1
Eskom Air Quality Offset Programme:
Programme Report March 2017
Sustainability Division:
Environmental Management
Title: Eskom Air Quality Offset Programme: Progress Report March 2017
Document number: ENV17-R070
Total Pages: 18
Disclosure Classification: CONTROLLED DISCLOSURE
Compiled by Reviewed by Approved by
………………………… ………………………… …………………………...
Motshewa Matimolane
Senior Engineer: Water Centre of Excellence
Kristy Langerman
Middle Manager: Air Quality Centre of Excellence
Deidre Herbst
Eskom Environmental Manager
Date: …………………………
Date: …………………………
Date: ………………………
Eskom Air Quality Offset Programme: Progress Report March 2017
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When downloaded from the EDS database, this document is uncontrolled and the responsibility rests with the user to ensure it is in line with the authorized version on the database.
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CONTENTS
Page
1. INTRODUCTION ...................................................................................................................................................... 3
2. PHASED APPROACH ............................................................................................................................................. 4
3. IMPLEMENTATION OF AIR QUALITY OFFSETS PLAN: NKANGALA DISTRICT MUNICIPALITY ................... 5
3.1 PREFEASIBILITY STUDY............................................................................................................................... 10 3.2 AIR QUALITY OFFSET PILOT STUDY .......................................................................................................... 12
4. IMPLEMENTATION OF AIR QUALITY OFFSET PLAN: GERT SIBANDE DISTRICT MUNICIPALITY ............... 7
5. IMPLEMENTATION OF AIR QUALITY OFFSET PLAN: LETHABO POWER STATION ...................................... 8
6. CHALLENGES ENCOUNTERED .......................................................................................................................... 20
7. CONCLUSION ........................................................................................................................................................ 20
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1. INTRODUCTION
The Atmospheric Emissions Licenses (AELs) for Eskom power stations in the Nkangala District
Municipality (Hendrina, Arnot, Komati, Kriel, Matla, Kendal and Duvha), Gert Sibande District
Municipality (Majuba, Tutuka, Camden and Grootvlei) and Fezile Dabi (Lethabo) require that each of the
power stations implement an Emissions Offset Programme to reduce Particulate Matter (PM) in the
ambient environment. The AELs’ requirements are similar to a condition in the National Air Quality
Officer’s decision (February 2015) on Eskom’s power stations’ applications for postponement of the
compliance timeframes with the National Environmental Management: Air Quality Act (Act No 39 of
2004) section 21 Minimum Emission Standards, which states that each power station is ‘to implement an
offset programme to reduce PM in the ambient/receiving environment. A definite offset implementation
plan is expected from Eskom by 31 March 2016.’
Air quality offsets address emission sources within vulnerable communities in the vicinity of Eskom’s
coal-fired power stations, targeting greater improvement in community experienced air quality than is
achievable by reducing emissions from power stations. Eskom’s Air Quality Offset Implementation Plans
cover the period from April 2016 to March 2025 (and have been updated in March 2017).
Eskom’s Air Quality Offset Implementation Plans for Nkangala District Municipality, Gert Sibande District
Municipality and Lethabo Power Station were submitted to the National Air Quality Officer and the
relevant Atmospheric Emission Licensing Authorities on 28 April 2016 (ENV16_R016, ENV16_R017 and
ENV16_R018) Updated plans were submitted on 31 March 2017 (ENV17_R073, ENV17_R074 and
ENV17_R075). The plans detail the proposed offset interventions per selected settlement. They also
detail the approach followed in selecting settlements; selecting, designing and implementing
interventions; and assessing the effectiveness of the interventions. The plans were approved by the
National Air Quality Officer in concurrence with the relevant Atmospheric Emission Licencing Authorities
on 16 September 2016.
As a condition of the approval, Eskom is required to “implement the air quality offsets according to the
approved plans” and to submit an annual progress report to the “National Air Quality Officer and the
relevant Atmospheric Emission Licensing Authorities for the duration of the implementation”.
The purpose of this report is to provide feedback on progress made in the implementation of the Air
Quality Offset Plans for 01 April 2016 to 31 March 2017.
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2. PHASED APPROACH
Air quality offsets is an emerging field, and interventions of the type and scale contemplated in this
document have not been implemented before. Accordingly, a phased approach is adopted to increase
probability of success and to ensure that learnings from early phases are incorporated into the large
scale roll-out. The phased approach entails the following:
- Phase 0: Pilot project. An intervention is tested on a small scale to discover practically what works.
- Phase 1: Lead implementation. The intervention is tested on an entire community to see how best to
scale up an initiative. The lead implementation is designed to benefit the specific local community,
minimize implementation risk, increase practical and scientific knowledge, and develop and refine
monitoring, reporting and verification processes.
- Phase 2: Full implementation. Once the intervention has been refined and the learnings of the lead
implementations incorporated, the intervention will be rolled out at several communities.
A typical offset implementation (lead or full) in a community will have three phases: baseline
establishment; implementation; and monitoring and verification. Table 1 provides a summary of progress
made in implementing the lead implementations in Eskom Air Quality Offset Plans in Nkangala District
Municipality, Gert Sibande District Municipality and for Lethabo Power Station. Details are outlined in
sections 3 to 5.
Table 1: Summary of progress made in implementing the lead implementations Air Quality Offset Plans
Phase (lead) Activities Nkangala Gert Sibande Lethabo
Plans High level plan √ √ √
Authority and budget approvals √ √ √
0: Pilot Pre-feasibility study √ √ ×
Pilot project √ n/a ×
1: Lead
implementation
Baseline for lead √ In progress In progress
Project Design Document Draft × ×
Implement lead × × ×
2 Monitoring and verification × × ×
3 Large-scale roll-out × × ×
Between April 2016 and March 2017, Eskom has made significant progress is setting itself up to
implement the air quality offsets programme. Key achievements include:
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- Obtaining Eskom EXCO and Board approvals for the ‘lead implementation’ strategy
- Establishment of Eskom working group and steering committee to coordinate and oversee the
implementation of the offsets programme
- Updating the Air Quality Offset Implementation Plans for each of the district municipalities to reflect
the changes in programme design and schedule
- Presentation to the parliamentary portfolio committee on Environmental Affairs on the offsets
programme
- Hosting a Multi-Stakeholder Reference Group meeting
- Testing on effects of liquid petroleum gas (LPG) heater on indoor air quality
3. IMPLEMENTATION OF AIR QUALITY OFFSETS PLAN: NKANGALA DISTRICT MUNICIPALITY
Eskom has completed a pre-feasibility on reducing household emissions from solid fuel burning, and a
pilot study (phase 0), and have developed a high level plan, obtained both DEA and budget approvals
and established a baseline (Phase 1 activities) for KwaZamokuhle.
Key activities undertaken in the year April 2016 to March 2017 included:
- Fire testing of new insulation ceiling solution (polyurethane spray foam with gypsum ceiling board)
- Installation of the new ceiling solution
- Measuring indoor air quality in houses in control and intervention households in KwaZamokuhle
- Analysis of the source apportionment results for KwaZamokuhle
- Ambient monitoring of air quality in KwaZamokuhle
- Hosting of local stakeholder reference group meetings in KwaZamokuhle
- Drafting of the Project Design Document for KwaZamokuhle
The ambient monitoring shows that air quality in KwaZamokuhle is extremely poor. There is non-
compliance with ambient PM10, PM2.5, SO2 (daily but not hourly) and ozone standards in
KwaZamokuhle (Table 1). Particulate matter appears to be mainly derived from surface sources, while
SO2 is from surface and ambient sources (Figure 1 and Figure 2). There is no observed morning peak of
SO2 to match the morning peak in PM10. This may be due to reactions that occur in the morning that
effectively convert SO2.
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Table 2: Number of exceedances of the ambient air quality limits in KwaZamokuhle in 2016
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Number of
Exceedances Allowed No. of
Exceedances
PM2.5 (Daily)
0 2 2 8 16 27 26 24 15 3 0 0 123 4
PM10 (Daily)
0 1 3 9 5 25 26 26 21 6 0 0 122 4
NO2 (hourly)
0 0 0 0 0 0 0 0 0 0 0 0 0 88
O3 (8hr moving)
0 0 0 0 0 3 81 0 13 7 9 13 126 11
SO2 (Hourly)
0 0 0 2 0 18 6 3 1 0 0 0 30 88
SO2 (Daily)
0 0 0 0 0 9 6 0 0 0 0 0 15 4
Figure 1: Average diurnal variation of SO2 concentration in KwaZamokuhle in 2016
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Figure 2: Average diurnal variation of PM2.5 concentrations in KwZamokuhle in 2016
The project team is in the process of finalising the Project Design Document and scopes of work for the
various contract packages required for the lead implementations. The roll-out of interventions in
KwaZamokuhle was initially planned to start in April 2017. Unfortunately, Eskom is unable to meet this
date mainly due to the procurement process taking longer than anticipated. We now expect that the roll-
out should start around October 2017.
Section 6 provides a summary of key findings or learnings from activities (mostly undertaken in
KwaZamokuhle) that have been completed to date.
4. IMPLEMENTATION OF AIR QUALITY OFFSET PLAN: GERT SIBANDE DISTRICT MUNICIPALITY
The prefeasibility and pilot studies (phase 0) conducted for KwaZamokuhle is applicable to the selected
communities in Gert Sibande District Municipality. Ezamokuhle is the lead implementation site for power
stations in Gert Sibande District Municipality. Eskom has developed a high level plan for Gert Sibande
and has obtained both DEA and budget approvals for the implementation of the plan.
In July 2016, Eskom established an ambient air quality monitoring station centrally in Ezamokuhle, at
Hlelimfundo High School, to establish the baseline air quality in the area. The monitoring station is
equipped to continuously monitor sulphur dioxide, oxides of nitrogen, ozone, PM10 and PM2.5 and
meteorology. There is non-compliance with ambient PM10 and PM2.5 standards in Ezamokuhle, but the
air quality is not as bad as in KwaZamokuhle.
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Table 3: Number of exceedances of the ambient air quality limits in Ezamokuhle in 2016
Eskom’s Research, Training and Development (RT&D) Department is currently establishing an upwind
air quality monitoring in Ezamokuhle to measure the air quality away from the influence of domestic
burning. The results from the baseline assessment will inform the design of the offset interventions. The
roll-out of intervention in Ezamokuhle is planned to start in January 2018.
5. IMPLEMENTATION OF AIR QUALITY OFFSET PLAN: LETHABO POWER STATION
The lead implementation for Lethabo Power Station will be conducted in Sharpeville. In order to scope
the feasibility as well as design a successful offset project, a preliminary baseline assessment of the air
pollution and its drivers has been commissioned in Sharpeville. The objectives of the baseline
assessment are to:
- Assess the extent to which household air pollution exceeds ambient standards
- Identify key air pollution drivers in Sharpeville
- Understand the current energy usage patterns in Sharpeville
- Quantify the scale of an offset intervention project
The following activities will be undertaken as part of this assessment
- Rapid in situ assessment. This activity has been already been completed. See Table 4 for a
summary of the main findings
- Household air pollution assessment
- General household survey
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- Detailed household energy survey
- Community source survey
The results of this baseline assessment will inform the design of offset intervention in selected
Sharpeville, Refengkotso, Tshepiso and Boipatong.
Table 4: Summary of findings from the Rapid In-Insitu Assessment for Sharpeville.
Potential sources of pollution Comments
Waste There is clearly a waste problem in the area. We logged more than 20 waste accumulation and burning sites in Sharpeville only. The veld on the edge of the township, the road servitude, the power line servitude between Sharpeville and Tshepiso, a traffic circle or an open stand can all serve as a dumping place. It appear that there is regular municipal waste removal services. However, households do not have waste bins.
Dust on paved roads The paved roads have a lot of dust on them. There are two apparent sources of this dust. The first one is bare soil sidewalks which are heavily eroded. The other source of dust on roads is secondary dirt roads that join the tarred road.
Unpaved roads Most secondary roads are unpaved. Since we are in the rainy season it was not particularly dusty although this might be different in the dry season.
Tyre burning We found one active case of tyre burning on a commercial stand and some evidence of historical tyre burning. Potential reasons typically include extraction of scrap metal, disposing of waste tyres and (in winter) burning tyres to heat oneself.
Informal and formal traders We observed a food outlet that was possibly using coal or wood to prepare food (meat) as a clear plume of smoke could be seen coming out of the chimney from the food outlet. One particularly interesting case was a lady frying chicken feet less than 10 metres from the inlet of the DEA air quality monitoring station.
Monitoring station We visited the DEA AQMS. It is located on a school ground fairly close to a busy road and a spot used by an informal food trader. On the other sides there are quite large open (but grassed) areas.
Traffic There are a few arterial roads with fairly heavy traffic, but the secondary roads appear quiet.
Lethabo Power Station The power station is clearly visible on the horizon. One of the stacks was clearly smoking.
Arcelor Mittal The Arcelor Mittal works are located north-west of Sharpeville. Some smoke could be seen in that direction.
Domestic wood use We found one house with a large firewood pile outside. The inhabitant appears to use wood regularly.
Coal use We did not directly observe coal use, although many houses have chimneys. On the route, no coal delivery vehicles were observed and no coal yards were observed. From experience it is known that there is a coal yard near the north western tip of the dam.
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Figure 10: Waste management challenges in Sharpeville captured during the rapid in-situ assessment
6. KEY LEARNINGS FROM THE AIR QUALITY OFFSETS PROGRAMME SO FAR
6.1 PRE-FEASIBILITY STUDY
Eskom’s exploration of air quality offsets started with a pre-feasibility study conducted by EScience
Associates and the Nova Institute in 2012 and 2013. The objective of this study was to determine the
most feasible interventions to offset tall stack emissions from Eskom’s power stations by reducing
household emissions. Household interventions were selected based on the numerous scientific studies
that show that in South Africa the main cause of harmful health effects due to poor air quality is the
domestic burning of solid fuels.
An exhaustive list of household interventions was brainstormed, and kick-out criteria were then applied
to reduce the list for detailed evaluation. The shortened list of interventions was then evaluated
according to the following weighted criteria:
- Reduced human exposure to ambient PM10
- Reduced human exposure to ambient SO2
- Implementation cost attractiveness of intervention
- Success probability of intervention
- Government and Eskom Board acceptance of intervention
- Sustainability of intervention
- Household acceptance of intervention
- Indirect impact of implementation (long and short term)
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PM
10
SO2
Co
st
Succ
ess
Stak
eho
lder
Ho
use
ho
ld
Ind
irec
t
0.0%
5.0%
10.0%
15.0%
20.0%
25.0%
30.0%
35.0%
40.0%
45.0%
1
PM10
SO2
Cost
Success
Stakeholder
Household
Indirect
Figure 3: Weighting of the criteria used to evaluate the proposed offset interventions
Households are considered to be the most important stakeholder, and their acceptance was identified as
the most important criterion that would determine the success of the offset projects, followed by
acceptance by licencing authorities and the Eskom Board.
The interventions recommended for further study, based on applying the weighted criteria were:
- Retrofit full suite of thermal shell insulation (ceilings and three walls), draft proofing and Trombe wall
on all existing subsidy houses [Full retrofit]
- Install ceilings in all formal houses [Ceilings]
- Optimise house size, shell insulation, ventilation, orientation and solar heat absorption for new
subsidy houses and social housing [EE RDP]
- Replace coal / wood stove with multi-purpose, high quality, low emission stove [New stove]
- Electricity subsidy
- Gas subsidy with equipment [LPG subsidy & heater]
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SWH
geys
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coo
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coo
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ate
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4.0%
6.0%
8.0%
10.0%
12.0%
14.0%
16.0%
1
SWH
geyser
cook EE
cook device
electricitysubsidyclean heat
BnM
stove repair
new stove
LPG heater &subsidywaste manage
electrify
Figure 4: Result of applying the evaluation criteria. (Relative weighing on y-axis)
6.2 AIR QUALITY OFFSET PILOT STUDY
Following on from the pre-feasibility study, the next step in Eskom’s air quality offsets journey was an air
quality offsets pilot project, which was conducted in KwaZamokuhle (3 km from Hendrina town,
Mpumalanga) from mid-2014 to end 2015. The project team was comprised of experts from the North-
West University, the Nova Institute, the Council for Scientific and Industrial Research, EScience
Associates and Prime Africa Consulting.
The most promising interventions identified in the pre-feasibility study were implemented at 120 formal
houses: ceilings were installed at 60 of the houses, and the remaining 60 houses were fitted with a
ceiling, insulation on three walls, and the north-facing wall was painted black and a Trombe wall was
constructed to trap and store additional energy from the sun. Each of these houses was then either given
an electricity subsidy for the winter months, or their coal stoves were swopped for a low emission stove,
or their coal stoves were swopped for an LPG heater, stove and gas cylinder.
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Figure 5: Photos of the installation process, completed thermal installations and stove replacements
The pilot consisted of discrete activities. Each activity yielded learnings. A selection of learnings per
activity is reflected here:
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6.2.1 Learnings relating to performance of the interventions
In short, LPG stove and heater with a retrofit effectively eliminate coal use. Full retrofits performed better
than basic retrofits in the pilot study, but there is still uncertainty because of the small sample and high
variability of measurements. Low emission stoves may be an option in areas where solid fuels are free,
especially if they are as effective in real life as in the laboratory test. Electricity subsidies did not work.
Figure 6: Winter indoor temperatures raised by insulation type
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Figure 7: Effect of energy carrier type on indoor temperature
As participation is voluntary, it is important that any intervention is well communicated in order for
households to make an informed decision whether to participate. Well over 80% of households agreed to
participate in the LPG intervention set with full retrofit, as well as in the low emission coal stove plus full
retrofit option. The basic retrofit plus LPG stove and heater combination had a 66% participation rate.
Table 4: Participation rate in the different interventions in the offsets pilot project
Generally, households did not want to switch back to their old coal stoves after one winter of use.
Households were given an option to swop back to their old polluting stoves, or keep their new LPG or
low emission stoves. More than 90% decided to rather keep using the new cleaner technology.
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Table 5: Permanent uptake of the different offset interventions in the offsets pilot study
6.3 LEARNINGS FROM HOUSEHOLD SURVEYS
Household surveys were conducted broadly in KwaZamokuhle, in order to understand socio-economic
conditions generally (and not just in intervention participating households).
Poverty is a critical driver for ambient and indoor air pollution in KwaZamokuhle. The surveys confirm
that KwaZamokuhle is home to many low income households, with most people living below the food
poverty line. In the face of energy poverty, low-income households use dirty energy carriers in order to
fulfil their need for space heating. Only 1 in 3 people has any kind of employment (and only 1 in 5 has
full-time employment).
6.4 LEARNINGS FROM PILOT ROLL-OUT PLANNING AND IMPLEMENTATION
A lot of interaction and consultation with the local community is essential. The interaction should take the
form of both a structured local forum and an ongoing local presence that can deal with individual
concerns and requests as they arise.
Recruitment and training of local labour was successful. Around 48 temporary jobs were created for the
roll -out of the pilot project.
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Figure 8: Member of the newly appointed team being trained on the installation of insulation at the storage facility near KwaZamokuhle.
Pre-existing roof leaks is a challenge and insulated ceilings decrease the amount of moisture than can
escape from the roof cavity (Figure 9). As a result, the insulated ceiling boards were deemed to be not
adequate, and a polyeurethane foam with gypsum ceiling was fire tested, and then replaced as the
preferred roof insulation method. It was also decided that the Trombe wall which was installed on the
north-facing wall is unsightly, and will not be installed in more houses.
Figure 9: Brown marks on the ceiling as a result of roof leaks
6.5 LEARNINGS FROM AIR QUALITY MONITORING
KwaZamokuhle often has little wind, implying that smoke from coal stoves remain trapped in community
air space below the inversion layer, especially during winter. This exacerbates the health risk from
household coal use to the local community.
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Figure 10: Eskom's ambient air quality monitoring station in KwaZamokuhle
Air quality in KwaZamokuhle is poor and the poor air quality is associated with household coal burning –
morning and evening concentration peaks are associated with domestic cooking and space heating with
solid fuels. Both ambient PM10 and PM2.5 concentrations are high, and PM2.5 (which has a more
negative health impact) make up a significant part of the concentration. From end May to middle of
August (the cold season), the air quality is worse. Ambient standards are exceeded on most winter days,
as well as to a lesser degree during warmer months. Ambient SO2 and O3 concentrations are also high.
Ambient NO2 concentrations did not exceed ambient standards.
Source apportionment results for the winter samples indicate that domestic coal combustion is an
important source in.in both the coarse and fine fraction (Figure 11). Dust sources are also important in
the coarse fraction (42.5 %). In the fine fraction emissions from automobiles and secondary sulphate
and nitrate contributed 13 % and 8.5 % of the aerosol loading respectively.
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52.3
0.8
6.2
2.53.2
6.6
10.9
17.5Domestic coal burning
Nitrates
Sulphates
Road dust
Road dust
Soil
Vehicle (with lead)
Unknown
Figure 11: Source apportionment of the fine particulate matter (PM2.5) in KwaZamokuhle in winter 2015
6.6 LEARNINGS FROM DISPERSION MODELLING
The dispersion modelling shows that there is considerable variation in pollution concentrations in
KwaZamokuhle, driven primarily by the variation in density of dwellings. The emissions inventory in its
current form is adequate for modelling potential changes in ambient concentration due to interventions if
rolled out at scale. The inclusion of observed meteorological data significantly improved model
performance for PM10 evening peaks by assimilating calm conditions.
6.7 LEARNINGS FROM MACROECONOMIC IMPACT ASSESSMENT AND SOCIAL COST BENEFIT ANALYSIS
Indicative results are that health impacts and costs relating to local air pollution will be greatly reduced by
the reduction in coal consumption through the interventions’ efficiency improvements and fuel
substitutions. The interventions will make a positive contribution to job creation and GDP. The
interventions will reduce greenhouse gas emissions.
The results show that the basic retrofit and LPG intervention has the highest benefits to cost ratio. The
benefits of some interventions were less than the costs over a 20 year timeframe, however the
assessment excludes the value of continued licensed operation by power stations. Furthermore, we can
expect all interventions to improve as more information of intervention performance becomes available.
It should be noted that from a pilot study of this size, no conclusive macro environment findings can be
expected – therefore results are indicative.
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6.8 LEARNINGS FROM OFFSET METHODOLOGY DEVELOPMENT
An overarching framework for accounting for the impact of air pollution has been developed. This Air
Pollution Impacts Protocol was successfully used to develop two methodologies and four supporting
calculation tools. The methodologies have been tested and are practically applicable.
7. CHALLENGES ENCOUNTERED
Eskom has experienced delays of around 6 months in implementation of the Air Quality Offset Plans for
power stations Nkangala, Gert Sibande and Fezile Dabi District Municipalities. The delays have been
mainly due to delays in obtaining budget approval from the Procurement Sub-committee of Eskom’s
Executive Committee (EXCOPS) and changes in the scope of the proposed interventions. The budget
approval for the Air Quality Offset Programme was finally granted on the 01 February 2017 paving the
way for the implementation team to move forward with the lead implementations in the three district
municipality.
The approval by EXCOPS was on condition that the scope of offset interventions be changed to reflect a
focus on the promotion of the electricity instead of LPG (as initially proposed). Electricity is the cleanest
source of domestic energy. Rather than providing an LPG stove, heater and cylinder in exchange for the
household’s coal stove, Eskom is now proposing to provide an electric stove and heater. The proposed
changes will have an impact on the planned schedule for the roll-out of the interventions especially in
Nkangala and Gert Sibande.
8. CONCLUSION
Despite the challenges encountered, Eskom has made good progress in the implementation of the air
quality plans in the Nkangala, Gert Sibande and Fezile Dabi District Municipalities. These include;
- Successful completion of the prefeasibility and pilot studies for KwaZamokuhle.
- Establishment of the baseline for KwaZamokhule, Ezamokuhle and Sharpeville.
Lessons from these studies will inform the design of intervention to be rolled out in all three district
municipalities. Updated Air Quality Offsets Implementation Plans will be submitted to DEA reflecting the
new proposed roll-out schedule and changes.