NATIONAL WASTE MANAGEMENT STRATEGIES AND ACTION PLANS SOUTH AFRICA

Action Plan Development PHASE

EXECUTIVE SUMMARY *

LIST OF ABBREVIATIONs *

table of contents *

1 BACKGROUND *

2 ANALYSIS *

3 LOGICAL FRAMEWORK ANALYSIS *

4 IMPLEMENTATION *

EXECUTIVE SUMMARY

This document contains the Action Plan for implementation of the short-term priority initiatives relating to waste minimisation and recycling in South Africa. The Action Plan is one of six such Action Plans within the National Waste Management Strategy (NWMS) for South Africa. While cognisance has been taken of the medium-term and long-term objectives, this Action Plan focuses specifically on the short-term objectives (from 1999-2004). In developing the Action Plan, consideration has been given to all stakeholder comments that were received during the development of the NWMS.

The document briefly describes the NWMS process, defines the nature and scope of waste minimisation and recycling, and identifies the role these waste management activities play in meeting the goals set out in the Draft White Paper on Integrated Pollution and Waste Management and the National Environmental Management Policy of South Africa. In addition, a brief review is provided of some of the current activities that are being undertaken with regard to waste minimisation and recycling in South Africa.

The Action Plan was developed using the Logical Framework Analysis methodology. This methodology analyses the nature of the problem, reviews stakeholder involvement, and identifies the key risks that are critical to implementation of the Action Plan. On the basis of this framework analysis, the objectives and key outputs of the Action Plan were defined, and a detailed description is provided of the activities, inputs, assumptions and means of verification that are required for these objectives and outputs to be achieved. Finally, the roles and responsibilities of the affected governmental personnel, and the procedures for evaluating, reviewing and reporting on implementation of the Action Plan are described.

The Action Plan details a set of initiatives that government should adopt to ensure that there is sufficient motivation and capacity amongst waste generators to implement waste minimisation and recycling practices. These initiatives are divided into four key outputs:

• The introduction and enforcement by 2002 of appropriate regulatory instruments to identify and reduce/eliminate priority pollutants and waste streams, and to promote the more widespread adoption of waste minimisation and recycling practices.
• The development and implementation by 2002 of appropriate economic instruments and other financial incentives, based on the results of a study to be undertaken by DEAT with the participation of the Department of Finance and the Department of Trade and Industry.
• The adoption of measures from 1999 onwards aimed at facilitating and co-ordinating the more widespread implementation of existing successful waste minimisation and recycling initiatives. This initiative is to be undertaken by DEAT in close co-operation with the private sector.
• The development and implementation of a programme by 2001 for the dissemination of information regarding the techniques, opportunities and benefits of cleaner production, waste minimisation and recycling. Implementation of this programme will be undertaken by DEAT and/or a Centre for Waste Minimisation and Recycling (subject to the findings of a feasibility study on the need and nature of such a Centre)

The initiatives described in this short-term Action Plan, together with the initiatives that will be identified in the subsequent medium and long-term Action Plans, constitute the formal National Programme for Waste Minimisation and Recycling, which will ensure the implementation of waste minimisation and recycling practices in South Africa. As a longer-term goal, it is envisaged that these initiatives will be integrated with similar initiatives of other governmental departments as part of a broader National Action Plan for Cleaner Production.

Effective implementation of the Action Plan is dependent upon the following assumptions being addressed:

• Securing approval for funding from the national fiscus, and identifying possible alternative feasible and politically acceptable mechanisms for financing.
• Finalising agreement between DEAT, provincial and local government departments on the effective allocation of responsibilities and resources for the management of environmental issues.
• The availability of suitably qualified staff in all levels of government.
• The active participation of the private sector and civil society.

Key to the above assumptions being addressed is the need for visible political commitment and dynamic leadership.

Until recently (1997), waste management was not regarded as a national priority issue in South Africa. The waste management that took place focused mainly on waste disposal and was reactive in that it addressed needs as they occurred. Holistic, integrated waste management planning was rarely, if ever, undertaken. The low priority that was historically accorded to waste management has resulted in waste impacting detrimentally on the South African environment and on 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 in fulfilment of this environmental right, including the publication of the Environmental Management Policy for South Africa (1998), the publication of the Draft White Paper on Integrated Pollution and Waste Management (IP&WM) (Notice 1686 of 1998), the promulgation of the National Water Act (Act 36 of 1998) and the National Environmental Management Act (Act 107 of 1998), and the development of the National Waste Management Strategy (1999) of which this Action Plan is part.

The project for the development of a National Waste Management Strategy (NWMS) for South Africa was initiated during 1997 by the Department of Environmental Affairs and Tourism (DEAT) and the Department of Water Affairs and Forestry (DWAF), 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 and to ensure that the health of the people and 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 (completed in December 1997), involved detailed planning for the project in consultation with stakeholders.

Phase II, the Situation/Baseline Analysis Phase (completed in May 1998) identified waste issues, problems and needs, and synthesised the findings 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 debate of the key issues identified during the preceding phase, and 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 was workshopped with stakeholders in November 1998. At the request of workshop attendees and the PSC, the Draft NWMS, Version B document was compiled, and issued for stakeholder comment over the period mid-December 1998 to mid-February 1999. The input that was received during this period was compiled into a Stakeholder Analysis Report, which was incorporated into the final NWMS (Version C) that was issued on 7 June 1999.

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 practical and implementable strategy, the priority initiatives have been categorised into short, medium and long-term priorities. Stakeholders have in principle accepted a number of initiatives that require urgent attention.

Of these priority 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 (WIS) were identified as high priority. Draft Action Plans were therefore developed between January and April 1999 for Integrated Waste Management Planning, General Waste Collection, and the Waste Information System, in addition to an Interim Project Plan for Implementing Instruments. During the development of each draft Action Plan, due cognisance was taken of all stakeholder comments compiled in the Stakeholder Analysis Report (PMG 112). Action Plans, Set I for implementation of the short-term high priority strategic initiatives for Integrated Waste Management Planning, the Waste Information System, General Waste Collection, and Implementing Instruments were developed between January and April 1999.

Action Plans, Set II for the remaining elements of integrated waste management, namely Waste Minimisation and Recycling, and Waste Treatment and Disposal will be developed over the period May to September 1999. At the same time, the Interim Project Plan on Implementing Instruments has been updated and the Action Plan for Capacity Building has been completed. The purpose of the Action Plans is to assist the relevant spheres of government by detailing the main activities that will have to be undertaken to successfully implement the priority initiatives of the NWMS - the Action Plans are thus procedural in nature.

This Action Plan on Waste Minimisation and Recycling represents a first generation plan aimed at addressing key issues, needs and problems currently experienced with waste minimisation and recycling in South Africa. This document represents the optimum approach to the implementation of the activities of the Action Plan in terms of resource allocation, time schedule and responsibilities. Resource constraints may limit the full implementation of the Action Plan in line with the proposed time schedule, thus continual monitoring and adaptation of the Action Plan to accommodate the practical situation will be required. As increased resources become available, additional initiatives can be implemented.

In the NWMS, Version C, ‘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 the development of the Action Plans, it became clear that the implementation of the short-term Action Plans could not begin before July 1999, and there was also uncertainty whether sufficient budgetary provision had been made for implementation in the 1999/2000 budgets. It was therefore decided that, based on the practical situation and suggestions by stakeholders, the short-term Action Plans would cover a more extended period from July 1999 to December 2004, and the dates contained in this Action Plan were adjusted accordingly. Future medium and long term Action Plans will therefore cover the periods 2005 to 2008 and 2009 to 2012, respectively.

The objective of the Action Plan for Waste Minimisation and Recycling is to translate the NWMS short-term priority initiatives for Waste Minimisation and Recycling into an operational and measurable Action Plan.

For the purposes of the NWMS, waste minimisation comprises any activity that is undertaken to prevent or reduce the volume and/or environmental impact of waste that is generated, treated, stored or disposed of. Waste minimisation refers specifically to activities taken by a waste generator relating to source reduction and/or internal recycling (some examples of activities associated with waste minimisation are provided in Figure 1). Initiatives for the external recycling of post-consumer and post-production material – such as packaging waste, glass and paper – are referred to as waste recycling. Waste recycling includes the separation at source of recyclable materials and the reuse of such materials, and refers to both general and hazardous wastes. The nature of the distinction between waste minimisation and recycling is highlighted in Figure 2.

It is intended in the longer term that the policies and strategies associated with this Action Plan will be integrated with related initiatives of other government departments as part of a broader national strategy for Cleaner Production. The concept of Cleaner Production emphasises the need for greater resource efficiency, including water and energy efficiency, in addition to incorporating measures to reduce at source the quantity and environmental impact of pollutants and wastes emitted to the air, land and water through the whole life cycle of products. Cleaner Production is thus an integrated preventative approach to environmental protection that covers a wider range of issues than those relating only to the management of waste. It is a longer-term target of the NWMS to ensure that the measures that are adopted to promote waste minimisation and recycling will be integrated with similar measures relating to the promotion of cleaner production.

Figure 2 – This diagram emphasises the distinction between "internal recycling" (a technique for waste minimisation) and "external recycling" (the second item on the waste management hierarchy).

The NWMS (Version ‘C’ of 7 June 1999) states the following:

• Waste Minimisation: Following a review and assessment of current waste minimisation initiatives, DEAT, together with the private sector, may develop and implement a National Waste Minimisation Programme. This programme will be integrated with relevant environmental initiatives of other national, provincial and local government departments, and will include the development of guidelines, and the introduction of legislative and economic incentives for waste minimisation. The programme will also include the implementation of one or more demonstration projects.
• Recycling: DEAT will identify and co-ordinate on-going recycling initiatives in South Africa. In consultation with stakeholders, DEAT will investigate the most appropriate way for promoting and implementing waste recycling. Private sector proposals will be solicited.

This Action Plan document integrates the above short-term priority initiatives into a consolidated Action Plan for Waste Minimisation and Recycling. Key to the implementation of this Action Plan is the development of a structured National Programme for Waste Minimisation, which will be expanded to include the Recycling initiatives. This National Programme for Waste Minimisation and Recycling brings together all of the various initiatives in a co-ordinated manner with the aim of ensuring that the generators of waste in both the public and private sectors:

• Have sufficient incentive to adopt waste minimisation practices and to undertake recycling initiatives.
• Have access to information on the benefits of, and techniques for, waste minimisation and recycling.
• Have sufficient capacity to implement waste minimisation and recycling initiatives.

This short-term Action Plan together with the subsequent medium and long-term Action Plans make up the full National Programme for Waste Minimisation and Recycling which is considered necessary to ensure the full incorporation of waste minimisation and recycling practices in South Africa.

Development of this short-term Action Plan commenced with a review of the status quo of waste minimisation and recycling initiatives in South Africa. Key elements of this review are outlined in various Situation Baseline Analysis reports, which were used in developing the NWMS. The short-term priority initiatives for Waste Minimisation and Recycling as outlined in the NWMS, formed the basis for development of this Action Plan.

As with all of the Action Plans for the NWMS, this Action Plan was developed using an approach known as "Logical Framework Analysis" (LFA). This approach entails an analysis of the problems of waste minimisation and recycling, the stakeholders, and the risks to the successful implementation of the plan, and identifies the activities, inputs, assumptions and means of verification to ensure effective achievement of the objectives and outputs. The functions, roles and responsibilities of implementers and the procedures for evaluating, reviewing and reporting on implementation of this Action Plan are also detailed.

To obtain a full understanding of the implications of this Action Plan, implementers of the Action Plan (as well as outside interested parties) should familiarise themselves with the full range of National Waste Management Strategy Documents. The most important information for further development and implementation of the Action Plan for Waste Minimisation and Recycling is contained in the following documents:

• National Waste Management Strategy, Version C, 7 June, 1999, PMG 130.
• Strategic Options Discussion Document, Synthesis Report, 3 August 1998, PMG 69, including Annexure A – Non Hazardous Waste, PMG 70, Annexure B – Hazardous and Related Waste, PMG 71 and Annexure C – Waste Minimisation, PMG 72.
• Situation/Baseline Analysis Report, Synthesis Report, 30 March 1998, PMG 26.
• Situation/Baseline Analysis Report, Annexures A, B and C, 27 March 1998,
  PMG 27, 28 and 29

During the Situation Baseline Analysis Phase of the NWMS, a specific baseline report was developed for Waste Minimisation, while a review of existing recycling initiatives was included in the baseline reports on non-hazardous waste and hazardous and related waste. These reports (Non Hazardous Waste Situation Baseline Analysis PMG 27 Annexure A; Hazardous and Related Wastes Situation Baseline Analysis PMG 28, Annexure B; and Waste Minimisation Situation Baseline Analysis, PMG 29 Annexure C) contain a comprehensive discussion of the status quo of current initiatives relating to waste minimisation and recycling in South Africa. The key information presented in these reports, and updated as far as possible to reflect recent national developments in these fields is as follows:

The Waste Minimisation Situation Baseline Analysis Report identifies a number of important waste minimisation issues that need to be addressed in the strategy phase. In addition to describing some of the existing waste minimisation initiatives that are being undertaken by both government and the private sector, the report also highlights the policy and legislative barriers that need to be overcome to ensure a more widespread adoption of waste minimisation and cleaner production.

The Report acknowledges that in order to deal effectively with the problem of waste, which ends up in landfill sites, it is imperative to implement a programme that will ensure minimal production of waste. Cleaner Production and Waste Minimisation are tools that can be used to reduce the quantities of waste produced by industries, and also lead to conservation of raw materials, since less materials are used. Financial savings will also be achieved from the reduced costs for production, as well as for waste treatment and waste disposal.

Existing legislation and guidelines that support waste minimisation include the Constitution, the Environment Conservation Act (ECA) (Act 73 of 1989) (particularly Section 24), the Water Act (Act 54 of 1956), the National Water Act (NWA) (Act 36 of 1998), the Atmospheric Pollution Prevention Act (APPA) (Act 45 of 1965), the Water Services Act (Act 108 of 1997), and DWAF's Minimum Requirements documents (2^nd Edition 1998). The nature of the relationship between existing legislation and the promotion of waste minimisation is more fully explored in the Baseline Analysis Report, while a more general review of the legal implications of the NWMS are provided in the Implementing Instruments Project Plan (PMG 134).

The existing legislation still needs to be reviewed to effect an integrated approach to waste management (as outlined in the Draft White Paper Pollution and Waste Management for South Africa, Notice 1686 of 1998), which will promote waste avoidance and waste minimisation. Implementation of this policy could require that waste minimisation form part of all waste management plans submitted for approval for both new and existing development projects.

While the Cleaner Production/Waste Minimisation approach is a very recent concept in Environmental Management, there is support for this approach. The following institutions have actively promoted Cleaner Production/Waste Minimisation:

• The Water Research Commission (WRC): through the facilitation of technology transfer and by funding projects such as the establishment of Waste Minimisation Clubs and the development of Waste Minimisation Self-Assessment Guides for the Textile Industry.
• The Industrial Development Corporation (IDC): by developing finance schemes for the implementation of cleaner production. The IDC schemes provide finance for the modernisation of existing equipment, the expansion of existing industries and the establishment of new ventures aimed at Cleaner Production.
• The Council for Scientific and Industrial Research (CSIR) and the National Research Foundation (NRF) both of which have funded research cleaner production.
• The South African Bureau of Standards, the Department of Trade and Industry (DTI), the Industrial Environmental Forum of Southern Africa (IEF) and the Institute of Waste Management (IWM (SA)), all of which have been involved in activities relating to waste minimisation and cleaner production.

DANCED has funded several Cleaner Production initiatives in the country and is currently working on projects in the textile, fishing and metal finishing industries. The Mpumalanga and the Gauteng provinces have also benefited from the DANCED capacity building programme on Cleaner Production, which lead to the development of a Cleaner Production manual in Mpumalanga.

There appears to be a gradual increase in awareness in South Africa regarding the environmental and economic benefits of Waste Minimisation/Cleaner Production. This trend is shown, for example, by the increasing willingness of industries to participate in Cleaner Production workshops and conferences. In Durban and Cape Town, this awareness became apparent when industries, local authorities and academic institutions co-operated to form waste minimisation clubs.

Recycling activities, especially those in the packaging industry, are mainly carried out by private recycling companies. These activities include the recycling of paper, plastics, aluminium, glass, oil, and rubber (scrap tyres). In the informal sector, particularly in less developed areas, waste is recycled, for example, by converting it into bags, mats, toys and other items that are either used in the household or sold. The main recycling activities are the following:

• Paper and fibre recycling is well developed and controlled in South Africa, with four large paper companies (SAPPI, Mondi, Nampak and Swazi Paper) utilising waste paper products. Agents receive collected paper products, bale them and transport them to the factories on behalf of the companies. There is also an active informal industry of waste paper and cardboard collection. In spite of this recycling, a large amount of paper is still found in mixed waste going to the landfills. This indicates that there is potential to increase source separation of paper and board, which would result in increased recycling of higher quality paper and cardboard.
• Glass is also collected for recycling, as cullet (crushed glass), broken glass or as whole bottles, which may be cleaned and reused. Glass is collected via collection depots (bottle banks) or containers at individual businesses. Glass may also be recovered at landfills.
• Steel beverage cans, other steel containers (such as food tins) and aluminium cans are recycled in South Africa, mainly through Collect-a-Can. Collect-a-Can has a de-tinning facility in Gauteng that has significant reserve capacity, and has made a commitment to recycle all steel beverage cans that it receives. Recycled aluminium cans fetch a high price, but are not widely used in South Africa.
• Very little recycling of organic waste currently takes place. Small-scale composting is practised, but large scale composting of organic waste from households, commerce and industry is rare. There appear to be retail markets available for high quality compost, and a potential for municipal use of compost at sports facilities and public parks.
• The volume of plastics (HDPE, LDPE, PS, PET, PP and PVC) recycled each year in South Africa represents approximately 27% of the use of these polymers. Most plastic that is recycled is recovered from the general waste stream, and is clearly marked to identify the polymer used. The economics of plastics recycling are determined by labour costs for collection, sorting and processing, as well as transport costs and electricity and water consumption costs for washing and processing of the recovered materials. The selling prices for recycled polymer are limited to about 60% to 70% of the virgin polymer prices, which are in turn subject to the normal supply/demand scenario.

Data for the total amount of waste recycled is not available. Data from the packaging industry shows the following amounts:

At present, recycling of waste is not viewed as an essential part of waste management in South Africa. Consequently no standard mechanism exists for implementing and funding recycling. The majority of recycling initiatives have been developed on an ad hoc basis and have been funded by the private sector, with minor financial inputs from the authorities. Some schools are involved in the collection of material for recycling, especially cans and returnable bottles, partly for education in environmental issues, and partly to earn money for the school budgets.

Recycling centres and garden waste drop-off centres have been established in some of the larger cities, to which waste separated into e.g. glass, paper/cardboard, cans, scrap metal, plastics, garden waste and other waste, may be delivered by members of the public. Separation of this waste may be poor, thus hampering recycling. Collection banks are used on a small scale for glass and paper.

Two unsuccessful attempts were made in South Africa in the early 1990’s to set up central recycling plants, with mechanical sizing and hand sorting of primary unsorted household waste. Although the plants were well equipped, the projects were not successful due mainly to the value of recoverable materials being overestimated, the unrealistic municipal requirements and decreases in price of recycled materials. Sorting of primary unsorted waste at recycling plants is not seen as a long-term solution since the sorted recyclable waste is of low quality and therefore fetches a low price.

There are no regular systems for source separation of waste in South Africa, although various trials are underway. Due to the large quantities of recyclable materials arriving in the waste at landfill sites, informal salvaging is widespread in South Africa. This practice leads to unacceptable health and safety risks for the salvagers, as well as operating problems for the landfill manager.

The poor co-ordination of the collection of material for recycling and the lack of data on the amount of waste suitable for recycling have impeded the effective implementation of recycling projects.

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 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) provides more specific detail of government’s policy on pollution and waste management. This draft White Paper has formed the point of departure and the framework for the National Waste Management Strategy.

Environmental legislation in South Africa has often been criticised for being fragmented and frequently overlapping. A review of existing pollution and waste legislation has already been undertaken, and will be revisited, as part of the DEAT Law Reform Process, to identify where legislation is duplicated and where it is deficient with respect to implementation of the initiatives in the NWMS.

With specific reference to Waste Minimisation and Recycling, the draft White Paper on Integrated Pollution and Waste Management for South Africa (Government Gazette,
19 August, 1998) has set itself the following specific goals:

• To prevent, reduce and manage pollution of any part of the environment due to all forms of human activity and in particular from radioactive, toxic and other hazardous substances.
• To set targets to minimise waste generation and pollution at source and to promote a hierarchy of waste management practices, namely reduction of waste at source, re-use, recycling and safe disposal as the last resort.
• To regulate and monitor waste production, to enforce waste control measures, and to co-ordinate the administration of integrated pollution and waste management through a single government department.
• To promote cleaner production and to establish mechanisms to ensure the continuous improvement in all spheres of environmental management.

• To achieve a reduction in the waste stream by promoting an economic environment, which favours the utilisation of recycled materials.
• To subsidise certain recycling campaigns to make them economically viable.
• To promote the separation and recovery of resources as early as possible in waste generating processes in both the commercial and domestic sectors.
• To promote resource recovery at waste transfer stations, waste treatment facilities and waste disposal sites.
• To ensure organised and controlled waste reclamation, as opposed to uncontrolled scavenging at waste disposal sites

This Integrated Pollution and Waste Management Policy is underpinned by a vision of environmentally sustainable economic development. This vision promotes both a clean, healthy environment, and a strong, stable economy. By preventing, minimising, and controlling pollution and waste, the environment is protected from degradation by increasing the use of cleaner production technologies and management practices, by avoiding accidental and operational releases of waste; and by reducing the non-productive cost of treatment, disposal and clean-up. Thus a more efficient and competitive economy and a healthier environment will be achieved.

The NWMS process was undertaken to ensure that the IP&WM policy is translated into practice. The IP&WM policy represents a paradigm shift in South Africa’s approach to waste management. Historically, pollution control focused on reactive impact management and remediation of pollution, but in line with the principles of sustainable development, the focus in the IP&WM policy has moved from pollution control to pollution prevention.

Central to the development of the Strategy for integrated waste management has been the approach to avoid and prevent pollution and to minimise waste, focusing on the source of waste rather than "end-of-pipe" solutions. Prevention and minimisation of waste is the first approach to waste management according to the waste management hierarchy. The implementation of this approach will initiate the paradigm shift from end-of-pipe treatment to waste prevention, as well as increase awareness of the issues of integrated waste management.

The urgent need to extend general waste collection, transportation, treatment and disposal services to an acceptable level for all communities in South Africa and provide waste management services for the country as a whole was also recognised.

Implementation of cleaner technology and waste minimisation in South Africa will contribute to maintaining the country’s competitive position in the technological market. Additionally, South Africa will be able to meet the increasing demands from the developed world in terms of sustainably produced products. Co-operation in the implementation of waste minimisation initiatives will also strengthen the relationship between the public and private sector.

As indicated in Chapter1 of this document, it is intended in the longer term that the policies and strategies associated with the Waste Minimisation and Recycling Action Plan will be integrated with related initiatives of other government departments as part of a national strategy for Cleaner Production. In general terms, Cleaner Production may be seen as having a wider scope than waste minimisation: it refers to the reduction of emissions and waste throughout the entire life cycle of a manufactured article – as opposed to internal waste minimisation practices – and it includes activities relating to resource efficiency, such as water and energy efficiency.

The NWMS strategy follows the waste hierarchy approach, which is internationally accepted as a rigorous approach to integrated waste management. The waste hierarchy prioritises waste management options, in descending order as follows:

• Cleaner production (Waste Prevention, Waste Minimisation)
• Recycling (Re-use, Recovery, Composting)
• Treatment (Physical, thermal and chemical destruction)
• Disposal (Landfilling).

To ensure that the principles of the waste management hierarchy are implemented, the following issues will be addressed in the short-term Action Plan for Waste Minimisation and Recycling, as the first part of implementation of a National Waste Minimisation and Recycling Programme:

• Organisational and planning initiatives: In consultation with stakeholders, DEAT will implement this Action Plan, including the development of a list of priority pollutants and waste streams. These identified wastes will form the basis for setting legislated waste minimisation targets for specific substances and materials across specific industrial sectors and other waste generators, including the public sector. DEAT will implement waste minimisation strategies in its own operation, for example by including waste minimisation/cleaner production clauses in government procurement requirements. As part of this Action Plan, the potential for increased recycling in different sectors will be analysed and specific recycling initiatives will be promoted, relating for example to the recycling of tyres, oil, batteries and organic solvents. In addition, DEAT will enter into discussions with the mining and power generation industry, to develop action plans to investigate, promote and extend recycling of wastes generated by these industries.
• The introduction of incentives for waste minimisation and recycling, including the development of appropriate pricing strategies for waste and resources, and providing high profile national and provincial awards for achievement in this sphere.
• Legal and policy framework: For waste generators to be given sufficient inducement to recycle and minimise waste, it is essential that there should be an appropriate legal and policy framework comprising both legal sanctions and financial incentives.
• Information, Education and Demonstration Projects:

• Government will encourage the inclusion within secondary and tertiary education curricula of principles relating to integrated environmental management;
• The Action Plan will include waste minimisation and recycling demonstration projects.
• Effective networking structures (such as waste minimisation and recycling clubs) will be established, and co-operation with research institutes will be promoted to develop and implement effective waste minimisation and recycling technologies.

• Public-Private and Private Sector initiatives: It is essential that there is active participation of the private sector, not only as the principal generators of waste, but also in acknowledgement of their specific technical and entrepreneurial capacity.

The waste management hierarchy is an important component for achieving sustainable development. By implementing the hierarchy:

• Industries avoid or minimise waste production at source by reviewing their production processes and substituting environmentally hazardous with less hazardous raw materials.
• The service sector and consumers may reduce waste through the selection of products, the appropriate use of products and the conservation of energy.
• Certain waste products in the production process are recycled to recover raw material for further use in industrial processes.
• Post-consumption products are reused or recycled for resource recovery.

As a result of these preventive and proactive waste management steps, there will be less waste disposed to landfill sites. Natural resources (renewable and non-renewable) will therefore be conserved, landfill space can be minimised, pollution will be avoided and environmental degradation will be reduced.

In addition to its traditional ‘control and direct’ approach, it is necessary for DEAT to play an effective role as a facilitator promoting waste minimisation and recycling in all sectors of society. This facilitation will involve expediting the co-ordination and dissemination of information regarding existing successful programmes, the promotion of awareness-raising initiatives, and the introduction of relevant legislative and policy mechanisms.

A number of industries have made important strides in waste minimisation and recycling. Recycling of certain waste products by industry, particularly the reuse of bottles through the deposit-refund system is well established. Almost all kinds of common recyclable materials are also being recycled, including waste paper, bottles, plastics, cans and drums. In addition, certain industries such as the fishing, textile and metal plating industries have embarked on Cleaner Production projects. A few Waste Minimisation Clubs have also been established. In recognition of their contribution to waste minimisation and recycling, measures should be taken to facilitate and encourage the adoption of additional co-regulatory and self-regulatory initiatives by industry.

Waste separation at source is a precondition for recycling of high quality materials. In addition, recycling has the potential for job creation, by promoting entrepreneurs to establish community collection systems and recycling centres. Recycling is also a viable alternative to informal salvaging at landfills, which is undesirable due to the associated problems of health and safety. Recycling and waste minimisation public awareness and education campaigns, which stress the importance of separation of materials at source, are needed to modify current behaviour patterns.

The overriding objective is to identify and implement measures to promote existing and new waste minimisation and recycling initiatives in South Africa. An analysis of existing initiatives has identified the following problems and priority issues that need to be addressed by government, industry and the public/civil society.

• Insufficient awareness and understanding of the benefits and methodology of Waste Minimisation and Recycling. There is still a predominant emphasis in both the public and the private sectors on "end-of-pipe" waste treatment, rather than preventative strategies.
• Government is seen to have a predominant focus on "command-and-control" strategies with limited perceived benefits to industry.
• Inappropriate incentives: government should publicise its support for waste minimisation and recycling and should emphasise its commitment to making waste minimisation and recycling in South Africa more economically viable.
• Inadequate regulatory pressure as well as potential conflicts between existing legislation on environmental permits for industrial companies and the promotion of waste minimisation and recycling practices.
• Insufficient data available on waste minimisation opportunities, existing recycling and the total amount of recyclable materials in the waste stream. Such data is a prerequisite for appropriate new waste minimisation and recycling initiatives.

• Insufficient commitment to waste minimisation by management. The amount of information targeted at management level should be increased and information on the techniques and benefits associated with waste minimisation, recycling and cleaner production should be made available.
• The prevalent perception that waste minimisation and recycling is a cost factor, rather than an opportunity for savings should be rectified.
• The lack of knowledge about the availability of waste minimisation and recycling technology and existing case studies must be addressed.
• Better training and appropriate courses in waste minimisation and recycling should be instituted.

• Improving the dissemination of information on waste minimisation and recycling would enhance public awareness and increase pressure from civil society that environmentally friendly methodologies be adopted.
• Salvaging at landfills is a major problem due to the health and safety risks for the informal salvagers. By increasing source separation of recyclable materials, this practice will be discouraged.

There are a number of key stakeholders that have been involved in the NWMS process and that need to be involved in the further development of the Waste Minimisation and Recycling Action Plan:

• DEAT – Lead Agent: will have overall responsibility for implementing the Waste Minimisation and Recycling Action Plan.
• DWAF: as the NWMS partner with DEAT, will be involved in implementing many of the specific activities.
• Department of Minerals and Energy (DME): will be involved initiatives relating to minimisation and recycling of mining, coal combustion and radioactive wastes. In addition, the DME will be involved in integrating energy efficiency measures with the NWMS initiatives, as part of the development of a national strategy for cleaner production.
• Department of Health (DoH): will be involved in initiatives (for example demonstration projects) aimed at minimising the generation of certain medical wastes.
• Department of Trade and Industry (DTI): will participate in an inter-departmental working team which will investigate the feasibility of introducing economic instruments to promote waste minimisation and recycling and will assist in identifying any existing barriers to waste minimisation and recycling. The DTI will also participate in the development and implementation of certain demonstration projects, and may serve as a source of funding for co-operative waste minimisation initiatives. In addition, the DTI will have an important role to play in technology transfer initiatives, and will be involved in investigating the desirability of a National Waste Minimisation and Recycling Centre.
• Department of Transport: may be involved in ensuring that statutory controls relating to the transportation of certain industrial wastes do not hinder legitimate efforts to divert material from the waste streams for recovery and re-use.
• Department of Finance: will participate in the investigation into appropriate funding mechanisms for and financing of Waste Minimisation and Recycling, and will make the final decision regarding the possible introduction of economic instruments to promote waste minimisation and recycling.
• Provincial Environmental Departments: will be responsible for integrated waste management planning including waste minimisation and recycling; it will also play a role in the promotion and implementation of a number of the Action Plan initiatives and may be involved in the government waste minimisation demonstration project.
• Local Governments: will be responsible for general waste management planning including waste minimisation and recycling and have a key role to play in establishing structures at local level to promote increased recycling, including, for example, providing recycling centres and promoting partnerships with local entrepreneurs and small scale recyclers; it will be involved in the promotion of initiatives such as waste minimisation clubs, and will be active in the collection of data required for the regional waste information system. A conflict of interest could arise since waste disposal charges are an important source of revenue for local governments and these financial interests may counteract activities which encourage the public to minimise and recycle their waste, rather than dispose of it.

• The South African Local Governments Association (SALGA) which represents local government interests and plays an important role in councillor training. SALGA can assist with the implementation of Waste Minimisation and Recycling capacity building programmes for local government.
• Community Based Organisations (CBOs) and Non Governmental Organisations: (NGOs) are essential in mobilising community assistance and support for waste minimisation and recycling initiatives; NGOs may assist in research, training, technology transfer and the implementation of awareness campaigns.
• Organised labour and the trade unions can contribute to the identification and development of waste minimisation practices and serve as important players in achieving recycling targets.
• Salvagers at landfills should become involved in community-based recycling initiatives so that jobs can be created through source separation and collection systems and dangerous salvaging activities can be phased out.
• Entities such as the Institute of Waste Management (IWM (SA)) have comprehension of the status quo and knowledge of future trends in the waste management industry. The IWM (SA) has also recently established a Waste Minimisation Interest Group that serves as a forum for the promotion of various waste minimisation initiatives.
• As the principal generator of waste, industry is a crucial stakeholder in the effective implementation of the waste minimisation and recycling initiatives; individual industries and sectoral organisations will be directly affected and involved in most of the Action Plan initiatives, and will be encouraged to participate in co-operative initiatives with government.
• A number of private sector organisations are currently very active in recycling initiatives, for example: the pulp and paper industry; the Glass Recycling Association; Collect-a-Can, and the Aluminium Can Recycling Association (ACRA); the Plastics Federation of South Africa; the Packaging Council of South Africa (PACSA); the Tyre Recycling Association; and the National Recycling Forum. The private recycling sector has a significant role to play not only in directly recycling material, but also in co-ordinating the collection of recyclable material through local agents. Although many of these private sector organisations are of the opinion that recycling is currently taking place wherever it is economically viable and that additional legislative initiatives are thus not needed (or welcomed), they have nevertheless expressed a willingness to contribute to the development of initiatives arising from this Action Plan.
• Various Waste Minimisation Clubs have already been established in South Africa, including for example: the Waste Minimisation Club for the Metal Finishing Industry (in Durban), the Hammarsdale Waste Minimisation Club, and the Waste Minimisation Club for Western Cape. The establishment of these clubs arose largely from the work of the Pollution Research Group at the University of Natal Durban and the Chemical Engineering Department at the University of Cape Town, with the participation of the relevant local authorities and affected industries. The role of Waste Minimisation Clubs is to ensure the dissemination at local level of experience concerning waste minimisation and recycling.

The following risks have been identified as being critical to the implementation of the Waste Minimisation and Recycling Action Plan:

A Task Team was established to develop the short-term priority Action Plan for Waste Minimisation and Recycling. This Task team consisted of representatives from DEAT and DWAF, as well South African and Danish consultants.

This phase of Action Plan development took place between May and July 1999. The Action Plan was developed using the Logical Framework Analysis (LFA) approach, a highly structured methodology for project identification, planning and monitoring that is commonly used by development agencies. The LFA approach consists of a logical sequence of steps that analyses the stakeholders, objectives and alternative strategies through to the development of an LFA Matrix. This Matrix describes the project objectives, outputs, activities required to achieve the outputs, inputs, assumptions (external factors) and means of verification.

An Action Plan Implementation Group (APIG) was established, consisting of the Chief Directors of DEAT and DWAF, the two Deputy Directors of DEAT and DWAF responsible for the NWMS and Action Plans, as well as other selected departmental representatives with specific responsibilities relating to waste management. The APIG will facilitate lateral and vertical co-ordination within government until September 1999. After September, this function will be fully undertaken by the relevant government departments, assisted and facilitated through the MINTECH Workgroup 3 and the Committee for Environmental Co-ordination (CEC).

3 LOGICAL FRAMEWORK ANALYSIS

Following an analysis of the problems, stakeholders and risks, a Logical Framework Analysis matrix was prepared. The LFA matrix (see Annexure A) contains an outline of the logical steps, which are necessary to achieve the Action Plan objectives, providing that the assumptions are realised. The LFA matrix 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. Full details of the content of the matrix are presented below in a more descriptive format.

The overall 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 of the Waste Minimisation and Recycling Action Plan is to ensure that waste minimisation and recycling procedures and practices are adopted by all sectors of society (government, industry, and consumers) as part of a broader initiative focusing on cleaner production by 2012. Salvaging at landfills will be phased out completely in the long-term.

The following short-term objective of the Waste Minimisation and Recycling Action Plan has been identified for completion by December 2004:

The following general outputs will result from the implementation of the Waste Minimisation and Recycling Action Plan by 2004:

1. The introduction and enforcement of appropriate regulatory instruments that provide for the identification and reduction/elimination of priority pollutants and waste streams, and that promote a more widespread adoption of waste minimisation and recycling practices by DEAT by the end of 2002. Specific outputs include: defining priority waste streams and targets for waste minimisation and recycling; introducing waste minimisation and recycling requirements in procedures relating to licensing, permitting and environmental impact assessments; incorporating waste minimisation considerations in government procurement contracts; identifying and removing particular barriers for cleaner production in existing legislation; and examining the feasibility of introducing product-based regulations as a means of promoting waste minimisation and recycling.
2. The development and implementation of appropriate economic instruments and other financial incentives based on the results of a study to be undertaken by DEAT with the participation of the Department of Finance and the Department of Trade and Industry by the end of 2001. Specific outputs include the introduction of economic instruments and incentives to promote waste minimisation and recycling: for example, the possible introduction of levies on specific products or materials with high environmental impact, and the implementation of deposit-return schemes for certain refillable or recyclable containers.
3. The adoption from 1999 onwards of measures aimed at facilitating and co-ordinating the more widespread implementation of existing successful waste minimisation and recycling initiatives by DEAT in close co-operation with the private sector. Specific outputs include: facilitating the exchange of information between provincial/local governments and industries with the aim, for example, of encouraging the more widespread establishment of waste minimisation clubs; identifying all successful existing recycling initiatives and implementing measures to ensure the ongoing success and viability of such initiatives; and holding discussions with the mining and power generation industry regarding the investigation, promotion and extension of minimisation and recycling of wastes generated by these industries.
4. The development and implementation by the end of 2001 of a programme for the dissemination of information by DEAT regarding the techniques, opportunities and benefits associated with cleaner production, waste minimisation and recycling. Specific outputs include the possible establishment of Waste Minimisation and Recycling Centres, the dissemination of information on waste minimisation through the development of a directory of case-studies and sector-specific guides; the implementation of demonstration projects; the promotion of information and awareness campaigns about waste minimisation and recycling, by DEAT in collaboration with local government; and amending educational curricula to reflect cleaner production, waste minimisation and recycling approaches to waste management.

In order to ensure the effective implementation of the Waste Minimisation and Recycling Action Plan, which, together with the medium and long term Action Plans, constitutes the National Programme for Waste Minimisation and Recycling, a number of key activities need to be undertaken for each of the above listed outputs. These activities are described in more detail below (the number of each activity corresponds with the number of the relevant output).

The review of waste management legislation will be undertaken as part of the ongoing Pollution and Waste Law Reform Process. However, should the Law Reform Process not be able to undertake the required legal reviews within the specified timeframes, specialised working groups will be constituted which will undertake their own reviews, or have the reviews undertaken on their behalf.

The following activities are to be undertaken as part of the Law Reform Process, in consultation with all stakeholders:

• A key element of the National Programme for Waste Minimisation and Recycling will be the development by DEAT, in consultation with stakeholders, of a list of priority pollutants and waste streams by the year 2000. In developing this list of priority pollutants for South Africa, DEAT will build on the experience gained by other countries that have developed such lists, while ensuring that the list is relevant to the special conditions of South Africa. It is important that the development of this list, and the identification of means to minimise these prioritised pollutants and wastes, is based on documented scientific research and stakeholder input.
• These identified wastes and pollutants will form the basis for setting legislated waste minimisation targets across specific industrial sectors and among other waste generators, including the public sector by 2001. The list of prioritised pollutants will be reviewed periodically. It is important that relevant stakeholders are involved as early as possible in this process in order to ensure the full understanding of the need for reducing and phasing out of certain environmentally hazardous substances within specified time frames.
• Regulations must be promulgated requiring that waste minimisation assessments are carried out, and that waste minimisation plans are developed and implemented as part of specified permitting requirements. This requirement should be adopted on a phased-in basis from 2000. If waste minimisation assessments are undertaken prior to receiving licensing approval, criteria will need to be developed against which the operation can be assessed. These criteria will be developed with the full participation of the private sector. The development and implementation of industry-specific criteria will require considerable human and financial resources, but general criteria are not likely to be effective due to the diverse range of waste minimisation activities, which will need to be assessed.
• The EIA/IEM regulations anticipated in terms of Chapter 5 of NEMA should make specific provision for waste minimisation by 2001.
• Promotion of waste recycling will be incorporated in the new legislation by 2001.
• Government will set an example that by mid 2000, waste minimisation and recycling will be implemented within its own departments and form part of its procurement policies. This activity will be initiated by selecting a number of government institutions to serve as demonstration projects for similar institutions in the public and private sector. The demonstration project will involve carrying out waste minimisation and recycling assessments of the institution, followed by the adoption of action plans for implementing the identified activities. The adoption of ‘green’ procurement policies could be initiated by first studying the procurement policies of other countries, and then establishing green procurement guidelines for South African government institutions.
• A study will be undertaken to investigate and ensure that all relevant existing legislation is compatible with the goals of waste minimisation and recycling, if necessary, this legislation will be amended to remove barriers to Cleaner Production. Such a study should be completed by mid 2000, and the legislation amended by the end of 2000.

In addition, further development of legislative instruments will take place as required, in consultation with stakeholders, after completion of the Law Reform Process. A study will also be undertaken to examine the feasibility of promoting cleaner production, waste minimisation and recycling through the introduction of product-based legislation by the end of 2002. If feasible, further legislation will be developed by the end of 2004.

For waste generators to have sufficient incentive to implement waste minimisation and recycling practices, it is essential that there is an appropriate legal and policy framework comprising both legal sanctions and financial incentives. The following activities will be undertaken to ensure that these economic instruments are created.

• An inter-departmental working team (including DEAT, Finance and DTI) may be constituted in 1999 to investigate the feasibility of introducing economic instruments to promote cleaner production, waste minimisation and recycling.
• The proposed working team, in consultation with provincial environmental departments, local government and other key stakeholders, will review the findings of past studies and investigate the feasibility of introducing economic instruments to promote Cleaner Production, Waste Minimisation and Recycling, based on the polluter-pays-principle, and identify any existing counter-acting incentives by end of 2000. Possible incentives may in the long-term include: amending the tax regime (e.g. the introduction of penalty charges on disposal of specific environmentally harmful products at landfills, on disposable/non-reusable products, and on raw materials); developing appropriate pricing strategies for wastes and resources; and providing subsidies from existing funds for pilot projects and demonstration projects.
• By 2000 all stakeholders will be consulted regarding the findings of the feasibility study.
• The working team will prepare proposals for the introduction of economic instruments by 2001, and ensure integration with legislative instruments before the end of 2001.
• The above proposals will be implemented on a prioritised basis by 2003.

An important function of DEAT is to play a facilitating and co-ordinating role to encourage the more widespread adoption of waste minimisation and recycling initiatives, in particular the following

• As an immediate priority, DEAT as the government lead agent for the NWMS, will establish the overall organisational framework for implementing the various initiatives outlined in this Action Plan.
• DEAT will work with the Capacity Building and Awareness implementers to ensure that educational curricula at primary, secondary and tertiary level are amended to reflect the Cleaner Production, Waste Minimisation and Recycling approaches by the end of 2000.
• DEAT will play a facilitative role in the exchange of information between national government departments, provincial environmental departments, as well as local governments and industries on various waste minimisation initiatives, such as the establishment of waste minimisation and recycling clubs. An important goal will be the establishment of a number of new clubs by 2001.
• DEAT will identify all existing successful recycling initiatives and will assess the role of government in increasing recycling activities by 2003. In this regard, DEAT, in collaboration with the private sector, will undertake a detailed analysis of the amount of recyclable materials, including organic waste in the waste stream, and of the current and future market conditions for recyclable materials by 2000. These assessments will be used as the background for setting future targets for recycling of specific materials, e.g. targets for composting organic waste. Although the process will be facilitated by DEAT, the involvement of local government in these initiatives will be essential (for example in promoting the establishment of recycling centres to which local entrepreneurs can deliver collected materials). A detailed action plan for supporting and extending recycling initiatives will be developed by 2003 and implemented thereafter.
• National Government (DEAT, DME and other relevant departments) will enter into discussions with the mining and power generation industry to develop action plans to investigate, promote and extend the recycling of wastes generated by these industries, as part of the integrated waste management plans to be developed by these industries (see also the Action Plan on Integrated Waste Management Planning, PMG 131).

An important means of promoting waste minimisation and recycling is to provide waste generators with information and training on source separation of recyclable materials, the techniques for conducting waste minimisation assessments and the possibilities for cost-savings. To give effect to this objective, the following activities will be undertaken:

• By mid 2000, a study will have been undertaken by DEAT, in collaboration with DTI and other relevant departments, to investigate the feasibility, mandate and structure of one or more Waste Minimisation Centres. The aim of such a centre would be to assist DEAT in promoting waste minimisation and recycling initiatives, and to support industry by providing information, training and education. For example: case-studies could be conducted and sector-specific waste minimisation guides could be developed and disseminated, the implementation of demonstration projects could be co-ordinated from the Centre, and it could serve as a forum for exchanging information on specific issues relating to waste minimisation and recycling. It is important to learn from other countries where similar centres have been established, some with success and others with less success.
• If deemed desirable, the Waste Minimisation Centre/s will be established by 2002 with a management structure and funding as per the findings of the feasibility study.
• In addition to developing a directory of relevant local and international Cleaner Production case studies, government will work with industry and NGOs in developing sector-specific guides for waste minimisation, and in promoting the use of management tools such as total cost accounting, environmental performance indicators, environmental auditing, and life cycle assessment. A first generation of such sector-specific guides will be developed by 2001.
• A key component of the government’s waste minimisation programme will be the implementation of waste minimisation demonstration projects. DEAT will play an important co-ordinating and initiating role in the implementation of these projects (beginning in 2001), one of which will be undertaken in an industry sector, another in an SMME and a third in a government department, with the aim of:

• Demonstrating the cost-savings and mechanisms of waste minimisation
• Building capacity among all stakeholders, including small, medium and micro-enterprises
• Addressing an environmental issue of immediate concern.
• Encouraging the use of co-regulatory waste management instruments, such as the use of government/industry agreements.

• DEAT will co-ordinate the provision of information and awareness campaigns for waste minimisation and recycling targeting the general public, business and industry. These programmes will be initiated from 2001 onwards. If supported by the findings of the investigation into the feasibility of a Waste Minimisation and Recycling Centre, this programme will be undertaken in close collaboration with such a centre.
• DEAT will introduce a national cleaner production award with the aim of publicising and promoting the more widespread adoption of cleaner production practices (including waste minimisation and recycling).

The estimated public costs of the waste minimisation and recycling initiatives, as well as a breakdown of the allocation of costs amongst funding sources, is summarised in Table 1. As indicated in the table, the primary source of funding will be from the national budget and from donors and funding agencies. As it is not possible to accurately foresee the available amounts from donor funding, such funding has been allocated to projects that generally do not have minimum fixed costs, and that are not seen to be essential preconditions for the initial introduction of the Action Plan. This approach would allocate funding, for example, to initiatives such as demonstration projects, waste minimisation clubs and the development of case studies and sector-guides.

A breakdown of the personnel implications of the Action Plan for each of the three tiers of government is provided below:

National Government: The Department of Environmental Affairs and Tourism will act as the lead agent for implementing the Action Plan on Waste Minimisation and Recycling. Key responsibilities of DEAT include:

• Providing the central organisational and planning functions of the National Programme for Waste Minimisation and Recycling.
• Facilitating and co-ordinating the promotion of existing and new waste minimisation and recycling initiatives.
• Developing a list of priority waste streams and setting targets for their minimisation.
• Introducing appropriate legislative instruments.
• Assisting the Department of Finance in the implementation of economic instruments.
• Ensuring that there is appropriate inter-ministerial and inter-provincial co-ordination.
• Providing budgets for training and awareness programmes.
• Guiding and disseminating information, possibly through the Waste Minimisation and Recycling Centres.

DEAT, in collaboration with other national and provincial departments, will be active in co-ordinating the provision of information, education and capacity-building; in securing funding for the various waste minimisation and recycling initiatives; and in facilitating effective public-private partnerships. In developing and implementing the initiatives, DEAT will consult with, and receive advice from the National Environmental Advisory Forum, as well as liasing with MINTECH Workgroup3 and the CEC. One of the initial tasks will be to investigate the feasibility and possible organisational structure, activities and funding of one or more Centres for Waste Minimisation. Pending the decision on the establishment and structure of such Centres, the administration of the waste minimisation initiatives will be the responsibility of a designated and sufficiently resourced sub-directorate of DEAT. It is estimated that from 1999 to 2004, a total of 22 person years will be required at the national level for the implementation and administration of the National Waste Minimisation and Recycling Programme (which in the short-term encompasses all of the initiatives described in this Action Plan). At an annual salary package of R150 000 per person this amounts to 3.3 million Rand over this period.

Provincial and local government will be responsible for implementing and enforcing appropriate national waste minimisation and recycling initiatives, and for promoting the development of voluntary partnerships with industry, such as the introduction of waste minimisation clubs. In addition, provincial and local government will be active in the collection of data required for the national waste information system. For the period from 1999 to 2004, a total of 15 person years is estimated for all the provinces. In the short term strategy specific budgetary provision has not been made for local government involvement.

Civil Society which comprises the private sector (individual industries, entrepreneurs, business sectoral organisations and consumers) and other organisations (such as NGOs, CBOs, universities and research institutions) is pivotal in ensuring that waste minimisation and recycling procedures are effectively implemented. The person-year implications for civil society in implementing the strategy have not been estimated.