NEWATER PROGRAMME Overview / Summary of the Initiative

NEWATER PROGRAMME Overview / summary of the initiative

Title: NEWater programme

Thematic area: Circular economy and re-industrialisation, Security

Objective(s): NEWater is one of the pillars in the Singapore water sustainability strategy. It is expected that by 2060, the NEWater high-grade recycled water will meet up to 55% of Singapore’s water needs.1 NEWater (water recycling) contributes towards to ensuring a safe, sustainable and continuous supply of water to Singapore. Timeline: 2003 (first two NEWater plants launched)2 –

Scale of the initiative (resource/budget indication): NEWater is one of the four main sources of water supply in Singapore. Estimating the overall investment in the technology and establishment of the plants is difficult. However, in 2004, PUB formed its water R&D program which has since supported more than 510 projects with a collective value of S$ 356 million.3 The S$200 million dedicated to the water industry from the National Research Foundation (NRF) announced in 2016 has been estimated to bring the total water R&D funding to S$670 million over 15 years.4 Scope of the initiative: Water R&D in Singapore – led by PUB (Singapore’s National Water Agency) - covers the whole water cycle and the whole innovation chain. Research for water innovations is supported in the stages of idea development, pilots, demonstration, test-bedding and commercialization. This is also exemplified by NEWater, the brand name used for the high-grade reclaimed water produced in Singapore using membranes and ultra- violet disinfection.5 In the 1970s, Singapore commissioned a study of the feasibility and suitability to use membrane technology for water treatment. Due to high costs and unproven reliability, the technology was not adopted at the time. Nonetheless, as the technology advanced, a new study was conducted in the late 90s, followed by a demonstration plant in the early 2000s. In 2003, the first two operational plants were opened.6 Research efforts still continue to optimise the technology, improve the NEWater recovery rate, and generally look for more cost- effective methods to treat, recycle and supply water.7 Source of funding (public/private/public-private): Public Granularity of the initiative (initiative, policy approach): Public policy - NEWater is one of the four main sources of water, so called ‘four Taps’, in Singapore. NEWater is a strategic choice for Singapore which aims to insure continuous and reliable water supply. NEWater thus forms one of the main pillars of Singapore’s sustainability plan. NEWater is produced in (currently five) plants in Singapore and is managed by PUB, the National Water Agency. Source (webpage): https://www.pub.gov.sg/watersupply/fournationaltaps/newater

Brief description of the initiative: As a way to ensure adequate and sustainable water supply, Singapore has embraced technology and innovative water management strategies and the government has adopted targeted research programs.8 Reusing water – applied through the production of NEWater - is one of the cornerstones in Singapore’s water strategy (the other two are maximising water collection and catchment and making use of sea water through desalination).9 NEWater is the brand name used for ultra-clean, recycled water in Singapore. NEWater is also one of the “Four National Taps” ( water from local catchment, imported water, NEWater, and desalinated water) which contribute towards the diversified water supply. NEWater is used mainly for industrial purposes, but when necessary, it is added to the water reservoirs for tab water. NEWater is produced when reclaimed used water is treated with membrane technology (microfiltration and reverse osmosis) and ultra-violet light.10 Presently, the five operating NEWater plants can supply up to 40% of the water needs

1 PUB (2017), “Our Water, our future”, available at: https://www.pub.gov.sg/Documents/PUBOurWaterOurFuture.pdf 2 PUB (2017), “Our Water, our future”, available at: https://www.pub.gov.sg/Documents/PUBOurWaterOurFuture.pdf 3 PUB (2017), “Innovation in Water Singapore”, an R&D Publication of PUB Singapore, Vol. 9, available at: https://www.pub.gov.sg/Documents/PUB_InnovationinWater_Issue9.pdf 4 PUB (2016), “S$200 million funding boost for Singapore’s water industry over the next five years”, published on 10.07.2016, available at: https://www.pub.gov.sg/news/pressreleases/s$200millionfundingboostforsingaporeswaterindustryoverthenextfiveyears 5 PUB, “Singapore Water Story”, available at: https://www.pub.gov.sg/watersupply/singaporewaterstory 6 PUB (2017), “Our Water, our future”, available at: https://www.pub.gov.sg/Documents/PUBOurWaterOurFuture.pdf 7 PUB (2017), “Our Water, our future”, available at: https://www.pub.gov.sg/Documents/PUBOurWaterOurFuture.pdf 8 PUB (2017), “Innovation in Water Singapore”, an R&D Publication of PUB Singapore, Vol. 9, available at: https://www.pub.gov.sg/Documents/PUB_InnovationinWater_Issue9.pdf 9 PUB (2017), “Our Water, our future”, available at: https://www.pub.gov.sg/Documents/PUBOurWaterOurFuture.pdf 10 PUB, “NEWater”, available at: https://www.pub.gov.sg/watersupply/fournationaltaps/newater in Singapore. As water demand is expected to grow, there are plans to increase this capacity so that by 2060 NEWater will be able to meet up to 55% of the water needs in Singapore.11 I: Background, origin, mission and ambition

Ia: Origin Singapore is one of the most water-stressed countries and relies on water imports (water agreement with Malaysia will expire in 2061).12 In its strive to reduce its water dependency, Singapore has been one of the frontrunners in water innovation. The idea behind NEWater is not new. Already in 1970, a feasibility study concluded that while possible, the technology was too expensive.13 With the advancement of membrane technology, the idea gained new momentum and in in 1998, a NEWater study was initiated.14 Following extensive tests for safety and compliance with international water quality standards, 15 including from an international team of experts, the first two NEWater plants were opened in 2003. Since 16 then three more plants have been added, with the latest plant opening in 2017. Ib: Initiator The Singapore’s National Water Agency (PUB) is the main body responsible for water management in Singapore and NEWater. Ic: Mission and ambition NEWater is one of the pillars in the Singapore water sustainability strategy and constitutes on of the four water “taps” in Singapore. NEWater is expected to be able to meet up to 55% of the water needs in 2060 (an increase from the current capacity to meet max 40% of the needs) and to continue to contribute towards a diversified and reliant water system. In addition to the already utilized water technologies, Singapore has continued its R&D water related efforts. These cover issues such as new technologies and improved performance of current technologies such as membranes used in the production of NEWater. The main ambition of the PUB’s water R&D program is to contribute towards a sustainable water supply for Singapore through increase in Singapore’s water resources, reduction of production costs, 17 enhancement of water quality and security, and growth support the water industry . Id: Decision making process Through what kind of decision making processes the ambition level, objectives, targets and milestones were set? Are they measurable? What is the timespan? The objective to increase NEWater capacity to meet 55% of the nation’s water needs by 2060 stems from the expectations that the water demand will only increase, both from industry and from domestic users. Additionally, Singapore also expects that the agreement for water import from Malaysia will also end in 2061, thus driving the need for non-conventional water supply. The goal of the government to work towards water self-reliance is clear and the target capacity for NEWater is set in a measurable manner. This does not however mean that this is the end of NEWater or the R&D water policy.18 The decision to implement the membrane water treatment technology was taken after a comprehensive study (first in the 1970s and then in 1998). The 1998 NEWater study took two years and the results were evaluated by a panel of 19 foreign and local experts before the decision to commission the first two NEWater plants. Ie: Linkage to other governance levels Are the objectives linked to other governance levels (i.e. international, EU, national, regional, local) and if so, how? The policy is national and no regional policies were found. If: Geographical scope What is the geographical coverage (one country, wider coverage, local/regional/state level) The water R&D policy and NEWater are both country-wide initiatives. Ig: Time span What is the expected / anticipated time span of the initiative N.A. The goals have been set for 2060, but the production of NEWater is expected to continue further in time. II: Formation IIa: Driving forces

11 PUB, “NEWater”, available at: https://www.pub.gov.sg/watersupply/fournationaltaps/newater 12 PUB (2017), “Our Water, our future”, available at: https://www.pub.gov.sg/Documents/PUBOurWaterOurFuture.pdf 13 PUB (2017), “Our Water, our future”, available at: https://www.pub.gov.sg/Documents/PUBOurWaterOurFuture.pdf 14 PUB, “NEWater”, available at: https://www.pub.gov.sg/watersupply/fournationaltaps/newater 15 PUB (2017), “Our Water, our future”, available at: https://www.pub.gov.sg/Documents/PUBOurWaterOurFuture.pdf 16 PUB (2017), “Singapore's fifth NEWater plant opens”, published 17.01.2017, available at https://www.pub.gov.sg/news/pressreleases/singaporefifthnewaterplantopens 17 PUB (2011), “Innovation in Water Singapore”, an R&D Publication of PUB Singapore June 2011, available at: https://www.pub.gov.sg/Documents/InnovationWater_vol1.pdf 18 PUB (2017), “Innovation in Water Singapore”, an R&D Publication of PUB Singapore, Vol. 9, available at: https://www.pub.gov.sg/Documents/PUB_InnovationinWater_Issue9.pdf 19 World Health Organization (2017), “Potable reuse: Guidance for producing safe drinking-water”, Geneva, Switzerland, available at: http://apps.who.int/iris/bitstream/10665/258715/1/9789241512770-eng.pdf The main actor behind the NEWater is PUB (National Water Agency) which is responsible for the overall management of the water system. Singapore is water-stressed country20 and this has been one of the main drivers for its intensive water R&D policy and the adoption of non-conventional water supply methods such as NEWater. Despite of the frequent rains, the country has limited land and water storage facilities and has historically depended on water from Malaysia.21 In order to reduce its dependency on imported water, the country needed to turn to technology and non-conventional water supply measures. Other drivers include the anticipated increase in the water demand and the upcoming end of the agreement for water supply with Malaysia (2061).22 Currently, Singapore makes use of four “taps” of water – (1) Water from Local Catchment, (2) Imported Water, (3) NEWater (purified reclaimed water), and (4) Desalinated Water.23 IIb: Approach The approach was top-down from the government and the PUB (national water agency). Nonetheless, prior to introducing NEWater, an extensive consultation with the public was commenced (see below). IIc: Citizen involvement Singapore managed to secure society and industry acceptance for its reused water solution (NEWater) due to a wide public communication program and engagement with different stakeholders. The communication strategy included: 24 - Engagement with and explanation to diverse stakeholders (from industry, citizens, to religious groups) - Exhibitions and roadshows to build trust - Establishment of an information and education centre in the form of NEWater Visitor Centre where everyone can view the process and find out more about Singapore’s water policy and NEWater. - Appointing external (national and international) experts to review the technology, system and results - Early engagement with the media to present an objective image of the technology - Political demonstration that the government trusts and supports the solution (drinking NEWater, toasting with it, etc) III: Technical and political feasibility IIIa: Technical feasibility assessment The NEWater initiative (recycling of water) was first tested with a feasibility study in the 1970s. Subsequently, in 1998, another study was initiated and a pilot tested for feasibility and reliability. The two-year study allowed PUB to test and assess the technology. The water was extensively tested and continuously monitored against drinking water standards.25 The water continues to be tested twice a year to ensure the proper function of the system and assure the public. Even though NEWater has been in operation for a decade, PUB continues to work on its membrane technology, optimize the operations and test new solutions. R&D is developed, also in collaboration with partners, and new ideas tested continuously.26 For example, pilot test are used in water treatment facilities to check for new ways to reduce fouling of ultrafiltration membranes. IIIb: Ex ante technical and risk assessment The technical and feasibility studies were done prior to launching the initiative. Experts were also sent to the US in 1998 27 to evaluate water reuse projects and evaluate the viability of the technology. IIIc: Success factors At the time that the water re-use initiative was again considered in 1998, the technology had progressed considerably and other actors were also looking into the technology advantages, thus helping with the evaluation and supporting the idea that the technology is reliable. A gap in the public understanding and potential negative perception were anticipated and communication with stakeholder opened. IIId: Incentives As already mentioned, Singapore managed to secure society and industry acceptance for its reused water solution due to a wide public communication program and engagement with different stakeholders.28 This has increased the trust of the public in the technology and the water quality.

20 http://www.wri.org/blog/2013/12/world%E2%80%99s-36-most-water-stressed-countries 21 http://www.prime.sg/2016/08/17/singapores-water-shortage-our-water-story/ 22 PUB (2017), “Our Water, our future”, available at: https://www.pub.gov.sg/Documents/PUBOurWaterOurFuture.pdf 23 https://www.pub.gov.sg/watersupply 24 World Health Organization (2017), “Potable reuse: Guidance for producing safe drinking-water”, Geneva, Switzerland, available at: http://apps.who.int/iris/bitstream/10665/258715/1/9789241512770-eng.pdf 25 World Health Organization (2017), “Potable reuse: Guidance for producing safe drinking-water”, Geneva, Switzerland, available at: http://apps.who.int/iris/bitstream/10665/258715/1/9789241512770-eng.pdf 26 PUB (2017), “Innovation in Water Singapore”, an R&D Publication of PUB Singapore, Vol. 9, available at: https://www.pub.gov.sg/Documents/PUB_InnovationinWater_Issue9.pdf 27 World Health Organization (2017), “Potable reuse: Guidance for producing safe drinking-water”, Geneva, Switzerland, available at: http://apps.who.int/iris/bitstream/10665/258715/1/9789241512770-eng.pdf 28 World Health Organization (2017), “Potable reuse: Guidance for producing safe drinking-water”, Geneva, Switzerland, available at: http://apps.who.int/iris/bitstream/10665/258715/1/9789241512770-eng.pdf IIIe: Political and societal assessment Following a recommendation from the international expert team assessing the NEWater plant, a comprehensive IPR strategy was initiated. This included consultations with the industry and public, including familiarizing the public with the technology, the process, and establishing the NEWater Visitor Centre. In 2002, an independent survey found that 98% of the population accepted and supported NEWater and 82% were willing to drink it directly.29 IIIf: Interim political and societal assessment The R&D water program is continuously legitimised with the potential water supply problem. Due to the limited natural water supply, water innovation has been continuously supported by political representatives. To mitigate social preferences risks, a comprehensive communication program was undertaken. Besides this, it is not clear if other assessment was made of the political needs to attain the mission vis-à-vis political cycles/re- election/changes in government. IIIg: Financial risk assessment The feasibility study of the 1970s concluded that the technology was too costly. This did have impact on the decision to not implement the technology at that point (also other factors such as reliability of the technology were also important). IV: Governance: organisation, management and coordination

IVa: Governance PUB manages is tasked with the management of the integrated water system in Singapore, including the water supply, demand management, catchment and the collection and management of used water. The National Water Agency is operating under the Ministry of the Environment and Water Resources.30 PUB is also responsible for the development of the water R&D programs. IVb: Progress monitoring The NEWater undergoes audit by external panel every six months to make sure that the quality of the water is sufficient.31 Progress is monitored by PUB which is PUB is streamlining Singapore’s used water infrastructure to allow it to collect maximum amount of used water. Already the process is in stage two. Additionally, plans for 3 new 32 desalination plants are also made to be built by 2020. IVc: Public-private involvement The NEWater solution and the water research program are governed by PUB (i.e. publicly governed). IVd: Communication and dissemination The consultation with stakeholders has continued after the introduction of the initiative. Stakeholders can request information or help from the NEWater Visitor Centre, as well as a visit and tour. V: Resources and budget needs/availability Va: Scale NEWater is one of the four main sources of water supply in Singapore. Estimating the overall investment in the technology and establishment of the plants is difficult. However, in 2004, PUB formed its water R&D program which has since supported more than 510 projects with a collective value of S$ 356 million.33 Vb: Funding sources Public funding Vc: Allocation of the budget It was not possible to determine the allocation of budgets to NEWater and the different activities connected to it due to sensitivity of the data. VI: Policy mix and integral (‘holistic’) use to deploy mission-oriented R&I-initiatives

VIa: Policy mix The NEWater program is only one of the water R&D pillars of Singapore. As already mentioned desalination is also one of the ways in which Singapore ensures its water supply. R&D funding for water is provided to ensure that new solutions are explored. In addition, there are policies encouraging water preservation. VIb: Engagement of citizens The biggest public engagement tool currently is the NEWater Visitor Centre, which provides information, advise and where concerns can be shared. The PUB website also has information on compliance and different involvement activities.34 VII: Embeddedness of and connectivity with related initiatives (regional, national, supranational, global)

29 World Health Organization (2017), “Potable reuse: Guidance for producing safe drinking-water”, Geneva, Switzerland, available at: http://apps.who.int/iris/bitstream/10665/258715/1/9789241512770-eng.pdf 30 https://www.pub.gov.sg/about 31 https://www.pub.gov.sg/watersupply/fournationaltaps/newater 32 PUB (2017), “Innovation in Water Singapore”, an R&D Publication of PUB Singapore, Vol. 9, available at: https://www.pub.gov.sg/Documents/PUB_InnovationinWater_Issue9.pdf 33 PUB (2017), “Innovation in Water Singapore”, an R&D Publication of PUB Singapore, Vol. 9, available at: https://www.pub.gov.sg/Documents/PUB_InnovationinWater_Issue9.pdf 34 https://www.pub.gov.sg/compliance VIIa: Relationships/links/synergies to similar initiatives elsewhere Some initiatives in the US have been found, for example Orange County Water District (OCWD).35 VIIb: Links to UN Sustainable Development Goals As the initiative tackles the problem of drinkable water supply in Singapore by providing a non-conventional recycled ultra-clean water, NEWater can be directly connected to Goal 6: Ensuring access to water and sanitation for all VIII: SWOT analysis

VIIIa: Strengths Some of the strong internal strengths of the initiative are: • The strong and experienced management body (PUB); • The continuous R&D investment and effort put;, • And the well planned and executed communication plan which ensured public support and acceptance of the water • The continuous support of policy and apparent political commitment VIIIb: Weaknesses The initiative should further promote international projects or policies similar to its goal. VIIIc: Opportunities Currently, environmental policies in general and sustainability plans are high on the political agenda worldwide. NEWater and the Singaporean water innovation policy can and should continue to conduct research to sustain the push created by recent international environmental goals. VIIId: Threats One of the threats is that the public opinion will shift. However, this is a very small risk due to the significant support already obtained and the comparatively long adoption of the technology already. VIIIe: Lessons learned The stakeholder communication and engagement are essential part of a successfully accepted innovation. It is important to know what the concerns of the public might be and how to address these. Sustained political support of a chosen policy helps with the acceptance and trust building and teaches by doing.

35 World Health Organization (2017), “Potable reuse: Guidance for producing safe drinking-water”, Geneva, Switzerland, available at: http://apps.who.int/iris/bitstream/10665/258715/1/9789241512770-eng.pdf