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Energy 33 (2008) 1591–1596

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Energy journal homepage: www.elsevier.com/locate/energy

Energy efficiency, security of supply and the environment in South Africa:
Moving beyond the strategy documents
A.B. Sebitosi Ã
Department of Electrical Engineering, University of Cape Town, Rondebosch 7701, South Africa

a r t i c l e in fo

abstract

Article history:
Received 18 April 2008

Energy efficiency is one of the most potent and cost effective ways of meeting the demands of sustainable development. It has in fact been referred to as the best energy resource. Way back in 2005 the South African Department of Minerals and Energy (DME) published its Energy Efficiency Strategy in support of some of the objectives enlisted in the 1998 White Paper on Energy Policy. The Strategy set a national target for energy efficiency improvement of 12% by 2015 against the baseline year 2000. The document further predicted that, with a business as usual model of energy usage, at the projected rate of national economic development, there would be a need to invest in new power generating capacity by around 2007. Despite the policy foresight and seemingly enthusiastic efforts, though, the dawn of
2008 saw the country gripped in an electric power crisis, with a capacity shortfall of over 10%. This paper looks at what could have gone wrong, examines energy efficiency policies and measures in other countries and how these lessons could be adopted to the South African context.
& 2008 Elsevier Ltd. All rights reserved.

Keywords:
South Africa
Environment
Energy security
Energy efficiency

1. Introduction and background
‘Electricity demand has not reduced by the required 10% in order to stabilise the national power grid. ESKOM has therefore instituted load shedding from the 1st of April (2008) in order to stabilise the national power grid. For more information about loading shedding schedules in your area please check in your local newspapers or visit www.eskom.co.za.’ The foregoing announcement was posted in the South African national news media, including radio and television, by the power utility ESKOM from mid March 2008. This had been preceded by weeks of passionate appeals to industry and the public, by the Minister of Minerals and
Energy as well as ESKOM, to cut down on their electricity consumption by the said amount.
Energy efficiency has become recognised as one of the most cost effective ways of meeting the demands of sustainable development. It has been aptly referred to as the best energy resource. Way back in 2005 the South African Department of
Minerals and Energy (DME) published its Energy Efficiency
Strategy [1]. This was in support of some of the objectives spelt out in the 1998 White Paper on Energy Policy [2]. The Strategy set a national target for energy efficiency1 improvement of 12% by
à Tel.: +27 21 650 5253; fax: +27 21 650 3465.

E-mail address: Adoniya.Sebitosi@uct.ac.za
The performance index in this case is the primary energy consumed
(or equivalent tons of oil (toe)) per Gross Domestic Product (GDP) of growth.
1

0360-5442/$ - see front matter & 2008 Elsevier Ltd. All rights reserved. doi:10.1016/j.energy.2008.08.003 2015. The baseline year for this target was 2000. According to [3] the national energy intensity of South Africa stood about 3.3 times the average in OECD countries in 2000. This is despite the fact that energy consumption per capita in South Africa is about half of the average consumption in OECD. See Table 1. Additionally the country is ranked as the 7th biggest emitter of green house gases
(GHG) per capita. So there are serious environment issues as well.
The target set out in the South African Strategy would be achieved largely via enabling instruments and interventions. They would specifically include economic and legislative means. Such measures as efficiency labels and performance standards, energy management activities and energy audits, as well as the promotion of efficient practices would be adopted.
The Strategy document further predicted that, with a business as usual model of energy usage and at the projected rate of national economic development there would be a need to invest in new power generating capacity by around 2007. In the intervening period sporadic blackouts that initially appeared to be due to maintenance were experienced in various parts of the country particularly the high-load centres of Gauteng and
Western Cape Provinces, with the frequency peaking during the winter months of June and July.
ESKOM responded with several ad hoc interventions like the roll out of millions of free compact fluorescent lights, to retrofit the traditional incandescent lights, particularly to low-income households. The utility also began advertising energy saving campaigns through its demand side management (DSM) website [5] that

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Table 1
Energy consumption indicators [3,4]
Total primary energy (toe) supply (TEPS) per capita
South Africa
Africa
South Korea
Indonesia
Non-OECD
OECD
World

Total primary energy
(toe) supply per GDP

2.15
0.64
4.10
0.69
0.96
4.78
1.67

0.63
0.86
0.31
0.70
0.74
0.19
0.30

included offers of financial incentives to consumers who would observe a listed catalogue of energy saving measures and tips.
Despite the policy foresight and seemingly enthusiastic efforts, though, the dawn of 2008 saw South Africa gripped in an electric power crisis, which threatened even the continuity of the very core of the country’s traditional economic engine, the mining sector. The estimated generation shortfall was 5000 MW or just over 10%. This was precisely the time that had been predicted by the strategy document. The accuracy of the timing of this prophecy is, arguably, the most compelling indictment against the country’s lack of decisiveness in the implementation of policy beyond the energy strategy.
It is now widely recognised that the most potent and costeffective energy (as well as environmental) conservation model follows a hierarchy structure of prioritization. In principle one has at the top of the hierarchy the changing of human behaviour to reduce demand while not necessarily compromising on value.
This is followed by the application of improved technologies such as energy efficient appliances. After this one considers power generation from (distributed) renewable and sustainable resources. Then follows the adoption of modern low or no carbon technologies for conventional resources and only as a last resort would one consider (at least in theory) traditional exploitation of conventional energy resources.
But, as the IET [6] has rightly observed, there is no silver bullet to the scale of energy challenges that humanity is currently facing and the only viable solution lies in a well configured mix of available ‘hard’ and ‘soft’ options. But how conducive is the South
African energy policy environment for addressing these challenges?
To begin with, since the publication of the Strategy there has been no follow-up legislation. Consequently, there is no yardstick by which progress could be monitored, since no process has been legally set in motion. Nor has there been any publication of estimates in energy efficiency trends.
This paper examines some energy efficiency policies and measures that have been used in other countries and how these lessons could be adopted to the South African context.

2. Drivers and procedures for energy efficiency other countries
Different countries drive their energy conservation agenda by adopting different socio-political strategies [7–10]. In a 2004 report the World Energy Council in collaboration with the French
Environment and Energy Management Agency (ADEME) published energy policies in 65 countries, studied and evaluated since
1992 [11]. In the EU [12–14] for example the main emphasis has been on environmental conservation while in the US, the enhancement of national energy security has been the main focus. Laws to enforce or guide these policies and strategies were as a rule, always put in place.

On December 19, 2007, President George Bush signed into law the Energy Independence and Security Act of 2007 [15]. It embodies among others, the Renewable Fuels Mandate, which will enable an increase in the use of renewable fuels of 500% and thus requiring fuel producers to achieve a capacity of 36 billion gallons in 2022. It also embodies the Vehicle Fuel Mandate, which specifies a national mandatory fuel economy standard of 35 miles/ gallon by 2020 and consequently increasing the efficiency by 40%.
The Act also advances lighting efficiency through the Lighting
Efficiency Mandate. This will see to the phasing out of incandescent bulbs by 2014 and improve the general lighting efficiency by over 70% by 2020. Added to these is the Appliance Efficiency
Mandate, which sets 45 new standards for appliances. And finally the Federal Government Operations Mandate will see to the reduction of energy consumption of Federal Government facilities of 30% by 2015 and subsequently forcing all government buildings to be carbon free by 2030.
Japan is the world leader in terms of energy consumed per unit
GDP of growth. Their basic laws concerning energy conservation and the environment have been in place for over 30 years. Act no.
49 concerning the rational use of energy came into force on the
22nd June 1979 [16]. This along with subsequent additions and revisions [17–21] saw the country achieve an unprecedented reduction of 37% in energy efficiency2 (in terms tons of equivalent oil consumption per GDP of growth) over the period.
In 2006 the Japanese cabinet approved the New National
Energy Strategy. It set an energy efficiency target of a further 30% by 2030. The stated objectives were to, establish energy security measures that the Japanese nation could trust and rely on, establish the foundation for sustainable development through the comprehensive and integrated solution of energy and environmental issues. The Strategy, however also called for expanding energy and environmental cooperation in Asia.
The Japanese spelt out a set of concrete measures that would be put in place to achieve five stated goals. First was the reduction on dependence on oil as a primary energy source to o40% through the structural change of energy demand and supply. This would be carried out by the implementation of a variety of plans and actions to achieve the other four goals. Secondly, the consumption of oil in the transport sector would be reduced to 80%, through a three pronged strategy namely, improved fuel efficiency, introduction of biomass fuels and promotion of the use of electric and fuel cell vehicles.
Third measure would be the improvement of fuel efficiency.
The fuel efficiency of passenger vehicles would be improved by
23.5% from 13.6 in 2004 to 16.8 km/l in 2015. This target would be achieved by rapid progress in engine performance and promotion of further spread of diesel engine cars. This would also include the improvement of the fuel’s octane value through research.
In the area of biomass fuels, regulations on fuel quality would be revised. Next would be the introduction of futuristic technologies of hydrogen, electric and hybrid vehicles. Appropriate step up of research and development (R&D) as well as infrastructure would support these developments. In addition to the stated technical measures the diffusion of these new technologies (into society) would also be actively encouraged. Another measure would be the promotion of energy conservation.
All these measures are categorized into four general sectors namely, industrial, civil, transport and an additional sector for cross-cutting issues. The highest achievements were realized in industrial energy conservation. This had been primarily anchored
2
It ought to be emphasized that the energy consumption of Japan only decreased in terms of units per GDP but actually increased in real terms since the economy grew over the said period. A similar scenario should happen over the projected period.

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by two policies namely, the Guidance Policy and the Top Runner
Programme. These were the joint efforts of government and industry under the support of the general public.
The Guidance Policy was enabled through rationalization and modernization by industry or enterprise. The policy was originally based on industry voluntary participation and primarily introduced in manufacturing sector. Government would set a guideline for industry and industry would be asked to come up with an action plan. It would also provide guidance to industry where necessary. Thereafter government would make performance assessment. The Top Runner Programme, on the other hand, was enabled through development and diffusion of new products or commodities. The best facilities, plants, equipment, and instruments that were already in practical or commercial use were adopted as the standard for energy efficiency. The program was originally introduced to home appliances such as refrigerators and air conditioners. By this program a substantial number of commodities reportedly achieved 10–30% of energy saving [21].
The implementation of a well-planned energy efficiency strategy, however, may not necessarily result in a trouble free success story, due to a variety of factors. In their review of energy conservation initiatives in India, Nandi and Basu [22] enumerate a range of barriers encountered by the country’s energy conservation programmes. These included political interference as well as lack of adequate consumer sensitization and awareness. In a
Swedish case study lack of investment capital was cited as a major barrier to energy conservation [23].
There were also circumstances where seemingly well-executed energy efficiency programmes resulted in less than the expected energy savings. Examples include such phenomena as the socalled ‘rebound effect’ [24] where consumers subsequently use the savings realized in additional expenses. Quite often these additional expenses are luxuries. Even the Japanese point out that conservation measures in the household and transport sectors have not been as successful as in industry. This was largely attributed to the fact that household and transport energy usage relied more on individual human efforts and behaviour.
Despite such setbacks, however, most of these programmes realized actual positive gains even if less than might have been anticipated. In any case this author has not come across a country that managed to achieve any energy efficiency gains without a well-executed policy strategy.

3. Applying the hierarchy model to South Africa
3.1. Changing human behaviour
Talking of climate change, John Baird, the Canadian Environmental Minister has once remarked that nothing short of a total cultural change of our patterns of behaviour and activity, our habits, technology and ways of doing business and politics can achieve the massive transformation needed to avoid the worst
[25].
A 2006 study [26] was conducted by the Commission of
European Communities to solicit public views on the, ‘‘Green
Paper on Energy Efficiency, or Doing More with Less’’ [27] that had been published by the EU Commission on Energy and Transport, the previous year. The participants included, Non-government
Organizations (NGOs), Member States and public bodies, industry, the private sector and private citizens.
A number of questions were posed to the participants. For example, how investment in energy conservation could be stimulated. The most popular response was that there was need for sensitization and information. The report adds, ‘ ‘‘Green’’ ethics

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and behavior should be encouraged and embedded in people’s minds because the steering engine for action is society.’
In South Africa, the government and ESKOM, the power utility, have for long recognised and used the model of public sensitization and information. Unfortunately, the purpose for the effort has traditionally been to achieve the precise opposite namely, more consumption. Like all traditional utilities the primary objective has always been to maximize sales. This was augmented further with a plethora of direct and/or implicit messages that the country had the lowest electricity tariffs in the world, apparently, implying that there is plenty to go around. Not surprisingly, therefore, a section of the public found ESKOM’s recent apparent change of mind, quite confusing. The government was also hard pressed to convince South Africans that the power shortage problem was not as a result of ESKOM’s incompetence that could perhaps be solved by the replacement of the management.
Another problem would appear to be the utility’s apparent failure to solicit or encourage consumer contribution when tackling any problem. This could lead to possible lack of consumer buy-in to their proposals. For example, the aforementioned DSM website only contains instructions and ‘tips’ as to what consumers should do and no room seems to be given for any contribution from consumers. It is apparently deemed neither possible nor desirable for the consumer to make any useful suggestion. This is in sharp contrast with, for example, the aforementioned Japanese
Guidance Policy, where government (or in this case ESKOM) would set a guideline and industry (the consumer) would be given the responsibility to come up with the action plan.
The Government and utility have also not been seen to lead by example. With all their messages to urge the public to conserve energy ESKOM has made little or no effort to demonstrate that they are practicing these same measures. This includes their generation and transmission infrastructure as well as administrative facilities.
In an attempt to interrogate the efficacy of the current ESKOM
DSM drive, this author posed the following pertinent questions, by email, to the designated Industrial Sector Contact Person for
ESKOM DSM.

 Are we drawing the attention of the South African consumer?
 Are we making any in-roads in reaching the South African consumer?  Are we succeeding in convincing the consumer to act?
 If so, is the consumer’s reaction sustainable?
 Do we have an index by which to quantify our success (or lack thereof)?  Do we have an effective energy services industry through which we can sustainably reach the consumer?

 If the answers are largely, NO, how can we (the public, institutions) contribute to help?
In response by a telephone conversation the DSM caller told this author that she required conferring with her superiors before responding to the queries. Further attempts by the author to contact ESKOM on the issue were totally frustrated, by a total communication blackout.
In order to comprehend the severity of South Africa’s and in particular ESKOM’s energy information confidentiality one needs to look briefly at the country’s history. South Africa was subjected to international isolation, particularly during the 30-year period before 1994. Survival through self-sufficiency during that period became the Government’s priority. Energy was a major component of the State Security Machine. Consequently the South
African government severely restricted energy-related information and statistics through Acts of Parliament [28]. These

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restrictions led to the unavailability of comprehensive energy information and lack of good energy data. Unfortunately this legacy still lingers on.
In her introductory remarks in the 2005 (tri-annual) Energy
Digest the Minister of Minerals and Energy (DME), Lindiwe
Hendricks, lamented that the supply of energy data was only available on a voluntary basis even to her ministry [28]. ESKOM’s dominance of the electricity supply sector means that virtually the country’s entire database is in their custody and without their cooperation no serious planning can be effected by any other institution whether public or private. To address this anomaly the
Minister pledged that the DME would (among other measures) be making the provision of energy data mandatory through a new energy bill. The bill is yet to be publicized. Without transparency in energy supply, delivery and consumption data, it would be difficult even for a private investor to make an informed decision.
There are other seemingly trivial issues that have also been identified as disincentives to sustained consumer participation in energy efficiency drives in South Africa. One example is a practice of inconsistency (or delay) in the reading of consumer energy meters by utilities. Complaints have been raised particularly by domestic consumers who may have undertaken some measures to save energy, over certain periods, but failed to notice a reflection of this effort in the bills. Unfortunately, this frustrated anticipation is common as many South African municipalities have a practice of lapsing long periods between the time of reading the meter and billing [29–31]. In many cases the authority merely estimates
(rather than actually reading) a consumer’s monthly consumption based on previous performances and only following up for correction months later. Thus many a consumer is left wondering whether any of the measures previously taken did in fact make any difference.
Introducing energy awareness to children through schools has been suggested as one of the most effective tools in sensitizing society. In the US for example, the Department of Energy (DOE) designates the month of October as an energy awareness month
[32]. Schools are encouraged to promote this objective by participating in energy efficiency and conservation activities.
However schoolteachers have been identified as often lacking the training in issues related to energy efficiency, renewable energy sources and the rational use of energy. Additionally, traditional school curricula have been identified as often lacking the flexibility to adopt such subjects. And even in instances where trained advisors may exist in local authorities and institutions of higher learning they often have problems accessing the education sector. The severity of this problem was highlighted at the EU energy education conference EUSEW 2008 [33] where the opportunities of introducing energy education into national curricula were discussed. 3.2. Energy efficient appliances
The South African Energy Efficiency Strategy listed appliance labeling as one of the anticipated measures in the energy efficiency drive. A participant at the Motor efficiency workshop during the May 2008 Industrial and Commercial use of Energy
Conference in Cape Town [36] lamented that the South African
Government had long promised the removal of duty on highefficiency motor imports as a way to promote their market penetration but never seemed to actually implement it. The DME representative responded by stating that the failure to implement the duty waiver was due to the absence of a South African
Standard clearly spelling out the technical parameters of a highefficiency motor for the Customs Department.

In their contribution, ESKOM through the aforementioned DSM program have endeavoured to achieve similar aims. But, in the absence of an act of parliament and/or a standard technical yardstick and transparent statistics it is not clear what impact has been achieved on the ground. Moreover instead of specifying performance criteria, ESKOM and the DME have prescribed a list of activities or technologies that must be employed by consumers to qualify for the incentives. This lack of a clear performance criterion means that consumers or energy service companies that use technologies that are not on ESKOM’s ‘approved list’ cannot claim the compensation promised, even when they can demonstrate that savings were actually been realized. The following case makes an illustration.
A local South African company has been marketing loadcompensating technology for several years. Many industrial and commercial electric loads draw unbalanced and reactive currents.
This results in the demand for reactive power and negative sequence currents from the grid but which do not result in useful work. The generation and transmission of these currents thus results in unnecessary losses and compromises the overall efficiency of the grid system. But this problem can be mitigated by installation of suitably specified and configured reactive components (like capacitors and inductors) at the consumer end. The equipment automatically monitors the state of the consumer load and takes corrective action. This is load compensation. The process does not require any real power generation and therefore cuts produces no GHG but is very effective. It is also a mature and reliable technology. The technology has however not been in use in South Africa.
Consequently an investor has identified this technical gap and has already established a client base. However at the 2007
Commercial and industrial Use of Energy Conference in Cape
Town the investor lamented that ESKOM had declined to pay them the money promised as DSM incentive because the technique was not on their (ESKOM) check list. This was despite having proved that the consumers had drastically reduced their monthly electricity bills. This author subsequently inquired with ESKOM as to why this was so and ESKOM only promised to look into the issue. This author however believes that rather than insisting on prescribing specific technologies the utility and the government should focus more on setting performance standards as the criterion for rewarding energy efficiency. This way they would vest the responsibility of compliance with the consumers who must ultimately regulate their behaviour and optimize energy usage regardless of the technology employed.

3.3. Deployment of distributed and renewable resources
Distributed resources have been shown to be very effective in promoting energy efficiency by, among other attributes, mitigating power delivery losses. This particularly so as such losses are proportional to the square of the transmitted load. Therefore, seemingly small changes result in large savings. Their smaller sizes also mean that they carry lower financial risks and shorter lead times to install. In their best seller ‘‘Small is profitable,’’
Lovins et al. [34] explain, through numerous examples, that even from a purely economics point of view, ‘‘Today’s electricity industry-large power stations feeding a nationwide grid-will have to change.’’ And what will replace them? ‘‘Decentralized and distributed electrical resources, which can have up to ten times the economic benefits,’’ they emphatically proclaim.
Currently, the most popular distributed generation mode in
South Africa is the use of gas turbines mainly as peaking power generators. This has obvious long-term sustainability issues, not

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least, of which is their dependence on the importation of fuels that are subject to international markets volatility. Renewable energy generation would offer the prime candidate technologies to address this problem due to the abundance of sunshine and wind in the country. Japan and Germany are world leaders particularly in household grid-connected photovoltaic generation and have demonstrated the viability of these technologies as well as the impact that an individual household can make.
Another distributed resource technology that has been identified as having great potential in energy conservation in South
Africa is co-generation. This would particularly exploit the waste energy at the country’s energy intensive industries such as smelters and is estimated to be between 1000–3500 MW [35]. It was however revealed at the May 2008 International Conference on Industrial Use of Energy in Cape Town [36–38] that potential investors are still hampered by lack of a legislative framework due to a pending energy bill. As an ad hoc measure ESKOM has organized a small pilot project in which interested investors have been invited to submit their proposals [38]. But the selection will be severely limited in numbers.
3.4. Adoption of low carbon technologies
In principle low-carbon coal generation has been floated as an option in South Africa’s future energy mix. However, it is also known that using current technologies the cost of containing carbon dioxide from a coal powered generator is nearly equal to all the other costs [39–42]. This effectively results in doubling the cost of every kWh generated. When combined with the long leadtimes involved to get a plant online makes the option extremely unattractive and diminishes its prospect of emerging as a serious future option for South Africa.
Another option that the country seems to be pegging their hopes of limiting CO2 emissions is nuclear energy. South Africa has traditionally operated a 2000 MW nuclear power station located at Kuberg in Cape Town. This is largely a French design. It has in recent years been in and out of commission due to a variety of faults. As an extension of their peaceful nuclear program the country is currently involved with international partners to develop a next generation technology of nuclear generators, particularly the Pebble Bed Modular Reactor (PBMR). The original aim was to have online 25,000 MW of nuclear generation by 2025.
The program has however been hampered by slow development.
Originally slated for demonstration by 2011 the program has subsequently been postponed, several times with no definitive date on offer.
3.5. Traditional coal generation
South Africa is endowed with vast coal resources. This has traditionally provided the country with a cheap and secure supply of feedstock for almost its entire electric power generation and manufacture of automotive synthetic fuels and the principal culprit for the country’s heavy carbon footprint. The prospect of coal shortage would therefore be the last reason that South
Africans would imagine as a possible cause for power shortage. It would however appear that the bulk of the extract has in recent times found its way into the lucrative international fuel markets, particularly China and Japan [43,44]. And this has apparently come at the expense of local consumption and pricing.
The extent of this problem became more apparent in the aftermath of the early 2008 power crisis when shortage of coal feedstock was cited among the reasons for the problem. In fact the
Minister for Mineral and Energy was reported to have threatened to use emergency powers to requisition any stocks destined for

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export to arrest the domestic crisis. ESKOM subsequently paid for a series of radio and TV campaigns to reassure the public that it was taking measures to top up its feedstocks. But it would appear that ESKOM will no longer be able to enjoy the traditional low prices. Future feed stocks will have to be obtained at the same spot prices determined by the escalating international demand for fuels [44].

4. Concluding remarks
A range of options available to South Africa for a successful energy efficiency and conservation drive has been explored. Many of these options have been tried successfully elsewhere.
From the plethora of government policy and strategy documents [1–5,45,46] it is quite apparent that (at least in principle) the government is aware of and recognises the efficacy of most of these options and would appear intent on undertaking them.
It is, however, in walking the talk that the government would appear to falter. Their failure to, timely, enact and implement the necessary legislative mechanisms to set these policy objectives and strategies in motion, is a major omission. It may be true that the enactment of legal instruments alone may not necessarily eliminate all the barriers. This author has however not come across any precedent where such a process succeeded through ad hoc measures, unsupported by legislation, as seems to be happening in South Africa. And as has been observed, legislation does set out clear targets, timelines and identifies the means by which to achieve them.
For public sensitization and awareness the utility and the
South African Government should endeavour to be seen to practice what they ask society to do. Even a symbolic demonstration through promotion of energy efficiency in government buildings could go a long way.
Additionally, what would appear to be conspicuously absent from all these documents, are the targets for human capacity development. While in the case of Japan and the US one could assume that such capacity may perhaps be sourced from the available large skills pools from the public and private sectors, the same cannot be said of South Africa. In fact there is currently a big shortfall in technical skills for a whole range of existing disciplines
[47]. It would therefore be prudent that targets for human power development as well as the appropriate timelines are included.
The adoption of energy-related courses in school curricula would greatly augment these efforts.
It has further been observed from the highlighted international cases that the industry sector and general public should be actively involved in the formulation of energy conservation policies, strategies and action plans. This model is important particularly for that all-important consumer buy-in and exploits a wider pool of the country’s creative resources. The Japanese success, particularly in industry, would appear to have been largely anchored by their masterly of this model.
By contrast however, complaints abound among a number of
South African stakeholders that have participated in past government hosted consultative workshops and policy document reviews (including this author) that their inputs never seem to filter through to the final documents. The aforementioned format of the
ESKOM DSM website, where the host provides all the energy conservation ‘tips’, is just but an example. The Secretary General of the Congress of South African Trade Unions (COSATU),
Zwelinzima Vavi, recently scoffed at ESKOM’s invoking of a confidentiality close as justification for refusal to fully disclose reasons why they were requesting the National Energy Regulator
(NERSA) for a whopping 53% tariff hike. And as Gordon H.G. et al.
[48] have observed, if consumer energy conservation policy is to

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succeed, both behavioural and institutional obstacles must be identified and overcome.
Otherwise, this effectively one-way information channel makes it very difficult for the government to achieve appropriate social adoption, acceptance and subsequent take up of sustainable conservation measures by society. It cannot be overemphasized that the steering engine for action is society.
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