NATIONAL WASTE MANAGEMENT STRATEGIES AND ACTION PLANS SOUTH AFRICA

Action Plan Development PHASE

EXECUTIVE SUMMARY *

TABLE OF CONTENTS *

LIST OF TERMS, ABBREVIATIONS AND DEFINITIONS *

1. Background *

2. Analysis *

3. Logical Framework Analysis *

4 Implementation *

Annexures *

The implementation of an Integrated Waste Management (IWM) Planning system, to optimise waste management by maximising efficiency and minimising the associated environmental impacts and financial costs of waste, was identified as a high priority short term initiative in the draft National Waste Management Strategy Version ‘b’ (December 1998). This Action Plan was developed to prepare for the implementation of this initiative, the integrated waste management planning initiative, by defining targets, activities, tasks, responsibilities, timing, control procedures and the results/outputs expected.

A number of external factors are identified as critical to the successful implementation of this Action Plan. These include acceptance of the NWMS by government and other stakeholders, allocation of adequate human and financial resources and successful implementation of other Action Plans (Implementing Instruments, Capacity Building, and Waste Information System) developed as part of the NWMS project.

Up to the present, waste management was not regarded to be a priority issue in South Africa. The waste management that did take place focussed mainly on waste disposal and was reactive, in that it generally addressed pressing urgent needs on an ad hoc basis. Holistic, integrated waste management planning was rarely, if ever, undertaken. The low priority accorded waste management has resulted in waste impacting detrimentally on the South African environment and human health.

Section 24 of the Constitution of the Republic of South Africa (Act 108 of 1996) states that the people of South Africa have a right to an environment that is not detrimental to human health, and imposes a duty on the state to promulgate legislation and to implement policies to ensure that this right is upheld. To date, a number of steps have been taken, to uphold this environmental right, including the publication of the Environmental Management Policy for South Africa, the publication of the Draft White Paper on Integrated Pollution and Waste Management (IP&WM), the promulgation of the National Water Act and National Environmental Management Act, and the development of a National Waste Management Strategy.

The project for the development of a National Waste Management Strategy (NWMS) for South Africa was initiated during 1997 by the Department of Water Affairs and Forestry (DWAF) and the Department of Environmental Affairs and Tourism (DEAT), with financial support from the Danish Co-operation for Environment and Development (Danced). The overall objective of the NWMS is to reduce the generation and environmental impact of all forms of waste, to ensure that the health of the people and that the quality of the environmental resources are no longer affected by uncontrolled and uncoordinated waste management. In line with the IP&WM approach, the NWMS addresses all elements in the waste management hierarchy.

The NWMS project comprises four phases:

Phase I, the Inception Phase, during which detailed planning for the project was undertaken, in consultation with stakeholders, was completed in December 1997.

Phase II, the Situation/Baseline Analysis Phase, was completed in May 1998. During this phase, waste issues, problems and needs were identified, and the findings synthesised into an integrated situation/baseline analysis, which was workshopped with stakeholders to identify the waste management needs and issues to be addressed in the strategy formulation phase.

Phase III, the Strategy Formulation Phase, commenced immediately after completion of the Situation/Baseline Analysis Phase, with a debate with government and stakeholders on the key issues identified during that phase, and the development of a broad range of strategic options and scenarios. The Draft NWMS, Version ‘a’ document was compiled based on these inputs and direction from the Project Steering Committee (PSC), and workshopped with stakeholders in November 1998. At the request of workshop attendees and the PSC, the Draft NWMS, the Version ‘b’ document was compiled, and issued for stakeholder comment over the period mid-December 1998 to mid-February 1999. Input received has been compiled in a Stakeholder Analysis Report, and will be incorporated in the final draft NWMS that will be considered and ratified by government.

Phase IV, Action Plan Development Phase. The process of developing Action Plans to implement the priority strategic initiatives identified in the draft NWMS commenced in early 1999. In order to develop a practically implementable strategy the priority initiatives have been categorised into short (by the year 2004), medium (by the year 2008) and long-term (by the year 2012) priorities. Stakeholders have for the most part accepted a number of initiatives that require urgent attention. Of these initiatives, implementation of integrated waste management planning, provision of general waste collection services to previously unserviced areas and the development and implementation of the Waste Information System were identified as high priority. Draft Action Plans have therefore been developed for Integrated Waste Management Planning, General Waste Collection, and the Waste Information System, as well as a project plan for the implementing instruments for each initiative. During the development of each draft Action Plan, due cognisance was taken of all stakeholder comments compiled in the Analysis Report.

Action Plans, Set I are those Action Plans for implementation of the short-term high priority strategic initiatives for namely, Integrated Waste Management Planning, the Waste Information System, General Waste Collection, and their respective Implementing Instruments, which were developed between January and April 1999. Action Plans, Set II are tose Action Plans for the remaining elements of integrated waste management, namely Waste Minimisation, Recycling, Hazardous Waste Collection, Treatment, Waste Disposal and Capacity Building, which will be developed over the period May to September 1999.

A number of the waste issues and problems identified during the Situation/Baseline Analysis Phase were ascribed to inadequate waste management planning, and priority strategic initiatives were therefore developed to regulate and implement integrated waste management planning. The purpose of this Action Plan is to prepare for the implementation of an Integrated Waste Management Planning system in South Africa by defining targets, activities, tasks, responsibilities, timing, control procedures and the results/outputs expected.

This Action Plan on Integrated Waste Management Planning represents a first generation plan aimed at addressing the key issues, needs and problems currently experienced with waste management planning in South Africa. This document represents the optimum approach to the implementation of integrated waste management planning in terms of resource allocation, time schedule and responsibilities. Resource constraints may limit the full implementation of the Action Plan according to the proposed time schedule, thus continual monitoring and adaptation of the Action Plan to meet the practical realities will be required. As increased resources become available, additional initiatives can be implemented.

Development of this Action Plan commenced with a review of the status quo of waste management planning in South Africa, and of the current relevant policies and strategies. The NWMS, and specifically the short-term priority initiatives for Integrated Waste Management Planning, formed the basis for the development of this Action Plan.

The Logical Framework Analysis (LFA) approach was used to develop the Action Plans. This entailed an analysis of the problems, the stakeholders and the risks to the successful implementation of the Action Plan. This analysis was followed by an LFA, in which project objectives, outputs, activities required to achieve the outputs, inputs, assumptions (external factors) and means of verification were determined and described. Finally, the functions, roles and responsibilities of implementers and procedures for evaluating, reviewing and reporting on implementation of this Action Plan were described.

The implementers of this action plan should familiarise themselves with the National Waste Management Strategy Documents. The most important information for further development and implementation of the Action Plan for Integrated Waste Management Planning is contained in the following documents:

• Stakeholder Analysis Report, 10 March 1999, draft report PMG 112.
• National Waste Management Strategy, Vol. 1 and 2, 17 December 1998, draft report version B, PMG 98 and 99.
• Strategic Options Discussion Document, Synthesis Report, 3 August 1998, PMG 69, including Annexure A – Non Hazardous Waste, PMG 70 and Annexure B – Hazardous and Related Waste, PMG 71.
• Situation/Baseline Analysis Report, Synthesis Report, 30 March 1998, PMG 26.
• Situation/Baseline Analysis Report, Annexure A – Non Hazardous Waste, 27 March 1998, PMG 27 and Annexure B – Hazardous and Related Waste, 27 March 1998, PMG 28.

Traditionally, waste management was undertaken on an ad hoc basis to meet immediate needs. Prior to the development of DWAF’s "Minimum Requirements for Waste Disposal by Landfill", the siting of landfills was generally haphazard, without adequate planning and design; the management and operation was, and still is in some cases, poor; and the control of waste types disposed at the landfills was inadequate. A number of waste disposal sites were located on previously undeveloped land, without any consideration for the possible expansion of nearby communities. This resulted from a lack of integrated planning and inadequate enforcement of proper buffer zones.

Local authorities had neither sufficient funding, nor adequately trained staff, to effectively plan and execute their waste management functions. Communities were not involved in the siting of waste disposal sites, and consequently resisted their development. The level of services varied between different areas and many people, particularly the previously disadvantaged, were left without proper waste management services.

Waste management planning within local authorities was primarily focussed on waste disposal. Some regional authorities initiated waste management planning projects for the location of transfer stations and landfill sites, as well as the establishment of regional landfill sites, which could be shared by different local authorities, which reduce the costs of developing new landfill sites. However, this type of waste management planning was, and still is, not commonly practised.

The lack of capacity within all tiers of government, due to insufficient funding, as well as the low priority previously accorded to waste management were the main factors contributing to inadequate waste management planning. However, the development of the DWAF Minimum Requirements documents promoted a change within the waste management sector. Planning of landfill sites, proper site location, buffer zones, public participation and proper operating procedures led to an improvement in the disposal component of waste management.

Further change was initiated by the development of policy documents such as the Environmental Management Policy and the draft White Paper on IP&WM. These documents introduced concepts such as ‘cradle-to-grave’ management and the waste management hierarchy, and placed an emphasis on waste minimisation.

The development of the National Waste Management Strategy was developed from the IP&WM policy and further emphasised planning as a critical element of environmentally sound integrated waste management.

Annual reporting of waste generation in South Africa is currently not undertaken, although it is a legal requirement. Several isolated attempts to quantify waste generation in South Africa have been carried out by DEAT and DWAF.

A survey to identify the total waste stream was commissioned by DEAT during 1992 estimated that 460 million tonnes of waste are generated per year. A follow up study commissioned by DWAF as part of the baseline study for the NWMS estimated the total production of waste in 1996 to be 566 million tonnes per year, with the majority of waste, 464 million tons (82%), being generated by the mining sector. The total waste generation in South Africa is thus approximately 14.5 tonnes per capita per year.

Waste generated by domestic households and trade is estimated to be between 14 and 15 million tonnes per year, with hazardous waste generation in the order of 2 million tonnes per year. The industrial waste amounts to approximately 22 million tonnes per year. General waste arising from domestic activities, commerce and trade, secondary industrial operations and littering amounts to 12 million tonnes per year. Estimates of per capita generation rates vary considerably between the local authorities, depending on the composition of the waste and the socio-economic status of the community. The average domestic and trade waste production per capita per year in South Africa is 0.36 tonnes.

Solid waste from the mining industry is mainly disposed of on tailings dams and mine dumps. General waste is disposed of at general waste landfills and hazardous waste is disposed of in hazardous waste landfills, which are operated as co-disposal sites. Industrial non-hazardous waste is disposed of together with domestic waste on general waste landfills. However, there is a lack of hazardous waste landfills within South Africa and large quantities of potentially hazardous industrial waste are believed to be disposed of illegally at general waste landfills. Illegally dumped industrial waste is frequently observed on undeveloped land, particularly near industrial areas.

In South Africa, most waste is disposed of by landfilling in both environmentally acceptable and unsafe landfill sites. A study identified about 540 landfill sites in South Africa, of which to date 61% have been permitted in terms of section 20(1) of the Environment Conservation Act (Act 73 of 1989). However, it is estimated that there could be up to 15 000 landfills in South Africa, including communal sites.

Free State, Gauteng, KwaZulu-Natal and Mpumalanga Province each appear to have in excess of five years of combined environmentally acceptable landfill airspace available for general waste, while the remaining provinces have less than five years environmentally acceptable airspace. The hazardous waste landfill airspace situation is critical in most provinces. In Gauteng, there is approximately 22 years of hazardous waste airspace available, but this is available at a single commercially operated landfill site, which is not ideally located for some of the waste.

Incineration of municipal waste does not take place on a large scale, but there are large operating medical waste incinerators, and a number of small sub-standard general waste incinerators, located mainly in small towns. The construction, siting and use of these incinerators were undertaken to address an urgent need but without due regard to integrated planning.

Local government has traditionally been responsible for the management (collection and disposal) of urban domestic and commercial waste, and industry has been responsible for its own waste. Most general waste landfill sites were established, developed and operated by local authorities, while hazardous waste landfill sites were generally established and operated by private companies, although in some cases, provision was made for co-disposal of hazardous waste at regional landfills. DWAF is currently responsible for issuing permits for landfill sites and enforcing compliance therewith.

Recycling initiatives in South Africa are currently restricted to a number of commercially viable projects that are not supported or regulated by legislation. Private recycling companies and individuals currently initiate and drive recycling projects. Recycling of materials and waste falls within the mandate of DEAT.

There are currently deficiencies and a lack of integration in the allocation of functions and responsibilities for integrated waste management.

The Consultative National Environmental Policy Process (CONNEPP) resulted in the development of the Environmental Management Policy for South Africa and the promulgation of the National Environmental Management Act (NEMA) (Act 107 of 1998). This Act provides for co-operative environmental governance by establishing principles and procedures for decision making on matters affecting the environment. An important function of NEMA is to serve as an enabling Act for the promulgation of legislation to effectively address integrated environmental (including waste) management.

Whereas the Environmental Management Policy delineates government’s broad policy on environmental management, the Draft White Paper on Integrated Pollution and Waste Management (IP&WM) for South Africa, which details government's policy on pollution and waste management and has formed the point of departure and framework for the NWMS.

The over-arching goal of the IP&WM policy is to move from a previously fragmented situation of uncoordinated waste management to that of integrated waste management. The Draft White Paper on Integrated Pollution and Waste Management for South Africa defines government’s approach to the management of waste (i.e. an holistic and integrated management approach extending over the entire waste cycle from ‘cradle to grave’ including the generation, storage, collection, transportation, treatment and final disposal of waste).

The IP&WM policy represents a paradigm shift in South Africa’s approach to waste management. Integration and planning are recognised prerequisites for integrated pollution and waste management in the IP&WM policy. Historically, pollution control focused primarily on impact management and remediation of pollution (with the exception of water quality management, where the historical end of pipe control approach was replaced with a hierarchical approach, commencing with pollution prevention, as far back as 1992). However, to ensure sustainable development, the focus has moved to pollution prevention.

The National Waste Management Strategy process was undertaken to ensure that the IP&WM policy is translated into practice. Central to the development of the strategy for integrated waste management has been:

• The pollution avoidance/prevention and waste minimisation approach that focuses on the source of waste and moves away from "end-of-pipe" solutions.
• The need to extend an acceptable level of waste collection, waste transportation, treatment and disposal services to all communities and provide waste management services for the country as a whole.

The NWMS strategy follows the waste hierarchy approach (see Figure 1.1), which is internationally accepted as a rigorous approach to integrated waste management.

NEMA (Chapter 3) requires environmental implementation and management plans to be submitted to the Committee for Environmental Co-ordination (CEC) by National government departments (including DEAT, DME, DWAF, and the Departments of Agriculture, Trade and Industry and Health) and the provincial environmental departments. These plans must describe all activities that may impact on the environment, and state how such impacts will be addressed, managed and minimised. The environmental management plans must contain the following:

• A description of the functions exercised by the relevant department in respect of the environment.
• A description of the norms and standards set and applied by the department.
• A description of the policies, plans and programmes of the relevant department that are designed to ensure compliance with its policies by other organs of state and individuals.
• A description of the extent of compliance with the relevant department’s policies by other organs of state.
• A description of arrangements for co-operation with other national departments and spheres of government, including existing or proposed memoranda of understanding entered into, or delegation or assignment of powers to other organs of state, with bearing on environmental management.
• Proposals for the promotion of objectives and plans for the implementation of the procedures and regulations referred to in Chapter 5 of NEMA.

It is envisaged that the first generation integrated hazardous waste management plans will be developed by the provinces as a component of these environmental plans, and that the first generation integrated general waste management plans, submitted by local authorities, and the integrated waste management plans submitted by certain, defined industries (see Section 1.3 below) will be incorporated in the provincial environmental plans, in a summarised form.

The primary objective of Integrated Waste Management (IWM) Planning is to integrate and optimise waste management in order to maximise efficiency and minimise the associated environmental impacts and financial costs of waste and to improve the quality of life of all South Africans. The integration must be both horizontal and vertical within the government departments, in all sectors and throughout the ‘waste life-cycle’. The integrated waste management planning process incorporates all the major stages of the environmental planning process, namely a review of the existing baseline situation and legal environment, projections of future requirements; setting objectives; identifying system components; identifying and evaluating alternative methods/approaches for meeting requirements; and developing and implementing an integrated waste management plan. It is important that any plan, once implemented, is evaluated and reviewed to ensure that the respective objectives are being met.

In order to improve integrated waste management planning within South Africa, the NWMS identified a number of priority initiatives. The priority initiatives of the NWMS for implementing IWM Planning in South Africa are detailed below:

• DEAT will draft and promulgate regulations and guideline documents for integrated waste management planning for all waste types, and will develop and implement capacity building plans and public awareness campaigns in conjunction with provincial environmental departments. In addition, DEAT will undertake/commission investigations into appropriate technologies for management of hazardous waste.

• The provincial environmental departments will develop first generation integrated hazardous waste management plans for submission to the CEC to facilitate inter-provincial co-ordination, particularly in relation to planning for facilities for treatment and disposal of waste. These plans will also include a summarised report of the local government first generation general waste management plans.

• Local Government will develop and submit plans for integrated general waste management to the respective provincial environmental departments.

• Waste management plans for industrial waste (including mining and power generation waste) that is disposed of at private and/or dedicated disposal facilities, will be prepared by the developers/owners and submitted to the respective provincial environmental departments.

In the Draft NWMS, Version ‘b’, short-term was defined as the period 1999 to 2002, medium-term as 2003 to 2006 and long-term as 2007 to 2010. However, during Action Plan development it became clear that the implementation of the short-term Action Plans could not begin before July 1999, and there was uncertainty as to whether sufficient budgetary provision has been made for implementation in the 1999/2000 budgets. It was therefore decided that, based on practical realities and suggestions by stakeholders, the short-term Action Plans would cover a more extended period from July 1999 to December 2004.

Many of the waste-related problems, which the NWMS seeks to address, are a direct or indirect result of inadequate integrated waste management planning. Without proper planning, it is unlikely that sustainable integrated waste management will be achieved in South Africa. IWM planning, addressing all levels of the waste management hierarchy, places a greater emphasis on waste prevention and minimisation than in the past, and will assist in achieving optimal utilisation of available resources. Once the IWM plans, developed by local government, the provincial environmental departments and industries, have been implemented, the quality of life for all South Africans, and particularly the previously disadvantaged communities, should improve due to the reduced negative environmental and health impacts from waste.

Current legislation does not allocate clear responsibility for waste management planning to the different tiers of government. Waste management planning for both the short and long-term has been inadequate or absent at national and provincial government level.

Although some planning has been carried out by local government, regarding waste collection, transfer stations as well as waste disposal sites, this planning did not focus on integrated waste management and the waste management hierarchy. Planning was not co-ordinated with other tiers of government, nor was it consistent between different local authorities. In some instances neighbouring local governments were reluctant to co-operate in a regional context. In most instances, the waste management planning that was undertaken was not transparent and plans were prepared by local government, without stakeholder participation. Planning of treatment and disposal capacity has been inadequate, resulting in critical landfill airspace situations, especially with regard to hazardous waste landfills and environmentally acceptable general waste landfills. Although local government is required to prepare structure (land-use) plans; these plans do not address waste management planning.

Limited financial and human resources are major constraints in all tiers of government. Although redeployment of existing staff, reallocation of budgets and more efficient use of existing resources may be adequate to implement IWM planning, additional resources will have to be secured for this purpose in many instances.

Where certain functions and responsibilities are reallocated from one national department to another department and/or tier of government, the financial and human resources formerly used in fulfilling those responsibilities may not be similarly reallocated, thus severely constraining the newly-responsible department’s ability to carry out those functions effectively.

In addition, there is reluctance in the provincial environmental departments to accept the responsibility for IWM Planning and other waste management functions, due to the lack of resources and capacity, as well as time constraints for implementation.

Participation by a number of non-governmental stakeholder sectors, in addition to the three tiers of government and industry (Section 1.3), have been identified as crucial to the successful implementation of the IWM planning Action Plan. These stakeholders include:

• The Waste Management Industry (including the Institute for Waste Management, waste service providers and landfill operators), that will be consulted for input on the development of integrated waste management options and plans.
• Waste generators, who will provide information to the Waste Information System that will be used in the development of IWM plans.
• Community-based organisations (CBOs), which should mobilise assistance and support from communities to give input on the development of integrated waste management planning and also assist with the implementation of public awareness campaigns.
• Non-governmental organisations (NGOs), which should give input on the development of integrated waste management options and plans and assist with the implementation of public awareness campaigns.

• South African Local Governments Association (SALGA), which should be consulted on the development of integrated waste management plans and assist with the assessment of resource deficiencies within local government, as well as the implementation of public awareness campaigns and capacity building programmes.
• Members of the public with an interest in the area covered by the IWM plans will be afforded an opportunity to participate in the planning process, and provide comment and input.

Successful implementation of this Action Plan depends on a number of factors, which are outside the control of the implementer and that constitute risks for the project. Risk factors relevant to implementation of this Action Plan include the following:

• The high priority accorded to waste management issues by the Government and other stakeholders may not be reflected in the financial and other resources allocated to waste management.
• The National Environmental Management Act (NEMA) may have to be amended to include the integrated waste management plans within the holistic environmental implementation and management plans, which will be compiled.
• Government and other stakeholders may not accept in full, or even in a revised form, the NWMS, including the prioritisation of initiatives upon which this Action Plan is based.
• Industries may lack capacity and therefore be unable to draft integrated waste management plans within the proposed time frames.
• Responsibilities and duties assigned to stakeholders in terms of this Action Plan may not be acceptable to the stakeholders.
• The institutional/organisational structures required ensuring the timeous and effective implementation of the Action Plan may not be agreed upon.
• Due to constrained budgets and changing priorities, DEAT, DWAF, the Provinces and local authorities may not be able to allocate the necessary resources (financial and qualified personnel) required to implement the integrated waste management planning system. Non-acceptance of the proposed waste management functions or the lack of commitment by any of the provincial authorities, will have a direct effect on the planning process in delaying the delivery of regional hazardous and general waste management plans.
• A lack of commitment to the public participation process by all tiers of government, as well as stakeholders.
• Lack of capacity (expertise) in all or certain tiers of government. If the provincial environmental departments accept the proposed allocated functions, capacity within existing and new personnel will have to be developed.
• Capacity building programs, necessary to develop personnel are not completed timeously.
• Awareness of waste management issues in civil society may not be timeously promoted, with the result that civil society cannot participate effectively in IWM planning.
• Key stakeholders may not co-operate during the various stages of the planning process.

A Task Team was established to develop the short-term priority Action Plan for integrated waste management planning. The task team consisted of representatives from DEAT and DWAF, South African and Danish Consultants.

Following an analysis of the problems, stakeholders and risks, a Logical Framework Analysis (LFA) matrix was prepared. The LFA matrix contains an outline of the logical steps, which, if the assumptions are realised, are necessary to achieve the Action Plan objectives. The LFA matrix therefore constitutes a summary of the objectives, outputs/deliverables, activities necessary to produce the outputs, inputs required, assumptions or external factors and monitoring and verification. The LFA matrix for this Action Plan is attached as Annexure A. The elements of the matrix are described in greater detail below.

The development objective of the NWMS is the reduced generation and environmental impact of all forms of waste, so that the socio-economic development of South Africa, the health of its people and the quality of its environmental resources are no longer adversely affected by uncontrolled and uncoordinated waste management.

The long-term objective is that all future waste management in South Africa will be carried out in accordance with approved integrated waste management plans by the year 2012.

The immediate objectives, to be achieved within the period of July 1999 to December 2004 are described in Section 1.3 and summarised as follows:

The outputs/deliverables that will facilitate successful implementation of this Action Plan, assuming that all the critical assumptions are realised, are:

1. Regulations (or other appropriate legal instruments) to enforce co-ordinated, integrated waste management planning to be developed by DEAT by December 2001.
2. Guidelines for preparing integrated waste management plans for general, hazardous and industrial (including mining and power generation) waste to be developed by DEAT by December 2001.
3. Awareness campaigns for integrated waste management planning to be initiated by DEAT together with the provincial environmental departments and implemented by local government for general waste, and the provincial environmental departments for hazardous and industrial waste. Development of the awareness campaigns will commence in 1999, and implementation will take place during the period January 2002 to December 2004.
4. Each provincial environmental department will submit a first generation integrated hazardous waste management plan, formulated in accordance with the Guidelines, to national government (i.e. the CEC) during the year 2004.
5. Each local authority will submit a first generation integrated general waste management plan, formulated in accordance with the Guidelines, to the relevant provincial environmental department during the year 2004.
6. Time schedules for the submission of integrated management plans for industrial waste (including mining and power generation waste), which is currently disposed of at private and/or dedicated facilities, will be agreed upon and documented by national government (DEAT, DME and other relevant departments) and industry sectoral representatives between July and December 1999.
7. Integrated industrial waste management plans will be submitted by the owner/developer to the provincial environmental departments for review by December 2004.

In order to ensure effective implementation of this Action Plan, ongoing liaison and information transfer between national, provincial and local government is essential.

A number of activities have been identified for each output, which must take place in order to produce the eight outputs/deliverables of this Action Plan, which are described below.

• An integrated waste management planning Regulations Working Group (RWG) will be established within DEAT. The RWG should comprise persons with expertise of IWM planning and waste management issues. The RWG will functions as part of and give input to the existing Law Reform Process
• DEAT, in consultation with the Law Reform Process committee will compile the Terms of Reference for the RWG and the Project Plan for drafting of the Regulations.
• Prior to drafting regulations for IWM planning, a review of existing local, provincial and national legislation relating to integrated waste management planning, including land use planning will be undertaken. This review will ensure that the IWM planning regulations do not duplicate or conflict with current legislation or regulations. The review will be undertaken as part of the ongoing Pollution and Waste Law Reform Process (P&WLRP). Should the P&WLRP not be able to undertake this review within the prescribed timeframes, the RWG will undertake the review itself, or have the review undertaken on its behalf. It is assumed that the existing environmental legislative framework (NEMA) is adequate for drafting of the planning regulations. The results of the legal review will be compiled in a review report, which will be submitted to all tiers of government (Mintech Workgroup 3 and the CEC) and stakeholders for consideration and approval.
• DEAT will draft Regulations on integrated waste management planning, in consultation with the Law Reform Process committee and other relevant government departments. The regulations must include:

• The allocation of responsibilities and the establishment of effective structures according to NEMA/ECA.
• Procedures to be followed in the planning process (close consultation with the drafters of the IWM Planning Guidelines will be required).
• Time frames for the development of integrated waste management plans.
• The required public participation.

• In addition to review and consideration by the different tiers of government (CEC) and stakeholder groups, the draft Regulations will be published for public comment.

• After public comment has been received and accorded attention, the draft Regulations will be finalised and promulgated.

• An integrated waste management planning Guidelines Working Group (GWG) will be established, comprising persons with expertise in IWM planning and waste management issues. This working group will report to a Mintech Workgroup 3 and the CEC.
• DEAT, in consultation with the different tiers of government (the CEC and the Mintech Workgroup 3) and stakeholders (including the industrial, mining and power generation sectors) will compile the Terms of Reference for the GWG and a Project Plan for drafting of the Guidelines.
• DEAT will undertake a review of existing South African, as well as relevant overseas guidelines/procedures relating to integrated waste management and environmental management planning. The review findings will be compiled in a reference document, which will be submitted to the different tiers of government (CEC) and stakeholders for consideration and approval.
• DEAT will prepare draft integrated waste planning guidelines, using the reference document as a basis. The guideline document will clearly explain why integrated waste management is important, what an integrated waste management plan should contain, and the steps required to prepare an integrated waste management plan.
• In addition to review and comment by the different tiers of government (CEC) and stakeholders the draft guidelines will be published for public comment.
• After the comments have been received and given due attention, the draft guidelines will be finalised, published and distributed to national, provincial, and local government, as well as pre-defined industries.

Aspects that will be addressed in the guidelines include:

• The design of procedures in accordance with existing environmental legislation (NEMA), which should be followed for the public consultation and review processes (PCRP), to ensure a participatory and transparent process.
• The confirmation of Environmental Guiding Principles as found in NEMA and the setting of objectives.
• Analysis of the existing situation (status quo) addressing:

• Types and quantities of waste and future projections.
• Waste collection frequencies, methods, and levels of service and type of equipment in the various areas (including fully serviced, poorly serviced and unserviced areas).
• Available/existing facilities for waste recycling, composting, treatment and disposal.
• Collection fees, payment methods and levels of payment.

• Current status of treatment and/or disposal facilities, with regard to compliance with legal requirements and projected life span.

• The identification of future needs and critical deficiencies, following a review.
• The identification of opportunities for regionalisation.
• The identification of job creation opportunities.
• The identification of components within the waste management hierarchy and methods which are potentially suitable for use in planning.
• Development, integration and implementation of integrated waste management according to the waste hierarchy.
• The development of integrated waste management strategies.
• Evaluation and comparison of selected alternatives based on technical, environmental, social and economic criteria.
• An IWM plan framework, to be used by provincial, local government and industries as a basis for development of IWM plans.

• DEAT, with assistance from the other spheres of government, will ensure that current initiatives continue and develop additional material for awareness campaigns for integrated waste management planning. While developing this material, other environmental initiatives must be taken into account to maximise the output of the awareness campaigns. This material will be distributed to provincial and local government, for implementation.
• Within their respective provinces, the provincial environmental departments will implement awareness campaigns regarding integrated hazardous and industrial waste management planning within their respective provinces.
• Local government will implement awareness campaigns regarding integrated general waste management planning within their areas of jurisdiction.

• The Guidelines document will be distributed to all provinces for use during preparation of the plans.
• The provincial environmental departments will commence the process of drafting first generation integrated hazardous waste management plans in accordance with the Guidelines, within the statutory framework of existing environmental legislation (NEMA), and ensure integration with the general waste plans prepared by local government and other relevant environmental plans.
• Determination of the status quo of hazardous waste generation and management and the preparation of the Situation Analysis and Needs Assessment Report will be done in close liaison with the relevant provincial structures and stakeholders.
• The Provinces will develop integrated hazardous waste management strategies based on the findings in the Situation Analysis and Needs Assessment Report.
• Provincial first generation integrated hazardous waste management plans will be drafted, and issued for comment by the relevant provincial structures (e.g. Mintech Workgroup 3, the CEC , and stakeholders.
• After incorporation of comments received, the provincial first generation integrated hazardous waste management plans will be submitted to the Mintech Workgroup3 and the CEC, for review.
• A review report will then be prepared by the Mintech Workgroup3.

• The Guidelines document will be distributed to all local authorities for use during preparation of the plans.
• Local authorities will commence the process of drafting first generation integrated general waste management plans in accordance with the Guidelines, within the statutory framework of existing environmental legislation (NEMA) and ensure integration of the integrated general waste management plans with the hazardous waste plans and other relevant environmental plans prepared by the provinces.
• Determination of the status quo of general waste generation and management, as well as the preparation of the Situation Analysis and Needs Assessment Report will be done in close liaison with the relevant provincial and local structures and stakeholders.
• The local authorities will develop integrated general waste management strategies, based on the findings in the Situation Analysis and Needs Assessment Report.
• Local integrated first generation general waste management plans will be drafted and issued to the relevant local structures, and stakeholders for comment.
• After incorporation of the comments received, the local first generation integrated general waste management plans will be submitted by the local authorities to the respective local authority structures and the provincial environmental departments for review and approval.
• The provincial environmental departments will take into account the first generation integrated general waste management plans, submitted by the local authorities, in their provincial environmental and waste management plans.

Negotiations will take place between national government (DEAT, DME and other relevant departments) and the relevant industrial organisations at sectoral level (e.g. Chamber of Mines, Eskom, CAIA, etc.) to reach agreement by December 1999 on a timeframe for submission of integrated waste management plans for industrial waste.

• The Guidelines document will be distributed to all affected industries, for use during preparation of the plans.
• The provincial environmental departments will establish communication channels with individual industries to facilitate liaison.
• Each defined industry will draft an integrated waste management plan based on the status quo and specific needs of each individual industry, in accordance with the Guidelines and the waste management hierarchy. The plan should describe and motivate for the proposed technologies for industrial waste management. In drafting the plans industries must ensure the integration of their plans with the general and hazardous integrated waste management plans and other relevant environmental plans.
• Implementation of the waste management hierarchy will be demonstrated.
• The draft IWM plans prepared by industries will be circulated for stakeholder comment where necessary.
• After incorporation of comments received, the integrated industrial waste management plans will be finalised and submitted to the provincial environmental departments for review.
• The provincial environmental departments will incorporate the integrated waste management plans, submitted by industries, in their provincial environmental and waste management plans in summarised form.

Funding for the development of integrated waste planning regulations, guidelines and plans will be obtained from the fiscus for regulations and guidelines. The local authorities must include the costs for integrated waste management planning when calculating service tariffs for waste generators. .

An Action Plan for a Capacity Building programme is currently being developed. This Action Plan will take into account and further refine the identified financial and personnel requirements and skills needed to undertake the Capacity Building activities identified in this Action Plan for Integrated Waste Management Planning.

The total financial and human resource requirements within the three tiers of government identified as necessary for implementing this Action Plan are detailed below. The personnel requirements indicated below are estimates of the total human resources needed to implement the Action Plan, and do not necessarily represent additional staff. No distinction has, however, been drawn between existing and additional staff; if existing staff members do not have the capacity to undertake the activities, additional staff will have to be appointed.

The costs indicated below are estimated totals in 1999 South African Rands, and should not be interpreted as precise budget figures. Cost reductions that may result from the execution of certain activities by existing staff and will be determined in actual budgeting procedures when the Action Plan is implemented. After carefully considering the suggestions made by Workshop participants that the total cost figures be changed, the Project Team has decided that the arguments presented did not justify making the suggested changes.

In the event that the total financial resources indicated below are not available timeously, implementation of this Action Plan will take place within justifiable constraints.

The Department of Environmental Affairs and Tourism (DEAT) will act as the lead agent for drafting the regulations and guidelines and initiate awareness campaigns and a capacity building programme. The regulations will be drafted within the framework of the Law Reform Process. In order to meet the proposed completion date for these activities of December 2001 for these activities, DEAT will require two suitably qualified staff members (with waste planning and environmental law knowledge) from July 1999.

The cost for the drafting of the regulations and guidelines, is estimated to be a total of
0.75 million Rand (2 persons x R150 000 per person per year over 2.5 years). Existing personnel will be responsible for developing the public awareness campaigns, which will include the preparation of suitable information documentation to raise public awareness of integrated waste management planning. The estimated cost is 1 million Rand over the two-year period, 2000 to 2001.

Development of capacity building programmes over a two-year period from July 1999 to June 2001. For provincial and local government planning staff costs are estimated to be 1 million Rand.

The cost for the CEC to review nine provincial first generation hazardous waste management plans between July 2003 and December 2004, is estimated to be
0.225 million Rand (1.5 person years at R150 000 per year).

In order to meet the proposed responsibilities, the Provinces require a total budget allocation of 8.1 million Rand over a three-year period (0.9 million Rand per province). This cost is required for two persons per province per year, which gives a total of
54 person years over three years (2 persons x 9 provinces x 3 years), as well as for office space, administrative tools, and the public consultation processes. The responsible personnel will be tasked with:

• Liasing and guiding industry, as well as local and regional authorities prior to, and during the development of the integrated general waste plans.
• Reviewing draft integrated general waste plans received from local authorities.
• Developing a provincial integrated hazardous waste plan.
• Attending public meetings when necessary during the development of local authority plans.
• Participating on the NEMA structures when necessary.
• Participating in capacity building programs.

A total budget allocation of 9 million Rand for the nine provinces is estimated for implementing capacity building programmes for the provincial environmental departments during the one-year period of July 2001 to June 2002.

In order to maximise public participation, provincial environmental departments will implement public awareness campaigns, using the material developed by the DEAT. The total budget allocation for this function and activity is 1 million Rand per year over a three- year period.

The local authorities in partnership with the provincial environmental departments will implement public awareness campaigns regarding waste management issues, at an estimated total cost of 5 million Rand over a three-year period.

A significant number (maximum 800) of personnel will eventually be required throughout the country at the local authority level, to prepare the first generation integrated general waste management plans. However, if the intended restructuring of local authorities takes place the maximum figure may be reduced to 400. The cost for developing the first generation integrated general waste management plans for approximately 800 local authorities is estimated to be 120 million Rand (an average of R50 000 per local authority per year over 3 years which is equivalent to one person year (R150 000) per local authority.

To capacitate local government personnel to prepare integrated waste management plans and to undertake the necessary public participation process, capacity building and public awareness campaigns will be required. It is estimated that a total budget allocation of 16 million Rand for capacity building will be required for capacity building over an 18 month period (October 2001 to March 2003) and an estimated 5 million Rand for the public awareness campaign over the three year period (January 2002 to December 2004).

Interaction with other components of the National Waste Management Strategy is important, particularly with the Waste Information System (WIS) component. Data from WIS will be used as a basis for development of the integrated waste management plans.

The assumptions that will play a critical role in the successful implementation of an integrated waste management planning system are:

• Adequate financial and human resources available within all tiers of government. The limitation imposed on local authorities, restricting budget increases to 5% per annum, is a significant constraint and will affect all local authorities’ ability to comply with the Action Plan requirements..
• There is full commitment to the public participation process by all tiers of government and all stakeholders.
• Adequate capacity building. It is important that the relevant government departments (DEAT, DWAF, DME and the Departments of Agriculture, Health and Trade and Industry) play an effective role in developing capacity and that the proposed public awareness and capacity building programmes are developed and implemented by DEAT.
• Government treats waste as a priority issue.
• The National Environment Management Act is adequate to serve as enabling legislation.
• Responsibilities and duties are clearly defined prior to Action Plan implementation.
• The regulations developed by DEAT are in line with the planning legislation and relevant planning structures throughout the country.
• The advisory committees and respective project committees or working groups are composed of suitably qualified persons (with integrated planning and waste management experience).

The DEAT will be responsible for monitoring overall progress of the implementation of the Action Plan, and for monitoring progress of activities for which it, and the provincial environmental departments, are responsible. The provincial environmental departments will report on their progress to DEAT, through the Mintech Workgroup 3, and monitor the progress made by the local governments and industries within their area of jurisdiction. The local government and industries will report on their progress to the provincial environmental departments.

Progress will be monitored through the timeous delivery of the outputs. It is important that the progress of the Action Plan is monitored effectively, in order to timeously address problems that may arise during implementation.

Monitoring mechanisms will include the following:

1. Monitoring of Outputs:

Monitoring of outputs will be managed through:

• Gazetted waste management planning regulations.
• Published integrated waste management planning guidelines.
• Increased public awareness, verified by public awareness surveys.
• Submission of first generation hazardous waste management plans by provincial environmental departments to the CEC and Mintech Workgroup 3.
• Submission of first generation general waste management plans by local government to the provincial environmental departments.
• Agreed time schedules for industrial waste management plans documented.
• Submission of waste management plans for industrial waste to the provincial environmental departments by the developers/owners.

1. Monitoring of Activities:

Monitoring of activities will be managed through:

• The Mintech Workgroup 3, the CEC and stakeholder consultation forums, should be fully established and functioning.
• Established functioning communication channels between tiers of government.
• Established review committees in provincial environmental departments.
• Established drafting committees in the DEAT.
• Situation Analysis and Needs Assessment Report for hazardous, general and industrial waste published.
• Participation of stakeholders throughout the process.
• Public awareness campaign material developed and distributed.
• Public awareness campaigns implemented.

1. Monitoring of Objectives:

Monitoring of objectives through:

• Decrease in the number of negative reports issued regarding poor waste management.
• Reduced generation of waste, verified by the waste information system.

The period from January to September 1999 is a transitional phase during which the NWMS project responsibilities move from the Danish and South African consulting teams to the DEAT and DWAF. DEAT will be the environmental lead agent for waste and will assume responsibility for the integrated waste management process.

The transfer of responsibilities requires that specific departmental personnel, referred to as departmental task leaders (DTL), are tasked with overseeing the implementation of the various Action Plans. The DTLs and project management group representatives constitute the Action Plan Implementation Group (APIG) that will assist with the implementation of the NWMS and the Action Plans. The APIG will review, guide and advise on the management of the implementation activities, the process, outputs, time frames, budgets and monitoring. The APIG will also assist with the lateral and vertical integration and co-ordination of the Action Plans, not only between participating DEAT and DWAF staff but also within all levels of government. When the functions of those personnel identified as departmental task leaders change due to reallocation of responsibilities, other appropriate staff will substitute them.

DEAT will be the environmental lead agent for waste and will assume responsibility for the integrated waste management process.

Organisational and financial sustainability is dependent upon the commitment by national government in the allocation of the necessary financial resources as well as the development of capacity and awareness through projects driven by DEAT.

Organisational and financial sustainability in provincial and local government depends on the availability of financial and personnel resources.

To ensure the successful and sustainable implementation of the Action Plan for Integrated Waste Management Planning, full commitment and dedication from the relevant governmental personnel will be required, as well as support from management, both politically and in the allocation of staff members.

The Project Management Group (PMG), comprising DEAT/DWAF and Danced, are currently managing the development of the Strategy and Action Plans. The Action Plan Implementation Group (APIG) has the overall responsibility for finalising implementation of the Action Plans. The implementation of the IWM Planning Action Plan will form part of the Departmental Implementer’s daily functions and future responsibilities.

The APIG will review, evaluate and guide/decide/advise on the management of the implementation activities, the process, the outputs, time frames, budgets and monitoring. The APIG will receive advice from the Mintech Workgroup 3, CEC and NEAF. The Chief Directors of DEAT/DWAF will chair the APIG.

The development of the implementing instruments by DEAT and DWAF will take place during the period January to September 1999, and continue thereafter as and when required. These instruments consist of an Institutional Framework, Legislation, Funding Mechanisms, Partnerships and Public Participation, and Education and Awareness Campaigns.

• Developing regulations and guidelines for the implementation of integrated waste management planning.
• Developing a campaign to promote awareness regarding integrated waste management planning.
• Developing a capacity building programme to capacitate all tiers of government.

• Reviewing and approving the first generation hazardous waste management plans and integrated environmental and waste management plans submitted by the provincial environmental departments.

• Developing first generation hazardous waste management plans.
• Reviewing the first generation general waste management plans submitted by local government.
• Negotiating time schedules for submission of industrial waste management plans with the relevant industry sectoral organisations.
• Reviewing the industrial integrated waste management plans submitted by industry owners/developers.
• Preparing provincial environmental and waste management plans, and incorporating into these plans, in a summarised form, the integrated waste management plans submitted by local governments and industries.
• Implementing public awareness campaigns.
• Implementing capacity building programmes.

• Developing first generation general waste management plans.
• Implementing public awareness campaigns.
• Implementing capacity building programmes.

The Organisational Chart for the implementation of the Integrated Waste Management Planning Action Plan is presented in Annexure C.

After completion of the implementation of this Action Plan for integrated waste management planning in the year 2004, the plan will be evaluated by DEAT, in consultation with the CEC, the provincial environmental departments, local government and other stakeholders through consultative forums. An evaluation report on the achievement of the immediate objectives and delivery of all outputs within the specified timeframes will be prepared by DEAT. The evaluation report will include conclusions and recommendations for the next four-year Action Plan (medium-term), which will be discussed with stakeholders.

Based on the results achieved by the short-term Action Plans, the medium and long-term plans of the NWMS will be reviewed and revised, if necessary. On this basis, DEAT will prepare a new generation of Action Plans in order to achieve the medium and long-term objectives of the National Waste Management Strategy for integrated waste management planning.

The Strategy covers a period of fourteen years until full implementation in the year 2012, and proposes a governmental tiered approach to implementation of integrated waste management planning. Within the period covered by this Action Plan (July 1999 to December 2004), first generation integrated waste management plans for general, hazardous and defined industrial waste will be prepared. Waste management will be undertaken in accordance with these plans from 2005 onwards.

The main activities of the short-term implementation plan for integrated waste management planning are detailed in Annexure B.