Municipal waste management

- good practices

Preface
The management of domestic waste in South Africa

However, in visiting many municipalities across South

currently faces many real challenges. In terms of the

Africa it was evident that several municipalities are able to

South African Constitution (Act No. 108 of 1996), waste

overcome these challenges and provide sustainable waste

management service delivery is a local government

management services through good practice.

function. The current status of waste management in South

Africa is therefore an indication of how well municipalities

Best practice is often the enemy of good practice. Best

succeed in performing this function.

practice is a technique, method or process that is believed

to be more effective or superior at delivering a particular

Recent initiatives aimed at identifying the challenges

outcome than any other known approach. In developing

experienced by municipalities, identied four broad

countries, best practice options are often high technology

themes of obstacles to effective waste management,

solutions imported from developed countries that are

namely nancial management, equipment management,

often not sustainable over the long-term. Good practice

labour (staff) management, and institutional behaviour

however, typically arises from those people who have an

(management and planning).

intimate understanding of the problems, who work with the

challenges daily, and through often simple approaches nd

It was noted that these challenges are often symptoms

successful, innovative and sustainable solutions.

of a number of underlying and inter-related root causes

that need to be addressed rst. Many of these underlying

The intention of this document is to highlight such good

causes are also often outside of the mandate or control of

practice initiatives which have resulted in real improve-

local government and as such, require close cooperation

ments to the way that waste is managed in communities.

between local, provincial and national government.

In so doing, it is hoped that other municipalities may learn

from these approaches and identify simple and innovative
solutions to help solve some of the waste management
problems in the short-term, as a rst step towards imple-

This document contains practical examples of good

waste management practices in various municipalities in South Africa. The focus is specically on good
practice for domestic and commercial waste.

There are always opportunities for improving the

menting best practice waste management approaches.

The CSIR would like to acknowledge the commitment

to improved waste management shown by each of the
municipalities visited, and specically those individuals
tasked with managing waste.

way in which waste is managed, and as such, we can

learn from each other and share good management
ideas. The purpose of this document is to share
examples, without being prescriptive, and in so doing
stimulate creative thinking and encourage good
waste management practices.

Several municipalities contributed to the good

practices captured in this document. These
municipalities were identied from the list of cleanest
town competition winners and by word-of-mouth
of successful, good waste management practices in
South Africa.
Printed on 100% recycled paper

Table of Contents
Waste Flow Diagram

Waste Collection and Transport

Waste Storage

12

Reduce, Re-use & Recycle

18

Landll

30

Governance

38

Awareness creation

62

Combat illegal dumping

70

Contact details

74

Bibliography

76

Suggested Citation:
CSIR (2011). Municipal waste management - good practices.
Edition 1. CSIR, Pretoria.

ISBN No: 978-0-7988-5596-9

March 2011

good practice guide

waste ow diagram
This document aims to cover good practices in each of the stages of waste
management, from the point of collection through transport, storage and

reduce, re-use & recycle

treatment to nal disposal. The principles of the waste hierachy which

include waste minimisation, re-use and recycling, is supported to reduce
disposal at landll. Some examples may work well in certain areas and not in
others. Municipalities should determine the suitability of specic programmes
for their specic circumstances. The Integrated Waste Management Plan
(IWMP) can evaluate and recommend the most appropriate systems for each
municipality.

Drop-off: Recyclable waste is

dropped-off for recycling and
composting

In South Africa the majority of waste ends up in landlls as mixed waste

(thick grey arrow in the waste ow diagram). Reduce, re-use and recycling
activities should be encouraged (the green arrows), which will result in a

Drop off:

smaller waste stream to landll (the black arrows).

waste storage

garden waste: drop off or collect

recyclables: drop off

Drop off: Re-useables and recyclables

or collect

waste collection
and transport

waste storage/
transfer

general waste
Waste is stored in receptacles
between collection days.
Removing waste from
households and commercial
sites where it is generated.

mixed waste

Transfer stations: Collected

waste is transferred to different
vehicles before transport to
landll.

The purpose and function of waste facilities

Facility

Materials Recovery
Facility (MRF)

Buy-back

Transfer station

Central collection
points

Drop-off

Garden sites

Landll/dump

Types of waste

Mixed municipal waste,

Mixed recyclables

Recyclables

Mixed waste

Mixed waste

Recyclables

Garden waste

Mixed waste, Building

rubble, Garden waste

Who bring
waste?

Waste collectors,
Community

Community

Waste collectors

Contractors,
Community

Community

Community

Municipality,
Contractors, Business

Who remove
the waste?

Recyclers,
Municipality

Recyclers

Municipality,
private companies

Municipality

Recyclers,
Municipality

Recyclers,
Municipality

Where does the

waste go from
here?

Recycling plant or
Landll

Recycling plant

Recycling plant or
Landll

Landll or MRF or
Transfer station

Recycling plant

Composting facility
or landll

Purpose of
facility

Waste separation

Recycling and
re-use

Optimising transport system

Collection from
inaccessible areas

Recyclables and
builders rubble

2 waste ow diagram

Separate compostable waste

_
Safe
disposal

good practice guide

composting
facilities

landll rehabilitation

re-users and recyclers

Re-useables and recyclables

recyclers

landll

Clean MRFs: Recyclables is sorted.

Dirty MRFs: Waste is sorted to recover

materials that can be recycled.

The nal disposal of waste .

How to read this document

The document is structured into 7 sections, each dealing

further explained by referring to real life examples

with a specic aspect of waste management. The sections

from municipalities in South Africa with supporting

are introduced by generic information that provides

photographic illustrations.

context, and followed by a lessons learnt text box.

The contact details of municipalities referred to in

Each good practice is preceded by a heading on a coloured

this guide is provided on page 75 and the relevant

background that summarises the following Problem

municipal ofcials can be contacted for more detail on

statement. A generic solution is discussed which is then

the practices contained in this guide.

waste ow diagram 3

good practice guide

waste collection & transport

The purpose of a waste collection service is to separate the

Transport routes and distances to travel between collec-

generated waste from the community for health reasons.

tion points and disposal/transfer facilities will inuence the

Linked to the life cycle of a common house y, the

type and size of vehicles used. In the South African context

preferred frequency of collection services to households

any combination of the following transport types deserves

is once a week. A more frequent service i.e. daily removal

a place in waste collection systems: wheelbarrow, hand

is required for restaurant putrescible waste (organic waste

drawn carts, push carts, bicycles, donkeys carts, tractor

that quickly decomposes). The reliability of the service is

trailer combinations, railway trucks, bakkie, bush trucks,

more important than the type of receptacle or collection

cage trucks and compactor vehicles. Different vehicle types

vehicles used (see institutional section on page 39).

may be appropriate for different stages along the waste

collection and transport route, for example, from household

Due to variations in community structures and geo-

to central collection point, to transfer station and lastly to

graphical distribution, the same type of waste collection

landll (see diagram on pages 2 and 3). Collection vehicles

service will not be appropriate and sustainable across

that are the most appropriate for the specic task should

areas/municipalities (i.e. one size does not t all).

be used. Consideration must be given to the following:

Type of waste to be removed recyclable or nonrecyclable;

Service levels may vary between:

Kerbside collection;

The geographical area of collection;

Organised transport to central collection points;

Accessibility for example road conditions and narrow

Community transfer to central collection point (medium

density settlements);

roads or roads without thoroughfare;

The method of collection for example, whether the

On-site appropriate and regularly supervised disposal

receptacles in use need specialised equipment to be

(applicable mainly to remote rural areas with low

density settlements and farms).

lifted or not;
Distance and route to cover;
Number of staff in collection team.

At household level the type of service will determine the

type of receptacles, infrastructure and equipment required

Waste collection systems must provide for the collection

to render the service. Waste from sources other than

of separated waste as required by the Waste Act (Act

households will require systems as determined by the type

No. 59 of 2008). Current collection systems are often

and volume of waste and the collection frequency required.

not conducive to waste separation at source and hence

must be revised and adapted accordingly. Dual collection

The choice of transport vehicle may also dictate the most

systems for recyclable and non-recyclable waste can entail

appropriate receptacles to be used. Regular and planned

multi-compartmentalised vehicles or separate collection

vehicle maintenance is required to ensure the reliability

rounds on the same or different days. Collection of source

of the transport eet. A contingency plan, detailing the

separated waste is discussed in the Reduce, re-use and

course of action in cases of vehicle breakdowns, is required

recycling section on page 20.

in order to maintain the required level of service.

4 waste collection & transport

good practice guide

Lessons learnt
Use transport vehicles optimally
Evaluate the cost efciency of transportation methods
Explore alternative transport options (for example, rail by
night at reduced fees)
Reduce unnecessary wear and tear by dividing the eet
and assigning specic functions within the waste collection-disposal cycle (keeping collection vehicles off landlls)
Service vehicles and equipment regularly to lessen
untimely breakdowns

transport costs hamper service delivery

Problem:

Solution:

Transport is an expensive aspect of providing the waste

Innovative thinking and planning may go a long way

management service. Many municipalities thus struggle to

in saving the municipality huge capital and operational

meet their legal mandate of providing at least a weekly waste

costs of providing the waste collection service to all

collection service to all households due to limited budgets.

households as required by law.

(Refer to the governance section, nancial management

sub-section on page 48.)

Example: Caged trucks with trailers

In order to accommodate the collection of source separated
recyclables in their normal waste collection schedule at
minimal cost, Knysna Municipality adopted a truck and trailer
approach. Instead of duplicating the waste
collection eet and the service provided,
collection trucks tow trailers in which the
recyclables are collected. The additional cost
for the collection of recyclables is minimal
in comparison to what additional vehicles
and collection rounds would have cost. (The
Knysna Municipality 3-bag collection service
is also discussed on page 21.)

waste collection & transport 5

good practice guide

waste collection & transport (continued)

failing service delivery due to vehicle breakdowns

Problem:

i) A dedicated workshop with qualied personnel dealing

Vehicle breakdowns are a symptom of other problems

with waste vehicles only will ensure that vehicles

including vehicle age, poor road conditions, overloading and

are regularly serviced. When a breakdown occurs,

lack of routine maintenance. The breakdown of municipal

the dedicated mechanics are immediately available,

waste collection vehicles results in inconsistent collection

resulting in shortened vehicle down time which

services.

impacts less on service delivery.

Disrupted waste collection services may result in waste

ii) Use vehicles for the meant purpose and provide

being illegally dumped. This is especially the case in

training to the staff and drivers to avoid unnecessary

situations where drop-off centres are considered too far

break downs.

away or where drop-off centres do not accept general

waste. The public is also not keen to incur additional cost

iii) Lease vehicles: Leased vehicles are normally not

over and above the collection service already paid for.

too old and the down time due to breakages should

be less. Include the demand for regular vehicle

Solution:

maintenance in the lease agreement. The owner

Having enough operational vehicles is crucial to avoid over-

of the trucks should take the responsibility to keep

loading and to ensure a continued service when vehicles are

the required number of vehicles operational, and

serviced. Several options can be explored to deal with this

not the municipality. The lease contract should be

problem:

properly drafted to place no additional liability on the

municipality. Learn from the successes and failures of
municipalities which have lease contracts in place.

Example: Dedicated workshop

Example: Fleet lease agreement and in-house mechanics

The Swartland Municipality deals directly with a

The City of Tshwanes vehicle lease agreement includes a

dedicated mechanical workshop that is responsible for

routine service maintenance clause. Workshops are open

the maintenance of the transport eet and ensures

24 hours per day and in-house mechanics check vehicles

a short turnover time. The municipality does not

between shifts. Minor repairs are done immediately.

experience problems with vehicles being out of service

Hydraulic and other specialised repairs are outsourced. This

for long periods.

signicantly reduces the down time of vehicles.

Example: In-house mechanics

The Overstrand Municipality has a eet management
department with dedicated mechanics to service their
vehicles. Vehicles under guarantee are serviced by the
respective agents.

6 waste collection & transport

good practice guide

periodic high volumes of waste (events or season related)

Problem:

Solution:

During certain seasons (tourist destinations during

Special waste management arrangements should be

holiday periods) or events (sporting events, concerts)

made for such events and/or seasons to ensure that

waste volumes within a particular area may increase

waste is collected efciently.

substantially. Normal waste collection services during

these periods of high volume waste generation are
inadequate.

Example: Holiday seasons

Example: Special Events (Sporting events and concerts)

During the peak holiday season, the inux of tourists

The City of Johannesburg (CoJ) has a special application

to popular holiday destinations challenges the local

process for big events that are planned within the

waste management services. To overcome this, Bitou

city. A variety of issues are taken into account in such

Municipality collects waste twice per week instead of

applications, for example, safety, route access and waste

the normal weekly removal. This more frequent waste

management. A committee comprising all the relevant

collection service prevents or minimises waste recep-

departments within the CoJ is therefore responsible

tacles from overowing. Waste is collected in two shifts

for reviewing such applications. Specic requirements

during these times (from 5:00 till 13:00 and from 13:00

relating to waste management may include separation

till 21:00). Additional vehicles and additional workers are

at source and regular collection of waste during those

also hired to ensure that all waste is adequately removed

events. The organisers of such events can elect the

and collection staff not unduly stressed.

CoJ to undertake such services or may get private

contractors.

separated waste collection perceived to escalate municipal costs

Problem:

Solution:

Municipalities often perceive the collection of recyclables

Refer to the section on Reduce, re-use and recycling

separate from general waste as a burden to their

(page 20) for more detail on the proposed solution and

managerial skills and their operational costs. Historically,

examples.

municipalities did not perceive waste minimisation and

recycling as their mandate and it was thus not included in
their collection plans.

waste collection & transport 7

good practice guide

waste collection & transport (continued)

no service in rural and informal areas

Problem:

Solution:

In South Africa, the biggest waste collection backlogs

The solution for this problem can be in two ways:

exist in rural areas and informal settlements. Obstacles

to providing a sustainable waste collection service

i) Households facilitating and funding the operation: Each

household can be made responsible for transporting

include:

their waste to central collection points and/or transfer

stations which are easily accessible to the municipal

i) Limited road access and infrastructure: In certain

areas, road infrastructure is limited and the collection

vehicles. The households can either do this individu-

vehicles cannot reach all the households. Where road

ally or organise themselves and get one contractor to

infrastructure exists, the streets are often inacces-

transport their waste.

sible to conventional waste collection vehicles due

to steep slopes and narrow roads with sharp curves,

ii) Municipality facilitating and funding the operation: The

municipality can contract community members to collect

deep potholes and dongas.

waste from all households within their area and transfer

it to central collection points where the municipal waste

ii) Extensive travel distances: Transportation costs in

rural settings where households are sparsely spread

collection vehicles can collect the waste for disposal.

over long distances impede a weekly waste collec-

This will have the added advantage of job creation.

tion service, thereby contributing to rampant illegal

dumping.

Selecting one of the above solutions will be inuenced by

the area specic circumstances, for example, the socioeconomic conditions of the community provided with
the service, or whether the municipality can afford the
programme. The recently approved Policy for the Provision
of Waste Management Services to Indigent Households is
applicable in this case.

Example: Rural bring-in-system

The Breede River Winelands Municipality renders a
kerbside waste collection service to all households,
excluding rural areas. Some residents in rural areas take
responsibility for the disposal of their household waste.
These households bring their waste to transfer stations
where they pay a minimal dumping fee.

8 waste collection & transport

good practice guide

Example: Food-for-waste

Example: Cleansing service in informal settlements

The Siyazenzela initiative was started by the Local

The City of Johannesburg (CoJ) renders a weekly waste

Economic Development department in 2007. The word

collection service to all its residents including informal

siyazenzela means we do it ourselves. People living

areas. In addition, the CoJ appoints contractors through

in informal settlements in Hibiscus Coast Municipality

a tender process to provide a general cleaning service

can sign up to collect waste from households and

in informal areas. These contractors employ community

to keep the area clean. All waste collectors receive

members to clean toilets, collect waste, and clear illegal

protective clothing. The municipality removes the

dumping within their areas on a daily basis. Three

collected waste from central collection points once a

year, outcomes based contracts are entered into with

week. The waste collectors are not paid in cash, but

the contractors. Performance is measured against

after fortnightly inspections receive basic household

the CoJs cleansing standards. The programme is also

supplies and fresh produce as a form of payment.

registered as an Extended Public Works Project (EPWP)

with the Department of Public Works.

This project specically targets women or child headed

households and the community acts as watchdogs. The
provision of the dietician approved food parcels has the
following benets:

Benets:
All large informal settlements (119 out of 180) are
cleaned on a daily basis

No travelling costs to exchange vouchers for food;

Sustainable jobs are created

Improved health due to a better diet; and

Funding of this system is partly through EPWP

Local emerging farmers have a market for their

fresh produce.

Waste collectors are introducing recycling systems

where the collectors also separate the waste to earn

The community benets by receiving a waste

additional revenue.

management service with the associated hygiene

improvement. Poverty amongst local residents is also
alleviated.

Several municipalities have similar initiatives, for

example, Thulamela Municipality who funds the
initiative from the Expanded Public Works Programme
budget; Msunduzi and Emnambithi municipalities.

waste collection & transport 9

good practice guide

waste collection and transport (continued)

vehicle wear and tear at landlls

Problem:

Using appropriate vehicles for specic functions within the

Irregular landll road surfaces, steep slopes, loose sand,

waste collection to disposal cycle may reduce wear and

dust and the nature of the material disposed at landll sites

tear. For example, divide the eet into:

increase the rate of wear and tear on vehicles operating on

vehicles that collect waste from households and take

the waste to transfer stations;

such sites.

vehicles that transport the waste from transfer

Solution:

stations to the landll site (not the working face of

Specialised vehicles execute certain functions best within

the landll); and

the waste collection to disposal cycle. Using vehicles

vehicles that transport the waste to the working face

on the landll site.

specialised for waste collection to transport waste over

long distances to landll sites might not be the most cost

This exercise should however be based on a cost-benet

effective. (Refer to the excessive cost of road transport

exercise to ascertain the cost effectiveness of such an

section on page 51.)

operation and its mode of operation.

Example: Use specialised vehicles to prevent wear and tear

The City of Tshwane uses their waste collection trucks
optimally by ofoading the full waste compartments at
garden sites (below right). Chain-trucks (right) then
transport the loaded compartments from the garden
sites to the landlls. The specialised waste collection
compactor trucks are freed up to do more waste
collection rounds and potential damage to the vehicles
is reduced. The chain trucks also do not go onto the
working face of landll sites, but ofoad within the
premises of the landll where specialised trucks operating
on the working face can collect the waste and transfer it
to the working face.
eThekwini has a similar approach (below).

10 waste collection & transport

good practice guide

notes

11

good practice guide

waste storage
Waste is stored at different stages of the waste
management chain:

i) Waste is stored at points of generation before

collection. Receptacles at points of generation are
intended for the storage of waste between collection days. Aspects to take into account in the choice
of receptacle are: size, cost, availability, durability,
type of waste and ease of handling by waste generators and waste collectors. Waste storage systems
must allow for separation at source. The type and
size of receptacles will determine the most appropriate means of transport (see page 4). The choice
of receptacle should also be mindful of the potential
impacts at the landll e.g. adding plastic to landll.

Lessons learnt
The focus should be on a service being provided
rather than on the type of receptacle in use, as long
as the receptacle is suitable for the specic areas
challenges. Depending on the area, different types of
receptacles prove to work well:
Wheelie bins
Bins with plastic bin liners
Metal bins work well for hot ash
Bags placed on stilts or in cages prevent dogs
from ripping it open
Monkey/baboon proof bins

ii) Waste is stored at collection points for recyclables.

These facilities include clean Materials Recovery
Facilities (MRFs), garden sites, drop-off and buyback centres.

iii) Waste is stored at other intermediate facilities prior

to nal disposal to landll or prior to the waste being
treated or recycled. These include transfer stations
and dirty Materials Recovery Facilities (MRFs).

12 waste storage

Bins provided by the households themselves can

be used.

good practice guide

lack of storage receptacles at points of waste generation

Problem:

Solution:

Most municipalities do not provide waste receptacles to all waste

Provision should be made to provide households with

generators, especially the indigent households who cannot

receptacles, especially indigent households who cannot

afford to buy such receptacles for themselves. This lack of

afford to pay for such receptacles. Please note that the

receptacles may result in littering and illegal dumping as people

Policy for providing indigent households with basic waste

seek to clear their households of the accumulated waste.

removal services has been approved by parliament and

as such Treasury has made nancial allocations to enable

Example: Providing refuse bags and a cleaning service in

municipalities to implement this service.

informal areas
City of Johannesburg provides households in informal settlements with black refuse bags and a daily cleansing service
including waste collection to combat illegal dumping. (Read
about illegal dumping on page 70.)

Example: Wheelie bins in all households

Saldanha Bay Municipality provides a wheelie bin to every
household, including households in informal areas (photograph

Development and enforcement of waste by-laws will

to the right). Supplying a waste collection service to all areas

ensure that the wheelie bins are used appropriately for

is a rst step towards combating illegal dumping.

the intended use.

lack of incentives to utilise drop-off facilities

Problem:

Solution:

Transporting waste to drop-off sites has a cost implication for

Incentives to encourage community members to make

the waste generator. Charging excessive fees at the drop-off

use of drop-off centers include subsidised charges and

sites might discourage the use of these facilities.

buy-back centres. Transport costs to drop-off sites can

then be covered by the payment for recyclables.

Example: Subsidised charges for garden waste disposal

The use of drop-off facilities at Nelson Mandela Bay

The closed Alton landll in uMhlathuze Municipality now

Municipality is encouraged by subsidising the cost rather

operates as a drop-off centre for garden waste and recycla-

than collecting fees for the use of the facility. Garden

bles. The charges are low enough to encourage people to use

waste is also collected free of charge at the Knysna

the facility. The rst load of garden waste is accepted free

drop-off centres for garden waste.

of charge provided that it does not contain bulky stumps.

Additional loads are charged at R20.50 per load.

waste storage 13

good practice guide

storage (continued)

lack of easily accessible drop-off facilities

Problem:

Solution:

Communities are more likely to dispose their waste

Using existing facilities, which the community are familiar

illegally and not be concerned to separate their waste for

with, as drop-off facilities encourage people to use such

recycling if they lack the appropriate facilities or if such

facilities for bringing in their waste. In addition, such

facilities are not easily accessible to them. In addition,

existing facilities have all the necessary infrastructure and

establishing such facilities can be an expensive and long

permits/licences. This minimise the cost implications on

process for municipalities since they require appropriate

municipalities.

infrastructure and relevant permits/licences.

Example: Converting a closed landll site into a drop-off

centre and transfer station
The closed Alton landll in uMhlathuze Municipality now
operates as a transfer station and as a drop-off centre
for garden waste and recyclables (below). This ensures
that the people in the vicinity continue to dispose of
garden waste and recyclables at the old landll site. The

Example: Multipurpose drop-offs

new site is much further away.

City of Johannesburg negotiated with the Province to

transform garden waste sites into drop-off centres. It was

No additional operating permit applications were

easier to make a few changes and improvements - surfaces

required, because the end use as a drop-off facility

were paved, concrete platforms built, fences and gates

and transfer station can be included in the closure

repaired and security improved - to the already existing and

permit application. This resulted in a cost saving for the

operating garden sites to enable the operation of drop-off

municipality.

sites, than to nd alternative space to built new ones

(above). This would have required much bigger capital costs
for the infrastructure and getting the necessary permits/
licences, not to mention the practicality of nding suitable
available land.

Read more about this drop-off site in the reduce, re-use,

recycling section on page 23. The challenges of collecting
source separated recyclables from households are discussed
in the Reduce, reuse and recycle section on Page 20.

14 waste storage

good practice guide

keeping storage facilities neat

Problem:

Solution:

One of the key issues facing storage facilities (transfer

Development of operating procedures and ensuring

stations, central collection points etc.) is keeping them

adherence to such guidelines will assist in ensuring that

neat and tidy. Storage facilities, if not kept neat, have

the area remains neat.

the potential to become litter-strewn mini dump sites. In

addition to the visual impacts, rodents and vectors are
normally associated with these conditions and consequently negative health impacts.

Example: Housekeeping at drop-off sites

The foreman at the drop-off centre at Volklip drop-off
site in the Overstrand Municipality takes the neatness of
the drop-off centre to heart and excels in the up-keeping
of the garden surrounding the drop-off area (right). An
old carpet is used to prevent waste falling between the
skip and the ramp (below).

Example: Transfer of compacted waste in closed

containers
The City of Tshwane and eThekwini Metropolitan
Municipalities use compactor trucks to transfer the
waste from households to transfer stations. A closed
compacted container (middle right) is off-loaded at the
transfer station and is then picked up by the chain truck
(bottom right). This practice limits spillages of waste
during the exchange of vehicles.

waste storage 15

good practice guide

waste storage (continued)

waste deposited next to and not in communal skips

Problem:

Solution:

In many cases, community members use wheel barrows

Provide containers that are easily accessible by wheelbar-

or send children to take waste to central collection

rows and/or children at these central collection points. This

points. The skips that are normally used at these points

may entail ensuring that the bin opening is at a level easily

are not easily accessible, as they are too high to hoist

accessible by either building ramps to climb to the elevated

over heavy loads from wheelbarrows or to be accessed

level of the skip, lowering the height of the container to

by children. This results in most of the waste being

ground level by embedding it in the ground or altering the

dumped next to the skip instead of inside.

container design by having the opening on the sides of the

container not on top. When embedding containers into the
ground, the ease and practicality of emptying such containers
should be taken into account. Education and awareness are
still important in ensuring that these interventions succeed.

Example: Walk-in bins

Walk-in containers (such as the empty one on the left) enable
community members to place their waste inside the bin. In
Mabopane, in City of Tshwane Municipality, a standard 12 m3
container was tted with doors and a ramp to enable easy
access for persons pushing wheel barrows and for children.
The introduction of walk-in containers signicantly improved
the tidiness of communal collection sites.

Example: Underground storage bins

The example of the underground storage bins introduced by
the City of Johannesburg Municipality (CoJ) (see page 17) can
also be applicable in this case. Although currently the CoJ has
introduced these bins in high pedestrian areas, the intension
is to introduce them in high density residential areas as well.
These containers are easily accessible as they are at ground
level, making it easy for wheelbarrow loads as well as waste
brought by children to be disposed into the bins. Wet waste
is not desirable for these underground storage bins. The
design and placing of such containers should take rain- and
groundwater in account.

16 waste storage

good practice guide

overowing waste bins in areas with high pedestrian trafc

Problem:

Solution:

The normal street bins being provided in areas with high

Install containers that can accommodate larger volumes

pedestrian trafc are often ineffective due to high waste

of waste. Because bin capacity is increased, regular

volumes being disposed. These bins are often seen over-

collections can now be scheduled and adhered to.

owing with waste due to limited capacity combined with

waste collection frequency being too low.

Example: Underground storage bins

The City of Johannesburg introduced underground
storage bins (right) to increase bin capacity in areas
with high pedestrian trafc, at taxi ranks, in areas where
informal traders operate, and in informal settlement
areas. Installation of these bins qualies for MIG funding
as it is considered as immovable infrastructure. These
bins hold large volumes of waste (5m3), are within easy
reach for children to use, are out of sight and can be
conveniently collected at night. Installation of these
bins did not change peoples behaviour as waste is still
thrown next to bins (bottom right). Therefore, the issue
of human behaviour still needs to be addressed.

waste storage 17

good practice guide

reduce, re-use & recycle

Depleting natural resources, together with the environmental

for disposal. Apart from nancial benets, there are no real

impacts of waste and the diminishing capacity of landlls,

incentives for communities to participate in recycling initiatives.

has prompted the need for reduced waste generation. The

Financial incentives would include reduced disposal charges

Waste Hierarchy which comprises ve waste management

and nancial returns.

categories: waste prevention (reduction), re-use, recycling,

energy recovery and nally disposal, is applied internation-

Reclamation activities on many landll sites around the country

ally to reduce the waste ultimately disposed to landll.

highlight the value of disposed materials. Ideally, re-usable and

recyclable waste should be reclaimed before the waste reaches

Encourage waste reduction across all levels of society, including

the landll site (see ow diagram on pages 2 and 3). Diverting

at household level. Awareness and education campaigns play

reusable and recyclable waste away from landll can be done

an important role in the success of any reduce, re-use and

by sorting through mixed waste at dirty MRFs or separation

recycling initiative. The socio-economic conditions prevailing in

at source combined with further sorting at clean MRFs. Clean

a specic municipality must be taken into consideration when

MRFs deliver clean recyclables which fetch higher prices.

establishing waste management programmes, as well as when

Clean MRFs also provide more humane working conditions

deciding on the type of communication campaign to use.

adding to the dignity of workers.

Incentives, together with awareness creation, have the

The volumes and types of waste sorted at these facilities will

potential to change consumer behaviour. Incentives for

dictate the level of sophistication required in the machinery

minimising waste can include Pay-As-You-Throw charges, where

used. Conveyer belt systems are well suited to dirty MRFs

the waste management charges correlate with the amount

while less costly table-top sorting systems can be employed at

of waste being disposed. The less waste households dispose

clean MRFs. Cost effectiveness and efciency is not guaranteed

of, the less they pay. For example, charges are calculated on

by having more mechanised systems. High capital invest-

the basis of the number of bags collected or the bin size used

ments versus labour intensive practices need to be considered.

Technologies are likely to be more complex at clean MRFs

Lessons learnt
Recyclables separated from the general waste stream
at source ensures a cleaner working environment for
workers in the recycling industry
Separation at source results in higher quality recyclables entering the recycling stream with a higher
resale value
The easier it is for communities to dispose of recyclables, the more likely they are to take part in the
initiative
Innovative thinking and forming partnerships can
alleviate some of the daunting nancial costs of
initiating some of the recycling programmes

due to the need for cleaning and more advanced sorting

(e.g. different types of plastics and metals). The type of plant
inuences the quality of the recyclate. It may be difcult to nd
markets for contaminated recyclate.

Fluctuating markets for recyclables remain a threat for the

sustainability of recycling initiatives. Regulation of the recycling
sector by national government may offer some relieve and
balance in the local markets. Low volumes of recyclables
and the distance to the markets may hamper the success of
recycling initiatives in smaller and remote municipalities. A
cost-benet analysis of the different treatment and disposal
options for specic municipalities should be addressed in the
Integrated Waste Management Plans to enable a municipality
to make an informed choice of the most appropriate system(s)
based on its specic scenario and setting.

18 reduce re-use recycle

good practice guide

lack of incentives for source separation of waste

Problem:

Solution:

Participation in source separation of recyclables without

Incentives, for example a cost saving on the monthly

any signicant nancial benet can be challenging as it is

disposal charges, would encourage a business to participate

considered as time consuming.

in source separation. Buy-back centres are more viable in

low income areas, where participating community members
are rewarded for collecting and bringing in recyclables.

Example: Cost saving on collection fees

Arrangements are made with businesses to bring
recyclables at their own cost to the sorting facility at the
Highlands landll site in Swartland Municipality (top). The
recyclables are cleaner than what it would have been after
compaction together with general waste in the collection
vehicles. This results in a signicant saving on these

Example: Buy-back centre

businesses monthly waste collection bills which is linked to

The Walker Bay Recycling Centre in Overstrand Municipality

waste quantities.

has a buy back facility that is used by young and old (top).
The incoming recyclables are weighed, a number allocated

Several of the bigger shops in Saldanha Bay Municipality

and then paid for in cash. The Recycling Swop Shop is

sort and bale recyclable materials (bottom) prior to taking

advertised at shows and exhibitions (below). Also see the

it to the respective recycling companies. Baling reduces the

awareness creation section on page 65.

volume of waste to be collected and optimise transport.

The participating shops save signicantly on their monthly
waste collection bills.

reduce re-use recycle 19

good practice guide

reduce, re-use & recycle (continued)

collecting source separated recyclables challenge municipalities

Problem:

these facilities need not be at the cost of the munici-

Separation at source and the need to collect the

pality.

recyclables separately has only recently become a

requirement with the promulgation of the Waste Act.

The recyclers (private sector) are the intended recipients

Incorporating separate collection of recyclables into

of the waste material and could therefore be approached

existing collection systems may be challenging.

to invest in collecting recyclables, as well as establishing

drop-off and buy-back centres.

Solution:
Dual collection systems are not necessarily more

The awareness creation section on page 70 provides

expensive and time consuming. The total amount of

ideas on how to encourage separation at source.

waste to be collected is still the same, but now it has to

be separated. Ways to achieve separate collection are:

a) Municipalities can adapt their existing collection

vehicles to collect both recyclables and general
waste in a cost effective manner: existing municipal

Example (a): Municipal dual same-day collection

trucks can be partitioned into two-cabin trucks; or a

uMhlatuze Municipality provides a same day dual collection

truck and trailer system would keep the two waste

service. Rear end loaders collect the non-recyclable waste

streams separate in one collection round.

from the wheelie bins and bush trucks collect the yellow
bags lled with recyclable waste. All vehicles are owned

b) Employing contractors to collect the recyclables

and operated by the municipality. The recyclable waste (in

shift the responsibility from the municipality to the

yellow bags) is taken to the drop-off centres where the

contractor. The contractor receives a monthly xed

recyclable materials are further sorted (opposite page).

payment from the municipality which streamlines the

municipal budget process.

c) Involvement of and partnerships with the private

sector to provide a kerb side collection service for
recyclables would alleviate the cost and time implications on municipalities. Close collaboration with the
municipality is however essential to ensure a smooth
complementary collection service.

d) Establishing drop-off and buy-back centres in

Rear end loader

strategic locations for the community members to

(top) and bush

deliver their recyclables can be another less costly

truck (right)

exercise than providing a kerbside collection of the

recyclables. Please note that the establishment of

20 reduce re-use recycle

good practice guide

(Continued)
Example (a): Municipal 3-bag same-day collection

Example (a): Municipal 2-bag separate-day collection

Knysna Municipality uses a 3-bag system. One to

Overstrand Municipality has established a 2-bag system

collect general waste (maximum of one black bag

with collection on two separate days in Hermanus. The

per week), the second for recyclables (no limit for

Municipality takes the clear bags lled with recyclables

green bags per week), and the third for garden

to Walkerbay Recycling for sorting. Walkerbay Recycling

waste (maximum of two blue bags per week).

(below) provides work

Waste is collected with a cage truck with trailer (see

for 40 people.

photograph on page 5). All waste is collected from

residential areas in one trip only.

Example (b): Employing contractors - dual same-day

collection
In eThekwini Metropolitan Municipality separation at
source has been rolled out to all non-rural areas. Black
bags are provided for general waste while orange bags
are for recyclables. Private contractors pick up the orange
bags while the municipal trucks collect the black bags. The
contractors collect rst and leave behind the badly sorted
waste which is collected by the municipal trucks as part of
the general waste for disposal to landll.

reduce re-use recycle 21

good practice guide

reduce, re-use & recycle (continued)

(Continued)
Example (c): Private sector involvement - a 4-bag system
A private entrepreneur collects three bags lled with
recyclables (one with paper, one with plastics, and one with
glass and tins) as part of a localised private initiative in the
City of Tshwane (right). The 4th bag of mixed waste is
still collected by the municipality according to their normal
waste removal schedule. Recovered bags are used for
source separation of recyclables.

Example (c): Private sector involvement - dual same-day

collection
George Municipality uses a double/blue-bag system for
separation at source. Households put both a black bag
lled with general waste and a blue bag lled with mixed
recyclables out on their scheduled day for removal. A
private company collects the blue bags with recyclable
materials (carton, metal, paper and cans) on the same day
that the municipality collects the non-recyclables (right).

The recycling company uses community contractors to

assist with the collection, thereby creating jobs within
the community. The recycling company provides the
municipality with a monthly report on the number of jobs
created, and volumes and types of recyclables collected.
The collection of the recyclables is partially subsidised by
the household waste collection rates and tariffs. Informal
settlements are included and increasingly participate in the
recycling initiative (see awareness creation on page 65).

Before the recycling initiative was outsourced, the

municipality recycled about 6% of the waste. Transport
arrangements to the landll put pressure on the time
available to do the sorting of the waste, which had to be
done on the same day. Outsourced recycling relieves the
municipality from needing recycling sorting facilities.

22 reduce re-use recycle

good practice guide

(Continued)
Example (d): Drop-off and buy-back centres
City of Johannesburg transformed garden waste sites to
accommodate the drop-off of recyclables. An advantage
of using sites where people are already disposing of
their garden waste is that it is easy to add recyclables
to their loads. Spotters operate at the drop-off site
to direct where different types of waste should be
ofoaded. The waste streams that are accepted include:
paper, plastic, glass, e-waste, used oil, tins, metal and
builders rubble.

Some of the transfer stations in Nelson Mandela Bay

Municipality have marked bins for recyclable materials
(right). An employee of the municipality assists with the
recycling of waste that is dropped off. A notice board
(far right) at the entrance of the site explains the rules
of the drop-off and sorting operation on site.

At Alton drop-off centre in uMhlathuze Municipality,

recyclable waste is sorted into skips (below right), and
at the drop-off centre in BaPhalaborwa Municipality
recyclables are compacted and bailed (below, left and
centre).

The fully functional buy-back centre in Overstrand

Municipality is discussed on page 19.

reduce re-use recycle 23

good practice guide

reduce, re-use & recycle (continued)

disposal of re-usable and recyclable waste to landll

Problem:

Solution:

Separation at source is a relatively new concept in South

In order to ensure maximum diversion of re-usable and

Africa and hence not practiced in many municipalities. The

recyclable waste from landll, a wide range of re-use and

bulk of the re-usable and recyclable waste is thus disposed

recycling programmes, including composting should be

to landll and largely lost to the recycling industry. In

initiated. It is important to ensure sustainability of such

addition, this contributes to the diminishing capacity of

programmes through the provision of the necessary support,

available landll airspace (Refer to the Landll section on

such as resources for establishing recycling and composting

page 30).

facilities and creation of sustainable markets for the products.

Establishing MRFs is another way to divert recyclables from

landll. Several MRFs are operational throughout the country
Example: Re-use of bricks, tar remnants and builders
rubble

and many are in the process of being established. Landll

airspace is saved and salvaging from landll sites minimised.

At Bisasar Road landll, in eThekwini (Durban Solid

Waste), bricks recovered on site are used to maintain
the fence around the site (right). This is a cost
saving for the municipality while also maintaining
access control. Bricks are also crushed and used as
cover material. Having a dedicated area for dumping
of builders rubble enables the salvaging of usable
material. (Also refer to housekeeping at landll sites
section on page 31.)

City of Cape Town re-uses tar remnants (left) as road

surface at the Bellville landll. Building rubble is crushed
(see below) and used in road construction.

24 reduce re-use recycle

good practice guide

Example: Selling re-usable waste

Pickers on a City of Tshwane (CoT) builders rubble
landll site, collect and clean re-usable building
materials (bricks, tiles, pottery, etc.) and sell it
on site. Scrap wood is used to build dog kennels.
These ventures take place without the consent and
involvement of the CoT. The turnover rates conrm
the availability and potential value of re-usable and
recyclable material and the potential gains from it. It is
therefore important for the CoT to engage the pickers
on this site and agree on a more formal relationship
and operational procedure.

Wooden planks (below) are salvaged at Alton drop-off

in uMhlatuze Municipality and sold to interested parties.
The rest is donated to poor communities for re wood.

Re-usable items are on display at a drop-off centre in

Cape Town (right). According to the entrepreneur his
selling of usable items allows him a comfortable living.

reduce re-use recycle 25

good practice guide

reduce, re-use & recycle (continued)

(Continued)
Example: Re-use of garden waste (composting)
City of Cape Town (see pictures on the right) uses a tub
grinder to chip garden waste at the Bellville landll site. A
23-ton truck collects the chipped waste and takes it to a
composting plant. A similar but smaller scale initiative is
found at some drop-off sites (see below right). The smaller
chippers are equally functional to handle the volumes of
garden waste in Drakenstein Municipality (see below).

Garden waste from the garden sites in the City of Johannesburg (CoJ) is transported to the CoJ owned composting
facility in Panorama, where it is used for the production of
compost. Any excess is chipped and used for rehabilitation
at landlls (see housekeeping at landll sites section on
page 31).

Breede River Winelands

Municipality makes compost
on a regular basis from green
waste. Garden waste is also
composted at the regional
landll site in Overstrand. A
composting mixer (far right) is
pulled by a tractor. The mixer
adds water and turns the
compost.

26 reduce re-use recycle

good practice guide

(Continued)
Example: Re-use of tyres
At the Alton drop-off centre in uMhlathuze Municipality,
tyres are shredded for use in road building.

Example: Establishing of material recovery facilities

(MRFs)
The contractor responsible for the Highlands landll
in Swartland Municipality established a MRF at his
own cost (below). The recycling plant provides jobs
for about 20 people. Arrangements are made with
businesses to bring their recyclables to the landll site

Breede River Winelands Municipality is in the process of

putting up a MRF at the Ashton landll.

at their own cost. (Also see example on page 19.)

An example of an active privately owned and operated MRF
is the one at the Mariannhill landll in eThekwini (DSW)
(below). The municipality provided land at the landll
site and electricity while the private company owns the
equipment and pays the workers. They currently recover
about 12% of what can potentially be recovered from the
site. Economic viability threatened the sustainability of this
MRF and it closed operation on 15 November 2010.

reduce re-use recycle 27

good practice guide

reduce, re-use & recycle (continued)

facilitating exchange of re-usable materials

Problem:

Solution:

Potential users of waste material and potential suppliers

Create a system where potential buyers can source

are not aware of each other.

available materials.

Example: On-line exchange

reduce the dumping, for example, of builders rubble and

Nelson Mandela Bay Municipality manages a Waste

other waste in the municipal area.

Exchange (WX) Project. It is a web-based free online

service available to business, industry, non-governmental

The success of the project is measured by the number of

organisations, schools and individuals who generate

successful exchanges made. The marketing of this new

materials that others may have a use for. This initiative

concept is a challenge due to limited internet access of

assists with the marketing of unwanted material and the

potential users. Flyers do not seem to have the desired

matching with users, re-users and recyclers. Available and

effect on all target groups.

wanted items are listed on the web site. This project was

(www.nelsonmandelabay.gov.za/waste).

initiated in an effort to increase the re-use of waste and to

electronic waste needs specialised recycling

Problem:

in dismantling the equipment and recovering the recyclable

Recovering electronic waste is a relatively new stream

or re-usable parts to avoid further environmental impact.

in the South African recycling industry. The hazardous

components in electronic waste complicate the
dismantling, recycling and disposal process.

Solution:
Recycling or re-use of electronic waste requires a full
understanding of the components of the materials being
dealt with. Strict control measures should be put in place

28 reduce re-use recycle

Example: Dismantling old computers and TV sets

A private waste recycling contractor at City of Cape Town
dismantles old personal computers and television sets. All
components are sorted according to type of material (left
and below).

good practice guide

lack of resources to facilitate recycling

Problem:

Solution:

Municipalities may not have the required resources to

Municipalities could partner with the private sector to

establish the necessary facilities to support recycling,

establish some of the required infrastructure. Although

especially separation at source.

municipalities may not have resources, they may have access

to land which can be used by private sector companies. In
addition, municipalities could explore low technology high
labour intensive projects, which may not require a high
capital investment. Explore workable municipality/private
sector partnership options.

Example: Simple, cheaper programmes

Recyclable material from a separation at source pilot project
in City of Cape Town is taken to a private company where the
recyclables is sorted on tables (left). The recyclables collected
in marked plastic bags are emptied on sorting tables. Two
sorters work per sorting table and all the items in each bag
are allocated to the respective sorting bags. A grid behind
the sorting bags with a strategically placed sample assists
with each type of recyclable nding its way into the correct
sorting bag, even when thrown from a distance. No expensive
conveyor belt system is used in this energy saving and
relatively low capital cost operating system.

Example: Private sector involvement

The 100% privately owned and operated MRF at Msunduzi
Municipality (left) buys recyclables from vendors and
scavengers at the landll. In the order of 100 salvagers
provides recyclables to the MRF.

The City of Johannesburg (CoJ) is looking into potential

public-private partnerships (PPPs) for the establishment of
alternative waste treatment technologies in order to minimise
its reliance on landll disposal.

reduce re-use recycle 29

good practice guide

landll sites
Basic requirements for the safe disposal of waste on landll

Lessons learnt

include:
Access control and signposting: Landlls sites must be
properly fenced off to keep people and animals out.
Pickers, children and domestic animals should not be

Innovative thinking and planning save on

landll sites expenses

allowed onto any landll site for safety reasons. Access

Landlls are suitable for multiple uses, for

control at the gate is required to monitor the types and

example, awareness creation and conser-

volumes of waste being dumped at the site. A sign post

vation

at the gate should indicate the types of waste allowed

and the operating hours of the site.
Daily compaction and cover: Good landll management
entails daily compaction and soil coverage of the waste
at the workface to prevent wind scatter (windblown

Managing a landll and its buffer zone as

one unit prevents potential problems and
complaints in future
Rehabilitate landll cells as they reach full
capacity

litter) and y breeding. Compaction also uses airspace

more efciently.
Recordkeeping: Recordkeeping of the incoming waste
types and quantities must be as accurate as possible
given local circumstances as it is important for planning
and reporting purposes. Ways of estimating waste
volumes or weights in the absence of more accurate
systems such as weighbridges must be explored. (Also

Problem:

refer to the Information Management section on page

Impacts of landll sites include odour, wind

44).

scatter and regular res. The risk from these

Fires must be avoided: Fires on landll sites are

difcult to control due to the presence of landll gas. In
addition, res release harmful substances into the air.

Strict enforcement of the minimum requirements for landll

as well as the permit/licence conditions and tipping fees
at landlls in the absence of by-law enforcement may
potentially contribute to incidences of illegal dumping.
Therefore enforcement of by-laws is critical in combating
illegal dumping.

30 landll sites

negative impacts increases where communities

live close to landlls.

good practice guide

environmental impacts and nuisances arising from landlls

Problem:
Compliance to permit conditions is critical in mitigating the

Example: Weekly checklist

impacts of landll sites. Many municipal landll sites are

At the landll site of Bitou Municipality, the foreman

not permitted and permitted sites do not always operate

uses a checklist to ensure that all necessary tasks

according to their permit conditions. Poorly operated landll

are executed and permit conditions adhered to. This

sites impact on the environment and can cause nuisances

procedure improves the general housekeeping at the

to communities living close-by.

site.

Solution:
A compliance check list can assist the landll operator in
complying with the permit conditions. Internal audits also
ensure that the operator is following the check list and the
site meeting the permit conditions.

housekeeping at landll sites

Solution:
Compliance to permit conditions and general good
housekeeping, including operating a small working face,
compacting and covering the waste on a daily basis,
minimise these impacts. Specic techniques for odour
control and containing wind scatter can be employed.

Example: Good housekeeping

Waste is covered on a daily basis at the landll sites in the
Overstrand Municipal area to prevent odours and waste
being blown around. An example is the fenced landll site in
Gansbaai (opposite page).

At eThekwini Municipality the workface is kept to a minimum

material as cover material once crushed (opposite page

and waste is compacted and covered on a daily basis,

bottom left). (See the re-use section on page 24.) A

according to requirements. At the Bisasar Road landll site,

specialised computer activated odour control system at

an extra high fence is erected downwind to prevent litter

the Bisasar Road and Marrianhill landll sites use weather

being blown from the site (above right). Having a dedicated

data from onsite weather stations to predict possible odour

area for dumping of builders rubble enable the use of this

problems and to spray odour masking agents into the air.

landll sites 31

good practice guide

landll sites (continued)

picking at landlls
Problem:

Solution:

Pickers living off landll sites are a reality for most

Uncontrolled salvaging on landll sites must be phased

municipalities. This is undesirable based on health and

out. It is recognised that some families rely on salvaging

safety risks. Workers (including pickers) should be

for their livelihood. In addition, the role of informal

provided with Personal Protective Equipment (PPE). The

recycling activities forms a signicant part of the South

use of heavy machinery in landll operations also poses

African recycling industry. It contributes signicantly to the

safety risks to pickers. The liability of any incidents

diversion of waste from landll.

occurring on these facilities lies with the owners of such

facilities which in most cases are the municipalities.

Example: Controlled picking on the landll sites

No pickers are allowed on eThekwini Municipalitys
(Durban Solid Waste) landll sites. The 350 pickers on
site during the early 1990s were phased out over a 7-10
year period. Initially strict access control was introduced
and enforced. Fences were upgraded and operating hours
enforced. The municipality engaged with the recycling
industry to formalise the picking at the landll. Currently,
only four registered recyclers are collecting recyclables
from the site. Each recycler identies pickers to work
for the day and provide them with the required personal
protective equipment (PPE). These pickers are then

Access control at a Durban Solid Waste

allowed on site at an identied sorting area within a

landll site (above)

specied time frame. They are paid based on the waste

volumes collected.

Tzaneen Municipality also only allow registered waste

recycling groups on the landll to collect recyclables.

32 landll sites

good practice guide

(Continued)

A security guard controls access to the site and all pickers

Example: Controlled picking on the landll sites

have to obtain a permit from the waste manager. Waste

Children, pregnant women and animals were a common

reclaiming companies also require a permit. Specic permit

sight on the dumpsite and incidences of ghting over

conditions include:

recyclables were reported at the Vryheid landll in

Do not eat anything found at the site;

Abaqulusi Municipality. A permitting system for picking at

Do not burn anything on site;

the dumpsite was established to create order at the site.

Do not allow children and animals;

You are only allowed to be inside between 07h30 to
17h00 from (date) to (date) (3 month period);
You wear protective clothing at all times, for example,
protective boots, protective overalls and gloves; and
To obey the rules at the dumpsite as enforced by the
Security Guards on site.

The permit (see image on the left) also species the type
of waste to be collected to ensure order on the site. A copy
of the permit together with a copy of the pickers ID book
is kept on le at the municipality. The permit is issued in
the local language of choice to enhance understanding of
the conditions under which the permit is issued. Pickers
now wear protective clothing and no children or animals
are on site (see photograph below). It is the responsibility
of the pickers to obtain the required protective clothing.

landll sites 33

good practice guide

landll sites (continued)

limited airspace at landll sites

Problem:

Solution:

Most landll sites are nearing their end of life. Competition

Apart from exploring alternative treatment technologies,

for land is high with housing taking up most of the

diverting recyclables from landll is one way of ensuring

available land. Finding suitable land for landll sites is

that less waste is disposed at landll and the life span of

increasingly difcult. Therefore, ways of extending the life

landll sites extended.

spans of existing landll sites is important.

Example: agreement between landll operator and municipality

The Highlands landll site operator asked for an extension
of his 5-year contract which was envisaged to take the
landll to the end of its life cycle. Through the following
innovative interventions, and to the mutual benet of all
parties in the Swartland Municipality, the original projected
lifespan of the landll was extended by almost 10 years:
Establishment of a MRF on site to reclaim recyclables
added 3.5 years*;
Change in site design (following an EIA process) from
2 to 6 m deep added 2.5 years;
The use of compactors on the landll together with
recalculations added another 4 years to the life span of

20 jobs on the recycling plant are secured. Arrangements

the landll site.

are made with businesses to bring their recyclables to the

*The contractor responsible for the Highlands landll has

landll site at their own cost. (Also see the reduce re-use

put up a MRF at his own cost. The municipality pay 25%

recycle section on page 19.)

of the saving on landll space to the contractor and about

lack of landll rehabilitation

Refer to lack of funding for landll rehabilitation in the

Johannesburg uses chipped bulky garden waste to

Governance: Financial management section on page 48.

rehabilitate landll sites. (see page 26).

eThekwini Municipality rehabilitates landll sites cell

by cell as they are lled up (see page 51) and City of

34 landll sites

good practice guide

encroachments into landll site buffer zones

Problem:

Solution:

Forward planning is always encouraged in landll site

Different measures can be employed to ensure that

selection and development in order to ensure compliance

conicting EIAs are not approved. These are:

with all legal requirements including the EIA process.

Good record keeping by EIA authorities;

However, where landll planning is not integrated with

Undertake site inspections and understand the land

other adjacent development planning, conicting land

uses of adjacent properties by EIA authorities; and

Major land use approvals should be included in the

uses can be approved.

municipal spatial planning to ensure consistency.

In addition to the above, municipalities should ensure that
their application includes the buffer zone area to ensure no
encroachment onto the earmarked site.

Example: Buffer zone protection

eThekwini Municipality (DSW) included the buffer
zone in the land purchase for the landll to ensure no
encroachment of other developments into the buffer zone.
The buffer zone at the Mariannhill landll is rehabilitated
with plants being rescued from the site during construction
and developed into a conservancy (left).
Seedlings are also nursed and hardened for landll rehabilitation and for restoration of the natural vegetation in the
buffer zone at Mariannhill (top left).

vandalism and theft

Problem:
Vandalism and theft on landll sites is a common

Example: Security measures

occurrence. The fence, and electronic equipment on site,

The entrance to the Bisasar Road landll in eThekwini

is mostly the target.

Metropolitan Municipality is guarded by security guards.

The surrounding precast concrete wall is regularly repaired.

Solution:

The newly developed Buffelsdraai landll site has a

Access control and proper security measures is required

generator and satellite phones on site due to the prevalent

on landll sites. Regular inspections of the perimeter

cable theft in the area. Tzaneen Municipality has erected an

of the landll and immediate repairs of the fencing are

electric fence around its landll site to ensure strict access

crucial.

control onto the site.

landll sites 35

good practice guide

landll sites (continued)

air pollution
Problem:

Solution:

One of the main impacts of landlling is air pollution from

Compliance to permit conditions and landll gas

landll gas. Typically, landll gas comprises of about 50

extraction at landll sites which are big enough to

55% methane, 40 45% carbon dioxide (both of which

produce signicant landll gas emissions is important to

are green house gases) and the remainder to complex

minimise the negative impact from air pollution.

organic compounds that did not decompose, some hydrogen

sulphide and other sulphur compounds.

Example: Waste-to-energy and aring for clean development

mechanism (CDM)
Landll gas extraction reduces greenhouse gas emissions from
landll. Landll gas can be used for carbon trade or electricity
generation. Landll-gas-to-electricity is a proven technology
that is successfully applied in eThekwini at Bisasar Road and
Mariannhill landlls. Four landlls in Ekhuruleni have been
tted with gas extraction and aring systems.

Optimal conditions for landll gas generation include enough

moisture in the waste, a moderate climate (low temperature
uctuations), well compacted (limited air in waste body) and
relative deep landlls. Gas extraction is only viable at sites with
signicant gas production.

Gas production starts within 6 months of the waste body

becoming anaerobic (Bisasar Road and Mariannhill). The
extraction of gas can continue for up to 5 years after landll
closure (Bisasar Road Landll Lower terrace, below).

36 landll sites

good practice guide

trafc congestion at landll sites during peak hours

Problem:

Solution:

In most big municipalities, trafc congestion can

Several payment methods (account system or pre-paid systems)

be experienced at weighbridges on landll sites

can be employed to minimise the time spent making payments at

during certain peak time periods.

weighbridges. This will ensure that the trafc ows quicker. The
installation of additional weighbridges may also be useful where
such nancial costs can be afforded.

Example: Weigh regular customers once

At eThekwini Municipalitys (Durban Solid Waste) landll sites,
vehicles are weighed on their way in and out at the fully
operational weighbridges (left). The weighbridge operator
uses human judgement to decide on the type of waste
contained in the load on which the tariffs are based. Regular
customers have 5 weighing opportunities to calculate an
average empty weight to be used to calculate the tariffs
for waste disposal at the landll. This means that for such
customers, vehicles are weighed once only, when entering the
landll site. This helps to alleviate trafc congestion on the
site during peak hours.

exchange of cash at waste facilities is a risk

Problem:
Handling cash is a risk and paying cash for

Example: Monthly billing of regular customers

disposal of waste at landll sites poses a safety

Regular customers at eThekwini Municipalitys (Durban Solid

risk.

Waste) landll sites get consolidated bills once a month with a

Solution:

57 day interest free period to pay. Tariffs are charged as units

Either a pre-paid system or an account system

of 250kg or any part thereof, e.g. a load of 260kg is charged

similar to the charge for waste collection could

as two units. Tariffs are clearly indicated at the entrance to

be implemented. (Also refer to the nancial

the weighbridge (left).

management section on page 48.)

Also refer to vandalism and theft section on page 35, and
handling of cash on site creates opportunities for fraud
section on page 49.

landll sites 37

good practice guide

governance
Waste management governance encompasses the legal
framework and institutions involved in waste management.
As such the main players are National Departments of
Environmental Affairs and Co-operative Governance and
Traditional Affairs, the various Provincial departments responsible for environmental affairs and Local government including
Metropolitan, District and Local Municipalities.

Roles and responsibiities of District and Local municipalities

The Constitution assigns responsibility for refuse removal,

the District municipality can enter into a Service Level

refuse dumps and solid waste disposal to local government.

Agreement (SLA) with the local municipality to provide

District and Local municipalities have roles and responsibili-

the service for a stipulated period until such time that

ties that differ, but also complement each other as outlined

the local municipality can offer the service.

in the Municipal Structures Act (Act No. 117 of 1998).

Promoting the equitable distribution of resources

District municipalities have powers and functions related

between the local municipalities in its area, for

to the integrated, sustainable and equitable social and

example, ensuring that resources are deployed in

economic development of the district. Local municipalities

municipalities within their area of jurisdiction, where it

are responsible for the provisioning of specic services,

is most needed.

including the removal and disposal of waste. Municipalities

(district and local) are encouraged to practice the principles
of corporate governance to avoid conict between
overlapping functions. Combining efforts where there are
similar initiatives may achieve better results.

Specic Local Municipality functions include:

Compiling and implementing integrated waste
management plans and integrating these into IDPs;
Running public awareness campaigns;
Collecting data for the Waste Information System;

District municipalities are responsible for:

Ensuring integrated development planning for the

Providing waste management services, including

waste removal, waste storage and waste disposal

district as a whole. This includes the development of a

services, in line with national norms and standards.

framework for IDPs and ensuring that IWMPs inform the

Municipality specic standards for separation,

IDP process.

compacting and storage of solid waste that is collected

Promoting bulk infrastructure development and services

for the district as a whole. The infrastructure refer to

as part of the municipal service, may be set and

enforced by the municipality.

the establishment of regional waste disposal sites and

Implementing and enforcing waste minimisation and

bulk waste transfer stations that can be used by more

recycling (including the encouraging of voluntary

than one local municipality within the district.

partnerships with industry and waste minimisation

Building local municipality capacity where a local

clubs).

municipality fails to perform its management functions,

38 governance - roles and responsibilities

good practice guide

institutional
This section addresses issues of organisational structure

The success of waste management services does not neces-

as well as the interaction of the municipal structures with

sarily depend on the specic department where it is housed,

the community and community structures.

but on other important issues including:

Municipalities across South Africa adopted different organi-

political stability and support;

sational structures and therefore waste management

a functional integrated planning process;

services are not dedicated to the same department in all

rigorous nancial management and procurement;

municipalities. For example, in some municipalities waste

senior managers and councillors with a good understanding of waste management issues;

management services are housed within the engineering

department and in others within community services.

competent and dedicated waste managers implementing innovative schemes including reward schemes; and
a dedicated and motivated workforce.

Irrespective of where in the municipality the waste

management function resides, it is important to have a
dedicated section dealing with waste management issues.

Irrespective of where this section is located within the

It is further important that waste related awareness

structure of the municipality, it is important that the

creation and education must also be accounted for.

functions as outlined in the table below are accounted for.

Functions of local municipalities

Municipal Waste Services
Functional Cluster

Functions

Collection

Disposal

Provision of containers for waste

Cleansing
Waste collection
Determine levels of service
Transport
Cost recovery

Role

Potential for
Outsourcing

Service

Yes

Waste disposal
Waste dumps
Cost recovery

Service

Yes

Waste minimization / reuse

Waste recycling
Cost recovery

Service

Yes

Planning

Input to Integrated Development Plan (IDP)

Prepare Integrated Waste Management (IWMP)
Provision of containers for waste
Community access to service
Determine levels of services
Cost recovery

Support

No

Information (collection and

reporting)

Input to Integrated Development Plan (IDP)

Prepare Integrated Waste Management Plans (IWMP)
Determine levels of service
Cost recovery

Support

Yes

Enforcement / inspection
/ Authorisation / by-laws /
compliance monitoring

Prohibit illegal dumping

Comply to the by-laws
Cost recovery

Support

No

governance - institutional 39

good practice guide

governance (continued)

nding the organisational structure best suited to local circumstances

Problem:

Solution:

Most legislative prescripts, guidelines and strategies assume

The organisational structure that is best suited for the

that what works well for one municipality will also work well

specic municipality must be adopted. Big Municipalities,

in another. However, this is not necessarily the case, as local

serving a large population, with a large waste staff

circumstances between municipalities differ, for example,

compliment could separate functions to the lowest level.

staff numbers, type of areas serviced, and demographics

Smaller municipalities, serving a smaller number of

of the areas serviced. If local municipalities fail to adapt

households, with fewer staff members could combine

the set prescripts to suit their own specic needs, including

functions and be equally efcient.

the organisational structures and operations, waste service

delivery is at risk of failure.

The successful functioning of any structure is dependent

on dedicated staff (see page 56).

Example: Organisational structure

In Tswelopele Municipality waste management falls under

The City of Johannesburg (CoJ), which has a relatively

Technical Services. This municipality provides services in

high population, established a municipal owned entity,

two towns. The two technical ofcers share responsibilities

Pikitup, to oversee the operational aspects of waste

between the two towns: the one is deployed in the one town

management. A 25 year Service Delivery Agreement

and the other ofcer in the other town. They are responsible

incorporating 5 year reviews was signed between Pikitup

for water, electricity, workshop, public works, halls, parks,

and CoJ. Five year key performance areas, targets and

cemeteries, sports grounds, sewerage and solid waste in

indicators are set. Pikitup develops annual business plans

their respective towns. This arrangement works well in this

outlining how the set targets will be met, stipulating

small municipality winning the Cleanest Town Competition

service levels, methods and frequency of service to be

for 3 consecutive years since 2007.).

achieved. CoJ provides capital funding and remunerates

Pikitup by means of a service fee. Pikitup reports to the

Breede River Winelands Municipality has two technical waste

managers that work together closely. The one oversees
the eastern towns while the other manager oversees the
western towns, spreading the workload between them.

40 governance - institutional

City on a monthly, quarterly and annual basis.

good practice guide

customer care and complaints handling

Problem:

The effectiveness of the complaints handling system is the

Complaints regarding service delivery is a given in any

core of good customer relations. Ensure that complaints

municipality, irrespective of the quality of the service. A

are addressed professionally and effectively. All complaints

lack of avenues for costumers to voice complaints and

must be registered, attended to and followed up on. Where

poor responses to complaints, often result in bad customer

appropriate, feedback should also be given to the complain-

relations and in the reputation of the organisation being

ants and community. This can for instance be done by

tarnished.

regularly including complaints and how it is dealt with in

the municipality newsletter.

Solution:
The municipality has to make sure that there are avenues

Ward committee meetings could also be effective avenues

for customers to voice their complaints. Examples include:

for customers to raise concerns and debate waste related

Toll free number, sms number, and a complaints desk.

issues.

Example: Customer care unit

Example: Close collaboration with communities

Knysna Municipality has a fully operational, 24 hour,

In the Breede River Winelands Municipality, the relevant

customer care unit manned by 2 people handling

waste management department works closely with the

complaints. This hotline sends the complaints through to

communities. Municipal ofcers listen to the people and to

the relevant departments.

their needs and requirements. Ward committee meetings

Other municipalities with 24/7 call centres include Bitou

are also attended by staff from the waste management

and Breede River Winelands municipalities.

section.

Lessons learnt
Separate units for each of the functional clusters works well in
Metropolitan municipalities
Specic people allocated responsibility for each functional cluster
may be sufcient in medium sized municipalities
Small municipalities can effectively assign responsibility for more
than one functional cluster to one suitably skilled person
Number of staff allocated per function is determined by site specic
conditions and skills proles
Professional conduct is important for good customer relations and
attracting professional staff

governance - institutional 41

good practice guide

governance (continued)

political stability and support

A stable political environment is conducive to good municipal

of 2000). This is an important tool for councillors and

service delivery. The relationship between councillors and

ofcials to measure the success of service provision.

municipal ofcials are equally important. Political support

can also be enhanced by targeting politicians and councillors

Questions included in the survey should at least test

in awareness creation programmes.

customer satisfaction on:

The mayor and town councillors must be up to date with

municipal affairs, approachable and visible in the community.
Regular, pre-scheduled meetings between councillors and
community members are important to build relationships

The level of waste collection service, frequency and

quality of the service;
Recycling opportunities provided and convenience to
the customers;

and trust as well as for getting feedback on service delivery

General cleanliness of public areas;

issues. Ward committees as envisaged by the Municipal

Communication and complaints management; and

Structures Act (Act No. 117 of 1998) could assist in this

Awareness creation programmes and materials.

regard.
It is recognised that all municipal operations must be
Community satisfaction surveys are required in terms

depoliticised to ensure uninterrupted service delivery even

of Section 55 of the Municipal Systems Act (Act No. 32

during times of political change.

lack of continuity between planning cycles

Problem:

bearers. Education and awareness-raising are equally

Political stability and support to planned programmes

important in this case to ensure that the politicians

is critical since the political sphere is the driver of what

understand waste management beyond the collection and

happens in municipalities. Where there is no stability, there

disposal of waste.

is a high staff turn-over which impedes consistency in

Many municipalities reported that a stable political

service delivery. Furthermore, where there is no political

environment is benecial to waste management services

buy-in, there will also be less budgetary support, impeding

and service delivery in general. Over the years an

the implementation of planned programmes.

understanding of the needs and issues related to waste

management develops, which allows for budget alloca-

Solution:

tions and follow-up actions where needed.

There is a need to lobby for support from the political ofce

Example: Good projects seen as something tangible

few years, but rather rene the current one and build on

The City of Johannesburg recommends stability in integrated

it. Focus on turning programmes into projects. Investing

waste management planning. It is recommended that

in good projects achieve political buy-in and enhance

municipalities should not develop an entire new plan every

future budget allocations.

42 governance - political stability and support

good practice guide

procurement
According to the Municipal Finance Management Act (Act No.
56 of 2003), standard procurement processes have to be
followed. Good relationships between councillors and ofcials
are required to ensure the smooth and timeous running of
the procurement process. All capital expenditure needs to be
properly motivated by the waste manager. Specications for
capital investment must be well dened and should be clear
on the need and purpose. The cost implications must be
weighed against the benets to the municipality.

tender specications not matching demands for service

Problem:

Solution:

Lack of understanding and/or communication between waste

It is important to consult with the relevant technical

management ofcials and the procurement unit together with

people who are knowledgeable and experienced in the eld

the relevant approval structures in municipalities sometimes

when compiling tender specications for the procurement

result in the procurement of equipment and/or machinery

of waste related equipment and/or machinery. This will

which is not appropriate to the need.

ensure that purchased merchandise will be suitable for the

intended purpose.

Example: All directors sit in during adjudication process

who submitted tenders. The department manager

Overstrand Municipality has an efcient Procurement

evaluates all the tenders, complete the necessary

Department where all the directors of the Overstrand

documents and send his evaluation report back to the

Municipality are part of the adjudication committee. The

Procurement Department. The Procurement Department

advertisement, together with the specications for all

check to see that the right procedures were followed. The

quotations above R30 000.00 is sent to the Procurement

report is then put in front of the evaluation committee,

Department, where it is reviewed. Suggested changes are

from where the adjudication committee approves the

discussed, the opportunity provided to do the necessary

tender. Quotations are approved by the evaluation

changes, and a tender or quotation number provided. The

committee only. If any of the people who submitted

request to tender or quote is then advertised in the news

tenders is not satised with the decision of the adjudi-

papers and on the internet. After the closing date, the

cation committee they can appeal within two weeks.

tenders/quotations are opened in the presence of all people

governance - procurement 43

good practice guide

governance (continued)

information management
The National Waste Information System (SAWIS) as
introduced by the Waste Act (Act No. 59 of 2008) is intended
to provide a centralised data bank for waste management in
South Africa. It standardises the recording of waste data and
ensures that accurate and reliable data is easily available.
Information captured on the waste information system
is accessible to all government departments, the private
sector and the public in general. The Waste Information
Regulations (GR 718 of 2010) regulate the reporting of

Lessons learnt

waste information in order to improve waste management

and ultimately protect the environment. These regulations
apply to all waste management activities in South Africa,
where all such facilities are to be registered.

Functioning weighbridges ensure accurate data

- keep the area around the weighbridge clean
Municipal and provincial waste information
systems must compliment the national SAWIS

Good information management is critical in ensuring easy

access of accurate and reliable data which could then
be used in planning (the development of IWMPs). Plans
informed by accurate data are likely to be relevant to the
site specic conditions, practical and implementable. Easy
access to accurate information is further also useful towards
meeting reporting requirements, raising awareness and for
capacity building.

44 governance - information management

good practice guide

lack of accurate waste data

Problem:

Solution:

Few municipalities have effective and accurate waste

Introduce data collection systems at waste facilities and

data collection systems in place. Therefore, availability

ensure good record keeping. The establishment of a waste

and easy access of accurate data and information is a

information system is benecial. Registration and regular

common problem in most municipalities. This leads to

reporting on the SAWIS is also recommended. Data

un- or misinformed planning processes and ultimately the

collection systems need to be properly maintained and

formulation of IWMPs that are not useful to the munici-

weighbridges calibrated to ensure the accuracy of the data

palities.

collected. Debris and dirt that accumulates around and

underneath weighbridges must be cleaned out on a regular
basis so as not to hamper the operation thereof.

Example: Waste information management system in place

Ekurhuleni Municipality is an example where a good waste
information management system is in place. At Platkop
landll (right), two weighbridges, the one for incoming and
the other for departing vehicles ensures accurate information on waste entering the landll site. All waste information is captured and documented to ensure easy access and
availability of such information.

The recycling company in the Overstrand Municipality

reports on a regular basis to the municipality on quantities
recycled. The municipality need this information to report
on the SAWIS.

Example: Weighbridges well maintained

eThekwini Metropolitan Municipality reported that well
maintained and operated weighbridges at their landlls
assist in data collection (bottom right). Keeping the area
around a weighbridge clean and open (no pavements
etc.) allow for easy access to keep the area around and
underneath the weighbridge clean. Debris and dirt that
accumulate under a weighbridge may impact on the
accuracy of the data recorded.

governance 45

good practice guide

governance (continued)

monitoring and reporting

Municipalities are required to monitor and report on the
following:
Finances in terms of the Municipal Finances Management
Act (Act No. 56 of 2003);
Service delivery performance (including waste
management) in terms of the Municipal Systems Act
(Act No. 32 of 2000);
Waste management in terms of the Waste Act (Act No.
59 of 2008).

Information that must be collected for reporting to the

National Waste Information System (SAWIS) include data on
the quantity and type or classication of waste generated,
stored, transported, treated, transformed, reduced,
re-used, recycled recovered and disposed of. The SAWIS
may include information on the levels and extent of waste
management services provided by municipalities. Progress
towards meeting the targets set in the Integrated Waste
Management Plan must also be reported.

The purpose of monitoring and reporting is to inform future

planning. Monitoring will highlight deciencies in service
delivery and need for improvements.

Lessons learnt
Customer satisfaction surveys are useful to assess
service delivery performance
Reporting is made easy if data and information is
easily accessible

46 governance - monitoring and reporting

good practice guide

tracking progress with service backlog eradication

Problem:

Solution:

One of the major challenges facing municipalities in South

Accurate information on the number of households not

Africa is ensuring that all households within their areas of

receiving waste services, as well as the location of such

jurisdiction are provided with a basic level of waste service

households are required to track progress with eradicating

(DEAT, 2007). Huge waste service backlogs still exist in the

the service backlog. This information will also guide the

country ranging from an average backlog of around 80%

required interventions on the basis of the area specic

in Limpopo to 8% in the Western Cape (Stats SA, 2007).

conditions for each situation.

In terms of the Local Government Turnaround Strategy

(COGTA, 2009), municipalities are required to report on
progress towards eradicating service backlogs.

Example: Database of services in informal settlements

An updated database on informal settlements containing
data on the number of households and the services provided
is invaluable to the City of Johannesburg in tracking service
backlogs.

maintaining service excellence in central business areas

Problem:
High pedestrian and vehicle trafc challenge the ability

Example: Monitor service delivery

of larger municipalities to maintain acceptable levels of

Urban inspectors within the City of Johannesburg

cleanliness and regular waste management services in

monitor service delivery and report problems on a daily

central business areas

basis to maintain an acceptable level of cleanliness in

the central business district.

Solution:
The implementation of a monitoring programme will assist

Nelson Mandela Bay Municipality rewards waste

in measuring the level of service a municipality provides

collection and street cleaning jobs well done, as well as

and whether employed strategies to remedy the existing

employees doing more than what is expected of them.

problems are effective.

An impartial, external team of industrial engineers

evaluate the process.

governance - monitoring and reporting 47

good practice guide

governance (continued)

nancial management
Waste management is an important municipal function

It is therefore important that municipalities must be

and must be viewed as such in order to secure funding for

able to calculate the actual cost associated with waste

service delivery (operational and capital). Rigorous budget

management (from collection to disposal) to inform the

planning must be informed by future needs. For example, a

tariffs being charged. Transparency in determining tariffs

timeous budgeting process for replacement of vehicles and

combined with reliable services will encourage payment for

equipment, planning for closure of old and development

services.

of new landll sites. Approvals of budgets and project

plans as well as release of funds for procurement of goods
and services should also be in time to ensure spending of
planned budgets within the required timeframes.

Wise application of equitable share grants to fund services

in non-paying indigent communities together with full
cost recovery from non-indigent communities should be
sufcient to provide an efcient waste management service.

Lessons learnt
Cash acceptance at waste facilities increase potential for
corruption
Cash at landlls increase vulnerability to crime especially if
large amounts of cash are accepted
Monthly billing reduces long queues during peak times at busy
facilities
Effective use of grants can free-up municipal funds to be
utilised elsewhere

48 governance - nancial management

good practice guide

lack of funding to provide service

Problem:
Limited municipal budgets results in certain operations

Example: Garden refuse removal

being compromised, especially in cases where other

Knysna Municipality collects garden waste at kerb side on

priority issues such as housing and sanitation take

the same day that the general waste is collected. Refuse

priority.

bags for garden waste cost R3.00 per bag to recover the
costs of this service.

Solution:
There are a couple of alternative ways to ensure a

Example: Service to informal settlements

sustainable waste service within the limitations of

uMhlathuze uses a buy-a-bag system to recover costs

existing municipal budgets.

from informal settlements. The distinctly marked bags are

Sharing the responsibility with other stakeholders

e.g. community members, the private sector as

bought at a fee and will be picked up by collection vehicles

whenever they are seen along the roadside.

well as private service providers.

Exploring other additional sources of funds e.g.

Example: Alternative funding sources

DBSA, MIG, Provincial and national departments,

eThekwini Municipality explores additional funding options to

international funding agencies, etc.

compliment the equitable share. This allows the municipality

to implement good waste management practices.

The City of Johannesburg sourced Municipal Infrastructure

Grant (MIG) funding to nance underground storage bins.

handling of cash on site creates opportunities for fraud

Problem:
Cash payments for tipping fees at waste facilities

Example: Minimise cash payments

are difcult to control and audit. It thus creates the

eThekwini Municipality introduced a system where

potential for corruption. (Also refer to the landll site

regular customers receive monthly accounts for tip-

section: exchange of cash at waste facilities is a

ping fees. These accounts are paid as part of their

risk on page 37.)

monthly services payments at the municipal ofces.

Solution:
The introduction of a coupon system as method of
payment at waste facilities reduces the need for cash
payments (exchange of money) at such facilities and
signicantly reduces the risks outlined above.

governance - nancial management 49

good practice guide

governance (continued)

insufcient budget allocation for landll operations

Problem:

are well understood and included right from the planning

Landll development, operation and closure can be costly.

phases, sufcient budget allocations could be planned for

Poor landll operations are often ascribed to insufcient

and realised.

resources including funding allocations.

Cost recovery through the setting of appropriate charges

for the services rendered (including tipping fees at

Solution:

landlls) can also assist in ensuring that the sites are

Ensure that the costing for new landll development also

developed, operated and closed in accordance to set

provide for operational and closure expenses. If such costs

minimum requirements and permit conditions.

Example: Political buy-in and support

the account of the contractor and do not impact on the

Political support in Ekurhuleni Municipality ensures that proper

municipal budget over and above the contract amount.

waste management budgets are allocated. Charging disposal

Furthermore, if the service provided by the contractor is

tariffs (tipping fees) based on the expenses incurred ensures

not in line with the standards stipulated in the contract, the

nancial sustainability and growth. Good project management

municipality may withhold payment until service standards

includes monthly meetings and on-going tracking of the

are met.

budget (income against expenditure).

Example: Understand the municipal budget cycle
Example: Cost recovery

Municipal budgets operate in 3-year cycles. It is important

It is more cost effective for Ekurhuleni Municipality to

to have plans ready at the start of each cycle to allow

outsource landll site operations, with the cost for landll

sufcient time for tender processes, approvals and EIA

operations xed by the contract amount. Breakdowns in

processes (refer to the long term planning example of

equipment, incidental expenditure and labour costs are for

eThekwinis Buffelsdraai landll on page 53).

lack of funding for landll rehabilitation at end of life

Problem:

rehabilitated post their operational phase in order to

While the development and operation of landll sites is

further mitigate their impacts.

costly, the costs related to the closure and rehabilitation of

such facilities should not be over-looked. The impacts of a

Solution:

landll site on the environment do not cease with the end of

Municipalities should factor the need for the closure and

its operational phase. The area needs to be rehabilitated to

rehabilitation of their landll sites into their disposal

minimise the visual impacts, while landll gas and leachate

charges. Where rehabilitation is done on an ongoing basis

may need to be continually monitored for some years post

as the cells ll up, municipalities could factor rehabilitation

the closure of the landll site. All landll sites have to be

cost into the operational budget of the landll.

50 governance - nancial management

good practice guide

excessive cost of road transport

Problem:
Transportation is an expensive component in the

Example: Optimise the waste transport system

waste management cycle due to high fuel prices and

Where possible, Swartland Municipality ensures that vehicles

vehicle wear and tear. Although it may seem to be a

are optimally used. The vehicles transporting waste travel

cost saving by reducing the number of trips required

with full loads over the long distances. The landll is close to

to transport the same volume of waste, overloading of

Malmesbury, and the garden waste site in Moorreesburg. The

vehicles increases wear and tear.

transport vehicles bring general waste from Moorreesburg

transfer station to the Highlands landll site at Malmesbury.

Solution:

Here, in Malmesbury, the vehicles that were emptied at the

Optimise the waste transport system:

landll are loaded with garden waste, which is then trans-

Simple logical systems can be put in place (e.g.

ported back to the Moorreesburg green waste and builders

effective use of available infrastructure and

rubble landll site. Travelling with no load is not cost effec-

resources). Larger municipalities might nd optimi-

tive.

sation models useful to determine the most cost

effective transportation systems.

Example: Explore alternative transport options

The City of Cape Town transports waste by rail from Athlone

Explore alternative transport options:

transfer station to Vissershok landll site to the north of

Looking at alternative more efcient and cheaper

Cape Town. Waste is compacted about 16 times, baled, and

transport systems is encouraged, especially where

sent by rail during off-peak hours. This transport option is

such alternatives already exist and there will be no

more efcient and cost effective than traditional options.

additional capital costs required to establish them.

Example: Establish a Rehabilitation Fund

Ekurhuleni Metropolitan Municipality established a Rehabilitation
Fund for its landll sites. For every tonne of waste disposed,
a xed amount is deposited into the fund. An example of a
rehabilitated cell is at Rietfontein (right top).

Example: Rehabilitate cell by cell

eThekwini Municipality rehabilitate landll sites cell by cell as
they are lled up, e.g at Mariannhill landll (bottom right).

governance - nancial management 51

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governance (continued)

integrated planning
The waste management section should be well represented

The public participation opportunities, which are run as

at planning discussions (planning committees where

part of the Integrated Development Planning (IDP) process

applicable), with the purpose to open communication

should be well advertised to ensure appropriate attendance

channels between the planning sections of different

by targeted communities. Advertisements should be well

departments and the waste management section. For

structured to include all relevant information about the

example: communicating waste management needs to the

venue, for example, the time of the meetings should

planning section (roads accessible for collection vehicles)

be indicated, and the issues to be discussed. Venues

as well as communicating future developments back to the

and times should be suitable to stimulate maximum

waste management section to ensure timeous planning for

participation by community members. For example road

waste services in new developments. Good communication

shows held after hours at venues within the communities.

between departments will enhance synergies and avoid

The aim is to include community needs in the integrated

duplications with resultant cost savings and real integrated

planning processes of the municipality.

planning.

52 governance - integrated planning

good practice guide

cumbersome governance approval and authorisation processes

Problem:

Solution:

Internal municipal budgetary and procurement processes

Timely and clever planning by the municipality can solve

are not necessarily aligned with other governmental

many of these problems. Planning in advance and in phases

approval processes, for example, the Environmental

for big projects may enable municipalities to achieve their

Impact Assessment (EIA) process. This may result in

objectives without the problems related to projects not

delays in the implementation of projects.

executed and the resultant unspent budgets.

Example: Timely planning

assisted eThekwini during the EIA, appeal and licence appli-

Proactive planning in Ekurhuleni Municipality includes

cation process to counter potential delays resulting from

the planned operation of a new landll site beyond the

staff turnover over the extended period. For example, the

existing 20 years of airspace.

establishment of the Buffelsdraai landll in eThekwini took

5 months short of 10 years from inception to commissioning.

Example: Long term planning

In addition, the MoU must ensure that other conicting land-

Long term planning for new landll development is

uses in the vicinity of the approved site for landll develop-

essential. In addition to the existing landll sites, 2

ment do not get approved rendering the suitability of the

sites have been identied in eThekwini Metro. At the

site invalid. Validity periods of authorisations also need to

current deposition rate, it is estimate that eThekwini will

be aligned with the planning. In other words, the authorisa-

have about 250 years worth of landll airspace when

tions for the EIA must be valid for the period planned for the

these 2 additional sites are commissioned. Signing a

operation of the site.

Memorandum of Understanding (MoU) with the Province

lack of interdepartmental waste management coordination

Problem:
Lack of coordination of efforts by key role players related

Example: Timely planning

to waste management (nance, planners, councillors,

Nelson Mandela Bay Municipality has a forum which

procurement etc) within a municipality hinders progress

includes Councillors, NGOs and all municipal departments

and achievement of set targets and goals.

who have a link to waste. They discuss issues and use it for
relationship-building, information sharing and to coordinate
their efforts.

Solution:
The involvement of all key role players related to waste
management within a municipality is imperative to ensure

Example: Long term planning

a common understanding and buy-in from everyone.

Resulting from a District municipality initiative in Bitou

Consultation and proper coordination is therefore recom-

Municipality, waste management issues are discussed

mended from as early as the planning stages of projects.

during quarterly meetings at rotating venues. Municipalities

also share learning at a provincial level waste forum.

governance - integrated planning 53

good practice guide

governance (continued)

capacity
Capacity issues can be grouped into three clusters:
Skills/Training
Research and Development, and
Human resource recruitment and retention

Skills/Training
The majority of skills shortages can be rectied through

The success of learning programmes should be closely

training initiatives. Lack of institutions that offer formal

monitored to ensure that the envisaged training was

training in waste management is a draw-back, but should not

actually realised. For example, sharing and reinforcing

be considered as an excuse. Alternative skills development

the learning in the form of formal presentation to

and training options include:

colleagues should be encouraged. The already established formal reporting systems within the local munic-

Mentoring and coaching programmes, including learning

ipality should be enforced or expanded to also provide

exchange programmes between municipalities;

for proper rigorous feedback of training events.

Internship programmes; and

On the job training.

lack of civil engineers in municipalities

Problem:

Solution:

Most municipalities lack the necessary skills required to

Waste management, especially landll operations,

perform the waste management function effectively and

is highly technical and requires people with specic

efciently. Where employees in the waste management section

technical skills (civil engineering) and sound scientic

do not have the necessary educational background and/or

background (chemistry). Bench-marking waste

experience the quality of the service provided is compromised.

management functions and knowing what expertise

Civil Engineering specically, is critical in the landll operation

is required to perform these functions will assist

of medium and large sites.

municipalities in drafting appropriate job descriptions and specications for recruiting new employees.
Municipalities should invest in attracting appropriately
qualied graduates to the waste management sector.

Example: Bursaries and on the job training

required to work for the municipality for a specied period

eThekwini Municipality offers bursaries to engineering

of time. Students are also employed during university

students and on completion of the degree, the student is

holidays for on the job training.

54 governance - capacity

good practice guide

Research and Development

Municipalities are not research and development institutions.
However, like any other institution, it is imperative that
municipalities keep abreast of new developments in their
elds including landll operation and management, waste
collection optimisation, waste minimisation and recycling, etc.
This will allow municipalities to explore other innovative and
in some cases cost effective ways of improving their service.

need to explore new and innovative waste management options

Problem:

Solution:

Landlls are rapidly lling up and alternative waste

Exploring and uncovering new innovative waste

management options should be investigated. Municipalities

management options can result in improved systems and

are generally not proactive in getting involved in research

improved service delivery, huge cost savings and signi-

that will result in innovative ways of dealing with municipal

cant reduction in environmental impacts. Municipalities

waste management problems. The most common research

could partner with research organisations such as science

is geared towards satisfying legal obligations and reporting.

councils and universities to address research and develop-

This approach limits the municipalitys ability to react and

ment needs.

resolve issues before they become huge problems and

impacting on the service being rendered or being innovative
in how they deal with issues.

Example: Bursaries and on the job training

eThekwini Municipality sponsor MSc projects at the
University of Natal. A sponsorship involves payment of a
living allowance, supervision fee and conference attendance
for the student. Test cells for research projects are allowed
on the landll site (right).

governance - capacity 55

good practice guide

governance (continued)

Human resource recruitment and

retention

Job descriptions and requirements should be clearly

dened. Recruitment processes should ensure that
the skills of candidates match the job descriptions and
requirements. Vacancies must be lled in time with
appropriately skilled and experienced staff to ensure
that staff and skills shortages do not hamper service
delivery.

A dedicated workforce
Innovative incentive schemes coupled with good

Introduction of shift work reduce long working hours

management practices contribute to improved waste

to ensure compliance with labour law and reduce staff

management services. Examples: Managers showing

fatigue.

interest by occasionally accompanying the waste collec-

Redeployment of staff to accommodate changes in

tors and simultaneously auditing the quality of work.

physical abilities. For example, older staff currently

This is followed by recognition and/or rewards for work

employed on collection vehicles can be redeployed as

well done.
A dedicated team is ensured by rewards aimed at team
performance. Rewards are per team and not for individuals and are based on nishing their waste collection rounds on time and including litter picking along
the collection routes. There are also rewards for 100%
work attendance of individual team members. Any
absenteeism will disqualify any team member from the
team awards.

street sweepers.
Payment of scarce skills allowances does not assist in
attracting new staff.
Big, challenging engineering projects assist in attracting
engineers to municipalities.
Perceptions about municipalities as employer need to
be changed.
Succession planning ensures skilled staff into the
future.

declining physical strength of ageing waste collection staff

Problem:

Solution:

An efcient waste collection service requires staff with

If the physical strength of collection staff is no longer

physical strength, which is dependent on both health

adequate for the task at hand, there should be a plan for

and age. Old and sick people cannot perform their waste

redeployment to avoid risk of injury to the staff member

collection functions effectively.

while complying with labour law requirements.

Example: Redeploy old and sick staff members

members and those with ill health to the street sweeping

Nelson Mandela Bay Municipality redeploy older staff

team so that they can still be employed.

56 governance - capacity

good practice guide

high staff turnover

Problem:
High staff turnover rates in municipalities result in

Example: Opportunity for professional registration

institutional memory loss. This results in inconsistency

As part of their staff retention strategy, eThekwini

in service delivery and decision making which in turn

Municipality:

leads to low work standards. Therefore, municipalities

Provides structured training to junior engineers to

nd themselves in a constant situation with new staff

support them in obtaining registration as a profes-

members that still need to nd their feet.

sional engineer according to the guidelines of the

Engineering Council of South Africa (ECSA); and

Solution:

Pays scarce skills allowances to engineers.

Municipalities should be proactive in contributing towards

training and empowering their employees. Retention and
succession plans should be drawn up and implemented.
Appointment of ofcials in a specic job description
should be based on their qualications and experience.

Staff incentive schemes have the potential to retain staff

and to improve productivity, and ultimately to improve
the image of the municipality as an employer.

municipalities struggle to attract suitably qualied and skilled staff

Problem:

Municipalities should reinvent themselves to be competitive

There is a perception that working for a municipality is

and excel in what they do. Competent, professionally run or-

less challenging than working in the private sector. This

ganisations have a better chance to attract competent people.

is specically relevant to young people looking for work

Municipal investment in large challenging projects also assists

satisfaction and growth opportunities towards attaining

with staff retention and attracting the attention of skilled and

professional registration as engineers.

qualied future employees.

Example: Build image of competence and excellence

sector. The professional image combined with large

Durban Solid Waste (the cleansing and solid waste unit

Solution:
of eThekwini) is operated as an elite unit to promote

challenging projects, contributes towards attracting and

retaining suitably qualied staff.

excellence and a competitive edge with the private

governance - capacity 57

good practice guide

governance (continued)

meeting legal requirements

Section 24 of The Constitution of the Republic of South

The feasibility study should include an indication of the

Africa (Act No. 108 of 1996) gives every person a right to

number of years for which the municipality intends to

an environment that is not harmful to their health or well

consider an external mechanism for service delivery.

being. Schedule 5B assigns the responsibility for waste

collection services and disposal to local government.

In addition to the mandate outlined in The Constitution

Furthermore, the delivery of municipal services is dened

and the Municipal Systems and the Municipal Structures

both in the Municipal Structures Act (Act No. 117 of 1998)

Acts, the Waste Act (Act No. 59 of 2008) requires munici-

and the Municipal Systems Act (Act No. 32 of 2000). The

palities to provide containers for recyclables, the waste

latter further denes alternative approaches to service

information system and integrated waste management

delivery and the processes to be followed when alterna-

planning. It further requires waste management facilities

tives are considered. It also denes the need to plan in an

to be licenced and requires of municipalities to appoint a

integrated manner and to monitor performance of internal

waste management ofcer.

and external mechanisms for the delivery of services.

The municipality must also draft waste management
The Municipal Systems Act requires a municipality to

by-laws that are specic for their area of jurisdiction. The

encourage the communitys participation in strategic

by-laws must be specic on the services that are provided

decisions relating to the provision of municipal services.

and the charges and tariffs associated with the services.

In addition, should the municipality choose to use an

It must also provide for the regulation of services not

external mechanism for the provision of a basic service, the

provided. For example, if garden waste is not removed

municipality must establish a mechanism and programme

by the municipality, regulations must state how

for community consultation and information dissemination

communities must deal with this waste stream. It must

regarding the service delivery agreement.

provide for permits to be issued to private companies or

persons providing the service on behalf of the munici-

Before a municipality can outsource municipal services,

pality to allow control over these services. The by-laws

an assessment in terms of section 78(3) of the Municipal

should also make provision for the implementation of the

Systems Act (Act No. 32 of 2000) is required. Issues to

waste management hierarchy. For example, the by-law

consider for outsourcing of services in terms of this section

may state that certain waste streams must be separated

include:

at source and taken to drop-off centres.

Direct and indirect costs and benets associated with

the project;
Capacity of prospective service providers to render the
service;
The views of local community and organized labour; and
The likely impact on development and job creation.

58 governance - meeting legal requirements

good practice guide

meeting service demands without violating nancial and labour laws

Problem:
Due to the high demand for waste collection services

Example: Waste collection in shifts

and the limited resources available to municipalities,

The City of Tshwanes waste collection workforce works in

municipalities often nd themselves having to work

two shifts, from 07:00 to 17:00 and 17:00 till waste from

overtime. This practice is closely regulated by the

all scheduled collection points is collected. Collecting waste

municipal nancial legislation as well as the labour

in shifts ensures that the use of the trucks is optimised and

laws. In trying to cope with the increased demand,

that households receive an effective waste collection service.

municipalities often transgress these legislative

Collection staff is no longer required to work overtime

prescripts of ensuring a certain maximum number of

on a regular basis. The benets are the following: The

hours a worker can be expected to work overtime as

municipality saves on overtime payment and gets double

well as the maximum amount of money a municipality

value for money from the lease agreement of the vehicles;

can spend on overtime payments.

the collection staff is not overworked, and additional jobs

are created.

Solution:
Balance service delivery and available resources.
Innovative planning of collection rounds and schedules
can signicantly cut the overtime required. (Also refer
to the importance of vehicle maintenance in the waste
collection and transport section on page 6.)

governance - meeting legal requirements 59

good practice guide

governance (continued)

ensuring community buy-in and ownership of waste by-laws

Problem:

Solution:

In most instances waste management is viewed as a

It is important to make sure that communities are involved

function of government with very little involvement

in the development of the waste by-laws and understand

required from civil society. This creates a problem in

their role in achieving the goals of planned programmes

relation to implementation and enforcement as civil society

and targets. Awareness and education programmes are

has an important role to play to ensure the successful

therefore imperative. In addition, by-laws must be revised

implementation and enforcement of legislation in general.

regularly to keep up with the latest developments in

provincial and national legislative requirements. Public
consultation during such review processes is encouraged in
order to expose stakeholders and get their buy-in in such
legislative frameworks.

Example: Extensive participation in drafting of by-laws

The Nelson Mandela Bay Municipality recently drafted
its Waste by-law using a consultative approach, allowing
extensive inputs from stakeholders, including the public.
National trends were taken into account. The by-laws make
provision for recycling and empower the municipality to
issue nes for transgressions. The by-laws also require
waste transporters to be registered before they can
operate.

60 governance - meeting legal requirements

good practice guide

Community participation and buy-in into waste management

Problem:
Waste management is generally given a low

Example: Awareness creation for community participation

priority in government. This perception inuences

The awareness creation strategy of the Breede River

the resource allocation processes which

Winelands Municipality includes quarterly communications

negatively impede service delivery and good

in the form of yers (below) that inform residents on good

waste management practices. This perception is

waste management practices and procedures. (Also refer

further translated into community attitude towards

to awareness creation section on page 62 and more

waste management. The main driver behind this

specically page 65.)

sentiment is lack of knowledge.

eThekwini Metropolitan Municipality develops and
Solution:

distributes pamphlets on different topics including

Awareness creation is the foundation upon which

guidelines on how to conduct good waste management

all waste management programmes should be

at household level - from separating their waste and

based (see awareness creation section on

using their bins, to explaining what a landll is and how it

page 62). Sustainable waste services and good

operates.

waste management practices require the active

involvement of all stakeholders - government,
private sector and communities.

governance - meeting legal requirements 61

good practice guide

awareness creation
The main purpose of awareness creation campaigns in
communities is to change peoples attitudes and behaviour
to ensure a cleaner environment. While many current initiatives lead to visually cleaner areas, it does not encourage
sustainable practices that reduce littering and illegal
dumping in the long run. More emphasis is required on
awareness creation relating to the implementation of the
waste hierarchy. As such, waste minimisation and waste
separation at source needs to be encouraged to enhance
reuse and recycling activities.

Willingness to pay for waste services will also improve

with increased awareness as a result of increased insight
into the benets of waste services, as well as the actual
cost thereof.

Lessons learnt
Clean-up campaigns do not succeed in changing
behaviour
The main messages of awareness campaigns
must be: Do not litter and Reduce, re-use and
recycle
Incentives associated with clean-up campaigns
often reward bad behaviour
Payment for clean-ups must be decoupled from
volumes of waste collected but should rather
relate to cleanliness of the areas
Advertising/creating awareness on a regular
basis is important to inform household members
that are new to the area
Start recycling initiatives and get buy-in from
councillors and municipality ofcials before
awareness is created amongst the public

62 awareness creation

good practice guide

lack of awareness and understanding of waste management issues

Problem:

public, is imperative for effective and sustainable

There is a lack of awareness and understanding of the

waste management services. There is a wide range of

importance of waste management amongst all stakeholders

methods used to raise awareness. A combination of all,

including elected political representatives in government,

or as many methods as possible, will assist in reaching

especially local government, and the community in general.

the desired impact which is to inform all people of the

This has negative consequences for planning, personnel and

importance of keeping the environment clean and the

budget allocations within municipalities. This problem often

role recycling can play. It is however, important to choose

transpires as littering, illegal dumping and failing waste

the communication channels and materials that are

collection systems.

appropriate for each target audience and for the specic

situation of the municipality. Examples include slogans,

Solution:

billboards, exhibitions, yers, booklets, personal visits,

Awareness creation amongst all key stakeholder groups,

campaigns, and to educate on site.

including local government ofcials, councillors and the

Example: Slogans and billboards

Saldanha Bay has 2Wise2Waste bill boards (opposite page
top) and Bitou Municipality has clearly marked recycling bins
(opposite page middle). A clear signpost at a drop-off centre
in City of Cape Town communicates the type of recyclables
that is accepted (opposite page bottom). Workers on site as
well as clearly marked containers assist with the separation
of recyclables (right).

Several municipalities display slogans on transport vehicles

and containers to encourage the public to keep their town/
city clean (below and below right).

awareness creation 63

good practice guide

awareness creation (continued)

(Continued)
Example: Educate on site
eThekwini Municipality encourages school visits to the
Mariannhill landll education centre. The education
programme covered during a school visit includes the
design of the landll, operations at the landll, recycling
and general conservation. From the boma there is a clearly
marked trail passing the leachate treatment plant, landll
gas-to-electricity CDM project, MRF and plant rescue area.
Indigenous trees are marked with both botanical and
common names (below left) along the conservancy trail in
the buffer zone (below middle). A model explains the landll
liner system (below right). (Also see page 68.)

Example: Flyers, booklets and the local media

aware of waste related matters, Overstrand municipality

The Drakenstein Municipality has yers containing general

also distributes a bag for recyclables rolled in a yer

waste management information (see Drakenstein yer below

to communicate important information regarding the

and Breede River Winelands yer on page 61).

recycling initiative in the

Apart from the municipal newsletter that makes residents

area (see below right).

64 awareness creation

good practice guide

George Municipality regularly advertise the

recycling initiative in the local newspapers
including contact details for those interested in
recycling. On a quarterly basis, the recycling
contractor delivers information together with two
blue bags to non-participating households.

Example: Personal visits and exhibitions

The waste manager of Swartland Municipality
presents at school during school clean up
campaigns. Overstrand municipality visits
schools and organisations. The municipality
also have exhibition stands at both the whale
festival and the annual ower show. The
waste cycle is explained on posters and the
public and school children are made aware of
the impact of waste and the advantages of
recycling. (Also see page 19 for an example
of the poster that explain the Recycling Swop
Shop.

City of Cape Town Municipality exhibits at the

Home Expo. (Read more on pages 67 and 68.)

awareness creation 65

good practice guide

awareness creation (continued)

(Continued)
The Environmental Health Section in the Steve Tshwete
Municipality is responsible for all the environmental awareness
raising and education programmes, including waste management.
The following programmes are undertaken:
Clean-up campaigns in schools (below);
Printing of pamphlets on different topics;
A waste message in the municipal newsletter;
Celebration of environmental days/events;
Training and workshops for traditional healers, food handlers
etc.;
An hour slot per month on the local radio station to discuss
different environmental issues;
A Cleanest Schools Competition was initiated in 2009
to encourage schools to keep their premises clean. The
programme targeted schools in areas which are more dirty;
Door to door educators: This involves the deployment of some
of the community members (who were given training themselves before going out) to go to peoples houses talking to
them about environmental issues, including waste management, especially illegal dumping.

The door to door initiative has two benets: Firstly the people are
reached in the comfort of their own homes and get clarity on all
issues especially illegal dumping, and secondly it created jobs for
the educators who are paid a stipend of R80.00/15 houses they
visit. Calling community members for meetings or workshops did
not work. The attendance was poor.

66 awareness creation

good practice guide

lack of stakeholder involvement in ensuring a clean environment

Problem:

Solution:

While government is striving for cleanliness, it is the

Introduce innovative ways of attracting the involvement

responsibility of every citizen to ensure that their

of other stakeholders such as school kids and businesses.

surroundings are clean. Municipalities generally have

Where there is an incentive, people are likely to

limited resources to ensure that all areas prone to illegal

participate. However, the focus should be on preventing

dumping are cleaned-up and kept clean at all times

littering and not incentives for cleaning after littering. The

latter might drive the wrong behaviour.

Example: Adopt-a-spot

Example: Involvement of forums and organisations

The Adopt-a-spot awareness creation project in Hibiscus

The Overstrand Municipality Conservation Foundation

Coast Municipality is aimed at schools to keep a

is one of the organisations that assist Overstrand

100m zone around the school clean. The project runs

Municipality with the waste management awareness

during National clean-up week with municipal waste

campaign.

management staff giving a recycling demonstration. Bins

and bags are provided and there is a prize for the school

In Steve Tshwete Municipality, an environmental forum

with the cleanest spot.

comprises of teachers, industry, community members

and Councillors, and other sector departments within the

Companies and/or organisation in eThekwini Metropolitan

municipality and at provincial level.

Municipality have the opportunity to adopt a spot, and

will then be responsible for cleaning and maintaining this

Example: Partner with other role players

particular spot. In turn, names of these sponsors are

To maximise impact, City of Cape Town partner with

displayed, creating free publicity.

and have joint exhibitions with other role players in the

recycling industry to maximise impact (see page 68).
See awareness creation yers of partners in the industry
below and on the opposite page.

awareness creation 67

good practice guide

awareness creation (continued)

lack of dedicated and trained awareness creation personnel

Problem:

Solution:

Awareness creation has to be on-going and consistent

Ensure that there are staff members who are dedicated

in order to be effective. Planned programmes must be

to the awareness creation task. Such ofcials should be

relevant for the targeted audience. This is normally not

properly trained to ensure that their planned programmes

done to this level of detail since municipal ofcials have

are effective and have the envisaged impact.

many other responsibilities to deal with.

Example: A dedicated department or section

Example: Ongoing awareness creation and education

City of Cape Town has a dedicated department for

The walking trail and education centre at Mariannhill

awareness creation and education. They partner with

landll in eThekwini is an example of ongoing awareness

several players in the recycling industry to maximise effort

creation. The centre is designed to accommodate school

and impact. Schools, entrepreneurs and businesses are

groups in the amphitheatre style boma that overlooks the

targeted. Several pilot projects to test the implementation

landll workface (below). Also see the educate on site

of waste separation at source are also undertaken.

section on page 64.

The Steve Tshwete Municipality has a dedicated

Environmental Health Section with door-to-door educators
spreading the word of good waste management practices
(see section on awareness creation on page 66).

Example: Include awareness creation in job description

Conducting general awareness is included in the job
description of the community liaison ofcers (CLO) in
Nelson Mandela Bay Municipality. They make use of about
1000 unemployed volunteers for litter picking, street
sweeping and raising awareness. In areas where illegal
dumping is rife, the community liaison ofcers tell people
door-to-door why they should not dump.

68 awareness creation

good practice guide

notes

awareness creation 69

good practice guide

combat illegal dumping

Conventional ways of dealing with illegal dumping, in

waste streams, and the enforcement of updated by-laws

other words, clean-up by the municipality or clean-

including the ability to issue spot nes for illegal dumping

up campaigns on their own, do not seem to drive the

when caught in the act.

correct behaviour towards improving the problem of

illegal dumping. Cleaning of illegal dumping is costly

The introduction of access control with restricted gate hours

and counterproductive as it dilutes the available funding

and/or tipping fees at landlls may potentially contribute

and resources for waste management or other much

to incidences of illegal dumping if not implemented as part

needed municipal services. Furthermore, by cleaning

of a holistic approach to waste management, for example,

illegal dumping and littering without other punitive and or

it should be more expensive to pay the ne for illegal

deterrent measures sends out the message that it is not

dumping than to pay the tipping fee at the landll. Some

wrong to litter and dump.

of the above challenges are addressed by implementing a

wide range of awareness creation options (refer to section

Although it has the potential, legislation and an enabling

on awareness creation), punitive and deterrent measures

environment in itself does not prevent illegal dumping

including deployment of additional law enforcement ofcers

practices. An enabling environment include the strategic

to improve enforcement.

provision of waste bins, waste collection services to all

communities, alternative management options for specic

Lessons learnt
Paying for clean-up does not deal with the
problem of illegal dumping
Job creation as a result of illegal dumping is not
sustainable
Provision of waste collection services reduce
incidences of illegal dumping
Law enforcement combat illegal dumping and
littering
Cleaning illegal dumping is more costly than
providing formal waste collection services
Illegal dumping can be eradicated through implementation of innovative systems

70 combat illegal dumping

good practice guide

illegally dumped waste impacts on environmental and human health

Problem:

Solution:

Illegal dumping is one of the most common problems in

Different methods have been employed in different munici-

South Africa, affecting both big and small municipalities

palities ranging from awareness creation to enforcement as

alike. The practice of illegal dumping has huge impacts

well as the improvement of waste collection services and

on the environment through contamination of land and

the provision of all necessary tools and equipment such as

pollution of water bodies. This again impact negatively on

storage receptacles. A combination of these should ensure

the health of the people.

successful eradication of illegal dumping.

Example: Enforcement of by-laws

Saldanha Bay Municipality believe that prevention is
better than cure and, therefore, enforce their by-laws.
All building sites have to register for the provision of
a skip before the building plans are approved (right).
At the landll site, the arrivals of the skips from the
respective building sites are documented. Building
contractors whose skips are not emptied at the landll
site are identied as potential illegal dumpers.

Over and above the awareness creation programmes,

the following are also undertaken in order to combat
illegal dumping:
Anonymous reporting by telephone (some people
report illegal dumping at the municipality without
the risk of being identied);
Spot nes ranging from R500.00 to R1 500.00
are issued by squatter Control Ofcers (these are
trained Peace Ofcers);
The nes are included in the rates accounts;
Environmental Health Ofcers target specic areas
and monitor illegal dumping over weekends; and,
Illegally dumped waste is traced back to the
owner by going through the waste and gathering
any clues such as names and addresses found on
material.

combat illegal dumping 71

good practice guide

combat illegal dumping (continued)

a littered environment encourages further littering and dumping

Problem:
If an area is already strewn with litter or illegally

Example: Develop illegal dumping sites into parks and

dumped waste, people are likely to continue to litter

gardens

and dump in that area or on that particular site. If no

The Breede River Winelands Municipality created gardens

action is taken, the surface area where the problem

on street corners (right top) and play parks for children on

occurs is likely to increase over time.

empty land (right) where offenders used to dump waste

illegally. The community is now proud of their surroundings

Solution:

and keep it clean.

Instead of spending available funds on clean-up

campaigns, municipalities must take preventative

Both George (below) and Breede River Winelands

actions such as beautifying the area, providing waste

municipalities believe that if you keep the area clean,

bins at strategic locations and implementing projects

the residents will develop a sense of pride in their area.

that can deter people from illegally dumping, e.g.

Residents now dump less and also report dumping

using open spaces for projects that can be benecial to

activities.

residents. Projects could include:

creating parks and playgrounds for children;
initiating community gardens including vegetable
gardens for social upliftment; and,
establishing car washes to provide employment for

Hibiscus Coast Municipality hire additional workers to

clean-up illegal dumping before the onset of the peak
holiday season to improve the image of the municipality
and to discourage illegal dumping by holiday makers.

the youth in the area.

What started off as cleaning up of illegal dumping in
The choice of a project will be inuenced by the

Nelson Mandela Bay Municipality was turned into a win-win

specic area conditions and needs of an area.

situation. The unemployed and unskilled workers who used

to clean up the illegal dumping sites now offer a waste
collection service to pervious transgressors at a fee.

72 combat illegal dumping

good practice guide

73

74 contact details
B1

B2
B1

WC044

LIM333

KZN216

WC048

KNZ225

George Local Municipality

Greater Tzaneen Local Municipality

Hibiscus Coast Local Municipality

Knysna Local Municipality

Msunduzi Local Municipality

B2
B2

B3
B4
B3

WC032

WC014

MP313

WC015

LIM343

FS183

KZN282

Overstrand Local Municipality

Saldanha Bay Local Municipality

Steve Tshwete Local Municipality

Swartland Local Municipality

Thulamela Local Municipality

Tswelopele Local Municipality

uMhlathuze Local Municipality

793

6 524

2 899

3 692

3 976

1 766

1 707

1 959

634

1 059

837

3 240

1 072

2 292

1 924

289 189

53 713

580 830

142 770

70 439

55 449

1 005 780

552 835

72 116

51 469

218 170

375 588

135 408

3 090 121

2 478 629

194 418

1 982 233

2 892 243

146 029

29 183

131 089

191 018

STATS SA
(2001)*

332 154

40 617

602 825

77 520

182 513

78 985

74 548

1 050 934

616 733

65 051

224 272

349 081

136 539

3 468 087

2 724 227

217 094

2 345 909

3 888 182

3 497 101

80 124

39 011

127 307

247 616

STATS SA
(2007)**

TOTAL POPULATION

73 300

12 554

128 448

37 116

18 921

19 022

265 375

135 329

19 757

14 972

55 273

97 246

36 191

824 372

776 469

46 266

597 522

778 328

21 213

8 944

33 574

37 065

STATS SA
(2001)*

DEPARTMENT RESPONSIBLE FOR WASTE

MANAGEMENT

81 005 Community Services, health and public

safety

12 622 Technical Services

137 854 Community Services

50 451 Technical and facilities

20 785 Technical Department

21 952 Engineers Department

276 882 Public Health Directorate

134 391 Community Services and Social Equity

19 939 Civil Engineering

17 416 Solid Waste

50 647 Cleaning and Maintenance

89 830 Community Services

42 792 Environment

833 858 Solid Waste and Cleansing (Durban Solid

Waste)

849 349 Environmental Development

51 615 Engineering Department

686 640 Agriculture and Environmental Management

1 165 016 Pikitup, Infrastructure & Services Department, Environment & Department of Health

902 277 Solid Waste Management Department

21 856 Environmental and Leisure Services

Department

12 645 Municipal Structure and Infrastructure

Development

33 792 Community Services

39 866 Community Services

STATS SA
(2007)**

TOTAL HOUSEHOLDS

* Stats SA, 2001, Census 2001, Statistics South Africa, http://www.statssa.gov.za/census01/html/C2001Interactive.asp, Accessed 10 and 11/Aug/2010
** Stats SA, 2007, Community Survey, Statistics South Africa, http://www.statssa.gov.za/census01/html/C2001Interactive.asp, Accessed 10 and 11/Aug/2010

B1

B3

B1

B2

NMA

Nelson Mandela Bay Metropolitan

Municipality

ETH

eThekwini Metropolitan Municipality

B4

EKU

Ekurhuleni Metropolitan Municipality

1 538

B1

Drakenstein Local Municipality

WC023

City of Tshwane Metropolitan

Municipality

2 198

JHB

City of Johannesburg Metropolitan

Municipality

2 455

CPT

City of Cape Town Metropolitan ity

3 332

TSH

B3

WC026

Breede River/Winelands Local

Municipality

991

1 645

B3

WC047

Bitou Local Municipality

3 005

4 184

AREA
(KM2)

B3

LIM334

Ba-Phalaborwa Local Municipality

B3

KZN263

C0DE

CATEGORY

Abaqulusi Local Municipality

NAME

MUNICIPALITY

good practice guide

Contributing Municipalities

DISTRICT

Zululand

NAME

KwaZulu-Natal

DC28

uThungulu

uMhlathuze Local Municipality

Free State

DC18

Western Cape

Lejweleputswa

DC1
Limpopo

Tswelopele Local Municipality

Western Cape

DC1
Mpumalanga

Western Cape

DC3

DC31

Eastern Cape

n/a

KwaZulu-Natal

Limpopo

Western Cape

KwaZulu-Natal

Gauteng

Western Cape

Gauteng

Gauteng

Western Cape

DC34

Vhembe

Thulamela Local Municipality

DC22

Umngungundlovu

Msunduzi Local Municipality

West Coast

DC4

Eden

Knysna Local Municipality

Swartland Local Municipality

DC21

Ugu

Hibiscus Coast Local Municipality

Nkangala

DC33

Mopani

Greater Tzaneen Local

Municipality

Steve Tshwete Local Municipality

DC4

Eden

George Local Municipality

West Coast

n/a

n/a

eThekwini Metropolitan
Municipality

Saldanha Bay Local Municipality

n/a

n/a

Ekurhuleni Metropolitan
Municipality

Overberg

DC2

Cape Winelands

Drakenstein Local Municipality

Overstrand Local Municipality

n/a

n/a

City of Tshwane Metropolitan

Municipality

n/a

KwaZulu-Natal

n/a

n/a

City of Johannesburg
Metropolitan Municipality

Nelson Mandela Bay Metropolitan

Municipality

Western Cape

n/a

n/a

City of Cape Town Metropolitan

Municipality

Western Cape

DC2

Cape Winelands

Western Cape

Breede River/Winelands Local

Municipality

DC4

Limpopo

KwaZulu-Natal

PROVINCE

Eden

DC33

DC26

CODE

Bitou Local Municipality

Ba-Phalaborwa Local Municipality Mopani

Abaqulusi Local Municipality

MUNICIPALITY NAME
E-MAIL

CONTACT DETAILS

044-501 3267 [email protected]

015-780 6300 [email protected]

034-982 2133 [email protected]

TELEPHONE

Johannes
Mdlalose

Kobus Keyser

Mr Simon Madi

F. Bruwer

Mrs Makondzo

Bjorn Witbooi

Johan van Taak

Riaan le Roux

Deon Moodley

John Jaftha

Yandisa Mhlamvu

Mr. Henk Mienie

Giel Goosen

John Parkin

Zandile Khati

Hannes du Preez

Sidney Ramovha

Palesa Mathibeli

Barry Coetzee
tzee

035 907 5670 [email protected]

035 907 5790

051-853 1111 [email protected]

015 780 6300 [email protected]

022 487 9400 [email protected]

013-249 7206 [email protected]

022 701 7000 [email protected]

028 316 3724 [email protected]

079 4900 692 [email protected]

033-392 5354 [email protected]

044-302 6300 [email protected]

082 405 4025 [email protected]

015-3078291 [email protected]

044-802 2900 [email protected]

031 311 8820 [email protected]

082-453 3209 [email protected]

021-807 4748 [email protected]

012-358 0588 [email protected]

011-381 0323 [email protected]

021-400 2992 [email protected]

Glynis Abrahams/ 023-614 8000 [email protected]

Mr. Mhlom

Randall Bower

P.J. van Rooyen

Ms. Ndlovu

NAME

www.richemp.org.za

www.tswelopele.org.za

www.thulamela.gov.za

www.swartland.org.za

www.stevetshwetelm.gov.za

www.saldanhabay.co.za

www.overstrand.gov.za

www.nelsonmandelabay.gov.za

www.msunduzi.gov.za

www.knysnamunicipality.co.za

www.hcm.gov.za

www.tzaneen.co.za

www.george.co.za

www.durban.gov.za

www.ekurhuleni.gov.za

www.drakenstein.gov.za

www.tshwane.gov.za

www.joburg.org.za

www.capetown.gov.za

www.breeland.gov.za

www.plett.gov.za

www.ba-phalaborwa.gov.za

www.abaqulusi.gov.za

WEBSITE

good practice guide

contact details 75

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Godfrey L 2008. Facilitating the improved management of

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www.statssa.gov.za.

76 bibliography

notes