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PREFACE ............................................................................................................... 03EXECUTIVE SUMMARY .................................................................................... 04LIST OF ABBREVIATIONS ................................................................................ 051.THE SOUTH DURBAN CASE STUDY: INTRODUCTION ......................... 062. AN OVERVIEW OF SOUTH DURBAN ......................................................... 072.1. Geographical Setting ......................................................................................... 072.2. Meteorological Overview ................................................................................. 083. MULTI-POINT PLAN “THE STORY” .......................................................... 09 3.1. Historical background .............................................................................. 09 3.2. Motivation and development of the Multi-point Plan .............................. 10 3.3. Fundamentals of the Multi-Point Plan ...................................................... 12 3.4. Participants ............................................................................................... 12 3.5. Legislative and Regulatory Context and Funding .................................... 134. MPP PROGRESS ON COMPONENTS .......................................................... 14 4.1. Health risk assessment and epidemiological study .................................. 14 4.2. Phasing out of dirty fuels .......................................................................... 15 4.3. Establishment of an Air Quality Management System (AQMS) ............. 16 4.4. Controlling chemical and fugitive emissions ........................................... 17 4.5. Strengthening the inspectorate ................................................................. 18 4.6. Development of a local legal framework ................................................. 18 4.7. Reviewing of standards for priority pollutants ......................................... 19 4.8. Reviewing standards for vehicle emissions .............................................. 20 4.9. Development of an Air Quality Management Plan .................................. 205. STATUS OF AIR QUALITY IN SOUTH DURBAN ...................................... 21 5.1. Sources ..................................................................................................... 21 5.2. Summary of outputs from the monitoring system .................................... 21 5.3. Emission reduction strategies ................................................................... 246. AWARDS ............................................................................................................. 237. STAKEHOLDER OPINIONS .......................................................................... 24 7.1. Summary of government, industry and NGO responses .......................... 24 7.2. Results from snap survey in Merewent .................................................... 288. SUMMARY ........................................................................................................ 30 8.1. Key milestones of the Multi-point Plan .................................................... 30 8.2. Lessons learnt ........................................................................................... 30 8.3. Has it worked? .......................................................................................... 30 8.4. Recommendations .................................................................................... 31 8.5. Fundamentals of a successful plan ........................................................... 31 References ....................................................................................................... 32ACKNOWLEDGEMENTS .................................................................................. 32APPENDIX 1: STAKEHOLDERS INTERVIEWED ........................................ 33

TABLE OF CONTENTS

Output A2: DEAT AQA Implementation: Air Quality Management PlanningAuthors: Lisa Guastella*, Svein Knudsen^October 2007

*Zanokuhle Environmental Services (ZES)P.O. Box 37945, Overport, 4067Tel: +27 31 2022860/1, Fax: +27 86 6552061E-mail: [email protected]^ Norwegian Institute for Air Research (NILU)P.O. Box 100, NO-2027 Kjeller, Norway

SOUTH DURBAN BASIN MULTI-POINT PLAN: CASE STUDY REPORT

PREFACEThe National Environmental Management: Air Quality Act, Act No. 39 of 2004, hereafter referred to as AQA, came into effect in September 2005. One of the requirements of the AQA in terms of sections 15 to 17 is that Air Quality Management Plans (AQMPs) must be developed and implemented by national, provincial and local government. To this end, the national Department of Environmental Affairs and Tourism (DEAT) has embarked on a project for the effi cient and effective implementation of AQMPs in terms of the AQA. The overall objective of this project is to ensure that air quality management planning and reporting is effi ciently and effectively implemented by all relevant spheres of government through, in part, support and leadership from the national department. The main output of this project will be an Air Quality Management Planning Implementation Manual, but in order to achieve this, a critical review of all current governmental air quality management planning processes and products and other initiatives in the country is necessary. Findings of this review process will be applied to the formulation of the Air Quality Management Planning Implementation Manual.

To this end, nine available Air Quality Management Plans (AQMPs) from various District, Metropolitan and Local Municipalities have been reviewed, as follows:

• City of Johannesburg• City of Cape Town• Ekurhuleni Metropolitan Municipality (EMM)• Mangaung local Municipality• Rustenburg local Municipality• Tshwane Metropolitan Municipality• eThekwini Municipality• Vaal Triangle Air-shed Priority Area• Capricorn District Municipality

An additional part of this review process is to examine the case study of the South Durban Basin Multi-point Plan (SDB MPP). The Multi-point Plan was devised to address air pollution problems in the South Durban Basin area, which falls within the eThekwini Municipality. The MPP has resulted in the development of a sophisticated local air quality monitoring system, information from which is being used to develop a comprehensive AQMP. Emission reduction interventions are already resulting in some positive air quality impacts, e.g. decreased ambient SO2 concentrations, decrease in number of SO2 guideline exceedances. Experiences from this project will be invaluable in testing and informing the development of the required Air Quality Management Planning Implementation Manual.

This document, therefore, forms one of the outputs for the DEAT AQMP Implementation project. The purpose is two-fold: (i) to provide a reference document for other AQMP Implementation project outputs and (ii) to be used as an inspirational example for other municipalities to follow. The intention is to focus on the use of good information and problem identifi cation as the basis for air quality management planning. It is hoped that the approach to the problem, how the plan was implemented and lessons learned will be able to be used by other authorities as a learning tool to apply to their own pollution problems.

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SOUTH DURBAN BASIN MULTI-POINT PLANCASE STUDY REPORT

EXECUTIVE SUMMARY

INTRODUCTIONThe South Durban Basin (SDB) is an area approximately 4 km wide and 24 km long, extending from the Durban Central Business District (CBD) southward to Umbogintwini. It contains a mixture of industrial (including heavy industry, chemical storage facilities, sewage works and a number of smaller industries) and residential areas in close proximity to each other. This was allowed to develop as a result of poor planning practices. The SDB is also a focal point of major transport routes, including highways, a harbour and an international airport. Topographical and meteorological complexities result in poor horizontal and vertical dispersion of pollutants, particularly during winter periods.

Communities in the SDB started to express concern about deteriorating air quality as far back as the 1960’s, and efforts intensified in the 1980’s and 1990’s as air quality deteriorated even further. Persistent complaints to government about high pollution levels, odours, chemical leaks, flares, visible emissions and health complaints ultimately led to a national response to the problem. The (then) Minister of Environmental Affairs & Tourism, Mr Mohammed “Valli” Moosa, decided that “the peculiarities and worrying levels of pollution in the South Durban area warranted a singular and co-ordinated approach from government” Various issues of concern were debated between representatives of government, industry and community and a way forward to addressing the pollution “hot spot” problem was formulated. Subsequent to that the South Durban “Multi-point Plan” was officially announced by Minister Moosa on 27 November 2000.

Fundamentals of the Multi-point Plan (MPP)The aim of the MPP is to: • Provide an improved decision making structure for air pollution management at local government level.• Reduce air pollution to meet health based air quality standards.• Improve the quality of life for the local community.

The key components of the MPP were listed as follows: • A health risk assessment. • An epidemiological study.• Phasing out programme for dirty fuels.• Establishment of an Air Quality Management System (AQMS).• Controlling chemical and fugitive emissions.• Strengthening the inspectorate (auditing and permitting system).• Development of a local legal framework.• Reviewing of standards for priority pollutants.• Reviewing standards for vehicle emissions.

The implementing agency is the eThekwini (Durban) Municipality. The total budget was R29.8 million, with an additional R4 million p.a. for running the monitoring programme, which is part of the AQMS. Funding was obtained from NORAD and channeled through DEAT, with the remainder of funds sourced from the other two spheres of government and industry

Key achievements of the MPP • An improved air quality monitoring network with integrated data transfer and storage was installed, with data and reports published on the internet.• An updated emission inventory.• Sampling for other pollutants such as BTEX (Benzene, Toluene, Ethyl-benzene, Xylene) and a hydrogen sulphide (H2S) survey in the Merebank area.• Improved scheduled trade permitting (STP) system and emission reductions as a result (40% reduction in SO2), with industry encouraged to use best practice technology.• Awareness created and has prompted industry to take action, where they may not have done before.• Reductions in terms of annual average SO2 concentrations since 1999.• Health risk and epidemiological study completed June in 2006. Results indicated higher air pollution concentrations were associated with reduced lung function in children with asthma. Children attending school in south Durban had an increased risk of persistent asthma compared to those in the north, while adults residing in the south had a higher incidence of hayfever than their northern counterparts.• Multi-stakeholder involvement: Government, community and industry are given the opportunity to constructively work together towards a common goal.• Capacity building and knowledge transfer.• Political commitment from three spheres of government to solve the pollution problem.

Problem areas/outstanding issuesResults of interviews conducted with a cross section of representatives from government, industry and community, selected on the basis of their historic and current involvement in the MPP, highlighted the following issues:• The focus has been on industrial SO2, which is a good starting point, but there is a need to address other pollutants. No improvement has been noted in terms of visible pollution (i.e. brown haze and poor visibility on bad dispersion days), measured particulate matter and oxides of nitrogen. The eThekwini Municipality is addressing this through the current Air Quality Management Plan (AQMP). • The focus has been on the large companies, which has yielded results in terms of emission reductions, but there now needs to be a shift to smaller companies. This has been recognised and the current AQMP will address this issue.• Fines for non-compliance with respect to emission permits are insufficient and need to be relative to the degree of non- compliance and gross turnover of the company.• There are no noticeable odour reductions and no indication of improvements in Volatile Organic Carbons (VOC’s) and other chemicals, despite activities to reduce VOC emissions.• Vehicular traffic impacts need to be addressed. There is a need for an integrated transport plan which includes pollution

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LIST OF ABBREVIATIONSAPPA ............ Atmospheric Pollution Prevention Act

(Act 45 of 1965)AQA ............. Air Quality Act (see NEMAQA)AQM ............ Air Quality ManagementAQMP .......... Air Quality Management PlanAQMS .......... Air Quality Management SystemBTEX ........... Benzene, Toluene, ethyl-benzene, XyleneCAPCO ........ Chief Air Pollution Control Offi cer CFC’s ........... Chlorofl uorocarbonsH2S ............... Hyrdrogen SulphideCH4 .............. MethaneCO ................ Carbon monoxideCO2 .............. Carbon dioxideCSIR ............. Council for Scientifi c and Industrial ResearchDAEA ........... Department of Agriculture and Environmental ...................... Affairs (KZN)DEAT ........... Department of Environmental Affairs and TourismDME ............. Department of Minerals and EnergyDWAF .......... Department of Water Affairs and ForestryEM................ eThekwini MunicipalityEMP ............. Environment Management PlanEPA ............... Environmental Protection Agency (see USEPA)HFO ............. Heavy fuel oilsIGCC ............ Inter-Governmental Co-ordinating CommitteeKZN ............. KwaZulu-NatalLSF ............... Low Smoke FuelsMPP .............. Multi-Point PlanMRA ............. Merebank Residents Associationm/s ................ metres per secondNEMAQA .... National Environmental Management Air Quality ...................... Act, 2004

NGO ............. Non-Governmental OrganisationNORAD ....... Norwegian Agency for Development CooperationNOx .............. Oxides of nitrogenNO ................ Nitric oxideNO2 .............. Nitrogen dioxideN2O .............. Nitrous oxideO3 ................. OzonePb ................. LeadPM10 ............. Particulate matter with an aerodynamic diameter of

< 10 micronsPM2.5 ............ Particulate matter with an aerodynamic diameter of

< 2.5 micronsppb................ Parts per billionppm .............. Parts per millionSANAS ........ South African National Accreditation ServicesSANS ........... South African National StandardsSBM ............. Single Buoy MooringSCF .............. Stakeholders Consultative ForumSDB .............. South Durban BasinSDBIGCC .... South Durban Basin Inter-Governmental

Co-ordinating CommitteeSDBSCF ....... South Durban Basin Stakeholders Consultative

ForumSO2 ............... Sulphur dioxideSTP ............... Scheduled Trade Permittpa ................. Tons per annumtpd ................ Tons per dayTRS .............. Total reduced sulphursTSP ............... Total Suspended ParticulatesUKZN .......... University of KwaZulu-NatalUSEPA ......... United States Environmental Protection AgencyVOCs ........... Volatile Organic CompoundsWHO ............ World Health Organisationμg/m3 ........... Micrograms per cubic meter


minimization aims as well as affordable, fl exible and effi cient means to move people. This is also being addressed through the AQMP. The country’s rail service needs to be improved to reduce the load.• Although the core scientifi c fi ndings of the Health Study have been accepted, the inclusion of peer review comments is still being debated by industry. Links between industrial pollution and cancer and leukaemia were not investigated and would need to be part of a separate study, which is reportedly underway.• There is a need to improve communication with the community in terms that people can understand. People need an understanding of how the MPP has improved their lives.

Fundamentals of a successful planExperience from the Multi-point Plan has shown that the following are critical to the success of an air quality management plan:• Awareness of the problem.• Scientifi cally valid data to back up complaints and prove there is a problem.

• Political will to tackle the problem.• Action plan on how to address the problem.• Finances need to be available.• Commitment to do the things agreed upon.• Trust between stakeholders.• Dialogue, education and awareness.• Feedback and follow-up to stakeholders and community.• Need to have a central person to drive it (i.e. dedicated project manager).• It’s hard work. You need suitably trained, committed and enthusiastic staff, otherwise the project will lose momentum.• Change will not happen overnight, be patient, but persistent.

The MPP has achieved much since its inception and continues to play a role in reducing pollution levels in South Durban, however there remain a number of outstanding issues, many of which will be addressed in the eThekwini Municipality Air Quality Management Plan (AQMP). The MPP has a lifespan of its own and has provided the platform for the AQMP, which will indicate the way forward.

1. THE SOUTH DURBAN CASE STUDY: INTRODUCTIONThe South Durban Basin (SDB) is a melting pot of heavy industry in close proximity to residential areas. This is a result of poor planning and ad-hoc industrial development, with little consideration for the cumulative effects of air pollution and its associated health effects on the surrounding communities. Exacerbating the problem is the convergence of major traffic routes and geographical factors (meteorology, complex topography) which predispose the area to poor pollution dispersion potential, particularly during winter.

The area is considered to be the economic hub of KwaZulu-Natal (KZN), contributing some 8% of the GDP (Chetty, 2005), with key industries including two oil refineries, a paper and pulp plant, sugar refinery, chemical industries, the busiest port in Africa, an airport and various medium to smaller industry, all within an area of some 100 km2. However, the basin is also the home to some 200 000 people. The siting of communities on the doorstep of industry is a legacy of poor apartheid planning practices dating back to the late 1950’s, 1960’s and 1970’s, when it was considered advantageous to locate working class communities close to the workplace. It is not surprising that this situation has resulted in conflict between industry and

communities, who wish to claim their constitutional right as protected by section 24 of the Constitution of the Republic of South Africa Act No 108 of 1996 (Constitution), which guarantees a clean and healthy environment.

For some time the South Durban Basin was recognised as a pollution “hot-spot”. Pressure from community leaders ultimately led to the announcement by the former Minister of Environmental Affairs, Mr Valli Moosa, of the South Durban Basin Multi-point Plan (SDBMPP) in November 2000. The plan included various measures to improve understanding of the state of air pollution in the area and to improve the air quality. This document takes you through the development and outputs of the SDBMPP, as a case study of air quality management in a pollution “hot spot”.

The geographic setting and meteorological factors that contribute to elevated air pollution concentrations in South Durban are described, followed by a background to the motivation for the Multi-point Plan. The outputs of the Multi-point Plan (MPP) and achievement of goals is assessed, with some detail given to the Health Study and the air quality monitoring network. The status of air quality before and after implementation of the MPP is discussed and an overview of air quality management in South Durban is presented. Lastly, stakeholder opinions of the MPP are provided to give an insight into whether there is a perception that the MPP is working or not, followed by a summary of findings.

Figure 1: View of southern portion of Engen refinery from residential of Austerville, with suburb of Merewent in background and on the right.

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2. AN OVERVIEW OF SOUTH DURBAN 2.1. GEOGRAPHICAL SETTINGThe South Durban Basin (SDB) is an approximate 4 km wide area on the eastern seaboard of South Africa, extending south from the Durban Central Business District (CBD) for 24 km to Umbogintwini. It includes the CBD and Port of Durban, which is the busiest in Africa and the main point of entry for containers into South Africa (Fig. 2). The “basin” is bordered on its seaward side by ancient sand dunes parallel to the coast, attaining a height of some 70 to 110m, and on the landward side by a ridge of hills 100 to 150 m high, which are the start of rising topography extending inland.

Industrial development in the area started in the mid-1950’s, with most industry located on the fl at areas comprising the remnants of the Umlazi, Isipingo and Umbogintwini fl ood plains within the SDB. Development progressed in a haphazard way, with little consideration

for the pollution load into the atmosphere and the combined effects of air pollution. Some 600 industries are reportedly located in South Durban, including two of the countries largest refi neries, viz. Sapref owned jointly by Shell and BP, and Engen owned by Petronas; a paper pulp plant (Mondi), sugar refi nery (Tongaat-Hulett), a sewage treatment works, a cluster of chemicals industries, major petrochemical and chemical storage facilities, textile manufacturing, metal smelting, oil refi ning, breweries, paint industry, motor industry, etc. Many of the smaller industries emit pollutants at low height. The Single Buoy Mooring (SBM) some 1 km offshore of the Bluff is the main point of entry for crude oil into the country.

The oil refi neries, paper producer and sugar refi nery are responsible for 80% of the SO2 pollution load (eThekwini Health and Norwegian Institute for Air Research, 2007). The contribution of ever-increasing vehicular traffi c, exacerbated by a dysfunctional rail service, and shipping to pollution levels cannot be ignored. The SDB is the focal point of many of the city’s major transport routes, e.g. the north-south N2 (which connects to the N3 inland) and M4 highways, South Coast Rd, and the east-west M7 (Edwin Swales Dr, which also connects to the N3), and it is home to an international airport. The airport has been a limiting factor in permissible stack heights. The recent confi rmation of the airport move to a site at La Mercy north of Durban will result in some changes to the SDB.

There are some 200 000 people living in the suburbs of the Bluff (including Bayhead and Island View), Clairwood, Jacobs, Mobeni, Wentworth, Merebank, Merewent, Prospecton, Isipingo, and Lamontville, extending to Athlone Park and Amanzimtoti in the south. Some of the non-white population lived in the area before the arrival of industry, with some trading as market gardeners, while others were settled into small retirement homes in the Merewent area. These communities still remember the forests separating their houses from what was later to become the Engen refi nery. However, many were later (forcibly) settled in suburbs bordering the industrial areas as a result of past racial discriminatory policies by the (then) ruling government, with the backing of the Group Areas Act of 1950. This policy placed communities on the doorstep of industry so that the workforce was close to the workplace.

Figure 2: The South Durban Basin

Figure 3: View of South Durban from Wentworth, showing from left Engen refi nery, in the centre Sapref refi nery, and to the right Mondi.


2.2. METEOROLOGICAL OVERVIEW Winds in the Durban basin blow most frequently from the south-south-west to south-west and north-north-east to north-east in roughly equal proportions (Fig. 5). The north-north-east to north-easterly winds are associated with high atmospheric pressure and fine weather and the south-south-west to south-westerly winds are associated with the passage of coastal low pressure systems and cold fronts and therefore inclement weather. The direction of predominant winds parallel to the coast and the topography results in channeling of pollutants within the basin.

Wind speeds are generally higher during the daytime and north-easterly wind flow is enhanced by seabreezes, particularly during summer. This means that dispersion conditions are generally better during daytime than night time. Wind speeds are also generally higher during the spring months of September to November and lower during autumn to winter (April to June). High levels of pollutants are generally connected to low wind speed conditions in winter at nighttime and early morning. This is because of poor vertical mixing and low horizontal transport out of the source area.

Dispersion conditions deteriorate when there is a temperature inversion. A temperature inversion refers to an increase in air temperature with height (as opposed to a normal decrease as one goes higher). Inversions are more frequent overnight during calm weather periods in winter and are generally strongest in the morning hours. The inversion acts as a “lid”, trapping the pollutants close to the ground, preventing upward movement of air. Combined with low wind speeds, increased ground level pollution concentrations can result. During calms air flow is often reversible, which can result in recirculation of pollutants within the area. Pollution levels can also increase through the transport of pollutants from inland areas down to the coast by north-westerly land breezes at night during winter.

Dispersion conditions are improved during the summer months due to less stable air conditions, higher wind speeds and increased rainfall, which effectively ventilates the area and mixes the pollution to acceptable levels. Annual rainfall is on average 1 009 mm, with most falling in summer. Rainfall removes dust and gasses from the atmosphere. Humidity levels are high in summer, frequently reaching over 100%, while lower levels are recorded during winter, with a minimum of 20%. The higher relative humidity during summer also means that chemical transformations which require water vapour (e.g. conversion of SO2 to sulphate aerosols) are performed more efficiently and therefore airborne pollutants are removed more rapidly than during drier conditions in winter. Air temperature ranges from daily averages of 16.6oC in winter to 24.6oC in summer, with extreme ranges of 3 to 40oC.

Figure 5: Wind rose for Wentworth, Durban, 1999-2003, based on hourly average winds (m/s).

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Figure 4: View from Wentworth westwards over the Jacobs to Mobeni industrial areas

3. MULTI-POINT PLAN “THE STORY”3.1. HISTORICAL BACKGROUNDIndustrial development in the SDB from the mid-1950’s onwards contributed to increased air pollution concentrations in South Durban, peaking in the late 1980’s to early 1990’s. Surrounding communities began to voice their concern about rising pollution levels and their associated health effects. In addition, poor operating practices by industry and lagging reactive legislation put the community at risk as a result of industrial accidents and inadequate emergency plans.

Sulphur dioxide (SO2) is a recognised indicator pollutant as it is associated with industrial fuel burning.Elevated SO2 concentrations are known to cause respiratory problems. The Council for Scientifi c and Industrial Research (CSIR) initiated a country-wide system for measuring SO2 (by means of bubbler instruments) and smoke (using a soiling index) during the 1960’s. In Durban smoke and SO2 data were recorded by the former Durban Municipality at various stations as 48 to 72 hourly averages and initial indications showed the SDB was indeed an area of concern (Bissett, 1995).

A number of initiatives were undertaken to address the air pollution problem dating back to the 1960’s, focusing mainly on SO2. A South Durban SO2 Liaison Committee was established by industry, local authorities and national authorities in the 1960’s (Butler & Hallowes, 2002). By the early 1980’s this became the Wentworth/Merebank

Sulphur Dioxide Committee (Wiley, et al, 1996) and membership was later expanded to those industries emitting more than two tons of SO2

per day.

Community Mobilisation South Durban has one of the longest histories of community mobilizing against urban industrial pollution in South Africa (Wiley, et al, 1996). The Merebank Residents Association (MRA), which formed in 1964, was one of the fi rst organisations in South Africa to take on urban environmental issues raising concerns about industrial expansion and increasing pollution levels in the area. Later the South Durban Environmental Forum (SDEF) formed, which was the precursor to the South Durban Community Environmental Alliance (SDCEA), an environmental justice organisation which formed in 1996, comprising 14 affi liate organisations, among these the MRA, Bluff Ratepayers Association and Wentworth Development Forum. The environmental justice organisation, groundWork, which formed in 1999, has also been an active campaigner for previously disadvantaged communities against pollution in the SDB and has received international recognition for its efforts. As a result of these initiatives community awareness increased and pressure was put on surrounding industry to clean up their act. Industry recognised the need for public awareness and liaison and to this end the African Explosives and Chemical Industries (AECI) in Umbogintwini established the fi rst Community Awareness and Environmental Response (CAER) Committee in SA in 1993, followed by Engen in 1995. The Sapref Community Liaison Forum was only established at a later stage, in 2004, and Tongaat-Hulett Community Liaison Forum in 2006.

Figure 6: A community surrounded by industry


The South Durban SO2 Steering CommitteeThe need for more accurate and continuous SO2 and meteorological data collection in South Durban was identified and to this end the South Durban Sulphur Dioxide Management System Steering Committee was formed in 1994. The Committee included representatives from industry, local authorities, national authorities and the local community, with the community being represented by SDCEA. The industry representatives on the Committee comprised those emitting more than one ton SO2 per day and membership fees were levied according to the amount of SO2 emitted (the polluter pays principle). These fees were used to fund a monitoring network and reporting system and a Section 21 company was formed to manage the funds, assets and the management process.

The function of the Steering Committee was to monitor ambient SO2 concentrations, together with meteorological data, to facilitate management strategies for industrial pollution control in the South Durban region. Sulphur dioxide was used as the indicator pollutant, with the premise that the other pollutants of concern were usually emitted in similar ratios. A monitoring network of four stations was established at Wentworth, Southern Sewage Works, AECI and Athlone Park. Reporting was done on a daily, weekly, monthly and annual basis and quality assured SO2 data was available from 1 July 1996. Dispersion modeling and analysis of pollution incident case studies were accomplished through use of the Hawk model, which predicted

SO2 concentrations and source apportionment based on topography, real-time meteorological data and an updated SO2 emission inventory. The Committee also applied stricter guidelines than those listed in the Air Pollution Prevention Act (1965); which were more closely aligned to the World Health Organisation (WHO) guidelines at the time (refer Table 1). The South Durban monitoring system experienced various name changes since inception, ultimately being named the eThekwini Air Quality Management Association, although the functions and personnel remained essentially the same. The name change came about as a result of the ultimate recognition that there were pollutants other than SO2 in the SDB that were of concern, and as a result, ozone and NOx analysers were added to the array of instruments at the Wentworth station.

The location of some monitors changed over time and a mobile station was acquired to measure SO2 in areas where concern was expressed about pollution levels. This ultimately led to the establishment by the eThekwini Municipality of a monitoring station at Settlers School in October 2000, following frequent complaints about health problems related to air pollution. This station was the first in the SDB to monitor CO, TRS and PM10 continuously, in addition to SO2, NO2, NOx, and NO. The eThekwini Air Quality Management Association was terminated at the end of 2003, when the eThekwini Municipality implemented a new and expanded monitoring network, in terms of the South Durban Basin Multi-Point Plan.

3.2. MOTIVATION AND DEVELOPMENT OF THE MULTI-POINT PLANThe Multi-point Plan came about after relentless efforts by air pollution-affected communities to improve their living environment. There were numerous complaints about odours, chemical leaks, flares, visible emissions and health complaints from the SDB community. Ambient SO2 concentrations in the SDB were also among the highest in South Africa. A series of newspaper articles by Tony Carnie of “The Mercury” highlighted the possible links to higher incidences of cancer and respiratory disease in the area. Further, according to Wiley (1996), a study by Dr B Kistnasamy in 1994 had indicated that

children from a school in Merebank experienced approximately three times more respiratory illnesses than children from a comparable community in Chatsworth.

Although some improvements had been noted in the number of SO2 guideline exceedances with the conversion by some companies from heavy fuel oil (HFO) to electricity and gas for energy during the late 1990’s and early 2000’s, there was still an unacceptable number of exceedances of the SO2 guidelines measured at the Southern Works, Settlers School, and Wentworth monitoring stations. Added to this was the influence of ever-increasing vehicular traffic. At the same time, it was also recognised that the SDB was an important economic

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Table 1: South Durban Steering Committee guidelines for atmospheric SO2 as compared to APPA (1965) and WHO guidelines (ppb).

centre, and that proper planning was needed for industry and communities to co-exist.

It was not only the communities, however, that put pressure on government, the City Health department also recognised the problem and made representation. Things came to a head after a visit by former South African president, Mr Nelson Mandela, and former Deputy Minister of Environment, Mr Bantu Holomisa to Durban was intercepted by the community and attention was drawn to the problem. A report by Dr Timothy Fasheun of the provincial DAEA was submitted to the former provincial Minister of Environment, Mr Narend Singh, who then forwarded it to the former Minister of Environmental Affairs & Tourism Mr Mohammed “Valli” Moosa. It was decided that “the peculiarities and worrying levels of pollution in the south Durban area warranted a singular and co-ordinated approach from government” (Valli Moosa). A Task Team, involving three spheres of government, viz. national, provincial and local government, (Table 2) was set up during May 2000 to address the problem and develop proposals with an action plan, including timeframes. This heralded a fi rst for the regulators, bringing together all three spheres of government to resolve a common issue. The various issues of concern were debated between representatives of government, industry and community and a way forward to addressing the problem was conceived. Subsequent to that “Multi-point Plan” was formulated to

address the air pollution problem in South Durban.

The plan was fi nalised on 24 September 2000 and presented to a forum of industry, Non-Governmental Organisations (NGO’s) and government, after which it was tabled before Cabinet and approved during October 2000. The Multi-point Plan was offi cially announced by Minister Moosa at a workshop between government and key stakeholders on 27 November 2000. Key government representatives present included the Deputy Minister of DEAT, Ms Rejoice Mabudafhasi; Minister of Trade and Industry, Mr Alec Erwin; MEC, Mr Narend Singh; and Durban Mayor, Mr Obed Mlaba. The MPP was recognised as “a sign of government’s determination and commitment and will set a precedent to be followed in the rest of the country” (Mr Mohammed “Valli” Moosa). The MPP acknowledged the historical context, the importance of continued economic development and the need to address critical health issues (Naidoo, et. al, 2007). “Unlike environmental governance during the apartheid era which was characterized by ineffective regulatory policies, top down decision making and high levels of industrial pollution, the Multi-point Plan was founded in a democracy with strong provisions for environmental protection and promoting the health and well-being of people as enshrined in the Constitution and in the national environmental policy framework.” (Message of support: Ms Rejoice Mabudhafasi, deputy minister DEAT).


Table 2: Government departments involved in the MPP.

“The peculiarities and worrying levels of pollution in the south Durban area warranted a singular and co-ordinated approach from government” (Minister Mohammed “Valli” Moosa)

3.3. FUNDAMENTALS OF THE MULTI-POINT PLANThe objective of the MPP Air Quality Management System is: “To manage the pollutant “carrying capacity” of the atmosphere in the South Durban Basin to a level that is conducive to the health and well-being of the people living there” (SDBMPP Information Newsletter No.1, Oct 2002). The lead agent for implementation is the eThekwini Municipality.

3.3.1 GoalsThe aim of the Multi-point Plan is: • To provide an improved and integrated decision making framework for air pollution management at local government level • To move towards a reduction in air pollution to meet health based air quality standards • To achieve an improved quality of life for the local community

3.3.2. Key componentsThe key components of the MPP were discussed at length and experienced some change during deliberation, with the following key components ultimately decided upon: • A health risk assessment • An epidemiological study • Phasing out programme for dirty fuels • Establishment of an Air Quality Management System • Controlling chemical and fugitive emissions • Strengthening the inspectorate auditing and permitting system) • Development of a local legal framework • Reviewing of standards for priority pollutants • Reviewing standards for vehicle emissions

The health risk assessment and epidemiological study were combined into one component and vehicle emission standards were added to the list at a later stage. It was agreed that the implementation of much of the MPP would best be achieved through a structured Air Quality Management Plan (AQMP), which is a requirement for municipalities in terms of the NEMAQA, thus much of the above forms part of the eThekwini Municipality AQMP process, which has been ongoing since 2005.

3.3.3 BenefitsAnticipated benefits of the MPP were listed as follows:• Reduction of air pollution levels to an acceptable standard• Promotion of business competitiveness in the SDB• Demonstrate the effectiveness of multi-stakeholder co-operation in managing complex air pollution problems• Contribution to the overall improvement of the City of Durban, its people and visitors• Serve as an example in helping to resolve similar air pollution problems in other parts of the country

The latter point has been applied in the formulation of this document, which showcases the SDB and MPP as a case study.

3.3.4 Strategic importance of the MPPStrategic factors identified by the Programme Manager are as follows:

• Outcomes will contribute to and inform the development of a National Air Quality Management Programme • Represents a new approach to Air Quality Management in South Africa • A paradigm shift from source based emission command-and- control to integrated ambient air quality management • Meaningful framework to put cleaner production into operation and achieve sustainable development

3.4. PARTICIPANTSA critical component in the implementation of the MPP has been multi-stakeholder involvement. “The MPP represents a significant departure from the planning and implementation processes of the past, one of the key features being the facilitation of multi-stakeholder co-operation, thus ensuring that the concerns of all interest groups are appropriately raised, heard and dealt with” (Newsletter No.2, July 2003). Each element of the MPP has been based on transparent planning to ensure industry and community are democratically involved in the process. This is essential to the challenging task of managing sustainable industrial development in the SDB, while at the same time endeavouring to improve air quality. Thus, government, community and industry are given the opportunity to constructively work together towards a common goal.

Two different panels were established to meet every two months to monitor and discuss progress of the Multi-point Plan. These are:

1. South Durban Basin Inter-governmental Coordinating Committee (SDBIGCC) – this consists of representatives from the three spheres of government, viz. the implementing authority (local government), provincial and national government. The departments listed under Chapter 3.2, Table 2 are all represented on the IGCC.

2. South Durban Basin Stakeholders Consultative Forum (SDBSCF) – this includes representatives from the implementing authority (local government), community (SDCEA), labour, industry and business.

Figure 7: Mr Desmond D’Sa of SDCEA, who has been a campaigner for the community throughout the Multi-point Plan process.

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Meeting sessions facilitate feedback on the MPP and stakeholders are given the opportunity to voice any concerns or criticism of the process, with the overall aim to improve the outcomes of the MPP.

Committed participants of the MPP include:• Local, provincial and national role players• Decision makers• NGO’s representing local communities• Scientifi c community• Polluters• Public• Politicians

Information sharingInformation has been disseminated as follows:

• The Programme Manager has actively met with community and industry stakeholders to promote the plan and ensure stakeholder involvement and participation.

• Various workshops and seminars have been conducted. • Press releases, including the eThekwini Municipality eZingazi

and Metro Beat magazine, South Coast Sun. • Series of SDBMPP Newsletters published by eThekwini

Municipality. • eThekwini Municipality website: http://www.durban.gov.za

and air quality data and reports available on http://www2.nilu.no/airquality

3.5. LEGISLATIVE AND REGULATORY CONTEXT AND FUNDING Government has recognised the fact that the South African constitution stipulates that people have a right to a clean and healthy environment. The Multi-point Plan was addressed in Cabinet Memorandum 34/2000 and submitted on 25 October 2000. It was endorsed by the Cabinet Committee for the Economic Sector on 1 and 8 November 2000. The endorsement and support for the MPP by National government was a fi rst in respect of addressing a problem of this nature. At the SDBIGCC Meeting on 8 February 2001 it was decided to table the MPP as a Memorandum of Agreement, to be signed by all government parties involved. This Memorandum committed the relevant government departments to a programme of action and funding to reduce air pollution to acceptable levels in the

SDB. The responsibilities of each government department were laid out and a business plan was compiled to see the project through.

A total projected budget of R23.5 million was initially estimated, with a 50% contribution from industry, and the balance to come from government and sourced funding. This was later increased to R29.8 million, with R10 million to be funded by industry, based on the polluter pays principle (i.e. in proportion to the volume of priority pollutants emitted), and R17.7 million from the three spheres of government, the balance to be from sourced funding. Norwegian Agency for Development Cooperation (NORAD) funding was obtained and channeled through DEAT. In addition, the eThekwini Municipality budget for monitoring activities is R4 million per annum (Chetty, 2004).


View westward from the southern Bluff across houses of Merewent in the foreground to Mondi and southern extent of the Southern Sewage Works.

“The experience of the Multi-point Plan has shown that only a multi-stakeholder approach underpinned by good science and policy will bring about meaningful change.” (Cllr Nomvusa Shabala, opening address: Seminar on AQMP for eThekwini Municipality, May 2007).

4. MPP PROGRESS ON COMPONENTSThe MPP has become a leader in the approach to air pollution management through the achievement of the components as follows:

4.1. HEALTH RISK ASSESSMENT AND EPIDEMIOLOGICAL STUDYThe components of the health risk assessment and epidemiological study were closely integrated and it was decided to combine them. A tender of R7 million was awarded to the UKZN Centre for Occupational Health and Hygiene and University of Michigan on 28 May 2003*, with funding obtained from the eThekwini Municipality, KZN Provincial Department of Health and National Department of Environmental Affairs and Tourism. The two main objectives of the study were:

1. Epidemiological study – to scientifically determine whether people in the SDB were exposed to levels of pollution that is adverse to their health and well being. This was achieved by determining the health status of residents, with specific reference to respiratory health and chronic diseases, and to determine the relationship between pollution, health and quality of life within the South Durban communities, particularly among susceptible populations.

2. Health Risk Assessment (HRA) – to use data generated by the Air Quality Management System to describe the range of ambient exposure and to determine which population groups were more vulnerable by undertaking exposure studies to assess the potential risks to their health.

* The study was conducted from May 2004 to February 2005 and results were published in February 2007. Principal authors were Professors R Naidoo, N Gqaleni, S Baterman and T Robins, supported by a research team of a further 20 participants from the UKZN Centre for Occupational Health and Hygiene, University of Michigan Department of Environmental Health Services, Durban Institute of Technology (DIT) Department of Environmental Health Sciences and the National Institute for Occupational Health.

4.1.1 Study approachThe official Health Study was preceded by a health study at Settlers School conducted in 2002, which indicated a 52% occurrence of asthma in children at the school, with 26% persistent cases (Seetharam & Jeena, 2002). This exceeds the average of 14 to 16% in Europe and was cause for concern. The focus of the Health Study was on respiratory health, as methodologies for determining the relationship between respiratory outcomes and air pollution are well established and validated and there tends to be a higher incidence of respiratory diseases in low to middle class communities. Ambient and indoor exposure monitoring was conducted in comparable communities in the north and south of Durban and comparison was made to air quality monitoring data and meteorological data from

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Settler’s School children, Lakhimpur Rd, Merewent.

the MPP monitoring sites and meteorological data measured at the Durban International Airport.

Key research questions were: • How often do primary school students members have respiratory

health problems? • Do outdoor air pollutants affect the lung function of the students? • Do those students with asthma suffer more from air pollution? • How often do primary school students report other doctor-

diagnosed illnesses or symptoms of such illnesses?

Participants were selected from • Four schools in south Durban: Assegai (Wentworth/Austerville),

Nizam (Merebank), Dirkie Uys (Bluff) and Entuthukweni (Lamontwille), and

• Three schools in north Durban: Briardale (Newlands West), Ferndale (Newlands East) and Ngazana (KwaMashu).

Each child underwent baseline assessments, genetic profi ling and allergen testing and interviews were conducted with the child, the child’s caregiver, head of the household and adult interviews. A total of 423 pupils were assessed, divided up into:

• All pupils from one or two Grade 4 classes (342 pupils) • Persistent asthmatics from Grade 3 to 5 classes (81 pupils)

The study consisted of four intensive 3-week phases where air pollutant exposures were monitored either continuously or integrated over 24-hour periods, with simultaneous bihourly assessment of students while at school. The four study periods were scheduled to ensure seasonal variability was accounted for. The bi-hourly assessments consisted of lung function tests, including peak expiratory fl ow and forced expiratory volume in one second using digital handheld peak fl ow meters. A symptom and activity log was also completed for the preceding one and-a-half hour period.

Further elements of the study included indoor pollution measurements at 140 homes drawn from 7 communities and biological monitoring of lead and manganese in blood drawn from 400 children. The indoor home environment was assessed by a walk-through inspection and monitoring.

4.1.2 FindingsA summary of key fi ndings of the health and epidemiological study is detailed below:

• Moderate ambient concentrations of NO2, NO, PM10 and SO2 were strongly and signifi cantly associated with reduced lung function among children with persistent asthma.

• A modest increase in air pollution adversely affected pulmonary function of sensitive subpopulations.

• Attending primary school in South Durban as compared to schools in the north of the city was signifi cantly associated with an increased risk for persistent asthma and for marked airway hyper-reactivity.

• Asthma is by far the most common chronic disease reported amongst children in the study. Asthma prevalence or prevalence markers are at the high end of the range internationally,

particularly for the population in the south.

• The prevalence of respiratory ill-health at Settlers School was much higher than at the South Durban schools sampled in the health study. Intensive interventions and control strategies should be applied, e.g. emission reductions at nearby industrial sources, shelter indoors in appropriately fi ltered environment.

• Adults residing in south Durban were signifi cantly associated with hayfever, and marginally associated with chronic bronchitis, wheezing, shortness of breath, and hypertension.

• Assessment of residential and school environments showed that indoor combustion sources, in particular paraffi n stoves, create excessive levels of CO, PM and VOCs, and the potential for serious adverse health effects.

The study fi ndings provided evidence that current levels of air pollutants are causing acute adverse effects among susceptible children who constitute a signifi cant fraction of all exposed children. The fi ndings suggest that industrial pollution is having a negative impact on the respiratory health of these schoolchildren.

The Health Study was completed in July 2006 and was subject to a peer review process. A fi nal report was produced in February 2007, but the inclusion of the peer review comments to the main report are still being debated by industry, although the core scientifi c fi ndings have been accepted. The Health Study concentrated on the links to respiratory health. The Health Study could not show whether industrial pollution causes leukaemia and cancer and did not address the incidence of leukaemia and cancer in South Durban, although substantial levels of several carcinogens were found in the ambient air and the estimated lifetime cancer risk at three sites sampled was well above guideline levels. It was recommended that measures to reduce emissions of carcinogens appeared warranted and recognised that a separate study including cancer registries and large comparative databases was required. This study is reportedly currently underway (S Chetty, pers. comm.).

4.2. Phasing out of dirty fuelsThe combustion of dirty and high sulphur fuels results in the emission of high volumes of particulates and SO2, along with NOx, un-burnt hydrocarbons, particulates and CO. Low grade coal is abundant and cheaply available in South Africa. Use of cleaner fuels, such as methane gas, low sulphur fossil fuels, and bio-fuels and the adoption of newer, cleaner production methods and technology will contribute to a reduction in ambient pollution levels. It was recognised that consultation with relevant industry was required in order to achieve this objective and in order to do this, the dirty fuel users fi rst need to be identifi ed and then technology options discussed and socio-economic benefi ts evaluated.

Process steps to phase out dirty fuels have been listed by the Programme Manager as:

• Consultation phase - information gathering, who is using dirty fuels in SDB?

• Assess pollution potential • What measures will reduce pollution? • Prioriatisation of measures


Settler’s School children, Lakhimpur Rd, Merewent.

• Identification of alternative technologies • Identification of incentive programmes • Government to provide information package • Industry to develop Programme of Action with milestones • Government to examine plans and approve/disapprove • Implementation to be overseen by IGCC • AQMS to measure effectiveness

The time frame for the phasing out of dirty fuels is not clear and it requires more focus. There is a need to measure impacts of dirty fuels. This initiative falls under the current responsibility of the Department of Minerals and Energy (DME) and is being addressed at a national level.

4.3. ESTABLISHMENT OF AN AIR QUALITY MANAGEMENT SYSTEM (AQMS)An Air Quality Management System is required for understanding and estimating the contributions to the different sources to air quality. The AQMS connects emissions through dispersion to air quality and measurements of air quality to exposure and effects. An AQMS typically requires an air quality monitoring network, including meteorological monitoring, emission inventories, dispersion modeling, exposure modeling and assessment of health effects.

4.3.1 Functions of the AQMS • Measured and modeled data is used to pinpoint sources and link pollution to the emitter. It shows the linkages between emissions and ambient concentrations and indicates which sources are contributing and the extent to which these sources are making an impact.

• The AQMS can be used as a planning tool to manage air quality. • The AQMS can be used to predict the effects of new

developments on ambient air quality, i.e., the cumulative impact. It can be used to determine if the receiving environment can assimilate the extra load, or if changes are needed (stricter limits for all, or just the new entries) to accommodate the development.

• Using measured and modeled data the AQMS can be used to

analyse pollutant trends over time and monitor whether interventions to reduce air pollution are effective or not.

• The AQMS provides the necessary background information

required for the eThekwini Air Quality Management Plan.

4.3.2 The monitoring system An expanded air monitoring network was proposed to provide air quality information to support decision-making. The main objective of the network is to provide a quantitative measure of air quality, measure compliance with air quality standards and provide a means of verification and input for dispersion models (eThekwini Health Dept, 2004). This has been the most significant output of the MPP. To this end a R9 million contract was awarded. The network was set up by consultants in 2003, who worked closely with the Municipality and industry to assist in capacity building and technology transfer. The Municipality assumed complete control of the monitoring system by

October 2004 and running costs are budgeted at R4 million p.a. The monitoring system consists of the following:

• The establishment of 14 monitoring stations (Fig. 8) representative of different areas within the SDB for measurement of continuous air pollutant and meteorological data. Pollutant monitoring was expanded from the original emphasis on SO2 to include NOx, NO and NO2, PM10, O3, CO and TRS. The historic bubbler network was maintained for trend reviews and to get a better geographical overview.

• Instrumentation at each monitoring station is subject to standard quality control procedures, e.g. maintenance and calibration, data verification. Data is quality checked at the technical and logical level.

• Continuous data, recorded as 5-minute averages, is collected and stored at each station and transmitted via diginet links to a base station in the eThekwini Health Department. Selected data is available in real-time on the internet. Computer software allows for calculation of 10-minute, hourly and daily averages for comparison to the various guideline values.

• Weekly reports are compiled by eThekwini Health staff and distributed to stakeholders, and all data and reports are available on a website. Annual reports are also compiled in-house and made available to stakeholders.

• The data is stored and linked to a GIS based air quality management tool called the AirQUIS (Air Quality Information System). The system contains modules for measurements of air quality and meteorology and models for calculating windfields, concentrations and exposure. The system includes industrial, mobile sources as well as area sources. The model is capable of modeling historic and current scenarios, the effects of changes, as well as forecasting.

• Emissions of SO2 are well mapped in the SDB and mainly connected to the large industries. There are, however, small and medium sized industries that are emitting and which are not included in the inventory. The model is evaluated for SO2. and can be used for the evaluation of impacts from SO2 sources.

• Work on establishing a NOx emission inventory has begun, but needs refining. Emissions of NOx are related to traffic and industry.

• Emissions of VOC’s are connected to the refineries, storage of VOC and use in transport. The VOC emissions are partly mapped, but further work is still required.

• VOC monitoring: Benzene monitoring in priority areas was added to the AQMS and is covered in Chapter 4.4.

• An H2S survey was undertaken in the Merebank area in 2004 to determine odour sources.

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Figure 8: Location of MPP air quality monitoring stations (supplied by eThekwini Municipality)

Figure 9: MPP air quality monitoring station at City Hall

4.4. CONTROLLING CHEMICAL AND FUGITIVE EMISSIONSThe aims were to investigate the status of volatile emissions, to improve the measurement of fugitive emissions and to develop guidelines for reducing emissions. To this end it was fi rst necessary to identify the spatial distribution of VOC concentrations in the form of benzene, ethyl benzene, toluene and xylene (BTEX). The key elements of this strategy, as listed in the eThekwini Municipality AQMP (2007), involved:

• Identifi cation of key source contributors to VOC emissions • The specifi c focus on VOCs was limited to benzene, toluene,

ethyl benzene and xylene (BTEX) as these compounds are priority toxics and have established guideline values• Establishing areas where concentrations are likely to be high • Undertaking of a VOC screening study• Identifi cation of major VOC sources in the South Durban Area• Planning for a BTEX passive sampling study • Deployment of regular BTEX sampling programme • Capacity building and information exchange• Special modifi cations to the permitting process

Vapour recovery systems have been installed by Island View operators (e.g. Total and Shell) to control VOC emissions, while both refi neries report large reductions in VOC emissions.

Figure 10: Results of BTEX Screening Study, Total BTEX concentration, August 2003 (after Shongwe, 2007)


Benzene monitoring: A BTEX monitoring programme was initiated. The time resolution of the data is weekly averages, therefore the sources of benzene are not easily identified (owing to wind variations within a weekly period). The health effects of benzene are chronic or long term, therefore the long term average is used to quantify the problem. No level of exposure of benzene is safe but target limits have been put forward by the WHO. Measurements in the SDB show that the annual averages of benzene for 2004 and 2005 were below the WHO guideline of 10 μg/m3 at all monitoring sites, although most sites were above the WHO target of 5 μg/m3 for the year 2010. Highest concentrations were recorded at the Settlers School station and the eThekwini Municipality plans to add a continuous BTEX analyser to the station by the end of 2007.

4.5. STRENGTHENING THE INSPECTORATE The aim was to improve co-operation between the City Health Department and DEAT so that the enforcement of air quality legislation and guidelines would be strengthened. Providing enforcement means:

• Providing the legal framework with possibilities for prosecution (refer 4.6)

• Providing guidelines for good air quality (refer 5.7) • Providing local-national goals with time limits • Providing guidance for new emissions

This has been achieved through the improvement of the auditing

and permitting system for scheduled trade permits (STP’s). NORAD funding was obtained and collaboration was established with NILU. A great amount of work has been put into this aspect and the inspectorate department has been strengthened. An improved IT system has also been implemented. The permitting approach is working well, so much so that the eThekwini permitting system is the strongest in the country. Emission standards are set and are subject to continuous improvement, and the use of best available technology and cleaner production methods has been encouraged. An Environmental Management System (EMS) and action plans are requested from industry. There has been a reduction in emissions due to the permitting system. STP’s are issued for five-year periods, with a number of reporting requirements, e.g. annual stack monitoring and in-line stack monitors at some industry, which has improved the quantification of emissions, annual reporting and compliance. This work has also provided information on new emissions, e.g. BTEX, H2S.

4.6. DEVELOPMENT OF A LOCAL LEGAL FRAMEWORK Section 11 (2) of the AQA allows for the establishment of stricter air quality standards for the municipality or any part of the municipality. At this stage the existing ambient air quality guidelines for the criteria pollutants SO2, NO2, Pb, O3, CO, benzene and particulates, as per Schedule 2 of the AQA are adopted and will be enforced. Industry scheduled trade permits were extended to the eThekwini Municipality in October 2005. In terms of the Atmospheric Pollution Prevention Act No.45 of 1965 provision was made under Sections 18 and 20

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Close proximity of Mondi to houses at Merewent west.

Table 3: Limit values for criteria pollutants (SANS 1929).


for local smoke control regulations and smoke control zones, respectively, which includes regulations on fuel burning appliances. While atmospheric pollution by fumes emitted from vehicles was not regarded as a priority in the past, it is being reconsidered and by-laws are in the process of being updated. The CSIR was requested by the eThekwini Municipality to investigate national and international best practices in air pollution management to be used for the development of local by-laws for air pollution management.

4.7. REVIEWING OF STANDARDS FOR PRIORITY POLLUTANTS On a national level this falls under the current responsibility of

DEAT. New South African standards for criteria pollutants SO2, NO2, Pb, O3, CO, benzene and particulates are based on WHO guidelines. These standards are currently being revised. In terms of the Air Quality Act, however, stricter targets or standards may be applied within a Municipality if deemed necessary. If an exceedence occurs, all sources need to be addressed to bring ambient air quality levels to within guidelines or standards.

The limit values for priority pollutants released by DEAT for comment in June 2006 are displayed in Table 3. Target values for PM10, O3 and Pb as set out in SANS 1929 (2005) are shownin Table 4.

Table 4: Target values (SANS 1929).

4.8. REVIEWING STANDARDS FOR VEHICLE EMISSIONS It is not only industry that contributes to air pollution, but also vehicle emissions, in particular poorly maintained diesel vehicles. A combination of increased container traffic through Durban harbour and failure of the national railway system to deliver an efficient service has contributed to a sharp increase in heavy duty truck traffic in the SDB. Increased population has also led to increased vehicular traffic, whether bus, mini-bus or car. Many of the vehicles are old and/or poorly maintained. On a national level, standards have been set to reduce lead and sulphur content of petrol, and a national strategy for controlling tail pipe emissions is to be adopted to conform to European standards over a 10-year period. Lead in petrol was phased out at the beginning of 2006. One of the goals of the MPP was to set vehicle tail pipe emissions standards. A system of controlling tail pipe emissions, such as the diesel vehicle emission testing in Cape Town, needs to be introduced into the by-laws and adopted. On a national scale, the proportion of cars fitted with catalytic converters needs to be increased and emission standards that are visible, realistic, measurable and enforceable need to be set. The reviewing of standards for vehicle emissions is a national responsibility, falling under DEAT, and progress is currently underway.

4.9. DEVELOPMENT OF AN AIR QUALITY MANAGEMENT PLAN The need for an AQMP was recognised by the MPP and it is further a requirement of Sections 15 to 17 of the AQA. This process is being undertaken in parallel with the MPP by the eThekwini Health Department and NILU, with input from stakeholders. Funding for the development of the AQMP was obtained from NORAD, the Danish International Development Agency (Danida) Urban Environmental Management (UEM) Programme and the eThekwini Municipality. The implementation of the MPP over the last five years has been used as the institutional and technical platform to enable all the essential process steps for the AQMP to be documented and undertaken. “The AQMP is a guiding document and the master plan is a prescription for action which must get implemented to bring about a change in the air quality status. The outcome of the AQMP will be incorporated into the IDP such that it has the political and financial endorsement for implementation” (AQMP for eThekwini Municipality, 2007).

The process of engaging stakeholders began in November 2005 after which a framework AQMP was compiled. A series of seminars and workshops were held with stakeholders during the week of 7th to 10th May 2007 to discuss the AQMP and a draft AQMP has been compiled. The AQMP is to be treated as a live document and will be reviewed every five years.

Phase 1: The following thematic issues were selected for incorporation into the AQMP, based on results of the AQMS, health studies and public complaints.

• Solve the SO2 problem in the SDB • Quantify and understand the BTEX and VOC problem • Characterise the sources contributing towards PM10

• Establish the point and non-point sources contributing towards odour nuisance

• Determine the pollution impact of flaring from refineries • Establish the pollution impact from the Jacobs industrial complex • Establish the extent of indoor air pollution in informal settlements

using fossil fuels (paraffin, wood and coal) • Traffic emissions were included as an eighth theme following

concerns raised at the workshop in May 2007

Phase 2 is intended to generate an elaborate plan, with source apportionment, development of control options, cost benefit analysis and prioritised actions. Phase 3 is to integrate the AQMP into an action Plan. Through a system of target setting, measurements and reporting, it is intended to drive down pollution levels within the framework of an environmental management system and continuous improvement approach (eThekwini AQMP, 2007).

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View of Engen from houses at Austerville.

5. STATUS OF AIR QUALITY IN SOUTH DURBAN 5.1. SOURCESThe following sources are the major contributors to atmospheric pollution in the South Durban basin: • Industry • Transport • Domestic fuel burning • Biomass burning, including sugar cane, plantation management, fi re breaks, uncontrolled fi res (which often coincide with poor air dispersion in winter months) • Pollutants transported via regional air movements (e.g. from the interior of the country).

5.2. SUMMARY OF OUTPUTS FROM THE MONITORING SYSTEM• The monitoring system has resulted in improved knowledge for a wider range of pollutants, e.g. in addition to an improved spatial distribution of SO2, there is now information on other criteria pollutants. Key fi ndings are that:

1. The major sources of NO2 pollution in South Durban are traffi c and industry.

2. The annual guideline value for NO2 of 21.0 ppb has been exceeded at the Warwick and Ganges stations for all years (2004 to 2006) and at the City Hall station for 2004. These stations are all representative of vehicular traffi c. Exceedances of the one-hour NO2 guideline of 106 ppb have fl uctuated from 40 in 2004, to 13 in 2005 to 84 in 2006.

3. PM10 concentrations are a function of local and background infl uences, with the main local infl uences being traffi c and industry, and background infl uences being regional biomass burning, dust and salt.

4. Annual average PM10 concentrations at all stations were below the annual limit value of 40 μg/m3 during 2006, however the limit was exceeded at the Ganges station during 2004 and 2005. The Ganges station is indicative of suburban traffi c, being located near the southern freeway. Exceedances of the daily average limit of 75 μg/m3 have been recorded at all fi ve stations where PM10 is monitored, with 123 for 2004, 81 for 2005 and 74 for 2006, indicating an overall reduction over the past three years (Table 5).

5. Southern Waste Water Treatment Works and Mondi were the major sources of TRS in Merebank.


Table 5: PM10 annual averages and exceedances for 2004 to 2006 (after eThekwini Air Quality Monitoring Network Annual Reports: 2005 and 2006)

• The bubbler ne�WHO and DEAT SO2 annual guideline (Fig. 11). The downward trend in annual average SO2 concentrations demonstrates the historical levels and the improvement since SO2 emission reductions were implemented by major industry starting from the late 1990’s.

Figure 11: Trends in annual average SO2 from eThekwini bubbler stations

• The hot spot stations in terms of SO2 are Southern Works, Wentworth and Settlers, located in the vicinity of the refineries and Mondi. Long-term comparisons of SO2 annual averages and exceedances are also possible with continuous data from the old network for these stations. This can be used to gauge whether interventions are improving air quality in terms of measured concentrations. A general decrease in annual average SO2 (refer Fig. 12) is observable. However, while annual average SO2 is currently below the annual guideline (19 ppb) at all measurement stations (Figs 11 & 12), there are still guideline exceedances over the shorter term (Figs 13 & 14).

Figure 12: Trends in annual average SO2 from continuous monitoring stations

Note that the Southern Works station has moved to three different locations within the complex, SSW1: 1997-Apr 1998, SSW2: Apr 1998-Dec 2003, SSW3: 2004-present. The average for 1998 is calculated on a proportional average.

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The Southern Works Station is positioned to determine maximum ground level concentrations and worst case emissions from Sapref and Mondi. Exceedances of the SO2 guideline are therefore expected at this site due its close proximity to the industry and the fact that it is directly downwind from the industry during predominant SSW to south-westerly winds. The Settlers School Station is positioned to the south-west of the Engen refi nery and

was intended to determine maximum ground level concentrations when NNE to north-easterly winds prevail. The station is also north-east of Sapref and Mondi, and the Southern Sewage Works. The Wentworth station is situated north-east of Engen and west of the Jacobs industrial area at an elevation of 78 m, and tends to measure elevated SO2 concentrations during poor dispersion conditions in winter.


Figure 13: Exceedances of the 24-hour SO2 guideline (48 ppb), 1997-2006.

Figure 14: Exceedances of the 10-minute average SO2 guideline (191 ppb), 2002-2006.

5.3. EMISSION REDUCTION STRATEGIESA reported overall 40% reduction in SO2 emissions has been achieved (Chetty, 2005). Various strategies such as fuel switching and control technologies have been instituted in order to reduce air pollution. Among these are:

• Installation of a R60 million SO2 scrubber at Mondi has reduced their SO2 emissions by 50% and removed particulate matter from the coal combusted flue gas stream. This has been a major step forward in reducing SO2 exceedances at Southern Works. In addition, low sulphur HFO is used in the oil fired standby boilers. However, attention needs to be given to reducing downtime on the scrubber and use of a reliable backup or switch to gas instead of coal. Bag filters have reduced emissions of particulate matter.

• Replacement of high sulphur heavy fuel oil with gas at both refineries.

• The Engen Environmental Improvement Programme, an agreement between Engen and SDCEA started in 1998, and has resulted in a 65% reduction in SO2 emissions (permit was reduced from 72 tpd to 25 tpd), 70% reduction in particulate matter emissions and major reductions in VOC emissions, NOx emissions and flaring. An abatement plan for reducing the exceedances at the Settlers station has been submitted, but the effects of the different abatements still need to be quantified.

• Sapref had a programme for a number of reduction measured over time and these had in fact started before the MPP, e.g. the SCOT unit. The Sapref SO2 emissions permit was reduced from 50 tpd up to 2003 to 20 tpd from 2004 onwards, however actual emissions have reduced from 52 tpd in 1995 to 11 tpd in 2006, representing a 79% reduction. Monitoring has shown that everyday operations do not result in 10-minute average SO2 exceedances. However, NOx emissions have increased by 48% since 2000, from 863 tpa to 1300 tpa in 2006. Low NOx burners are specified for new installations. VOC emissions from the plant have decreased by 47% since 1999 (www.sapref.com/initiatives).

• Conversion of many small to medium industries from coal fired boilers to electricity, Sasol gas or electrode boilers or use of low sulphur coal and heavy furnace oil (HFO).

• H2S reductions from Southern Sewage Waste Water Treatment Works and Mondi

• Initiatives to reduce VOC emissions have been undertaken by industry such as the refineries and Island View, e.g., double seals on floating roof tanks.

• Tongaat-Hulett had used coal with no SO2 emission abatement technology. Improvements started in 2000 through the use of lower sulphur coal (1.2%), which reduced SO2 emissions by 20%. A change in management has since given environmental issues priority. A R4 million upgrade of the boilers was undertaken in 2005 and improved scrubbers have

been installed to remove SO2 and particulate matter from the coal combusted flue gas stream. SO2 emissions have reduced from 7 tons/day to 2-3 tons/day. Full implementation is anticipated to be achieved in the year 2008/9 (Chetty, 2006).

• The remaining challenge is to target the small to medium users of coal and heavy fuel oil, particularly in the Jacobs-Mobeni area to reduce emissions. This could result in setting a tighter fuel standard for sulphur content, flue gas desulphurization or some other measure.

6. AWARDS The Multi-point Plan has received a number of achievement awards, among these

• First prize in the Most Improved Category of the Mail & Guardian’s Greening the Future Awards for the achievement in multi-stakeholder relations.

• First prize for the most sustainable environmental health project in SA, conferred on the eThekwini Health Department at the 8th World Congress on Environmental Health, Durban 2004. • Best teamwork in the eThekwini Municipality’s City Stars Competition was awarded to the core team working on the air quality management system for their teamwork, leadership and passion.

• International air quality experts from Europe and USA have given recognition of the state-of-the-art monitoring, data acquisition and reporting capabilities of the AQMS.

7. STAKEHOLDER OPINIONSInterviews were conducted with a cross-section of stakeholders that have been involved in the Multi-point Plan so that different impressions of the MPP could be assessed. To this end, interviews were conducted with representatives from National, Provincial and Local Government, industry and representative non-governmental organisations (NGO’s). A list of participants is contained in Appendix 1. In addition, it was decided to conduct a small snap survey among Merewent residents to gauge the general community (those not necessarily affiliated to any organisations) awareness and their opinion of the MPP.

7.1. SUMMARY OF GOVERNMENT, INDUSTRY AND NGO RESPONSES

7.1.1 Has there been an improvement in air quality since implementation of the MPP?All respondents felt that there had been general improvement in terms

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of SO2, however the following issues were raised:

• Emission reductions in some of the larger industries had already begun prior to implementation of the MPP. Improvements have happened in spite of the MPP, not because of it. Big reductions associated with the large emitters have also come post MPP (Y2000 onwards) and reductions are ongoing.

• The focus has been on industrial SO2 – what about other sources and other gases and chemicals which may be more toxic or have greater health effects? There is a need to monitor dioxins.

• The focus has been on big industry, which is a good starting point and improvements have been made, however there is a need to shift to other industry. This has been recognised and the current AQMP will focus on smaller industry.

• Visible pollution is still the same because issues such as biomass burning and regional infl uences have not been addressed. Tyre burning remains an issue. The eThekwini Municipality is engaging on the matter through the AQMP.

• There are no noticeable odour reductions and no indication of improvements in VOC’s and other chemicals (despite attempts to reduce VOC emissions).

• There has been an increase in vehicle traffi c and diesel emissions. Vehicular traffi c impacts have not been suffi ciently addressed. This is also being addressed through the AQMP.

• Reporting in terms of annual average trends is not always a true refl ection of what is actually taking place. 10-minute SO2, hourly and daily trends are, however, available in the weekly reports, but require interpretation.

7.1.2 Are the authorities committed to improving air quality?Most respondents thought in general there was commitment, especially local commitment. Issues raised include:

• While there may be individual commitment, this may sometimes be compromised within an organisation.

• Roles and responsibilities of different spheres of government are not always clear there is sometimes overlap and there are gaps at Provincial level.

• There is not enough capacitated staff, and there is a need for skills and the right attitude.

• There is still reluctance from senior political leaders to unsettle investors and Government considers development as more important than pollution issues.

• There is the perception that authorities are committed as long as corrective measures apply to industry, however if they have to apply corrective action themselves there is a lack of commitment, e.g. sewage works and addressing vehicle emissions. works and addressing vehicle emissions.


Sapref flare stacks.

Figure 15: Response rating of different stakeholder groups to whether industry is committed to improving air quality.

7.1.3 Is industry committed to improving air quality? The results shown in Figure 15 not surprisingly show that industry’s perception of their performance differs from the other main stakeholder groups, with representatives from major industry believing that they are showing commitment, whilst the opinion of government and NGO’s is not as strongly in favour. Overall, over 50% of respondents felt that industry was showing some commitment (Fig. 16). However, there was general consensus that the focus thus far has been on larger industry, while smaller industries have been ignored and are carrying on as business as usual; it’s a matter of what they can get away with. However, the cumulative impacts

of a large number of smaller industry can outweigh the impacts of larger industry. Big industry has been driven more by international pressure than local authority pressure, and has the resources to implement improved measures. There was general consensus among representatives from government and community that industry will only make improvements if pushed to and will not invest wilfully, the environment is usually only considered last. Even when there is commitment, it needs to be transferred into action, and it’s a long road to solutions (Chetty, pers. comm.). Change will not happen overnight. Improvements are often tied in with upgrades to increase production, i.e. are financially driven, and according to their own timeframes and economic imperatives.

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View from Wentworth reservoir westward to Jacobs and Mobeni east.

Figure 16: Overall stakeholder opinion of whether industry is committed to improving air quality in South Durban

7.1.4 Is there transparency with regard to access to information?While sectors from the government and industry felt that there was suffi cient transparency with regard to access to information, the NGO’s felt that this was not always the case (Fig. 17), and it depended on what detail of information was required. Problem areas include the following:

• There is no response from City Health if monitoring results queried.

• Community representatives felt that website results are insuffi cient to inform, and there is a need for more interpretation at community level.

• Information under the old SO2 committee was more available, and there was monthly interpretation of data, which is lacking under the present system

• Data quality control checks arouse suspicion.

• Dispersion modelling has still not been effectively and effi ciently implemented.

• The Chemical Industry is still hiding behind the National Keypoints Act No. 102 of 1980.

Figure 17: Response rating of different stakeholder groups to whether there is transparent access to information.


7.1.5 Is there suffi cient feedback of information?It was generally felt that the data monitoring system was running well and “Having the data has meant so much” (Dixon Lowe, Sapref, pers. comm.). But some felt there could be more mileage gained from the data. While there is feedback to government, industry and NGO’s through the Inter Governmental Co-ordinating Committee (IGCC) and Stakeholders Consultative Forum (SCF) meetings, there is a lack of feedback to the community at large. Initially there was feedback of information,

but there have been no quarterly feedback meetings over the past two years. There is a need for more accessible venues to give feedback to the community and NGO’s would like to see other staff (apart from the programme manager) coming into the area and interacting with the community, to explain what they are doing and progress made. There has been a series of multi stakeholder engagements as part of the AQMP development process, the most recent of which has been May 2007, during which a number of presentations were made on the various air quality initiatives being undertaken by the Municipality.

View from Wentworth reservoir westward to Jacobs and Mobeni east.

“Having the data has meant so much”

(Dixon Lowe, Sapref)

7.1.6 Other issues raised from the interviews

• The model is not yet an accessible hands-on tool available to Municipality staff that need to act on air pollution complaints, and to industry. Although it can ultimately be accessed, it is not available readily.

• Authorities are still looking at point sources and monitoring station results, but there is no data or modeling where the community is. The placement of monitoring stations also needs to be reviewed (i.e. investigate residential areas). There is a need for another monitoring station, possibly at Nizam school.

• The Health Study was not conclusive, and incomplete because it did not include peer review. Possible links to cancer and leukaemia were not included (refer Section 4.1.2).

• Fines for non-compliance with respect to permits are insufficient in relation to gross turnover, and need to be relative to the degree of non-compliance. It is better to provide incentives for improvement and rather invest to solve problems.

• The implementing authority should be introducing more students and links to academics – there is a need to integrate with scientific literature.

• There is a need for a free clinic, open 7-days a week, to residents seeking medical attention for air pollution-related health

problems. This should be funded by industry, as they are causing the problems.

7.2. RESULTS FROM SNAP SURVEY IN MEREWENTA snap survey was conducted in the Merewent area to gain an indication of community awareness of the Multi-point plan and opinions thereof. The survey was conducted on one day along Lakhimpur Road, although some respondents also resided in nearby roads and a total of 19 residents were interviewed ranging in age from 16 to 66. The survey was not exhaustive and was conducted with the intent of getting an initial indication of how the affected community feels about the air they breathe.The results are presented in Figure 18. Of those interviewed, only 42% had heard of the Multi-point Plan, but when asked to name any aspects of it, only 50% actually knew something about it, which suggests more information sharing is required. Only 21% of respondents felt that air quality had improved since 2000 and most (68%) felt that industry wasn’t committed to improving air quality.

Complaints/emergency responseAlthough this was not an output of the Multi-point Plan, stakeholders and the community were asked for their opinions on the capabilities of the emergency response and complaints line operated by the municipality. There was general agreement that there was a need for additional staff training and that air pollution complaints should be separated from emergency calls. A dedicated toll-free 24-hour line should be set up. Concern was expressed about a lack of follow-up and feedback to complainants.

Figure 18: Community awareness of the MPP and opinions

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Key comments from the community• Smells and fl ares aren’t as bad anymore.• Amount of asthma is increasing.• Oil/diesel/paraffi n smells during late nights and early mornings – this was noticed by residents closer to Engen. Oily deposits on clothes, plants and vehicles.• Industry has interviewed them in the past, but there has never been any follow-up.• What evacuation plan is there for people without vehicles? There were concerns expressed about safety in the event of an accident.• Response time to air pollution complaints is too long, but faster than the police!• Don’t know what number to dial for air pollution complaints (the phone numbers have changed).• Free 24-hour clinic should be made available, sponsored by refi neries and Mondi, as they are the polluting industries. The clinic is currently only open 3 days a week.• Move Engen to the vacant airport site – this will relieve political tension between industry, community and government.• Concerns were voiced regarding about being bought out for industry.


Figure 20: Settlers’ School children in the shadow of industry

Figure 19: Resident of Lakhimpur road dwarfed by nearby Engen emission stack.

8. SUMMARY To perform good governance of air quality it is important to initiate a process to raise awareness in the society as such through transparent information that quantifies levels of pollution that are present, and defines the severeness and nature of the problem. The Multi-point Plan is a plan to establish such a system. The plan was developed and is run by applying a good and sound democratic process, where stakeholders had and have influence over the steps taken.

8.1. KEY MILESTONES OF THE MULTI-POINT PLANImportant achievements of the MPP identified by the Programme Manager include the following:

• Installation of an improved air quality monitoring network with integrated data transfer and storage• Improved ability to pin-point sources of pollution• Improved access to information through publishing of data and reports on the internet• Updating of emission inventory• A new air quality dispersion model (although there is debate regarding the accuracy and availability of the model as compared to the previous model)• BTEX sampling• H2S survey in Merebank area• Focus on areas of non-compliance and ability to act on data• Setting of clear objectives in the permitting system and strengthening of enforcement• Implementation of emission reduction strategies• A reported 40% SO2 emission reduction. • Investment in people through capacity building • Multi-stakeholder participation in action• Inter-governmental co-operation in action• Drafting of the AQMP and foundation for its further development

8.2. LESSONS LEARNT“The experience of the Multi-point Plan has shown that only a multi-stakeholder approach underpinned by good science and policy will bring about meaningful change.” (Cllr Nomvusa Shabala, opening address: Seminar on AQMP for eThekwini Municipality, May 2007). Key success indicators for implementation of the MPP have been:

• The involvement of highly skilled professionals at all key issues of the projects• At a National level, there was the recognition that there was a need to get something done. There has been political commitment from all three spheres of government• Funding was available from government and industry• Multi-stakeholder involvement and transparent accountability• Co-operation between interest groups• Implementation with a high level of administrative support and political will by the eThekwini Municipality (i.e. commitment)• Capacity building and knowledge transfer• Co-operation of industry in emission reduction strategies to introduce best practice technology.

Lessons learnt• Sharing of data and knowledge is critical.• Difficult concepts need to be reported in an easily understood format to ensure all stakeholders are able to get involved and participate meaningfully.• By including “human receptors” in the reporting network, e.g. pollution complaints reporting, there is an added dimension to indicate problem areas, not only sticking to the scientifically recorded values.• There is a need for an integrated transport plan which includes pollution minimisation aims as well as affordable, flexible and efficient means to move people.• Integrated town planning is the only way to minimise the effects of settlements and industrial development on human health.• You can fix things locally, but there are also outside influences. Air pollution does not respect municipal boundaries – the fires in the Drakensberg affect the air quality in Durban, so inter-governmental co-ordination is essential to resolving local problems.• It is difficult to sustain and keep momentum.

8.3. HAS IT WORKED?The South Durban Basin should be a showcase as an area that has been turned around through significant reduction in pollution through multi-stakeholder co-operation (Chetty, 2006). Has this been achieved? Has the considerable investment been worthwhile and have interventions resulted in lower measured pollutant concentrations?

Long-term annual average SO2 concentrations measured at the “bubbler” and continuous monitoring stations have shown an overall decrease since introduction of the MPP in 2000. This suggests that emission reductions, use of improved technology and phasing out of the use of dirty fuels and have borne fruit. It must be considered that the MPP generated a process that is ongoing. Currently it has been taken over by the AQMP and this also will be ongoing, again with multi-stakeholder input and government direction. However, there are a number of other issues that require attention.

Outstanding issues• There remain challenges in terms of short term exceedances (10-minute and 24-hour averaging interval) for SO2 as measured at Southern works, Settlers school and Wentworth monitoring stations.

• Reductions have occurred in respect of a few aspects out of a whole host of other pollutants. There has been an emphasis on SO2 and it has been an important starting point. There now needs to be a shift in focus to other pollutants in the SDB. More recently benzene, NO2 and PM10 are undergoing increased analysis.

• Data shows that PM10 has not been as responsive as SO2 concentration in terms of the emission reductions achieved. However, PM10 sources are not only industrial; a major contributor is the transport sector, for which interventions are still required to reduce emissions, whilst there are also

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contributions from sugar-cane burning, biomass burning, construction and quarries.

• There are a lot of traffi c issues. Transportation systems (e.g. rail) need to be sorted out on a national basis.

• There are gaps in the modelling and the model hasn’t really been tested. The modelled averages are on average 75% of the measured concentrations. The timing of the concentrations and transport of the pollutants is good, but the level is generally too low. This could be caused by two things: the dispersion is too fast or the emissions are estimated poorly. It is probably a combination of the two. The emissions are probably the most easy to improve (AQMP, 2007).

• There has been waning attendance at the IGCC and inconsistencies in attendance and representation. Carry-over of items on the Agenda at the SCF means delays. The fact that the IGCC meets before the SCF means issues raised at the SCF are not considered by the IGCC and carry over to the next meeting for consideration.

On the positive side:• The South Durban MPP has provided the platform for the development of an Air Quality Management Plan.

• The MPP prompted industry to take action, where they may not have done before. It has created awareness and further pressure has been put on industry through the permitting system.

• Trust has been established between community and the local authority.

• The eThekwini Municipality has adopted a more consultative approach to reduce emissions of those industries deemed to be contributing to guideline exceedances, rather than strict law enforcement.

• The monitoring system is one of the fl agships of SA; the quality of reporting (weekly and annual) has been of an acceptable standard.

• There has been a shift in approach to air quality management from focusing on the problem to focusing on the resolution of the problem using the processes in the Air Quality Management System (Chetty, 2005).

• This approach has demonstrated qualitative and quantitative improvements in the air quality management regime (Chetty, 2005).

8.4. RECOMMENDATIONSFindings from this case study have led to the following recommendations:

• Focus should move to reducing NO2 and PM10 concentrations. • Short-term exceedances in SO2 need to be reduced through further emission reductions.• Emphasis needed to detect short-term peak emissions of benzene

since exposures can infl uence long-term health.• Need for a registry on cancer and leukaemia and a study to determine the linkages.• Attention needs to be given to smaller industry. Need to look in more detail at top 100 companies.• Need to recognise that vehicle emissions are a problem. The number of heavy vehicles needs to be managed and there is a need to return to an effi cient rail system.• Need to address use of heavy fuel oils.• Install a dedicated toll-free air quality complaints line• Need for stricter and impartial law enforcement.• Need for shorter term average data to be available on the internet, at least hourly average (as opposed to daily), preferably 10- minute data because that is the guideline for SO2 comparison, although trends are refl ected in the weekly reports.• Although weekly data trends are distributed, the community would like to see more detailed data interpretation and analysis on a monthly basis.• Free clinic should be open 7-days a week to residents for air pollution-related health problems. • Need to improve communication with the community (independently of SDCEA) in terms that people can understand. People need an understanding of how the MPP has improved their lives.

8.5. FUNDAMENTALS OF A SUCCESSFUL PLANFindings from this case study indicate that the following are crucial to the success of an air quality management plan to address air pollution in a problem area:

• Awareness of problems• Trust between the stakeholders• Political will to tackle the problem• Finances need to be available• Scientifi cally reliable data to back up complaints and prove there is a problem• Action plan on how to address the problem• Commitment to do the things agreed upon• Dialogue, education and awareness• Feedback and follow-up to stakeholders and community• Need to have a central person to drive it (i.e. dedicated project manager)• It’s hard work. You need suitably trained, committed and enthusiastic staff, otherwise the project will lose momentum• Change will not happen overnight, be patient, but persistent.


Sugar cane burning, a regional contributor to particulate matter in Durban.

REFERENCESBissett, R., 1995: Annual Air Pollution Monitoring Report for the Steering Committee of the South Durban Sulphur Dioxide Management System for the period 1 April 1994 to 31 March 1995, Durban Water & Waste, RB/mcc/6367.

Butler, M & Hallowes, D, 2002: The groundWork Report 2002: Corporate Accountability in South Africa: The petrochemical industry and air pollution, groundWork, Pietermaritzburg, SA, 80pp.

Chetty, S, 2004: South Durban Basin Multi-point Plan: A Winning Strategy to Achieve Sustainable Air Quality, Weekly Mail Supplement, May 2004.

Chetty, S, 2005: Putting an Air Quality Management Plan into Place – A Case Study of the South Durban Basin Multi-point Plan. Powerpoint presentation at the Sandton Convention Centre, 15-16 February 2005.

Chetty, S, 2006: Phasing out use of dirty fuels and/or reducing the emissions arising out of using such fuels: A background strategy and information document, 6pp.

eThekwini Health and Norwegian Institute for Air Research, 2007: Air Quality Management Plan for eThekwini Municipality, 79pp.

eThekwini Municipality Pollution Control Support Section (eThekwini Health Department), 2005: eThekwini Air Quality Monitoring Network Annual Report: 2004, 36pp.



eThekwini Municipality Pollution Control Support Section (eThekwini Health Department), 2007: eThekwini Bubbler Network Annual Report: 2006, 13pp.

Guastella, L.A. & Mjoli, D.M., 2004: Sulphur Dioxide measurements in South Durban: the culmination of eight years of monitoring, NACA Symposium, October 2004.

Guastella, L.A., 2004: Ethekwini Air Quality Management Association Annual Report: 2003, Ecoserv (Pty) Ltd, AQ_DS1_ 2004 AR, 39 pp.

Knutsen, S, Dudek, A. & Khathi, N. 2006: Evaluation of the modeling activity in the South Durban Basin, NILU Report O-102092, 127pp.

Munn, A., 2004: Emission Reductions at Engen Refinery in South Durban, 8th World Congress on Environmental Health,

International Convention Centre, Durban, 22-27 February 2004.

Naidoo, R, Gqaleni, N, Baterman, S & Robins, T. 2007: South Durban Health Study, Multipoint Plan Project 4: Health Study and Health Risk Assessment, UKZN Centre for Occupational and Environmental Health & Univ. of Michigan Department of Environmental Health Sciences, 269pp.

SANS 1929, 2004: South African National Standard: Ambient air quality – Limits for common pollutants, Standards South Africa. Seetharam, B & Jeena, P. 2002: The Settlers Primary School Health Study: Summary of Draft Final Report of 9th November, 2002.

Shongwe, B, 2007: BTEX Discussion. Powerpoint presentation at AQMP Workshop, May 2007.

South Durban Basin Multi-point Plan, Information Newsletter No.1, October 2002, 4pp.

South Durban Basin Multi-point Plan, Information Newsletter No.2, July 2003, 4pp.

South Durban Basin Multi-point Plan, Information Newsletter No.3, November 2004, 4pp.

Wiley, D., Root, C., Peek, S. and Ramurath, S. 1996: South Durban Case Study Report: Report on the State of the Environment and Development in the Durban Metropolitan Area. Volume 3 of State of the Environment Report for the Physical Environment Service Unit, Durban Metro.

World Health Organisation, 2000. Guidelines for Air Quality, 104 pp.

World Health Organization, WHO Air Quality Guidelines for Europe, 2nd edition, WHO Regional Office for Europe, 2000, Copenhagen, Denmark. (WHO Regional Publications, European Series, No 91).http://www.sapref.com/initiatives.htmhttp://www.engen.co.za/home/server/refinery/environment/default.asphttp://www.groundwork.org.za/

ACKNOWLEDGEMENTS• Mr Siva Chetty, Programme Manager of the Multi-Point Plan, is acknowledged for the supply of background information to the MPP, copies of power point presentations, brochures, the Health Study and other related information.

• All those interviewed are thanked for their co-operation and willingness to participate.

• Judy Bell, for helpful comments on the draft report.

• All those that were interviewed (refer Appendix 1).

• Ms Davasha Appasumy of ZES for willful assistance in conducting the spot survey in Merewent

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APPENDIX 1: STAKEHOLDERS INTERVIEWED

Proximity of Engen emission stacks to houses of Treasure Beach.

Department of Environmental Affairs and TourismPrivate Bag X447

Pretoria0001

Republic of South Africa

Tel: 012 310 3911, Fax: 012 3222 682Call Center: 0861112468

www.deat.gov.org

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