For - Ladysmith · uThukela District Municipality in the KwaZulu-Natal Province. It is one of the five category B Local Municipalities in the uThukela District Municipality. Ladysmith

INTEGRATED WASTE MANAGEMENT PLAN

For

EMNAMBITHI / LADYSMITH MUNICIPALITY

Compiled by:

Greenwich Office Park, 4/6 St. Mary's Rd, Kloof, 3610 Kwa-Zulu Natal, South Africa

Tel/Fax: +27-31-764 1555 Email: [email protected]

June 2010

Contents: 1. INTRODUCTION ................................................................................................................... 4

1.1 Background and Appointment ........................................................................................ 4

1.2 Scope of Work ................................................................................................................ 5

2. UNDERSTANDING THE IWMP ............................................................................................. 5

2.1 Background .................................................................................................................... 5

2.2 IWMP Goals and Objectives ........................................................................................... 6

2.3 Impacts of Waste on the Environment ............................................................................ 6

3. POLICIES AND LEGISLATION ............................................................................................. 7

3.1 Policy Principles/ Political Goals ..................................................................................... 7

3.2 IWM Planning Responsibilities ....................................................................................... 8

3.3 Overview of relevant Policies and Legislation ................................................................ 9

3.3.1 South African Constitution ....................................................................................... 9

3.3.2 National Environmental Management Act (No. 59 of 2008) .................................. 11

3.3.3 Environment Conservation Act 73 of 1989 ............................................................ 12

3.3.4 Municipal Demarcation Act 27 of 1998 .................................................................. 13

3.3.5 Organised Local Government Act 52 of 1997 ....................................................... 13

3.3.6 Municipal Structures Act 117 of 1998 .................................................................... 13

3.3.7 Municipal Systems Act No. 32 of 2000 .................................................................. 14

3.3.8 The Development Facilitation Act 67 of 1995 ........................................................ 14

3.3.9 The Physical Planning Act 125 of 1991 ................................................................. 15

3.3.10 National Environment Management: Air Quality Act 39 of 2004 ........................... 15

3.3.11 National Water Act 36 of 1998 .................................................................................. 15

3.3.12 Health Act 63 Of 1977 ........................................................................................... 16

3.3.13 White Paper On Environmental Management Notice 749 of 1998 ........................ 16

3.3.14 White Paper on Integrated Pollution And Waste Management For South Africa, Notice 227 of 2000 ............................................................................................................... 17

3.3.15 DWAF Minimum Requirements for Landfill, 2nd Edition, 1998 .......................... 18

3.3.16 National Waste Management Strategy and Action Plans ...................................... 19

2

3.3.17 Polokwane Waste Summit Declaration ................................................................. 20

4. MUNICIPAL DESCRIPTION & BACKGROUND .................................................................. 21

5. CURRENT STATUS QUO ................................................................................................... 23

5.1 Waste Streams ............................................................................................................. 23

5.2 Landfilling Operations ................................................................................................... 25

5.3 Municipal Services ........................................................................................................ 26

5.4 Siyazenzela Domestic Waste Management Programme ............................................. 28

5.5 Recycling ...................................................................................................................... 28

5.6 Medical, Hazardous and Industrial Waste .................................................................... 29

5.7 Municipal Structuring .................................................................................................... 29

6. GAPS AND NEEDS ASSESSMENT.................................................................................... 31

7. GOALS, OBJECTIVES AND POLICIES .............................................................................. 34

7.1 NWMS Goals and Objectives ....................................................................................... 34

7.2 NWMS: Notes on Local Municipal Obligations ............................................................. 37

7.3 EL Municipal Goals, Objectives and Targets ................................................................ 42

8. COMMUNICATION AND PUBLIC PARTICIPATION ........................................................... 49

8.1 Public Awareness and Communication ........................................................................ 49

8.2 Public Information ......................................................................................................... 50

8.3 Public Participation ....................................................................................................... 50

9. IMPLEMENTATION PROGRAM ......................................................................................... 51

9.1 Implementation Parameters and Policies ..................................................................... 51

9.2 Implementation Requirements ...................................................................................... 58

10. MONITORING AND REVIEW .............................................................................................. 60

10.1 Introduction ................................................................................................................... 60

10.2 Monitoring ..................................................................................................................... 60

10.3 Evaluation and Review ................................................................................................. 64

11. RECOMMENDATIONS AND CONCLUSION ...................................................................... 64

APPENDIX A .............................................................................................................................. 66

ORGANOGRAM 1: Department Economic Development ................................................... 67

ORGANOGRAM 2: Department Engineering Services (Proposed) .................................... 68

Emnambithi/Ladysmith Municipal IWMP 3 Envitech Solutions (Pty) Ltd. June 2010

Acronyms

ELM Emnabithi/Ladysmith Municipality

CBD Central Business District

DEAT Department of Environmental Affairs and Tourism ** now replaced by:

DEA Department of Environmental Affairs

DME Department of Minerals and Energy

DWAF Department of Water Affairs and Forestry

IDP Integrated Development Plan

IWM Integrated Waste Management

IWMP Integrated Waste Management Plan

IP&WM White Paper on Integrated Pollution & Waste Management

NEMA National Environmental Management Act No. 59 of 2008

NWMS National Waste Management Strategy (1st Draft for Public Comment, May 2010)

EIA Environmental Impact Assessment

LDO Land Development Objectives

LUPO Land Use Planning Ordinance

LFA Logical Framework Analysis

NEAF National Environmental Advisory Framework

NGO Non-Governmental Organisation

REL Rear End Loader

ha Hectares

CEC Committee for Environmental Co-ordination

CBO Community Based Organisation


1. INTRODUCTION

1.1 Background and Appointment

The Emnambithi/Ladysmith (ELM) Local Municipality is located in the Northern corner of the

uThukela District Municipality in the KwaZulu-Natal Province. It is one of the five category B

Local Municipalities in the uThukela District Municipality. Ladysmith is at a geographical

advantage as it is located centrally between Gauteng and the coast, the Battlefields and the

Drakensberg; which are characterized as tourist attraction areas. ELM has the largest

population of 225 459 which represents 34.3% of the District Population and comprises 25

wards representing a range of settlements; from urban to municipal service centres, agricultural

landscapes, industrial, semi-rural and rural (traditional) residential settlements.

Envitech Solutions (Pty) Ltd were appointed by the ELM to assist in the preparation of their

Municipal Integrated Waste Management Plan (IWMP). The compilation of this IWMP was done

in line with the Starter Document: ‘Guidelines for Compilation of Integrated Waste Management

Plans’ (DEAT, May 2000), as well as the United Nations Environmental Programme:

‘Developing Integrated Solid Waste Management Plans’ (UNEP, 2009). The uThukela District

Municipal IWMP (Emthonjeni Development Services, 2008) has been used as the foundation on

which the Emnambithi Municipal IWMP has been developed, specifically incorporating the

District’s Goals, Objectives and Policies as well as Implementation Strategies. The onus still lies

with the EL Municipality to ensure that the document is followed through to the planning and

implementation stages.

The Integrated Waste Management Planning process consists of two phases, the first being an

assessment of the status quo and a needs analysis, and the second consisting of future

planning and the finalisation of a Master Plan. The Status Quo for Phase 1 consists of an

assessment of the current status of waste collection systems and facilities, service delivery

capacity and a needs analysis for each of these aspects. The Status Quo and Needs Analysis in

conjunction with the projection for the area forms the platform for all planning activities and are

included in the first sections of this document. The Goals, Objectives and Targets are then


identified, and based on the options selected for implementation, an implementation programme

is developed and cost estimates compiled to facilitate inclusion of the plan into the IDP.

1.2 Scope of Work

The IWMP has to address the following:

• Relevant Legislation.

• A Gaps and Needs Analysis.

• A Waste Generation Model.

• Economic Analysis of Options concerning Landfill Sites.

• Collection Needs.

• Waste Transportation and Waste Transfer Needs.

• Identifying Recycling and Re-use Initiatives.

• Formulate a programme for the implementation of a Waste Information System, Capacity

Building and possible Job Creation where applicable.

• Development of Goals and Objectives.

• Develop an Implementation Programme and Implementation Budget.

2. UNDERSTANDING THE IWMP

2.1 Background

The intent of Integrated Waste Management as adopted by the international community is that

of a waste hierarchy which starts with waste prevention and minimization, followed by

recycling/re-use, treatment and finally, disposal as the last resort.

All human activities give rise to residual materials which are not immediately used where they

arise. These residuals may be recycled, reclaimed, or re-used; else they constitute waste which

will ultimately be released into the environment. The biosphere has the capacity to transform

many wastes over time, either into harmless products or nutrients which can be used again.

However, the natural assimilation capacity of the environment can easily be exceeded if wastes,

particularly from human activity, are not controlled. With the development of new chemical


components like plastics, the environment appears to have little or no assimilative capacity. In

these circumstances, pollution and loss of environmental quality will result.

Careful planning, management and control of wastes are thus required. Ideally, waste

management should be viewed as a unity, with integrated control directed at all three waste

receiving spheres; namely air, water and land. The relationship between these three spheres

must always be considered – a reduction in air pollution by removing particle matter before

discharge will produce either a solid or sludge waste for disposal, and the reduction of water

pollution also normally produces a waste sludge. Some attempts to treat solid waste may only

shift the waste load into the atmosphere i.e. through poorly controlled incineration, therefore

exchanging one pollutant for another.

2.2 IWMP Goals and Objectives

The main goal of IWM planning is to optimize waste management by maximizing efficiency,

and minimize associated health and environmental impacts and financial costs; thereby

improving quality of life of all South Africans and the globe as a whole.

The main objectives for this IWMP are to:

• Improve waste management within the municipality.

• Access the current waste management system and highlight positive, as well as

deficiencies in respect of waste management within the ELM.

• Institute a process of waste management aimed at pollution prevention and minimization

at source.

• Manage the impact of pollution and waste on the receiving environment.

• Manage waste in a holistic and integrated manner.

2.3 Impacts of Waste on the Environment ADVERSE IMPACTS

• Waste can affect ecosystems and could change biomes if species are eradicated.

• Streams situated close to a waste disposal site can be contaminated from leachate


generated by the landfill.

• Ground water can also be contaminated if leachate percolates through the ground

and into aquifers.

• Emissions releases pollutants into the air from landfills and illegal burning of waste,

some of these pollutants are volatile organic carbons such as dioxins and furans

which could be harmful to health, in addition to being harmfull greenhouse gases.

• Sterilisation of land occurs when large volumes of waste are disposed of on the

land.

• Hazardous waste poses a health and safety risk to the individuals exposed to it.

• Pathogens and viruses found in waste can pose a health risk.

• The disposal of waste both formally and informally changes the natural topography

of land.

• Litter and illegal dumping is aesthetically unpleasant and releases odours and leads

to urban decay.

• Waste placed in low lying areas could block or impede the flow of water which

could result in flooding.

• The value of properties situated close to the waste disposal sites may decline

sharply.

POSITIVE IMPACTS

• Job creation initiatives such as recycling of waste can be advantageous.

• Waste can be used as a fuel resource to generate heat and electricity.

3. POLICIES AND LEGISLATION

3.1 Policy Principles/ Political Goals

The first step in developing and implementing an effective IWMP is to ensure that there is clarity

as to the overriding policies/political goals. Therefore it is crucial to first consider goals like:


• Policies principles specified in NEMA, IP&WM and NWMS, i.e accountability, cradle-to-

grave, equity, full cost accounting, good governance, integration, open information,

participation and polluter pays;

• Job creation, focusing on previously disadvantaged communities;

• The waste management hierarchy and;

• Waste minimization aspects.

Some of the above goals may be supportive of each other, while others may involve making

trade-offs. Resolving such trade-offs involves making political decisions, which ideally should be

taken in consultation with appropriate stakeholders, and guided where possible by earlier

agreed principles.

In terms of IWM planning for South Africa, the principle goals and priorities to guide the

development and implementation of the plans are given by the requirements of the ‘White Paper

on Environmental Management Policy’ for South Africa (DEAT, 1997) and the ‘National

Environmental Management Act (NEMA)’ (No.59 of 2008), and more specifically within the

‘White Paper for Integrated Pollution & Waste Management’ for South Africa (DEAT, 2000). The

newly published National Waste Management Strategy (DEA, 2010) is a statutory requirement

of the recently promulgated National Environmental Management: Waste Act. The new strategy

builds on the previous Waste Management Strategy published in 1999, as well as the extensive

inputs from stakeholders made during the process of developing the Waste Act.

3.2 IWM Planning Responsibilities

The National Waste Management Strategy (NWMS) and the National Environmental

Management Act (NEMA) allocates the following responsibilities for IWMPs:

• The National Department of Environmental Affairs (DEA) must draft and promulgate

regulations and guideline documents for integrated waste management planning for all

waste types.

• The Provincial Environmental Departments must develop hazardous waste management

plans and prepare provincial environmental and waste management plans that

incorporate the integrated waste management plans submitted by local government and

industry. These will be submitted to the MEC for approval, which will facilitate inter-


provincial co-ordination, particularly in relation to planning for facilities for treatment and

disposal of waste.

• Local Government must develop and submit plans for integrated waste management to

the MEC for approval. The approved IWMP must be included in the municipal Integrated

Development Plan (IDP).

• Waste management plans for industrial waste that is disposed of at private and/or

dedicated disposal facilities, must be prepared by the developers/owners and submitted

to the respective provincial environmental departments.

3.3 Overview of relevant Policies and Legislation

From point 3.2 it can be seen that the NWMS obliges all municipalities to develop an IWM

system. In order to achieve the policy objectives, the municipalities are required to develop and

implement a local waste management plan which articulates strategies and initiatives for IWM.

The IWMP has to translate policy objectives into practice and address the deficiencies and gaps

in the municipal waste management systems.

Shown below is a brief overview of some of the policies and legislation related to municipal

IWM:

3.3.1 South African Constitution

The South African Constitution (Act 108 of 1996) is the supreme law of the land. All law,

including environmental waste management planning must comply with the Constitution.

The Constitution states that the people of South Africa have the right to an environment that

is not detrimental to human health, and imposes a duty on the state to promulgate

legislation and to implement policies to ensure that this right is upheld. All organs of state or

administration in the national, provincial or local levels of government have similar

obligations. The principles of co-governance are also set out in the Constitution and the

roles and responsibilities of the three levels of government are defined.

According to the Constitution, responsibility for waste management functions is to be

devolved to the lowest possible level of government.


Local government, therefore, is assigned the responsibility for refuse removal, landfill sites and solid waste treatment and disposal. Provincial government has the exclusive

responsibility to ensure that local government carries out these functions effectively.

In addition to the Constitution, a number of government policies and statutes are relevant to

waste management at the local government level, including but not limited to the following:

• National Waste Management Strategy of 2010 (1st Draft currently under public review)

• National Environmental Management Act 59 of 2008

• Environment Conservation Act 73 of 1989

• Local Government Transition Act 209 of 1993

• Municipal Demarcation Act 27 of 1998

• Municipal Structures Act 117 of 1998

• Municipal Systems Act 32 of 2000

• The Development Facilitation Act 67 of 1995

• The Physical Planning Act 125 of 1991

• National Environment Management: Air Quality Act 39 of 2004

• National Water Act 36 of 1998

• Health Act 63 of 1977

• White Paper on Environmental Management Notice 749 of 1998

• White Paper on Integrated Pollution and Waste Management for South Africa, Notice

227 of 2000

• Minimum Requirements for Waste Disposal by Landfill, 2nd Edition, 1998

• Minimum Requirements for the Handling and Disposal of Hazardous Waste, 2nd Edition,

• 1998

• Minimum Requirements for Water Monitoring at Waste Management Facilities, 2nd

Edition, 1998

• National Waste Management Strategy and Action Plans

• National Regulations, including:

o Government Notice R1182 GG18261, R1183 and R1184 of 05 September 1997

• Relevant Provincial Legislation, including:

o KwaZulu-Natal Planning & Development Act (Act 5 of 1998)


• Local government by-laws and legislation on waste management, including:

o Local Government Ordinance and Bylaws;

o Municipal Integrated Development Plan (IDP).

Some of these policies are briefly discussed below:

3.3.2 National Environmental Management Act (No. 59 of 2008)

The aim of the new Act is to: ‘reform the law regulating waste management in order to

protect health and the environment by providing reasonable measures for the prevention of

pollution and ecological degradation and for securing ecologically sustainable development;

to provide for institutional arrangements and planning matters; to provide for national norms

and standards for regulating the management of waste by all spheres of government; to

provide for specific waste management measures; to provide for the licensing and control of

waste management activities; to provide for the remediation of contaminated land; to

provide for the national waste information system; to provide for compliance and

enforcement; and to provide for matters connected therewith’.

It further states that:

• everyone has the constitutional right to have an environment that is not harmful to his or

her health and to have the environment protected for the benefit of present and future

generations through reasonable legislative and other measures that:

a. prevent pollution and ecological degradation;

b. promote conservation: and

c. secure ecologically sustainable development and use of natural resources while

promoting justifiable economic and social development;

• Waste management practices in many areas of the Republic are not conducive to a

healthy environment and the impact of improper waste management practices are often

borne disproportionately by the poor;

• Poor waste management practices can have an adverse impact both locally and

globally;

• Sustainable development requires that the generation of waste is avoided, or where it

cannot be avoided, that it is reduced, re-used, recycled or recovered and only as a last

resort treated and safely disposed of;


• The minimisation of pollution and the use of natural resources through vigorous control,

cleaner technologies, cleaner production and consumption practices, and waste

minimisation are key to ensuring that the environment is protected from the impact of

waste;

• Waste under certain circumstances is a resource and offers economic opportunities;

• Waste and management practices relating to waste are matters that:

a. require national legislation to maintain essential national standards;

b. in order to be dealt with effectively, require uniform norms and standards that

apply throughout the Republic: and

c. in order to promote and give effect to the right to an environment that is not

harmful to health and well-being, have to apply uniformly throughout the

Republic: and

d. require strategies, norms and standards which seek to ensure best waste

practices within a system of co-operative governance.

3.3.3 Environment Conservation Act 73 of 1989

The object of the Environment Conservation Act is to provide for the effective protection and

controlled utilisation of the environment. Any person who intends to establish or operate a

waste disposal site must apply for a waste activity licence from the Minister of Environmental

Affairs. The licence is made subject to a number of conditions, which inter alia pertain to the

design, construction, monitoring and closure of a waste disposal site.

In terms of the Section 19 of the Act, it is an offence to litter on any place to which the public

has access and the person or authority in charge of the area must provide containers for the

discarding of litter. In addition, every authority in control of any place must remove the litter

within a reasonable time. Provision is made for the appointment of inspectors to investigate

compliance with the Act. In terms of Section 24A of the Act, a competent authority may

make regulations with regard to the control of the dumping of litter.

Section 20 deals with waste management, including with the establishment and operation of

waste disposal sites. A disposal site is any site used for the accumulation of waste for the

purpose of disposal or treatment. Such sites may only be operated under a licence issued

by the Minister of Environmental Affairs and may be subject to specified conditions. The


DWAF Minimum Requirements documents form the basis for the licencing process and may

be included as licence conditions, thereby becoming legally binding on the licence holder.

The licence holder is generally required to operate, maintain and attend to the closure of a

waste disposal site in compliance with the licence conditions, as well as in accordance with

the guidelines set out in the Minimum Requirements documents.

3.3.4 Municipal Demarcation Act 27 of 1998

The Municipal Demarcation Act 27 of 1998 provides criteria and procedures for the

determination of municipal boundaries by an independent authority. In terms of the Act, the

Municipal Demarcation Board is established to determine municipal boundaries.

Section 24 provides that when demarcating a municipal boundary, the Board must aim to

establish an area that would enable the municipality to fulfill its Constitutional obligations,

including the provision of services in an equitable and sustainable manner, the promotion of

social and economic development and the promotion of a safe and healthy environment.

The tax base must also be as inclusive as possible of users of municipal services in the

municipality.

3.3.5 Organised Local Government Act 52 of 1997

The Organised Local Government Act 52 of 1997 provides for the recognition of national

and provincial organisations representing the different categories of municipalities and

determines various procedures concerning local government, including procedures by which

local government may consult with national and provincial government.

3.3.6 Municipal Structures Act 117 of 1998 The main objective of the Municipal Structures Act 117 of 1998 is to provide for the

establishment of municipalities in accordance with the requirements relating to categories

and types of municipality and to provide for an appropriate division of functions and powers

between categories of municipality. It is one of a set of legislation that is aimed at the

transformation of local government into a more financially sustainable and performance

orientated sphere of government. The Act is aimed at creating the permanent structures

mandated by the Constitution, which will replace the transitional structures created by the

Local Government Transition Act. Municipalities are categorised either as A, B or C.


depending on the level of development. Chapter 5 sets out the functions and powers of the

municipalities in accordance with the Constitution.

3.3.7 Municipal Systems Act No. 32 of 2000

The Municipal Systems Act describes the core principles, mechanisms, and processes that

are necessary to enable municipalities to move progressively towards the social and

economic upliftment of communities and ensure access to services that are affordable to all.

Its focus is primarily on the internal systems and administration of the municipality.

The Act enables the process of decentralisation of functions through assigning powers of

general competence to local Government. Municipal by-laws are regulated to achieve

harmony with national and provincial legislation. As service authorities, municipalities remain

responsible for the effective delivery of services and must provide an appropriate policy and

regulatory framework. This can be achieved through the most appropriate service provider,

ranging from internal departmental delivery to corporatization and joint ventures to private

sector delivery options. Performance management systems are to be developed to measure

and evaluate performance in priority areas, which are to be reported annually to citizens and

other spheres of government. The process to be followed in planning, drafting and adopting

the Integrated Development Plan is set out.

3.3.8 The Development Facilitation Act 67 of 1995

The Development Facilitation Act 67 of 1995 sets out a planning and land development

system, which ensures that national, provincial, and local government policies are

implemented.

Section 28 describes the requirements for Land Development Objectives, which must be

developed by each local authority. One of the objectives of Land Development Objectives is

to create a new system of planning that encourages sustained utilisation of the environment,

particularly with regard to the environmental consequences of developments. Municipalities

are encouraged to co-operate in order to develop the capacity of each municipality to

exercise its powers and duties and manage its affairs.


3.3.9 The Physical Planning Act 125 of 1991

The objective of the Physical Planning Act 125 of 1991 is to provide for the division of the

country into regions and to promote regional development. Policy plans consist of broad

guidelines for the future physical development of the area and restrictions are placed on the

use of land in the area to which the plan relates. Local authorities are required to develop

urban structure plans for their areas of jurisdiction.

3.3.10 National Environment Management: Air Quality Act 39 of 2004

The National Environmental Management: Air Quality Act 39 of 2004 is in the process of

replacing the Atmospheric Pollution Prevention Act (APPA), with the aim to reform the law

regulating air quality in order to protect the environment by providing reasonable measures

for the prevention of pollution and ecological degradation and for securing ecologically

sustainable development while promoting justifiable economic and social development; to

provide for national norms and standards regulating air quality monitoring, management and

control by all spheres of government; for specific air quality measures; and for matters

incidental thereto.

Part 2 of Chapter 2 of the Act sets out national, provincial and local ambient air quality and

emission standards, chapter 3 institutional and planning matters, chapter 4 air quality

management measures (priority areas, Listing of activities resulting in atmospheric

emissions, controlled emitters, controlled fuels and other emitters). Chapter 5 describes the

procedures to apply for licenses for listed activities, while chapter 7 describes the offences

and penalties for non-adherence.

3.3.11 National Water Act 36 of 1998

The National Water Act contains a number of provisions that impact on waste management,

including the disposal of waste in a manner which detrimentally impacts on a water

resource, and the discharge of waste into a water resource. The Act allows the Minister to

make regulations for:

• Prescribing waste standards, which specify the quantity, quality and temperature of

waste that may be discharged or deposited into or allowed to enter a water resource.


• Prescribe the outcome or effect, which must be achieved through management practices

for the treatment of waste before it is discharged or deposited into or allowed to enter a

water resource.

• Requiring that waste discharged or deposited into or allowed to enter a water resource

be monitored and analysed according to prescribed mechanisms.

3.3.12 Health Act 63 Of 1977

The Health Act 63 of 1977 provides measures for the promotion of health, for the rendering

of health services and defines duties of certain authorities which render health services in

the Republic.

Section 20 sets out the duties and powers of local authorities. It provides that every local

government is obliged to take measures to maintain its district in a clean and hygienic

condition and to prevent the occurrence of any nuisance, unhygienic or offensive condition

or any other condition, which could be of danger to the health of any person. A “nuisance”

includes any accumulation of refuse or other matter that is offensive or is injurious or

dangerous to health. The local government is obliged to abate the nuisance or remedy the

condition and to prevent the pollution of any water intended for the use of the inhabitants of

its municipal area.

Draft regulations for the control of environmental conditions constituting a danger to health

or a nuisance were published in GNR21 of 14 January 2000. In terms of the regulations,

registration is required for: concerns that to carry out a scheduled trade, including waste

incineration, waste (including medical waste) disposal sites and waste collecting, sorting,

treating or processing sites.

3.3.13 White Paper On Environmental Management Notice 749 of 1998

The White Paper on Environmental Management was published in 1998. This policy sets

out government’s objectives in relation to environmental management, how it intends to

achieve its objectives, and to guide government agencies and organs of state in developing

strategies to meet their objectives.

The policy document is an overarching policy framework that refers to all government

institutions and to all activities that impact on the environment. The policy states that


government will allocate functions to the institutions and spheres of government that can

most effectively achieve the objectives of sustainable development and integrated

environmental management. This would include the allocation of certain functions to the

municipal sphere of government. Where appropriate, provincial and local government are to

develop their own legislation and implementation strategies to address their specific needs

and conditions within the framework of the policy.

The National Waste Management Strategy 1st Draft (DEA, 2010), is currently under public

review. This document will greatly assist all spheres of government, as well as the private

sector with the implementation of the newly published Waste Act (no.59 of 2008).

3.3.14 White Paper on Integrated Pollution And Waste Management For South Africa, Notice 227 of 2000

The White Paper on Integrated Pollution and Waste Management (IP&WM) was published

in March 2000 and represents formal government policy regarding IP&WM. Integrated

pollution and waste management is defined as a holistic and integrated system and process

of management aimed at pollution prevention and minimisation at source, managing the

impact of pollution and waste on the receiving environment and remediating damaged

environments. Waste management is to be implemented in a holistic and integrated manner

and extend over the entire waste cycle from cradle-to-grave and includes the generation,

storage, collection, transportation, treatment and disposal of waste.

The overarching goal reflected in the policy is integrated pollution and waste management,

with the intention being to move away from fragmented and uncoordinated pollution control

and waste management towards integrated pollution and waste management as well as

waste minimisation. Within this framework of the overarching goal, the following strategic

goals apply:

• Effective institutional framework and legislation;

• Pollution and waste minimisation, impact management and remediation;

• Holistic and integrated planning – the intention is to develop mechanisms to ensure that

integrated pollution and waste management considerations are integrated into the

development of government policies, strategies and programmes as well as all spatial


and economic development planning processes and in all economic activity. The

strategic mechanisms include the following:

o The incorporation of integrated environmental management principles and

methodologies in spatial development planning as it relates to pollution and waste

management;

o Making timeous and appropriate provision for adequate waste disposal facilities;

o Developing management instruments and mechanisms for the integration of

pollution and waste management concerns in development planning and land

allocation;

o Developing appropriate and agreed indicators to measure performance for inclusion

in EIPs and EMPs as provided for in the National Environmental Management Act;

o Participation and partnerships in integrated pollution and waste management

governance;

o Empowerment and education in integrated pollution and waste management;

o Information management; and

o International co-operation.

3.3.15 DWAF Minimum Requirements for Landfill, 2nd Edition, 1998

The Minimum Requirements provide applicable waste management standards and/or

specifications that must be met, as well as providing a point of departure against which

environmentally acceptable waste disposal practices can be assessed. The objectives of

setting Minimum Requirements are to:

• Prevent water pollution and to ensure sustained fitness for use of South Africa’s water

resources.

• Attain and maintain minimum waste management standards in order to protect human

health and the environment from the possible harmful effects caused by the handling,

treatment, storage and disposal of waste.

• Effectively administer and provide a systematic and nationally uniform approach to the

waste disposal process.

• Endeavour to make South African waste management practices internationally

acceptable.

• Before a waste disposal site licence is issued, adherence to the Minimum Requirements

conditions will be required from the licence applicant. The Minimum Requirements


promote the hierarchical approach to waste management, as well as a holistic approach

to the environment.

3.3.16 National Waste Management Strategy and Action Plans

The overall objective of this strategy is to reduce the generation of waste and the

environmental impact of all forms of waste and thereby ensure that the socio-economic

development of South Africa, the health of the people and the quality of its environmental

resources are no longer adversely affected by uncontrolled and uncoordinated waste

management. The internationally accepted waste hierarchical approach of waste

prevention/minimisation, recycle/reuse, treatment and finally disposal was adopted.

The strategy outlines the functions and responsibilities of the three levels of government

and where possible, firm plans and targets are specified. During the development of the

strategy a number of priority strategic initiatives were identified which were categorised into

short-term (by the year 2004), medium-term (by the year 2008) and long-term (by the year

2012) initiatives. Action plans have been developed for the short-term initiatives for

integrated waste management planning, a waste information system, waste minimisation

and recycling, general waste collection, waste treatment and disposal, and capacity

building, education, awareness and communication. A logical framework analysis approach

was adopted to develop the Action Plans that analysed the problems, stakeholders, and the

risks to successful implementation followed by the development of outputs, activities, inputs

and assumptions, as well as a proposed allocation of functions, roles, and responsibilities of

the three levels of government. The roles and responsibilities in terms of the NWMS for

local government include:

• Integrated waste management planning: Local government will be responsible for the

compilation of general waste management plans for submission to provincial

government.

• Waste information system: Local government will be responsible for data collection.

• Waste minimisation: Local government will implement and enforce appropriate national

waste minimisation initiatives and promote the development of voluntary partnerships

with industry.

• Recycling: Local governments are to establish recycling centres and/or facilitate

community initiatives.


• Waste collection and transportation: Local governments are to improve service delivery.

Private public partnerships to assist service delivery are encouraged.

• Waste disposal: Local government is to take responsibility for the establishment and

management of landfill sites, and to promote development of regionally based facilities.

Formalising and controlling of scavenging is the responsibility of the licence holder.

The newly formulated National Waste Management Strategy 1st Draft for Public Comment

(DEA, 2010) will be the guiding document for all parties involved in any sphere of waste

management. Applications for local municipalities are discussed in detail under Chapter 7

below.

3.3.17 Polokwane Waste Summit Declaration

During September 2001 a national waste summit was held at Polokwane, in the Northern

Province. It was attended by all stakeholder groupings in the waste field in order to jointly

chart a way forward in terms of waste management. The resultant Polokwane Declaration

includes a vision and goal for the management of all waste, i.e. domestic, commercial and

industrial:

Vision - To implement a waste management system, which contributes to sustainable

development and a measurable improvement in the quality of life by harnessing the energy

and commitment of all South Africans for the effective reduction of waste.

Goals - To reduce waste generation and disposal by 50% and 25% respectively by 2012

and develop a plan for zero waste by 2022.

The Polokwane Declaration has significant implications for local government. In order to

move towards the goal it will be necessary for government and other stakeholders to

engage more closely toward the achievement of this goal in a realistic and practical

manner. The key actions in the Polokwane Declaration that impact on local government

include the following:

• Implement the NWMS.

• Develop and implement legislative and regulatory framework.

• Waste reduction and recycling.

• Develop waste information and monitoring systems.


4. MUNICIPAL DESCRIPTION & BACKGROUND

The Emnambithi/Ladysmith (ELM) Local Municipality is located on the Northern corner of the

uThukela District Municipality in the KwaZulu-Natal Province and covers an area of 2 965

square kms. It is one of the five category B Local Municipalities in the uThukela District

Municipality. Ladysmith is at a geographical advantage as it is located centrally between

Gauteng and the coast, the Battlefields and the Drakensberg; which are characterized as tourist

attraction areas. ELM represents 34.3% of the District Population and comprises 25 wards

representing a range of settlements; from urban to municipal service centres, agricultural

landscapes, industrial, semi-rural and rural (traditional) residential settlements.

Figure 1 below shows the locality map of the ELM.

The total population for ELM in 2001 was 224 543, and in 2007 - 262 623; the increase in

population numbers can be attributed to more births than deaths, and also the high level of in-

migration, exceeding out-migration. The average annual growth rate (year on year) for ELM for

the period 2001-2007 is 2.65%, however, based on trending, the population increase is steadily

declining and was estimated at only 1.6% in 2008. According to the 2007 Census there was a

total of 51 881 households located within the municipal area, of this 70% is considered low

income, high density units located within informal settlement areas: Thembalihle, Ezakheni

section E, Nkanyezi Township, Ntokozweni (Colenso), Ndomba, Mbulwana and Mthandi.

New town and residential developments planned within the municipality area include:

• Aerodrome – an airport development including an Eco- and Residential Estate with a

commercial centre;

• Stedone – Mixed-use development including commercial and residential areas;

• Swahina – Mixed-use development including commercial and sport facilities;

• Ezakheni Shopping Centre – Shopping Complex;

• And more.

These new developments will all result in an increase in general, as well as commercial and to

some degree industrial waste generation.


Figure 1: Locality Map of the Emnambithi/Ladysmith Municipal Area


5. CURRENT STATUS QUO

5.1 Waste Streams

Estimated current waste quantities and characteristics are summarized in Table 1 and Table 2

below:

Table 1: Estimated Current Waste Quantities for ELM (tons per annum)¹

Waste Quantities

Domestic Business Industrial Medical Hazardous Mining Total

Generated 37 188 13 749 11 078 ² ³ 7 62 022

Collected 37 188 13 749 11 078 ² ³ 7 62 022

Stored - - - 4 4 - -

Recycled 5 5 5 - - - 10 800

Treated - - - All - - -

Total Estimated Waste Disposed of at Landfill (tons per annum) 56 840

Notes:

¹ These quantities are estimates, based on waste volumes, as waste disposed of by

landfill is not currently weighed. ELM is in the process of installing a weighbridge at the

Acaciavalle Landfill, which should provide more accurate data.

² A private contractor manages all medical waste for ELM, which is transported to

Pinetown, Durban for incineration. Quantities are not public knowledge.

³ A private contractor handles all hazardous waste from the various industries, this is

transported to the Shongweni H:h landfill site in Durban for disposal. Quantities are

estimated at 40 – 60 t/month.

4 Data is not known. 5 Combined total of waste recycled within the ELM area is estimated at between 800 –

1 000 tons per month. Recyclables are collected from source by private contractors.

Therefore, an estimated 180 to 220 tons of waste is landfilled daily within the ELM area.


Table 2: Waste Characteristics

Waste Type Estimated % of Waste Stream

Paper 60%

Metal 4%

Glass 6%

Plastic 20%

Organic 10%

Although the general population growth in the area is steadily declining, the completion of new

housing and commercial complexes, will result in upliftment within the lower economic sectors,

this in turn will result in an increase in waste generation quantities within the current population.

Therefore, future waste generation calculations should allow for these additionalities. The EL

Municipality has also increased its area of jurisdiction in recent years, taking on additional

settlements and collecting waste from previously un-serviced areas, which has resulted in

additional streams of waste that require transportation, treatment or disposal.

Based on the current trending it can be estimated that waste generated within the ELM will

increase year on year by at least 20% for at least another two years, before stabilizing.

Figure 2: Waste Generation trending & Future Estimate


5.2 Landfilling Operations

No waste treatment facility (e.g. incineration, gasification) is located within the EL municipal

area, with all non-recycled waste currently being landfilled.

To conform to DWAF Minimum Requirements, many small illegally operating landfill sites within

the municipal area have been closed during recent years. Currently the ELM is only operating

one municipal Landfill site, namely Acaciavalle (Figure 3 below); however, this site also does

not conform to DWAF Minimum Requirements and it’s licencing requirements, and currently the

ELM is completing the site selection phase for establishing a new licenced landfill site. Once a

new site has been selected, licenced and become operational, the Acaciavalle landfill will be

closed and rehabilitated in accordance with DWAF Minimum Requirements.

Figure 3: Existing Municipal Landfill – Acaciavalle


Heavy equipment owned by the municipality and utilised at the Acaciavalle landfill includes one

(1x) landfill compactor, one (1x) front-end loader and two (2x) Tip trucks. The municipality is

currently completing the installation of a weighbridge at the landfill, which will greatly assist in

quantifying general waste volumes, as well as the general control and management of waste.

In addition to the one existing municipal run landfill within the ELM, there is also one privately

owned and operating landfill, which receives mostly industrial waste from surrounding factories.

Pieters Landfill is shown in Figure 4 below:

Figure 4: Privately Owned Landfill – Pieters Landfill

5.3 Municipal Services Waste Collection: 100% of urban areas (this includes residential suburbs, as well as all the

formal townships surrounding the Ladysmith CBD) receive weekly curbside waste removal.

However this is reduced to 20% of semi-urban areas (i.e. farming), and only 10% of

rural/traditional areas receive any kind of waste collection service; here the waste is either


buried, or burnt. Currently the municipality owns 10 waste collection trucks, however only four of

these are proper REL compaction trucks, the rest being open-air loading trucks. Municipal

collection Fees for the financial year 2009/2010 are tabulated in Table 3 below.

Some industrial and business sectors are making use of private contractors for waste removal,

especially recyclables – as there is a financial incentive for this.

Table 3: Municipal Refuse Removal Charges: 2009/2010 financial year

Category Service Cost

From Private dwelling Per weekly 84l receptacle removal R 34.66

Business & Other Per weekly 84l receptacle removal R 102.86

Domestic & Business Per 5x weekly 84l receptacle removal R 204.59

Bulk refuse, per m³ (minimum 3m³) R 57.02

Removal of Carcasses Large: i.e. cattle, donkeys & horses R 211.30

Medium: i.e. sheep, pigs & goats R 79.38

dogs & cats (per removal) and from vet R 98.38

Any carcass removal after hours Double tariff

Removal - bulk container 1.75m³ Daily (excl. weekend)/container/month R1 267.81

3x weekly/container/month R 848.56

2x weekly/container/month R 422.60

Refuse from 30m3 container Per removal (min 4/month) R 863.09

Refuse from 10m3 container Per removal (min 4/month) R 617.14

Refuse removal charges For Vendors – per annum R 49.19

Street cleaning (litter picking, sweeping, and cleaning of ablution facilities) is done from

Mondays to Fridays within the CBD area. Illegal dumping of waste within the CBD does not

seem to be a major concern, this could be due to there not being any gate fee/ charge for

disposal at the Acaciavalle landfill site. This may, however, change once the weighbridge is

operational and the public charged for waste disposal.

Garden refuse and Builder’s rubble is taken to the Acaciavalle landfill. Garden refuse is not

being utilized at this point, with all garden refuse being landfilled. The municipality is currently


reviewing a business plan for converting all garden refuse into compost. Builder’s rubble is

utilized as cover material and/or ground reinforcement, especially during the rainy season.

5.4 Siyazenzela Domestic Waste Management Programme The Siyazenzela Domestic Waste Management Programme was initiated in March 2009.

Beneficiaries of the programme collect refuse in previously un-serviced rural/traditional areas.

Twice monthly the collected waste is transferred to central collection points in medium density

areas and from here kerbside collection services transport the waste to landfill. The programme

ensures that litter is collected and illegal dumping sites controlled and cleared daily, as well as

supporting rural community upliftment.

In total, 197 beneficiaries are currently active in the programme, working a minimum of two days

per week within their demarcated area and receiving remuneration in the form of food parcels.

In addition, compulsory training is also provided covering subjects such as HIV/AIDS Education,

Basic Literacy, Municipal Service Delivery and more. Supervisors ensure that schedules and

obligations are met and a steering committee meets with the beneficiaries on a monthly basis.

The programme is administered by the ELM Waste Management Officer.

5.5 Recycling

As far as can be ascertained, the ELM is not currently actively involved in any recycling

initiatives, with two private companies seeming to dominate the entire district’s organized

recycling.

‘Why Waste’ claim to handle any recyclable material including paper, plastics, cardboard, scrap

metal, glass, textiles and un-vulcanised rubber, as well as the collection and transportation of

the waste. These are either collected from source – mainly through separation bins placed at

industrial and commercial locations, for which the recycler receives a financial incentive, or

reduction in removal fees of non-recyclable waste. Recyclable material is also procured from

informal recyclers that bring recyclables to the company’s warehouse, or collections from rural

areas. Some of these recyclers find the recyclables mainly by scavenging on the Acaciavalle

landfill site.


5.6 Medical, Hazardous and Industrial Waste

The municipality is currently not involved in the collection, transportation, storage, treatment or

disposal of any medical and hazardous waste generated within the municipal area.

Medical waste is managed by a private contractor, Compass Waste Services cc who transports

all medical waste to an incinerator located in Pinetown, Durban.

Hazardous waste is handled by another private company, Why Waste, who transports the waste

to the Hazardous waste disposal (H:h) site located in Shongweni, Durban. This company has no

formal link with the municipality. Cognizance needs to be taken of the fact that some hazardous

waste is stored on the contractor’s site within ELM until sufficient quantities are obtained to

validate a trip to the Disposal site. This may pose a health and safety risk within the municipal

area and require further investigation.

Industrial waste, excluding recyclables already separated out, as far as can be determined, is

either disposed of at the Acaciavalle General Landfill site, or at the privately owned Pieters

Landfill. Again, cognizance needs to be taken that this privately owned site (Pieters) may not be

licenced and operated in accordance with DWAF Minimum Requirements and may pose a

health threat to surrounding communities, particularly in the form of leachate contaminating

surrounding aquatic bodies i.e. ground and surface water.

5.7 Municipal Structuring

Municipal waste collection and transportation falls under the Department of Economic

Development, whilst the management of landfill sites and landfilling operations is administered

by the Department of Engineering Services, under the division Solid Waste and Flood

Management.

Future proposed Organograms for the two departments are provided in Appendix A.

A basic breakdown of the 2009/2010 financial year expenditure, as well as full time personnel

employed, for the two departments are tabulated in Table 4 below.


Table 4: Financial Expenditure 2009/2010 and staff employment per Department

Department Economic Development

Personnel R 5 880 716

Transportation Costs R 4 596 600

Operations & Maintenance R 1 500 000

Admin & Training R 20 000

Deficit R ?

Full-Time Staff Employed 103

Department Engineering Services: Solid Waste and Flood Management Division

Personnel R ?

Landfill Operating R ?

Operations & Maintenance R ?

Admin & Training R ?

Other R ?

Deficit R ?

Full-Time Staff Employed 20

Total Cost for Waste Management (both Depts) R ?

Total Staff Employed (both Depts) 123


6. GAPS AND NEEDS ASSESSMENT Gaps and needs identified within the ELM in terms of waste management are tabulated below:

Strategic Issues Gaps Needs

Integrated Waste

Management Planning

• Lack of waste avoidance

• Poor resource recovery

• Lack of waste treatment

• Poor waste disposal practices

• Implement separation at source

• Start recycling programmes

• Treat waste where possible

• Improve waste disposal practices

Waste Management Information

• Lack of waste information

• Lack of waste information collection, capturing and recording systems

• Lack of reporting requirements

• Lack of information management and dissemination systems

• Collect information regarding general waste management including operation of landfill sites

• Develop a Municipal Waste Information System (WIS)

• Monthly meetings to report on waste management

• Collect information on environmental impact and resources in general

Waste Collection Services

• Lack of access for collection services to some households especially rural areas

• Lack of standardized waste collection systems for some inaccessible areas

• Inflexibility of current waste collection systems to collect separated waste for recycling

• Illegal dumping

• Poor monitoring of waste collection services

• Include collection services for households in rural areas

• Appropriate and suitable waste collection systems for inaccessible areas

• Provide resources like appropriate refuse bags and bins to kick start separation at source

• Mark and monitor areas prone to

illegal dumping

• Regulate and monitor waste production through use of bylaws

• Enforce waste control measures



Waste Minimisation and

Recycling

• No separation at source

• Disposal of garden waste in landfill sites

• No composting facilities

• Poor coordination of recycling activities

• Implement separation at source to facilitate formation of more recycling centres

• Encourage people to use biodegradable materials to build their own composts

• Establish composting facilities to make use of all of garden wastes andother biodegradable materials

• Recycling infrastructure

• Market for recyclables

Waste Disposal Facilities

• Poor design of landfill sites

• Incorrect location of landfill site. Buffer zone is less than the required minimum of 500m

• Poor rehabilitation of abandoned landfill sites, rehabilitation not done as per DWAF Minimum Requirements

• Unlicensed Landfill sites

• Lack of fencing and poor access control

• Scavenging by people and animals

• No waste screens resulting in waste debris scattered in and around the landfill site

• Co-disposal of waste like garden waste with domestic waste, construction and demolition waste

• Design landfill sites as per DWAF requirements

• Build landfill sites in appropriate areas.Keep to buffer zone requirements

• Closed landfill sites should be rehabilitated as per DWAF Minimum Requirements

• Unlicensed landfill should be closed down

• Landfill site should be fenced to prevent scavenging

• Erect waste screens to prevent waste debris flying around

• Different types of wastes should be separated and disposed of appropriately

• Appropriate and efficient management of landfill sites

• Waste treatment and processing technologies and facilities



Closed Landfill Sites

• Poor site capping

• Poor ground water monitoring

• Poor site monitoring

• Use correct and sufficient capping material

• Ground water needs to be monitored to determine the extent of groundwater contamination

• Site monitoring should be done on an ongoing basis using pre-determined parameters

Institutional/ Organizational

• Institutional and organisational capacity

• Clearly defined roles and responsibilities

• To have an organizational structure in line with all waste management planning requirement

• Implement appropriate mechanisms for monitoring and enforcing waste management

• Ensure that enforcement efforts are efficient and well coordinated

• Ensure that there is sufficient capacity within the municipality for waste management planning, monitoring andenforcement and contracts management

Education, Capacity

Building and Awareness

Needs

• Lack of coordination of education and awareness

• Inadequate education and awareness on waste management issues

• Lack of comprehensive understanding of waste management issues

• Involve communities in waste management committees

• Educate communities and run awareness campaigns on waste management issues

• Conduct refresher courses on staff involvement with waste management issues

Table 5: Gaps and Needs Assessment for the EL Municipality


7. GOALS, OBJECTIVES AND POLICIES

7.1 NWMS Goals and Objectives

The main goal of IWM planning is to optimize waste management by maximizing efficiency, and

minimizing associated health and environmental impacts and financial costs; thereby improving

quality of life of all South Africans. The intention is to move away from the ‘cradle to grave’

approach to a fully integrated waste management approach based on the waste management

hierarchy:

Figure 6: Waste Hierarchy as set out by

the National Waste Management

Strategy (NWMS) draft

Paper 2010

The recently published National Waste Management Strategy (NWMS) First Draft, March 2010,

highlights Objectives as set out in the new Waste Act (No 59 of 2008). The primary focus of

these objects is the achievement of the waste hierarchy, but there is also a set of broader social

and economic objectives which the strategy aims to achieve. These objectives of the Waste Act

have been distilled into a set of high level goals and objectives for sustainable development for

each step of the waste hierarchy.

The goals and objectives of the NWMS are summarized in Table 6 below.


Table 6: Goals and Objectives for NWMS


Source: DEA National Waste Management Strategy, 1st Draft for Public Comment, March 2010

In addition to the above high level goals and objectives, there are a number of process related

goals and objectives relating to the mechanisms required to achieve the overall goals, which

reflect intermediate level outputs. The goals and objectives for these are summarized in the

table below.

Table 7: NWMS Process related goals and objectives


Source: DEA National Waste Management Strategy, 1st Draft for Public Comment, March 2010

7.2 NWMS: Notes on Local Municipal Obligations

The Waste Act

The Waste Act requires municipalities to ensure access to- and sustainability of waste services;

to provide waste services at affordable prices; and to keep separate financial statements for

waste services provided, amongst others.


Due to the significance of municipal waste services, the Waste Act needs to be read in

conjunction with the body of legislation regulating local government, including the Municipal

Finance Management Act, 2003, and the Municipal Systems Act, 2000, which create the overall

framework for planning, budgeting, service delivery and reporting at local government level.

The Waste Act also needs to be read in conjunction with other sectoral legislation. For example,

the Minerals and Petroleum Development Resources Act, 2002 section 39(3)(iii) states that

Environmental Management Plans must comply with any prescribed waste standard or

management standards or practices. The application of the Waste Act is also limited by

reference to other sectoral legislation – it does not apply to: radioactive waste, residue deposits

and residue stockpiles; the disposal of explosives; nor the disposal of animal carcasses, which

are all regulated by their own sectoral legislation.

There are some important overlapping provisions regarding waste services. For example,

section 94(e)(ii) of the Municipal Systems Act allows the Minister to make regulations or issue

guidelines for incentives and penalties to encourage the recycling of waste. In terms of section

74(1)(h) of the Municipal Systems Act, a municipal council must adopt and implement a policy

on the levying of fees for municipal services provided by the municipality itself or by way of

service delivery agreements. The policy encourages the economical, efficient and effective use

of resources, the recycling of waste and other appropriate environmental objectives.

Municipal Waste Management Services

Waste management services are a core function of all metropolitan municipalities and most

local municipalities, while district municipalities in general do not view waste management as

part of their functions. The Waste Act obliges the Department of Environmental Affairs (DEA) to

set norms and standards for waste management services, and draft norms and standards have

been published for public comments.

The DEA recognises that the levels of waste service will differ between areas depending on the

practicality and cost efficiency of delivering the service. The following minimum levels of service

have been proposed:

a) On-site appropriate and regularly supervised disposal (applicable mainly to remote rural

areas with low density settlements and farms supervised by the waste management

officer)


b) Community transfer to central collection point (medium density settlements)

c) Organised transfer to central collection points and/or kerbside collection (high density

settlements)

d) Mixture of (b) and (c) above for the medium to high density settlements.

Municipal Targets and Reporting

At local government level the primary focus on the reporting system should be on solid waste

management, and a specific set of indicators and targets are required in order to monitor the

sustainable provision of waste management services.

A minimum set of targets for use by municipalities in provision of waste services is set out

below:

• The number of households receiving a waste management service (% over time).

• Budget allocations to ensure financial support (% increase in budget over time).

• Equipment and infrastructure provision.

• Number of staff trained or capacitated to improve service.

• Percentage of community being aware of the waste management services.

• Reduction of waste to landfill

• Improvement of cost recovery measures.

The actual setting of relevant targets will be the responsibility of each municipality.

The NWMS seeks to mainstream waste management priorities and measures within

government planning and reporting systems, and ensure that it is accorded the appropriate level

of priority. At the same time, the DEA is cognisant of the real capacity constraints faced by

many government agencies, particularly municipalities.

Municipal By-Laws and Service Standards

Municipalities may develop their own by-laws to provide for a municipal waste removal system

in the municipal area. Municipalities may further set waste services standards for the

separation, compaction and storage of solid waste, the management and directing of solid

waste, and in respect of the control of litter. The Waste Act, however, requires that municipal

waste service standards are aligned with provincial and national norms and standards.


The DEA will prepare a draft model municipal by-law for regulating waste services, which can

be used as a basis for less capacitated municipalities to develop their own by-laws.

Expanding Service Delivery

The Municipal Systems Act, 2000, requires that in expanding services to non-serviced areas,

municipalities must evaluate the most appropriate method for service delivery, including the use

of external delivery mechanisms. Despite the potential for external mechanisms for waste

services delivery to contribute to greater efficiency and job creation, only 13% of authorised

municipalities have outsourced or commercialised service provision activities in 2007. The use

of community-based service delivery mechanisms has also been limited. The process for

evaluating service delivery mechanisms is set out in Section 78 of the Municipal Systems Act,

2000, and the procedure for establishing Public Private Partnerships is regulated in terms of the

Municipal Finance Management Act, 2003. National Treasury has issued detailed guidelines for

the utilization of PPPs by municipalities.

Municipal Waste Servicing Fees

Municipalities are also required to adopt a tariff policy for municipal services in terms of Section

74 of the Municipal Systems Act, and pass a by-law to give effect to that policy in terms of

Section 75. Current tariff policies and under-pricing of waste services over the years has led to

an average 15% operating deficit in municipalities. Waste service tariffs need to be

comprehensively reviewed by municipalities, and the DEA will prepare and issue guidelines in

this regard. The guideline will avoid artificially influencing pricing to support waste minimisation

objectives only. Alternative service delivery models need to be evaluated.

Larger, comparatively well-resourced metropolitan municipalities are experiencing fiscal

pressures in maintaining existing levels of waste management services and landfill capacity,

while many smaller municipalities face more severe capacity problems. In general, waste

services and landfill management charges are underpriced, and a large proportion of municipal

waste divisions are operating at a loss. By making alternative waste management options

relatively expensive, under-pricing waste service removes important incentives for waste

minimisation and encourages higher levels of disposal to landfill.


In terms of costing options, only one option, or fixed cost, has been made available to

households. Since waste disposal charges are set at a fixed rate, there is no financial incentive

for disposers to recycle and reduce waste generated. As a first step, full cost accounting is

required to properly understand the cost of waste services provision. On the basis of a proper

understanding of the costs, cost reflective tariffs must be charged to consumers across all

municipalities. Over the longer term, volumetric charging should be implemented by all

municipalities, as the requisite levels of administrative and financial capacity are built. Further

economic instruments to promote waste minimisation will be considered by government once

the pricing of waste services and disposal has been addressed.

Municipal Waste Management Funding

Local government is entitled to an equitable share of revenue raised nationally to enable it to

provide basic services and perform the functions allocated to it. The equitable share is an

unconditional transfer, and the distribution of the equitable share between individual

municipalities is formula based, taking into account population, levels of poverty and service

delivery, historical backlogs and capacity. The equitable share is part of the regulatory and

institutional framework which enables local government to operate sustainably and contributes

basic fiscal resources for each municipality to deliver a package of basic services to low income

households. Included in this package is free basic refuse removal to the indigent.

The Municipal Infrastructure Grant (MIG) is a capital subsidy that supplements the funding of

infrastructure programmes on municipal budgets, in order to address backlogs in municipal

infrastructure required for the provision of basic services including waste services.

Landfilling

Landfill capacity, licensing compliance and shortfalls in treatment and disposal facilities have

been identified as strategic challenges. It is the primary responsibility of municipalities to make

sure that the landfills are properly managed according to national standards, and that they are

licenced and are compliant with the conditions of their licences. At the same time municipalities

need to plan proactively for future airspace requirements, and to make the necessary

investments in capital infrastructure for this purpose.

(Source: DEA National Waste Management Strategy, First Draft, March 2010)


7.3 EL Municipal Goals, Objectives and Targets Summarised below are the Strategic Goals and Objectives as defined by the ELM, as well as

targets that it has set out to achieve in each sector. Below each sector, progress made thus far

in that area, as well as focus areas that need to be concentrated on are highlighted.

Table 8: ELM Goals, Objectives and Targets per Sector

1. Waste Information Management

Goal: To have accurate waste information data available and an effective waste

information management system.

Objective:

To develop an information system to capture relevant data for current

operation and future planning, in order to optimize waste management and

budgeting,

Establish a monitoring and information system to track waste generation,

collection, reuse, recycling, reprocessing and disposal in terms of waste flow

and facilitate waste exchange,

Assist in delivery of information on waste services,

Enforce the retrieval of information from the private sector.

Target: To have a fully operational Waste Information system (WIS) in place,

including extensive industry database and up-to-date waste management

information by 2011.

Progress thus far:

Complete study of waste generation quantities and categories.

Focus Area:

Complete and implement a fully functional, accurate and continuously

updated WIS.


2. Waste Collection Services

Goal: To provide an appropriate, affordable and sustainable waste collection service to all people within the ELM and ensure that they live in a healthy and clean environment free of illegal dumping.

Objective: To extend access to quality and sustainable waste management services to all sectors/areas,

Initiate and implement appropriate waste collection services to informal settlements, and high-density low income and informal trading areas especially taxi ranks. This should happen at all times during the day to create awareness about waste management issues within the community and thereby empower communities to take responsibility for the cleanliness of their surrounding environment,

To minimise illegal dumping and littering through sustained clean-up programmes, education and by-law enforcement.

Ensure that all private waste collection and transportation companies are registered on the municipal WIS.

Target: 70% of all households to receive a regular waste collection service by 2010

Illegal dumping to be phased out by 2012.

Progress thus far:

Establishment of the Siyazenzela Refuse Collection Programme – community based refuse collection in traditional areas with 197 beneficiaries, servicing 11 rural areas and 7 townships.

Focus Areas:

Expand the Siyazenzela Programme to all rural areas that does not currently receive any waste collection service.

Obtain funding in order to source additional servicing personnel and waste collection vehicles in order to meet increased demand.


3. Waste Minimisation and Recycling

Goal: To implement sustainable recycling within the ELM giving due consideration to social, environmental and economic factors.

Objective:

Encourage, educate and promote separation at source, waste minimisation and recycling,

promote cleaner production and reduced product manufacturing by-waste,

reduce waste quantities disposed of at landfill sites,

evaluate and implement appropriate mechanisms to formalise salvaging at the working face of the landfill site,

ensure that waste minimisation and recycling procedures and practices are adopted by all sectors of society,

create sustainable employment through local entrepreneur development in waste recycling partnerships,

comply with- and enforce government and local policies, strategies and legislation related to waste minimisation and recycling.

Target: A target of 50% reduction of domestic and commercial waste streams disposed to landfill within the short term (2012).

Progress thus far:

?

Focus Areas:

Currently all recycling initiatives are private enterprises, employing 140+ staff. The ELM’s position needs to be identified, defined and then expanded.

Formalising landfill site salvaging.

Implement a study of local industries to access progress in cleaner production and minimizing waste.


4. Waste Disposal

Goal:

Ensure sufficient long term waste disposal capacity that is environmentally and publicly acceptable, also ensure that all landfills are progressively rehabilitated in such a manner so as to minimise the impact on the environment and nearby communities.

Objective:

To ensure at least 25 years or more of licenced landfill airspace to serve the current and projected waste disposal needs of the Municipality,

develop a plan for the progressive rehabilitation of current and future landfill sites to the approval of the regulatory authorities (DWAF), and addresses long-term impacts such as water pollution and landfill gas emissions,

upgrade the operating landfill sites to meet DWAF minimum requirements, ensure that all waste disposal sites are registered,

address the potential impact of- and possible rehabilitation of all of the closed historical dump sites within the Municipality,

consider the long-term approach for waste disposal beyond 25 years. Identify options to meet future waste disposal needs and develop an optimum strategy for timeous implementation.

Target:

Develop and commission a new landfill site to receive all waste by 2011,

Complete assessment of all historical sites,

submit rehabilitation plans for current operating landfill sites by end 2010,

closure and rehabilitation of all illegal dump sites by 2011.

Progress thus far:

Closure of all municipal owned illegal dump sites,

Currently in site selection phase of establishing a new licenceted ELM landfill,

Completion of rehabilitation plans for closed sites currently being drafted.

Focus Area:

Completing new landfill site selection, licencing and commissioning.

Develop strategies for future waste management planning and implementation.


5. Garden Waste and Composting

Goal: To divert green and garden waste from the general waste stream to

composting facilities.

Objective:

To develop an incentive based integrated garden waste and

composting strategy to achieve the proposed goal of 50% diversion of

garden waste from landfill sites,

develop partnerships with the private sector so as to optimise the

management, quality, marketability of the garden waste sites and the

final compost product,

investigate ways of sourcing and collecting green and garden waste

separately from the general waste stream,

encourage the participation of the public in achieving the goal and the

key objectives, through education and awareness and also by creating

an incentive based composting strategy

investigate and determine the viability of enhancing the garden waste

compost product with the addition of an acceptable and treated waste

water sludge (biological and inorganic quality).

Target: Divert 50% of green and garden waste currently being landfilled to

existing or new garden waste composting sites by 2011.

Progress thus far:

ELM is currently reviewing a business plan for establishment of a composting

facility.

Focus Areas:

Complete review of the business plan, should plan not be deemed feasible,

investigate alternative options.


6. Organisational, Institutional and Regulatory

Goal: Successful implementation and review of the waste management plan

from an organisational and institutional perspective with all targets set up by IWMP being realized.

Objective:

Establish an organisational structure in line with all waste management planning requirements and activities,

to implement appropriate mechanisms for monitoring and enforcement of waste management by-laws,

ensure that enforcement efforts are efficient, well coordinated and effective,

ensure that activities of all relevant municipal staff and departments are well coordinated and aligned,

ensure that there is sufficient capacity and capability in the municipality for planning, contract management, and monitoring or enforcement,

review and incorporate additional by-laws required for the implementation of the IWM plan.

Target: Establish effective monitoring and enforce waste by-laws

Employ required staff in order to build up capacity

Progress thus far:

Appointment of a Waste Management Officer (WMO) as required by the new Waste Act (no.59 of 2008)

Focus Area:

The ELM waste departments need to familiarize themselves with the new Waste Act (no.59 of 2008), as well as the newly published DEA National Waste Management Strategy (1st draft, 2010) to ensure that newly adopted legislation is being met and enforced.

Where required, additional municipal by-laws need to be written or abridged.

Scrutinize budgetary requirements and approach external funders if required


7. Waste Management Education, Capacity Building and Awareness

Goal:

Ensure that the populace of ELM are informed and made aware of waste

management issues in general and of the integrated waste management

system and that municipal staff involved with waste management and

related issues are competent to implement the plan successfully.

Objective:

Develop and implement a communication and public awareness

programme,

To build capacity and raise the skill profile of the municipal staff,

ensure that the public and private sector understand their specific roles

and cooperate and participate in the waste management issues,

to have a relatively high level of commitment and understanding from

the public and from industry to strive for a clean environment,

to have a number of successful awareness campaigns established

within the municipal area,

change the historical mindset around illegal dumping and littering.

Target: 80% of the ELM populace will have been exposed to information and

been made aware of waste management and waste management

planning issues by 2011.

Progress thus far:

Waste awareness campaigns are periodically run within the municipal area,

promoting i.e. city and rural clean-ups.

Focus Area:

Broaden the awareness campaigns into all previously un-serviced areas.


8. COMMUNICATION AND PUBLIC PARTICIPATION

8.1 Public Awareness and Communication

Two specific clauses of South Africa’s Constitution must be considered, namely:

• Section 24 of the Bill of Rights guaranteeing environmental rights for the people of

South Africa; and

• Section 32 covering the Constitutional right concerning access of the public to

information held by the state or persons concerning the state of the environment, and

how it affects their health and well being.

Coupled with these, the Discussion Document towards a White Paper on Integrated Pollution

Control and Waste Management (DEAT and DWAF, May 1997) has the stated vision: ‘To

ensure sustainable and equitable use of air, water, and soil/land by empowering all South

Africans to participate through a holistic approach to the creation, maintenance and

management of a clean and healthy environment as envisaged by the Constitution.’

In order to manage waste correctly (optimally), people need to have access to information to

enable them to participate from a base of knowledge and expertise. All citizens of South

Africa must adopt a culture of waste avoidance or minimisation, in order to create the context

within which waste reduction can be achieved to ensure the sustainable use of natural

resources. Environmental education and capacity building are vital to create the context within

which the need for waste reduction and correct disposal can be understood, promoted and

practiced.

Suggestions for Public Awareness & Communication An Awareness Campaign is crucial to make people aware of the Integrated Waste

Management plan for the Municipality. This awareness campaign needs to have the full

support of the Municipality and other Government Departments; including the Department of

Environmental Affairs, Department of Health and the Department of Education.

This campaign needs to look at an integrated approach to community awareness, this can

include one or more of the following campaigns: -

• Site visits by schools, community groups and businesses to the recycling centre.

• Awareness programs at schools, crèches, hostels etc.

• Town and school clean up campaigns, with prizes for the most waste collected.


• Awareness through plays, pantomimes, dances and song.

• Teaching of community members to use waste as a resource in their homes and to

make crafts, which can be sold.

• Encouraging schools to establish recycling centres and use as much of the waste for

arts, crafts, gardening and functional gadgets.

• Adopt a spot campaign.

• Environmental Clubs.

8.2 Public Information The establishment of a library with information on recycling, waste minimization and

integrated waste management is recommended. In the event of the public looking for

information, a central office should have a selection of books on the above subjects and

numerous national and international publications on waste issues. This could either be

located at the existing library or the Environmental Department municipal offices.

8.3 Public Participation In order to enhance the public environmental awareness campaigns some recommendations

are made below:

• The environmental advisory unit within the Department of Environmental Affairs should

be engaged, as their contribution to the programme could be invaluable,

• The establishment of environmental youth clubs is seen as an integral part of the

programme that has a potential to draw youth involvement into implementing

environmental outreach programmes,

• Community meetings, roadshows, interaction through local radio stations and door-to-

door distribution of information are tools that should be implemented to encourage

recycling activities,

• Local schools should be encouraged to participate in recycling activities and

environmental education should be included in the school curriculum.

• Ward Councillors could be encouraged to revive or set up environmental desks where

street representatives could be allocated.

• Meeting with traditional leadership to encourage their ownership and communication of

such initiatives into the rural areas.

• Publication of articles in local newspapers, printing of posters and information leaflets.


9. IMPLEMENTATION PROGRAM

9.1 Implementation Parameters and Policies

Each specific strategic priority needs a diverse set of resources and capabilities for

effective implementation. The implementation instruments that are required to ensure

successful implementation include:

• Information: Bylaws need to be introduced to ensure the cooperation of the

Private Sector in provision of waste related information. Because of strong

competition within the waste management industry, regulations would have to be

imposed to obtain the required information. These bylaws could describe in detail

the responsibility of the waste producers, the waste transportation organizations,

and the recycling and/or disposal facilities. The local by-laws will have to be in

line with national law and policy. The development and promulgation of National

regulations is essential to act as a support to the implementation of by-laws

relating to information gathering.

• Recycling: If by-laws are implemented for recycling, it is necessary to provide a

"level playing field" for all recyclable commodities to ensure the effectiveness of

the objectives. The Municipal Council can regulate recovery of recyclable

materials through legal contracts that would define the quantities and type of

waste delivered and the charging systems to be applied. The licensing of a

business could be linked to the requirement to separate and recycle specified

waste materials. Industrial estates should be encouraged to form waste

minimization and recycling groups within the area. This would require the

preparation of instructions for waste minimization, separation at source, recycling

and proper disposal.

• Enforcement: Enforcement of the by-laws has always been an integral

component of the success of the by-laws. However, insufficient capacity,

uncertainty regarding enforcement jurisdiction, low fines and penalties,

disinterest or low priority given to waste management offences, have all

contributed to many offenders not complying with by-laws. Enforcement is critical

to the success of the plan.

• Economic Instruments: Economic instruments can be used to ensure that the

costs of providing waste management services are recovered, as well as to

influence the behaviour of waste generators and to ensure the preferred direction


of the waste stream, i.e. disposal or recycling. Economic instruments may

therefore promote the optimal utilization of services and provide incentives to

reduce waste production. It is generally thought that economic instruments for

environmental protection can generate the same level of waste reduction at a

lower cost than via the more conventional regulatory approach.

• Communicative Instruments: Effective communication is vital to the ultimate

success and sustainability of the plan. There are two types of communicative

instruments:

o Information: The presence of knowledge and understanding of the waste

system is of vital importance in order to enable the parties involved in

waste-management to co-operate and act as intended. The transfer of

information has therefore become essential in modern waste management.

Information generally has two purposes:

1) An instructive purpose; and

2) A motivating purpose

The instructive purpose aims to inform people of what to do. It can be

information about the correct sorting of waste or it can be information about

where to deliver certain fraction of waste e.g. where to deliver used

batteries. This type of instructive information will often be a combination of

national campaigns and local information.

The motivating information will often be national, provincial and local

campaigns informing and motivating people to be "waste aware". It could

include campaigns that explain why the public should actively participate in

integrated waste management.

To ensure maximum involvement by the generators as well as by the

private waste companies, an education awareness programme (as

discussed under section 8) will have to be set up by the municipality. This

will serve to highlight issues relating to legislative requirements, benefits to

the private and the commercial sector, waste management requirements

and the different waste information systems.

o Capacity building: Implementing and controlling national legislation and

governmental policies require a certain administrative capability at all

administrative levels. This means that each administrative level should

have a sufficient number of staff with the appropriate professional

knowledge to administrate the regulation and supervise the public.


The waste management planning process, which is strategic process-

oriented and problem based, as well as the implementation process, may

be more challenging for the officials then a more technical and goal-

oriented concept. Therefore, capacity building in this field is necessary

within the municipal (and utility) waste departments. With respect to the

utility, responsibility will be upheld through the service delivery agreement.

Capacity building will also have to be undertaken at political level and the

structures which are currently in place could be used for this.

The municipal short-term action programme should include measures to

improve the capability of the officials engaged in waste management

planning. Education and training activities may comprise the following:

General environmental and waste management education;

Training in planning issues in general and waste management planning

in particular;

Waste information systems;

Technological solutions for the waste sector, including collections

systems, transfer and transport systems, recycling, recovery and

treatment facilities(composting), and disposal facilities;

Issues regarding utility/private sector participation, including tender

documents and procedures, tender evaluation and selection of

contractors, contract negotiation; contract monitoring and follow-up;

quality control and follow-up;

Operations control and planning, including operations of disposal

facilities;

Management issues, including accounting systems, employment, team

building, work planning and division of responsibilities; and

Political processes, dissemination of information and public

consultations, including understanding of the approval process of the

waste plan and involvement of the public.

• Institutional Capacity: For the successful implementation of the plan, appropriate

institutional capacity for training and human resources development for waste

management within the municipality should be established at the central level. All

staff should have appropriate training in waste management, and if this is

currently not the case, skills and training will have to be provided.


Private sector involvement in waste management implies a shift in the role of the

municipal institutions from service provision to contract management and

regulations. The ELM must encompass the following roles regarding the legal

administration of waste management:

ο Regulations;

ο Planning;

ο Public service; and

ο Monitoring and control.

It is important that one department dedicated to waste management within the

municipality undertakes all or most of the main functions mentioned above. The

advantages of having a one stop department dealing with waste management

include the following:

ο It establishes a single point of responsibility for waste management, where

the manager has a level of authority which is corresponding to his/her

responsibility;

ο It facilitates long term planning and monitoring /control of performance;

ο It aids in the development of a common approach to waste management

(e.g. progress from a reactive to a proactive approach);

ο It facilitates planning and co-ordination of service provision;

ο It reduces overlap in activities and potential conflict of responsibility

between different sections;

ο It encourages personnel management and co-ordination;

ο It facilitates personnel training, development and budgeting.

• Municipal Task: Implementation of new legislation and requirements regarding

waste management requires a review of the management and organization of

waste management in the ELM. The two Departments within the Municipality

involved with waste management must meet the needs of waste management

while also meeting the social and economic aspirations of the area (reducing

poverty and unemployment). This requires a description and evaluation of:

ο Functions of the municipality in waste management administration, with

particular reference to four key roles, which they are required to discharge:

as regulating authorities; waste management planning; provision of

services; and controlling the operation of service providers.

ο Regulations, which cover the legal obligation of the Municipality, waste

producers and those engaged in collection and disposal of waste.


ο Operational issues in connection with the function of collection, recycling or

disposal of waste including advantages and disadvantages of public,

private and combination of public/private involvement in the waste

management system.

Regulations: The enforcement of waste management regulations presents

a major challenge to the municipality in terms of resources and

management systems. Implementation of local regulations (by-laws)

requires ongoing review and compliance monitoring. Such review would

cover:

Waste collection schemes, market conditions and controls;

Recycling centers, buy-back centers, composting plants, disposal site,

etc. which should be subject to annual reviews, regular spot checks and

compliance with operational plans;

Collection of information about waste quantities and types reported and

analysis of this data;

Illegal dumping.

The municipality should assess compliance with regulations and by-laws on

the basis of these inspections and assessments. Actions resulting from the

supervisory role could include:

Follow up inspections of waste generators, collectors, transporters and

disposers where irregularities in waste type or quantity are indicated in

spot tests, and fines can be imposed accordingly. Repeat offences, which

result in environmentally irresponsible handling of waste, can be dealt

with by revoking their licenses or through legal remedy;

Fines and/or imprisonment of offenders who illegally dump their waste.

Waste Management Planning: Waste management planning includes the

continuous review of the IWM Plan, public participation, environmental

impact assessment process, data collection, recording of collection,

recycling, treatment and disposal methods, and feasibility studies on the

technical, financial and administrative aspects of waste systems, monitoring

and evaluation. The following illustrates in general the tasks/activities that

will be required for integrated waste management planning:

Establish by-laws to implement national and provincial regulations, and

review of new legislation;

Collection of information and data for planning and of Provincial/National


requirements;

Incorporating waste minimization and recycling in municipal waste

management activities;

Promote the development of waste minimization and recycling

partnerships with the private sector;

Regulate waste management activities undertaken by the Waste

Management utility (collection, disposal, composting initiatives, etc.);

Establish public-private partnerships;

Co-ordinate collection contracts for high-density low income areas (i.e.

informal settlements);

Review, evaluate and report on the performance of community waste

collection services and programmes;

Monitoring progress on implementing waste management plan initiatives;

Developing communication strategies;

Embark on the WIS education;

Enhance education and awareness on recycling to promote extensive

implementation of recycling and composting practices;

Undertake waste minimization, recycling and waste management

education, awareness and communication programmes;

Commenting on environmental impact assessment within interacting

areas, such as water, air, land-use and traffic;

Revise and update general waste management plans;

Establish and implement waste data collection systems;

Setting up pilot projects;

Implement the guidelines for health care waste and hazardous waste

collection and transportation;

Co-operation and exchange of experience among stakeholders such as

National, Provincial, other Councils and service providers.

Public Service: The concept of customer service is an essential part of the

municipal role in relation to waste management. This requires the

establishment and maintenance of an information database and reporting

systems by means of which the public both directly and through the media

can be informed. These systems would facilitate the recording of public

complaints with the municipality. The public relations role of the municipality

will also be to disseminate information through pamphlets, which could


include information on:

Waste management initiatives within the ELM;

Locations and availability (generally) of recycling centers;

Location and contact details for the municipality;

Reporting and complaints hotline numbers, etc.

Apart from information dissemination, customers invariably seek answers to

questions and make complaints about services. Systematic recording of these

interactions provides valuable information on the public attitude to the service

and may assist in identifying performance weaknesses. In promoting recycling

and waste reduction, public information plays a critical role. Such information

can usefully be provided through public meetings, schools, libraries, and

residents associations. In relation to commercial waste, it is considered

necessary to have a published booklet, which provides information to

customers on collection schemes, regulations and by-laws, recycling or

disposal facilities and suitable outlets for different types of waste. Personal

contact via regional environmental health officers as well as central waste

officers will play an important role in communicating this information to waste

generators.

To ensure that the municipality is seen to be active in waste management, a

system aimed at facilitating the management of complaints, reports and

questions posed by the people of the ELM, must be established within the

municipality. The system will facilitate, among other things:

ο Systematic and user friendly recording of complaints by type, location,

source, dates and other attributes;

ο E-mail generated complaint processing;

ο Complaint handling (assignment of complaint relevant section);

ο Complaint monitoring (recording of action planned and action taken);

ο Resources analysis and management ( response time, manpower, and cost

required to rectify); and

ο Public relations (automatic letter of acknowledgement and status reports to

news media and public).

Monitoring and Control: Relevant municipal departments must undertake

the following activities:


Prepare and conduct competitive tendering processes for involving the

private sector in waste collection, waste recycling and treatment, etc;

Undertake contract negotiations, administration, control and monitoring

of contracts performance management;

Inspect and monitor areas that are prone to illegal dumping;

Compliance monitoring of license holders;

Monitoring of the implementation of this plan;

Monitoring and inspection of service providers to determine their

efficiency of operation.

9.2 Implementation Requirements

• Human Resources: A substantial increase in human resources and other

corporate resources within the municipality will be required to effectively

implement the waste management plan. In terms of additional staff resources, the

waste management departments shall be organized to fulfill its new functions to

ensure compliance with relevant legislation. Implementation of this plan will

require considerable efforts to plan and initiate projects; provide overall guidance

and supervision of various projects and activities, and to coordinate the efforts of

the municipality and other stakeholders. The IWMP cannot be effectively

implemented if the planning process is not properly institutionalized, and if

additional personnel resources are not mobilized.

• Financial Resources: Additional investment in new infrastructure as well as the

provision of services for the following primary categories are required:

ο collection of information;

ο collection of waste in inaccessible areas;

ο recycling facilities (drop-off facilities, buy-back centres) and separated waste

collection;

ο composting facilities;

ο transfer facilities; and

ο landfill development.

To ensure the success and sustainability of the projects which will come out of the

waste management plan, each project will require detailed financial planning and

budgeting.


Types of Financial Sources Financing sources for the municipality could be found in a number of

arenas, such as Provincial and National government, and international

funding from Denmark (DANIDA), Germany (GTZ), Norway (NORAD),

Japan (SIDA), etc. The sources listed below are not exhaustive. Further, it

must be recognised that some sources could provide financing for project

planning, while others may be suited to project implementation (particularly

construction).

Local Sources The Municipal Infrastructure Investment Unit (MIIU), a source for

support for municipalities which are committed to investigating

Municipality Service Partnership;

The Development Bank of Southern Africa (DBSA), willing to

finance a portion of solid waste facilities;

Consolidated Municipal Infrastructure Programme (CMIP);

The Industrial Development Corporation (IDC) which is publicly

committed to funding infrastructure projects;

Capital Expenditure Programme (CAPEX), which finances capital,

projects such as the development of buy-back centres;

The South Africa Infrastructure Funds, which is composed of

numerous insurance and pension funds members, with an interest

in funding infrastructure projects in South Africa.

International Sources International Finance Corporation (IFC), a member of the World Bank

Group, a private sector division which finances private sector projects in

developing countries and helps companies to access financing in

international markets can be approached. IFC promotes sustainable private

sector investment in developing countries as a way to reduce poverty and

improve people's lives.


10. MONITORING AND REVIEW

10.1 Introduction

The monitoring and review of the waste management plan is an essential element of

the plan process and serves to ensure that sustainable waste management is achieved

in the ELM. Monitoring the plan's implementation is necessary to make sure it provides

a relevant, cost effective, sustainable and flexible framework to guide waste

management development and that if required, adjustments can be made to the plan.

As the development of the plan in some cases has been based on certain

assumptions, it would be best to verify these by monitoring so that the waste

management plan and its various projects can be reviewed and refined with time.

10.2 Monitoring An effective monitoring programme is essential to provide information against which

the plan's performance is measured. For example, monitoring waste information over

time can indicate the extent of change in the community's behaviour and this in turn will

provide an indication of waste generation levels in the future. The objectives of

monitoring are to:

• Ensure that progress on the implementation of the waste management plan is on

track;

• Programme adjustments and refinements can be made where required;

• Improvement in service provision;

• Fulfilling the monitoring requirements as may be imposed in terms of the provisions

of the Local Government: Municipal System Act and other legislation.

To ensure that implementation of the IWMP runs smoothly and that the system is

sustainable, regular monitoring is required. Improvements and alterations to an IWMP

will enhance the plan and ultimately improve waste management in the ELM.

Monitoring Activities: Monitoring should focus on the short-term objectives of the

waste management planning process to assess current problems and hurdles and

to re-evaluate the implementation programme for the short, medium and long term.

Monitoring of activities will therefore determine to what extent targets are being

met. Overall monitoring activities could include:


ο Verification of volumes of waste generated, recycled and disposed;

ο Measuring the success of various collection services;

ο Assessing recycling and composting initiatives;

ο Monitoring illegal dumping and littering;

ο Investigate effectiveness of legislation, regulations, ordinances and/or by-

laws;

ο Follow-up complaints received regarding poor waste management;

ο Management and control salvaging at landfill sites;

ο Audit compliance of landfill sites to licence conditions, etc;

ο Scrutinise finances, such as expenditure and income, payment for services,

and recovery of cost, unit cost, etc.

The guidelines on Integrated Waste Management Planning from the National

Waste Management Strategy list what type of activities should be considered for

monitoring. These include:

Table 9: Strategic Monitoring Issues

Strategic Issue Monitoring Required

General Issues:

• Resource situation;

• Staff appointments, allocation of functions and training;

• Payment for services;

• Rates of generation of waste, verified by the waste information system;

• Reporting to the waste information system;

• Illegal dumping and littering;

• Complaints regarding poor waste management.

Waste prevention and minimization:

• Annual reports of waste minimizing programmes and projects;

• Annual environmental reports on emissions to air, water and land;

• Achievements of targets for prioritizing waste streams and pollutants;


• Information exchange and the establishment of waste minimization clubs.

Collection and Transportation:

• Annual reports on the implementation of collection and transportation services;

• Payment received for waste collection and transportation services as against actual cost for provision of these services.

Recycling:

• Annual reports on waste recycling programmes and projects;

• Information exchange between stakeholders;

• Stakeholders forums coordinating new recycling activities;

• Social and environmental impacts of the implementation of new recycling initiatives;

• Treatment;

• Registering and licensing of waste treatment facilities;

• Auditing of waste incineration facilities by provincial authorities;

• Environmental performance and impact;

• Provision of adequate hazardous waste treatment facilities;

• Disposal;

• Auditing of general waste disposal facilities by provincial department;

• Provision of adequate general waste disposal facilities;

• Management and control of salvaging at landfill sites.

Performance indicators or monitoring indicators and feedback mechanisms are

required so that the effectiveness of waste management projects can be

assessed and corrective action may be taken if performance does not meet

expectations. According to the White Paper on Local Government (1998),

performance management is critical in ensuring that:


ο Plans are implemented;

ο Resources are used efficiently and optimally; and

ο The implementation phase has the desired effect.

The following are just some examples of performance indicators, which could be

considered when monitoring the performance of the implementation of the waste

management plan. In addition, the Waste Management Departments should

formulate their own performance indicators based on the projects implemented as

well as certain aspects of the waste management plan. Examples include:

ο Amount of additional data obtained compared to baseline information

(assumed percentage increases);

ο Progress of waste management planning implementation in relation to

programme schedule;

ο Number of educational surveys undertaken to determine level of

understanding of waste management issued by the public;

ο Number of private sector waste companies registered with the Council;

ο Number of approved proposals for the recovery of waste as percentage of

total proposals received;

ο Amount of the garden waste stream being sent to composting facilities;

ο Proportion of total waste going to landfill compared with target reductions.

The Municipality is expected to produce an Annual Monitoring Report on the

implementation of the integrated waste management plan. This should be

forwarded to both the Council Board as well as relevant provincial structures for

evaluation as part of their information requirements on the success of

implementation and sustainability of the waste management plan. All aspects of

the plan, which have been implemented, should be monitored and evaluated

according to their success rate.


10.3 Evaluation and Review

A performance review should be undertaken to determine the level of success of the

implementation of the plan. The reason for reviewing the plan and its implementation on a

regular basis is to ensure its practicality, suitability and usability. Only by monitoring and

reviewing the plan can the level of performance be determined. It is here where the

principle of continual improvement should be adhered to. It is proposed that the review of

the plan be done annually.

11. RECOMMENDATIONS AND CONCLUSION

A Waste Information System should be the starting point for the Municipality. The aim of the

WIS will be to provide all the necessary detailed information pertaining to waste management

i.e. licence status of disposal facilities, volumes disposed of, condition of the landfills/transfer

stations, number and type of equipment, date of purchase, operating and maintenance cost,

replacement date, type of service, number of service points (domestic, commercial and

industrial), the number of personnel involved, financial status and economics, etc.

Decisions concerning new equipment or services can then be made based on accurate

information provided by the WIS. Some of the information in this document can serve as a basis

or the future development of such a WIS. This is regarded to be of the utmost importance to the

EL municipality. This IWMP should be re-evaluated and expanded to a detailed operational

plan, once suitable information is available from the system so as to ensure that future planning

is done correctly, i.e:

• Service levels should be workshopped with the community to obtain their views and inputs

on the proposed upgrading of their service and the cost implications involved;

• Community awareness campaigns should be implemented to educate the communities on

responsible waste management;

• The municipality should promote recycling and/or waste minimisation. The informal

salvaging operations at the landfill sites should be formalised to ensure that the reclaimers

co-operate with the landfill supervisors.


The above recommendations should ensure that the short term waste management

requirements in the municipal area are met. Once the Waste Information System is

implemented, this Plan should be re-evaluated and adjusted. Long term planning can then be

practiced in a more responsible manner. This will ensure that sound waste management is

practiced within the Emnambithi/ Ladysmith Municipality over the long term.


APPENDIX A

ORGANOGRAM 1: DEPARTMENT ECONOMIC DEVELOPMENT

ORGANOGRAM 2: DEPARTMENT ENGINEERING SERVICES


ORGANOGRAM 1: Department Economic Development


ORGANOGRAM 2: Department Engineering Services (Proposed)

Documents

For - Ladysmith · uThukela District Municipality in the KwaZulu-Natal Province. It is one of the five category B Local Municipalities in the uThukela District Municipality. Ladysmith