounted Water 61 lists the following challenges which Water Services must address to reduce water losses: Move towards a more informative method of reporting on water losses Ensure the accuracy of the water balance by addressing both the accuracy of measuring devices and the accuracy of the data used in the balance calculation Further planning and creation of distribution system zones to allow problem areas to be identified Ensure a strategy is in place to replace obsolete or inaccurate consumer meters Ensure all authorised but currently unmetered use is reasonably measured Ensure all new connections are placed on the billing system Audits and investigations to identify unauthorised consumption like illegal connections and unauthorised use of hydrants Large-consumer meter audit and meter sizing analysis Further application of pressure management to reduce leakage levels Establish mains leak detection and repair programme. 60 CCT, 2007 Water Conservation and Demand Management Strategy 61 CCT, 2007 Understanding Water Losses: Report to Trading Services and Infrastructure Portfolio Committee 57

58 Water Services is developing a strategy to address these issues and challenges regarding the measurement and reduction of water losses. 4.3 Basic sanitation and wastewater treatment To most people sewerage is not sexy. Politicians do not hurry to be photographed cutting the ribbon on a new sewerage plant. Cape Times 62 The dysfunctional state of sewage infrastructure in Cape Town is often front page news. Under the heading Sewage Shock the Cape Times editorial, cited above, highlighted the environmental consequences and limitations to development caused by the lack of past investment in sewage infrastructure. In her 2007/8 budget speech, the mayor cautioned against the negative impacts on development, public health and the environment, and emphasised the need for investment in sewage infrastructure 63. The following section gives an overview of basic sanitation and wastewater treatment in Cape Town. Two critical issues are: Provision of basic services to existing and new informal settlements Upgrading and extending existing wastewater treatment facilities Basic sanitation The bucket system will not be eradicated as long as informal housing persists in Cape Town, city officials say. Cape Argus, 3 April The fate of shack dwellers using buckets for toilets was decided at a CCT Council meeting where a call was made to address the housing backlog of , before 62 Cape Times, 3 April 2007 : Editorial 63 Cape Times, 3 April 2007 : Inadequate Management hinders development by Anel Powell 64 Cape Argus, 3 April 2007: Shack Dwellers stuck with buckets by Lindsay Dentlinger 58

59 upgrading sanitation services to informal dwellings. It was argued that proper sanitation services should be provided once people were moved to areas where this was possible. The latest WSDP 65 reports that approximately households do not have access to basic sanitation, while informal households have toilets shared by up to 5 households. Households without basic sanitation have access to an emergency level of service, which includes black buckets, of which still need to be replaced, as bucket eradication is a national policy imperative. The WSDP also highlights the lack of sanitation for the current influx into the informal settlements of about households per annum. 65 CCT, 2007 WSDP 59

60 4.3.2 Wastewater treatment infrastructure The following map shows key components of the wastewater treatment network. Figure 9: Main components of wastewater treatment infrastructure CCT, 2006 : WSDP 60

61 WWTW Type Permit volume Design Capacity - Present hydraulic Present hydraulic Hydraulic capacity available Design for Capacity - Design Capacity - Organic Present Organic loading Capacity - pe's still available for Discharge volume Additional requirement CCT s bulk wastewater infrastructure consists of: 20 wastewater treatment works 3 marine outfalls 27 major pump stations 15 major interceptor sewers about 120 km of bulk gravity sewers. 67 In addition to the above, there are approximately 395 smaller pump stations and associated reticulation networks that convey sewage in the city. Most of the wastewater flow of approximately 567 Ml/day is conveyed by pumping and treated at 20 wastewater treatment works. Only 32, 5 Ml/day is disposed of via three marine outfall pipelines. The following schedule provides a comprehensive overview of key wastewater treatment works data. Athlone AS 73, ,98 2 nil 99, , , ,9 82 no Bellville AS 14, , ,93 581,18 561, ,8 yes Borcherd s Quarry AS 12, , , , ,00 0 NIL 10,9 00 no Camps Bay Sea Outfall 2, ,400 40,000 19, no Cape Flats AS 91, , ,1 00 1,810,0 00 1,164, ,0 00 no Dover Ox Pond nil no 67 CCT,2001 : Bulk Water Infrastructure and Statistics (Internal document) 61

62 WWTW Type Permit volume Design Capacity - Present hydraulic Present hydraulic Hydraulic capacity available Design for Capacity - Design Capacity - Organic Present Organic loading Capacity - pe's still available for Discharge volume Additional requirement Gordons Bay Green Point Hout Bay Klipheuw el Kraaifont ein Llandudn o Macassa r Melbosst rand Millers Point Mitchells Plain Oudekra al AS 1, ,530 13,909 16,400 NIL 986 yes Sea Outfall Sea Outfall 10, , , , , ,78 3, , ,820 80,182 32, ,64 RDU NIL NIL 0 yes AS + BF 2, ,862 NIL 17, , , ,30 RDU ,591 1, no AS 13, , , , , ,9 AS 5, , ,700 24,545 15, yes RDU NIL NIL 22 yes AS 9, , , , , ,0 RDU NIL NIL 11 no Parow AS ,800 7,092 NIL 0 yes Philadelp hia Ox Pond yes Potsdam AS + BF 14, ,95 8 NIL 33, , , NIL 8,31 9 no no yes no no at prese

63 WWTW Type Permit volume Design Capacity - Present hydraulic Present hydraulic Hydraulic capacity available Design for Capacity - Design Capacity - Organic Present Organic loading Capacity - pe's still available for Discharge volume Additional requirement nt Scottsde ne AS 2, , , ,727 68, ,30 0 yes Simons Town BF ,040 27,636 12, no Wesfleur AS 2, , , , , yes Wildevoe lvlei AS 2, , ,460 86,000 73, ,61 3 yes Zandvliet AS 16, , , , , ,9 80 at prese nt Treatment type: AS = Activated Sludge Ox Pond = Oxidation pond BF = Bio-filter RDU = Rotating Disk Unit Table 11: Wastewater treatment data 68 There is a critical shortage of treatment capacity (hydraulic and/or organic) in areas experiencing rapid expansion such as Bellville, Klipheuwel, Gordon s Bay, Parow, Kraaifontein and Potsdam. Other significant approximate statistics from the report include: 31,0 Ml/d (5,9%) of wastewater is discharged directly via marine outfall sewers tons/annum of dry sludge is produced 31 Ml/d (6%) of treated effluent is reused. 68 COCT, 2007, WSDP 63

64 Total effluent received at treatment works 2000/ / / / / /06 Total (Ml) Inc / dec -0.7% +2.0% +0.2% +0.1% +1.2% This represents 88.3% and 84.3% of the water supplied to consumers in 2004/05 and 2005/06 respectively. This high proportion is also due to stormwater ingress into the sewage system State of infrastructure The strategic assessment of the bulk wastewater infrastructure conducted in evaluated the performance of wastewater equipment, processes and management systems, and identified necessary improvements. This comprehensive 37 volume report estimated requirements over the next 20 years and provided the basis for planning infrastructure upgrading and development. However, the wastewater department has not been able to keep to these recommendations. Media attention and the latest WSDP continue to highlight the alarming deterioration of infrastructure, and particularly the sewer system, due to under-provision for essential maintenance and replacement of aging infrastructure over many years. Major pipe collapses, leakages and stormwater infiltration require urgent attention. Many sewer systems are running over capacity and discharging sub-standard effluent and sewage sludge into receiving water and marine environments. The areas where water and sewer infrastructure are severely stressed and in need of significant upgrades include 70 : West Coast / Parklands development corridor De Grendel / N7 development node Northern development corridor 69 CMC, 1999 : Strategic Assessment of Bulk Wastewater Infrastructure : Study Synopsis (Ninham Shand and Africon) 70 CCT, 2007 WSDP, Executive Summary 64

65 Bottelary development corridor Fast-track housing projects (e.g. N2 Gateway) Maccassar / AECI development node Wastewater effluent and environmental impact The table below gives the percentage compliance of CCT wastewater treatment plants to DWAF treatment standards. WORKS Susp Solids Chem Ox Ammonia E Coli Demand Athlone Bellville Borcherds Quarry Cape Flats Gordons Bay Klipheuwel Kraaifontein Llandudno Macassar Melkbosstrand Millers Point Mitchells Plain Oudekraal Parow Potsdam Scottsdene Simons Town Wesfleur Domestic Wesfleur - Industrial Wildevoelvlei Zandvliet MORE THAN 90% COMPLIANCE 75% - 90% COMPLIANCE LESS THAN 75% COMPLIANCE Table 12: % Compliance of WWTWs to DWAF standards 71 Of the 20 wastewater treatment plants in Cape Town, 70% or 14 out of 21 have less than 75% compliance to DWAF standards for one or more of the listed variables. Although many wastewater practices violate the Water Act, DWAF favours a cooperative governance approach and has not enforced the law at this stage. 71 CCT, 2007 WSDP 65

66 The Cities State of the Rivers 72 report on the health of rivers in the greater Cape Town area found the ecological health of rivers downstream of Wastewater Treatment Works to be poor to bad. Degradation of rivers, wetlands and coastal bathing areas, toxic algae blooms and alien infestation are some of the consequences of polluted discharges. In addition, altered flows and canalization have diminished the system s capacity to self-cleanse and assimilate pollution. Water quality indicators show severe environmental degradation. The impact on human health has not been quantified, but there is an urgent need to link human health issues and quality of life to degraded environments in order to increase the profile of this issue Sewage sludge Wastewater treatment has three by-products. Wastewater (liquid), biogas (gas) and sewage sludge (solid). CCT produces an estimated tons of sewage sludge per year, of which 57% was beneficially used in WORKS QUANTITY ESTIMATED % MONTHLY BENEFICIALLY USED ANNUAL SLUDGE BENEFICIALLY PRODUCTION JAN TO DEC 2006 PRODUCTION - Tons USED - tons Tons Athlone 7, Bellville 5,250 5, Borcherds Quarry 4,000 1, Cape Flats 11,000 4, Gordon's Bay Kraaifontein 1, Macassar 2,800 2, Melkbosstrand Cited in CCT, 2006 WSDP for 2006/7 66

67 Mitchells Plain 4, Potsdam 4,500 4, Scottsdene Simon's Town Wesfleur 1,100 1, Wildevoelvlei Zandvliet 4,900 4, TOTAL 48,415 27, ,035 Table 13: Beneficial sludge utilisation 73 Due to the potential health risks, beneficial use of sewage sludge is governed by stringent regulations 74. Many under-utilised opportunities exist for beneficial use of sewage sludge, especially at the Athlone wastewater treatment plant, which produced 7,500 tons of sludge in The following disposal processes were considered in an earlier strategic investigation for bulk wastewater 75 : Incineration Composting High lime process Drying and pelletisation Co-disposal in landfills Direct agricultural use Manufacture of organic fertilizer Brick making and allied fields Co-combustion in coal fired power stations. 73 King, P Pers Com and unpublished graph 74 DWAF, 2006/7 Guidelines for Utilisation and Disposal of Wastewater sludge (Volume 1-5) 75 CMC, 1999 : Strategic Investigation of Bulk Wastewater, Study Synopsis, Cape Wastewater Consultants 67

68 CCT currently uses composting (Vissershok), land application (Athlone) and pelletisation. The final disposal option determines the preceding treatment processes and costs. As current information on uses and quantities is scarce, opportunities for beneficial use of sludge, especially in the energy sector, should be further investigated Wastewater reuse The investigation established that the potential of treated effluent use could be expanded to 170 Mega liters per day (40% of the total summer waste water treated per day) at an average total supply cost of below R2,0 / kl. This equals 30% of the annual supply from the new Berg River Dam Project. CCT, 2007: Review of Progress Treated effluent reuse is possibly the most underexploited resource in the City of Cape Town. Two thirds of the city s water consumption ends up in more than 20 Wastewater Treatment Works across the City, from where the final effluent is normally discharged back into the environment. However, the majority of golf courses in the city use treated effluent for irrigation, as do many parks and sport fields. A limited number of industries also use, and benefit from the lower tariff of reused water. The total existing average daily summer reuse is estimated at 30 Ml per day, or 7% of total wastewater treated 76. As cited above, it has been established that reuse can be increased from 7% (30Ml/day) to 39% (170Ml/day). A feasibility assessment in 2004 determined that at R2 per kilolitre, kl/year (63 Ml/day) can (in the short-term) be recycled to a number of potential large consumers. The following financial implications in the progress report illustrate the financial feasibility: To achieve the 63Ml/day saving of potable water will cost the CCT in the order of R202 million. At an average R2 /kl, the income generated once completed will be 76 CCT,2006 Water Services Annual Report 2005/6 68

69 approximately R51 million per year. This implies that the programme will pay for itself in approximately four years and will subsequently be generating income for CCT. CCT has identified three main programmes to maximize the use of treated effluent 77 : Installations and modifications to infrastructure (R202 million) Operations, maintenance and effective management of the treated effluent systems Consumer and financial management. The following table summarizes the cost and flow related figures of immediate quick win and longer-term effluent reuse opportunities. Plant Effluent reuse Site Presen Immediat Cost Long Cost Total t e term Ml/d Ml/d NPV(R/m Ml/d NPV(R/ Demand ) m) Athlone Bellville Cape flats Gordons Bay Kraaifontein Macassar Mitchells Plain Parow Potsdam Scotsdene CCT, 2007 WSDP 69

70 Plant Effluent reuse Site Presen Immediat Cost Long Cost Total t e term Ml/d Ml/d NPV(R/m Ml/d NPV(R/ Demand ) m) Wesfleur Wildevoelvl ei Zandvleit Total Table 14: Effluent reuse: Immediate and long-term opportunities Potential income from immediate works costing R3.49 million would release 7 Ml of effluent for reuse and generate an estimated R5.2 million per annum. The Athlone, Bellville, Cape Flats and Potsdam works have the highest effluent reuse potential, and it is estimated that 64.89Ml of effluent could be made available for reuse in the long term, at a cost of R202 million. A major extension to the Potsdam Works includes a new intake chamber, two new pump stations, a filtration plant, 4km of pipeline and a 40Ml storage reservoir. This scheme can reuse 17Ml/day of treated effluent, saving the same amount of potable water, at a construction cost of R19,0 M Grey water There are two key issues relating to grey water in Cape Town: The current risk that it poses to human health and the receiving environment in informal areas The unexplored potential of grey water as an alternative water resource. 78 CCT, 2007 WSDP 70

71 CCT Greywater Guidelines 79 define grey water as the run-off from informal settlements as a result of emergency water supply which consists of wastewater from washing of laundry, personal bathing and cooking activities. Grey water from un-serviced or poorly services areas is highly contaminated with organics, nutrients and pathogens. The bulk of grey water from informal settlements is discharged to the stormwater system, where is causes severe pollution, poses health risks to neighbouring communities, and has huge maintenance cost implications. The current guidelines propose that grey water be disposed of in the sewer system or in soak-aways, where soils allow for this. The 2007 WSDP 80 reports on a pilot grey water management project in Khayelitsha, which aims to establish the impact of aeration on a stormwater trench which collects grey water. The success and sustainability of this project needs to be assessed. Grey water from formal serviced areas is less prone to harmful pathogens, and can be reused in gardens and/or toilets. CCT s Water Conservation and Water Demand Management Strategy 81 promotes alternative technologies which include: rain harvesting local borehole extraction for small consumers grey water reuse unconventional water resources. The strategy notes the need to address health and pollution issues related to these practices and proposes budgeting for following activities of this programme: development of guidelines and regulations on the use of grey water research into products that can assist grey water reuse pilot project on grey water reuse promoting the use of grey water. 79 CCT, 2005 : Greywater Guidelines 80 CCT, CCT, 2007 WC/WDM Strategy 71

72 4.4 Service levels The following table shows the service level categories used by CCT. Category Water Inadequate Emergency No access to basic water supply as defined below. (Water would generally be obtained at great difficulty from other residents supplied at an emergency, basic or full level of supply.) Partial access to basic water supply, as dictated by site-specific constraints (e.g., high dwelling densities). Basic a) The provision of potable water (usually through communal taps/standpipes): within 200 meters of a household; at a ratio of not more than 25 households per tap (based on 25 liters per person per day at a flow rate of 10 liters per minute); with an effectiveness of not more than 7 days interruption supply to any consumer per year; and b) the provision of appropriate education in respect of effective water use. Full House connection Sanitation Inadequate No access to sanitation as defined below. (Residents would either share with other residents, supplied at a basic or full level of supply, their sanitation facilities, or would provide for themselves often through unhygienic means. In many instances these residents are being serviced by the CCT through the weekly removal of 20 litres open stercus black bucket containers, a service which is to be replaced.) 72

73 Emergency Basic Partial access to sanitation (more than 5 households per toilet), as dictated by site-specific constraints (e.g., high dwelling densities), a) The provision of a shared toilet (at a ratio of not more than 5 families per toilet) which is safe, reliable, environmentally sound, easy to keep clean, provides privacy and protection against the weather, well ventilated, keeps smells to a minimum and prevents the entry and exit of flies and other disease-carrying pests; and b) the provision of appropriate health and hygiene education. Full On-site Waterborne, Septic Tank or French Drain Table 15: Service level categories 82 Formal and informal areas (excluding rural areas) in Cape Town generally meet the minimum standards for water supply as required by the Water Services Act, i.e. a communal standpipe within 200 m walking distance, with a minimum supply rate of 25 litres per person per day at 10 litres per minute. All consumer units/ formal households have either a metered water connection to the house or to a yard toilet with water tap (uncontrolled volume supply). The first 6 kilolitres per month are supplied at no charge (free basic water). Informal areas have communal standpipes and water is provided free. The latest WSDP 83 reports that approximately households do not have access to basic sanitation, while informal households have a basic service which includes a toilet shared by up to 5 households. The households that do not have access to basic sanitation have access to an emergency level of service, which includes black buckets, of which need to be replaced households discharge to wastewater treatment works. 82 CCT, 2007 WSDP 83 CCT, 2007 WSDP 73

74 Formal households generally have water-borne sewer connections, with the first 4, 2 kilolitres of sewerage conveyed at no charge (free basic). Households with a property value greater than R used to pay a fixed charge based on their property value, but this will be discontinued from July Urban water cycle The following useful flow diagram is from the CCT Water Conservation and Demand Management Strategy. Figure 10: Urban water cycle in CCT Asset management Infrastructure management is one of the key strategy drivers of the Water Services Strategy. An asset management plan is a plan for the management of infrastructure 84 From Water Conservation and Water Demand Management Strategy, COCT