AIR QUALITY MANAGEMENT PLAN FREE STATE PROVINCE DRAFT

Transcription

1 AIR QUALITY MANAGEMENT PLAN FREE STATE PROVINCE DRAFT Prepared by Zanokuhle Environmental Services On behalf of Free State Province August 2009 P O Box Overport, 4067 Tel: Fax: [email protected] or [email protected]

2 TABLE OF CONTENTS 1 INTRODUCTION 6 2 DEVELOPMENT OF THE AQMP 7 3 GOALS FOR THE AQMP (Part 1 of the AQMP process) Vision Mission Goals 9 4 BASELINE ASSESSMENT (Part 2 & 3 (partial) of the AQMP process) General Area under review Air Quality Management Systems Monitoring Emission inventory Dispersion modeling Management tools and institutional capacity 25 5 GAP ANALYSIS (Part 3 of the AQMP process) 27 6 PROBLEM ANALYSIS (Part 3 of the AQMP process) Air Quality Management and tools available Air Quality Management System (AQMS) Agricultural activities Domestic fuel burning Emissions from non-scheduled processes Emissions from scheduled processes Stakeholder education Incentives for attracting economic development 36 7 INTERVENTION STRATEGIES (Part 4 of the AQMP process) Goal 1: Intervention strategies Goal 2: Intervention strategies Goal 3: Intervention strategies Goal 4: Intervention strategies 43 8 COST OF IMPLEMENTATION (Part 5 of the AQMP process) 44 9 PERFORMANCE MEASURES (Part 6 of the AQMP process) 45

3 10 REFERENCES 47

4 List of Tables Table 1: Monitored parameters Table 2: Number of PM 10 exceedances per station Table 3: Summary of NO 2 exceedances (hourly averages) Table 4: Summary of SO 2 exceedances (hourly averages) Table 5: Summary of SO 2 exceedances (daily averages) Table 6: Summary of exceedances for ozone (8-hour averages-61 ppb) Table 7: Summary of CO exceedances (maximum hourly averages) Table 8: Possible sources of emissions Table 9: Annual progress indicators... 46

5 List of Figures Figure 1: AQMP process (Source: Manual for Air Quality Management Planning in South Africa)... 7 Figure 2: Free State Province - districts and main towns Figure 3: No. of PM 10 daily average exceedances Figure 4: No. of NO 2 hourly average exceedances Figure 5: No. of SO 2 hourly average exceedances at the Sasolburg network (2004- March 2009) Figure 6: No. of SO 2 daily average exceedances Figure 7: No. of ozone 8-hourly average exceedances at Leitrim, Sasolburg network Figure 8: No. of CO daily average exceedances at the Sasolburg network (2004- March 2009) Figure 9: Annual averages for benzene from Leitrim, Sasolburg network... 22

6 Glossary Abbreviation Meaning APPA Air Pollution Prevention Act AQO Air Quality Officer AQA Air Quality Act AQM Air quality management AQMP Air Quality Management Plan AQMS Air Quality Management System BEP Best environmental practice CBD Central business district C 6H 6 Benzene CO Carbon monoxide DEAT Department of Environmental Affairs and Tourism (National) Provincial Department The provincial department as designated by the provincial executive committee to handle all environmental functions EIP Environmental Implementation Plan EMP Environmental Management Plan LFA Logical Framework Approach MLM Mangaung local municipality NDoH National Department of Health NH 3 Ammonia NOx Oxides of nitrogen PM 10 Particulate matter less than 10 g/m 3 ppb Parts per billion O 3 Ozone SAWS South African Weather Service SO 2 Sulphur dioxide SoE State of Environment µg/m3 Micrograms per cubic meter VOC Volatile organic compound

7 1 INTRODUCTION In South Africa, the National Environmental Management: Air Quality Act, (Act No. 39 of 2004) (hereafter referred to as the AQA) provides for setting norms and standards relating to: Institutional framework, roles and responsibilities, Air quality management planning, Air quality monitoring and information management, Air quality management measures and General compliance and enforcement provisions Section 15(1) of Chapter 3 of the AQA requires each province responsible for preparing an Environmental Implementation Plan (EIP) and or Environmental Management Plan (EMP) to include an Air Quality Management Plan (AQMP) as part of that plan. In the Free State Province, the Provincial Department as designated by the provincial executive committee to handle all environmental functions is the office responsible for developing the provincial AQMP (herein after, the Provincial Department). In terms of Air Quality Management (AQM) planning, the overall provincial roles and responsibilities include: Development, compilation and implementation of a Provincial AQMP as a component of the EIP and or EMP The compilation and implementation of Provincial priority area AQMPs Compilation of the department s AQMP reports Support municipalities in AQM planning processes An AQMP generally seeks to identify the current air pollution situation, identify problem areas and establish the tools and actions needed to meet objectives and goals. The Free State AQMP presented here provides a management framework to maintain and improve air quality in the province through setting goals and objectives driven by national, provincial and local policies and priorities. Page 6 of 39

8 2 DEVELOPMENT OF THE AQMP The development of the AQMP was undertaken using the guidance provided by the Manual for Air Quality Management Planning in South Africa. The manual indicates that six parts/ steps should be undertaken to realise a complete AQMP. These parts are presented in Figure 1 below. PART 1 Goal setting Legislation PART 2 Baseline Air Quality Assessment INFORMATION Stakeholders Public, Authorities PART 6 Evaluation PART 5 Action plans Implemention PART 3 Air Quality Management System PART 3A PART 3B PART 3C Air Quality Emission Modelling Monitoring inventories Gap and Problem Analysis PART 4 Intervention Strategies Figure 1: AQMP process (Source: Manual for Air Quality Management Planning in South Africa) The phases undertaken to develop the Free State AQMP are noted below and the parts of the AQMP process cited in the Manual for Air quality Management Planning in SA are noted in each of the phases of the project to show relevance to the process of the development of the AQMP. Phase 1: (Incorporates part 1 of the AQMP process) A literature review of the development of different AQMP s and best practices was reviewed and several lessons learned. A situational analysis was undertaken and some of the tools used included: 1) Site visits This entailed visiting district municipalities within the Free State. 2) Research at the local university. 3) Information gathering at local municipalities. This allowed the project team to inform the different local and district municipalities of the project. Various stakeholders were identified within the province through meeting the different districts and requesting local stakeholder lists (including industry, local government and civil society). Telephonic contact with stakeholders in the area also ensured that the list was current. Page 7 of 47

9 Goals for the AQMP were determined. The goals are presented in Section 3 of the AQMP. Phase 2: (Incorporates part 2 of the AQMP process) Baseline assessment was undertaken and a report developed. A summary of the baseline assessment is presented in Section 4 of the AQMP. Stakeholder meetings were held to provide progress on the project and an opportunity for the representatives to submit comments and input. Further to the above mentioned an advert calling for the registration of Interested and Affected Parties (I & AP s) was made in The Daily Sun newspaper. Comments received from the baseline assessment report were incorporated. A proposal for the feasibility of establishing ambient air monitoring stations in the Free State province was submitted as per the terms of reference. Phase 3: (Incorporates parts 3 to 4 of the AQMP process) The draft AQMP was developed by the Provincial Department in consultation with stakeholders. This included the development of a gap and problem analysis and identification of intervention measures. The gap and problem analysis is presented in Sections 5 and 6 of the AQMP. The draft AQMP was then circulated to the stakeholders identified and comment received. The final AQMP incorporates all comments received. Phase 4: (Incorporates parts 5 to 6 of the AQMP process) Once the AQMP is finalised, the Provincial Department would need to ensure the following: Implement the intervention strategies/ action plans (part 5 of the AQMP process). The timeline for implementation is prescribed in the proposed intervention strategies in Section 7 of the AQMP while an anticipated budget for implementation is presented in Section 8. The evaluation of the AQMP would need to be undertaken as indicated in the manual for Air Quality Management Planning. An indication of how this will be facilitated by the Provincial Department is highlighted in Section 9 of the AQMP. Page 8 of 47

10 3 GOALS FOR THE AQMP (Part 1 of the AQMP process) The AQMP is essentially a strategic plan for the management of air quality in an area and as a result should be driven by a vision and mission and subsequent goals. These strategic drivers for the Free State AQMP are presented below. The vision and mission of the AQMP are underpinned by the following: Current air quality legislation Current AQMPs within the province Overall performance plan for the Provincial Department (2007/8 2009/10) Free State Growth and Development Strategy (FSGDS) ( ) 3.1 Vision To provide a co-ordinated approach to the management of air pollution in the Free State for a sustainable healthy environment. 3.2 Mission To ensure that the Batho Pele (People first) principle is applied in managing air quality in the province to ensure sustainability into the future. 3.3 Goals The AQMP has four primary goals reflected in the vision and mission statements. 1. Maintain institutional capacity that ensures continued air quality management. 2. Minimise the negative impacts of poor air quality on health and environment. 3. Promote a sustainable local economy that creates a positive impact on air quality. 4. Educate stakeholders of air quality issues in the province. Page 9 of 47

11 4 BASELINE ASSESSMENT (Part 2 & 3 (partial) of the AQMP process) 4.1 General A baseline assessment was undertaken to assess and evaluate the air quality status and management tools available in the Free State province. The assessment identified the available air quality data, air pollution sources and area data for the province. A baseline characterisation of the topography and meteorology (climate, wind, temperature, humidity, rainfall, atmospheric pressure and air stability) was also undertaken as part of the assessment as these factors influence air pollution dispersion. The baseline assessment was based on the above aspects and also includes an analysis on areas of responsibility in the province in terms of air quality management. Various techniques were used to gather the information for the baseline assessment including the establishment of a technical committee. The committee was established from the stakeholder database and comprised representation from the Department of Environmental Affairs and Tourism (DEAT), Provincial Department, local and district municipalities and industry. The baseline characterisation provides the foundation for the development of the AQMP, which forms the detailed strategies and procedures in order to meet the provincial goals. This section provides a summary of the baseline assessment report. The full report can be requested from the Provincial Department. It must be noted that a full analysis of the data from the ambient monitoring stations noted below is provided in the baseline assessment report. 4.2 Area under review The Free State is situated in central South Africa and is the third largest province in the country, covering 10.6% of South Africa s land area. The Free State is a centrally located landlocked province which borders seven of the nine provinces and has an international boundary with Lesotho (Free State Provincial Growth and Development Strategy Revised (FSGDS), 2007). The province consists of five district municipalities, namely Motheo, Thabo Mofutsanyana, Lejweleputswa, Xhariep and Fezile Dabi (Figure 2). Furthermore these district municipalities are constituted by twenty (20) local municipalities. The province covers a total land area of km 2 with a combined population of approximately 2.9 million, 5.9% of the total population of South Africa. Page 10 of 47

12 Figure 2 shows the different districts and main towns within the Free State province. Figure 2: Free State Province - districts and main towns 4.3 Air Quality Management Systems Monitoring The monitoring of air quality is one of the most basic activities in AQM. All available air quality data in the Free State Province was collected, evaluated and quality assured apart from data received from the Vaal Triangle Network. The data was used to assess and evaluate the current air quality status in the Free State province as part of the baseline assessment. Only continuous ambient air quality data could be accessed. The data used was from the Mangaung Local Municipality (MLM), Sasolburg and Vaal Triangle networks. The MLM stations are situated in Bloemfontein while the DEAT and Sasolburg networks represent an area within the Vaal priority area, Fezile Dabi District Municipality. The MLM had one ambient monitoring station within the Bloemfontein Central Business District (CBD) that monitors meteorological parameters, Sulphur Dioxide (SO 2), Particulate Matter <=10µm (PM 10) and Particulate Matter <=2.5µm (PM 2.5). The MLM subsequently procured a further three shelters and ambient air quality monitoring equipment in August Page 11 of 47

13 The Sasolburg network comprises four continuous monitoring stations while the Vaal Triangle Priority Area (DEAT) network has only one station that falls within the Free State. The data from the Vaal Triangle Network station (Zamdela) was downloaded from the South African Air Quality Information System (SAAQIS) in graph format and is not presented here as raw data was not available for quality checks. Table 1 below shows the station names and parameters being measured. It must be noted that data from the MLM network that include Pelonomi and Bayswater stations is presented for trend purposes only since there was no evidence that a quality control programme was in place. Data from the Community Hall and Botshabelo stations was not available for reporting. Table 1: Monitored parameters Station name Measured parameters Sasolburg network Boiketlong SO 2 and H 2S AJ_Jacobs SO 2, H 2S, CO, PM 10, NO 2, wind speed and wind direction Hospital SO 2, H 2S, CO, PM 10, NO 2, wind speed and wind direction Leitrum SO 2, CO, PM 10, NO 2, O 3, xylene, toluene, benzene, particulate, wind speed and wind direction, humidity and temperature. Vaal Triangle network Zamdela SO 2, CO, PM 10, PM 2.5, NO 2, O 3, xylene, toluene, benzene, particulate, wind speed and wind direction, humidity, pressure, rainfall, solar radiation and temperature. Mangaung Municipality network Botshabelo Wind speed, wind direction, humidity and temperature Kagisanong NO 2, NO, NOx, CO, SO 2, PM 10, PM 2.5 Wind speed, wind direction, humidity and temperature Pelonomi Hospital NO 2, NO, NOx, CO, SO 2, PM 10, PM 2.5 Wind speed, wind direction, humidity and temperature Bayswater PM 10 and PM 2.5 Wind speed, wind direction, humidity and temperature Page 12 of 47

14 Monitoring data available The monitoring data available from the above mentioned ambient stations was then presented in the baseline assessment report against standards or limit values in order to show the number of exceedances. A summary of exceedances and analysis of the available data of the pollutants measured is detailed below. Only data that has been through internal quality control checks was included in the data analysis presented below. Particulate Matter (PM 10): Sources The sources of airborne particulate matter in the Free State include: Agricultural activities which result in wind-blown soil dust that occur from bare fields, especially in dry periods, vehicles, unpaved roads and construction, mining including quarries, domestic fuel burning, industries including power plants and to lesser extent natural sources. Monitored data PM 10 data at four stations is presented here. This includes three stations within the Sasolburg network and one station within the MLM network. This does not give an overall view of PM 10 emissions in the Free State but gives us an indication of local issues in the two areas. Table 2 summarises the number of daily average exceedances of the ambient air standard per monitoring station while Figures 3 graphically presents this. The MLM PM 10 data is presented from September 2008 to June 2009 while the Sasolburg data is presented from January 2004 to March Within the Sasolburg network, two of the three stations measured an increase in the number of exceedances since 2004 while the third showed a significant decrease. Although the monitoring is not representative of the whole province it can be concluded that PM 10 may be a significant contribution to the ambient air quality issues in the Free State by looking at the nature of the area, the data presented, discussions held at the technical meeting and dominant activities. Page 13 of 47

15 Table 2: Number of PM 10 exceedances per station Station Leitrum AJ Jacobs Hospital Pelonomi (until March) Total Figure 3: No. of PM10 daily average exceedances Page 14 of 47

16 Nitrogen dioxide (NO 2): Sources The major sources of nitrogen dioxide in the Free State include motor vehicle exhaust fumes and industrial processes. Monitored data Only the Leitrum station recorded exceedances of the ambient hourly limit value of nitrogen dioxide. There were no measured annual average exceedances at any of the stations under review. Table 3 summarises the number of hourly average exceedances at each of the stations between 2004 and 2009 while Figure 5 graphically presents this data. There were no exceedances recorded at the AJ Jacobs station while the trend at the Letrium station shows a decrease in the number of exceedances between 2004 and 2006 and no further exceedances since Table 3: Summary of NO 2 exceedances (hourly averages) Year Leitrum AJ Jacobs (March) 0 0 Total 7 0 Page 15 of 47

17 Figure 4: No. of NO2 hourly average exceedances Sulphur dioxide (SO 2): Sources The major sources of sulphur dioxide in the Free State are industries followed by domestic fuel burning. Monitored data Tables 4 and 5 shows that exceedances of the hourly and daily limit values for sulphur dioxide were exceeded at all the Sasolburg stations. Figures 6 and 7 graphically represent the number of exceedances per annum. The highest number of exceedances was recorded at the Boiketlong station during A significant decline in the number of exceedances at this station is noted since this to date. Page 16 of 47

18 Table 4: Summary of SO 2 exceedances (hourly averages) Year Leitrum AJ Jacobs Hospital Boiketlong (March) Total Figure 5: No. of SO2 hourly average exceedances at the Sasolburg network (2004- March 2009) Page 17 of 47

19 Table 5: Summary of SO 2 exceedances (daily averages) Year Leitrum AJ Jacobs Hospital Boiketlong Total Figure 6: No. of SO2 daily average exceedances Page 18 of 47

20 Ozone (O 3): Sources Although ozone is a secondary pollutant, it forms part of the criteria pollutants as set in the South African National Standards. The ozone concentrations are only monitored by Sasolburg network. Ozone is formed primarily through the action of UV light, and so it could be expected that high concentrations would occur during the days with high solar radiation and when other meteorological conditions (e.g. low wind speed, restricted upward movement of air pollutants) are not favourable for the dispersion of air pollutants. Monitored data Ozone is monitored at the Leitrum station in the Sasolburg network. Table 6 shows the number of exceedances at the station between 2004 and A decrease in the number of exceedances is noted between 2005 and Figure 7 graphically presents the number of exceedances between 2004 and March Table 6: Summary of exceedances for ozone (8-hour averages-61 ppb) Year Leitrum (March) 1 Total 95 Page 19 of 47

21 Figure 7: No. of ozone 8-hourly average exceedances at Leitrim, Sasolburg network Carbon monoxide (CO): Sources The combustion of fuels such as petrol, gas, coal and wood generate emissions of carbon monoxide. Motor vehicles and domestic fuel burning are the main source of carbon monoxide pollution in most Free State urban areas. Monitored data Carbon monoxide is measured at three of the Sasolburg network monitoring stations. Table 7 summaries the number of exceedances of the CO ambient standard per station. The ambient air quality standard was exceeded three times in 2005 at the Hospital station and in 2007 the AJ Jacobs station recorded one exceedance. Figure 8 graphically presents the number of exceedances per annum. Page 20 of 47

22 Table 7: Summary of CO exceedances (maximum hourly averages) Year Leitrum AJ Jacobs Hospital Total Figure 8: No. of CO daily average exceedances at the Sasolburg network (2004- March 2009) Page 21 of 47

23 Benzene (C 6H 6): Sources Petrol vehicle emissions are the predominant source of benzene in the environment, although industries such as petroleum refining and steel works (adjacent Sedibeng Gauteng province) which is the case in Fezile Dabi which can also contribute to overall levels. Evaporative losses from petroleum fuels storage facilities and service stations is another means by which benzene enters the air environment. Monitored data The Letrium station within the Sasolburg network monitors benzene and annual average results are presented in figure 9 below. Historical measurements showed concentrations to be well below ambient standards except in 2004 where the annual limit value was exceeded. Figure 9: Annual averages for benzene from Leitrim, Sasolburg network Page 22 of 47

24 Indoor air quality Across much of the Free State, exposure to indoor air pollution is particularly influenced by domestic fuel combustion. The South African National Department of Health (NDoH) is in a process of developing national monitoring guidelines for domestic indoor air quality. It is considered that the guidelines will be most effective if they take account of concentration limits for selected pollutants as well as guidance on, for example, the use of appropriate fuels, pollution control and exposure reduction. Indoor air quality (IAQ) is considered relevant to AQM in the province based on the prevalence of domestic fuel burning in the area and interventions on mitigating indoor air pollution are included in the plan Emission inventory None of the municipalities have an emission inventory database in place. An emission inventory provides the technical foundation to assist development and assessment of air quality management options and provides a breakdown of estimated total emissions of specified pollutants across an area. It also assists municipalities during the identification of listed activities. Table 8 below gives an overview of the possible sources of air pollution and pollutants of concern within the Free State province. Table 8: Possible sources of emissions Pollutant category Industrial emissions Dust Smoke Engine emissions Main sources Power stations, chemical and manufacturing industries Mining, agricultural activities, roads, construction, industrial activities Veld fires, domestic fuel burning, controlled burning Vehicles, aircraft Based on the information gathered during the baseline assessment phase, it is noted that the most significant contribution to air pollution in the Free State could be attributed to particulate matter less than 10 g/m 3 (PM 10). Future industrial development within these areas would be of concern if where PM 10 formed part of the emission inventory of new industries as it can already be seen that PM 10 could potentially be a significant cause of air pollution within these areas. Page 23 of 47

25 4.3.3 Dispersion modeling Emissions are dispersed and diluted in the atmosphere before reaching people or different receptor points. Air quality modelling seeks to combine knowledge of pollutant source strengths (i.e. emitted quantities per unit time) with meteorological data to estimate concentrations at the receptor points. Models have varying degrees of sophistication and accuracy and are rarely better than plus or minus percent of the actual value, unless the model is "tuned" by use of pollution monitoring data (stochastic modelling). Air quality models are used to establish a relationship between emissions and air quality. Dispersion models applied as well as related sources of pollution are often divided into spatial scales such as indicated below: Area Spatial scale Typical sources Pollutants Local m Points, low stacks, low-level area sources SO 2, NO2, PM, CO and traffic Urban 1-50 km Multiple sources, low-level area sources, PM, NO2, SO 2, Oxidants small industries, traffic and general human activities Regional km Power plants, large industrial areas, urban PM10, PM2,5, O3, secondary pollutants areas Meteorological data and knowledge of physical and chemical reactions in the atmosphere are used to calculate the air concentrations of one or more pollutants as a function of time and space. Observed concentrations at the monitoring stations are used to validate the calculated concentrations from model descriptions of emission and atmospheric dispersion. Measurements may also be used to improve the accuracy of calculated concentration fields when they are treated statistically along with results of dispersion models. The province has not conducted any type of modeling. Page 24 of 47

26 4.4 Management tools and institutional capacity In terms of the infrastructure, manpower and provincial policy to support the AQMP i.e. monitoring and compliance of air quality standards, the following was noted: 1. The Lejweleputswa and Motheo district municipalities had already embarked on the process of developing their AQMPs. The provincial AQMP would need to take into account the AQMPs developed by local municipalities within its operational area. This ensures that issues of concern within different municipalities are taken into consideration when developing the overall provincial plan. The integration or consideration of these local AQMPs allows alignment of common goals for the province based on the goals and objectives of local municipality AQMPs. 2. Within the Provincial Department, the management responsibilities of all three sub directorates were being undertaken by the Deputy Director Waste Management and Pollution Control Sub Directorate. This is due to positions not being filled timeously. The current staff compliment has placed tremendous strain on the Deputy Director Waste Management and Pollution Control having to act in these additional roles noted above and as a result, compromise on delivery of service within the department. The focus of the three sub directorates is very different in terms of specific outcomes as defined in the section objectives and the individual job descriptions. It is imperative that the positions within the Air Quality Management sub directorate be filled with staff that are suitably qualified to address air quality issues. 3. The Free State Growth and Development Strategy (FSGDS) ( ) is a strategy which outlines the framework for growth and development in the province. It addresses the key social, economic, environmental and spatial aspects in the area. 4. The Provincial Department had also published their annual performance plan for the financial year 2007/8-2009/10. Specific measurable objectives are noted in the performance plan and these will be taken into consideration during the development of the AQMP. 5. There is no emission inventory available within the province. An emission inventory provides the technical foundation to assist development and assessment of air quality management options and provides a breakdown of estimated total emissions of specified pollutants across an area. Page 25 of 47

27 6. This Free State AQMP baseline assessment serves not only to provide an on the ground look at the present air quality situation in the Free State but also in developing the AQMP future industrial development within the province should also be taken into consideration. For example, on discussion with the Mangaung Local Municipality, it was noted that there is potential for industrial growth in the area as the municipality strives to attract industry to Bloemfontein offering certain incentives. This is in line with the province s efforts to attract economic growth as part of their strategy to attract economic growth as part of the FSGDS. Page 26 of 47

28 5 GAP ANALYSIS (Part 3 of the AQMP process) A number of gaps were identified during the development of the AQMP using the baseline assessment as a tool for this exercise. The following gaps were identified: Limited capacity in air quality management and tools at the provincial government and in some cases, local government levels to effectively manage air quality in the province. There was no formal Air Quality Management System (AQMS) but limited monitoring in the more industrial areas and locally in Bloemfontein. An emission inventory had not been compiled for the province. Limited communication between the province and local government on air quality management. Page 27 of 47

29 6 PROBLEM ANALYSIS (Part 3 of the AQMP process) As a result of the findings of the gap analysis, a number of issues were identified on which the AQMP would focus. These were identified as the following: Capacity in the provincial department to manage air quality Air Quality Management System (AQMS) Agricultural activities Domestic fuel burning Emissions from non-scheduled and scheduled processes Stakeholder education Incentives for attracting economic investment Each of the problems noted above was interrogated using the Logical Framework Approach (LFA). The analysis of each of the problems is presented in sections 6.1 to 6.8. Page 28 of 47

30 6.1 Air Quality Management and tools available Air quality management and tools encompasses the following: Institutional capacity within the province and district and local municipalities Financial resources Tools like the availability of an emission inventory, existing AQMS, availability of information on air dispersion modeling having been applied in the area Problem analysis Problem cause Problem effects Objectives 1. The current staff constraint within the Provincial Department does not allow the effective execution of the legislative responsibilities and falls short on service delivery in this area. 2. Further consultation with district and local municipalities notes that there is a similar trend within these spheres of government in the province. 1. Shortage of allocation of funds and human resources for the air quality management function. 2. At the district and municipal level and to a certain degree at the provincial level, the problem is as a result of the following; 1) Skills shortage, 2) The air quality function is competing with other functions and is not given the priority it requires, 3) Training of staff is not sufficient and 4) Lack of available resources. 1. Legal responsibilities are not fulfilled. For example, enforcing APPA and AQA. 2. Lack of an effective AQMS being available for the area. For example, not being able to undertake air monitoring and compile emission inventories; limited air quality data available. 1. To ensure that staff are designated to the required roles for effective air quality management and that they are adequately trained for their roles. 2. To ensure that sufficient funds are allocated for the air quality management function. 3. Integrated AQMS for the province. 4. Develop strong relationships with local government in the province, private sector and NGOs. Page 29 of 47

31 6.2 Air Quality Management System (AQMS) The main elements of an AQMS include: Ambient air monitoring Emission inventory Air dispersion modeling Only one element of the AQMS components is being undertaken within the province, however, to a limited degree. This includes the ambient air monitoring being undertaken within the Bloemfontein and Sasolburg areas. Problem analysis Problem cause Problem effects Objectives 1. Limited number of ambient air monitoring stations within the province. 2. The stations operated by the Mangaung Municipality within Bloemfontein are not operated strictly within a quality system and the data validity cannot be verified. 3. No emission inventory exists for the province. 4. Air dispersion modeling has not been applied in the area. 1. Lack of an integrated approach to the management of an AQMS between stakeholders (provincial and local government and industry). 2. Lack of training and capacity within municipalities. 1. Data produced by an ambient air monitoring system that is not managed under a quality system cannot be verified. 2. No established list of sources of emissions or their contribution. (Emission inventory) 3. Haphazard approach to air quality management (AQM). 1. Develop an emission inventory. 2. Once complete, an air dispersion model could be applied to understand the need for further ambient air monitoring stations. Page 30 of 47

32 6.3 Agricultural activities Agricultural activities in the Free State include wheat, sorghum, maize, sunflower seed, groundnuts, fruit and vegetables and livestock farming. Farming is one of the main contributors of dust (PM 10) emissions experienced in the Free State province. Problem analysis Problem cause Problem effects Objectives Emissions from the following agricultural activities: 1. Harvesting, soil tilling, application of pesticides and fertilisers and vehicle driving on unpaved roads. (Emissions include: PM 10, NO, NO2, NH 3, SO 2 and VOCs) 2. Livestock farming activities. (Emissions include: Odours and VOCs) 3. Veld fires either purposefully or by accident. (Emissions include SO 2, NOx, PM 10 and CO) 1. Accidental veld fires. 2. Fires used for agricultural purposes. 3. Fires breaks. 4. Pesticide spraying. 5. Wind-blown soil dust that occur from bare fields, especially in dry periods. 6. Vehicles, unpaved roads and construction. 7. Emissions from livestock management. 8. Direct emissions from agricultural soils and from animal production. 1. Elevated levels of particulate and gaseous emissions. 2. Increases the number and severity of health effects. 3. Regional haze and poor visibility. 4. Adverse effects on vegetation and building materials. 1. Raise public awareness on veld fires. 2. Minimise emissions from agricultural activities. Page 31 of 47

33 6.4 Domestic fuel burning Low income households in rural and some urban areas within the province use wood, paraffin and coal for cooking and space heating. Other biomass fuels such as crop residues are sometimes also used. This results in emissions that could lead to environmental and adverse health impacts. Problem analysis Problem cause Problem effects Objectives 1. Geographical location, as well as income, is a strong determinant of fuel use. Generally low-income households in densely populated areas (urban or periurban) rely on domestic fuel as an energy source for household needs. 2. Domestic fuel use increases in winter in this region due to lower ambient temperatures. 1. Given the availability of inexpensive coal and the relatively low temperatures in winter, coal consumption figures are elevated within this region. 2. Increasing electricity prices causes a problem for majority of low income households, thus household energy needs in most low income homes are met by use of fuels like paraffin, wood and coal for space burning. 3. Lack of mitigation methods for domestic fuel burning. 4. Poor household ventilation. 5. Poor fuel use techniques. 1. Exposure to emissions from fuel burning causing adverse health effects especially upper respiratory problems. 2. Increased coal consumption and use leads to high CO emissions. 1. Improve the efficiency of fuel burning. 2. Electrification of households. 3. Use of renewable energy sources. Page 32 of 47

34 6.5 Emissions from non-scheduled processes The control of non-scheduled processes was of particular concern amongst stakeholders within the local government structures. These include small businesses such as spray painting, dry cleaners, small boilers and generators or fuel burning appliances used for eateries. This problem was noted particularly in the areas of Harrismith and Bloemfontein. Problem analysis Problem cause Problem effects Objectives 1. Municipalities reported that they receive complaints of emissions from these non-scheduled processes causing adverse health effects. 2. Nuisance emissions from these sources also result in complaints to the municipality. 3. Pollutant sources and emissions are not known. 1. Lack of regulations around these small businesses. 2. Poor atmospheric dispersion in some areas. 3. Low stack heights with low dispersion potential. 1. Adverse health and environmental effects. 1. Determine the sources and extent of the emissions through the development of an emission inventory. 2. Develop a system to engage these businesses on best practice. 3. Declaration of controlled emitters where necessary. 4. Enforcement of by-laws by local authorities. Page 33 of 47

35 6.6 Emissions from scheduled processes The scheduled processes established in the Free State province include industries such as the chemical, petroleum, fertilizer, mining and power generation industrial processes. The major industrialised areas include Sasolburg and Welkom. Problem analysis Problem cause Problem effects Objectives 1. Gaseous and particulate emission from industrial and mining processes. (Particularly dust emissions from the mining sector) 2. Emissions from transportation of goods. 1. The need for production of goods and commodities. 2. Transportation and storage of goods. 1. Adverse health and environmental impacts. 2. Climate change and global warming. 1. Monitoring of compliance with emission standards and ambient air quality standards. 2. Engagement with industry to ensure application of best environmental practice (BEP) towards a culture of continuous improvement. Page 34 of 47

36 6.7 Stakeholder education Stakeholder engagement and community education is seen as two separate issues here but in essence they are intertwined in their inter relationship in that governmental stakeholder engagement inter departmentally as well as with industry would lead to community education and involvement in air quality management issues. Problem analysis Problem cause Problem effects Objectives Stakeholder engagement: 1. Lack of inter departmental stakeholder engagement (For example; there is a lack of engagement between the provincial and local levels of government on air quality issues. There is no formal forum set up for the discussion and ratifying of air quality issues in the province.) 2. Lack of capacity for municipalities to engage industry on air quality issues. 3. There is currently no communication tool for the public to understand the air quality issues within the province. Community education: 4. Communication on general air quality issues and education is not practiced in the province. 1. Policy, institutional and capacity constraints. 2. Low level of interest in environmental issues. 3. In part due to stereotypes e.g. the issues of the poor will continue to revolve around issues of survival with conservation often being perceived as a peripheral issue and thus of little relevance to their lives. 4. Inappropriate techniques e.g. public documents written in academic or scientific jargon. 5. Society s perception of public participation that irrespective of the input that society gives towards a decision it is in the end not utilised, it is done merely to create the façade of participation. 1. Lack of open dialogue between sectors i.e. government, business and society. 2. Lack of active participation by community and relevant stakeholders. 3. Lack of diversity of perspective and opinions. 1. To engage stakeholders in industry and the community on air quality issues. 2. Develop inter departmental communication on air quality issues. 3. Create more transparency between government and the community. Page 35 of 47

37 6.8 Incentives for attracting economic development It was noted that local municipalities showed a keen interest in attracting economic investment to the province and this is supported by the Free State Growth and Development Strategy (FSGDS) ( ). Problem analysis Problem cause Problem effects Objectives 1. Lack of development of industry. Areas are more geared toward agricultural development and the perception of industry is as such. 2. Increased unemployment rate and poverty. 1. Lack of capacity to drive the plan for attracting industry. 1. Minimal industrial activity within the province. 2. Lack of job creation and increased poverty. 1. Change perceptions of industry by providing sustainable economic development options within the province. 2. Working towards minimising poverty and creating employment in the province. Page 36 of 47

38 7 INTERVENTION STRATEGIES (Part 4 of the AQMP process) In order to address the problems identified during the problem analysis, intervention strategies have been developed to rectify the problems. The development of these intervention strategies was informed by the following: Objectives identified in each of the problems. How the intervention would contribute to realising the provincial government s mandate to manage air quality in the province. Overall benefit that the intervention would have on air quality management within the province. Resources required to undertake the intervention. Time that would be required to undertake an intervention. Each of the problems identified is associated with one of the AQMP goals and in the sections that follow (7.1 to 7.4); these problems are translated into objectives and targets (intervention strategies) to inform the strategic plan for air quality management planning in the Free State province. As indicated in Section 3.3 of the AQMP, the following goals were identified: 1. Maintain institutional capacity that ensures continued air quality management. 2. Minimise the negative impacts of poor air quality on health and environment. 3. Promote a sustainable local economy that creates a positive impact on air quality. 4. Educate stakeholders of air quality issues in the province. Section 7.1 to 7.4 describes the objectives, intervention actions, parties responsible for the actions and the expected date of completion (target date) of the intervention strategies. The following time frames have been adopted for the implementation of the intervention strategies: Short term: 0 2 years Medium term: 3 5 years Long term: > 5 years The following must be noted: In order to fulfil the requirements of the intervention strategies proposed beyond the first of capacitating the provincial department, the department must first fulfil the capacity requirement to be able to undertake the remaining intervention strategies. As a result, the time taken to undertake the remaining intervention strategies is dependant on when the capacity issue within the provincial department is resolved. Page 37 of 47

39 7.1 Goal 1: Intervention strategies Goal 1: Maintain institutional capacity that ensures continued air quality management Objective 1.1: To capacitate the Air Quality Management Sub-Directorate within the province to effectively manage air quality issues. Action term Action description Responsible Target date Short term Appoint AQO and staff for the Air Quality (0 2 years) Management Sub-directorate Conduct a training needs analysis for provincial and local municipal officials responsible for air quality management Undertake training of officials Source relevant training courses and register staff Effective budget planning for air quality issues including training Conduct workshops within each district including all municipalities to ensure the following: 1. Understanding of their responsibilities in terms of listed activities minimum emissions standards 2. Training in Atmospheric Emission licensing function if required Conduct a section 77 and 78 Assessment in terms of Act 32 of 2000 in order to ensure that the organisational structure is right sized to the demands of the function Provincial November 2009 Department Provincial December 2009 Department in consultation with local government Provincial December 2010 Department in consultation with local government Provincial Annually Department in consultation with local government Provincial July 2010 Department in consultation with DEAT Municipalities December 2010 Page 38 of 47

40 Objective 1.2: Identify sources of emissions in the province. Action term Action description Responsible Target date Medium term Develop an emission inventory for the province - Provincial December 2012 (3-5 years) Establish a team to manage the development of an Department emission inventory. This may entail completing some the tasks inhouse and only outsourcing a smaller aspect. To be decided. Objective 1.3: Identify the need for further ambient air monitoring stations within the province. Action term Action description Responsible Target date Medium term Apply air dispersion modeling in the province to Provincial June 2013 (3-5 years) understand the need to establish further ambient Department air monitoring stations Objective 1.4: Develop a management framework for management of air quality within the province. Action term Action description Responsible Target date Short term The appointed AQO must develop a framework for Provincial (0 2 years) management of air quality in the province to Department include addressing the following: Establishment of an AQO s forum within the province to include all local municipalities (Develop a terms of reference for this forum) Establishment of a provincial air quality June 2010 stakeholder group (Should include all local municipalities, industry and community members) Terms of reference should June 2010 be developed Liaison with municipalities to integrate and expand existing ambient air monitoring systems to a view of consolidation of data sets and December 2010 reporting Strategy for the development of strong relationships between local government, private December 2010 sector and NGOs Medium term Management of the integrated AQMS Provincial Ongoing after (3-5 years) Department December 2012 Page 39 of 47

41 7.2 Goal 2: Intervention strategies Goal 2: Minimise the negative impacts of poor air quality on health and environment Objective 2.1: Minimise emissions from agricultural activities. Action term Action description Responsible Target date Medium term Public awareness on the practice of fire breaks and Provincial December 2013 (3-5 years) accidental veld fires highlighting how they could be Department(in reduced consultation with the communications department) Understand the agricultural sectors contribution to Provincial December 2013 emissions. (Through the emission inventory) Once this Department information is on hand, a more informed decision could be made on what interventions are necessary in this sector. Develop an action plan in consultation with local municipalities to address emissions from agricultural activities. Objective 2.2: Minimise emissions from scheduled and non-scheduled processes Action term Action description Responsible Target date Short term Understand the extent of emissions from Provincial June 2011 (0 2 years) scheduled processes and their impact on ambient Department air quality. (Through the emission inventory) Engage with local municipalities to ensure capacity within municipalities to undertake the licensing function. Develop an action plan to assist municipalities to ensure the function is fulfilled. Identify small to medium enterprises and their Provincial June 2011 impact on air quality. (Through the emission inventory) Department Engage with local municipalities to manage non scheduled emitters. Develop an action plan in consultation with municipalities to manage these Page 40 of 47

42 enterprises and declare controlled emitters where necessary. Action term Action description Responsible Target date Medium term Develop a provincial guidance document for local Provincial December 2012 (3-5 years) municipalities on how to manage the following: Licensing function for scheduled processes Complaints and monitoring of small to medium enterprises/ controlled emitters Engaging industry on applying BEP Department in consultation with DEAT and local municipalities Objective 2.3: Improve the efficiency of fuel burning Action term Action description Responsible Target date Medium term Through the provincial AQOs forum, an action plan Provincial July 2012 (3-5 years) for the management of the education of the Department in community on efficient fuel burning should be consultation with established. Interventions may include but not local municipalities limited to the following: & Dept of Housing Promotion of renewable energy sources Liaison with the Dept of Health on Indoor Air Quality (IAQ) monitoring. (The Dept of Health are currently developing a guidance document for monitoring IAQ in domestic environments) Education around the efficient use of fuels in the household Sourcing alternative fuel sources for electrification of households Liaison with the Dept of housing on the electrification of these households Page 41 of 47

43 7.3 Goal 3: Intervention strategies Goal 3: Promote a sustainable local economy that creates a positive impact on air quality Objective 3.1: Support the Free State Growth and Development Strategy (FSGDS) ( ) Action term Action description Responsible Target date Short term Initiate a meeting with the Economic, Employment, Provincial July 2010 (0-2 years) and Investment Cluster represented in the FSGDS Department to understand the ideal role of the Provincial Department and develop clear objectives for action required. The goal of the intervention would be to ensure that any action taken promotes sustainable development in terms of preserving or improving the air quality in the province. Ongoing after Implement action agreed and monitor progress. Provincial Department agreement of action plan Page 42 of 47

44 7.4 Goal 4: Intervention strategies Goal 4: Educate stakeholders of air quality issues in the Province Objective 4.1: To engage stakeholders in government, industry and the community Action term Action description Responsible Target date Short term Through the establishment of the provincial air Provincial Ongoing after (0 2 years) quality stakeholder group as noted in Section 6.1 Department in forming group (objective 1.4) above, stakeholders would be consultation with before June afforded the opportunity to share air quality issues municipalities 2010 and determine interventions through a formal forum. The provincial department and municipalities will Ongoing after through the development of the AQOs forum Provincial forming group (objective 1.4) be able to better manage air quality Department in before June in the province and encourage enabling consultation with 2010 discussions on air quality issues. municipalities Objective 4.2: Communication of air quality issues to the community Action term Action description Responsible Target date Medium term Assist local municipalities in developing Provincial (3 5 years) communication strategies for informing the public Department of air quality issues. This may include: Provision of guidance regarding actions they June 2012 can take to support the goals of the AQMP (including management of air quality complaints) Updating the Provincial Department website to December 2012 include an informatory link on air quality issues and governance in the province Ensuring that when an integrated AQMS is Ongoing after developed, the data is transmitted to the South December 2012 African Air Quality Information System (SAAQIS) Page 43 of 47

45 8 COST OF IMPLEMENTATION (Part 5 of the AQMP process) This section highlights the anticipated financial budget requirements for implementation of the proposed interventions. The budget presented in only indicative and will change in real time. Goal Proposed intervention Anticipated budget (VAT excl) Short term (0-2 yrs) Anticipated budget (VAT excl) Medium term (3-5 yrs) Goal 1 Maintain institutional capacity that ensures continued air quality management. R 1,530, R 2,370, Appoint AQO and staff the Air Quality Management Sub-directorate Cost of salaries already allocated to the dept Training needs analysis R 60, Undertake training of officials within provincial and local government departments R 250, R 250, Workshops on licensing function and minimum emission standards R 150, Assist municipalities in undertaking section 77 and 78 Assessments R 250, Develop a provincial emission inventory R 800, Development and application of an air dispersion model for the province R 250, Constitute & manage air quality forums R 70, R 70, Development and management on an integrated AQMS R 750, R 1,000, Goal 2 Minimise the negative impacts of poor air quality on health and environment. R 1,750, R 450, Public awareness campaigns R 300, R 200, Allocation for actions resulting from consultation with municipalities on agricultural intervention strategies R 250, R 250, Development of guideline document for municipalities on AEL R 1,200, Goal 3 Promote a sustainable local economy that creates a positive impact on air quality. R 300, R 250, Allocation for actions resulting from consultation with FSGDS committee R 300, R 250, Goal 4 Educate stakeholders of air quality issues in the Province. R 0.00 R 110, Create a section on the website to address air quality issues R 40, Transmission of information to SAAQIS R 70, Total R 3,580, R 3,180, Page 44 of 47

46 9 PERFORMANCE MEASURES (Part 6 of the AQMP process) The AQMP has been developed as a five year plan and will be reviewed by the Provincial Department on an annual basis to determine the progress of the implementation of the plan. The findings will be reported by the AQO in the annual report to DEAT. The reporting requirements for this report are noted in the Manual for Air Quality Management Planning in South Africa. In addition to the annual report to DEAT, the progress will be communicated in the air quality forums that will be set up during the implementation of the intervention actions. Further to this, the progress will be reported in the State of the Environment Report and the Provincial Department website will be updated to include a component on reporting on the AQMP. Table 9 below notes the performance criteria that will be used to measure and monitor progress in achieving the goals of the AQMP on an annual basis. This information will inform the annual reporting and act as indicators on the performance of the implementation of the plan. The AQMP will be revisited after five years (in 2015) and the goals realigned and the process of developing the AQMP repeated. Page 45 of 47

47 Table 9: Annual progress indicators Goal Goal 1: Maintain institutional capacity that ensures continued air quality management. Indicator Staff turnover and performance in Provincial Department Maintenance of the emission inventory Success of AQO and stakeholder forums progress/ action taken Development of an integrated AQMS (includes monitoring air quality in the Goal 2: Minimise the negative impacts of poor air quality on health and environment. Goal 3: Promote a sustainable local economy that creates a positive impact on air quality. Goal 4: Educate stakeholders of air quality issues in the province. province) Progress on action plan with municipalities to engage farmers in minimising emissions Progress on implementing the licensing function Management of small to medium enterprises declaration of controlled emitters Guidance document on management of scheduled and non scheduled processes in the province Actions taken to minimise emissions from domestic fuel burning Progress on the actions agreed with the Economic, Employment, and Investment Cluster represented in the FSGDS to ensure sustainable development and the preservation of air quality in the province. Resolution of issues raised in the AQO and stakeholder forums. Number of visits to the air quality reporting section of the website Status of air quality data submitted to SAAQIS Feedback from municipalities on survey of perceived value added by the provincial interventions Page 46 of 47

48 10 REFERENCES British Columbia Ministry for the Environment (2005): Air Quality Planning Tool: A step by step process for BC Communities. 35pp. Department of Environmental Affairs and Tourism (2007): Air Quality Management Review Report. (Compiled by Air Quality Consultants (UK) and Zanokuhle Environmental Services). Department of Environmental Affairs and Tourism (2007): Manual for Air Quality Management Planning in South Africa. (Compiled by Mjoli, D. & Mitchell, V). Publication Series C The Government Information Series, Book 3. Department of Environmental Affairs and Tourism, Chief Directorate: Air Quality Management and Climate Change, 2009: Vaal Triangle Airshed Priority Area: Air Quality Management Plan. Free State Provincial Growth and Development Strategy Revised (FSGDS), (October 2007) Department of the Premier, Free State Provincial Government. Queensland Government Environmental Protection Agency (2008): Organic pollutants SANS 1929, (2004): South African National Standard: Ambient air quality Limits for common pollutants, Standards South Africa. Statistics South Africa (Stats SA), 28 August 2009 Statistics South Africa (Stats SA), (2006), Provincial Profile 2004: Free State. Pretoria: Statistics South Africa, 137p. Tyson, P.D., 1987: Climatic Change and Variability in Southern Africa, Oxford University Press, Cape Town. World Health Organization (2005): WHO air quality guidelines global update Report on a Working Group meeting, Bonn, Germany, October Page 47 of 47