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The
National Solid Waste Management Strategy for Swaziland
Volume 1 28 March 2003 (DANIDA) The National Solid Waste Management Strategy presented in this document was compiled by the Ministry of Tourism, Environment and Communication in consultation with a wide range of stakeholders, including government at all levels, business and industry, as well as non-governmental organisations. Financial support for the project was provided by the Danish Co-operation for Environment and Development (DANCED) (now DANIDA). The preparation of the project was initiated in April 2000, led by the Swaziland Environmental Authority (SEA). The SEA, in collaboration with a team of consultants, undertook a substantial Status Quo and Needs Analysis investigation. Based on this investigation, specific problems and related needs regarding waste management in Swaziland were identified. A set of possible options (solutions) were then developed and workshopped with all the relevant stakeholders. The strategy was subsequently based on the solutions selected by the various stakeholders as the most suitable options for Swaziland. The National Solid Waste Management Strategy for Swaziland represents a long-term plan (up to 2010 for addressing key issues, needs and problems experienced with waste management in Swaziland. The strategy attempts to give effect to the National Environmental Policy National Environmental Management Act of 2002 and the Waste Regulations 2000. The focus of the strategy is to move towards a holistic approach in waste management, in line with internationally accepted principles but taking into account the specific context of Swaziland with regard to the institutional and legal framework, as well as land tenure and resource constraints. Integrated waste management thus represents a move away from waste management through impact management and remediation to a proactive management system that focuses on waste prevention and minimisation. The strategic approach applied for the development of the strategy is based on the international waste hierarchy approach, which includes Waste Prevention, Recycling, Collection and Transport, Treatment and Disposal. The waste management hierarchy puts the focus on waste prevention (preventing the generation and minimising the waste that is being generated) as a first priority. Thereafter would follow reuse and recycling of waste (utilising waste as a resource) and only after that treatment and disposal of the remaining waste. Currently the focus of waste management in most developing countries (including Swaziland) is still on collection and disposal of waste. Apart from the waste hierarchy, two other aspects also form an integral part of the strategy. These include Waste Management Planning backed up by a Waste Information System. Both of these led to the development of important management tools e.g. long-term plans and an up to date database that is necessary for long term planning. Critical aspects that were taken into account during the strategy formulation process are the existing institutional and legal framework with regard to waste management. The National Environment Policy, the National Environment Act 2002 and the Waste Regulations 2000 have been used as a legal framework. A concerted effort was also made to allocate responsibilities for managing waste in the strategy within the existing responsibility framework of government. Key to the success of the implementation of the waste management strategy would be whether government and other stakeholders could actually provide the necessary resources needed for implementation. The waste strategy has been divided into two sections (Volume I and Volume II). The first volume deals with the broad strategic approach and institutional framework without going into practical detail. The second volume describes the various initiatives that are proposed to implement the strategy (Chapter A 2). A more detailed description of the proposed institutional framework is also provided (Chapter A1). The rationale and justification behind proposing a National Solid Waste Management Strategy for Swaziland are many. The Kingdom of Swaziland needs an integrated waste management strategy to address the identified needs and problems in both urban and rural areas. A clean environment means reduced public health problems, as well as reduced ground and water pollution. A word of thanks and appreciation is conveyed to the SEA as the counterpart for this project, for their hard work and commitment, as well as to every ministry, institution and stakeholder that participated and contributed to the successful completion of the project. ABBREVIATIONS
TABLE OF CONTENTS Volume I
Volume II - Annex 1
Volume II - Annex 2
Volume II - Annex 3
Volume II - Annex 4
Note: Volume II is not included on this site. 1.1 Definition and scope of the strategy This National Solid Waste Management Strategy (NSWMS) for Swaziland sets out the following vision for the Kingdom: " to develop, implement and maintain an integrated waste management system that will reduce the adverse impact of all forms of solid waste, so that social and economic development in Swaziland, the health of it’s people and the quality of it’s environment and it’s resources benefit." The strategy serves two purposes:
The development of the NSWMS was preceded by various other processes, including: - the National Development Strategy (NDS-September 1997), the Swaziland Environmental Action Plan (SEAP- August 1997), a Draft Environmental Bill (now the Environmental Management Act recently (2002) approved by Parliament) and the Swaziland Waste Regulations 2000 (April 2000). The need for a NSWMS for Swaziland was already identified as a priority area in the SEAP. Based on this identified need, a project was launched by the SEA in close co-operation with the Danish Co-operation for Environment and Development (DANCED) who provided the funding for the project. The project was established to assist the SEA with the development and implementation of a NSWMS. The NSWMS is a strategy subsidiary to the National Environmental Policy and Environmental Management Act and serves as an enabling mechanism for the implementation and enforcement of the Waste Regulations 2000. The strategy therefore subscribes to the vision, principles, goals and regulatory approaches as set out in the above documents. The strategy applies to all government institutions, society at large and to all activities that impact on waste management. The fundamental approach to this strategy is to prevent and minimise waste and to control and remediate impacts. Through the strategy, the management of waste will be undertaken in a holistic, planned and integrated way and will extend over the entire waste cycle, including generation, prevention, recycling, collection, transportation, treatment and disposal. 1.2 Reader’s guide
Volume I of the document includes an overall summary of all the aspects of the strategy and is divided into six chapters. Chapter 2 provides the background to the project. Chapter 3 provides a summary of the technical aspects of the strategy, which is based on the Waste Hierarchy approach. Each of the components of the hierarchy is discussed and priority initiatives for each component are identified. A short overview of the enabling mechanisms related to each hierarchy component is also provided. Chapter 4 addresses the Institutional Framework, which includes all the key roleplayers, required for the successful implementation of the Strategy. Chapter 5 covers the enabling mechanisms related to the key roleplayers. A summary of the cost estimate for the implementation of the Strategy is presented in Chapter 6. Volume II of the document is divided into four annexes. Annex 1 presents a detailed description of the Institutional Framework (related to Volume I, Chapter 4) for all the key roleplayers in the Strategy. It also presents a detailed outline of the Capacity Development interventions that are required for these institutions to operate effectively. Annex 2 covers all the strategic aspects related to the waste hierarchy (related to Volume I, Chapter 3) and includes the priority initiatives required for each component, as well as a detailed description of the various initiatives. An Implementation Plan indicating the timeframes and costing for each activity is provided in this annex. Annex 3 provides the Definition of Terms and Annex 4 provides a Waste Categorisation System. 2. FORMULATION OF A NATIONAL SOLID WASTE STRATEGY 2.1 Why a National Solid
Waste Management Strategy
With the increasing pressure of population growth coupled with the investments being made into economic infrastructure in peri-urban and rural areas located on Swazi Nation Land, there is an urgent need to identify appropriate means to improve waste management in these areas. This is relevant for household waste, waste from commercial nodes, as well as health care risk waste from health care facilities. This is perhaps less a technical exercise, since a range of technological approaches are already in existence world-wide; but perhaps more an institutional exercise by looking into and agreeing on suitable institutional and also financial arrangements. Although waste management services are in place in some areas, such as the declared urban areas, there is a growing problem of litter and illegal dumping of household and demolition waste and waste collection coverage rarely exceeds 50-60%. The lack of equipment is acknowledged as one reason for this, but there are also other reasons that are linked to limited management, little innovation in terms of approaches, and the lack of general public awareness concerning waste and littering. Some urban local government institutions do not operate any waste collection systems and in most local authorities it would be unrealistic to impose 100% cost-recovery rates on the waste generators, whether they are citizens, commercial or industrial enterprises. It should be noted that hazardous components of household waste, such as lead acid batteries, fluorescent tubes, car oil and tyres, are currently not addressed. Some enterprises producing commercial and industrial waste have been established in areas where appropriate waste management infrastructure has not been provided. Commercial and industrial waste may be hazardous but there are few, if any, specially designated facilities for the treatment and disposal of hazardous waste substances in Swaziland. Part of this problem could be addressed by exporting waste to neighbouring countries where appropriate facilities are available. However, this will not be a feasible option until Swaziland has ratified the Basel Convention. The exportation of waste however, should not be pursued without looking into the scope for adoption of cleaner production and waste minimisation approaches within commerce and industry. A pro-active approach by these sectors is required. . Recycling is an issue closely linked to all waste streams and sectors. There are currently only limited recycling activities ongoing in Swaziland that are operated mostly by the private sector and linked to paper, cans, glass and more recently plastic. There is however considerable scope to extend these activities although pro-active legislation and incentives need to be put in place to further promote recycling. Health Care Risk Waste from hospitals, health care facilities and clinics is an area of particular concern. Currently, most health facilities have no separation of waste at source resulting in the mixing of health care risk waste, such as scalpels and remains of items used for medical treatment, with general waste items such as paper. The current handling methods increase the risk of staff members involved in waste management contracting infectious diseases, including HIV/AIDS. The NSWMS has been developed to address the identified waste issues. The table below shows the current and anticipated waste management situation after implementation of the strategy.
The rationale and justification behind proposing a National Solid Waste Management Strategy are many and varied. A Solid Waste Management Strategy is required that addresses the problems highlighted in the table above and that covers the country as a whole. A clean environment will impact positively on public health and result in a reduction of health problems. Through improved waste management, water pollution will also be reduced, which will contribute to economic growth. 2.1.2 Current Legislative
Scenario
The Waste Regulations 2000 came into force during April 2000 and provide the regulatory framework for future waste management in the country. Waste Regulations 2000 also specify the duties and responsibilities of the SEA, waste generators and waste service providers. The Regulations introduce new regulatory instruments, such as waste management licensing and waste management planning to enforce the following principles:
2.1.3 Current Institutional Scenario To date, the responsibility
for waste management is fragmented and each individual line ministries
is responsible for those waste generators that are within their legal jurisdiction.
Swaziland Environment Authority (SEA) within the Ministry of Tourism, Environment and Communications (MTEC) The main function of SEA´s is that of conceptual lead agency for waste management. This includes, enforcement of the regulations issued by the Authority, co-ordination of the activities of the other ministries with waste management functions, development of waste management policies and strategies, and setting of standards. The Authority is also responsible for waste management of those institutions and economic agents that are not covered by the above, such as. hotels. In general, the SEA is the
lead agent for development of environmental policies, strategies, setting
up environmental regulations, including Environmental Impact Assessment
Projects (EIA’s) and ensuring enforcement of the duties of the monitoring
responsible parties.
The institutional and the legal framework for duties and responsibilities of the SEA are fully defined in the Environment Management Act, 2002, the Environmental Impact Assessment Regulations, and the Waste Regulations 2000. The organisational and financial implications of transforming SEA into a parastatal are currently not known. The SEA is establishing itself as a Coordinating body in order to meet the future challenge of Coordinating all environmental issues within the government. This will require a streamlined organisation, where every staff member has clearly defined duties and responsibilities. The Ministry of Housing and Urban Development (MHUD). Local Authorities and Company Towns. The Ministry of Housing and Urban Development is responsible for the monitoring and control of household and commercial waste management, undertaken by the urban local government bodies, such as City Councils, Town Councils and Town Boards. Their responsibilities are outlined in the Urban Management Act of 1969 and the Environment Management Act 2002. There is no specific section or department within the MHUD that has responsibility over environmental management issues. However, the associated functional responsibilities are commonly understood to be vested with the Health Inspectors. Monitoring and support to local authorities on environmental management issues or policies is limited. A local authority means a City Council, a Town Council or a Town Board "declared" under the Urban Government Act of 1969 (currently under revision). The obligations of local authorities with regard to waste management are defined in the Environment Management Act 2002 and the Waste Regulations 2000. These obligations have however, not been sufficiently communicated to the local authorities, in particular the Town Councils and the Town Boards. The current financial constraints experienced by many local authorities make it difficult for them to prioritise waste management services over and above a minimum of waste collection services. The Building and Housing Act also makes provision for MHUD to declare an area a "Controlled Area" even when it is located in Swazi Nation Land. This provision only requires a "Structural Plan" to be put in place, but the declaration could be dovetailed with the provision made for the declaration of "Waste Control Areas", described in Waste Regulations 2000 and the Environment Management Act 2002. Company Towns are urbanised areas that are not under the jurisdiction of the Ministry of Housing and Urban Development. These towns have been established through economic development such as. the sugar industry and forestry. Industrial, commercial, residential and medical facilities have been established within the Company Towns. . Currently, Company Towns are not under the jurisdiction (physical planning and/or waste management planning) of any ministry. Waste management services are independent of the government. The Ministry of Health and Social Welfare (MHSW) The MHSW is responsible for
all issues relating to public health and specifically for the monitoring
and control of the Waste Regulations,2000 with respect to Health Care waste
generated from hospitals, health centres, clinics and medical retailers.
Furthermore, the Ministry is responsible for regulating, enforcing and
monitoring health standards, including solid waste management issues, related
to food supplies intended for human consumption.
The Office of the Deputy Prime Minister (DPMO) The DPMO is legally responsible
for Tinkhundlas, Regional Administrations and Community Development. Consequently,
the Ministry is considered to be responsible for the monitoring and control
of the Waste Regulations 2002 with respect to domestic waste generated
in the rural and peri-urban areas, although. these responsibilities have
no legal basis.
The Ministry of Enterprise and Employment (MEE) The MEE is responsible for monitoring and control of the implementation of the Waste Regulations 2000 in the Industrial Estates. It is generally understood, that this responsibility includes not only the Matsapha Industrial Estate and other industrial estates, but also in the Company Towns. There is currently no dedicated unit or staff group within MEE assigned enforce waste legislation or to advise and monitor environmental management issues or policies within the industrial and commercial sector. The industrial and commercial sector is also uncertain about the duties and responsibilities of the different government institutions and requires guidance with regard to which department they should approach to assist with environmental and waste management issues. Ministry of Agriculture and Co-operatives (MOAC) The MOAC is generally perceived to be responsible for the monitoring and control of wastes generated as a result of agricultural practices and their control and compliance with the Waste Regulations 2000. This responsibility is however not explicitly defined in the regulations. The responsibility is mainly confined to the disposal of used agrochemical containers. The monitoring and enforcement of wastes generated from the processing of agricultural products, is the responsibility of the other ministries as discussed above. MOAC officers at national government and local government level, do not have specific responsibilities and mandates to enforce improved agricultural waste management. This has resulted in limited improvements in the management of agricultural wastes. Ministry of Natural Resources and Energy (MNRE) The MNRE is responsible for authorisations under the Mining Act. This responsibility includes: - Mineral Exploration, Industrial Minerals, Mapping, Fossil Fuels, Groundwater Resources, Drilling and the Laboratory. MNRE is generally considered to be responsible for waste generated as a result of mining practices. Mining waste is however, not specifically addressed within the legal mandate of the ministry. The assessment of the current institutional framework for waste management, undertaken as part of the National Solid Waste Management Strategy Project, provided useful information on the challenges that will be encountered when implementing the Strategy. There is generally a lack of clarity on legal mandates to ensure commitment from the various ministries regarding their waste management responsibilities. This ultimately leads to a lack of funding and other resources required to fulfil their responsibilities. There are also significant capacity development challenges. These include addressing the gaps in skills and knowledge and developing structural/organisational capacity, system tools (equipment, procedures, guidelines and manuals),as well as inter-ministerial co-operation, local level co-operation, and financial and other incentives. New and appropriate institutional opportunities have been identified during the assessment, which may be developed as suitable and sustainable options in Swaziland. The main outcomes of the Capacity
Assessment can be summarised as follows:
In the preparation of the Draft National Solid Waste Management Strategy, it became clear that there was a strong need to show the future direction for the implementation of practical, viable and affordable waste management systems in Swaziland. A number of pilot projects were designed and implemented in order to test various elements proposed in the NSWMS. The pilot projects covered the issues of inter-municipal co-operative arrangements, health care risk waste, commercial waste management systems in rural areas, general waste management systems in peri-urban areas, as well as recycling systems and facilities. Hence the pilot projects were used to test the proposed strategy against reality in Swaziland and the results were used to revise and finalise the strategy. Comprehensive pilot project reports were compiled and these provide the details of the lessons learnt. A summary of each pilot project is presented in the paragraphs below. The general elements tested in the pilot projects included the following:
2.1.4.1 Inter-municipal Co-operation It was proposed in the draft strategy that the number of landfills be reduced and that landfill facilities should be shared by the various local authorities where logistically possible. This would improve the quality of staff and reduce the cost of facilities and equipment required. The purpose of this pilot project was therefore to assess the feasibility and mechanisms by which local authorities could co-operate on waste management by sharing facilities and costs. The project included an assessment and establishment of a possible structure for inter-municipal co-operation in relation to waste management in the Mbabane-Matsapha-Manzini Region, as well as exploring and assessing the technical and financial feasibility of viable regional approaches towards minimisation, collection, transport, recycling, treatment and disposal of waste. Furthermore, it included the drafting of an appropriate co-operative agreement for an inter-municipal co-operative system for waste management, as well as a Draft Business Plan/Implementation Plan for operation of a co-operative structure/body. The key lessons learnt include: Institutional Lessons
The objective of this pilot project was to plan, develop and implement a technically and financially feasible Health Care Risk Waste Management System in Mbabane Hospital, which is appropriate for developing countries and taking cognisance of the geographical, institutional and financial context of Swaziland. The project included: - the clarification of institutional arrangements for facilities in urban and rural areas, the facilitation and evaluation of institutional co-operation between the different levels of government and health care institutions, and testing of various technical, organisational and capacity development aspects. The system implemented covered all aspects of waste management, from cradle to grave, including appropriate treatment of Health Care Risk Waste (HCRW). Institutional Lessons
The objective of the two pilot projects, which were carried out in Kwaluseni and Siphofaneni, was to plan, develop and implement a technically and financially feasible Waste Management System in the areas. The system addresses the waste management needs and complies with the Waste Regulations 2000, as well as the draft National Solid Waste Management Strategy. The pilot projects developed, tested and evaluated a Waste Management Plan, an operational waste management system for waste collection and disposal, the establishment of an appropriate structure, organisation and staff to manage the system, a cost-recovery system/financing schedule and plan based on the polluter pays principle that will ensure the operation and maintenance of the waste management system, and implementation of a project related community awareness campaign. Lessons learnt include: Institutional Lessons
The objective of the pilot project was to establish, maintain and evaluate a recycling system in Mbabane. The waste included all post consumer packaging and commercial waste streams, as well as waste paper from government offices. The project included: - an awareness campaign, assessments of markets and facilities, areas of coverage, roles of government and local authorities, licensing and establishment of the buy-back centre, facilitate and support collection and recycling of recyclable waste from government offices, commercial centres and other sources. The lessons learnt that are of strategic importance includes: Institutional Lessons
The project to develop a National Solid Waste Management Strategy was initiated on 1 April 2000. Financial support was provided by DANCED (now DANIDA) and the technical support provided by the Danish consulting company RAMBØLL (www.ramboll.dk). The development of the strategy was carried out in close co-operation with the Government of Swaziland and was anchored in Swaziland Environment Authority. The project implementation
was divided into four phases, namely. the Inception Phase (April 2000 -
June 2000) , the Design Phase (June 2000 - May 2001), the Pilot Project
Phase (February 2001 - June 2002) and the Fine-tuning Phase (July2002 -
September 2002).
The development of a National Solid Waste Management Strategy is a dynamic process. The Strategy is therefore a living document and will need revision at least every four years. The strategy represents a solid background for future initiatives concerning waste management in Swaziland. 2.2.1 The Waste Hierarchy The waste hierarchy, illustrated below, has been used as the core around which the strategy and the priority initiatives are presented. The strategic approach applied for the development of the strategy is based on the internationally recognised waste hierarchy, which includes Waste Prevention, Recycling, Collection and Transport, Treatment and Disposal. Even though the waste management fraternity in both developed and developing countries know the components of the waste hierarchy , its use in developing the Strategy ensured that the focus is on waste prevention (preventing the generation and minimising the waste that is being generated) as a first priority. Thereafter, would follow reuse and recycling of waste (utilising waste as a resource) and finally treatment and disposal of the remaining waste. It also ensures a holistic and integrated approach as all links in the waste management cycle are considered and incorporated. The waste hierarchy is core to the concepts of cradle to grave (from generation to disposal) and Sustainable Development in waste management. The waste hierarchy approach has resulted in reductions in the amount of waste disposed of at landfill sites and the reduced utilisation of primary resources, such as wood (trees). It has also resulted in an increase in the utilisation of waste as a resource, for example for raw materials, and heat and electricity, in countries where this approach has been adopted. Companies have also adapted their manufacturing processes and substituted their raw materials to prevent hazardous waste being generated and, in some cases, to improved quality of the final product. Currently, the focus of waste management in most developing countries (including Swaziland) is however still on collection and disposal of waste (impact management and remediation). WASTE HIERARCHY
* Standard terminology for the Waste Hierarchy The waste hierarchy is a hierarchical structure, where the highest priority must be given to the prevention/minimisation of waste. If the prevention/minimisation option is neither practical nor technically or socio-economically feasible, then other solutions have to be considered, for example the re-use or recovery of the waste. If re-use or recycling are not feasible, different treatment alternatives must be considered. Through the application of this hierarchical approach and the process of elimination, the best practical environmental and locally feasible solution with the least negative impact on the environment for any particular waste stream will be selected. 2.2.2 The Waste Management Tools For any waste management system to work, three critical strategic management tools must be implemented. The Waste Management Planning System is a management tool by which national and local authorities can identify, plan and co-ordinate investments into waste management. The Waste Information System (WIS) is an information system, whereby information on general and hazardous waste is captured. The Registration System for Special Wastes (RSSW) is also an information system, but dedicated to the registration, transport and monitoring of hazardous waste. All of these tools have been included in the formulation of the strategy and initiatives. Central to the WIS and the RSSW, is the Waste Categorisation System. The Waste Categorisation system is used to define and categorise different waste types to enable officials to manage the waste effectively. The system is based on two divisions, namely Source of Waste and Impact on the Environment. Source of Waste:
Commercial Waste sources -from premises used wholly or mainly for the purposes of a trade or business or for the purposes of sport, recreation or entertainment. Household waste; industrial waste; waste from any mine or quarry, and waste from premises used for agriculture are excluded. Industrial Waste sources -from factories or from any premises used for the purposes of, or in connection with, the provision to the public of: transport services by land, water or air; gas, water, electricity or sewerage services; or postal or telecommunications; construction and demolition rubble. Health Care Waste (formerly Clinical waste) sources -from hospitals, clinics, nursing homes, doctor's offices and consulting rooms, medical laboratories, medical research facilities, traditional healers and veterinarians. Mining Waste sources -from mines and quarries, including rock spoil, stone tailings, sand and soil. Agriculture Waste sources -from
premises used for agriculture, the processing of agricultural produce,
the storage of agricultural chemicals, including remedies, pesticides and
fertilisers.
Impact on the Environment:
hazardous waste - any waste which is listed in Part I of Schedule Three and to which a six digit waste code has been assigned in that Schedule, and which displays any of the properties specified in Part II of Schedule Three; or which displays any of the following hazardous properties as defined therein: highly flammable (only liquid substances and preparations having a flash point below 21°C, irritant, harmful, toxic, carcinogenic or Corrosive. Hazardous wastes are found in all the sources of waste, i.e. household, commercial, industrial, agriculture, mining and waste treatment facilities; health care risk waste - waste produced by hospitals, health care facilities, nursing homes, doctor's offices and consulting rooms, medical laboratories, medical research facilities and veterinarians which is infectious or potentially infectious, and without limitation, includes: microbial wastes such as cultures and stocks of infectious wastes; human blood and blood products; pathological wastes of human origin such as tissues, organs and body parts; contaminated animal wastes including animal carcasses, body parts and bedding which have been exposed to infectious agents; being infected with a disease; and contaminated and uncontaminated sharps including hypodermic needles, scalpels and broken glassware; time expired antibiotics, drugs, and other medical or veterinary remedies, as well as radioisotopes used in chemotherapy and radiography. An overview of the structure
of the Waste Categorisation System is presented in Volume II
2.2.3 Matching Objectives and Resources A strategy must contain a goal, or set of objectives, and the requisite resources to achieve those objectives. Furthermore, a strategy would comprise capacitating aspects, by which the resources are transformed to achieve the intended objectives. Four of the most basic capacitating aspects have been illustrated in the figures presented below. These figures provide six elements (Objectives, Resources, Institutional Framework and Structure, System Tools, Skills and Awareness and Incentives) by which the strategy formulation process can be described and discussed, particularly from an institutional perspective. Matching objectives and
resources
Transforming the resources
to objectives by organised and motivated people
The Institutional Framework and Structures is the network of relevant roleplayers (e.g. SEA, MHUD, MHSW and the Local authorities), and the nature and frequency of their interactions (e.g. co-operative government agreements and committees). The Incentives Structure is the different mechanisms by which people are motivated (material and otherwise) to act, individually and collectively. Skillfully applying technologies Two other "capacitating" aspects of human effort are the system tools applied to reach the objectives and the skills required to handle those tools. System tools are not only the hardware assets and instruments, such as disposal sites, trucks and incineration facilities, but also include the software tools, such as legal instruments, guidelines, manuals, procedures, formats It is important to note that these elements are interactive. This interdependency can be highlighted by considering some of the elements in pairs: 1. Resources have to match the objectives, or else the latter have to be adjusted to match the former. 2. There is no point in contemplating the best division of work, if there is no motivation to work. Conversely there is no reason to work, if the labour is not organised appropriately. 3. If skills are not available, or acquirable, to handle the tools, the tools have to be adjusted to fit the available skills. The approach outlined above enables an assessment to be made of the current institutional framework for waste management and allows for a modification of the level of ambition of the strategy in order to ensure that it will be accessible and implementable. 2.2.4 Priority Initiatives and Capacity Development Planning A number of technical priority initiatives have been developed within the Strategy (See Chapter 3, Volume I and Chapter A2, Volume II). These initiatives are directly linked to the various management systems and waste hierarchy components of the strategy. The priority initiatives have been categorised as short-term initiatives (up to four years after official approval by Cabinet of the NSWMS) and long-term initiatives (from five to ten years after Cabinet approval). This prioritisation has been undertaken to assist in the implementation of the strategy. A detailed description of the initiatives is given in Volume II, Annex 2, including the time schedules, cost estimate and enabling mechanisms. A first draft Capacity Development
Plan, which is linked to both the priority initiatives for each waste management
tool, and the waste hierarchy, has also been compiled. The Plan addresses
capacity development in all the relevant sectors, including the different
ministries, local authorities, civil society and the private sector. This
Plan is described in Chapter 4 of Volume I and in Volume II Annex 1.
The Government of Swaziland has expressed a desire for the development of a National Solid Waste Management Strategy that has a clear "VISION", but which at the same time is immediately accessible for implementation by taking a "PRACTICAL" and realistic approach. A process-oriented approach was followed to develop the National Solid Waste Managements Strategy for Swaziland, which was structured in such a way that it made provision for active and continuous participation of all the various stakeholders in Swaziland. These stakeholders represented a wide range of constituencies including commerce and industry, government, NGO’s, civil society, education etc. It was a deliberate attempt to ensure that the strategy is developed within a Swaziland context eg. land tenure, institutional and resource base. The process also made provision for structured interaction with the various stakeholders through internal management scrutiny, forums, meetings and workshops. This was done mainly through following a Logical framework Analysis (LFA) Approach. The development of the strategy is seen as a dynamic process that will continue after the completion of the project. The Strategy is therefore also seen as a living document and will need revision at least every four years. The strategy only represents a framework for waste management in Swaziland within which specific action plans could be developed. This would ensure a holistic approach towards waste management from all sectors in the country. A sustainable waste management strategy is one that recognises amongst other factors, the following as necessary elements for a starting point:
Strategy objectives have been
formulated at two levels. The overall objective for the National Solid
Waste Management Strategy is:
Secondly, specific objectives have been developed for the proposed interventions. A summary of the strategic intervention approach and related objectives is illustrated in the figure underneath. The Strategy has been developed as "Interventions" towards the "Waste Hierarchy", (prevention, recycling, collection and transport, treatment and disposal) in order to address solid waste management issues in the two main "Waste Streams", namely" general waste" and "special waste" (as defined in the WR2000). However, in order to ensure sound financial, socio-economic and technical management within the hierarchy and the two waste streams, it was considered necessary to also develop a strategy towards the institutionalisation of three key management tools i.e.. "Waste Management Planning", "Waste Information System (WIS)" and a "Registration System for Special Waste (RSSW)". The three tools are interlinked, and will be developed simultaneously, where possible. Within the proposed short-term horizon (2003-2006), the three management tools will gradually become central to integrated waste management in Swaziland. For each of these interventions,
a strategy and short-term (from strategy approval – four years after Cabinet
approval) and long-term (five to ten years after approval) initiatives
were formulated. These timeframes were selected by taking into account
existing enabling mechanisms, such as capacity and structure at all levels
of government; legislation; guidelines and appropriate standards development,
as well as political and financial constraints. After categorisation of
the initiatives within time frames, a series of criteria were developed
during the stakeholder workshops for the final prioritisation of initiatives
in the NSWMS. This resulted in a series of tables that facilitated the
selection of the priority initiatives that would realistically provide
the most support for each strategic element (see Identify Preferred Solutions
Document Output Number 12). Priority initiatives were identified and evaluated
at the workshops using the criteria shown in the table below:
An assessment of the capacity within the different institutions currently managing waste, indicated gaps and barriers that must be overcome in order to implement the NSWMS. This Strategy includes a number of priority initiatives - those for short-term implementation and those for the long-term implementation. The priority initiatives are described in detail in Volume II Annex 2. The next step in the implementation of the priority initiatives will involve detailed planning through the development of Action Plans. The "implementing and enabling mechanisms" required to realise the strategy are many and varied. They include: - the preparation of legislative instruments and guidelines, development of monitoring and enforcement systems and procedures, training, information and awareness programme design and implementation, review of institutional portfolios and responsibilities, a range of multi-facetted feasibility studies to provide a sound basis for investments into waste management related infrastructure and equipment. The mechanisms are outlined below, but are described in more detail in Volume II, Annex 2, for each overall initiative. It is also important to identify the "underlying assumptions" related to the technical, financial, socio-economic and political proposals made and particularly the "killer assumptions". A review of the Strategy revealed a number of important assumptions that need to be tabled at a high level. In particular, it is necessary to highlight three identified killer assumptions, namely: (a) the implied increase in staff complements at SEA and MHUD, (b) the assumption that Swaziland will ratify the Basel Convention and (c) that the requisite financial, institutional and other resources are identified for the extension of waste management services into Swazi Nation Land. A further elaboration of the enabling and sustaining elements of the Strategy has been provided in Chapter 6. 3.1 The Waste Information System Strategy The section describes the Waste Information System (WIS) and the Registration System for Special Waste (RSSW), which is a subset of the WIS. The WIS is the future information database for Swaziland and the RSSW is the international registration system for special waste, which specifically aims at meeting the Basel Convention registration requirements. Strategy Intervention Objective(s) "To develop and institutionalise a Waste Information System (WIS) at local and national level for all types of waste, which will constitute a main data source for the preparation of detailed local and national waste management plans" "To develop and institutionalise a Registration System for Special Waste (RSSW), which will by 2007 provide for effective control of hazardous and health care risk waste from generation to final disposal in order to ensure safe management of special waste and to meet the requirements of the Basel Convention." Strategy Intervention Approach Overview of the Waste Information
System (general waste)
On the basis of the incoming reports, the SEA will be able to issue annual reports on waste and carry out projections for waste generation. The line ministries will use the data to compile national integrated waste management plans. The waste regulation authorities will use the data in the preparation of local waste management plans. Diagram 1: Waste Information System (General Waste) Overview of Registration System for Special Waste (RSSW) SEA established the legal basis for the RSSW during 2000. The registration system will consist of a central database containing information pertaining to special waste flows in Swaziland, as well as information on the import and export of the waste. All generators (with the exception of small generators), waste collectors, transporters and treatment and disposal facilities of special waste will be required to register before the end of 2002 and submit data and information annually to the SEA. An outline of the RSSW registration system is illustrated in Diagram 2. The RSSW is expected to be fully operational by 2007. A consignment note must be used to track each load of special waste from generator to the final disposal facility. The possibility of specifying specific routes for transport of special waste requires investigation. Emergency response programmes will also be implemented by the SEA. The system will be continuously revised and adjusted. The generator, transporter and disposer of special waste has the Duty of Care to ensure that waste is managed correctly and is only handled, transported, stored, treated and disposed of by registered or permitted companies or facilities. The cradle to grave principle will apply and will be enforced in all aspects of special waste management. Product stewardship will be promoted within industry through the implementation of awareness programmes. The SEA will compile a statistical
report on special waste statistics on an annual basis, which will also
include storage and the import and export of special waste, and will make
this available for relevant stakeholders. The status report will be submitted
to the local authorities for local waste management planning purposes.
This report will also be the point of departure for the development of
the Integrated National Hazardous Waste Management Plans by the SEA and
National Health Care Risk Waste Management Plans by the MHSW.
Diagram 2: Registration System for Special Waste (RSSW) Priority initiatives Waste Information System
and Registration System for Special Waste
Priority Initiatives completed:
Proposed Capacitating Interventions The following proposals outline the overall capacitating interventions required for the implementation of the WIS and RSSW in Swaziland. The specific capacitating interventions
that relate to the institutional framework are discussed in Volume I Chapter
4 and described in more detail in Volume II Annex 2.
Structure, Staff and Interrelations
Strategy Intervention Objective(s) "To develop and institutionalise a waste management planning system which covers all sources and types of waste from generation to final disposal and which would be fully operational 10 years after approval by Cabinet when based on reliable waste information provided through the Waste Information System and the Registration System for Special Waste". Strategy Intervention Approach The strategy is to instill a waste management planning system that will be operational at both the national and local government levels. The local waste management planning framework for urban, peri-urban and rural areas is as follows: Local waste management plans will be developed for urban local authorities i.e.. City Councils, Town Councils and Town Boards. Waste management plans will also be developed for Waste Control Areas that may include company towns; peri-urban areas and rural areas and commercial nodal points in rural areas. Individual mines can also be declared as waste control areas in order to secure proper waste management planning for these sites. Included in the Strategy, is the implementation of enabling mechanisms that will ensure planning support for Urban Local Authorities and Waste Control Areas that currently do not have the necessary institutional capacity. The NSWM Strategy also recommends that full advantage be taken of the provision made in the Waste Regulations 2000, to declare certain areas as Waste Control Areas. In the short-term the waste management plans will be based on existing data. In the longer-term, the plans can increasingly be improved and justified by waste data captured through the Waste Information System. Local waste management plans
will be prepared every four years. They will contain detailed plans that
cover a 4 year period and also a 12 year long-term plan. The plans will
be based on the Waste Hierarchy and are for the Strategy period only envisaged
to cover general waste, including the hazardous household waste fraction.
The local waste management plans will, as a minimum, cover the following:
- Short-term and long-term planning for general waste generated from all
sources, such as households, commerce, trade, industry, agriculture, mining,
healthcare facilities and littering; Plans for public awareness campaigns;
waste approach/technology investments; and proposed local legislation,
for example by-laws. Local waste management plans will require stakeholder
participation and consultative processes, and approaches to ensure this
need to be developed.
Local waste management plans will be submitted to MHUD for integration with other local authorities and forwarded to the SEA for approval. The national waste management planning framework is as follows:
A phased approach will be used for the implementation of the waste management planning system, starting with the development of Local Waste Management Plans and progressing to the development of National Waste Management Plans. Local plans will be monitored regularly by the respective line ministry. Each line ministry will prepare Environmental Management Plans that contain waste management plans. The SEA tool for monitoring is the approval of these plans. The priority initiatives formulated for the waste planning strategy are outlined below and described in detail in Volume II Annex 2. Priority Initiatives Integrated Solid Waste Management
Planning
Proposed Capacitating Interventions The following proposals outline the overall capacitating interventions required for the implementation of waste management planning in Swaziland. The specific capacitating interventions
that relate to the institutional framework are discussed in Volume I Chapter
4 and described in more detail in Volume II Annex 2.
Structure, Staff and Interrelations Adequate time allocated to staff at all local and national planning agencies for planning purposes. Support system provided by SEA and line ministries must be formalised and resources secured. Waste management planning responsibilities must be designated to staff and organisational entities. Finances must be secured for the planning process. Establishment and/or identification
of an existing appropriate Waste Planning Forum at intra and inter-institutional
level that makes provision for stakeholder involvement.
Decision taken regarding to
what extent consultants will be used.
SEA must take a major enabling responsibility towards all national agencies, which must in turn assume a similar responsibility towards their respective constituencies. Public: Private partnerships could be established both in relation to the use of consultants and the involvement of the private sector in the planning process. System tools (Equipment, Guidelines and Manuals)
As the term "Waste Minimisation"
is a non-specific and broad Southern African terminology, the definition,
understanding and breakdown of the term is included below.
3.3.1 The Waste Prevention Strategy Strategy Intervention Objective(s) "To identify and make available technological options and supporting incentives that will minimise the generation of waste". In accordance with the waste hierarchy, waste prevention should be the key focus area of the Strategy. However, due to the current status of waste management, major investments in waste collection, treatment and disposal are needed in order to achieve a satisfactory coverage and implement proper procedures. Notwithstanding the importance of waste prevention, waste minimisation is the focus of this component of the waste hierarchy for the duration of this Strategy. Strategy Intervention Approach A Waste Minimisation Centre (WMC) will be established within the first two years of Strategy implementation in order to ensure a structured accumulation and dissemination of knowledge and experience about waste prevention/minimisation. The SEA, MEE, as well as industrial, commercial and SME representative bodies, will all play a major role by proactively providing information packages and presentations on waste prevention to industry. In the long-term, the WMC should, be responsible for the establishment and implementation of cleaner production clubs or forums to support the dissemination of knowledge on prevention and minimisation of waste, primarily in the industrial sector. Simultaneously, larger industries will be sensitised and motivated to appoint environmental officers who will be responsible for promoting sustainable environmental management at each industry. It is the intention to promote "good housekeeping" with regard to water and energy consumption, processes to reduce raw materials, as well as waste minimisation and prevention. Industry should be required
to practice 'product stewardship' and recover certain wastes (producer
responsibility) for waste recycling. Commerce should similarly be sensitised
and encouraged to re-use transport packaging and reduce the packaging of
consumer goods. Importation of non-recyclable items and goods of inferior
quality will be controlled. A public awareness programme will be launched
in this regard to prevent Swaziland from becoming a dumping ground for
other countries’ wastes. Control measures will be developed by the SEA,
in collaboration with MEE, to ensure conformance to Swaziland requirements.
The priority initiatives formulated for the waste prevention/minimisation strategy are outlined below and described in detail in Volume II Annex 2. Priority initiatives Waste Prevention
Proposed Capacitating Interventions The following proposals outline the overall capacitating interventions required for the implementation of waste prevention/minimisation in Swaziland. The specific capacitating interventions
that relate to the institutional framework are discussed in Volume I Chapter
4 and described in more detail in Volume II Annex 2.
Structure, Staff and Interrelations A "home" must be established for waste prevention/waste minimisation in Swaziland. To this effect, a Waste Minimisation Centre (WMC) has been proposed. The detailed structure, staffing, location, mandate, industrial linkages and financing of the Centre need to be addressed by SEA, in conjunction with stakeholders. The feasibility of establishing
waste minimisation clubs need to be investigated.
Linkages between industry and
the WMC must be established and reinforced.
System tools (Equipment, Guidelines and Manuals)
Strategy Intervention Objective(s) "To organise and strengthen the existing recycling industry and to make provision for further recycling of both general and hazardous waste, through the implementation of awareness, information and training campaigns, support for the Waste Minimisation Centre, recycling centres, new regulatory and incentive instruments and the implementation of new specific recycling activities". Strategy Intervention Approach Recycling is the second stage of the waste hierarchy. After evaluating and strategising for different waste prevention and minimisation options, the potential for recycling must then be investigated. It is a fundamental principle that separation of materials at source must take place, as it is more difficult to recycle material once it has been mixed with those elements of the waste stream destined for treatment or ultimate disposal. This is not necessarily the situation in Swaziland today, where considerable "picking and scavenging" takes place at waste disposal sites. The NSWMS is based on the assumption that recycling must become self-sustainable in the long-term but also that both regulatory and economic instruments will be required as a means of initiating the recycling initiatives. SEA will have to assume a major responsibility with regard to this, but the private sector is also of crucial importance. Moreover, there is currently a range of existing recycling initiatives in Swaziland, and these should be considered a national resource to further develop the principle and the specific local requirement for them to succeed. It is therefore proposed that SEA convenes a "National Recycling Forum" where all recycling stakeholders meet to identify opportunities and to discuss possible incentives and regulatory instruments. In the short-term, the existing
recycling companies operating in Swaziland need encouragement to improve,
consolidate and expand their recycling operations. Swaziland has an established
paper and glass recycling industry, which are supplied by formal and informal
collectors. These industries need more raw materials and are currently
importing them. The recycling of waste paper and cardboard from Government
Offices would substantially improve recycled paper supplies in Swaziland
and SEA would be responsible for the initiation of an appropriate government
initiative. Existing organisations are active in Swaziland, and there are
opportunities for improvement in tinplate steel and aluminium can recovery.
Recently, a facility for the recycling of plastic has been established
in Matsapha.
A second step in the short-term would be to work towards the implementation of a common deposit and return system for reusable glass and plastic bottles. The timetable for the implementation of this would benefit from being co-ordinated with other SADC member countries. SEA will take the lead to implement the necessary regulatory and incentive framework to ensure recycling of hazardous and general waste from the automotive industry, e.g. used engine oil, used car batteries and scrap tyres. Before this can be effected, SEA will need to ensure that Swaziland meets with the requirements of the Basel Convention. Swaziland’s trade in recycled waste in southern Africa will then be restricted to southern African countries that comply with the Basel Convention. In the long-term, waste picking at landfill sites must be phased out through job-creation in the recycling sector, including segregation and collection of recyclable materials at source. Recycling by waste picking at waste disposal sites is unacceptable because it exposes the waste pickers to disease and other hazards whilst yielding dirty material that is difficult to process. This activity must comply to the Occupational Health and Safety Act for Swaziland. The discouragement of waste picking should start immediately. The registration of scavengers should also be investigated. Source separation of waste
must be gradually introduced as the best way of reducing waste whilst recovering
raw material for a growing recycling industry. Recycling must also increase
in the commerce and industry sector. Composting of organic waste from all
sources should be initiated to produce soil enriching media for organic
farming. The utilisation of general mining waste and the recovery of mineral
values should also be investigated.
Priority Initiatives Waste Recycling
Proposed Capacitating Interventions The following proposals outline the overall capacitating interventions required for the implementation of waste recycling in Swaziland. The specific capacitating interventions that relate to the institutional framework are discussed in Volume I Chapter 4 and described in more detail in Volume II Annex 2. The enabling mechanisms are summarised under the following main headings: Structure, Staff and Interrelations A "home" must be established
for waste recycling in Swaziland To this effect SEA will convene a "Recycling
Forum" and also provide the secretariat for the Forum.
Linkages between the WMC and regional and international sister structures are seen as an important means of obtaining information. System tools (Equipment, Guidelines and Manuals)
Strategy Intervention Objective(s) "to increase the coverage and
efficiency of collection of general waste in formal and informal urban
areas, waste control areas, peri-urban and rural areas and, where possible,
by means of income generating collection approaches and the use of transfer
stations".
Strategy Intervention Approach MHUD, and where relevant in conjunction with the DPMO, would hold the main responsibility to investigate and implement viable technical solutions related to the collection and transportation of general waste. For waste collection and transportation of general waste, the phasing in of the extension of waste collection services to areas and sectors that previously did not receive services, and the substantial reduction of littering are key elements. The Waste Regulations 2000 provide important directions regarding the collection and transportation of waste. Compliance with these regulations should be a top priority. Transfer stations, as part of the collection system, will be encouraged where feasible, standards will be developed on suitable and economical types, their locations, sizes and general operational guidelines. Inter-municipal co-operation between local authorities within reasonable distance from each other, based on sharing of costs, facilities and resources, will be co-ordinated by MHUD, in collaboration with the SEA. Different models of co-operation will be considered, depending on each individual situation. The use of the existing railway line in the country should be taken into account. Littering in pedestrian corridors in towns and cities will be reduced. The key pedestrian corridors link residential areas with either the city centre, or the industrial and or commercial areas. The reduction of litter will involve anti-litter campaigns and the provision of additional dustbins. The urban local authorities will be responsible for this. The involvement of the general public will be promoted through research and action plan development. This involvement will seek to change people’s attitudes towards littering and towards keeping their cities and towns clean. No waste collection and transportation
system for general waste has been envisaged for rural areas and sparsely
populated peri-urban areas. In these areas, the SEA, working together with
MHSW, and through Rural Health Motivators will promote the use of a pit
system for household waste. However, in more densely populated peri-urban
and rural areas, the SEA will, in conjunction with the DPMO, designate
"Waste Control Areas" to handle commercial waste. Such waste control areas
could be designated in areas around cross roads and economic nodes and
in areas of high population density. In these economic nodes, there are
large movements of people as a result of buses stopping to drop or pick-up
passengers. . In some of these areas, there are several shops, markets,
schools and health facilities. Substantial quantities of waste are generated
and there is no authority responsible for its collection and transportation.
The collection and transportation of waste in these areas will involve
the local community and its leadership. This will ensure the anchoring
of waste management responsibilities in the community and will create a
culture of public responsibility and environmental awareness at the "grass
root" level. Moreover, it will make the National Waste Management Strategy
relevant to the whole country.
MHSW will be responsible for the preparation of Codes of Practice for source separation, packaging, storage, collection and transportation of Health Care Risk Waste that will be aligned with international guidelines, such as the World Health Organisation. Health care professionals, such as doctors and nurses, should package health care waste according to the Codes of Practice. Direct contact with health care risk waste after packaging by the health care professionals should be avoided. The collection and transportation of hazardous agricultural waste (used agrochemical containers) will require SEA, in collaboration with MOAC, to develop an effective system of collecting used containers and the implementation of a deposit system for the containers. This will address the problem of the lack of incentives for large users of agricultural chemicals to adopt environmentally friendly practices in the disposal of used containers. The current method of burying them in pits in close proximity to where they were used, poses a health threat to the community. The MOAC should provide SEA with information on organic agricultural waste or residuals resulting from the processing of animal products. Such information should be processed and quantified to determine the feasibility of collecting and transporting the waste to a central location for disposal or recycling. This may result in the development of new industries and may limit the current wastage of re-usable resources. The implications for the country with regard to the POP Convention, in terms of pesticides and industrial chemicals, must be investigated. The collection and transportation of Mining Waste will be restricted to on-site activities. Collection for transportation of hazardous waste outside the boundaries of the mine will take place within the context of the registration system for special waste, developed and maintained by SEA The priority initiatives formulated for the waste collection and transportation strategy are outlined below and described in detail in Volume II Annex 2. Priority initiatives Waste Collection and Transport
Proposed Capacitating Interventions The following proposals outline
the overall capacitating interventions required for the implementation
of waste collection and transportation in Swaziland. The specific capacitating
interventions that relate to the institutional framework are discussed
in
Chapter 4 and described in more detail in Volume II Annex 2. The enabling mechanisms are summarised under the following main headings: Structure, Staff and Interrelations
Strategy Intervention Objective(s) "To provide for the safe storage and treatment of waste with special reference to hazardous and health care risk waste and where feasible in accordance with international standards". Strategy Intervention Approach The strategy for treatment
of hazardous waste is that of separation of waste at source, which must
be implemented to ensure that hazardous waste is not mixed with general
waste. The hazardous waste from commerce, industry, agriculture and mining
must be treated in an environmentally sound way before disposal. Storage
is the most viable solution in the short-term. When the requirements of
the Basel Convention (the RSSW and the consignment note system) are implemented,
certain fractions of the hazardous waste could be exported to a neighbouring
SADC country or overseas, for recycling, treatment or disposal.. Hazardous
waste that cannot be exported must be disposed of at one of the few safe
hazardous waste disposal sites in Swaziland in the short to long-term.
Depending on the property of the specific hazardous waste, some physical
pre-treatment prior to disposal should be performed by the industry itself
in the long-term. SEA is the main responsible body for hazardous waste,
and must ensure that the proposed activities are implemented.
Certain types of waste, other than hazardous waste and health care risk waste, could be considered as a potential fuel for electricity and heat generation. Reference is made to the "Swaziland National Energy Policy Project (SNEPP)". Incineration of large amounts of waste has not been practised in Swaziland. Incineration will reduce the volume and neutralise hazardous substances in the waste. However, before considering the introduction of incineration of general waste, thorough consultations must be held with all relevant institutions and stakeholders, including the NGOs, on the environmental benefits and disadvantages. SEA and MHUD will be responsible for this. However, even if deemed tentatively feasible, further detailed investigations (i.e. a feasibility study) need to be carried out before any decision can be taken. The amount and nature of combustible waste for incineration has to be estimated, as well as the availability of a suitable structure/organisation capable of operating an incineration facility. In the interim (maybe 8 to 10 years), the treatment strategy will be to rely on safe disposal at upgraded landfill sites. The priority initiatives formulated for the waste treatment strategy are outlined below and described in detail in Volume II Annex 2. Priority initiatives Waste Treatment
Proposed Capacitating Interventions The following proposals outline the overall capacitating interventions required for the implementation of waste treatment in Swaziland. The specific capacitating interventions that relate to the institutional framework are discussed in Volume I Chapter 4 and described in more detail in Volume II Annex 2. The enabling mechanisms are summarised under the following main headings: Structure, Staff and Interrelations
Strategy Intervention Objective(s) "to develop and implement a coherent solid waste management disposal and remediation system for general and hazardous wastes from all sources". Strategy Intervention Approach Waste disposal is the final stage in the application of the Waste Hierarchy.. The waste disposal strategy relies on the separation at source of recyclable materials and special waste (hazardous waste and health care risk waste) from the general waste stream. In the future only sanitary landfills, designated controlled local disposal facilities and rural homestead disposal pits will be permitted for general waste disposal. 3.6.1 Waste Disposal General Waste A number of problems have been noted with existing disposal sites, including poor operations, e.g. the Manzini and Matsapha disposal sites, excessive leachate, e.g. the Mbabane Sanitary Landfill, as well the non-existent mapping of the existing disposal sites. These must be urgently addressed. While the potential for the sharing of disposal facilities located within logistically feasible waste catchments must be investigated, e.g. Manzini/Matsapha and Mbabane, Piggs Peak and Bulembu, it is unlikely that this situation will be resolved during the short-term planning horizon. During this period, waste disposal at rural homesteads will be established and improved. In the short-term, the number of landfills and designated controlled local disposal facilities will be reduced to ensure economically and environmentally viable waste disposal solutions. Wherever practicable, common landfill facilities will be shared by local authorities (including company towns) and private sector industries. This task will be the responsibility of the SEA and MHUD. Properly designed landfills are the preferred option for disposal. In the long-term, incentives will be established to avoid illegal dumping and the proliferation of small uncontrolled disposal sites. The cost of these incentives, i.e. rewards for good behaviour, more than outweighs the cost of cleaning up. In parallel, guidance must be given to the responsible authorities to upgrade or close poor operations at existing disposal sites. SEA will be responsible for this. Special Waste: According to international
classification, all of Swaziland’s waste streams have a hazardous component.
This component must not be mixed with the general waste stream.
During the short-term, one hazardous waste disposal site will be established in Swaziland. 3.6.2. Remediation
The priority initiatives formulated for the waste disposal and remediation strategy are outlined below and described in detail in Volume II Annex 2. Priority initiatives Waste Disposal and Remediation
Proposed Capacitating Interventions The following proposals outline
the overall capacitating interventions required for the implementation
of waste disposal and remediation in Swaziland. The specific capacitating
interventions that relate to the institutional framework are discussed
in Volume I Chapter 4 and described in more detail in Volume II Annex 2..
Structure, staff and Interrelations Investigate the institutional
arrangements (finance, ownership, management etc.) for a national disposal
facility(ies) for hazardous and Health Care Risk Waste.
Public : Private : Community linkages and partnerships for the planning and operation of waste disposal sites. System tools (Equipment, Guidelines and Manuals)
4.1 Background The assessment of the current institutional framework (See section 2.2.) for waste management provided useful information on the challenges that will be expected when implementing the NSWMS. While new and appropriate institutional opportunities also emerged from the exercise, the assessment revealed that there are many institutional and capacity issues that cannot easily be addressed. The institutional framework proposed below has taken this into account, but has moreover been balanced with the institutional requirements introduced by the priority initiatives, outlined in the NSWMS. 4.2 Institutional Portfolios, Responsibilities and Inter-linkages The resource scarce institutional environment and the existing NSWMS related institutional capacity shortcomings make a realistic allocation of institutional portfolios and responsibilities a difficult exercise. Moreover, the current institutional framework is not uniformly capacitated to assume additional/amended waste management responsibilities, and towards implementing a Strategy that takes a national mandate and coverage. The main associated problems have been summarised in Section 2.1.3. The allocation of institutional portfolios and responsibilities has however taken a realistic point of departure by working within the existing institutional portfolios and resources. A strong reference has been made to the existing resource availability. In this context, the current national priorities on public funds in Swaziland do not justify significant investments into waste management, and innovative thinking is required to identify and develop workable solutions. It is acknowledged that the allocation of institutional portfolios and responsibilities must, for National Government Agencies, be seen in view of their existing portfolios, as outlined in current legislation, and that this legislation may not be appropriate and specific on waste management issues. However, it is considered important that Ministries assigned waste management responsibilities in the Environment Management Act 2002, Waste Regulations 2000, the EIA Regulations and the NSWMS must table this issue before the Strategic and Action Planning processes of the Public Sector Management Programme (PSMP). This should be done to ensure that waste management responsibilities are taken into account in terms of organisational design and staffing. In addition to the existing
legislative framework, the proposed allocation of portfolios and responsibilities
for waste management has been guided by the following:
Institutional inter-linkages are considered an important mechanism to establish an efficient and cost-effective waste management system in a resource scarce environment. Moreover, the existing institutional arrangement may in some cases imply that a waste management responsibility can only be professionally addressed through a co-operation arrangement between the agency holding a formal authority (e.g. the DPMO in case of peri urban and rural areas) and one holding the required technical expertise (e.g. the MHUD for waste system relevant to peri urban and rural areas). This approach prevents the development of expensive "double" capacity within government. Since the changing of Ministerial and wider institutional portfolios and mandates may take time to effect, the utilisation of inter-institutional linkages may constitute a practical transitional instrument to ensure progress on NSWMS implementation. The specific need and opportunities for such linkages are difficult to predict and describe and they may be of a less formal nature (Memorandum of Understanding). . At the government level, both formal and informal Co-operative Government Agreements between two or more Ministries could be established and at the local level linkages between urban local government structures and company towns and between City Councils and the surrounding peri-urban areas are possible. Inter-industrial linkages and co-operation agreements may also be an area that could be investigated. Division of responsibilities within and between levels The division of waste management responsibilities, both within and between different levels of administration and types of government, will be expected to change over time. This will be an outcome of both increased local capacity and of new more decentralised oriented legislation, for example in the context of local authorities. There is currently limited capacity available at decentralised levels (e.g. with most Town Councils and Town Boards) to undertake waste management responsibilities and MHUD and other national agencies would need to assume substantial capacity development and support services for an initial period of 3-5 years. 4.3 The Proposed Institutional Framework See 4.5 for schematic representation and description. 4.4 A "Developing Institutional Framework" Approach This approach acknowledges that it may not be possible to immediately implement the proposed institutional framework in totality because of resource and other constraints. It also acknowledges that over time the proposed institutional framework may need further amendments based on experience. This approach also indicates that an active development effort is required to facilitate the changes, but that the most appropriate structures will only evolve over time, based on experience and opportunities. The rationale behind this approach finds its justification in the following:
4.4.1 Criteria applied for institutional framework design The preparatory investigation for the NSWMS suggests that three criteria should be allowed to guide the initial design of the institutional framework:
An enabling institutional framework will ensure that the implementation of the NSWMS can be initiated and that it can be sustained through a continuous development of institutional capacity, both within and between different levels and types of government, parastatal and private structures. An enabling institutional framework will make provision for the allocated responsibilities and capacity development (both in terms of the "reception" and "provision") and that support structures are established to assist institutions allocated waste management responsibilities. An Affordable Institutional Framework: An affordable institutional framework provides for selected elements of the NSWMS to be initiated from the outset within the existing institutional resources and capacities and, in as far as possible, within the current allocation of institutional mandates and portfolios. With regard to affordability, the NSWMS would for example, advocate solutions for improved waste management through institutional co-operation agreements, strategic alliances and partnerships, thus supporting and complementing other National initiatives to improve the effectiveness and efficiency of public services. In principle, the NSWMS should only require additional resources where they cannot be made available through co-operative and similar arrangements. The interpretation of this approach should however not preclude from the fact that the full implementation of the Strategy will require institutional alignments, complementary staff and new responsibilities. A Logical and Simple Institutional Framework: A logical and simple institutional
framework would seek to keep the institutional framework simple. It would
strive towards logical so-called "one-stop" operations and in this context
it would acknowledge existing formal institutional "linkages" and "responsibilities".
However, this framework would be of an "administrative" and "authority"
(e.g. DPMO) nature and would not necessarily reflect technical expertise
in for example, waste management (e.g. MHUD). This system can be applied
by operating an institutional framework that divides responsibilities along
Waste Streams or along the different stages of the Waste Cycle. In view
of the need to develop waste management capacity throughout the institutional
framework, it may also prove useful to divide responsibilities along levels
e.g. National,
The system outlined above, has been selected in order to facilitate the implementation of the NSWMS. Once implemented and while developing the institutional framework, the NSWMS will require ongoing adjustments in the institutional framework. 4.4.2 Overview of allocated responsibilities The considerations and criteria outlined above are transformed into the following proposal for an institutional framework with a related allocation of roles and responsibilities. 1. National level agencies will assume all major legal, technical, administrative, financial and training and awareness responsibilities for the implementation of the NSWMS. Many of these responsibilities will have to be extended to locally based institutions, organisations and enterprises through the provision of capacity building services and general support. 2. National agencies will be expected to develop inter-linkages order to ensure the broadest possible national and professional coverage and support of NSWMS initiatives. Local authorities will have to look for opportunities to share facilities, resources and responsibilities. This will require an active pursuance of co-operative government opportunities and agreements, general public-public partnerships and private-public partnerships with for example, a range of federations and associations. Referring to (1) above, national support and capacity development would have to be extended to the local level to ensure similar inter-institutional agreements and linkages are established at the local level. 3. A simple national institutional framework has been proposed, which would divide the portfolios, roles and responsibilities along the main waste streams and to a large extent also along the source of waste. This framework is as follows:
This framework avoids a potential conflict of interest for some line ministries in promoting their sector (e.g. industry and agriculture) and highlights SEA´s role as a regulatory body. To ensure proper waste management in company towns, it is also proposed that they be declared as Waste Control Areas, for which MHUD has the responsibility. Under this scenario, hazardous waste from agriculture (both processing and primary production) will be managed by SEA and not by MOAC. Non-hazardous agricultural waste linked to primary agricultural production, is considered organic resource material and will be managed by MOAC and other agencies (e.g. MNRE).. Awareness and training programmes for improved agricultural waste management practices may however still be facilitated and organised through the MOAC Extension Service. The MEE will not have any major waste management responsibilities. SEA and MHUD will manage hazardous and general industrial waste, respectively. However, the MEE is still considered to be a key institutional entity for the implementation of the Strategy, as it is expected to play a major supporting role in the establishment of a Waste Minimisation Centre and in the general dissemination of waste management requirements to the industrial and commercial sector. Mining waste warrants special attention. It is proposed that, where necessary, mines will be declared as Waste Control Areas. Under this arrangement, hazardous waste fractions would be managed by the SEA and non-hazardous substances by the MHUD. Mining residuals (e.g. crushed material and soil) will be addressed in terms of the EIA requirements. The background investigations for the NSWMS identified significant institutional challenges in allocating waste management responsibilities for peri-urban and rural areas. The general authority to manage land and to introduce cost recovery approaches follows traditional structures (i.e. the Thinkhunla system) and not the national and local government structures regulating formal urban and industrial areas. The Deputy Prime Minister’s Office (DPMO) provides the link between the "Government" and the "Thinkhundla" structures and hence also the link to the introduction of improved waste management in rural and peri-urban areas. The Waste Regulations 2000 provide the option of declaring such areas as Waste Control Areas in order to provide for sound waste management practices. In view of this, the DPMO has been allocated the responsibility for waste management in peri-urban and rural areas. The DPMO will not be expected to develop any in-depth technical waste management expertise; but would however be expected to operate a "liaison function" on waste management. The main purpose of this liaison function would be to ensure that technical knowledge and expertise, relevant to rural and peri-urban areas, is made available by the waste stream specific knowledge centres operated by MHUD, SEA and MHSW. The DPMO would be expected to acquire a minimum waste management expertise in order to operate the liaison function. It will however be a major responsibility for the DPMO to ensure that sufficient funding mechanisms are established to finance waste management operations in rural and peri-urban areas and to ensure that the required implementing mechanisms are also put in place. In order to assume the proposed responsibility, it is envisaged that the DPMO will enter into several Co-operative Government Agreements. For matters pertaining to household waste, an agreement will be required with MHUD and for hazardous waste through a similar agreement with SEA. A spirit of "doing things" needs to be established. The NSWMS will only gain momentum, provided each of the national level agencies is willing to assume responsibility and put in an extra effort by taking the lead to work by example. This is where the Swaziland Environmental Authority (SEA) is important. The SEA is the custodian and main promulgator and enabling actor for the Strategy. The SEA is a regulatory and support agency to the ministries mentioned above and a general national resource capacity for waste management in Swaziland. In this context, the SEA should be expected to play a major role in legislative processes and the design and implementation of key waste management tools, including those associated with monitoring and enforcement. The role for SEA during the first 3-5 years is considered crucial to the success of the Strategy The Ministry of Finance (MOF) and the Ministry of Economic Planning and Development (MEPD) will play a central role in identifying, designing, approving and implementing economic instruments to support specific waste management initiatives. Economic instruments may be of a different nature and could include possible taxes on plastic bags, import duties and levies on waste and waste generating packaging, raw materials, as well as the introduction of incentives for the general public and industry. The MEPD and the MOF also holds a key responsibility to ensure that budget provisions are made to support legally founded responsibilities for waste management. Locally based organisations,
including local authorities, company towns, enterprises and NGOs, are central
to the implementation of, and compliance to waste management policies and
initiatives. At this stage however they are considered a "weak link" in
the waste management chain, as they require substantial support and capacity
development in order to meet the new waste requirements. As a result, locally
based organisations will only in the longer-term be in a position to assume
decentralised waste management responsibilities.
An overview of the proposed institutional arrangements is illustrated underneath. The proposed waste management portfolios, roles and responsibilities have been outlined for each of the main relevant agencies at national and local level in Volume II Annex 1. The following abbreviations have been used in the text and are defined in Volume II Annex 3: 4.5 National Level Agencies The Institutional framework proposed under this section is the preferred option of the three possible alternatives considered. The proposed portfolio and responsibilities for SEA, covers all waste streams and includes both the hazardous and non-hazardous components. The allocated responsibilities for MHUD and MHSW cover only the specific waste stream for which they are responsible, unless specifically indicated. The allocation of the portfolio for the DPMO is based on their link to rural and peri-urban areas. It should be noted that in many instances the DPMO would only be able to meet its responsibilities if strategic alliances, partnerships and/or Co-operative Government Agreements are established and formalised. Overview of institutional arrangements for waste management in Swaziland Crosscutting institutional stakeholders Policy and Enabling NSWM Strategy Authorities Main Coverage and Strategic Partners 4.5.1 Swaziland Environmental Authority (SEA) SEA is the national custodian of the NSWMS and will therefore assume the overall Coordinating responsibility for implementation at all levels. SEA´s Coordinating role is as a national overseer, facilitator and professionally guiding body. The enabling responsibility of SEA towards other line ministries and national stakeholders, is comprehensive and SEA is expected to play a lead role in assuring co-ordination of, and in promoting affordable and creative technical, administrative and managerial approaches that will enable implementation of the Strategy. SEA is specifically responsible for all Hazardous Waste Management and the operation of the WIS and RSSW. The overall responsibilities for SEA are derived from the Environmental Management Act of 2002 and the Waste Regulations 2000 and the EIA Regulations. Reference is made to Volume II Annex 2 for a specification of the responsibilities linked to the proposed general portfolio. 4.5.2 Ministry of Housing and Urban Development (MHUD) The MHUD is the principal national
agency responsible for General Waste (GENW) from all sources. The Ministry
will be the implementing agency for the GENW component of the NSWMS. MHUD
is responsible for the provision of technical knowledge and capacity development
support to local authorities and, through a Memorandum of Understanding,
with the DPMO, and Waste Control Areas in rural and peri-urban areas. The
MHUD undertakes their duties on waste management in accordance with the
Environment Management Act of 2002, the Waste Regulations 2000 and the
EIA Regulations.
4.5.3 Ministry of Health and Social Welfare (MHSW) The Ministry of Health and Social Welfare (MHSW) is the principal agency for Health Care Risk Waste (HCRW). The Ministry will be the implementing agency for the HCRW component of the NSWMS. MHSW is responsible for the provision of technical knowledge and capacity development support to public and private hospitals, clinics and other health facilities in both rural and urban areas. The MHSW undertake their duties on waste management in accordance with the Environment Management Act of 2002, the Waste Regulations 2000 and the EIA Regulations and complementary legislation. Reference is made to Volume II Annex 2 for a specification of responsibilities linked to the proposed portfolio. 4.5.4 The Deputy Prime Minister’s Office (DPMO) and Regional Administration Offices The Deputy Prime Minister´s Office, through the Regional Administration Offices, constitutes the official link between Government, the Thinkhundla and traditional authorities. The DPMO is therefore an important roleplayer for the introduction of improved waste management practices in rural and peri-urban areas located on Swazi Nation Land. It was not intended that the DPMO would implement service provision or possess any "technical" expertise of its own (e.g. on waste management). However, in order to ensure that appropriate waste management knowledge and systems are made available to the rural and peri-urban areas, the NSWMS proposes that the DPMO establish a waste management liaison capacity. The main function of the liaison capacity will be to ensure that relevant expertise is available from the waste stream knowledge centres at MHUD (for general waste); from SEA (for hazardous waste) and from MHSW (for health care risk waste). Moreover, the DPMO will assume the responsibility to identify and develop approaches to finance waste management in such areas and it will also liaise with local authorities and other agencies to explore possible national and local co-operation arrangements related to waste management. 4.5.5 Ministry of Economic Planning and Development (MEPD) MEPD is the Ministry responsible forNational Economic Planning, National Population issues, Co- ordination of Technical Co-operation Programmes and the Co-ordination of co-operation with the Donor community. In the context of waste management, the MEPD will co-ordinate the plans (in particular physical investments plans, including National and/or Regional Treatment Facilities and Landfill establishment) submitted by individual Ministries in order to avoid duplication and irrational expenditures of public funds. The MEPD is also an important roleplayer to ensure that sufficient funding is provided to meet the objectives of the NSWMS, once approved by Cabinet. MEPD will also assist and co-ordinate requests for donor assistance to implement the NSWMS. Reference is made to Volume II Annex 2 for a specification of responsibilities linked to the proposed portfolio. 4.5.6 Ministry of Finance (MoF) The MoF is the Ministry responsible for all public finance and hence also for the national fiscus. As such, MoF is the "one-stop agency" in ensuring that funding is being provided to implement the NSWMS. MoF will also be instrumental in the research required before the introduction of economic instruments related to waste management. MoF’s responsibilities related to solid waste management is seen as follows: Reference is made to Volume II Annex 2 for a specification of responsibilities linked to the proposed portfolio. 4.5.7 Ministry of Enterprise and Employment (MEE) The Ministry of Enterprise and Employment constitutes a key link between the NSWMS and the commercial and industrial sector in Swaziland. The MEE is particularly involved in promotional activities to attract investors into Swaziland and may therefore have a conflict of interest in also advocating and enforcing the most appropriate waste management practices. As a result, waste management responsibilities have not been allocated to MEE The MEE will be instrumental in forging and formalising co-operative linkages between government and private sector agencies at different levels and, together with the SEA, in the establishment of a Cleaner Production/Waste Minimisation Centre. 4.5.8 The Ministry of Agriculture and Co-operatives (MOAC) The Ministry of Agriculture and Co-operatives is responsible for agricultural operations, including agricultural extension services in Swaziland. With the exception of organic "residuals" (not considered a waste in this context), waste from primary production mainly derives from the utilisation of agro-chemicals. This waste fraction will however be handled as hazardous waste by the SEA. However, the MOAC Extension Service offers an opportunity to extend waste related training and awareness to farming communities and rural areas. 4.5.9 The Ministry of Natural Resources and Energy (MNRE) The MNRE is the national authority for mining concessions and operations in Swaziland. However, in the context of waste management, mining operations could be considered equal to enterprises and the hazardous component of the mining waste stream will therefore be handled by SEA. In order to provide fully for this, to declaration of mines as Waste Control Areas should be considered. The MNRE is currently the agency administrating and setting requirements for EIAs for proposed mining operations. This offers an opportunity in a waste management context to address the rehabilitation of former mining sites. 4.5.10 Public Sector Management Programme (PSMP) The main purpose of the Public Sector Management Programme is to raise the standards of service delivery and to realise greater efficiency and cost effectiveness of the public service in Swaziland. The objectives of the PSMP include: - the development of clear and appropriate ministerial missions, objectives, strategies, structures and staffing levels and thereby improve the performance and productivity of the public service for effective and efficient delivery of services. The PSMP is currently completing the remaining management audits of all ministries. Thereafter, a strategic planning and action planning process will commence for all ministries. The PSMP programme will therefore have implications for the implementation of the recommended NSWMS related institutional arrangements, both within and between Ministries at National level. It is important that the SEA, MHUD, MHSW and other national public agencies allocated solid waste related responsibilities, present their institutional and staff requirements as an input to the PSMP strategic and action planning processes. 4.6 Associations, Federations, Professional Bodies and NGOs Stakeholder associations, federations, representative and professional bodies, NGOs and a range of Civil Society organisations, all constitute an important resource base and asset for the refinement and implementation of the NSWMS. The bodies and organisations are important access channels for both "outreach" promotional issues towards different constituencies, as well as a means to "capture challenges, obstacles and opportunities" for Strategy implementation. Their involvement would therefore be broad and should be expected to include: - policy development; waste action planning; identification of economic instruments including incentives; awareness raising and training and involvement in general partnerships for improved waste management. The following bodies are considered to be of particular importance:
It is the responsibility of MHUD, MEE, MHSW and the SEA to map out a strategy on how to optimise the involvement of the above-mentioned organisations and bodies. 4.7 Local Level Agencies There are large differences in the planning, management, implementation and financial capacities of local level agencies, in particular among the three types of local authorities. Local level agencies moreover differ in terms of their technical and financial degree of autonomy from central government. At this point in time, they cannot therefore realistically be considered under the same set of institutional portfolios and associated responsibilities. Although the Solid Waste Strategy is planned to gradually shift from an emphasis on national facilitation towards local level implementation, this shift cannot be expected to happen immediately. 4.7.1 City Councils Mbabane and Manzini City Councils
(CCs) currently have the highest degree of local authority autonomy and
are being pressurised by Government to cover their own cost of service
delivery. The City Councils are therefore expected to operate and finance
their own waste management operations, on a cost-recovery basis. There
is presently, a large scope for improvements in waste management in almost
all aspects. This performance gap will not be bridged without substantial
technical support from MHUD (GENW) and SEA (HAZW). The overall waste management
responsibilities of the City Councils are outlined in the Urban Development
Act, in the Waste Regulations 2000 and in the Environment Management Act
2002. The NSWMS allocates the following proposed portfolio and responsibilities:
4.7.2 Town Councils (TCs) and Town Boards (TBs) Town Councils (TCs) and Town Boards (TBs) are generally allocated the same waste management portfolios and responsibilities. The major difference between the two types of local authorities lies in the extent to which they need support from national level agencies and the level of political and financial autonomy. Town Councils currently have some degree of political and financial autonomy and the forthcoming new Urban Government legislation is expected to provide for further autonomy. The Town Councils however generally have limited technical capacity and waste management services are generally confined to waste collection of household waste, with limited cost-recovery. With only a few exceptions, waste collected by the TCs, and/or TC employed Contractors, is disposed of at uncontrolled disposal sites. Large amounts of waste are still not being collected and any waste management services beyond "collection" is deemed to be a challenge to the Councils. Town Boards have a limited degree of political and financial autonomy. The management and administration of the Town Boards is currently mainly undertaken through an office of the MHUD. Some of the Town Boards make use of Contractors (MHUD contracted) for waste collection, although others do not undertake any collection. No other waste management services are undertaken. For the implementation of the National Solid Waste Management Strategy, both Town Councils and Town Boards would, in the short to medium term, have to rely on MHUD (GENW), the SEA (HAZW), the MHSW (HCRW) for technical knowledge on new methods and approaches and general capacity development. The overall waste management responsibilities of the City Councils are outlined in the Urban Development Act and in the Waste Regulations 2000. The NSWMS allocates the following proposed portfolio and responsibilities: 4.7.3 Company Towns (CTs) The terminology "Company Towns (CTs)" does not sufficiently describe the diverse nature of these structures. Most company towns have industrial, commercial, residential and medical facilities that resemble both a formal urban settlement and an industrial site/estate environment. This, together with the degree of autonomy of company towns, makes it difficult to outline a simple institutional arrangement for them. It is therefore proposed that waste management for CTs be addressed through the declaration of "Waste Control Areas". To support this approach, it is proposed that the national authorities responsible for the respective waste streams will develop integrated multi-waste stream minimum standards and supporting guidelines. The guidelines would specify the roles and responsibilities pertaining to the CTs with respect to planning, enforcement, management, implementation, awareness and capacity development. The SEA could operate as a "one-stop" approval agency for waste issues pertaining to CTs. This would require SEA to formalise Coordinating structures with the MHUD and MHSW to ensure that matters pertaining to GENW and HCRW are professionally attended to and managed. Consequently, no specific portfolio has been outlined for the Company Towns. 4.8 Regional Administrations (peri-urban and rural areas) The Regional Administrations under the DPMO are central to improved waste management practices in peri-urban and rural areas, which are located on Swazi Nation Land. The Regional Administration Offices currently have a limited managerial, technical and administrative capacity and cannot be expected to be instrumental on waste management issues. They should meanwhile facilitate the involvement of traditional authorities and, through their community development workers, play a main role in the implementation of awareness and community training programmes. The latter may be extended to include limited waste management and enforcement responsibilities. The declaration of Waste Control Areas should be applied widely. The proposed portfolio and related responsibilities has been described in Section 4.5.4. and in Volume II Annex 2 of the NSWMS. 4.9 Enterprise Level The enterprise (private, public and parastatal) level is considered crucial to the implementation of the NSWMS, in terms of general waste, hazardous waste, recycling and the introduction of cleaner technology measures. The Strategy envisages the involvement of enterprises in several ways:
4.10 Citizens Citizens, as members of families, communities or a workplace, or attending education at any level, should be considered the backbone to the implementation of the Strategy. Through the interaction at different levels of society, sound environmental behavioural patterns can be disseminated. As encountered internationally, attitudinal change linked to waste management is complex and can only be accomplished through persistent and well thought out programmes pursued through influential channels. Such programmes may be of an awareness nature, but they may also be through providing economic and other incentives (for example linked to recycling). It is envisaged that for the first 10 years, extensive behavioural change approaches would have to be developed by the SEA, MHUD, MEE and MHSW, in conjunction with other agencies such as the Ministry of Education and the DPMO. The implementation of the programmes should be undertaken by the agencies best placed to reach the different rural, peri urban and urban target groups and citizens at different stages of life. 4.11 Capacity Development Strategy/Plan The implementation of the NSWMS and the associated-proposed allocation of institutional roles and responsibilities will induce a number of institutional capacity gaps. These gaps will be of a diverse nature linked to organisational structures; skills and knowledge deficiencies; equipment, procedures and systems, legal issues, as well as relations between institutions and individuals. Major institutional performance challenges are expected to emerge in relation to the proposed portfolio for the SEA, MHUD, MHSW and the DPMO. For these agencies, their responsibilities in respect of overall and hazardous waste (SEA), general waste (MHUD and DPMO) and Health Care Risk Waste (MHSW), is new or substantially additional to their current responsibilities and cannot easily be absorbed within their existing capacity and structure. Capacity requirements at the implementing level (e.g. local authorities, medical institutions and enterprises) are apparent. Moreover, the institutional alignment and capacity building requirements imply additional financial requirement than that required to operate and manage established waste management systems. This places an additional "burden" during the initial years of strategy implementation, which will have to be planned for. As a result, a Capacity Development Strategy/Plan is needed as a key implementing instrument for the NSWMS. The first draft of this strategy/plan is enclosed in Volume II Annex 2. More detailed Ministry or institution level plans will be required, which may need adjustment following the outcome of the strategic and action planning processes of the Public Sector Management Programme. The capacity development interventions proposed for the major national and local agencies can be summarised under three headings:
Structure, Staff and Interrelations 1. Based on the approved NSWMS and the associated outlined responsibilities, SEA will review its organisational arrangement, including the allocation of waste management responsibilities to functional units and individual positions. 2. The staff requirements estimated in the NSWMS will be reviewed, and plans to professionally upgrade existing staff and for the filling of vacancies prepared. 3. SEA will identify the options and requirements for Co-operative Government Agreements and inter-ministerial bodies. 4. Coordinating structures will be developed, or existing structures strengthened, to monitor and support the implementation of the NSWMS by other agencies at both national and local level. 5. SEA will head an initiative to link-up Swaziland with international organisations and bodies. System tools (Equipment, Guidelines and Manuals) 6. SEA will need a range of enabling guidelines, manuals and handbooks related to key waste management issues for its own use and for other agencies. 7. SEA will need to procure and maintain sufficient Information Technology equipment for all staff assigned waste management responsibilities in order to facilitate communication through the internet and to obtain additional experience and knowledge. 8. SEA will develop and maintain the web page that has been implemented . This web page will contain relevant waste management documents and articles, information on the status quo of the waste situation in Swaziland as well as information on training and awareness material. Skills Development and Awareness 9. The NSWMS induces a range of skills and awareness needs within SEA. These relate to the legal, financial, technical, Coordinating and capacity development responsibilities assigned to SEA. 10. On the basis of the recommendations provided in the NSWMS, SEA will develop an in-house skills and knowledge development plan. This plan will address all levels of staff and integrate with the overall responsibilities outlined above. The plan will specifically focus on the HAZW, WIS and RSSW responsibilities assigned to SEA. 11. A strategy for capacity development at SEA will be implemented. This strategy must acknowledge that SEA staff cannot attend long-term training programmes, as this is both expensive and may compromise NSWMS implementation. 12. SEA will utilise the substantial capacity development documentation developed under the NSWMS Project, and advise other waste management stakeholders on of its use. . This document contains technical, financial and training and development packages. 4.11.2 Ministry of Housing and Urban Development (MHUD) Structure, Staff and Interrelations 1. Based on the approved NSWMS and the associated outlined responsibilities, MHUD will review its organisational arrangements, including the allocation of waste management responsibilities to functional units and individual positions. 2. The staff requirements estimated in the NSWMS will be reviewed, and plans to professionally upgrade existing staff and for the filling of vacancies prepared. 3. MHUD will identify the options and requirements for national and local Co-operative Government Agreements and inter-ministerial bodies related to improved and effective GENW management. 4. MHUD will facilitate the establishment of Coordinating structures, where possible using existing structures, to monitor and support the implementation of the NSWMS by other agencies at both national and local level. 5. MHUD and SEA will co-operate to link-up Swaziland with international organisations and bodies. System tools (Equipment, Guidelines and Manuals) 6. MHUD will develop a range of enabling guidelines, manuals and handbooks related to GENW management issues for its own use and for use by other agencies. 7. MHUD will procure and maintain sufficient Information Technology equipment for relevant units and staff assigned in order to facilitate communication through the internet and to obtain additional information related to GENW. Skills Development and Awareness 8. In order to address the capacity gaps induced by the NSWMS, MHUD will develop and implement a detailed in-house skills and knowledge development plan. The plan will address all levels of staff and integrate with the overall responsibilities for GENW management, as outlined above. 9. A strategy for capacity development at MHUD will be implemented. This strategy will be developed for the implementation of action plans for capacity development. 10. MHUD will utilise the substantial capacity development documentation developed under the NSWMS Project and advise other waste management stakeholders on of its use. . This document contains technical, financial and training and development packages. 4.11.3 Ministry of Health and Social Welfare (MHSW) Structure, Staff and Interrelations 1. Based on the approved NSWMS and the associated outlined responsibilities, MHSW will review its organisational arrangements, including the allocation of health care risk waste management responsibilities to functional units and individual positions. 2. The staff requirements estimated in the NSWMS will be reviewed, and plans to professionally upgrade existing staff and for the filling of vacancies prepared. 3. MHSW will identify the options and requirements for national and local Co-operative Government Agreements and inter-ministerial bodies related to improved and effective HCRW management. 4. MHSW will facilitate the establishment of Coordinating structures, where possible by using existing structures, to monitor and support the implementation of the NSWMS. 5. MHSW and SEA will co-operate to link-up Swaziland with international organisations and bodies. System tools (Equipment, Guidelines and Manuals) 6. MHSW will develop a range of enabling guidelines, manuals and handbooks related to HCRW management issues for its own use and for use by other agencies. 7. MHSW will procure and maintain sufficient Information Technology equipment for relevant units and staff assigned waste management responsibilities in order to facilitate communication through the internet and to obtain additional information and knowledge on HCRW management. . Skills Development and Awareness 8. In order to address the capacity gaps induced by the NSWMS, MHSW will develop a detailed in-house skills and knowledge development plan. The plan will address all levels of staff and integrate with to the overall responsibilities for HCRW management, as outlined above. A strategy and action plan for MHSW capacity development will be implemented and revised regularly. 9. MHSW will utilise the substantial capacity development documentation developed under the NSWMS Project and advise other waste management stakeholders on of its use. . This document contains technical, financial and training and development packages. 4.11.4 Deputy Prime Ministers Office (DPMO) Structure, Staff and Interrelations 1. Based on the approved NSWMS and the associated outlined responsibilities, DPMO will review its organisational arrangements, including the allocation of waste management responsibilities to functional units and individual positions. 2. The staff requirements estimated in the NSWMS will be reviewed, and plans to professionally upgrade existing staff and for the filling of vacancies prepared. 3. DPMO will identify the options and requirements for national and local Co-operative Government Agreements and inter-ministerial bodies related to improved and effective waste management in peri-urban and rural areas. 4. DPMO will facilitate the establishment of Coordinating structures, if possible by using existing structures, to monitor and support the implementation of the NSWMS by other agencies at both national and local level. System tools (Equipment, Guidelines and Manuals) 5. DPMO will develop enabling guidelines and manuals related to GENW management issues, for its own use and for use by other agencies. Skills Development and Awareness 6. In order to address the capacity gaps induced by the NSWMS, DPMO will develop a skills and knowledge development plan. The plan will address all levels of staff and integrate with the overall responsibilities for GENW management, as outlined above. 7. A strategy for DPMO capacity development will be implemented. 8. DPMO will utilise the substantial capacity development documentation developed under the NSWMS Project and advise other waste management stakeholders on its use. . This document contains technical, financial and training and development packages. 4.11.5 Ministry of Economic Planning and Development (MEPD) Structure, Staff and Interrelations 1. MEPD will designate responsibilities for waste management to a specific functional unit and officer. 2. A budget planning process will be agreed with the SEA and other line ministries, where required. 3. SEA will review the rejected and approved plan proposals from MEPD before they are sent to MOF for approval. System tools (Equipment, Guidelines and Manuals) 4. MEPD will agree with SEA on budget guidelines for waste management to be issued to line ministries. Skills Development and Awareness 5. Relevant MEPD staff will be sensitised to, and trained in the legal framework and regulations for waste management (i.e. Waste Regulations 2000, Environment Management Act 2002 and EIA Regulations), as well as the implications of the NSWMS. 6. Relevant MEPD staff will be trained to meet their legal, financial, technical, Coordinating and capacity development responsibilities. 4.11.6 Ministry of Finance (MoF) Structure, Staff and Interrelations 1. MoF will designate responsibilities for waste management to a specific functional unit and officer. 2. A budget planning process
will be co-ordinated and agreed upon with MEPD and the SEA, and other line
ministries, where required.
3. MoF will agree with MEPD and SEA on budget guidelines for waste management to be issued to line ministries. Skills Development and Awareness 4. Relevant MoF staff will be sensitised to, and trained in the legal framework and regulations on waste management (i.e. Waste Regulations 2000. Environment Management Act 2002) and the implications of the NSWMS. 5. Relevant MoF staff will be trained to meet their legal, financial, technical, coordinating and capacity development responsibilities 4.11.7 City Councils (CC) Structure, Staff and Interrelations 1. Based on the approved NSWMS and the associated outlined responsibilities, the City Councils will review their organisational arrangements, including the allocation of waste management responsibilities to functional units and individual positions. 2. The staff requirements for CCs estimated in the NSWMS will be reviewed, and plans to professionally upgrade existing staff and for the filling of vacancies prepared. 3. The CCs will identify the options and requirements for national and local Co-operative Government Agreements and inter-municipal bodies related to improved and cost-effective waste management. 4. The CCs will convene their own structures and participate in structures convened by national agencies to review and recommend on CC and national waste management issues. 5. The CCs will enter into agreements with the SEA, MHUD and MHSW to acquire relevant waste management knowledge from their resource library facilities. System tools (Equipment, Guidelines and Manuals) 6. Based on national Guidelines, Handbooks and Manuals issued by SEA, MHUD and MHSW, CCs will develop a range of in-house guidelines and procedures to comply with national requirements on waste management. 7. The CCs will source information about new/appropriate waste management technology and subsequently review and make plans for required changes. 8. Training Manuals and Awareness Raising programmes and packages on waste management will be developed and implemented. Skills Development and Awareness 9. In order to address the capacity gaps induced by the NSWMS and WR2000, CCs will develop a detailed in-house skills and knowledge development plan. The plan will address all relevant levels of staff and councillors and integrate with the overall CC responsibilities for waste management, as outlined above. 10. CCs will prepare a supporting strategy and implementation plan and approach. 11. CCs will utilise the substantial capacity development documentation developed under the NSWMS Project and advise other waste management stakeholders on its use. . This document contains technical, financial and training and development packages. 4.11.8 Town Councils and Town Boards Structure, Staff and Interrelations 1. Based on the approved NSWMS and the associated outlined responsibilities, MHUD will assist the Town Councils and the Town Boards to review its organisational arrangements, including the allocation of waste management responsibilities 2. The staff requirements for TCs and TBs estimated in the NSWMS will be reviewed, and plans to professionally upgrade existing staff and for the filling of vacancies prepared. 3. The TCs and TBs will identify the options and requirements for national and local Co-operative Government Agreements and inter-municipal bodies related to improved and cost-effective waste management. 4. The Towns Boards and Town Councils will, where applicable, convene their own or participate in structures convened by national agencies to review and recommend on TC and TB waste management issues. 5. The TCs and TBs will enter into agreements with the SEA, MHUD and MHSW to acquire relevant waste management knowledge and support. System tools (Equipment, Guidelines and Manuals) 6. TCs and TBs will receive Guidelines, Handbooks and Manuals issued from SEA, MHUD and MHSW for their direct use or develop a range of in-house guidelines and procedures to comply with national requirements on waste management. 7. The TCs and TBs will source information about new/appropriate waste management technology from national agencies and subsequently review and make plans for the required changes. 8. Training Manuals and Awareness Raising programmes and packages on waste management will be developed and implemented. Skills Development and Awareness 9. In order to address the capacity gaps induced by the NSWMS and WR2000, MHUD will assist the TCs and TBs to develop detailed in-house skills and knowledge development plans. The plans will address all relevant levels of staff, councillors and contractors and integrate with the overall TC and TB responsibilities for waste management, as outlined above. 10. The TCs and TBs will prepare a supporting strategy and implementation plan and approach. 11. TCs and TBs will utilise
the substantial capacity development documentation developed under the
NSWMS Project and advise other waste management stakeholders on its use.
. This document contains technical, financial and training and development
packages.
5. ENABLING AND SUSTAINAING THE STRATEGY 5.1 Introduction During the development of the NSWMS, two concerns emerged. One was the realisation that there are factors outside the immediate sphere of influence of the strategy makers and implementers, which nevertheless will have a strong impact on the likelihood of success for the strategy. If such factors are absolutely critical for success or failure they are termed "killer assumptions". However, if they are very significant, but not a question of "either/or", then we might define them as enabling (or disabling) factors. The other concern was that of sustainability. Establishing all the elements necessary to implement the strategy is one thing but for the strategy to evolve into a steady state, where initiatives embarked upon during the strategy period can be sustained and even further developed in the long run, requires a broader perspective. The implementation of the pilot project under the NSWMS Project provided indicators on this. Sustainability, in this context, may be defined as the continuation of the benefits of implementing the strategy once it is up and running. This chapter provides a preliminary attempt to review the situation with these two concerns in mind. The type of instruments (physical as well as procedural) and skills (know-how) required for implementation of the NSWMS are implied in Chapter 3 and 4 of this document, and described in more detail in the "Priority Initiatives" in Volume II Annex 2. Identifiable problems of how to enable and sustain these factors will be addressed under the heading: Technical Assumptions. The institutional framework and the portfolio and roles designated to the various actors, their internal organisation and staffing, and their mutual relations and designated interaction patterns, are likewise implied in the strategy, and more specifically in chapter 4 in this document on the institutional set-up. Identifiable problems of how to enable and sustain these factors will be done under the heading: Institutional Assumptions. A number of motivating factors and assumptions are also implicit in the strategy. They include such topics as "willingness to pay" by beneficiaries, "ability to pay" by polluters, effectiveness of sanctions and enforcement, performance criteria in the public sector, price-elasticities and consumer behaviour, and most basically: the priority given to solid waste problems by the public. Identifiable problems of how to enable and sustain these factors will be done under the heading: Socio-economic Assumptions. However, only a limited proportion of the cost of implementing the Strategy is likely to be financed directly, either by beneficiaries or polluters. Therefore ultimately both the cost of establishing the strategy and that of sustaining it, will depend on the will of the relevant political decision-makers to provide the necessary financial resources. A discussion on the prospects for the Politico-financial Sustainability of the Strategy will however be premature at this point in time. The first attempt at estimating the cost of the resources required to implement the Strategy should only be taken as an indication as an estimate, and the high-level discussions of "value for money", and of prioritising human resources, are yet to begin. This issue will therefore only be briefly discussed. The headings highlighted above, may serve as useful points of departure for highlighting the factors required to implement and sustain the Strategy. However, as will be seen below, they cannot be assessed in isolation from each other. In most cases they are interlinked in a way that a "weakness" in one factor is often compensated for an increased quality and/or quantity of another. 5.2 Technical Assumptions The proposed priority initiatives detailed in Chapter 3 of this document and in Volume II Annex 2, a comprehensive list of issues such as legal instruments, procedural guidelines, planning mechanisms, monitoring systems, manuals, formats. Most of them ultimately aim at the intervention levels of collection and transport, treatment, and disposal and remediation. Comparatively few are aimed at prevention and recycling. A number of the proposed new/improved
instruments or tools for better waste management will require specialist
knowledge to develop. ,This knowledge may currently not be available in
Swaziland. The Strategy therefore also foresees the need for specialist
consultancy assistance for this development work during a developmental
(establishment) period to assist in developing and adapting such instruments
to local conditions. However, the Strategy does not specify similar assistance
requirements to maintain and further develop waste management practices
and systems in the long-term.. It has been assumed that after the implementation
of most of the waste instruments or system tools, the level of knowledge
in the ministries will only require limited upgrading with regards to the
management of general and special wastes. This is still a matter for discussion
on whether this is a correct assumption and the continued updating of waste
management practices can be ensured through the proposed participation
in conferences held internationally and in Swaziland.
Advanced skills in economics required to be pursued and the level of ambition behind the proposed waste prevention and recycling initiatives may also need review. The current analytical capacity within Government in the field of economic policy instruments is limited. The Government has a number of highly qualified professionals, but not in sufficient numbers for sustained policy research. The Finance Ministry has an Economic Review and Forecasting Committee, and the Central Bank a Research Department, but neither have been established to function as a think-tanks for other agencies at this point in time. Ongoing activities are mainly concerned with collecting and aggregating statistics. 5.3 Institutional Assumptions The proposed waste strategy builds on existing institutions, but does in some cases propose a greatly expanded portfolio and jurisdiction for these institutions. This includes the MHUD, SEA, as well as the DPMO. The MHUD already has in principle the mandate to declare urbanised settlements for "urban areas". This would establish an institutional framework and also introduce taxation as a means to cover associated "mandatory" service provision, including waste management services. However, vested interests relating to the conversion of Swazi Nation Land into formal urban land have in many cases been so strong, that this mandate has never been applied. The Strategy proposes to make use of the provision made in Waste Regulations 2000 and the Environment Management Act 2002 to declare any settlement a "Waste Control Area", when appropriate. The Strategy suggests that it may be "appropriate". for selected peri-urban areas, Company Towns, and even certain industrial enterprises or mining enterprises. While the responsibility for waste control areas will have to be agreed for each case, MHUD will be the agency that has the technical knowledge required to advise, monitor and enforce these areas. However, MHUD does not currently have sufficient manpower to address these issues. With its current jurisdiction the Ministry (MHUD) would have to establish one new position to sustain the increased responsibilities of the strategy. If the geographical scope were to expand, then the number of staff would be need to be increased accordingly. It is SEA, however, which has
to sustain the greatest workload of recurrent responsibilities from the
implementation of the Strategy. The NSWMS estimates this workload to be
equivalent to three permanent positions. In view of the discussion in the
preceding section, it would therefore be appropriate to recruit two waste
management experts with at least one being specialised in hazardous industrial
waste, and one environmental economist.
While it may be possible for
SEA to enlist the required staff for a few years, it is unlikely that the
terms of employment offered would be sufficient to retain them in the long-term.
There is the risk that substantial government resources used for appointed
staff to obtain additional waste related qualifications may be lost if/when
they leave other employment opportunities. It would therefore be a great
boost to the sustainability of the Strategy if SEA were to attain the Authority
Status, which is proposed in the Environment Management Act.
5.4 Socio-economic Assumptions Motivational aspects of the strategy are yet to be fully developed. A crucial factor, which will have to be considered if many of the proposed regulations and by-laws are to be implemented and sustained, is that of enforcement capacity. This pertains to legal sanctions, as well as to inspection and enforcement by institutions and staff designated with this responsibility. This is a "killer assumption" for the application of the "polluter pays" principle. This impacts on many of the envisioned regulations and by-laws that will be rendered obsolete even before implementation, as well as cost-recovery for collection and treatment services, which will not function fully if a requisite enforcement capacity is not put in place. The higher the ambition with regards to effectiveness and cost-recovery, the greater emphasis must be placed on enforcement capacity, until such times that the values of a clean environment have been internalised in most parts of the public. With regard to the design of overall incentive structures to change wasteful consumer behaviour, in particular packaging waste, the current administrative arrangement is either rudimentary, or entirely lacking. Strategising of these issues should probably include investigating the potential for designing adequate price-incentives through legal means, such as obligatory deposits. Most of the strategy interventions
proposed for recycling, essentially relies on making waste related or waste
derived businesses and self-employment opportunities visible.
The socio-economic and politico-financial
assumptions are important as the Strategy requires substantial investment
in equipment and infrastructure. Some of these investments will be made
by local urban governments, and possibly by private contractors. Investment
into the required infrastructure would be facilitated if the Government
developed financing instruments that allowed waste operators (private waste
contractors as well as Local Authorities) to depreciate their investments
over an appropriately long period of time.
5.5 Highlighting of "killer assumptions" Four crucial assumptions that will impact on the implementation of the Strategy have been identified. They are as follows: 1) The introduction of the "Polluter Pays Principle"; 2) Appropriately increased staffing of SEA and MHUD; 3) Effective participation in the Basel Convention; 4) Availability of resources, especially for services on peri-urban and rural areas. 6. COST ESTIMATES OF REQUIRED RESOURCES 6.1 Introduction The purpose of costing the
Strategy is to provide the decision-makers with an order of magnitude estimate
of resources required to implement the various proposed initiatives.
The costing was done for three different timeframes e.g. Approval - 2 years after approval, 2 - 4 years after approval and 5 - 10 years after approval. An overview of the costs for the initiatives, broken down into activities, is provided in table 6.1. In the table, the first two costing timeframes are joined into one implementation period called From approval - 4 years after approval. Detailed costing for each individual initiative is provided in the tables in Volume II, Annex 2. A total of 14 activities within each initiative were separately costed. . A table for each activity is attached to the descriptions of the relevant initiative. The costings have been aggregated in the following two ways:
The principles of estimating the various cost-elements are briefly discussed in Section 6.1.1. 6.1.1 Costing Since most of the equipment
and hardware are unique and non-repetitive cost items, the assumptions
for their costing are indicated in referenced footnotes.
The unit used for estimation is work month (wm), or fractions thereof. Relevant specialists have estimated the required time-inputs in terms of dedicated work months at the equivalent of 22 work days per work month. These task estimates assume exclusive dedication to the given task at an optimal level of appropriate professional competency. (i.e. assumes that neither under- or over- qualified staff is utilised). The estimation of required work inputs are also assumed to be a composite of gross requirement (the estimate is not limited to the main "task-handler"), as well as the time of others associated with the given activity. For example: if the general (recurrent) administration of a particular responsibility within an agency is estimated at 3 work months, then this estimate also includes the time of colleagues in meetings, supervision and direction by the director, assistance by receptionists, clerks or secretaries. However, not all months are equal duration. Some are shorter than others, some are holiday months, and in the case of each individual staff member the amount of work undertaken in any given month may vary and be dependent on sick leave, training activities, social obligations or other "inefficiencies". Before such input estimates are translated into cost equivalents, they are first multiplied with a factor which aims to take into account "inefficiencies". In a recent DFID sponsored study on SEA’s organisational development, the effective number of working days per month, allowing for such non-productive work activities, was calculated to be 17.1 days. The present costing exercise assumes that this figure is also applicable for other public agencies. Thus, the estimated required personnel input was multiplied by an efficient co-efficient of 1.29 (22 divided by 17.1), before it was costed. The average personnel cost (salaries and benefits, such as housing allowance, insurance, and retirement funds) for each staff member, calculated form the central public administration cost in Swaziland for the financial year 2000/2001, is estimated to be E33.700 a year, or E2.800 a month. However, the average varies considerably between ministries, and, as well as within the different agencies within the same ministry (This is dependent on the structure of the established posts, which may vary from that of a very flat pyramid, to that of a obelisk). For agencies most relevant for the implementation of a National Solid Waste Strategy, the average annual personnel cost ranges from E60.000 a year for SEA or MHUD’s Office for Housing & Human Settlements, to E22.500 for the staff in Agricultural Production and Extension Services under the Ministry of Agriculture and Co-operatives. However, a more important distinction
is the different levels of staff needed for establishing, or creating,
system tools, for using them in every day operation, administration and
conduct of behaviour. For the first tasks mentioned above, it would typically
be grade 10 – 11 staff member, while it is assumed that the administrative
tasks will be "business as usual".
In both cases however, exceptions have been made that are contingent on specifications by the subject matter specialists with regard to aspects of seniority or grades. In all cases the calculations are rounded to the nearest thousand. Consultancy work is specified in work units rather than contract costs, for which either "regional" or "national" rates are applied. Regional rates have been estimated at E3.000 per work month, and national at E2.000 per work month. Since these rates are related directly to specific effort, and not to availability, the time estimate is not multiplied by the "efficiency factor" mentioned above. 6.2 Observations Due cognisance needs to be taken of the following important observations:
2. Disposal and Remediation initiatives (more than E14 million). TABLE 6.1. PRELIMINARY COSTING
OF ESTIMATED REQUIRED RESOURCES FOR
3. Treatment initiatives (nearly E9 million). 4. Overall management initiatives (Planning, WIS and RSSW total less than E700.000). 5. Prevention initiatives (less than E300.000). 6. Recycling initiatives (less than E200.000).
MHSW is tasked with an establishment input of 51 work months.. The bulk of this work reflects in particular MHSW’s central responsibility with regards to establishing a Health Care Risk Waste Management System.
6.3 Summary of individual initiatives The various individual initiatives are costed in Tables 3.1 – 3.7 in Volume II Annex 2. The cost estimate includes: a) The estimation of the required
staff input;
Integrated solid waste management planning initiatives The resources for this initiative are mainly those of labour based at the central ministries, and some local institutions. The total required work input to establish and implement the planning system is estimated to be about seven and a half work years, valued at less than half a million Emalangeni. WIS and RSSW Initiative These initiatives require almost exclusively labour, apart from maintaining the computer system. Approximately 1 work year is required for its establishment and consolidation , valued at less than E 200.000. However, as would be expected for this initiative, the annual recurrent manpower resources for its administration and operation are bigger and estimated to be 1.66 work year. Prevention Initiatives These initiatives comprise activities related to the establishment of overall incentive structures for waste generators, and for establishing a Waste Minimisation Centre (WMC). In total the cost of these establishment activities are estimated to be about E300.000. Apart from SEA, only MoF, MOAC and MEE are envisioned to be involved in the consideration and re-designing of incentive structures. Less than four work years are required for these activities. However the daily operation of the WMC would require more than two and a half work years on an annual basis, which will be the exclusive responsibility of the Swaziland Chamber of Commerce and Industry (SCCI). As a whole, this initiative is not very capital intensive (19 %), but this assumes that the SCCI is able to rent office space, rather than investing in a new building. Recycling Initiatives This initiative does have some overlap with the waste minimisation initiative, as the Strategy proposes that the scope of the WMC be expanded to include recycling issues. The cost of the recycling initiative is estimated to be about E 200.000 for human resources only. It is expected that the capital inputs required for storage and transportation will be carried by the private sector. Administrating the initiative would require a shared effort on an annual basis by SEA and SCCI amounting to about two work years. Collection and Transportation Initiatives This initiative comprises a
number of separate activities comprising: a) Guidelines for health care
risk waste, b) development of system for collection of agricultural waste,
c) guidelines for mining waste, d) establishment of codes of practices
for transportation of hazardous waste, and e) increased coverage and effectiveness
of collection of general waste.
Treatment Initiatives These initiatives comprise a) Health Care Risks, b) hazardous, and c) general waste. More resources are however required for the treatment of Health Care Risks, representing nearly 99% of the total establishment costs about E8.6 million. The construction or establishment of a centralised treatment plant constitutes about 90% of the resource cost estimation. Disposal and Remediation Initiatives This initiative includes the development and implementation of a waste management system comprising of four types of waste disposal sites: a) Sanitary landfills, b) Local Controlled Disposal facilities, c) hazardous waste disposal sites, and c) homestead pits. The establishment of the system is estimated to require about two work years. This represents less than 3 % of the total establishment costs, which is totally dominated by the required investment to establish a centralised landfill site, estimated to cost about E14 million. Administering and operating the disposal initiative is estimated to be a total of 4.5 work years, of which 2/3 is carried by local authorities. The implementation process has already been initiated during the Pilot Project Phase, even though various immediate initiatives have been identified. These initiatives were completed by the end of December 2002. The further implementation of the strategy will relate to the short-term initiatives (Approval - 4 years after approval), and the long-term initiatives (5 - 10 years after approval). This will however be dependent on the resource base made available by government, as well as the extent to which the various institutions commit themselves to the implementation of the Strategy. For the implementation of the Strategy to be successful, the following issues need to be addressed:
Agricultural Sources -These
are defined as pertaining to all activities in the agricultural sector
and industry based on products from agricultural products is an industrial
source.
Body Cooperate -This includes a company, firm, partnership, municipal corporation, or any other legal persona. Buntfu and Sustainable Use- All interactions with the environment should be characterised by buntfu means that use of the environment should be sustainable and relate to other people in a humane, considerate and respectful manner for the benefit of all of Swaziland's inhabitants, both present and future (NEP - Principle No. 2). Cleaner Production -The continuous application of an integrated preventive environmental strategy to processes, products and services in order to increase eco-efficiency and reduce risk to human beings and the environment. Commercial Source -These are defined as premises used wholly or mainly for the purposes of trade or business or for sport, recreation or entertainment. Community Management Principle- The principle of encouraging partnerships between communities and the Government for resolving environmental problems in managing natural resources and maintaining the quality of the environment in which they live (NEP - Principle No. 6). Contaminant- This term includes any substance, solid, liquid, gaseous, micro-organism, noise, vibration, heat, radiation or any energy, or thing, or combination of them that has the potential to have adverse effect, or any thing deemed to be a contaminant under the regulations in the EMA. Co-operative Government -Agreement Such an agreement is concluded between two or more government institutions on a specific activity or programme and specifies the roles and responsibilities for each of the participants in the agreement. Coordinating structures -These type of structures are put in place between two or more parties which could include both government as well as non-government institutions. The structures could be forums , committees, Task Teams or any other form of structure that would enable all the participating parties to communicate and operate effectively. Duty of Care -This principle requires that any entity that generates, transports, treats or disposes of waste must ensure that there is no unauthorised transfer or escape of waste from control. Environmental Responsibility -The principle that the people of Swaziland (individually and collectively) bear the responsibility of safeguarding the natural environment for both present and future generations (NEP - Principle No. 1). Environmental Rights -The principle that every inhabitant of Swaziland is entitled to live in an environment that is conducive to health and wellbeing; have access to the natural environment on an equitable and sustainable basis and have access to the means of enforcing these rights. (NEP - Principle No. 3). General Waste -Due to its composition and characteristics general waste does not pose a significant threat to public health or the environment, if managed properly. However, it should be noted that general waste will, when treated and disposed of, produce leachate, landfill gas, residual waste and flue gas when incinerated. These substances will not cause a public nuisance if managed properly. Generator -This is any entity, which produces waste. In this strategy, generators (or sources of waste) are divided into households, commerce, industry, agriculture, mining, health care and waste treatment facilities. Global and Regional Responsibility -The principle that Swaziland will support international efforts to improve the protection of the global environment; will take reasonable measures to ensure that activities within Swaziland, or subject to its control, do not cause damage beyond its borders and will co-operate with other states in the region on transboundary environmental issues (NEP - Principle 11). Good Housekeeping -This term is used in waste minimization specifically in industry where an effort is made to minimize the waste generated by internal recycling and reuse eg waste water. Hazardous Waste -Any waste defined as hazardous by the Minister of MTEC (Waste Regulations 2000 - Section 47) Hazardous Waste Disposal Facility -A specially selected, designed and constructed landfill site, incinerator or any other facility at which hazardous waste is permanently disposed of. Health Care Waste Sources -These are defined as health care facilities such as clinics, health centres, hospitals, doctors’ consulting rooms, traditional healers, health care or biological research laboratories, nursing homes, pharmacies and veterinarians. Health Care Risk Waste -This
is the infectious or hazardous part of the Health Care Waste.
Holder of waste -This means a person in possession of the waste, or a person who has carried out pre-processing, mixing or other operations that changed the nature or composition of the waste. Household Sources -These are defined as a) A home, a building or self-sustained part of a building used wholly for the purposes of living accommodation, b) premises forming part of a university school or educational establishment c) premises forming part of a residential home, hospital or nursing home. Litter is also included under this definition. Import, Export and Trade in Waste -No person shall import, export or trade in waste without written permission of the SEA. And no person shall import hazardous waste into Swaziland. Incineration -The thermal destruction of waste in specially constructed incineration plants. Industrial Sources -These are defined as a factory or premises used for the purposes of provision of public services (by land, water air; gas-, water-, and electricity, postal or telecommunication services). The definition also includes construction and demolition activities. Informal Areas in Urban Areas- These are ares within the boundries of a local authority that has developed without formal approval and planning. No formal infrastructure exists in the area and the area is normally not serviced as part of the normal services of the local authority. Leachate -This is the liquid formed when waste comes into contact with water (or another liquid). Potentially hazardous chemicals from the waste dissolved in the water and could pose a serious risk to the environment Litter -This is defined in the Environmental Management Act as any waste that is discarded in any public place or vacant land, other than in a designated waste receptacle. Local Authority -This means a municipal council or a town council established under part II of the Urban Government Act 1969 and in relation to a company town, means the company that controls the town. Local Controlled Disposal Facility
-This means a site designated for the disposal of waste in a waste control
area in accordance with regulation 12 in Waste Regulations 2000.
Municipal Solid Waste -This is defined as any non-infectious and non-hazardous part of the waste generated in normal households, offices and other institutions e.g. hospitals etc. Peri-urban Areas -These are defined as the areas with or without development plans immediately outside the urban boundaries Pit Disposal -Pit disposal is used by households in rural areas where communal facilities are not available. Pits are dug in the soil and the household waste is thrown into the pit and burnt. Once the pit is almost filled the pit is closed with soil and a new pilt is dug. Polluter Pays Principle -The principle that the cost of pollution and environmental degradation should, wherever reasonably practical, and with regard to the public interest, be borne by the polluter or person who caused the pollution or degradation, (NEP -Principle No. 9). Precautionary Approach -The principle that the Government and other responsible parties will take all reasonable measures to prevent damage, even in the absence of full scientific certainty as to the damages and causes (NEP - Principle No. 8). Preventive Action -Wherever possible all must take proactive measures to avoid and prevent environmental harm occurring (NEP - Principle No.7) Product Stewardship -This term is used for industry when they have to take responsibility for the full lifecycle of their products. This would also require from a particular industry that they will take back the particular product at the end of it’s lifespan. Proximity Principle -The principle that wherever reasonably practicable, pollution should be rectified and waste should be treated or disposed of, at or near the source (NEP - Principle No. 10) Public Awareness and Participation -The principle that the public are given appropriate access to information on the environment as held by public authorities, that information on the environment is widely available and that education on environmental issues is promoted (NEP - Principle No. 5) Rural Areas -These are defined as the areas outside the urban boundaries and beyond the peri-urban areas. SEA Waste Management Resource Library -This is a resource facility which would form part of the existing library in the SEA but would constitute a specific section in the library committed to waste management. This facility would be available for public use. Special Waste -This is defined in Waste Regulations 2000 as being hazardous and health care risk waste - with the potential, even in low concentrations, to have a significant adverse effect on public health and/or the environment. (for Clinical Waste refer to the term Health Care Waste) Strategy -The term is used in this document to mean a broad course of action (initiatives) designed to make the best use of resources and opportunities. The strategy should offer the best prospect of achieving the defined objectives. Sustainable Development -The principle that environmental protection and socio-economic development are interdependent and indivisible. Integration of environmental protection into the process of social and economic development is essential to achieve equity-led growth and sustainable development (NEP - Principle No. 4) Transporter -Means the person carrying the waste from its source to the treatment plant, recycling facility, incinerator or other treatment plant and the disposal site. Urban Areas (Formal) -These areas are defined as the settlements (residential, commercial and industrial) within the urban boundaries that have been planned and have registered boundaries between adjoining properties Urban Areas (Informal) -These areas are defined as the settlements, mainly residential and commercial to a lesser extent, within the urban boundaries that were not planned and, where the development and construction was not controlled. Waste -This means any substance or thing that the holder discards, or intends to, or is required to discard or dispose of, irrespective of its value to anyone, and any substance or thing deemed by a regulation to be waste. Waste Control Area -These areas are designated as such by the Minister in accordance with regulation 12 (1) in the Waste Regulations 2000 Waste Disposal Facility -This means a landfill site, incinerator or any other facility at which waste is permanently disposed of. Waste Minimisation Centre -This is a facility normally established and managed by industry with support from government. The purpose of this centre is to promote waste prevention and recycling and to act as a source of information exchange, education and awareness. Waste Related Information -This information details the waste stream generated, transported and disposed of by the information supplier Waste Regulation Authority
-This means a) in respect of an urban area, the local authority responsible
for that area; b) in respect of a waste control area, the Office of the
Deputy
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