Water Services Development Plan
of
City of Cape Town
Status: Comprehensive WSDP
www.capetown.gov.za/water/wsdp
December 2001
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
i
Table of Contents
TABLE OF CONTENTS ........................................................... I
LIST OF TABLES ............................................................... IV
LIST OF FIGURES ............................................................... V
LIST OF ABBREVIATIONS .................................................... VI
EXECUTIVE SUMMARY ........................................................ VII
MAIN REPORT.....................................................................1
1
INTRODUCTION ..............................................................2
1.1
1.2
1.3
1.4
1.5
1.6
2
PURPOSE OF THE WSDP ........................................................................................... 2
DRAFTING TEAM ....................................................................................................... 3
STATUS OF WSDP AND PROGRAM .......................................................................... 3
PROCESS ..................................................................................................................... 3
LINK TO INTEGRATED DEVELOPMENT PLAN (IDP) ................................................ 4
ACCURACY OF INFORMATION .................................................................................. 5
SETTING THE SCENE........................................................6
2.1 PHYSICAL DESCRIPTION OF THE AREA SERVED ...................................................... 6
2.2 POLITICAL CONTEXT OF EXISTING WATER AND WASTEWATER SUPPLY
SITUATION........................................................................................................................... 7
3
CUSTOMER PROFILE AND SERVICE LEVELS ............................ 11
3.1
CURRENT CUSTOMER PROFILE................................................................................. 11
3.2
3.3
FUTURE CUSTOMER PROFILE .................................................................................. 12
SERVICE LEVELS ...................................................................................................... 19
3.1.1
3.1.2
3.1.3
3.1.4
Population..........................................................................................................11
Economic Profile..............................................................................................11
Income distribution........................................................................................11
Current Number of Consumers................................................................... 12
3.3.1
3.3.2
Current Service Levels................................................................................. 19
Future Service Level Strategy................................................................... 21
3.4 CUSTOMER AND REVENUE MANAGEMENT .............................................................22
3.5 WATER BYLAWS ......................................................................................................25
3.6 OBLIGATIONS OF THE WATER SERVICES AUTHORITY TO PROVIDE WATER
SERVICES ............................................................................................................................25
4
WATER BALANCE, RESOURCE PLANNING AND MANAGEMENT ...... 35
4.1
WATER BALANCE .....................................................................................................35
4.1.1
4.1.2
Water Resources ...........................................................................................35
Groundwater ...................................................................................................35
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
4.1.3
4.1.4
4.1.5
4.1.6
4.1.7
Surface Water...............................................................................................36
The Skuifraam Scheme and Other Future Water Resource Schemes
37
Current and Future Water Demands ........................................................37
Effluent Returned to Source......................................................................38
Unaccounted-for-water (UAW) Analysis .................................................38
4.2.1
4.2.2
Background...................................................................................................... 41
Discussion and results of the IWRP Study ............................................. 41
4.2
INTEGRATED WATER RESOURCE PLANNING ........................................................ 41
4.3
4.4
4.5
WATER DEMAND MANAGEMENT (WDM) .............................................................45
WATER RESTRICTIONS ..........................................................................................46
RE-USE OF TREATED WASTEWATER EFFLUENT...................................................47
DESCRIPTION OF EXISTING WATER SERVICES INFRASTRUCTURE48
5
5.1
5.2
5.3
5.4
6
ii
GENERAL DESCRIPTION OF EXISTING WATER SUPPLY INFRASTRUCTURE .......49
GENERAL DESCRIPTION OF EXISTING WASTEWATER INFRASTRUCTURE ........49
ASSET MANAGEMENT .............................................................................................49
STORMWATER INGRESS INTO SEWERS................................................................50
ENVIRONMENTAL ISSUES ................................................ 54
6.1
ENVIRONMENTAL MANAGEMENT INITIATIVES ..................................................54
6.2
WATER CONSERVATION AND QUALITY ISSUES .................................................56
6.1.1
6.1.2
6.1.3
6.1.4
6.1.5
Introduction ...................................................................................................54
State of the Environment Report..............................................................54
Environmental Conservation Act ................................................................54
Environmental Management Plan ................................................................55
Integrated Metropolitan Environmental Policy ......................................56
6.2.1
6.2.2
6.2.3
6.2.4
6.2.5
6.2.6
6.2.7
Quality of Raw water resources ................................................................56
Potable Water Quality Monitoring ............................................................57
Implementation of Fluoridation Regulations ...........................................57
Treated sewage effluent released into Urban River systems ............57
Impact of Industrial Consumers and Potential Pollution Sources......58
Removal of Alien Vegetation .......................................................................58
Atlantis Aquifers...........................................................................................58
6.4.1
6.4.2
6.4.3
The Occupational Health and Safety Act................................................64
National Water Act ......................................................................................65
Water Services Act......................................................................................65
6.3 STORMWATER MANAGEMENT (INCORPORATING CATCHMENT & RIVER
MANAGEMENT) ...................................................................................................................58
6.4 RELATED ACTS .........................................................................................................64
7 FUTURE INFRASTRUCTURE REQUIREMENTS........................... 66
7.1
7.2
STATUS OF EXISTING MASTER PLANS ................................................................66
OVERVIEW OF PROPOSED EXPANSION TO BULK INFRASTRUCTURE .................67
7.2.1
7.2.2
Bulk Water ......................................................................................................67
Wastewater ....................................................................................................70
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
7.3
iii
OVERVIEW OF PROPOSED EXPANSION TO RETICULATION INFRASTRUCTURE .74
7.3.1
7.3.2
7.3.3
Water ...............................................................................................................74
Wastewater ....................................................................................................78
Summary of Capital Expenditure on Bulk Reticulation..........................79
FINANCIAL ASPECTS ..................................................... 82
8
8.1
8.2
8.3
8.4
INTRODUCTION .......................................................................................................82
INSTITUTIONAL REFORM .......................................................................................82
FINANCIAL PLANNING IN THE CONTEXT OF UNCERTAINTY ...............................85
FINANCIAL MODELLING – APPROACH AND OUTCOMES ........................................87
8.5
AFFORDABILITY ......................................................................................................93
8.6
SUMMARY OF STRATEGIC ISSUES .........................................................................98
8.4.1
8.4.2
8.4.3
8.4.4
8.4.5
8.4.6
8.4.7
Approach to financial modelling .................................................................87
Capital expenditure .......................................................................................87
Financing ..........................................................................................................89
Customer Debt ...............................................................................................90
Provision for depreciation ...........................................................................90
Operating costs..............................................................................................90
Tariffs .............................................................................................................92
8.5.1
8.5.2
8.5.3
8.5.4
8.5.5
groups
8.5.6
Introduction ...................................................................................................93
Package of services and affordability ......................................................93
Household income profile.............................................................................94
Water bills and affordability .....................................................................95
The view from the ground – insights from case studies and focus
96
Conclusions ......................................................................................................97
9 SUMMARY OF KEY ISSUES AFFECTING WATER SERVICES AND
STRATEGIC RECOMMENDATIONS........................................... 100
10
BUSINESS PLANS AND KEY PERFORMANCE INDICATORS ........ 102
WATER SERVICES BUSINESS PLAN 2001/2002 - 8 OCTOBER 2001 ................. 102
SERVICES DEFINITION ............................................................................................................102
OUR STRATEGIC OBJECTIVES ....................................................................................................102
RESOURCES............................................................................................................................102
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
iv
List of Tables
Table 3.1 Informal Consumers with no access to basic water services .................20
Table 3.2 Service Level Categories ................................................................................20
Table 3.3 Service Levels of Informal Areas ................................................................26
Table 4.1 Groundwater Resources ...................................................................................35
Table 5.1 Summary of Infrastructure Inventory and Estimated Replacement
Cost at September 2001 ........................................................................................... 51
Table 6.1: Performance indicators and tragets............................................................64
Table 7.1 Current Status of Master Plans ....................................................................66
Table 7.2 Example: Water Master Plan of Helderberg Administration-Proposed
Projects .........................................................................................................................77
Table 7.3 Example: Sewer Master Plan of Helderberg Administration-Proposed
Projects ......................................................................................................................... 81
Table 9.1 Summary of Key Strategic Issues, Strategies and Programme........... 101
Table 10.1 Water Services Business Plan ....................................................................102
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
v
List of Figures
Figure 2.1 Locality Plan......................................................................................................... 9
Figure 2.2 Changes in Administrative Boundaries ....................................................... 10
Figure 3.1 Population Distribution (1996 census)......................................................... 14
Figure 3.2 Income Distribution (1996 census) ............................................................. 15
Figure 3.3 Existing Land Use and Potential Future Development Areas................ 16
Figure 3.4: Population Projection..................................................................................... 17
Figure 3.5: Growth in Land Use (20 year planning period) ........................................ 18
Figure 3.6 Existing Water Service Level Distribution: 1996 Census......................28
Figure 3.7 Existing Sanitation Service Level Distribution: 1996 Census...............29
Figure 3.8 Location of Informal Areas ..........................................................................30
Figure 3.9 Location of Informal Areas Along the N2 Corridor near Cape Town
International Airport (Detail) .................................................................................. 31
Figure 3.10 Service Levels of Former Helderberg MLC: Water..............................32
Figure 3.11 Service Levels of Former Helderberg MLC: Sanitation........................33
Figure 3.12: Water Services Customer Charter ..........................................................34
Figure 4.1 Existing Water Demand Distribution..........................................................39
Figure 4.2 Future Water Demand Projection based on Historic Trend .................39
Figure 4.3 Existing Water Supply Resources and Location of Potential Future
Schemes ........................................................................................................................40
Figure 4.4 Impact of Packages 1+2 on Future Water Demand .................................43
Figure 4.5 Impact of Packages 1+2 on Future Water Demand (Overall) ...............44
Figure 4.6 Impact of Package 1-3 on Water Demand of Total Supply Area .........44
Figure 5.1 Main Components of Existing Water Distribution System ....................52
Figure 5.2 Wastewater Drainage Areas and Location of Treatment Works and
Main Pumping Stations ...............................................................................................53
Figure 6.1 Major Stormwater Catchment Areas and Monitoring Points ................ 61
Figure 7.1a Required Works for Future Bulk Water Supply System ......................72
Figure 7.2 Example Water Master Plan: Helderberg Administration.....................76
Figure 7.3 Example Sewer Master Plan: Helderberg Administration .....................80
Figure 8.1 Forecast capital expenditure (2001 Rands)...............................................87
Figure 8.2 Operating costs - indicative scenario.........................................................92
Figure 8.3 Operating costs expressed as % .................................................................92
Figure 8.4 Household Income distribution (2001 rands) ...........................................94
Figure 8.5 Affordability of water services (current tariff) ....................................95
Figure 8.6 Affordability of water services (tariff doubled)....................................95
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
List of Abbreviations
AADD
AFU
CCT
CFA
CMA
CMC
DM
DWAF
EIA
GLS
I&AP
IDP
IMEP
IWRP
MCDA
MNF
MLC
PNE
PDG
UAW
URV
WC
VIP
WDM
WSDP
WTW
WWTW
Annual Average daily demand
Automatic Flushing Urinal
City of Cape Town
Cape Flats Aquifer
Cape Metropolitan Area
Cape Metropolitan Council
Demand Management
Department of Water Affairs and Forestry
Environmental Impact Assessment
Geustyn Loubser Streicher Inc
Interested and Affected Party
Integrated Development Plan
Integrated Metropolitan Environmental Policy
Integrated Water Resource Planning
Multi-Criteria Decision Analysis
Minimum Night Flow
Metropolitan Local Council
Protected Natural Environment
Palmer Development Group
Unaccounted For Water
Unit Reference Value
Water Conservation
Ventilated Improved Pit Latrine
Water Demand Management
Water Services Development Plan
Water Treatment Works
Wastewater Treatment Works
vi
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
EXECUTIVE SUMMARY
vii
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
viii
Introduction:
Purpose of the WSDP:
With the publication of the Water Services Act 108 of 1997 GO TO all water
services authorities (municipalities) are required to prepare a Water Services
Development Plan (WSDP).
In summary, the WSDP is a business plan setting out the way in which the water
services authority plan and deliver services to individuals and businesses in its
area of jurisdiction. It must also describe and analyse the current and future
consumer profile, the type of services which are provided, the infrastructure
requirements, a water balance, organisational and financial arrangements to be
used, an assessment of the viability of the approach, and an overview of
environmental issues. Following this analyses, important issues that may impact
on the provision of effective and sustainable water and sanitation services need
to be identified and strategies must be formulated to improve service provision.
These strategic issues will form the basis for input into the Integrated
Development Plan (IDP) process. The WSDP also serves as a monitoring tool for
DWAF and provides important planning information to be included in a national
database.
Drafting Team and Process:
The WSDP has been drafted with the assistance of Geustyn Loubser Streicher
Inc (Technical Analysis), Palmer Development (Financial analysis) and various
officials and managers of the City of Cape Town (CCT). A consultative process
was followed to compile the plan through a series of workshops and through the
circulation of the WSDP on CD, hardcopy and on the Internet at
www.capetown.gov.za/water/wsdp (to be published in December 2001).
Only the pertinent information and findings are included in this report.
However, links have been provided to related information where applicable by
“clicking” on the GO TO button, or follow the links to the internet for the latest
information. Some of these links contain Adobe Acrobat (pdf) files. This free
software can be downloaded from their website at:
http://www.adobe.com/products/acrobat
One of the requirements of the Act is to take the WSDP through a public
participation process during which period the public, other stakeholders and
water services authorities/providers can comment on the plan. It should thus be
read in this context. Comments on this draft can be forwarded to Mr Michael
Killick from CCT at mkillick@cmc.gov.za.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
ix
Setting the Scene:
Physical Description:
The City of Cape Town which is one of the major metropolitan cities and tourist
destinations in South Africa, is located in the Western Cape province and
consists of an area of approximately 2 500 km2. For more information on the
historical
facts
and
physical
attributes
of
CCT,
go
to
http://www.cmc.gov.za/history.htm GO TO.
Political Context of Existing Water and Wastewater Supply Situation:
The CCT, like the rest of South Africa, has undergone significant changes in
political structure over the last decade. Prior to December 2000, the area
consisted of 6 Metropolitan Local Councils and the Cape Metropolitan Council
(CMC) as the Bulk Water Services Provider. In December 2000, these councils
were amalgamated as the CCT. The organizational and management structure of
the CCT is currently in the process of transformation, but in the meantime the
six former MLC’s are being managed as Administrative Units within the CCT,
with the CMC still active as the administrative unit in charge of bulk services.
Customer Profile and Service Levels:
Demographics:
The current population of the CCT is estimated at 3.2 mil with the highest
population density occurring on the Cape Flats. HIV/Aids will have a significant
impact on the population growth rate, i.e. it is estimated that the current growth
rate of 3% will reduce to 1.2% by 2010. The economic growth rate was 2.6%
during 1999-2000, which is slightly less than the current population growth rate,
but greater than the national growth rate of 1,8%.
Current and Future Consumer Profile:
There are approximately 530 000 consumers on formal erven and approximately
90 000 consumers on informal sites. According to 1996 census approximately
67% of consumers earn less than R2500/month. For more details on the
demographics, socio-economic profile including statistics on age, gender, race,
migration patterns, employment etc. refer to:
http://www.capetown.gov.za/reports GO TO
http://www.cmc.gov.za/demographics.htm
Future landuse analyses indicate that residential land (ha) will increase by 25%,
business/commercial land by 125%, while vacant land will reduce by 70% over the
next 20 years with the majority of development taking place in areas:
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
•
•
•
•
•
x
north of Tygerberg (Durbanville);
north of Table View;
north and south east of Oostenberg;
north-east of Strand in Helderberg;
west of Strand and Somerset West.
Service Levels and Future Service Delivery Strategy:
Service levels of existing formal developed areas (excluding rural areas and
informal areas) generally meets the minimum standards as required by the
Water Services Act, i.e. communal standpipe within 200 m walking distance and
at least a ventilated improved pit latrine (VIP) or equivalent (container toilet,
formalised black bucket, communal toilet or chemical toilet). It has been
assumed that all formal consumers (households) are provided with adequate
services. A recent survey (May 2001) on the informal households indicated that
there are approximately 92 000 informal households of which the following do
not have access to at least basic water services, mainly due to the fact that
they occupy land illegally.
“Ownership”
Private
“Council”
Total
No. of households
% of informal households
% of total no. of households
No. of households
% of informal households
% of total no. of households
No. of households
% of informal households
% of total no. of households
Water
10 500
11.4%
1.7%
7 600
8.4%
1.2%
18 100
20%
2.9%
Sanitation
16 000
17%
2.5%
37 100
41%
6%
53 100
57.7%
8.5%
The CCT is committed to providing efficient, uninterrupted and affordable
services, which is clean and safe to all consumers. CCT is therefore in the
process of implementing the ISO 9001 Quality Management System to improve
communication with consumers, revenue collection and quality management. As
part of this process, the CCT has established a Customer Charter GO TO ,which
have been advertised in public papers on 7 September 2001. The CCT has also
identified the need to establish a “Customer Revenue Division” to improve
service delivery. One of the key issues identified in the WSDP was the need to
compile a service delivery strategy to address the current backlog of consumers
with inadequate water services. This process has however started through
preliminary discussions and workshops during which it became apparent that the
most likely service level strategy would be to provide all consumers with access
to standpipes and communal (container) toilets taking cognisance of land
ownership, the financial and environmental constraints.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
xi
Water Balance, Resource Planning and Management:
Current Water Balance:
The current water balance, demand, unaccounted-for-water (UAW) and the
effluent discharged from wastewater treatment works is summarised below:
Current Water Demand of the CCT
Bulk Water Consumption
Total = 851 Ml/d
Total = 910 Ml/d
Paarl
5.1% (47
UAW
Ml/d)
23% (198 Ml/d)
Wellington
Rural & Other
1.2% (11 Ml/d)
0.5% (0.5
Ml/d)
Large Users
14% (123 Ml/d)
CCT Total
Other
5% (41 Ml/d)
Industrial
Bus./Comm.
4% (38 Ml/d) 5% (41 Ml/d)
incl. Bulk
Residential
Losses
49% (410 Ml/d)
93% (851
Ml/d)
62%
Future Water Demand:
Effluent
528 Ml/d
The historic trend in the water demand between 1973 and 1997 is shown in
Figure 4.2. Based on this graph the estimated water demand would increase to
between 1020 and 1200 Ml/d by 2006 by assuming the historic trend of 4%.
The Integrated Water Resource Planning Study assumed that the future
unconstrained growth rate for water demand would be 3%. This would translate
to an estimated water demand of 1100 Ml/d by 2006. The implementation of the
recommendations contained in the Integrated Water Resource Planning (IWRP)
study, which include interalia pressure management, user education, elimination
of automatic flushing urinals, leakage repair, tariffs, metering and credit
control, could reduce this water demand to an estimated 940 Ml/d. The IWRP
study is further discussed in section 4.2 of this report.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
xii
Existing Water Resources:
One of the major issues facing CCT in the future is the limited water resources.
This has been the cause, coupled with low rainfall figures for 1999/2000, that
low-level water restrictions have been imposed in an effort to reduce the water
demand.
The CCT currently makes use of 5 large storage dams
(Theewaterskloof, Voëlvlei, Wemmershoek, Steenbras Upper and Steenbras
Lower) which has a total capacity of approximately 780 M m3 and a number of
smaller dams (refer to Figure 4.3). These surface water resources are
augmented from the Atlantis Aquifer borehole scheme and the Albion Spring.
GO TO
Integrated Water Resource Planning and Demand Management:
Current resources cannot meet the 98% assurance supply level, which implies
that the development of additional water resources is a matter of urgency. The
CCT therefore commissioned an Integrated Water Resource Planning Study GO
TO during which various alternatives to augment the water supply were
investigated. Apart from the implementation of the Skuifraam Dam located in
the Berg River near Franschhoek (estimated implementation date of
2006/2007), three logical “packages” have been identified including:
Package 1:
Pressure control, removal of automatic flushing urinals, user
education, tariffs metering and credit control, leakage repair.
Package 2:
Private borehole, waterefficient fittings and grey water recycling.
Package 3:
Voëlvlei Augmentation Scheme, Table Mountain Group Aquifer pilot
project.
Emphasis was placed on strategies that can be implemented swiftly in order to
reduce the chances of having to impose water restrictions prior to the yield
from the Skuifraam Dam becomming available. This study focussed on the
identification of water demand management projects to reduce the water
demand. Alternative water resources were also investigated and prioritised with
the results indicating that the Voëlvlei Augmentation scheme should proceed,
recycling of treated wastewater for local urban irrigation and industrial use, the
Cape Flats aquifer, the Eerste River Diversion, treated wastewater reclaimed to
potable standard, desalination of sea water and Lourens River Diversion. The
Table Mountain Group aquifer located near Franshoek, has also been identified
as a potential valuable water resource. It has been recommended that the
potential yield and environmental impacts should be determined through a pilot
study. Based on “Package 1 & 2”, the CCT has formulated and accepted a water
demand management (WDM) policy and strategy with the main objectives as
summarised below:
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
xiii
WDM
•
•
•
•
Policy GO TO
Equity, Sustainability and Affordability;
Reduce the projected demand for water by 20% by the year 2010;
Encourage, educate and promote the optimal use of water.
Maximise the use of alternative sources such as wastewater effluent,
boreholes etc;
• Minimise the loss of water.
WDM
•
•
•
•
•
•
•
•
•
Strategy GO TO:
Identify “Champions” for WDM amongst Politicians;
Raise the profile and priority of WDM;
Prepare comprehensive Business Plans for each of the Water Divisions;
Develop an appropriate Water Services Bylaw for optimal water usage;
Leakage and waste management;
Promote the optimal use of water by consumers;
Remove and prohibit all Automatic Flushing Urinals;
Minimize water losses in low-income housing;
Continually optimise tariff structures, ensure universal metering and
billing and a rate of payment which makes financial viability certain.
• Maximize the use of alternative sources of water;
• Make strong representations to the SABS to draft a National
Performance Standard for water fittings, appliances and devices.
For the Draft 5 year WDM Programme refer to the document entitled
“WDM_Prog” GO TO .
Description of Existing Water Services Infrastructure:
A detailed description of the water services infrastructure is not pertinent to
the WSDP. Only a summary of the existing infrastructure is herewith provided
(Table 1). For a full inventory of the main infrastructure refer to the
infrastructure database GO TO or the related documents “Bulk Water Supply
Infrastructure” GO TO and “Bulk Wastewater Infrastructure” GO TO. The main
components of the water and wastewater infrastructure are indicated on Figure
5.1 and Figure 5.2.
Other issues that were identified are:
• Inadequacy of current preventative maintenance / pipe replacement
programs including the rehabilitation of pitch fibre sewers
• Stormwater / groundwater infiltration in sewers
Major bulk water and wastewater infrasructure requirements
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Water Supply Infrastructure
No
Quantity
Water Treatment
Reservoirs
Pump Stations
Pipe Length
Major Storage Dams
Sub Total
Wastewater Infrastructure
WW treatment works
Pump Stations
Pipe Length
Sub Total
Total
13
131
367
1672 Ml/d
3539 Ml
Unknown
9058 km
780 Mm3
5
20
320
xiv
Replacement
Value Rm
697
887
234
5459
unknown
7277
620 Ml/d
190 kW
8549 km
620
536
2498
3655
10932
Environmental and Stormwater Management Issues:
Environmental Acts and Standards:
The CCT have implemented a number of initiatives including the State of the
Environment Report http://www.cmc.gov.za/soe GO TO to monitor the
environmental status, protect the environment and set standards in accordance
with the relevant Acts and Regulations including:
• National Environmental Management Act;
• Water Services Act and associate Regulations passed under the Act;
• Environmental Conservation Act;
• The Occupational Health and Safety Act;
• Water Act; and
• CCT’s Integrated Metropolitan Environmental Policy (IMEP)
The Water and Wastewater Departments of the former CMC have developed a
protocol to determine whether their proposed capital projects would have any
environmental impacts.
This checklist is then discussed with the CMC’s
Environmental Management Department.
Other water conservation initiatives include the removal of alien vegetation in
the catchment areas of the dams and an Environmental Management System
(EMS) to protect the Atlantis Aquifer System.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
xv
Water Quality Issues:
Potable water quality is strictly monitored/controlled by the Water Treatment
Division according to SABS 241 (1984) and other standards. The Scientific
Services Department conduct weekly visits to each WTP to retrieve various
samples, analyse them and complete weekly reports based on the results.
One of the major challenges pertaining to potable water quality is the
implementation of fluoridation as imposed by regulations in terms of the Health
Act 63 of 1977, which requires that potable water needs to be fluoridated to
obtain a concentration of 0.7 mg/l for the purposes of reducing dental problems.
Fluoridation is complex, expensive and a potentially hazardous undertaking and
requires the implementation of new infrastructure by September 2003 at an
estimated cost of R11 mil, since the natural concentration of fluoride in CCT’s
water resources is insufficient. The running cost of fluoridation is estimated at
R10mil per annum. Skilled operators are required to manage the fluoride
concentration. Training of additional staff is required, since not enough skilled
operators are available. For more details on fluoridation refer to a document
tabled to the Trading Services Portfolio committee GO TO.
Another major issue pertaining to water quality is the implementation of new
treated effluent standards as imposed by DWAF. Wastewater treatment works
would require upgrading with a total estimated cost of R1.5 billion in order to
comply with these standards and to accommodate future growth.
Stormwater Management (Incorporating Catchment and River Management):
The various water related services such as water supply, sanitation and
stormwater management are inextricably linked and greater emphasis will be
placed within the foreseeable future in optimising and managing their
interactions in keeping with the principles of Integrated Water Resource
Management. These interactions include direct connectivity between systems in
the case of sewer overflows, effluent discharges to watercourses forming the
bulk drainage system and abstraction of water from surface and sub-surface
resources within the metropolitan area. Whilst the Stormwater Management
service currently falls within the Transport, Roads and Stormwater Department
of the City of Cape Town, concerted efforts are being made to ensure close cooperation with Water Services for the benefit of the city’s residents and
visitors.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
xvi
Over the past few decades rivers have been viewed as convenient drains to
convey urban waste and storm runoff. They were canalised on a large scale and
many wetland areas filled-in and drained to allow for urban development,
dramatically altering the natural hydrological cycle. In retrospect, this approach
has inadvertently also precipitated a decline in water quality and ecological
integrity of the city’s rivers and vleis.
A paradigm shift in the approach to stormwater management in Cape Town has
developed over the past few years, based on the philosophy of integrated
catchment management. Within the metropolitan area, this was pioneered by
the former Cape Metropolitan Council. A Catchment Management Department
(CMD) established in 1996 was tasked with promoting ‘best practice’ in the
management of urban rivers, wetlands, vleis and major stormwater
infrastructure in partnership with the previous metropolitan local councils. A
draft strategy has been formulated with the core functions as illustrated in the
figure below. The major river systems and associated catchment areas within
the metropolitan area are illustrated by Figure 6.1.
DETAILED BUSINESS PLANS
STRATEGY
NUCLEUS
SERVICE OUTCOMES
Managed
Flood
Risks
Improved
Water
Quality
Protected
River
Corridors
In an effort to rise to these challenges, a detailed strategy comprising various
priority programmes to be implemented over the next five years has recently
been formulated. A draft copy is attached GO TO. This strategy provides a
comprehensive framework to guide management of stormwater systems for the
sustained benefit of the city’s residents, business concerns and visitors alike.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
xvii
Various priority programmes comprising the strategy have been grouped under
themes as follows:
• Integrated Planning:
• System Upgrading and Development:
• Asset Management:
• Regulation; and
• Relationship Management
For further information on the stormwater management service, refer to the
website of the CDM at www.cmc.gov.za/w&w/CatchmentMgmt. Information of
flood prone areas as well as associated draft development control guidelines are
published at www.capetown.gov.za.
Future Infrastructure Requirements:
Status of Existing Master Plans:
A survey on the status of existing master plans indicated that not all the former
administrations have a comprehensive water and sewer master plan.
Overview of Proposed Expansion to Bulk Infrastructure:
Water:
A detailed study on the bulk water supply system entitled “Computer Model
Analysis and Master Plan for Bulk Water Supply System” (March 2001) was
recently performed by GLS and Ninham Shand to determine the future
infrastructure requirements, phasing and costs based on a future AADD of 1850
Ml/d which will be realised in 25 years time (double the current demand). GO TO.
Three options, taking cognisance of the availability of alternative water
resources have been considered, namely:
1) Option 1: Installation of 500 Ml/d additional water treatment capacity at
the existing Faure WTP
2) Option 2: Installation of 140 Ml/d additional treatment capacity at
Wemmershoek WTP and an additional 360 Ml/d treatment capacity at the
existing Faure WTP
3) Option 3: Installation of a new 500 Ml/d WTP at a site near the proposed
Skuifraam Dam
Although the options still require further investigation, Option 3 at this stage is
the preferred option for the following reasons:
• A new WTP in the vicinity of Skuifraam Dam will reduce the reliance which
the CCT currently places on the RSE Tunnel System (security of supply)
• A WTP near Skuifraam Dam and associated pipework could cater for the
growing water demands of Paarl and Wellington and make available currently
under-utilised capacity in the existing pipeline from the Wemmershoek WTP.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
•
•
•
•
xviii
The WTP could feed the areas of high growth (ie Durbanville North) directly.
It would provide an alternate source of supply to Glen Garry Reservoir and
enable the Wemmershoek WTP to be shut down for repairs or maintenance.
Water from some of the sources could be gravitated to Glen Garry Reservoir
(as opposed to Option 1 where all the water would have to be pumped to Glen
Garry)
Increased flexibility in the bulk supply system
A summary of the anticipated costs for water resource development and bulk
water supply infrastructure over the next 12 to 15 years is given in the table
below:
Raw water pipelines
Additional WTP capacity
Bulk system pipelines
Additional pump capacity
Additional storage capacity
Miscellaneous other items
Sub-Total
Water Resource Development Costs
(for 6 years only)
Total
:
:
:
:
:
:
R 47,4 million
R 140,2 million
R 648,2 million
R
34,4 million
R 213,0 million
R
29,8 million
R 1 154,3 million
:
R 115,0 million
R 1 269,3 million
The three year CCT bulk water capital expenditure program is also attached GO
TO .
Wastewater:
The Bulk Infrastructure Program GO TO summarises the future sewer
infrastructure requirements to meet the future growth, but also to adhere to
DWAF’s new effluent standard requirements to be implemented by 2010. The
total cost of upgrading is estimated at 1.5 billion over the next 10 years, with
66% of this capital required for upgrading of the Athlone, Milnerton and
Zandvliet wastewater works.
Although it is estimated that the annual expenditure required is in the order of
R145 million, it is preferred that this programme be implemented over a shorter
period due to the current condition of infrastructure and the requirement for
increased capacity. Therefore an expenditure of more than R100 million per
annum over the next four years is required.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
xix
Financial and Institutional Aspects:
The following section deals with the financial and institutional challenges facing
the CCT. For more details on the current tariffs and policies refer to the
following documentation:
GO TO Sanitation Tariffs
GO TO Bulk Water and Reticulation Tariffs
GO TO Bulk Water Tariff Policy
GO TO Consumptive Water Tariff Policy
GO TO Sanitation Tariff Policy
GO TO 2001/2002 Capital Budget for Water Services
The challenges of institutional reform:
The City of Cape Town faces significant challenges to transform water services
into a world class water services provider which is customer friendly, efficient
and sustainable. These challenges include the formation of a single operational
entity, providing adequate services to informal settlements, undertaking a very
significant capital investment programme, and improving operational efficiencies,
customer relations, revenue management and the management of assets.
In a short space of time significant progress has been made, including the
successful implementation of free basic water for all, the establishment of a
customer charter and a recent decision to form a ring-fenced business unit.
Nevertheless much remains to be done. In view of this context, the institutional
and financial plan should be viewed more as a strategic document mapping the
way ahead rather than a detailed plan with specific financial and tariff
commitments.
It is the intention of the city to separate the roles and responsibilities of the
service authority and service provider more clearly as provided for in the Water
Services Act (Act 108 of 1997). The details of this relationship still need to be
worked out.
An assessment carried out in terms of section 78 of the Municipal Systems Act
indicated that “the best internal mechanism … is for the provider to be
structured into an Autonomous Ring-fenced Business Unit.” In the context of
the proposed restructuring of water services, the concept of a ring-fenced
business unit is understood to mean the following: clearly defined and separate
cost and income centres, clearly defined and substantiated cost allocations, full
operating income statement in compliance with GAMAP, full asset register, full
responsibility for long term asset management, full responsibility for income and
for customer management.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
xx
At present, support services (such as finance, billing, information technology and
human resources) are rendered by other departments in the city administration.
Although ring-fencing as defined above would seem to imply that all of these
support services should now be housed within the ring-fenced unit, this is not
necessarily the case. The water services unit will need to embark on a process of
negotiation with the “corporate centre” as to the best arrangements for the city
as a whole for the allocation of these support functions. One option which will be
explored is that of a “shared service centre”. The policies, strategies and details
of these arrangements are being investigated by the city and it is too soon to
report on likely outcomes from this process.
An area delivery model is being developed for the city as a whole. The
relationship between this and a ring-fenced water services unit is still in the
process of being defined.
The respective roles of the ring-fenced water business unit vis-à-vis other
trading services, a “shared service centre” and the “corporate centre” for the
interface between the Council and citizens/customers are still in the process of
being defined. To enhance the world class status of the water services unit, it is
the plan that bulk water and reticulation will achieve ISO 9002 accreditation by
30 June 2002 with the wastewater treatment plants following by 30 June 2003.
Financial planning in the context of uncertainty:
The water services development plan has identified the capital expenditure
requirements over the next five to ten years. Detailed financial modelling has
been undertaken to ascertain the implications of this capital expenditure for the
sustainability and viability of the service. It is important to understand that any
financing forecasts in the present context are subject to significant levels of
uncertainty for the following reasons:
There is considerable uncertainty related to the data requirements for financial
modelling and forecasting in the following areas: the value of the assets, the
true operating costs, water sales for the base year. There is uncertainty in the
policy arena in the following key areas: sanitation tariff policy and the detailed
implications of the introduction of GAMAP as well as the practical issues of
moving from the present system of municipal accounting to GAMAP.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
xxi
The water services is in the process of fundamental transformation. Many of the
broad issues related to this reform still need to be defined and strategies
chosen. Key uncertainties relate to the future of support services and the
management of the customer interface, including revenue collection and debt
management.
Investment requirements:
The capital expenditure needs is in excess of R2 billion over the next 5 years.
This is likely to require significant increases in tariffs in real terms in order to
ensure the financial viability and sustainability of the service. The following
strategic issues have been identified:
All existing formal houses have adequate water and sanitation services but the
planned provision of formal houses is inadequate to reduce the housing backlog.
Provision of basic services to households living in informal housing is expected to
require an expenditure of about R5 million per annum. (There are approximately
18 100 households without adequate water services and 53 100 households
without adequate sanitation services at present.) The City intends to provide at
least basic water and sanitation services to all households within the City
subject to legal constraints (many informal settlements are situated on private
land). The actual investment requirement is subject to change due to the
dynamic nature of informal settlements – with changes in location and
anticipated growth in informal settlements due to the housing backlog. A realist
programme for the renewal of existing assets needs to be investigated and
developed. The bulk wastewater capital expenditure estimates are subject to a
strategic review which is currently in progress, addressing the impact of the
DWAF 2010 standards, stormwater ingress and growth in wastewater effluent.
Financing of the investment programme:
The current average cost of existing capital debt is estimated to be 15.5% per
annum, which is high relative to the current market interest rates (one could
expect the cost of borrowing for a well run and financially viable metropolitan
water utility to be in the region of prime to prime less 2). Total outstanding debt
is estimated to be R1.2 billion representing a debt to equity ratio of 0.14
(assuming a revalued asset value of R10 billion). This indicates that water
services is considerable under-geared at present.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
xxii
The ring-fencing of the water service operations creates an opportunity for the
business to develop a new financing strategy. This strategy should comprise the
following: re-negotiation of outstanding loan conditions with the city to realise a
more market-related interest rate, raising loans from banks at competitive
interest rates, consideration of the placement of bonds for the raising of
finance and consideration of private financing arrangements through, for
example, build-operate-transfer contracts for lumpy investments such as new
wastewater treatment plants.
Financial implications of investment programme:
Given the uncertainty in the base data, the policy uncertainty and institutional
uncertainty, the detailed financial modelling undertaken should not be used to
make commitments to financial and tariff targets. The financial analysis has
revealed the following strategic issues: operating costs are likely to increase in
future in real terms (though not significantly), the practical implications of
GAMAP need to be investigated in more detail, the sanitation tariff policy needs
to be finalised and implemented, tariffs will need to increase in real terms in the
next few years though it is not possible to say by how much until many of the
significant uncertainties identified above have been resolved. The affordability
analysis shows that overall household affordability is constrained, that there are
limits to the extent to which cross-subsidies are sustainable, and that it is not
possible to increase tariffs significantly without addressing the issue of
affordability, indigent policy and subsidies (including the equitable share) in a
more systematic and considered manner than has been possible to date in the
current context of institutional uncertainty.
Tariffs:
Future water and wastewater tariffs are dependent on a number of factors,
including: sanitation tariff policy, level of capital expenditure, sources of finance
and cost of capital, value of assets and depreciation policy, rate of collections
and provision for bad debts and actual water sales. For the reasons already
identified, a significant degree of uncertainty is attached to all of these
factors. Therefore, it would be unwise to predict future water and wastewater
tariffs into the future at this stage. Nevertheless, based on the detailed
financial analysis undertaken to date using both “business as usual” and
“strategic” financial models, and subject to the limitations already expressed, it
may be concluded that it is highly likely that tariffs will need to increase in real
terms significantly during the next three to five years in order to ensure that
the water services unit is financial viable and sustainable.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
xxiii
Improving customer and revenue management:
Current water customer debt is about R460 million, representing 8 months of
sales. Revenue collection needs to be improved and non-payment reduced. The
following strategies have been identified: implementation of credit control
policy, implementation of indigent policy, resolution of customer management
responsibilities within Council, implementation of universal metering and billing,
implementation of informative billing, improved customer education and improved
accessibility of payment facilities.
Summary of Key Issues Affecting Water Services and
Strategic Recommendations
A summary of the “issues” that influence the provision of water and sanitation
services in the City of Cape Town area is herewith provided (refer to attached
Table A). Strategic recommendations and a program are also proposed.
Key Performance Indicators Affecting Water Services and
Service Delivery
City of Cape Town is in the process of implementing a number of important Key
Performance Indicators (KPI’s) to improve and monitor service delivery in its
area of jurisdiction (refer to attached Table B).
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
i
Table A: Strategic Issues Affecting Water Services Delivery and Proposed Strategies
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
ii
Table B: Provisional List of Key Performance Indicators (where available, base data still need to be inserted)
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Main Report
1
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
2
1 Introduction
1.1 Purpose of the WSDP
With the publication of the Water Services Act 108 of 1997 all water services
authorities are required to prepare a Water Services Development Plan (WSDP).
The main objectives of the Act, as stated in Chapter 1, Section 2,
( http://www.gov.za/acts/97index.html ) are to provide for: GO TO
(a)
(b)
(c)
(d)
(e)
(f)
(g)
(h)
(i)
(j)
The right of access to basic water supply and the right to basic
sanitation necessary to secure sufficient water and an environment not
harmful to human health or well-being;
The setting of national standards and norms and standards for tariffs in
respect to water services;
The preparation and adoption of water services development plans by
water services authorities;
A regulatory framework for water services institutions and water
services intermediaries;
The establishment and disestablishment of water boards and water
services committees and their duties and powers;
The monitoring of water services and intervention by the Minister or by
the relevant Province;
Financial assistance to water services institutions;
The gathering of information in a national information system and
distribution of that information;
The accountability of water services providers; and
The promotion of effective resource management and conservation.
In summary, the WSDP is a business plan setting out the way in which the water
services authority must plan and deliver services to individuals and businesses in
its area of jurisdiction. It must also describe the current and future consumer
profile, the type of services which are provided, the infrastructure
requirements, a water balance, organisational and financial arrangements to be
used, an assessment of the viability of the approach, and an overview of
environmental issues. Following this analyses, important issues that may impact
on the provision of effective and sustainable water and sanitation services need
to be identified and strategies must be formulated to improve service provision.
Apart from the above service provision objectives, the WSDP also serves as a
monitoring tool for DWAF and provides important planning information to be
included in a national database.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
3
1.2 Drafting Team
The integrated WSDP was compiled by:
Consultants
Geustyn Loubser Streicher Inc:
PO Box 814
Stellenbosch 7600
Tel no (021) 8800388
Dr Leon Geustyn, Mr Cobus Compion
Palmer Development Group:
PO Box 53123
Kenilworth 7745
Tel no. (021) 797 3660
Mr Ian Palmer; Mr Rolfe Eberhard
Water Services Authority/Provider
City of Cape Town (CCT)
P.O. Box 16548
Vlaeberg 8018
Tel no (021) 487 2590
Mr Arne Singels, Mr Mike Killick
1.3 Status of WSDP and Program
The WSDP’s of the 6 former Metropolitan Local Councils (MLC) and former bulk
water services provider, the Cape Metropolitan Council (CMC), is integrated in a
single WSDP to form the Comprehensive WSDP of the CCT. The program
followed for the WSDP process is:
December 1998
June 2000
December 2000
December 2001 to March 2002
March 2002
Interim WSDP
CMC/MLC
Advanced WSDP
CMC
6x Draft WSDP
MLC
Draft Comprehensive WSDP to Council, DWAF & Public
CCT
Final Comprehensive WSDP to DWAF
CCT
1.4 Process
The process to compile a WSDP was based on Section 14 to 18 of the Water
Services Act (Act 108 of 1997). The methodology adopted for the compilation
of the WSDP was to consolidate the contents of the WSDP’s of the individual
MLC’s previously submitted to DWAF, updating old information and making
interpretations pertaining to the issues effecting the provision of water and
sanitation services within the new CCT boundaries. A series of workshops held
with various officials of the CCT formed the basis for the identification of
issues and the formulation of future strategies.
This WSDP, as submitted to the DWAF, consists of two components:
i.
A summary report with links to related studies, policies and data bases;
ii.
A WSDP website for presentation of report for purposes of the public
participation process ( http://www.capetown.gov.za/water/wsdp )
The data spreadsheets as published by DWAF in a document entitled “Guidelines
for Water Services Authorities – Draft July 2001” will be completed once the
format and contents thereof have been finalised.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
4
The 2 components together represent the first phase of the comprehensive
WSDP and will form the basis for further discussions and the public
participation process. Proposals are made relating to many of the issues put
forward here. These proposals may be accepted, modified or rejected, but
consensus must ultimately be reached so that the plan can be finalised. A
technical analysis has been performed by Geustyn Loubser Streicher Inc, which
included an overview of infrastructure planning as based on the best available
information contained in the water and sewer master plans. Financial planning
has been based on a water services supply model (WSSM) and a sanitation
services supply model (SSSM) as compiled by the Palmer Development Group.
Information presented in this report has been included with the emphasis on the
identification of issues effecting water and sanitation services provision.
1.5 Link to Integrated Development Plan (IDP)
Issues and the relevant strategies identified in the WSDP would also form the
input to the IDP, a collateral process that needs to be completed by March
2002. An Interim IDP has been compiled for the 2001/2002 financial year and
provides information on the Vision, Priorities and Pledges of the CCT GO TO.
•
•
•
•
•
Vision of the City of Cape Town
The City of Cape Town will build a partnership with its entire people to
create a world-class city, which strives to improve the quality of life for all
citizens. We will nurture our unique qualities and assets, such as our
natural beauty of our region, our rich heritage and our exiting mix of
cultures.
To have a safe city that is clean, attractive to investors, welcoming to
visitors and underpinned by a vibrant, growing economy.
A well run democratic city, fully accountable to the people, that is
corruption free, transparent in its activities and prudent in the
management of its finances.
To have a city where everyone has access to opportunity and feels at home
in an open, tolerant environment.
The City will be responsible to the needs of the citizen as a customer, and
will deliver efficient and affordable services to all.
Vision and Mission of Water Services
Vision: “ your world class water services provider”
Mission: “providing customers with quality, affordable and sustainable water
services”
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
5
1.6 Accuracy of Information
The data and information included in this report has been consolidated from
various sources, which reports in detail on many of the issues required by the
Act. For the purposes of this report not all details will be repeated, but
references to these sources have been provided for further reading. Some of
these sources are:
• WSDP’s of the former MLC’s and the former CMC;
• GIS Spatial database from the Information Services Department, CMC
Administration;
• Various Reports, including a report by GLS, “Alternative Options to meet
the demand for Water in the CMA”; which formed part of the former
CMC’s Integrated Water Resource Planning Study”’;
• Master Plans of all administrations;
• Central Statistics (1996 Census);
• Information obtained from the 6 Administrations and the CMC
Administration;
• Various websites including the City of Cape Town’s (CCT) official website
( http://www.capetown.gov.za/ .)
• Interim Integrated Development Plan (2001/2002)
As expected, there are obvious differences in the accuracy and format of
available information. Consolidating this data into a single compatible database
requires a certain degree of interpolation and estimation. Therefore, the level
of information contained in the WSDP should thus be read in this context.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
6
2 Setting the Scene
Issues:
• Impact of new municipal boundaries (16 sub councils) on water services
2.1 Physical Description of the area served
The CCT is located in the Western Cape Province on the southeastern corner of
South Africa as indicated on Figure 2.1. The total area is approximately
2474 km2 and its coastline is 371 km long.
The area consists of varying topography which includes flat plains, hills and
mountains. High mountains are located fairly close to the sea; e.g. Table
Mountain which exceeds 1 000 m in elevation. Other high mountains on the
perimeter include the Hottentots-Holland, Helderberg, Stellenbosch,
Jonkershoek, Franschhoek, Wemmershoek, Du Toits, Paarl, Slanghoek, Limiet
and Elandskloof mountains. These mountains form an eastern perimeter of
mountains around the CCT, as shown on Figure 4.3.
A major portion of the CCT consists of the area known as the Cape Flats, which
has an elevation of between 20 and 45 m above sea level. Significant portions of
the Administrations of Tygerberg, Helderberg, Cape Town and South Peninsula,
are located on The Cape Flats. These areas are relatively low-lying and can be
supplied from a portion of the bulk supply network which is linked to large
reservoirs with top water levels at 110 m above sea level (a.s.l.). The
mountainside developments in Helderberg, Cape Town and South Peninsula, the
hilly development in the north of Oostenberg and Tygerberg, and the Atlantis
area in the north of Blaauwberg are at elevations which are too high to be
supplied from the 110 m a.s.l. reservoirs. Very few areas with water demand are
located at elevations higher than 200 m asl.
The rivers in the CCT are relatively small. Some rivers worth mentioning are the
Salt-, the Diep-, the Black-, the Eerste-, Kuils-, Moddergat- and Lourens rivers.
The rivers which are utilised as water sources lie mostly outside of the CCT.
These are the Berg- (including its Wolwekloof and Banhoek tributaries),
Sonderend-, Eerste-, Palmiet-, Klein Berg- and Leeu rivers. Of these, the Berg
river which flows in a northerly and later westerly direction, is by far the
largest.
The major dams from which the CCT is supplied are situated outside (except for
the Steenbras Upper and the Steenbras Lower Dams) the mountainous eastern
perimeter of the area. The Theewaterskloof dam near Villiersdorp is the major
water source of the CCT and forms part of a large inter-basin water transfer
scheme that regulates the flow from the Sonderend-, Berg- and Eerste rivers.
The Voëlvlei dam is the furthest north near Gouda and relies on diversion works
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
7
in the Klein Berg, Leeu and 24 rivers for its water supply. The Wemmershoek
dam is situated in the mountains near Franschhoek and is supplied from various
small rivers in the Wemmershoek mountains (e.g. Tierkloof- and Olifants rivers).
The Steenbras Upper dam and Steenbras Lower dam are situated in the
Hottentots-Holland mountain range near Gordon’s Bay, and serve a dual purpose
of providing an upper reservoir for the Steenbras Pumped Storage Scheme and
for supplying water for domestic/industrial use to the CMA. Other smaller dams
include the dams on Table Mountain (Woodhead, De Villiers, Hely Hutchinson,
Victoria and Alexandra) which are used to supply water to Cape Town and South
Peninsula, and the dams at Simons Town (Kleinplaas and Lewis Gay) which provide
water to South Peninsula.
Cape Town has a mean annual rainfall of 515mm/annum and an average
temperature of 16.7 °C. The CMA is a winter rainfall area. The meteorological
depressions that typically bring rain to this area during winter move past to the
south of the area (and the land mass) during summer; resulting in long dry spells.
It is during the dry summer that the water demands are highest, due to the
higher temperatures and the fact that watering of gardens is the norm in almost
all residential areas. This contrast complicates the management of a bulk water
supply system, as sufficient run-off needs to be stored during winter in order to
meet the increased water demand in the hot and dry summer months.
Further information on the physical attributes of the area, the history, main
features and attractions are presented on the CCT’s website at:
http://www.cmc.gov.za/history.htm. GO TO
2.2 Political Context of Existing Water and Wastewater Supply
Situation
The CCT, like the rest of South Africa, has undergone some significant changes
in political structure over the last decade. Prior to 1994, the area consisted of a
large number of smaller municipalities, or councils. The dominant municipality
was the Cape Town City Council (CCC), which at the time also owned and operated
the bulk water supply system. Outside of the CCC area, the bulk supply system
and the secondary distribution systems of the various municipalities were
separated, with metered bulk off-takes used by the CCC for billing purposes.
Within the CCC area however, the bulk- and secondary systems were integrated,
since all the consumers were billed directly by the CCC.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
8
With the political changes in 1994, the smaller municipalities in the CMA were
amalgamated into 6 Metropolitan Local Councils (MLC’s), with the Cape
Metropolitan Council (CMC) as a regional local authority in charge of bulk
services, such as the bulk water supply system (refer to Figure 2.2). This
prompted a separation of the bulk- and secondary systems in the old CCC area.
In December 2000, the unified CCT was formed, by the amalgamation of the six
former MLC’s and the former CMC. The organizational and management
structure of the CCT is currently in transformation, but in the meantime the six
former MLC’s are being managed as Administrative Units within the City of Cape
Town, with the CMC still active as the administrative unit in charge of bulk
services.
The relationship of a regional authority CMC selling water to MLC’s does not
exist now in the CCT. The CMC Administration of the CCT now operates the bulk
water supply system, and supplies water in bulk to the six Area Administrations,
who distribute the water to the end users. The Boland, West Coast and
Drakenstein Municipalities (incl the towns of Paarl, Wellington, Stellenbosch and
some of the surrounding farms) located outside the CCT area also purchase
water in bulk from the CCT.
Raw water is treated at water treatment plants which are operated by the CMC
Administration, from where it is distributed via a network of large diameter
pipelines and reservoirs to the six area administrations. The bulk networks are
operated by the CMC Administration up to the metered connection points of the
area administrations. Downstream of the meters, the secondary distribution
networks generally are operated by the area administrations.
A model of 16 new sub-councils has been proposed for the City of Cape Town
(refer to Figure 2.2). For the purposes of the WSDP, the former MLC
boundaries have only been applied insofar it effects the provision of water and
sanitation services.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 2.1 Locality Plan
9
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 2.2 Changes in Administrative Boundaries
10
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
11
3 Customer Profile and Service Levels
Issues:
• Monitor the impact of HIV/Aids and migration on population growth
rate
• Take cognisance of major future land development growth points
• Improve Customer Management
• Water Services Delivery backlog in informal areas including a service
delivery strategy
• Water Bylaws for the CCT
3.1 Current Customer Profile
The following section briefly describes the demographic and economic profile of
the CCT.
For more information refer to the data spreadsheets
“CITYofCAPETOWN- Data.pdf” GO TO.
3.1.1 Population
The population has been estimated at 2,6 mil according to the 1996 census
survey with a distribution as indicated in Figure 3.1. Current estimates
according to the Draft WC Urbanisation Policy and the Metro Transport Plan
varies from 2.85 mil to 3.42 mil. For more details on the socio-economic profile
including statistics on age, gender, race, migration patterns, employment etc.
refer to a report as compiled by the Cape Metropolitan Council (CMC):
http://www.capetown.gov.za/reports GO TO
3.1.2 Economic Profile
The economic growth rate was 2,6% during 1991-2000 compared to the national
economic growth rate of 1,8% for the same period. Also, the City of Cape Town
(CCT) contributed 11% to South Africa’s gross domestic product, which included
R86 billion in goods and services produced in 2000. For more detail on the
economic profile refer to: http://www.capetown.gov.za/reports GO TO
3.1.3 Income distribution
Key to the affordability of any investment programme is the income profile of
the consumers it is to serve. If services are provided to consumers who cannot
afford (or are not willing) to pay for them, then a problem of non-payment is
likely to arise and the financial viability of the service provider will be placed in
jeopardy. The income distribution as based on the 1996 census data indicated
on Figure 3.2. In an effort to address the affordability issue, the CCT provides
the first 6 kl/month free of charge to all consumers as based on the Free
Water Policy GO TO.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
12
3.1.4 Current Number of Consumers
The number of consumer units in the areas that make up the CCT as assimilated
from an analysis of the various Administration Unit’s treasury data records
(refer to report IWRP Report: Alternative Options to meet the Demand for
Water in the CMA) indicated that there are a total of 527 356 formally
occupied erven with a distribution as presented in Figure 3.3 .
3.2 Future Customer Profile
This section briefly reports on various studies which deal with the future
consumers profiles.
A report by Prof RE Dorrington “Projection of the Population of the Cape
Metropolitan Area 1996-2031” estimates that the population would increase to
between 3.45 and 3.65 million by 2006 taking cognisance of the effect of
HIV/AIDS and migration. More details on the findings of this study can be
obtained at http://www.cmc.gov.za/demographics.htm. GO TO
A study entitled “Review of long term Urban Demand for Water in the Cape
Town –Saldanha Area” investigated the impact of HIV/Aids on the future water
demand. For more information contact the CCT or GO TO the document entitled
“IWRP-study”.
According to a report summarizing the economic profile of the CCT, refer to
http://www.capetown.gov.za/reports GO TO, the expected population growth rate
will decrease from 3% to approximately 1.2 % by 2010, mainly due to the effect
of HIV/AIDS and the expected reduction in the rate of migration.
The Information Services Department of the CMC performed an analysis of the
new erven created in the CCT by using a deterministic approach based on the
growth in the number of approved erven at the Surveyor General’s office. This
investigation concluded that there are two major growth points, i.e. the areas
north of Table View and Durbanville. For details of this report refer to
http://www.capetown.gov.za/reports GO TO.
As part of the study “Computer Model Analysis and Master Plan for the Bulk
Water Supply System for the Cape Metropolitan Area ” the present land use and
future development areas in the CCT area over a 20 year horizon was
investigated. The present and future land use as based on the findings of this
study is presented on Figure 3.3. The results of this study was analysed by
comparing the present and future areas in hectare (ha) in each category as
indicated on Figure 3.5. From this figure it can be concluded that residential
land will increase by 25%, business/commercial land by 125%, while vacant land
will reduce by 70%.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
13
Based on this analysis, the bulk of the future land developments applicable for a
20 year planning period occur in the following areas:
•
•
•
•
•
•
northern portion of Tygerberg (Durbanville);
north of Table View;
north of Oostenberg;
south-west of Oostenberg;
north-east of Strand in Helderberg;
west of Strand and Somerset West.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 3.1 Population Distribution (1996 census)
14
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 3.2 Income Distribution (1996 census)
15
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 3.3 Existing Land Use and Potential Future Development Areas
16
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
17
Figure 3.4: Population Projection
CITY OF CAPE TOWN - Population Projections
6
Population (millions)
5
4
3
2
1
0
1990
1995
2000
2005
2010
2015
Year
Draft WC Urbanisation Policy
WESGRO
Metro Transport Plan
Dorrington Projection
2020
2025
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 3.5: Growth in Land Use (20 year planning period)
Land Use Growth (ha)
12500
10000
7500
5000
2500
0
-2500
-5000
-7500
-10000
-12500
Nature & Agriculture
Other
Business/Comm.
Residential
Industrial
Informal
Vacant
Land Use Growth (%)
150
125
Nature & Agriculture
Other
100
75
50
25
0
-25
-50
Business/Comm.
Residential
Industrial
Informal
-75
-100
Vacant
18
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
19
3.3 Service Levels
3.3.1 Current Service Levels
Service levels, as defined in Table 3.2, of existing formal developed areas
(excluding rural areas) generally meets the minimum standards as required by
the Water Services Act 108 (of 1997), i.e. communal standpipe within 200 m
walking distance and at least a ventilated improved pit latrine (VIP) or
equivalent. The general percentage distribution of households with inadequate
water and sanitation services as according to the 1996 census survey are
indicated on Figure 3.6 and Figure 3.7 for water and sanitation services
respectively. (It should also be mentioned that Census 2001 is currently in
progress, which will provide an updated status quo of the service level backlog.)
These figures indicate that the majority of unserviced erven are located along
the N2 corridor near the Cape Town International Airport. However, most of
these areas are provided with basic water services and rudimentary sanitation
services. The reasons for the lack of services in certain areas are mainly due to
the following:
• the illegal occupation of land designated for other purposes and cannot
therefore be formally serviced,
• consumers located in rural areas where there is no access of bulk water
and sanitation services,
• the perception that some areas are used as temporary “transit” camps,
where people reside before settling on a formally serviced site,
• the affordability of high levels of services.
Service levels of existing formal developed areas (excluding rural areas and
informal areas) generally meets the minimum standards as required by the
Water Services Act, i.e. communal standpipe within 200 m walking distance and
at least a ventilated improved pit latrine (VIP) or equivalent (container toilet,
formalised black bucket, communal toilet or chemical toilet). It has been
assumed that all formal consumers (households) are provided with adequate
services. A recent survey (May 2001), of which the results are summarised in
Figure 3.8, Figure 3.9 and Table 3.3, indicate that there are approximately
92 000 informal households (from a total of 622 000 consumers) of which the
households as indicated in Table 3.1 do not have access to at least basic water
services, mainly due to the fact that they occupy land illegally:
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
20
Table 3.1 Informal Consumers with no access to basic water services
“Ownership”
Private
“Council”
Total
No. of households
% of informal households
% of total no. of households
No. of households
% of informal households
% of total no. of households
No. of households
% of informal households
% of total no. of households
Water
10 500
11.4%
1.7%
7 600
8.4%
1.2%
18 100
20%
2.9%
Sanitation
16 000
17%
2.5%
37 100
41%
6%
53 100
57.7%
8.5%
Detail plans indicating the service levels have been prepared as part of the
WSDP’s of some of the former MLC areas which generally indicates the service
levels of the informal areas as indicated on Figure 3.8 and Figure 3.9, but also
the service levels of the formal areas. It was not deemed important to include
service levels information of the formal areas, but for the purposes of the
Comprehensive WSDP updated service level plans of the former Helderberg MLC
WSDP are attached as an example (refer to Figure 3.10 and Figure 3.11).
Table 3.2 Service Level Categories
Category
Inadequate
Basic
Water
No access to basic water supply (as defined below)
a) the provision of appropriate education in respect of effective water
use; and
b) a minimum quantity of potable water of 25 litres per person per day:
at a minimum flow rate of not less than 10 litres per minute;
within 200 metres of a household; and
with an effectiveness of not more than 7 days interruption supply
to any consumer per year.
This service is usually provided through communal taps (standpipes)
Intermediate
Full
Inadequate
Basic
Yard Tap, Yard Tank
House connection
Sanitation
No access to basic sanitation as defined below.
a) the provision of appropriate health and hygiene education; and
b) a toilet which is safe, reliable, environmentally sound, easy to keep
clean, provides privacy and protection against the weather, well
ventilated, keeps smells to a minimum and prevents the entry and
exit of flies and other disease- carrying pests.
This service includes VIP’s, Formal black bucket, Container and
Chemical Toilet usually provided as a communal service.
Intermediate
Full
Communal Toilet (Ablution Facilities)
On-site Waterborne, Septic Tank or French Drain
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
21
3.3.2 Future Service Level Strategy
The area of jurisdiction of the CCT can be categorised according to the access
to services as follows:
1. Urban Areas: Characterised by the availability of bulk water and
sanitation services and formal and informal nature of the urban
settlements.
2. Urban Periphery: By far the minority, these areas are characterised by
scattered communities on agricultural holdings or farm portions with none
or limited access to water and sanitation services. These consumers
located mainly in the areas north of Table View and Durbanville generally
make use of on-site water and sanitation services usually provided
through own incentives.
Section 3 of the Water Services Act ( http://www.gov.za/acts/97index.html )
GO TO states that “Everyone has a right of access to basic water supply and basic
sanitation”, subject to certain limitations as set out in the Act including “the
availability of resources” as indicated in section 11.2. The CCT is in the process
of drafting a Service Delivery Strategy, for the provision of basic services. The
overall objective is to extend water services as rapidly as possible to all
potential customers. Service levels are likely to include the following:
•
•
•
Provide on-site water and waterborne sanitation to all formal sites;
Provide a free basic level of water to all households within 200 m;
Within informal areas, provide access to either communal toilet blocks or
some form of shared toilet, depending on local conditions.
The long-term financial implications of the sanitation options need to be
assessed. Among the issues to be considered are the following:
• Affordability of monthly bills to consumers,
• Consumers are willing to pay for the service levels provided and accept
the tariff increases that may be necessary,
• Non-payment levels do not increase significantly,
• Consumption is modest so as to minimise non-payment due to lack of
affordability, and to delay the need for bulk capacity expansion,
• Unaccounted-for-water losses are kept to a reasonable level,
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
22
The provision of waterborne sanitation increases water consumption, raising the
bills of low-income consumers. The basic service typically costs in the region of
R14 per household per month for a low-income household, excluding capital
charges. Some poor households may not be in a position to pay this in addition to
their water bills, and there are limits to the extent to which other consumers
can cross-subsidise the service.
To provide waterborne sanitation, for both internal and connector
infrastructure, large up-front expenditure is required, which implies the need
for external financing and associated capital charges. Furthermore, wastewater
treatment works (WWTW), pump stations and outfall sewers are expensive, and
the required capacity expansion will inevitably lead to the service provider
passing on these higher costs to the consumers.
The provision of basic services to informal settlements on private land is
currently under investigation with the view to producing a policy early in the new
year. Legal advice at this stage discourages the supply of any form of services
to such areas.
Policy development:
In terms of the Water Services Act, By-laws are required to regulate the
service and in this regard a Water Services By-law is currently in preparation,
which will incorporate all current (Water Consumption Tariff Policy and Water
Demand Management Policy) and proposed policies (Sanitation Tariffs, Basic
Service Levels, Credit Control, etc.).
The Draft Tariff Regulations for Water Services Tariffs suggests that
Sanitation tariffs should be volumetric based. This option is under investigation
and will be developed in conjunction with the General Valuation process which is
also currently under way.
3.4 Customer and Revenue Management
The CCT is committed to providing efficient, uninterrupted and affordable
services, which are clean and safe to all consumers.
The CCT is committed to implement the ISO 9001 Quality Management System
to ensure effective service delivery (refer to presentation) GO TO. The key
action areas identified are:
• Communication including Customer Charter and Climate Surveys
• Revenue collection including data rectification, informative and accurate
billing.
• Quality management, which includes the improvement of service levels and
the implementation of benchmarking, procedures and Audits.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
23
The ISO 9001 Quality Management System will:
• assist integration of administrations;
• help ensure better customer service;
• improve safety;
• improve efficiency/production- lower costs;
• facilitate performance management.
As part of this process, the CCT has established a Customer Charter (refer to
Figure 3.12) GO TO, which was advertised in public papers on 7 September 2001,
and has been adopted for water services of the City of Cape Town.
In terms of Chapter 9 Section 95 of the Local Government Municipal Systems
Act 2000 the City of Cape Town is required to establish a Sound Customer and
Revenue Management System. Over the years Local Government has had a wide
variety of service policies, service practices and levels of resources in the
previous seven Administrations. Water Services is committed to addressing
these aspects within an integrated comprehensive Customer and Revenue
Management Strategy for Water Services to ensure a focussed, effective and
efficient service delivery on an equitable basis to all our communities across the
City of Cape Town. The strategic issues, policies, objectives and initiatives of
the Customer Revenue Management Section are herewith briefly discussed:
Key Strategic Issues:
The are six key strategic issues on which a sound Customer and Revenue
Management System should be based for Water Services;
• An Effective Credit Control Policy
• Sustained meter accuracy
• Universal Meter Reading and Billing
• An effective 24hr Emergency Service
• Effective customer education, communication and Liaison
• Effective and efficient call centre
Credit Control Policy:
The main objective of the recently approved policy is to promote a culture of
good payment habits and instil a sense of responsibility towards the payment of
Water Services and reducing debt. This policy makes adequate provision for
credit control and the indigent and can be found on the City’s Web Site.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
24
Meter Accuracy:
The City of Cape Town is committed to ensure through its accredited Meter
Verification Laboratory that each metered customer has the right and recourse
to challenge the accuracy of its meter through a process as provided for in
terms of the Trade Metrology Act and the SABS 1529-1:1994
Universal Meter Reading and Billing:
The City of Cape Town is committed to reading and billing all consumers monthly
and has provided a line of communication for customers to lodge any queries in
respect of their accounts. The City is also committed to informative billing.
24hr Emergency Service and Call Centre:
This
•
•
•
area deals mainly with technical complaints such as:
Burst, leaking and damaged water and mains/leadings and meters;
Water taste and discoloration problems;
Low water pressure and no water.
These complaints are responded to under 4 levels. The first level of response is
almost immediate and is resolved within less than one hour. The second level of
response is dealt with by a small team who attend to minor fault repairs such as
defective meter installations, fire hydrant, valve servicing and mains cleaning.
The third level of response is dealt with by a team who is equipped to carry out
water installations and repair/burst mains and leadings.
The fourth level of response is dealt with by a skilled team of individuals who
deals with all aspects of the application of statutory requirements in terms
water conservation, water wastage and water pollution.
Customer Education, Communication and Liaison:
This area deals purely by engaging the public and educating them in the
awareness of Water Conservation, Water Pollution and Water Demand
Management.
Customer education, communication and liaison is accepted as a key strategic
issue and will be afforded a high priority in the future structure of Water
Services. Water conservation, water pollution, water ingress and payment habits,
among others, will all be addressed in a comprehensive and sustainable fashion.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
25
Effective and Efficient Call Centre:
A Call Centre is proposed, either as a stand-alone entity or as part of the City
Call Centre, which will receive all calls in respect of service interruptions,
complaints and account queries.
3.5 Water Bylaws
In terms of the Water Services Act, every Water Services Authority has to
promulgate Water Bylaws which set out conditions for the provision of water
services. There is a need to draft consolidated Water Bylaws for the CCT.
These Bylaws must contain the following (as per Section 21 of the Act) GO TO:
21. (1) Every water services authority must make bylaws which contain
conditions for the provision of water services, and which must provide for at
least:
(a) the standard of the services;
(b) the technical conditions of supply. including quality standards, units or
standards of measurement, the verification of meters, acceptable limits of
error and procedures for the arbitration of disputes relating to the
measurement of water services provided;
(c) the installation, alteration, operation, protection and inspection of water
services works and consumer installations;
(d) the determination and structure of tariffs in accordance with section 10;
(e) the payment and collection of money due for the water services;
(f) the circumstances under which water services may be limited or
discontinued and the procedure for such limitation or discontinuation; and
(g) the prevention of unlawful connections to water services works and the
unlawful or wasteful use of water.
3.6 Obligations of the Water Services Authority to provide Water
Services
Every Water Service Authority has a duty to all consumers or potential
consumers in its area of jurisdiction to progressively ensure efficient,
affordable, economical and sustainable access to water services. This is set out
in Section 11(1) of the Water Services Act.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Table 3.3 Service Levels of Informal Areas
26
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
27
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 3.6 Existing Water Service Level Distribution: 1996 Census
28
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 3.7 Existing Sanitation Service Level Distribution: 1996 Census
29
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 3.8 Location of Informal Areas
30
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
31
Figure 3.9 Location of Informal Areas Along the N2 Corridor near Cape Town International Airport (Detail)
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 3.10 Service Levels of Former Helderberg MLC: Water
32
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 3.11 Service Levels of Former Helderberg MLC: Sanitation
33
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 3.12: Water Services Customer Charter
34
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
35
4 Water Balance, Resource Planning and Management
Issues:
• Development of additional water resources;
• Importance of implementing a water demand and conservation
management strategy to optimise the use of existing water resources
and reduce high unaccounted-for-water;
• Unaccounted-for-water needs to be monitored on a distribution zone
basis;
• High stormwater infiltration in sewers to be addressed.
4.1 Water Balance
4.1.1 Water Resources
One of the major issues facing Water Services in the CCT is the limited water
resources. The current shortage of raw water storage capacity has markedly
increased the risk of water shortages occurring in the Cape Metropolitan Area
from the year 2001 onwards. The lack of storage capacity coupled with 3 years
of below average rainfall between 1998 and 2000 led to DWAF imposing low level
(10% reduction in water demand required) water restrictions upon the users of
water from the Western Cape Water Supply System. In order to understand
the limitations of existing water resources a description of the existing water
resources are herewith provided, where after details on future schemes/options
will be discussed. For a more detailed description of the available existing water
resources, possible future water resources as well as water resource planning
issues, GO TO the document entitled “Water Resources and Water Resource
Planning”.
4.1.2 Groundwater
The 4 groundwater resources in the City of Cape Town (CCT) are summarised in
Table 4.1 below. The volume of groundwater abstracted by consumers residing
in the urban peripheral areas that do not have access to bulk water services is
unknown.
Table 4.1 Groundwater Resources
Aquifer
Albion Spring
Atlantis
Cape Flats
Newlands
Total
No. of Boreholes
Not applicable
44
Not yet developed
Not yet developed
Firm Yield (1:50 yr)
Mm3/year
<1
4.4
18
10
Approx: 33.4
% of Total
Requirements
1.8% of total
resources
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
36
4.1.3 Surface Water
Most of the water resources serving the CCT are stored in dams during the wet
winter months in order to ensure a continuous water supply during the dry
summer months. The CCT utilises water from various dams within the CMA and
also from dams outside the CMA. Some of the dams are operated and controlled
by the CCT, whilst the other dams are operated and controlled by the
Department of Water Affairs and Forestry (DWAF). The CCT currently obtains
approximately 70 to 75% of its raw water requirements from DWAF and the
remainder from its own sources.
Approximately 15% of the raw water
requirements are obtained from sources within the CMA.
The following dams and rivers are utilised as shown on Figure 4.3.
DAMS/RIVERS
OWNED AND
OPERATED
BY
APPROXIMATE%
OF TOTAL SUPPLY
REQUIREMENTS
FIRM YIELD
(1:50 YEAR)
M m3
Theewaterskloof Dam/
Kleinplaas Dam
DWAF
DWAF
43%
219
Voëlvlei Dam
DWAF
20%
105
Palmiet River
DWAF
7%
22,5
Wemmershoek Dam
CMC
15%
54
Steenbras Upper and
Steenbras Lower Dam
TOTAL
CMC
10,7%
40
Major Sources
440.5
Minor Sources
Simon’s Town:
Lewis Gay Dam
Kleinplaas
Land en Zeezicht Dam
(From Lourens River)
Table Mountain:
Woodhead
Hely-Hutchinson
De Villiers Dam
Victoria Dam
Alexandra Dam
GRAND TOTAL
CMC
0,4%
1,85
CMC
0,6%
0,5
CMC
1,5%
5**
98.2%*
447.85
*The balance of the total supply requirements is made up from the Atlantis Aquifer (1,5%) and Albion Springs
(0,3%).
** This figure includes Albion Spring.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
37
4.1.4 The Skuifraam Scheme and Other Future Water Resource
Schemes
The Skuifraam Dam and the Skuifraam Supplement Scheme are the next major
water resource schemes to be constructed in the Western Cape. DWAF is
responsible for the implementation of the two schemes.
The Department of Water Affairs and Forestry have stated that they are
satisfied that sufficient progress has been made by the CCT with respect to the
implementation of water demand management and that the implementation of
the Skuifraam Dam should proceed as a parallel process.
Further water augmentation schemes that could possibly be implemented in the
short to medium term include the Voëlvlei/Augmentation Scheme Phase I, the
Table Mountain Group Aquifer, the Cape Flats Aquifer, the Lourens River
Diversion Scheme and the Eerste River Diversion Scheme.
4.1.5 Current and Future Water Demands
The water demand of the CCT for the hydrological year ending October 2000
was 851 Ml/day (including UAW and bulk losses in bulk pipelines) with a
distribution as indicated in Figure 4.1. These figures will be updated as soon as
the latest water demand readings have been verified. The City is also
responsible for the supply of a further 59 Ml/d to Paarl and Wellington situated
in the Drakenstein Municipality. The total bulk water supplied by CCT in within
and outside the Cape Metropolitan Area (CMA) for the hydrological year ending
October 2000 was 910 Ml/d as also indicated on in Figure 4.1.
The historic trend of the total bulk water supplied by the CCT between 1973
and 1997 is shown in Figure 4.2. Based on this graph the estimated water
demand would increase to between 1020 and 1200 Ml/d by 2006 by assuming the
historic trend of 4%. The Integrated Water Resource Planning Study assumed
that the future unconstrained growth rate for water demand would be 3%. This
would translate to an estimated water demand of 1100 Ml/d by 2006. The
implementation of the recommendations contained in the Integrated Water
Resource Planning (IWRP) study, which include interalia pressure management,
user education, elimination of automatic flushing urinals, leakage repair, tariffs,
metering and credit control, could reduce this water demand to an estimated
940 Ml/d. The IWRP study is further discussed in section 4.2 of this report.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
38
4.1.6 Effluent Returned to Source
The total wastewater flow generated within the CCT amounted to 528 Ml/d,
including stormwater infiltration, for the year ending June 2000 or
approximately 66% of the total bulk water demand. Other statistics concerning
wastewater are:
Approximately 33.5 Ml/d (6.5%) of wastewater is discharged directly via
marine outfall sewers;
• 52 992 tonnes/annum of dry sludge is produced;
• Approximately 9% of treated effluent is re-used.
As for water demand, the same factors mentioned would also impact on the
future wastewater flow but also the provision of on-site sanitation, which would
result in a reduction of the future sewer flows, and maintenance to reduce
stormwater infiltration.
•
4.1.7 Unaccounted-for-water (UAW) Analysis
UAW is the total amount of water losses or unmetered water. It varies
geographically with the highest UAW figures generally recorded in the lowincome areas. The UAW is dependent on the following indirect and direct
factors:
Indirectly:
Pressure in the distribution system,
Age of the distribution system,
Density of connections and length of pipelines,
Management and operation of the system,
Infrastructure
Land use
% service connections metered
Directly:
Mains leaks
Service connection leaks
Reservoir overflows
Metering inaccuracies
Illegal connections
Unbilled consumption
Limited information was available to accurately calculate the UAW. The
Integrated Water Resource Planning Study estimated that the CCT UAW is
approximately 198 Ml/d or 23% of the total bulk water consumption. Further
investigation is required to accurately determine the UAW which can only be
performed on a suburb or bulk distribution zone basis. This entails the
comparison of bulk water meter records with the water sales in each zone based
on individual meter records. Such detailed investigations have been performed
for the Blaauwberg, Helderberg, Oostenberg, Tygerberg (Central, West and
South) and South Peninsula, but need to be expanded to the other areas, i.e
Cape Town and Tygerberg Coastal, North and East. The UAW for all areas per
distribution zone needs to be monitored on a continuous basis.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
39
Figure 4.1 Existing Water Demand Distribution
Current Water Demand of the CCT
Current Water Demand of the CMA
Total = 851 Ml/d
Total = 910 Ml/d
Paarl
5.1% (47
UAW
Ml/d)
Wellington
Rural & Other
1.2% (11 Ml/d)
0.5% (0.5
Ml/d)
23% (198 Ml/d)
Large Users
14% (123 Ml/d)
CCT Total
Other
5% (41 Ml/d)
Industrial
incl. Bulk
Residential
Bus./Comm.
4% (38 Ml/d) 5% (41 Ml/d)
Losses
49% (410 Ml/d)
93% (851
Ml/d)
Figure 4.2 Future Water Demand Projection based on Historic Trend
Bulk Water Consumption Projection Based on Historical AADD*
1200
1100
1000
AADD (Ml/d)
900
800
700
600
500
Result of Water Restrictions
400
300
200
100
0
1972 1974 1976 1978 1980 1982 1984 1986 1988 1990 1992 1994 1996 1998 2000 2002 2004 2006
Date
Historical
Linear Trend
Current Trend at 4 % p.a.
* This graph includes the bulk water supplied to areas outside the CMA
IWRP Study
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 4.3 Existing Water Supply Resources and Location of Potential Future
Schemes
40
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
41
4.2 Integrated Water Resource Planning
4.2.1 Background
Towards the end of 1999 the former Cape Metropolitan Council (CMC) identified
to the need to adopt an integrated water resource planning approach to manage
the future water demand in the Cape Metropolitan Area (CMA). In order to
achieve this objective, the CMC appointed a consortium of Ninham Shand and
Arcus Gibb in December 1999 to carry out an “ Integrated Water Resource
Planning” (IWRP) study GO TO. The aim of the IWRP Study was to investigate at
pre-feasibility level various water demand management initiatives along with 3
small water supply augmentation schemes. The study considered the technical,
institutional, socio-economic, environmental and financial aspects of the options
using a multi-criteria decision making analysis. Recommendations to the CMC on
where to focus their resources and attentions with the aim of meeting and
managing the water demand within the CMA were made.
During the course of the IWRP Study it became apparent that further planning
integration should take place with potential water supply schemes outside the
CMA. The schemes considered that were outside the CMA are: the Voëlvlei
Augmentation Scheme and the Table Mountain Group Aquifer. A study of these
schemes together with the potential for desalination paints a more holistic
picture of the water resources which could potentially be available to the CMA
over the medium term.
4.2.2 Discussion and results of the IWRP Study
The total water demand of the CCT, West Coast Municipality and Agriculture is
currently in excess of the available supply by approximately 8 %. This situation
would progressively deteriorate if the growth in water demand were allowed to
continue unabated. Water restrictions of increasing severity would become the
norm and the restrictions would eventually detrimentally affect the economy of
the Western Cape. There exists three ways to balance the water demand figure
to the water supply figures, namely to implement measures to:
1)
2)
3)
reduce the demand over a period of time;
increase the water supply available;
reduce the demand and increase the supply simultaneously.
The long term planning and implementation of water demand management
initiatives and water supply schemes should be based on achieving a balance
between projected growth in water demand and the available supply in order to
ensure a 98 % level of supply assurance in the long term.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
42
The option of imposing restrictions is a short-term management tool and would
be unacceptable in the long term. Given the current level of risk, restrictions
may however have to be implemented prior to the completion of Skuifraam Dam,
dependent on the amount of winter rainfall received. The results of the IWRP
study indicate that a significant saving in water demand could be achieved
through the implementation of water demand management initiatives. In
comparison to the water supply options, the water demand management
initiatives would have a significantly lower implementation cost, could be
implemented in a shorter time frame and were generally more environmentally
and socially acceptable. Based on the IWRP Study, three “packages” have been
identified for implementation, namely:
•
•
•
water demand management options that can be implemented by the CCT
(Package 1);
water demand management options to be implemented by individual
consumers (Package 2); and
supply augmentation options to be implemented by the CCT (Package 3).
Package 1 comprises of the following initiatives:
• Pressure Management
• User Education
• The elimination of all Automatic Flushing Urinals
• Leakage repair and
• Tariffs, Metering and Credit Control
Package 2 consists of the following initiatives:
• Promotion of Private Boreholes
• Introduction of Water Efficient Fittings
• Promotion of Grey-water use
It is anticipated that Package 3 would consist of the implementation of the
Voelvlei Augmentation Scheme as the next water supply augmentation scheme.
In parallel to this it is recommended that a further feasibility study be carried
out on the Table Mountain Group Aquifer, including exploratory boreholes (a
pilot Scheme) in order to determine the possible yield and environmental impacts
associated with this potentially valuable water resource. Detailed monitoring
and evaluation would have to be carried out to determine the effects of
exploitation. In order to alleviate the pressure on the current available water
supply sources and reduce the risk of imposing ever increasingly severe water
restrictions, the implementation of all of the water demand management
initiatives in both packages 1 and 2 will have to be accelerated/initiated. In
addition to this, the planning and implementation of additional water supply
schemes (Package 3) will have to commence.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
43
The implementation of Packages 1 & 2 have been accepted by Council as part of
the Water Demand Management Strategy.
Future Packages: Alternative Water Supply Schemes
• The Table Mountain Group Aquifer (exploitation is dependent on both the
potential yield and the environmental impacts indicated by the pilot
study)
• The Lourens River
• use of Treated Wastewater for Local Urban Irrigation and Industrial;
• the Cape Flats Aquifer;
• the Eerste River Diversion;
• use of Treated Wastewater for Commercial Irrigation Farmers;
• Treated Wastewater Reclaimed to Potable Standard
• Desalination of Sea Water
The impact of Package 1 and 2 on the total water consumed within the CMA, as
well as the areas supplied by the CCT outside the CMA, is indicated in Figure 4.4
below.
Figure 4.4 Impact of Packages 1+2 on Future Water Demand
Urban water demand for CCT - Package 1 + 2
550
Million m3/a
500
450
No savings scenario @ 3%
400
350
300
Packages 1 & 2
250
1994
1996
1998
2000
2002
2004
2006
2008
2010
2012
2014
Year
Figure 4.5 shows the effect of implementing Packages 1 and 2 on the overall
demand for water from both the urban and agricultural sectors against the
water availability for supply at a 98% level of assurance. In this figure it has
been assumed that the yield from the proposed Skuifraam Dam will be available
from the year 2006.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
44
Figure 4.5 Impact of Packages 1+2 on Future Water Demand (Overall)
Overall water demand - Package 1+2
650
No Savings
Package 1+2
Yield
600
Million m3/a
550
500
450
400
350
1994
1996
1998
2000
2002
2004
2006
2008
2010
Year
Figure 4.6 Impact of Package 1-3 on Water Demand of Total Supply Area
Overall demand - Package 1+2+3
850
No Savings
Package 1+2+3
Yield
Million m3/a
750
650
550
450
350
1994
1996
1998
2000
2002
2004
2006
2008
2010
2012
2014
2016
2018
Year
Please note that all graphs reflect the supply and demand from major sources
only and not from the minor sources. The growth rate in water demand assumed
for West Coast District Municipality (WCDM) was 3% per annum. The latest
demand projection obtained from WCDM indicates that their future growth rate
in water demand could be as much as 10% per annum. This will impact on the
abovementioned analysis and further increase the disparity between the water
demand and the available supply at a 98% level of supply assurance.
2020
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
45
Figure 4.6 above shows the total water demand (urban and agriculture) from the
main water resources supplying the Cape Metropolitan Area and the assured
supply of those resources. The available supply before 2006 assumes that
Skuifraam Dam and the Voëlvlei Augmentation schemes have been implemented.
The graph shows that the actual water demand exceeded available supply (at a
98 % level of assurance) in 1999. Should water demand in the urban and
agricultural sectors be allowed to grow unrestricted, it would not be possible to
supply future water needs in an affordable and sustainable manner and water
demand would far exceed assured supply (with no addition of augmentation
schemes). With the implementation of effective Water Demand Management
initiatives, it is anticipated that a significant reduction in water demand can be
achieved.
In order to alleviate the pressure on the current available water supply sources
and reduce the risk of imposing ever increasingly severe water restrictions, it is
crucial that the implementation of all of the water demand management
initiatives be accelerated, whilst implementing construction of the Skuifraam
Dam.
4.3 Water Demand Management (WDM)
A WDM Policy GO TO and WDM Strategy GO TO have been accepted by the CCT,
which has the main objective of reducing the projected demand for water by at
least 20% by the year 2010. Some of the key objectives identified in the WDM
Policy are:
• Equity. Universal access to quality water supplies, with a guaranteed
minimum level of service, through a metered connection.
• Sustainability. To ensure an acceptable level of assured water supply for
future generations.
• Affordability. To ensure that water services remain affordable.
• Reduce the projected demand for water by 20% (or more) by the year
2010.
• Encourage, educate, promote and where appropriate, legislate the optimal
use of water.
• Maximise the use of alternative sources such as wastewater effluent,
boreholes etc.
• Minimise the loss of water.
The Policy contained the following principles to inform the development of this
policy and future implementation plans:
• Water is a strategic, precious and scarce resource.
• The waste of water shall not be tolerated.
• All consumptive water use shall be measured and accounted for.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
46
Based on these principles the WDM Strategy was formulated which identified
the following strategies:
• Identify “Champions” for Water Demand Management amongst Politicians
and define their role of promoting WDM within the community and within
the Municipality;
• Raise the profile and priority of WDM in the organization in order to
achieve the objectives set out in the Policy and in this Strategy;
• Prepare comprehensive Business Plans for each of the Water Divisions in
respect of allocated Water Demand Management initiatives;
• Draft a municipal policy to ensure wise water use within the Municipality;
• Develop an appropriate Water Services Bylaw to legislate the optimal use
of water, incorporating the essential water demand management
requirements to limit the inefficient and wasteful use of water;
• Leakage and waste minimization through the planning, design,
construction, operation and monitoring of suitably located District
Metering Areas and pressure management systems;
• Promote the optimal use of water by consumers through education
awareness programmes and projects;
• The removal and prohibition of all Automatic Flushing Urinals (AFUs);
• . Minimize water losses in low-income housing through targeted plumbing
repairs and education programmes;
• Continually optimise tariff structures, ensure universal metering and
billing and a rate of payment that makes financial viability certain;
• Maximize the use of alternative sources of water;
• Make strong representations to the SABS to draft a National
Performance Standard for water fittings, appliances and devices.
For the Draft 5 year WDM Programme refer to the document entitled
“WDM_Prog” GO TO.
4.4 Water Restrictions
Water resources in the Western Cape are normally assessed at the end of the
hydrological year, after the normal winter rainfall period (end October) and at
the onset of the winter rainfall period (end May). The assessment is done by
means of a sophisticated stochastic computer model, jointly set up by the
Department of Water Affairs and Forestry and the City of Cape Town. The
model assesses the total demand for water in the region i.e. urban and
agriculture over a number of years against the expected inflow into the various
dams during drought years at various risks of occurrence. On the basis of the
planning model results informed decisions are made in order to optimise existing
resources and on the need for water restrictions and the required severity
thereof in order to avoid failure of supply for the next successive years.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
47
The need for water restrictions is determined not only by the level of the water
in the dams, but also by factors such as the projected growth in water demand,
and the implementation date of future water resource augmentation schemes.
Level 1 water restrictions (10% saving required), such as the restrictions that
were recently enforced, are applied earlier rather than later, in order to ensure
that the City of Cape Town would have sufficient water to last through a
drought cycle (a number of very dry winters). Level 2 restrictions that would
require a 25% saving and also negative impact on industry, would only be applied
if Level 1 restrictions were not having the desired affect or under severe
draught conditions. It is better to introduce Level 1 restrictions at an early
stage than reach a situation where it may be necessary to implement Level 2
water restriction which could negatively affect the economy of the Western
Cape.
The make up of the restrictions imposed from 1 November 2000 to 30
September 2001 was part punitive and part good water demand practice. The
City of Cape Town has lifted the punitive portion of the restrictions (i.e. limited
1 hour watering on alternate days), but has maintained the restricted watering
hours component (i.e. before 10:00 and after 16:00) as this is deemed to be good
water practice.
The fact that restrictions have been lifted, does not guarantee that water
restrictions will not be imposed again at the end of next winter. The need for
future restrictions will depend on both the amount of rainfall which falls next
winter, the predicted water demand in both the urban and agricultural sectors
as well as the impact of water demand management.
One must not confuse water restrictions with water demand management.
Water restrictions are punitive measures to reduce water demand and should be
applied judiciously when circumstances such as droughts necessitate the
implementation thereof.
Water demand management on the other hand
comprises good water demand practices and is the responsibility of all the
authorities and water users. Good water demand practices, which will be
contained in the proposed City of Cape Town Water By-laws, will also lead to a
reduction in water consumption.
4.5 Re-use of Treated Wastewater Effluent
At the Water and Waste Committee meeting of the former Cape Metropolitan
Council, held in February 2000, the Committee resolved that "a principal policy
objective to move towards the long-term goal of achieving zero effluent
discharge during summer months for all wastewater treatment works in the CMA
be adopted and actively supported".
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
48
The "Integrated Water Resource Planning Study" determined the potential for
effluent re-use at a pre-feasibility level. The CCT has appointed consultants to
refine the work carried out in the IWRP Study, focusing on potential treated
effluent re-use from the Athlone WWTW, Borcherds Quarry WWTW and the
Belville WWTW.
5
Description of Existing Water Services Infrastructure
Issues:
• Updating of infrastructure database required;
• Limited information on internal wastewater systems;
• Asset Management Program (Inadequacy of current preventative
maintenance/pipe replacement programs, including the rehabilitation
of pitch fibre sewers.)
A summary of the existing water supply and wastewater infrastructure as well
as the estimated replacement cost is provided in Table 5.1 (excl. consumer
connections). For a full inventory of the main infrastructure refer to the
infrastructure database GO TO. A detailed description of the bulk system and
internal systems is not pertinent to the identification of issues and performance
indicators and is therefore not described in detail. For further information
refer to the various Master Plans and the studies on the bulk systems:
Bulk Water: “Computer Analysis and Master Plan for Bulk Water Supply System”
Bulk Wastewater: “Strategic Evaluation of Bulk Wastewater” (contact the
former CMC Administration .)
Figure 5.1 and Figure 5.2 shows the main components of existing bulk water and
bulk wastewater infrastructure in the City of Cape Town (CCT).
The
implementation of an Infrastructure Management Query Station (IMQS) is
currently under consideration and will provide a basis for viewing details on the
infrastructure as well as graphs and reports available from the master plans and
related studies.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
49
5.1 General Description of Existing Water Supply Infrastructure
The water supply infrastructure can be categorised into two groups, i.e. internal
distribution systems, as previously administered by the former Metropolitan
Local Councils, and bulk system as previously administrated by the Cape
Metropolitan Council. The bulk water supply system is generally in good order
with sufficient capacity to meet the required demand. Water gravitates from
the majority of the dams, located mainly outside of the Cape Metropolitan area,
via a number of large diameter pipelines to the water treatment works and bulk
storage reservoirs from where water is distributed directly, but also via internal
service reservoirs to consumers via bulk connections. A number of pumping
stations are also required to boost supply in the higher lying areas.
For a more detailed description of the bulk water supply infrastructure refer to
a document entitled “Bulk Water Supply Infrastructure” GO TO.
5.2 General Description of Existing Wastewater Infrastructure
The wastewater system, similar to the water system, consists of a bulk system
and an internal system. Tygerberg Hill forms the watershed with wastewater
draining towards the wastewater works many of which are located next to the
coast. The drainage areas and the location of pumping stations and wastewater
works are indicated on Figure 5.2. The Strategic Bulk Wastewater Study
completed in June 1999, assessed performance of existing wastewater
equipment, processes and management systems and identified where
improvements are necessary for more effective performance. For a more
detailed description of the bulk wastewater infrastructure refer to a document
entitled “Bulk Wastewater Infrastructure” GO TO.
5.3 Asset Management
One of the important issues identified, as part of the WSDP is the lack of
proper asset management programs, which could inevitably lead to the
deterioration of infrastructure and service provision. It is therefore important
that each department should draft an Asset Management Program and Plan. The
overall condition of the water distribution pipe network has not yet been
quantified on a Metro basis. This quantification is considered to be a task of
immediate urgency. In some former MLC areas, conditions of networks are
known and these records need to be amalgamated in order to focus expenditure.
Some networks are showing signs of weakness that require addressing.
Condition records of other networks are non-existent. It is proposed that
meticulous records of burst mains, on a Metro basis, be introduced and
maintained. Burst main incidents are proposed to be reported under the
following topics:
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
•
•
•
•
50
Street address of burst locality including locality sketch
Pipe details (size, type, lining, sheathing etc.)
Ground conditions
Details of fracture
5.4 Stormwater Ingress into Sewers
Stormwater ingress into sewers is a major problem facing Water Services in the
CCT. It reduces the conveyance capacity of sewer pipelines, as well as the
capacity of the wastewater works to handle sewage flows. A distinction needs
to be made between the following two types of stormwater ingress, namely:
• Stormwater Infiltration: This happens through cracks in the existing
sewer pipes and require sealing or replacement. (The opposite to
infiltration, namely exfiltration leads to pollution)
• Stormwater Influx: This is the illegal connection of stormwater pipes to
the sewer systems. The solution to this problem is frequent inspections.
It is the intention of the CCT to initiate a study to determine the extent of the
problem.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
51
Table 5.1 Summary of Infrastructure Inventory and Estimated Replacement Cost at September 2001
Infrastructure
Internal Systems
No
Quantity
Bulk Systems*
Replacement
Value
No
Quantity
Rxmil
Total
Replacement
Value
No
Quantity
Rxmil
Replacement
Value
Rxmil
Water Supply Infrastructure
Water Treatment (Ml/d)
13
1672
697
13
1672
697
372
22
2555
515
131
3539
887
18
10940
144
367
unknown
234
629
3461
9058
5459
780
unknown
780
unknown
Reservoirs (Ml)
109
984
Pump Stations (kW)
349
unknown
90
8429
1998
Pipe Length (km)
Major Storage Dams (mil m3)
5
Sub Total
2461
5
4119
7277
Waste Water Infrastructure
Water Care Works (Ml/d)
Pump Stations (kW)
293
Pipe Length (km)
Sub Total
Total
* previously administered by the CMC
190
293
8429
1998
2291
20
620
620
20
27
unknown
243
320
120
500
1363
620
620
190
536
8549
2498
3655
10932
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 5.1 Main Components of Existing Water Distribution System
52
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
53
Figure 5.2 Wastewater Drainage Areas and Location of Treatment Works
and Main Pumping Stations
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
54
6 Environmental Issues
Issues:
• Fluoridation Regulations;
• Compliance with special standards for discharging of treated effluent
into a river system;
• Water quality
6.1 Environmental Management Initiatives
6.1.1 Introduction
Management of the environment of the City of Cape Town (CCT) is guided by
emerging national as well as international law and legislation. All initiatives must
conform to these higher order statutes and directives, such as the International
Convention on Biodiversity and the National Environmental Management Act
(NEMA). The CCT through the former Cape Metropolitan Council (CMC) has
implemented a number of initiatives to monitor the environmental status,
protect the environment and set standards in accordance with the relevant Acts.
6.1.2 State of the Environment Report
The former CMC has initiated a comprehensive process called the “State of
Environment Report” (http://www.cmc.gov.za/soe) GO TO to report on the current
status of the environment and many issues relating to the WSDP that may
impact on the environment taking cognisance of the relevant Acts. The CCT has
continued this process, which is now in its third cycle.
6.1.3 Environmental Conservation Act
In order to safeguard the environment against activities that could have a
detrimental effect on the environment, regulations in terms of Sections 21, 22
and 26 of the Environmental Conservation Act (ECA) (No. 73 of 1980) were
promulgated on 1997-09-05. According to these regulations an environmental
Impact Assessment (EIA) is a legal requirement for certain scheduled
construction activities.
The CMC Administration subscribes to a philosophy of Integrated Environmental
Management (IEM) and has adopted an Integrated Metropolitan Environmental
Policy (IMEP) GO TO and is initiating Environmental Management Systems (EMS)
for its operations.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
55
As an integral component of the IEM guidelines, the former CMC commissioned
the development of procedures to ensure compliance with the environmental
regulations for all the CMC river maintenance / upgrading activities as well as
their bulk wastewater activities. These procedures which are supported by the
delegated authority (viz. the Environmental Impact Management Unit of the
Provincial Department of Environmental and Cultural Affairs and Sport
(DECAS)), aim to ensure compliance with the regulations and the spirit of the
environmental regulations and the IMEP, without unduly compromising efficient
and cost effective service delivery with the CMA.
The former CMC’s IEM guidelines subscribe to the “cradle to grave” approach,
requiring environmental input from conceptualisation to decommissioning for all
its operations.
Accordingly, the IEM guidelines aim to ensure upfront
environmental input during planning and construction and subsequent input during
operation and maintenance (via the implementation of the appropriate EMS).
Bulk Water Department:
The Bulk Water Department of the former CMC is currently using a modified
version of the protocol developed for the Wastewater Department in order to
determine whether their proposed capital projects would have any environmental
impacts. This checklist is then discussed with the CMC Administration’s
Environmental Management Department.
Bulk Wastewater Department:
A protocol for capital development works was developed by the former CMC’s
Wastewater Department, the environmental unit of the CMC Administration’s
Planning, Environmental and Housing Directorate in conjunction with consulting
engineers Ninham Shand and approved by DECAS. A checklist answer sheet and
description form applicable to the capital works is completed to identify the
category of the proposed works relative to the environmental requirements.
Thereafter the necessary environmental procedures are followed, if necessary
by appointing environmental consultants.
6.1.4 Environmental Management Plan
Environmental Management Programmes (EMPs) is a tool that would facilitate
appropriate environmental input during the construction phase of civil
engineering projects, and thus form a crucial component of the IEM process and
the ultimate attainment of sound environmental practice. Accordingly, the CMC
Environmental Management Department appointed a team of consultants under
the leadership of Ninham Shand to develop a state-of-the-art, Environmental
Management Programme, including Standard Environmental Specifications,
Detailed Environmental Specifications and a range of supporting tools to
facilitate the implementation of civil projects.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
56
The vision is for this EMP to be included as an integral component of the
Contract Documentation of all construction contracts, initiated by the City’s line
function that oversee construction activities, where there is a risk of
environmental degradation or there is uncertainty regarding the environmentally
sensitivity of the activity. Ultimately this approach will ensure the practical and
effective implementation of environmental controls for these activities.
6.1.5 Integrated Metropolitan Environmental Policy
The CCT has embarked upon a process of developing an integrated metropolitan
environmental management strategy (IMEMS). This Integrated Metropolitan
Environmental Policy (IMEP) will form the basis for a series of strategies and
programmes to ensure that the principles of sustainability are adhered to. This
will enable the meeting of current needs as well as the maintenance of our
resources for the benefit of future generations. The IMEP and the IMEMS
were adopted by the CCT in October 2001. The sectoral strategy for water
services based on the IMEP is given below:
A commitment to ensuring that the quality of coastal, marine and inland waters
of the CCT is suitable for the maintenance of biodiversity, the protection of
human health and a commitment to the principle that all CCT inhabitants have
the right to clean, potable and adequate water sources. This commitment
includes:
•
Recognising that water is a scarce and valuable resource, which sustains
communities, ecosystems and economic development.
•
Recognising the importance of groundwater as a water resource.
•
Management of water demand to ensure the long term sustainability and
affordability of water resources and the environment.
•
Ensuring water quality, at a minimum, meets national standards as
established by the Department of Water Affairs and Forestry.
•
The effective management of all wastewater systems.
6.2 Water Conservation and Quality Issues
6.2.1 Quality of Raw water resources
Tastes and odours in drinking water, produced by algae, out of the Voëlvlei Dam
caused considerable consumer response during December 2000 and January
2001. During November 2001 consumers complained about tastes and odours in
water from Theewaterskloof Dam, because of an algae not encountered
previously. The removal of tastes and odours from drinking water costs several
million Rand per annum. Algal blooms are caused by inputs of nutrients into
dams. This situation could escalate in the future if it is not addressed.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
57
In order to at least stabilise and hopefully reduce the influx of nutrients and
subsequent algal blooms, serious and urgent catchment management is required
by the responsible authorities.
6.2.2 Potable Water Quality Monitoring
The quality of treated water is strictly monitored/controlled by the water
treatment division and complies to SABS 241 (1984) and other guidelines. The
Scientific Services Department conduct weekly visits to each WTP to test the
water, inspect the process, retrieve various samples and analyse them. The
results are then scrutinised, evaluated and compiled as a weekly report with
comments. The WTP manager is given a copy of the results, one copy is sent to
the Head of Bulk Water Operations and one is kept by Scientific Services.
Composite sampling is carried out by the WTP on a weekly basis and these
samples are also analysed by the Scientific Services Branch and a monthly
report is generated. Immediate response to operational problems and consumer
complaints is effected by suitable experienced and qualified staff from Water
Services. For details on raw water quality and treated water quality refer to
table entitled “Water Treatment Data” GO TO.
6.2.3 Implementation of Fluoridation Regulations
In terms of Regulations No. R823, dated 8 September 2001, promulgated under
Health Act 63 of 1977, all water services providers are required to ensure a
fluoride concentration of 0.7 mg/l in potable water for the purposes of reducing
dental caries. Fluoridation is complex, expensive and a potentially hazardous
undertaking and requires the implementation of new infrastructure by
September 2003 at an estimated cost of R11 mil, since the natural concentration
of fluoride in CCT’s water resources is insufficient. The running cost of
fluoridation is estimated at R10mil per annum. Skilled operators required to
manage the fluoride concentration are currently inadequate, and requires the
training of additional staff. CCT have embarked on a public participation
process. A report as tabled to the Trading Services Portfolio Committee gives
more background. GO TO
6.2.4 Treated sewage effluent released into Urban River systems
In recognition of the special effluent standards which are to be imposed by
DWAF, the Wastewater Department took the policy decision to implement
special standards with respect to nutrient removal in wastewater treatment at
treatment works where discharge of treated effluent is into a river system.
This is in line with environmental considerations and is an earnest intention to
improve water quality, minimise health risks and protect the environment.
Effluent permit standards have been determined for each wastewater
treatment plant.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
58
6.2.5 Impact of Industrial Consumers and Potential Pollution Sources
Effluent from industrial consumers generally is discharged into the sewage
system and treated at the wastewater treatment works and is therefore not
considered as a pollution treat.
6.2.6 Removal of Alien Vegetation
The CCT has an ongoing programme for the removal of alien vegetation in the
catchment areas of their dams. This programme will have the effect of
increasing available run-off. The CCT also make a substantial contribution
(R20 million) for the removal of alien vegetation in DWAF catchments, through a
catchment management charge.
6.2.7 Atlantis Aquifers
An Environmental Management System (EMS) has been completed for the
Atlantis Aquifer System. An environmental consultant audits the EMS on an
annual basis. In addition an environmental officer for the area was appointed in
July 1999, to safeguard the environment, water supply infrastructure and to
educate the public. The Council for Scientific and Industrial Research (CSIR)
assist in monitoring water quality and aquifer levels on a regular basis. In terms
of the National Water Act (1998), aquifers are protected by law.
6.3 Stormwater Management
Management)
(Incorporating
Catchment
&
River
The various water related services such as water supply, sanitation and
stormwater management are inextricably linked and greater emphasis will be
placed within the foreseeable future in optimising and managing their
interactions in keeping with the principles of Integrated Water Resource
Management. These interactions include direct connectivity between systems in
the case of sewer overflows, effluent discharges to watercourses forming the
bulk drainage system and abstraction of water from surface and sub-surface
resources within the metropolitan area. Whilst the Stormwater Management
service currently falls within the Transport, Roads and Stormwater Department
of the City of Cape Town, concerted efforts are being made to ensure close cooperation of Water Services for the benefit of the city’s residents and visitors.
Over the past few decades rivers have been viewed as convenient drains to
convey urban waste and storm runoff. They were canalised on a large scale and
many wetland areas in-filled and drained to allow for urban development,
dramatically altering the natural hydrological cycle. In retrospect, this approach
has inadvertently also precipitated a decline in water quality and ecological
integrity of the city’s rivers and vleis.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
59
A paradigm shift in approach to stormwater management in Cape Town has
developed over the past few years, based on the philosophy of integrated
catchment management. Within the metropolitan area, this was pioneered by
the former Cape Metropolitan Council. A Catchment Management Department
(CMD) established in 1996 was tasked with promoting ‘best practice’ in the
management of urban rivers, wetlands, vleis and major stormwater
infrastructure in partnership with the previous metropolitan local councils.
The following stormwater management principles are now widely recognised and
rapidly gaining acceptance:
•
•
•
•
The need to adopt an integrated and co-ordinated approach, based on a
good understanding of local needs / values, statutory requirements and
practical / financial constraints.
The need to minimise the impacts of flooding with an emphasis placed on
reducing peak flows at source either through flood attenuation ponds or
infiltration.
Protection of urban water resources; including rivers, wetlands, vleis,
subsurface and coastal waters from the potentially harmful impacts of
polluted runoff or altered hydrological response.
Involvement of communities and other stakeholders in the management of
river systems through catchment forums.
The stormwater service involves the management of urban catchment areas in
respect of their hydrological functioning for drainage, flood control, ecological
and social needs and as an important urban water resource. It includes the
management of reticulation systems, open watercourses, wetlands, groundwater,
vleis and estuaries, and engagement with communities living within the various
catchment areas. The major river systems and associated catchment areas
within the metropolitan area are illustrated by Figure 6.1.
The stormwater network comprises approximately:
• 1200 km of rivers and streams
• 200 km of lined canals
• 5000 km of underground pipes and culverts
• 300 stormwater detention ponds
• 10 automatic pumping stations
Functional areas within the service include:
• Strategy and policy development
• Planning, development control and project management
• System upgrading and development
• Asset management (reticulation, watercourse maintenance, pollution
control etc)
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
•
•
60
River flow, rainfall and water quality monitoring rivers, vleis and coastal
waters).
Education and capacity building
The 2001 / 2002 capital and operating budgets for the service totalled R66.5m
and R87.3m respectively.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 6.1 Major Stormwater Catchment Areas and Monitoring Points
61
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
62
Due to the all-encompassing spatial nature of drainage catchments and the water
related bias of this service, it is inextricably linked to various other functions
and bodies within Council and outside, from both planning and operational
viewpoints, including but not limited to:
•
•
•
•
•
•
Transport and Roads
Water and Sanitation Services
Waste Management
Community Services
Planning & Environment
Housing
There is a growing movement at local, regional and national level to ensure
improved and integrated management of urban stormwater systems in a manner
that balances competing and often divergent needs of the community, such as:
• Flood protection
• Ecological enhancement and protection of aquatic systems
• Cultural, recreational and economic opportunities
In an effort to rise to these challenges, a detailed strategy comprising various
priority programmes to be implemented over the next five years has recently
been formulated. A draft copy is attached GO TO. This strategy provides a
comprehensive framework to guide management of stormwater systems for the
sustained benefit of the city’s residents, business concerns and visitors alike.
Underpinning the strategy are the following guiding principles:
•
•
•
•
•
•
•
•
Customer Focus
Holistic Planning & Management
Duty of Care
Sustainability
Management Excellence
Co-operative governance
Participation and Partnership
Transparency
The guiding vision and mission of the service are as follows:
Vision:
Effective Stormwater Management with Safe and Healthy Rivers
Mission:
Minimise flooding of property and improving and maintaining the
health of our rivers, wetlands and vleis through integrated
catchment management for the benefit of the people of the CCT.
Various priority programmes comprising the strategy have been grouped under
themes as follows:
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
63
Integrated Planning:
• Preparation of Catchment and River Management Plans (CRMP)
• Preparation of Stormwater Master Plans (SMP)
• Preparation of Local Stormwater Management Plans (LSMP)
• Formulation of Stormwater Management Guidelines and Design Criteria
for New Developments
• Promotion of Integrated Urban Water Resource Management
System Upgrading and Development:
• Formulation of a Risk Based Approach to System Upgrading
• Flood Disaster Management Programme
• Provision of Stormwater Services to Informal Areas
Asset
•
•
•
Management:
Investigation into System of Charges and Levies
Guidelines for Environmentally Sensitive River Maintenance
Development of Management Information Systems and Data Bureau
Services
• Development of an Integrated Asset Management System
Regulation
• Development of Policy for Development near Watercourses
• Promulgation of Stormwater Management By-Laws
Relationship Management
• Customer Care Programme
• Staff Development Programmes
• General Education Programmes
• Partnership Development Programmes
• Provision of Consultancy Services
The strategy will also form the nucleus of detailed business plans prepared for
the service over the next few years as illustrated below.
DETAILED BUSINESS PLANS
STRATEGY
NUCLEUS
SERVICE OUTCOMES
Managed
Flood
Risks
Improved
Water
Quality
Protected
River
Corridors
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
64
The following mechanisms will be utilised to monitor and report on the impact of
the strategy. This overall approach, philosophy and management principles will
be reviewed and amended as required every 5 years:
• Annual reporting on key indicators as outlined in Table 6.1.
• Biennial review of progress in implementing the various programmes.
For further information on the stormwater management service, refer to the
website of the CMD at www.cmc.gov.za/w&w/CatchmentMgmt.
Information of flood prone areas as well as associated draft development
control guidelines are published at www.capetown.gov.za under the following
icons:
Table 6.1: Performance indicators and tragets
Outcomes
Targets
Managed Flood Risks
Less than 5 multiple property flooding incidents per year
(provided rainfall is within 10 yearly maximum severity)
Improved Water Quality
Location
Percentage Compliance with Accepted
Targets
Public Health
Aquatic System
Rivers
Under development
Under Development
Vleis
Under development
Under development
90%
N/A
75%
N/A
Beaches:
Bay
Beaches:
Atlantic
False
6.4 Related Acts
6.4.1 The Occupational Health and Safety Act
All sections of the Bulk Water Department abide by the Occupational Health
and Safety Act 85 of 1993. All designations in terms of responsibility are made
in accordance with the OHS Act. It is every employee’s responsibility to abide
by the Act. Every section, in the department, is encouraged to adopt the NOSA
MBO (management by objective) system. Some sections have done so with
distinction and have been awarded the NOSA 5 star grading. A recent addition
to the NOSA audit is environmental considerations.
This requires all
infrastructures audited to have an environmental audit and risk management
system in place. To achieve this goal, the Bulk Water Department appointed
Ecobe EMS to conduct the environmental audit.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
65
The implementation of the audit programme will assist in identifying noncompliance, risk and best practice environmental issues and enable these to be
prioritised and addressed on an annual basis by the Bulk Water Department.
This will not only enable compliance with South African environmental legislation
and NOSA’s environmental requirements, but also ensure that environmental
benefits are maximised and risk to employees, surrounding communities and the
natural environment are reduced and cost savings achieved. It is imperative that
such a protocol takes account of all relevant legislation and related
environmental requirements. In this regard, as most of CMC Water’s
infrastructure in the peninsula area falls within or adjacent to the Cape
Peninsula National Park (CPNP), the protocol must comply with the requirements
of the Infrastructure Management Plan of the CPNP.
Section 7 of the Act covers the Environmental Regulations for Workplace. It is
the responsibility of each manager to minimise/eliminate pollution and to ensure
good environmental conditions for employees. Water treatment plants do no
pose too much of a threat to the environmental. Sludge, the by-product of the
treatment process is harmless and is disposed of in landfill sites. There is little
chance of air pollution with regards to hazardous chemicals as the water
treatment plants have been designed to contain spillages and minimise releases.
6.4.2 National Water Act
The CCT has registered its bulk water use in terms of Section 4 (Use of Water)
of the National Water Act (1998). The registration application includes the
registration of bulk water supplied to consumers outside the Cape Metropolitan
Area.
The Cape Metropolitan Area falls within the Berg River Water Management
Area. Approximately half of the CCT’s raw water supply requirements originates
from water sources within an adjacent Water Management Area (i.e. the Breede
River Water Management Area). It is important that the CCT is represented on
both these Catchment Management Agencies when they are created in terms of
the National Water Act.
6.4.3 Water Services Act
In terms of the Water Services Act, every Water Services Authority has to:
• promulgate Water Bylaws, which set out conditions for the provision of
water services. There is a need to draft consolidated Water Bylaws for
the CCT as discussed in section 3.5.
• draft a Water Demand Management Strategy and Policy. CCT complies
with this requirement, i.e. a Water Demand Strategy GO TO and Policy GO
TO has been accepted as discussed in Section 4.3.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
66
7 Future Infrastructure Requirements
Issues:
• Not all administrations have comprehensive master plans (both water
and sewer);
• Inadequacy of current preventative maintenance / pipe replacement
programs
• Stormwater / groundwater infiltration in sewers
• Major bulk water and wastewater infrastructure requirements
• Siting of future Water Treatment Plants dependant on water
resource availability.
7.1 Status of Existing Master Plans
Table 7.1 indicate the status of existing Water and Sewer Master Plans as
based on the former MLC boundaries. A link to the treasury system and an
accurate unaccounted-for-water analysis was done for the areas as indicated.
Table 7.1 Current Status of Master Plans
* Does not include a future infrastructure 15 yr horizon master plan;
** Interface does exist with the bulk meter record database.
*** Moddelling and planning has been done, but no formal master plan exists.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
7.2
67
Overview of Proposed Expansion to Bulk Infrastructure
This section is currently under review and will be revised in December 2001,
since alternative options (Table Mountain Group Aquifer) for water supply are
being investigated which will impact on the location of the future water
treatment works.
7.2.1 Bulk Water
Planning Horizon:
Planning on the bulk water distribution (refer to Computer Model Analysis and
Master Plan for Bulk Water Supply System, March 2001) system has been based
on a future AADD of 1350 Ml/d which will be realised in approximately 12 to 15
years time. Conceptual planning of bulk water supply infrastructure has however
been carried out up to an AADD of 1850 Ml/d. This AADD will only be realised in
approximately 25 years time.
Raw water sources:
There is much uncertainty with regards to future raw water sources for the
Western Cape. For this reason, the CCT as part of their Master Plan for the
Bulk Water Supply System initiated a study looking at the integration of the raw
water sources supplying the CMA, and the effect the development of these raw
water resources would have on the associated bulk water supply infrastructure.
(Refer to the report entitled “ Integration of Raw Water Resources Supplying
the CMA”). A key strategic issue which has been identified is the availability and
timing of future water resources. The availability of future water resources
affects the siting and sizing of future water treatment plants, bulk distribution
pipelines and bulk storage reservoirs. Long term infrastructure planning by the
CCT and DWAF has to happen concurrently and timeously so that the two
process can inform each other.
It is imperative that an indication and commitment is obtained from DWAF as to
potential yield and timing of implementation of the Brandvlei Scheme as well as
the Molenaars River Diversion. The CCT is currently investigating the feasibility
of the Table Mountain Group Aquifer as a source of water for Cape Town.
Information pertaining to the above mentioned schemes will inform the location
and sizing of a new WTP and associated pipe infrastructure.
In addition to the TMG Aquifer, it is anticipated that the CCT will proceed with
the implementation of the Voelvlei Augmentation Scheme as was described
under the Section of the WSDP entitled "Integrated Water Resource Planning"
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
68
Additional WTP capacity:
For full utilisation of an additional yield of 345 Ml/d (AADD planning horizon of
1350 Ml/d), additional WTP capacity of 500 Ml/d is required. (The full 500
Ml/d is used in summer peaks, but less than 345 Ml/d is used in low demand
winter months. The average utilisation equals the yield of 345 Ml/d). Provision
of the 500 Ml/d capacity was investigated at Faure-, Blackheath- and
Wemmershoek WTP’s (close to the proposed Skuifraam Dam), which are all
linked to the RSE raw water system.
The following options along with the associated bulk pipeline and bulk storage
reservoir infrastructure were investigated and costed:
4) Option 1: Installation of 500 Ml/d additional water treatment capacity at
the existing Faure WTP
5) Option 2: Installation of 140 Ml/d additional treatment capacity at
Wemmershoek WTP and an additional 360 Ml/d treatment capacity at the
existing Faure WTP
6) Option 3: Installation of a new 500 Ml/d WTP at a site near the proposed
Skuifraam Dam
Although the options still require further investigation, Option 3 at this stage is
the preferred option for the following reasons:
• A new WTP in the vicinity of Skuifraam Dam will reduce the reliance which
the CCT currently places on the RSE Tunnel System (security of supply)
• A WTP near Skuifraam Dam and associated pipework could cater for the
growing water demands of Paarl and Wellington and make available currently
under-utilised capacity in the existing pipeline from the Wemmershoek WTP.
• The WTP could feed the areas of high growth (ie Durbanville North) directly.
• It would provide an alternate source of supply to Glen Garry Reservoir and
enable the Wemmershoek WTP to be shut down for repairs or maintenance.
• Water from some of the sources could be gravitated to Glen Garry Reservoir
(as opposed to Option 1 where all the water would have to be pumped to Glen
Garry)
• Increased flexibility in the bulk supply system
The proposed schematic layout for option 3 is depicted in Figure 7.1a and Figure
7.b. Schematic layouts and a detailed description and costing of the other
options are contained in the Master Plan of the Bulk Water Supply System.
Due to the uncertainity associated with the availability of raw water resources,
it is anticipated that any new water treatment plant capacity which is required
will initially be implemented in increments of 250Ml/d.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
69
The siting (and possible future sizing) of future water treatment works will be
decided upon when greater clarity concerning future raw water resources comes
to hand. Refer to the report entitled “ Integration of Raw Water Resources
Supplying the CMA”.
A more detailed study examining the suitability of potential sites identified for
a possible new water treatment plant in the vicinity of the proposed Skuifraam
Dam will be undertaken 2002.
Cost estimates and phasing in of works:
The preliminary cost of Option 3, with associated bulk water supply
infrastructure and bulk storage reservoirs is in the region of R 1154,3 million.
For a detailed breakdown of the future bulk infrastructure requirements
(excluding water resource development costs and water treatment plant
upgrades and repairs), as based on the Computer Model Analysis and Master Plan
for Bulk Water Supply System, March 2001, refer to the Bulk Infrastructure
Program GO TO. The timing of the infrastructure requirements assumes that the
bulk water supplied by the CCT will follow Package 1 and 2 curve as detailed
under "Integrated Water Resource Planning" section of the WSDP. The total
cost (year 2001 value) for all the required works within the 1350 Ml/d planning
horizon is estimated at R1154,3 million (including P&G’s, contingencies and fees,
excluding VAT).
A summary of the anticipated costs for water resource development and bulk
water supply infrastructure over the next 12 to 15 years is given in the table
below:
Raw water pipelines
Additional WTP capacity
Bulk system pipelines
Additional pump capacity
Additional storage capacity
Miscellaneous other items
Sub-Total
Water Resource Development Costs
(for 6 years only)
Total
:
:
:
:
:
:
R 47,4 million
R 140,2 million
R 648,2 million
R
34,4 million
R 213,0 million
R
29,8 million
R 1 154,3 million
:
R 115,0 million
R 1 269,3 million
The three year CCT bulk water capital expenditure program is also attached GO
TO.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
70
7.2.2 Wastewater
The Bulk Infrastructure Program GO TO summarises the future sewer
infrastructure requirements to meet the future growth, but also to adhere to
DWAF’s new effluent standard requirements to be implemented by 2010. The
total cost of upgrading is estimated at 1.5 billion over the next 10 years, with
66% of this capital required for upgrading of the Athlone, Milnerton and
Zandvliet wastewater works.
Although it is estimated that the annual
expenditure required is in the order of R145 million, it is preferred that this
programme be implemented over a shorter period due to the current condition
of infrastructure and the requirement for increased capacity. Therefore an
expenditure of more than R100 million per annum over the next four years is
required. For more information refer to the 3 year capex program GO TO.
Strategic Bulk Wastewater Study:
The Strategic Bulk Wastewater Study (1999) assessed the performance of
existing wastewater equipment, processes and management systems and
identified where improvements were necessary for more effective performance.
In addition the development predicted to take place in the CMA over the next
20 years, identified the need for facilities to be extended or new ones to be put
in place.
The comprehensive (37 volumes) Strategic Report on Bulk Wastewater
requirements over the next 20 years forms the basis of guidance for effective
planning of conveyance and treatment of wastewater in the CMA. The basis of
the study included the following issues:
• Catchment analysis
• Performance of existing facilities
• Expected growth in the CMA over the next 20 years
• Strategic planning and prioritisation
• Environmental impacts
• Effluent re-use
• Sludge management
• Rationalisation of wastewater facilities
• Odour control
• Tariff calculation and funding requirements
For more information concerning the study refer to the synopsis of the
strategic study in the document entitled “Strategic Evaluation of Bulk
Wastewater” (Contact the CMC Administration )
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
71
Cape Wastewater Consultants were appointed on 27/9/2001 to undertake
additional investigations into various factors that could influence the
recommendations contained in the Bulk Wastewater Study completed in 1999.
The following aspects are going to be considered in greater detail:
• Water Demand Management
• HIV/Aids
• Effluent Standards on design approach
• Rationalisation
• Evaluation of capital requirements
• Estimated Planning Horizon
• Infiltration
For more detailed description of the above-mentioned issues refer to the
document entitled “Bulk Wastewater Infrastructure”. GO TO.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 7.1a Required Works for Future Bulk Water Supply System
72
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 7.1b Required Works for Future Bulk Water Supply System (Detail)
73
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
74
7.3 Overview of Proposed Expansion to Reticulation Infrastructure
7.3.1 Water
The works required to ameliorate existing problems and to cater for growth in
demand have been investigated in detail in the various master plans (refer to
Table 7.1). Where no detail master plans were available the required works were
based on the Capital Infrastructure Programs of the applicable Administrative
Units. Only a brief summary of the required works is herewith provided based
on the former MLC boundaries. More detailed information is available in the
relevant master plans. An example of a water master plan as compiled for
Helderberg (2001) is included in to indicate the available information.
Blaauwberg:
Apart from general upgrading required in the Milnerton-, Melkbos- and Atlantis
zones, most of the future bulk infrastructure will be required to accommodate
the large areas earmarked for residential development to the north of Table
View. Bulk supply to this area is already limited and these future areas would
not only require major upgrading of the CMC bulk water system, but would also
require a new bulk connection, feeder main and proposed reservoir at
Contermanskloof (2 x 25 Ml) and an extension of the water network to provide
water to small holdings.
Cape Town:
Most of the available land in the former Cape Town area has already been
developed, which implies that no major bulk infrastructure will be required in
future. However, since many of the pipelines are more than a 100 years old,
most of the capital expenditure is required for the replacement of aging
infrastructure. Currently approximately 12km of pipeline is replaced each year,
which is inadequate when considering that there are more than 2000 km of
pipeline in this area which equates to a replacement period of more than 150
years.
Helderberg:
Most of the future works are required to accommodate the large areas
earmarked for future development in the Sir Lowry’s Pass and Gordons Bay
areas. Works include new reservoirs and pumping stations for the high lying
areas in Sir Lowry’s Pass and Sweetwaters. Other works include reinforcements
to the bulk supply system in Somerset West and Gordons Bay and four new CMC
connections. (Refer to Figure 7.2 and Table 7.2 under Helderberg heading).
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
75
Tygerberg:
Apart from the capital projects required to replace and upgrade existing
infrastructure, a number of additional projects have been identified for the
short term and medium term including the upgrading of the Eksteen and Old Oak
pumping stations, the removal of mid-block pipes in Bishop Lavis, provision of
water to small holdings (Westerdale), Silverboom rising main, a new 400 mm main
in Avonwood Road. The high growth in and around Durbanville demand a new bulk
connection, bulk pipelines, a new pumpstation and a reservoir. Additional bulk
connections and pipelines are installed for developments in Delft and Mfuleni.
Oostenberg:
The Oostenberg water supply system is generally sufficient to meet the current
water demand. Large areas have been earmarked for development mainly north
of Kraaifontein (Langeberg), east of Kuils River (Zevenwacht, Hazendal) and in
the open areas surrounding Blue Downs. Apart from the bulk facilities to service
these areas, a number of existing pumping stations and feeder mains would
require upgrading including the Bloekombos, De Novo, Langeberg and Kuils River
systems. Various pumpstations require upgradings to supply high growth areas.
Storage requirements are generally sufficient to meet the future water demand,
but needs to be confirmed through the Water Master Plan currently being
compiled. It is anticipated that additional storage will be required at the
Andrag reservoirs as well as a new reservoir site to serve future areas north of
Blackheath near the Stellenbosch Arterial.
South Peninsula:
Apart from general renovations no significant upgrading of the pumping stations
are required. Additional storage is required at a number of reservoir locations
of which the most significant are Houtbay (6.5 Ml), Wynberg (40 Ml) and
Brakkloof (14.5 Ml). New bulk supply pipelines are also required in a number of
places including Pelikan Park, Vrygrond and Westlake.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 7.2 Example Water Master Plan: Helderberg Administration
76
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
77
Table 7.2 Example: Water Master Plan of Helderberg AdministrationProposed Projects
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
78
7.3.2 Wastewater
The works required to ameliorate existing problems and to cater for growth in
demand have been investigated in detail in the various master plans (refer to
Table 7.1). Where no detail master plans were available the required works were
based on the Capital Infrastructure Programs of the applicable Administrative
Units. Only a brief summary of the required works is herewith provided based
on the former MLC boundaries. More detailed information is available in the
relevant master plans. An example of a sewer master plan as compiled for
Helderberg (2001) is included in to indicate the available information.
Blaauwberg:
As previously discussed, the almost 3000 ha residential land earmarked for
development north of Table View west of the N7 will require major bulk
sanitation infrastructure. Apart from the 5 new sewage pumping stations
required at Doornbach, Dunoon, Railway Bridge, Blaauwberg Bridge and
Witzands, the existing Sandown pumping station will also require upgrading. A
new outfall sewer is required for the Parklands development, while new collector
mains would be required in a number of places including Beach Boulevard, Du
Noon, Surringdale, Diep River and Witzand. The Postdam wastewater works
would also require upgrading.
Cape Town:
The available land in the Cape Town area is almost fully developed, which implies
that no major new bulk sewerage infrastructure is required. However, since
many of the systems are older than 100 years, most of the capital investment is
required for the replacement of old collapsing sewers, especially pitch fibre
pipes. Ad hoc Closed Circuit Television (CCTV) inspections are important to
determine the condition of sewers. A network will be installed in industrial areas
where septic tanks are still in operation.
Helderberg:
The capacity of the sewer reticulation system is generally adequate to
accommodate the future developments. The Gordons Bay drainage area requires
new outfall sewers to accommodate the future development areas to the northeast. The Strand/Sir Lowry’s Pass drainage area requires a new “cut-off” outfall
along the N2-route to link up with the rehabilitated Gants sewer line. The
Somerset West A- and B- Stream drainage areas require new outfall sewers to
eliminate existing pumping stations. The Macassar drainage area requires two
new outfall sewers, pumping stations and rising mains to enhance the level of
service in the Sandvlei and Kramat area. (Refer to Figure 7.3and Table 7.3).
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
79
Tygerberg:
Apart from the replacement and upgrading of existing sewerage infrastructure a
number of short term projects have been identified including new outfall sewers
for Durbanville (Trunk sewer - Phase 4), Bishop Lavis and Parow. A number of
Vitro/Glaze sewers will also be upgraded in Bishop Lavis and Ravensmead. A
comprehensive project to replace approximately 400Km of pitch fibre pipe over
a 10 year period, started recently.
Oostenberg:
There are a few areas in Oostenberg where the bulk sewer reticulation systems
require upgrading including a new outfall sewer along Saxdowne Road and the
upgrading of the Kuilsriver Outfall to accommodate areas earmarked for
development in the Hazendal/Zevenwacht areas, while an the Brackenfell outfall
sewer (along Old Paarl Rd) also requires upgrading. The high stormwater
infiltration in Kraaifontein also needs to be addressed.
South Peninsula:
There are approximately 3000 septic tanks in operation in the South Peninsula
area. These systems, such as in Scarborough, was initially planned for smaller
developments, but as the density of septic tanks increased so did the potential
for groundwater pollution. Plans are in place to upgrade the Scarborough and
Noordhoek septic tank systems to smallbore or waterborne systems. Bulk
sanitation services are also required in Westlake, Pelican Park and Vrygrond,
while many of the existing pumping stations will require upgrading including
Raapkraal, Retreat, Rondevlei, Clifton, Glen Cairn and Fishhoek which includes
the installation of telemetry systems, variable speed pumps and the installation
of engine driven pumps.
Reticulation is required in a number of new
developments including Zeekoeivlei Phase 3, Kommetjie, Houtbay Stage 2 and in
the informal areas of Imizamo Yethu. The rehabilitation of pitch fibre pipes is
also required in a number of places.
7.3.3 Summary of Capital Expenditure on Bulk Reticulation
It is difficult to determine the future long-term capital requirements for water
and wastewater reticulation infrastructure. This is partly because not all the
areas have master plans (refer to Table 7.1), which makes it difficult to
determine the impact of growth and future developments on existing water and
sewerage systems. For the purposes of the WSDP only the short-term capital
requirements are herewith reflected as based on the recent budget exercise
for 2002/2003, i.e. R80 mil on the Water Account GO TO and R101 mil on the
Sewerage Account GO TO. Figures for the 2003/2004 and 2004/2005 financial
years have also been calculated, but only reflects the additional capital
requirement of currently identified (for 2002/2003) projects.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Figure 7.3 Example Sewer Master Plan: Helderberg Administration
80
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
81
Table 7.3 Example: Sewer Master Plan of Helderberg AdministrationProposed Projects
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
8
82
Financial Aspects
Refer to strategic financial analysis section for discussion of issues
8.1 Introduction
The City of Cape Town faces significant challenges to transform water and
sanitation services into a world class water services provider which is customer
friendly, efficient and sustainable. These challenges include:
• Formation of a single operational entity from seven different
administrations
• Providing services to households living in informal settlements
• Undertaking a very significant capital investment programme
• Improving operational efficiencies
• Improving customer relations
• Improving revenue management
• Improving asset management
In a short space of time significant progress has been made, including:
• Successful implementation of free basic water for all
• Establishment of a customer charter
• A decision to form a ring-fenced business unit
Nevertheless much remains to be done. Progress to date and the challenges lying
ahead are reported on in more detail below. In view of this context, the
institutional and financial plan should be viewed more as a strategic document
mapping the way ahead rather than a detailed plan with specific financial and
tariff commitments. Until certain strategic decisions have been made and the
accounting foundation for a new water services entity has been laid, it is not
possible to make commitments in this plan to specific financial targets.
8.2 Institutional reform
Vision:
The vision of the City’s Water Services Unit is to become a world class provider
of quality and affordable water services whilst ensuring that water resources
are conserved and managed for future generations.
Separation of service authority and service provider:
It is the intention of the city to separate the roles and responsibilities of the
service authority and service provider more clearly as provided for in the Water
Services Act (Act 108 of 1997). The details of this relationship still need to be
worked out. This will form part of the organisational restructuring process
reported on below.
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It is likely that the service provider will have contract or “service delivery
agreement” (SDA) with the Water Service Authority (WSA). The Water
Service Development Plan (WSDP) will form a key basis for the development of
this contract. The SDA will outline the level and quality of service to be provided
to the community, the program for upgrading and extending the level of service
to cater for growth, as well as plans to deal with key strategic issues that have
been identified.
Section 78(1) assessment:
The City of Cape Town is in the process of restructuring as a result of the
amalgamation of the previously separate administrations into one metropolitan
council after the local government elections in December 2000. This
restructuring provided the trigger to review service delivery arrangements for
water in terms of Section 78 of the Municipal Systems Act (Act 32 of 2000).
An assessment carried out in terms of section 78 of the Municipal Systems Act
indicated that “the best internal mechanism to achieve this vision is for the
provider to be structured into an Autonomous Ring-fenced Business Unit.”
Consequently, the Executive Committee made a decision in November 2001 to
establish an autonomous ring-fenced business unit by November 2002.
The Section 78(1) assessment further recommended that the water and
sanitation services unit:
• increase its control over its inputs, including staffing and remuneration
• make itself more accountable for its outputs
• implement a performance management framework, including best-practice
benchmarking
• develop a set of water and sanitation policies and strategies
• link the service strategies to the performance management framework
• become more customer focussed
• improve its business practices
• assume greater responsibility for billing and debt collection
Meaning of a ring-fenced business unit:
In the context of the proposed restructuring of water services, the concept in
financial terms of a ring-fenced business unit is understood to mean the
following:
• a separate chart of accounts
• clearly defined and separate cost and income centres
• clearly defined and substantiated cost allocations
• full operating income statement in compliance with GAMAP
• full asset register in compliance with GAMAP
• full responsibility for long term asset management
• full responsibility for income
• full responsibility for customer management
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Allocation of support functions and shared service centres:
At present, support services (such as finance, billing, information technology and
human resources) are rendered by other departments in the city administration.
Although ring-fencing as defined above would seem to imply that all of these
support services should now be housed within the ring-fenced unit, this is not
necessarily the case. The water services unit will need to embark on a process of
negotiation with the “corporate centre” as to the best arrangements for the city
as a whole for the allocation of these support functions. One option which will be
explored is that of a “shared service centre” which would provide core support
functions to a number of trading services. In this scenario, service level
agreements can be struck between the water service unit and the shared service
centre (or any other agency – whether internal or external – providing a service
to the unit). The motivation for a shared service centre is that this can achieve
economies of scale and avoid possible duplication. The policies, strategies and
details of these arrangements are being investigated by the city and it is too
soon to report on likely outcomes from this process.
Area delivery model:
An area delivery model is being developed for the city as a whole. The
relationship between this and a ring-fenced water services unit is still in the
process of being defined.
Customer interface:
The respective roles of the ring-fenced water business unit vis-à-vis other
trading services, a “shared service centre” and the “corporate centre” for the
interface between the Council and citizens/customers are still in the process of
being defined.
Current institutional arrangements:
At present, and until the institutional reforms are implemented, the structure
of the water and wastewater department is as follows:
• A member of the Executive Committee is responsible for trading services
(another member is responsible for finance).
• The Council has a portfolio committee for trading services and a separate
portfolio committee for finance.
• An executive director for trading services has been appointed.
• There is an acting director for water services (a permanent appointment
is to be made shortly).
• There are permanent, acting or interim managers for the following main
functional area: bulk water, bulk wastewater, water and wastewater
reticulation. The staff are operating within the previous administrations
and the final organisational design and staff placements will be completed
by 1 January 2003.
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Current performance:
The Section 78(1) investigation included an assessment of current performance.
For details of this assessment, refer to the report “Assessment of Internal
Mechanisms for the Provision of Solid Waste, Water and Sanitation, and
Electricity Services” (City of Cape Town, November 2001).
Principles of organisational design:
The intention is to have a ‘flat’ structure with a maximum of five reporting
levels, with full delegation of authority and accountability to each cost centre
manager who will be accountable for their outputs based on the resources
allocated to them. In order to hold managers accountable for outputs, adequate
management information is required. Progressive and considered implementation
of the Enterprise Resource Planning (ERP) system and the setting up of a Water
Information Bureau will support this initiative. Crucial to the success of the ERP
system is the implementation of a maintenance management module which will,
inter alia, enable managers to manage assets optimally, track expenditure against
assets, compare the productivity of work teams, plan and balance resource
allocation. The control over inputs and the measurement of outputs will lay the
foundation for a solid performance management framework and system. It is
anticipated that the balanced scorecard will be adopted by the Council and
Water Services.
ISO 9002:
To enhance the world class status of the water services unit, it is the plan that
bulk water and reticulation will achieve ISO 9002 accreditation by 30 June
2002 with the wastewater treatment plants following by 30 June 2003. As part
of achieving accreditation, a Customer Charter has been developed and will be
updated on an annual basis with input from the customers. Compliance with the
Charter will be tracked through monitoring key outputs as well as by undertaking
regular customer satisfaction surveys. The process to achieve accreditation
involves business process mapping and re-engineering which is being linked to the
ERP implementation. Extensive staff training in Competency Based Performance
Management (CPM) and other training is being embarked upon and change
interventions undertaken to ensure business processes are optimised. ISO
audits will be done annually.
8.3 Financial planning in the context of uncertainty
The water services development plan has identified the capital expenditure
requirements over the next five to ten years. Detailed financial modelling has
been undertaken to ascertain the implications of this capital expenditure for the
sustainability and viability of the service. Before reporting on the outcomes of
this modelling, it is important to understand that any financing forecasts in the
present context are subject to significant levels of uncertainty for the following
reasons:
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86
Data uncertainty:
There is considerable uncertainty related to the data requirements for financial
modelling and forecasting in the following areas:
• The value of the assets. No comprehensive asset register exists and
estimates of the condition and value of current assets are highly
uncertain. This uncertainty affects the depreciation charge required with
the introduction of GAMAP.
• True operating costs. The real costs of operating water and wastewater
services are not know at this point in time. This situation exists because
water services costs, particularly those of support services, are recorded
in seven different accounting systems with different recharge systems in
place. The true operating costs will only be known once the business has
been ring-fenced and audited.
• Water sales for the base year. The volume of water sales for the base
year (the current year) is uncertain as a result of the impact of water
restrictions during the previous year (now lifted) and the complications
arising from need to assemble billing data from seven municipal billing
systems, making real time analysis of comprehensive city wide billing data
difficult.
Policy uncertainty:
There is uncertainty in the policy arena in the following key areas:
• Sanitation tariff policy. There is uncertainty related to the way in which
sanitation will be charged for in the future. At present, different
charging methods are used in different areas in the city, the two
methods being a combination of volumetric and fixed charges on the one
hand and rates based charges on the other. A draft sanitation policy has
been prepared which favours fixed charges combined with volumetricbased charges (in rather than rates funding and in accordance with
national guidelines), however, a final policy decision on this must still be
made.
• GAMAP. Generally Acceptable Municipal Accounting Practice (GAMAP) is
due to be implemented in July 2003. At this stage there is uncertainty
with respect to many of the detailed implications of the introduction of
GAMAP as well as the practical issues of moving from the present system
of municipal accounting to GAMAP. This uncertainty affects both the
format and content of financial forecasting.
Institutional uncertainty:
The water services is in the process of fundamental transformation. Many of the
broad issues related to this reform still need to be defined and strategies
chosen. Key uncertainties relate to the future of support services and the
management of the customer interface, including revenue collection and debt
management.
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87
8.4 Financial modelling – approach and outcomes
8.4.1 Approach to financial modelling
In view of the uncertainty identified above, a dual approach to financial
modelling was adopted. The first approach was based on a “business as usual”
approach, in which current practices are projected into the future. The second
approach was based on a strategic approach to modelling, the key intention being
for the modelling to help identify key strategic issues and choices faced by
water services and to provide a tool to explore the financial implications of
different choices. The base data and technical assumptions (such as the growth
in water sales, for example) used in each model is the same and the models give
similar results when converged to the same overall set of assumptions.
8.4.2 Capital expenditure
The capital expenditure current forecast is presented in Figure 8.1 below.
This compares to historical capital expenditure in the region of R250 million per
annum. Hence a significant increase in capital commitments is expected in the
future.
GO TO 2001/2002 Capital Budget for Water Services
Figure 8.1 Forecast capital expenditure (2001 Rands)
WSDP Capital investments
600
500
R million
400
wastewater retic
bulk wastewater
water retic
Bulk water
300
200
100
-
2003 2004 2005 2006 2007 2008 2009 2010 2011 2012
The strategic financial model highlighted the following issues:
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88
Services to formal low-income housing:
The provision for formal low-income housing is modest, about 13 000 units per
annum compared to a backlog of 240 000 units. The costs of the internal
(neighbourhood) reticulation related to this housing provision is not provided for
in the capital estimates shown at it is assumed that these costs will be financed
through housing related subsidies. It is assumed that all households living in
formal housing units have access to an adequate level of water and sanitation
services.
Services to informal housing:
The Council is committed to providing services to all households within its
municipal area subject to any relevant legal constraints. It is difficult to
accurately estimate the cost of providing basic services to households living in
informal settlements due to the fact that settlements are dynamic – some may
not be permanent, some may move and the number of households living in
informal settlements is likely to grow in future given the relatively low rate of
provision of formal housing opportunities. At present it is estimated that there
are 18 100 households without adequate water services and 53 100 households
without adequate sanitation services. The cost of providing a very basic (RDP)
standard of service to these households could be as little as R30 per household
for water and R110 per household for sanitation. This would provide for a
communal standpipe within 200m and communal waterborne sanitation facilities.
A three year programme to provide all existing households in informal
settlements with a very basic RDP standard services would thus cost about R7
million. The City intendes to put aside R5 million per annum to provide services to
households living in informal settlements and aim to supply all existing
households living in legalised informal settlements with adequate water services
by the end of 2002 and with adequate sanitation services by the end of 2004. A
more detailed programme is in the process of being developed. At this stage
informal settlements situated on private land (unauthorised settlements) are
precluded from being supplied with basic services.
Provision for renewals:
In order for the water and sanitation service to be sustainable over time it is
necessary to implement an ongoing asset renewal programme. Available evidence
suggests that the current asset renewal programme is inadequate. For example,
it is estimated that at the current rate, it would take more than 300 years to
replace the water pipe network. Clearly this is not sustainable given the
assumption that the life of the water network is estimated to be about 50
years. The WSDP capital estimates do not include an asset renewal programme
which would result in a sustainable service over time. This is an area that needs
further investigation.
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89
Bulk wastewater estimates:
The bulk wastewater capital estimates are largely based on a 1997 strategic
review of the bulk wastewater network. A number of strategic issues have
arisen subsequently and this work is in the process of being revised. One
important area of investigation is the extent of stormwater infiltration and
mechanisms to reduce this. Another important area of investigation is the
estimated growth in treatment capacity required. This investigation is still in its
early stages (it commenced in November 2001) and its outcomes may have
important implications for future capital cost estimates for bulk wastewater.
8.4.3 Financing
Current cost of capital:
The current average cost of existing capital debt is estimated to be 15.5% per
annum. This is a rough estimate as a consolidated portfolio of water and
sanitation loans is not available for the city as a whole. Clearly this cost is very
high relative to the market interest rates. One could expect the cost of
borrowing for a well run and financially viable metropolitan water utility to be in
the region of prime to prime less 2, that is, in the region of about 11% to 13%.
Gearing:
Total outstanding debt is estimated to be R1.2 billion. Assuming an asset value of
R10 billion (revalued), then the debt to equity ratio is about 0.14. This indicates
that the water services operation is considerably under-geared at present and
significant scope exists to raise loans to finance future capital spending.
Sources and cost of finance:
The ring-fencing of the water service operations creates an opportunity for the
business to develop a new financing strategy. This strategy should comprise the
following:
• Re-negotiation of outstanding loan conditions with the city to realise a
more market-related interest rate.
• Raising loans from banks at competitive interest rates.
• Consideration of the placement of bond for the raising of finance.
• Consideration of private financing arrangements through, for example,
build-operate-transfer contracts for lumpy investments such as new
wastewater treatment plants. For first such an opportunity is being
explored for the Zandvliet Wastewater Treatment Works.
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90
8.4.4 Customer Debt
The outstanding customer debt for water is estimated to be about R460 million
at present. This is equivalent to eight months of water sales. An estimate of the
customer debt for wastewater is not available. Arguably, it is likely to be of a
similar magnitude to the water debt. The water customer debt balance is
increasing at a rate of about R50 million per annum.
If the rate of collection of wastewater rates and service charges is the same as
that for water, then the average revenue collection rate is estimated to be
about 90%. This is low compared to international best practise of 98% and
African best-practice of 95%.
Improving revenue collection is of critical importance to the sustainability of
water services. This will require a multi-pronged strategy comprising:
• Improved customer interface
• Customer education
• Improved billing (both simpler and more informative)
• Improved accessibility to payment facilities
• Affordable tariffs incorporating a pro-poor element (as currently
provided for through free basic water)
• Improved credit control and debt collection
These strategies are integral to the restructuring process reported on above.
8.4.5 Provision for depreciation
GAMAP will require that assets are depreciated over their useful life and that
the cost is included on the income statement. This could have a significant
impact on the income statement. Assuming an asset value of R10 billion (the
WSDP estimates a replacement cost of R16 billion) and a depreciation rate of
2% straight-line (in other words, the assets are “used up”, on average, over 50
years), then the annual depreciation charge will be of the order of R200 million
per annum.
8.4.6 Operating costs
The strategic financial model investigated future operating costs for water
services (water and wastewater) in some detail. The following cost drivers were
identified: staff, maintenance, bulk water purchases from DWAF, electricity,
chemicals and “other expenses” (a grouping of the remaining expenses). One
possible scenario for future costs is presented below. The costs are expressed
as c/kl of water sold (in 2001 Rands) as well an in percentage terms. The results
of the analysis should be regarded as indicative only given the uncertainty of the
base data as already discussed above.
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91
On the basis of this analysis the following comments may be made:
Overall operating costs (expressed as c/kl of water sold) are expected to
increase in real terms in future, though not very significantly (the indicative
scenario shows an increase of 14% over 5 years). The primary reasons for this
are the increase in maintenance costs and bulk purchase costs.
Staff costs (expressed as c/kl of water sold) are forecast as staying constant
in future. This means that as proportion of total costs, they will decline. Given
that staff costs account for 30% of operating costs at present, it seems
reasonable to expect that this ratio should drop over time, down to 25% or
lower in the medium term. Until a detailed organisational design exercise has
been undertaken and a more detailed business plan for the ring-fenced business
developed, it is not possible to accurately forecast staff costs.
Maintenance costs currently account for about 10% of operating costs. These
costs are forecast to rise in real terms in future as it is believed that
expenditure on maintenance at present is not adequate to maintain the assets in
good working order.
Bulk water purchase costs from DWAF will increase in real terms in future.
This is primarily as a result of Skuifraam Dam.
Electricity and chemicals together make up about 15% of operating costs.
Chemical costs are forecast to increase in real terms as a result of a
depreciating Rand. In this scenario, electricity costs were forecast to remain
constant in real terms.
Other costs make up 38% of total costs. This is very high by international best
practice standards. In this scenario, these costs are forecast to decrease by 3%
per annum (in real terms). This would result in the “other costs” accounting for
18% of operating costs in year 10. This forecast is highly speculative and is
contingent on the outcomes of the restructuring and business reengineering
processes.
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92
Figure 8.2 Operating costs - indicative scenario
Operating costs ("pure") - real
450
400
350
c/kl sold
300
250
200
150
100
50
2002
2003
2004
staff
chem
2005
2006
maint
elec
2007
bulk dwaf
other
2008
2009
2010
2011
2012
bulk skuif
Figure 8.3 Operating costs expressed as %
Cape Town Water Services: Contributions to operating costs
100%
90%
80%
70%
60%
50%
40%
30%
20%
10%
0%
2002
Staff costs
2003
2004
Maintenance
2005
2006
2007
Bulk purchases (incl Skuif)
2008
Electricity
2009
2010
Chemicals
2011
2012
Other costs
8.4.7 Tariffs
For details on the current tariffs and policies refer to the following
documentation:
GO TO
GO TO
GO TO
GO TO
GO TO
Sanitation Tariffs
Bulk Water and Reticulation Tariffs
Bulk Water Tariff Policy
Consumptive Water Tariff Policy
Sanitation Tariff Policy
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
93
Future water and wastewater tariffs are dependent on a number of factors,
including:
• Sanitation tariff policy
• Level of capital expenditure
• Sources of finance and cost of capital
• Value of assets and depreciation policy
• Rate of collections and provision for bad debts
• Actual water sales
For the reasons already identified and discussed above, a significant degree of
uncertainty is attached to all of these factors. Therefore, it would be unwise to
predict future water and wastewater tariffs into the future at this stage.
Nevertheless, based on the detailed financial analysis undertaken to date using
both the “business as usual” and “strategic” financial models, and subject to the
limitations already expressed, it may be concluded that it is highly likely that
tariffs will need to increase in real terms significantly during the next three to
five years in order to ensure that the water services unit is financially viable and
sustainable.
8.5 Affordability
8.5.1 Introduction
The broad issue of affordability of basic services including water services is key
to the development of any successful and sustainable Water Services
Development Plan (WSDP). A number of key strategic issues are imbedded in
this broad area including:
• The realistic establishment of sustainable tariffs,
• Determining appropriate service levels across different consumer types,
• The nature and scope of any indigent policy,
• The development of a customer care/management facility to improve the
interface with customers,
• The implementation of an affective credit control policy,
• The development of an effective metering and billing system to span all
categories of customers,
• Without an accurate understanding of the affordability of services, the
strategic interventions required in the areas outlined above will be
severely undermined.
8.5.2 Package of services and affordability
Affordability of services and housing is directly linked to what people are willing
to pay for the services they receive. Willingness to pay depends largely on the
value each household attaches to a particular service. This is highly dependent
on local conditions and there are not universally applicable figures which can be
applied.
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94
Ideally willingness to pay studies should be carried out before a service is
provided. However, this is often not possible and reliance needs to be made on
‘rules of thumb’ in order to take planning decisions. The following represents a
‘rule of thumb’ approach based on work which Palmer Development Group has
done nationally. It illustrates households’ willingness to pay for various services.
It is notable that, in most instances, 10% of the income is regarded as the
maximum amount a household would be prepared to allocate to service payments.
The assumption is made that households are willing to pay more, in relative
terms, for water and electricity than the other services.
8.5.3 Household income profile
An analysis of household incomes in the metro indicates that there is a
significant portion of the population that currently are at risk of not being able
to afford the services they are currently receiving. The graph below illustrates
that approximately one third of the households in the metro earn less that
R1100 per month (this is presently the poverty threshold used to calculate
equitable share allocations). Using established and accepted norms, this suggests
that this group of households will be able to afford to pay no more that R110 per
month in total for services they receive (10% of gross income), and R33 per
month for water (3% of gross income).
Figure 8.4 Household Income distribution (2001 rands)
HH income distribution
25.0
% HH
20.0
15.0
10.0
5.0
Over
R36750
R1960136750
R1347619600
R980113475
R73519800
R44927350
R42884491
R30634287
R18383062
R12261837
R613-1225
R246-612
R1-245
None
0.0
R/m
This picture is exacerbated when one considers that over 25% of the households
earn less than R612 per month, implying that these households would be able to
pay no more than R61.20 per month for their total package of services and no
more than R18.36 for water. Most of these households however report no
income at all and would not be able to afford any level of service.
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8.5.4 Water bills and affordability
The following graphs indicate the extent to which water bills match the
affordability profile of households in the metro. The solid line in the graph
below illustrates actual water bills generated using current tariffs and
consumption profiles. The dotted line illustrates that amount that households
are able to pay for water. The area where the dotted line falls below the solid
line represents the affordability gap, i.e. where households are not able to
afford their water bills.
Figure 8.5 Affordability of water services (current tariff)
HH n
Water Bills vs affordability (current tariffs, 3% HH income)
R/m
Water bills
Affordability
Figure 8.6 Affordability of water services (tariff doubled)
HH n
Water bills vs affordability (2x tariffs, 3% HH income)
R/m
Water bills
Affordability
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96
The affordability gap in the first scenario (based on current tariffs and
consumption levels) represents approximately 25 of households in the metro.
The second graph is based on a scenario where current tariffs are doubled and
water consumption is held constant. In this scenario, the affordability gap
extends to all customers in the metro indicating that these tariffs would be
completely unsustainable from an affordability point of view.
8.5.5 The view from the ground – insights from case studies and focus
groups
In late 2000 and early 2001, Palmer Development Group, in association with
Markinor conducted a number of focus group discussions with household heads
from a number of communities across the metro. The anecdotal responses adds
texture to other quantitative analyses of affordability of services in the metro.
Some of these responses are sketched out below.
On payment for services:
• It is the “right thing to do”,
• “I feel that we should not be paying for water because it is natural and it
•
•
•
is for free anyway”,
“Nobody manufactures water, they can make us pay for electricity, but
not for water”,
“We are getting water free of charge from God and he does not make us
pay”.
Unemployment was sited as a key reason for non-payment, although a
range of other contributory factors were identified.
Irregular and Inadequate Services:
Residents also expressed their unwillingness to pay for irregular and inadequate
services. They expressed particular concern about inadequate sanitation and
refuse removal services. For example, in Brown Farm eight toilets were serving
seven hundred people. Many residents also complained of blocked toilets. In
Wesbank residents complained about the inadequate garbage removal services.
• "I have raw sewage in my backyard. Why should I pay (for services) when
I clean the mess myself and it is not even my mess but I have to clean it.
To pay just does not make sense to me."
Inadequate Billing and Revenue Collection
Residents stated that non-billing, inaccurate and incomprehensible statements
made payment difficult. Payment offices were seen as inaccessible and residents
did not want to pay for transport to get there.
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97
Unresponsive Service Provision
Residents complained about a lack of response from municipal servants.
• “When I moved in there, I wrote the council a letter saying that they
•
•
must send me a bill for the rates and sewerage, because I was getting
worried, and I waited 5 years for an answer. Then I went to someone
from the council, Mr Meysenheymer, and I had to go to him 4 times to
get a response about my rates and taxes” (Markinor, 2000:28)
“The one day my toilet was blocked, so I phoned them and asked them to
repair it. They told me they would be there shortly. Late that night when
my husband got home, I had to ask him to do it.” (Markinor, 2000:26)
"What makes me cross is that we are always the ones bringing these
problems to the council’s attention. Why don’t they send someone out to
see to all these things and see what's going on and what's wrong in the
areas." (Markinor, 2000:40)
8.5.6 Conclusions
From the quantitative and qualitative analyses outlined above, a number of
conclusions can be made regarding affordability and the non-payment for
services, including:
• Communication. Clearly there is a need to communicate with customers on
a variety of issues including; explaining what drives services charges,
responding to customer queries, etc.
• Billing systems. From anecdotal observations raised in the focus groups,
it is clear that the current billing system needs to be improved to cover
households currently not billed.
• Improved service quality. A significant contribution to non-payment
appears to be dissatisfaction with the current quality of services.
• Indigents policy. With almost 20 % of households in the metro reporting
no monthly income, an indigent policy is key to avoiding a social and
economic disaster in certain areas.
• Water Demand Management. An effective way of reducing household
bills for services is to reduce consumer demand on a sustainable basis.
This, if effective, will essentially reduce the affordability gap.
• Access to equitable share. The affordability analysis shows that the
potential extent of cross-subsidisation within the water sector is limited.
Therefore it is important that water services motivate for an appropriate
share of the equitable share subsidy received by the City of Cape Town in
order to provide adequate services to all.
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8.6 Summary of strategic issues
The institutional and financial analysis undertaken for the water services
development plan has highlighted the following strategic issues:
Organisation transformation:
The water services are currently in the process of being restructured into an
autonomous ring-fenced business unit. The following strategies are being
pursued:
• Organisational design
• Establishing a ring-fenced accounting entity
• Resolve the question of shared service centres and role of support
services
• Separate the roles of the service authority and service provider and
develop a contractual relationship between the two.
• Implement performance management and get ISO accreditation
• Implement ERP
• Resolve area delivery model and implications for business unit
Customer and Revenue Management:
Current water customer debt is about R460 million, representing 8 months of
sales. Revenue collection needs to be improved and non-payment reduced. The
following strategies have been identified:
• implementation of credit control policy,
• implementation of indigent policy,
• resolution of customer management responsibilities within Council,
• implement universal metering and billing,
• implement informative billing.
• Customer education
• Improved accessibility of payment facilities
Future infrastructure requirements:
The capital expenditure needs is in excess of R2 billion over the next 5 years.
This is likely to require significant increases in tariffs in real terms in order to
ensure the financial viability and sustainability of the service. The following
strategic issues have been identified:
• Planned provision of formal houses is inadequate to reduce the housing
backlog
• Provision of basic services to households living in informal housing is
expected to require an expenditure of R114 million. Actual investments
are subject to legal constraints as many informal settlements are
situated on private land.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
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A realist programme for the renewal of existing assets needs to be
investigated and developed.
The bulk wastewater capital expenditure estimated are subject to a
strategic review which is currently in progress. This addresses the
impact of the DWAF 2010 standards, stormwater ingress and growth in
wastewater effluent requiring treatment.
Financing:
The current average cost of capital is high. The following strategies need to be
pursued:
• Re-negotiate loan portfolio with the city
• Investigate alternative financing options including bank finance, bonds
and private financing.
Financial modelling and tariffs:
Given the uncertainty in the base data, the policy uncertainty and institutional
uncertainty, the financial modelling undertaken cannot be used to make
commitments to financial and tariff targets. The financial analysis has revealed
the following strategic issues:
• Operating costs are likely to increase in future in real terms, though not
significantly
• The practical implications of GAMAP still need to be investigated in more
detail.
• The sanitation tariff policy needs to be finalised and implemented.
• Tariffs will need to increase in real terms in the next few years though it
is not possible to say by how much until many of the significant
uncertainties identified above have been resolved.
Affordability:
The affordability analysis shows that overall household affordability is
constrained, that there are limits to the extent to which cross-subsidies are
sustainable, and that it is not possible to increase tariffs significantly without
addressing the issue of affordability, indigent policy and subsidies (including the
equitable share) in a systematic and considered manner.
Management Issues:
Apart from the bulk system model compiled for this study, detailed network
models exist for most areas which links to the CMC bulk system models.
Existing modelling technology allows the following:
• Easy updating of computer models from “as-built” plans.
• Linking of models to bulk meter and revenue meter data for:
• Updating of model demands
• Calculation of UAW
• Merging of bulk system and secondary models.
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Against this background, there is a good opportunity for the City of Cape Town
to establish a water services information “bureau”, which will be assigned to
continuously update all models and their demands/UAW’s. With the information
and technology at hand, such a bureau can also do integrated system planning,
and handle ad-hoc queries regarding the individual systems.
The bureau function could be outsourced to and managed by a consultant, with
seconded staff from the various local authorities.
This will ensure a
concentration of expertise, and continuity, which is difficult to achieve in a
typical local authority structure. Another option would be to form some sort of
public-private partnership to run the bureau function. The bureau could “post”
the information to a GIS based viewer, in the form of graphs, reports and maps,
which are accessible by all management levels in the various local authorities,
without the need for computer literacy.
9 Summary of Key Issues Affecting Water Services and
Strategic Recommendations
A summary of the “issues” that influence the provision of water and sanitation
services in the City of Cape Town area is herewith provided in the attached
table. Strategic recommendations and a program are also proposed.
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Table 9.1 Summary of Key Strategic Issues, Strategies and Programme
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10 Business Plans and Key Performance Indicators
The Business Plan of Water Services is herewith included (Table 10.1) or view the full document entitled “Business Plan.pdf ” GO TO. A
provisional list of Key Performance Indicators (KPI’s), which will be implemented to improve and monitor the delivery of water services are
summarised in
Table 10.1 Water Services Business Plan
WATER SERVICES BUSINESS PLAN 2001/2002 - 8 OCTOBER 2001
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Bulk water supply, water distribution, sanitation, wastewater treatment.
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Approximately 99% of residents have access to at least basic water services
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Approximately 90% of residents have access to full services
Our Proposed Vision.
The picture of the future we seek to create…
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Your world class water services provider
Our Proposed Mission.
Our sense of purpose ...
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Providing our customers with quality, affordable and sustainable Water Services in Cape Town and
surrounding areas while carefully managing our scarce water resources and the impact on the environment
Our Proposed Values.
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Build Respect: Show respect for people, property, water and the environment
Staff Empowerment: Maximise empowerment opportunities
Trust through integrity: Build trust by telling it like it is
Innovation: A learning organisation innovates and changes continuously for better value
Build partnerships and teams: The whole is greater that the sum of the parts
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Free allocation of basic water
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Transformation into a world class water services provider
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Financial accountability and sustainability
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The establishment of a comprehensive customer care and management strategy
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Ensure quality, sustainable and affordable services to all
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The establishment of a comprehensive water management strategy
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Operating budget R1,1b, Capital Budget R410m. To be finalised
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Staff of 3400
Services Definition
The way we want to act, consistent with our
mission, along the path toward achieving our
vision ...
Our strategic objectives
Short and Medium term objectives…
Resources
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Table 10.2 Provisional List of Key Performance Indicators Affecting Water Services Delivery
WATER SERVICES DEVELOPMENT PLAN OF THE CITY OF CAPE TOWN
Comments:
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