chapter 6 - water resource management - western cape

Status Quo Report © DEADP 155

6. EXISTING STRATEGIES AND PLANS

6.1 INTRODUCTION

Water is a limiting factor in development in the Western Cape and, as water requirements in the

province grow, it is becoming increasingly important to manage and plan for water resources. A

considerable amount of work has been done by National, Provincial and Local Government over the

past decade to develop strategies to manage water resources in the Province, and these are reviewed

in this section.

A brief introduction to the existing strategies is given in this section, and then each one is reviewed. A

summary is provided, and then the gaps identified during the process are highlighted and commented

on. Recommendations on how these may be addressed will form part of Phase II of this study.

6.2 STRATEGIES INITIATED BY DEPARTMENT OF WATER

AFFAIRS

6.2.1 Brief History

The development of Integrated Water Resource Management (IWRM) strategies for the Western Cape

Province forms part of an overall process that has been unfolding for over a decade under the

direction of the Department of Water Affairs (DWA). A brief history of this process is described below

in order to provide a context to the review of exWATER RESOURCES MANAGEMENT

6.3 INTRODUCTION

This Section provides an overview of water resource availability and requirements within the Western

Cape Province. It focuses on two levels of information, firstly a regional overview at Water

Management Area level, based on existing information (of which the 2005 DWA Internal Strategic

Perspectives) form the basis, supported by more recent subsequent information that may have since

become available. Secondly, it presents the preliminary information currently available from the All

Towns Reconciliation Strategy, being undertaken by DWA, so as to prioritize those towns in which the

most urgent attention is required to address water availability related issues.

The management of water resources (including water availability and utilization), is undertaken on the

basis of water management areas. As shown on Figure 6.3.1, the majority of the province falls within

four WMAs, namely:

Berg WMA (No 19);

Breede WMA (No 18);

Gouritz WMA (No.16); and

Olifants-Doorn (No.17) WMA (approximately 50% thereof).

In addition there are small areas that overlap into two adjacent WMA‟s namely the Fish to Tsitsikamma

WMA (No 15) and the Lower Orange WMA (No.14)


Figure 6.3.1 The Western Cape and its WMAs.

Surface water catchments are defined by topographical features and as such, the catchment areas do

not coincide with municipal and provincial boundaries, which are determined based on other factors.

Within the scope of this study, it is therefore neither possible nor of added value to try and disseminate

available regional surface water resource information to match provincial boundaries. Rather, an

overview at WMA level provides an indication of the current status.

6.4 WARMS DATABASE – REGISTERED USERS

At the time of submission of this draft Status Quo Report, the WARMS information for the Western

Cape Province had yet to be made available for the study. To provide provisional indication of the

largest water users per District Municipality, the Study Team has accessed information from the Water

Masterplans undertaken by each municipality and consolidated that into a summary as provided in

Figure 6.4.1 to Figure 6.4.5.

Figure 6.4.1 Largest 10 water users in the Cape Winelands District Municipality.

The indicated water use by the Haasdag Dagsentrum appears to be incorrect and should be verified

once the WARMS data set is available.


Figure 6.4.2 Largest 10 water users in the Central Karoo District Municipality.

Figure 6.4.3 Largest 10 water users in the Eden District Municipality.

Figure 6.4.4 Largest 10 water users in the Overberg District Municipality.


Figure 6.4.5 Largest 10 water users in the West Coast District Municipality.

Information from the City of Cape Town has been requested but was not available at the time of

submission of this Draft report. In the interim, information from the City‟s Integrated Water Resources

Planning Study of 2000 has been reviewed and at that stage, the largest 10 water users were as

indicated in Figure 6.4.6.

Figure 6.4.6 Largest 10 water users in the City of Cape Town Metropolitan Municipality (2000).

6.5 OVERVIEW OF THE ALL TOWNS STRATEGY

The DWA Directorate of National Water Resource Planning is currently undertaking a Reconciliation

Strategy for the individual towns in both the Western and Eastern Cape Provinces. This focuses on

understanding the status quo of water availability and utilization within each town, as well as the

projected increase in water requirements. A strategy is then developed for each town towards

reconciling the current and projected water demands, through identification of both potential demand-

side (water conservation and demand management) and supply-side (water source) interventions.

To date the reconciliation strategies for the Western Cape District Municipalities are in final draft form,

and have been submitted to DWA for approval (with the exception of the West Coast DM, for which

the strategies are yet to be completed). Figure 6.5.1 provides a summary snap-shot of those towns in

which current water shortages regularly occur, as well as those towns where peak season (summer)

supply is inadequate. The latter, in most cases, is associated with lack of bulk storage or insufficient

infrastructure reticulation capacity, to meet the short peak season water requirements, typically

occurring during the summer holiday periods.


Figure 6.5.1 Towns exhibiting current water supply concerns.

Ref: Draft District Municipality Strategies (Umvoto), March 2011.

6.6 GROUNDWATER

This Section provides an overview of groundwater resource availability and requirements within the

Western Cape Province. The geological setting is a key driver of geohydrological patterns. A brief

discussion is held of the geology of each WMA. Structural geology is also important as this controls,

often to a significant degree, groundwater behaviour. Based on the geological setting the aquifer

types have been determined by DWA and these are also presented and discussed briefly. The aquifer

types have been sub-divided into:

Fractured aquifers (fractured and fissured bedrock resulting from decompression and /or

tectonic action. Groundwater occurs predominantly within fractures and fissures in

sedimentary and metamorphic rocks)

Intergranular aquifers (generally unconsolidated but occasionally semi-consolidated.

Groundwater within intergranular interstices in porous medium. Tertiary – Quaternary coastal

deposits and alluvial deposits along river terraces).


Fractured and Intergranular aquifers (largely medium to coarse grained granite, weathered to

varying thickness

The typical borehole yields that can be anticipated from these aquifer types are also indicated and

have been classified according to the following 5 yield categories:

> 0.5 ℓ/s

2.0 – 5.0 ℓ/s

0.5 – 2.0 ℓ/s

0.1 – 0.5 ℓ/s

< 0.1 ℓ/s

The approach for this Status Quo report is essentially to complete a basic groundwater balance per

Quaternary catchment. The amount of groundwater recharging a Quaternary catchment is used as

the total groundwater input and the amount of groundwater abstracted as the outflow. These two

values are used to calculate a groundwater stress index (i.e. abstraction / recharge). The concept of a

Stress Index is used to assess the sustainability of current groundwater use and the stress status of

the groundwater resource. The Stress Index is the abstraction expressed as a percentage of the

recharge. The concept of stressed water resources is addressed by the National Water Act, but is not

defined. Part 8 of the Act gives some guidance by providing the following qualitative examples of

„water stress‟ (Parsons and Wentzel, 2006).

Where demands for water are approaching or exceed the available supply;

Where water quality problems are imminent or already exist; or

Where water resource quality is under threat.

Once a stress index value has been calculated, it is assigned a stress level based on

Table 6.6.1. The lowest permissible category is D, since it is the lowest limit of sustainability. If the

Stress Index is a category E or F, the assumption is that there is no more groundwater remaining for

further allocation. No further groundwater abstraction may be granted.

Table 6.6.1 Guide for determining the level of stress of a groundwater unit (GRDM Manual)

PRESENT STATUS

CATEGORY

DESCRIPTION

STRESS INDEX

(percentage)

(abstraction / recharge)

STRESS INDEX

(ratio)

(abstraction / recharge)

A

Unstressed or slightly stressed

< 5

< 0.05

B

5 - 20

0.05–0.20

C

Moderately stressed

20 - 40

0.20–0.40

D

40 - 65

0.40–0.65

E

Highly stressed

65 - 95

0.65–0.95

F

Critically stressed

> 95

> 0.95

The other very important component of the groundwater use is the amount of groundwater that needs

to be set aside for the Groundwater Reserve. Under the National Water Act (Act No. 36 of 1998), „the

Reserve‟ means the quantity and quality of water required:

To satisfy basic human needs by securing a basic water supply, as prescribed under the

Water Services Act (Act 108 of 1997) for people to be supplied with water from that resource,

and


To protect aquatic ecosystems in order to secure ecologically sustainable development and

use of water resources.

The Reserve is calculated per quaternary catchment by calculating the volume of groundwater

required to satisfy the basic human needs of the catchments population (25 ℓ/person/day) and the

volume of baseflow for each month (plus any other ecosystem requirements dependent on

groundwater (e.g. springs, groundwater dependent ecosystems etc)). Typically the groundwater

allocation for basic human needs (25 ℓ/person/day) comprises a small percentage of the overall

resource. The groundwater contribution to river baseflows per Quaternary catchment is also mapped

and listed as part of this project. It gives an indication where groundwater plays an environmental role

and also indicates where groundwater abstraction must be prevented in close proximity to riparian

zones.

The data sources used in this report include:

Geology (Council for Geoscience 1:1 000 000 scale geological data)

Aquifer Types (Department of Water Affairs 1:500 000 scale hydrogeological map series)

Groundwater Recharge (Department of Water Affairs, Groundwater Resources Assessment

Phase II project (DWAF, 2005), with updates by Institute of Groundwater Studies, University of

the Free State

Groundwater abstraction (Department of Water Affairs, Groundwater Resources Assessment

Phase II project (DWAF, 2005)

Groundwater stress index (a calculation using the data sets listed above)

Groundwater contribution to river base flow (Institute of Groundwater Studies, University of the

Free State).

The groundwater Reserve data obtained for this study from the Institute of Groundwater Studies,

University of the Free State is based on rapid, low confidence calculations and is thus not presented

as part of this report. It is thus also better to use the Stress Index to assess whether there is

groundwater remaining for allocation. Ideally more detailed studies are needed for each Quaternary

catchment to obtain a more accurate groundwater Reserve value and also to take into account

groundwater monitoring data when calculating allocable groundwater volumes. Another component

that has not been taken into account in the groundwater balance equation is groundwater storage.

This is important when calculating the volume of allocable groundwater.

The data sets presented and listed above however do give a high level indication of groundwater

status per Quaternary Catchment.

6.6.1 Groundwater Recharge

Groundwater recharge is considered to be the precipitation that reaches the „water table‟, i.e. the

saturated zone within a geological profile. There are numerous factors that influence the amount of

recharge and these include: rainfall intensity, elevation, antecedent moisture conditions, topographical

slope, soil type and thickness, the presence of preferential pathways, the geological material

comprising the vadose zone, and geological setting of the aquifer etc. Recharge values can range

from approximately 35 % to 0 % of precipitation but is typically <10 %. There are numerous methods

for determining groundwater recharge and these have been well documented (Bredenkamp et al,

1995). A national scale project was completed whereby recharge was calculated for the entire country

on a cell size of 1 km x 1 km (DWAF, 2005). The results of this work have been aggregated up to

Quaternary catchment values for this Status Quo Report. In addition the recharge considered is direct

vertical recharge and it does not take into account any lateral inflows.


6.6.2 Groundwater Quality

Groundwater quality is influenced by many factors such as rainfall volumes, length of time for host

rock/groundwater interaction, aquifer parameters, geological rock type, etc. Groundwater quality is

also impacted by anthropogenic sources, both point source and non-point sources of pollution.

Groundwater pollution sources have been widely documented in the water quality guidelines (DWAF,

1999) are very useful in assessing groundwater quality in terms of fitness for use and these guidelines

are currently being updated. There are also other guidelines for assessing the suitability of

groundwater for use. In addition the microbiological content of the water also needs to be assessed to

ensure fitness for use. Groundwater quality is a complex topic, however there are key indicators that

can be used to determine an overall potential suitability for use. For this Status Quo phase of the

IWRM study Electrical Conductivity (EC) as measure in mS/m is used as an indicator of water quality.

No other parameters are considered and microbiological content is also not taken into consideration.

The EC classes used in this report are those used by DWA in the 1:500 000 scale hydrogeological

map series. They do not conform exactly to the DWA (1999) classes but more closely to the SABS

(1984) categories (70 mS/m is the recommended maximum limit and 300 mS/m the maximum

allowable limit for domestic supplies). Thus according to the map presented in this report the above

two groups are coloured blue and green respectively. The yellow and red areas are above (> 300

mS/m) the SABS (1984) maximum allowable limit for domestic supplies.

6.7 ECOLOGICAL CONSIDERATIONS

6.7.1 National Freshwater Ecosystem Priority Areas

The NFEPA project is a multi-partner project between CSIR, South African National Biodiversity

Institute (SANBI), Water Research Commission (WRC), Department of Water Affairs (DWA),

Department of Environmental Affairs (DEA), Worldwide Fund for Nature (WWF), South African

Institute of Aquatic Biodiversity (SAIAB) and South African National Parks (SANParks). The NFEPA

project aims to:

1. Identify Freshwater Ecosystem Priority Areas (hereafter referred to as „FEPAs‟) to meet national

biodiversity goals for freshwater ecosystems; and

2. Develop a basis for enabling effective implementation of measures to protect FEPAs, including free-

flowing rivers.

The first aim uses systematic biodiversity planning to identify priorities for conserving South Africa‟s

freshwater biodiversity, within the context of equitable social and economic development. The second

aim comprises a national and sub-national component. The national component aims to align DWA

and DEA policy mechanisms and tools for managing and conserving freshwater ecosystems. The sub-

national component aims to use three case study areas to demonstrate how NFEPA products should

be implemented to influence land and water resource decision making processes at a sub-national

level.

The project further aims to maximize synergies and alignment with other national level initiatives such

as the National Biodiversity Assessment (NBA) and the Cross-Sector Policy Objectives for Inland

Water Conservation (discussion paper published by Water Research Commission, Report TT 276/06).

The NFEPA data primarily identifies quaternary catchments of category “A” or “B” Present Ecological

State (PES) classification, to determine priority areas. Quaternary catchments upstream of these

priority areas, and not NFEPA sites themselves, have also been identified as level two priorities for

conservation and preservation due to the impact they have on the downstream NFEPAs.

The NFEPA maps for each WMA are included in the WMA chapters (from Chapter 8 onwards).

Further using the information data from the Water Quality analysis, will be overlaid with the NFEPA

data to identify priority areas for preservation of water resources.


6.8 WATER AVAILABILITY AND UTILISATION CHALLENGES

The following issues relating to water resources availability and utilization have been identified:

6.8.1 Planning Processes

Planning processes for water resource management can be extremely slow and risk not keeping pace

with the rate at which the demand for water increases. This can be partially attributed to capacity

related challenges within the water management institutions, often as a result of loss of human

resources, inadequate budget and the lead times required to accommodate the necessary planning,

authorisation processes, EIAs, licensing, design, procurement, construction and commissioning.

Coupled to this challenge is the long term nature of the water resource planning horizons, required to

at least consider a 10-year forward planning period (or more), compared to the shorter timescales that

are important to local government. As a result, many towns are often not that well organised for

meeting the future requirements. The drought (2010) intensified the problem. This was especially

evident in the Garden Route area where emergency augmentation measures were required, as was

the case at Beaufort West.

6.8.2 Impact on the Reserve on Water Availability

One of the major impacts on water availability is the introduction of the Reserve. Historically the

Reserve was not considered, and it has been relatively recently introduced as a water requirement. In

many cases the Reserve has effectively taken up any „spare‟ capacity and in some cases has pushed

the catchment into a deficit. The implementation of the Reserve has „suddenly‟ brought many

catchments to the limit of surface water development. Progress with the Ecological Reserve

determination process is shown in Annexure C.

The Breede-Overberg is a prime example of this, where it was always thought that there was surplus

water, and that additional large-scale irrigation expansion, or possible increased water transfers to the

Berg WMA for Cape Town‟s water supply were possible. The latest draft of the BOCMA Catchment

Management Strategy has found that, based on current information, a cautionary approach needs to

be adopted to the allocation of water from the Breede, until such time as the availability of water has

been confirmed through an updated water availability assessment study (WAAS). This

recommendation has been taken into consideration by DWA (D: National Water Resource Planning),

in terms of their programme for further water availability assessment studies.

Another example where the impact of the Reserve is very marked is that within the integrated Western

Cape Water Supply System (WCWSS). The output from the planning tool that was developed

confirms how the water available to the system decreases when the Reserve is introduced in the

catchments of the existing dams.

In the Olifants-Doorn catchment the adopted approach regarding a raised Clanwilliam Dam is that the

Olifants River (already significantly developed) will provide only a small contribution to the Reserve.

However, water resource development within the Doring River will be limited, such that it can provide

the majority of the Reserve to the Olifants River downstream of the confluence with the Doring and

importantly also to the estuary.

6.8.3 Impact of Climate Change

Although unconfirmed, the possibility that the recent droughts could also be attributed to the early

effects of climate change cannot be ignored. Refer also to the Climate Change Chapter of this report.

The WCWSS planning tool also shows the effect of certain climate change scenarios and the potential

related impacts, which need to be monitored so as to incorporate this effect into the future planning of

water resource management.


6.8.4 Water Efficiency – Bulk Water Losses

The refurbishment and/or replacement of ageing conveyance infrastructure, such as the irrigation

supply canals in the Stompdrift-Kammanassie area of the Gouritz, and the irrigation supply canals of

the Olifants River Irrigation Scheme (Lower Olifants River Water User Association) offers potential in

terms of reducing water losses. However, the replacement costs have been identified as being

significant and are likely to exceed the affordability of the agricultural water users to implement

upgrading and repair.

Each and every water service provider should have a water conservation and demand management

strategy, setting realistic achievable targets and interventions towards becoming more efficient. These

strategies must be implemented, monitored to ensure that the effects of their efforts are measured.

Efforts to implement water conservation and demand management must be a requirement before

consideration by DWA is given to licence applications for development of new water resources.

6.8.5 Monitoring

The outcome of water resource catchment studies to determine the availability of both surface and

groundwater is only as reliable as the observed information against which the various models are

calibrated. Whilst there are areas in which there is a need to improve the streamflow gauging (middle

Breede River, Upper Olifants River, the Overberg, for example), the monitoring of groundwater

resources is generally inadequate throughout the Province. This is common problem, not only specific

to the Western Cape. The frequency of monitoring and the distribution of sites to enable aquifer

specific monitoring (not just individual boreholes) require attention.

6.8.6 Governance and Leadership

Strong leadership and co-operative governance between all role-players is required to give effect to

successful and sustainable water resource management and planning. An example of how this has

been effectively achieved is the way in which the 2010 drought in the George to Plettenberg Bay

coastal catchments has been managed. Regional Disaster Management provided strong leadership

and took control, driving the process, arranging meetings every two weeks to assess the situation.

Government officials are too busy with the day-to-day business of addressing queries and do not

necessarily have the time and resources to stay focused on the overall picture regarding water

availability in the short-, medium- and long-term. An independent person or group with the prime

purpose of driving this process is key, and with a mandate and freedom to make appropriate

decisions.

6.8.7 WASTE WATER TREATMENT WORKS

The following summary provides of some of the key issues and challenges associated with the

operation and management of waste water treatment works and the risk posed to the receiving water

resources:

Local authorities are under-funded, with the result that systems are not maintained or

upgraded. There is a concern that funding for maintenance and upgrading is not being given

sufficient priority in the IDPs;

In the past expenditure has focused on capital costs, with little or no money earmarked for

operational budgets;

Pollution and the threat of disease as a result of inadequate sewage disposal is an issue

affecting all informal settlements;

Informal settlements are often located over sewage infrastructure, which makes the servicing

of this infrastructure impossible. One such example is in Khayelitsha, where informal dwellings


have been located over the interceptors (large council sewer pipes), thus these cannot be

serviced;

All pump stations have the ability for any overflow of sewage to be directed into the storm

water system. Consequently there are times when raw sewage flows into the storm water

systems, ending up firstly in the rivers and then in the ocean;

Telemetry systems which detect when there is pump station failure are connected to a central

control station, from which they are monitored. However, telemetry systems are sometimes

not fully operational;

In areas where rapid development is taking place, this is outpacing infrastructure provision.

For example, in the City of Cape Town, this is occurring up the West Coast (Melkbos,

Parklands, etc.), as well as in the Durbanville, Helderberg and Botleray areas. The WWTWs

responsible for servicing these areas are coming under pressure to cope with the increased

loads. These include:

o West Coast – Potsdam (Killarney), Melkbos & Atlantis WWTWs;

o Durbanville – Kraaifontein, Scottsdene & Bellville WWTWs;

o Helderberg – Khayelitsha & Macassar WWTWs;

o Botleray – Bellville, Macassar & Khayelitsha WWTWs;

Once a site for a new WWTW has been identified, it then takes between four and five years

(at best) before it becomes operational. This has implications when planning any new large

housing developments. Planning and authorisation processes require more effective

streamlining for authorising new WWTWs and upgrades. New urban developments should be

equipped with their own package treatment plants with containment tanks (to allow for off peak

processing to cope with capacity) and grey water reticulation (purple tape systems) for toilet

flushing, garden irrigation and car washing. Waste products from package plant can then be

directed into formal sewer networks.

Opportunities exist for the increased re-use of treated effluent from WWTWs and these have

been identified and documented in detail in all of the draft municipal WCDM strategies in the

Western Cape. The challenge lies in the implementation and institutional challenges of these

opportunities, and this must be addressed through the current Provincial WCDM strategy

being undertaken;

DWA has found that sewage discharges often far exceed the standards and conditions

specified by the approved licences (BERG ISP, 2004);

In the larger urban centres (e.g. Oudtshoorn) vandalism of the sewage reticulation and pump-

station infrastructure occasionally leads to sewage spills from the system (Gouritz ISP, March

2004, DWA);

Many of the WWTWs in the City of Cape Town discharge into already severely modified rivers

e.g. the Swineryalt River and the Black River. Similarly the Stellenbosch WWTWs discharges

into the Eerste River. The question needs to be asked whether or not the further degradation

of these rivers should be allowed;

WWTWs discharging in close proximity to estuaries should pump their effluent to an upstream

discharge point to facilitate dilution before entering the estuary itself. The financial constraints

on the part of local authorities to implement such measures will need to be addressed;

Informal settlements are often situated close to rivers or streams, contributing to the pollution

of these resources, typically from the resulting surface water runoff from areas with

inadequate sanitation services. Informal settlements should be encouraged to pay a nominal

fee for services (e.g. R20 per stand), to be collected by an NGO for the settlement. This will

improve the “footing” and validity of their claims for services, as well as contribute a nominal

fee towards the services. This may alleviate frustration in relation to services, as well as


vandalism of infrastructure, and the perception by “wealthier” neighbourhoods claiming that

informal settlements receive free services.

Diffuse pollution from poorly serviced informal settlements and the use of soak-aways on the

banks of rivers and streams in the Province are a cause for concern. This pollution into rivers

not only has negative ecological and social (health) implications, but it also has negative

economic implications and on the potential for utilisation of those resources for water supply.

The latter is particularly relevant where farms downstream make use of this polluted water for

their crops; and

In relatively small quantities, dried sewage sludge can be used as fertiliser for agricultural

purposes (provided it has had microbial and Endocrine Disruptor treatment). The use of even

minimal amounts of sewage sludge may limit access to certain markets, which insist that

sewage sludge is not used in food production. (Note: EuropGap, the European Good

Agricultural Practice, does not support the use of human waste as fertiliser).

6.9 WATER EFFICIENCY AND WCDM

Water efficiency and water conservation and demand management (WCDM) are included in both the

NWA and the WSA. The WSA requires each Municipality to draft a Water Conservation and Demand

Management Strategy, which will be discussed below. The NWA is a little less defining, and suggests

that water efficient methods should be used, but does not specifically regulate water efficiency for

section 21 water users. As such, the DWA National Office is in the process of drafting regulations

relating to the limiting or restricting the purpose, manner or extent of water use by water conservation

measures and the monitoring, measurement and recording of water consumption and the disposal of

water and water containing waste. To date, these regulations have not been gazetted for public

comment. However, the Department has embarked on several sector related studies across the

country, investigating the cost and benefits of WCDM in various water intensive industries.

6.9.1 URBAN WCDM

6.9.1.1 Introduction

The availability of water has historically been based on addressing one side of an equation, namely

that of supply. This traditional approach to water supply has focussed on the continued development

of water supply schemes to meet increasing demands. The development of new infrastructure such

as dams and weirs, bulk distribution systems and water storage facilities has been the main approach.

Water demands will continue to increase as the population grows and as migratory patterns change.

It will continue to be necessary to develop new water sources and infrastructure such as new dams,

raised dams, reservoirs, reticulation systems and in the case of the Western Cape, possibly further

inter-basin transfers to those already in place. As water resources have become increasingly stressed

and options for affordable and sustainable development of new sources equally scarce, the other side

of the equation must play a larger contributory role, namely through WCDM implementation. This

offers a vital opportunity to postpone, or delay the implementation of new water supply schemes, of

which viable conventional surface water options are all but exhausted in the Western Cape. In order

to avoid an “ESKOM-type” planning problem, water resource institutions such as the DWA, the City of

Cape Town, and other local authorities are investigating and implementing alternative solutions.

These include large-scale groundwater development and desalination for example which are typically

far more expensive solutions than conventional surface water schemes. However, the need to

investigate these alternative options is now driven by the need to provide sustainable sources of

water, and not only on the financial cost thereof. Ultimately the user pays, therefore it is in the interest

of each and every water user (government, private, industry, agriculture, etc.) to make more efficient

use of existing sources, and to postpone the implementation of new sources, for which affordable

options have become very limited.


The demand-side interventions focus on more efficient use of existing sources, curtailment of water

demands, water reuse opportunities, public awareness, and means of discouraging wasteful or

excessive use of water (such as water restrictions in dry periods, increased water and sanitation

tariffs, etc.). There is no shortage of good ideas or knowledge on the subject, and in many cases

significant efforts have been made, with the very best intentions, and with varying degrees of success.

There remains a lot more that can be done, starting with small incremental steps in the right direction

towards implementation of effective ways to use water more efficiently. Typical opportunities have

been investigated in many studies to date and some of these include:

The use of grey-water;

Installation of rainwater tanks;

Appropriate tariff structures for water supply;

Bylaws to force the use of water efficient fittings in new developments;

Retro-fitting with water efficient fittings in state owned buildings;

Phasing-out of inefficient water fittings and appliances from availability in the market;

Public awareness;

Ensuring appropriate monitoring of bulk and reticulated water;

Improving the revenue stream (ensuring that users pay);

Encouraging water re-use in industry through a strong “Polluter Pays” approach;

Reducing conveyance losses in the agricultural sector;

Improved irrigation efficiencies;

Appropriate crop selection and improved scheduling of irrigation,

etc.

It is however in the implementation of these opportunities, the acceptance of responsibility, the

cooperative governance, and ultimately the monitoring of the effectiveness of implementation, that

pose the greater challenges. Whilst Government is certainly a very important stakeholder in this

regard it is not, and cannot be held solely accountable for making the effort. The business and

industrial sector, agriculture and each and every individual water user must play a role in WCDM.

Unlike electricity, in which rolling blackouts can be effectively and spontaneously implemented, the

supply of water is a basic human need and its curtailment is more difficult to implement in a fair and

sustainable manner.

The overall objective is to reduce and delay the need for new water resource infrastructure through

making optimum and efficient use of the substantial capital investments that have already been made

into existing water supply infrastructure.

6.9.1.2 Municipal Water Conservation and Demand Strategies

In the Western Cape, the existing draft WCDM Strategies of twenty-one local authorities

(municipalities) as well as that of the City of Cape Town were reviewed, of which the latest versions

date back to 2006, but the majority are as recent as 2008. In the table which follows overleaf it will be

seen that the general approaches proposed in those municipal WCDM strategies are all very similar,

but the strategies also contain specific recommendations for each town. An obvious starting point

towards achieving savings in water use would be to target the largest users, and this is the objective

throughout these strategies. The potential for water reuse by the industrial and manufacturing sector

offers significant opportunity and for that reason the largest water users in each municipality have

been identified in the strategies. The CCT, which is the largest user of water in the Western Cape,

has a very specific strategy and this is discussed separately thereafter.


6.9.1.3 Specific Comments on Urban WCDM initiatives

Knysna has recognised the potential for increased water re-use, which currently only involves an

irrigation scheme at Sparrebosch Golf Estate. The Treated Sewage Effluent Study (2009) has

investigated various additional options, but has concluded that at this stage, the re-use of treated

effluent in Knysna is not yet economically feasible when compared to the other options available at

that time, in that area.

Beaufort West has implemented a membrane filtration plant which is the first of its type in South

Africa and has been installed as a recent urgent drought relief measure. The further development of

the groundwater resource at Beaufort West is also being targeted with the intention of providing water

to blend water with that from the reuse scheme. These options will serve to supplement the region

and reduce the reliance on the Gamka Dam, particularly during periods of low rainfall and surface

water runoff.

The George Municipality has implemented a project involving the re-use of water from the Outeniqua

WWTW, which discharges approximately 10 Ml/day of treated water from the WWTW into the existing

Garden Route Dam. Not only is this an example of effective water re-use but also one in which the

use of existing infrastructure is optimised, another very important objective when considering best

practice in responsible water resource development.

In Mossel Bay, the municipality has implemented a water re-use scheme (July 2010) at Hartenbos

whereby treated effluent is supplied to PetroSA, in exchange for an equivalent reduction from their

allocation from the Wolwedans Dam, effectively making more water available for urban water supply.

The Bietou Municipality has developed and is implementing a Drought Management Policy which sets

out the monitoring initiatives required, how large water users will be water-audited, how water

restrictions will be implemented based on available storage, use of efficient water fittings, drought and

disaster management responsibilities, public awareness, and the provision of bylaws. This serves as

an example that can be followed by others.

Oudtshoorn’s draft WCDM Strategy concludes that there is significant opportunity for water saving.

Estimates are that up to 928 000 kl/year could be saved through public awareness, a new tariff

structure, water saving at sports grounds and swimming pools, a water loss management programme,

targeting largest users (notably the SANDF), water reuse by the Klein Karoo leather tannery and

abattoir.


Latest information (July 2011) indicates that WCDM strategies have yet to be developed by

Laingsburg, Prince Albert and Kannaland, due to the fact that their masterplanning is not yet in place.

DWA is presently supporting Stellenbosch, Cederberg, Hessequa, Beaufort West and Laingsburg in

Municipal WCDM Strategies

(excluding CCT)

General

Recommendations

Municipality Date Largest 5 Water Users to Target for Reuse Opportunity Identify opportunities

for reuse of water

(targeting largest

water users).

Implement leakage

management

programme.

Revise pricing policy

to include stepped

tariffs.

Implement socio-

political programme.

Set example at

municipal properties –

install water

conservation

products.

Meter and record bulk

water supply monthly

Improve quality of

data regarding

consumer use

monthly)

Initiate WDM

communication

campaign to report on

what the

Municipalities have

achieved (lead by

example).

Implement a stepped

tariff structure (where

not in place) and

consider steeper

steps at high volume

consumption to target

largest water users.

Evaluate the impact of

price changes in

different Western

Cape municipalities

Investigate water

saving at sports

grounds by means of

purified sewerage.

Implement a schools

WDM programme

Implement water

saving by individual

large water users

through reuse of

wastewater

Monitor progress of

the WDM process

Beaufort West Feb

2008

Spoornet, Country Road Farm stall/Abattoir, Police station, K. Martins

(Residential), Beaufort West Golf Club.

Bietou Nov

2007

Keurbooms River Lodge, Beacon Island Hotel; Promed Construction,

Holding Family Trust, Formosa Garden Village (all Plettenberg Bay)

Berg River Feb

2008

A J S Richter (Eendekuil), PIKETKO, Liebenberg Slagtery, Piketberg

Municipality, High School (all Piketberg)

Cape Agulhas Feb

2008

Perdekamp (Bredasdorp), Plaaslike Raad, Vissers Unie ; Arniston Hotel (all

Waenhuiskrans); Cape Agulhas Municipality

Cape

Winelands DM

Nov

2007

Breede River Municipality - Tiger Brands Foods, Parmalat SA, Montagu

Dried Fruits & Nuts, Langeberg Ashton Canning, Bonnievale Coop Cellar

Breede Valley Municipality - Rainbow Chickens, Worcester Correctional

Services, Hextex textile, Haasdas Day Centre, Eben Donges Hospital

Drakenstein Municipality - Verhoff Property Investment, Bontebok

Residential Flats, Allandale Correctional Services, Bougainvilla Residential

Flats, Parmac Fruit Juices

Stellenbosch Municipality - Distell, Spier Properties, Parmalat, De Zalze

Winelands Golf Estate, Cape Sawmills.

Witzenberg Municipality - Ceres Fruit Growers, Ceres Correctional

Services, Ceres Municipal Buildings, Du Toit Vegetables, Ceres Hospital,

Ceres Fruit Juices

Cederberg Feb

2008

Lamberts Bay Foods, Goede Hoop Sitrus (Citrusdal), Cederberg Mun.(Oord

Huis), Secondary School, Augsburg Landbou Gimnasuim (all Clanwilliam)

George Nov

2007

Plattner Golf, Conville Swembad, Gemeenskapontwikkeling (Prison) – Bos

en Dal / Groenweide Park; Lancewood Cheese (Industrial/Tamsui); Nelson

Mandela Metropolitan University (Rural).

Hessequa Nov

2007

Marais, Tersia Residential (Riversdale), ABSA Bank Properties (Heidelberg),

Van Vuuren,KJ Residential (Heidelberg), Scholtz,WE Residential

(Heidelberg), Van Staden, PJS Residential (Heidelberg).

Knysna Mar

2008

Bunting JN & BA (Belvidere), SK Riviera Supermarket, Knycot Investments,

Venroco, BPK, Invoto (all Knysna)

Matzikama Feb

2008

Matzikama Municipality (Doringbaai), Dept. Public Works (Vanrhynsdorp),

Peninsula Beverage Properties (Vredendal), Dept. Public Works

(Vredendal), ALWA Motors (Klawer).

Mossel Bay Nov

2007

Harbour Manager, PetroSA, Municipal Buildings, Mossel Bay Golf Club,

Pinnacle Point Resorts (all Mossel Bay)

Oudtshoorn Nov

2006

SANDF (Infantry School), KK Tannery & Abattoir, Sports grounds,

Correctional Services, Rotary Retirement Village, Municipal Swimming

Pools.

Overstrand Mar

2008

Gansbaai Marine, Hudd Trust (Coastal Line), Onrus Manor (Coastal Line),

Hermanus Beach Club (Hermanus Line)

Saldanha Bay May

2008

Sea Harvest, Duferco Steel Processing, Springfontein Trust (all Saldanha

Bay), Suid Oranje Vissery, Brittania Bay Developers (all St. Helena Bay).

Swartland Jan

2008

CBL Properties (Darling), Correctional Services (Piketberg), Roelcor Meat,

Country Fair Foods, Malmesbury, Schoonspruit High School (all

Malmesbury).

Swellendam Feb

2008

J Malan, LJ Theron, J.A Wentzel, LJ Viviers, Southern Oil Ltd (all

Swellendam)

T‟Waterskloof Feb

2008

Elgin Orchards (Grabouw), Southern Associated Malt, P&A Familie Trust,

Overberg Agri Bedrywe , Caledon Prison (all Caledon)


the development of updated strategies. DEADP is currently in the process of commencing with a

Provincial WCDM Strategy (2011) and it is critical that this dovetails with the above-mentioned

municipal WCDM strategies undertaken in recent years.

6.9.1.4 The City of Cape Town‟s WCDM Strategy

The CCT‟s WCDM strategy was developed in 2007, in which it was estimated that through the

implementation of WCDM the following savings could be achieved:

Reduction of water wastage from an estimated 148 Ml/day to 111 Ml/day

Reduction of inefficient water usage from 210 Ml/day to 147 Ml/day

Reduction in the normal natural growth rate due to new consumers by 25 % per annum.

Figure 6.9.1 shows the city‟s most recent (2010) water requirement information. Although the latest

trend in actual water demands appears to be stabilising, they are not in line with the projected savings

(depicted by the restricted demand curve).

Figure 6.9.1 CCT Water Demands

This may be due to a number of factors including:

Possible over-expectation in terms of actual savings predicted;

The possibility that actual water requirements have been higher than anticipated;

The possibility that not all of the proposed interventions for which budgets have been set

aside, have all been fully implemented;

The possibility that monitoring is not yet optimal.

It is interesting to note how effective the stringent water restrictions implemented in 2005 were, in

reducing the water requirements. This illustrates what can be achieved under onerous conditions, but

the preferable trend would be to achieve realistic targeted reductions due to ongoing and sustainable

best practice, and effective management and operation, rather than being reliant on strict curtailments

during critically water-stressed periods.

If the actual water requirements in future tend towards the upper curve, then Cape Town will be faced

with a serious problem, as new sources will be required by the end of 2012 – a physically impossible

achievement. If on the other hand, the actual requirement tends towards the lower curve, then a new

scheme will be required by 2018. Taking into account the typical lead times required (at best 8 years)


for planning, authorisations, design, licensing, environmental approvals, tendering and construction,

2018 could only just be met, and this assumes that the CCT‟s projected savings in water demands are

actually achieved.

Updated information on the CCT‟s largest water users was not available at the time that this report

was compiled. However it is relevant to note that based on the CCT‟s Integrated Water Resource

Planning Study (2002), the Top 5 users (City of Cape Town, Parks and Forests, Public Works, Portnet

and Caltex) constituted 49% of the total water use. This provides direction in relation to which users

should be targetted first in terms of their WCDM implementation.

Table 6.9.1 The Largest Water Users in the CCT (CCT, 2002)

Sequence

No. Industry User Estimated Average

Annual Use (Mm3/a)

1 Commercial and

Public

CCC 2.397

Parks and Forests 2.206

Department of Public Works (Including Pollsmoor Prison) 1.413

Portnet 1.160

Eskom 1.003

CMC 0.984

V & A Waterfront 0.621

Spoornet 0.319

Dept of Community Development (Includes Silvermine Naval) 0.314

2 Chemicals Caltex AFRICA Ltd 2.212

Kynoch Fertilizer 0.817

3 Residential and

Institutional

University of Cape Town 0.502

Petz estates 0.545

Ndabeni Development Area/Site 5 0.502

Tygerberg Hospital 0.454

Castle Steel Properties Ltd 0.366

Peninsula Technikon 0.311

4 Paper and Printing Trident Press (Pty) Ltd 0.373

Nampack Paper 0.758

5 Refined Foods Country Fair Foods, Fisantekop 0.487

Peninsula Beverage Prop (Pty) Ltd 0.324

6 Textiles Sans Fibres (Pty) Ltd 0.802

7 Engineering Atlantis Diesel Engines 0.343

Total 19.212

6.9.1.5 The City of Cape Town‟s Strategy for Water Re-use

As part of its WCDM Strategy, the CCT has embarked on a specific strategy to target water re-use, so

as to improve on the current extent of only 13% of the available treated discharge. Some of the

challenges in increasing the extent to which water is reused include certain social, religious and

environmental concerns, the proximity of potential users to the existing waste water treatment works,

reticulation infrastructure limitations, setting of tariffs, water quality standards, treatment technologies,

absence of bylaws governing water reuse of water, financing of potential projects, and the limited


availability of bulk storage in the water supply system. However, these are not insurmountable

challenges. This has been illustrated during recent drought events in Beaufort West for example,

where water reuse has been the only available source. The City is intending to undertake a water re-

use feasibility study (scheduled to commence in 2011). This will not only expand on the already

identified re-use opportunities but must also interface with other planning initiatives, such as the

potential raising of Lower Steenbras Dam, which is an option being considered by DWA. This could

provide a mutual benefit through the provision of a significantly increased bulk water storage facility

and an opportunity for blending. The City and DWA are both represented on the Western Cape

Reconciliation Strategy Steering Committee, which provide the appropriate platform for engagement

on technical matters and planning challenges in this regard.

6.9.1.6 The National Strategy for Water Re-use

DWA is currently developing Version 4 of its Draft National Strategy for Water Reuse, which is being

developed by the Directorate of National Water Resource Planning. That strategy provides a

framework for implementation covering the following aspects:

Key drivers affecting water re-use

The need for water re-use per water use sector

Case studies

Decision making

Legislative considerations

Technology and capacity to implement

Financing and Enforcement

6.9.1.7 The 2008 Western Cape Provincial WCDM Strategy

The Western Cape Water Demand Management Strategy (April 2008) identifies five key focus areas

for Urban WCDM implementation in the Province, namely:

water tariff and price adjustment

water loss management

pressure management

schools WDM projects

reuse of wastewater

This strategy provides an analysis showing that that there is significant potential to reduce water

demand in Western Cape Municipalities. It identified that water loss management and pressure

management are the measures with potentially the largest contribution to the total potential water

saving. It also recognised that a very high priority must be given to ensure accurate metering and

monitoring of water consumption, both in relation to bulk supply and to individual consumers. Without

this, it is not possible to ascertain what degree of success (or failure) is being reached through

interventions implemented.

An important recommendation in all of the municipal WCDM strategies is that the actual water use by

individual water users be monitored and used as a guide to reflect on the savings achieved, rather

than the assessment of figures for towns as a whole. The latter is less desirable due to the nature of

uncertainty in water demand projections and the actual growth in water requirements being different

from those projected. Certain water users (such as schools, prisons, clinics and government hospitals

for example) may be unaware of their water consumption, as billing is directed to an umbrella user

(Department of Public Works). This unknown consumption factor is undesirable and each and every

institution must be made aware of their actual water consumption.


6.9.1.8 Specific WCDM Aspects raised during Phase 1

During Phase 1 of this Study, numerous opportunities were raised by stakeholders in relation to

WCDM interventions in the Province.

Overloaded Waste Water Treatment Works are as a result of the volumes of water reaching the

works, which is typically as a result of increase water consumption on the one hand, and the

management of stormwater on the other. Inadequate treatment, direct spills and operational

challenges pose a direct risk to the receiving water environment.

Rainwater harvesting offers some opportunity via the installation of rainwater tanks, particularly for

use in baths, showers, laundry and toilet flushing, and with further opportunities if coupled with grey

water systems. The practicalities associated with this include the costs associated with private

installations, the need to stimulate social conscience and the limited storage volumes available. A

positive further advantage is the opportunity to make a small contribution towards reduced urban

water runoff and to lower the water table (in areas prone to flooding) during high rainfall periods.

Grey-water systems for toilet flushing and garden irrigation are available, as well as opportunities to

retro-fit inefficient devices. At household scale, the former (at this stage) relies on social conscience

and affordability of capital the costs for the general public to have such systems installed.

6.9.1.9 Challenges for this Implementation and Action Plan

To date, many opportunities have been identified and estimates of potential savings made in respect

of urban WCDM interventions. This implementation action plan must take a bold step towards how

these opportunities will be implemented in the Province, and in particular must interface with the

Province‟s WCDM Strategy, for which a service provider is to be appointed to update the 2008

Version. In particular, the following must be addressed:

How will WCDM institutional roles and responsibilities be defined?

How will communication routes between stakeholders and institutions be managed?

Are current awareness programmes for WCDM adequate and how can these be improved?

Are water savings targets of current WCDM strategies realistic?

Is monitoring adequate to track progress and results, and where should the focus lie in terms

of the most immediate benefit from WCDM in the Western Cape?

How are the achieved savings communicated to the water users?

Who will be the lead driver in the implementation of WCDM?

Which institutions / stakeholders will be responsible for implementation and how will they co-

operate?

What forum/platform will be used for addressing progress in implementation and who will the

custodian of the overall WCDM plan be?

Are existing bylaws in place to regulate WCDM and how are these enforced?

Are realistic budgets provided for to implement and pay for WCDM initiatives?

Where does WCDM sit within the overall priorities of municipal service providers?

How can WCDM be elevated to its appropriate priority level within an environment in which

many institutions are battling with the provision of basic water and sanitation services?

6.9.2 AGRICULTURAL WATER CONSERVATION AND DEMAND

MANAGEMENT

6.9.2.1 Introduction

Three significant factors affect the efficiency of water use within the irrigation sector. These are:

losses in the conveyance system (river or dam to field edge),


losses relating to the type of application method (e.g., flood irrigation, sprinkler etc.), and

the scheduling of the irrigation according to monitored soil moisture content.

In terms of the potential for large scale volumetric benefits the opportunity of recovering the largest

volumes lies in those areas where unlined canals or canals requiring refurbishment are used to

transport water over long distances. Although these may not be the most cost effective, due to the

financial costs of refurbishment or replacement, and the resulting affordability of the saved water to the

agricultural sector. Although significant reduction in water losses are possible (estimates of 30% in

some cases), the question of financing of such projects requires particular attention, not only from an

affordability perspective but also from an ownership one. The operation and maintenance of

conveyance infrastructure associated with some government water supply schemes, has been

transferred to Water User Associations (WUA). The resulting responsibility for refurbishment has

become an issue in terms of who should pay, versus who will benefit from the water savings, and if the

resulting pass-through costs to the water tariffs are affordable to the irrigation sector, one which has

historically received water at very low tariffs.

Previously disadvantaged groups expressing an interest in become a new entrants into the formal

agricultural sector could certainly benefit from a share in the resulting water savings, but again the

question of who assumes the financial responsibility could be a limitation. Furthermore where water

has been over-allocated (such as in the Klein Karoo), and if compulsory licensing is ever implemented

by DWA, then there may be opportunity to offset the impacts thereof through WCDM. But again who

assumes the financial responsibility in terms of expensive intervention options such as those

described above? Another unique challenge differentiating agricultural WCDM from urban WCDM is

that relating to the uptake of water from savings achieved. For example, where farmers have a

particular legal allocation of water, and where they themselves introduce measures to use water more

efficiently, why should they not be entitled to utilize that saving in the further expansion of their

irrigation, whilst still remaining within their allocation?

In order to further develop an understanding of the status quo of WCDM in the agricultural sector, use

is made of a case study undertaken by the Western Cape Department of Agriculture in 2007, entitled

the Oudtshoorn Agricultural Feasibility Study. This study is very relevant to this Western Cape IWRM

Action Plan due to the following:

it falls within the Western Cape Province,

it addresses the challenges of infrastructure ownership and affordability;

it focuses on a very water stressed region where water has been over-allocated;

the farmers in this region have expressed grave concern within the Phase 1 Public Process of

this IWRM Plan;

the farmers are of the opinion that despite recommendations of the agricultural study, their

concerns are not being addressed by the relevant government institutions;

there is an opinion within this water user group that the provision of new dams to provide

storage for flood water is a viable solution to the water shortages in the region;

the national water resource regulator (DWA) may not share the same view on new

infrastructure development, and may well require compulsory reallocation of water, in order to

address the situation, which in turn will be a very contentious and lengthy process.

6.9.2.2 Oudtshoorn Agricultural Study (2007)

This study was commissioned by the Western Cape Department of Agriculture and was undertaken in

three phases namely, investigation of water availability, efficiency of water use, and socio-economic

aspects. For purposes of this Status Quo Report, focus is on the efficiency of water use.

The Stompdrift and Kammanassie Dams are the main sources of water for irrigation in the Klein

Karoo, providing water to farms through a system of canals extending more than 75 km along the

Olifants River valley downstream of the dams. The canals are unlined over most of their length, with


the result that water losses are very high. The water from the two dams and from other sources has

been significantly over-allocated. As a result water can only be supplied erratically, and in some years

only at a fraction of the full allocation, making irrigated agriculture very difficult to manage and sustain.

This is of grave concern to the agricultural users in this area.

Water losses from the canals are estimated to be about 20% of the quantity of water released from the

dams, or about 4,4 million m3/a. The study found that if the main canals were to be fully sealed and

concrete lined, then about 2 million m3/a could be saved, which when expressed as a unit reference

value, would be about R6,87/m3 (2007) of water saved, a comparatively expensive option for irrigation

water supply. Desalination for example is currently considered relatively expensive as a source of

water for urban water supply, at unit reference value of about R7/m3 (current). The benefits of

replacing the unlined canals with pipelines (reduction in evaporation) has also been estimated as

potentially introducing an average saving of 2,8 million m3/a at a unit reference value of R9,78/m

3 of

water(2007). From a socio-economic perspective, reducing canal conveyance losses to make more

water available at field edge would not be economically viable for the irrigation sector to implement at

their cost. Other alternative interventions that were recommended would be to:

improve the efficiency of irrigation methods so as to obtain increased yields of crops from the

same quantities of water delivered to the field edge;

use the available water to produce higher value crops on reduced areas of irrigated lands.

The Oudtshoorn study further indicated that the possible raising of the existing Gamkapoort Dam

(subject to authorisation by DWA) on the Gamka River might make an additional quantity of about

7 million m3/a of water available. This could be used to supplement the supply to the scheme at a unit

reference value of R1,30/m3. The local perception of the irrigation sector ( expressed at the Phase 1

public meetings of this IWRM Plan study) is that during flood periods, water that could be stored was

being spilt and lost downstream. It is important to take cognisance of the fact that the affordability and

effectiveness of creating storage is directly linked to the availability of regular base flow and not on the

infrequent occurrence of large flood events. If dams in such areas, where streamflow is very erratic,

were to be sized on the basis of being able to store major flood events, without regular baseflow, they

would remain unfilled in most years and would prove to be economically not viable.

It is recognised that reduction in the extent of flood irrigation techniques in favour of micro-jet and drip

irrigation (for example) is desirable. However in areas prone to infrequent flood events, use of

opportunistic flood irrigation approaches such as “saai-damme” should not necessarily be

discouraged.

6.9.2.3 Other Agricultural WCDM Opportunities

The Feasibility Study into the potential raising of Clanwilliam Dam has also identified challenges

associated with the question of infrastructure ownership. An agreement is being developed for the

apportionment of capital costs between DWA and the LORWUA for the raising (and simultaneous

essential dam safety embetterments) of the dam (owned by DWA). In addition, the conveyance

canals that deliver water downstream of the dam experience significant losses. Refurbishment could

serve to benefit existing irrigators, emerging farmers and local towns along the downstream reaches of

the Olifants River, where urban water supply is in shortfall. These canals are also owned by DWA and

operated by the LORWUA, so this potential for water savings through refurbishment is another

example of who should pay versus whom might benefit. An appropriate financing model with shared

costs between DWA and the LORWUA would be required.

Another relevant study undertaken in the province was the Breede River Basin Study (2002). One of

the key components of that investigation was to identify WCDM in the agricultural sector through a

selected case study in the Robertson region. It was found that typically less than 50% of water

entering a farm dam, actually reached field edge, after evaporation, seepage and conveyance losses.

The outcomes of that study provided recommendations into other possibilities for water savings, which

include:


The implementation of appropriate monitoring (possibly supported by DWA) should be

implemented to ensure that agricultural water use is appropriately metered, and that a suitable

form of “watchdog” would be required to ensure compliance. This is particularly relevant

between points of water release, through conveyance systems and then in subsequent uptake

/ abstraction.

The first level of monitoring responsibility and compliance should be by means of self-

monitoring through the WUAs, and communication with the eventual Catchment Management

Agencies.

WUA‟s must be made accountable to ensure that their individual members are compliant

through self-policing, monitoring and effective metering of water consumption.

Attention to means of scheduling of irrigation practices offers opportunity to ensure that

irrigation only takes place when necessary, for example by monitoring of soil moisture content.

The management of catchments and the control of invasive alien plant infestations are

recognised and is a practise that must be continued and intensified, focussing on priority

areas for clearing. Clearing in the upper Riviersonderend River catchment for example has

been shown to offer potential towards restoring flow to the Breede system for ecological

purposes.

The adoption of appropriate irrigation techniques and the development of water management

plans by WUA‟s.

Realistic water tariffs for irrigation based on the DWA Pricing Strategy for Raw Water Use

Charges (1999).

At individual farm levels, opportunities for agricultural WCDM include:

Crop type selection. Planting “thirsty”, low value crop types would not be sensible. Although

crop type selection can significantly influence the quantity of water required, there can also be

resulting financial and socio-economic impacts.

Seasonal variations in water demand by crops must be exploited to take advantage of the

opportunity to adjust the rate of irrigation, particularly where on-farm infrastructure may be old,

applying water at a constant rate.

Short duration frequency of water demand projections by agriculture offer opportunity to

regulate water distribution and management systems.

Where flood irrigation techniques have been replaced by more efficient systems, the farm

level management of these systems must be optimised.

Regulated deficit irrigation (RDI) allows for controlled water stress to certain crop types to be

applied, but only if very stringent monitoring of soil moisture is undertaken.

Partial root zone drying (PRD) is a technique that introduces intentional and controlled

fluctuation in the moisture content with soil depth within the root zone to create wetter and

drier zones, and in so doing use less water without adverse impact to the crops.

Again it is emphasized that the options of what can be done in the agricultural sector are well

established but the questions of by whom, by when, and how remains the biggest challenge.

6.10 HUMAN CAPITAL

6.10.1 WWTWs

In the Western Cape there are 156 Waste Water Treatment Works (WWTWs) currently owned,

operated and maintained by the Western Cape Water Service Authorities. To assess the operational

functionality of these plants a scoring system has been devised and can be explained in terms of the

following five categories:

1) Operators

2) Supervisors


3) Process controller

4) Design capacity vs operational capacity

5) Vacancies

Scoring

Personnel:

The water [and wastewater] works and Process Controllers are required to be registered according to

the relevant legislation (Revised Regulation 17 of the Water Services Act (No. 108 of 1997) /

Regulation 2834 under the Water Act of 1956; 1985 Requirements) and the Process Controllers must

be licensed according to the Class of water treatment works. The water treatment works must have a

site-specific Operator‟s Manual to guide Process Controllers. (DWAF, 2008)

Operators:

Score ranges from zero to ten. Zero being the most desirable and ten being the least desirable. If the

number of actual operators employed matches the required, the score is zero. If the number of actual

operators doesn‟t match the requirement, the score is discretionary in between one to ten. Supervisors

and process controllers are also scored accordingly.

Scoring of Operators, Supervisors and Process Controllers

No. of

controllers >2 2 – 4 5 – 7 8 - 10 11 -13 14 - 16 17 20 < 20

Score 7 6 5 4 3 2 1 0

Design capacity vs operational capacity:

If a treatment works is operating below its design capacity than it is considered to be running efficiently

and thus is scored zero. If the case is opposite in effect where the operational capacity exceeds the

design capacity a score of five is given.

Scoring of Operational Capacities

Design = Operational Design > Operational Design < Operational

2.5 0 5

Vacancies:

Score of Treatment Work Vacancies

No. of

Vacancies > 2 2 – 4 5 - 7 8 - 10 < 10

Score 1 2 3 4 5


So if score is one, weighted score would be calculated as follows:

Five of the district municipalities (DM) of the Western Cape have been scored and the ten worst

operating plants of each DM have been listed below. It has not been possible to assess every single

treatment works as there has no sufficient dad has been provided for them.

City of Cape Town

Plant Name Score

Operators Supervisor Process

Controller

Design Vs

Operational

Capacity

Vacancies Total

Athlone 0 0 3 5 0.6 8.6

Bellville 0 0 0 5 0.6 5.6

Borchards 0 0 1 0 0.6 1.6

Cape Flats 0 0 3 2.5 0.6 6.1

Camps Bay 8 0 7 0 1.2 16.2

Dover 10 10 7 0 1.2 28.2

Gordon‟s Bay 10 8 7 5 1.2 31.2

Green Point 8 0 6 0 0.6 14.6

Houtbay 10 0 7 0 1.2 18.2

Klipheuwel 10 0 7 0 1.2 18.2

Kraaifontein 7 7 5 5 1.2 25.2

Llandudno 10 0 7 0 0.6 17.6

Maccassar 7 0 6 0 0.6 13.6

Melkbosstrand 4 7 6 0 1.2 18.2

Millers Point 10 0 7 2.5 0.6 20.1

Mitchells Plain 0 0 2 0 0.6 2.6

Oudekraal 10 10 7 2.5 1.2 30.7

Parow 8 0 6 0 1.2 15.2

Philadelphia 0 0 7 0 1.2 8.2

Potsdam 0 0 1 0 0.6 1.6


City of Cape Town

Plant Name Score

Scottsdene 0 0 4 5 1.2 10.2

Simory Dam 0 0 6 0 0.6 6.6

Westfleur 0 4 5 0 1.2 10.2

Wildevoelvlei 6 2 5 0 1.2 14.2

Zandvliet 0 0 4 0 0.6 4.6

From the above table the ten worst performing WWTWs within the CCT are;

1) Gordon‟s Bay

2) Oudekraal

3) Dover

4) Kraaifontein

5) Millers Point

6) Melkbostrand

7) Klipheuwel

8) Houtbay

9) Llandudno

10) Camps Bay

Central Karoo

Plant Name Score


Controller

Design Vs

Operational

Capacity

Vacancies Total

Leeu Gamka 9 6 7 5 0.6 27.6

Klaarstroom 9 6 7 2.5 0.6 25.1

Prince Albert 8 6 6 0 0.6 20.6

Beaufort

West 10 10 6 0 0.6 26.6

Merweville 10 9 7 2.5 1.2 29.7

Nelspoort 10 9 7 0 1.2 27.2


Eden District

Plant Name Score


Controller

Design Vs

Operational

Capacity

Vacancies Total

Albertina 8 7 7 0 0.6 22.6

Heidelberg 7 8 6 0 0.6 21.6

Calitzdorp 0 8 7 2.5 0.6 18.1

Zoar 8 8 7 0 1.2 24.2

Ladismith 0 0 6 5 1.2 12.2

Overberg

Plant Name Score


Controller

Design Vs

Operational

Capacity

Vacancies Total

Bredasdop 3 5 7 0 1.2 16.2

Napier 3 7 7 2.5 1.2 20.7

Struisbaai 3 7 7 2.5 1.2 20.7

Waenhuiskrans 3 7 7 5 1.2 23.2

Barrydale 0 0 7 5 1.2 13.2

Buffeljags 10 10 7 0 1.2 28.2

Malgas

0

Cape Infanta

0

Suurbrak 10 10 7 0 1.2 28.2

Swellendam

0

Gaansbaai 3 9 7 5 1.8 25.8

Hermanus 9 9 4 0 0.6 22.6


Overberg

Plant Name Score

Hawston 10 10 7 0 1.2 28.2

Koornland 10 10 7 2.5 1.2 30.7

Klip Rivier 0 0 7 2.5 1.2 10.7

Kleinmond 8 0 7 0 1.2 16.2

Stanford 10 10 6 0 0.6 26.6

Botrivier 10 10 6 2.5 0.6 29.1

Caledon 10 10 6 0 0.6 26.6

Genadendal 7 10 7 5 1.2 30.2

Grabouw 0 0 7 0 0.6 7.6

Greyton 10 10 7 2.5 1.2 30.7

Riviersonderend 10 10 7 2.5 0.6 30.1

Villiersdorp 7 10 6 5 0.6 28.6

From the above table the ten worst performing WWTW‟s in the Overberg are;

1) Greyton

2) Koornland

3) Genadendal

4) Riviersonderend

5) Botrivier

6) Villiersdorp

7) Buffeljags

8) Suurbraak

9) Hawston

10) Caledon

West Coast DM

Plant Name Score


West Coast DM

Plant Name Score


Controller

Design Vs

Operational

Capacity

Vacancies Total

Doringbaai 10 8 7 2.5 0.6 28.1

Strandfontein 10 8 7 2.5 0.6 28.1

Klawer 10 8 7 5 0.6 30.6

Lutsvillle 8 10 7 0 0.6 25.6

Lutsvillle West 10 8 7 2.5 0.6 28.1

Koekenaap 10 8 7 2.5 0.6 28.1

Ebenhaezer 10 8 7 2.5 0.6 28.1

Vredendal

South 8 8 7 0 1.2 24.2

Vredendal North 10 8 7 0 0.6 25.6

Van Rhynsdorp 10 8 7 0 0.6 25.6

Langebaan 7 8 6 0 0.6 21.6

Shelly Point 8 8 7 0 0.6 23.6

St Helena Bay 8 8 6 0 1.2 23.2

Hopefield 8 8 6 0 1.2 23.2

Paternoster 8 8 6 0 0.6 22.6

Saldanha 6 7 6 0 0.6 19.6

Vredenberg 6 7 6 0 0.6 19.6

Darling 0 0 7 0 0.6 7.6

Yzerfontein

0

Koringberg 0 0 7 2.5 0.6 10.1

Riebeek Kasteel 0 0 7 2.5 0.6 10.1

Malmesbury 0 0 7 0 1.2 8.2


West Coast DM

Plant Name Score

Mooreesberg 0 0 7 0 1.2 8.2

Chatsworth 0 0 7 2.5 0.6 10.1

Kalbaskraal 0 0 6 2.5 0.6 9.1

Riebeeck West 0 0 7 2.5 0.6 10.1

From the above table the ten worst performing WWTWs in the West Coast DM are:

1) Klawer

2) Lutsville West

3) Koekenaap

4) Strandfontein

5) Ebenhaezer

6) Doringbaai

7) Lutsville

8) Van Rhynsdorp

9) Vredendal North

10) Vredendal South

Cape Winelands District Municipality

Plant Name Score


Controller

Design Vs

Operational

Capacity

Vacancies Total

Ashton 7 0 6 0 1.2 14.2

Bonnievale 8 0 7 0 1.2 16.2

McGregor 6 0 7 0 1.2 14.2

Montagu 7 0 6 2.5 1.2 16.7

Robertson 7 0 6 0 1.2 14.2

De Doorns &

Orchards 6 0 7 0 1.2 14.2


Cape Winelands District Municipality

Plant Name Score

Rawsonville 7 0 6 0 1.2 14.2

Touwsrivier 7 0 6 0 1.2 14.2

Worcester 8 0 5 0 1.2 14.2

Paarl 9 4 6 0 1.2 20.2

Kliprug 5 3 7 0 1.2 16.2

Saron 10 0 7 0 0.6 17.6

Hermon 6 3 7 0 1.2 17.2

Gouda 10 0 7 2.5 1.2 20.7

Wellington 7 8 7 0 1.8 23.8

Ceres+ Belle Vista 7 0 7 0 1.2 15.2

Op die Berg 0 0 7 2.5 1.2 10.7

Tulbagh 0 0 7 0 1.2 8.2

Wolseley 0 0 7 0 1.2 8.2

La Motte 7 5 6 0 0.6 18.6

Klapmuts 6 3 6 0 0.6 15.6

Pniel etc 8 3 6 0 1.2 18.2

Raithby 0 0 7 5 0.6 12.6

Stellenbosch 6 3 7 0 0.6 16.6

Wemmershoek 8 3 6 0 0.6 17.6

From the above table, the ten worst performing WWTWs in the Cape Winelands DM are,

1. Wellington

2. Gouda

3. Paarl

4. La Motte

5. Pniel

6. Saron

7. Wemmershoek

8. Hermon

9. Montagu

10. Stellenbosch


In terms of personnel, high scoring treatment plants are at risk as consequences could involve poor

operation and maintenance procedure which is detrimental to overall management of the plant. It is

also concerning that a high percentage of personnel employed in “skilled‟ positions, do not comply

with the requirements for supervisors (22%) and process controllers (39%). These numbers, combined

with the number of vacancies in these positions, amount to a significant number of positions that are

not filled by any form of skill or by inadequate/inappropriate skill. The value of this information is that it

places Provincial Government in an ideal position to address this skills gap on an informed, quantified

basis, and to formulate a Plan with clear targets, deliverables, timeframes, costs and methodology to

address this specific gap, ideally in partnership with LGSETA and ESETA (DWAF 2008).

A high scoring treatment plant indicates that there is an urgent need of expansion, rehabilitation,

refurbishment or upgrading, augmentation, and redressing management of the inflows.These tables

are grouped per WMA in the WMA specific chapters as District and Local Municipal boundaries

overlap WMA areas.

Summary of noted problems:

Few or low skilled operational staff.

A high number of treatment plants can be considered as priority cases.

Some municipalities are not licensed in terms of the NWA and are operating with extended or

expired permits.

6.11 PROBLEM SYNTHESIS

The problems and gaps identified in this Chapter are broadly summarised as follows:

Provincial and municipal boundaries do not correspond with physical catchment boundaries.

The dissemination of water resource information to match municipal boundaries is not easily

done.

Water use Information available from the CCT for this report dates back to 2000 and update

information should be made available..

The planning horizon for water resource augmentation options is very long whilst planning at

municipal level is often over shorter periods. Planning requires appropriate allowance for lead

times to account for the lengthy duration of authorisation processes. The Reconciliation

approach adopted by DWA is an example of effective planning.

WCDM is not being implemented at the same level of effort between the various

municipalities, and appropriate metering to determine water losses is generally inadequate.

Potential WCDM interventions have been investigated, documented and costed . The

challenges lie in implementation, technical capacity, institutional will, regulation, and

monitoring.

If WCDM targets are not met, then augmentation schemes are required sooner than would

otherwise be necessary. Municipal bylaws must be appropriate and specific to the particular

municipality and realistic targets for WCDM must be set.

Groundwater monitoring is inadequate throughout the Province and must be addressed to

ensure proper management of that resource.

Access to the WARMS data base is restricted by DWA and information can be difficult to

obtain. The sharing of information and co-ordination of a central data facility is encouraged.

Operation, maintenance and refurbishment of WWTWs is a major concern and poses a

significant risk to the water resources. This problem is strongly linked to technical capacity

challenges.


The lack of provision of adequate sanitation and refuse services to dense settlements poses a

significant risk to the water resources, particularly during the onset of the winter rains.

Water reuse opportunities have been identified but implementation is lagging.

Agricultural WCDM is more difficult to implement and to monitor. As a first step, Irrigators

must be held accountable for metering their water use.

Ownership issues relating to old canal systems for example, where losses can be significant,

is a problem. Who would be financially responsible for repair and refurbishments (DWA or the

irrigators), and can these expensive modifications actually be afforded?

chapter 6 - water resource management - western cape

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