WATER POLICY IMPLEMENTATION PROCESS
PROTECTION AND ASSESSMENT POLICY IMPLEMENTATION TASK TEAM (PAPITT)
RESOURCE DIRECTED MEASURES PHASE 2
PROGRESS REPORT FOR THE PERIOD OCTOBER/NOVEMBER 1998
1. Introduction
*2. project management
*2.1 Financial status
*2.2 Steering Committee
*3. Progress on individual sub-projects
*3.1 Summary
*3.2 Rivers - water quantity
*3.3 Rivers - water quality
*3.4 Rivers - habitat objectives
*3.5 Rivers - ecoregional mapping
*3.6 Groundwater
*3.7 Estuaries
*3.8 Wetlands
*3.9 Classification system
*3.10 Capacity building strategy
*3.11 Communication strategy
*3.12 Crocodile River pilot test
*3.13 Integration
*4. Collaboration with the Water Research Commission
*
Prepared by Dr H MacKay, IWQS (Project manager)
This report covers the work done during the period 1 October 1998 to 30 November 1998, within Phase 2 the project to develop Resource Directed Measures (RDM) for water resource protection.
An overview of the work to be carried out in Phases 2 and 3 of the RDM project (August 1998 to March 2000) can be found in the project terms of reference, which was included as an appendix to the progress report for August/September 1998. The terms of reference can also be found on the web page at address http://www.dwaf.gov.za/iwqs/cgi-bin/wg/waterlaw.pl
For more information on any of the issues in this report, contact Dr H MacKay, IWQS.
The financial status of the project is summarised in Table 1 below.
Table 1: Financial status of the RDM project as at 26 November 1998
Budget 97/98 |
Spent 97/98 |
Budget 98/99 |
Spent 98/99 |
||
| Phase 1 | Jul 97 - Mar 98 | 200,000 |
206,383 |
||
| Phase 1 | Apr 98 - Jul 98 | 300,000 |
304,654 |
||
| Phase 2 | Aug 98 - Mar 99 | 660,000 |
133,638 |
||
| Totals | 200,000 |
206,383 |
960,000 |
438,292 |
A departmental steering committee for Phases 2 and 3 RDM initiative has been constituted. Nominations have been requested from:
The nominations received to date are:
Mr Elias Nel, Hydrology
Mr Johan van Rooyen, Water Resources Planning
Mr Peter van Niekerk (occasional), CD:Planning
Mr Bill Rowlston, Strategic Planning
Mr Kelvin Legge, Social and Ecological Services (alternate Ms Valerie Kilian, who is also a specialist on the project team)
Dr Steve Mitchell, Water Research Commission
Dr Henk van Vliet, CD:Scientific Services
Mr Yongxin Xu, Geohydrology, who is also a specialist on the project team
Mr Pieter Viljoen, Water Quality Management
The first steering committee meeting will be scheduled for early in 1999.
3.
Progress on individual sub-projects
The RDM project is on track regarding budget and work progress. The first draft procedures for determination of the preliminary rivers and groundwater reserves have been produced and are available on the project web site http://www.dwaf.gov.za/iwqs/cgi-bin/wg/waterlaw.pl
The procedures have been tested on a reach of the Crocodile River, and refinements will be incorporated into the draft document during December. The second draft should be available in early January 1999. The final document is expected to be ready by 31 March 1999.
Team Leader: Delana Louw, IWRE
The draft procedures for setting the water quantity aspect of the ecological reserve in rivers were developed prior to this reporting period. The major activity in the October/November period was the testing of these procedures in the Crocodile River pilot test. This is discussed in more detail in section 3.12. The procedures for determination of the reserve are being refined following the pilot test.
During the pilot test, a considerable amount of time was spent on developing the conceptual links between instream ecological flow requirements and the levels of assurance associated with different ecological management classes. The team recommended that the water quantity group be reconvened at a later date, in order to allow time to complete this development work, using real examples from previous IFR studies. A workshop has been scheduled for 20 January 1999, which will be funded by the Water Research Commission, under the project "Investigation into the feasibility of using a risk-based approach for setting integrated environmental objectives for water resources". The results of this workshop will be incorporated into the classification system and the procedures for determining the reserve.
Some members of the project team also participated as specialist consultants in the Project Planning study to determine the ecological management class and ecological reserve (quantity only) for the lower Mhlathuze system. This also served as a test of the draft procedures and the classification system. The Mhlathuze study will be intensively debriefed as part of a new sub-project to develop guidelines for selecting the management class of a water resource (see section 3.9).
Team leader: Dr Andrew Bath, Ninham Shand
Work done in October
Work done in November
3.4 Rivers - habitat objectives
Team Leader: Liesl Hill, IWQS
3.4.1 Development of generic habitat objectives for ecological classes A to F
A first draft document has been produced. The purpose of this document was to develop a set of generic rules for setting instream and riparian habitat objectives for rivers, similar to those developed for water quality within the ecological classification system. The habitat rules should be applicable to rivers, but may also form a template for later development of similar rules for estuaries and wetlands.
During the Crocodile pilot study of 2 – 5 November it was attempted to set objectives for the instream and riparian habitat (non-flow related aspects) of two sites on the Crocodile river, by applying the generic rules proposed for the above task. The group (Neels Kleynhans, Nigel Kemper, Liesl Hill) concluded that "sensitivity maps" are necessary in order to categorise what type of rivers would be sensitive for specific activities such as sand mining. It was suggested that such "sensitivity maps" be investigated further (probably to be addressed in the sand mining task).
(i) The first draft of the above mentioned guidance document was sent out for comment to CD:SS on 19 November, and to Nigel Kemper and Roy Wadeson on 26 November.
It has been identified that inputs are also necessary from:
Discussions will be held with the relevant persons early in 1998.
The purpose of this document is to serve as guidance for decision makers who are specifically involved in the review of sand mining and gravel extraction projects to:
Although the initial task required draft regulations to be developed for the impacts of sand mining on instream and riparian habitat, the emphasis of this document is on guiding decision makers as mentioned above. With further development and input, regulations for the impact of sand and gravel mining on instream and riparian habitat, can be formulated.
(ii) Sites were visited on the Orange River on 14 October together with DWAF Northern Cape and Dept of Mineral and Energy Affairs (DMEA) where applications have been received for diamond prospecting and mining. The purpose of the visit was to investigate the potential impacts of these activities on the instream and riparian habitat, and to draw up preliminary guidelines for dealing with such applications.
(iii) Discussions were held with Dr JSV Reddering from the Council for Geoscience on 27 October, regarding the impact of sand and gravel mining on aquatic ecosystems. A project proposal on the Environmental effects of sand and gravel mining in rivers is to be submitted to the Council for Geoscience of which Dr Reddering is the proposer. He also intends to submit the project in 1999 for WRC funding. Further liaison and discussions will take place within this financial year and it is foreseen that Dr Reddering will be a key person in the intended development of regulations.
3.5 Rivers - ecoregional mapping
Team Leaders: Dr Neels Kleynhans, IWQS and Mr Nigel Kemper, IWRE
The delineation of ecoregions is an integral part of steps 1 and 2 in the Reserve procedure. A preliminary delineation of ecoregions (rivers) has been mapped at level I for the country, and a prototype procedure has been developed for delineating level II and III ecoregional boundaries.
The mapping of the level II ecoregions for South Africa is essential, in order to provide this key supporting information for future determination of the reserve and resource quality objectives. A project will be initiated in Phase 3 to undertake this task. The ecoregional mapping, as well as incorporating information relevant to surface freshwater ecosystems, will also incorporate information on geohydrological characteristics.
Team Leader: Roger Parsons, Parsons & Associates
Roger Parsons, Mike Smart and Yongxin Xu participated in the pilot test of the preliminary reserve procedures at the Crocodile River 2-5 November. Following this test, the procedures for preliminary classification and determination of the reserve for groundwater resources are being refined, and the Crocodile River study will be included as a worked example.
Two workshops were held with the Water Research Commission and members of the new WRC research programme related to methods for determination of the groundwater reserve. The outcome of these workshops, and proposed collaboration with the WRC, are described in section XX.
Team Leaders: Prof Guy Bate, UPE and Barbara Weston, Social & Ecological Services
The initial planning workshop was held in Port Elizabeth on 1 October. Barbara Weston, Heather MacKay, Guy Bate, Tris Wooldridge, Janine Adams and Piet Huizinga participated. The two-day specialist workshop has been scheduled for mid-January 1999. A starter document for that workshop has been drafted and circulated for comment, and will be distributed to workshop participants in December.
Several members of the Department of Environment Affairs and Tourism and provincial environment departments will participate in the two-day specialist estuaries workshop. The Water Research Commission has been approached to contribute financially towards the expenses of the workshop.
Team Leaders: Andrew Duthie, Oryx Environmental, and Derek Weston, IWQS
Work for the above period centred on planning and preparation for a wetland specialist workshop that will be held at the end of January 1999. The objectives of the workshop are:
A list of specialists with relevant wetland expertise and their contact details was drawn up and notification of the workshop has been sent out to potential participants. Participants who responded positively to the notification will be sent official invitations during December. A total of 28 people will be attending the workshop.
Several members of the Department of Environment Affairs and Tourism and provincial environment departments will participate in the two-day specialist wetlands workshop. The Water Research Commission has been approached to contribute financially towards the expenses of the workshop.
Preparation of a starter document for workshop participants is currently underway. This document will be completed and posted to workshop participants by 15th December 1998. Work to be completed during the next reporting period includes logistical preparation and the running of the workshop.
Team Leaders: Dr Heather MacKay and Toni Belcher, IWQS
Classification of water resources is one of the steps in the generic six step procedure for determination of the reserve, so development of the classification system has been integrated into the development of the procedures for determining the reserve. Classification sub-systems will be developed for rivers, wetlands, estuaries and groundwater resources. (The generic six step procedure was included as an appendix in the progress report for August/September, and can also be found on the web site.) There are three aspects to classification of water resources: classification rules for ecosystems, for basic human needs, and for water users.
The classification rules have been furthest developed for ecosystem protection, and include rules for setting quantity, quality and habitat objectives for a selected class, for a particular water resource. Work began on the rules for classification for water users (domestic, agriculture, industry and recreation), but this development had to be set aside in order to develop the set of general authorisations for water use in time for publication in December.
The classification system itself is simply a set of rules for deriving quantitative resource quality objectives: we also need guidelines for selecting a management class for a water resource. Two aspects are particularly important:
Following on from the workshop held in Stellenbosch in August 1998 (covered in the August/September progress report), a sub-project is being initiated to develop "Consultation Guidelines for Classification of Water Resources". The first phase of this sub-project will run in the first quarter of 1999.
3.10 Capacity building strategy
Team Leader: Sandra Fowkes, Metaplan
A workshop was held on 9 & 10 November, to draw up the framework of a long term strategy for building capacity to implement resource directed measures. The proceedings of the workshop are currently being written up. The next steps include development of the detail of various aspects of the framework strategy.
A national reserve conference is being planned for October 1999 - this will be a technical working conference, intended to transfer specialist knowledge to a wider group of people in the country, related to determination of the reserve for rivers, groundwater, estuaries and wetlands. It will also serve as a vehicle for national, and possibly international, peer review of the scientific and technical aspects of the reserve procedures.
Two training workshops have been scheduled for January 19 & 20 and February 4 & 5. These two-day workshops are intended to build skills in managing multi-stakeholder processes related to water resources management. They will follow the format of the two workshops held in March 1998 (which are described in the report "Building capacity to manage and participate in multi-stakeholder processes related to water resources management in South Africa", by H Schrijver and H MacKay). For more information and bookings, contact Sandra Fowkes, telephone 021-788 7123, email metaplan@pixie.co.za
Team Leader: Tisha Greyling, Manyaka Greyling Meiring
The following key activities were completed in the last two months:
Compiled framework for Brochure.
Meeting with Heather MacKay to discuss framework.
Compiled first draft for Brochure text, started sourcing graphics and photographs.
Commenced database for RDM project.
Attend capacity building workshop on 9 and 10 November 1998
Next steps:
Finalise database for wide distribution.
Submit Brochure text for consideration by Heather MacKay and then by all Integration team members.
Attend Integration workshop on 7 December 1998.
Update Brochure text and finalise.
Submit text, graphics and photographs to Repro House in early January 1999.
Attend 1999 Integration meetings as required (last Monday of the month from 13:00 at CSIR).
Contact with 50/50.
Media release upon publication of Brochure.
Editing/re-packaging of Discussion Document for wide distribution.
3.12 Crocodile River pilot test
During the week of 2 - 5 November, the first pilot study to test Preliminary Reserve methods was held in Nelspruit. The Preliminary Reserves for the quantity, quality and groundwater aspects were determined for a section of the Crocodile River from Kwena Dam to Nelspruit.
The first day focused on presentations on all the preparatory work undertaken as required for the setting of the Preliminary Reserve. The next day included an on site exercise during which the Quantity Preliminary Reserve was set. This was followed by a demonstration and explanation of the methods and results for both the quality and groundwater Preliminary Reserves. A debriefing was undertaken during group sessions during which specific problems were discussed. Specific attention was focused on the possibilities of following a risk-based approach by means of determining different assurances of maintenance and drought flows for different classes of rivers.
The water quality reserve required additional refinement, and this was completed at a work session held in Cape Town in late November.
One of the most interesting aspects of the test was the attempt for the first time to quantify the groundwater contribution to baseflow in a surface water resource, and hence to determine allowable groundwater abstraction in the vicinity of the river.
All specialist documents that require refinement are to be finalised between end November and mid December. This includes the different sections of the Crocodile River pilot test. The pilot test writeup will be included in the reserve procedures document as a worked example.
The selection criteria for identification of a pilot test study area for 1999 were discussed but no decision has yet been made.
Team Leader: Dirk Roux, CSIR
The integration sub-project activities cover integration between the sub-projects within RDM, as well as integration with other PITT activities as necessary. Monthly integration meetings are held in which all the sub-project leaders participate.
3.13.1 Water use authorisations
In the October/November period, members of the RDM project team made input to the list of general authorisations for water use, and to the project to develop revised waste discharge standards.
3.13.2 DWAF business procedures
As part of the implementation planning process, several workshops were hold in October to begin developing DWAF business procedures for determination of the reserve. The first draft of these technical and administrative procedures was mapped out in a two-day workshop, attended by representatives of the relevant Chief Directorates. Although this is not directly a part of the RDM project, rather being the responsibility of the Directorate: Social and Ecological Services, it is hoped that the development of the detailed business procedures will be completed, since this was an extremely valuable exercise.
It is assumed in the draft business procedures that Water Services will be responsible for determination of the basic human needs reserve for individual water resources, and that they will make this information available as required for reserve determination and licensing of water use. Further discussions will be held with Water Services to clarify this responsibility.
The provincial assessments of ecological water requirements are under way. The ecological importance and sensitivity classes, which are part of these assessments, represent a preliminary classification of rivers on the basis of quaternary catchments. The final ratings of all the quaternary catchments will be checked and moderated by a Department committee, beginning in February 1999, then returned to IWQS, and a colour-coded map will be produced by mid-1999.
There is a steady stream of requests for presentations on resource protection and the reserve. The following formal presentations were given in the reporting period:
Roux & MacKay (1998). Resource-Directed Measures under the new Water Act. Proceedings of the Colloquium of the SA Institute of Mining and Metallurgy, Pretoria, 19 Nov 1998.
MacKay & van Vliet (1998). Water quality management and pollution control in a changing regulatory environment in South Africa. Proceedings of the Conference of the Royal Society of South Africa, Cape Town, 11-13 Nov 98.
MacKay HM (1998). Implications of the new Water Act for ecosystem protection. Presentation to the Biodiversity Sub-Committee of the Inter-Departmental Co-ordinating Environmental Committee, Pretoria, 20 Oct 1998.
3.13.5 Ongoing Reserve determinations
Several members of the project team worked as specialist consultants on the project to determine the ecological reserve (quantity only) for the lower Mhlathuze system (Directorate: Project Planning). Heather MacKay acted in a review capacity.
Several members of the project team will act as specialist consultants in the determination of the ecological reserve for the Olifants (Mpumalanga) (Directorate: Project Planning).
A discussion was held with consultants for Eskom regarding the feasibility study for the proposed Mutale River pump-storage scheme. The purpose of the discussion was to identify the reaches within which a reserve determination would be required, and the level of reserve determination which would be required.
4. Collaboration with the Water Research Commission
The Water Research Commission is actively supporting the development and implementation processes, as described below.
Workshops were held on 6 October and 6 November, arranged by Dr George Green. The WRC has allocated R1.5 million over the next three years, to be used within a research programme to develop methods for comprehensive determination of the groundwater reserve. Initial programme members include a group of groundwater researchers, members of the Directorate: Geohydrology, and members of the RDM team (Roger Parsons and Heather MacKay). A programme was designed, which is intended to deliver a set of manuals for groundwater reserve determination. A rapid prototyping and testing approach will be used. The programme members will participate in RDM pilot tests, and close integration with the RDM project will be ensured.
A national workshop has been scheduled for 2 & 3 February 1999 at the Water Research Commission, chaired by Dr Steve Mitchell. The intention is to establish and design a research programme which will support the development and testing of methods for determination of the ecological reserve for rivers.
Funding has been requested from the WRC to support the initial two-day specialist workshops on the wetlands and estuaries reserve (to be held in January 1999). This funding will augment the DWAF budget for these sub-projects, and enable larger groups of specialists to be brought together at this early stage in the method development.