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2012 SOUTH AFRICA ENVIRONMENT OUTLOOK
Chapter 9: Waste Management
Draft 2 version 3
April 2012
2012 SAOE Waste Chapter Draft 2
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Contents
Executive Summary .............................................................................................................................. 3
Abbreviations ......................................................................................................................................... 5
1 Introduction and background ........................................................................................................... 7
2 The waste management hierarchy approach ................................................................................... 8
3 Legal mandates and functional responsibilities ............................................................................. 10
3.1 Enabling legal framework ........................................................................................................ 10
3.2 Roles and responsilities ........................................................................................................... 10
3.3 Mechanisims to effect South Africa’s international waste obligations ................................... 12
3.4 Performance monitoring ......................................................................................................... 14
4 The socio-economic contribution of South Africa’s waste management system .......................... 14
4.1 Employment creation .............................................................................................................. 15
4.2 Muncipal revenue .................................................................................................................... 17
4.3 Capital investment in the waste sector ................................................................................... 17
5 Waste generation and trends in South Africa ................................................................................ 18
5.1 General waste .......................................................................................................................... 19
5.1.1 Municipal solid waste ....................................................................................................... 19
5.1.2 Building and Demolition waste ......................................................................................... 23
5.1.3 Tyres ................................................................................................................................ 23
5.1.4 Industrial packaging ...................................................................................................... 24
5.2 Hazardous waste ..................................................................................................................... 25
5.2.1 Healthcare Risk Waste ...................................................................................................... 28
5.2.2 Pesticides .......................................................................................................................... 30
5.2.3 eWaste .............................................................................................................................. 30
5.2.4 Mining waste .................................................................................................................... 31
5.2.5 Metallurgical waste .......................................................................................................... 32
5.2.6 Commercial wastes ........................................................................................................... 32
6 Waste initiatives in South Africa..................................................................................................... 33
6.1 National policy response ......................................................................................................... 33
6.2 Provincial government’s response .......................................................................................... 34
6.3 Local government’s response .................................................................................................. 36
7 Waste recycling industry in South Africa........................................................................................ 37
8 Waste treatment and disposal in South Africa ............................................................................... 38
9 Compliance Monitoring and Enforcement ..................................................................................... 39
2012 SAOE Waste Chapter Draft 2
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9.1.1 Environmental Management Inspectorate (EMI) ............................................................. 40
9.1.2 Status of the Environmental Management Inspectorate (EMI) ....................................... 41
9.1.3 Waste management officers (WMO) ............................................................................... 42
10 Conclusions and emerging issues ................................................................................................. 44
References ............................................................................................................................................ 49
2012 SAOE Waste Chapter Draft 2
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Executive Summary
South Africa’s commitment to sustainable development is aimed at balancing the broader
economic and social challenges of a developing and unequal society while protecting
environmental resources. For the waste sector, this means care is given to raw material use,
product design, resource efficiency, waste prevention, and minimization where avoidance is
impossible. However, South Africa’s growing economy and population result in increased
waste generation now and in the near future.
Sustainability and improvement of waste management services in South Africa remains a
significant challenge for the government. These challeneges are further complemented by
national policy positions regarding, acceleration of service delivery, ensuring equity for
waste services, poverty alliviation and employment creation. A number of conclusions can
be drawn from the present national status reporting on waste management.
Firstly, it is clear that specific focus is placed in South Africa on the application of the waste
management hiereachy both in policies, strategies and implementation.
Secondly, since the last environmental reporting reporting in 2006, a number of key policy
and regulatory instruments within the ambit of the new promalgated Waste Act, has been
developed. These include e.g. national policy for the provision of basic refuse removal
services to indegent households; national policy on thermal treatment of general and
hazardous waste; national domestic waste management collection standards; waste
classification and management regulations (draft); waste tyre regullation; regulations on
prohibition of the use, manufacturing, import and export of asbestos and asbestos
containing materials.
Thirdly, clear roles and responsibilities of government institutions and the legislative
mandates for key spheres of government involved in waste management has been
developed and are in place. South Africa remains in the forefront on environmental waste
management amongst developing countries and is committed to implement a world class
system that will improve waste management in the country. The key development areas for
the near future include: (i) Service level agreements and contracting of services amongst
key role players in government, (ii) regionalisation of service delivery, and (iii) ring-fencing
of solid waste finances.
Fourthly, that municipal solid waste management can be identified as one of the areas of
municipal functioning with the greatest potential for job creation, particularly with respect to
unskilled or semi-skilled labour. The estimate employment creation by the total waste sector
is around 113,000 people. It is estimated that the total annual expenditure on solid waste
management in South Africa is R10 billion per annum, 70% from the public sector, largely
local government, while 30% is private sector expenditure. Waste management within
municipailities contributes significantly towards municipal income and revenue due to the
user-pay principle applied for waste management. It is assessed that municipalities received
a total income of around R6.5 billion for solid waste.
Fifthly, that the analysis of the two main waste classess, i.e. general and hazardous waste,
shows a number of interesting findings:
2012 SAOE Waste Chapter Draft 2
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• Municipalities are the key players in dealing with general non-hazardous waste. A
total of around 239 municipalities performed solid waste management functions
servicing around 8,4 mill households, or around 64 % of all households
• South Africa has experienced rapid growth in waste volumes, associated with a
prolonged period of economic growth. During the last decade, general waste
generation rose to nearly 67 million cubic metres, or by 62%. This represents an
annual average growth rate of around 5%
• The big metropolitan municipalities continue to allocate more budgets, appoint better
qualified staff, and have well organised structures to deliver waste services.
However, there is still a strong need for continued strengthening and expansion of
waste services to reach people still without access. The overall backlog in the
provision of solid waste services is around 2 million households, with some 900,000
households not receiving any service. The service backlogs are highest in metros and
secondary cities
• Waste recycling presents an opportunity to save resources, reduce the environmental
impact of waste by reducing the amount of waste disposed at landfills, and create
employment opportunities. In South Africa, the majority of commercial waste
recycling initiatives has been developed on an ad hoc basis and has been driven by
the private sector, with little or no financial inputs or support from the government
• Waste management services rely heavily on landfills for the disposal of waste, as
over 90% of all South Africa's waste is disposed of at landfill sites. The reliance on
waste disposal by landfills has limited the incentive to devise alternative methods of
dealing with waste
• For hazardous waste, a general lack of adequate reliable information exists making
quantifying mass balance for hazardous wastes difficult. South Africa currently has
11 licenced hazardous treatment facilities in operation with a combined annual
treatment capacity of approximately 57,600 tons. The current treatment figures
indicate a reserve treatment capacity of approximately 1,000 tons per month.
A number of specific waste issues has emerged during the last years. Of particular interest
are e-waste streams, waste-to-energy and the green economy noted.
2012 SAOE Waste Chapter Draft 2
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Abbreviations
CDM Cleaner Development Mechanism
CFCs Chlorofluorocarbons
CFLs Compact Fluorescent Lamps
COGTA Department of Cooperative Governance and Traditional Affairs
DEA Department of Environmental Affairs
DTI Department of Trade and Industry
DPLG Department of Provincial and Local Government
DWAF Department of Water Affairs and Forestry (former)
EMI Environmental Management Inspector
ERP Extended Producer Responsibility
HCRW Healthcare Risk Waste
HW Hazardous Waste
IDP Integrated Development Plans
IT Information technology
IPWMP Integrated Pollution and Waste Management Policy
IWMP Integrated Waste Management Plans
MEC Member of the Executive Council
MFMA Municipal Finance Management Act
MIG Municipal Infrastructure Grant
MRF Materials Recycling Facility
MTEF Medium Term Expenditure Framework
NCMS National Compliance Monitoring System
NECSA Nuclear Energy Corporation of South Africa
NEMWA National Environmental Management: Waste Act (Act 59 of 2008)
NEMA National Environmental Management Act, 1998 (Act No. 107 of 1998)
2012 SAOE Waste Chapter Draft 2
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NWIS National waste information system
NWMS National Waste Management strategy
ODS Ozone Depletion Substance
PCBs Polychlorinated Biphenyls
PIC Prior Informed Consent
PCF Prototype Carbon Fund
POPs Persistent Organic Pollutants
RSA Republic of South Africa
WEEE Waste Electrical and Electronic Equipment
2012 SAOE Waste Chapter Draft 2
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CHAPTER 9: WASTE MANAGEMENT
1 Introduction and background
South Africa’s commitment to sustainable development is aimed at balancing the broader
economic and social challenges of a developing and unequal society while protecting
environmental resources. For the waste sector in South Africa this means care is given to
raw material use, product design, resource efficiency, waste prevention, and minimization
where avoidance is impossible.
However, South Africa’s growing economy and population result in increased waste
generation now and in the near future stressing the importance of establishing effective
waste management policies and programs. A number of issues continue to be challenges for
the establishment of effective waste management. These includes e.g. ineffective data
collection systems and lack of complience and enforcement capacity; lack of education and
awareness amongst stakeholders within the waste sector; operational costs for management
of waste; political instability and support to waste reduction at local government level;
availability of suitable land for waste disposal, and lack of structured incentives for
reduction, recycling and/or re-use of waste.
In this chapter, an overview of the status of waste management in South Africa is
presented, based on key drivers within the waste sector in South Africa. Firstly, specific
focus is placed on the waste management hiereachy within the context of South Africa’s
National Waste Management Strategy (NWMS), and National Environmental Management:
Waste Act (Act 59 of 2008) (NEMWA). It is according to this waste management hierachy
that all waste management practices across the country are analysed.
Secondly, the South African waste management policy framework is presented. Attention is
drawn towards national and international legislation and how it has affected the dicision of
waste management mandatory functions within the spheres government, particularly in the
last few years. Attention is further given to the shift in policy and legislative direction since
promalgation of the National Environmental Management: Waste Act (NEMWA), the
adoption of the National Waste Management Strategy, waste policies and regulations.
Thirdly, the roles and responsibilities of government institutions and the legislative mandates
for key spheres of government are presented, including a presentation of the Government’s
performace management system, specifically Outcome 10 in relation to waste management,
and international waste obligations. A synthetic view on key responsibilities in the provision
of waste management services across the spectrum is presented. Challenges and
opportunities regarding the management of waste are highlighted.
Fourthly, an analysis of the two main waste classess, i.e. genaral (or municipal) waste and
hazardous waste are reported upon. For general waste, generation trends for the following
waste types are covered: Municipal waste, construction and demolition, waste tyres and
industrial packaging. For hazourdous waste focus is given to health care waste, pesticides,
e-waste, metallurgical waste and other hazardous waste streams, like batteries and
2012 SAOE Waste Chapter Draft 2
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flourescent lamps. An overview, based on the waste management hierarchy, is presented
for each waste stream.
Finally, the country’s response to waste management challenges is presented. Specifically,
focus is given to developments around national policy and legislation, waste treatment,
recycling and disposal. Compliance monitoring and enforcement structures are analysed with
regard to established legislated arrangements that include the designation of an
environmental management inspectorate and waste management officers. Key emerging
issues are identified.
A pilot project conducted by the Department of Environmental Affairs (DEA), in partnership
with the Mafikeng local municipality, to demontrate employment creation through a
community based waste management model, is presented in a case study.
2 The waste management hierarchy approach
The definition of waste derived from the Waste Act states that: “waste” means any
substance, whether or not that substance can be reduced, re-used, recycled and recovered:
a) That is surplus, unwanted, rejected, discarded, abandoned or disposed of b) Which the generator has no further use of for the purposes of production
c) That must be treated or disposed of
d) That is identified as a waste by the Minister by notice in the Gazette, and includes waste generated by the mining, medical or other sector, but (i) a by-product is not
considered waste; and (ii) any portion of waste, once re-used, recycled and
recovered, ceases to be waste.
In this definition, the impact on human health does not feature, however, this aspect is
covered in several sections of the Act in relation to descriptions of “general waste” and
“hazardous waste”.
With respect to (d)(ii) of the Act, “re-used” and “recycled” refers to processes that have
been completed, whereas “recovered” (or recovery) refers to resource materials extracted
from the waste stream with the intention to use as inputs into newer products. This will
normally be applicable to commonly “recovered” waste materials like paper, plastics, glass
and metal cans or scrap and hence they cease to be waste at that stage of “recovery”.
The waste management hierarchy provides a technical approach to the understanding of
waste and is South Africa’s adopted approach to waste management. Management of waste
through the hierarchy approach is an recognised model for the proioritisation of waste
management options, throughout the world. This approach was first introduced in South
Africa in 2000. It offers a holistic approach to management of waste materials, and provides
a systematic method for waste management during the potential waste product lifecycle
addressing in turn waste avoidance, reduction, re-use, recycling, recovery, treatment, and
safe disposal as a last resort. Through NEMWA, the model is further entrenched in the legal
framework governing waste in the country. The waste hierarchy, as presented in Figure 1, is
linked to national policy action plans on waste management.
2012 SAOE Waste Chapter Draft 2
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The South African Waste legislation is influenced and informed by the key elements of the
waste management hierarchy, and therefore dictates the overall strategic approach for
waste management. The waste hierarchy is also clearly visible in the 2011 National Waste
Management Strategy for South Africa.
Figure 1 Waste management hierarchy as per the National Waste Managament Strategy (DEA, 2011)
This approach towards waste management put emphasis on the following key elements:
• Avoidance and Reduction: Products and materials must be designed in a manner that
minimises their waste components or in a manner that reduces natural material
quantities used and potential toxicity of waste generated during the production, and
after use
• Re-use: Materials can be used in a similar or different purpose without changing
form or properties. This approach seeks to re-use a product when it reaches the end
of its life span. In this way, it becomes inputs for new products and materials
• Recycle: This involves separating materials from the waste stream and processing
them as products or raw materials. The first elements of the waste management
hierarchy are the foundation of cradle-to-cradle waste management
• Recovery: Reclaiming particular components or materials or using the waste as a
fuel. Where the quantity of waste cannot be further reduced, they will be discharged
to landfill. Landfill is presently considered the most affordable way to manage the
final stage of waste
• Treatment and disposal: This is a “last resort” within the hierarchy of waste
management measures. Treatment refers to any process that is designed to
minimize the environmental impact of waste by changing the physical properties of
Waste avoidance and reduction
Re-use
Recycling
Recovery
Treatment/Disposal
2012 SAOE Waste Chapter Draft 2
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waste or separating out and destroying toxic components of waste. Disposal refers
specifically to the depositing or burial of waste onto, or into, land. Treatment,
processing and disposal of waste must take place in accordance with the principles
of environmental justice and equitable access to environmental services as
articulated in the National Environmental Management Act 107 of 1998 (NEMA).
3 Legal mandates and functional responsibilities
3.1 Enabling legal framework
South Africa’s legal framework on waste management is one of the most progressive on the
continent. There is a clear division of roles, responsibilities, and mandatory obligations for
the three spheres of government. This alignment of the law governing waste, demonstrates
the country’s ambition towards a clean environment and healthy society.
According to the Constitution, everyone has the right to an environment that is not harmful
to health or well-being (section 24, Chapter 2). This fundamental right underpins all
environmental policies and legislations, in particular the framework environmental legislation
established by the National Environmental Management Act, 1998 (Act No. 107 of 1998)
(NEMA).
The Constitution further assigns legislative competence to national and provincial
government with respect to environment and pollution control (Constitution, section 146). It
assigns exclusive legislative competence to the local government in matters of cleansing and
refuse removal, refuse dumps and solid waste disposal. Section 156(1)(a) of the
Constitution, read with Schedule 5, assigns this responsibility for refuse removal, refuse
dumps, solid waste disposal and cleansing to local government.
The National Environmental Management Act provides instruments for integrated waste
management. It also places a ‘duty of care’ on any juristic person who may cause significant
pollution or degradation of the environment. It requires them to institute measures to either
prevent pollution from occurring, or to minimise and rectify the pollution or degradation
where it cannot reasonably be avoided.
Based on the NEMA framework, the most innovative feature of the NEMWA is the preference
for the regionalisation of solid waste management services. The Act also place considerable
emphasis on the development of an integrated waste planning system, through the
development of integrated waste management plans (IWMP) by all spheres of government
and industry waste for specified waste generators identified by the national and / or
provincial Minister.
3.2 Roles and responsilities
The National Government, and in particular the Department of Environmental Affairs (DEA),
is ultimately responsible for ensuring that the NEMWA is implemented and that the various
provisions are harnessed in the most appropriate and effective way possible. The Waste Act
specifies various mandatory and discretionary provisions that the DEA must address. In
terms of mandatory provisions, the DEA is responsible for:
2012 SAOE Waste Chapter Draft 2
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• Establishing the National Waste Management Strategy
• Setting national norms and standards
• Establishing and maintaining a National Contaminated Land Register
• Establishing and maintaining a National Waste Information System
• Preparing and implementing a National Integrated Waste Management Plan.
Provinces are the primary regulatory authorities for waste activities, except for activities for
which the Minister is the authority. It must promote and ensure the implementation of the
National Waste Management Strategy and national norms and standards. Provinces have a
number of discretionary powers, some of which may only be exercised in consultation with
the Minister e.g. setting provincial norms and standards, declaring priority wastes, listing of
waste management activities, registering waste transporters, requesting the preparation of
industry waste management plans, identifying contaminated land and establishing provincial
waste information systems.
Municipalities must provide waste management services, which include waste removal,
storage and disposal services, as per Schedule 5b of the Constitution. Municipalities are
expected to facilitate local solutions such as material recovery facilities and buy-back
centres, rather than provide the entire recycling infrastructure themselves. They must also
submit integrated waste management plans (IWMP) to the competent provincial authorities,
and the municipal annual performance report must include information on the
implementation of the IWMP. This plans, like all other key municipal deliverables, must be
incorporated in the Integrated Development Plan (IDP).
At their discretion, municipalities may set local waste service standards for waste separation,
compacting, management and disposal of solid waste, amongst others. Local standards
must be aligned with any provincial and national standards where these exist. Table 1
provide a summary of allocation of waste management functions.
Area Function Activity Current assignment Issue
Nat Prov Local Pvt
Policy Making
Standard Setting
Norms and standards Access targets
X X
X X
What is to be provided
Planning Plans for service expansion
Plans for service improvements
X X
X X
X
Adequate facilities and services
Service
Provision
Assets
Creation
Social capital
Physical capital
X
X
X
Adequate facilities and
services
Financing Tariffs
Subsidies to consumers Grants to service
providers
X
X
X
Financial sustainability
Operations Consumer selection Recurrent expenditure
General area cleansing Minimization
Collection Transportation
X
X X
X X
Effective and sustainable service
2012 SAOE Waste Chapter Draft 2
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Disposal
Maintenance Staffing
X
X X
Regulation Monitoring and
evaluation
Economic Finance
Operational Monitoring & Evaluation
X X
X X
X X
X X
X X
X X
Quality of service delivery
Table 1 Allocation of Solid Waste Management Functions (DEA , 2007)
3.3 Mechanisims to effect South Africa’s international waste obligations
South Africa recognises the importance of international cooperation in dealing with complex
waste management issues, particulalry as it applies to highly dangerous materials and
internationally prioritised waste streams. As such, the country has acceeded to various
international agreements related to waste management, non-binding conventions and
protocols relevant to waste management.
The Waste Act (section 6.(1)(b)) requires that the National Waste Management Strategy to
establish “mechanisms, systems and procedures to give effect to the Republic’s obligations
in terms of relevant international agreements”. There are various international
agreements/conventions and protocols that relate to waste management, and to which
South Africa has acceded, including:
• The Basel Convention, 1989, dealing with the controlling the transboundary
movement of hazardous waste
• The Montreal Protocol, 1989, which focuses on phasing out ozone depleting
substances (many of which can be classified as waste)
• The Rotterdam Convention, 1998, which provides for prior informed consent
regarding the importation of hazardous chemicals
• The Stockholm Convention, 2004, on persistent organic pollutants.
These main relevant international agreements should be considered in relation to the
National Waste Management System (NWMS) and are summarised below.
The Basel Convention, adopted in 1989, has the greatest bearing on the NEMA:Waste
Act. It addresses the trans-boundary movement of hazardous wastes and their disposal,
setting out categorization of hazardous waste and policies between member countries. The
Department of Environmental Affairs is considering accession to the amendments to the
Basel Convention that puts a ban on import and export of hazardous waste materials. The
DEA is developing a policy on imports and exports of waste and is in cooperation with the
Department of Trade and Industry jointly addressing the import and export control aspects
of the Basel Convention, together with the chemical Rotterdam and Stockholm conventions.
Annex I to the Basel Convention provides a list of hazardous waste substances that meet
the criteria of being explosive, flammable, toxic, or corrosive. The convention applies to any
waste that is defined as “hazardous” by any country through which the waste travels, or is
imported or exported from. By implication, the convention does apply to any waste
identified in the South African national legislation as “hazardous”.
The Basel Convention provides for the import and export of hazardous waste on the basis of
informed consent and stringent tracking of all movements of hazardous waste across
2012 SAOE Waste Chapter Draft 2
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countries. The department is embarking on a process of developing a national policy on
import and export of wastes and near end of life goods. This policy / regulation will assist in
further controlling wastes coming into and out of the country.
The Montreal Protocol protects the ozone layer by phasing out the production of several
substances that contribute to ozone depletion, with the aim of ozone layer recovery by
2050. The protocol is designed to protect the Ozone layer by progressively phasing out the
use of a variety of gases (CFCs and HCFCs) that have been found to have the potential to
deplete the ozone layer in the atmosphere. In terms of the Waste Act, ‘priority wastes’ are
substances that require specific waste management measures due to the threat they pose
to health and the environment. It is on this basis, that the likelihood for some chemicals
listed under the treaty, are declared as ‘priority waste’ in South Africa.
The Department of Environmental Affairs is in the process of publishing the National
Implementation Plan for the Montreal Protocol. The plan includes the development on an
Ozone Depletion Substance (ODS) strategy and regulations will provide for the phasing out
of specified substances and their safe disposal.
The Rotterdam Convention sets out shared responsibilities in relation to importation of
hazardous chemicals and defines a Prior Informed Consent (PIC) procedure that specifies
standards for labelling and documentation of banned or severely restricted chemicals that
must be adhered to during their import and export. It also provides a criteria for a
notification process by which countries can add to the list of chemicals to which the PIC
procedure will apply in their jurisdiction.
The provisions of the Waste Act for regulation in relation to the import and export of priority
wastes clearly provide a potential mechanism for the implementation of the Rotterdam Act,
as do the provisions for extended producer responsibility. Over and above this, the
convention clearly specifies that each signatory country must designate a national authority
responsible for preventing or regulating the import and export of hazardous chemicals,
including maintaining a national database of such chemicals.
The Stockholm Convention on Persistent Organic Pollutants (POPs), which entered into
force in 2004, requires that member countries phase out POPs and prevent their import or
export. The Stockholm Convention on Persistent Organic Pollutants (POPs) deals with a
category of chemical compounds that harmfully accumulate in the food chain (bio-
accumulation) and as a result damage the integrity of ecological systems. It does not deal
specifically and only with waste. However, it is likely that the Waste Act may be used to
declare chemicals controlled under the convention as ‘priority wastes’ for better control
including phasing out.
Signatories to the Convention are required to undertake the following responsibilities: i)
Develop and implement appropriate strategies, ii) Identify stockpiles, products and articles
in use that contain or are contaminated with POPs; iii) Manage stockpiles and wastes in an
environmentally sound manner; iv) Dispose of waste in a way that destroys or irreversibly
transforms POPs content; v) Prohibit recycling, recovery, reclamation, direct re-use or
alternative use of POPs; and vi) Endeavour to develop strategies to identify contaminated
2012 SAOE Waste Chapter Draft 2
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sites and perform eventual remediation in an environmentally sound manner. A National
South African Implementation Plan has been developed and will be reviewed in light of the
NEMWA.
3.4 Performance monitoring
The link between waste management and national performance targets is crucial as it
provides a yardstick to measure progress and identify possible challenges with regard to
waste. As such, the Presidency has developed a system to monitor government
departments’ perfomance in rendering services to the citizens.
Waste management is directly linked to Outcome 10 of the Presidential Delivery Agreement
i.e. Environmental assets and natural resources are well protected and continually
enhanced. Based on this performance system and its targets, waste management
contributes to two of the outputs under Outcome 10, namely:
• Output 2: Reduced greenhouse gas emissions, climate change and improved air
quality; as waste minimisation, diversion of waste from landfill, composting and
reduced resource consumption will help to reduce CO2 emissions
• Output 3: Sustainable Environmental Management, as less and better managed
waste is a key component of sustainable environmental management. Particular
emphasis is placed on reduction of waste disposal to landfill sites, and a number of
unlicensed waste disposal facilities.
Apart from Outcome 10, which is key in driving performance monitoring and set clear direct
outcomes for waste management, any actions taken to meet the requirements of this
outcome will also indirectly support: Outcome 4: Decent Employment through Inclusive
Economic Growth; and Outcome 8: Sustainable Human Settlements and Improved Quality of
Household Life.
It evident from the outcomes set out in the Presidential Delivery Agreement that waste
management is an essential sector, critical in meeting national economic and social
development objectives.
4 The socio-economic contribution of South Africa’s waste
management system
Over the past recent years, South Africa has strived towards an improved, equitable and
sustainable waste management regime. With good legislation in place, clarity in functioninal
roles and responsiblities, international lessons and commitments, and sufficient technical
capacity and human capital, the South African approach demontrates the country’s drive
towards an efficient world class system for waste management.
A number of opportunities for continous improvements exist within the enabling legal
framework and institutional arrangements on waste management. Emphasis for future
improvements is placed on key system elements that can triggers higher efficiency in the
waste service sector. These include:
2012 SAOE Waste Chapter Draft 2
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• Service level agreements and contracting of services amongst key role players in
government. In instances where spheres of government (e.g. district and local
municipalities) share responsibilities, a clear contracting framework is required. This
contractual arrangement must ensure that a single authority remains politically and
administratively accountable for the service
• Regionalisation of service delivery: The trend towards greater decentralisation has a
potential to complicate the waste management system. A new emphasis on
regionalisation means better efficiency and transparency of service. This will ensure
that resource mobilisation is maximised. An obstacle to regionalisation is funding of
services. This is because according the Municipal System Act, when two local
municipalities perform the same function, that same function becomes elevated to
the district. On the other hand, the Municipal Infrastructure Grant (MIG) funds are
no longer allocated to the districts. As a result, funding of such functions by the
districts poses a challenge
• Ring-fencing of solid waste finances: A system where all revenue collected from
waste management service provision is ring-fenced towards improving the same
service is desirable within government institutions. Such a system for South Africa
will result in improved financial management, re-investment into waste facilities and
infrastructure, improved financial accountability and fair waste management service
delivery.
South Africa remains in the forefront on environmental protection amongst developing
countries and is committed to implement a world class system that will improve waste
management in the country. This takes stalk of the fact that government is, in some
instances, in competition with the private sector companies in rendering waste management
service.
4.1 Employment creation
Despite the positive economic projectory of South Africa, unemployment remains rife
amongst skilled and unskilled people. This has led to government encouraging all sectors to
quantify potential employment opportunities that can be created whilst rendering services.
Given the nature of the waste sector, there are hidden opportunities that needs to be
unclocked, in order for this sector to contribute significantly to job creation.
The economic contribution of the waste management sector can be assessed from the
premise of invested capital injected by government and other sectors in the delivery of
waste services. To this end, it is estimated that the total annual expenditure on solid waste
management in South Africa is approximately R10 billion per annum. An approximation is
that about 70% of this expenditure is through the public sector, largely local government,
while 30% is private sector expenditure (StatsSA, 2007). However, some components of the
sector may not be accurately accounted for in these figures, such as e.g. industrial and
manufacturing waste components. Figure 2 provides an estimate employment creation of
113,505 by the total waste sector:
2012 SAOE Waste Chapter Draft 2
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Figure 2: Waste sector employment estimates (DEA, 2009e)
The National Treasury has identified municipal solid waste management as one of the areas
of municipal functioning with the greatest potential for job creation, particularly with respect
to unskilled or semi-skilled labour (National Treasury, 2008). It is clear from figure 2 that
within the waste management sector in general, labor intensive waste collection for
recycling purposes has a great potential of creating more employment opportunities,
followed by the public and private sector respectively. Therefore current efforts by
government to encourage recycling will be intensified. Table 2 provides the employment
trends in waste management departments in municipalitries between the 2005 and 2006
financial years.
2005 2006
Category Total
positions Positions
filled % positions
vacant Total
positions Positions
filled % positions
vacant
Metros 11,073 9,454 14.6 10,491 8,708 17
Category B and C
13,514 12,106 10.4 13,439 11,797 12.2
Total 24,587 21,560 12 23,930 20,505 14
Table 2. Employment within municipal waste management departments (National Treasury, 2008)
Within the public sector waste management, municipalities are generally expected to have
created increasing employment opportunities. This is due to the mandatory legislative
responsibility to provide for cleansing, general waste collection and disposal. However, there
appears to be a decline in the number of available employment opportunities (posts) in
refuse removal services within waste departments in municipalities. In instances where such
opportunities exist, there is a sizeable number of vacancies in municipalities (12-14%). It is
evident from table 2 that metropolitan municipalities have experienced the highest vacancy
rates at 15-17% (National Treasury, 2008).
Waste Secto r Emplo yment Est imates
Public, 20,505
Private (guesstimate),
9,000
Recycling, 84,000
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4.2 Muncipal revenue
The waste management service function within municipailities contributes significantly
towards municipal income and revenue due to the user-pay principle applied for waste
management. Municipal citizens become consumers and payers for these services. It can be
assumed that within the 2007/08 financial year, municipalities received a total income of
R6.5 billion for solid waste, of which refuse removal charges accounted for around R3.5
billion, see table 3 (StatsSA, 2009). This demonstrate a financial input into municipal budget
income streams from waste management services of around 6% of total municipal
revenues, and around 3% from refuse removal charges alone.
According to StatsSA’s non-financial census of municipalities, there has been an 8% increase
in revenue collected from refuse removal charges in South African municipalities between
2007 and 2008 (StatsSA, 2009).
2007 2008
Income R million % contribution R million % contribution
Refuse removal charges 3,225 2.9 3,476 2.7
Sewerage and sanitation charges 4,474 4.1 4,875 3.8
Property rates received 18,331 16.6 20,956 16.4
Grants and subsidies received 29,244 26.6 35,535 27.8
Water sales 11,595 10.5 12,562 9.8
Electricity and gas sales 25,589 23.2 27,880 21.8
Other income 17,666 16.0 22,347 17.5
Total income 110,123 100 127,630 100
Table 3. Financial census of municipalities (StatsSA, 2009)
4.3 Capital investment in the waste sector
Capital investment into the waste sector is important in order to enhance and sustain waste
services. For now, there is no full cost accounting meausures in place to justify investment
in the input costs of the waste services, e.g. the return on investment, the quality
improvement of the service, or the accuracy of what the service actually costs.
Table 4 provide example estimation of capital investments in the waste sector that may
assist in providing a perspective of the capital expenditure required to continue providing
the capital base required. It can be seen that permitted landfill sites in average cost R50
mill, permitting un-permitted landfill sites around R30 mill, and hazardous waste disposal
sites around R200 mill.
Indicator Value (where available)
Estimated value of permitted landfill sites 500 sites @ R50 million/site = R25 billion
Estimated cost of permitting un-permitted landfill sites 1 500 sites @ R20 million/site = R30 billion
Estimated value of hazardous waste disposal sites 30 sites @ R200 million/site = R6 billion
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Table 4 Estimates of capital investment in the waste sector (Goldblatt, 2009)
Table 5 provides example approved costs for waste management services for improved
waste management services in municipalities in 2006-08. Research and investigations into
the costs of landfills and vehicles suggests that these costs vary significantly from
municipality to municipality, and are strongly influenced by contextual local factors.
Generating average cost therefore proves difficult (Goldblatt, 2009).
Type of capital
investment Municipality
Estimated
cost/budget (R) Year
New landfill (to replace
three existing landfills) City of Cape Town (metro) 433 million 2008/09
Investigate and develop new
general landfill Emfuleni LM (Category B1 municipality) 895,000 2006/07
New landfill Mbombela LM (Category B1 municipality) 732,462 2005/06
Compactor Truck Umhlathuze (Category B1 municipality) 1.4 million 2006/07
Compactor Truck Thaba Chweu Municipality (Category B3
municipality) 760,000 2006/07
Table 5: Cost estimates for capital investments in solid waste (Goldblatt, 2009)
5 Waste generation and trends in South Africa
Waste is typically divided into two classes based on the risk the waste poses, namely
general and hazardous waste.
• General (or municipal) solid waste is defined as "waste that does not pose an
immediate hazard or threat to health or to the environment, and includes domestic
waste, building and demolition waste, business waste and inert waste. (Waste Act,
2008). The Act further defined domestic waste as meaning “waste, excluding
hazardous waste, that emanates from premises that are used wholly or mainly for
residential, educational, health care, sport or recreation purposes”
• Hazardous waste is defined as “any waste that contains organic or inorganic
elements or compounds that may, owing to the inherent physical, chemical or
toxicological characteristics of that waste, have a detrimental impact on health and
the environment” (Waste Act, 2008).
In this section, status is made on generation rates, status, trends and risks for these two
classes of waste.
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5.1 General waste
5.1.1 Municipal solid waste
General municipal waste is not the largest waste category by volume in South Africa (the
largest waste category is industrial and mining waste), but it is the most significant in terms
of public financing and the impact that it has on the day-to-day lives of ordinary citizens
(DEA, 2009a).
Municipal solid waste constitute a large percentage of the total waste generated in urban
and rural areas. Municipalities are the key players in dealing with general non-hazardous
waste. A total of 239 municipalities performed solid waste management functions in 2009,
up from 226 in 2005, servicing in 2009 around 8,4 mill households, or 64,5 % of all
households. The data since 2005 suggests that solid waste functions are increasingly being
assigned to local municipalities, also in predominantly rural areas.
2006/
07
2007/
08
2008/
09
2009/10 2010/1
1
2011/1
2
2012/1
3
% average annual
growth
R Million Outcome Preliminary
estimates
Medium-term estimates 2006/07
-
2009/10
2009/10
-
2012/13
Metros 1280 2465 2965 2841 4909 5343 5794 30.4% 26.8%
Local
municipalities
673 731 1268 2256 3050 2895 3064 49.6% 10.7%
Secondary
cities
476 506 737 1115 1540 1396 1522 33.6% 10.9%
Large Towns 142 142 311 444 640 655 644 46.0% 13.3%
Small Towns 50 57 130 581 653 628 662 126.7% 4.4%
Mostly rural 14 25 90 116 217 217 235 104.0% 26.6%
Districts 8 11 9 34 37 37 35 65.3% 0.9%
Total 1960 3206 4243 5131 7996 8275 8893 37.8% 20.1%
Table 6: Operating revenue for solid waste function by category municipality, 2006/7-2012/12 (National
Treasury, 2011)
There is a clear indication that municipalities’ revenue income from solid waste services has
been growing rapidly in the last decade, see table 6. Some of this growth can be attributed
to more complete reporting of this category of revenue as municipalities move towards
identifying the streams of revenue associated with their respective services. Metros revenue
related to solid waste services is budgeted to grow by 27 % over the next decade.
South Africa has experienced rapid growth in waste volumes, associated with a prolonged
period of economic growth. About 42 million cubic metres of general waste required
collection and disposal in 1997. During the next 11 years, general waste generation rose to
nearly 67 million cubic metres, or by 62.5%. This represents an annual average growth rate
2012 SAOE Waste Chapter Draft 2
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of 4.8%, with higher growth rates projected for the Free State and Mpumalanga, as per the
table 7. Concurrently there has been a growing financial resource allocation to waste
services, which can be attributed to growth in demand for service due to urban population
growth, urban expansion and increased economic activity.
Province
1997 2010 Growth
m3
% of
total m3
% of
total Total %
Annual
Average %
Eastern Cape 2 281 000 5.4% 3 105 989 4.5% 36.2% 2.8%
Free state 1 674 000 4.0% 3 877 380 5.6% 131.6% 10.1%
Gauteng 17 899 000 42.4% 26 085 304 38.0% 45.7% 3.5%
KwaZulu-Natal 4 174 000 9.9% 5 749 959 8.4% 37.8% 2.9%
Mpumalanga 3 831 000 9.1% 11 200 387 16.3% 192.4% 14.8%
Northern Cape 733 000 1.7% 956 369 1.4% 30.5% 2.3%
Northern
Province 1 470 000 3.5% 2 374 864 3.5% 61.6% 4.7%
North West 1 625 000 3.8% 2 296 489 3.3% 41.3% 3.2%
Western Cape 8 543 000 20.2% 12 979 785 18.9% 51.9% 4.0%
Total 42 230 000 100.0% 68 626 526 100.0% 62.5% 4.8%
Table 7: Estimated general waste generation by province, 1997 and 2010 (DWAF, 2001 and G Purnell, 2009)
The best available data on domestic and commercial waste generated is reflected by the
waste disposed of to landfills accepting such wastes (Purnell, 2009). Data assessment of
estimated general waste disposed to municipal landfill sites across the country in 2006/07 is
reflected in table 8.
Municipality Category Number Average waste disposed (tons / annum)
Total waste disposed (tons / annum)
A Metropolitan municipalities 6 2 419 000 14 514 400
B1 Municipalities with the largest budgets 21 155 684 3 269 364
B2 Municipal with larger populations and towns
29 65 410 1 896 890
B3 Municipalities with relatively small population
111 29 478 3 272 058
B4 Municipalities which are mainly rural 70 16 607 1 162 490
Total General Waste Disposed (2006/7) 24 115 402
Table 8 : Estimated general waste disposed of at “general” landfills 2006/7 (DEAT, 2007)
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The estimated total of 24,1 million tons per annum for 2006/7 compares with the estimate
of 20 million tons per annum for 2006 presented in “A Strategic Framework for Sustainable
Development in South Africa (DEAT, 2006 as quoted by Purnell, 2009). As standards of
living increase, it is to be expected that waste generation rates increase. However,
improving service levels in many municipalities may also result in increased collection
quantities. Demographics, socio-economic conditions and land uses are of particular
importance, as the community wealth level directly influences the type and amount of waste
generated (Purnell, 2009).
Municipality Category Access to Service %
A Metropolitan municipalities 80%
B1 Municipalities with the largest budgets 61%
B2 Municipal with larger populations and towns 60%
B3 Municipalities with relatively small population 55%
B4 Municipalities which are mainly rural 20%
Table 9: Percentage of households receiving a basic level of service (DEAT, 2007)
Table 9 provide DEAT figures in 2007 for how many households in South Africa received
basic levels of waste management services. These figures corresponds reasonable well to
StatsSA figures for households receiving waste services in the period 2005-07, see table 10.
The number of served consumer units has risen at almost 10% per year since 2005, with
8,06 million households served. Access to services is greatest in metro areas (92.5%) and
small towns (73.5%), while it is lowest in rural municipalities (16%). Access levels are
lowest in Limpopo (25.5%), followed by the Eastern Cape (46.6%) and Mpumalanga
(46.7%). It is further reported that 64.5% of South African households had access to some
form of solid waste management service in 2007.
Category Total h’holds
(2007)
Consumers receiving services % of all
h’holds (2007) 2005 2006 2007
Metro's 4 714 022 3 421 122 4 029 732 4 358 630 92.5%
Secondary Cities 2 207 003 1 232 347 1 253 940 1 389 260 62.9%
Large towns 1 095 456 564 322 587 670 628 276 57.4%
Small Towns 1 637 412 983 981 1 066 597 1 204 108 73.5%
Largely Rural 2 824 259 493 226 413 560 453 061 16.0%
Districts* 22 482 6 357 28 906 29 531
TOTAL 12 500 634 6 701 355 7 380 405 8 062 866 64.5%
Table 10: Access to waste management services (Stats SA 2007 and 2008 – as quoted by Purnell, 2009)
The majority of domestic waste is collected by municipal services and transported either
directly, or via a transfer station, to disposal. Collection services include the use of purpose
compactor equipped vehicles, tractors, trailers, small trucks or utility vehicles. In many
informal areas collection may be by hand to a centrally placed skip, which is uplifted
regularly, or when full (Purnell, 2009). As summarised in table 10 and 11, percentage access
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to services has a direct correlation to the amount of waste collected, and ultimately disposed
to the landfill sites.
Municipality Category Number of municipalities
Average waste collected (t/y)
Total waste collected (t/y)
A Metropolitan municipalities 6 1 752 613 10 515 678
B1 Municipalities with the largest budgets
21 247 743 5 202 603
B2 Municipal with larger populations and towns
29 129 351 3 751 179
B3 Municipalities with relatively small population
111 16 041 1 780 551
B4 Municipalities which are mainly rural
70 98 6 860
Total General Waste Collected (2006/7) 21 256 871
Table 11: Estimate of waste collected by Municipalities (2006/7)(DEAT, 2007)
As seen in the tables 10 and 11, the accounted figure of 21,3 million tons per year of
general waste collected during 2006/7, is less than the total general waste disposed (24,1
million tons per year) due to private contractors (mostly business) collecting waste and
transporting it to the disposal facilities.
Less than
weekly
Commu
nal refuse
dump
Own refuse
dump
No rubbish
disposal Other TOTAL
% of total
h’holds
Total
Households
Metro's 81 558 113 496 255 026 133 474 17 861 601 415 12.8% 4 714 022
Secondary Cities 30 313 54 398 512 993 113 776 3 448 714 928 32.4%
2 207 003
Large
towns 22 316 23 665 70 639 4 662 121 282 11.1%
1 095 456
Small Towns 41 947 39 372 124 337 4 418 210 074 12.8%
1 637 412
Largely
Rural 449 004 9 130 458 134 16.2%
284 259
Districts 1 379 141 1 520 6.8% 22 482
Total 176 134 230 931 768 019 892 609 39 660 2 107 353 16.9% 1 250 0634
Table 12: Consumers with inadequate access to services by municipal context (Community Survey, 2007, as
quoted and adjusted by Purnell, 2009 and National Traesury, 2011)
Table 12 indicate that more than 1,4 million households in large cities (metro’s, secondary
cities, large towns) currently receive below basic levels of service. This amounts to 56% of
2012 SAOE Waste Chapter Draft 2
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the total number of households (Community Survey, 2007). The inability of municipalities to
service e.g. informal settlements and other under-serviced areas result in uncontrolled and
unsafe waste disposal activities. Therefore waste management services for informal
settlements, particulary within the metropolitan municipal areas, lead to illegal disposal and
threatens the environment and/or the health of the people living in these areas. In most
informal settlement where services are inadequate, there is a high manifestation of rodent
populations, which normally carries communicable diseases.
The finalisation of the Policy on Free Basic Refuse Removal Services for Indigents
communities has brought some relief to those who cannot afford to pay for the basic
services. Some municipalities have already begun implementation of measures outlined in
the policy, like free basic refuse service subsidies, in order to accommodate the poor. Table
13 provides the percentage of households receiving Free Basic Service. Adoption and
implementation rates are lowest in largely rural municipalities.
% consumers receiving FBS
% with policy
%
implementing FBS 2005 2006 2007
Metro's 70.8% 54.9% 41.2% 100.0% 100.0%
Secondary Cities 33.8% 30.8% 25.2% 100.0% 100.0%
Large towns 25.4% 26.4% 33.2% 93.1% 82.8%
Small Towns 32.4% 47.6% 53.6% 90.9% 89.1%
Largely Rural 43.4% 43.1% 44.3% 71.4% 58.7%
Districts 25.4% 63.9% 76.9% 91.7% 66.7%
TOTAL 52.5% 46.8% 39.9% 87.4% 80.8%
Table 13: Coverage of Free Basic Refuse (Services: StatsSA, 2007)
5.1.2 Building and Demolition waste
Construction and demolition wastes is defined as non-hazardous waste resulting from the
construction, remodelling, repair or renovation and demolition of built structures or physical
infrastructure. These wastes include concrete, bricks, masonry, ceramics, metals, plastic,
paper, cardboard, gypsum drywall, timber, insulation, asphalt, glass, carpeting, roofing, site
clearance and sweepings, and excavation materials.
There is limited published information on the composition and amount of construction and
demolition waste in South Africa. However, observations indicate that construction and
demolition sites generate substantial commingled wastes (mixtures of concrete, masonry,
ceramics, metals etc) from building sites (ie. little or no separation of material types);
asphalt, concrete and excavated materials from road construction, maintenance and
rehabilitation; and site clearance and excavation waste from “greenfield” developments
(Purnell, 2009).
5.1.3 Tyres
In an assessment of the ‘National Waste Quantification and Waste Information System’, one
of the waste streams assessed was waste tyres (Purnell, 2009). The findings indicates that
2012 SAOE Waste Chapter Draft 2
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the total mass of new pneumatic tyres entering the South African market is approximately
175 00 tons per year. Once used this mass is reduced to approximately 150 000 tons per
year, a yearly amount that requires recycling, treatment or disposal.
There are limited avenues to legally dispose of waste tyres. Disposal at landfill sites is
problematic due to the physical properties of tyres. Many landfills do not accept waste tyres,
while some charge a higher rate for tyre disposal. Tyres are often burnt in open fields,
causing health hazards due to smoke and residuals in soil.
Tyre recycling currently is limited to one recycling plant in Cape Town producing rubber
crumb, and approximately 11 other smaller recycling operators who produce cut, stamped
and punched items, like sandals, mats, etc., but this is limited as they can only use waste
tyres that do not contain steel belts. Some waste tyre collectors are accumulating stockpiles
of waste tyres.
This means that vast numbers of waste tyres are being disposed of illegally. The majority
are illegally dumped, while some are “refurbished” by repairing or re-grooving tyres for sale
as part-worn tyres. Illegal burning of waste tyres is also common in winter or in remote
open fields, with no easy access. This imposes serious atmospheric impact, particularly in
areas declared as air quality priority areas according to the NEMA: Air Quality Act.
The Department of Environment Affairs has developed the Waste Tyre Regulation, which
came into effect in 2009 (the Waste Tyre Regulations, 2009, Government Gazette No
R9032). Since its promulgation, tyre dealers in South Africa had to sort all used tyres into:
Retreadable casings; part worn tyres (complying with Road Regulations); and the balance as
waste tyres (all passenger and light commercial waste tyres must be rendered unusable).
Waste tyres may only be disposed of to end users for recycling, or to landfill.
5.1.4 Industrial packaging
According to the study conducted by Responsible Packaging Association of Southern Africa
on Industrial Packaging in South Africa (RRPMASA) (Purnell, 2009), the following 32
manufacturers manifacturing industrial packs or containers were identified:
• Steel drums (open-end and tight head), 200, 210 and 230ℓ - 5 manufacturers
• Plastic drums, PE-HD (open end and tight head), 220 and 235ℓ - 4 manufacturers
• Intermediate Bulk Containers (IBC), PE-HD, 1000ℓ as well as 1000ℓ roto-moulded
flow bins, - 2 manufacturers
• Plastic drums, PE-HD, 20 and 25ℓ - 13 manufacturers
• Steel drums, 20 and 25ℓ - 3 manufacturers
• Plastic and steel containers, odd sizes between 25ℓ and 210ℓ - 5 manufacturers.
There is presently an immerging industry re-conditioning and reprocessing industrial
packaging for re-use. Reconditioning processes vary from rinsing, inspection and dispatch
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for re-use, through to rinsing, pressure testing, and furnaces and coating facilities. Some of
these processes are obviously capital intensive. The reconditioning processes followed are
also different for plastic and steel containers. There are 27 reconditioning and reprocessing
entities listed on the RRPMASA database. The number of containers locally manufactured,
reconditioned and recycled in 2008 is provided in table 14 below.
Steel
manufactured
Steel
Reconditioned
%
Reconditioned
Plastic
manufactured
Plastic
reconditioned
%
Reconditioned
Plastic
recycled
% recycled
% Recovered
20 & 25 litre N/A 14 000 N/A 9 933260 74 442 0.75% 823 235 8.29% 9.04%
>25 &<210
litre 1 189 000 8 036 0.68% 394 800 2 474 0.63% N/A N/A N/A
210 litre 2 029 600 950 920 46.85% 624 000 64 343 10.31% 810 0.13% 10.44
%
Intermediate
Bulk
Containers
- - - N/A 75 971 N/A 50 N/A N/A
Table 14: Locally Manufactured, Reconditioned and Recycled Industrial Containers (RPMASA, 2009) as quoted by
Purnell, 2009)
It is evident that a very small portion of containers are reconditioned or recycled. Of all
respondents in the mentioned survey, only three noted that they dispose of end-of-life
containers to landfill. However, a large number of industrial containers are disposed to
landfill by the users, or find secondary applications, both of concern due to the health and
environmental risk of residues in such containers.
5.2 Hazardous waste
Waste is hazardous according to whether it is flammable, reactive, corrosive or toxic and it
cannot be dumped into a landfill without any treatment. Hazardous waste is furthermore
graded from extreme to non-toxic in nature and this grading determines the appropriate
disposal techniques. Extreme hazardous waste, such as cyanide and mercury, needs to be
encapsulated, stored, treated and then destroyed. Hazardous waste is therefore classfied in
terms of a specific set of risks that they might pose to the natural environment, human
health and/or built environments, which include:
• Explosion or fire
• Infections, pathogens, parasites or their vectors
• Chemical instability, reactions or corrosions
• Carcinogens and mutagens
• Toxicity, including persistence in the food chain and ecological system.
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Various types of hazardous waste can be identified, e.g. organic and inorganic chemicals,
oily wastes, putrescent animal or vegetable matter, high volume wastes with a low
concentration of hazardous substances such as heavy metals and oils. Hazardous wastes are
divided into four categories based on the level of risk, and these categories are indicative of
the type of landfill site at which they can be disposed, see table 15.
Classification Example Category of disposal site
HR 1: Extreme hazard Hg and PCBs HH
HR 2: High hazard Mn and Zn HH
HR 3: Moderate hazard Ni and phenol Hh
HR 4: Low hazard Ethanol Hh
Non-toxic/non-hazardous Domestic waste G
Table 15 Hazardous waste classification (DEA, 2009a)
Waste from the first two categories of risk (extreme and high) can only be disposed of at
landfill sites with an H:H rating, at which appropriate measures have been taken to mitigate
risk. Categories 3 and 4 (moderate to low) can be disposed of at landfills with either an H;H
rating, or a H:h rating.
In terms of implementing the waste hierarchy for industrial waste, the NEMWA emphasisis
waste avoidance and reduction due to the significant environmental impact of this waste,
and the potential harmful consequences for human health. Where hazardous wastes cannot
be avoided, emphasis is placed on regulation, not only in defining standards for treatment
and disposal, but also in ensuring reuse and recycling takes place in a safe and responsible
manner.
In as much as hazardous waste are regulated under separate legislation, certain classes of
hazardous waste are not regulated by the Waste Act. These include; radioactive waste,
which is regulated by the Hazardous Substances Act, 1973, the National Nuclear Regulator
Act, 1999, and the Nuclear Energy Act, 1999; residue deposits and stockpiles from mining,
which are regulated by the Mineral and Petroleum Resources Development Act, 2002;
explosives, the disposal of which is regulated by the Explosives Act, 2003; and Animal
carcasses, the disposal of which is regulated by the Animal Health Act, 2002.
South Africa’s sole nuclear waste management site, Vaalputs in the Northern Cape, is to
house high-level waste within the next ten years, according to the Nuclear Energy
Corporation of South Africa (NECSA). The site only deals with low and intermediate level
waste from the Koeberg nuclear power station. The high-level waste is stored at
underground facilities at Pelindaba and Koeberg but South Africa needs a fully operational
high-level waste management site by 2070 to deal with spent fuel accumulated at Pelindaba
and Koeberg.
An overview of the status of hazardous waste in South Africa can be sourced from Provincial
Hazardous Waste Management Plans (HWMP). Table 16 provide an overview assessment of
hazardous waste generation and treatment as reported in provincial plans (IHWMP), also
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showing that only three Provinces have completed Provincial Integrated Hazardous Waste
Management Plans, namely Western Cape in December 2006, Gauteng in September 2007,
and North West Province in October 2006 (DEA, 2007). It can e.g. be seen that in Gauteng
almost all hazardous waste generated is disposed to landfills, and that in Western Cape and
North West most hazardous waste generated is un-accounted for in relation to treatment or
landfilling. The data obtained for Gauteng reflect an increase from 232,000 tons in 1997 to
385,000 tons in 2006 in hazardous waste disposal to landfill. The figures for Western Cape
reflect a decrease from 131,000 tons per year in 1997 to 11,162 tons in 2006.
Province / Year
Hazardous Waste
Waste generated (t/a) Waste treated recycled
or other (t/a) Landfill (t/a)
Gauteng (2006) 446,200 48,000 385,000
Western Cape (2006) 55,810 11,162
North West (2005) +/- 20 0000 +/- 4 000
Table 16: Hazardous Waste Generation per Province (HWMP’s) (DEA, 2007)
In Gauteng, it was reported that a number of industries practise on-site treatment of
hazardous waste streams, prior to removal of disposal. However, this is mostly limited to
chemical treatment, mostly PH control for neutralisation of acid or alkali waste streams. In
most other cases where hazardous waste treatment occurs, it is generally removed and
performed by a waste management contractor before disposal to landfill as part of the
service. Other off-site hazardous waste treatments used in Gauteng were thermal processes,
chemical treatment and encapsulation. Only two hazardous waste treatment facilities were
identified, a thermal treatment facility in Olifantsfontein and a chemical treatment plant in
Germiston that treats and reclaims metals from effluents generated by the metal finishing
industry and precious metal refiners. A third treatment facility in Germiston was awaiting
licensing at the time of the Gauteng Integrated Hazardous Waste Management Plan (2007).
The Gauteng HWMP (2008) does not comment on the number of available hazardous waste
disposal facilities.
The Western Cape Hazardous Waste Hazardous Plan (2006) state that there were three
licensed hazardous landfills, with an estimated remaining lifespan between 7-13 years.
The North West Province Hazardous Waste Management Plan (2006) stated that hazardous
wastes were transported to the Holfontein hazardous landfill site in Gauteng, while delisted
wastes (hazardous wastes treated and permitted to be disposed of on suitable general
landfills) were transported to the Rosslyn and Reitfontein GLB landfills in Gauteng. Further,
specific hazardous wastes permitted by the authorities were being incinerated in the Holcim
Cement Kiln (Dudfield) and the PPC Cement Kiln at Dettoek in North West Province.
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The general lack of adequate reliable hazardous waste information for the other six
provinces that have not completed HWMP’s make quantifying a mass balance for hazardous
wastes difficult. The 2007 data represent best current available information.
In 2007 DEAT furthermore undertook a survey of five waste management companies
handling hazardous wastes in the four provinces of Eastern Cape, Gauteng, KwaZuluNatal
and Western Cape. The survey found that a total amount of 710,000 tons of hazardous
waste was disposed of by these companies, of which 117,500 tons was organic.
It can be mentioned that the formal transportation of hazardous wastes mainly is
undertaken by commercial waste management companies to treatment facilities, recycling
or disposal. The transport of hazardous substances is governed by legislation. Transport
Emergency Cards (Tremcards) must be carried by drivers and must supplement Hazchem
information that must be displayed on the vehicle.
Below is provided status on a number of specific hazardous waste streams.
5.2.1 Healthcare Risk Waste
Health care risk waste (HCRW) is used to describe waste emanating from public and private
health care (HC) institutions. HCRW includes infectious materials, sharps, hazardous
chemicals, diagnostic drugs, human tissue, sharps and residues of a radioactive nature. Due
to its infectious and hazardous properties this waste poses a threat to human health.
Exposure could be caused through a variety of routes such as punctures, abrasions or cuts
in the skin, inhalation through mucous membranes and ingestion. All individuals exposed to
HCRW are potentially at risk, including those within health care institutions that generate
HCRW, waste contractors who collect, transport and manage this waste and those who are
exposed to it as a consequence of careless management and illegal disposal (DEA, 2008).
Over the years there has been several studies which have determined the treatment
capacity for HCRW. In 2007 DEA undertook a study to determine the volume of HCRW
generated in the country. The study concluded that approximately 42,000 tons of HCRW
was generated annually in South Africa, 55% of which was generated in public health care
facilities. The study also included an assessment of the available treatment capacity which
was approximately 31,390 tons per year (excluding incinerators operating without air-
emission control equipment). A further treatment capacity of 36,860 tons per year was
predicted to come on stream during 2008 (DEA, 2008). As treatment facilities close down
and start up on a regular basis, these studies, however, are not precise.
In order to provide reliable statistics on treatment capacity for planning purposes, DEA
therefore today keeps a database of facilities and their respective planned treatment
capacities which has been provided in their licence applications. The database is updated
with new facilities as they are licenced. In order to determine the actual HCRW treated,
facilities are required to provide monthly reports on the tonnages of waste treated in the
previous month. These figures are required in term of the waste licences issued to the
facilities and are required to be signed off by the Chief Executive Officer to ensure
accountability.
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The DEA database holds 11 licenced treatment facilities in South Africa currently in
operation, see table 17. These 11 facilities have a combined treatment capacity of
approximately 4,800 tons per month assuming all facilities are operating at 80% capacity
providing an annual treatment capacity of approximately 57,600 tons. Noting that an annual
escalation in HCRW generation of 1.5% per annum has been applied to the generation
figures (based on the actual population growth rate of 1.06%) approximately 45,000 tons of
HCRW is generated annually (approximately 3,770 tons monthly). The current treatment
figures indicate a reserve treatment capacity of approximately 1,000 tons per month.
Province No. of
incinerators
Planned
incineration capacity tonnes/
month
No. of non-burn
facilities
Planned non-burn
capacity tonnes/ month
Eastern Cape 1 476
Free State 1 112
Gauteng 3 892 1 960
Kwazulu-Natal 2 992
North West 1 576
Western Cape 1 80 1 756
1,660 3,184
TOTAL MONTHLY CAPACITY 4,844
Table 17 HCRW treatment capacity per pronvince (DEA, 2008)
Although the figures indicate an excess in treatment capacity, the information received from
the facilities also indicate a high level of stoppage due to breakdowns, malfunctions and
planned and unplanned maintenance. Over the past 12 months the Department has found it
necessary to authorize the landfilling of substantial volumes of untreated HCRW due to
breakdowns at the treatment facilities. In order to better understand the capacity availability
of the treatment facilities, DEA has instituted a requirement for treatment facilities to report
on planned and unplanned stoppages which interrupts operations for more than 12
consecutive hours through an amendment to the facilities licence conditions. A national
enforcement strategy has also been implemented to improve compliance and a policy of
zero tolerance has been instituted with respect to transgressions within the sector.
Over the past eight years, a significant amount of work has been done by provincial and
national government towards achieving this objective. This work includes the assessment of
the feasibility of adopting a regional approach to the management of HCRW, the piloting of
HCRW segregation systems in an urban and rural environment, developing a national policy
and regulation on HCRW management, developing training courses for health care
professionals and monitoring the generation and capacity for the management of this waste
stream.
Additional work is currently underway, which will see HCRW regulation promulgated, a
review of the licenses of existing treatment facilities, development of a plan to roll out the
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segregation system for consideration by Cabinet, updating of the training program,
development of a database to record bed numbers and development of national tender
specifications for installation of the segregation infrastructure as well as the contracting out
of the HCRW management function for public hospitals.
5.2.2 Pesticides
A steady and consistent use of fertilizers for enhancing agricultural production by most
farmers in South Africa has been reported. In some cases, little or no biological pest control
methods are favoured, and as a result, pesticides is used exclusively to deal with pest.
Pesticides include herbicides, insecticides, fungicides, seed treatments and plant growth
regulators. The total market for agricultural pesticides in 2008 was approximately 49,970
tons. This represents the total amount of product, not the total amount of the active
ingredients (DEA, 2009a). The use of pesticides involves a number of environmnemtal and
helath concers, including obsolete or expired pesticides, normally stored on farms,
distributors, warehouses, and the unsafe storage and or disposal of these obsolete
pesticides. Cases of pesticides containers, with no labels, being used for storage of foodstuff
and water, particularly in poor communities, have been reported.
South Africa and six other African countries form part of Project 1 of the Africa Stockpiles
Programme (ASP), designed to address the accumulation of obsolete pesticide stockpiles in
Africa. As very little was known on the extent of the problem in South Africa, a pilot project
was launched to locate and collect obsolete pesticides in Limpopo province. As much as 80
tons of obsolete pesticides were collected in the province, leading to estimates of
approximately 700 tons being stockpiled throughout South Africa (DEA, 2009a).
Initiatives for collection and environmentally sound disposal of obsolete pesticides have
been embarked upon in the past but there have been recurrence of these waste streams. As
agricultural activities continue, there is a need for a sustainable solution for sound
management of this waste stream. Following the recent implementation of the Africa
Stockpiles Programme, the pesticides industry has submitted a draft Pesticides Industry
Waste Management Plan that proposes options for sustainable environmentally sound
management of pesticides wastes and their residues.
5.2.3 eWaste
Electronic Waste (e-waste) is a relatively new, but rapidly growing, hazardous waste.
Electrical and electronic waste, which includes white goods, consumer electronics, and IT is
classified as a hazardous waste, and is a growing global concern. Many developed countries
have taken steps to develop policy guidelines and legislation for developing e-waste
management systems (DEA, 2008).
In South Africa most of the e-waste processing is done by the private sector, which
responded to the profit potential in recycling discarded technology. For instance, scrap metal
recycling, including white goods such as fridges and washing machines, had been
undertaken for some time, as has the refurbishment of PCs for use in social projects,
including in schools or in disadvantaged communities. At the same time, printer cartridges
have been recycled, and ad hoc take-back schemes implemented. However, most of these
initiatives have been fragmented (eWASA, 2008).
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DEA through the NEM:Waste Act has requested some industries, among others the Lighting
Industry to submit Industry Waste Management Plans (IWMP). These plans shall outline
measures to be taken to minimise and manage waste emanating from this sector in an
environmentally sound manner. For instance, the Information Technology Association has
recently and voluntarily submitted its draft IWMP to the DEA for review and approval.
With the information age, eWaste will continue to grow exponentially, and rapidly become a
major waste challenge. Waste Electrical and Electronic Equipment (WEEE) can contain over
one thousand different substances, many of which are toxic and some that have a high
market value when extracted. In terms of implementing the waste hierarchy, the main
challenge lies in separating eWaste from general waste to facilitate safe and economically
sustainable recycling of this waste stream. Informal, private sector based, recycling of
eWaste is relatively prevalent, but often done without safety equipment, resulting in
potential harm to health, and contamination of the recycling site, as well as the release of
noxious fumes through the burning of plastic to access the valuable metals inside the
equipment. Formal recycling is typically a partially mechanized process, which separates
materials, whilst WEEE is often dismantled by hand and then separated before shredding.
Some mechanized processes do not necessarily allow for re-use or refurbishment, as the
whole object is put through a shredder, and the shredded output is then mechanically
separated using water, air or magnetism. The separated shredded plastics and metals are
then sent for reprocessing as recyclates (eWASA, 2008).
5.2.4 Mining waste
Section 4(1)(b) of the NEMWA specifically excludes mining residue deposits and stockpiles
from the scope of the Act, in as much as these are regulated in terms of the Mineral and
Petroleum Resources Development Act, 2002, (MPRDA). The regulatory framework for
mining residue stockpiles and deposits is under review, and in terms of the amendment to
the Mineral and Petroleum Resources Development Act, responsibility for the performance of
environmental authorisations will revert to DEA.
South Africa produce around 450 million tonnes of waste annually, of which 70% is
generated by the mining industry. Gold mines on the Witwatersrand Basin alone produce
105 million tonnes per annum (23% of the total) with about 200,000 tonnes of waste
generated for every tonne of gold produced. Much of this waste is deposited into tailings
dams, of which there are more than 270 on the Witwatersrand Basin, covering some 400
km2. These dams are all unlined and many are unvegetated, and can be a source of
extensive dust, as well as soil and water pollution (DEA, 2009a).
The production of mining waste on such a large-scale waste has serious consequences for
the environment. It causes dysfunctional hydrology, as well as acidification and salinisation
of soils, groundwater and surface water bodies, resulting in breakdowns in nutrient cycling
and environmental degradation. This can lead to losses in biodiversity and ecosystem
services, and, therefore, both tailings and contaminated water can be expected to eventually
contribute to negative health impacts in humans if mitigation measures are not put in place.
Environmental planning of waste disposal by the South African gold mining industry in the
past, although legal at the time, has since been proven to be environmentally unsound.
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Among common practice was the location of unlined tailings dams on natural pans,
wetlands, water courses and catchment areas, and the disposal of mine process water into
pans and unlined evaporation dams. Consequently, there have been a number of negative
environmental impacts as a result of this practice.
5.2.5 Metallurgical waste
The scrap metal recycling industry is well developed, with nearly 100 scrap metal dealers
belonging to the Metal Recyclers Association of South Africa, who process over 80% of all
scrap metal for beneficiation by the downstream industry. The World Steel Association
estimated that SA collected a total of 3,7 million tons of scrap (ferrous and non-ferrous) in
2007 (DEA, 2009).
The industry is typified by:
• Peddlars – individuals who collect or purchase scrap for re-sale to bucket shops,
scrap merchants or scrap processors
• Bucket Shops – typically 2-4 employees who buy scrap from peddlers and
transport small quantities using a bakkie, for resale
• Scrap Merchants – purchase scrap and perform basic sorting into metal types, then
sell to scrap processors
• Scrap Processors – handle large volumes of scrap and sort and process them for
beneficiation by local foundries, steel mills or export.
The total South African crude steel production in 2008 amounted to 8,176 million tons.
Carbon steel deliveries by the primary steel industry were 6,535 million tons, of which 5,415
million tons was sold on the local market and 1,120 million tons was exported
(www.saisi.co.za). While recent total recycling figures are not available, it was in 2005
reported that approximately 2,3 million tons of scrap were collected and recycled (of which
approximately 0,39 million tons was exported). In 2006 approximately 2,58 million tons of
scrap was collected and recycled (again approximately 0,4 million tons was exported). It has
further been reported that report that the mass of ferrous scrap exported in 2008 was 1,270
million tons (DEA, 2009a).
The value of scrap ferrous metals is reportedly very sensitive to demand, which in turn is
dependant on general economic activity and development. Hence, the amount of scrap
metals delivered to recyclers vary widely.
5.2.6 Commercial wastes
It is estimated that over 50 million batteries are consumed annually in South Africa. The
vast majority of these are non-rechargeable “ordinary” batteries that are used once and
discarded into the domestic waste stream. This equate to approximately 2,500 tons of
batteries disposed to landfills per year (DEA, 2009a).
Commonly used batteries include:
• Alkaline batteries – these batteries used to contain mercury, but these has been
phased out and are now generally alkaline manganese batteries. Although these
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can be disposed of in domestic waste, they can be recycled to recover steel and
zinc, but is not actively done in the world yet
• Rechargeable batteries – these consist of nickel-cadmium (Ni-Cd) batteries, and
the now more common nickel metal hydride (NiMH) batteries. NiCd batteries
contain cadmium, hence are considered hazardous waste when disposed. Both
types are recyclable for the recovery of nickel, iron, zinc and cadmium
• Lithium-ion batteries – these high performance rechargeable batteries are typically
found in mobile phones and other specialised consumer electronics. These are
recyclable to recover valuable metals
• Silver oxide batteries – these are small non rechargeable “button” shaped batteries
used in hearing aids, wristwatches etc. These may contain mercury, so are
considered hazardous when disposing.
There are initiatives to recycle used batteries in some parts of the country, but these
appears to be ad hoc. Recycling bins are e.g. being placed at large retail outlets. The
recyclers are expected to collect the bins and sort them at a designated plant. Recyclable
rechargeable batteries are containerised and sent to their recycling plant outside the
country, while non-recyclable batteries are to be concrete encased and disposed to landfill
(www.uniross.co.za).
Fluorescent lamps have a high mercury content, and are therefore classified as hazardous
waste upon their disposal. Most fluorescent lamps are disposed of in the
domestic/commercial waste stream and not in hazardous landfills or treatment facilities.
Eskom estimates that in 2005/2006 around 137,8 million mercury lamps containing High
Intensity Discharge Lamps (HID), Linear Fluorescent Lamps (LFL) and Compact Fluorescent
Lamps (CFL) were imported. It is expected that due to the energy crises, the number of
CFL’s imported has increased significantly (www.eskom.co.za).
6 Waste initiatives in South Africa
6.1 National policy response
Since the last environmental reporting reporting in 2006, a number of policy and regulatory
instruments within the ambit of the new legislation promalgated during the same period,
has been developed. This has mainly been intended to respond adequately to the country’s
exisitng waste management challenges, but also to close existing policy gaps. Of importance
to note, is that most of the policy inctruments, including the promalgation of the Waste Act,
are fairly new and their implementation still to be full executed. The following provide a
summary of policy related responses.
National policy for the provision of basic refuse removal services to indegent households,
2011. The purpose of this policy is to address the basic service backlog amongst the poor
(indigent) households, particularly those essential services like refuse removal. The key
policy objectives are: Establishment of a framework for the development, identification and
2012 SAOE Waste Chapter Draft 2
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management of indigent households within municipalities; set principles for the adoption of
by-laws for tarrif policy implementation; and awreness raising regarding proper handling of
domestic waste (e.g. minimisation and recycling) within municipalities.
National Policy on Thermal Treatment of general and hazardous waste, 2009. The policy
expresses the government’s intentions and commitment to allow for a range of
techgnologies, including thermal waste treatment, for inclusion in the country’s waste
management system that ensures sound environmental management of waste. It also
demonstrate government’s commitment to continous development and implementation of
waste management options that are also consistant to the waste management hierarchy.
This policy further closes the gap that existed for long regarding the treatment of waste,
since certain options were restricted due to lack of national policy direction on thermal
treatment, dedicated incineration and co-processing in cement production.
National domestic waste management collection standards. The standards are intended to
deal with the past in the provision of waste collection services. They aim to set acceptable,
equitable and sustainable collection services for residents to improve the quality of life
within communities and ensure clean and more acceptable places to live and work in. These
standards recognises the practical differences between areas based on cost efficiency of
delivery of services. They are based on the principles of equity, affordability and availability
of resources, practicallity and community participation.
The draft Waste Classification and Management Regulations. This draft regulation is in line
with NEM:Waste Act. The objectives of this regulation is among others to; regulate the
classification and management of waste in a manner which supports and implements the
provisions of the NEM:Waste Act; establish mechanisms and procedures for the listing of
waste management activities that do not require a Waste Management Licence; prescribe
requirements for the assessment of the environmental risk associated with disposal of waste
to landfill; prescribe requirements and timeframes for the management of waste; and
prescribe general duties of waste generators, transporters and managers.
Other interventions include introduction of various regulatory instruments such as Waste
tyre regullation, 2008 and Regulations on prohibition of the use, manufacturing, import and
export of asbestos and asbestos containing materials.
6.2 Provincial government’s response
The nature, composition, and quantities of waste generated can be predicted. Therefore,
waste management can be planned. The characteristics of waste management in the
country are similar to that of many developing countries (CSIR, 2009), and as the South
African economy grows and develops further, the pressure to provide sustainable waste
management services and facilities inherently increases. Waste streams begin at the point of
generation, flow through collection and transportation, separation for resource recovery,
treatment for volume reduction, recycling and/or energy recovery. Traditionally most solid
waste has been disposed at landfill sites. Recent growing recognition of the need for
resource conservation and environmental protection has increased solid waste recycling and
treatment before disposal in many developed countries.
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Based on an analysis of waste generation in nine South African provinces, there is an
indication that waste generation continued to increase in all provinces over the last decade
to about a total of 12 million tons per year, see table 18. This has resulted in an increase of
about 2 million tons per year in a period of less than 10 years. The national average waste
generation rate is estimated at 0.8 kg/capita/day for more developed areas and 0.3
kg/capita/day for less developed areas of South Africa. Collection and transfer efficiency is,
however, not at the desired level compared to international standards. Waste disposal in
South Africa is mostly done to landfills, but it has been estimated that only 10% of landfills
are managed in accordance with the Minimum Requirements (Patrick, 2007).
The Provinces has a key role to play in decreasing the amount of waste, e.g. by putting in
place recycling policies and activities, in improving collection, transfer and disposal systems
and methods, and creating a provincial committed overall approach to improved waste
management in the province.
Province Predicted Total Waste
m3/year t/year
1. Eastern Cape 3 105 989 802 090
2. Free State 3 877 380 745 535
3. Gauteng 26 085 304 4 207 608
4. Kwazulu Natala 5 749 959 1 437 762
5. Mpumalanga 11 200 387 1 783 766
6. Northern Cape 956 369 191 669
7. Northern Province 2 374 864 623 678
8. North West 2 296 489 542 135
9. Western Cape 12 979 785 2 129 647
Total 68 626 526 12 463 890
Table 18 Summary of provincial waste generation predicted for 2010 (Patrick, 2007)
Influx and rapid urbanisation, plus social and political pressures, have put land at a premium
in the city and town areas of several provinces. Landfill sites once thought of as being at an
acceptable distance from residential areas, now sits in close proximity with housing. The
identification of acceptable disposal sites within an economically viable radius of collection
operations, has in highly dense provinces for some municipalities become more and more
problematic.
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6.3 Local government’s response
The overall municipal waste service delivery target is to provide waste management services
to all urban and dense settlement households in South Africa. Waste management targets
are therefore be set to ensure that waste services is extended to all urban and dense
settlement households. These targets can be reached over time and in line with the targets
set in the National Waste Management Strategy (DEA, 2011) as well as in the Local
Government Turnaround Strategy (COGTA, 2009) and the Presidential Delivery Agreement
(COGTA, 2010).
The big metropolitan municipalities continue to allocate more budgets, appoint better
qualified staff, and have well organised structures to deliver this service. However, there is
still a need for continued strengthening and expansion of waste services to reach people still
without access. Levels of service differ markedly by type and size of the municipality. At
least 19% (or 1.4 million) of households in metros and secondary cities do not receive
weekly refuse services, with 23% of households in secondary cities making use of their own
refuse dumps. Outside these areas, 13% (or 726,000) of households do not receive any
refuse service or make use of on-site disposal. The General Household Survey of 2007
indicates that only 39% of households or 50% of the total population of South Africa is
receiving a regular waste collection service (CSIR, 2009). Service backlogs are highest in
metros and secondary cities (25% and 29% respectively), with rapid urbanisation placing
significant pressure on these municipalities (DEAT, 2008).
The overall backlog in the provision of solid waste services is arounds 2 million households,
with some 900,000 households not receiving any service. Recent information gathered by
Statistics South Africa furthermore suggest an substantial increase in the waste service
backlog. The backlog in waste service delivery was confirmed by the assessment of the
status of waste service delivery and capacity at local government level. Key findings from
the local government capacity assessment (DEAT, 2007) were as follows:
• The waste service function is often not accounted for in small rural towns
• In rural areas staffing is often skewed towards laborers with few middle and top
managers
• There is a shift towards outsourcing of the recycling function to small community
contractors
• A total of 87% of municipalities do not have the capacity or infrastructure to pursue
waste minimization
• More than 80% of municipalities are initiating recycling but projects are struggling
due to lack of capacity
• Metros and secondary municipalities have 54% of the national waste management
service backlogs.
One of the most noticiable interventions that can be undertaken by municipalities is the
introduction of waste exchange programs. The aim of Waste Exchange Programs is to
reduce the use of natural resources by encouraging the re-use of waste (as input resource)
amongst stakeholders in processing and manufacturing sectors. There have been several
attempts to run Waste Exchanges, but thus far, these have been unsuccessful.
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7 Waste recycling industry in South Africa Waste recycling presents an opportunity to save resources, reduce the environmental impact
of waste by reducing the amount of waste disposed at landfills, and create employment
opportunities. Integrated waste management approaches, as espoused by the South African
applied waste management hierarchy approach, requires the implementation of sequential
applications of waste prevention, minimization, re-use, recycling, treatment and ultimately
disposal (as a last option). Therefore, recycling becomes a critical part of a holistic and
sustainable method of waste management.
In South Africa, the majority of commercial waste recycling initiatives has been developed
on an ad hoc basis and has been driven by the private sector, with little or no financial
inputs or support from the government.
Even though government has tried to stimulate waste recycling, by introducing waste buy-
back centers, garden waste drop-off centers, separation of different waste streams, such as
glass, paper/cardboard, cans, scrap metal, plastics and garden waste, these stimulation
efforts have so far been relative ineffective. This can be observed by the large quantities of
recyclable materials in the waste arriving at landfill sites, which is further confirmed by
informal salvaging.
The industry is recycling around 40% of all packaging and paper consumed. Figure 3 shows
the relative scale of the main components of the recycling industry by both turnover and
capital base. The glass-recycling sub-sector has a yearly turnover of about R200 mill, the
paper sub-sector R900 mill, and the plastic sub-sector a yearly turnover of about R800 mill.
The total capital base is estimated to around R1,65 billion. The paper recycling industry
alone has in recent years invested an estimated R400 million in recycling initiatives in South
Africa and large-scale investments have also been noted in the recycling of glass, cans and
plastics (PACSA, 2007).
Figure 3 Scale of recycling industry by product (Lowitt, 2008)
According to the findings by Global Insight, on behalf of the Department of Trade and
Industry (DTI), the plastics waste sector makes up the biggest contribution employing
Scale o f R ecycling Industry by P ro duct
-
100
200
300
400
500
600
700
800
900
1,000
Glass Paper Plastic
Turnover (Rm) Capital Base (Rm)
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40,000 people, followed by cans (37,000), glass (16,800) and then paper (12,600), see
figure 4. Aluminium cans generate the most GDP and employment per ton recycled (Global
Insights, 2008).
Figure 4 Employment in recycling industry by product (DEA, 2009e)
There are significant opportunities for job creation in the recycling industry. Of particular
importance is the issue of where job creation gains are the greatest in the recycling process.
Given the capital intensive nature of the recycling process, however, recycling itself will
never be a major job creation source, but waste material collection and sorting, and job
creation via the development of new enterprises creating alterative products from waste
materials is full of potential. Waste collection is highly dependent on labour at present and
while there is potential for job creation at this stage, there may be a need in future to adopt
more efficient waste collection processes, which are less labour intensive, in order to
increase the rate and inflow of recyclable materials into the industry (Lowitt, 2008).
8 Waste treatment and disposal in South Africa
Waste management services rely heavily on landfills for the disposal of waste, which
account for the majority of licensed waste facilities. Over 90% of all South Africa's waste is
disposed of at landfill sites. This is despite the existence of a range of alternative disposal
technologies, including waste recycling.
The capacity assessment conducted by DEA, estimated the number of waste handling
facilities to be more than 1,300, of which close to 600 are licenced, see table 19 (DEAT,
2007).
Type of Facility Number of facilities
Number of permitted facilities
% backlog in permits
General Waste landfill site 1,203 524 56.4%
Emplo yment in R ecycling Industry by P ro duct
-
5,000
10,000
15,000
20,000
25,000
30,000
35,000
40,000
45,000
50,000
Glass Paper Plastic Cans
68%
70%
72%
74%
76%
78%
80%
82%
84%
86%
Employment % Employment in Supply Channels
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Hazardous waste landfill site 77 41 46.8%
Medical waste storage facility 12 4 66.7%
Recycling facilities 9 2 77.8%
Transfer stations 35 12 65.7%
Total 1,336 583 56.4%
Table 19: Waste management facilities permit status, South Africa (DEA, 2007)
Waste disposal by landfill remain the most dominant method of disposal in South Africa, and
the reliance on waste disposal by landfills has limited the incentive to devise alternative
methods of dealing with waste. Furthermore, a urgemt need for addressing the backlog in
the permitting of landfill sites exists. It is critical that all waste facilities are permitted in
order to avoid potential negative environmental impacts, as it is through the permitting
process that any fatal flaws are identified, and mitigation actions prescribed.
9 Compliance Monitoring and Enforcement Waste compliance and enforcement are dealt with in Chapter 7 of the Waste Act, which
describes the compliance powers of the Minister of Water Affairs and Forestry, waste impact
reports, offenses and penalties. This section must be read in conjunction with Chapter 7 of
the National Environmental Management Act, 107 of 1998, as amended, which establishes a
system of compliance monitoring and enforcement for all environmental legislation,
including the appointment of Environmental Management Inspectors (EMIs) at all levels of
government.
The Waste Act, Chapter 7, sets out a system of offences and penalties, and provides a list
of offences identified by Section 67 of the Waste Act as well as the associated penalties as
provided by Section 68. This information is presented per sphere of government and also
includes a list of compliance matters where they occur across all three spheres of
government.
Waste impact reports are an additional compliance monitoring measure created by the
Waste Act that can be utilized to deal with instances of suspected non-compliance or
transgression of norms and standards. Table 20 outlines the two circumstances in which a
waste impact report may be requested.
Sect Responsible Action
66.(1) Environmental Management
Inspector
Suspected contravention of failure to comply with the Act or any
conditions of a waste management license or exemptions, which has
had a detrimental effect on health or the environment.
66.(2) Waste management officer May request the preparation of a waste impact report if a waste
management license is under review (S53).
Table 20 Circumstances for requesting a waste impact report (NEMWA, 2008)
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The Waste Act empowers the Minister of Water Affairs and Forestry to exercise the
Minister’s powers under section 19, 53 and 155 or the National Water Act, 1998, in regard to
contraventions of the Waste Act that impact on a water resource. Since the water legislation
has now been assigned to the Minister of Water and Environmental Affairs, these powers
are now vested in the same Minister. Therefore this is read as the Minister of Water and
Environmental Affairs may exercise the powers conferred to her in respect of listed waste
management activities (Sec 19) and review of waste management licenses (Sec 53). The
Minister also has powers in respect of the National Water Act where a person contravenes or
fails to comply with any condition of a waste management license, a remediation order or
measures specified in terms of section 38(3) that may impact negatively on a water
resource.
The primary arrangements for compliance monitoring and enforcement of the Waste Act are
not covered by the Waste Act, but by an amendment to the National Environmental
Management Act, 107 of 1998 (NEMA), which came into effect on 1 May 2005.
9.1.1 Environmental Management Inspectorate (EMI)
Chapter 7 of NEMA provides for Environmental Management Inspectors (EMIs) to be
designated by the Minister and provincial MECs. The Environmental Management
Inspectorate is a network of environmental enforcement officials drawn from different
government departments at national, provincial and local level. Officials from DEA, provincial
environment departments, other provincial organs of state, municipalities and parastatal
bodies can be designated as EMIs.
EMIs must monitor compliance with and enforce the specific environmental legislation that
they have been mandated to enforce. These mandates are determined when EMIs are
designated by the Minister or relevant provincial MEC. The Waste Act will form part of this
assignment, and that it may be assigned to dedicated EMIs responsible for its enforcement.
EMIs can also be mandated to enforce a range of legislation depending on their particular
functions, and it is possible for EMIs dealing with the Waste Act also to enforce related
legislation such as NEMA, and the regulations promulgated under NEMA, and the Air Quality
Act. EMIs are also empowered to enforce any authorisations issued under their mandated
legislation, including permits, licenses and EIA authorisations (records of decision).
EMIs have a number of important powers and responsibilities that enable them to enforce
environmental legislation. These powers include:
• Powers of inspection, such as entering premises to check compliance, and seizing
evidence of non-compliance
• Powers of investigation, such as interrogating witnesses, seizing documents, taking
samples and removing waste
• Powers of enforcement, such as search and seizure of premises, containers, vessels,
and vehicles, establishing roadblocks and making arrests
• Administrative powers such as issuing compliance notices.
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The above powers are awarded to EMIs based on a ranking system, depending on
experience, qualifications and seniority. A grade 1 EMI has more powers than any other
grades of EMI.
9.1.2 Status of the Environmental Management Inspectorate (EMI)
The National Compliance and Enforcement Report (NCER) (DEA, 2009) provides a national
status and overview of environmental compliance and enforcement activities undertaken by
relevant institutions across the country during the period 2006-2009. According to this
reporting, the following trends have been reported:
• The increase of 37 (4.3%) Environmental Management Inspectors (EMIs) on the
national register, from 866 in 2007/8 to 903 in 2008/9
• The total recorded number of designated EMIs at 903, however, also includes
those officials who do not undertake compliance and enforcement activities at
the operational levels (for example, in DEAT, only 23 of the 44 EMIs are
operational – 52%)
• Employment migration / resignations of general EMIs from 344 to 269
(representing a 22% decrease), and for provincial parks boards in particular,
employment migration of about 37 leaving 232 EMIs to undertake functions
related to “blue” and “brown” sub-sectors
• 42 municipal authorities with undesignated EMIs.
The industrial branch of the Environmental Management Inspectorate continued to conduct
compliance inspections in the prioritized industry sectors, namely Operation Ferro, focusing
on the iron and steel and ferroalloy (ferrochrome, ferromanganese, ferrovanadium and
ferrosilicon) sector as well as the Refineries Project. The Department of Environmental
Affairs and Tourism and provincial departments, water affairs and forestry and officials from
municipalities conducted joint inspections. Table 21 provides a national perspective on the
work conducted by the EMIs:
2006-07 2007-08 2008-09
Reported cases - - 4,661
Criminal dockets registered - 1,762 2,412
Summons/arrests 898 2,614 2,547
Acquittals - 441 18
Convictions (number of accused convicted) 134 748 258
Civil court applications launched 11 2 3
Warning letters - 102 109
Table 21 Cases reported and handled by the EMI during 2006-2009 (DEA, 2009)
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It can be noted from table 21, that the total number of reported cases in 2008/9 was 4,661,
and that:
• The total number of criminal dockets registered increased from 1,762 in 2007/08
to 2,412 in 2008/09 (an increase of 37%)
• The total number of acquittals decreased from 441 in 2007/08 to 18 in 2008/09
(decrease of 96%)
• The total number of convictions decreased from 748 in 2007/08 to 258 in 2008/09
(decrease of 50%)
• The total number of admission of guilt fines issued nearly doubled, from R744,706
in 2007/08 to R1,446,709 in 2008/09
• There has been a sligth increase in the total number of notices/directives issued
• The total value of S24G fines paid has more than doubled from R6,880,246 in
2007/08 to R15,499,518 in 2008/09, despite the fact that 267 fewer fines were
issued in 08/09.
It is apparent that the strengthening of EMIs for complience monitoring and enforcement
purposes results in increased compliance and monitoring activities and results, but also that
this area remains critical for the effectiveness of the environmental legislation.
9.1.3 Waste management officers (WMO)
The Waste Act provides for the appointment of Waste Management Officers, whose main
role is to co-ordinate waste management activities within and across the respective spheres
of government. The role of WMOs includes certain compliance monitoring and enforcement
functions. Their role in this respect must be aligned and coordinated with the compliance
monitoring and enforcement role fulfilled by EMIs.
The WMO system responds to the historical difficulty in implementing legislation and the
importance of achieving the objectives of the Waste Act. The Waste Act has responded to
these institutional challenges by providing for what are termed Waste Management Officers
(WMOs), as set out in Chapter 3 Sections 10 to 13. WMOs are to be appointed at national,
provincial and municipal level.
• 10 (1) The Minister must designate in writing an officer in the Department as the
National Waste Management officer responsible for coordinating matters pertaining
to waste management in the national government
• (2) The MEC must designate in writing an officer in the provincial administration as
the provincial waste management officer responsible for coordinating matters
pertaining to waste management in that province
• (3) Each municipality authorized to carry out waste management services by the
Municipal Structures Act, 1998 (Act no.117 of 1998), must designate in writing a
waste management officer from its administration to be responsible for coordinating
matters pertaining to waste management in that municipality.
The Waste Act therefore primarily envisages a coordination function for WMOs, although it
leaves the precise determination of their functions to the NWMS and regulations by the
2012 SAOE Waste Chapter Draft 2
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Minister, see figure 5. The Act states that WMOs must co-ordinate their activities with other
waste management activities in the manner set out in the NWMS, or in terms of notice
published by the Minister in the Gazette.
Figure 5 Coordination structures for WMOs and Government (DEA, 2009e)
The Department has developed a guideline for the appointment of WMOs, which seeks to
further define the role, powers, profile and rank of the WMOs. This guideline needs to be
read in conjunction with the National Co-ordination Plan for the Implementation of the
Waste Act and its regulations. The generic duties of all WMOs are to coordinate matters
relating to waste management and to ensure implementation and coordination of the
National Waste Management Strategy. The WMOs may be delegated to perform other
duties buy their respective administration over and above their stipulated role in the
guideline.
In addition to this coordination of waste management activities, the Act assigns specific
regulatory powers to the National WMO and Provincial WMOs. In terms of Section 58 (1)
they may request the appointment of waste management control officers by holders of
waste management licenses, and in terms of Section 66(2) they may require the preparation
of waste impact reports when the waste management licenses are being reviewed.
Standing members: National WMO, Chief
Director: Pollution and Waste Management,
Provincial WMOs
Non-standing members: National
government depts /private sector reps
National Waste Forum
Subsumed into Working
Group II: Pollution and
Waste Session
Provincial Waste Fora
District Waste Fora
Standing members: Provincial WMO,
Municipal WMOs or pollution & waste
representativesNon-permanent members:
National WMO or his/her representative
Standing members: Municipal WMOs or
pollution & waste representatives &
Provincial WMO providing technical support
Annual work-plan giving effect to
legislation and policy including
capacity building, waste
management strategies, waste
information management,
provincial reports etc., and
annual waste indaba
Challenges, gaps & achievements
with respect to the act and
policy, capacity building,
provision of waste services,
waste minimization and
recycling, pollution, waste
information special projects,
municipal reports etc.
Same as above
Chairperson of WGII reports to MINTECH
Chairperson of PWF to report to WGII
WMOs to report to their municipalities
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10 Conclusions and emerging issues
A number of conclusions can be drawn from the national status reporting on waste
management.
Firstly, it is clear that specific focus is placed in South Africa on the application of the waste
management hiereachy both in policies, strategies and implementation.
Secondly, since the last environmental reporting reporting in 2006, a number of key policy
and regulatory instruments within the ambit of the new promalgated Waste Act, has been
developed. These include e.g. national policy for the provision of basic refuse removal
services to indegent households; national policy on thermal treatment of general and
hazardous waste; national domestic waste management collection standards; waste
classification and management regulations (draft); waste tyre regullation; regulations on
prohibition of the use, manufacturing, import and export of asbestos and asbestos
containing materials.
Thirdly, clear roles and responsibilities of government institutions and the legislative
mandates for key spheres of government involved in waste management has been
developed. South Africa remains in the forefront on environmental waste management
amongst developing countries and is committed to implement a world class system that will
improve waste management in the country. The key development areas for the near future
include: (i) Service level agreements and contracting of services amongst key role players in
government, (ii) regionalisation of service delivery: The trend towards greater
decentralisation has a potential to complicate the waste management system. A new
emphasis on regionalisation means better efficiency and transparency of service, and (iii)
ring-fencing of solid waste finances: A system where all revenue collected from waste
management service provision is ring-fenced towards improving the same service is
desirable within government institutions.
Fourthly, that municipal solid waste management can be identified as one of the areas of
municipal functioning with the greatest potential for job creation, particularly with respect to
unskilled or semi-skilled labour. The estimate employment creation by the total waste sector
is around 113,000 people. It is estimated that the total annual expenditure on solid waste
management in South Africa is R10 billion per annum, 70% from the public sector, largely
local government, while 30% is private sector expenditure. The waste management service
function within municipailities contributes significantly towards municipal income and
revenue due to the user-pay principle applied for waste management. It is assessed that
municipalities received a total income of around R6.5 billion for solid waste.
Fifthly, that the analysis of the two main waste classess, i.e. general and hazardous waste,
shows a number of interesting findings:
• Municipal solid waste constitute a large percentage of the total waste generated in
urban and rural areas. Municipalities are the key players in dealing with general non-
hazardous waste. A total of around 239 municipalities performed solid waste
management functions servicing around 8,4 mill households, or around 64 % of all
households
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• South Africa has experienced rapid growth in waste volumes, associated with a
prolonged period of economic growth. During the last decade, general waste
generation rose to nearly 67 million cubic metres, or by 62%. This represents an
annual average growth rate of around 5%
• The big metropolitan municipalities continue to allocate more budgets, appoint better
qualified staff, and have well organised structures to deliver waste services.
However, there is still a strong need for continued strengthening and expansion of
waste services to reach people still without access. The overall backlog in the
provision of solid waste services is around 2 million households, with some 900,000
households not receiving any service. The service backlogs are highest in metros and
secondary cities
• Waste recycling presents an opportunity to save resources, reduce the environmental
impact of waste by reducing the amount of waste disposed at landfills, and create
employment opportunities. In South Africa, the majority of commercial waste
recycling initiatives has been developed on an ad hoc basis and has been driven by
the private sector, with little or no financial inputs or support from the government.
The industry is recycling around 40% of all packaging and paper consumed
• Waste management services rely heavily on landfills for the disposal of waste, as
over 90% of all South Africa's waste is disposed of at landfill sites. The reliance on
waste disposal by landfills has limited the incentive to devise alternative methods of
dealing with waste. Furthermore, a urgent need for addressing the backlog in the
permitting of landfill sites exists
• For hazardous waste, a general lack of adequate reliable information exists making
quantifying mass balance for hazardous wastes difficult. An indication of the status
of hazardous waste in South Africa can be sourced from Provincial Hazardous Waste
Management Plans (HWMP). However, only three provinces have completed
Provincial Integrated Hazardous Waste Management Plans. It was e.g. found that in
Gauteng almost all hazardous waste generated is disposed to landfills, and that in
Western Cape and North West most hazardous waste generated is un-accounted for
in relation to treatment or landfilling
• South Africa currently has 11 licenced hazardous treatment facilities in operation with
a combined annual treatment capacity of approximately 57,600 tons. The current
treatment figures indicate a reserve treatment capacity of approximately 1,000 tons
per month.
A number of waste issues has emerged during the last years. Of particular interest shall e-
waste streams, waste-to-energy and the green economy be noted. Each of these emerging
issues are outlined below.
eWaste: Consisting of electrical and electronic waste (WEE), eWaste is a relatively new
waste category for which there is currently a lack of formal disposal mechanisms. Due to the
many hazardous components and materials used in the manufacture of electronic goods,
including mercury, brominated flame retardants, and cadmium, tis is considered a hazardous
waste stream. Used electrical goods are often imported into the country as donations – but
in some cases, what is being imported is effectively WEE. There is significant job creation
potential in the recycling of eWaste, and several initiatives have and are being set up. The
2012 SAOE Waste Chapter Draft 2
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hazardous nature of this waste stream and the small margins of profit generated must be
carefully considered when encouraging the recycling of WEE.
Data and Information Management: The South African Waste Information System (SAWIS)
is refined through the development of a revised waste classification and management
system, and would be formalised through National Waste Information Regulations. The main
objective of waste data collection is to allow for adequate waste management planning and
prioritisation, and to enable national reporting on the success of national waste policy and
waste management initiatives aimed at moving waste up the hierarchy from land filling to
reuse, recycling, recovery or treatment. The SAWIS comprises a central registry and a data
capture facility. All waste management facilities as well as hazardous waste generators
(generating more than 20 kg/day) are required to register on the system. The waste
categorisation system will be incorporated into the National Waste Information Regulations,
and will be mandatory for the waste management industry to report in accordance with this
system once the WIS Regulations come into force.
Fluorescent Lamps: Fluorescent lamps contain a small amount of mercury which is used in
the illumination process. Mercury is a neurotoxin that can be harmful in even small amounts.
The promotion of compact floruorescent lamps (CFLs) by government and Eskom as an
energy saving measure has significantly increased the numbers of CFLs that require disposal
when expired. Although Fluorescent lamps can be successfully recycled and the mercury
recovered, no such facilities are currently available in the country.
Waste-to-energy: Some municipalities have begun waste-to-energy schemes. eThekwini is
extracting landfill gas and generating electricity from the Marian Hill and La Mercy landfills,
and Johannesburg has piloted energy generation from incinerating health care risk waste.
Energy recovery schemes are incentivised by the potential to generate carbon credits and
their associated revenues. It is estimated that landfill energy plants can have a capacity of
between 20 and 50 megawatts, with a life-of-plant of 30 years.
Green Economy: Over the last two years, the concept of a “green economy” has moved into
the mainstream of policy discourse. Transitioning to a green economy has sound economic
and social justification. For South Africa, and in the waste management sector in particular,
this transition would involve leveling the playing field for greener products by reforming
policies and developing incentives, strengthening market infrastructure, redirecting public
investment, and greening public procurement. For the private sector, this involve responding
to policy reforms and government incentives through increased financing and investment, as
well as building skills and innovation capacities to take advantage of opportunities arising
from a green economy in the waste management sector.
CASE : Modeling Domestic Waste Collection Methods: The Case of Mafikeng
Background Waste management remains a challenge for most municipalities in the country.
The problem is aggravated by the lack of strategies, financial resources, materials and
equipment, and skills required for waste management. Local communities are therefore in a
2012 SAOE Waste Chapter Draft 2
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dilemma in keeping their surroundings clean. Communities and their municipalities find it
difficult to address this problem without support from other stakeholders. This therefore
calls for partnership interventions to address the problem. The Department of
environmental Affairs, through its Social Responsibility Programme (SRP), is piloting a
domestic waste collection project in partnership with the Mafikeng Local Municipality (MLM).
Partnership The department entered into a three year Service Level Agreement (SLA) with
the Mafikeng Municipality for the provision of waste collection services to the un-serviced
rural communities of Mafikeng. The SLA makes provision for the department to fund 75% of
the project budget, and the municipality funds 25% for the project which it pays on pro rata
basis. After the duration of the agreement, the municipality will take full responsibility for
the operation and sustainability of the project. The department further entered into a
memorandum of agreement with a service provider to manage the implementation of the
project for the period of three years.
Technical Support Despite the waste collection services that is rendered by the project to 31
231 households, the project is assisting the municipality to develop an Integrated Waste
Management Plan (IWMP) as well as to develop and implement a strategy for collecting
payments for the service, waste reduction and recycling programme, build human resource
capacity and systems to manage waste collection service, and provide sufficient landfill
capacity.
Waste Collection Methods Since this is the pilot, investigating and testing efficient, effective,
economical and labor intensive methods of waste collection is part of the project. The first
method that is being tested is the separation at source. This method will test the willing-
ness of residents to separate waste, quality of separated waste and recyclables, volume of
waste and recyclables, market value of collected recyclables, and cost saving from reduction
of waste entering the landfill. Testing of this method has opened up a business opportunity
for a group of local young people who have been put together to establish a cooperative
that will collect recyclables to the Material Recovery Facility (MRF), sort, weigh and sell
them to recycling companies. They have been assisted through the project to put together
a business plan.
Small Business Development The project has created and developed five local small
businesses. Five local people with drivers’ licenses were identified and assisted through the
project to access finance for purchasing the required vehicles and equipment for waste
collection. They are further subcontracted as SMEs to provide waste collection services for a
period of three years. Training on small business management was facilitated in order to
provide them with business management skills.
Employment Opportunities The project created work opportunities for 70 local people. Each
SME has appointed 14 people from the local communities as laborers for the period of three
years to collect waste from the households. They were provided with training on community
and environmental development as well as waste management.
Project Management and Oversight The appointed implementing agency is responsible for
the day- to-day management of the project and subcontractors and ac- counting to the
2012 SAOE Waste Chapter Draft 2
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Project Steering Committee which is made up of 5 stakeholders i.e. local municipality,
district municipality, traditional authority, provincial department and national department.
This committee sits once a month to review operational progress and resolve operational
challenges facing the project. Strategic decisions of the project are made at the Project
Review Commit- tee (PRC) which sits quarterly and is composed of senior managers of
major project stakeholders i.e. municipally, implementing agency and the department.
Challenges The project is faced with two major challenges i.e. political and administrative
instability and financial sustainability. Political and administrative instability in the
municipality is paralyzing the project in a sense that the municipality is currently unable to
meet its obligations in terms of service level agreement. Its over- all commitment to the
project is therefore inconsistent. Financial sustainability is a serious threat to the project.
From the survey of households conducted, it has been found that the residents are not
prepared to pay for the waste collection service. On the other hand, the municipality has no
financial muscles to finance this service.
Conclusion The model employed for waste collection has proved to be effective and can be
replicated in other municipalities. It is helping to keep the area clean at all times. It has
created small businesses, employment and training opportunities for local people. However,
the challenges posed by political and administrative instability and lack of financial
sustainability strategy has a potential to wipe off all the benefits and assets created by the
Project.
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