Strategy Analysis for the Fulfilment of Clean Water Needs Through Piped-Water Service in Metropolitan City during the COVID-19 Pandemic
Corresponding email: firdausali@indonesiawaterinstitute.org
Published at : 18 Sep 2024
Volume : IJtech
Vol 15, No 5 (2024)
DOI : https://doi.org/10.14716/ijtech.v15i5.6160
Ali, F., Lestari, D.L., Putri, M.D., Azmi, K.N., 2024. Strategy Analysis for the Fulfilment of Clean Water Needs Through Piped-Water Service in Metropolitan City during the COVID-19 Pandemic. International Journal of Technology. Volume 15(5), pp. 1237-1246
| Firdaus Ali | 1. Indonesia Water Institute, Rukan Tanjung Barat Indah No. F-02, South Jakarta, 12530, Indonesia 2. Environmental Engineering Study Program, Department of Civil Engineering, Faculty of Engineering, |
| Dwi Lintang Lestari | Indonesia Water Institute, Rukan Tanjung Barat Indah No. F-02, South Jakarta, 12530, Indonesia |
| Marsya Dyasthi Putri | Indonesia Water Institute, Rukan Tanjung Barat Indah No. F-02, South Jakarta, 12530, Indonesia |
| Khalidah Nurul Azmi | Indonesia Water Institute, Rukan Tanjung Barat Indah No. F-02, South Jakarta, 12530, Indonesia |
This study aimed to conduct a strategy analysis to
anticipate water scarcity and provide recommendations for the fulfillment of
clean water needs through the Regional Drinking Water Company (PDAM)
piped-water service in a metropolitan city during the COVID-19 pandemic.
Several efforts have been made by PDAM, such as uprating the existing water
treatment plant (WTP) and planning to build new ones. The analysis covered the
piped-water service target in 2021, customer water consumption, PDAM production
efficiency, and the non-revenue water (NRW) in the city before and during the
pandemic. Subsequently, the existing strategy and targets were analyzed based
on the comparison results. The outcomes would serve as the basis for the
recommendations to overcome water scarcity. The results showed that there was
an increase in customer water consumption during the pandemic by 5% (147
L/person/day) from the normal condition. Considering the 35% piped-water
service coverage target set in 2021, the existing capacity of PDAM has not been
able to meet customer needs both under normal condition and during the increase
in consumption. Based on the results, technical recommendations include
uprating the WTP capacity up to 2.13 times, reducing the water loss by 25%, and
utilizing backup unit system to prevent disturbance to water distribution for
24 hours. These recommendations must be synchronized with the Drinking Water
Security Plan (RPAM) in the city.
Clean water supply; COVID-19 pandemic; Drinking water distribution; Piped-water service; Water scarcity
Rising population and climate change are reportedly complicating the challenge of providing clean water worldwide. Approximately 2.2 billion people, accounting for a quarter of the global population, lack safe drinking water services, while 4.2 billion do not practice safe sanitation, and 3 billion are deprived of basic handwashing facilities (World Health Organization, 2019). In Indonesia, the National Medium-Term Development Plan (RPJMN) 2020–2024 is consistent with the 2030 Sustainable Development Goals (SDGs), aiming for 100% access to proper drinking water, including 15% safe drinking and 30% piped-water (Indonesian Ministry of National Development Planning, 2019). With a total population of 272.7 million (BPS-Statistics Indonesia, 2022), Indonesia currently has 90.8% access to proper drinking water, as well as 11.9% and 19.06% safe drinking, and piped-water respectively (Directorate General of Human Settlements-Indonesian Ministry of Public Works and Housing, 2022). The COVID-19 pandemic heightened the importance of clean water for handwashing and sanitation, as recommended by the World Health Organization (2020). Domestic water consumption during the pandemic increased from 147 L/person/day in 2018 (Depok City Government, 2021) to 157 L/person/day in 2020 (Iswara, 2021). According to the Indonesia Water Institute (2022), public clean water consumption surged to 3 to 5 times the normal levels.
Water scarcity results from
a growing population using unsustainable resources, often compounded by drought
due to climate change (Van-Loon and Van-Lanen, 2013). In
Indonesia, areas facing both drought and water scarcity are projected to
increase from 6.0% in 2000 to 9.6% in 2045 (Indonesian Ministry of National Development
Planning, 2019). This scarcity arises from critical conditions in
upstream catchment areas and excessive urban groundwater extraction,
particularly in Java, Bali, and Nusa Tenggara (Indonesian Ministry of National Development
Planning, 2019). The shortage extends to drinking water, with
access to national piped-water reaching only 19.06% of the 30% target by 2024,
and distribution remains uneven. Therefore, the government faces a substantial
challenge in developing the national clean water infrastructure.
Ali et al. (2019) found that in Depok, six
districts out of 11 faced moderate water stress, with three experiencing high
stress, and two had very high-stress levels. To combat the expanding water
scarcity, transitioning to piped-water is a primary solution. The COVID-19 pandemic
has made clean water even more critical, specifically for proper handwashing to
prevent virus transmission (Berawi
et al., 2020). Also, the challenge of accessing drinking water in West Java depends on
efforts to establish household-level access and to enhance the currently
limited capacity of PDAM to serve its customers through the pipeline network
system (Sukoco, 2017). This poses a challenge for
PDAM to increase piped-water service coverage. However, there is a lack of
comprehensive analysis on addressing the increased demand for clean water
during the pandemic, particularly in water-stressed areas. This study aimed to
analyze clean water needs to ensure sufficient availability during the
pandemic. Although immediate changes in clean water capacity are not possible,
the results offer recommendations to stakeholders in making strategic plans for
meeting clean water demands.
2.1.
Study Area
This study focused on Depok
City, West Java, Indonesia, a metropolitan area with a population of 2,085,935 (BPS-Statistics of Depok Municipality, 2022). The proximity to the
Indonesian capital has led to a population growth rate of 1.92%, up from the
previous year (BPS-Statistics of Depok
Municipality, 2022). This rapid growth, along with urban development and economic expansion,
has increased the water consumption of residents (Herdiansyah and Putra, 2018). During the COVID-19
pandemic, 66% of city respondents reported increased water usage (Indonesia Water Institute, 2022). However, in 2020, only
13.9% of residents received water from PDAM (National Agency for Water Supply System
Improvement, 2021). The remaining 86.1% relied on groundwater or other sources, which could
be affected by seasonal variations (Hartono,
Gusniani, and Adityosulindro, 2010).
2.2.
Study Concept Framework
Figure 1
Study concept framework
2.3. Data Collection
This study used both quantitative and qualitative
approaches, utilizing data from PDAM and literature sources. The data collected
comprised various factors, including city population, customer counts (house
connections/HC), residents served by PDAM, monthly water usage, installed
capacity, actual clean water production, and water loss (non-revenue water or
NRW). The sources were the PDAM Performance Book 2020 (National
Agency for Water Supply System Improvement, 2020), providing pre-pandemic 2019 data, and the Municipality in Figures 2022 (BPS-Statistics of Depok Municipality, 2022), offering information for the pandemic year of 2021.
2.4.
Analysis of Piped-water Service before
and during the Pandemic
The data collected were used to assess various parameters
including piped-water service coverage, customer water consumption, PDAM
production efficiency, and NRW calculations. These parameters were then
compared before and during the COVID-19 pandemic. Calculations were conducted
using equations from the Technical Guidelines of PDAM Performance Evaluation (National Agency
for Water Supply System Improvement, n.d.). Table 1
shows an overview of the parameters and equations used.
In Table 1, parameter 1
calculated the population served by multiplying the number of active customers
with an average of 4 people per household, according to BPS-Statistics of Depok Municipality (2022). Parameter 2 assessed the total
water usage as the average monthly consumption per PDAM customer, using the
number of active customers. Parameter 3 measured PDAM production efficiency (equation
3), referred to as the utilization factor, gauging how installed capacity was
effectively utilized. This parameter compared real production volume to the
planned installed capacity. Furthermore, parameter 4, NRW, measured the
disparity between water entering the distribution system and reaching PDAM
customers. Water distribution quantifies the volume sent through pipelines,
while usage records customer consumption.
2.5.
Strategy analysis for the fulfillment of
piped-water needs during the pandemic
The
planned capacity was obtained from the result analysis as the level required by
PDAM to meet the piped-water service coverage target of 35%, while the existing
capacity referred to the current level in the production unit.
3.1.
Overview of Regional Drinking Water
Company (PDAM) in Depok City
The
Regional Drinking Water Company (PDAM) supplies clean water with a total
production capacity of 1,080 L/s across three active water treatment plants:
WTP 1 (620 L/s), WTP 2 (360 L/s), and WTP 3 (100 L/s). PDAM sources raw water
from the Ciliwung River and Angke River, using a supervisory control and data
acquisition (SCADA) system for precise operation. According to the National Agency for Water Supply System
Improvement (2021), the overall performance of PDAM is rated at 3.91 as a Regionally Owned
Enterprise (BUMD) in the drinking water sector. This assessment considered
various aspects, including financial, operational, service, and human
resources. Customer water quality was rated at 4(good) on a scale of 1 to 5.
However, piped-water service coverage, according to service coverage’s equation
number 1 (Equation1), remained significantly low at 17.15%, below the 20%
threshold. In 2020, during the initial year of the COVID-19 pandemic, only
13.9% of the population used PDAM piped-water, while the remaining 86.1% relied
on groundwater and other sources, causing a 20 cm/year drop in the groundwater
level. The government has urged the use of piped-water systems to reduce
reliance on non-piped sources, posing a challenge for PDAM to expand the
service coverage to meet the clean water demands of the city.
3.2.
Comparison of Piped-water Service
Conditions before and during the Pandemic
Figure 2 Coverage of piped-water service by PDAM as of September 2021
Based on the rise in the piped-water service coverage, the total PDAM
water usage has also increased, where the service coverage in 2013 was only
1.9% of the total population (Rachman
et al., 2019). By using Equation2, the results showed that the water consumption by
customers increased by 5% compared to before the pandemic, from 139
L/person/day to 147 L/person/day. This value was higher than the water adequacy
standard based on the World
Health Organization (n.d.), which was 50–100 L/person/day, as the amount of
water to meet basic needs and reduce negative impacts on health. The increase
in water usage during the COVID-19 pandemic was also in accordance with a study
conducted by the Indonesia
Water Institute (2022) in 2021, where 66% of the respondents in the city
experienced elevated water usage during the pandemic, specifically for
household sanitation activities. The customer water consumption before and
during the pandemic obtained from the analysis was used as the reference value
for the subsequent calculation.
The 2021 data obtained from PDAM included installed capacity (1,080 L/s),
real production volume (865 L/s), and NRW level (35%). Based on these data, the
production efficiency was 80%. Compared to the year before the pandemic, this
value has increased, resulting in the use as a reference for the next
calculation analysis. The 35% NRW value obtained was considered high, because
the normal range should ideally be between 18 and 20% based on the Indonesian Ministry of Public Works and
Housing (2018). This
value was also far above the national NRW target of RPJMN 2020–2024, which was
25% (National Agency for Water
Supply System Improvement, 2021). Therefore, the 25% NRW value was set to be the
reference for the next calculation analysis. The NRW level is calculated from
unbilled authorized consumption, customer meter inaccuracies, leaks in
distribution pipes, leaks in customer pipelines to the point of water
utilization by the customer (Farley et al., 2008). From the existing 35% NRW
value by referring to equation4, the distribution was calculated, reaching 90%
of water distributed in the real production volume. This indicated that there
was still <10% of production water that was not distributed to the pipeline
system.
3.3.
Analysis of the Fulfilment of Piped-Water
Needs during the Pandemic
Determining
a society's urban water needs is crucial (Johnstone et al., 2012), this evaluation considered two
scenarios: (1) normal conditions with no increase in water consumption, and (2)
pandemic conditions, reflecting increased water demand. The 35% service
coverage target set by the government for 2021 did not anticipate the pandemic.
Consequently, the analysis demonstrated the necessity of enhancing PDAM
production capacity to meet clean water demands, specifically during the
pandemic. Table 2 in Section 3.2 summarizes the results, providing a comparison
of piped-water services in 2021 under both normal and pandemic conditions.
Based on a service coverage
target of 35%, approximately 730,077 residents were expected to be served by
PDAM piped-water in 2021. As shown in Table 2, under normal condition, the
amount of water distributed to the customers was lesser compared to during the
pandemic. An increase in customer water consumption by 5% during the pandemic
significantly impacted the PDAM supply. To balance the optimistic service
coverage target, the NRW of 25% was used as the water loss level based on the
national target of RPJMN 2020-2024 (National
Agency for Water Supply System Improvement, 2021). Therefore, actions are needed to reduce or
control the existing NRW level which remains above 35%, specifically by
repairing as well as maintaining the distribution network and the components.
The existing capacity of PDAM, namely 1,080 L/s, cannot meet the 35%
target of service coverage in 2021, both in normal condition and with the
increase in water consumption level during the pandemic. Based on the required
real production volume of >1,700 L/s and 80% production efficiency
determined by the calculations, the PDAM capacity needed was around >2,100
L/s. As stated in Table 2, water consumption during normal condition reached
2,200 L/s. Meanwhile, during the pandemic, the value was 2,300 L/s., suggesting
the need for PDAM to increase the capacity to efficiently meet water needs.
The planned capacity required by PDAM to meet the customer water needs
during the pandemic was 2.13 times the existing capacity. This term is known as
uprating or doubling the production capacity of drinking water in the existing
operation of WTP with higher treatment process performance. Uprating can
increase the production capacity by 2-3 times (Pinheiro and Wagner, 2001), with a lower investment cost than building
a new WTP (Sarbidi, 2018). The uprating project
carried out, specifically at WTP 1, increased the existing capacity from 620
L/s to 1,300 L/s or about 2.1 times. Given the uneven distribution of
piped-water service (Figure 2), new WTPs will also be built in Cimanggis and
Cinere Districts. This development aims to expand the PDAM piped-water service
in the eastern and western areas.
Based on the data as of September 2021, 10 out of 11 districts in the
city have received PDAM piped-water service. Although the coverage of service
remained relatively low (14.42%) and not evenly distributed, the customer water
needs have continued to increase, specifically during the COVID-19 pandemic.
This period requires more water than usual due to health protocols (Indonesia Water Institute, 2022). Therefore, this study is
expected to provide an overview regarding the fulfilment of clean water needs
of the people served by PDAM piped-water service.
3.4.
Recommendations to Fulfil Piped-water
Needs
The performance of PDAM was relatively limited in meeting the clean water needs of the city. Ensuring an adequate water supply for all users is a crucial aspect of water resources management (Hapsari, Suryadi, and Tajalla, 2022). The interest of the residents in becoming PDAM customers was also low, due to the abundant access to groundwater which has reached 44.94% according to Indra and Ali (2018), leading to inefficiencies in the procurement and management of the piped-water network. Based on the analysis, the performance of PDAM must be improved, not only to meet the clean water needs of the residents but also to attract non-customers. Thus, a proper distribution system requires optimization (Rezagama et al., 2020). Some recommendations for the piped-water service in the city are summarized in Figure 3.
To prevent disruptions in water supply for customers in the city, specifically during floods, proper system management is required. This is necessary because the production capacity tends to decrease during floods due to the turbidity of raw water. Proper management entails regulating the queue time for water supply to production units, ensuring readiness for distribution (Tadesse, Bosona, and Gebrensebet, 2013). There is also a need for network expansion as a backup and regular system maintenance (Sabara, Afiah, and Umam, 2022). Furthermore, upgrading clean water infrastructure is crucial, specifically during the pandemic and to prevent wider scarcity. A comprehensive plan is needed to enhance the capacity in anticipating disruptions and meeting the increased demand for water as a basic necessity (Berawi, 2021). This result is in line with the study by Van-Loon and Van-Lanen (2013) stating that water scarcity can be influenced by managers. The availability of safe and clean water will also contribute to long-term improvements in public health (Purwanto, 2020). The success of program development largely depends on community involvement (Aja, Kartono, and Soleman, 2022). The sustainable management plan should emphasize ongoing enhancements in stakeholder engagement and infrastructure development (Russo, Alfredo, and Fisher, 2014). In general, stakeholders must continue improving service delivery to meet the clean water needs of the residents through piped-water systems, as outlined in the City Spatial Planning 2012-2032 (Depok City Government, 2015).
Figure 3 Recommendations to improve the piped-water service
In conclusion, the COVID-19
pandemic has underscored the importance of the clean water sector as a critical
defense against the virus. During the pandemic, customer water consumption
increased by 5% to 147 L/person/day. Based on the 35% piped-water service
target for 2021, the current capacity of PDAM was found to be below the
required level. To address this challenge, the production capacity should be
increased by 2.13 times, with optimization of water distribution. Reducing
water loss by 25% was also in line with the RPJMN 2020-2024 goals for improved
PDAM performance. Although immediate changes in clean water supply capacity
might not be feasible, this study underscored the urgency of upgrading
infrastructure to enhance the well-being of the people and prevent broader
water scarcity. These recommendations should be consistent with the Drinking
Water Security Plan (RPAM) to ensure proper fulfilment of public clean water
needs.
The authors
are grateful to the Regional Water Company (PDAM) for the support regarding the
data collection and interview carried out. This study did not receive any
specific grant from funding agencies in the public, commercial, or
not-for-profit sectors.
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