Desalination: Yesterdayʼs Solution (part 3)
This is a guest post by Debbie Cook. Debbie Cook is the former mayor of Huntington Beach, California and was the Democratic candidate for California’s 46th Congressional District in 2008. Cook has had a long interest in the interrelationship between water and energy policy. Her writing on sustainability issues has appeared in the Huffington Post, Energy Bulletin, The Oil Drum and Post Carbon Institute, of which she is also a board member. In this three part series, Cook casts a skeptical eye on the increasingly popular practice of desalination of seawater to meet growing water needs.
Focus on affordable solutions
Worldwide, humans have quickly and wastefully consumed water from the cheapest sources by over-pumping aquifers and over-allocating rivers. Weʼve turned to technology to eek out more but technology is not without its costs. Every remaining incremental gallon of water will come at a higher and higher price. Are we nearing a breaking point?
Prior to the 2008 run-up in oil prices, gasoline, like water, was widely believed to be inelastic–that consumption of such an essential commodity would grow despite the price. But as gasoline prices headed toward $4/gallon, discretionary spending shrank and the economy shrank.
The rising cost of essentials like food, shelter, energy, and water has a disproportionate impact on low income households. Low income assistance programs for water vary significantly from one jurisdiction or utility to the next. For example, in California, San Jose Water provides a 15% discount on the total bill while Valencia Water provides a 50% discount off the monthly service charge. Such programs shift the costs onto remaining consumers and businesses many of whom are themselves facing economic distress. Are these programs sustainable in the face of continuous water rate increases and growing economic challenges?
“A solution isnʼt a solution if it isnʼt affordable.” Those were the cautionary words of Cuban energy expert Mario Avila who visited California in September of 2010. Cuba has lived through a number of energy crisis. The one with which I was familiar was the oil shock that resulted from the collapse of the Soviet Union. But Mario explained that it was the lesser known electricity crisis following the 2005 hurricane season that exposed the vulnerability of their water system. Two power plants were destroyed by two storms plunging the island into relentless daily blackouts. Without electricity, water didn’t move, it could not be treated, and it could not be discharged. Castro declared an “energy revolution” and within a six month window, thousands of “social workers” were deployed to inventory and replace every incandescent light bulb on the island and promote zero interest loans for efficient appliances. Rather than replace the two large power plants, the nation built smaller, distributed power plants improving the resiliency of their system and restoring power and water.
Resilience should be the goal of water planners but most options that improve resilience–water harvesting, conservation, demand management– receive a tepid reception. One major reason is because water providers are paid to sell water, not conserve it. And there isn’t an ongoing assurance for funding conservation or efficiency. When budgets get tight, the conservation budget is the first to be eliminated as was done last year by Metropolitan Water District of Southern California (MWD). Ironically, while eliminating the conservation fund, MWD was approving subsidies for desalination and raising water rates because their conservation message had resulted in lower water consumption. Conservation and low tech options for reducing water demand will never compete against capital projects in the current regulatory framework.
Level the playing field
It isn’t surprising that an industry that canʼt even quantify water in a consistent unit of measure (acre-feet, gallons, cubic meters, units, cubic foot), would apply different criteria to different water options. The result is a misleading comparison between options.
Hereʼs an example. Say a proponent tells you that the new desalination project will produce water at $1000/acre-foot. Youʼre told that your city is buying water from MWD for $750/acre-foot. The natural reaction will be to compare $750 to $1000. But MWDʼs actual production costs are closer to $200 of that $750 figure. That means $550 is covering their fixed costs. So even if you reduce your imported water by 10%, the remaining costs will have to be levelized across all water purchasers (including your cityʼs 90% remainder). Communities that are not the recipients of the desalinated water will nevertheless be footing the bill through subsidies and cost sharing.
Similarly there has not been a fair method for comparing conservation measures to traditional water sources. For example, the cost effectiveness of rainwater tanks has traditionally been calculated by comparing the cost of installation against the savings on household bills. But this ignores the broader cost savings to the community in deferred water infrastructure, storm water infrastructure and environmental externalities like greenhouse gas emissions. When those are accounted for, rainwater harvesting is superior to desalination.
A model already exists for a regulatory framework that would address such conflicting motivations. In 1982 California became the first state to adopt an electric revenue decoupling mechanism. This gave utilities the incentive to promote conservation and efficiency because their ability to recoup their fixed costs was decoupled from the volume of their sales. In addition to decoupled rates, California has a “loading order” of energy preferences that place priority on the least expensive and most environmentally protective resources. When meeting Californiaʼs energy needs, conservation and efficiency are considered before additional generation is added.
A sustainable conservation budget would give priority to cost effective programs like water capture, drip irrigation, water recycling, low-flow devices, and water management programs that reduce demand, costs, and bring true resilience to the water sector.
Left to compete on an uneven field, conservation will remain the bastard step-child to desalination. In 2006, many communities in Australia were offering substantial rebates on water tanks. By 2007, demand was so high that prisoners were put to work building tanks. Government leaders, buoyed by studies that demonstrated other options as more cost effective than desalination, 23 pledged $250m toward their goal of reaching 500,000 households. Then in 2008, with the collapsing economy and in the midst of the desalination boom, the Bligh government dismissed wide scale rollout of water tanks. Some officials sensed a threat of competition to their capital projects, going so far as to suggest the licensing of water tanks so as to enable levying taxes on rainwater collected.
Remove the rose-colored glasses
Technology has its place. But it is not magic and shouldn’t be seen as the solution to all our problems. That which is technologically feasible is not necessarily economically feasible. Desalination cannot be “greened” by utilizing solar or wind energy for its energy requirements. Not only is the scale of such a proposal ginormous, it ignores the fact that all renewable energy resources are backstopped by fossil fuels. Moreover, the price of such a proposal would significantly increase the cost of desalination, exacerbating the economic problems of water pricing and availability.
Perhaps the most important lesson I have learned over the past eight years of observing the desalination and water industry is that we create our own problems. And we are stuck in a perpetual feedback loop applying fixes to yesterdayʼs solutions. Thatʼs the perfect recipe for rear-ending our future. The remedy is to increase our awareness of unintended consequences and the dynamic relationships between water, the environment, and human settlements. It is a systems thinking approach that starts with a willingness to open our minds and apply critical thinking.
To that end, I welcome all participants.