|
|
| Supporting communities through environmental action | |
| Home
|
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:
|