Utilization of Waterworks Guideline for Reinforcement of Objective Management

Transcription

1 Utilization of Waterworks Guideline for Reinforcement of Objective Management Bureau of Waterworks, Tokyo Metropolitan Government 1. Need of objective management in waterworks (1) Status quo of waterworks management Ever since the establishment of modern waterworks, waterworks in Japan has been making incessant efforts in development of water resources and installation and consolidation of facilities in order to meet the increasing water demand following high-level economic growth and increase of population. As a result, the water supply diffusion rate, as of the end of FY2003, has reached a high level of 96.9%, indicating that most of the countrymen have the access to the water supply service. However, nowadays the advanced and diversified public needs such as steady supply of safe and high-quality water, countermeasures against disaster, etc. call for an immediate attention. Further, there are various other problems demanding attention such as execution of social responsibilities as represented by environmental problems and international contribution, efforts for high-efficiency management, etc. (2) Objective management in the Bureau of Tokyo Waterworks As proper and effective solutions to such problems, the Bureau of Tokyo Waterworks has set up numerical goals from an early stage and has adopted objective management system to evaluate the degree of achievement at certain intervals of time. In the case of the midterm management plan Waterworks Management Plan 2000, for example, numerical targets are set up such as water resource availability rate and advanced water purification rate, etc., with the achievement status evaluated, and the progress status controlled and externally announced. However, since these data are the indexes issued originally by the Bureau of Tokyo Waterworks, the achievement status is still vague, the items are fewer and the fields confined, leaving problems to be solved.

2 Table: Setting up numerical goals in Waterworks Management Plan, 2000 (figures in the parentheses indicate design values) Index FY1999 FY2003 Improvement in efficiency (index per capita) Number of service connections ( 10 3 cases) 1.0 (1.0) 1.2 (1.2) Extension of distribution pipe management (km) 4.1 (4.1) (4.8) (4.5) Accounted-for water ( 10 3 m 3 ) (274.4) (303.0) Reinforcement financial foundation of Employee salary ratio (%) 10.4 (10.2) 8.4 (9.3) Revenue bond balance ( 100 million yen) 7,892 (8,091) 6,809 (7,940) Ratio of net worth to deposit (%) 59.2 (59.0) 65.6 (61.8) Long-term goal for facility installation (%) Stable water resource availability rate 65 (65) 81 (87) Treated water supply availability rate at power 42 (42) 58 (98) failure Advanced water purification rate (Tone River 29 (29) 35 (48) system) Installation rate of water supplying stations 64 (64) 71 (75) (distribution reservoirs) Aged pipe residual ratio 16 (17) 8 (4) Leakage rate 7.6 (7.6) 4.7 (Approx. 5%) 2. Waterworks Guideline (1) Definition of Waterworks Guideline With the movement for formulation of international standard for water supply service kicked off in the International Standardization Organization (ISO), the Japan Water Works Association (JWWA) formulated the Waterworks Guideline (hereinafter Guideline ), a domestic standard for water supply services in January, The Guideline is composed mainly of 137 items of service indexes ranging widely from facility capacity, operation and maintenance, water supply service level, cost, finance, personnel plan and consignment to environmental problems. It is possible, through effective utilization of the Guideline, to learn quantitatively and to analyze the water supply service levels, and through disclosure of the obtained data the transparency of business operation can be improved. (2) Analysis of waterworks guideline based on estimated values of service indexes With the guideline formulated, the Bureau of Tokyo Waterworks carried out provisional calculation for all of the 137 service index values indicated in the Guideline using the settlement data of the gestation period of Waterworks Management Plan 2000 between FY2000 and FY2003, and, for the first time in Japan, made the result public. The waterworks organizations in Yokohama, Sapporo and Nagoya followed suit and disclosed the results of provisional calculation of all items in terms of the settlement values of FY2003. We will now make study on the interannual comparison and analysis, and inter-organizational analysis by taking up some of the service indexes obtained from the results of provisional calculation by Tokyo and other cities. (3) Interannual comparison and analysis 1 Achievement rate of high-quality water in terms of musty odor

3 The index indicating the achievement rate of water quality criterion against maximum annual concentration of geosmin and 2-methylisoborneol causing musty odor in tap water was 100% in The excellent achievement rate is attributed to various measures taken for safe and high-quality water supply such as the introduction of advanced water purification and the reinforcement of activated carbon treatment. 2 Lead feed pipe rate This is an index obtained by dividing the number of contractors using lead feed pipes by the number of service connections, and is used for measuring the water safety levels. The index was 13% in FY2000, but because of the intensive measures taken for elimination of lead feed pipes during the 3-year period between FY2000 and FY2002, the figure dropped to 5.8% in FY Pipeline renewal rate This index is obtained by dividing the pipeline extension subjected to renewal through reinstallation or piping within the fiscal year by the total extension of the pipeline, and indicates the degree of efforts made for ensuring the reliability of the pipeline. The figure was 1.3% ~ 1.5% between FY2000 and FY2003. Calculated on the basis of the 40-year service life of the pipeline as specified in the Municipal Enterprise Law, the plausible figure comes to be 2.5% per year. However, since the actual service life of a pipeline differs according to the pipe type, it is necessary to make a study on the planned renewal of the pipeline including the plausibility of generalizing the service life of the pipeline as being 40 years.

4 Results of provisional calculation (estimation) of service indexes in Waterworks Guideline (Partial excerption) Table: Account settlements of Tokyo for FY2000 ~ FY2003 No Service index Definition FY2000 FY2001 FY2002 FY Achievement rate of [(Maximum concentration of high-quality water in 1-geosmin (water quality criterion) terms of musty odor (%) + (Maximum concentration of 1-2 MIB/Water quality criterion)]/ Lead feed pipe rate (%) Number of connections using lead feed pipe/number of service connections Pipeline renewal rate (%) Renewal pipeline extension/total pipeline extension Earthquake-resistant Earthquake-resistant pipe pipeline ratio (%) extension/total pipeline extension Fixed asset utilization Total water volume/physical fixed efficiency (m 3 /10,000 yen) asset 10, Effective utilization rate Effectively used sludge of sludge after amount/sludge amount after purification (%) purification Storage tank water lead Number of water lead connections rate (%) to the storage tank /Total number of storage water service connections Table: Account settlements of Tokyo, Sapporo, Yokohama and Nagoya for FY2003 No. Service index Definition Tokyo Sapporo FY2002 FY Water resource allowance rate (%) 1114 Ratio of disinfection by-product concentration to water quality criterion (%) 3023 Ratio of net worth to total capital (%) 3204 Rate visitors to water facilities (person/1,000 persons) 4001 Power consumption per 1 m 3 of distribution water (kwh/m 3 ) [ (Volume of water in the secured water resource/maximum daily distribution volume)-1] 100 (Maximum concentration of each of the five disinfection by-products divided by the total of their respective water quality criteria)/5 100 (Capital + Surplus)/Liability Total capital 100 Number of visitors/population receiving water service 100 Power consumption in all facilities/annual water distribution volume Rate of seismic measures for pipeline This index, obtained by dividing the earthquake-resistant pipe extension by total extension of pipeline, indicates the safety and crisis response of the waterworks system to earthquake and disaster. Since the earthquake resistant pipeline is subjected to the limited definition of the combination of material seismic resistance of pipe and earthquake-resistant joint, the figure is small in terms of index. The rate of the earthquake-resistant joint increased to the level of 16.8% in FY2003 because it has been used extensively since 1998 after Hanshin Awaji Earthquake. The distribution pipes have

5 successively been replaced with the ductile iron pipes, and the feed pipes with stainless steel pipes. The ductile iron pipe rate standing at 88% in FY1994 increased to 97% in FY2003. The stainless steel feed pipe rate reached the level of 99% in FY2003. In this way, we have been taking positive measures for seismic resistance of our facilities and utilities. However, as a large-scale organization, we regret that we are not appropriately evaluated in terms of Guideline indexes. 5 Capital (fixed) asset utilization efficiency The index is the rate of total annual water supply against physical capital asset, and indicates the efficiency of waterworks facilities. The figure should desirably rise, but is actually showing a downward trend in recent years. This is because of the increase of asset that does not directly lead to the increase of total water supply volume despite of the investment on measures against earthquake, etc. 6 Effective utilization rate of sludge after purification This index indicates the rate of effective utilization of the annual amount of sludge produced during the water purification process in terms of the disposal method. The higher value of the index shows greater efforts paid for environment preservation. The figure standing at 50.4% in FY2000 showed a rise of 68.4% in FY2003, indicating that Tokyo s environmental measures are bearing fruit. 7 Storage tank water lead rate This index is obtained by dividing the number of annual surveys and guidances by the number of service connections of the storage tank within the water supply area, and indicates the status of measures for ensuring safety of water quality. The figure shows a high standing from FY2000 through FY2002. With the Waterworks Law revised in July 2001 for promoting a thorough management of storage tank water service, the Waterworks Corporations also began to get involved, from the standpoint of the Water Suppliers, in the management of storage tanks. This is because, prior to the above measures, a movement called Tap-water Fresh Diagnosis was carried out to inspect the residual chlorine, etc. by visiting all residents of Tokyo. The figure shows a decline for FY2003, but we are promoting a Clean-up Storage Tank campaign to check all storage tanks in Tokyo amounting to 220,000 units, and hope that the figure will show high standing for the next five years or so. (4) Inter-organizational analysis 1 Water resource allowance ratio This indicates the allowance level of the water resource against the maximum demand. The figure for Tokyo at 25.6% is lower than for the other cities, showing low safety degree against drought, etc. This is attributed to the difficulty in securing the water resource befitting with the demand because of the geographical conditions. With the construction of water resource facilities under way, the figure is expected to rise in the future. 2Ratio of disinfection by product concentration to water quality criterion This index indicates the concentration levels of the five carcinogenic substances in tap water, such as formaldehyde, etc. and shows the safety of tap water. Because of the poor quality of raw water as compared with the other cities, the figure standing shows the worst level 41.2%, but is well

6 below the standard level, and poses no problem. We are determined to take utmost care to the safety of the treated water and to appeal to the government for enhanced quality of the raw water. 3Ratio of net worth to total capital This index indicating the ratio of net worth to total capital is one of the indexes that shows financial soundness. Tokyo s figure is the highest with 64.8%, indicating excellent state of financial soundness. The high-level of the ratio of net worth to total capital generally indicates the low level of revenue bond balance, which in turn, indicates that the interest of revenue bond to be paid is small. However, intentional reduction of revenue bond balance for increasing the ratio of net worth to total capital may lead to an unfair generational burden, demanding a careful study. 4 Rate of visitors to waterworks facilities The index, obtained by dividing the number of visitors to waterworks facilities by the water service receiving population, indicates the rate of communication with the customers. The figure for Tokyo is by far higher than for the other cities with 37.6 visitors per 1000 persons receiving the water service. This is because Tokyo has several unique PR utilities like Tokyo Watershed Museum, Tokyo Waterworks Science Museum, Tokyo Waterworks History Museum, etc. 5 Power consumption per 1 m 3 water distribution This index, obtained by dividing the total electric power consumed for water intake, water storage and water supply in business offices, administration buildings and all other waterworks facilities by the annual water distribution volume, indicates the efforts and measures taken for environmental preservation. Tokyo s figure is 0.476%, the worst among other major cities, which is attributed to the long distance between the water resource and the water supply area with ups and downs, to the poor quality of raw water, to the facilities needing excessively high consumption of power for water purification, etc. In the future, it is necessary to keep a balance with the reinforcement of facilities now under way, such as adoption of double-pipe for the pipeline for the sake of risk diversification, while making efforts to improve the water transmission and distribution systems with high energy efficiency. 3. Reinforcement of objective management utilizing Waterworks Guideline As described above, the Waterworks Guideline is now in the state of groping for elaborate utilization method and directivity for the multidirectional and multifaceted service indexes. Further, the objective index figures contained in the Tokyo Waterworks Management Plan 2004, indicating the waterworks operating policies for FY2004 ~ FY2006 were also limited. We therefore believe that it is more effective to carry out elaborate implementation of the objective management, which we have so far been doing, in a wider range of fields by making effective use of the Guideline, our domestic standard. To put precisely, it is necessary, in the first place, to get a clear understanding of the problems by a thorough analysis of the service indexes in the Guideline through interannual comparison and interorganizational comparison. In the case of interannual comparison, it is also important to take account of the figures of the time when the water suppliers were engaged mainly in new installation and expansion of facilities. The water supply facilities, the prerequisites of water supply service, are mostly aged

7 over 30 years in terms of service life, calling for a long-term analysis. As for the interorganizational comparison, as indicated in the previously mentioned analysis, it is necessary to take into consideration the external factors such as scale, geographical conditions, water resource type, raw water quality, service start time, etc. In the process of various analyses it is important to take note of the relationship between the indexes such as finance and facility reinforcement instead of taking account of the index independently. In the midterm management plan, therefore, it is necessary to make progress in project operation by setting goals in a wide range of fields. Because of a large number of service indexes in the Guideline amounting to 137 items, and since their effects on the waterworks, cost, etc. also differ according to the item, it is necessary to use the Guideline service indexes selectively to some extent. In setting the target values it is necessary to keep a balance among the indexes on the basis of customer needs in addition to the efforts for improving the efficiency. Since no benchmarks are set in the Guideline, each water supplier has to set the benchmarks (standard values) depending on the respective management environment. After setting the goals, the annual settlement values for each fiscal year should be calculated to estimate the anticipated values by the objective term. In case there is a big difference between the initial target values and the estimated values, the allotment of management resources such as budget and personnel should be changed from the original plan for the achievement of initial goal. In this way the effectiveness of the objective management should be improved through the PDCA management cycle. Thus, surmounted as it is with various problems, the Waterworks has to make an effective use of the Guideline, the common indexes for water suppliers, for realization of effective objective management.