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PROPOSED UPGRADE OF THE FISHWATER FLATS WASTEWATER TREATMENT
WORKS, NELSON MANDELA BAY MUNICIPALITY, EASTERN CAPE PROVINCE
SOCIAL IMPACT ASSESSMENT
Prepared by:
Dr AH de Wit
FEBRUARY 2012
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TABLE OF CONTENTS
LIST OF FIGURES / TABLES .................................................................................................. 3
LIST OF ABBREVIATIONS ..................................................................................................... 4
1. INTRODUCTION ........................................................................................................... 5
1.1 Project description ......................................................................................................... 5
1.2 SIA scope ...................................................................................................................... 6
2. STUDY APPROACH: SIA METHODOLOGY................................................................. 6
3. SOCIAL IMPACT ASSESSMENT ............................................................................... 12
3.1 Social change processes ............................................................................................ 12
3.2 SOCIAL IMPACTS DURING THE CONSTRUCTION PHASE ..................................... 13
3.2.1 Socio-economic impacts ...................................................................................... 13
3.2.2 Empowerment impacts ......................................................................................... 15
3.3 SOCIAL IMPACTS DURING THE OPERATIONAL PHASE ........................................ 18
3.3.1 Socio-economic impacts ...................................................................................... 18
4. CONCLUSION AND RECOMMENDATION ................................................................ 22
5. REFERENCES ............................................................................................................ 24
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LIST OF FIGURES / TABLES
Table 1: Creation of employment opportunities during the construction phase of the proposed
development ................................................................................................................ 15
Table 2: Skills development and transfer during the construction phase of the proposed
development ................................................................................................................ 17
Table 3: Employment creation at the Fishwater Flats WWTW through SMMEs ........................ 19
Table 4: Creation of downstream employment opportunities through increasing industrial water
security ........................................................................................................................ 21
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LIST OF ABBREVIATIONS
EIA Environmental Impact Assessment
IDP Integrated Development Plan
IDZ Industrial Development Zone
NMB Nelson Mandela Bay
SIA Social Impact Assessment
WWTW Wastewater Treatment Works
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1. INTRODUCTION
This introductory section sets the stage for the relevant Social Impact Assessment (SIA) by
providing information on the project description and the scope of the SIA.
1.1 Project description
The Nelson Mandela Bay (NMB) Municipality has proposed the upgrading and modernisation of
the 30-year old Fishwater Flats Wastewater Treatment Works (WWTW). This facility is located
next to the Swartkops River Estuary, Port Elizabeth. In brief, the proposed development will
comprise the construction and/or conversion and/or upgrade of relevant facilities and buildings
(See Coastal & Environmental Services, 2011 for particulars). In its operational phase, the
upgraded Fishwater Flats WWTW will, amongst others, be a significant source of reclaimed
effluent with an increased quality, particularly for local industries.
The existing permanent staff complement of the Fishwater Flats WWTW is 82. This total
consists of 12 highly skilled, 20 medium skilled and 50 low skilled municipal employees. Since
certain sections of the WWTW will be decommissioned and replaced with units that provide
improved efficiency and/or improved technology, it is likely that no significant difference in
personnel numbers will occur as a result of the upgrading and modernisation of the Fishwater
Flats facility (Coastal & Environmental Services, 2012).
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1.2 SIA scope
The relevant Environmental Impact Assessment (EIA) is managed by Coastal & Environmental
Services, which has also requested a SIA of the proposed development in addition to the EIA.
The purpose of this study is therefore to assess the potential social impacts that are associated
with the proposed Fishwater Flats WWTW upgrade.
The SIA particularly involves the following:
An assessment of the impact of the proposed development in terms of employment creation
during its construction and operational phases; and
An assessment of the impact of the proposed development in terms of the indirect benefits
that may arise in the context of the NMB economy.
2. STUDY APPROACH: SIA METHODOLOGY
SIA generally includes “the processes of analysing, monitoring and managing the intended and
unintended social consequences, both positive and negative, of planned interventions (policies,
programs, plans, projects) and any social change processes invoked by these interventions. Its
primary purpose is to bring about a more sustainable and equitable biophysical and human
environment” (IAIA, 2003:2).
The above IAIA definition highlights two critical issues, namely social process and social
consequence (impact), which are tied together in a cause-and-effect relationship. The influential
distinction between social process and social consequence in the context of SIA, similar to the
difference between biophysical change and biophysical impact in the context of EIA, comes from
the model developed by Slootweg et al. (2001). Strongly advocated by the International
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Handbook of Social Impact Assessment (Slootweg et al., 2003), this model is consequently
subscribed to by the present study. It underlies the importance of segregating social process
from social impact and ultimately aids the understanding of the processes that can result in
social impacts (Aucamp, 2009). It also prevents the presentation of social (change) processes
as actual social impacts in SIA reports, a common and confusing practice.
With reference to the effects of proposed development projects, Slootweg’s et al. (2003) model
suggests pathways or social change processes which may culminate in social impacts.
Accordingly, project or development interventions can result in intended or unintended (social
change) processes (of a demographic nature for example, which relate to the movement of
people or an increase of strangers in an area). Such processes are discreet and observable and
may alter the characteristics of a society. They also take place regardless of particular societal
contexts (population groups, nations, religions, etc.). Under certain conditions (community
attributes or the nature and extent of mitigation measures for example), social change processes
may ultimately result in social impacts (such as personal injury or the loss of property due to an
increase in crime).
Several social change processes, according to Van Schooten et al. (2003), can be recognised
as the fundamental drivers of social impacts, including amongst others:
Demographic processes that relate to the movement of people and/or the demographic
composition of human populations;
Human health and safety processes that affect the physical, mental and material well-being
of people;
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Economic processes that affect the economic activity and socio-economic status of people
and/or the way they make a living (livelihoods);
Geographic processes that affect land-use and associated patterns;
Institutional processes that affect the organisations that are responsible for urban, provincial
or national governance as well as the supply, regulation and maintenance of the goods and
services on which people depend;
Empowerment processes that affect the ability of people to influence decision-making and
the circumstances that impact on their daily lives and well-being;
Socio-cultural processes that affect the culture of a society in the sense of all aspects of the
way that people live together; and
Intrusion processes that relate to imposed environmental disturbance in the form of pollution.
The above list of social change processes is obviously not complete due to the complex nature
of human society and invariably as a result of the multitude of ways in which it may respond to
change (Vaclay, n.d.).
The nature and relevance of the social change processes in the context of the affected
environment as far as this study is concerned, will be outlined in Section 3.1 of this report, before
the identified social impacts (Section 3.2 and 3.3) are presented.
The identification of social change processes during SIA is naturally followed by the identification
of social impacts. Following the above-mentioned distinction between social process and social
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impact, a social impact, according to The Interorganizational Committee on Guidelines and
Principles for Social Impact Assessment (2003:231), can be defined as:
“Consequences to human populations of any public or private actions – that alter the
ways in which people live, work, play, relate to one another, organize to meet their
needs, and generally cope as members of society. The term also includes cultural
impacts involving changes to the norms, values, and beliefs that guide and
rationalize their cognition of themselves and their society.”
Social impacts are also something that may be physically experienced (objective impacts in
other words that can be quantified, such as changes in people’s health and safety) or
emotionally perceived by people (subjective impacts in other words that manifest in the ‘minds’
of people, such as emotional stress or reduced quality of life). Such experiences and
perceptions can be either positive or negative.
Faced with the obvious complexity subsumed in the identification of social impacts in
multifaceted human societies, a framework of SIA variables is often referred to by practitioners
for guidance. A particularly influential set of SIA variables comes from Burdge (2004) and is
adapted in the present study due to the comprehensive nature thereof. Accordingly, the
following variables provided essential guidelines for the eventual and structured identification
and presentation of social impacts during both the construction as well as the operational phase
of the proposed development:
Population related impacts – resulting from changes in population attributes, the migration of
people, the inflow of a temporary labour force, etc.
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Socio-economic impacts – resulting from employment creation, changes in business activity,
livelihoods, etc.
Empowerment impacts – resulting from the social or economic empowerment of vulnerable
and other groups.
Individual and family level impacts – resulting from changes in human movement patterns
and social networks, the relocation of individuals and families, etc.
Public health and safety impacts – resulting from changes in community health and safety
parameters.
Impacts related to community resources and arrangements – resulting from effects on
cultural sites and social infrastructure, interest group activity and reaction, etc.
Institutional impacts (related to government institutions) – resulting from infrastructural
demand and supply issues, changes in institutional image, land-use change, gentrification,
policy related demands, etc.
Intrusion related impacts – resulting from air pollution, noise pollution, light pollution, visual
pollution and malodour pollution.
Socio-culturally related impacts – resulting from the creation of social differentiation and
segregation, social disintegration, deviant social behavior, etc.
It is at this stage important to note the social impact variables that resort under the
different social change processes may naturally overlap, while the actual social
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impacts associated with different impact variables may also coincide. For example,
socio-economic impacts that result from employment creation may overlap with
empowerment impacts that result from the social or economic empowerment of
vulnerable and other groups.
Finally, a prescribed approach was used to assess and grade the significance of potential social
impacts. In this study, the significance of social impacts – ranging from ‘’low’ to ‘very high’ – was
determined with reference to the methodology in Coastal & Environmental Services (2011:
Section 8.3).
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3. SOCIAL IMPACT ASSESSMENT
The following sections contain:
A discussion of the relevant social change processes as far as the proposed development is
concerned; and
The presentation and assessment of identified social impacts pertaining to the construction
and operational phases of the proposed development respectively.
3.1 Social change processes
Social change processes, as mentioned in Section 2, are discreet and observable; it may alter
the characteristics of society and could ultimately result in social impacts. Economic and
empowerment processes categories were recognised regarding the social impact of the
proposed development. These processes are outlined below:
Economic processes were firstly considered since a number of employment opportunities
will be created during the construction phase of the proposed development. A number of
employment opportunities may also be created during the operational phase thereof. The
proposed development is furthermore likely to contribute to local industrial water security.
This will have an implication for future industrial development and employment creation in
the NMB Metro. Related social impacts will be assessed as socio-economic impacts.
Empowerment processes are secondly relevant since the proposed development is likely
to be accompanied by a skills transfer process during its construction phase. This has the
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potential to empower local inhabitants economically. The related social impact will be
assessed as an empowerment impact.
3.2 SOCIAL IMPACTS DURING THE CONSTRUCTION PHASE
3.2.1 Socio-economic impacts
Socio-economic impacts result from employment creation, changes in business activity,
livelihoods etc.
A) Impact assessment – employment creation during the construction phase of the
proposed development
The construction phase of the proposed development, by virtue of the extensive nature thereof,
will obviously create a number of employment opportunities. It is expected that numerous
contractors in a wide variety of technical fields and specialisations will engage in the different
stages of the upgrade. However, due to the diversity of the construction activity and associated
contractors that will be involved in the construction phase, the exact number of employment
opportunities across all of the anticipated activities is difficult to determine. It is nevertheless
estimated that this number in total will not be less than about 150 and probably not more than
500. This estimate refers to direct employment opportunities only.
Since the NMB Municipality is the proponent in the case of the proposed development and
drawing on previous experience where this institution had commissioned construction work in
the NMB Metro (Terblanche, 2011; De Wit & Pretorius, 2011), the recruitment of local labour as
far as possible will most likely be required. In addition, and in line with the current Integrated
Development Plan (IDP), combating poverty and unemployment remains a strategic objective of
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the NMB Municipality and reflects one of the key social targets of the South African government
(NMB Municipality, 2010/11). It can therefore, and with a fair amount of certainty, be expected
that the construction phase of the proposed development will have to create employment
opportunities for currently unemployed members of the adjacent local communities (New
Brighton / KwaZakhele). Such individuals will almost definitely be characterised by relatively low
educational attainment levels and would most probably fall within the unskilled to semi-skilled
category of labourers. This means that they will have to be subjected to a deliberate process of
skills development and transfer in order to capacitate them with the necessary skills (See
Section 3.2.2, Impact A).
Employment creation during the construction phase of the proposed development and related
benefits will have positive socio-economic implications for the affected individuals and their
families, particularly for the unemployed from the above-mentioned local communities. The
consequence of this will be important in the context of alleviating existing local levels of poverty
and unemployment.
The significance of the creation of employment opportunities during the construction phase of
the proposed development is assessed in Table 1. The impact is POSITIVE and the significance
is HIGH. This significance rating reflects the temporary nature of the relevant employment
opportunities that will last for the duration of the construction phase of the proposed
development only.
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Table 1: Creation of employment opportunities during the construction phase of the proposed development
Source of impact: Employment creation during the construction phase of the proposed development
Nature of impact: Individuals and households benefit from the income generated by employed persons
Impact mitigation (with and without)
Effect
Lik
elih
ood
Sig
nific
ance
Sta
tus
Confide
nce
Tem
pora
l
scale
Spatia
l scale
Severity
Without mitigation
Short term Study area Very beneficial Definite HIGH + ve High
1 2 8 4 15
With mitigation NA NA NA NA NA NA NA
3.2.2 Empowerment impacts
Empowerment impacts result from the social or economic empowerment of vulnerable and other
groups.
A) Impact assessment – skills development and transfer during the construction phase
of the proposed development
The local communities of New Brighton and KwaZakhele (particularly the eastern areas of both
neighbourhoods) more-or-less adjoin the site of the proposed development. These areas would
therefore naturally be the source of unskilled and semi-skilled labour that will be required during
the construction phase of the proposed development. Both of these former African ‘township’
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areas are understandably relatively deprived in socio-economic terms. Unskilled and semi-
skilled labour would be readily available due to relatively low levels of adult educational
attainment and high levels of unemployment. Available information points to the fact that about
seven out of every ten adults there had never finished their secondary school careers, while a
very conservative estimate of unemployment is somewhere between 25 and 30% (Development
Partners, 2006). In order to supply the operational phase of the proposed development with the
necessary local labour, skills development and transfer through developmental workshops, in-
service training programmes and mentorships for example will be a necessity.
In an area plagued by poverty and unemployment, skills development and transfer will have a
socio-economic implication that extends well beyond the time schedule of the construction
phase of the proposed development. The majority of skills developed will most probably
concentrate in the field of construction, one of only two local economic sectors that actually
reflect vibrancy in terms of employment growth (Rand International Capital, 2011). The
possibility therefore exists that relevant individuals will be able to sell their newly acquired skills
within the local economy (and possibly beyond) long after the completion of the construction
phase of the proposed development.
The significance of the impact of skills development and transfer is assessed in Table 2. The
impact is POSITIVE and the significance is VERY HIGH. This reflects the importance of skills
development and transfer for the long-term employment and employability prospects of local
unskilled and/or unemployed people.
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Table 2: Skills development and transfer during the construction phase of the proposed development
Source of impact: Skills development and transfer takes place during the operational phase of the proposed development
Nature of impact: Relevant members of the local community are empowered with marketable skills
Impact mitigation (with and without)
Effect
Lik
elih
ood
Sig
nific
ance
Sta
tus
Confide
nce
Tem
pora
l
scale
Spatia
l scale
Severity
Without mitigation
Long term Regional Very beneficial Probable VERY HIGH + ve High
3 3 8 3 17
With mitigation NA NA NA NA NA NA NA
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3.3 SOCIAL IMPACTS DURING THE OPERATIONAL PHASE
3.3.1 Socio-economic impacts
Socio-economic impacts result from employment creation, changes in business activity,
livelihoods etc.
.
A) Impact assessment – employment creation at the Fishwater Flats WWTW through
Small, Medium and Micro Enterprises
According to Coastal & Environmental Services (2011), it is envisaged that certain sections of
the site of the Fishwater Flats WWTW could be developed into an educational gathering facility
aimed at consumers ranging from primary-school learners to academics and tourists. This could
then open up the possibility of creating employment opportunities through Small, Medium and
Micro enterprises (SMMEs).
Employment creation remains an important priority for the NMB Municipality. Using SMMEs as a
vehicle in this case conforms to one of the IDPs strategic priorities concerning Local Economic
Development and addressing economic development goals (NMB Municipality, 2010/11). While
the creation of new employment opportunities will have obvious socio-economic implications for
the affected individuals, relevant business plans or any other particulars are not available. The
likelihood that this impact would eventually occur can subsequently be questioned, as well as
other aspects such as the duration and intensity thereof. This is reflected by the significance
assessment of the impact in Table 3. The impact is POSITIVE and the significance is LOW.
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Table 3: Employment creation at the Fishwater Flats WWTW through SMMEs
Source of impact: Employment creation through SMMEs at the Fishwater Flats WWTW
Nature of impact: Individuals and households benefit from the income generated by employed persons
Impact mitigation (with and without)
Effect
Lik
elih
ood
Sig
nific
ance
Sta
tus
Confide
nce
Tem
pora
l
scale
Spatia
l scale
Severity
Without mitigation
Short term Local Moderate May occur LOW + ve High
1 1 2 2 6
With mitigation NA NA NA NA NA NA NA
B) Impact assessment – downstream employment creation through increasing industrial
water security in the NMB Metro
In its operational phase, the Fishwater Flats WWTW will represent an essential form of
economic infrastructure in the NMB Metro. Economic infrastructure comprises investments and
related services (such as transport, energy, water systems, communication, etc.) that increase
the productivity of other types of physical capital (Perkins, 2011). In the words of this author,
“Economic infrastructure may be compared to the foundation of a building. It plays a supporting
role, facilitating the multitude of productive economic activities that constitute the bulk of the
economy …” (p.24). It follows that adequate public investment in the maintenance and
development of economic infrastructure is a critical determinant of industrial development
(Bjorvatn, 2000).
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The economy of the NMB Metro has a strong industrial character and is largely dominated by
the manufacturing sector, including the automotive industry, which in 2010 provided about 20%
of all formal employment (Rand International Capital, 2011). In spite of the status of the local
economy as the strongest in the Eastern Cape Province, the NMB Metro continues to be
burdened by an unemployment level of more than 35%. Much of the current and future hope of
addressing this problem lies in the continuous industrial development of the NMB Metro,
amongst others in the strategically important Coega Industrial Development Zone (IDZ).
However, industrial development in the NMB Metro in recent times had to face several obstacles
and limiting factors. This includes the inhibiting effects of the recent global economic recession,
the national energy deficit, as well as a relatively new threat in the form of ecological limits.
With a 30-year average annual rainfall of 624mm (South African Weather Service, 2003), the
NMB Metro is traditionally a water stressed area. However, the local impact of climate change in
the form of the prolonged period of drought that was recently experienced by the NMB Metro,
very nearly wreaked havoc with local industries. During the zenith of this drought in 2010, job
losses in the NMB Metro due to the decreasing productive capacity of local industries almost
became a reality. The question of ecological limits, particularly in the form of available water for
industrial use, subsequently became well established in the NMB Metro as a key factor of future
industrialization. It is in this particular context that the Fishwater Flats WWTW upgrade will
perform an important strategic role. As a supplier of reclaimed effluent with an increased quality
to local industries, particularly in the Coega IDZ, the proposed development will not only be
instrumental in increasing industrial water security; it will also contribute to the creation of
indirect employment opportunities via the enabling effect of water security on future industrial
development.
While water for industrial use is no doubt a critical factor of industrial development, it is not the
only one. It is therefore difficult to predict the number of downstream employment opportunities
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that may eventually be the result of the Fishwater Flats WWTW upgrade with certainty.
Nevertheless, looking at the potential capacity of the Coega IDZ alone, it is safe to say that at
least a few thousand employment opportunities may in due course be the indirect result of the
proposed development. The significance of this impact is assessed in Table 4. The impact is
POSITIVE and the significance is HIGH. This significance rating reflects a measure of
uncertainty concerning the likelihood of the impact occurring.
Table 4: Creation of downstream employment opportunities through increasing industrial water security
Source of impact: Indirect employment creation during the operational phase of the proposed development
Nature of impact: Individuals and households benefit from the income generated by employed persons
Impact mitigation (with and without)
Effect
Lik
elih
ood
Sig
nific
ance
Sta
tus
Confide
nce
Tem
pora
l
scale
Spatia
l scale
Severity
Without mitigation
Long term Study area Very beneficial May occur HIGH + ve High
3 2 8 2 15
With mitigation NA NA NA NA NA NA NA
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4. CONCLUSION AND RECOMMENDATION
The proposed development in the case of this SIA involves the upgrade and modernisation of
the Fishwater Flats WWTW in Port Elizabeth (NMB Municipality). The significance of this project,
in socio-economic terms, is mainly located in the area of (direct and indirect) employment
creation.
During the construction phase of the proposed development, employment opportunities will be
created that will potentially benefit, amongst others, unemployed members of the adjacent local
communities. Such individuals would most probably fall within the unskilled to semi-skilled
category of labourers and will therefore have to be subjected to a process of skills development
and transfer. Relevant individuals will not only be economically empowered, they will also be
able to sell their newly acquired skills within the local economy (and possibly beyond) long after
the completion of the construction phase of the proposed development.
Employment creation during the operational phase of the proposed development mainly comes
in the form of the anticipated establishment of SMMEs associated with the WWTW upgrade.
The proposed development, most importantly, represents an essential form of economic
infrastructure in the sense that it will increase industrial water security in the NMB Metro. As
such, it will be instrumental in the creation of indirect employment opportunities via the enabling
effect of this project on future industrial development in the NMB Metro in general and in the
Coega IDZ in particular.
In view of the above socio-economic effects, it is recommended that the proposed development
be implemented. During the construction phase, contractors and relevant parties should employ
individuals from local communities as far as practically possible and engage in the necessary
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skills development and transfer.
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5. REFERENCES
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Discerning Practitioner. Van Schaik: Pretoria.
Bjorvatn, K. 2000: Urban Infrastructure and Industrialization. Journal of Urban Economics, 48:
205-218.
Burdge, R.J. 2004: A Community Guide to Social Impact Assessment. Middleton: Social
Ecology Press.
Coastal & Environmental Services, 2011: Volume 1 (July): Final Scoping Report for the
Proposed Upgrade and Modernisation of the Fishwater Flats Wastewater Treatment
Works. CES, Grahamstown.
Coastal & Environmental Services, 2012: Unpublished information. CES, Grahamstown.
Development Partners, 2006: Demographic Update: Nelson Mandela Bay Metro.
Development Partners: Port Elizabeth.
De Wit, A.H. & D. Pretorius, 2011: Social Impact Assessment: Proposed Development of a
Mixed-use Housing Development in KwaNobuhle Extension 11, Nelson Mandela Bay
Municipality, Eastern Cape.
IAIA, 2003: Social Impact Assessment: International Principles. Special Publication Series
No.2. International Association for Impact Assessment: Fargo.
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NMB Municipality, 2010/11: Integrated Development Plan, 2006/07 - 2010/11: 2010/11
Review, 9th Edition. NMB Municipality: Port Elizabeth.
Perkins, P. 2011: The role of economic infrastructure in economic growth: building on
experience. Focus, 60: 24-33.
Rand International Capital, 2011: Interpretation of ECSECC data. Rand International Capital,
Port Elizabeth.
Slootweg, R., F.M. Vanclay & M. van Schooten, 2001: Function evaluation as a framework for
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Slootweg, R., F. Vanclay & M. van Schooten, 2003: Integrating Environmental and Social Impact
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Impact Assessment: Conceptual and Methodological Advances. Cheltenham: Edward
Elgar: (56-73).
South African Weather Service, 2003: Climate Data: Port Elizabeth.
<http://old.weathersa.co.za/Climat/Climstats/PortElizabethStats.jsp>
Terblanche, M. 2011: Social Impact Assessment: Proposed Coega Ridge Housing
Development, Nelson Mandela Bay Municipality, Eastern Cape.
The Interorganizational Committee on Guidelines and Principles for Social Impact Assessment,
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Vaclay, n.d. Social Impact Assessment. Contributing paper to the World Commission on
Dams, World Commission on Dams, Cape Town.
Van Schooten, M., F. Vanclay & R. Slootweg, 2003: Conceptualizing Social Change Processes
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