National wm strategy and poa sa

PMG 130
PSC 69
NATIONAL WASTE MANAGEMENT STRATEGIES
AND ACTION PLANS SOUTH AFRICA
STRATEGY FORMULATION PHASE
NATIONAL
WASTE MANAGEMENT
STRATEGY
version D
15 October 1999
Danced Reference No:
M123 - 0136
Job. 970296
Ref No. Reports 4.1.19 NWMS Ver C Prep. Strategy Team
Ed. Version D Contr. HW
Date. 15/10/99 Appd. PMG

Table of contents
Executive summary *
Acknowledgments *
Ttable of contents *
1. Introduction *
1.1 General Introduction *
1.2 Structure and Content of the NWMS *
1.2.1 Part 1: National Waste Management Strategy *
1.2.2 Part 2: Background Information to the National Waste Management Strategy *
1.3 Crosscutting Issues *
1.3.1 Institutional Arrangements *
1.3.2 Resource Requirements *
1.3.3 Time Schedules *
1.3.4 Economic Instruments *
1.3.5 The Law Reform Process *
1.3.6 Treatment Technologies *
1.3.7 Government and Private Sector Responsibilities *
1.3.8 Sewage Sludge *
1.3.9 Radioactive Waste *
1.3.10 Waste Minimisation *
2. Background to the NWMS *

2.1 Environmental Policy and Legislative Developments *
2.2 Integrated Pollution and Waste Management Policy *
3. DEVELOPMENT OF A NATIONAL WASTE MANAGEMENT STRATEGY *
3.1 Scope of Strategy *
3.2 Definitions *
3.3 Waste Categorisation *
3.4 Principles *
3.5 Strategic Goals and Objectives *
3.6 Approach and Methodology *
4. PRIORITY INITIATIVES *
4.1 Criteria and Rationale for Developing Priority Initiatives *
4.2 Priority Initiatives *
4.2.1 Integrated Waste Management Priority Initiatives *
4.2.2 Implementing Instruments *
4.2.3 Time Schedules and Responsibilities *
4.3 Prioritisation of Priority Initiatives *
4.4 Short-Term Priority Initiatives *
4.4.1 Integrated Waste Management Planning *
4.4.2 Waste Information System *
4.4.3 Waste Minimisation *
4.4.4 Recycling *
4.4.5 Waste Collection and Transportation *
4.4.6 Waste Treatment *
4.4.7 Waste Disposal *
4.4.8 Implementing Instruments *
4.4.9 Cost Estimates for Implementation of Short Term Priority Initiatives *
4.5 Medium to Long-Term Priority Initiatives *
5. THE WAY FORWARD *
6. introduction *
7. Integrated Waste Management Planning *

7.1.1 General Waste *
7.1.2 Hazardous Domestic Waste *
7.1.3 Hazardous Waste from Manufacturing and Industry *
7.1.4 Waste from Agriculture and Forestry (pesticides) *
7.1.5 Medical Waste *
7.1.6 Mining and Power Station Waste *
7.1.7 Reconditioning of Drums used for Hazardous Materials *
7.2 Time Schedule *
7.3 Requirements and Implications *
7.3.1 Institutional *
7.3.2 Capacity Building *
7.3.3 Legal Issues *
7.3.4 Estimated Cost of Initiatives *
7.3.5 Public Participation and Partnership *
7.4 Dependency on other NWMS Initiatives *
7.5 Short-term Strategic Initiative *
8. WASTE INFORMATION SYSTEM *
8.1.1 Preparation of the WIS *
8.1.2 WIS Guidelines *
8.1.3 Data functions *
8.1.4 Implementation and Operation of WIS database *
8.2 Time Schedule *
8.3.5 Public Participation and Partnership *

8.5 Short-term initiative *
9. WASTE MINIMISATION *
9.1 Waste Minimisation Initiatives *
9.1.1 Organisational and Planning Initiatives *
9.1.2 Appropriate Legal and Policy Framework *
9.1.3 Information, Education and Demonstration Projects *
9.1.4 Public-Private and Private Sector Initiatives *
9.2 Time Schedule *
9.3.2 Capacity building *
9.3.5 Public Participation and Partnerships *
9.5 Short-term Initiative *
10. Recycling *
10.1.2 Domestic Waste *
10.1.4 Waste from Agriculture and Forestry (pesticides) *
10.2 Time Schedule *

11. Waste Collection and Transportation *
11.1 Initiatives *
11.1.4 Waste from Agriculture and Forestry (Pesticides) *
12. Waste Treatment *
12.1.1. General Waste *
12.1.4 Waste from Agriculture and Forestry (Pesticides) *

13. WASTE DISPOSAL *
13.1.1 General waste *
13.1.2 Domestic Hazardous Waste *
13.1.4 Agricultural and Forestry Wastes (Pesticides) *
13.1.5 Medical waste *
13.1.7 Mining and Power Station Wastes *
13.3.2 Capacity Building Implications *
13.3.3 Legal issues *
13.4 Dependency on other NWMS activities *
13.5 Short-term Priority Initiative *
14. Implementing Instruments *
14.1 Institutional Development *
14.2 Capacity Building Requirements *
14.2.1 Formal Capacity Building Programme *
14.2.2 Communication Strategy *
14.2.3 Staff estimates *
14.3 Legislative Requirements *

14.4 Financial Requirements *
14.4.1 Estimated Costs of the NWMS Priority Initiatives *
14.5 Public Participation and Partnerships *
14.6 Awareness and Education *
References *
Annexure 1 *
Definitions and Terms *
Annexure 2 *
Abbreviations *
Annexure 3 *
Summary of Existing Key Legislation on Waste Management Issues *
As described in section 14.3, the approach that will be adopted to integrate and
amend the above (and other related) legislation will be dependent upon decisions
that are agreed to during the environmental Law Reform Process. Critical to this
process will be the decisions that are taken regarding the institutional structures
relating to environmental management in South Africa. *
Annexure 4 *
Existing Institutional Arrangement are set out in the attached table *
Annexure 5 *
Acknowledgements *
Executive summary

This National Waste Management Strategy presents Government’s strategy for
integrated waste management for South Africa.
The Strategy presented in this document was compiled by the Department of
Environmental Affairs and Tourism and the Department of Water Affairs and
Forestry, in consultation with a wide range of stakeholders, including:
government at all levels, non-governmental organisations, community based
organisations, labour, business, industry, and the mining sector. Financial
support for the project was given by the Danish Co-operation for Environment
and Development.
This National Waste Management Strategy presents a long-term plan (up to the
year 2010) for addressing key issues, needs and problems experienced with
waste management in South Africa (1997/8). The strategy gives effect to the Bill
of Rights, Constitution of South Africa, Act 108 of 1996, on the basis of which the
people of South Africa have the right to an environment that is not detrimental to
their health. Furthermore, the strategy translates into action Government’s policy
on waste as set out in the Draft White Paper on Integrated Pollution and Waste
Management for South Africa (published in 1998).
The objective of integrated pollution and waste management is to move away
from fragmented and uncoordinated waste management to integrated waste
management. Such a holistic and integrated management approach extends
over the entire waste cycle from cradle to grave, and covers the prevention,
generation, collection, transportation, treatment and final disposal of waste.
Integrated waste management thus represents a paradigm shift in South Africa’s
approach to waste management, by moving away from waste management
through impact management and remediation and establishing instead a waste
management system which focuses on waste prevention and waste
minimisation.
The strategy aims to reduce both the generation and the environmental impact of
waste. It presents a plan for ensuring that the socio-economic development of
South Africa, the health of its people and the quality of its environmental
resources are no longer adversely affected by uncontrolled and uncoordinated

waste management. It establishes a waste management system that
concentrates on avoiding, preventing and minimising waste and makes provision
for waste management services for all by extending an acceptable standard of
waste collection, as well as transportation, treatment and disposal services to all
communities.
While the long-term objective of the strategy is waste prevention and
minimisation, a number of remediative actions such as improved waste collection
and waste treatment are required in the shorter term due to prevailing inadequate
waste management practices.
To achieve the long-term objectives of the strategy, about 50 major integrated
waste management initiatives (and many more sub-initiatives) with their
associated financial and human resource requirements will need to be
implemented. In addition, institutional changes and new legislation will have to be
introduced and enforced and capacity building requirements will need to be
addressed and realised. Attention must also be given to raising public awareness
on waste management issues and promoting and delivering environmental
education. The final phase of the National Waste Management Strategy process
will entail the development of detailed action plans for implementation.
The National Waste Management Strategy is a first generation strategy, which
will initiate action both by government and civil society and will culminate in the
implementation of an integrated waste management system for South Africa.
Critical factors affecting the successful implementation of the strategy will be
securing the necessary financial and human resources, and receiving the
commitment, support and input of all stakeholders. Government accepts that this
strategy will have to be reviewed periodically as and when appropriate (e.g. on a
five year basis) and may need to be adapted to address practical realities,
changing needs and new priorities.
Acknowledgments

The Ministries and Departments of Environmental Affairs and Tourism and of
Water Affairs and Forestry acknowledge the contribution that South Africans
have made in developing a National Waste Management Strategy for South
Africa. The role played by the Project Steering Committee, which steered the
process and the contributions of the drafters of the Strategy, is also
acknowledged. A complete list of persons who contributed to the process is given
in Annexure 5. Below is set out a short list of officials, government departments
and organisations, which have played a key role in developing this National
Waste Management Strategy.
Ministries
Minister Z Pallo Jordan
Minister Kader Asmal
Deputy Minister Peter R Mokaba, who chaired the Project Steering Committee
Department of Environmental Affairs and Tourism
Department of Water Affairs and Forestry
Provincial Environmental Departments
Eastern Cape Department of Economic Affairs and Environment
Free State Department of Environmental Affairs and Tourism
Gauteng Department of Agriculture, Conservation and Environment
KwaZulu Natal Department of Traditional and Environmental Affairs
Mpumalanga Department of Environmental Affairs and Tourism
North West Department of Environmental Affairs
Northern Cape Department of Health, Welfare and Environmental Affairs
Northern Province Department of Agriculture, Land and Environment
Western Cape Department of Environmental and Cultural Affairs
MINMEC: Environment and Nature Conservation
The Danish Cooperation for Environment and Development
(DANCED)

National Waste Management
Strategy for South Africa
PART 1
1. Introduction
1.1 General Introduction
The Constitution of the Republic of South Africa (Act 108 of 1996) 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. Steps taken to date to
ensure the environmental right include: the publication of the Environmental
Management Policy for South Africa (1998); the preparation of the Draft White
Paper on Integrated Pollution and Waste Management (1998); the National
Water Act (1998); as well as the promulgation of the National Environmental
Management Act (1998). A further step is the development of this National Waste
Management Strategy for South Africa.
During 1997, the Department of Water Affairs and Forestry (DWAF) and the
Department of Environmental Affairs and Tourism (DEAT), with financial support
from the Danish Co-operation for Environment and Development (Danced),
initiated a project for the development of a National Waste Management Strategy
(NWMS) for South Africa. 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. In

order to achieve this objective the following goals were agreed for the NWMS
project:
The development of strategies for integrated waste management. The
development of action plans to implement the identified strategies.
Capacity building within DWAF and DEAT to implement the action plans.
Consultation with a wide range of stakeholders on the waste management
situation in South Africa (1997/8) identified the following as key issues and needs
that had to be addressed by this National Waste Management Strategy:
To bring about a paradigm shift from end-of-pipe control to waste
prevention and minimisation. To provide basic waste management
services for those sections of the population who do not have access to
waste collection services or who do not receive adequate services. To
ensure that public health and occupational health issues receive due
consideration in all waste management practices. To initiate a system of
integrated waste management through the implementation of instruments
such as legislation, capacity building, institutional arrangements and
funding mechanisms. To ensure integration of waste management
initiatives with other governmental initiatives, programmes and
administrative systems, e.g. Integrated Development Forums (IDFs) and
Land Development Objectives (LDOs), the Masakhane campaign and job
creation projects. To integrate waste management with the over arching
process of environmental planning, management and protection.
1.2 Structure and Content of the NWMS
The National Waste Management Strategy is presented in two parts. Part 1
documents the full strategy in which the initiatives have been categorised as
short, medium or long-term priority initiatives with an emphasis on the
requirements for the implementation of the short-term priority initiatives. Part 2
describes all the priority initiatives and the implications of implementation in
terms of human and financial resources and the institutional arrangements.
1.2.1 Part 1: National Waste Management Strategy

This part sets out the motivation for a NWMS, describes the background of its
development, explains the strategy development process, identifies priority
initiatives, details the short-term priority initiatives (in terms of criteria for
selection, implications and requirements and implementing instruments),
identifies medium to long-term initiatives and charts the proposed way forward.
1.2.2 Part 2: Background Information to the National Waste
Management Strategy
This part provides detailed background information on all the priority initiatives
identified in Part 1. It deals in detail with the priority initiatives, proposed time
schedules, requirements and implications.
This information is provided for each of the components of the waste hierarchy,
and inter alia includes certain elements of the following:
Integrated waste management and planning Waste information system
Waste minimisation/prevention Recycling Waste collection and
transportation Waste treatment Waste disposal Implementing instruments.
1.3 Crosscutting Issues
Stakeholders have highlighted a number of crosscutting issues on which
government’s position is clarified. To facilitate understanding of the strategy, the
crosscutting issues of concern are addressed in this section and the stated
position of the government that will apply throughout Parts 1 and 2 of this
Strategy.
1.3.1 Institutional Arrangements
The National Waste Management Strategy (NWMS) represents the vision of the
Department of Environmental Affairs and Tourism (DEAT) and the Department of
Water Affairs and Forestry (DWAF) for an integrated approach to waste
management. This long-term strategic plan addresses the problems, needs and
issues relating to waste management, which were identified during consultation
with a wide range of stakeholders (i.e. other government departments, NGOs,
CBOs, business, labour and industry and mining).

The government’s policy on integrated waste management, as set out in the
Draft White Paper on Integrated Pollution and Waste Management for South
Africa, was formalised into a strategy in the form of the NWMS.
Stakeholders have identified the elimination of the duplication and overlap of
waste management regulatory activities as a key requirement. There is no
intention to override any existing legislation or duplicate the requirements of other
government departments. In taking cognisance of the legal mandates of the
relevant government departments, wherever any provisions in the NWMS (and
Action Plans) appear to inadvertently be in conflict with existing legislation, the
requirements of the legislation will prevail. In the context of co-operative
governance, the same interpretation applies to cases of inadvertent duplication of
legislative requirements. At present the Draft White Paper on IP&WM is a
guideline document until formal Cabinet approval is received. Development of the
Action Plans has highlighted legislative requirements, which are required to give
effect to the government policy on waste management. The legislative
requirements will be reviewed within the ongoing DEAT Law Reform Process. It
is expected that this law reform process will take into consideration any
amendments to the draft White Paper, suggested by Parliament. The law reform
process may however also result in changed legislation and legal mandates.
The NWMS (and Action Plans) represent a first generation plan for addressing
South Africa’s waste management problems that will be continually updated to
meet practical realities. The duties, roles and responsibilities assigned to the
various government departments outlined in the Strategy are therefore only an
initial proposal, which will be discussed, clarified and agreed to during inter-
governmental discussions. The allocated responsibilities will be amended where
necessary and implemented within the context of co-operative governance with
the support of the role players. Cognisance will be taken of the legal mandates of
government departments. A phased approach to implementation of the NWMS is
envisaged to integrate the waste management functions to ensure an efficient
and effective system that meets the requirements of all stakeholders.

The ultimate aim of the NWMS is to implement a co-ordinated integrated waste
management system to ensure "cradle to grave" management of waste. To meet
this objective will require the commitment, support and co-operation of all
stakeholders in the implementation of the NWMS and the associated Action
Plans.
Ongoing discussions are being held with other national departments and
provincial government to develop a framework of future division of functions and
responsibilities and to agree on the way forward. Where the term ‘provincial
government’ is used in this Strategy, it refers to those departments within the
provinces that are responsible for environmental activities.
According to the Constitution of the Republic of South Africa (1996),
responsibility for waste management functions is to be devolved to the lowest
possible level of government. Where appropriate this policy has been applied in
this Strategy. However, concern has been expressed about the limited resources
that are available at the provincial and local government level to assume the
additional waste management responsibilities. Before responsibilities and
obligations for each tier of government are finalised, discussions will be held with
all concerned parties. In addition, the process of devolving responsibility to the
lower levels of government will utilise a phased approach to allow provincial and
local government to meet their new waste management obligations.
Responsibility for hazardous waste management in the strategy has been placed
at the provincial level of government, although co-operation and input from local
government will also be promoted.
Provision is made within NEMA (1998) for the establishment of a Committee for
Environmental Co-ordination (CEC). However, it is not the intention of this
strategy to propose the formation of additional committees to meet the
requirements of integrated waste management. Thus, it is proposed that the
existing Mintech Workgroup 3 for Pollution and Waste be the mechanism for co-
ordination and discussion of integrated waste management.
1.3.2 Resource Requirements

The approach adopted in this strategy has been to make preliminary estimates of
the personnel requirements and financial resources required to implement the
priority initiatives. It is recognised that it is not possible at this stage to present
definitive figures, but rather to use indicative numbers to assist in the
categorisation of the initiatives. All personnel requirements that are given are an
indication of the total number of staff members that will be required to fully
implement the initiative, thereby allowing the relevant government departments to
budgets for these staff requirements.
Staff numbers are the total required to perform the initiative and do not consider
the staff members currently employed in the government. Furthermore, cost
estimates are only order of magnitude estimates based on the information readily
available at the present.
Resource requirements will be investigated in greater detail during the
development of the Action Plans for the NWMS Priority Initiatives.
1.3.3 Time Schedules
Priority initiatives have been categorised in the strategy as either short-term
(1999 to 2002), medium-term (2003 to 2006), or long-term (2007 to 2010). During
the development of the short-term initiatives for the Waste Information System
(WIS), Integrated Waste Management Planning, and General Waste Collection, it
became apparent that implementation could not commence until the middle of
1999 at the earliest. Budget allocations had also not been made for
implementation during 1999/2000. It was therefore decided that the
implementation period be extended by two years for each category. Thus, short-
term initiatives will be implemented by the year 2004.
The original time frames for short, medium and long-term implementation will be
retained in this Strategy document, but these time frames will be developed in
greater detail and refined to a more realistic time schedule during the
development of the NWMS Action Plans. As the Strategy will be reviewed and
updated periodically, timeframes will be revised, based on practical realities.
1.3.4 Economic Instruments

Availability of funds is crucial to the successful implementation of the NWMS.
Two distinct economic instruments could be applied for funding waste
management initiatives, firstly a tax for raising revenue and secondly user
charges, e.g. through the implementation of the Polluter Pays Principle. It is not
the intention of this Strategy to propose additional taxation for waste
management but rather investigate various economic mechanisms to fully
recover the cost for sustainable waste management.
Any future investigations made into the application of economic instruments for
generating funds for the implementation of the NWMS, will be undertaken by the
DEAT in collaboration with the Department of Finance and the Department of
Trade and Industry.
1.3.5 The Law Reform Process
The DEAT is currently undertaking a process of legal reform, which will include
reviewing, developing and implementing legislation dealing with integrated waste
management. In the interim current legislation will be fully implemented to
address as far as possible the objectives and the goals of the NWMS. The
problems currently encountered with monitoring compliance and the enforcement
of waste management legislation will be consolidated during the development of
Action Plans and be reviewed as part of the Law Reform Process. If, however,
the Law Reform Process were not able to fulfil its terms of reference timeously,
DEAT would initiate a process of review and development of NWMS specific
legislation.
1.3.6 Treatment Technologies
The DEAT’s responsibility is to develop the framework within which waste must
be managed. This includes ensuring that the appropriate legislation and
standards are promulgated and enforced, and the development of a programme
of implementation to allow waste generators to make provision for compliance.
Legislation will be promulgated based on a comprehensive and focused
assessment of appropriate treatment technologies that make provision for the
safe treatment of the waste.

It is not the intention of the DEAT to prescribe the technology that the waste
generator must implement to comply with the legislation. However, where
appropriate, DEAT has the prerogative to investigate any technology that is
proposed to ensure that they meet the required standards, that the technology
can be monitored for compliance and that the standards can be enforced.
1.3.7 Government and Private Sector Responsibilities
Several waste management initiatives, such as recycling and hazardous waste
treatment and disposal, are undertaken by the private sector. It is not the DEAT’s
intention to take over responsibility for those initiatives that are within the private
sector domain, but rather to monitor their operation to ensure compliance with
government’s environmental policy.
1.3.8 Sewage Sludge
The management of sewage sludge is currently regulated by the Water Services
Act and will therefore not be addressed as part of the NWMS, with the exception
of sludge that is disposed at landfill sites.
1.3.9 Radioactive Waste
The development of a strategy for the management of radioactive waste is still in
the process of being developed jointly between the DEAT and the Department of
Minerals and Energy (DME) and will not form part of this document. It is
government’s intention to include the new radioactive waste strategy in the next
version of the NWMS.
1.3.10 Waste Minimisation
Waste minimisation includes any activity to reduce or prevent the volume and
environmental impact of waste. Waste minimisation in this Strategy also implies
waste prevention. It is intended that waste minimisation will form part of a
broader national cleaner production strategy.
2. Background to the NWMS
2.1 Environmental Policy and Legislative Developments
The Consultative National Environmental Policy Process (CONNEPP) resulted in
the development of the White Paper on Environmental Management Policy for

South Africa (1998) and the promulgation of the National Environmental
Management Act 107 of 1998 (NEMA). This Act provides for co-operative
environmental governance by establishing principles for decision making on
matters affecting the environment. An important function of NEMA is to serve as
an enabling Act for the promulgation of legislation to effectively address
integrated waste management.
Environmental policy and legislation in all fields of governmental activity have
been under active review since 1994. The Department of Water Affairs and
Forestry, the Department of Minerals and Energy, the Department of Health, the
Department of Constitutional Development and the Department of Trade and
Industry have all been involved in this legal review process. Policies and
legislation which directly or indirectly impact on waste management have been
developed and published, or are in the process of being published, and in some
instances have been implemented by the relevant departments. The integration
of all these individual efforts is one of the main objectives of the integrated waste
management policy.
2.2 Integrated Pollution and Waste Management Policy
Whereas the Environmental Management Policy delineates government’s broad
policy on environmental management, the Draft White Paper on Integrated
Pollution and Waste Management (IP&WM) for South Africa (1998), details
government's policy on pollution and waste management and has formed the
point of departure and framework for the National Waste Management Strategy
(NWMS).
The over-arching goal of the IP&WM policy is to move away from a previously
fragmented situation of uncoordinated waste management to a system of
integrated waste management.
The Draft White Paper on Integrated Pollution and Waste Management for South
Africa defines government’s "cradle to grave" approach to the management of
waste. This is an holistic and integrated management approach extending from
the feasibility and planning stages of a project, through waste prevention and

minimisation, as well as the generation, storage, collection, transportation,
treatment and final disposal of waste.
The IP&WM policy represents a paradigm shift in South Africa’s approach to
waste management. Historically, pollution control focused primarily on impact
management and remediation of pollution. To ensure sustainable development
the focus has moved to pollution prevention. Subsequently, the NWMS process
was undertaken to ensure that the IP&WM policy is translated into practice.
Central to the development of the strategy for integrated waste management has
been pollution avoidance/prevention and waste minimisation approach that
focuses on the source of waste and moves away from the ‘end-of-pipe’ solutions.
At the same time, the present state of waste management is far from perfect, and
the Strategy recognises that a paradigm shift cannot be implemented without a
concurrent improvement of existing management systems. The Strategy
therefore also deals with the need to raise waste collection, waste transportation,
treatment and disposal services to an acceptable standard for all communities
and to provide waste management services for the whole country.
The NWMS Strategy follows the waste hierarchy approach (see Figure 1.1),
which is internationally accepted as a rigorous approach to integrated waste
management.

Figure 1.1: Steps in Waste Hierarchy
3. DEVELOPMENT OF A NATIONAL WASTE
MANAGEMENT STRATEGY
3.1 Scope of Strategy
The National Waste Management Strategy presented in this document was
compiled by the Department of Environmental Affairs and Tourism (DEAT) and
the Department of Water Affairs and Forestry (DWAF) in consultation with a wide
range of stakeholders. The stakeholders include: government at all levels, non-
governmental organisations (NGOs), community based organisations (CBOs),
labour, business and industry (including mining). It represents a far reaching plan
for addressing key issues, needs and problems experienced with waste
management in South Africa (1997/8). The plan comprises a number of short,
medium and long-term priority initiatives. The Strategy covers the period up to
the year 2010.

The successful implementation of the Strategy will be critically dependent on the
following factors and activities:
Political will, enthusiasm and commitment on the side of the government
to secure the necessary resources. Commitment, support and input from
stakeholders. The availability of human and financial resources at all
levels of the government and within civil society. Rapid capacity building in
both government and civil society. The integration of waste management
into the cradle to grave environmental planning and management process.
This is a first generation Strategy which aims at initiating action both by
government and civil society that will eventually result in an integrated waste
management system for South Africa. Government accepts that this Strategy will
have to be regularly reviewed (e.g. every five years) and adapted to address
practical realities and changing needs and priorities. However, such periodic
changes will not compromise the attainment of the overall goal of the Strategy,
i.e. integrated and sustainable waste management.
3.2 Definitions
The key terms and concepts used in this document are defined below while a
more extensive glossary of terms (Annexure 1) and list of abbreviations
(Annexure 2) are given at the end of the document.
Strategy is used in this document to mean a broad course of action designed to
make the best use of resources and opportunities and to offer the best prospect
of achieving the defined objectives whilst dealing with the risks that may be
involved in the course of action.
Action Planning is the process of drawing up a scheme for defining targets,
methods, tasks, responsibilities, timing, control procedures and the results
expected.
Waste is an undesirable or superfluous by-product, emission, or residue of any
process or activity that has been discarded, accumulated or been stored for the
purpose of discarding or processing. Waste products may be gaseous, liquid or
solid or any combination thereof and may originate from domestic, commercial or

industrial activities, and include sewage sludge, radioactive waste, building
rubble, as well as mining, metallurgical and power generation waste.
Integrated Waste Management Strategy is a holistic and integrated course
of action, which specifies the institutional, infrastructural and technological
support, as well as human and financial resources required to establish and
implement an integrated waste management strategy commits all the people of
South Africa to preventing and minimising waste generation at source in order to
protect human health and the environment and to develop resources in a
sustainable manner.
3.3 Waste Categorisation
For the purposes of this document, waste has been categorised as either general
or hazardous. Within these two categories, waste is categorised according to its
source namely, domestic, commercial or industrial (Figure 1.2). General waste is
sub-divided into paper, metals, glass, plastic, organic and inert materials (which
includes builders rubble). Due to its composition and characteristics general
waste does not pose a significant threat to public health or the environment, if
managed properly. Hazardous waste is waste that has the potential, even in low
concentrations, to have a significant adverse effect on the public health or the
environment. It is categorised according to the nine classes and four hazardous
ratings, as described in the DWAF Minimum Requirements documents (Second
edition, 1988).

Figure 1.2: Waste Categorisation
3.4 Principles
The principles used in the development of the NWMS are inter alia those of the
Constitution of the Republic of South Africa (Act 108 of 1996), the Bill of Rights
contained in the Constitution, the Environmental Management Policy for South
Africa (No. 18894 of 1998), the Environmental Management Act (Act 107 of
1998) and the Draft White Paper on Integrated Pollution and Waste Management
for South Africa (1998). Some of the principles on which the NWMS is based are
– Accountability; Affordability; Cradle to Grave Management; Equity; Integration;
Open Information; Polluter Pays; Subsidiarity; Waste Avoidance and
Minimisation; Co-operative Governance; Sustainable Development; and
Environmental Protection and Justice.
3.5 Strategic Goals and Objectives
The wide variety of initiatives that need to be considered in order to realise the
proposed integrated waste management system are detailed in Chapters 7 to 14
in Part 2 of this Strategy.
The strategic goals of the Draft White Paper on Integrated Pollution and Waste
Management for South Africa (1998) are the following:
Effective institutional framework and legislation; Waste minimisation,
impact management and remediation; Holistic and integrated planning;
Participation and partnerships in IP&WM governance; Empowerment and
environmental education; Information management; and International co-
operation.
The table below summarises in broad terms the key elements of the existing
waste management approach as practised in South Africa (1997/8), compared to
the proposed future situation after implementation of the strategic objectives of
the NWMS.
Existing Waste Management
Approach
Strategic Objectives for
Integrated Waste
Management

Limited focus on control
mechanisms
Focus on sustainable
environmental protection
Inadequate waste collection
services
Adequate waste collection
services for all
Adverse effect on the
environment and public health
Sustainable protection of the
environment and public health
Fragmented approach with single
media focus
Consolidated multimedia
approach
Conflict of interests Transparency in conflict
resolution
Insufficient information Integrated Waste Information
System
Inadequate environmental
planning
Holistic integrated environmental
planning and capabilities
Inadequate R&D programmes Focused investigations that take
cognisance of cross-cutting
implications
Fragmented regulatory approach Integrated regulatory approach
Regulations inadequately Enforcement facilitated

enforced
Full waste management costs
not realised
Polluter Pays Principle and total
cost accounting
3.6 Approach and Methodology
The draft National Waste Management Strategy was developed for all the people
of South Africa. The document sets out a long-term strategy with a time horizon
of the year 2010. It outlines the functions and responsibilities of the three levels
of government. It does not, however, specify in detail how the proposed strategy
will be implemented, since this aspect of the Strategy will be dealt with during the
next phase of its development i.e. the development of detailed action plans. The
development of the NWMS is seen as a dynamic process that will be regularly
reviewed (e.g. every 5 years) to take account of progress made, changing needs
and priorities, as well as the realities of practical implementation. Where possible,
firm plans and targets are specified. Where, due to a lack of information or other
constraints this approach was not possible, a more qualitative approach has
been taken.
The NWMS Project comprised four phases:
Phase I, The Inception Phase: During the Inception Phase, final detailed
planning for the NWMS project was undertaken. Sectoral workshops were held
during October and November 1997 where stakeholders were consulted about
the project objectives, project schedule and project planning. Five tasks groups
were formed, to deal with waste minimisation, the waste information system,
hazardous waste, general waste and strategic planning respectively. The
Inception Phase was completed during December 1997.
Phase II, The Situation/Baseline Analysis Phase: Each of the four
specialist task groups, i.e. waste minimisation, the waste information system,
hazardous waste, and general waste, undertook a situation/baseline analysis that

identified waste issues, problems and needs in their specialist fields. The
strategic planning task group synthesised these findings into an integrated
Situation/Baseline Analysis Report, which addressed the seven strategic goals
set out in the IP&WM policy. The Synthesis Report was workshopped with
stakeholders during April and May 1998 and the waste management needs and
issues which had to be addressed in the strategy formulation phase were
identified. This phase was completed in May 1998.
Phase III, The Strategy Formulation Phase: The strategy formulation
phase commenced immediately after finalisation and acceptance by the
stakeholders of the Situation/Baseline Synthesis Report. At a series of sectoral
workshops and one multi sectoral workshop, each task group debated the key
issues identified during the Situation/Baseline Analysis Phase and developed
them into a broad range of strategic options and scenarios. The sectoral
workshops were held during August 1998 and a multi sectoral workshop was
held during September 1998. A draft NWMS
(Version ‘a’) was compiled based on these inputs and direction from the Project
Steering Committee (PSC). This draft NWMS was workshopped with
stakeholders at a multi sectoral workshop held on 23 November 1998. ‘Version
‘b’ of the draft NWMS was compiled at the request of the workshop attendees
and the Project Steering Committee, and was used as a basis for broad
comment over a period of two and a half months (mid December 1998 to the end
of February 1999). The input received was integrated into the NWMS, (Version
‘c’), Further stakeholder input was incorporated into the NWMS, which has been
updated to Version ‘D’.
Phase IV, Action Plans: This NWMS (Version ‘D’) identifies a number of
strategic priority initiatives that need to be addressed as a matter of urgency.
Action plans are being developed for their implementation. This process was
initiated in January 1999.
4. PRIORITY INITIATIVES

The NWMS process described in the previous section was used to progress from
policy to strategy. The NWMS project, through a process of consultation with a
wide range of stakeholders developed the following outputs:
A baseline situation analysis report, which identified problems, needs and
key issues. Identified strategic options as possible mechanisms to address
the key issues. Narrowing the focus of the strategic options to a set of
specific priority initiatives that address the key issues raised by
stakeholders.
4.1 Criteria and Rationale for Developing Priority Initiatives
The criteria used to develop the priority initiatives were those stipulated in the
Draft White Paper on Integrated Pollution and Waste Management for South
Africa (1998). These criteria and the rationale for using them were the following:
• Prevention and minimisation of waste
Prevention and minimisation is the first approach to waste management
according to the waste management hierarchy. The implementation of this
approach will initiate the paradigm shift from end-of-pipe control to waste
prevention and raise awareness of integrated waste management.
Implementation of cleaner technology and waste minimisation within
South Africa will also contribute to maintaining the country’s competitive
position in the technological market place and enable South Africa will to
meet the increasing demands from the developed world market to provide
sustainably produced products. In addition, successful implementation of
waste minimisation/prevention initiatives will strengthen the relationship
between the public and private sector.
• Direct and visible reduction in the impact on public health and environment
This criterion has been recognised as one of the key objectives of the
NWMS and supports the Constitutional right to an environment that is not
detrimental to human health. This criterion is also stressed in the National
Environmental Management Act, the Draft White Paper on Integrated

Pollution and Waste Management and the National Water Act (Act 36 of
1998).
• Improve the quality of life of all South Africans, particularly the previously
disadvantaged communities
Provision of waste management services will improve the living standards
of those communities that were previously unserviced. Giving effect to this
criterion will increase public awareness of the benefits of integrated waste
management, encourage payment for service provision and create funds
to implement additional waste management initiatives.
• Potential for job creation
This criterion supports the RDP and the government’s drive to create
employment. Integrated waste management has the potential for creating
jobs in both the public and private sector.
• Potential for rapid and visible results
Implementation of initiatives that result in rapid and visible results will
promote support for the NWMS and facilitate the implementation of the
medium to long-term initiatives.
• Optimum Utilisation of Available Resources
Available human resources, current institutional arrangements and
existing legislation will be optimally utilised and applied to address the
short-term initiatives.
• Sustainable Integrated Waste Management
In order to bring about integrated waste management, the initiatives that
have been selected focus not only on short-term results and impact, but
also long-term sustainability. This criterion requires that the waste
management process be cost, particularly for the waste generator.
4.2 Priority Initiatives
This section summarises all the priority initiatives that have been developed for
the seven main elements of the waste management hierarchy (Chapters 7 to 13

in Part 2) and the implementing instruments (Chapter 14 in Part 2). Each
summary in this section includes a title for each initiative and indicates
milestones, i.e. important results or products expected during the course of
development of the initiative. Since this chapter is a summary, in some cases,
the title of the initiative does not correspond precisely with the longer title
description given in the background document
(Part 2). However, any slight change in title does not indicate any change in the
content of the initiatives.
Short-term milestones are defined as those waste management results and
products planned within current resource constraints for delivery before the end
of 2002. Medium term milestones are those defined for delivery during the period
2003 to 2006, and long term milestones are those that will be realised during the
period 2007 to 2010. Proposed responsible institutions are listed in Table 4.1 at
the end of this section.
The timeframes indicated below are DEAT’s estimate of the earliest possible
dates for the implementation of the various proposed priority NWMS initiatives.
As mentioned previously (Section 1.3.3), practical realities may necessitate a
review and adaptation of these timeframes, e.g. short-term may have to be
extended to the year 2004.
4.2.1 Integrated Waste Management Priority Initiatives
The section below describes the priority initiatives developed for the seven
elements of integrated waste management.
Integrated Waste Management Planning
• Regulations and guidelines for the compilation of waste management plans,
covering all types of waste, will be drafted by the DEAT, in consultation with
provincial government, and promulgated by the year 2000. Special consideration
will be given to waste management in rural and farming areas.
• For general waste, first generation plans will be compiled by local government in
2001, for submission in 2002. Final plans will be submitted and approved in 2003
and be implemented by 2006. Compilation of first generation integrated general
waste management plans in the short-term is part of a phasing-in process.
• For hazardous industrial waste, first generation plans will be compiled by
provincial government in 2001, for submission in 2002. Final plans will be
submitted and approved in 2003 and be implemented by 2006.

• All integrated waste management plans will be subjected to public consultation,
prior to submission to the provinces and to national government.
• Provincial government will prepare summaries of the plans received from local
government for managing general waste so that they can be incorporated to their
provincial environmental management plans for submission to the CEC.
• Provincial integrated hazardous waste management plans will be compiled, with
stakeholder input, for submission to the CEC. The integrated waste management
plans will be discussed at the CEC to facilitate inter provincial co-ordination,
particularly in relation to provision of facilities for disposal and treatment of both
hazardous and general waste.
• Plans for non-hazardous and hazardous mining and power station waste will be
developed and submitted to the provinces by the mine and power station owners
according to an agreed time schedule. Provincial government will incorporate the
plans in summarised form in their provincial environmental and waste
management plan for submission to the CEC.
• Final plans for both general and hazardous waste will be regularly revised (e.g.
every 5 years).
Waste Information System
• The database and guidelines for the Waste Information System (WIS) will be
developed by the end of 1999, and will include the development of a WIS
prototype. The development of the prototype forms part of the NWMS project.
• The WIS database will become operational once the necessary regulatory
requirements are in place and operations are envisaged to commence in the year
2000.
• The phased implementation of the WIS database, including receipt of data,
processing and dissemination and regular system updating, will take place from
the year 2001.
Waste Minimisation
• Planning for, and initial implementation of, a National Waste Minimisation
Programme will take place from 1999 to 2000, following the development of
DEAT waste minimisation policies throughout 1999.
• DEAT will implement waste minimisation strategies in its own operations during
1999, for example, the inclusion of waste minimisation/cleaner production clauses
within government procurement requirements.
• DEAT will implement demonstration projects and encourage the use of co-
regulatory waste management instruments like the use of government/industry
agreements.
• DEAT will initiate a process of identifying a list of priority wastes during 1999.
Once a priority list has been agreed upon, affected sectors will be encouraged to
enter into discussions with DEAT on specific waste minimisation strategies.

• Waste minimisation strategies will be integrated within an overall sustainable
development framework.
Recycling
• Promotion of waste recycling will be incorporated in pollution and waste
legislation, to be drafted during 1999.
• A number of successful recycling initiatives have been initiated by the private
sector. The DEAT will identify all current recycling initiatives and will consult
with the responsible bodies in order to ascertain the most appropriate approach to
conduct research and development projects. It is envisaged that this process will
run from 1999 to 2003. Policy instruments like section 35 of the National
Environmental Management Act will be used to support and enhance current
recycling initiatives. Although the process will be facilitated by the DEAT, the
involvement of local government in the recycling initiatives is essential and
provides environmental focus. An Action Plan for supporting and extending
recycling initiatives will be developed and implemented by 2006.
• DEAT will enter into discussions with the mining and power generation industry
to develop action plans to investigate, promote and extend recycling of wastes
generated by these industries.
Waste Collection and Transportation
• Waste collection services are to be established throughout South Africa starting in
1999 and being fully realised by the end of 2006. Priority has been given to
establishing general waste collection services in unserviced and poorly serviced
residential areas according to a phased implementation with the target of securing
basic waste collection services for approximately 300 000 households in high
density unserviced areas by the end of 2002.
• A safe collection and transportation system for hazardous waste will be
developed. This system will include the registration and certification of
transporters (by 2000), implementation of the waste manifest system (by 2001)
and the development of a network of collection points (by the end of 2002).
• The DEAT will develop guidelines for the safe management of medical waste by
2001 which will include guidelines for the sorting of the waste at source into
infectious waste that requires incineration (according to the Human Tissues Act)
and non-hazardous medical waste that can be disposed of by alternative methods.
• A carefully developed implementation plan for both general and hazardous waste
collection and transportation will be implemented in the medium to long-term.
• The DEAT, in the medium to long-term, will prepare guidelines for the collection
and transportation of general waste, taking into account the regionalisation of
waste disposal sites.
• The DEAT will prepare guidelines for provincial government for the collection
and transportation of hazardous waste that will ensure integration of all
regulations relating to the transportation of hazardous materials.

Waste Treatment
• The DEAT will review and revise existing air emission standards on thermal
treatment facilities to ensure the protection of public health and the environment.
The initial objective is that by 2002 all thermal treatment facilities will have been
upgraded to comply with the revised standards, or will have been
decommissioned.
• The planning for a system of well-functioning medical waste treatment plants will
be completed by the year 2002 and additional treatment plants established
thereafter. Medical waste treatment systems in rural areas will be in place during
the period 2006 to 2010.
• The DEAT will initiate national surveys to identify the amount and categories of
hazardous waste requiring treatment throughout the country.
• The DEAT will facilitate an investigation as to the desirability and feasibility of a
national hazardous waste treatment facility. This investigation will involve all
relevant stakeholders.
Waste Disposal
• All landfill sites will be registered, permitted and operated in agreement with the
DWAF Minimum Requirements (Second Edition, 1998) by 2005. A system of
regional landfills will be promoted. Salvaging on landfills will be formalised and
controlled by 2003 and will be phased out completely in the longer-term.
• The DEAT, in collaboration with all the relevant government departments, will
initiate a process to identify suitable areas for the establishment of hazardous
waste treatment and disposal sites. Sites will be established with the full
involvement of local and provincial government and the private sector and private
enterprise will be involved in for the operation and management of these sites.
Co-disposal will be gradually phased out as new waste treatment and disposal
technologies are developed and implemented.
• During the short-term period, disposal of mining and power station waste will
comply with a permitting process that is integrated with the Environmental
Management Programme Report (EMPR) process. A development programme for
integrated management of mining and power station waste will start in 2002. At
the same time, new closure requirements will be promulgated, and abandoned
mine waste sites will be placed on an inventory and assessed, in accordance with
the DWAF programme for remediation. This programme will establish an
integrated waste management plan for remediation of abandoned mine sites that
will be implemented by 2004.
• The DWAF Minimum Requirements will be reviewed every five years, or more
often if considered necessary.
4.2.2 Implementing Instruments

Institutional Development
• The Constitution of the Republic of South Africa (Act 108 of 1996) assigns
responsibility for refuse removal, refuse dumps and solid waste disposal to local
government. Provincial government has the exclusive responsibility to ensure that
local government carries out these functions effectively.
• Integrated waste management functions will be concentrated in national
departments of environmental affairs and provincial and local government by
2006.
• The DEAT, together with other relevant government departments, will investigate
mechanisms to ensure that financial provision is made for the initiation and
implementation of a regulatory system regarding waste disposal sites. This system
will ensure that the permit holder has made financial provision for the closure,
long-term monitoring and rehabilitation of waste disposal sites.
Capacity Building
• Capacity building for implementing and administering integrated waste
management strategies in the public sector will be planned during 1999 and
implemented throughout the strategy period. Capacity building activities around
waste management must form part of a capacity building plan and be co-ordinated
with other environmental capacity building initiatives of other departments.
Legislative requirements
• South African environmental law will be reviewed and assessed in the light of the
NWMS Strategy, as well as against the requirements of the Constitution (1996);
the National Environmental Management Act (1998); the Environmental
Management Policy for South Africa ((1998); and the Draft White Paper on
Integrated Pollution and Waste Management for South Africa (1998), in a Law
Reform Process, which will be initiated and managed by the DEAT.
• Legislative support, which is required before the completion of the Law Reform
Process, will be based on the enforcement of existing legislation. The DEAT will
ensure that the legislative requirements for the implementation of the short-term
initiatives are dealt with as a priority in terms of the Legal Reform Process.
• Existing legislation should be used and if necessary, appropriately amended,
rather than new laws being created.
Funding
• Two distinct funding mechanisms will be used, viz.:
o Financial pricing mechanisms - based on a cost recovery approach.
o Economic approaches - which introduce economic instruments into
the pricing structure of integrated waste management in order to
achieve specific waste management objectives.

Implementation of the Polluter Pays Principle is an integral
component of both approaches.
• Funding set out in this Strategy will come from a variety of sources depending on
the allocation of responsibility for waste management. In the case of national and
provincial government, departmental budgets will be used and supplemented
where appropriate by donor funding for specific initiatives. In the case of local
government, funding will come from the introduction of appropriate cost recovery
mechanisms for services delivered. The potential for utilising the Municipal
Infrastructure Investment Fund to assist with the establishment of facilities will be
investigated.
• The DEAT will develop a national pricing strategy to assist local government
with the introduction of appropriate user charges that will be legislated as part of
the Law Reform Process, to be completed by 2000. The development of this
Strategy will be undertaken in consultation with the Department of Trade and
Industry, and the Department of Finance.
• The DEAT will investigate the use of economic instruments to promote the
expansion and adoption of waste minimisation and recycling initiatives.
• The Polluter Pays Principle, which is a principle of the National Environmental
Management Policy (1998), will in the immediate future be implemented for the
most part through regulations. Possibilities to supplement this income with
dedicated economic incentives will be investigated by DEAT in conjunction with
stakeholders.
Public Participation and Partnerships, Education and Awareness
• A range of public participation facilitation mechanisms will be considered.
• The implementation of the NWMS necessitates ongoing environmental education,
public awareness and public participation programmes.
• Public awareness programmes will be developed in the short-term and
implemented in such a way as to meet the requirements of the individual waste
management initiatives. The requirement of public awareness will necessitate
activities at national level to create general public awareness, as well as require
supporting activities at local/community or industrial sector levels, e.g. in the case
of introducing new waste collection schemes or sector-based waste minimisation
projects. Programmes on waste management will be integrated into and co-
ordinated with other environmental projects, programmes and campaigns.
4.2.3 Time Schedules and Responsibilities
The priority initiatives are summarised in Table 4.1. This table gives a description
of priority initiatives, and time frames and indicates the levels of government that
will take the responsibility for specific initiatives. Detailed background is given in
Part 2, Chapters 7 to 13.

Table 4.1: Priority Initiatives
Table 4.1 Priority Initiatives (cont.)

Table 4. 1 Priority Initiatives (cont.)

4.3 Prioritisation of Priority Initiatives
To fully address the identified priority initiatives in an integrated manner will
require the implementation of about 50 major priority initiatives (Table 4.1) (and
many more sub-initiatives) with their associated resource requirements (financial
and human), required institutional changes, new legislation and capacity building
requirements.
In order to develop a strategy that can be effectively implemented, the priority
initiatives have been categorised into short- term (by the year 2002), medium-
term (by the year 2006) and long-term (by the year 2010) priorities. The criteria
used for this categorisation process are those stipulated in Section 4.1 but with a
specific emphasis on what could be achieved practically in the short, medium
and long-term.
The priority initiatives identified as short-term were analysed to assess their
broad requirements (institutional, legislation, capacity building and financial
requirements) and implications for their implementation. Once further input is
received from stakeholders on these proposed short-term priority initiatives, re-

prioritisation may be necessary to ensure that these initiatives can be realised by
the year 2002. The finalised short-term initiatives will be developed into Action
Plans for their implementation.
The broad requirements and implications for the priority initiatives were identified
in Part 2, Chapters 7 to 13. Detailed requirements and implications and
associated activities will be investigated and developed following the
development of action plans for the short-term initiatives.
4.4 Short-Term Priority Initiatives
The following seven short-term priority initiatives have been identified for urgent
consideration and implementation using the selection criteria described in
Section 4.
The degree of compliance (both in the short and also in the longer-term) with the
selection criteria is tabulated qualitatively for each identified short-term initiative.
The implications and requirements of instruments for implementing these priority
initiatives are also summarised and include a cross-reference to the detailed
discussion of the requirements in Part 2, Chapters 7 to 13.
Medium and long-term priority initiatives are briefly addressed in Section 4.5.
Cost estimates will be refined as these initiatives move into the phase of Action
Plan development and implementation.
4.4.1 Integrated Waste Management Planning
The DEAT will draft and promulgate regulations and guideline
documents for integrated waste planning, and will develop and
implement capacity building plans and public awareness campaigns.
Provincial government will develop and submit first generation
hazardous waste management plans and prepare final plans for
submission. Local government will develop and submit first
generation plans for integrated general waste management and
prepare final integrated general waste management plans for
submission. Waste management plans for business and industry
with on-site waste treatment facilities will be prepared by

developers/owners and be submitted to provinces according to a
mutually agreed time schedule.
Criteria Relevanc
e
Prevention and minimisation of waste  
Direct and visible reduction in the impact of waste
on public health and environment

Improve the quality of life of all South Africans with
the emphasis on the previously disadvantaged
communities

Potential for job creation
Potential for rapid and visible results
Optimum utilisation of available resources 
Sustainable Integrated Waste Management   
Implementing
Instruments
Implications and Requirements
Institutional arrangements
(Section 7.3.1 Part 2)
DEAT to issue regulations and guidelines to ensure

implementation of an integrated waste planning system
Provincial Government to compile first generation
waste management plans for hazardous waste and
prepare for submission of final plans
Local Government, with assistance from provincial
government, to compile first generation waste
management plans for general waste and prepare for
submission of final plans
Legislation
Regulations to be promulgated by the year 2000
Integrated with LDO and IDPs by the year 2000
according to the Development Facilitation Act
Financial
(Section 7.3.4, Part 2)
Funding to be secured partly from the fiscus, partly from
payment for services
Estimated cost:
DEAT
1999/2000 2.3 million Rand Regulations etc.
2000/2002 6 million Rand Awareness campaign
Provincial Government
2001/2002 8 million Rand/year First generation HW
plans
1999/2002 10 million Rand/year Capacity Building
Local Government
1999/2002 16 million Rand Capacity building
2001/2002 8 million Rand/year First generation GW
plans

Staff and capacity building
Estimated total staff requirement:
2 staff in DEAT
40 staff in Provincial Government (3 to 6 per province)
800 staff in Local Government (part time) which may
reduce to approximately 350 if re-structuring of the local
authorities takes place
The above mentioned staff will be capacitated
according to Capacity Building Plan (Part 2, Section
14.4.2). Costs for capacity building are included in the
above costs
Public participation and
partnerships
A range of facilitation mechanisms will be considered
General waste plans compiled by local government in
consultation with provincial government and district
councils
Inter-municipal/regional partnerships to be developed
Public awareness and waste
management education
Promote understanding of integrated waste
management, including solid waste management and
the importance of integrated waste management
planning
4.4.2 Waste Information System
The DEAT will develop a National Waste Information System and
adopt a phased approach for its implementation. The
implementation will focus on and address the short term waste
information needs i.e. data required for integrated waste planning

and waste disposal. Integral to the WIS will be the development of
key performance indicators and an annual reporting system.
Criteria Relevanc
e
communities
Potential for job creation 
Optimum utilisation of available resources
Sustainable Integrated Waste Management   
Implementing
Instruments
Institutional arrangements
DEAT to promulgate legislation required for
implementation of the WIS, and develop and co-

ordinate implementation of the Waste Information
System
Provincial government to be responsible for data
processing and quality assurance
Local government, with assistance from Provincial
Government, to be responsible for data collection
Legislation
New legislation and regulations on the WIS to be
promulgated by the end of 1999
Regulations on waste classification to be drafted in
terms of Section 24 of the Environment Conservation
Act, or within new IP&WM/WIS legislation based on
inter alia the DWAF Minimum Requirements
Financial
Funding to be secured partly from the fiscus and partly from
the private sector
Estimated cost:
DEAT
1999 5 million Rand WIS development
1999/2000 5 million Rand Capacity Building
1999 6 million Rand Hardware
Ongoing 0.5 million Rand/year Operating costs
Provincial Government
2000 or 2001 1.5 million Rand/year Operating
costs
Local Government
2000 or 2001 9-10 million Rand/year Operating

costs
Estimated total staff requirements:
2 to 4 staff in DEAT
50 staff in Provincial Government (part time)
800 staff in Local Government (part time) which
may reduce to approximately 350 if re-
structuring of the local authorities takes place
Expertise to be developed as part of the DEAT
Capacity Building Programme
Information suppliers to be capacitated regarding
operation of the WIS
partnerships
(Section 8.3.5 Part. 2)
The establishment of regional computer centres for
use by those local authorities that do not have access
to computer facilities will be investigated
Public awareness and
waste management
education
Regular distribution of information through all forms of
media to promote public awareness of the WIS
4.4.3 Waste Minimisation
Following a review and assessment of current waste minimisation
initiatives, the DEAT, together with the private sector, may develop
and implement a National Waste Minimisation Programme. This
Programme will be integrated with relevant environmental initiatives
of other national, provincial and local government departments, and

will include the development of guidelines, and the introduction of
legislative incentives for waste minimisation. The Programme will
also include the implementation of one or more demonstration
projects.
Criteria Relevanc
e
Prevention and minimisation of waste   
 
communities
Optimum utilisation of available resources 
Sustainable Integrated Waste Management  
Implementing
Instruments

Institutional arrangement
DEAT to be the lead agent for managing waste
minimisation initiatives (The possibility of establishing a
National Centre for Waste Minimisation/Cleaner
Production to be investigated)
Provincial and local government to implement initiatives
and to promote co-operative approaches, such as waste
minimisation clubs
Private sector to assist in development of guidelines and
environmental agreements, and to monitor the effective
implementation of waste minimisation initiatives
Legislation
New legislation and amendments to existing legislation
will be required
Regulations will be issued in terms of sections 21 and 24
of ECA, and section 35 of NEMA, or as part of the new
IP&WM legislation as appropriate
Chapters 3, 5 and 8 in NEMA are relevant
Financial
Funding to be secured from the fiscus, donors, development
funding and the private sector
Estimated expenditure for National Waste Minimisation
Programme
National Budget
1999/2001 2 million Rand Guidelines, campaign, awards,
databases
1999/2001 3 million Rand Prioritisation of streams, initial
implementation of Programme

1999/2001 2 million Rand Demonstration project
1999/2001 0.8 million Rand Legislation, policy
1999/2002 0.5 to 1 million Rand/year Administration
1999/2001 5 million Rand Capacity building
Private Sector
1999/2001 3 million Rand Development of sectoral waste
minimisation guidelines/participation in demo
projects/development of agreements and waste min
clubs/contribution to NW Min Centre
Donor Funds
1999/2001 16 million Rand Sectoral guides, demo
projects, Waste Min Centre / info campaigns
DEAT
1999/2002 5 staff required
2001-2012 2-3 staff required
2-3 additional staff in total required for all the provinces
partnerships
Public/private implementation of demonstration projects,
environmental agreements and waste minimisation clubs
All sectors represented on NEAF, and contribute to policy
initiatives through structured participation processes.
Public awareness and waste
management education
The establishment of Waste Minimisation Centre/s to be
investigated
Consumers to be informed about the benefits of waste
minimisation

4.4.4 Recycling
The DEAT will identify and co-ordinate ongoing recycling initiatives
in South Africa. In consultation with stakeholders, the DEAT will
investigate the most appropriate way for promoting and
implementing waste recycling. Private sector proposals will be
solicited.
Criteria Relevanc
e
 
communities
Potential for job creation  
Potential for rapid and visible results 
Implementing instruments already in place 
Sustainable Integrated Waste Management  

Implementing
Instruments
DEAT will be the lead agent for investigating recycling
initiatives
Legislation
New legislation will only be required once appropriate
mechanisms for implementation have been identified
Financial
Funding to be secured form the fiscus
DEAT
1999/2002 0.2 million Rand/year Operating costs
Costs will only be incurred for implementing medium to
long-term strategies
Two staff at national level will be used
Designated person at provincial level
Existing staff in public and private organisations will
participate on an ad-hoc basis
partnerships
Future public/private partnerships to be investigated
Recycling initiatives will only be sustained by the
active participation of communities
waste management
education
The concept of separation at source will have to be

promoted through an effective public awareness
campaign
4.4.5 Waste Collection and Transportation
The DEAT, in collaboration with provincial government, will develop
guidelines and standards for collection of general waste. Provincial
government will draft provincial regulations in consultation with
local government for general waste collection services. Local
government will initiate the phased implementation of waste
collection services for high-density, unserviced areas.
Criteria Relevanc
e
Prevention and minimisation of waste 
  
communities
  
Potential for job creation   
Potential for rapid and visible results   
Implementing instruments already in place   

Sustainable Integrated Waste Management 
Implementing
Instruments
The DEAT will develop guidelines and standards for
collection services for general waste
Provincial government will draft provincial regulations in
consultation with local government
Local Government to implement collection services for
general waste
Legislation
Regulations in terms of Section 24 of the ECA will be
enforced
Legislation will be promulgated to establish new
guidelines for basic waste collection services
Financial
Funding will be acquired partly from the fiscus and partly from
the payment for services.
Estimated cost for waste collection from 300 000 service
points:
DEAT /Provincial Government
0.2 million Rand/year Personnel costs
1 million Rand/ year for 3 yrs Awareness
campaign
Local Government

4 million Rand/year Personnel costs
28.8 million Rand/year Collection costs (R8/m/point)
Estimated total staff requirements:
2 staff at DEAT
30 to 60 staff at local government level
(cost calculated using 50)
Capacity building concentrating on implementing
collection services for general waste to be focused at
local government and communities
partnerships
Appropriate public/private partnerships to be encouraged
Explore public-private partnerships in the development of
facilities to serve both sectors
Community-based small contractor systems to be
investigated
waste management
education
Initiate public awareness campaign to promote payment
for services
Link waste collection awareness campaign to the
Masakhane campaign
Create an awareness of the negative impact on health
and the environment caused by the non-collection of
waste
4.4.6 Waste Treatment

Standards for medical waste incinerator air emission, as well as
classification of all waste treatment facilities, will be reviewed,
revised and enforced. A public awareness and waste management
education campaign will be introduced to focus on the hazards of
medical waste and the legal responsibilities of medical waste
generators.
Criteria Relevanc
e
Prevention and minimisation of waste
  
communities
  
Potential for rapid and visible results   
Implementing instruments already in place  
Implementing Implications and Requirements

Instruments
The DEAT to review and revise air emission standards
and incinerator classification system
Provincial government to enforce new standards for
medical waste incinerators and other hazardous waste
facilities
Legislation
Update relevant regulations (and associated
guidelines) issued in terms of section 44 of
Atmospheric Pollution Prevention Act (Act 45 of 1965)
Financial
Staff to be funded from the fiscus
Estimated cost for staff requirements
0.15 million Rand per annum DEAT
1.35 million Rand per annum Provincial government
Estimated total staff requirements
1 staff at DEAT
1 staff for each province (part time)
Promote sorting of medical waste at source
partnerships
Co-ordinated planning between provinces for
regionally based facilities
Explore public-private partnerships in the development
of facilities to serve both sectors
Public participation essential with regard to the siting
of new facilities

waste management
education
Increase the awareness of all sectors of society with
regard to necessity for incineration of medical waste
4.4.7 Waste Disposal
A process will be initiated to register all landfill sites. Plans will be
submitted for remediation and/or meeting the DWAF Minimum
Requirements. In addition, permit conditions will be enforced for
those sites currently permitted through regular monitoring and
auditing. A new permitting process that is integrated with the EMPR
process will be initiated for mining and power stations. New
hazardous waste disposal sites will be established.
Criteria Relevanc
e
Prevention and minimisation of waste
on public health and the environment
  
communities
  
Potential for job creation  
Potential for rapid and visible results 

Implementing instruments already in place   
Implementing
Instruments
DEAT to undertake registration of waste disposal sites
Permitting and enforcement of permit conditions
devolved to the provincial government
Regional/local government to undertake regional
planning and landfill site management
Legislation
Regulations issued in terms of section 24 of ECA, or
as part of the new IP&WM legislation
Minimum Requirements required as part of permit
conditions
Financial
Landfill owner to be responsible for submitting of plans
Additional staff to be funded from the fiscus and partly
through payment for services
Estimated cost for staff requirements
1.5 million Rand per annum DEAT
8 million Rand per annum Provincial government
2 million Rand per annum Regional/local government
Staff and capacity building Estimated total staff requirements:

(Section 13.3.2 Part 2) 10 staff at DEAT
6 staff at each province (54 total)
1-2 staff at each regional/local government
Waste site operators to fully understand the DWAF
Minimum Requirements
Regulatory authority staff to hold tertiary qualification
partnerships
Local governments to form partnerships to investigate
the establishment of regional landfills
Task team to be established to develop permit
guidelines for mining and power station waste landfills
Review public participation requirements for the
DWAF Minimum Requirements
waste management
education (Section 13.3.5
Part 2)
Awareness to be promoted about landfill site
management and the need for compliance to the
DWAF Minimum Requirements
4.4.8 Implementing Instruments
The DEAT, together with other relevant government departments,
will develop the necessary implementing instruments to facilitate the
implementation of the National Waste Management Strategy, both in
the short-term and in the medium to long term.
A prerequisite for the implementation of the National Waste Management
Strategy is the availability and proper functioning of the following instruments:
• Institutional framework
• Legislation Funding and funding mechanisms
• Capacity building
• Public participation and partnerships
• Waste management education and public awareness programmes.

The conversion of the IP&WM policy into law is an ongoing process. Amongst
other things, the legislation will support the development of an institutional
framework as well as the funding mechanisms for implementation of the NWMS.
The implementation of the NWMS is dependent upon promulgation of the
required legislation according to the proposed time schedule.
Some of the short term priority initiatives can be implemented using the existing
legislation, whilst others e.g. integrating waste management planning,
implementation of the Waste Information System, and regulations supporting
waste minimisation and recycling initiatives, have weak or no legal support at
present.
Ongoing negotiations are being conducted regarding the development of a
sustainable institutional framework. The timing and outcomes of these
negotiations will have substantial effect on the implementation of the Strategy as
initiatives have been allocated to specific institutions. Once political decisions
have been made, any deviations from the proposed institutional structure will be
amended in the draft NWMS. Furthermore, budget allocations to support the
Strategy can then be secured and departmental planning for staff
allocation/reallocation and capacity building programmes can be initiated.
The estimated timeframe for implementation of many of the initiatives is short.
Should the timeframes be unrealistic, a political decision will be taken on setting
new time frames and parameters for the Strategy implementation process.
Full implementation of the Strategy as proposed in this Strategy will require
political and governmental flexibility and commitment.
The DEAT, as part of its day to day functions and in line with the departmental
business plan, will in co-operation with other relevant departments, develop
action plans and schedules, allocate staff and funds for the development and
implementation of the seven short-term priority initiatives through a
comprehensive capacity building programme. Furthermore, the DEAT will also
plan for the implementation of medium to long-term initiatives.
4.4.9 Cost Estimates for Implementation of Short Term Priority
Initiatives

Integrated Waste Management Planning
To implement an integrated waste management planning system in South Africa
will require new regulations and guidelines as well as implementation of a
comprehensive waste management/environmental education and capacity
building programme.
The drafting of regulations and guidelines is scheduled to take place in 1999 and
2000. Two staff members of the DEAT, with a workload of three years, will be
responsible for drafting these regulations and guidelines. The estimated cost of
drafting regulations is 1 million Rand and 0.8 million Rand for drafting guidelines.
The total estimated cost for undertaking these activities for the period 1999 and
2000 is 1.8 million Rand.
A comprehensive waste management/environmental education and capacity
building programme will be initiated. Capacity building programmes in the period
1999 to 2001 are estimated to cost 16 million Rand at local government level,
and 10 million Rand at provincial government level. The capacity development
programme will be co-ordinated with the DEAT Capacity Building Programme
and with ongoing capacity building initiatives in provincial and local government.
The compilation of first generation hazardous waste management plans at
provincial government level is estimated to cost 8 million Rand per year in 2001
and 2002. Three to six staff members per province will be employed to carry out
the planning activities (calculated as 40 staff nationally).
The compilation of first generation management plans for general waste will be
carried out by local government in 2001 and 2002 and is estimated to cost 8
million Rand per year or an average of R10 000 per local authority. One person
per local government will be occupied for 20 percent of their time, which is
equivalent to 160 person years.
During the implementation of the integrated waste management planning
process, public awareness campaigns will be initiated at an estimated cost of 6
million Rand for the period 2000 to 2002.
Waste Information System

The cost for the development of the waste information system in 1999 is
estimated to be
5 million Rand, which includes the cost for tendering. Computer hardware costs
are estimated to be 6 million Rand in the years 1999. The capacity building costs
for 1999 and 2000 is estimated at 5 million Rand.
By the year 2000 the WIS will be ready for implementation. Four full-time staff at
DEAT will be responsible for its implementation and supervision. Personnel costs
are estimated to be 0.5 million Rand per year.
From the year 2000 the staff in the provinces will be required to process and
undertake the quality assurance of the waste data collected by local government.
The estimated cost for personnel is 1.5 million Rand per year in 2000 and 2001,
assuming that 50 staff members in the provinces are occupied for 50 percent of
their time.
The level of data collected in the first phase of implementation of the WIS will be
limited to that from the main waste producers and those generators who are
identified as producing wastes of concern, as well as the major waste
transporters and disposers. This will limit the number of waste producers,
transporters and disposers to be approached by the local government staff. The
first waste data that is collected will be used for planning purposes as well as for
the enforcement of waste disposal regulations. The cost to local government is
estimated to be between 9 and 10 million Rand, assuming that one staff member
at each local government is occupied 25 percent of their time for data collection
activity. Only one cycle of data collection will take place in the short term (up to
the year 2002).
Waste Minimisation
The initial implementation of a National Waste Minimisation Programme requires
five full time staff at the DEAT who will be responsible for the development of
guidelines, introducing waste campaigns, the prioritisation of waste streams, the
supervision of demonstration projects and ensuring that relevant waste
management regulations are promulgated. A total of two to three staff members
at provincial level in total, together with DEAT staff, will be responsible for the

implementation of the initiatives. The cost of administration is estimated to be 0.5
to 1 million Rand per year and implementation costs between the years 1999 to
2002 are 7.8 million Rand.
Participation by the private sector in demonstration projects and assisting in the
development of sectoral guidelines is estimated to cost 1 million Rand per year.
To facilitate implementation of waste minimisation initiatives, such as
demonstration projects, donor funding of 4 million Rand per year would be
required in the short-term.
WIS staff capacity building between 1999 to 2001 is estimated to cost 5 million
Rand.
Recycling
The DEAT, in consultation with stakeholders, will investigate the most
appropriate way of promoting and implementing recycling initiatives. It is
anticipated that 2 staff members will be required for implementing the short-term
recycling initiatives. The staff members will be responsible for facilitating
investigations and feasibility studies, as well as be responsible for the
development of legal and financial mechanisms to promote recycling.
Waste Collection and Transportation
The DEAT will improve the collection of general waste in South Africa by
upgrading waste collection services in high-density, unserviced areas.
Implementation and upgrading of general collection services in these areas will
be phased in. Initially collection services for 300 000 households will be
implemented before the end of 2002. The estimated cost for local government to
administer the new collection services will be 4 million Rand per year (assuming
an average total of 50 staff members per year).
The basic collection service cost is assumed to be R8/month per service point,
which is therefore equivalent to 28.8 million Rand per year for 300 000
households. The inadequate payment and collection of service fees for the
funding of operating costs of waste collection must be urgently addressed.
Payment for waste collection should inter alia be promoted through the

Masakhane and other public awareness campaigns. Provision will however be
made for situations of genuine financial hardship.
Two staff members at the DEAT, in collaboration with provincial government
staff, will draft guidelines for general waste collection services, the hazardous
waste manifest system as well as hazardous waste collection/transfer facilities.
This process will cost 0.8 million Rand per year over the period 1999 to 2002.
The cost for implementing a waste manifest system and sorting of medical waste
will be borne by the waste generator and will be enforced by the provincial
government.
The cost of implementing a public awareness campaign for waste collection and
transportation is estimated to be 1 million Rand per year for the years 2000 to
2002.
Waste Treatment
The waste treatment classification system and the air emission standards for
medical waste in the short-term will be revised and regulations will be enforced.
One staff member will be appointed at the DEAT and one in each province. The
estimated cost for the personnel is 0.15 million Rand per year at the DEAT and
1.35 million Rand per year for provincial government.
Waste Disposal
Waste disposal regulations, and landfill site registration and permitting, will be
enforced by appropriately capacitated staff in national, provincial and local
government. Ten staff members at national level corresponding to a cost of 1.5
million Rand per year, six staff members (working for 50 percent of their time) in
each province corresponding to 8 million Rand per year and approximately 80
staff members (working for 25 percent of their time) in local government
corresponding to 2 million Rand per year.
Tables 4.2 and 4.3 summarise the capacity and financial requirements
respectively, which are required for implementing the short-term priority initiatives
in the period 1999 to 2002. The tables represent a consolidation of the initial
estimates of cost implications and the capacity requirements. These cost
estimates will be further refined during development of the Action Plans.

Table 4.2: Summarised Capacity Requirements for 1999 to 2002
Table 4.3: Summarised Cost Estimate for Short-term Initiatives
4.5 Medium to Long-Term Priority Initiatives

The broad requirements and implications for the medium-term priority initiatives
(up to 2006) and long-term priority initiatives (up to 2010) (see Table 4.1) have
been identified in Chapters 7 to 13 in Part 2 and are summarised in Section 9.2
of
Part 1. Detailed requirements and the associated Action Plans will be
investigated and developed subsequent to the development of Action Plans for
the short-term initiatives. Based on these more detailed requirements, the DEAT
will develop a business plan to secure the required human and financial
resources, as well as develop an overall strategic plan to secure government and
civil society commitment to the implementation of these initiatives. Medium-term
priority initiatives (up to 2006) and long-term priority initiatives (up to 2010) will be
implemented as and when the resources have been acquired.
Government, in partnership with civil society, will on a regular basis review the
progress with the implementation of the short-term priority initiatives.
Implementation and scheduling of the medium and long-term initiatives will be
reviewed at the same time. Some of the short-term priority initiatives (Section
9.4) which start in mid 1999 also have a medium to long-term dimension and will
be executed in parallel with the medium to long-term initiatives.
5. THE WAY FORWARD
A strategy implementation process will be initiated which will address the urgent
administrative and other related issues set out below:
• Action Plans, which may include proposals for conducting pilot projects, will be
developed as part of the implementation of the NWMS. Action Plans for short-
term priority initiatives will be compiled by September 1999 and Action Plans for
the medium to long-term priority initiatives thereafter.
• Capacity will be developed within the DEAT, and other national departments,
provincial departments and local government departments dealing with the
environment, to undertake the functions associated with the integrated waste
management, and encourage relevant capacity building in civil society. Integrated
waste management issues will be co-ordinated through the National
Environmental Advisory Forum (NEAF) in terms of the National Environmental
Management Act (Act 107 of 1998). Ongoing structured consultations and
negotiations with provincial environmental and other national government
departments will be conducted to resolve the future division of waste management

roles, functions and responsibilities. The process and functions of integrated waste
management will be introduced to all spheres of government, with particular
attention being given to functions related to:
o Co-ordination of authorisations
o General and hazardous waste management
o A uniform approach to international conventions
o A uniform approach to standard setting, and
o A uniform approach to compliance monitoring.
• The objectives of Agenda 21 with regard to integrated waste management issues
will be promoted and effected.
• A programme of pilot projects for the practical implementation of integrated
waste management will be launched.
• Funding mechanisms for the sustained implementation of the NWMS will be
investigated and developed.
• Periodic review of this first generation National Waste Management Strategy will
be conducted at appropriate time intervals.
National Waste Management
Strategy for South Africa
PART 2
6. Introduction
Based on the Key Issues identified in the Situation Baseline Phase of the Project,
detailed investigations were undertaken to develop waste management priority
initiatives, according to the selection criteria detailed in Chapter 1 Part 1 of the
NWMS (Version ‘c’). The approach taken was to investigate seven elements of
integrated waste management with a view to developing priority initiatives to
meet the objectives of the NWMS, as well as to investigate their associated

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