GENERAL AND HAZARDOUS WASTE MANAGEMENT PLANS

Transcription

1 DEPARTMENT OF ECONOMIC DEVELOPMENT AND ENVIRONMENTAL AFFAIRS GENERAL AND HAZARDOUS WASTE MANAGEMENT PLANS DRAFT INTEGRATED GENERAL WASTE MANAGEMENT PLAN DEDEA REF: SCMU 9/0809/004 NOVEMBER 2009 Reference nr and Issue date

2 DRAFT GENERAL INTEGRATED WASTE MANAGEMENT PLAN CONTENTS Chapter Description Page 1 INTRODUCTION Objectives of PIWMP Scope of PIWMP Approach to PIWMP Assumptions and Limitations Methodology for preparing PIWMP 5 2 LEGAL REQUIREMENTS IN BRIEF Summary of legal mandates and duties 7 3 SITUATIONAL ANALYSIS SUMMARY Waste Profile of the Eastern Cape 9 4 NEEDS ANALYSIS 12 5 PRIORITIES AND OBJECTIVES Introduction Priority One Improved Strategic Waste planning Priority Two Improved Waste Services and Facilities Priority Three Improved Recovery and Recycling Priority Four Improved Institutional Functioning Priority Five Improved Financial Management for Waste Services Priority Six Improved Information Management and Monitoring 29 6 CONCLUSION AND RECOMMENDATIONS 32 7 REFERENCES 33 General Waste Management Plan - Work in progress draft.doc Rev 0 / Issue Date

3 LIST OF ACRONYMS ADM ANDM CDM CHDM DEDEA DM DWEA ECA EIA GWMP HWMP IDP IWM IWMP LA LM NEMA NEMWA NMMM NWMS PIWMP PSC UDM WIS Amathole District Municipality Alfred Nzo District Municipality Cacadu District Municpality Chris Hani District Municipality Department of Economic Development and Environmental Affairs District Municipality Department of Water and Environmental Affairs Environment Conservation Act Environmental Impact Assessment General Waste Management Plan Hazardous Waste Management Plan Integrated Development Plan Integrated Waste Management Integrated Waste Management Plan Local Authority (Local and District level authorities) Local Municipality National Environmental Management Act National Environmental Management: Waste Act Nelson Mandela Metropolitan Municipality National Waste Management Strategy Provincial Integrated Waste Management Plan Project Steering Committee Ukhahlamba District Municipality Waste Information System General Waste Management Plan - Work in progress draft.doc Rev 0 / Issue Date

4 1 INTRODUCTION The Eastern Cape Department of Economic Development and Environmental Affairs (DEDEA) has identified the need to compile a Provincial Integrated Waste Management Plan (PIWMP). This is now a legal requirement in terms of Section 11(1) of the National Environmental Management: Waste Act (59 of 2008), which states that the Department and the provincial departments responsible for waste management must prepare integrated waste management plans. DEDEA have appointed Arcus GIBB to compile both a General and a Hazardous Waste Management Plan for the Province. 1.1 Objectives of PIWMP The National Waste Management Strategy (DEAT, 1999) (NWMS) states that the primary objective of integrated waste management planning is to: integrate and optimise waste management so that the efficiency of the waste management system is maximised and the impacts and financial costs associated with waste management are minimised, thereby improving the quality of life of all South Africans. Hence Integrated Waste Management Plans (IWMPs) are seen as a tool to facilitate the move towards less fragmented and more coordinated and integrated waste management (IWM), which considers waste management throughout the life cycle of waste i.e. a cradle to grave approach. IWM therefore considers all components of the waste hierarchy, including waste avoidance, minimisation, recycling, collection and transportation, treatment and finally, disposal (see Figure 1). Figure 1: The waste hierarchy as per the National Waste Management Strategy (DEAT, 1999) Draft GWMP 1 Rev 1 / Nov 09

5 1.2 Scope of PIWMP The study area covered is limited to the Eastern Cape Province. The Province is divided into six districts and one metropolitan council. These districts are Cacadu; Chris Hani; Amathole; Ukhahlamba; O.R. Tambo; and Alfred Nzo. The Nelson Mandela Bay Metropolitan council includes Port Elisabeth and Uitenhage. Figure 2: The Eastern Cape Province The local Municipalities contained within each district municipality are shown in Table 1-1 Table 1-1: Municipalities in the Eastern Cape District municipality Local Municipality Mbashe Mnquma Great Kei Amathole District Municipality Amahlati Buffalo City Nqushwa Nkonkobe Nxuba Cacadu District Municipality Camdeboo Blue Crane Route Ikwezi Makana Ndlambe Sundays River Valley Draft GWMP 2 Rev 1 / Nov 09

6 District municipality Chris Hani District Municipality Ukhahlamba District Municipality OR Tambo District Municipality Alfred Nzo District Municipality Local Municipality Baviaans Kouga Kou-Kamma Inxuba Yethemba Tsolwana Inkwanca Lukhanji Intsika Yethu Emalahleni Engcobo Sakhisizwe Elundini Senqu Maletswai Gariep Mbizana Ntabankulu Quakeni Port St Johns Nyandeni Mhontlo King Sabata Dalinyebo Matatiele Umzimvubu 1.3 Approach to PIWMP Section 12(1) of the NEMWA defines a number of issues and topics which all IWMP s are to address. These requirements have therefore, to a large degree defined the approach to this PIWMP. For example section 12(1)(d) states that IWMP s must set out priorities and objectives with regards to waste management. The NEMWA further stipulates that PIWMP s must: Provide criteria for identifying the waste management measures that are required or need to be implemented; Establish targets for waste management in terms of the hierarchy or waste management measures; Include planning for new disposal facilities systems and decommissioning of existing systems if required; Include an implementation plan; Include and indication of the financial resources required. This PIWMP has fulfilled these requirements as best possible with the information and data available at the time. The general approach adopted for this PIWMP is presented in Figure 3. A situation analysis was undertaken and describes the status quo of both general and hazardous Draft GWMP 3 Rev 1 / Nov 09

7 waste management in the Province. Thereafter, a separate general waste management plan (GWMP), this report, and hazardous waste management plan (HWMP) were compiled. Situation Analysis General & Hazardous Waste General Waste Management Plan Hazardous Waste Management Plan Needs Analysis Needs Analysis Objectives & Targets Objectives & Targets Implementation Plan Implementation Plan Figure 3: Approach to the IWMPs for general and hazardous waste Hence two main phases are envisaged fro this PIWMP, namely a Situation Analysis followed by a GWMP and HWMP. 1.4 Assumptions and Limitations The following assumptions have been made during the development of the PIWMP: District and Local Municipal IWMP s are accurate; and Information gained from the questionnaires completed by Local and district Municipalities are accurate A number of limitations have been identified during the work undertaken to date. The most significant of these has been the challenges associated with sourcing data. The lack of record keeping and appropriate management of data, as well as the lack of capacity at local municipal level has proved extremely limiting to this exercise. Draft GWMP 4 Rev 1 / Nov 09

8 1.5 Methodology for preparing PIWMP The PIWMP was prepared in several stages. The first stage was the development of the Situational Analysis Report. The aim of the Situational Analysis was to lay the groundwork for the final plan: Literature review. A number of reference documents were consulted and have been listed under Section 7 (References). All IWMPs for local and district municipalities within the Eastern Cape were reviewed. Table 1-2 details which of these plans existed at the time of the development of this document. These IWMP s were the primary source of waste information at a local level, however significant differences in the quality of the reports were found. Some plans presented detailed information derived from primary data, while others relied on desktop information as their only source. Hence the detail of information presented within this report varies accordingly. Waste legislation and policy documents consulted are summarised under Section 2 of this report Waste service providers: A number of private waste service providers were consulted and interviewed in order to obtain waste data and understand challenges facing the industry. Government interviews: The Director of Air Quality and Waste, DEDEA, was interviewed regarding the institutional operating of the Department. Waste questionnaire: Due to the variability in the quality of the local IWMP s, a waste questionnaire was issued to all local authorities. This questionnaire was sent to the officials responsible for waste management in each of the authorities. The response from both DMs and LMs was poor. Two of the six DMs (33%) returned the questionnaire. Of the 38 LAs, 12 (32%) returned the questionnaire. The only metro in the Province, Nelson Mandela Bay Municipality, returned the questionnaire. Project Steering Committee: A Project Steering Committee (PSC) consisting of representatives from provincial, district and local government was established and managed by DEDEA. The purpose of the PSC was to provide input into the project and review key deliverables. The following PSC meetings were held: 05 August 2009: First PSC meeting. Approach of the study was presented. 06 October 2009: Presentation of an interim report outlining status quo data gathered to date. 12 November 2009: A specials PSC workshop was held in order to discuss and workshop the draft objectives and targets proposed for the GWMP. 24 November 2009: Presentation of draft Situational Analysis Report and draft GWMP. Draft GWMP 5 Rev 1 / Nov 09

9 Table 1-2: Status of IWMP's in the Province Authority IWMP IWMP Authority completed completed Amathole District Municipality Chris Hani District Municipality Mbashe Inxuba Yethemba Mnquma Tsolwana Great Kei Inkwanca Amahlati Lukhanji Buffalo City Intsika Yethu Nqushwa Emalahleni Nkonkobe Engcobo Nxuba Sakhisizwe Cacadu District Municipality Ukhahlamba District Municipality Camdeboo Elundini Blue Crane Route Senqu Ikwezi Maletswai Makana Gariep Ndlambe OR Tambo District Municipality Sundays River Valley Mbizana Baviaans Ntabankulu Kouga Quakeni Kou-Kamma Port St Johns Alfred Nzo District Municipality Nyandeni Matatiele Mhontlo Umzimvubu King Sabata Dalinyebo Nelson Mandela Bay Municipality In addition to the abovementioned documents reviewed, other policies and documents related to waste management in South Africa were also consulted. Following the information gathered, work commenced on the Provincial Integrated Waste Management Plan. This process included the following activities: Use of baseline information to determine the required action: This involved studying challenges faced by the Province in waste management and identifying areas that required the most urgent action. These areas were then discussed and analysed in presentations made to Provincial. The development of the plan itself: The plan was developed over several iterations and involved interaction with provincial and external stakeholders. The plan was changed and improved during these consultations. Draft GWMP 6 Rev 1 / Nov 09

10 2 LEGAL REQUIREMENTS IN BRIEF 2.1 Summary of legal mandates and duties Waste management planning must be contextualised within the framework of national government, provincial government, district municipality and local municipality legal, regulatory and policy framework. Before the promulgation of the NEMWA waste management was fragmented and was administered by a number of regulatory bodies across all tiers of government, which resulted in duplication and the overlapping of functions. A summary of the most pertinent points of policy and legislative framework is presented below. The National Environmental Management Act (Act 107 of 1998) is the framework Act dealing with environmental management in South Africa. It imposes a duty of care on every person who causes environmental degradation to put measures in place to stop, reduce or rectify the pollution as it occurs. Pollution is defined in NEMA so as to include waste. The National Environmental Management: Waste Act (Act 59 of 2008) (NEMWA) was promulgated on 01 July 2009, marking a new era in waste management in South Africa. The act covers a wide spectrum of issues including requirements for a National Waste Management Strategy, IWMP s, definition of priority wastes, waste minimisation, treatment and disposal of waste, Industry Waste Management Plans, licensing of activities, and waste information management. The first National Waste Management Strategy (NWMS) was published in 1999 by the Department of Environmental and Tourism (DEAT) and the Department of Water Affairs and Forestry (DWAF). It was the first strategy for addressing South Africa s waste management challenges. The strategy effectively defines South Africa s vision for waste management highlighting themes such as cradle to grave management of waste products and the waste management hierarchy which encourages waste disposal only as a last resort. The National Water Act controls pollution as it impacts upon surface and groundwater in the country. The Act imposes a duty of care on polluters to restrict the amount of pollution contaminating water resources. The Municipal Structures Act obliges every local municipality to compile and adhere to an Integrated Development Plan. These plans allow the municipality to plan for service delivery and expansion. Waste management is an important part of the IDP. The Local Government Municipal Systems Act establishes the need for environmentally sustainable service delivery and the need for local IDP s. The Act defines the different levels of service provider and distinguishes between the service authority and the service authority and the service provider. The act states that municipal services have to be financially sustainable. It establishes the process through which municipalities should go in order to outsource service delivery functions. The provisions of the Municipal Finance Management Act should be complied with should a municipality decide to outsource service delivery functions. Draft GWMP 7 Rev 1 / Nov 09

11 Municipal By-laws are important enabling laws to ensure that the waste management system functions at local level. The current By-laws in the province are outdated and generally do not take into account modern waste management practices. Majority of LM s waste management By-laws are non-existent. Draft GWMP 8 Rev 1 / Nov 09

12 3 SITUATIONAL ANALYSIS SUMMARY 3.1 Waste Profile of the Eastern Cape A summary of the information contained in the Situational Analysis is contained below. This summary is intended as an introduction to the information contained in the Situational Analysis and does not attempt to replicate the detail contained Waste Types/Classification Waste classification is used to describe the various sources of waste generated. The classifications are residential, commercial, industrial and hazardous. Residential waste is general waste generated within urban and rural settlements. Commercial waste is generated within business districts and includes office and retail waste. Industrial waste is non-hazardous fraction of waste generated by industry. Hazardous waste is waste, generated by all generators, that poses a risk to the environment Waste treatment and disposal Treatment of general waste generated in the Province takes the forms of composting and burning. Burning of waste is taking place illegally at majority of landfill sites in the province, in efforts to reduce volumes and is evidence of mismanagement of the landfill sites. The quantity of waste disposed of in the Eastern Cape can be estimated as follows: Table 3-1: Estimated quantities of general waste disposed in the Eastern Cape. Figures have been derived from a combination of sources including IMWPs, questionnaires and the SAWIC. District Municipality Waste to landfill (tonnes / annum) Amathole District Municipality 425,344 Cacadu District Municipality 175,147 Chris Hani District Municipality 227,300 Ukhahlamba District Municipality 37,046 O.R. Tambo District Municipality 68,500 Alfred Nzo District Municipality 20,000 Nelson Mandela Metropolitan 619,099 Total 1,572, Recycling and re-use The majority of municipalities nationally do not have capacity or infrastructure to pursue waste minimisation and recycling, and tend to concentrate on the more traditional functions of collection and disposal. A number of initiatives have been launched across the EC Province and are in early stages of development and will hopefully be a sustainable business. The national waste capacity survey (DEAT, 2007) found that 87% of municipalities do not have capacity and infrastructure to undertake minimisation, although 80% of them Draft GWMP 9 Rev 1 / Nov 09

13 are pursuing recycling in some form. The main limitation cited was lack of in-house capacity and knowledge to initiate and maintain waste minimisation programmes Waste management infrastructure Approximately 60% of Eastern Cape households receive no collection service at all, a service backlog which is significantly higher than the national average. The general accepted basic level of service with regards to solid waste collection is that a refuse removal service be provided once a week. Only 37% of households in the Province receive such a weekly service. The majority of households (44.2%) dispose of waste in their own refuse dumps. The lack of collection services provided to certain key tourism areas such as coastal settlements along the wild coast, has been raised as a concern. The poor condition and lack of waste management equipment including collection vehicles have been identified as one of the key issues contributing to inefficient waste management activities at local authority level. There are a total of 117 operational landfill sites in the Province (Refer to Figure 4). This number refers to formal landfill or dumpsites as used by municipal authorities, and excludes the numerous small, informal dumping areas, of which there are many. There are also a number of formal sites which area no longer used but which require formal closure and rehabilitation. Management of landfill sites in the EC is evidently a big concern. A map showing the location of the landfill sites in the province is indicated below Waste information management The NWMS (DEAT, 1999) listed as one of its short term priorities the development of a Waste Information System to manage waste data, and highlighted that the priority short term data needs related to IWM planning and waste disposal data. The national Department of Environmental Affairs has since designed the web-based South African Waste Information Centre (SAWIC) intended to operate as an accessible database into which waste generators can upload waste data. The data is captured on standardised forms and includes a number of fields such as waste category, type, origin, quantities. At present, data from only two Eastern Cape municipalities appear in the tonnage reports on the SAWIC, namely the Nelson Mandela Bay Municipality and Buffalo City Municipality. The database shows 2008 waste-to-landfill figures for these as 20,204.1 tonnes and 661,141 tonnes respectively. Draft GWMP 10 Rev 1 / Nov 09

14 Figure 4: Landfill Sites of the Eastern Cape Draft GWMP 11 Rev 1 / Nov 09

15 4 NEEDS ANALYSIS Before a waste management plan can be devised, an assessment of the needs in the areas must be carried out. This section outlines the waste related issues that have been identified through the review of the IWMP s and the questionnaires sent out to all DM s and LM s for completion. Local authorities have identified a number of issues in their respective areas and all have been listed in the table below according to the strategic priorities it relates to. Table 4-1: Needs identified by District and Local Municipalities Strategic Priority One: Improved Strategic Waste Planning Co-operation between Local and District Municipalities Facilities to deal with small quantities of hazardous waste, such as abattoir waste and chicken feathers Lack of human resources Strategic Priority Two: Improved Waste Services and Facilities Education and awareness with regards to waste management Poor condition of waste collection equipment Illegal dumping of waste Not enough vehicles for providing the service Strategic Priority Three: Improved Recovery and Recycling No market for recycling projects Strategic Priority Four: Improved Institutional Functioning Revision and implementation of waste related by-laws where they exist. Support in Implementation of the Integrated Waste Management Plans. Establish Waste related By-laws and implementation thereof. Support from provincial government needed Funding for licensing waste disposal facilities Strategic Priority Five: Improved Financial Management of Waste services No tariff structure in place for waste management services Financial Aid for effective management of waste site. Strategic Priority Six: Improved Information Management and Monitoring Waste data collection system lacking at local municipal level The needs identified above are further discussed under the respective notes of the Strategic Priorities. Draft GWMP 12 Rev 1 / Nov 09

16 5 PRIORITIES AND OBJECTIVES 5.1 Introduction The PIWMP is presented as a series of six priorities. The priorities are tabulated for easy reference and a detailed discussion of the implications of the priorities and the means to achieve the priority are discussed for each priority. The strategic Priorities can be summarised as follows: Strategic Priority One - Improved Strategic Waste Planning Strategic Priority Two - Improved Waste Services and Facilities Strategic Priority Three - Improved Recovery and Recycling Strategic Priority Four - Improved Institutional Functioning Strategic Priority Five - Improved Financial Management of Waste Services Strategic Priority Six - Improved Information Management and Monitoring The tables below indicates the Strategic Priorities, Objectives, Targets, Indicators and Actions to be implemented. It also highlights whose responsibility it is to realise the actions and the timelines related thereto. Draft GWMP 13 Rev 1 / Nov 09

17 5.2 Priority One Improved Strategic Waste planning Table 5-1: Priority One Improved Strategic Waste Planning Strategic Objectives Target Indicator Actions Priorities Improved Strategic Waste Planning Legally compliant IWMP process DEDEA to compile IWMP guideline/template by 2011 All LAs to have current (i.e. reviewed within the last 5 years) IWMP s, which meet NEMWA requirements by end 2012 Guideline completed or not Percentage of LMs and DMs with completed, up to date IWMPs Develop formal IWMP guideline/template defining structure and content requirements DEDEA to undertake legal compliance review of existing IWMPs and advise non-compliant LAs of the required changes ito NEMWA LAs with existing IWMPs to review them and revise to meet requirements of this PIWMP and NEMWA LAs with no IWMP to compile them as per requirements of this PIWMP and NEMWA Responsi bility Priorit y DEDEA High X DEDEA (head office) LAs LAs High X Very high Very high Implementation Timeframe X X Budget DEDEA internally External review (R30k) DEDEA undertake internally LAs to define LAs to define Draft GWMP 14 Rev 1 / Nov 09

18 5.2.1 Priority One Notes Development of IWMP Guidelines All IWMP s reviewed during the process of compiling the PIWMP highlighted the variation in quality of Local and District Municipality s IWMP s. The DEDEA has developed a guideline for compiling IWMP s but it is currently available as a draft document. With respect to guidelines for the preparation of IWMP s, the national framework guideline for the development of IWMP s has been drafted and three provinces, namely Gauteng, Western Cape and KwaZulu-Natal, have also produced provincial guidelines. These guidelines will go a long way to ensuring consistency and uniformity in the development of the IWMP s, which currently show great variances in content and quality, as well as the extent to which they are included in municipal IDP s, which is important for aligning priorities and influencing the allocation of resources for implementation. As a result there are varying degrees of implementation of municipal IWMP s. Review of IWMP s All Local and District Municipalities are required to compile IWMP which should be done according to the DEDEA IWMP Guideline Document to be finalised. These IWMP s need to be a comprehensive study of waste generated and disposed of in the respective areas. These plans need to be reviewed every five years to update and set the objectives and targets for the following five year period. Draft GWMP 15 Rev 1 / Nov 09

19 5.3 Priority Two Improved Waste Services and Facilities Table 5-2: Priority Two - Improved Waste Services and Facilities 2.1 Strategic Priorities Improve Waste Services and Facilities Objectives Target Indicator Actions Provide at least an acceptable minimum waste collection service in all urban areas Residential areas within urban settlements to receive weekly collection service by 2013 Percentage of urban settlements receiving weekly collection service Undertake a survey to determine areas receiving unsatisfactory service, and formulate a response strategy Respons ibility Priority Implementation Timeframe Budget LAs High X LAs to define 2.2 Implement response strategy LAs High X LAs to define 2.3 Provide at least an acceptable minimum waste collection service in rural areas An acceptable basic level of waste service in 25% of rural settlements by 2014 Percentage of rural settlements receiving basic waste service Undertake Status of Rural Waste Management survey for EC, identify challenges and define acceptable minimum waste collection service DEDEA Medium X R250k (or DEDEA to undertake internally) Deliver an acceptable basic waste service to priority areas e.g. coastal resorts An acceptable basic level of waste service in 50% of priority areas by 2014 Percentage of priority areas receiving basic waste service LAs to implement minimum standards Define priority areas for waste management (e.g. coastal resorts, and settlements in or close to nature reserves) Undertake Status Quo survey of waste management in these priority areas and develop a response strategy 2.7 Implement response strategy Achieve legal compliance of waste facilities License at least of 20% of currently unlicensed facilities by 2014 License status Undertake compliance survey of all landfills in the province (underway) Develop a strategy for licensing landfills in the Province LAs Medium X DEDEA Medium X DEDEA Medium X LAs DEDEA LAs to define. Dependant on standards defined DEDEA to undertake internally R250k (or DEDEA to undertake internally) Medium X To be defined DEDEA High X Underway DEDEA High X R100k (?? DEDEA costs to do internally) Draft GWMP 16 Rev 1 / Nov 09

20 Strategic Priorities Objectives Target Indicator Actions Respons ibility Priority Implementation Timeframe Budget Implement the licensing strategy LAs High X 2.11 All LAs to develop and implement an internal audit programme for all of their waste facilities Percentage of LAs with an up to date internal auditing programme Develop an annual internal auditing programme for all waste facility against permit/license conditions and best practice requirements. Minimum of one audit per facility per year LAs Medium X 2.12 Implement auditing programme LAs Medium X Promote regionalisation of waste management facilities DEDEA to develop and implement a province-wide annual landfill compliance monitoring programme Develop a regionalisation plan for landfill sites and transfer facilities by 2012 Commence rollout of plan by 2012 Facilitate cross-boundary administrative planning with regards to regional schemes Programme developed or not Plan developed or not Plan implemented or not Number of signed MOUs DEDEA to develop a province-wide annual landfill compliance monitoring programme. Minimum of one audit per facility per year DEDEA to implement compliance monitoring programme Develop a regionalisation plan for a provincial network of regional landfill sites and transfer facilities by 2012 Implement regionalisation plan Facilitate commissioning of Ibika Landfill DEDEA Medium X DEDEA Medium X DEDEA (headoffi ce) LAs DEDEA Medium X Medium X DEDEA High X Strategy dependant LAs to determine LAs to determine DEDEA to undertake internally DEDEA to undertake internally R250k (?? DEDEA costs to do internally) Dependant on regionalisation plan DEDEA to undertake internally Draft GWMP 17 Rev 1 / Nov 09

21 5.3.1 Priority Two Notes Provision of waste collection services to all areas Provision of waste collection services has been fragmented across the province. Local municipalities are mainly responsible for waste collection and disposal, and where capacity lacks it s the responsibility of district municipalities. At a municipal level the primary obstacle to a sustainable waste management service is the lack of in house capacity to run the service in an efficient and effective manner as well as the lack of knowledge to move the service from an end of pipe scenario to a waste minimization approach. The primary intervention that is recommended in this vein is the strengthening of municipal human resource capacity. To further augment the waste minimization approach cooperation is required between the waste producers and the local municipalities; this can be reinforced by by-laws. Furthermore, the provincial and national government should act in a supportive and complementary role to the local municipalities by providing policy guidance; developing legal deterrents against illegal dumping of wastes and the use of open dumps, coupled with adequate capacity for enforcement; and providing assistance with standards for segregation, storage, treatment, and disposal of each category of waste. In terms of addressing the backlogs so as to provide the majority of the people of South Africa with a sustainable solid waste service it is recommended that the backlogs in the Metros and secondary cities be addressed first as they account for 54 % of the total backlog in the country. The cost of addressing these backlogs will be less than addressing the backlog in other smaller and predominantly rural areas where waste transport costs will be prohibitive resulting in an unsustainable service. A detailed survey needs to be undertaken to identify what percentages and areas receives waste collection services in the province. Once this is established an action plan needs to be drawn up for providing those services to un-serviced areas in the Province. The action plan needs to be implemented and carefully monitored to ensure the needed service is rendered to the community Rural Waste Management Rural areas are generally not serviced by municipalities due to the remote locations of some areas. Waste produced in these areas are disposed of by community members either by means of on-site burning and burying or establishing small, poorly managed communal waste disposal sites. The quantities of waste produced in the rural areas have been said to be too low to initiate recycling projects. The following initiatives can be considered encourage recycling projects in rural areas: Involvement of local schools Establishing green/eco clubs at rural schools and providing incentives to encourage continuous involvement. Training of community members on recycling in their areas to reduce the quantities of waste going into pits and being burned. Composting and gardening projects will yield desirable benefits to communities. A detailed survey needs to be undertaken to identify what waste disposal methods are used in the rural areas and also what alternative options can be used in the rural areas which will be effective and financially viable for local authorities. Draft GWMP 18 Rev 1 / Nov 09

22 Landfill Licences and Compliance monitoring From information gathered during this process, it was found that of the 117 operational landfill sites in the Province, 47% are licensed. However, of the permitted landfill sites majority are not operated according to licence/permit conditions issued. Management of landfill sites appears to be the biggest problem in the local municipalities which is attributed to the lack of resources at municipal level. The key problems identified that needs to be rectified include the following: Fencing/access control to landfill sites; Illegal reclamation on waste disposal sites; Burning of waste in open trenches; Inadequate or no equipment on site which is needed for operations of the landfill sites; and No compliance monitoring taking place in the province. Activities that are not allowed according to their authorisations are taking place and no legal enforcement actions are taken to rectify these activities. Compliance auditing need to be undertaken by DEDEA officials on a predetermined and fixed basis to ensure that licence conditions are adhered to at all times. Regionalisation of Landfill Sites Reducing the number of illegal and mismanaged operating landfill sites and working towards regionalisation of landfill will decrease the impact of waste disposal on the environment. Regional waste disposal sites are one of the targets that the NEMWA has identified and needs to be implemented. A regional facility would normally include: A large centralised landfill site with all the infrastructure and resources to properly operate and maintain it; Transfer stations established at each town or community. These may be mechanical compaction type or open skip type transfer stations depending on the size of the community and distance from the landfill. Dedicated long-haul vehicles to transport waste from the transfer stations to the landfill Local collection vehicles to collect waste and transport it to the transfer facilities(normally the responsibility of the local municipality); and Depending on the size of the community being served and the types of waste being generated, materials recovery facilities may be established at the transfer stations. This would effectively recover material closer to source and reduce the quantity of waste to be transported and disposed, thus reducing costs along the waste management chain. Advantages include: Effectively reducing the pollution potential to one landfill in place of a landfill in every town or settlement; Concentrated and more effective utilisation of resources at one landfill, hence reduced risk of pollution. If transfer stations and materials recovery facilities are put in place, an opportunity for recycling and waste minimisation will be available. Draft GWMP 19 Rev 1 / Nov 09

23 Possible Disadvantages include: Affordability it may be cheaper for smaller towns/communities to operate tractor trailer collection systems transporting to a properly constructed and operated Communal landfill than delivering to a transfer station and long haul vehicle system. The Province and/or District Municipalities should properly research the option of a regional landfill site and must consider the local municipalities capability of providing this service. A public awareness programme must be rolled out and support from the communities must be obtained. Effective management of the regional waste facility will be essential to the success of the waste management system. Training of staff including drivers and operators will be needed to ensure smooth running of process. Establishing a basic standard for waste service Provincial government should assist local authority with developing a minimum waste service standard to ensure that everyone receives equal standard of service. Alternative collection systems need to be developed for the different areas in the province. The alternative collection systems should be evaluated according to the following criteria: Technical criteria: Suitability to roads and terrain; waste type and quantity, suitability of primary and secondary collection equipment; type and locations of secondary collection sites; etc. Economic criteria: Costs of alternatives in terms of capital and operating costs; expected service fees to ensure cost recovery; etc. Social criteria: Positive and negative impacts of each alternative; opportunities for job creation; etc. Political criteria: Local political backing will need to be acquired. In rural/coastal areas a community-based collection system may be more effective. A Community-based Collection System is a joint partnership with the municipalities, local communities and the private sector. Through funding from the private sector, entrepreneurs from the local community are provided with the means to manage their community s waste. This provides the local municipality with a waste management system and the municipality has fulfilled its waste management role. This is also an ideal opportunity for establishing a recycling project in the community thus reducing the amount of waste having to be collected. Provision should be made for more sensitive areas/nodes where these basic services standards will be more rigorous to prevent degradation of the sensitive areas. For example in the coastal resorts areas or nature reserves, a specific plan needs to be developed to handle these areas waste. Draft GWMP 20 Rev 1 / Nov 09

24 5.4 Priority Three Improved Recovery and Recycling Table 5-3: Priority Three - Improved Recovery and Recycling Strategic Priorities Improved Recovery and Recycling Objectives Target Indicator Actions Maximise recycling opportunities in the province Provincial recycling strategy and recycling targets to be developed by 2011 DEDEA to develop and implement an annual waste minimisation/recycling industry and public awareness programme 80% of LAs to develop and implement an annual waste minimisation/recycling industry and public awareness programme by % of LAs to develop a waste minimisation/recycling plan by 2013 Report completed or not Programme developed and implemented or not Percentage of LAs to develop and implement a programme Percentage of LAs to develop a plan Review of provincial recycling status quo, indentify regional oportunities, define provincial recycling targets, and development a strategy to achieve these. Content of LA waste minimisation plans to be defined DEDEA to develop and implement an annual waste minimisation/recycling industry and public awareness programme (underway) LAs to develop and implement an annual waste minimisation/recycling industry and public awareness programme LAs to develop a waste minimisation/recycling infrastructure and operations plan. To include costing and programming of required Respon sibility DEDEA DEDEA LAs LAs Priority Implementation Timeframe Budget Mediu m Mediu m Mediu m Mediu m X X X X 500k (?? DEDEA costs to do internally DEDEA to define LAs to define LAs to define Draft GWMP 21 Rev 1 / Nov 09

25 Strategic Priorities Objectives Target Indicator Actions Respon sibility Priority Implementation Timeframe Budget capital infrastructure (e.g. MRFs, Buy Back Centres, Drop-off centres etc), and operational activities 3.5 Implement minimisation/recycling infrastructure and operations plan LAs Mediu m LAs to define Draft GWMP 22 Rev 1 / Nov 09

26 5.4.1 Priority Three Notes Developing a Recycling Strategy Waste minimisation and avoidance are seen as the most important tiers in the waste management hierarchy and it is of vital importance that these activities are encouraged as far as possible. Recycling in the smaller and more rural municipalities has been unsuccessful due to the lack of interest and because it s not seen as a viable option as an income generator. Distance from markets has been identified as another reason for the poor recycling rates in these areas. A provincial recycling strategy needs to be developed which emphasizes that recycling opportunities are available within the province and with the appropriate coordinator or community champions in place, recycling can be effective. This strategy should also be the cornerstone for local municipalities to base their own local recycling strategies on and should provide them with tools that they may need to implement this strategy. Recycling companies in the bigger centres should be approached to assist with the needed infrastructure and it will be the coordinator or community champions responsibility to ensure that the quantities of recyclables are adequate and are collected on a regular basis. At source separation should be encouraged to increase the value of recyclable material and also to eradicate the dangerous scavenging /recovering of material taking place at the waste disposal facilities. Waste Minimisation, Recycling and Public Awareness Programme Each Local Municipality must compile a register of existing recycling initiatives in their area, and identify who is doing what and methods used and their markets. After this exercise is completed an investigation should be done to establish what the challenges are in the respective areas and how this could be overcome. Recycling investigations and initiatives should be undertaken by an official appointed for that specific function. This responsible person will be held accountable for all waste related projects in the area and may be the waste officer to be appointed by the municipality according to the NEMWA requirements. Once initiatives have been identified it needs to be work-shopped to community member to get their support behind whatever project it is in order for it to be successful. Without community backing a project and without the necessary training of community members, waste related projects may not be Public awareness campaigns can take the form of having competitions encouraging recycling and also municipalities providing incentives for reducing waste generated. Provincial Government should supply the District and Local Municipalities with the needed support which includes supply of contact details of possible formal recyclers, institutions to provide financial aid and alternative recycling methods that may be available. Draft GWMP 23 Rev 1 Nov 09

27 5.5 Priority Four Improved Institutional Functioning Table 5-4: Priority Four - Improved Institutional Functioning Strategic Priorities Improve Institutional Functioning Objectives Target Indicator Actions Appropriate capacity within DEDEA to implement PIWMP Designate Waste Management Officers (WMO) Institutional capacity building for waste management Ensure conformance of existing by- DEDEA to undertake assessment of resource requirements for implementation of this PIWMP by 2011 Provincial WMO to be designated by 2010 WMOs to be designated in every LA by 2011 Waste Management Forum for WMOs to be established by % of all existing bylaws to comply with NEMWA requirements by Assessment undertaken or not WMO designated or not % of LAs with designated WMOs. Number of forum meetings held per year Percentage of compliant bylaws DEDEA to undertake resource assessment for implementation of this plan DEDEA to allocate required resources to fulfil PIWMP MEC to formally designate, in writing, a Provincial WMO, as required by NEMWA All LAs to formally designate, in writing, a Waste Management Officer DEDEA to establish forum and provide secretariat. Programme content to include e.g. NEMWA, NW\MS, P- IWMP, legal updates, planning (IDP) and reporting processes Review of existing by-laws to determine compliance Respon sibility Priority Implementation Timeframe Budget DEDEA High X DEDEA High X DEDEA LAs DEDEA LAs Very high Very high Mediu m Mediu m X X X X DEDEA to undertake internally Dependant on assessment New post required?. LAs to determine DEDEA to define LAs to define Draft GWMP 24 Rev 1 / Nov 09

28 Strategic Priorities Objectives Target Indicator Actions laws with NEMWA Revision of by-laws LAs 4.8 Develop waste by-laws in all LAs 50% of all LAs to adopt waste management bylaws by 2014 Percentage of LAs with adopted waste by laws LAs without by-laws to draft and adopt by-laws Respon sibility LAs Priority Implementation Timeframe Budget Mediu m Mediu m X X LAs to define LAs to define Draft GWMP 25 Rev 1 / Nov 09

29 5.5.1 Priority Four Notes Resource Requirements An assessment needs to be undertaken to identify the requirements to effectively implement the PIWMP. These requirements may include financial resources, human resources and the necessary equipment/tools needed for implementation. The NEMWA states that the MEC must designate an officer in the provincial administration as the provincial Waste Management Officer (WMO) who will be responsible for co-ordinating matters pertaining to waste management in the province. This provincial waste management officer will be liaising with waste management officer appointed by local municipalities, whose responsibilities are to co-ordinate matters pertaining to waste management in that municipality. The provincial WMO must establish a forum where local and District WMO s could come together twice a year with the provincial WMO to have an information sharing session as well as discuss potential waste related projects or initiatives that can be implemented at local municipal level. Municipal By-laws A By-law is a law made by local authority, i.e. district and local municipalities and could be considered as the instruments for enforcing the obligations of the households. By-laws should be used to define the collection system used in the municipality and the basic principles of source separation. Waste related by-laws in the Eastern Cape are either non-existent or outdated, with the exception of the Metropolitan Municipality whose by-laws are currently under review. Majority of local municipalities have indicated that they have adapted their respective District Municipality s waste by-laws but are not necessarily implemented. Suitable waste management by-laws must be investigated by accessing other sources (e.g. DEAT, other provinces, other municipalities) and proposing a minimum set of by-laws suitable for the Eastern Cape Province. These must then be work-shopped with all district and local municipalities for formal adoption. The local municipalities may then adapt or add to these to suit local conditions. By-laws must be formally promulgated in each local municipality in order to have a legally binding control mechanism for waste management issues. Draft GWMP 26 Rev 1 / Nov 09

30 5.6 Priority Five Improved Financial Management for Waste Services Table 5-5: Priority Five - Improved Financial Management for Waste Service Strategic Priorities Improved Financial manageme nt of Waste Services Objectives Target Indicator Actions Institutional capacity building for waste management financing Improved waste budgeting process Prepare guidelines by 2011 All LAs to consider requirements of PIWMP in IDP budgeting processes Guideline prepared or not Percentage of LAs considering PIWMP requirements Prepare guidelines on technical items to be considered in preparing of waste management budgets All LAs to consider requirements of PIWMP in IDP budgeting processes Respon sibility DEDEA LAs Priority Implementation Timeframe Budget Mediu m Mediu m X R100k (?? DEDEA costs to do internally) LAs to define Draft GWMP 27 Rev 1/ Nov 09

31 5.6.1 Priority Five Notes Financial Planning for Waste Management Many municipalities have identified the lack of funding for waste management services as the key issue for them. For many years waste has not been seen as a priority thus budget allocations to waste management was significantly less compared to other services. The manner in which municipal budgets are planned and allocated needs to be reviewed. From a financial perspective, implementation of full cost accounting services for all municipalities should be provided such that they can account for all costs and expenditures for waste operations and maintenance. This should cover collection, transportation, landfill, street cleansing, fee collection, debt payment and depreciation at a minimum. Technical interventions should be aimed at moving away from considering waste as solely a disposal issue but to viewing it as having income generation potential at a municipal, community and household level. This can be done in numerous ways. At a household level, monetary savings can be realized by producing less waste and recycling if the solid waste tariff is driven by the quantity household waste produced. Recycling at a household level can also be encouraged by providing for the collection of recyclables from the household. On a community level, local community contractors should be encouraged to sort the waste at transfer stations, before it reaches the landfill, and then selling the waste to companies that will use them. Composting, on a community and household level, should be carried out especially in areas where waste collection is difficult due to geographical location. Most often the municipalities are not using waste quantity projections for future scenario planning. Information regarding types and quantities of waste generated, as well as the required infrastructure, will need to be generated so to sufficiently determine the costs for waste services. The cost of a waste management strategy should also form part of this costing. There seems to be no conformity when it comes to budget arrangements between local municipalities. Some municipalities receive, for example, a waste budget, while others do not. The majority of local municipalities have not budgeted for the permitting process of landfills or for the closure and rehabilitation of existing unpermitted landfills. Lack of payment of municipal rates is a significant problem for most municipalities. Penalties in the past included the withholding of services. This method however is administratively intensive and time consuming. A more recently suggested option involves the installation of pre-paid systems. These pre-paid systems can be coupon based where the coupons are bought in advance for a specific month. Draft GWMP 28 Rev 1 / Nov 09

32 5.7 Priority Six Improved Information Management and Monitoring Table 5-6: Priority Six - Improved Information and Monitoring Strategic Priorities Improved Information Manageme nt and Monitoring Objectives Target Indicator Actions Establish a provincial WIS Improve records management Establish a provincial WIS using appropriate technology 80% of local authorities to report waste information to DEDEA, on monthly basis, using MWDS by Develop, by end of 2010, an Annual Waste Report (AWR) template. 80% of LAs to report waste information annually to DEDEA, using AWR by DEDEA to develop an appropriate e-filing and document management system by 2010 Provincial WIS established or not Percentage of LAs reporting on monthly basis using MWDS Template developed or not. Percentage of LAs to have submitted report. System defined and implemented Develop a Monthly Waste Data Spreadsheet (MWDS) which LAs use to report on waste monthly. Local authorities to report waste information to DEDEA, on monthly basis, using MWDS Develop an Annual Waste Report (AWR) template which LAs are to use to report waste annually. To be aligned with MWDS and to consider IWMP template and success of IWMP implementation. LAs to report waste information annually to DEDEA, using AWR. Develop and maintain appropriate document and e- filing system. To consider WIS. Respo nsibility DEDE A LAs DEDE A LAs DEDE A Priority Implementation Timeframe Budget Very high Very high Very high Very high X X X X R20k (?? DEDEA costs to do internally) LAs to determine R20k (?? DEDEA costs to do internally) LAs to determine High X R100k Draft GWMP 29 Rev 1 / Nov 09

33 Strategic Priorities Objectives Target Indicator Actions Respo nsibility Priority Implementation Timeframe Budget Implement and maintain a document and e-filing system DEDE A High Dependant on nature of system 6.7 DEDEA to hold e-copies of all latest IWMPs for the province. Percentage of existing IWMPs in possession Identify and source required IWMPs DEDE A Mediu m X Use existing resources 6.8 PIWMP monitoring PIWMP reviewed annually and report submitted to MEC Report submitted to MEC or not Undertake annual review of implementation of this PIWMP. Annual Provincial IWMP Implementation Performance Report to be submitted to MEC for approval (as per NEMWA) DEDE A Very high Use existing resources?? Draft GWMP 30 Rev 1 / Nov 09

34 5.7.1 Priority Six Notes Establishing Waste Information System The Eastern Cape Province has been identified as one of the provinces where the National Waste Information System was rolled out. Since the pilot study the webbased waste information system has allowed all waste generators and recyclers registered on the system, to input waste data where it is used to generate reports and also to allow for a central point of data capturing. This system is unfortunately not effectively used as waste information recording is either non existent or taking place at a minimal level. Local municipalities or whoever is responsible for managing waste disposal facilities should be held accountable for collecting waste disposal information and capture data onto this system. Training of local municipalities officials of input of data into the WIS will need to be undertaken. Data capturing systems will need to be beefed up significantly at local level which may be difficult since majority of landfill sites in the EC are effectively managed and access to landfill sites are not restricted. During the compilation process of these documents the main obstacle was obtaining accurate and current waste data. Limitation of the WIS - It is recognised that in the short-term: the WIS will not be a tracking system of waste from the point of generation to final disposal, the level of confidence attached to the data may be low, but will improve over time as data are verified and capacity built in government to accurately verify information provided by local authorities and industry. Draft GWMP 31 Rev 1 / Nov 09

35 6 CONCLUSION AND RECOMMENDATIONS The PIWMP describes the priorities and objectives needed to improve overall waste management in the Eastern Cape Province. The plan takes into account the fact that waste management practices vary widely across the province. With the newly promulgated NEMWA in place, the province will have to shift from being a collect, transport and dispose system to being an integrated waste management system that places more emphasis on cleaner production, recycling, reuse, better waste treatment and sound landfill management practices. Draft GWMP 32 Rev 1 / Nov 09

36 7 REFERENCES DEAT, National Waste Management Strategy. Version D, 15 October DEAT, Programme for Implementation of the National Waste Management Strategy. Department of Environmental Affairs and Tourism, Guideline Document for Waste Collection in High Density Unserviced Areas, May DEAT, Assessment of the Status of Waste Service Delivery and Capacity at the Local Government Level. AUGUST 2007, DRAFT 3. Department of Environmental Affairs and Tourism: General Waste Management Directorate and Palmer Development Group. DEAT, 2008 (25 Nov). The Capacity Audit and Needs Analysis Survey for Environmental Impact Administrators. Department of Enviromental Affairs and Tourism. Undertaken by Regenesys. DEAT, 2009a. National Domestic Waste Collection Standards. Addressing Challenges within Waste Service Provision in South Africa. First draft, June DEAT, 2009b. National Policy on Free basic Refuse Removal. Addressing Challenges within Waste Service Provision in South Africa. Final draft, August Draft GWMP 33 Rev 1 / Nov 09

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