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WATER CONSERVATION AND WATER DEMAND MANAGEMENT STRATEGY FOR THE
INDUSTRY MINING AND POWER GENERATION SECTOR
(DRAFT COPY FOR FINAL APPROVAL) March 2003 Published by Department of Water Affairs and Forestry Private Bag X313 PRETORIA 0001 Republic of South Africa Tel: (012) 336-7500 Copyright
reserved No part of the publication may be reproduced in any manner without full acknowledgement of the source ……………. This report should be cited as: Department of Water Affairs and Forestry, 2003. Water Conservation and Water Demand Management Strategy for Industry, Mining and Commercial water use sector TABLE
OF CONTENTS PLENARY –
DEFINITIONS, GLOSSARY of terms 5 Process in the development of the Strategy SECTION A: PRINCIPLES AND CONCEPTS OF WC/WDM 7.2 Definitions of key concepts 8 The role of WC/WDM for the industry, mining and POWER
GENERATION water use sector 8.2 Water authorities and
Government perspective SECTION B: FRAMEWORK OF ACTION 9 national and regional framework of activities 9.1 cLASSIFICATION OF BUSINESSES 9.3 demand targets and
performance auditing 9.4 Water conservation programme 9.5 COMMUNICATION, PUBLIC
AWARENESS AND EDUCATION PLENARY – DEFINITIONS, GLOSSARY of terms Area
of supply of a water board: The area which the board is legally entitled
to supply water services to water services authorities as determined by the
Minister of Water Affairs and Forestry Businesses: Reference is made in this
document to the term “businesses”,
which is used to describe the collective business concerns in the industry,
mining and commercial water use sector. Consumptive use: “Consumptive use” of water refers to the water that is utilised
by businesses in closed processes that do not generate wastewater and which
effectively remove that water from the water cycle. A bottling plant is an example of a business that has
closed processes where large volumes of consumptive use occur. Demand-side
management: Any measure or initiative that will result in the reduction
in the expected water usage or water demand. Distribution
management: Any function relating to the management, maintenance and
operation of any system of structures, pipes, valves, pumps, meters or other
associated equipment, including all mains, connection pipes and water
installations that are used or intended to be used in connection with the
supply of water. Inefficient
use of water: Water used for a specific purpose over and above the
accepted and available best practises and benchmarks or water used for a
purpose where very little benefit is derived from it. Integrated
Resource Management: A way of analysing the change in demand and
operation of water institutions that evaluates a variety of supply-side and
demand-side management measures to determine the optimal way of providing
water services. Non-consumptive
use “Non-consumptive use” is the term used
to describe the water that is utilised by businesses in open processes that
generate wastewater and which can be recycled or discharged back into the
water cycle for use by other users.
It should be noted that many open processes are not efficient and that
they often contain an element of consumptive use. Cooling is an example of an open process that can consume
significant quantities of water, but which also discharges water. Retro-fitting:
The modification, adaptation, or replacement of an existing device,
fitting or appliance. Supply-side
management: Any measure or initiative that will increase the capacity of
a water resource or water supply system to supply water. Unaccounted
for water: The difference between the measured volume of water put into
the supply and distribution system and the total volume of water measured to
authorised consumers whose fixed property address appears on the official
list of water services authorities. Water
Institutions: Water institutions include both Water Management
Institutions and Water services institutions as defined in the National Water
Act and the Water Services Act respectively. Water
Wastage: Water lost through leaks or water usage, which does not result
in any direct benefit to a consumer or user. Water
Conservation: The minimisation of loss or waste, care and protection of
water resources and the efficient and effective use of water Wastewater discharge: In this
document, the term “wastewater
discharge” is used very loosely and refers to both the quality and the
quantity of water discharged. It
refers to the discharge to sewer systems as well as to open river
systems. Furthermore, the term
also covers the diffuse discharge of polluted water into open river systems. Water
Demand Management: The adaptation and implementation of a strategy by a
water institution or consumer to influence the water demand and usage of
water in order to meet any of the following objectives: economic efficiency,
social development, social equity, environmental protection, sustainability
of water supply and services, and political acceptability. Water
utilisation The
term “water utilisation” is used to
describe both the consumptive and the non-consumptive uses of water by the
businesses, whether it is raw or potable water. List of Acronyms
CP/WM Cleaner
Production / Waste Minimisation CMA Catchment
Management Agency CMS Catchment
Management Strategy IMP Industry,
Mining and Power Generation sector IP Integrated
Planning IWRM Integrated
Water Resource Management JASWIC Joint
Acceptance Scheme for Water Installation Components KPIs Key
performance indicators MIS Management
Information System NWA National
Water Act NWRS National
Water Resource Strategy UAW Unaccounted
for water WC Water
Conservation WDM Water
Demand Management WRC Water
Research Commission WSA Water
services authorities WSDP Water
Services Development Plans WSI Water
services institutions WDCS Waste
Discharge Charge System Conceptual perspective It is often mentioned that South Africa’s
fresh water resources will be fully utilised within the next twenty to thirty
years if the current growth in water demand is not altered. Conversely it can be argued that
there is as much water as we will ever need in the sea considering that the
technology exists to desalinate water.
The question that needs to be asked is whether South Africa can afford
to pursue such options and what might the economic, social and environmental
costs be of continuing to utilise current available fresh water resources
inefficiently. The opportunity
for Water Conservation and Water Demand Management (WC/WDM) exists because
consumers generally use water for the service they derive from it and not for
the water itself. Through new
technologies combined with a change in behaviour water usage can be reduced
significantly without necessarily affecting the desired outcomes, quality of
life or economic growth. The need for WC/WDM in the Industry,
Mining and Power generation sector is essential and of high priority despite
the fact that this sector uses less than 10% of South Africa’s fresh water
resources. Together with the
water services and domestic water use sector, they have the largest expected
growth in demand, requiring the continuous development of new water resources
and infrastructure. The need and
opportunities for WC/WDM are not limited to water resource considerations and
are also based on economic efficiency objectives due to the significant cost
for the provision of new water resource augmentation schemes and bulk water
supply infrastructure. Currently
it is estimated that the industry sector could achieve significant savings in
avoided water costs by introducing more water efficient practises. WC/WDM can
result in both direct reductions in the cost of water purchased by consumers
and also avoid or postpone large increases in the unit cost of water by
postponing the need for new expensive infrastructure. The WC/WDM paradigm and the principles proposed in the strategy integrate a number of requirements promulgated in the Water Services Act (No. 108 of 1997), and the National Water Act (No. 36 of 1998), (NWA). The strategy and support documents are also directly linked to other polices and legislation and in particular to the series of water quality management polices developed by DWAF and the National Environmental Management Act (NEMA) and the “Aide –Mẻmore” policy for mines developed by the Department of Mineral and Energy Affairs. Contextual perspective The WC/WDM strategy for the Industry,
Mining and Power generation sector is one of three WC/WDM sectoral strategies
currently being developed by the Department of Water Affairs and Forestry
(DWAF). The other two are: a)
Water Services (including domestic), and b)
Agriculture The integration of all sectoral strategies is the basis of the national Water Conservation and Water Demand Management strategy. Elements of the overall WC/WDM strategy will form part of the national water resource strategy (NWRS) and will be implemented through the framework of the NWA. The development of the sectoral strategies
is based on the concepts developed in the WC/WDM national strategy framework
document published by DWAF in May 1999. The purposes for
developing these sectoral strategies are: a)
to provide the detail of specific WC/WDM strategies
which would be acceptable for application in the various sectors; b)
to provide the framework that WC/WDM strategies and
plans can be developed, and c)
to allow for broader consultation for the development
of the National WC/WDM Strategy. Aim, purpose and scope Aim The aim of the WC/WDM strategy for the Industry, Mining and Power generation sector,
is to contribute to effective and efficient water resource utilisation
and to ensure sustainability and economic efficiency in water supply. The strategy describes WC/WDM activities
and functions for the water institutions responsible for supply, the
industrial / commercial water users and for organisations representing such
entities. It is recognised that often economic and
financial factors are more significant to the current challenges and needs of
the industrial / commercial water use sector and that consumers receive water
from both water management institutions (WMI) and water services institutions
(WSI). The approach adopted
therefore in developing the WC/WDM strategy is to combine and integrate water
resource and water services planning considerations. Objectives There are two main objectives of the
WC/WDM strategy for the Industry, Mining and Power generation sector. The first is to describe the
principles, concepts and need for WC/WDM in South Africa and the second is to
develop a framework of action to be implemented. The strategy document is divided into four sections,
namely: a)
Introduction b)
Principles and the need for WC/WDM c)
Framework of action d)
Conclusion The framework of action consists of
objectives and activities for water institutions, and various stakeholders in
the various sub sectors. More
detailed guidelines specific to each of the sub-sectors (industrial
consumers, mining consumers and commercial consumers) will be developed and
referenced as appendices to this strategy. The aim of these guidelines will
be to describe in more detail the recommended activities specific to each sub
sector. In order to ensure the development and
implementation of WC/WDM in this water use sector the sectoral strategy also
includes a number of governance and regulatory elements. The governance, regulatory elements
and key aspects of the WC/WDM strategy for the Industry, Mining and Power
generation sector are included in the National Water Resource Strategy and
are aligned with the requirements in the Water Services Act (No. 108 of
1997). The intention is to promote the
implementation of WC/WDM through a balanced approach combining support,
incentives and regulations. Applicability
of a generic strategy Given the diversity in both nature and size of the activities undertaken by the various businesses in this User Sector, and the varying water requirements, it is was decided that it was not practical for “one-size-fits-all” strategies to be developed. The general approach by water institutions promoting WC/WDM to consumers is however very similar. This strategy therefore identifies generic management aspects by water institutions and a recommended plan of action for each of consumer groups. The recommended “plan of action” is in the form of specific adaptive strategies that each consumer needs to adopt according to their specific circumstances. These will be linked to the strategy document at a later stage as appendices. The
focus groups for these proposed strategies are the industry, mining and
commercial water use sectors.
The strategy also covers the roles of DWAF and the other water
institutions that are required or expected to be involved in managing and
promoting WC/WDM. Although DWAF
is expected to assume a regulatory role, many of the proposed functions
follow a partnership approach with less emphasis on regulation and more on
facilitation and support. It
has to be noted that the power generation water use sub-sector is generally
included in this strategy, however a specific framework of action for power
generation users has not yet been developed. The reason is due to the complicated nature regarding
water supply for power generation and due to the significant cost implications
regarding any changes in water usage. It is DWAF’s intension however to
develop such a framework of action and publish them in future revisions of
the strategy. Although the strategy is aimed at all industrial, mining and commercial entities, some of the functions described in the strategy are not feasible for small consumers. As a target the functions described for all three groups of consumers is applicable if they have an average consumption of 1 Megalitre per month. Water
conservation usually refers to both water quality and water quantity
considerations. Due to the
extensive work already done by DWAF with regards to the development of
policies, strategies and guidelines on Water Quality Management, the WC/WDM
strategy excludes water quality considerations and focuses mainly on water
quantity considerations.
Cross-reference and alignment is made however to the water quality
management policies and strategies. Updating the strategy Effective
management requires continuous dynamic review and adaptation of policies and
strategies. This strategic plan
will therefore be subjected to perpetual revision and no ‘final’ version of
the plan is foreseen, only a ‘latest’ update or revision. Business representatives This strategy document has been developed on the premise that the User Sector is well organised and structured with a full complement of Institutions and Chambers that represent all the interests of the various business categories. Furthermore, it is assumed that interactions in terms of both the development and implementation of these strategies will take place with these business representative forums. During implementation of the strategies, appropriate business representatives will be urged to utilise existing forums, such as those established to fulfil environmental audit functions. Failing this, appropriate business representatives will be urged to form Water User Associations (WUA). DWAF’s mission statement As a national department the Department of Water Affairs and Forestry has the responsibility of developing the necessary policies, regulations and programmes to ensure the effective and sustainable management of water resources and the effective and sustainable delivery of water services to all South Africans. A key aspect of DWAF’s role is to promote Water Conservation and Water Demand Management and this is highlighted in the mission statement of the Department. The table below illustrates the mission statements of DWAF and the role of Water Conservation. Table 1: DWAF’s mission statement and the role of the WC
Process in the development of the Strategy This strategy is the result of a process
that began with an initial combined workshop in July 1999 and has included: a)
Distribution of the draft document to all workshop
participants for comment b)
Review of all comments received by a steering
committee c)
Further individual workshops with the Industry,
Mining and Power generation sectors d)
Distribution of the edited version to a wider scope
of key role players and interested parties for comment e)
Consolidation and final review based on all comments
received by the steering committee f)
Submission of strategy to DWAF’s management
structures for review SECTION A: PRINCIPLES AND CONCEPTS OF WC/WDM BACKGROUND In order to develop any strategy, critical
review should be made up front to provide the context within which the
strategies will be developed.
Although the promulgated water legislation provides the context from a
policy basis, and the National Strategy Framework provides much of the high
level strategic context, further assumptions are required to contextualise
the detailed strategies and action plans for this particular Water User
Sector. WATER REQUIREMENTS
Figure
1: Water usage distribution in South Africa (1996) As would be expected, most of the
industrial, mining and power generation businesses are concentrated in
Gauteng and the surrounding areas.
There are, however, significant users in this sector in KwaZulu-Natal
and the Western Cape. WATER use Unfortunately, there is no consolidated
database of information regarding water services and water use within the
industry, mining and commercial water use sector. As a result, the understanding about the use of water by
the Sector is limited to anecdotal information. There is, however, a broad range of uses, and any one
business may use water for one or more of the following functions: ·
Domestic:
Most office accommodation is fitted with kitchens, toilets and bathrooms, all
of which can contribute significantly to the water use of a business. Furthermore, many larger businesses,
such as mines, provide housing for their employees. The water requirements for day-to-day living purposes,
such as health and hygiene, are the same as those in any other urban centre. ·
Irrigation:
Certain businesses develop landscaped gardens and lawns which are maintained
to provide a pleasant aesthetic environment and which promote a good
corporate image. These tend to
be well watered, on top of which, many of the gardens contain exotic plants,
which are thought to have substantially higher water requirements than
indigenous plants. ·
Process:
One of the major uses of water in the Sector is that related to the actual
manufacturing processes and the end product. Water use may be consumptive, such as the water used to
manufacture a product in a bottling factory that is then distributed for
consumption. It may also be
non-consumptive, such as the water used to die fabrics in a textile industry
that is then discharged to a waste water system. ·
Cleaning:
Although water use for cleaning can be related to a process, it is also used
for non-process related cleaning purposes. The washing down of the floors of premises or the cleaning
of a fleet of vehicles are such examples, and which can result in significant
usage. ·
Cooling:
Again, cooling is often process related, however, there are a number of
non-process related cooling requirements, which utilise water. Refrigeration and air conditioning
are typical examples thereof. ·
Fire fighting:
Reticulation systems in businesses are often designed to meet the
requirements of fire fighting, which often well exceed the requirements for
the other water uses within a business, especially in terms of pressure. The levels of service for the other
uses may therefore be excessive leading to excessive use. ·
Water
treatment: Certain businesses treat their own water to achieve the
standards necessary for their process requirements. Furthermore, some businesses also have to treat their
effluent to a standard to meet receiving water quality objectives or the
requirements to discharge into local sewer systems. Often these treatment facilities are inefficient which may
lead to significant quantities of water being wasted. REGULATORY FRAMEWORK1.1.1 Water resourcesThe
National Water Act (No. 36 of 1998) regulates the management of the water
resources. This Act provides for
the regulation in the use of water through a system of water licensing, water
allocation and water use charges.
Furthermore, it also provides for the setting up of regional authorities
to provide the regulations and monitor compliance, namely Catchment
management Agencies. The Act
also promotes water users to create organised bodies to represent regional
level constituencies on issues of water resources management through the
provision of Water User Associations. Those
businesses that are responsible for providing their own water services will
have to comply with the requirements of the NWA and any regulations
promulgated in terms of the Act. 1.1.2 Water ServicesThe
Water Services Act (No. 108 of 1997) regulates the provision of water
services. This Act allows for
Water Services Providers to be responsible for the provision of water
services to the end consumers.
At present, most of the Water Services Authorities fulfil the functions
of Water Services Providers, although these functions can be contracted out
to third parties such as Water Boards or private sector companies. Water Services Authorities are
essentially the local government structures such as the Local Councils in the
urban areas and the Regional Councils in the rural areas. Those
industries that are provided with water services from a Water Services
Provider will have to comply with the requirements of the Water Services Act
and any regulations promulgated in terms of the Act. The Water Services Providers will in
turn have to comply with the requirements of the NWA. It
should be noted that according to the Water Services Act, certain industries
are defined as Water Services Intermediaries in that the supply of water is
incidental to their core activities.
As such, they should not be seen to take on the responsibilities of
Water Services Authorities or Water Services Providers. The role of DWAF The role and function
of DWAF has changed since the introduction of the new Water Services and
National Water Acts.
Historically, the department’s role was mainly focused on the
development and protection of water resources. Its role now can be divided into the three components
listed below. Firstly, as a
regulator of the water industry, to ensure the best interests of the entire
population and the environment.
As custodian of the two new water acts, the department’s regulatory
functions extend to both Water Services and Water Resources. Two of the main objectives of this role
are to ensure that all South Africans have access to basic water services,
and to ensure adequate water in our rivers to protect the aquatic
eco-systems. For this purpose
the priority allocation of all available water is to the environmental
reserve and to provide basic water needs. Secondly to ensure
the availability, protection and sustainability of water resources. This does not mean the continuous
development of new dams and transfer schemes, and does include the
implementation of WC/WDM. The third role is to
assist the local authorities to ensure the provision of water services. Due to the institutional and
financial constraints of some local authorities the department is directly
involved in a number of projects to provide water services to millions of
people particularly in poor rural and peri-urban areas. One of the
cornerstone principles of all three roles of the department is the efficient
and sustainable use of water. WC/WDM role of DWAF In line with the
government’s new role, DWAF took the responsibility to develop appropriate
policies and strategies that will result in the efficient utilisation of
water by all water consumers in South Africa. Some of the specific functions include the following: a)
ensure the development of guidelines, standards and
tools to support the implementation of WC/WDM within water institutions; b)
promote and encourage the implementation of WC/WDM to
water institutions; c)
monitor, regulate and establish adequate governance
to ensure the implementation of WC/WDM; d)
co-ordinate the development of a water conservation
ethic throughout South Africa; e)
ensure the implementation of integrated resource
planning in water resource planning; f)
co-ordinate and co-operate with other government
departments to facilitate the implementation of WC/WDM. The approach adopted
in the development of the WC/WDM strategy is not only that of a regulator but
is balanced with providing support and incentives. The Department recognises that if WC/WDM is to be
implemented as a long-term strategy, it is necessary to focus on an approach
that is not punitive but maximises the benefit to all concerned. WC/WDM measures will need to be
implemented by both water institutions and the consumers. Unlike “supply side” management
options, the government obviously cannot implement “demand-side” management
measures. Its role is to
promote, support and, where necessary, regulate to ensure the implementation
of WC/WDM. This approach is
currently feasible because of the significant opportunities of WC/WDM, where
water savings can be achieved to the benefit of both the consumer and
government. The situation may
change in the long term when the objectives of the government and individual
consumers could differ once most of the feasible opportunities of increasing
water efficiency have been achieved. The ethos of the
Department’s approach can be summarised as partnerships, customer focus and
planning integration. This
approach and ethos is imperative to ensure that consumers embrace WC/WDM and
the full potential of WC/WDM is recognised. THE USER SECTOR As alluded previously, businesses in this User Sector can be classified into two broad categories, namely: a)
those who provide their own water services (mainly
the mines, power stations and large industries); and b)
those who are serviced by Water Services Providers
(mainly the smaller industries). Although many of the water conservation
issues faced by the various businesses are similar, there are some subtle
differences that arise from the divergent responsibilities for water services
provision and water resources management. Regulation of those businesses that provide their own water services will be the responsibility of Catchment Management Agencies (CMA). The primary mechanisms of regulation will be: a)
the National Water Resources Strategy (NWRS); b)
the specific catchment management strategies (CMS); c)
the water use charges; d)
the regulations requiring that a water use be
registered; and e)
the conditions and requirements for the issue of
general authorisations and licenses. Water
Services Providers will regulate those businesses that are serviced by
them. They in turn will have to
comply with the requirements of the NWA. The primary mechanisms of regulation will be: a)
the specific bylaws of the local authority; b)
the model water services bylaws of DWAF; c)
various regulations proclaimed in terms of the Water
Services Act (No. 108 of 1997); and d)
through the water services development plans (WSDP). principles
of wc/wdm
Fundamental principles The
WC/WDM strategies are based on three fundamental principles described
below. These principles are
founded on the understanding and need of the three concepts of Water
Conservation, Water Demand Management and Integrated Planning. Definitions and further explanation
on the meaning of these terms are also described in this chapter. a)
Water
Institutions should strive to supply water in an efficient and effective
manner minimising water losses and promoting WC/WDM to their consumers. Water
institutions who are responsible for supplying water to consumers such as
Water services institutions or Water Use Associations should ensure that they
reduce the level of leakage in any water works or water services works that
they are responsible for and implement measures that promote WC/WDM to their
consumers. b)
Consumers
should not waste water and should strive to use water efficiently. Water
wastage can be defined as the use of water without deriving any direct
benefit. The non-efficient use
of water can be described as water used over and above the accepted benchmark
for a specific purpose or water used where very little benefit is
derived. All consumers in South
Africa should prevent wasting water and should strive to use water
efficiently. c)
WC/WDM
should be considered as part of the water resources and water supply planning
process The
implementation of WC/WDM measures could provide a more cost effective or
appropriate solution to reconciling growing water demand with existing water
resources or infrastructure.
Where water is used inefficiently WC/WDM could postpone the need for
premature capital infrastructure such as dams and bulk treatment works. Definitions of key concepts The
fundamental principles are associated to the three concepts of Water
Conservation, Water Demand Management and Integrated Planning. Although these terms are commonly
used they have different meanings according to each stakeholder's needs and
perspective. For clarity and
common understanding these terms have been defined. The definitions should not be considered as exact and
should be read in the context of the South African perspective and need for
WC/WDM. 1.1.3 Water Demand Management Definition: The proposed definition for WDM is
as follows: “The adaptation and implementation
of a strategy or programme by a water institution or consumers to influence
the water demand and usage of water in order to meet any of the following
objectives: economic efficiency, social development, social equity,
environmental protection, sustainability of water supply and services, and
political acceptability.” WDM should not be regarded as the
objective but rather a strategy to meet a number of objectives. One reason why the full potential of
WDM is often not recognised is because it is often perceived or understood in
a limited context. It is common
to equate WDM only with programmes such as communication campaigns or tariff
increases. WDM should be
considered as a broader strategy that requires the development and
implementation of systems and measures associated with managing the overall
use of water. The scope of WDM includes both
distribution management and customer or end user demand management. 1.1.4 Water ConservationDefinition: The
proposed definition for Water Conservation is as follows: “The minimisation of loss or
waste, care and protection of water resources and the efficient and effective
use of water.” What is Water Conservation? WC is the overall concept that
requires the effective management and protection of water resources. WC should be considered both an
objective in water resource management as well as a strategy for WSI. This implies that irrespective of the
WDM objectives, it is necessary also to have long-term WC objectives, which
recognise that South Africa is water scarce and a water stressed
country. Cognisance should also
be taken of the adverse effects of global climate changes. Link between WC and WDM In general WDM can be considered a
component of WC. Figure 1
illustrates various types of WC measures in the entire water supply
chain. A potential difference
between the concepts of WC and WDM is that WC focuses on the efficiency of
water resources where WDM may focus on achieving the most beneficial solution
to water services from various perspectives, including social and economic. A typical example where WC and WDM
may not be entirely aligned is when a WSA does not target the reduction of
water demand from paying affluent domestic consumers. A WSA may prioritise measures to
reduce non-revenue consumption, but perhaps be reluctant to target WC/WDM to
paying consumers in order to avoid reducing their income. The WC perspective however which
recognises the long-term scarcity of available water resources, requires that
all consumers adopt a conservation culture and ethic. Such an objective cannot be achieved
overnight, and activities to achieve this must be continuous and ongoing. Although the above example
highlights potential differences in WC and WDM objectives, it is not
practical to separate them, and the objectives developed in the proposed
framework of action combine both the concepts of WC and WDM. Figure 2: Typical Water Conservation activities throughout the supply chain Water
Resource Management Water
quality management
Rehabilitation
of a water resource Dam
storage optimisation Removal
of invading alien plants Drought
Management
Distribution
Management Pressure
management Metering Replacement
of infrastructure
Infrastructure
optimisation
WDM Dual
distribution systems
WC Social
awareness and education Retro-fitting
Effective
billing Loss
minimisation (repair leaks)
Return
flow management Minimising
losses Minimising
infiltration of storm water Minimising
pollution Reclamation Polluter
pays /Effluent Charges 1.1.5 Integrated Planning Internationally
the term Integrated Resource Planning is widely used to signal a new approach
to planning where WC/WDM measures are considered as a planning option to
traditional supply side management options. In South Africa however we commonly refer to Integrated
Water Resource Management and the term Integrated Resource Planning may cause
confusion. In order to avoid
confusion with other terms and processes in South Africa it has been decided
to refer to the similar concept of Integrated Resource Planning as Integrated
Planning. Definition: The proposed definition for
“Integrated Planning” is: “ A holistic way of analysing the
change in demand and operation of water institutions that evaluates a variety
of supply-side and demand-side management measures to determine the optimal
way of providing water services.” What is Integrated Planning? Integrated Planning, or integrated
least-cost planning, is a process for determining the appropriate mix of
demand-side and supply-side resources expected to provide a long-term,
reliable service to users at the lowest reasonable total cost. It maximises benefits to society and
minimises the negative impact to the environment. IP for water institutions is an evolving concept with
certain parameters such as avoided costs and cost-benefit tests that need to
be appreciated. All demand-management activities
that decrease demand tend to affect supply management because existing system
capacity is released for other customers and users. The redirected capacity can be compared to that provided
by the development of new capacity.
Taking this concept further leads to the introduction of “negalitres”, water “produced” through
conservation and efficient use of existing resources. The opportunities for WC/WDM exist
owing to high levels of loss and inefficient use. It is also important to note that water is most often used
for the service derived from it and not for the water itself. Some examples to illustrate this in
the industry, mining and commercial water use sector are: a)
Cooling. The objective is to cool generators
or heat exchange equipment or processes. Through new technologies dry (air)
cooling systems are now available reducing the need for water significantly
without changing the end result or objective. b)
Washing
of bottles and containers. The
objective is to clean bottles and containers before they are filled with the
end product. New processes allow
for the recycling of water used for cleaning thus reducing water consumption
considerably. It has been estimated that in the
industry, mining and commercial water use sector, water loss and inefficient
usage could be as high as 20%.
The IP process can determine at what rate and cost these
inefficiencies can become an increased supply. 1.1.5.1 How is IP different from traditional planning It
is wrong to regard IP as something completely new or as the “same old thing”
from what many water institutions are currently doing. There are four differences of IP from
the previous planning practises that are worth identifying: a)
Integration of planning to achieve the best results
of society. Previous planning
practises by many institutions focused on the best-perceived solution often
from the institution’s perspective and not from society’s. b)
Water demand-side management measures are considered
as an alternative resource option and not a separate campaign c)
Evaluation criteria of all possible alternative
solutions must be comprehensive and include social, economic, institutional
and environmental aspects; d)
Evaluation criteria must be looked at from the life
cycle of the different measures and not just on implementation. The role of WC/WDM for the industry, mining and POWER GENERATION water use sector The
role and objectives of WC/WDM in the industry, mining and commercial water
use sector, are looked at from the perspective of the consumer and the
perspective of water authorities and national government. Consumer perspective The most common primary objective
of WC/WDM from the Industry, Mining and power generation (IMP) consumer’s
perspective is to reduce costs without negatively affecting their
business. Other objectives could
include the following: a)
improve the organisations' environmental image and
status; b)
meet regulatory requirements; c)
to contribute to the local, regional and national
objectives of sustainable water resource management; d)
meet national or international standards either
imposed on them (i.e. international parent company prescribing) or meet
standards that will enhance their business opportunities (ISO 14000). Water authorities and Government perspective IMP
is one of the water use sectors with the largest expected growth in demand,
requiring the continuous development of new water resources and
infrastructure. The agricultural
water sector, although it uses more than 50% of the water resources in South
Africa, has had its growth in demand restricted in a number of areas
throughout the country. The
primary objective of WC/WDM in the industry, mining and commercial water use
sector is to postpone the need for further augmentation schemes and expensive
bulk infrastructure using sound resource economic principles. Other objectives include: a)
protect the environment and water resources from
pollution (industry is one of the largest contributors to pollution); b)
contain the future increase in the cost of water ; c)
ensure the sustainability of water resources. The
government recognises the industry, mining and commercial water use sector’s
importance in the economic sustainability and growth for the country and will
not promote WC/WDM to the detriment of this sector. It regards the allocation of water resources to this
sector as one of its highest priorities. This does not, however, imply that water should automatically
be re-allocated from consumers such as farmers who have less economic output
through the use of water. The
allocation of water to consumers cannot only be based on the economic output,
but also needs to consider environmental and social issues. The reallocation of water from
agricultural purposes, for example, can cause soil erosion and significant
damage to the environment, as well as loss of jobs to the rural
population. The priority
parameters that are needed to determine the allocation of water resources are
the efficiency of use according to benchmarks and best management practices
for that water usage. The
option of meeting the growth in water demand for the industry, mining and
commercial water use sector, through the reallocation of water resources from
other sectors in the short–term, is politically sensitive and needs careful
consideration. The
implementation of the first tier water tariff will introduce market forces in
the allocation of water, but this needs to be implemented gradually and in a
fair and equitable manner. In
a number of catchments such as the Vaal River system there are already
policies that prevent agricultural users from increasing their demand and
farmers are required to implement WC/WDM in order to increase their productivity. It may, therefore, not be feasible or
fair to expect farmers, in the short-term, to further relinquish existing
water rights to meet the water needs of other sectors that may not be
efficient. This does not imply
that the re-allocation of water resources in the short-term should not be
considered, but the following guidelines will need to be adhered to: a)
re-allocation of water resources should be done by
mutual consensus of the current and potential water users and through
negotiations of the various parties and stakeholders; b)
social and environmental considerations must be taken
into account; c)
users requiring additional water resources should be
committed to achieving water efficiency through WC/WDM. SECTION B: FRAMEWORK OF ACTION national and regional framework of activities The
implementation of WC/WDM will need to be managed on both a national
perspective and a regional or catchment perspective. The framework of activities are
described in the following categories: a)
Classification of water users b)
Benchmarking c)
Demand targets, projections and performance auditing d)
Water Conservation programmes e)
Communication and public awareness f)
Institutional aspects cLASSIFICATION OF BUSINESSES1.1.6 Classification system Objective Earlier in the strategy document the
question was raised regarding the applicability of one generic strategy
across the full spectrum of businesses in this User Sector. Should the assumption of specific
adaptive strategies be valid, then one will have to consider the classification
of the businesses. This is
supported by the fact that the implications of water conservation will vary
tremendously according to the type of business, the applicable processes and
their water requirements.
Furthermore, the extent to which a business, or group of businesses,
is regulated, and the extent to which it will be expected to become actively
involved in water resources management, will depend on the scale of its water
utilisation and wastewater discharge. Approach A system will be developed to classify
businesses in the industry, mining and commercial water use sector based on
individual water utilisation and wastewater discharge requirements. This will be the responsibility of DWAF
and the Business Representatives and will take cognisance of audit
results. The following aspects
will be considered in the classification system : a)
the type of business; b)
the purposes for which water is used; c)
the specific industry processes; d)
the water licence requirements of the business (i.e.
self serviced or serviced by a water services provider); e)
the metered quantity and quality of water utilised
and wastewater discharged; f)
the extent to which water is recycled (i.e. the ratio
of consumptive to non-consumptive use); and g)
the efficiency and effectiveness of water
utilisation. Although
there could be a large number of categories based on the above criteria, the
classification will be kept as simple as possible. It will also take cognisance of the Industry Clusters
Initiative of the Department of Trade and Industry. However, the primary purpose of the classification will be
to identify those businesses that have the greatest impacts on the water
resources in terms of water utilised, wastewater discharged and the efficiency
and effectiveness thereof. The
business categories will be classified and prioritised by the relevant
Catchment Management Agency, or DWAF where Catchment Management Agencies do
not exist, or the relevant Water Services Provider. Guidelines
for implementation Short-term: Design a classification system. Medium-term: Classify the businesses according
to the classification system. Long-term: Although the emphasis will be on self-regulation,
businesses will be subject to varying degrees of regulation as described in
the remainder of this document. Responsibilities
for implementation
Note 1: Those businesses which service their own water
requirements will be classified by the Catchment Management Agencies (CMA)
when processing water licences, and those businesses serviced by Water
Services Providers (WSP) will be classified by the WSPs. The WSPs will notify DWAF and the
relevant CMA through their WSDPs.
It should also be noted that the classification would depend to a
large degree on the specific purpose of water use. 1.1.7 Database of businessesObjective As
mentioned previously, there are no databases of information regarding water
services and water use within the industry, mining and commercial water use
sector. The purpose of such
databases would be to provide information to make informed decisions relating
to water resources management in the User Sector. Following the classification of businesses, it makes sense
that certain businesses be monitored and tracked according to their water use
and wastewater discharge performance criteria. The databases will provide a repository for this
information and other audit results.
The objective will be to facilitate self-regulatory performance
monitoring. Strategy National,
regional and local levels of databases will be developed for the purposes of
monitoring the water-related performance of businesses. It is obvious that there are too many
businesses for all of them to be included in the databases, and only those
businesses that have the greatest impact on the water resources will be
considered (i.e. the high priority categories outlined above). The relevant CMA or WSP will have the
responsibility for monitoring the performance of these businesses. Guidelines
for implementation Short-term: Design a simple pro-forma
database, and develop individual regional databases to be adapted for local
conditions and requirements. Medium-term:
Populate the individual databases, develop self-regulatory performance
monitoring mechanisms, and set acceptable time related targets for data
capture. Long-term: Maintain the individual databases according to
specific time related targets and ensure that data can be accessed by members
of the User Sector. Responsibilities
for implementation
benchmarkingIntegral
to the WC/WDM strategy and approach adopted by the department is the
development of benchmarks and best management practices for all water users.
The role and need of benchmarks is looked at in detail from the perspective
of the government and from the perspective of the consumers. Objective Businesses
are often unaware that they are performing above or below the norm in areas
relating to water conservation.
It is essential that some sort of feedback on performance be
established. Ideally this feedback
should be confidential, but it is important for businesses to get an
indication of their relative performance for specific industry processes
against established norms. This
creates a competitive environment and provides and a positive result of all
of their efforts in setting targets and monitoring performance. Strategy Benchmarking
of industry processes against similar operations elsewhere (both in South
Africa and abroad) will be undertaken to provide a relative indication of
performance. The performance
indicators discussed in Section 9.3.2
will provide the basic information for the benchmarking, however, other
parameters will also be taken into account. Performance norms and standards will also be developed and
published so that the other businesses can compare their own levels of performance. Furthermore, industry norms and standards
relating to best management practices in the various processes will be
researched and developed. The
emphasis will be on developing a category of the ISSO range of standards. Guidelines for implementation Short-term: Design a process for benchmarking,
prioritise sub sectors according to identified criteria, do international
research on benchmarking for the IMP sector and implement pilot benchmarks in
certain sub-sectors Medium-term:
Implement process for
benchmarking in all sub sectors Long-term: Update and maintain benchmarks. Responsibilities for implementation
1.1.8 Role of benchmarks from the consumers' perspective Identify the opportunities of WC/WDM
measures Consumers will be able to identify
opportunities in reducing the water demand of various processes if they can
relate their own water usage to that of available and acceptable benchmarks. Develop targets for achieving water
and cost efficiency By comparing their water use with
benchmarks, consumers can develop their own short-term and long-term demand
targets based on their individual circumstances and economic criteria. Assist in the planning New consumers, or consumers wishing
to expand their functions, can use benchmarks to carry out their
planning. Benchmarks can assist
consumers to determine any number of planning parameters including strategic,
location, technical design, financial and economic. Assist in the management and
operations of water systems and water utilisation processes Monitoring water demand according to
benchmarks can assist a variety of consumers in the effective management and
operation of their water supply systems and water utilisation processes. A water loss benchmark value, for
example, will assist a consumer to determine a plan of action and assist in
determining the need for rehabilitation of the system. Enable consumers to comply with
national and international standards Accreditation for various standards,
such as ISO, requires that entities comply with various environmental
parameters including water use efficiency. Entities striving for accreditation will be able to refer
to the benchmark values and show compliance with specified requirements. Environmental image and status Consumers are becoming more aware of
their need to have a good environmental record and image. By showing compliance with benchmark
values, entities can promote their environmental status and image. Equity in water allocation Consumers may derive some comfort in
knowing that there are national benchmarks that can be used in the time of
drought or water restrictions to determine demand quotas for individual
consumers. In the past, during
water restrictions, efficient water users were faced with similar
restrictions to non-efficient users, and such a percentage reduction. 1.1.9 Role of benchmarks from government's perspectivePlanning of water resources The development of further
infrastructure of water resources has become expensive and requires international
funding. This has an impact on
the national economic indicators.
In the interests of environmental protection, economic efficiency,
social considerations and sustainability of water resources for the future,
the government needs to incorporate the opportunities of WC/WDM in the
planning of water resources.
Benchmarks can assist water resource planning to determine the role of
WC/WDM. Prioritising WC/WDM measures and
strategy The benchmarks can be used to
prioritise the department’s WC/WDM strategy. Water inefficiencies (identified using the derived
benchmark values) can be used as one of the key parameters to determine the
efforts of the department in supporting and promoting other WC/WDM strategies.
Tariff determination Benchmark values can be used by both
the department and other water services institutions to determine equitable
tariffs. Based on local and
regional WC/WDM strategies, water tariffs can be used as incentives for
consumers to become more efficient.
The cost drivers of further infrastructure can also be linked to
inefficient users to ensure equity amongst all consumers. Drought contingency planning DWAF and water services authorities
can use benchmark values to plan for drought contingencies and determine
parameters, such water quotas, for individual consumers based on a fair
system. Water allocation parameters Benchmarks can ultimately be used to
assist in evaluating application and licensing for water applications. It must be stressed that water
efficiency is only one of various parameters that will be used in evaluating
water applications in a comprehensive process. Water efficiency considerations, however, can only be fair
and effective if acceptable benchmark values are available. Development of a national information
system In a country where water availability
is becoming increasingly scarce, knowledge regarding water usage is
essential. The National Water
Act and Water Services Act require the establishment of a national information
system on water usage. The
development of this system needs to include benchmarks parameters. The project to develop the benchmarks
will also assist the department in understanding and improving the structure
and format of the national information system currently being developed. demand targets and performance auditing1.1.10 Water targets and water balance Objective If
one is serious about water conservation then demand targets should be set and
performance monitored. However,
before targets can be set, the objective of a business should be to
understand its use of water and wastewater discharge requirements. Much in the same way that expenditure
is analysed and budgeted, so too should the water related elements. Consumers
with large premises and different processes should install meters and should
carry out monthly water balances in order to enable them to analyse their
water use. Furthermore, another objective of understanding the water use and
wastewater discharge requirements is to determine the impact on the overall
water environment, and to ensure that this is mitigated. The
benchmarks developed as part of the process described in section 9.2 could be
used as a guide for the development of demand targets, but it is accepted
that situations could vary and consumers may take some time before they
achieve the desired benchmarks. Strategy If not already understood, businesses will
develop an understanding of the interactions between their business processes
and their water utilisation and wastewater requirements. Consumers should
submit their demand targets indicating the impact of a water conservation
programme for a period of at-least ten years to the institution that supplies
them with water. The demand targets are necessary so they can be evaluated by
the water institution and also be used to determine the most appropriate
water resources management strategy for the area. Guidelines
for implementation Short-term: Determine the uses of water and
the wastewater requirements for individual businesses. Medium-term: Project future water utilisation and
wastewater discharge requirements, and capture on the individual databases. Long-term: Undertake pilot projects
and commission research and development into the drivers of water demand (and
wastewater). Responsibilities
for implementation
1.1.11 Performance auditingObjective Once
a business understands its water utilisation and wastewater discharge
requirements, it will be in a position to monitor its performance in this
regard. The setting of
performance targets is always a sensitive issue since the implications of
water conservation are not easily quantified. The first step is to determine what the performance
indicators should be and then to determine the current levels of performance
of these indicators. The focus
here should be on the specific industry processes. Thereafter, achievable targets can be set and the
performance monitored and reported.
The objective of this exercise is to achieve the optimal balance
between effective and efficient water utilisation and wastewater discharge. Strategy Water
utilisation and wastewater discharge performance indices for all appropriate
business processes will be determined and published. Following this, all businesses will
set targets and the performance indices will be monitored. It should be noted that certain
infrastructure might have to be installed by businesses to enable them to
monitor these indices.
Businesses listed on the databases mentioned previously will provide
the relevant Catchment Management Agency or Water Services Provider with
performance reports. The
performance status of the businesses will then be entered into the
database. Although
self-regulation is being promoted, audits of those businesses listed on the
databases will be undertaken on a regular basis. Ad-hoc audits of the other businesses will also be
considered. Guidelines
for implementation Short-term: Determine water utilisation and
wastewater discharge performance indices for individual industry processes. Medium-term: Set performance targets, install
meters and monitoring systems and submit performance reports. Long-term: Design and undertake performance management audits. Responsibilities
for implementation
Note 2: Performance auditing will be part of the ongoing review
process of water licensing.
Catchment Management Agencies, or DWAF where Catchment Management
Agencies do not exist, will be responsible for issuing and reviewing the
licences in this regard. The
history of performance of either individual businesses or Water Services
Providers, whomever is applying for a licence, will become a criterion in the
granting of future licences. Water conservation programmeObjective When
implementing water conservation measures, there are several important issues
that must be taken into account.
It is clear that reducing wastage in order to promote greater profit
margins should be a fundamental issue that requires little additional motivation. This, however, is not normally the
case. The measures required to
reduce waste are often of a capital nature, whilst the savings will be
reflected on an operating budget.
Although such actions generally pay for themselves over a relatively
short period, it is often difficult for businesses to motivate for, and to
secure the required capital budgets.
Furthermore, the cost of water is often a rather small item on a
business’s operating budget. The
objective is therefore to develop water conservation programmes that are a
prioritised and scheduled suite of interventions for individual businesses. Strategy With
the help of the relevant Catchment Management Agency or Water Services
Authority, businesses will develop a water conservation programme. The water balance analysis and the
water audit, described above will provide an indication of the extent of any
water conservation problems and possible interventions. Typical technical interventions are: ·
Domestic: retrofitting water saving devices; ·
Irrigation: scheduling and application; use of
indigenous plants; mulching. ·
Process: new technologies and processes that
utilises less water. ·
Cleaning: alternative methods of cleaning;
reclaimed water. ·
Cooling: air cooling, multiple pass cooling;
higher water quality tolerances; reclaimed water. ·
Fire fighting: pressure management; separate
systems; reclaimed water. ·
Water
treatment: management and
de-watering of sludge; more efficient technologies and processes. The
elimination of leakage and measurement of water use are common interventions,
no matter what the use.
Education, awareness and marketing are also common and are addressed. The
costs of implementing water conservation interventions and the benefits of
the reduced water utilisation will be determined and assessed by means of a
cost-benefit analysis.
Furthermore, businesses that generate wastewater will benefit in that
the reduction in use will have a corresponding reduction in wastewater and
therefore reduction in the treatment and disposal thereof. The savings in water use costs discussed
above will give an indication of the level of funding that can be justified,
on purely financial grounds, for allocation to water conservation. Once accepted by the relevant
Catchment Management Agency or Water Services Provider, a business will systematically
implement its water conservation programme. Guidelines
for implementation Short-term: Determine the water conservation
problems and define appropriate interventions. Medium-term: Determine the benefits and the
costs of water conservation for individual businesses. Long-term: Undertake cost-benefit analyses, develop and implement the
water conservation programme. Responsibilities
for implementation
1.1.12 Wastewater reclamationObjective More
often than not, businesses that discharge wastewater incur greater expenses
in this regard than they do in the purchase and/or purification of
water. As a result, there is
always the danger that the wastewater is diluted so that it meets receiving
water quality objectives.
Although not necessarily a consumptive use, this practice can
influence water resources allocations.
Furthermore, wastewater discharges either to sewer systems, or into an
open river system, are notorious in terms of their water quality problems and
pollution. The objective is
therefore to promote the practise of businesses containing all their
wastewater on site and recycling it as much as possible. The principle of cleaner production
technology and waste minimisation (CP/WM) should be the principal objective
here. Furthermore, the Waste
Discharge Charge System, which is currently under development, will provide
incentives to minimise waste. Strategy Wastewater
discharges will be monitored carefully by the relevant Catchment Management
Agency or Water Services Provider.
Although both the quantity and quality of the discharges preferably
should be monitored, the emphasis will be on routine sampling of water quality
for the businesses with large discharges for compliance with the requirements
of the discharge permit. The
water balance analysis described will also be evaluated to ensure that
excessive water is not being used for dilution purposes. Individual businesses will also
determine the potential for wastewater reclamation, whilst the relevant
Catchment Management Agency or Water Services Provider will evaluate the
regional significance of wastewater reclamation. Guidelines
for implementation Short-term: Monitor wastewater discharges of
those businesses identified from the regional databases. Medium-term: Assess water balances for excessive
use relating to wastewater Long-term: Determine the potential for reclamation and develop
alternative methods of recycling water. Responsibilities
for implementation
COMMUNICATION, PUBLIC AWARENESS AND EDUCATION1.1.13 Terminology Motivation The various Water Acts, Regulations and
other related documentation in circulation at present in South Africa contain
a plethora of terms and definitions related to water resources management,
many of which differ and conflict each other. The water industry is battling to come to terms with these
and even the professionals are having communication problems. Furthermore, the User Sector also
makes use of terminology that has the potential to be confusing. The success of implementing any water
conservation strategy will depend to a large extent on communication, and the
first step in this regard will be a common understanding of the relative
terms and definitions. The
objective therefore is to provide definitions of all terminology relating to
water resources management used both in the water industry and in the User
Sector. Strategy A concise, stand-alone document outlining
all the water related terms and definitions would be drafted and reviewed by
water resources professionals so that there is general consensus in this
regard. Water resources
management terms that are specific to the User Sector will also be included
in the document. The document
will be edited and supported with simple diagrams so that the layman or a
member of the general public will understand it. Guidelines for implementation Short-term: Develop a comprehensive list of water resources
management terms and definitions. Medium-term: Review the terms and definitions with relevant
professionals and industry representatives. Long-term: Design, draft and publish the
document. Circulate it to all
stakeholders and ensure that it will be made available from resource centres. Responsibilities for implementation
Note
3: This strategy is
applicable to all User Sectors and consideration should be given to making it
a joint strategy. 1.1.14 Marketing and publicising water conservationObjective The current water related legislation
promotes water conservation very strongly. DWAF and the other Water Services Institutions, however,
have neither the manpower nor the budgets to regulate and monitor compliance
in this regard. To this end,
DWAF promotes self-regulation and therefore have to rely on marketing water
conservation to the User Sector to communicate their requirements. On top of this, successful water
conservation initiatives need to be published, as do new technologies,
processes and approaches to conserving water in the User Sector. Strategy A marketing campaign will be designed to
promote water conservation amongst the User Sector. There will be a lot of overlap between the marketing
campaign and the education and awareness initiatives proposed. The focus of the marketing campaign,
however, will be on promoting self-regulation and communication. Guidelines for implementation Short-term: Develop and design a national water conservation
marketing campaign for the User Sector. Medium-term: Develop appropriate marketing material and media for the
campaign. Long-term: Implement the campaign. Responsibilities for implementation
1.1.15 Education and training programmesObjective Many businesses acknowledge that reducing
water wastage in order to reduce costs and therefore promote greater profit
margins is common sense, however, certain businesses continue to overlook
this aspect. Furthermore, many
businesses lack the technical insight on how to undertake water conservation
and need guidance in this regard.
Focused education and training programmes will go a long way to
helping businesses in this regard. Strategy Initiatives will be developed to educate
businesses on issues of water conservation. New material on water conservation in the specific
business categories will be developed for distribution. Education and training opportunities
will be investigated with all relevant Sectoral Educational Training
Authorities. Furthermore, the
relevant Catchment Management Agency or Water Services Provider will set up
training facilities for businesses in the fields of water auditing and
monitoring. An education and
training programme will be established, which will build on existing
initiatives. It will also
address pollution and wastewater management including CP/WM) and the whole
concept of integrated catchment management. Guidelines for implementation Short-term: Design an education and training programme. Medium-term: Develop material on water conservation in specific
business areas. Long-term: Set up training facilities for water
auditing and monitoring, and implement the education and training programme. Responsibilities for implementation
1.1.16 Water conservation information centresObjective As discussed above, good communication
will be the basis of a successful water conservation campaign. One of the biggest problems will be
to provide the public with an easily accessible repository of information
related to water conservation.
On top of this, it is often difficult, if not impossible, for the
public to report water conservation problems to the appropriate authorities. To this end, water conservation
information centres need to be established. Strategy Regional and sectoral water conservation
information centres will be established using existing structures such as the
public affairs division of the relevant Catchment Management Agencies, Water
Services Providers and large businesses. The existence of these information centres will be
publicised in the marketing campaign mentioned previously. This will enable stakeholders in the
User Sector to gain access to appropriate water conservation and
institutional information. Guidelines for implementation Short-term: Determine the need for information centres and the
capacity within relevant institutions to fulfil this requirement. Medium-term: Design the functional and resource requirements for
typical information centres. Long-term: Establish information centres and
co-ordinate activities. Responsibilities for implementation
Note
4: This strategy may be
applicable to all User Sectors and consideration should be given to making it
a joint strategy. INSTITUTIONAL ASPECTS1.1.17 Water conservation forumsObjective An important aspect required for
successful water conservation is the ability to network and share
information, tactics and experience with colleagues. Workshops or forums will provide an
opportunity for managers and planners to discuss any problems and/or
successes they have had in their quest to reduce wastage and pollution. Existing and soon to be implemented
forums, such as those for the Water Management Areas, will be utilised as far
as possible. Strategy Water
conservation forums will be set up, or existing forums will be expanded, so
that the various issues concerning water conservation can be discussed within
the various business sectors.
These forums will be created on the lines of those envisaged for the
Catchment Management Agencies, within which specific focus should be provided
on each of the User Sectors.
Representatives from DWAF, or the relevant Catchment Management
Agency, will chair the individual forums. The Chairperson will be responsible for driving the
various initiatives in the different business areas; arranging for
presentations from various suppliers and/or specialists in the field of water
conservation; and ensuring that all of the business sectors are aware of the
latest developments and techniques in water conservation. Guidelines for implementation Short-term: Determine the need for water conservation forums and
the capacity within the relevant CMA to fulfil this requirement. Medium-term: Design the functional and resource requirements for the
forums. Long-term: Establish the forums and co-ordinate
the activities. Responsibilities for implementation
Note
5: This strategy may be
applicable to all User Sectors and consideration should be given to making it
a joint strategy. 1.1.18 Investigations and pilot projectsObjective Although many of the strategies described
above comprise tasks that include pilot projects and investigations, these
are better stated in a separate strategy. The increase in water prices in future and the ongoing
need to review water resources allocations to ensure the most beneficial use
of the resource both necessitate a need for increased knowledge and
technology regarding water conservation. Some of the larger businesses have established research
and development sections that can also concentrate some of their efforts on
water conservation. The objective
therefore is to compile a prioritised list of water conservation related
investigations and pilot projects, and for both the businesses from the User
Sector and the Government related institutions to become partners in
addressing this research and development needs. It is understood that many of the businesses comprising
the User Sector are in a competitive environment and it is not the intention
to compromise confidential research and development programmes of individual
businesses. The emphasis will be
on collaborative research requirements. Strategy The
requirements for research and development into water conservation in the User
Sector will be determined and prioritised. Investigations and pilot projects will be conceptualised,
designed and implemented according to the priorities. Guidelines for implementation Short-term: Determine the research and development requirements
for water conservation in the User Sector. Medium-term: Design and prioritise investigations and pilot projects in
this regard. Long-term: Undertake the investigations and
pilot projects. Responsibilities for implementation
Note
6: This strategy may be
applicable to all User Sectors and consideration should be given to making it
a joint strategy. 1.1.19 Support structuresObjective Many of the strategies described above
have alluded to the establishment of support structures that can facilitate
and promote water conservation in the User Sector. Once again, these are better stated in a separate
strategy. The objective will be to determine the requirements for support
structures and to develop mechanisms for implementing these. Strategy The
type of support structures that are required will be determined, as will
their roles and responsibilities, how they will function, and what their
resourcing requirements will be. Guidelines for implementation Short-term: Determine the requirements for support structures. Medium-term: Design institutional structures for the support
structures. Long-term: Implement the support structures. Responsibilities for implementation
1.1.20 Incentives and disincentives (penalties)Objective The savings realised can often cover the costs
of implementing water conservation measures, but there is normally a need for
some financial incentive or seed funding to initiate the process. The relevant authorities and the User
Sector as a whole should strive to make water conservation a self-financing
initiative. Strategy The Water Services Authorities, along with
the Business Representatives, will devise a system of incentives and
penalties that reflect the performance of businesses as is discussed in the
section above. These incentives
and disincentives (penalties) could comprise part of the catchment management
charge that will be levied to all users in future. Cognisance will be taken of the investigations into
economic instruments for general environmental management being undertaken by
the Department of Environmental Affairs. Consideration could be given to amending the charge so
that businesses that perform well will be given a rebate, and those that do
not perform well will incur the full charge. The costs of the rebates will be determined such that they
balance with the income generated from the full charges. Guidelines for implementation Short-term: Determine appropriate system of incentives and
disincentives (penalties). Medium-term: Implement the system along with the performance management
aspects. Long-term: Review incentives and penalties
according to current performance. Responsibilities for implementation
Note
7: This strategy may be
applicable to other User Sectors and consideration should be given to making
it a joint strategy. In South Africa the role of WC/WDM by the Industry, Mining and
Commercial water use sector is a relatively new concept. Many observers would say that
businesses are always striving for efficiency in order to reduce their costs
and that government should not interfere with their operational and
management practises. The
reality however is that due to the historically cheap cost of water, often
water efficiency was not considered as a key issue. Although the costs of water supply have risen considerably
over the last few years, businesses have become so used to some of the
non-efficient practises they are not aware of the opportunities of reducing
their water demand and at the same time reducing their own costs. The requirement for WC/WDM in the Industry, Mining and Power
generation sector can however be very contentious. Industries that get their water supply from water services
institutions provide much needed income to these institutions and the reduction
of water sales can have negative consequences not only for the water
institutions but also for all the water consumers. For this reason the strategy proposes that individual
water consumers should implement WC/WDM on a voluntary basis or in specific
areas where Catchment Management Agencies, or Water Services Authorities can
request water users to develop a WC/WDM programme. Water supply circumstances can vary considerably
throughout the country and therefore any decisions on imposing or requiring
the implementation of WC/WDM must be specific to the requirements and
specifications of any local, regional or catchment strategy. The WC/WDM strategy for the Industry, Mining and Commercial water use
sector provides both a description of the principles, concepts and need for
WC/WDM and a framework of action.
The perceptions and understanding on which this document is based
needs to be tested, and continuously updated and it is therefore imperative
that key stake holders comment on and participate in the further development
of this WC/WDM sectoral strategy. |
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