ATC241126: Report of the Portfolio Committee on Water and Sanitation on Oversight Visit to the Western Cape, 09 - 10 October 2024, Dated 26 November 2024
Water and Sanitation
REPORT OF THE PORTFOLIO COMMITTEE ON WATER AND SANITATION ON OVERSIGHT VISIT TO THE WESTERN CAPE, 09 - 10 OCTOBER 2024, DATED 26 NOVEMBER 2024
The Portfolio Committee on Water and Sanitation conducted an oversight visit to Clanwilliam and Theewaterskloof Dams on the 09 -10 October 2024, respectively. The Committee reports as follows:
1. Background
The South African Constitution 1996 and relevant parliamentary rules empowers the Portfolio Committee on Water and Sanitation (the Committee) to conduct oversight over any work of an executive organ of state that falls within its portfolio. The oversight is mainly through briefings by the organs of state such as Departments and their entities and visits to projects (physical inspection of projects). It is within this background that the Committee embarked on an oversight visit to Clanwilliam and Theewaterskloof Dams in the Western Cape Province. The oversight trip was preceded by the consideration of the Legacy Report of the Portfolio Committee on Water and Sanitation 2019-2024. This report recommended, among other issues, the tracking of the implementation of water and sanitation bulk infrastructure projects such as Clanwilliam Dam etc. The Committee identified this project as a priority that the 7th Parliament should monitor as no oversight visit was carried out at this project during the 6th parliamentary term. The briefings by the Department of Water and Sanitation (Department) also necessitated the oversight visit.
In addition, the State of the Nation Address 2024 (SONA 2024) identified investment in bulk water infrastructure development and water security as key priority for water and sanitation sector. Moreover, it indicated that new and innovative funding mechanisms will be utilised to increase the construction of bulk water infrastructure and improve water security. This work will be championed by the Department of Water and Sanitation through its water resources management programme. Some of the key bulk water infrastructure development projects that were singled out include Lesotho Highlands Water Project, Umzimvubu, Hazelmere Dam, uMkhomazi Water Project, Clanwilliam Dam, Tzaneen Dam, Loskop, Mandlakazi, a pipeline from Jozini Dam, Giyani, a pipeline from Nandoni Dam to Nsami Dam, Pilanesberg Water, Vaal Gamagara and pipeline from the Vaal River to Hothazel.
2. Objectives of the Oversight Visit
The purpose of the oversight visit was to assess the progress and water supply issues on the following projects:
2.1. Raising of the Clanwilliam Dam Wall and,
2.2. Theewaterskloof Dam.
3. Multiparty Delegation
Portfolio Committee on Water and Sanitation
Hon. L Basson, (DA) (Chairperson of the Committee - leader of the delegation)
Hon. S Ramaila, (ANC)
Hon. S Moore, (DA)
Hon. R Mohlala, (EFF)
Hon. S Mosikatsi, (ANC)
Ms N Bavuma, (Committee Secretary)
Mr T Sibisi, (Committee Assistant)
Mr T Manungufala, (Acting Content Advisor and Researcher).
4. Overview of the Briefings and Site Visits
The Committee received briefings on each of the projects from the Department before embarking on site visits. The mayors and officials of Cederberg and Theewaterskloof Local Municipalities highlighted issues for noting by the Committee as well as providing clarifications to some of the questions from the Committee with respect to projects in their respective areas.
4.1 Briefing by the Department on the Raising of Clanwilliam Dam
The Clanwilliam Dam was established in 1935. Its current capacity is 123 million m3. It is built on the Olifants River near the town of Clanwilliam to augment water supply to the growing Bulshoek irrigation area. It is a 36m concrete gravity dam located in Clanwilliam in the Western Cape province. The then main purpose of the dam was to provide irrigation water to the agricultural region downstream. However, it currently supplies water to the farmers, municipalities, mines and industries in the Olifants River valley.
It is a category III dam with a high hazard rating in terms of dam safety classifications. This means that approximately 3 250 lives could be lost if the dam wall fails.
The raising of the Clanwilliam Dam is as a result of dam safety inspections which recommended remedial work to stabilize the dam wall to improve the safety of the dam under high flood conditions. In 2007 a feasibility study was conducted which found that raising the dam was both technically feasible and economically viable. Consequently, the Department took an opportunity to raise the dam wall during the rehabilitation which would involve major construction work in any case. The raising of the dam wall will increase the total capacity to 344 million m3.
This project falls under the Olifants-Doorn River Water Resources Project (ODRWRP) which has eight components, refer to table 1.
|
Table 1. Components of the ODRWRP |
||
|
Components |
Descriptions |
Implementer |
|
1 |
Realignment of N7 National Route. Done and completed by early 2017 |
NA |
|
2 |
Remedial works to dam foundations and raising dam wall by 13m |
Department of Water and Sanitation Construction South |
|
3 |
Raising and realignment of Old Cape Road |
Western Cape Department of Transport and Public Works (collaboration) |
|
4 |
Raising of Algeria Road crossing of Olifants River in collaboration with the WC DTPW. |
Western Cape Department of Transport and Public Works (collaboration) |
|
5 |
Protection of N7 towards Citrusdal (completed) |
The South African National Roads Agency (SANRAL) |
|
6 |
Maintenance to farms & residences along Renbaan Road in collaboration with the WC DTPW. |
Western Cape Department of Transport and Public Works (collaboration) |
|
7 |
Upgrading and expansion of conveyance network downstream of Bulshoek Dam |
Department of Water and Sanitation Construction South |
|
8 |
Other affected infrastructure, including hydropower plant |
Department of Water and Sanitation Construction South and other entities |
4.1.1. Component 2 Remedial works to dam foundations and raising dam wall by 13m
This is the component that the Department is implementing through its Construction Unit. The Department briefed the Committee on the design and construction of this component. The Department’s Internal Engineering Unit was appointed as Employer’s Agent for the design of the dam wall raising and for the rendering of professional services. Some of the professional services were outsourced to Bigen Africa as professional service provider. To this end, the civil, mechanical and electrical designs were completed with few changes being made when required during construction. Civil drawings were issued to Contractor for construction and continuously being issued as construction continues. The approved professional person (APP) has issued an emergency scope of work to stabilize the dam before the rainy season.
In terms of construction the Construction Unit is the Main Contractor for this project. The pre-construction activities commenced in October 2018. Construction commencement date for the raising of the dam was 06 June 2023. The Department has appointed six sub-contractors to the tune of R1.6 billion. The subcontractors are as follows: (1) Phoenecian for Drilling and Blasting; (2) SAR – ASLA for Drilling and Grouting; (3) MDD Joint Venture (Danoher – Quarry and Aggregates); (4) Stefanutti Stocks for Reinforcing and Concrete Surface Preparation; (5) Form-Scaff – Formwork and (6) the Jet Demolition for Concrete Cutting. The construction progress was reported at 17% as of 30 September 2024. The revised program has been submitted and accepted by the Engineer with the baseline completion date of 31 May 2028.
4.1.2. Labour Statistics and Participation of the Small Medium Enterprise (SMME)
The Construction Unit as the main contractor created a total of 207 jobs dominated by male (159) of which (55) are youth while females are (48) of which 27 are youth. Majority of labourers fall under unskilled (44%) category followed by semi-skilled (23%) while engineers and technicians constitute (11%). The sub-contractors created 113 jobs which are mainly semiskilled (72%) and dominated by males (93%).
The SMME are categorised in terms of amount of the contract awarded, refer to Table 2.
|
Table 2. SMME Participation |
||||||
|
Year |
Award Less R1m |
Award less than R35 000 |
||||
|
|
Amount Spent |
30% Local Suppliers |
Total % Spent on Local Suppliers |
Amount Spent |
30% Local Suppliers |
Total % Spent on Local Suppliers |
|
2022-2023 |
R6 494 011 |
R2 040 079 |
31,4 |
R938 077 |
R355 219 |
37,9 |
|
2023-2024 |
R9 641 711 |
R2 388 922 |
24,8 |
R13 904 287 |
R10 165 042 |
73,1 |
|
TOTAL |
R16 135 722 |
R4 429 001 |
27,4 |
R14 842 364 |
R10 520 261 |
70,9 |
The estimated cost of the project at completion is R6.8 billion which includes the raising of the dam wall and associated works, refer to Table 1.
|
Table 3 Budget and Expenditure Report |
||
|
|
Amount (R million) |
Expenditure and Avaliable Budget (%) |
|
Budget |
6 804 834 204 |
17 |
|
Expenditure |
1 385 711 392 |
20 |
|
2024/25 Allocation |
1 153 000 000 |
|
The expenditure is surpassing the available budget or allocation as it currently stands at 20% while the allocation for 2024/25 is at 17%.
4.1.3. Key Challenges and Possible Solutions
The condition of the Clanwilliam Dam was rated F (meaning the dam is unsafe) by the Dam Safety Office in September 2022. The Department appointed the APP to recommend the immediate actions to address the catastrophic dam safety rating. The Department is currently implementing the emergency scope that was recommended by the APP.
The unsafe access to and from the dam to the N7 road is being addressed through the appointment of a subcontractor that would align the access road from N7.
The Decommissioning of the hydropower station has delayed construction work. The process is underway that would compel Clackson Power to cease hydropower operations and vacate the site.
4.2 Briefing by the Department on Theewaterskloof Dam
The Theewaterskloof Dam is the 7th largest dam in South Africa which is 12 times smaller than Gariep Dam. However, it is the largest Western Cape Water Supply storage dams. The Water Research Commission calls it one of the most imaginative water transfer schemes in South Africa which links the Berg and Sonderend rivers in the Western Cape province. It is a conventional earthfill dam, completed in 1980 that stand is 37.5m high above the lowest foundation, and has a crest length of 646 million m3. The dam has a gross storage capacity of 482 million m3 and it covers an area of 5 100 ha when full. It has a side channel spillway with 394 m3/s in capacity. A conduit through the embankment is divided into two chambers housing the low-level and normal outlets respectively. The low-level outlet, which has a maximum capacity of 180 m3/s is controlled by a slab gate at the upstream end of the culvert and the discharge energy is dissipated by means of a flip bucket. A subsidiary embankment inside the Theewaterskloof basin contains the Charmaine inlet and outlet. The embankment is a composite structure – a concrete spillway flanked by a 6m-high earthfill of crest length 136m – designed to create a sediment retention basin which allows the intakes to draw of clear water into the Franschhoek Tunnel.
The Dam provides storage of the larger quantities of runoff that becomes available during the winter rainy season in the upper reaches of the Riviersonderend and are then transferred through tunnels from the Berg River catchment. During the dry summer season water from the Theewaterskloof Dam can be transferred to the Berg River and Eerste River valleys.
It is operated by the Department. It is the backbone of the Western Cape Water Supply System which provides water to City of Cape Town, Drakenstein LM, Stellenbosch LM, Winelands and Zonderend River Water Associations, Upper Berg River and Vyeboom Irrigation Boards. The agricultural sector abstracts directly from the dam while Overberg Water Board abstracts and supply water to Theewaterskloof LM.
This region of the Western Cape is susceptible to drought events. The last severe drought was experienced in 2016/17 which brought the water level 35% which is equivalent to 15 million m3 of water which is not accessible due to the mechanism of water transfers in this scheme. This necessitated the drought emergency works which involves the construction of coffer dam to close off the section between the old Draaiberg bridge abutments which would effectively cut the dam into two sections – the main body of the dam (which contains the 27%) and the Charmaine Intake Shaft section with the associated approach channel. The excavation of a bypass trench (with a floor width of 7.5m) on the right bank (looking downstream) to bypass the coffer dam structure. Construction of a platform on the right bank downstream of the coffer to serve as a pump platform. Construction of a canal lined with a 2.0mm thick HDPE lining. The pumps will discharge water into the canal and discharge upstream of the cofferdam structure towards the Charmaine Intake Shaft. Lastly, pumping would commence when the water reaches lowest water level known as RL 293m. However, the dam level started to rise in June 2017 due to heavy rainfall.
The Western Cape Water Supply System was reported to be at 94% full due good winter rain this year with the Theewaterskloof boosting a 100% full capacity during the oversight visit.
4.2.1. Western Cape Water Supply Challenges
The Department reported vandalism of infrastructure, high vacancy rate on maintenance teams and lack of proper office facilities at the dam. Vandalism of the infrastructure is rife across the scheme, areas such as Drakenstein and Palmiet are the worst hit. It includes vandalism and theft of pumps and other structures made of precious metals. However, the security guards are being used to protect and secure the key infrastructure.
The austerity measures which require that new position should be approved by DPSA before advertisement is negatively affecting the maintenance work at various schemes. The Department is unable to appoint groundsmen and other functional support staff due to classification of work at water schemes as technical. The Department is currently using the Water User association to carryout some of the maintenance work on contract while it is looking for a sustainable resolution to the filling of vacancies.
5. Deliberations and recommendations
5.1. The Committee noted the progress made at Clanwilliam Dam and the benefits that would accrue to the farmers and other water users downstream of the dam. It further noted the rehabilitation plan that would include revegetation of the river and dam banks when the construction work is completed.
5.2. The Committee requested the Department to provide a Clanwilliam Dam Break Analysis Report within 14 days of the adoption of the Oversight Report.
5.3. The Committee noted existing hydropower opportunities at both Clanwilliam and Theewaterskloof dams and associated infrastructure such as tunnels. It further noted that there is currently a dispute between Clarkson Power and the Department wherein Clarkson Power does not want to cease hydropower operations at Clanwilliam Dam. The Committee recommended that the Department should provide the following reports within 14 days of the adoption of the Oversight Report.:
5.3.1. A report on hydropower electricity generation including details on the Clarkson Power legal case and the beneficiaries of the hydropower generation at Clanwilliam Dam.
5.3.2. A report on funding and progress on Clanwilliam Dam.
5.4. The Committee noted the delays in the maintenance of the Charmaine tunnel due to the unavailability of a suitable time for the City of Cape Town (CoT) to curtail the water supply through this tunnel. The tunnel was last maintained in 2013. Maintenance can only be done during dry season. The Department indicated that they are legally allowed to give the CoT six months’ notice period before closing the tunnel for maintenance. The Committee recommended that the Department should give the CoT a notice line with the conditions of operation and maintenance of the tunnel.
5.5. The Committee noted the impact of vandalism on water supply systems were electrical and mechanical components such as pumpstations and copper cables are constantly damaged and stolen. The Committee recommended the Department should provide a report on vandalism of infrastructure pertaining to these projects with details on financial, water and human livelihood losses.
5.6. The Committee noted the number of vacancies and frozen positions in the Department relating to groundmen, cleaners and other semi-skilled positions. These vacancies expose the infrastructure to vandalism, poor maintenance and operation. The austerity measures that have been put in place that only provide for the filling of critical positions upon motivation are exacerbating the impact of vacancies.
5.7. The Committee noted the submissions on equitable water allocation in Theewaterskloof where 60% of water is allocated to agriculture while the 40% goes to domestic (municipal) and industrial. The BOCMA is responsible for validation and verification of water users to ensure equitable water allocation. The Committee recommended that BOCMA should provide a report on water allocation statistics for systems in 14 days after the adoption of the Oversight report.
5.8. The Committee noted the submissions by Theewaterskloof municipality on its water development plan, green drop report and aging water infrastructure. The municipality reported that it is updating its water development plan. It further indicated that it receives water from the overflow of the dam and boreholes. It also has a challenge of vandalism of water infrastructure. Its water loss is around 35% which is equivalent to R18 million rand per annum. There is a lack of funding for its water development plan. Lastly the municipality indicated that it requires assistance to apply for funding from Water Services Infrastructure Grant, among other sources.
Report to be considered.