WASTE MANAGEMENT INDICATORS FOR NATIONAL STATE OF ENVIRONMENT REPORTING

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1 WASTE MANAGEMENT INDICATORS FOR NATIONAL STATE OF ENVIRONMENT REPORTING ARENDSE, L and GODFREY, L Environmentek, CSIR, P.O. Box 395, Pretoria, 0001, South Africa, Tel: (012) ; Fax: (012) , lgodfrey@csir.co.za ABSTRACT The South African Department of Environmental Affairs and Tourism embarked on a programme in 2001, to develop a core set of environmental indicators for National State of Environment Reporting in South Africa. The programme, referred to as the National Environmental Indicators Programme, is in partial fulfilment of the South African Government s international and national obligations to report on environmental conditions and trends, and the implementation of sustainable development in the country. Indicators provide a means of assessing the performance of economic, social and environmental aspects, with the advantage of being able to summarize, focus and condense information about complex systems, and highlight trends or phenomenon, which are not immediately detectable through basic data collection. An issues based approach was used to identify environmental sectors of concern and develop indicators within this programme. Waste management was identified as an issue of concern, in particular, the increase in the amount of general and hazardous waste produced, and the apparent lack of waste reduction activities. Through stakeholder involvement, the following indicators, which aim to address the goals and objectives of South Africa's National Waste Management Strategy, were selected to report on the state of waste management within South Africa: General waste produced per income group per year General waste produced per capita per year Hazardous waste produced per sector per year Waste recycling Value of waste recycled General waste correctly disposed through landfill Hazardous waste correctly disposed Available landfill lifespan Provincial expenditure on waste management Provincial waste collection capacity Disclaimer: Graphs and data depicted in this paper, unless otherwise stipulated, are not based on actual data, but are given only as examples of ways in which indicators may be reported on. Displayed data should not be interpreted as the status quo regarding waste management in South Africa. 1

2 KEYWORDS Indicators, State of Environment Reporting, waste management, sustainable development. INTRODUCTION During the development of the 1999 State of Environment Report for South Africa (DEAT, 1999), the Department of Environmental Affairs and Tourism (DEAT) identified the need for the development of a core set of environmental indicators, to monitor: Trends in environmental conditions, The pressures on the environment and the causes of environmental change, and The effectiveness of existing and proposed mechanisms for environmental management. This was further highlighted in the development of the White Paper on Integrated Pollution and Waste Management (IP&WM) (DEAT, 2000), which identified the development of effective and efficient information systems, including the development of appropriate pollution indicators to ensure informed decision making, to measure progress in policy implementation and to enable public participation in the governance of integrated pollution and waste management. It was realised that the development of such indicators would require accurate, spatially complete, long-term data to allow reporting on environmental conditions and progress made towards sustainable development goals. A process was put in place to identify core indicators, through stakeholder participation. The approach adopted involved an initial scoping phase to assess indicators which were currently being used in South Africa at both local and national level, identifying particular issues of concern, identifying indicators which address these issues of concern, stakeholder review of the draft set of indicators, and finally the development of an implementation strategy for the final set of core indicators. The DPSIR (Driver-Pressure-State- Impact-Response) framework was adopted. Within the National Environmental Indicators Programme, indicators were developed for the following environmental sectors: Inland waters Marine, coastal and estuarine Biodiversity and natural heritage Land use Human well-being Atmosphere and climate Waste management, and Environmental management This paper presents the approach and findings of the development of a core set of waste management indicators for National State of Environment Reporting in South Africa. INDICATORS The Organisation for Economic Cooperation and Development (OECD) defines an indicator as a parameter, or a value derived from parameters, which provides information about a phenomenon. The indicator has significance that extends beyond the properties directly associated with the parameter value (OECD, 1994). Historically the term indicator has progressed from a broad definition to more pertinent definitions as the need for this strategic tool became more apparent. This is reflected in the following definitions for indicators: 2

3 An indicator is defined as a "statistic or measure which facilitates interpretation to a standard or goal" (EPA, 1972). Indicators measure progress toward goals, milestones and objectives. They provide information on environmental and ecosystem quality or give reliable evidence of trends in quality (EPA, 1996). Indicators can present information on status or trends in the state of the environment, can measure pressures or stressors that degrade environmental quality, and can evaluate society's responses aimed at improving environmental conditions (EPA, 1996). Indicators are a valuable tool that can be used to measure the progress made in achieving sustainability (Tencer & Peck, 2000). Indicators are executive summaries addressed to non-experts who want to get a quick impression of basic trends without the need for further interpretation (Jesinghaus, 2000), ISSUES OF CONCERN The generation of waste by society may be viewed as a manifestation of the inefficient use of resources, and the root cause of pollution and the associated environmental degradation. Whichever way one looks at it, increased waste generation is an inevitable consequence of development and must be systematically managed in order to conserve resources and protect the environment (DEAT & DWAF, 1999). An expanding economy, increased production of goods together with an expanding population are seen as the main drivers for waste generation. According to the IP&WM White Paper, South Africa is emerging from a period of unsustainable and inequitable development. One outcome of these unsustainable and inequitable development policies is environmental degradation, which has significant economic and social impacts. Part of effecting a transformation to sustainable development is to redefine the way in which pollution and waste is managed in South Africa (DEAT, 2000). International concern around increasing pollution has escalated over the past 20 years, resulting in the development of many international protocols and conventions around environmental and waste management (e.g. Basel Convention, which addresses transboundary movement of hazardous waste). Many reports have also been written and conferences held as a result of concern about global environmental degradation. One of the most important of these conferences was the United Nations Conference on Environment and Development (UNCED), which was held in Rio De Janeiro in At this conference, 178 countries agreed on Agenda 21 as a blueprint for sustainable development. The White Paper on IP&WM is part of the South African Government's efforts to meet the goals of Agenda 21 (DEAT, 2000). Certain international agreements (e.g. UN Framework Convention on Climate Change, which deals with greenhouse gases, and the Basel Convention) impose specific requirements on South Africa. These requirements are also being addressed as part of the process of formulating South Africa's policy on IP&WM (DEAT, 2000). The indicators that are proposed in this paper aim to address the goals and objectives of South Africa's National Waste Management Strategy, the implementation strategy to the White Paper on IP&WM (DEAT and DWAF, 1999). The indicators are grouped according to the main issues surrounding waste management in South Africa, identified by specialists and stakeholders during Phase 2 of this project. The draft indicators were then reviewed by officials from national and provincial government during Phase 3 of this project. The main issues were grouped under categories of waste generation and waste reduction. The waste reduction category as used here is broad and includes correct disposal and collection and expenditure indicators. 3

4 Waste Generation According to the 1999 State of the Environment Report for South Africa (DEAT, 1999), the country generates over 42 million m 3 of solid waste every year. This is about 0.7 kg per person per day, which is more typical of developed countries than a developing country (by comparison the figure in the UK is 0.73 kg, 0.87 kg in Singapore and 0.3 kg in Nepal). In addition, 5 million m 3 of hazardous waste is generated every year (DEAT, 1999). Every day 2.6 million m 3 of domestic and commercial waste water is processed at treatment works. The last figure does not include agricultural and some industrial waste, which are the largest sources of waste (DEAT, 1999). South Africa s capacity to treat, store and dispose of high volumes of waste are limited, and it is predicted that five of the nine provinces will have landfill shortages within the next decade (DEAT, 1999). Further cause for concern is the low percentage of hazardous waste that is properly disposed of, i.e. at permitted, environmentally acceptable landfill sites, or treatment facilities. According to the State of Environment Report for South Africa, it was estimated that only 5% of the 5 million m 3 produced every year was disposed of at designated sites (DEAT, 1999). Waste Reduction Until recently, the focus in South Africa has been on waste disposal and impact controls or "end of the pipe" treatment. Inadequacies of this focus (DEAT, 2000) include: Lack of waste avoidance, minimization and cleaner production technology initiatives; Lack of regulatory initiatives to manage waste minimization; Few incentives for reducing waste; Industries not required to submit plans for waste disposal when applying to establish new enterprises; Inadequate resource recovery and a general lack of commitment to recycling - no legislation, policy or waste management culture that promotes resource recovery or makes it financially viable; and Lack of a variety of appropriate waste treatment methods. Some of the consequences of previous waste management policies are continued air and land pollution and the pollution of fresh and marine waters, resulting in the disruption of ecosystem processes, habitat destruction and species loss. The amount of waste produced also places increasing pressure on the country's landfills. Increasing amounts of land set aside for landfills could lead to habitat destruction and species loss. Lack of appropriate waste management strategies and treatment technologies associated with these policies also have a negative effect on human health. Appropriate measures to reduce and manage the amount of general and hazardous waste produced in South Africa need to be put in place. The approach to integrated pollution and waste management spelled out in the White Paper (DEAT, 2000) requires a shift from control to prevention. WASTE MANAGEMENT INDICATORS The following ten indicators have been identified as core indicators for National State of Environment Reporting. Each indicator is discussed in more detail below together with possible reporting examples. Waste Generation: General waste produced per income group per year (state indicator) 4

5 General waste produced per capita per year (state indicator) Hazardous waste produced per sector per year (state indicator) Waste Reduction: Waste recycling (response indicator) Value of waste recycled (response indicator) General waste correctly disposed through landfill (state indicator) Hazardous waste correctly disposed (state indicator) Available landfill lifespan (pressure/state indicator) Provincial expenditure on waste management (response indicator) Provincial waste collection capacity (response indicator) WM01: General waste produced per income group per year Tonnages of general waste produced throughout South Africa increases annually due to population growth, economic growth and unsustainable lifestyles. Waste that is not disposed of properly has the potential to impact adversely on ecosystem functioning and human health. In South Africa disparities in the volumes of waste generation between higher income groups and lower income groups exist. In general, the higher income groups generate more waste per capita (2.7 m 3 /capita/a) than the lower income groups (0.2 m 3 /capita/a) (DWAF 1997, 1998a). Indicator WM01, highlights both the spatial and temporal differences in the amount of waste generated per income group. This indicator is identified as a Level 2 indicator (i.e. the indicator is presently feasible, but cannot be provided without additional investment in the data collection process). Although limited data resides with some local metropolitan municipalities, nationally, data is limited. A first assessment of this indicator was made in the DWAF Baseline Studies that were published by DWAF (1997, 1998a). 3 Average Annual Waste Generation per Income Group Average generation rate (m 3 per capita per year) Income Level High Medium Low Year Figure 1: Example reporting of waste generation per income group (1998 values based on actual data, DWAF 1997, 1998a). The aim of indicator WM01 is to monitor and assess: Tends in development, i.e. increasing waste generation in low income groups; Trends in general waste production; The effectiveness of policy and programme implementation, such as waste minimization and recycling initiatives, i.e. reduction in waste generation in high income groups; Allow for the medium to long-term planning of landfill sites and treatment facilities. 5

6 WM02: General waste produced per capita per year As discussed in the previous indicator, waste production increases annually due to population growth, economic growth, inadequate services and unsustainable lifestyles. The South African Government has, through its White Paper on IP&WM, highlighted the need to minimize the amount of general waste generated. This indicator is identified as a Level 2 indicator (i.e. the indicator is presently feasible, but cannot be provided without additional investment in the data collection process). Although limited data resides with some local metropolitan municipalities, nationally, data is limited. A first assessment of this indicator was made in the DWAF Baseline Studies that were published by DWAF (1997, 1998a). Indicator WM02 may be used to monitor and assess: Trends in general waste production; The effectiveness of policy and programme implementation, such as waste minimisation and recycling initiatives; Allow for the medium to long-term planning of landfill sites and treatment facilities. WM03: Hazardous waste produced per sector per year This indicator describes the annual amount of hazardous waste produced per sector (industry, mining, agriculture). Hazardous waste is defined in the National Waste Management Strategy (NWMS) as 'waste that has potential even in low concentrations, to have a significant adverse effect on the public health or the environment'. This indicator is identified as a Level 2 indicator (i.e. the indicator is presently feasible, but cannot be provided without additional investment in the data collection process). A first assessment of this indicator was made in the DWAF Baseline Studies that were published by DWAF (1997, 1998a). As with indicator WM02, indicator WM03 provides and overview of: Trends in hazardous waste production; The effectiveness of policy and programme implementation, such as waste minimisation, cleaner production and recycling initiatives; Allow for the medium to long-term planning of hazardous waste landfill sites and treatment facilities. WM04: Waste recycling The White Paper on IP&WM and the NWMS promote the concept of waste minimization, reuse and recycling, as an alternative to disposing of waste in landfills. The associated reduction in volumes of waste disposed of to landfill reduces the pressures on available landfill airspace, the need for new landfills which may lead to the disruption in ecosystem functioning and habitat and species loss. Recycling is also a means of job creation and generation of income, especially among low income groups. This indicator may be reported on as the total annual amount of waste recycled per material type, either at a provincial or national level. The indicator is identified as a Level 2 indicator, however limited recycling data is available, for example, from the Packaging Council of South Africa (PACSA, 2002) annual publication of industry estimates of recycling activities within the packaging and related industries. 6

7 Recycled Packaging Material Tonnes ('000) Year Glass Metal Plastics Paper & Board Figure 2: Example reporting of waste recycling (actual data from the Packaging Industry, printed with permission PACSA, 2002). The aim of indicator WM04 is to monitor and assess: Trends towards sustainability, by increasing recycling; The effectiveness of policy and programme implementation, in recycling initiatives. WM05: Value of waste recycled Indicator WM05, measures the value of recycled waste in the country. As the value of recycled materials increases it will become more lucrative for individuals to begin recycling their own waste. Individuals who may previously have not recycled waste materials because they did not benefit in any way may show a change in behaviour. The indicator is identified as a Level 2 indicator. Data on the volumes and types of wastes recycled in each of the provinces needs to be collected, along with the data on local and international prices of recycled waste. The value of recycled waste is calculated by multiplying the volume of waste by the respective price, on an annual basis, in order to determine the value of recycled waste. value of recycled waste = quantity type price type For this indicator, the assumption is made that suitable domestic markets for recycled waste are provided by means of a favourable economic environment, through for example incentives. WM06: General waste correctly disposed through landfill The illegal disposal of waste within South Africa results in pollution of the natural environment and places humans at risk through contact with the waste. Indicator WM06 addresses the total annual amount of general waste disposed of at landfill sites. A comparison with waste generation figures allows for an assessment to be made of illegal waste disposal, waste disposal to non-permitted landfill sites, and the effectiveness of enforcement of legislation. 7

8 Figure 3: Spatial distribution of general waste received at landfills, per municipal district (based on available data, DWAF 1997, 1998a). WM07: Hazardous waste correctly disposed Hazardous waste that is not disposed of and/or treated properly may pollute land resources, inland water resources and the marine and coastal environment. This may lead to habitat fragmentation and the disruption of ecosystem functioning, which in turn may lead to species loss and the decreased ability of ecosystems to support human livelihoods and commercial activities. Exposure to certain hazardous wastes may also lead to disease in humans and animals. An assessment of waste disposal activities during the 1998 baseline studies indicated that significant volumes of hazardous waste are sent to general waste disposal sites, for final disposal. Indicator WM07 may be used to monitor and assess: the movement of hazardous waste within the country from the point of generation to final disposal/treatment; volumes of hazardous waste disposed of illegally, or to general landfill sites; the effectiveness of enforcement of legislation. WM08: Available landfill lifespan It is estimated that more than 700 landfill sites exist within South Africa (DWAF, 1997), however only a small percentage of these landfills are environmentally acceptable and comply with the Minimum Requirements as set out by DWAF (DWAF, 1998b). Each year South Africa's population places increasing pressure on existing landfills through the increasing volumes of waste generated. The closure of non-permitted landfills means that waste must be re-routed to permitted landfills for disposal, shortening the lifespan of existing sites. Monitoring landfill lifespan, is critical in assessing whether available landfills can meet medium to long-term demands. Indicator WM08 is a key indicator for planning and permitting of new landfills at local, provincial and national levels. This indicator is identified as a Level 2 indicator. Although limited data resides with some local metropolitan municipalities, nationally, data is limited. A first assessment of this indicator was made in the DWAF Baseline Studies that were published by DWAF (1997, 1998a). This 8

9 indicator can be reported on as landfill lifespan in years, calculated as available airspace/ incoming volume per annum (m 3 / m 3 per annum). WM09: Provincial expenditure on waste management Indicator WM09 addresses the total annual budget spent on waste management (including waste collection, litter collection, waste disposal etc.) at local authority level, i.e. the municipal response to waste management. The assumption here is that higher budgets means better waste services. Further value may be added to this indicator by assessing the annual budget spent on waste management per capita. This in effect gives an indication of the level of waste management services within the local authority or province. This indicator is identified as a Level 2 indicator. WM10: Provincial waste collection capacity The indicator shows the number and percentage of households with access to weekly curb-side waste collection services. The indicator measures the number of households within local authorities and thereby provinces that have waste collected. This gives an indication of the number of provinces that are actively involved in waste collection and management. This in turn, gives an indication of where potential shortfalls in waste management could be found, assuming a lack of collection capacity results in excessive waste. Indicator WM10 relates closely to Indicator WM09, in that the more money that is available for waste management, the higher the percentage of curb-side waste collection services. CONCLUSIONS It is recognised that a number of additional waste management indicators may also be suitable for reporting on the status of waste management This is evident from the additional indicators implemented at local levels in State of City reports. However, it is felt that the ten indicators presented here represent a suitable core set of indicators to report on the state of the environment, in particular the state of waste management within South Africa. The development and implementation of indicators for National State of Environment Reporting ensures a response in fulfilling South Africa s obligations for reporting on sustainability within the country. However, without data to populate these indicators, little value can be gained, and the effectiveness of implementation of waste management policy and programmes can not be gauged. As such it is critical for initiatives to be put in place to capture data on waste management activities at local, provincial and national level. ACKNOWLEDGEMENTS The authors would like to thank the Department of Environmental Affairs and Tourism for funding this programme, Mr G le Roux of the Department of Water Affairs and Forestry, Mr K Otto of Kobus Otto & Associates, and all participating stakeholders, for assistance in the development of waste indicators for National State of Environment reporting. To the CSIR project team, in particular E Muller, N King and M de Wit. REFERENCES DEAT (1999). State of the Environment South Africa. Department of Environmental Affairs and Tourism, Pretoria. 9

10 DEAT (2000). White paper on Integrated Pollution and Waste Management for South Africa, DEAT, Pretoria. Internet: DEAT and DWAF (1999). National Waste Management Strategies and Action Plans for South Africa. Strategy Formulation Phase. PMG 130. DEAT and DWAF, Pretoria. DWAF (1997). Waste Management Series. Disposal Sites for Hazardous and General Wastes in South Africa. Baseline Studies, Second Draft, November DWAF, Pretoria. DWAF (1998a). Waste Management Series. Waste Generation in South Africa. Baseline Studies. DWAF, Pretoria. DWAF (1998b). Waste Management Series. Minimum Requirements for Waste Disposal by Landfill. Second Edition. EPA (1972). Quality of Life Indicators as cited in Dilks, D., Lura Group Measuring Urban Sustainability: Canadian Indicators Workshop June 19-21, 1995 Workshop Proceedings. EPA (1996). Environmental Indicators of Water Quality in the United States. United States Environmental Protection Agency Report 841-R Jesinghaus, J. (2000). The Pressure Indices Project: Introduction to the Policy Fields. European Commission Joint Research Center, Institute for Systems, Informatics & Safety. Internet: OECD (1994). Environmental Indicators: OECD Core Set, Organization for Economic Cooperation and Development, Paris. PACSA (2002). Recycling in the Packaging and related industries in South Africa Internet: Tencer, S., and Peck, S. (2000). Ecoindicators. New Urban Agenda. Internet: Further information on the National Environmental Indicators Programme may be found on the Department of Environmental Affairs and Tourism s web page: URL: 10