air quality management plan for the city of tshwane

Transcription

Project done on behalf of
City of Tshwane Metropolitan MunicipalityDepartment of Social Development
AIR QUALITY MANAGEMENT PLAN FOR THE
CITY OF TSHWANE METROPOLITAN MUNICIPALITY
2006 - 2008
Report No.: APP/05/CTMM-02a Rev 2
DATE: December 2005
Authors:
Hanlie Liebenberg-Enslin
Gillian Petzer
Airshed Planning Professionals (Pty) Ltd
PO Box 5260
Halfway House
1685
Tel
: +27 (11) 254 4929
Fax : +27 (11) 805 7010
e-mail : [email protected]
COPYRIGHT WARNING
With very few exceptions, the copyright in all text and other matter (including the
manner of presentation) is the exclusive property of Airshed Planning Professionals
(Pty) Ltd and the City of Tshwane. It is a criminal offence to reproduce and/or use,
without written consent, any matter, technical procedure and/or technique contained
in this document.
Draft Air Quality Management Plan for the City of Tshwane Metropolitan Municipality
Report No.: APP/05/CTMM-02a
Page i
EXCECUTIVE SUMMARY
1.
INTRODUCTION
According to the Constitution, municipalities have the executive authority in respect of air
pollution control. The new National Environmental Management: Air Quality Act of 2004 1
has shifted the focus away from centralised air pollution governance to the decentralisation
of power, placing the responsibility of air quality management on the shoulders of local
authorities. These responsibilities include the characterisation of baseline air quality, the
management and operation of ambient monitoring networks, the licensing of listed activities,
and the development of emissions reduction strategies. In order to fulfil these responsibilities
local authorities will be required to develop Air Quality Management Plans (AQMP) as part of
their Integrated Implementation Plans. The main objective of the act is to ensure the
protection of the environment and human health through reasonable measures of air
pollution control within the sustainable (economic, social and ecological) development
framework.
The City of Tshwane Metropolitan Municipality (CTMM) identified the necessity for the
development of strategic planning processes to enable environmentally sustainable
development within the municipality. The Tshwane Integrated Environmental Policy (TIEP)
has been formulated by the Housing, City Planning and Environmental Management
Department (Environmental Management Division) to form the foundation from which all the
departments within the CTMM can develop medium-term environmental management
strategies. This TIEP will form an integral part of the Integrated Development Plan (IDP)
process, incorporating both the State of the Environment Report and the Environmental
Implementation Plan.
Air quality management falls within the system of pollution
minimisation, management and prevention, and aims to improve it in areas with poor air
quality, and maintain it in areas with good air quality. It is within this context that the
Environmental Health Division initiated the development of an Air Quality Management
(AQM) Plan for the CTMM.
The main purpose of developing an Air Quality Management (AQM) Plan is to empower the
metro to meet its obligations as outlined in the Air Quality Act (AQA). The AQMP will initiate
‘best practice’ in air quality management and ensure the reduction of emissions in a cost
effective and equitable way. This will ensure the improvement of air quality within CTMM
and subsequently the reduction of environmental and health risks, which is also in line with
the requirements of the TIEP.
The main goals to be achieved by the CTMM through its development, implementation,
review and revision of air quality management plans were as follows:
•
To achieve and sustain acceptable air quality levels throughout the CTMM.
•
To minimize the negative impacts of air pollution on health, well-being and the
environment.
1
The National Environmental Management: Air Quality Act (Act no.39 of 2004) commenced with on the 11th of
th
September 2005 as published in the Government Gazette on the 9 of September 2005. Sections omitted from
the implementation are Sections 21, 22, 36 to 49, 51(1)(e),51(1)(f), 51(3),60 and 61.
Page ii
•
To promote the reduction of greenhouse gases so as to support the council's climate
change protection programme.
•
To reduce the extent of ozone depleting substances in line with national and international
requirements.
Specific objectives included:
•
To promote cleaner production and continuous improvement in best practice as it
pertains to air pollution prevention and minimisation.
•
To promote energy efficiency within all sectors including industrial, commercial,
institutional, mining, transportation and domestic energy use.
Based on the requirements of AQA and the TIEP, the Department of Social Development
initiated the development of an Air Quality Management Plan for the CTMM. Airshed
Planning Professionals (Pty) Ltd was appointed to assist the Environmental Health Division
in formulating a detailed Air Quality Management Plan. Although Airshed represented the
lead consultancy, Airshed sub-contracted Zitholele Consulting to provide support services for
the project. Zitholele was responsible for public notification of the project and for consultation
with interested and affected parties.
1.1
Scope of Work
To achieve the set-out objectives, it was proposed that the project had two focus areas:
•
Baseline assessment of air pollution concentrations and air quality management
practices within CTMM, and inventory of national and provincial requirements
pertaining to AQMP development.
•
Development of an Air Quality Management Plan for CTMM, taking into account:
•
operational and functional structure requirements
•
air quality management system component requirements
•
source identification and prioritisation
•
emission reduction measures implementable
•
mechanisms for facilitating inter-departmental co-operation in the identification and
implementation of emission reduction measures for certain sources
•
human resource development (training) requirements
The integration of technical evaluation and public issues were considered paramount in the
AQMP development process to ensure that the project team do not function in isolation. The
AQMP development process was divided into three components for planning and
administrative processes, viz. a technical process, an advisory process and a consultation
process. The technical process comprised all information syntheses, issue analyses and
document drafting tasks to be completed by technical members of the project team. The
advisory process refers to consultation between the project team and the Steering
Committee, Technical Working Group and Stakeholder Group. The consultation process
Page iii
included the dissemination of information and invitations for public participation, organisation
of discussion workshops, and collection and collation of comments for communication to the
technical team.
The AQMP is intended to be used as the management and performance-monitoring tool for
air quality control and to provide a baseline assessment of air quality issues within the
CTMM. The purpose of the plan was to address various categories of air pollutants
including: toxic and odoriferous substances, greenhouse gases and ozone depleting
substances. Although greenhouse gas emissions were included, these were not addressed
in detail since it was assessed as part of the Energy Strategy Report developed for CTMM in
parallel to the AQMP process. The plan also omitted noise and radioactivity since it was
addressed internally by the municipality. The main objectives of the comprehensive AQMP
to be drafted for the CTMM were:
•
An Air quality Management Plan (AQMP), including targets and projections; a
financial plan – short, medium and long term – linked to the Integrated Development
Plan of CTMM; best abatement measures – plan, project and programmes for CTMM.
•
A source inventory is a comprehensive, accurate and current account of air pollutant
emissions and associated data from specific sources over a specific time period. In
the establishment of data based fields for the CTMM source inventory the
greenhouse gas emissions inventory and reporting requirements of the metropolitan
had to be taken into account.
•
An Air Quality Management Information System with all air quality data compatible
with acceptable modelling requirements and management information system
requirements.
•
The development and implementation of the AQMP has critical implications in terms
of human resources, training and cost requirements. These implications had to be
thoroughly explored as part of the project and the system tailored to ensure the
practical feasibility of the AQM system to be proposed for implementation as part of
the CTMM AQMP.
•
Participatory workshops on the draft and final reports.
To achieve these objectives, the following process was followed in terms of preparation for
the drafting of the plan, plan compilation and consultation with technical peers and air quality
stakeholders:
(1) Completion of an air quality baseline assessment comprising:
• identification of sources, pollutants and areas of concern;
•
inventory of current management and operational structures within the Metro;
•
inventory of current procedures and methods adopted by the Metro, GDACE and
national authorities to combat air pollution within the region;
•
determine national and provincial requirements pertaining to AQM planning within
the City of Tshwane; and,
Page iv
•
review best international practices pertaining to AQMP development and
implementation.
(2) Propose pertinent actions to be taken by relevant Departments within the CTMM in the
short- and medium-terms with regard to:
• operational and functional structure optimisation;
•
air quality management system development;
•
source quantification and assessment;
•
emission reduction measure implementation; and,
•
emission reduction measure investigation.
(3) Conduct meetings with Technical Working Groups to discuss proposed measures.
(4) Consolidation of proposed measures within discussion documents. Two discussion
documents were compiled, viz.: (i) proposed air quality management policy framework,
and (ii) air quality management system design, and emission quantification and reduction
programme.
(5) Workshopping of measures included in the discussion documents with the Technical
Working Group and Air Quality Stakeholder Group.
(6) Revision of the content of the discussion documents based on comments received at the
workshops, where applicable.
(7) Compilation of the Draft Air Quality Management Plan on the basis of the revised
discussion documents. Presentation of the contents of the draft plan to Technical
Working Group and workshopping of the draft plan.
(8) Workshopping of the contents of the plan with the public (1 December 2005), collation of
comments and addressing of issues prior to plan finalisation.
(9) Integration of comments received and compilation of a Draft-Final Air Quality
Management Plan. Submission of the draft-final plan to CTMM, the Technical Working
Group and Air Quality Stakeholder Group and placing of the document in public places(2).
(10)
Submission of the Final AQMP to CTMM (December 2005), with copies of the plan
circulated to Technical Working Group and Air Quality Stakeholder group members and
placed in public places for general access.
2
2.1
BASELINE CHARACTERISATION
Background Information
CTMM is located directly north of Johannesburg and extends from Centurion in the south to
Temba in the north, covering an area of 2,200 km². The municipal boundaries are mainly
2
Copies of the Draft-Final Air Quality Management Plan were placed in all municipal libraries within the City of
Tshwane after 1 December 2005. Advertisements were placed in the press to notify people of the availability of
these documents and to invite their comments.
Page v
within the Gauteng Province with a small area in the north falling within the North West
Province. The population of CTMM borders onto 2 million (according to the 2001 Cencus) of
which most reside in Pretoria, Centurion, Temba, Soshanguve and Mabopane districts with
the highest population density within the latter two.
The topography of the area consists of hills, ridges and undulating plains. The only
topographical feature that might influence the dispersion potential of the metro is the
Magaliesberg. This mountain range stretches from the northern suburbs in the east to
Rustenburg in the west forming shallow valley within the central part of Pretoria and the
Crocodile River regions called the Magalies Moot.
The dispersion potential of the metropolitan region are predominantly influenced by mesoscale processes including thermo-topographically induced circulations, the development and
dissipation of surface inversions, and the modification of the low-level wind field and stability
regime by urban areas. Northerly to north-westerly winds prevail during much of the year
due to the prevalence of the high pressure system. Although such winds continue to
dominate during winter months, the northward shift of the high pressure belt and resultant
influence of westerly wave disturbances on the region gives rise to an increase in the
frequency of winds from the south to south-westerly sector. An increase in the frequency of
northerly to easterly winds during spring and summer months is the result of the southward
migration of the high pressure belt, with airflow being influenced both by anticyclonic
subsidence and easterly wave systems.
2.2
Priority Pollutants within CTMM
Criteria pollutants are pollutants commonly found from various sources and for which healthbased criteria (science-based guidelines) have been established as the basis for setting
permissible levels. Typical pollutants include: particulates (including soot, fly ash and
aerosols), sulphur oxides (SOx), oxides of nitrogen (NOx), carbon monoxide (CO), carbon
dioxide (CO2), volatile organic compounds (VOCs), semi-volatile organic compounds
(SVOCs), methane (CH4), ammonia (NH3), hydrogen chloride (HCl), hydrogen sulphide
(H2S), ozone (O3) and other photochemical oxidants (as secondary pollutants) and various
trace elements. Organic compounds released include formaldehyde, benzene, poly-aromatic
hydrocarbons, PCBs and dioxins and furans.
Limited ambient monitoring data exists for the CTMM. Currently two monitoring stations are
operated by the CTMM, the Rosslyn station and the Pretoria West station. The Rosslyn
monitoring station measures PM10, SO2, NO2, NO, NOx, CO and ozone whereas the Pretoria
West only measures PM10. Historically, SO2 and smoke (particulates) were monitored at
nine locations within the CTMM. In addition, lead monitoring has been conducted since 1987
to 1998 as part of the DEAT Lead Monitoring Project.
From the limited monitored data available, the priority pollutants that should be considered
within the short-term (first two years) are particulates (PM10), sulphur dioxide (SO2), and
nitrogen dioxide (NO2). Greenhouse gas pollutants (CO2, CH4, ozone, etc.) are addressed in
more detail in the CTMM Energy Strategy. In the medium (3-5 years) to long-term attention
should be paid to other pollutants such as Benzene and PM2.5.
Page vi
2.3
Priority Sources within CTMM
CTMM is not a highly industrialised area and comprises of a few large industries, various
commercial activities, domestic fuel burning, mining operations, transportation sources and
waste treatment and disposal. Sources of emission identified as occurring within the CTMM
are summarised in Table 1. The significance of transboundary sources through their
contribution to the regional aerosol component is noted in the table despite such sources not
being located within the region. Pollutants released by each source are indicated.
Table1: Sources of atmospheric emissions within the CTMM and their associated
emissions
Sources
PM
SO2
NOx
CO
CO2
CH4
HAPs
Vehicle-tailpipe emissions
Industrial operations, energy
generation and commercial fuel
burning appliances
Domestic fuel burning
Biomass burning
Vehicle-entrainment of road dust
Aviation emissions
Mining activities
Landfills
Incineration
Agricultural activities
Tyre burning
Wind-blown dust from open areas
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
X
x
x
X
X
X
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
Regional aerosol
x
(from distant sources)
HAP - hazardous air pollutants (includes toxins and carcinogens)
x - indicates pollutant is emitted by particular source type
2.4
Priority Areas with CTMM
The main areas of concern within the CTMM are those located near industrial areas such as
Pretoria West and the Moot. The Moot area is furthermore affected by the location of
numerous brickworks within the area resulting in low-level emissions resulting in poor
dispersion due to the topography of the area. Secondly, areas in close proximity to highways
and busy intersections will be affected by vehicle emissions. Informal settlements likely to
used coal and wood as energy source will be affected due to the low level releases of
emissions and especially during the winter months when more fuel is consumed.
The first step in designing an ambient air quality monitoring network is to identify the main
pollutants of concern and the priority areas potentially impacted by these pollutants. Table 2
provides a synopsis of the main pollutant, sources of pollutants and potential impacting areas
within the CTMM.
Page vii
Table 2: Summary of Priority Pollutants, Sources and Areas
Pollutants
PM10, PM2.5
NO2 (Nitrogen
dioxide)
Ozone
SO2 (Sulphur
Dioxide)
VOCs (Volatile
Organic
Compounds)
CO (Carbon
monoxide)
Air Toxics
Main Contributing Sources
-
Power generation (Rooiwal and Pretoria
West power stations)
- Industrial (e.g. Ceramic, Cement and
Iron& Steel)
- Household fuel combustion
- Other (vehicle entrainment of road dust,
wild fires, tyre burning – significant in
terms of episodes)
- Transport (diesel vehicle emissions)
- Transport (petrol vehicles, diesel
vehicles)
- Power stations (Rooiwal and Pretoria
- Industrial processes (e.g. Ceramic,
Cement and Iron& Steel)
- Wild fires, tyre burning, etc. as minor
sources
- Secondary pollutant associated with
NOx and other precursors releases
- Transport (petrol vehicles as key
contributor, also diesel vehicles)
- Industrial processes
- Wild fires
- Industrial and non-domestic fuel burning
sector (e.g. Cement and Iron & Steel)
- Transport
- Wild fires, tyre burning
- Industrial processes (e.g. Ceramics,
- Wild fires
- Transport
Incinerators, specific industries (printers,
dyers, spray painters, etc.)
Key Impacted Areas
Elevated concentrations over
much of the CTMM resulting in
widespread health risks, with
significant health effects
anticipated in residential fuel
burning areas.
Elevated concentrations expected
in close proximity to busy
roadways (i.e. N1, N4, N14)
Pretoria West and Moot area due
to Power Station and industries.
Monitoring is required to confirm
ozone levels.
much of the CTMM. Pretoria
West and Moot area.
Informal settlements during winter
months.
Main impact zones should be
established after monitoring and
modeling efforts.
Notably elevated concentrations
near busy roadways.
Pretoria West and Moot area.
In close vicinity to sources.
Page viii
2.5
Air Pollution Control and Air Quality Management Capabilities within the
CTMM
In assessing CTMM’s capacity to effectively develop and implement an air quality
management planning approach it was necessary to understand the current resources and
functions of the metro.
Two divisions are currently engaged in air pollution control and air quality management
functions, viz. the Environmental Health Division and the Environmental Management
Division. Air quality management planning falls within the Environmental Health Division,
under the Chief Health Officer for Air Quality Management.
The Chief Environmental Health Practitioners within the Environmental Health Section are
responsible for all complaint investigation including air pollution complaints. A complaints
database exists which records date of complaint, complaint type (e.g. air pollution), and
complainant details. The Environmental Resource Management section is situated within the
Environmental Management Division of the Housing, City Planning and Environmental
Management Department. The main responsibilities concerning air pollution for this Division
are the compiling of the State of the Environment Report (SOER) for CTMM and the
development of the Tshwane Integrated Environment Policy (TIEP).
Critical tools for effective air quality management include a comprehensive and current
emissions inventory, an air quality monitoring network and reporting function, and an
atmospheric dispersion modelling function. CTMM has initiated an ambient air quality and
meteorological strategy which were to be implemented during the first half of 2006. An
effective data transfer system has not been established and no skills existed within the
CTMM to support dispersion modelling. No emissions inventory have been established other
than the one as part of the AQMP development.
3
DEVELOPMENT OF AN AIR QUALITY MANAGEMENT PLAN
A clear air quality management policy was required to inform air quality management plan
development, implementation, review and revision. The drafting of this policy was informed
by:
(i)
the Constitution and Bill of Rights and national environmental policy, as documented
in the General Environmental management Policy for South Africa, the National
Environmental Management Act (NEMA) and the Integrated Pollution and Waste
Management (IP&WM) White Paper,
(ii)
National Environmental Management: Air Quality Act (No 39) of 2004 published by
the Department of Environmental Affairs and Tourism (which reflects the vision and
principles expounded by the national environmental policies), and
(iii)
International trends in air quality management policies.
The air quality management policy embodied a paradigm shift from end-of-pipe air pollution
control to pollution prevention and minimization through proactive and integrated air quality
Page ix
management planning. The integration of air quality considerations into development,
transportation, land use planning and housing policies and programmes and the involvement
of the public in the air quality management process represent key components of the policy.
The overarching principles of the Constitution, the General Environmental Policy for South
Africa and the Integrated Pollution and Waste Management Policy underpinned the proposed
local air quality management policy.
3.1
Local Air Quality Objectives
Air quality guidelines and standards and other evaluation criteria are fundamental to effective
air quality management, providing the link between the potential source of atmospheric
emissions and the user of that air at the downstream receptor site. The AQA adopted the
Department of Environmental Affairs and Tourism (DEAT) guidelines as interim national
standards for several criteria pollutants (including particulates, sulphur dioxide, oxides of
nitrogen, lead and ozone). It is however likely that the SANS limit values will be adopted as
national ambient air quality standards. Although the AQA does not make provision for or the
setting of legally binding local air quality standards by local authorities, local authorities may
define air quality guidelines as internal objectives or targets to assist in ambient air quality
management.
In the selection of pollutants for which local guidelines were established attention was paid to
the following:
•
commonly occurring pollutants within the CTMM that give rise to relatively widespread
exposures;
•
pollutants for which national air quality guidelines currently exist and for which national air
quality standards are in the process of being established; and
•
pollutants for which guidelines/standards/goals are initially issued by other countries.
A tiered approach was advocated for the purpose of setting air quality evaluation criteria for
CTMM. It was recommended that the following thresholds be established for specific
pollutants-averaging periods:
•
Limit values are to be based on scientific knowledge, with the aim of avoiding, preventing
or reducing harmful effects on human health and the environment as a whole. Limit
values are to be attained within a given period and are not to be exceeded once attained.
•
Information and investigation thresholds are intended to highlight pollutant concentrations
at which the public need be informed that the most sensitive individuals may be impacted
and/or at which investigations into reasons for the elevated levels need to be initiated.
•
Alert thresholds refer to levels beyond which there is a risk to human health from brief
exposure. The exceedance of such thresholds necessitates immediate steps.
A synopsis of the limit value or guideline selected for each pollutant-averaging period
combination is given in Table 3.
Page x
Local guidelines to be adopted for implementation by the CTMM. Values
Table 3:
are expressed in µg/m3 and where appropriate ppb (the volume standardised at a
temperature of 25°C and a pressure of 101,3 kPa.)
Pollutant
Averaging Period
Sulphur dioxide
10 minute running
average
1-hr
24-hr
annual
Nitrogen dioxide
Nitrogen oxide
Oxides
nitrogen
PM10
Carbon
monoxide
Lead
Ozone
PM2.5
of
instantaneous peak
1-hr
24-hr
1-month
annual
instantaneous peak
1-hr
24-hr
1-month
annual
instantaneous peak
1-hr
24-hr
1-month
annual
24-hr
annual
1-hr
8-hr
running
average calculated
on
1-hourly
averages
quarterly-average
annual
instantaneous peak
1-hr
8-hr
running
average calculated
on
1-hourly
averages
24-hr
annual average
Benzene
annual average
Guideline
(ppb)
191
Guideline
(µg/m3)
500
133
48
350
125
19
50
500
104
100
80
21
900
600
300
200
150
1400
800
400
300
200
955
200
191
153
40
1125
750
375
250
188
2080
1132
566
403
284
75
40
30 000
10 000
26 000
8 700
1.5
0.5
255
102
61
500
200
120
To be determine during the
development of the AQMP
5
Basis for Guideline
Current revised SA guideline,
WHO, SANS 1929
EC, UK
SA, WHO, EC, UK, SANS 1929
SA, WHO, SANS 1929
Current SA
WHO, EC, UK, SANS 1929
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
SANS 1929
SANS 1929, EC - phase 1
WHO, EC, SANS 1929
WHO, EC, SANS 1929
Current SA
WHO, EC, UK, Australia, SANS
1929
Current SA
Health criteria, SANS 1929
EC target based on WHO,
SANS 1929
SANS 1929
Page xi
The four-band scale recommended for use in the evaluation of dustfall is outlined below and
target, alert and action levels indicated. Dustfall rates shall be expressed in units of
(mg/m2/day, 30-day average).
1
BAND
DESCRIPTION
LABEL
RESIDENTIAL
2
INDUSTRIAL
3
ACTION
1 200 < D < 2 400
4
ALERT
2 400 < D
BAND
NUMBER
DUST-FALL RATE (D)
(mg m-2 day-1,
30-day average)
D < 600
600 < D < 1 200
COMMENT
Permissible for residential and light
commercial
Permissible for heavy commercial and
industrial
Requires investigation and remediation if two
sequential months lie in this band, or more
than three occur in a year.
Immediate action and remediation required
following the first exceedance.
Incident
report to be submitted to relevant authority.
Target, Action and Alert Thresholds for ambient dustfall are proposed as follows:
DUST-FALL RATE (D)
(mg m-2 day-1,
30-day average)
300
600
LEVEL
TARGET
ACTION
RESIDENTIAL
ACTION
INDUSTRIAL
ALERT
THRESHOLD
AVERAGING
PERIOD
Annual
30 days
1 200
30 days
2 400
30 days
PERMITTED FREQUENCY OF
EXCEEDANCES
Three within any year, no two sequential
months.
Three within any year, not sequential
months.
None.
First
exceedance
requires
remediation and compulsory report to
authorities.
Alert and information thresholds recommended for use by the CTMM are outlined in Table 4
but will need to be finalised at a later date.
Table 4:
Alert and information thresholds to be investigated for use by the CTMM
nitrogen dioxide
Averaging
Period
10-minute
average
3 consecutive
hours
1-hour average
carbon monoxide
3 consecutive
hours
8-hour average
ozone
8-hour average
Pollutant
sulphur dioxide
Information
Threshold
532 µg/m3
200 ppb
573 µg/m3
(300 ppb)
17.4 mg/m3
(15 ppm)
180 µg/m3
(90 ppb)
Alert Threshold
1064 µg/m3
400 ppb
350 µg/m3
(130 ppb)
764 µg/m3
(400 ppb)
3
400 µg/m
(209 ppb)
23.2 mg/m3
(20 ppm)
360 µg/m3
(180 ppb)
Basis for
Threshold
UK 15-min bands
EC alert threshold
UK bands
EC alert threshold
UK bands
UK bands
Although the protection of health is the main criteria recommended, the need to protect the
broader environment is accepted as is evident from the vision statement. Reference to
Page xii
certain criteria for the protection of vegetation and ecosystems issued by the EC, UK and US
is given in Table 5.
Table 5:
Thresholds specified by other countries specifically for vegetation and
ecosystems
Pollutant
Threshold
(ppb/ppm)
Threshold
(µg/m3 or mg/m3)
3.7 - 11.1 ppb(a)
7.4 ppb(b)
20 ppb(c)
8 - 9 ppm(e)
10 - 30 µg/m3(a)
20 µg/m3 (b)
30 µg/m3 (c)
4 - 4.5 mg/m3(e)
3 ppm/h(f)
1.5 mg/m3(f)
Averaging Period
sulphur dioxide
annual average
nitrogen oxides (NOx)
ozone
annual average
AOT40 (daylight hours,
3 months)(d)
3 months)(d)
(a) Represents the critical level for ecotoxic effects issued by the WHO for Europe; a range is given to account
for different sensitivities of vegetation types
(b) EC and UK limit value to protect ecosystems
(c) EU limit value specifically designed for the protection of vegetation
(d) AOT40 means the sum of the differences between hourly concentrations greater than 80 µg/m3 or 40 ppb
3
and 80 µg/m over a given period. The 3-month window to be selected according to the growing season of
the selected sensitive receptor and the climate in the specific region - if the growing season exceeds 3
months the most sensitive period should be used. Daylight hours are set at 8-20 h Central European Time
(e) EC target value given for vegetation
(f) EC long-term objective for vegetation
For the assessment of impacts from non-criteria pollutants for which no guidelines or
standards have been established, it was recommended that inhalation health risk screening
procedure be adopted by CTMM.
A synopsis of the specific actions required and timeframes for establishing various local air
quality objectives is given in the table below:
Action:
Target Date
Short-term
Adoption of local ambient air quality objectives and
dustfall evaluation criteria
On adoption of the AQMP
Revision of local ambient air quality objectives and
Immediately following the replacement
of the interim National Air Quality
Standards by the DEAT
Medium-term
Determine target timeframes for meeting local air quality
objectives
June 2007
Determination of local air quality objectives for PM2.5
(excluding timeframes for compliance)
June 2008
Definition of local alert and information thresholds
June 2008
Motivation of DEAT and GDACE for the investigation of
air quality criteria suited to the protection of local
vegetation and ecosystems
December 2008
Adoption of local objectives for the protection of
January 2010 - Pending completion of
DEAT/GDACE investigation
Page xiii
4
AIR QUALITY MANAGEMENT SYSTEM
An AQMP cannot be successfully implemented and revised in the absence of an effective air
quality management system (AQMS). It was proposed that the CTMM establish a system in
the short-term (first two years after approval).
Although air quality objectives represent important AQM 'tools’, other essential tools include
an emissions inventory, air quality and meteorological monitoring and atmospheric dispersion
modelling. On the basis of a comprehensive emissions inventory, the application of
monitoring, in combination with modelling, facilitates the effective characterisation of spatial
and temporal variations in air pollutant concentrations. Such concentrations are evaluated
based on local guideline values to determine the need for devising emission control
strategies. Dispersion modelling is used to predict ambient air pollutant reductions possible
through the implementation of specific emission control strategies. Emission control
strategies may then be selected which are able to ensure compliance with the local guideline
value, the socio-economic acceptability and technological feasibility of such strategies having
been assessed. The control measures selected need to be enforced and if these are not
achieved after a reasonable period of time the emission control measures may need to be
revised.
An integrated air quality management system to be implemented by CTMM is illustrated in
Figure 1. System components proposed for implementation in the short-term are indicated
by solid lines, with components to be added at a later stage indicated by dashed lines. It was
also recommended that CTMM consult with DEAT and GDACE during the development of
the AQMS to ensure synergy between the systems develop by adjacent metropolitans, the
Gauteng province and on national level.
Figure 1: Air quality management system proposed for implementation by CTMM
Page xiv
It was proposed that CTMM develop a comprehensive and accurate emissions inventory
reflecting the current status quo. This should reflect all point and non-point (fugitive)
sources. The first level emissions inventory developed during the Baseline Assessment for
CTMM in 2005 could be used as basis.
In the development of an ambient air quality and meteorological monitoring network, careful
consideration had to be given to the monitoring objectives, the parameters to be monitored
and the locations of the stations.
The main air quality monitoring objectives adopted by CTMM were:
• to determine compliance with air quality guidelines and standards;
•
to assess exposure of people, addressing both the highest levels and the levels in
other areas where the general population is exposed;
•
make adequate information available to the public;
•
provide objective inputs to air quality management, transportation and land use
planning;
•
tracking progress made by pollution control measure implementation;
•
source contribution determination (e.g. receptor modelling);
•
spatial and temporal trend analysis; and,
•
to be used to validate dispersion modelling.
Based on the main pollutants of concern identified during the baseline assessment and the
lack of background concentration information, it was decided to focus on priority pollutants in
the short-term. Site selection was based on various factors such as source locations in
relation to sensitive receptor areas (i.e. residential areas, hospitals, schools etc.), population
density (specifically in informal settlements), topography (such as the moot area), and the
dispersion potential of the region (predominant wind fields). In addition, use was made of the
dispersion simulation results as conducted during the baseline assessment.
The locations of existing and proposed monitoring stations are presented in Table 6. It
should be noted that the locations are not necessarily permanent and will be moved to record
at all the main impacted areas within the CTMM.
Table 6: Proposed CTMM air quality and meteorological monitoring sites
Site Name
Site Type
Site Classification
Minimum Parameters to be
Measured
Rosslyn
Stationary (existing
GDACE-sponsored
station)
Within industrial area
PM10, SO2, NO, NO2, NOx, CO
& Ozone
Pretoria West
Semi-stationary
(existing CTMM station)
– close to residential
areas
PM10, Wind speed,
direction, sigma-theta
Mamelodi
Stationary (new station
proposed for
commissioning by
March 2006)
Residential –
household fuel
burning
wind
& Ozone
Wind speed, wind direction,
sigma-theta
Page xv
Site Name
Moot – western
section
Centurion –
central
Centurion –
Highveld near
N1/N14
intersection
Pretoria East –
near
N1/N4
intersection
Site Type
proposed for
commissioning by
March 2007)
proposed for
commissioning by
March 2007)
Mobile station (new
station proposed for
commissioning by
March 2006)
Mobile station (new
commissioning by
March 2006)
Centurion –
Elardus Park
Mobile station (new
commissioning by
March 2006)
Centurion –
Rooihuiskraal/
The Reeds
Mobile station (new
commissioning by
March 2006)
Temba
Mabopane/
Ga-Rankuwa
Pretoria West
Pretoria North
– Akasia
Pretoria CBD
Lyttelton
Rooihuiskraal
Sunderland
Ridge
Mobile station (new
commissioning by
March 2006)
Mobile station (new
commissioning by
March 2006)
Mobile station (new
commissioning by
March 2006)
Mobile station (new
commissioning by
March 2006)
Mobile station (new
commissioning
by
March 2006)
Smoke and SO2
sampling - Previously
funded by DEAT with
monitoring undertaken
Site Classification
Residential –
proximity to industry
Residential –
possible impacts from
industrial sources to
the north
Residential/Commerc
ial - vehicle
emissions
Residential - vehicle
emissions
Residential – trans
boundary pollution
from EMM & potential
pollution transfer from
CTMM
boundary pollution
from City of Joburg &
potential pollution
transfer from CTMM
Measured
& Ozone
sigma-theta
& Ozone
sigma-theta
PM10, PM2.5, SO2, NO, NO2,
CO, lead, benzene & Ozone
sigma-theta
PM10, PM2.5, SO2, NO, NO2,
sigma-theta
PM10, PM2.5, SO2, NO, NO2,
sigma-theta
PM10, PM2.5, SO2, NO, NO2,
sigma-theta
Residential
Residential
PM10, SO2, NO, NO2,
& Ozone
Wind speed, wind
sigma-theta
PM10, SO2, NO, NO2,
& Ozone
Wind speed, wind
sigma-theta
PM10, SO2, NO, NO2,
& Ozone
Wind speed, wind
sigma-theta
PM10, SO2, NO, NO2,
& Ozone
Wind speed, wind
sigma-theta
PM10, SO2, NO, NO2,
& Ozone
Wind speed, wind
sigma-theta
Smoke & SO2
Smoke & SO2
Residential
Smoke & SO2
Residential –
household fuel
burning
Residential –
household fuel
burning
Residential –
proximity to Pretoria
West Industrial
Residential –
proximity to Rosslyn
Commercial /
Business – reference
point
NOx, CO
direction,
NOx, CO
direction,
NOx, CO
direction,
NOx, CO
direction,
NOx, CO
direction,
Page xvi
Site Name
Erasmuskloof
Myburgh Street
Atteridgeville
Site Type
by Local Authorities
(Environmental Health
Depts) – ceased in
2001 (proposed to recommission)
Mamelodi
CSIR
Sammy Marks
building
Site Classification
Residential
Residential
Residential –
household fuel
burning
Residential –
household fuel
burning
Residential /
Commercial
CBD
Measured
Smoke & SO2
Smoke & SO2
Smoke & SO2
Smoke & SO2
Smoke & SO2
Smoke & SO2
For the data from the monitoring network, it is important that data quality objectives, data
processing and reporting protocols, and monitoring methods must be established. It is
imperative that the software to be used is open-ended to allow for the interaction with any
database.
Dispersion models calculate ambient air concentrations primarily as functions of source
configurations, emission strengths, terrain features, and meteorological characteristics,
hence forming an integral part of air quality management and planning. It was proposed that
an urban-scale dispersion model be selected, capable of modelling area, point, and line
sources and chemical transformation (specifically ozone formation). It should be windows
based and compatible with other software and databases.
An important aspect of the Air Quality Act is the involvement of the public in decision making
processes. It is therefore pertinent to make information regarding air quality within CTMM
available to the public, stakeholders and I&APs. This necessitates a reporting protocol to
ensure a standardised methodology and reporting format. In addition, a public consultation
process should be followed taking into account specific aims and objectives to be met and
what media or other methods to be used. The current complaints register should be updated
to allow for automatic logging and reporting. It was also recommended that public meeting
be held every six months at a central venue for the majority of I&APs.
A synopsis of the specific actions required and timeframes for establishing and operating the
AQMS is given in the table below:
Action:
Target Date:
Short-term
Consolidation of an ambient air quality and meteorological
monitoring network, including: the three new stationary stations and
the nine mobile stations, and automated data transfer and firstorder validation
Consult with industries required to fund ambient air quality
monitoring and integration of data from such monitoring into
CTMM’s air quality data base
Update and integrate the electronic, centrally-accessible complaints
register
June 2006
On-going
July 2006
Page xvii
Evaluation and costing of passive diffusive monitoring and
biomonitoring campaigns
Update of source and emissions data for all major sources (ongoing)
Define and implement a schedule for routine reporting
Extend ambient air quality and meteorological monitoring network
to include 2 additional stations. Possible stations and sites include:
(i) stationary site in Western Moot; and (ii) stationary site in
Centurion.
Arrange, advertise and conduct 6-monthly public meetings
Purchase and install Emissions Inventory and Air Dispersion
Modeling software
Medium-term
Investigate the feasibility of designating an air pollution hotline and
air quality information and liaison officer duties
Collation of source and emissions data for all major sources (ongoing) and initial population of Emissions Inventory software
Population of the Air Dispersion Modeling software and simulation
of ambient air pollutant concentrations across the Metro
4.1
December 2006
December 2006
March 2007
March 2007
July 2007
December 2007
December 2008
December 2008
July 2008
Source Quantification and Emissions Reduction Strategies
The main aim in developing an AQMS is to identify and implement emission reduction
measures to improve air quality over a given period of time. Thus, it is important to ensure
that the main sources of ambient air pollution impacting on the receiving environment are
targeted and that emission reduction measures or strategies proposed are indeed feasible
and cost effective.
4.1.1
Domestic Fuel Burning
It was considered crucial that national, provincial and local initiatives aimed at reducing
household fuel burning are conducted in a coordinated manner. The initiatives prioritized for
implementation by CTMM would therefore reflect the priorities of national departments such
at DME and the Department of Housing. The main strategies over the short-term and
medium-term are outlined in Table 7.
Table 7: Emissions reduction strategies for Domestic Fuel Burning to be implemented
by CTMM over the short-and medium term.
Strategy
Short-term (1 to 2 years)
CTMM negotiate with the DME and DEAT to sponsor a similar
project for Mamelodi and Marabastad as the Tembisa Basa
Njengo Magogo (BNM) project. CTMM personnel will have to
be involved in the project and will require training from DME in
the BNM method of ignition
Involve the public and other organization in the education of the
BNM method. The National Zoo has indicated their willingness
to train school groups on the use of the BNM as part of their
education programme. Nissan SA recommended that a DVD
Responsible
parties
Initiation
(duration)
CTMM EHPs
DME
July 2006
(18 months)
CTMM, DMS,
DEAT &
Industries
July 2006
(18 months)
Page xviii
Strategy
be made on the BNM method to be distributed to all industries
as part of staff training and education programmes.
Considering the integration of energy efficiency measures in
new low-cost housing areas. This should include solar passive
designs, better insulation (specifically under tin roofs etc) and
research into alternative building materials (such as certain
inert waste materials that can be used)
Medium term (3-5 years)
CTMM to implement the Basa Njengo Magogo project in
Soshanguve and Atteridgeville
CTMM should continue the surveys of households initiated buy
the State of Energy study in order to track progress made by
the BNM Projects within the areas where it was launched. This
in turn should be reflected in the revised Air Quality
Management Plan and State of Energy report
Update emissions quantification and impacts predictions
(dispersion model) with new information on domestic fuel
burning.
CTMM to setup an urban air quality dispersion model to
simulate pollution concentrations associated with domestic fuel
burning emissions.
CTMM to facilitate the investigation and identification of suitable
alternatives to household fuel burning to look at low-smoke
fuels, renewable energy, energy demand management etc.)
Responsible
parties
Initiation
(duration)
CTMM Housing
Division
March 2006
(on-going)
CTMM EHPs
January 2008 –
(12 months per
settlement)
CTMM Air
Quality Section
CTMM EHPs
DME
July 2008
(6 months)
CTMM Air
Quality Section
January 2009
(on-going)
CTMM Air
Quality Section
January 2009
(on-going)
CTMM Air
Quality Section
January 2009
(on-going)
The energy efficiency measures intended for implementation in the short- and medium-terms
are in line with the DME Energy Efficiency Strategy (March 2005) and the National Energy
Regulator’s Regulatory Policy on Energy Efficiency and Demand Side Management
(EEDSM) for South African Electricity Industry (May 2004).
4.1.2
Road Transportation
Collaboration between local, provincial and national government is required to secure the
effective regulation of vehicle emissions. Transportation management measures and
emission testing strategies by local authorities are likely to be more successful if
implemented uniformly across neighbouring cities and metros. Critical to the success of the
implementation of any emission reduction strategies within CTMM is the relationship
between various departments within the metro, i.e. transport planning, land-use planning and
housing divisions.
Emission reduction strategies proposed over the short- and medium-terms are provided in
Table 8.
Page xix
Table 8: Emissions reduction strategies for Transportation to be implemented by
CTMM over the short-and medium term.
Proposed Strategy
CTMM to establish an Inter-departmental Transport Liaison Group
(ITLG) between the Environmental Health, Environmental
Management, Transport, Housing and Land-use planning divisions.
This group must meet every month to establish information sharing
systems and subsequently the implementation of short-term
measures. The Integrated Transport Plan should be used as basis
and must be updated continuously.
It is recommended that the Inter-departmental Transport liaison
Group contact the same Groups within EMM and Joburg to learn
form their experience and to establish an inter-municipal
relationship for future planning purposes and to standardise
procedures within the Gauteng Province. GDACE can be
contacted to coordinate these meetings which should take place
quarterly.
Current diesel vehicle testing procedures to be standardised and
expanded to be conducted once a month, with a target number of
vehicles to be tested. The CTMM fleets should be tested first. The
results should be reported to the Transport division who needs to
report to the ITLG. Get the corporation of the Metro Police to
support the diesel vehicle testing
CTMM to design a more comprehensive and effective vehicle
emission testing programme for implementation in the medium-term
in consultation with the City of Joburg and EMM and the Gauteng
province (1). This may include a feasibility assessment to conduct
vehicle emission testing at the licensing facility as part of vehicle
license renewal. The funds from fines can be used for research into
cleaner technology.
Reporting of monitored data from the mobile stations located near
main highway intersections (see Section 5) to the Transport
Division and Inter-departmental Transport Liaison Group to inform
transport planning and highlight air quality issues.
Determine how the transport model currently used by the CTMM
Transport Division (EMME/2) can be utilized to better inform
transportation emissions calculation and how this can be used by
the Air Quality Management Section. Establish the capacity within
the Transport division required to update this model annually with
relevant traffic count data. Determine how Metro police can be used
to assist in gathering this type of information.
Research should be encouraged on cleaner transportation
technologies through liaising with the Transportation Planning
project manager on the Clean Transport Technology Project via the
ITLG. CTMM will also have to liaise with GDACE to integrate
findings from their cleaner technologies initiative and to avoid
duplication.
Implementation of diesel and vehicle emissions testing procedures
developed during the short-term.
Implementations of the customized EMME/2 traffic model for
providing emissions data for the Air Quality Section if proofed to be
feasible.
Implement systems to update vehicle count data annually as
determined during the short-term
Responsible
parties
Initiation
(duration)
CTMM
divisions
Coordinated
by Air Quality
Section
January 2006
(6 months to
establish,
thereafter ongoing)
CTMM ITLG
GDACE
June 2006
(on-going)
CTMM
Transport
Division &
ITLG
January 2006
(on-going)
CTMM
Transport
Division
January 2007
(12 months)
CTMM
Air Quality
Transport
ITLG
April 2006
(on-going)
CTMM
Air Quality
Transport
ITLG
April 2006
(on-going)
CTMM ITLG
GDACE
June 2006
(on-going)
CTMM ITLG
January 2008
(36 months)
CTMM Air
Quality
Section
CTMM
Transport
January 2009
(every 3 years)
January 2008
(annually)
Page xx
Proposed Strategy
Responsible
parties
Division
Initiation
(duration)
CTMM to liaise and encourage the Airforce to conduct an emissions
CTMM Air
inventory and impact assessment for all their airports within CTMM.
January 2008
Quality
The data should be incorporated into the CTMM emissions
(on-going)
Section
database.
CTMM to liaise with Transnet and private rail companies on
CTMM Air
quantification of emissions emanating from railroad, especially
January 2008
Quality
within the Capital Park area. The data should be incorporated into
(on-going)
Section
the CTMM emissions database.
CTMM Air
CTMM to setup an urban air quality dispersion model to simulate
January 2009
Quality
pollution concentrations associated with vehicle emissions – also
(on-going)
Section
assessment of peak traffic periods
Dispersion modeling results to be communicated to the Transport
CTMM Air
January 2009
Division to assist in transport strategy development and
Quality
(on-going)
implementation
Section
Based on information received from various tools the aim should be
to increase on-and off- ramps onto highways from congested roads,
identify development of alternative routes, bicycle lanes to be
CTMM
January 2008
introduced, Bus lanes to be increased (encourage private bus
Transport
(on-going)
companies to bus services on main routes using bus lanes thus no
Division
traffic congestion & will encourage people using own transport to
use this service). Encourage these to use CNG and/or LPG driven
busses.
Notes: (1) This will not be required if DEAT establishes new regulations pertaining to vehicle
emissions testing within the next 2 years under the Air Quality Act of 2004.
4.1.3
Industrial Sources
For the purpose of this document industrial sources include all scheduled and non-scheduled
processes, and energy generation activities within the CTMM.
A total of 103 permits have been issued for scheduled processes in the CTMM, including
power generation activities. Very little information was available on control technology
implemented by these scheduled and non-scheduled processes. Various smaller industrial
and commercial operations are currently operational within the CTMM. This would include
activities such as spray painting, sand blasting, dry cleaning, small boiler operations and
incineration process, materials handling etc. A total of 281 fuel burning appliance certificates
have been issues by the CTMM to date. No information was available on the actual amount
of fuel used, the frequency and duration of operation, and control equipment in place at each
of these locations. No information was available on other smaller industries within the CTMM
and hence most of these operations are not monitored.
Recommended strategies for scheduled and non-scheduled processes are provided in Table
9.
Page xxi
Table 9: Recommended emission reduction strategies for scheduled and nonscheduled processes within the CTMM.
Responsible
parties
Proposed Strategy
Initiation
(duration)
Short-term measures
Update of current CTMM emissions inventory
•
Scheduled processes need to provide permit certificates
and have to demonstrate compliance with permit conditions.
•
Non-scheduled processes need to provide process
descriptions and any available emissions information.
•
CTMM must identify industries and commercial/institutional
concerns undertaking combustion processes to compile
emissions inventories and report source and emissions data
to the Metro. CTMM will have to compile questionnaires to
be sent out to these industries.
Review current emission reduction strategies reported to ensure it
is in line with best available international practice
•
CTMM to encourage industries to investigate
implement best available control technology
and
•
Power Stations to investigate and implement feasible
desulphurisation options. Use coal with lower sulphur and
ash content.
Develop relationships with National and Provincial Government,
and related CTMM departments (i.e Environmental Management &
Environmental Health).
•
•
Until the relevant sections of the AQA pertaining to
emission licences have commenced, CAPCO need to
inform CTMM of any new scheduled process developments
within CTMM or any changes to existing permits.
Town planning division needs to inform the Air Quality
section of any new industrial development zones and/or
applications.
CTMM Air
quality section
Environmental
Health
January 2006
(12 months)
January 2006
(12 months)
DEAT
CAPCO
January 2006
(24 months)
CTMM Air
quality section
January 2006
(24 months)
CTMM Air
quality section
DEAT
CAPCO
January 2006
(24 months)
GDACE
•
All EIA information pertaining to industrial development
must be obtained from GDACE.
CTMM must update the existing database on fuel burning
appliances to include:
•
location of appliance
•
company name and contact details
•
type of appliance
•
type of fuel in use
•
sulphur and ash content of fuel (where appropriate)
•
quantity of fuel used
•
scheduling of operation (continuous, intermittent - two hours
per day, etc.)
•
control measures in place and control efficiency of these
measures
•
stack parameters (height, inner stack diameter, gas exit
temperature, and gas exit velocity or volumetric flow)
CTMM Air
quality section
& OHPs
January 2006
(24 months)
Page xxii
Proposed Strategy
• stack monitoring data (where available)
Any new fuel burning appliances must be reported to the metro
Medium-term measures
Based on the outcome of the DEAT emissions licence review
(2)
project , review permits based on updated emissions inventory
and information on control equipment
Set specifications on combustion efficiency applicable to all new
coal fired boilers in collaboration with the project initiated by DME
(3)
. The project looks at fuel switching, abatement technology
implementation, and improvements in energy efficiency.
Liaise with Eskom on demand side management measures
applicable to the commercial and industrial sectors. Electricity
generated by Pretoria West power station can be replaced by
residential gas usage.
Investigate the potential for introducing alternative tariff structures
for the purpose of encouraging on-site co-generation and the
introduction of renewable energy. Waste gas streams from
industries to be utilised as energy source – possible incentives.
Investigation of the potential for introducing market incentives and
disincentives for the purpose of encouraging emission reduction by
industrial and power generation processes. Examples include:
•
Iron & Steel manufacturing: waste gas recovery and use &improve fugitive dust emissions;
•
Cement manufacturers: minimising fuel usage by
preheating and precalcination (to the extend possible given
the existing kiln system configuration) & heat recover from
waste gas
•
Initiation
(duration)
CTMM Air
quality section
DEAT
January 2008
(36 months &
on-going)
CTMM Air
quality section
January 2008
(36 months &
on-going)
DME
CTMM Air
quality section
DME &
Eskom
January 2008
(36 months &
on-going)
CTMM Air
quality section
Eskom
January 2008
(36 months &
on-going)
CTMM Air
quality section
Environmental
Management
Environmental
Health
January 2008
(36 months &
on-going)
Clay brick manufacturers: fuel switching from coal to gas
This process will be enhances by forming a relationship between
the main industrial role-players in the metro and CTMM
CTMM should investigate the feasibility of decommissioning the
Pretoria West power station and replace it with gas reticulation
network
CTMM to update emissions inventory to include emission reduction
due to measures implemented during the short-term.
CTMM should develop a system to liaise with DEAT and Gauteng
government to ensure CTMM are up to date with any new
developments on the control of industrial and commercial sources.
The proposed National Air Quality database should be investigated
to ensure information generated by CTMM can be incorporated
into this database and information from this database can be used.
Notes:
Responsible
parties
CTMM Air
quality section
Environmental
Management
CTMM Air
Quality
Section
January 2008
(36 months &
on-going)
January 2009
(on-going)
(1)
Criteria to be used by CTMM to determine which operations are required to undertake
emissions inventories are provided in Appendix.
(2)
DEAT has called for tenders for the Atmospheric Licensing Project which aims to capture
all existing Registration certicicates and the review thereof.
Page xxiii
Possible emission reduction measures to be implemented include:
•
Iron & Steel manufacturing
emissions
•
Cement manufacturers
- minimising fuel usage by preheating and
precalcination (to the extend possible given the existing kiln system configuration) heat recover from waste gas
•
Clay brick manufacturers
4.1.4
- waste gas recovery and use &- improve fugitive dust
- fuel switching from coal to gas
Waste and Disposal Treatment
Medical waste incineration is controlled by the Department of Health. Incineration also
represents a 'Scheduled Process' in terms of APPA and as such requires a permit to operate
from the DEAT. No information was available on the types of incinerators and the amount of
waste being disposed off.
CTMM currently operates 9 general waste disposal sites. The permitting of landfill sites will
in future become the responsibility of DEAT. The Environmental Health Division of CTMM
has drafted a Waste Minimisation Strategy in June 2005 with the main objective to minimise
waste within the CTMM.
Recommended strategies for waste facilities are provided in Table 10.
Table 10: Recommended emission reduction strategies for waste disposal facilities
within the CTMM.
Proposed Strategy
Short-term measures
CTMM to require all waste disposal facilities to meet DWAF
minimum requirements.
Large general sites not meeting the DWAF requirements should
provide CTMM with a speciated substance emissions inventory
based on surface gas network sampling, dispersion modelling
results showing predicted impacts together with a health risk
screening assessment and odour assessment. CTMM should
require a quantitative health risk to be undertaken should the
reported results indicate the potential for health risks.
Finalisation and implementation of the Waste Minimisation
Strategy.
The Environmental Health Division should report
quarterly on the progress on the implementation of the strategy
and provide information on the quantities and waste streams to
each facility.
CTMM should provide residential bins for segregation of domestic
waste (i.e. glass and other).
Responsible
parties
Initiation
(duration)
CTMM
Environmental
Health
CTMM
Environmental
Health
January 2006
(12 months)
CTMM
Environmental
Health
January 2006
(24 months)
CTMM
Environmental
Health
January 2007
(on-going)
Page xxiv
Proposed Strategy
Sewage and wastewater treatment facilities to compile emissions
inventories, commission ambient air quality monitoring, undertake
impact and risk screening studies.
Undertake health risk
assessments should the findings of he screenings studies indicate
a potential for such a risk. This should be reported to the CTMM
annually.
CTMM to update emissions inventory with monitored and
estimated emissions from landfill sites and wastewater and sewage
treatment works.
The Waste Minimisation Strategy proposes education of the public
and including stakeholders. This can be done in collaboration with
other environmental awareness campaigns. CTMM could publish
tips on waste recycling and reduction on its website and on
billboards to inform and educated the public.
Determine additional waste segregation and recycling strategies
applicable for implementation within CTMM.
Investigate alternative waste treatment and disposal options. The
cement industry can be approach to investigate the feasibility of
hazardous waste incineration at cement kilns.
pollution concentrations associated with waste disposal facilities
and wastewater and sewage treatment works.
treatment works.
4.1.5
Responsible
parties
Initiation
(duration)
CTMM
Environmental
Health
Air Quality
Section
January 2006
(12 months)
CTMM
Environmental
Health
January 2007
(12 months)
CTMM
Environmental
Health
January 2008
(36 months &
CTMM Air
quality section
DEAT
CTMM Air
quality section
PPC
CTMM Air
Quality
Section
CTMM Air
Quality
Section
January 2008
(36 months &
on-going)
January 2008
(36 months &
on-going)
on-going)
January 2009
(on-going)
January 2009
(on-going)
Mining Activities
There are a total of 27 mines in operation within the CTMM, excluding various smaller sand
quarries not listed. These mining operations are almost exclusively quarries operated by
means of opencast or surface mining techniques which are notorious for the generation of
dust.
Recommended strategies for other sources are provided in Table 11.
Table 11: Recommended emission reduction strategies for mining operations within
the CTMM.
Proposed Strategy
Short-term measures
CTMM must require representation on the inter-departmental
committee tasked with the regulation of mining activities
Require mining companies to provide CTMM with emissions
inventories for their operations, including mineral processing plants.
Responsible
parties
CTMM t
DWAF, DME
& GDACE
CTMM Air
Quality
Environmental
Management
Initiation
(duration)
July 2006
(on-going)
January
2007
(12 months)
Page xxv
Proposed Strategy
All mines in close proximity to residential areas to implement dust
fallout monitoring networks. Results must be reported monthly to the
mine management and 6-monthly to the CTMM.
All opencast mines to compile and implement comprehensive dust
management plans as part of their EMPRs and report this to CTMM.
Responsible
parties
CTMM Air
Quality
Environmental
Management
CTMM Air
Quality
Environmental
Management
Initiation
(duration)
January
2007
(12 months)
January
2007
(12 months)
CTMM request that DME ensure all mines:
•
have approved EMPRs,
•
can demonstrate compliance with EMPR commitments and
National ambient air quality standards
•
have determined the financial quantum and provide for the
prevention & management of air pollution
CTMM
Environmental
Management
DME &
GDACE
July 2008
(on-going)
•
fines for mines not complying with the EMPR requirements
All mines closing must comply with their closure commitments,
specifically with dust management plans and rehabilitation objectives
pollution concentrations associated with fugitive dust from mining
facilities
CTMM to update emissions inventory with monitored and estimated
emissions from mining sites. Also to include implemented mitigation
measures and associated reductions
4.1.6
CTMM
Environmental
Management
DME &
GDACE
CTMM Air
Quality
Section
CTMM Air
Quality
Section
July 2008
(on-going)
January
2009
(on-going)
January
2009
(on-going)
Other Sources
Other sources that rose concern mainly form the public within CTMM include veld fires, tyre
burning, agricultural emissions (such as wind blown dust from open areas), vehicle
entrainment on unpaved roads, and railway transport.
Recommended strategies for other sources are provided in Table 12.
Table 12: Recommended emission reduction strategies for other sources within the
CTMM.
Proposed Strategy
Short-term measures
Identify and quantify emissions from other sources, i.e. vehicle
entrainment of unpaved roads, agricultural activities (i.e. land
tilling), veld fires, tyre burning, and railway emissions.
Establish routine data retrieval mechanisms for the purpose of
updating the emissions inventory (e.g. Fire Departments - request
data be kept on locations of veld fires and extent of areas burned).
Rendering plants treating waste from abattoirs should provide an
Responsible
parties
CTMM Air
Quality
Section
CTMM Air
Quality
Section
CTMM Air
Initiation
(duration)
July 2006
January 2007
January 2007
Page xxvi
Proposed Strategy
inventory of waste received and treatment methodologies.
Emissions should be quantified for the facilities and provided to
CTMM to be incorporated into the emissions database.
Control the burning of grass by municipal worker's and contractors
along highways and elsewhere.
Responsible
parties
Quality
Section
Support national legislation aimed at controlling copper wire
burning for the purpose of wire stripping
CTMM Air
Quality
Section
CTMM Air
Quality
Section
Initiation
(duration)
July 2006
July 2006
Investigate the use of by-law implementation for the purpose of:
•
Tyre burning,
•
controlling trackout from construction sites,
•
stipulating the need for dustfall monitoring and reporting of
results during large-scale construction and demolition
projects
Expand and enhance the Environmental Health one-Stop Service
and electronic complaints register to feed into Management
Information System. Ensure action procedures for incidences of
tyre burning and uncontrolled veld fires
Establish a Communication Plan to underpin the AQMP. This
should include strategies for disseminating relevant Air Quality
Related information to the public. Make use of private and
commercial sectors in distributing information (i.e. National Zoo’s
Education Plan, Industry Staff Training Programmes, Media,
Billboards, etc.)
Identification of emission reduction measures for other sources
predicted on the basis of the quantitative emissions inventory and
in-house atmospheric dispersion modelling or external studies to
be significant in terms of health risks or nuisance impacts.
4.2
CTMM Air
Quality
Section
July 2006
CTMM Air
Quality
Section
OHP
July 2006
CTMM Air
Quality
Section
July 2006
CTMM Air
Quality
Section
July 2006
Research Initiatives
In order to ensure the effective implementation of the Air Quality Management Plan various
research efforts will need to be undertaken internally by CTMM (see Table 13).
Table 13: Research initiatives recommended for implementation in the short- and
medium-term.
Research Required
Purpose
Assess the problems and challenges faced by
the City of Joburg and EMM in the
implementation of their AQMPs
CTMM should learn from the
experience from the
neighbouring metros to fast
track their AQMP
implementation
Determine whether the
existing traffic model could be
used to estimate vehicle
emissions based on locally
developed emission factors
Responsible
Schedule
CTMM Air
Quality Section
Jan 2006 –
June 2006
CTMM Air
Quality &
Traffic Division
July 2006 –
June 2007
Short-term
Assess the existing emissions quantification
tools within the CTMM (viz. EMME2 traffic
model) and how useful this is for application
within the Air Quality Division
Page xxvii
Research Required
Purpose
Determine what emissions quantification
methods and tools are available for use by
CTMM taking into consideration the specific
sources that will have to be quantified by the
municipality (i.e. waste disposal facilities,
domestic fuel burning etc.) and ensure the
potential for changing algorithms to suit local
considerations and source types.
Assess and cost suitable passive diffusive and
biomonitoring methods to determine the
potential for their implementation within
Tshwane for the purpose of informing air
quality management
Even though CTMM cab
request emission inventories
to be developed by industrial
sources and mines, CTMM
will have to quantify emissions
from remaining sources inhouse
Assess the ability of the current/and proposed
software (Opsis system) utilized by CTMM
monitoring stations to (i) integrate with other
databases such as MS Access or MS Excell,
(ii) how this can be established automatically,
and (iii) how it compare to other
municipality/provincial systems
Liaise closely with the University of Pretoria on
the development of a tree-dimensional
diagnostic Winfield model.
Assessment of (i) current air pollutant
concentrations, (ii) contributing sources, (iii)
feasible implementation periods for select
abatement measures, and (iv) nationally set
permissible compliance timeframes (if
available)
Assess the most suitable placement for the
additional 2 stationary monitoring stations
based on updated emissions data, results
from proposed monitoring network (March
2006) and air pollution complaints received.
Annual literature survey on international best
practice in Air Quality Management and the
new focus areas
Determine whether passive
diffusive and/or biomonitoring
should be conducted within
CTMM – and if so select
suitable programmes for such
monitoring
CTMM must determine how to
seamlessly integrate all air
quality related data (including
monitoring) into one database
to be used by various
divisions within CTMM,
provincial and national
government
This model will be useful to fill
in the gasps where no
emeteorlogical data has been
recorded (i.e. northern part of
CTMM). It can also be used
for real-time dispersion
modeling and forecasting
Stipulation of permissible
timeframes for ensuring
compliance with local air
quality objectives and national
air quality standards
The most suitable placement
of the 2 additional stationary
monitoring stations can be
guided by the results from the
“soon to be implemented”
monitoring network.
Since an AQM System is
dynamic CTMM should stay in
abreast with international
trends
Responsible
Schedule
CTMM Air
Quality
July 2006 –
June 2007
CTMM Air
Quality &
Environmental
Health
July 2006 –
June 2007
CTMM Air
Quality &
Environmental
Health
July 2006 –
June 2007
CTMM Air
Quality
University of
Pretoria
July 2006 –
June 2008
CTMM Air
Quality Section
July 2006 –
June 2007
CTMM Air
Quality
Nov 2006 –
March 2007
CTMM Air
Quality
July 2006 –
on-going
CTMM Air
Quality
July 2006 –
June 2007
CTMM Air
Quality
July 2006 –
June 2007
Medium-term
Selection of suitable information and alert
thresholds taking into account (i) measured air
pollutant concentrations, (ii) international air
quality criteria, (iii) the socio-economic and
technical feasibility of attaching specific
reporting, investigation and mitigation
requirements to such thresholds.
Identify suitable local PM2.5 guidelines and
related compliance timeframes taking into
account: (i) local PM2.5 concentrations, (ii)
source contributions, (iii) feasible
implementation periods for select abatement
measures, and (iv) internationally and
nationally set PM2.5 standards and
compliance timeframes (if available)
Finalisation of a set of
information and alert air
quality thresholds and
associate information
reporting, investigation and
mitigation requirements
Stipulation of suitable local
PM2.5 guidelines and
permissible compliance
timeframes
Page xxviii
Research Required
Source data collation and emission
quantification through emission factor
application and/or emission modelling and/or
acquisition of emission measurements
undertaken by sources – this could be a
Master’s degree for a post-graduate student
Undertaking atmospheric dispersion
modelling, with model validation based on
monitored results, for the purpose of
identifying non-compliance areas in terms of
both local air quality guidelines and national
standards
Annual literature survey on major sources
(focusing on the most current information on
pollutant types, emission estimation
techniques, controls, etc.)
Identification of suitable dose-response
thresholds for local vegetation types
CTMM is involved in the EnerKey project
which is a medium- to long term intervention
(1)
.
CTMM to form close relationships with the
University of Pretoria, UNISA and
Tshwane University of Technology.
Notes:
Purpose
Collation of first
comprehensive emissions
inventory for CTMM
Determination of noncompliance zones within
CTMM
(1) Informing the maintenance
and further development of
the emissions inventory
(2) Reporting of results of
surveys on vehicular pollution
to Transportation Planning
Identification of local air
quality guidelines able to
protect vegetation
This project could be very
useful in building design
alternatives such as better
insulation of low-cost housing,
use of solar panels for energy
supply etc
Utilise post-graduate studies
for specific requirements on
emissions inventories or
research initiatives. Be
informed of any relevant
research to benefit the CTMM
Air Quality Management
practices.
Responsible
Schedule
CTMM Air
Quality
July 2006 –
June 2007
CTMM Air
Quality
Jan 2007 –
Dec 2007
CTMM Air
Quality
On-going
starting July
2006
External
consultants
(possibly via
GDACE or
DEAT)
July 2007 –
Jun 2008
CTMM SEED
person & Air
Quality
On-going
starting Nov
2005
CTMM Air
Quality
On-going
starting Nov
2005
(1)
The University of Johannesburg and the University of Stuttgart has formed the EnerKey project which aims at to
promote the sustainable transformation of the urban region of greater Johannesburg by initiating adapted and integrated energy
projects as a key factor for sustainability. A workshop was recently held in Johannesburg (3 & 4 November 2005) to determine
the main areas of research. The City of Tshwane, the City of Joburg and Ekurhuleni are partners in this research project.
4.3
Capacity Building
CTMM should develop the capacity and tools to fulfil the requirements of Air Quality
Management over the medium- and long-term. This will ensure efficient and cost-effective
service delivery with respect to air quality management and planning. Table 14 provides the
resource implications for the CTMM given national requirements and international practice.
Page xxix
Table 14: Resource implications for the CTMM given national requirements and international practice with regard to principle air
quality management functions and existing local resource availability.
Functions
Setting of local
ambient
air
quality standards
3
Defining Considerations
National Requirements(3)
International Good Practice
- Provision is made for an effects Setting of multiple levels of
based approach, viz. impact standards for ambient air quality is
management
through
ambient common place in Europe & the
standards
USA.
Ambient standards which
- Provision is made for the define satisfactory air quality to
designation of specific standards for ensure human health and welfare,
defined geographical areas
the protection of the natural and
- National standards are to be build environment, and finally the
established by DEAT.
prevention of significant decline in
- Provision is made for the setting of the quality of air are used. Such
more
stringent
standards
by standards provide the objectives for
provincial governments.
air quality management. Multiple
- No provision is made for the levels of standards provide the
setting of standards by local basis
for
both
‘continued
authorities. (It is however accepted improvements’ in air quality and for
that local authorities may determine long-term planning in air quality
local air quality objectives for the management. Although maximum
purposes
of
air
quality levels of ambient concentrations are
management.)
set at a national level, more
stringent ambient standards are
implemented
by
metropolitan
authorities.
Existing Local Resources
Resource Implications for CTMM
Local air quality objectives have
been established during the AQMP
development process.
No clear
capacity
however
exists
for
establishing permissible compliance
timeframes, for revising such
objectives or for extending criteria to
include information and alert
thresholds and objectives for the
protection of ecosystems.
Additional expertise required in the
field of air quality standards and
dose-response
relationship
evaluation
&
local
standard
development
As informed by Air Quality Act. Cognisance should be taken of the possible adoption of the SANS limit values to replace the current outdated standards.
Final Draft Air Quality Management Plan for the City of Tshwane Metropolitan Municipality
Page xxx
Functions
Setting of
emission
standards
local
(3)
National Requirements
Provision is made for the setting of National emission limits for various
emission
standards
for
the criteria pollutants are issued by
standardisation of controls on national governments with more
'Controlled
Emitters'
and stringent local standards being
widespread sources (e.g. industrial permitted in certain instances for
processes,
vehicle
emissions, selected source categories
household and commercial fuel
combustion)
(Specific reference is not currently
made to the development of more
stringent local emission standards.
Provision is, however, made for
passing by-laws within which this is
possible.)
No clear capacity exists for the
drafting
of
local
emissions
standards for gaseous criteria and
toxic emissions (e.g. mercury) for
specific source categories (e.g.
vehicles, industries, domestic fuel
burning appliances)
If required, receptor information
could be gathered (including
permissible and existing levels of a
pollutant), and backward dispersion
modelling undertaken for the entire
CTMM to determine suitable local
emission limits for a source
category.
Meso-scale dispersion
modelling capabilities will however
need to be developed within CTMM
to facilitate this.
Page xxxi
Functions
Emissions
inventory
development
maintenance
&
(3)
- Reference made to maintenance - Emissions inventory development
of emissions inventory for on-going as a comprehensive, accurate and
data
transfer
and
reporting current account of air pollutant
purposes
emissions from all sources
- Although specific sources to be - Inclusion of all source and
inventoried not explicitly stated, emissions data required for input to
such sources are implied through emission
calculations
and
their inclusion in the AQM Planning dispersion modelling (e.g. stack
section (sources include: industry; heights, gas exit velocities &
residential fuel burning; transport temperatures,
area
source
related emissions including motor dimensions), etc.
vehicles, trains, aircraft, boats and - Inclusion of temporally-resolved
ships; hazardous and offensive emissions
data
(e.g.
hourly
sources of emission; sources of emissions data, or total annual
noise; waste disposal and treatment emissions with diurnal and seasonal
related emissions; fugitive dust trends in emissions indicated)
sources
related
to
mining,
construction, demolition, agriculture
& vehicle entrainment; noise
emissions)
- Inventory of greenhouse gas and
ozone
depleting
substance
emissions required
- Standardization of emissions
inventory data bases nationally,
provincially & locally implicit in
requirements
First level emissions inventory was
developed for CTMM as part of the
baseline characterisation study
including the main sources of
emissions. This inventory need to
be revised and updated to include
smaller sources and all fugitive
sources.
Preparation
of
the
first
comprehensive emission inventory
would require several person-years
of effort and considerable cost. A
dedicated post would be required to
update the inventory in order to
keep it comprehensive, accurate
and current. Special projects may
be needed to be initiated at various
intervals
for
complex/special
sources (e.g. vehicle emissions,
wild fires, toxic emissions from
landfills).
Page xxxii
Functions
Air
quality
monitoring
(3)
- Monitoring to be carried out by - Trend towards on-line, real-time
relevant
local/provincial monitoring used in Europe and the
governments in accordance with US for:
methodologies and requirements to (a) compliance demonstration
be formulated by the DEAT and (b) dispersion model validation &
published by the SABS
calibration
- Data from air quality monitoring (c) early warnings during pollution
instrumentation to be stored in a episodes
format compatible with national (d) quantification of actual air quality
guidelines & forwarded in electronic improvements of emission reduction
form to the DEAT for inclusion in a strategies
national air quality data base
Metropolitan
authorities
- Calibration of air quality monitoring responsible for:
instrumentation according to the (a) planning and coordination of
specifications of a recognised ambient monitoring networks
certification body
(b) collection & collation of data
- Monitoring to make use of existing (c) information reporting
national expertise. Training to be (d) annual network reviews
undertaken to ensure continuity
The existing monitoring network for
CTMM comprises of 2 permanent
monitoring stations.
Air quality
monitoring is currently being
conducted by Environmental Health
personnel. Such stations do not
report data in real-time nor is air
quality monitoring data currently
consolidated in a single database.
CTMM will need to review the
contract with the contractors in the
short-term
pending:
(i)
the
publication by the SABS of national
monitoring and data manipulation
requirements, (ii) discussions with
lab and network accreditation
bodies (e.g. SANAS), and (iii)
possible decisions to extend
national air quality standards to
other pollutants. This will apply in
the medium-and long-term to CTMM
staff who will be responsible for the
operation and management of these
stations.
CTMM proposed with the expansion
of the monitoring network to include
3 additional permanent stations and
9 mobile stations, to be managed
and operated by contractors. These
contractors must train CTMM
technicians to be able to operate
these stations in the medium-to
long-term
Page xxxiii
Functions
Source control
(3)
- Responsibility for administering the Trend
towards
periodic
license application process for permit/license review for industrial
‘listed activities’ to be undertaken by sources to account for (i) cumulative
local government.
impacts in developed areas, (ii)
- Local authorities also to be integration
of
continuous
responsible for vehicle emissions, improvement
principles
by
household fuel burning, dust industries
emissions from mining and possibly - Trend towards use of accredited
also landfill gas emission impact environmental management system
regulation
development for the purpose of
- General reference is made to the compliance
demonstration
by
potential application of voluntary various sources
agreements,
penalties
and - Encouragement of economic
incentives
(i.e.
economic incentives (positive and negative)
instruments, pollution charges)
above pure source-based controls
(e.g. emission limits)
- Limited expertise and experience
exists with regard to the control of
fuel-burning appliances
- 'Scheduled Processes' are not
currently
controlled
by
local
government
- The current capacity for the
investigation and development of
alternative types of source control
(e.g. economic incentives, voluntary
agreements) is limited
- The capacity for the periodic
review of source permits/licenses to
ensure continued compliance and
facilitate continuous improvement
depends on the outcome of the
DEAT permit review project.
CTMM will need to develop
experience with regard to other
sources not traditionally controlled
(e.g. landfills, fugitive dust sources)
- Capacity would need to be
developed for the management of
'listed activities' by way of
atmospheric emissions licenses.
DEAT indicated the facilitating of
training for local authorities.
Page xxxiv
Functions
Emissions
monitoring
(3)
- Emissions monitoring to be carried Trend
towards
continuous
out by the holder of the emission monitoring by industry and regular
license in the case of industry
extensive data transfer to authorities
- No specific reference made to (e.g. 'data graveyards' in Germany)
emission monitoring of other
sources to date. It is however likely
that local authorities will continue to
be responsible for vehicle emission
monitoring – alternatively this could
become a requirement of testing
stations.
CTMM currently makes provision for
emissions monitoring of diesel
powered vehicles twice annually.
No other emissions monitoring is
currently being undertaken.
It has been recommended that
CTMM’s current diesel vehicle
emission testing programme be
extended to be more frequent with
an additional number of vehicles
being tested per month. This will
require changes in the method
employed and additional person
hours.
The addition of local government
responsibilities
for
intermittent
source monitoring of non-traditional
sources (e.g. wild fire emissions) or
other sources by national authorities
will similarly have implications in
terms of monitoring equipment and
personnel. It is, however, possible
that such monitoring would be
undertaken as part of specialised
field campaigns, i.e. outsourced
special projects)
Page xxxv
Functions
Information
management
reporting
Atmospheric
dispersion
modelling
&
(3)
- National requirements to be - Trend toward standardization of
established
to
facilitate emissions and air quality data bases
standardization of emissions and air and
information
reporting
quality data storage, manipulation, mechanism not only within but also
transfer and information reporting
across countries (e.g. Airbase used
- Reporting of greenhouse gas and by EC countries)
ozone
depleting
substance
emissions required
- DEAT has contracted the CSIR to
develop a framework for a National
Air Quality Database which intends
to house all source and emissions
data from every municipality and
monitoring data
No direct
regard.
requirements
in
this
- Distinct trend towards the
replacement of extensive and costly
air quality monitoring networks by
on-line
dispersion
modelling
coupled with key monitoring sites for
model calibration and validation
(particularly in Europe).
- In Europe, regional models
coupling street- and urban-scale
(gridded) models with regional
Gaussian Plume models (e.g.
AERMOD) within a GIS data base
management framework are being
applied
Comprehensive
electronic
emissions and air quality data bases
have not been established to date
nor provision made for the
integration of such data based
within a GIS framework
- Emissions and air quality data will
need to be consolidated within a
single data base the structure of
which
will
be
influence
by
national/provincial
criteria
(i.e
National Air Quality Database)
- Given the need for data base
integration, emission and air quality
monitoring
data
collation
&
management should preferably be
done at a centralised level within
CTMM
- To facilitate the effective
communication of information to the
general public it is advisable that an
air quality information liaison officer
be designated
- No capacity currently exists to
support
regional
atmospheric
dispersion modelling
- Internal capacity (expertise,
software, hardware) will need to be
established for dispersion modelling
applications
Page xxxvi
Functions
Human health &
environmental
risk assessment
Cost-benefit
analysis
Air
Quality
Management
Plan development
& implementation
(3)
- No direct requirements in this A tiered approach to the ranking of
emission reduction strategies is
regard.
Initially, rankings are
- Ambient air quality standards favoured.
adopted by the Air Quality Act to be based on (i) total emission
used in health risk screening (i.e. reductions, (ii) ambient air quality
improvements to be achieved, (iii)
compliance assessment)
human and environmental risk and
- No direct requirements in this damage reductions, and finally (iv)
benefit maximization which takes
regard.
external costs and benefits into
account.
Due to time- and
expertise- required by the latter two
ranking criteria, such ranking not
widely implemented and is usually
undertaken on
an intermittent
(special project) basis
Provision made for the development - Air Quality Management Plans are
and implementation of Air Quality developed, regularly reviewed and
Management
Plans
by
local revised by metropolitan air quality
authorities (integrated into their authorities (specifically within 'hot
Integrated Development Plans)
spots' which are declared as 'local
air quality management zones e.g.
UK; or within non-compliance areas,
e.g. State Implementation Plans,
US)
- A public hearing process / public
participation process is usually
implemented as part of the plan
development process
No clear capacity currently exists to
assess human health and/or
environmental risk potentials arising
due to air pollutant concentrations
- Internal capacity will need to be
established if the impact of air
pollution
on
human
health,
vegetation and the built environment
to be assessed
undertake cost-benefit analysis of
emission
reduction
measures.
(Information required for the costing
of externalities, e.g. hospitalisations,
are not routinely available in South
Africa to readily facilitate such
studies)
Given the absence of local expertise
and the lack of data to support
comprehensive CBA studies, it is
envisaged that such analysis will be
restricted to qualitative and semiquantitative
evaluations.
Alternatively
CBA
could
be
outsourced on a project-by-project
basis.
- Air quality management plan
drafting requires strong policy and
planning skills.
Technical expertise is required for
the effective characterisation of
source-receptor relationships that
provides the basis for emission
strategy evaluation.
The
Tshwane
Integrated
Environmental
Policy
(TIEP)
provides a framework for the
development and revision of the Air
Quality
Management
Plan.
However, capacity does not exist to
fulfil this function within the CTMM.
Page xxxvii
4.3.1
Proposed Structure of CTMM Air Quality Unit
The implementation, coordination and management of the AQMP role out would require
specific functions and capabilities within the municipal structure. During the development of
an AQMP for CTMM, an Energy Strategy was developed and concerted affords were made
to ensure synergy between the two. Thus, with the level of integration required between
Sustainable Energy and Climate Change Management and Air Quality Management, it was
recommended that the two units be implemented as a single unit from the start.
The three options proposed for CTMM include the following:
•
Option 1: Agency outside of CTMM (external option)
•
Option 2: Internal Air Quality Management Division or Core Group (internal option)
•
Option 3: High level Strategic Coordination (internal option).
The most preferred Option for CTMM will depend on the Municipal Systems Act Section 78
(S78) process (review of internal and external service delivery mechanisms).
Option 1: Agency outside of CTMM
Figure 3 provides an example of the proposed CTMM Air Quality and Sustainable Energy
Agency. The main purpose of an Agency is to be established as a Municipal Entity outside
the organisational structure of the CTMM. It would assume the form of a private company, a
service utility or a multi-jurisdictional service utility. The functions of the proposed positions
are discussed herewith. The associated cost for this option is given in Table 15.
•
Chief Executive Officer (CEO): This person will be the link between the Board of
Directors and shareholders. This person would assume all responsibility for the
business and operations of the Agency.
•
Chief Operational Officer (COO): This person should not be the Air Quality Officer, but
rather someone that can oversee the integration of multidisciplinary technical
information. This person should preferably have scientific/engineering background with
technical and management experience.
•
Air Quality Officer (AQO): This person should have specialised technical skills with
specific relevance to industry (on all the aspects of air quality management, i.e.
emissions inventory, modelling, monitoring, control technology etc.). The AQO is
responsible for coordinating matters pertaining to air quality management in the
municipality. The AQO must ensure that air quality governance is carried out efficiently
and effectively.
Page xxxviii
MUNICIPAL
MANAGER
Air Quality Management, Energy &
Climate Change Division/Unit Head
Chief Officers in CTMM
Office of the
Municipal Manager
Chief Executive Officer
Chief Finacial
Officer
Chief Operation Officer
Secretarial/
Support Staff
Climate
Change
Specialists
Air Quality Officer
Senior
Technician
Sustanable
Energy
Specialists
Air Quality Public
Liaison Officer
Senior Scientist
Technician
Atmospheric
Scientist
AQ
Practisioner
Technician
Atmospheric
Scientist
AQ
Practisioner
Knowledge
Management
Figure 3: Proposed structure for an Air Quality Management, Energy and Climate Change Agency.
Page xxxix
•
Air Quality Practitioners (AQP): This person should have technical skills and would
mainly be responsible for data collection and the inspection of emissions reduction
measures.
•
Senior Technician: This person should have both management and technical skills
specifically to the monitoring equipment and data analysis.
•
Technicians: This person should have technical skills pertaining to the maintenance of
monitoring equipment.
•
Senior Atmospheric Scientist: This person should have both management and
specialised technical skills pertaining to emissions inventories, dispersion modelling and
database management and GIS.
•
Atmospheric Scientists: This person should have technical skills in emissions inventory
development, dispersion modelling, database management and GIS (persons per task
could also be appointed)
•
Air Quality Information Officer: This person should have data management and
communication skills
Table 15: Option 1 - Agency outside of CTMM (1)
Function
Chief Operational Officer
Air Quality Officer
Senior Atmospheric Scientist
Senior Technician
Atmospheric Scientist
Air Quality Practitioner
Technicians
Position
Strategic Executive
General Manager
Manager
Deputy Manager
Deputy Manager
Chief Officer
EHPs (C2-2-D1)
EHPs (C2-2-D1)
SUB-TOTAL
Unit Price per Annum
R500 000 – R600 000
R400 000 – R500 000
R350 000 – R400 000
R241 212 – R312 996
R241 212 – R312 996
R330 096 – R456 432
R248 232 – R311 568
R248 232 – R311 568
R2 558 984 – R3 205 560
Software and Hardware Requirements
ADMS Urban
GIS Software (optional)
EMIT / IPIECA (optional)
Computers
Urban Airshed Dispersion Model
Emission Models
(Quantity - 8)
SUB-TOTAL
R 280 000 – R300 000
R 20 000
R 20 000
R 64 000
R384 000 – R404 000
Other Functions
Role-out of BNG project
20 000 households (2)
TOTAL COST (3)
Notes:
(1)
R 400 000 – R 1 million
R3 342 984 – R4 609 560
It is likely that the Agency would have similar salary scales and would require the same number of
people and positions to fulfil the task at hand.
(2)
Lower range is when campaign is done internally and the upper range is when it is out-sourced.
(3)
Assuming 2 x Atmospheric Scientists, 2 x AQPs, 2 x Technicians, 8 x PCs, 1 x ADMS
license, 1 x GIS license, and 20 000 households.
Page xl
Option 2: Internal Air Quality Management Division or Core Group
The option of the Internal Core Group will have a similar structure as the Agency. The only
difference is that the head of the Division (Chief Operating Officer) will report to the Office of
the Municipal Manager.
Figure 4 provides an example of the proposed Internal Management Division with the
estimated budget provided in Table 16. The main purpose of an Agency is to be established
as a Municipal Entity outside the organisational structure of the CTMM. It will be a similar
structure than the Agency with the exception that it is established internally within the
Strategic Centre.
•
Chief Operational Officer (COO): This person should not be the Air Pollution Control
Officer, but rather someone that can oversee the integration of multidisciplinary technical
information. This person should preferably have scientific/engineering background with
technical and management experience.
•
Air Quality Officer (AQO), Air Pollution Practitioners (APP), Senior Technician,
Technicians, Senior Atmospheric Scientist, Atmospheric Scientists and Air quality
Information Officer – same requirements as for Option 1.
Table 16: Option 2 - Internal Air Quality Management Division or Core Group
Function
Unit/Division Head
Air Quality Officer
Senior Technician
Technicians
Position
General Manager position
Manager
Deputy Manager
Deputy Manager
Chief Officer
EHPs (C2-2-D1)
EHPs (C2-2-D1)
SUB-TOTAL
R400 000 – R600 000
R350 000 – R400 000
R241 212 – R312 996
R241 212 – R312 996
R330 096 – R456 432
R248 232 – R311 568
R248 232 – R311 568
R2 058 984 – R2 705 560
ADMS Urban
Computers
Emission Models
(Quantity – 8)
SUB-TOTAL
R 280 000 – R300 000
R 20 000
R 20 000
R 64000
R384 000 – R404 000
Other Functions
TOTAL COST
Notes:
(1)
(2)
20 000 households
(1)
R 400 000 – R 1 million
R2 842 984 – R4 109 560
(2)
license, 1 x GIS license, and 20 000 households on lower range.
Page xli
MUNICIPAL
MANAGER
Climate Change Division/Unit
Head
Office of the
Municipal Manager
Chief Financial
Officer
Secretarial/
Support Staff
Unit Head
Climate
Change
Specialists
Air Quality Officer
Senior
Technician
Sustainable
Energy
Specialists
Air Quality Public
Liaison Officer
Senior Scientist
Technician
Atmospheric
Scientist
AQ
Practisioner
Technician
Atmospheric
Scientist
AQ
Practisioner
Knowledge
Managemen
t
Figure 4: Proposed structure for an Air Quality Management, Energy and Climate Change Core Group.
Page xlii
Option 3: High level Strategic Coordination.
The third structure proposed for CTMM is that only the core functions as stipulated in the Air
Quality Act be accommodated within the CTMM structure with the outsourcing of all other
functions to contractors and consultants.
Crucial functions that need to be implemented in the Energy, Climate Change and Air
Quality Unit include:
•
Chief Operation Officer (COO): This person should be heading the entire division and
don’t have to be restricted to air quality alone. This function should rather be to integrate
all air quality related information and make the links between air quality, energy and
climate change.
•
Air Quality Officer (AQO): This position is a requirement of the National Environmental
Management: Air Quality Act of 2004. If the APP functions are allocated to the existing
EHP’s there should be a clear line of reporting to the APCO since he/she will have to rely
strongly on this information to fulfil his/her legal obligation. Careful consideration should
be given to this since the EHPs might fall into different divisions. In addition, the EHPs
might not be able to absorb the additional workload implicated by air quality
management.
•
Senior Scientist: If all other functions are outsourced, this person would be the main
supporting person to the APCO. He/she would be responsible for collating all data from
the contractors and consultants an oversee the database management and provide
sensible information to the CAPCO
Functions that can be outsourced include the following:
-
Coordinate and standardise functions undertaken across regions (Air Pollution
Practitioners)
Maintain central database comprising statistics and legal action taken by regions
(thus oversee database maintained by Senior Atmospheric Scientist)
Periodic review of capacity within regions to undertake air pollution control functions
an coordinate capacity building
Provide support in terms of the interpretation and enforcement of legislation and
regulations related to air pollution control
Licensing and control of non-domestic fuel burning and listed activities (information
obtained form Assistants)
Liaise closely with Senior Technician and Senior Environmental Officer
Report to Division Manager
The preliminary budget calculations for Option 3 is included in Table 17.
Page xliii
Table 17: Option 3 High level Strategic Coordination
Function
Unit/Division Head
Air Pollution Control Officer
Position
General Manager
Manager
Deputy Manager
SUB-TOTAL
R400 000 – R600 000
R350 000 – R400 000
R241 212 – R312 996
R991 212 – R1 312 996
Outsourced Functions
Technical Section
Contractors for all monitoring &
maintenance functions
Consultants to compile emissions
inventory, populate and run
SUB-TOTAL
R300 000
R200 000 - R300 000 (1)
R500 000– R600 000
ADMS Urban
Computers
Emission Models
(Quantity – 4)
SUB-TOTAL
R 280 000 – R300 000
R 20 000
R 20 000
R 32 000
R352 000 – R372 000
Other Functions
TOTAL COST
Notes:
(2)
R 400 000 – R 1 million
R2 243 212 – R3 284 996
(1)
Upper range is for the first year to set everything up and the lower range is from the second year
onwards mainly for maintenance and upkeep.
(2)
1 x ADMS license (even though the dispersion modelling function is outsourced, ADMS is
only sold to cities), 1 x GIS license, 4 x PCs and 20 000 households.
4.3.2
General Requirements
Irrespective of which of the three proposed models are chosen, it is imperative that the
following structures be in place over the short-term:
4
•
CTMM Council to understand the necessity of a specialised Air Quality Management
section/unit and approve it. This can be any of the three proposed models.
•
The two crucial positions over the short-term is the appointment of a Senior
Atmospheric Scientist and an Air Quality Officer. This is necessary so to ensure the
relevant training in the interim to ensure the ability to fulfil the required functions as set
out in the AQMP.
•
The Senior Atmospheric Scientist and Air Quality Officer will be responsible within the
short-term for the execution of all identified tasks to be initiated and implemented.
Thus, in the interim very little distinction will be made between the responsibilities of
the Senior Atmospheric Scientist and Air Quality Officer. It is expected that the
atmospheric licensing functions will only become the responsibility of the local
authorities within two years4.
This is dependant on the outcome of the Atmospheric Licensing project to commence in the
beginning of 2006 and run for a period of 18 months.
Page xliv
•
The DEAT is in the process of defining capacity building requirements and training
programmes for provincial and local authorities. CTMM will communicate its specific
training requirements to DEAT and will determine DEAT's anticipated timeframe for
the provision of such support.
•
In the short-term it is recommended that the Contractors appointed to implement and
manage the ambient monitoring stations, train the EHPs on the maintenance and data
capturing methods. This will ensure that this function become in-house expertise over
the medium- and long term.
•
It will be crucial that the persons responsible for the AQMP implementation within the
short-term form good relationships with all relevant divisions within the CTMM (viz.
Environmental Health, Environmental Management, Traffic Divisions, Housing and
City Planning).
The cooperation from these divisions will be crucial in the
implementation of the AQMP.
•
Dispersion modelling software should be purchased within the short-term. The
emissions inventory should be updated and emissions database should be
established. All monitoring data must be downloaded onto a base-station and stored
in a central database. It is important that provision be made for a back-up system at
CTMM.
•
Integration of existing complaints register to automatically inform the Air Quality
Officer of incidences reported and what action should be taken.
Capacity to be incorporated over the medium-term:
•
During this phase the Air Quality Officer should be responsible for reviewing and
issuing atmospheric licences to all listed activities within the CTMM. Given the
requirement that all sources of air pollution should have been identified during the
short-term and that all industries should have supplied the CTMM with emissions
inventories, the task of the Air Quality Officer should be lightened.
•
The emissions inventory should be updated annually to account for an accurate and
current reflection of the air pollution sources within CTMM. The urban airshed
dispersion model should be set-up and operational at this stage with the capability to
run future scenarios. This information will be used by the Air Quality Officer to review
and issue emissions licences.
•
During this phase it is advised that a Section Head be appointed in the case of
Option1 or Option 3. This person should be responsible for the management of the
Air Quality Section and to ensure that the AQMP be implemented and revised. The
Head of the AQM section will also be responsible to ensure that the communication
systems operate smoothly and inter-departmental information sharing continue. This
person will also be the link to provincial and national departments to ensure data
sharing and involvement in all air quality management projects initiated by province
and national governments.
•
Depending on the atomisation of the complaints register and how well air quality
issues are capture and responded to, an air quality public liaison officer could be
appointed to fulfil this function within the Air Quality Section. It will remain important
that the complaints register for air pollution issues continue to be incorporated into the
general complaints register.
Page xlv
4.4
AQM Approval and Review Process
During the development process of the AQMP for CTMM a Technical Working Group was
established to provide specialised technical input. Members included representatives of the
CTMM Departments, provincial and national government departments, academic institutions
and the private sector. The Air Quality Stakeholder groups were also involved in the process
which included all interested and affected parties.
The approval of the AQMP is however not only dependant on the stakeholder and general
public acceptance but also on the review and authorisation by provincial and possibly
national governments. The methodology for the AQMP approvals has not yet been
established.
Page xlvi
TABLE OF CONTENT
1
INTRODUCTION .......................................................................................................................5-1
1.1
PURPOSE AND SCOPE OF AN AIR QUALITY MANAGEMENT PLAN ...............................................5-3
1.2
LEGISLATIVE AND REGULATORY FRAMEWORK FOR AIR QUALITY MANAGEMENT AND PLANNING ..5-5
1.2.1 National Environmental Management: Air Quality Act of 2004 – Introducing a New
Approach to Air Quality Management ........................................................................................5-5
1.2.2 Enabling Legislation for Local Government....................................................................5-6
1.2.3 Delineation of National, Provincial and Local Government Responsibilities ...................5-7
1.2.4 Status of National Legislative and AQM Framework Development Process ..................5-8
1.2.5 International Trends in Air Quality Management and Planning ....................................5-13
1.3
RECOMMENDED APPROACH FOR THE AQMP DEVELOPMENT AND DOCUMENTATION................5-13
1.4
CTMM AQMP DEVELOPMENT PROCESS .............................................................................5-15
1.5
REPORT OUTLINE ..............................................................................................................5-17
2
CITY OF TSHWANE METROPOLITAN MUNICIPALITY REGION.........................................6-18
2.1
GEOGRAPHICAL SETTING....................................................................................................6-18
2.2
BACKGROUND INFORMATION ...............................................................................................6-20
2.2.1 Industrial Activities and Power Generation...................................................................6-20
2.2.2 Household Energy Use ................................................................................................6-22
2.2.3 Biomass Burning..........................................................................................................6-23
2.2.4 Mining Operations........................................................................................................6-23
2.2.5 Transport Related Emissions .......................................................................................6-23
2.2.6 Waste Treatment and Disposal....................................................................................6-25
2.3
PRIORITY SOURCES, POLLUTANTS AND AREAS .....................................................................6-27
2.3.1 Priority Pollutants .........................................................................................................6-27
2.3.2 Priority Sources ...........................................................................................................6-28
2.3.3 Priority Areas ...............................................................................................................6-36
2.4
AIR POLLUTION CONTROL AND AIR QUALITY MANAGEMENT CAPABILITIES ..............................6-38
2.4.1 Organisational Structure within the CTMM...................................................................6-38
2.4.2 Review of Current Air Quality Management Tools .......................................................6-41
3
AIR QUALITY MANAGEMENT POLICY FRAMEWORK..........................................................7-1
3.1
VISION, MISSION AND OBJECTIVES ........................................................................................7-3
3.1.1 Vision.............................................................................................................................7-3
3.1.2 Mission and Commitment ..............................................................................................7-3
3.1.3 Strategic Goals and Objectives......................................................................................7-3
3.2
APPROACH TO AIR QUALITY MANAGEMENT ............................................................................7-4
3.3
KEY CONSIDERATIONS IN THE AQMP DEVELOPMENT PROCESS ..............................................7-5
4
LOCAL AIR QUALITY OBJECTIVES.......................................................................................8-1
4.1.1
4.1.2
4.1.3
Air Quality Objectives for Criteria Pollutants ..................................................................8-1
Criteria and Approach for Setting Local Air Quality Objectives ......................................8-3
Definition of Timeframes for Compliance with Local Objectives: ....................................8-6
TABLE 4-2: ALERT AND INFORMATION THRESHOLDS TO BE INVESTIGATED FOR USE BY
THE CITY OF TSHWANE .................................................................................................................8-7
TABLE 4-3: THRESHOLDS SPECIFIED BY OTHER COUNTRIES SPECIFICALLY FOR
VEGETATION AND ECOSYSTEMS.................................................................................................8-8
4.2
5
ACTIONS REQUIRED AND TARGET DATES .............................................................................8-10
AIR QUALIY MANAGEMENT SYSTEM ...................................................................................9-1
Page xlvii
FIGURE 5-2: AIR QUALITY MANAGEMENT SYSTEM PROPOSED FOR IMPLEMENTATION BY
CTMM ...............................................................................................................................................9-2
5.1
EMISSIONS INVENTORY.........................................................................................................9-3
5.2
AMBIENT AIR QUALITY AND METEOROLOGICAL MONITORING ...................................................9-4
5.2.1 Monitoring Objectives ....................................................................................................9-5
5.2.2 Parameters to be Monitored...........................................................................................9-6
5.2.3 CTMM Monitoring Network Proposed for Initiation – Short-term ....................................9-7
5.3
ATMOSPHERIC DISPERSION MODELLING ..............................................................................9-10
5.4
REPORTING PROTOCOL ......................................................................................................9-11
5.5
PUBLIC CONSULTATION APPROACH .....................................................................................9-14
5.5.1 Aims and Objectives: ...................................................................................................9-14
5.5.2 Media/methods to be considered for use: ....................................................................9-14
5.5.3 Designation of an Air Quality Information Liaison Officer .............................................9-14
5.5.4 Complaints Register.....................................................................................................9-15
5.5.5 Reporting Air Quality Information .................................................................................9-15
5.5.6 Public Meetings ...........................................................................................................9-16
5.6
AIR QUALITY MANAGEMENT SYSTEM DEVELOPMENT - ACTIONS REQUIRED ............................9-16
6
SOURCE QUANTIFICATION AND EMISSIONS REDUCTION MEASURES .........................10-1
6.1
DOMESTIC FUEL BURNING ..................................................................................................10-3
6.1.1 National and Provincial Government Interventions ......................................................10-3
6.1.2 Proposed Emission Reduction Strategies ....................................................................10-5
6.2
ROAD TRANSPORTATION ....................................................................................................10-6
6.2.1 National and Provincial Government Strategies...........................................................10-7
6.3
INDUSTRIAL SOURCES ...................................................................................................... 10-11
6.3.1 Scheduled Processes ................................................................................................ 10-11
6.3.2 Non-Scheduled Processes ........................................................................................ 10-12
6.3.3 Proposed Emission Reduction Strategies .................................................................. 10-12
6.4
WASTE AND DISPOSAL TREATMENT ................................................................................... 10-15
6.4.1 National and Provincial Government Strategies......................................................... 10-15
6.5
MINING ACTIVITIES ........................................................................................................... 10-17
6.5.1 National and Provincial Government Strategies......................................................... 10-17
6.6
OTHER SOURCES ............................................................................................................. 10-19
7
RESEARCH INITIATIVES.......................................................................................................11-1
8
CAPACITY BUILDING ............................................................................................................12-1
8.1
PROPOSED STRUCTURE OF CTMM AIR QUALITY UNIT........................................................ 12-10
8.1.1 Option 1: Agency outside of CTMM ........................................................................... 12-11
8.1.2 Option 2: Internal Air Quality Management Division or Core Group ........................... 12-15
8.1.3 Option 3: High level Strategic Coordination. .............................................................. 12-20
8.1.4 General Requirements............................................................................................... 12-23
8.2
BUDGET REQUIREMENTS .................................................................................................. 12-25
9
AQMP APPROVAL AND REVIEW PROCESS .......................................................................13-1
9.1
9.2
10
AQMP APPROVAL .............................................................................................................13-1
AQMP REVIEW .................................................................................................................13-2
REFERENCES ....................................................................................................................14-1
WHO (2000). AIR QUALITY GUIDELINES, WORLD HEALTH ORGANISATION, GENEVA........14-2
Page xlviii
LIST OF FIGURES
Figure 1-1: Location of the City of Tshwane Metropolitan Municipality............................. 5-1
Figure 2-1: Tshwane Metropolitan Municipality boundaries.............................................. 6-18
Figure 2-2: Population density within the CTMM as taken from the 2001 Census data. .. 6-19
Figure 2-3: Location of the two power stations and industries within the CTTM............... 6-21
Figure 2-4: Oxides of nitrogen emissions as predicted by the VISUM model (from CTMM
State of Energy Report, 2005) .................................................................................... 6-24
Figure 2-5: Contributions form the various sectors within the CTMM to total inhalable
particulate (PM10) emissions. .................................................................................... 6-29
Figure 2-6: Contributions form the various sectors within the CTMM to total sulphur dioxide
(SO2) emissions. ......................................................................................................... 6-30
Figure 2-7: Contributions form the various sectors within the CTMM to total oxides of
nitrogen (NOx) emissions. ........................................................................................... 6-30
Figure 2-8: Contributions form the various sectors within the CTMM to total benzene
emissions.................................................................................................................... 6-31
Figure 2-9: Contributions form the various sectors within the CTMM to total organic
compounds (TOC) emissions. .................................................................................... 6-31
Figure 2-10: Contributions form the various sectors within the CTMM to total carbon
monoxide (CO) emissions. ......................................................................................... 6-32
Figure 2-11: Contributions form the various sectors within the CTMM to carbon dioxide
(CO2) emissions (greenhouse gasses). ...................................................................... 6-32
Figure 2-12: Contributions form the various sectors within the CTMM to total methane (CH4)
emissions (greenhouse gasses). ................................................................................ 6-33
Figure 5-1: Development of an air quality management strategy through the implementation
of select air quality management tools (after WHO, 2000). .......................................... 9-1
Figure 5-2: Air quality management system proposed for implementation by CTMM ........ 9-2
Figure 5-3: Example for a National Emissions Inventory (from Mark Zunkel, CSIR, IQPC
Conference, 15 & 16 February 2005, Sandton Convention Centre) ............................. 9-4
Figure 5-4: Proposed locations of permanent and mobile monitoring stations, including
existing stations. ........................................................................................................... 9-9
Figure 8-1: Proposed structure of the Air Quality Section at CTMM. .............................. 12-10
Figure 8-2: Proposed structure for an Energy, Climate Change and Air Quality Management
Agency...................................................................................................................... 12-12
Figure 8-3: Proposed structure for an Energy, Climate Change and Air Quality Management
Core Group. .............................................................................................................. 12-17
Page xlix
LIST OF FIGURES
Table 1-1: National, provincial and local government functions as informed by the Air Quality
Act................................................................................................................................. 5-7
Table 1-2: Timing for the rollout of the National Air Quality Management Plan ................ 5-12
Table 2-1: Sources of atmospheric emissions within the CTMM and their associated
emissions.................................................................................................................... 6-29
Table 2-2: Summary of Priority Pollutants, Sources and Areas ........................................ 6-37
Table 4-1:
Local guidelines to be adopted for implementation by the City of Tshwane.
Values are expressed in µg/m3 and where appropriate ppb (the volume standardised at
a temperature of 25°C and a pressure of 101,3 kPa.) .................................................. 8-4
Table 4-2:
Alert and information thresholds to be investigated for use by the City of
Tshwane ....................................................................................................................... 8-7
Table 4-3:
ecosystems................................................................................................................... 8-8
Table 5-1: Proposed CTMM air quality and meteorological monitoring sites...................... 9-7
Table 5-2: Frequency and content of reports to be considered by CTMM in the short-term
(next two years) in defining its medium- and long-term reporting commitments and
targets......................................................................................................................... 9-13
Table 6-1: Emissions reduction strategies for Domestic Fuel Burning to be implemented by
CTMM over the short-and medium term..................................................................... 10-5
Table 6-2: Emissions reduction strategies for Transportation to be implemented by CTMM
over the short-and medium term................................................................................. 10-9
Table 6-3: Recommended emission reduction strategies for scheduled and non-scheduled
processes within the CTMM. .................................................................................... 10-13
Table 6-4: Recommended emission reduction strategies for waste disposal facilities within
the CTMM. ................................................................................................................ 10-16
Table 6-5: Recommended emission reduction strategies for mining operations within the
CTMM. ...................................................................................................................... 10-19
Table 6-6: Recommended emission reduction strategies for other sources within the CTMM.
.................................................................................................................................. 10-20
Table 7-1: Research initiatives recommended for implementation in the short- and mediumterm............................................................................................................................. 11-1
Table 8-1: Resource implications for the City of Tshwane given national requirements and
international practice with regard to principle air quality management functions and
existing local resource availability............................................................................... 12-2
Table 8-2: Option 1 - Agency outside of CTMM (1) .......................................................... 12-25
Table 8-3: Option 2 - Internal Air Quality Management Division or Core Group ............. 12-26
Table 8-4: Option 3 High level Strategic Coordination .................................................... 12-27
Page l
LIST OF ABREVIATIONS
APPA
AQA / NEMAQA
-
Air Pollution Prevention Act
-
National Environmental Management: Air Quality Act
AQMP
-
Air Quality Management Plan
BNM
-
Basa Njengo Magogo
CAPCO
-
Chief Air Pollution Control Officer
CO / CO2
Carbon monoxide / carbon dioxide
CTMM
DAPC
-
City of Tshwane Metropolitan Municipality
DEAT
-
Department of Environmental Affairs and Tourism, South Africa
EC
-
European Community
EHP
EIA
-
Environmental Health Practitioners
-
Environmental Impact Assessment
EMM
EU
-
Ekurhuleni Metropolitan Municipality
GDACE
-
Department of Agriculture, Conservation and Environment
HPa
-
Hecto pascal
mg/m²/day
-
Milligrams per square meter per day
NAQMP
-
National Air Quality Management Plan
NEMA
NO / NO2 / NOx
-
National Environmental Management Act
-
Nitrogen oxide / Nitrogen dioxide / Oxides of nitrogen
PM10
-
Particulate Matter with an aerodynamic diameter of less than 10 µm
PM2.5
-
Particulate Matter with an aerodynamic diameter of less than 2.5 µm
ppb
-
Parts per billion
ppm
-
Parts per million
SANS
-
South Africa National Standards
SO2
-
Sulphur Dioxide
TOC
-
Total Organic Compounds
tpa
-
Tonnes per annum
tpd
-
Tonnes per day
tpm
-
Tonnes per month
TSP
-
Total Suspended Particulates
µg/m³
-
Micrograms per cubic meter
US-EPA
-
United States Environmental Protection Agency
VOCs
WB
-
World Bank Group
WHO
-
World Health Organisation
Division of Air Pollution Control (DEAT)
European Union
Volatile Organic Compounds
Page li
AIR QUALITY MANAGEMENT PLAN FOR THE
CITY OF TSHWANE METROPOLITAN MUNICIPALITY
5
INTRODUCTION
The City of Tshwane is the administrative capital of the Republic of South Africa and is
situated in the province of Gauteng (Figure 1-1). It came into being on 5 December 2000
when the 13 municipalities serving the Greater Pretoria area were amalgamated to form the
City of Tshwane Metropolitan Municipality (CTMM) (SOE, 2004).
Various sources of emissions are located within the CTMM, including industrial sources and
power generation, vehicle tailpipe emissions, household fuel burning appliances, waste
disposal activities, sand and dolomite quarries, biomass burning and fugitive dust emissions
from exposed areas, vehicle entrainment, materials handling and agricultural activities.
Figure 5-1:
Location of the City of Tshwane Metropolitan Municipality
The impacts of atmospheric emissions emanating from these sources within the Metro have
not only local but also regional and global implications. Local scale effects include impacts
on human health and the biophysical environment due to exposures within the region.
Atmospheric emissions from local sources might also impact on the air quality of
neighbouring regions, such as Ekurhuleni (located to the southeast) and the City of Joburg
(located to the south and southwest). On a global scale, the contribution of greenhouse
Page 5-1
gases from sources within the Metro to climate change is of concern and should be
addressed.
According to the Constitution, municipalities have the executive authority in respect of air
pollution control. The new National Environmental Management: Air Quality Act of 2004 5
has shifted the approach of air quality management from source-based control only, to the
control of the receiving environment. Whereas the Air Pollution Prevention Act of 1965
centralised air pollution governance at National level, the new Act focuses on the
decentralisation of power down to provincial and local authority levels. This has placed the
responsibility of air quality management on the shoulders of local authorities that will be
tasked with baseline characterisation, management and operation of ambient monitoring
networks, licensing of listed activities, and emissions reduction strategies. In order to fulfil
these responsibilities local authorities will be required to develop Air Quality Management
Plans (AQMP) as part of their Integrated Implementation Plans. The main objective of the
act is to ensure the protection of the environment and human health through reasonable
measures of air pollution control within the sustainable (economic, social and ecological)
development framework.
CTMM has identified the necessity for the development of strategic planning processes to
enable environmentally sustainable development within the municipality. The Tshwane
Integrated Environmental Policy (TIEP) has been formulated by the Housing, City Planning
and Environmental Management Department (Environmental Management Division) to form
the foundation from which all the departments within the CTMM can develop medium-term
environmental management strategies. This TIEP will form an integral part of the Integrated
Development Plan (IDP) process, incorporating both the State of the Environment Report
and the Environmental Implementation Plan. The main objective of the TIEP is to ensure the
incorporation of the environmental principle of sustainability in the decision making
processes, the development of strategies and programmes, the development and planning
of landuse, and the management of resources and activities.
The overarching goal of the TIEP regarding Environmental Health Management is to
promote an environment that is not detrimental to human health and well-being through:
•
effective environmental health management;
•
the implementation of an integrated waste management and minimisation strategy at
all levels within Tshwane; and,
•
the establishment of an integrated system of pollution minimisation, management and
prevention.
Air quality management falls within the system of pollution minimisation, management and
prevention, and aims to improve it in areas with poor air quality, and maintain it in areas with
good air quality. It is within this context that the Environmental Health Division initiated the
development of an Air Quality Management (AQM) Plan for the City of Tshwane.
5
th
The National Environmental Management: Air Quality Act (Act no.39 of 2004) commenced with on the 11 of
September 2005 as published in the Government Gazette on the 9th of September 2005. Sections omitted from
the implementation are Sections 21, 22, 36 to 49, 51(1)(e),51(1)(f), 51(3),60 and 61.
Page 5-2
5.1
Purpose and Scope of an Air Quality Management Plan
The main purpose of developing an Air Quality Management (AQM) Plan for the City of
Tshwane is to empower the metro to meet its obligations as outlined in the Air Quality Act
(AQA). The AQMP will initiate ‘best practice’ in air quality management and ensure the
reduction of emissions in a cost effective and equitable way. This will ensure the
improvement of air quality within CTMM and subsequently the reduction of environmental
and health risks, which is also in line with the requirements of the TIEP.
The main goals to be achieved by the CTMM through its development, implementation,
review and revision of air quality management plans are as follows:
•
To achieve and sustain acceptable air quality levels throughout the City of Tshwane.
•
To minimize the negative impacts of air pollution on health, well-being and the
environment.
•
To promote the reduction of greenhouse gases so as to support the council's climate
change protection programme.
•
To reduce the extent of ozone depleting substances in line with national and international
requirements.
Specific objectives include:
•
To promote cleaner production and continuous improvement in best practice as it
pertains to air pollution prevention and minimisation.
•
To promote energy efficiency within all sectors including industrial, commercial,
institutional, mining, transportation and domestic energy use.
Based on the requirements of AQA and the TIEP, the Department of Social Development
initiated the development of an Air Quality Management Plan for the City of Tshwane
Metropolitan Municipality (CTMM). Airshed Planning Professionals (Pty) Ltd was appointed
to assist the Environmental Health Division in formulating a detailed Air Quality Management
Plan. Although Airshed represents the lead consultancy, Airshed sub-contracted Zitholele
Consulting to provide support services for the project. Zitholele was responsible for public
notification of the project and for consultation with interested and affected parties.
To achieve the set-out objectives, it was proposed that the project had two focus areas:
•
Baseline assessment of air pollution concentrations and air quality management
practices within CTMM, and inventory of national and provincial requirements
pertaining to AQMP development.
•
Development of an Air Quality Management Plan for CTMM, taking into account:
•
operational and functional structure requirements
•
air quality management system component requirements
•
source identification and prioritisation
•
emission reduction measures implementable
Page 5-3
•
mechanisms for facilitating inter-departmental co-operation in the identification and
implementation of emission reduction measures for certain sources
•
human resource development (training) requirements
The integration of technical evaluation and public issues were considered paramount in the
AQMP development process to ensure that the project team do not function in isolation. The
AQMP development process was divided into three components for planning and
administrative processes, viz. a technical process, an advisory process and a consultation
process. The following structures were therefore established:
CTMM Project
Manager
Technical Working
Group
Airshed Project
Team
Air Quality
Stakeholder
Group
The technical process comprised all information syntheses, issue analyses and document
drafting tasks to be completed by technical members of the project team. The advisory
process refers to consultation between the project team and the Steering Committee,
Technical Working Group and Stakeholder Group. The consultation process included the
dissemination of information and invitations for public participation, organisation of
discussion workshops, and collection and collation of comments for communication to the
technical team.
The Technical Working Group (TWG) comprised persons from various sectors within CTMM
able to contribute to the process through providing input into the air quality management
system design; assisting with emission reduction measure drafting and with assessing the
feasibility and cost implications of implementing measures within the industrial, mining,
domestic fuel usage and transport sectors. Representatives from the various CTMM
departments responsible for environmental management, environmental health, municipal
infrastructure, housing, transport and spatial planning were invited to participate in the
technical working group. Representation was also invited from Academic institutions such
as the University of Pretoria and the Tshwane University of Technology. The Gauteng
Department of Agriculture, Conservation and Environment (GDACE), the Department of
Environmental Affairs and Tourism (DEAT) and the Department of Minerals and Energy
(DME) were also asked to nominate representatives. In addition, consultants involved in the
development of the State of Energy Report for CTMM were involved to ensure not only
relevant and matching information sharing but also seamless integrations of both projects
into the TIEP and IDP. A list of the persons represented on the Technical Working Group
and their relevant affiliations is given in Appendix A.
Air Quality stakeholder group representatives were identified by Zitholele Consulting on the
basis of a consultative process. The main functions of the Air Quality Stakeholder Group
included: (i) assisting in the categorisation of issues raised during the broad consultation
process; (ii) assisting in identifying the potential for trade-offs and compromises where
conflicting views are given by various stakeholders; and (iii) acting as a "sounding board" to
assist the project team in determining whether the key issues have effectively been
communicated in the documents scheduled for distribution. The consultation process
Page 5-4
included the dissemination of information and invitations for public participation, organisation
of discussion workshops, and collection and collation of comments for communication to the
technical team.
The AQMP is intended to be used as the management and performance-monitoring tool for
air quality control and to provide a baseline assessment of air quality issues within the
CTMM. The plan addressed various categories of air pollutants including: toxic and
odoriferous substances, greenhouse gases and ozone depleting substances. Although
greenhouse gas emissions were included, these were not addressed in detail since it is
discussed in the Energy Strategy Report. The plan did not address the quantification,
monitoring and management of noise and radioactivity.
5.2
Legislative and Regulatory Framework for Air Quality Management and
Planning
In the development of Tshwane’s AQMP, consideration must be given to national and
provincial requirements, AQMP development by other metropolitans and cities within RSA
and international best practice pertaining to AQMP development and implementation. In
order to pre-empt impending national and provincial requirements pertaining to AQM
Planning the project team liaised closely with national and provincial departments on
developments with regard to guidelines for local AQMP development. Reference was also
made to the National Environmental Management: Air Quality Act of 2004. Information was
obtained from other metros, including the Cities of Joburg and Cape Town, Ekurhuleni and
Ethekwini Metropolitan Municipalities, regarding progress made in their AQM development
processes. Criteria defining international 'best practice' as it pertains to AQMP development
and implementation were collated and considered.
5.2.1
National Environmental Management: Air Quality Act of 2004 –
Introducing a New Approach to Air Quality Management
Under the Air Pollution Prevention Act (Act No 45 of 1965) (APPA) the focus is mainly on
sourced based control with permits issued for Scheduled Processes. Scheduled processes,
referred to in the Act, are processes which emit more than a defined quantity of pollutants
per year, including combustion sources, smelting and inherently dusty industries. Best
Practical Means (BPM), on which the permits are based, represents an attempt to restrict
emissions while having regard to local conditions, the prevailing extent of technical
knowledge, the available control options, and the cost of abatement. The Department of
Environmental Affairs and Tourism (DEAT) is responsible for the administration of this Act
with the implementation thereof charged to the Chief Air Pollution Control Officer (CAPCO).
The APPA is outdated and not in line with international best practice. It also proves
inadequate to facilitate the implementation of the principles underpinning the National
Management (IP&WM) white paper. In this light, the National Environmental Management:
Air Quality Act (Act no. 39 of 2004) was promulgated, shifting the approach from source
based control to decentralised air quality management through an effects-based approach.
Page 5-5
The new National Environmental Management: Air Quality Act 2004 has shifted the
approach of air quality management from source-based control to the control of the receiving
environment. The act has also placed the responsibility of air quality management on the
shoulders of local authorities that will be tasked with baseline characterisation, management
and operation of ambient monitoring networks, licensing of listed activities, and emissions
reduction strategies. The main objective of the act is to ensure the protection of the
environment and human health through reasonable measures of air pollution control within
the sustainable (economic, social and ecological) development framework.
The Air Quality Act (AQA) makes provision for the setting of ambient air quality standards
and emission limits on National level, which provides the objective for air quality
management. More stringent ambient guidelines may be implemented by provincial and
metropolitan authorities. Listed activities will be identified by the Minister and will include all
activities regarded to have a significant detrimental effect on the environment, including
health. Emission limits will be established on National level for each of these activities and
an atmospheric emission licence will be required in order to operate.
With the
decentralisation of power down to provincial and local authority level, district and
metropolitan municipalities will be responsible for the issuing of licences for listed activities.
In addition, the Minister may declare priority pollutants for which an industry emitting this
substance will be required to implement air pollution prevention plans. An air quality officer
appointed by local authorities and responsible for the issuing of atmospheric emission
licences, may also require from a company (or person) to submit atmospheric impact reports
in order to demonstrate compliance.
5.2.2
Enabling Legislation for Local Government
The decentralisation of AQM and associated new responsibilities for local government is
made feasible given the recent promulgation of enabling legislation for local government.
The Municipal Structures Act, together with the Local Government: Municipal Systems Act
32 of 2000, have firmly established Local Government as an autonomous sphere of
government having specific functions defined by the Constitution.
The Access to Information Act, 95 of 2000 aims to promote transparency, accountability and
effective governance of all public and private bodies through educating everyone to
effectively scrutinise, and participate in, decision-making by public bodies that affect their
rights. The Promotion of Administrative Justice Act, 96 of 2000 aims to give effect to section
33 of the Constitution. In terms of this Act, local government can be held responsible for its
actions and decisions by the public and is required to act in an efficient and transparent
manner. New responsibilities for local government arising due to recent legislative changes
include facilitation of public participation, transparency, accountability and access to
information.
According to Section 156(1) of the Constitution a municipality has the executive authority in
respect of, and has the right to administer the local government matters listed in, Part B of
Schedule 4 of the constitution that deals with air pollution. Section 156(2) makes provision
for a municipality to make and administer by-laws for the effective administration of the
matters which it has the right to administer so long as such by-laws do not conflict with
national or provincial legislation. The repealing of Local Government Transition Act, Act no.
Page 5-6
209 of 1993 on 5 December 2000 removed legislative obstacles to the application of Section
156 of the Constitution by municipalities.
5.2.3
Delineation of National, Provincial and Local Government Responsibilities
In accordance with the IP&WM Policy, the DEAT indicates that it will delegate the
responsibility for air quality management strategy implementation and regulation
enforcement to the 'appropriate sphere of government'. The anticipated delineation of
responsibilities between national, provincial and local government, as informed by the Air
Quality Act, are outlined in Table 1-1. National Government is tasked with the enforcement
of the national AQM legislative framework with provincial and local government being
required to operate within this framework. Provincial government is permitted to develop
their own legislation and policies to meet their obligations in terms of the national policy.
Local government are permitted to develop and implement local AQM programmes,
guidelines and by-laws in line with national and provincial policy and legislation.
Table 5-1: National, provincial and local government functions as informed by the Air
Quality Act
NATIONAL Government
Functions and Responsibilities
Establish & review national
framework
PROVINCIAL Government
Air quality monitoring
LOCAL Government
Air quality monitoring
Identify priority pollutants
Establish national air quality
standards
Monitor municipality performance
Emission monitoring
Establish national emission
standards
Establish provincial air quality
standards
Establish local emission standards
Appoint national AQ officer
Establish provincial emission
standards
Appoint AQ officer
Integrate AQMPs into their
Environmental Management Plans
Appoint provincial AQ officer
Declare priority areas
Integrate AQMPs into their
Environmental Management Plans
Develop and implement AQMP as
part of their Integrated Development
Plans (IDP)
Collaborate with national & provincial
government (within priority areas)
Prepare priority areas AQMP
Declare priority areas
List activities
Declare controlled emitters
Set requirements for pollution
prevention plans
Set regulations for dust, odour, noise
Prepare priority areas AQMP
List activities
Declare controlled emitters
Declare and set requirements for
controlled fuels
Perform emission licensing authority
functions (metros and district
municipalities)
(Perform emission licensing authority
functions if no capacity by local
authorities)
Declare and set requirements for
controlled fuels
Investigate & regulate transboundary
pollution
Investigate potential international
agreement contraventions
Page 5-7
5.2.4
Status of National Legislative and AQM Framework Development Process
Rollout components of the National Air Quality Management Framework were given by the
DEAT as comprising:
(1)
National air quality management approach
(2)
New air quality management legislation
(3)
Institutional model for effective implementation of the new legislation
(4)
Organisational development and capacity building for the effective implementation of
the new legislation
(5)
Setting of ambient air quality standards
(6)
Managed transition from APPA to the new legislation
(7)
National air quality monitoring programme
(8)
Standard methods for ambient air quality monitoring, sample analysis and reporting
(9)
Standard methods for point-source emission monitoring, sampling analysis and
reporting
(10)
Standard ambient air quality modelling
(11)
Air quality management strategy guidelines
National government vision with respect to the National Air Quality Management Plan is that
the programme will develop, implement and maintain an air quality management regime that
contributes to sustainable development and a measurable improvement in the air quality life
of all. This will be achieved by harnessing the energy and commitment of all South Africans
for the effective prevention, minimisation and control of atmospheric pollution (Peter Lukey6,
Implementing the Air Quality Act Conference, 24 – 25 October 2005, The Castle, Kyalami).
The National Air Quality Management Plan (AQMP) has seven strategic goals in achieving
sustainable air quality management, viz.:
1. Effective Institutional framework and legislation
2. Pollution prevention and impact management
3. Holistic and integrated planning
4. Participation and partnerships in Air Quality Management Governance
5. Empowerment and education in Air Quality Management
6. Information management
7. International cooperation
Delays have been experienced by DEAT in its rollout of various of the above-mentioned air
quality management components. Progress made to date has been drawn from a
6
Peter Lukey is the Chief Director: Air Quality Management and Climate Change at the Department of
Environmental Affairs and Tourism.
Page 5-8
presentation given by Peter Lukey (Implementing the Air Quality Act Conference, 24 – 25
October 2005, The Castle, Kyalami).
The role-out strategy by DEAT followed a phased approach, with the first phase focussing
on the translation of the IP&WM Policy into strategy, legislative framework and initial
implementation action plan for air quality management.
PHASE I: NAQMP Definition
Phase I outputs included an air quality management framework strategy and initial action
plan in the form of a draft AQMP, and the AQA that provides the legislative framework for the
implementation of the IP&WM an NAQMP.
•
National Environmental Management: Air Quality Act – The Air Quality Bill was
gazetted for public comment during 2003, submitted to the National Council of
Provinces during November 2003 and was discussed in parliament in February 2004.
Due to concerns raised during the public hearings held as part of the parliamentary
session it was decided that the DEAT review the Bill and consult with interested and
affected parties prior to the Bill being resubmitted to parliament. The Bill was
resubmitted to the National Assembly Portfolio Committee on Environmental Affairs
and Tourism and amended and accepted by this Committee in August 2004. The Bill
was again tabled before the National Council of Provinces in October 2004. The Bill
was approved by the National Assembly and sent to the President’s office for
signature. The Act was signed by the President on the 21st of February 2005 and
published in the Government Gazette. On the 11th of September 2005 the National
Environmental Management: Air Quality Act (Act no.39 of 2004) commenced with,
excluding certain sections from the act pertaining to listed activities and associated
licensing responsibilities7. Thus the APPA still regulates “scheduled activities”.
•
Air Pollution Prevention Act (Act No. 45 of 1965) to Air Quality Act transitional
programme – The CSIR was appointed by DEAT during the first half of 2004 to
undertake this 18 month project. The transitional phase project includes the
finalisation of the National Air Quality Management Programme, the compilation of an
implementation manual for the Air Quality Act, the training of Provincial air quality
managers, and the drafting of regulations required for Act implementation. This
project is proposed to be finished by the end of 2005.
PHASE II: Transition
Phase II concentrates on ensuring a smooth transition from the APPA to the AQA. This has
been done through the implementation of various projects.
•
7
The Durban South Multipoint Plan – The pilot project already underway will be used to
test and inform strategies for dealing with air pollution 'hot spots' and local
government roles and responsibilities.
Sections omitted from the implementation are Sections 21, 22, 36 to 49, 51(1)(e),51(1)(f), 51(3),60 and 61.
Page 5-9
•
NEDLAC Air Quality Study – This study investigated the social and economic impact
of the phasing out of dirty fuels in the country over a period of time, and aimed to
provide specific guidance on supply side measures to support the process.
•
The SO2 ambient standard setting initiative – This project was completed in 2002 with
the recommended interim guidelines for South Africa by the DEAT (Government
Gazette, 21 Dec. 2001)
•
The SABS standard setting approach - The SABS was engaged to assist the DEAT in
the facilitation of the development of ambient air quality standards. A technical
committee was established to oversee the development of standards. Three working
groups were established by this committee for the drafting of ambient air quality
standards for (i) sulphur dioxide, particulates, oxides of nitrogen and ozone, (ii) lead
and (iii) volatile organic compounds, specifically benzene. Two documents were
produced during the process, viz.:
SANS 69 - South African National Standard - Framework for setting & implementing
national ambient air quality standards
SANS 1929 - South African National Standard - Ambient Air Quality - Limits for
common pollutants
The latter document includes air quality limits for particulate matter less than 10 µm in
aerodynamic diameter (PM10), dustfall, sulphur dioxide, nitrogen dioxide, ozone,
carbon monoxide, lead and benzene. The SANS documents were approved by the
technical committee for gazetting for public comment. These draft documents were
made available for public comment during the May/June 2004 period and were
finalized and published during the last quarter of 2004. These limit values as outlined
by SANS is likely to replace the interim outdated ambient air quality standards
adopted by AQA in the interim.
Standard methods for ambient air quality monitoring – SANS 1929 provides guidance
on macro- and micro-siting of monitoring stations, selection of suitable numbers of
stations, data quality objectives, and gives reference methods for measuring pollutant
concentrations.
Standard ambient air quality modelling – SANS 1929 provides guidance on the use
of atmospheric dispersion modelling for compliance demonstration.
•
The Danida support NAQMP Phase II and IIB Projects – initiated in April 2004, these
projects aim to develop an NAQM programme and website, train provincial air quality
officers, providing an AQA implementation training manual and AQA implementation
course. It also aims to develop pollutant prioritisation and standard setting process
protocols, and provide the initial list of listed activities, controlled emitters, regulations
and an Action Plan Development Manual. Outputs also associated with the projects
will include AQ information review and AQ Information System framework
development.
Page 5-10
•
The fuel reformulation initiative – the DME’s cleaner production initiative include the
phasing out of leaded fuel by January 2006 and reduction of sulphur content within
diesel fuel.
•
The vehicle emissions strategy – This project is linked to the DME’s fuel reformulation
initiative.
•
The Norad support licensing capacity development programme – based on the
experience from the Durban South Multipoint Plan the aim is to develop a draft
template for Atmospheric Emissions Licenses that can be used nationally.
•
The Vaal Triangle SEA – the multi-stakeholder initiative to undertake a strategic
environmental assessment of the Vaal Triangle to inform management of priority
areas.
•
The APPA permit review project – the project will commence following the conclusion
of a tender process and aims to capture, sort and store all current APPA Registration
Certificates. This will inform an initial list of priority air polluters. The prioritised
Registration Certificates will be reviewed jointly by National, Provincial and local
governments to ensure practical and reasonable amendments. Training of licensing
authority staff to apply procedures, protocols, standard formats etc. for developing an
atmospheric emissions licence.
•
AQM enforcement initiatives – air pollution cases considered serious have been
prioritised for enforcement action by the Environmental Management Inspectorate
(so-called Green Scorpions).
•
The priority area identification initiative – the department is currently working on this
initiative to allow for the concentration of limited air quality management capacity to
improve this in the short- and medium terms, to prescribe cooperation governance,
and to provide air quality management methodologies that take into account all
contributors to air pollution (i.e. Airshed air quality management).
•
The residential air pollution initiative – The DME has embarked on the implementation
of the Integrated Clean Household Energy Strategy to reduce the use of biomass
burning as energy source in households. This project has three strategic phases,
namely:
o
promote the Basa njengo Magogo (BNM) method of making a fire;
o
manufacturing and distribution of acceptable and affordable low smoke fuel;
o
require housing insulation and energy efficient housing designs
PHASE III: Capacity Development
Project associated with the Phase III implementation of the NAQMP are listed as follows:
Page 5-11
•
Accredited Air Quality Management Qualifications – tertiary institutions to rollout
formal accredited air quality management courses for both private sector and
government.
•
The NAQMP Information Series – the department will publish a number of books and
booklets to advance the understanding of air quality management.
•
The National AQIS rollout – the department will rollout the national air quality
information system (AQIS) that will provide accurate, current and comprehensive air
quality information.
PHASE IV: Maintenance and Review
The final phase of the NAQMP rollout deals wit the maintenance of efficient and effective air
quality programmes in South Africa. This phase will also include the continuous monitoring
and review of the implementation and management of the NAQMP.
The timeframe as laid out by DEAT in the rollout of the strategy is reflected in Table 1-2.
Table 5-2: Timing for the rollout of the National Air Quality Management Plan
NAQMP
PHASE
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
PHASE I:
Definition
PHASE II:
Transition
PHASE III:
Capacity
Building
PHASE IV:
Maintenance
& Review
Every effort was made to ensure that the City of Tshwane Metropolitan Municipality’s AQMP
was informed by and reflects national and provincial regulatory changes. Given that various
of the regulations are still in development and the sections pertaining to the licensing
obligations by local authorities were excluded from the promulgation of the AQA, it is crucial
that the CTMM AQMP be reviewed following:
•
Promulgation of the Air Quality Act in its final form (including the sections pertaining to
listed activities and atmospheric emissions licensing requirements)
•
Completion of the Air Quality Act implementation manual, regulations, standards and
guidance documents compiled during the Transitional Phase Programme
In the implementation of the CTMM AQMP it is also important that attention be paid to:
Page 5-12
•
Recommendations regarding local air quality management measures, emission
reduction strategy implementation and local government responsibilities from the
Durban South Project
•
Guidance on local government responsibilities and on mechanisms for coordinating
responsibilities between national, provincial and local spheres of government (as an
outcome of the Gauteng AQM Strategy Project)
CTMM adopted a proactive approach in its development and implementation of an AQMP
ahead of it being required to do so by law. Similar approaches are being adopted by other
local authorities. The City of Joburg has had an air quality baseline assessment undertaken
and air quality management plan developed, with this plan having been approved for
implementation by the local council during September 2003. Ekurhuleni Metropolitan
Municipality (EMM) completed their baseline characterisation study and AQMP in January
2005 with the approval for the implementation thereof by local council during August 2005.
Ethekwini and Cape Town have similarly completed situation analyses and are in the
process of air quality management planning. Despite the current absence of national
guidelines on air quality management planning, these cities and metropolitan municipalities
are following similar approaches.
5.2.5
International Trends in Air Quality Management and Planning
The scope and content of AQMPs developed by cities and regions within various countries
were reviewed to inform the development of local air quality management plans, including
Australia (Perth), United Kingdom (London), USA (Los Angeles, San Francisco, State of
Massachusetts, Boston), Canada (Fraser Valley Regional District), Mexico (Mexico City) and
China. Critical success factors for an AQMP were identified based on international
experience. Such factors were used as the basis for the development of an AQMP
Development Framework and for drafting of a comprehensive list of contents for
consideration in terms of the structuring the AQMP.
5.3
Recommended Approach for the AQMP Development and Documentation
CTMM is a neighbouring metropolitan municipality to the City of Joburg (to the south and
southwest) and EMM (to the southeast). All three these municipalities are located within the
Gauteng Province. Since AQMPs have been developed for both the City of Joburg and
EMM, it was decided to follow a similar approach in AQMP development as for these two
metros. This will ensure for easy comparison between the AQM strategies of these three
adjoining metros and assist in establishing inter-municipal management strategies for
transboundary pollution control. Furthermore, it will facilitate the task of Provincial
Government to integrate these plans into the Provincial Air Quality Management strategy.
(1)
Identification of priority pollutants, sources and key impact areas
(2)
Setting of air quality management objectives, targets and timeframes
(3)
Air pollution reduction strategy development, including:
Page 5-13
(3.1) Establishment of a control strategy development programme
(3.2) Identification of control measures implementable in the short-, mediumand long-term
(3.3)
Evaluation & prioritisation of control measures based on air quality
improvements, exposure reductions, technical feasibility and socioeconomic acceptability
(3.4) Performance indicator definition and progress monitoring design
(3.5) Demonstration of target realisation given air pollution reduction strategy
implementation
(4)
Capacity building and training programmes design
(5)
Gap analysis and outline of research initiatives
(6)
Information dissemination programme design
(7)
Development of public consultation and AQMP approval processes
(8)
AQMP documentation
Taking into account local, national and international considerations the proposed content
and structure of an AQMP for the CTMM is outlined in Exhibit 1. This content was used as
the starting point for the development of the CTMM AQMP.
EXHIBIT 1
Proposed Contents and Structure of an AQMP for the City of Tshwane Metropolitan Municipality
(1)
Executive Summary
(2)
Introduction
- Purpose
- Legislative and regulatory context
(3)
City of Tshwane Metropolitan Municipality Planning Area
- Geographical area
- Air quality setting
~ priority pollutants, contributing sources, key impacted areas
~ future projections
(4)
Air Quality Management Policy Framework
- CTMM Vision and mission statement
- CTMM Strategic goals and objectives
- key considerations in the development of an AQMP
(5)
Local Air Quality Objectives
- Ambient air quality guidelines and targets
- Schedule for meeting targets
(5)
Air Quality Management System
- Ambient air quality monitoring programme
- Emissions inventory
- Air pollution dispersion modelling
- Reporting protocol
- Public consultation procedures
(6)
Air Pollution Reduction Strategy
Page 5-14
- Control strategy development programme
- Case studies of successful reduction initiatives (if required by national regulations)
- Prioritised control measures and mitigation schedule
~ Short-term controls
~ Medium-term controls
~ Long-term strategies
- Demonstration of target achievement
- Performance monitoring and progress reporting
(7)
Research Initiatives
- Source quantification and contribution determination initiatives
- Air quality impact assessment studies
- Air pollution reduction opportunities under investigation
- Schedule for research outcomes
(8)
Capacity Building and Training Programmes
- Training of AQM Section personnel
- Stakeholder capacity building initiatives
(9)
Information Dissemination and Public Consultation Processes
(10) Air Quality Management Plan Approval and Review Processes
(11) References
Appendices
5.4
CTMM AQMP Development Process
The Air Quality Management Plan for CTMM is intended to be used as the management and
performance-monitoring tool for air quality control and to provide a baseline assessment of
air quality issues within the area. It was understood that the main aims of the
comprehensive Air Quality Management Plan drafted for the City of Tshwane Metropolitan
Municipal area were:
•
An Air quality Management Plan (AQMP), as described above (including targets and
projections; a financial plan – short, medium and long term – linked to the Integrated
Development Plan of CTMM; best abatement measures – plan, project and
programmes) for CTMM.
•
A source inventory is a comprehensive, accurate and current account of air pollutant
emissions and associated data from specific sources over a specific time period. In
the establishment of data based fields for the CTMM source inventory the
greenhouse gas emissions inventory and reporting requirements of the metropolitan
was taken into account.
•
An Air Quality Management Information System with all air quality data compatible
with acceptable modelling requirements and management information system
requirements.
•
The development and implementation of the AQMP described above has critical
implications in terms of human resources, training and cost requirements. These
implications will be thoroughly explored as part of the current project and the system
Page 5-15
tailored to ensure the practical feasibility of the AQM system to be proposed for
implementation as part of the CTMM AQMP.
•
Participatory workshops on the draft and final reports.
To achieve the objectives as outline above, the following process was followed in terms of
preparation for the drafting of the plan, plan compilation and consultation with technical
peers and air quality stakeholders:
(11)
Completion of an air quality baseline assessment comprising:
• identification of sources, pollutants and areas of concern
•
inventory of current management and operational structures within the Metro
•
inventory of current procedures and methods adopted by the Metro, GDACE and
national authorities to combat air pollution within the region
•
determine national and provincial requirements pertaining to AQM planning within
the City of Tshwane
•
review best international practices pertaining to AQMP development and
implementation
(12) Propose pertinent actions to be taken by relevant Departments within the CTMM in
the short- and medium-terms with regard to:
• operational and functional structure optimisation
•
air quality management system development
•
source quantification and assessment
•
emission reduction measure implementation
•
emission reduction measure investigation
(13) Conduct meetings with Technical Working Groups to discuss proposed measures.
The names and affiliations of the persons participating in the activities of the technical
work group are given in Appendix A.
(14) Consolidation of proposed measures within discussion documents. Two discussion
documents were compiled, viz.: (i) proposed air quality management policy framework,
and (ii) air quality management system design, and emission quantification and reduction
programme.
(15) Workshopping of measures included in the discussion documents with the Technical
Working Group and Air Quality Stakeholder Group. Members of the Air Quality
Stakeholder Group participating at the various workshops are listed in Appendix B.
(16) Revision of the content of the discussion documents based on comments received at
the workshops, where applicable.
(17) Compilation of the Draft Air Quality Management Plan on the basis of the revised
discussion documents. Presentation of the contents of the draft plan to Technical
Working Group and workshopping of the draft plan.
(18) Workshopping of the contents of the plan with the public (1 December 2005),
collation of comments and addressing of issues prior to plan finalisation.
Page 5-16
(19) Integration of comments received and compilation of a Draft-Final Air Quality
Management Plan. Submission of the draft-final plan to CTMM, the Technical Working
Group and Air Quality Stakeholder Group and placing of the document in public places(8).
(20) Submission of the Final AQMP to CTMM (December 2005), with copies of the plan
circulated to Technical Working Group and Air Quality Stakeholder group members and
placed in public places for general access.
5.5
Report Outline
The following section describes the CTMM planning area in terms of its geographical setting,
priority sources, pollutants and impact areas. Reference is also made to factors affecting air
quality within CTMM and to existing functional structures pertaining to air pollution control
and air quality management. The policy framework for air quality management plan
implementation is outline in Section 3 and local air quality objectives presented in Section 4.
Section 5 comprises a description of the air quality management system to be implemented
by CTMM. The emission quantification and reduction programme to be implemented is
outlined in Section 6. Research requirements and capacity building needs are covered in
subsequent sections, with the AQMP implementation and revision process being addressed
in Section 8.
8
Copies of the Draft-Final Air Quality Management Plan were placed in all municipal libraries within the City of
Tshwane after 1 December 2005. Advertisements were placed in the press to notify people of the availability of
these documents and to invite their comments.
Page 5-17
6
6.1
CITY OF TSHWANE METROPOLITAN MUNICIPALITY REGION
Geographical Setting
The City of Tshwane, located north of Johannesburg, extends from Centurion in the South to
Temba in the North (Figure 1-3). The CTMM is the administrative capital of South Africa,
housing a large diplomatic community.
The municipal boundaries are mainly within the Gauteng Province with a small area in the
north falling within the North West Province. The total area covered by the metropolitan
municipality is approximately 2,200 km².
Figure 6-1: Tshwane Metropolitan Municipality boundaries.
According to the 2001 Census data, a total population of 1,985,983 resides within the CTMM
of which 73% are Black Africans and 24% are white with the remaining 1.5% and 1.9% being
Asian and Coloured, respectively. Most of the people live in the Pretoria, Centurion, Temba,
Soshanguve and Mabopane districts with the highest population density within the latter two
Page 6-18
areas. These are more informal rural settlements located on the northern outskirts of the
metro (see Figure 2-2).
Figure 6-2: Population density within the CTMM as taken from the 2001 Census data.
The topography of the CTMM consists of hills, ridges and undulating plains. There are no
mountains apart from the more modest western end of the Magaliesberg, which starts in the
northern suburbs of Pretoria and stretches westwards toward Rustenburg in the Northwest
Province. The same mountain range forms a shallow valley within the central part of Pretoria
and the Crocodile River regions, called the Magalies Moot area. Elevations range from
approximately 1050 metres above mean sea level (mamsl) in the northern plains to ~1665
mamsl on the Magaliesberg in the east-central parts of CTMM. The Pretoria and Centurion
wards are mainly at an elevation of between 1,200 to 1,500 mamsl.
The current land uses in the region include industrial and commercial processes, surface
mining activities, agricultural activities (mainly on the outskirts of the municipality
boundaries), and formal and small residential communities. The industrial, commercial and
formal residential areas are confined predominantly to the Pretoria, Centurion, and Akasia
regions with the remaining regions more focused on mining and agricultural activities.
Macro-ventilation characteristics of a region are determined by the nature of the synoptic
systems that dominate the circulations of the region, and the nature and frequency of
occurrence of alternative systems and weather perturbations over the region. The
dispersion potential of the metropolitan region are predominantly influenced by meso-scale
processes including thermo-topographically induced circulations, the development and
dissipation of surface inversions, and the modification of the low-level wind field and stability
Page 6-19
regime by urban areas. During winter months the region is dominated by the continental
high pressure system which is characterized by large-scale subsidence, clear skies, light
winds and strong temperature inversions. Northerly to north-westerly winds prevail during
much of the year due to the prevalence of the high pressure system. Although such winds
continue to dominate during winter months, the northward shift of the high pressure belt and
resultant influence of westerly wave disturbances on the region gives rise to an increase in
the frequency of winds from the south to south-westerly sector. An increase in the frequency
of northerly to easterly winds during spring and summer months is the result of the
southward migration of the high pressure belt, with airflow being influenced both by
anticyclonic subsidence and easterly wave systems.
Multiple elevated inversions occur in the middle to upper troposphere as a result of largescale anticyclonic subsidence. Three distinct elevated inversions, situated at altitudes of
approximately 700 hPa (~3 km), 500 hPa (~5 km) and 300 hPa (~7 km), were identified over
southern Africa. The height and persistence of such elevated inversions vary with latitudinal
and longitudinal position. During winter months the first elevated inversion is located at an
altitude of around 3 km over the plateau. In summer this inversion is known to increase in to
4 to 5 km over the plateau (Diab, 1975; Cosijn, 1996). Given the elevation of CTMM it is
evident that the dispersion of air pollutants is frequently confined within the 1,300 to 1,500 m
of atmosphere above the ground. Due to the occurrence of nocturnal, surface-based
temperature inversions the mixing layer may range diurnally from a depth of 0 m during the
night-time to the base of the lowest-level elevated inversion during unstable, day-time
conditions (i.e. 1,300 to 1,500 m).
6.2
Background Information
6.2.1
Industrial Activities and Power Generation
The CTMM is not a highly industrialized area such as EMM or the Vaal Triangle. There are
however a few large industrial activities such as power generation, iron and steel making,
and cement manufacturing within the metropolitan. The large number of ceramic processes
located within this conurbation is also notable (including PPC, Wesbrix, Sabrix, Pretoria
Brickworks, Corobrik, Cullinan Refractories, Era Stene, Excelsior Brickworks). Such
processes include brick manufacturers, refractory operations and cement producers.
Refractory operations primarily use tunnel kilns with clamp kilns being used in the
manufacture of clay bricks. Cement manufacturers use rotary kilns. Further sources of
emissions within this sector include combustion sources such as small boilers and
incinerator operations, used by schools, hospitals and within agricultural industries.
Industrial activities within the CTMM are widely spread with the larger industrial areas mainly
confined to the north, the west, the east and to a smaller extend the south (see Figure 2-3).
The main areas of industrial activity can be grouped as follow:
Pretoria North Pretoria West -
Akasia including Rosslyn and Klerksoord
Wonderboom (Rooiwal Power Station).
Kirkney, Capital Park, disport, Hermanstad, Wespark, Pretoria
Industrial.
Page 6-20
Pretoria East Pretoria South -
Waltloo
Lyttleton, Rooihuiskraal Extention.
Figure 6-3: Location of the two power stations and industries within the CTTM
Power generation sources include emissions from industrial boilers in addition to emissions
from the two power stations within the City of Tshwane, viz. Pretoria West Power Station and
Rooiwal Power Station. Power generation sources contribute significantly to SO2 (92%), NOx
(83%), CO (81%), CO2 (56%), and particulate (69%) emissions. Gas and coke processes
comprise the second largest contribution to SO2 and CO2 and the largest to HC (81%)
emissions, with iron and steel processes representing the second largest source of
particulate emissions (11%) in the province. The contribution of ceramic processes, which
include all brickfields emissions, contributes significantly to CO and particulate emissions in
the municipality. “Other" sources of SO2 emissions include: Cement Processes, Gas, Coke
and Charcoal Processes, Asbestos Processes, Fluorine Processes, Copper Processes,
Galvanising Processes and Vanadium preparation Processes.
Page 6-21
Non-Scheduled Fuel Burning Appliances are appliances capable of burning fuel at a rate of
<10 tons/hour. Various fuel burning appliances, including boilers at schools and hospitals,
pizza ovens, stand-by generators, air heaters, (etc.) due to their more restricted fuel
combustion rates are not required to have a permit to operate. No source and emissions
data for any of these sources are currently being comprehensively collected and stored by
the national, provincial or local authorities.
6.2.2
Household Energy Use
According to the 2001 Census data there are 562,655 households within the CTMM with
620,900 households estimated for the year 2004 by Africon. Of these households
approximately 80% make use of electricity for lighting purposes, 72% for cooking and 76%
for heating purposes. Even so, a significant number of households still use fuels such as
coal, wood, paraffin and LPG for cooking, space heating and lighting.
Coal burning was estimated to be responsible for over 90% of the total particulate, sulphur
dioxide, carbon monoxide and carbon dioxide emissions associated with household fuel
burning. Coal burning was also responsible for ~70% to 80% of the PM10, VOC, NOx and
methane emissions. Despite the relatively small number of households burning wood, wood
burning was estimated to contribute significantly to PM10, NOx, methane, benzene and VOC
emissions due to the quantity of wood required to meet household energy requirements and
the extent of emissions from fuel burning. In addition, coal and wood burning also emits
large amounts of polycyclic aromatic hydrocarbons (PAHs) such as benzo(a)pyrene, and
various toxins.
For most of the informal settlements within Gauteng, the use of coal and wood for domestic
fuel burning is part of everyday life. In Tshwane, domestic fuel burning only ranked third on
the list of main SO2 contributors and fourth for inhalable particulates. Even so, this source is
regarded as one of the most significant sources of emissions to be controlled within the
CTMM due to the low-level emissions in high population density areas, hence areas with
high human exposure potentials. In addition, these emissions reflect clear seasonal (winter
months) and diurnal (morning and evening) trends. Other pollutants associated with this
source are CO, CO2, methane and benzene. According to the NEDLAC ‘Dirty Fuels’ project
findings, domestic fuel burning was estimated to result in the greatest non-carcinogenic
health risk across all conurbations9. In the CTMM, this source accounted for ~24% of all
respiratory hospital admissions (RHA) predicted (Scorgie et al., 2004).
These fuels continue to be used for primarily two reasons: (i) rapid urbanisation and the
growth of informal settlements has exacerbated backlogs in the distribution of basic services
such as electricity and waste removal, and (ii) various electrified households continue to use
coal due particularly to its cost effectiveness for space heating purposes and its multifunctional nature (supports cooking, heating and lighting functions). Coal is relatively
inexpensive and is easily accessible in CTMM due to the proximity of the region to coal
mines and the well-developed local coal merchant industry.
9
The conurbations in the Fridge study included: the CTMM, the City of Joburg, EMM, the Vaal
Triangle, the City of Cape Town, Ethekwini and the Mpumalanga highveld.
Page 6-22
6.2.3
Biomass Burning
Crop-residue burning and general wild fires (veld fires) represent significant sources of
combustion-related emissions associated with agricultural areas. Emissions were estimated
for areas within CTMM based on information provided by the Fire Department and the burn
scars from satellite imagery.
Biomass burning is an incomplete combustion process with carbon monoxide, methane and
nitrogen dioxide being emitted during the process. About 40% of the nitrogen in biomass is
emitted as nitrogen, 10% remains in the ashes and it is assumed that 20% of the nitrogen is
emitted as higher molecular weight nitrogen compounds. The visibility of smoke plumes
from vegetation fires is due to their aerosol content.
6.2.4
Mining Operations
Mining operations within the CTMM almost exclusively include clay, fire clay and sand
mining, and gravel and aggregate mining. All these operations are done by means of
opencast or surface mining techniques which are notorious for the generation of dust. A
total of 27 mines are operational within the municipality and located mainly in the east, west
and south of the municipal boundaries. There are many non-listed sand mining and other
mining related operations in the CTMM not reflected in the table. This will be included in the
management planning to update the emissions inventory for CTMM.
Fugitive emissions from quarrying and mining operations mainly comprise of land clearing
operations (i.e. scraping, dozing, and excavating), materials handling operations (i.e. tipping,
off-loading and loading, conveyor transfer points), vehicle entrainment from haul roads, wind
erosion from open areas and drilling and blasting. These activities mainly result in fugitive
dust releases with small amounts of NOx, CO, SO2, methane, CO2 being released during
blasting operations.
6.2.5
Transport Related Emissions
Emissions as a result of transportations are a concern within the CTMM due to the vast
distances travelled by commuters between work locations and residential areas. Sources of
transport related emissions can be grouped into the following main categories:
•
•
•
Vehicles (roads);
Railroad; and,
Airport.
The main vehicle emissions are from the M1 and N1 highways linking Pretoria with
Johannesburg. This is mainly due to people living in the CTMM and working in Midrand and
Johannesburg. The opposite also applies but to a lesser extend. On average, the highest
vehicle density is therefore restricted to the central, southern and eastern parts of CTMM.
6.2.5.1
Vehicle Emissions
Page 6-23
Air pollution from vehicle emissions may be grouped into primary and secondary pollutants.
Primary pollutants are those emitted directly into the atmosphere, and secondary, those
pollutants formed in the atmosphere as a result of chemical reactions, such as hydrolysis,
oxidation, or photochemical reactions. The significant primary pollutants emitted by motor
vehicle exhausts include CO2, CO, HCs, SO2, NOx, particulates and lead. Secondary
pollutants formed due to vehicle exhaust emissions include: NO2, photochemical oxidants
(e.g. ozone), HCs, sulphuric acid, sulphates, nitric acid, sulphates, nitric acid and nitrate
aerosols. Emission estimates were conducted as part of the baseline assessment for the
CTMM AQMP development process. These emission rates were based on fuel sales
provided for the year 2004 and distinguished between petrol (leaded and unleaded) and
diesel fuels. Africon in the development of the State of Energy Report also estimated vehicle
emissions. These were based on traffic count information as predicted by the CTMM’s
EMME/2 regional transportation model and converted to the VISUM model. Emission
estimations were presented spatially as represented in Figure 2-4 for NOx.
Figure 6-4: Oxides of nitrogen emissions as predicted by the VISUM model (from
CTMM State of Energy Report, 2005)
Page 6-24
6.2.5.2
Airports
The CTMM comprises of three airports, viz. Wonderboom Airport in the north of Pretoria,
Swarkops Airport in Centurion and Waterkloof Airport in the southeast. All three these
airports are small and utilised by light commercial aircrafts, with Swartkops and Waterkloof
Airports exclusively used for military aircrafts.
The main sources of emission associated with airport operations include: (i) vehicle tailpipe
emissions from airport arrival-departure activities, airport ground-support services and airport
access traffic routes, (ii) aircraft engine emissions during aircraft idling, taxing, takeoff and
landing, (iii) auxiliary power units, and (iv) evaporative emissions during fuel handling and
storage. Pollutants released include oxides of nitrogen, carbon monoxide, carbon dioxide,
hydrocarbons, sulphur dioxide, lead, particulates, methane and various volatile organic
compounds. Based on the low air traffic of the airports within the CTMM in comparison to
Johannesburg International, it was deemed unlikely that any of the pollutants deriving from
these thee airports would flag and hence as not quantified.
6.2.5.3
Railway
Trains in operation typically include electric, steam and diesel-powered locomotives with the
latter being prominent in the transportation of bulk materials to and from industrial sites.
Pollutants released from railway transport include carbon dioxide, carbon monoxide, volatile
organic compounds, Due to a lack of detailed information emissions resulting from railway
activities within the CTMM were nor quantified.
6.2.6
Waste Treatment and Disposal
Waste treatment and disposal methods in the CTMM of interest in terms of their atmospheric
emission potential include: incineration, landfilling, and liquid waste ponds used for the
treatment, storage and disposal of liquid wastes.
6.2.6.1
Landfill Operations
The majority of the waste collected by the local authority is disposed to landfill, usually within
10-20 km radius of the residential areas within which the waste was generated. At present,
CTMM has 9 regional disposal facilities under its jurisdiction as depicted in Table 2-1 and
one privately owned waste disposal site.
All the waste disposal sites within the CTMM are predominantly used for general waste
disposal, including domestic, residential and commercial, business and industrial waste. It is
unknown to what extend co-disposal of domestic and industrial/commercial hazardous waste
occurs at the general waste sites. Limited information is available on the practical volumes
and quantities of hazardous waste disposed of to landfill sites in Tshwane, or on the volumes
and masses of hazardous waste stored on-site by industrial, power generation and mining
operations.
Page 6-25
Landfill gases of concern associated with the general or co-disposal landfill options include a
range of odiferous and toxic gases. Landfill gas usually contains between 40% and 60%
methane and similar percentages of carbon dioxide. Other gases constitute only a small
fraction of the total gas, and include both inorganic products and a large number of organic
compounds. Studies indicate that over 200 compounds can be encountered in a landfill site.
Odorous substances most frequently considered in local air quality impact assessment
studies for such operations include hydrogen sulphide, butyric acid and limonene. High
concentrations of amine constituents have also been observed to be responsible for odour
impacts of various local landfills. Carcinogenic substances frequently measured at waste
disposal sites include methylene chloride and benzene.
Air quality impact assessment conducted for large hazardous and general landfill sites in
South Africa (including the Chloorkop, Holfontein and the closed Margolis waste sites) have
generally indicated that:
•
significant health risks, given good landfill facility management, are restricted to within
500 m of the landfill boundary;
•
odour impact distances can vary from 200 m to 5 km depending on facility
management; and
•
nuisance dust impacts are generally restricted to within the immediate boundary of the
facility.
Given the range of pollutants emitted from landfill operations (and the difficulties in
controlling emissions at sites with histories of poor management) it is recommended that
landfill sites be classified as possible "toxic hotspots" for air quality management purposes.
Landfill operations are also significant sources of greenhouse gas emissions.
6.2.6.2
Incinerator Operations
Incineration became a Scheduled Process in October 1994. Permit requirements for such
operations include operating temperature, combustion retention time and emission standard
stipulations. Since March 1998, Environmental Impact Assessments have been required for
proposed incinerator operations.
Heavy metal, dioxin and furan emissions from waste incineration represent a considerable
air quality and health risk concern related to such operations. Particulate emissions from
incinerators may also comprise heavy metals such as chromium and cadmium, which are
suspected human carcinogens. Incinerators have however to date represented the only
viable alternative for the dispose of all medical wastes. (New methods currently under
development include plasma converter technologies.)
Data on the volumes of health case wastes are limited. Based on the number of hospital
beds, and the average waste generation rate of 1.95 kg/beg/day Tshwane could be
expected to produce a significant volume of medical waste requiring incineration and safe
disposal.
Page 6-26
6.2.6.3
Waste Water Treatment Works
Information still needs to be obtained on the number of waste water treatment facilities within
the CTMM. The potential for emissions of volatile organic compounds (VOCs) during
wastewater treatment is a cause for concern. Species measured at local waste water
treatment works have included: hydrogen sulphide, mercaptans, ammonia, formaldehyde,
acetone, toluene, ethyl benzene, xylenes, perchloroethylene, butyric acid, propionic acid,
valeric acid and acetic acid. Species which represent the most important odorants included:
hydrogen sulphide, mercaptans, ammonia, and the various fatty acids (butyric, propionic,
valeric and acetic). Odour sensation may lead to a number of secondary effects such as
nausea, vomiting, loss of appetite, sleeplessness, and triggering of hypersensitivity
reactions. There is no conclusive evidence that human health is seriously affected by odour.
Odour impacts may however be a serious source of annoyance to the local community, and
have been shown in various cases to affect property values and development.
6.3
Priority Sources, Pollutants and Areas
6.3.1
Priority Pollutants
A few air pollutants are commonly found as a result from various sources and activities.
These pollutants can injure health, harm the environment, and damage property. These
pollutants are called criteria pollutants since health-based criteria (science-based guidelines)
have been established as the basis for setting permissible levels. One set of limits (primary
standard) protects health; another set (secondary standard) is intended to prevent
environmental and property damage.
Typical pollutants to be addressed include: particulates (including soot, fly ash and
aerosols), sulphur oxides (SOx), oxides of nitrogen (NOx), carbon monoxide (CO), carbon
dioxide (CO2), volatile organic compounds (VOCs), semi-volatile organic compounds
(SVOCs), methane (CH4), ammonia (NH3), hydrogen chloride (HCl), hydrogen sulphide
(H2S), ozone (O3) and other photochemical oxidants (as secondary pollutants) and various
trace elements. Organic compounds released include formaldehyde, benzene, polyaromatic hydrocarbons, PCBs and dioxins and furans.
Limited ambient monitoring data exists for the City of Tshwane. Currently two monitoring
stations are operated by the CTMM, the GDACE donated Rosslyn station and the CTMM
Topas station in Pretoria West. The Rosslyn monitoring station measures PM10, SO2, NO2,
NO, NOx, CO and ozone whereas the Topas only measures PM10. Problems are currently
experienced in obtaining the data from the Topas monitor and only 8 non-consecutive
months of data was available for the Rosslyn station. Even so, SO2 and NO2 were noted to
exceed hourly and daily standards. This also clearly indicated the two main sources
contributing to air pollutants within the Rosslyn area, namely vehicles and industrial
activities.
Page 6-27
Historically, SO2 and smoke (particulates) were monitored at nine locations within the
CTMM. Of these, three were located in Centurion and six were located in and around
Pretoria. The monitoring methodology however, is not specific and can only be used to
investigate trends in these two pollutants. Long-term trends indicated increased average
ground level SO2 concentrations of 2.2 times between the periods 1996/97 and 2001/02.
Similarly increases in smoke levels (1.1 times) were noted for the same period.
Lead monitoring has been conducted since 1987 to 1998 as part of the DEAT Lead
Monitoring Project. These historical trends indicated a decrease in lead concentrations
during the previous decade (1990’s) from 1.5 µg/m³ to below 0.4 µg/m³. Unfortunately, no
lead measurements were made in Pretoria since 1998 due to “personnel problems” and
“sampler problems”.
A three-week monitoring campaign was conducted as part of a study for Sasol Oil to
establish typical air concentrations of pollutants emanating from vehicle emissions at
residential area, near major highways, filling stations, toll plazas and road tunnels. The
pollutants of concern were particulate matter, sulphur dioxide, oxides of nitrogen, carbon
monoxide, lead vapours, and non-methane hydrocarbons. The highest levels of pollutants
were observed at Marabastad in Pretoria with PM10 exceedances of the existing South
African daily average standard. Metals such as iron were noted and significant lead levels
were recorded. Nitrogen dioxide was also clearly shown to be a function of vehicle volumes.
From the limited monitored data available, the priority pollutants that should be considered
within the short-term (first 2 years) are particulates (PM10), sulphur dioxide (SO2), and
nitrogen dioxide (NO2). Greenhouse gas pollutants (CO2, CH4, ozone, etc.) are addressed in
more detail in the CTMM Energy Strategy. In the medium (3-5 years) to long-term attention
should be paid to other pollutants such as Benzene and PM2.5.
6.3.2
Priority Sources
The characterisation of baseline air quality and the identification of priority sources,
pollutants and areas represent the basis of effective air quality management and planning.
The collation, analysis and presentation of relevant and recent existing information on
sources and emissions was undertaken during the baseline assessment (Liebenberg-Enslin
& Petzer, 2005). Sources of emission identified as occurring within the CTMM are
summarised in Table 2-1. The significance of transboundary sources through their
contribution to the regional aerosol component is noted in the table despite such sources not
being located within the region. Pollutants released by each source are indicated.
Page 6-28
Table 6-1: Sources of atmospheric emissions within the CTMM and their associated
emissions
Sources
PM
SO2
NOx
CO
CO2
CH4
HAPs
Vehicle-tailpipe emissions
Industrial operations, energy
generation and commercial fuel
burning appliances
Domestic fuel burning
Biomass burning
Vehicle-entrainment of road dust
Aviation emissions
Mining activities
Landfills
Incineration
Agricultural activities
Tyre burning
Wind-blown dust from open areas
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
X
x
x
X
X
X
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
x
Regional aerosol
x
(from distant sources)
HAP - hazardous air pollutants (includes toxins and carcinogens)
x - indicates pollutant is emitted by particular source type
Contributions from every source category are depicted in Figures 2-5 to 2-9 for all main
atmospheric pollutants.
Figure 6-5: Contributions form the various sectors within the CTMM to total inhalable
particulate (PM10) emissions.
Page 6-29
Figure 6-6: Contributions form the various sectors within the CTMM to total sulphur
dioxide (SO2) emissions.
Figure 6-7: Contributions form the various sectors within the CTMM to total oxides of
nitrogen (NOx) emissions.
Page 6-30
Figure 6-8: Contributions form the various sectors within the CTMM to total benzene
emissions.
Figure 6-9: Contributions form the various sectors within the CTMM to total organic
compounds (TOC) emissions.
Page 6-31
Figure 6-10: Contributions form the various sectors within the CTMM to total carbon
monoxide (CO) emissions.
Figure 6-11: Contributions form the various sectors within the CTMM to carbon
dioxide (CO2) emissions (greenhouse gasses).
Page 6-32
Figure 6-12: Contributions form the various sectors within the CTMM to total methane
(CH4) emissions (greenhouse gasses).
6.3.2.1
Industrial Sources
Stack, vent and fugitive emissions from industrial operations - industrial emissions include
various criteria pollutants (as SO2, NOx, CO and particulates), greenhouse gases (CO2 and
CH4), volatile organic compounds (VOCs), semi-volatile organic compounds (SVOCs),
various heavy metals and other toxins such as dioxins and furans. Industries in the region
include the following:
•
•
•
•
6.3.2.2
Ceramic processes (Wesbrix, Sabrix, Pretoria Brickworks, Corobrik, Cullinan
Refractories, Era Stene, Excelsior Brickworks);
Cement Manufacturing (PPC);
Iron and Steel Industry (Mittal Steel Pretoria);
Smaller combustion processed (incinerator, steam generation, gas-fired boilers etc.)
Power Generation
The two municipal power stations in Tshwane include Pretoria West and Rooiwal Power
Stations. Due to the elevated height at which these power stations emit, the impacts from
these sources are expected to be further a field. The main emissions from such electricity
generation are carbon dioxide, sulphur dioxide, nitrogen oxides and ash (particulates). Fly
ash particles emitted comprise various trace elements such as arsenic, chromium, cadmium,
Page 6-33
lead, manganese, nickel, vanadium and zinc. Small quantities of volatile organic compounds
are also released from such operations.
6.3.2.3
Mining operations
Various mining operations are in place in the CTMM. These mainly include sand, clay and
dolomite and dolerite mining with a few mining quartzite and granite. These mines are
spatially distributed all over the CTMM, mainly on the outskirts of the municipal boundary.
Fugitive emissions from quarrying and mining operations mainly comprise of land clearing
operations (i.e. scraping, dozing, and excavating), materials handling operations (i.e. tipping,
off-loading and loading, conveyor transfer points), vehicle entrainment from haul roads, wind
erosion from open areas and drilling and blasting.
These activities mainly result in fugitive dust releases with small amounts of NOx, CO, SO2,
methane, CO2 being released during blasting operations.
6.3.2.4
Transport related emissions
Emissions as a result of transportations are a concern within the CTMM due to the vast
distances travelled by commuters between work locations and residential areas. Sources of
transport related emissions can be grouped into the following main categories:
•
•
•
Vehicles (roads);
Railroad; and,
Airport.
Air pollution from vehicle emissions may be grouped into primary and secondary pollutants.
Primary pollutants are those emitted directly into the atmosphere, and secondary, those
pollutants formed in the atmosphere as a result of chemical reactions, such as hydrolysis,
oxidation, or photochemical reactions. The significant primary pollutants emitted by motor
vehicles include carbon dioxide (CO2), carbon monoxide (CO), hydrocarbons (HCs), sulphur
dioxide (SO2), oxides of nitrogen (NOx), particulates and lead. Secondary pollutants include:
nitrogen dioxide (NO2), photochemical oxidants (e.g. ozone), HCs, sulphur acid, sulphates,
nitric acid, nitric acid and nitrate aerosols. Toxic hydrocarbons emitted include benzene, 1.2butadiene, aldehydes and polycyclic aromatic hydrocarbons (PAH). Benzene represents an
aromatic HC present in petrol, with 85% to 90% of benzene emissions emanating from the
exhaust and the remainder from evaporative losses.
Atmospheric emissions associated with airport activities, and the pollutants released by each
source, are depended on the mode of operation of the aircraft. Other than water vapour and
carbon dioxide, NOx represents the largest emission related to aircraft engine emissions and
CO the second largest. Smaller amounts of VOCs, SO2, non-methane volatile organic
compounds (NMVOCs), methane, lead and particulates are also emitted. The extent of the
SO2 emissions is dependent on the sulphur content. CO and HC emissions, which result
from incomplete or poor combustion, are generally greater during taxi and idle operations.
Whereas the production of NOx, which is associated with the oxidation of atmospheric
nitrogen during combustion processes, is greatest during take-off when the aircraft engine is
Page 6-34
producing maximum power. Carbon dioxide emissions are directly related to the amount of
fuel combusted.
Trains in operation typically include electric, steam and diesel-powered locomotives with the
latter being prominent in the transportation of bulk materials to and from industrial sites. The
main pollutants of concern associated with train activities include CO2, CO, VOC, NOx,
particulates, SO2, lead, N2O, methane and non-methane VOCs.
6.3.2.5
Household fuel combustion
It is likely that certain households within local communities/settlements use coal or wood for
space heating and/or cooking purposes. Pollutants arising due to the combustion of wood
include respirable particulates, carbon monoxide and sulphur dioxide with trace amounts of
polycyclic aromatic hydrocarbons (PAHs), in particular benzo(a)pyrene and formaldehyde.
Coal burning emits a large amount of gaseous and particulate pollutants including SO2,
heavy metals, total and respirable particulates including heavy metals and inorganic ash,
CO, polycyclic aromatic hydrocarbons (PAHs) such as benzo(a)pyrene, NO2 and various
toxins. Pollutants from wood burning include respirable particulates, NO2, CO, PAHs
(benzo(a)pyrene and formaldehyde). Particulate emissions from wood burning have been
found to contain about 50% elemental carbon and about 50% condensed hydrocarbons.
Areas that would fall within this category include Mamelodi, Soshanguve, Mabopane, GaRankuwa. Eskom is currently busy with an electrification project specifically in Ga-Rankuwa.
6.3.2.6
Biomass burning
Crop-residue burning and general wild fires (veld fires) represent significant sources of
combustion-related emissions associated with agricultural areas. Biomass burning is an
incomplete combustion process with carbon monoxide, methane and nitrogen dioxide being
emitted during the process. About 40% of the nitrogen in biomass is emitted as nitrogen,
10% remains in the ashes and it is assumed that 20% of the nitrogen is emitted as higher
molecular weight nitrogen compounds. The visibility of smoke plumes from vegetation fires
is due to their aerosol content.
6.3.2.7
Fugitive Dust Sources
Fugitive dust emissions may occur as a result of vehicle entrained dust from local paved and
unpaved roads, wind erosion from open areas and dust generated by agricultural activities
(e.g. tilling) and mining. The extent of particulate emissions from the main roads will depend
on the number of vehicles using the roads and on the silt loading on the roadways. The
extent, nature and duration of agricultural activities and the moisture and silt content of soils
is required to be known in order to quantify fugitive emissions from this source. The quantity
of wind blown dust is similarly a function of the wind speed, the extent of exposed areas and
the moisture and silt content of such areas.
These fugitive dust sources are more likely to be a problem in the less urbanized areas of
the CTMM.
Page 6-35
6.3.3
Priority Areas
The main areas of concern within the CTMM are those located near industrial areas such as
Pretoria West and the Moot. The Moot area is furthermore affected by the location of
numerous brickworks within the area resulting in low-level emissions resulting in poor
dispersion due to the topography of the area.
Secondly, areas in close proximity to highways and busy intersections will be affected by
vehicle emissions. This mainly includes the central business district and residential areas
transacted by highways, on-ramps and main feeder roads.
Informal settlements likely to used coal and wood as energy source will be affected due to
the low level releases of emissions and especially during the winter months when more fuel
is consumed. These areas include Mamelodi, Soshanguve, Mabopane, Ga-Rankuwa.
The establishment of the contributions of various source types to total emission represents a
means of ranking sources by their emissions. In order to assess the significance of sources
with regard to their potential impact it is necessary to account for various additional factors,
including: atmospheric dispersion potentials, source configurations (particularly height of
emission), proximity of potentially sensitive receptors, and the carrying capacity of the
receiving environment. It is for this reason that the analysis of trends in ambient air quality is
imperative. Temporal and spatial variations in ambient air pollution concentrations can be
determined through primarily two approaches:
(i) through implementing ambient air pollution monitoring at representative sites to
directly measure pollution concentrations; and,
(ii) through the development of a comprehensive emissions inventory and the
application of an atmospheric dispersion model, using relevant source, emissions
and meteorological data as input, to simulate ambient air pollutant concentrations.
The implementation of a combination of monitoring and modelling will produce the best
results.
Monitoring data generally provides accurate "snapshots" of air pollution
concentrations at specific points with dispersion models, which are by their nature
associated with a greater level of uncertainty, serving to "paint the whole picture".
The first step in designing an ambient air quality monitoring network is to identify the main
pollutant of concern and the priority areas potentially impacted by these pollutants. Table 22 provides a synopsis of the main pollutant, sources of pollutants and potential impacting
areas within the CTM.
Page 6-36
Table 6-2: Summary of Priority Pollutants, Sources and Areas
Pollutants
PM10, PM2.5
NO2 (Nitrogen
dioxide)
Ozone
SO2 (Sulphur
Dioxide)
VOCs (Volatile
Organic
Compounds)
CO (Carbon
monoxide)
Air Toxics
Main Contributing Sources
-
Power generation (Rooiwal and Pretoria
- Industrial (e.g. Ceramic, Cement and
Iron& Steel)
- Other (vehicle entrainment of road dust,
wild fires, tyre burning – significant in
terms of episodes)
- Transport (diesel vehicle emissions)
- Transport (petrol vehicles, diesel
vehicles)
- Industrial processes (e.g. Ceramic,
- Wild fires, tyre burning, etc. as minor
sources
- Secondary pollutant associated with
NOx and other precursors releases
- Industrial processes
- Wild fires
- Industrial and non-domestic fuel burning
sector (e.g. Cement and Iron & Steel)
- Transport
- Wild fires
- Transport
Incinerators, specific industries (printers,
dyers, spray painters, etc.)
Key Impacted Areas
much of the CTMM resulting in
widespread health risks, with
significant health effects
anticipated in residential fuel
burning areas.
Elevated concentrations expected
in close proximity to busy
roadways (i.e. N1, N4, N14)
Pretoria West and Moot area due
to Power Station and industries.
Monitoring is required to confirm
ozone levels.
much of the CTMM. Pretoria
West and Moot area.
Informal settlements during winter
months.
Main impact zones should be
established after monitoring and
modeling efforts.
Notably elevated concentrations
near busy roadways.
Pretoria West and Moot area.
In close vicinity to sources.
Page 6-37
6.4
Air Pollution Control and Air Quality Management Capabilities
In assessing CTMM’s capacity to effectively develop and implement an air quality
management planning approach it is necessary to understand the current resources and
functions of the metro. Important resource considerations include: the availability of staff
and the skills and experience held by staff members, and the availability of air quality
management tools (e.g. emissions inventories, monitoring, atmospheric dispersion
modelling, and environmental reporting).
6.4.1
6.4.1.1
Organisational Structure within the CTMM
Existing Air Pollution Control and Air Quality Management Practices
Two divisions are currently engaged in air pollution control and air quality management
functions, viz. the Environmental Health Division and the Environmental Management
Division.
Primary responsibility for air quality management planning vests with the Chief Health Officer
for Air Quality Management within the Environmental Health Division. He/she has been
tasked with overseeing the air quality management plan development process and will be
responsible for ensuring the adoption, implementation and review of this plan in future years.
Currently the Chief Health Officer for Air Quality Management is responsible for the
development and implementation of a holistic approach to air pollution and to encourage the
attainment of clean air, to ensure a clean, healthy aesthetically pleasing and comfortable
living, working and recreational environment for all people and to explore alternative
sources, ways and possibilities to provide sustainable energy without any detrimental effect
on the environment.
Functions currently being undertaken pertaining specifically to air pollution control and air
quality management are as follows:
•
Air pollution control strategy development (primarily Chief Health Officer for Air Quality
Management)
•
Monitoring instrument procurement and inventory (primarily Chief Health Officer for
Air Quality Management)
•
Ambient and meteorological air quality monitoring
•
Diesel vehicle exhaust testing
•
Collation, analysis and reporting of complaints (respective Chief Environmental Health
Practitioners of the regions)
•
Issuing of notices and legal action (where required)
•
Collation of information on boiler operations
The Chief Environmental Health Practitioners within the Environmental Health Section are
responsible for all complaint investigation including air pollution complaints. A complaints
database exists which records date of complaint, complaint type (e.g. air pollution), and
complainant details.
Page 6-38
The Environmental Resource Management section is situated within the Environmental
Management Division of the Housing, City Planning and Environmental Management
Department. The main responsibilities concerning air pollution for this Division are the
compiling of the State of the Environment Report (SOER) for CTMM and the development of
the Tshwane Integrated Environment Policy (TIEP).
6.4.1.2
Air Pollution Control Strategy Development
The Environmental Resource Management Section has identified the need for a strategy
and implementation plan for integrated pollution control for the CTMM. They put together
the Tshwane Integrated Environment Policy (TIEP) intended to, amongst others, manage air
quality in order to improve it in areas with poor air quality and maintain it in areas with good
air quality. One of the objectives of the TIEP is to implement an Air Quality Management
Plan (AQMP). The Environmental Health Division has committed itself to integrating its
knowledge and ideas into the air quality management plan development process. Key
aspects of the strategy to develop an AQMP are as follows:
•
Recognition of the importance of quantifying emissions – including temporal trends in
emissions – and of assessing the percentage contribution of sources to total emissions.
•
Emphasis on the importance of establishing the height of emissions and the likelihood of
human exposure (through dispersion model analysis).
•
Current emission reduction measures, including:
Domestic fuel burning:
Mining activities
Traffic & transportation:
Industrial emissions &
fuel burning appliances:
Other sources:
6.4.1.3
Recognize DME’s Integrated Clean Household Energy Strategy
Educate and create awareness on top down ignition method and
smokeless mbawulas
Working in collaboration with DME.
Standardisation of vehicle emissions testing across regions
Regular emission testing campaigns for metro buses and trucks
Responsibility of each industry to:
characterize its emissions & comply to emission limits
monitor it activities and provide proof of compliance
Gather information on non-domestic fuel burning appliances to facilitate
emission quantification & modelling
Ensure new fuel burning appliances & renovations to existing
appliances require Metro notification
Enforce combustion efficiencies
Monitor illegal burning of tyres and other material (with fire departments)
Control illegal dumping
Ambient Air Quality and Meteorological Monitoring by the CTMM
Monitoring activities range from on-going maintenance of permanent ambient air quality
monitoring stations to air quality monitoring campaigns undertaken in response to complaints
received.
Page 6-39
Limited ambient air quality monitoring data exists within the CTMM region.
The
Environmental Health Division of CTMM is responsible for ambient air quality monitoring and
data analysis and reporting. Currently, two monitoring stations are in operation, namely the
GDACE station at Rosslyn and the Topas Sampler in Pretoria West. The station at Rosslyn
measures PM10 and various criteria gases (SO2, NO2, CO, O3) in addition to meteorological
parameters. Currently the data is being downloaded by a consulting firm with the intention to
have real-time data transfer via on-line technology to the Air Quality Management Section
within the Environmental Health Division. The Topas Sampler in Pretoria West, with the
operational responsibility in the hands of CTMM. The Environmental Health Practitioner
(EHP) is responsible for the data retrieval at this monitoring station and to date no data has
been successfully downloaded.
Monitoring responsibilities include routine operational checks on the monitoring equipment,
data retrieval from automatic instruments (e.g. Topas) and laboratory services. Historical
data is available on the smoke and SO2 sampling campaign, which was continued by CTMM
after DEAT ceased funding of the campaign in 1998. This monitoring network was
operational until 2001.
CTMM plans to expand this monitoring network over the next two financial years (2005/2006
and 2006/2007), hence in the short-term. During the first phase it is planned to include one
additional permanent monitoring station and nine mobile stations and two additional
permanent stations during the second phase (2006/2007)10. These stations will mainly
monitor for criteria pollutants such as SO2, PM10, NO, NO2 and CO. Responsibility within
CTMM will reside with the Environmental Health Division.
6.4.1.4
Diesel Vehicle Testing
All 8 regions within CTMM are currently undertaking the testing of diesel vehicle emissions,
in accordance with the Atmospheric Pollution Prevention Act of 1965, using a Hartridge
meter. Generally testing is done at bus depots or busy roads (e.g. Zambesi Road).
Although the relevant Chief Environmental Health Practitioner of each region is responsible
for diesel vehicle monitoring, the metro police department provide their cooperation and
assistance in the vehicle emission testing process. The target for both the North and South
Division (consisting of 4 regions each) is to do vehicle emission testing for at least 2 days
per region per year.
Although a Diesel Vehicle Monitoring Policy exists for the testing of emissions from diesel
vehicles, there are a number of procedures that are not included, viz.:
•
number of vehicles tested, and
•
how vehicles are selected for testing.
Results from vehicle testing are currently held by the respective Deputy Managers of the
North and South Division.
10
The tender is currently open for suppliers of monitoring equipment to fulfil the requirements of
Phase 1. The tender closed on the 2nd of November 2005.
Page 6-40
6.4.1.5
Collation of Source Information
Source and emissions information on boiler operations and industrial processes are kept by
Occupational Health Officers. Lists of boiler operations only have details on the type of
boiler (e.g. John Thompson) and the type of fuel used (e.g. coal). No information exists on
quantity of fuel used or boiler specifications. No comprehensive, current source and
emissions data for industrial sources or non-domestic fuel burning appliances is kept by
CTMM.
6.4.2
6.4.2.1
Review of Current Air Quality Management Tools
Emissions Inventory Data Base
An emissions inventory database in which source and emissions data for all significant
sources of atmospheric emission are stored represent a critical component of effective air
quality management. No such database is currently maintained within the CTMM. However,
a database is being developed with the aim to include all scheduled processes, diesel
vehicle testing results, and ambient monitored data.
6.4.2.2
Air Quality Monitoring Network and Reporting Practices
Ambient air quality and meteorological monitoring is currently being conducted by various
departments and groups within the metro, including: CTMM, GDACE, and South African
Weather Services (meteorological stations).
Effective data transfer mechanisms have not been established between the various parties
responsible for monitoring. The data from the GDACE station (Rosslyn) is transferred
automatically to GDACE. Although the CTMM will be responsible for the future maintenance
of the station it is not currently clear how the metro will receive access to the data. Data
from the CTMM Topas station (Pretoria West), currently maintained by Health Care
personnel, has not yet been received due to maintenance not being preformed regularly
(e.g. filters were not changed on the PM10 monitor, and data received was not downloaded
off the PC). Such data are currently only accessed by personnel within the Health Care unit.
Meteorological data is currently obtained from three stations operated by the South African
Weather Services within the CTMM located at Irene, Unisa and Pretoria (Eendracht School).
This information needs to be obtained from the SA Weather Services. The Rosslyn station
records meteorlogical parameters (i.e. wind speed, wind direction, and temperature) but the
data availability was poor at the time of the baseline assessment.
The coordination of air quality and meteorological monitoring activities within the CTMM is a
fundamental requirement for successful air quality management. In instances where
monitoring is being conducted (or to be conducted) by other parties effective mechanisms
could be put in place to facilitate timely access to data and data sharing. In future, the plan
is to implement a centralised electronic emissions and data base by acquiring a software
package and data logger system that will be installed at the two existing air quality
monitoring stations (Rosslyn and Pretoria West) and the newly proposed stations. The raw
Page 6-41
data will be transferred to a single administrator (Chief Health Officer for Air Quality
Management) where the data will be calculated automatically and then sent to selected LAN
users in a report format.
6.4.2.3
Atmospheric Dispersion Modelling
No skills or tools currently exist within the CTMM to support atmospheric dispersion
modelling. Such modelling is important for the purpose of effective baseline air pollution
characterisation and for assessing the air quality benefits of implementing proposed
management and mitigation strategies.
Page 6-42
7
AIR QUALITY MANAGEMENT POLICY FRAMEWORK
A clear air quality management policy is required to inform air quality management plan
development, implementation, review and revision. The drafting of this policy was informed
by:
(i)
the Constitution and Bill of Rights and national environmental policy, as documented
in the General Environmental management Policy for South Africa, the National
Management (IP&WM) White Paper,
(ii)
National Environmental Management: Air Quality Act (No 39) of 2004 published by
the Department of Environmental Affairs and Tourism (which reflects the vision and
principles expounded by the national environmental policies), and
(iii)
international trends in air quality management policies.
The air quality management policy outline in subsequent subsections embodies a paradigm
shift from end-of-pipe air pollution control to pollution prevention and minimization through
proactive and integrated air quality management planning. The integration of air quality
considerations into development, transportation, land use planning and housing policies and
programmes and the involvement of the public in the air quality management process
represent key components of the policy.
The overarching principles of the Constitution, the General Environmental Policy for South
Africa and the Integrated Pollution and Waste Management Policy underpin the proposed
local air quality management policy. Principles that are of significance to air quality
management include the following:
Key Principles
Implications for Air Quality Management
Accountability
Capacity-building
Education
Government is accountable for policy formulation, monitoring and enforcement.
and
All people must have the opportunity to develop the understanding, skills and capacity
for effective participation in achieving sustainable development and sustainable use of
air as a resource.
Custodianship
It is the constitutional duty of government to protect the environment, including air
quality, for the benefit of current and future generations. Its responsibilities include
the duty to act as custodians of the nation's resources, to protect the public interest in
and ensure equitable access to such resources, and generally to ensure that all South
Africans enjoy an environment of acceptable quality.
Demand management
The price of goods and services must include the environmental cost, including costs
related to air quality impacts, of sustaining the rate of supply over time.
Due process
Due process must be applied in all air quality management activities. This includes
adherence to the provisions in the Constitution dealing with just administrative action
and public participation in environmental governance.
Duty-of-care
Any institution which generates air pollution is always accountable for the
management of this pollution and will be penalised appropriately for any and every
transgression committed.
Equity
ALL sources of air pollution need be identified and managed relative to their
Page 7-1
Key Principles
Implications for Air Quality Management
contributions to ambient concentrations.
Environmental justice
Government must integrate environmental considerations, including air quality
considerations, with social, political and economic justice and development in
addressing the needs and right of all communities, sectors and individuals.
Full cost accounting
Decisions must be based on an assessment of the full social and environmental costs
and benefits of policies, plans, programmes, projects and activities that impact on the
environment. Air quality management plans, policies and programmes should
similarly be assessed in this manner.
Freedom of information
Provides motivation for an air quality information system comprising the maintenance
of air quality and emissions inventory databases and the generation of air quality
status reports. Air quality reporting should seek to provide information which enables
people to protect their health and well-being and protect the environment from the
negative effects of air pollution, and participate effectively in air quality governance.
Good governance
The government is obliged to give effect to people's environmental rights - including
the right to acceptable air quality, by: taking responsibility for developing and
implementing air quality management policy, responding to public needs and
encouraging public participation in air quality governance by providing for the mutual
exchange of views and concerns between government and people, and monitoring
and regulating actions that impact on air quality.
Inclusivity
Air quality management processes must consider the interests, needs and values of
all interested and affected parties in decision-making to secure sustainable
development.
Integrated
planning
and
environmental
management
Provides the incentive for the integration of air quality issues into transportation and
land use planning processes.
Polluter pays
The full cost associated with pollution (including monitoring, management, clean-up
and supervision) should be met by the organizations responsible for the source of the
pollution.
Pollution prevention
Measures must continue to be taken to reduce emissions at sources (i.e. sourcebased controls)
Precautionary principle
Need to provide for instances where environmental tolerances are not known. This
principle also provides the incentive for the setting of multiple levels of air quality
standards which not only define suitable levels to ensure human health and welfare,
and the protection of the natural and built environment, but also levels for the
prevention of significant decline.
Public participation
Provides motivation for the effective integration of the public into the air quality
management plan development and impact assessment processes.
Subsidiarity
(i.e. Decentralisation of responsibilities at the most local level consistent with effective
performance.) Control of pollution shall be exercised at the lowest effective level of
regulatory authority, with appropriate mechanisms to avoid inconsistency of control.
Transboundary
movement
Potential transboundary effects on human health and the environment, including air
quality, must be taken into account.
Universal applicability
of
regulatory
instruments
All industrial, agricultural, domestic/household and governmental operations will be
subject to the same air quality management regulatory system
Page 7-2
The CTMM's vision, mission, overarching principles and general approach to air quality
management should reflect the vision, principles and approach adopted in terms of national
and provincial policy in addition to local goals.
7.1
Vision, Mission and Objectives
7.1.1
Vision
An internationally acclaimed African capital of excellence that empowers the community to
prosper in a safe and healthy environment.
7.1.2
Mission and Commitment
To enhance the quality of life of all the people in the City of Tshwane through a development
system of local government and the rendering of efficient, effective and affordable services.
As a result of the CTMM’s activities improvements in air quality are envisaged despite
countervailing trends in population, development, and transportation growth. In achieving
such improvements, the CTMM is committed to:
1
Establishing a set of shared goals and strategies for air quality improvement.
2
Establishment and continued implementation of a comprehensive air quality
monitoring and management system.
3
Involving and educating the public with the purpose of minimizing pollution and
facilitating the effective participation of the public in air quality governance.
4
Integrating air quality considerations into housing, transportation and spatial planning
developments.
5
Making greater use of innovative approaches to reducing pollution.
6
Conducting sound research and effectively use new information technologies.
7
Respond creatively and vigorously to new challenges and emerging issues.
8
Improve the working partnership of personnel responsible for air quality management
at all levels of government.
9
Facilitate effective inter-departmental and inter-governmental cooperation for the
purpose of accurate source quantification and identifying and implementing effective
emission reduction measures.
7.1.3
Strategic Goals and Objectives
With the purpose of supporting the development, implementation and maintenance of air
quality management planning within the CTMM, the study goals and objectives were outlined
as follows:
Page 7-3
•
implementing the Air Quality Management Plan to ensure a holistic air quality
management approach;
•
assigning clear responsibilities for air quality management in Tshwane;
•
identifying and monitoring pollution sources that impact negatively on air quality;
•
determining which current air emissions in Tshwane must be reduced and the extent
of the required reduction in consultation with all relevant authorities and stakeholders;
•
clarifying the respective roles within local government with regards to air quality
management and monitoring;
•
developing and implementing a system to manage air emissions in Tshwane on a
sustainable basis, including addressing service delivery (such as electricity) to rural
areas;
•
establishing a framework for compliance to national and international policies,
legislation, norms and standards;
•
determining the resources required to execute air quality management;
•
ensuring that air quality management forms part of the integrated EMIS;
•
developing and implementing air quality management programmes and projects;
•
developing a communication strategy for air quality management to ensure
transparency and involvement of stakeholders and the public;
•
enforcing relevant air quality legislation and regulations;
•
undertaking air quality management in Tshwane in the context of and in close
cooperation with authorities in neighbouring metropolitan areas in order to facilitate
integration of environmental management with these areas;
•
implementing the noise policy and noise guidelines in consultation with all relevant
authorities and stakeholders; and,
•
doing appropriate land-use and development planning such that noise producing
activities are planned, designed and managed to minimise noise pollution in noise
sensitive areas.
7.2
Approach to Air Quality Management
A shift from end-of-pipe air pollution control through the exclusive implementation of
command-and-control measures to effects-based air quality management using proactive,
flexible, varied and fair measures is supported by the new policy. The key approaches that
are to be implemented in order to achieve policy objectives may be individually listed as
follows:
•
Adoption of a receiving environment approach which requires the setting of local air
quality objectives
Such objectives are needed to define what constitutes satisfactory air quality to
ensure human health and welfare, the protection of the natural and build
environment, and finally the prevention of significant decline.
•
Establishment of a sound technical basis for air quality management and planning.
Page 7-4
This would include the building of technical expertise and the development and
implementation of various tools such as an emissions inventory, a meteorological
and air pollution monitoring network, atmospheric dispersion model, impact
assessment methodologies (etc.).
•
-Control and management of all significant sources of air pollution relative to their
contributions to ambient air pollutant concentrations.
This will ensure that improvements in air quality are secured in the most timely, evenhanded and cost-effective manner.
•
Implementation of a range of tools in the prevention of air pollution including: sourcebased command-and-control measures, market incentives and disincentives,
voluntary initiatives and self-regulation and education and awareness methods.
The integration of a wide range of emission reduction measures is required given the
diversity in the nature of air pollution sources. Such an approach will ensure
innovative and flexible plans of action tailored to suit specific source types and local
circumstances.
•
Identification and implementation of emission reduction measures that are: (i)
environmentally beneficial taking all media into account, (ii) technically feasible, (iii)
economically viable, and (iv) socially and politically acceptable.
•
Provision will be made for the integration of air quality issues into the transportation,
housing and land use planning process to ensure that air quality issues are addressed
in the long term.
•
Empowerment of communities by providing easy access to ambient air quality
information, including information on air pollution concentrations and environmentally
harmful practices.
•
Facilitation of public consultation and encouragement of public participation in the air
quality management and planning process.
7.3
•
Key Considerations in the AQMP Development Process
Focus on air quality management framework development in the short-term
Effective air quality management has as its basis a comprehensive management
framework including the required organisational and functional structures and an
integrated air quality management system comprising an emissions inventory, air quality
and meteorological monitoring, dispersion modelling and environmental reporting (etc.).
An effective air quality management framework is not currently in place within the City of
Tshwane Metropolitan Municipality due to manner in which air pollution has historically
Page 7-5
been controlled. Without such a system: (i) insufficient data exists for certain sources on
which to determine whether or not the implementation of certain emission reduction
measures are justified, and (ii) progress made by control measure implementation can
not be quantified.
In the short-term emphasis thus needs to be placed on establishment of an air quality
management framework, including air pollution control and air quality management skills,
organisational and functional structures and AQM system tools.
•
Emphasis on the implementation of emission reduction measures for major sources.
Given the need to focus resources on the establishment of the air quality management
framework in the short-term it is imperative that emission reduction measures be
carefully selected to ensure that the most significant sources, in terms of potentials for
impacts on human health and well-being, are targeted.
•
Identification of sources for which the implementation of emission reduction measures in
the short-term is justified.
For specific sources sufficient evidence exists that their emissions impact significantly on
either the health and/or well being of people to justify the identification and
implementation of emission reduction measures in the short-term. Such evidence
typically comprises the integrated assessment of preliminary emission estimates,
ambient air quality monitoring and health risk studies. Examples include: household fuel
burning and fugitive dust from partially rehabilitated or disturbed mine tailings
impoundments.
Vehicle tailpipe emissions were noted during the Baseline Assessment to be one of the
most significant emerging air pollution issues on the basis of: (i) preliminary emission
estimates, (ii) anticipated increases in traffic volumes and congestion rates, (iii) elevated
NOx concentrations measured within the Metro, and (iv) the identification of this sector as
being of primary concern by many developing countries. There is thus sufficient
motivation for short-term actions to be taken aimed at addressing vehicle emissions in
the medium- to long-term.
•
Identification of sources for which further assessment is required to determine the need
for and/or most suitable types of emission reduction measures implementable.
Sources of concern in terms of the emission of air toxins and odourous compounds
include incinerators, landfills and waste water treatment works. Insufficient information
currently exists to determine the impact of individual operations. Attention is thus
focused on the quantification of the impacts of these sources and on the implication of
the minimum control requirements stipulated for such sources in the short-term. The
intention being to implement further controls in the medium term on individual operations
found to be associated with significant impacts.
Tyre burning and the informal combustion of waste were also identified during the
Baseline Assessment as resulting in air toxins. Given that these sources are illegal it is
justifiable that control measures be proposed in the short-term.
Page 7-6
Other sources that are not currently quantifiable in terms of emissions or impacts include
industrial and commercial fuel burning appliances, wild fires, fugitive releases from
agricultural activities and vehicle entrainment of dust from roads. The quantification of
such sources and their impacts prior to implementing emission reduction measures is
advocated.
•
Need to facilitate inter-departmental co-operation in the identification and implementation
of emission reduction measures for certain sources.
Local authorities are not directly responsible for the regulation of certain sources
identified during the Baseline Assessment as potentially impacting significantly on
pollution potentials within the Metro (e.g. waste incineration and disposal).
The implementation of emission reduction measures for certain sources would require
that the CTMM Environment Health and Environmental Management Divisions set up cooperative arrangements with other local departments (e.g. the identification and
implementation of traffic volume reduction opportunities would require co-operation with
the Department of Transportation Planning; the regulation of mining operations needs to
be done in consultation with Department of Minerals and Energy).
For the source types listed above, attention needs to be focused in the short-term on the
establishment of inter-departmental co-operative structures or the effective utilization of
existing structures in order to support the identification and implementation of effective
emission controls in the medium- and longer-terms.
•
Focus on the implementation of air quality management planning approaches by specific
sources rather than on isolated individual emission reduction measures.
Air quality management planning approaches are advocated rather than implementation of
emission reduction measures in a fragmented manner (e.g. implementation of dust
management planning by mines and the integration of air quality issues into comprehensive
environmental management assessment and planning approach by landfill sites).
Page 7-7
8
LOCAL AIR QUALITY OBJECTIVES
Air quality guidelines and standards and other evaluation criteria are fundamental to effective
air quality management, providing the link between the potential source of atmospheric
emissions and the user of that air at the downstream receptor site. The ambient air quality
guideline values indicate safe daily exposure levels for the majority of the population,
including the very young and the elderly, throughout an individual’s lifetime. Air quality
guidelines and standards are normally given for specific averaging periods. These
averaging periods refer to the time-span over which the air concentration of the pollutant was
monitored at a location. Generally, five averaging periods are applicable, namely an
instantaneous peak, 1-hour average, 24-hour average, 1-month average, and annual
average.
The Department of Environmental Affairs and Tourism (DEAT) issued ambient air quality
guidelines for several criteria pollutants, including particulates, sulphur dioxide, oxides of
nitrogen, lead, ozone and carbon monoxide. The National Environmental: Air Quality Act,
which commenced with on the 11th of September 2005, adopted these guidelines as national
interim standards. According to Peter Lucky it is likely that the SANS limit values will be
adopted as national ambient air quality standards within the AQA.
The Air Quality Act (AQA) does not make provision for the setting of legally binding local air
quality standards by local authorities. It is however recognised that local authorities may
define air quality guidelines as internal objectives or targets to assist in ambient air quality
management. Such local targets may need to be made more stringent than national limits in
order to protect particularly sensitive environments, or due to appeals made by local
communities.
8.1.1
8.1.1.1
Air Quality Objectives for Criteria Pollutants
Selection of Priority Pollutants for which Objectives are to be established
In the selection of pollutants for which local guidelines were established attention was paid to
the following:
•
commonly occurring pollutants within the CTMM that give rise to relatively widespread
exposures;
•
pollutants for which national air quality guidelines currently exist and for which national
air quality standards are in the process of being established; and
•
pollutants for which guidelines/standards/goals are initially issued by other countries.
Based on the above considerations the following pollutants were selected for the
establishment of local guidelines:
•
particulate matter with an aerodynamic diameter of < 10 µm (PM10)
•
nitrogen dioxide (NO2)
Page 8-1
•
sulphur dioxide (SO2)
•
carbon monoxide (CO)
•
ozone (O3)
•
lead (Pb)
•
benzene
•
dustfall
Air quality standards are being issued by other countries for metals in addition to lead and
for volatile organic compounds (VOCs) in addition to benzene. The EC is, for example, in
the process of issuing air quality targets for mercury, nickel, cadmium, arsenic and poly
aromatic hydrocarbons (PAHs) in addition to the pollutants listed above (with the exception
of dustfall). The United Kingdom has also recently added 1,3-butadiene to the list of seven
common pollutants (as listed above; excludes dustfall). The South African Technical
Committee on air quality standard setting have proposed that national air quality standards
initially be put in place for the pollutants associated with the most widespread exposures.
The Committee decided that standards should initially be set for lead and benzene, with
additional standards for other metals and VOCs being set at a latter date (as was the EC
and UK's practice).
Air quality standards are not defined by all countries for dust deposition although some
countries may make reference to annual average dustfall thresholds above which a 'loss of
amenity' may occur. In the South African context, widespread dust deposition impacts occur
as a result of wind blow mine tailings material and other fugitive dust sources. It is for this
reason that the SABS Technical Committee on air quality standards has recommended the
establishment of target levels and alert thresholds for dustfall. The adoption of local dustfall
guidelines by the CTMM is therefore recommended.
Particulate matter less than 2.5 µm (PM2.5) was initially selected for inclusion in the list of
pollutants for which local air quality guidelines are to be established. The reason being that
particles generated from combustion processes are mostly smaller than 2.5 µm whereas
particles from mechanical processes tend to be larger. Usually the fine mode is
characterised by chemical constituents such as sulphate, nitrate, ammonium, lead,
elemental carbon, metals and hundreds of different organic carbon compounds. The coarse
mode is characterized by materials typical of the earth's crust (oxides of iron, calcium, silicon
and aluminium) and sea spray (sodium and chloride). The finer particles also have a longer
residence time in the atmosphere and can penetrate deeper into the human lung. It has
been suggested that the PM2.5 fraction may therefore play a more important role in the longterm effects attributable to particles than either PM10 or PM10-2.5.
Following the review of the literature on PM2.5 it was recommended that the setting of a
local guideline for this particulate size fraction be postponed to the first revision of the
AQMP, which will follow this study. The reasons for placing emphasis initially on the PM10
fraction prior to including guidelines for PM2.5 are as follows:
•
with regard to air quality measurement equipment, inter-comparisons between different
types of equipment are being performed for PM10 but are at present not widely done for
PM2.5 or finer fractions
Page 8-2
•
a very important fraction of the health effect studies undertaken to date is based on TSP
or PM10 measurements and exposures
•
PM10 concentrations show an acceptable correlation to PM2.5 levels
•
there is limited international experience on the setting of PM2.5 standards
Countries, blocks and organisations which have adopted PM10 standards, guidelines or
objectives to date including: South Africa, USA, Australia, New Zealand, the EC, various
individual Member States including the UK, Germany, Sweden (etc.), Poland, Romania,
Slovenia, the World Bank, the WHO, Tanzania, Zimbabwe (etc.). Only three countries have
issued PM2.5 standards to date, viz. the US (standard currently being contested), New
Zealand and Australia. It is however noted that several countries are known to be in the
process of investigating the potential for setting standards for a particle size range below
PM10 including the EC and the UK. Although it is suggested that a local guideline for PM2.5
be established at a later date, it is recommended that monitoring of this particulate size
fraction be undertaken at sites coinciding with PM10 monitoring. Such monitoring will assist
in characterising local PM2.5 concentration levels in terms of their magnitude and spatial
and temporal variations, and in terms of typical ratios of PM2.5 to PM10. The gathering of
this information in the interim will assist in informing the setting of a suitable PM2.5 at a
future date.
8.1.2
Criteria and Approach for Setting Local Air Quality Objectives
A tiered approach is advocated for adoption by the CTMM for the purpose of setting air
quality evaluation criteria. It is recommended that the following thresholds be established for
specific pollutants-averaging periods:
•
Limit values are to be based on scientific knowledge, with the aim of avoiding, preventing
or reducing harmful effects on human health and the environment as a whole. Limit
values are to be attained within a given period and are not to be exceeded once attained.
•
Information and investigation thresholds are intended to highlight pollutant
concentrations at which the public need be informed that the most sensitive individuals
may be impacted and/or at which investigations into reasons for the elevated levels need
to be initiated.
•
Alert thresholds refer to levels beyond which there is a risk to human health from brief
exposure. The exceedance of such thresholds necessitates immediate steps.
The limit values and associated averaging periods recommended for adoption by the CTMM
are primarily based on human health effect data given for specific averaging periods. In the
selection of suitable limit values to be used as the basis for local guidelines, reference was
primarily made to the lowest observed adverse effect level (LOAEL) rather than exclusively
to the standards adopted by other countries. The reason being that other country-specific
considerations that may not be applicable in SA may have been taken into account in the
standard setting process. It was however noted that the standards more recently
promulgated (e.g. limit values of the EC, UK and certain of the Australian standards) closely
coincide with LOAELs.
Page 8-3
It was considered beyond the scope to consider primary health studies as the basis for
selecting suitable local guidelines as part of the air quality management plan development
process. The review was therefore restricted to the consideration of the major metaanalyses undertaken by various countries and organisations for the purpose of setting
ambient air quality guidelines and standards. Such meta-studies have been conducted for
select pollutants by the WHO, the EC, the UK, Australia, US-EPA, the California Air
Resources Board and Canada.
8.1.2.1
Limit Values to be Implemented to Protect Human Health and Well-being
A synopsis of the limit value or guideline selected for each pollutant-averaging period
combination is given in Table 4-1. Current SA guidelines are indicated for pollutantaveraging period combinations for which no local guidelines have been set (indicated in
shading). It is necessary to acknowledge these since the City of Tshwane will also need to
prove compliance with such guidelines. On finalisation of the national ambient air quality
standards regulations this table will however need to be revised to remove reference to
current guidelines and to review proposed local guidelines in order to ensure that they are
equivalent to or lower than the new national standards.
Local guidelines to be adopted for implementation by the City of
Table 8-1:
Tshwane. Values are expressed in µg/m3 and where appropriate ppb (the volume
standardised at a temperature of 25°C and a pressure of 101,3 kPa.)
Pollutant
Averaging Period
Sulphur dioxide
10 minute running
average
1-hr
24-hr
annual
Nitrogen dioxide
Nitrogen oxide
Oxides
nitrogen
PM10
of
instantaneous peak
1-hr
24-hr
1-month
annual
instantaneous peak
1-hr
24-hr
1-month
annual
instantaneous peak
1-hr
24-hr
1-month
annual
24-hr
annual
Guideline
(ppb)
191
Guideline
(µg/m3)
500
133
48
350
125
19
50
500
104
100
80
21
900
600
300
200
150
1400
800
400
300
200
955
200
191
153
40
1125
750
375
250
188
2080
1132
566
403
284
75
40
Basis for Guideline
WHO, SANS 1929
EC, UK
SA, WHO, EC, UK, SANS 1929
SA, WHO, SANS 1929
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
Current SA
SANS 1929
SANS 1929, EC - phase 1
Page 8-4
Pollutant
Carbon
monoxide
Lead
Ozone
PM2.5
Averaging Period
1-hr
8-hr
running
average calculated
on
1-hourly
averages
quarterly-average
annual
instantaneous peak
1-hr
8-hr
running
average calculated
on
1-hourly
averages
24-hr
annual average
Benzene
annual average
Guideline
(ppb)
26 000
8 700
Guideline
(µg/m3)
30 000
10 000
1.5
0.5
255
102
61
500
200
120
5
Basis for Guideline
WHO, EC, SANS 1929
WHO, EC, SANS 1929
Current SA
WHO, EC, UK, Australia, SANS
1929
Current SA
Health criteria, SANS 1929
EC target based on WHO,
SANS 1929
SANS 1929
The four-band scale recommended for use in the evaluation of dustfall is outlined below and
target, alert and action levels indicated. Dustfall rates shall be expressed in units of (mg m-2
day-1, 30-day average).
1
BAND
DESCRIPTION
LABEL
RESIDENTIAL
2
INDUSTRIAL
3
ACTION
1 200 < D < 2 400
4
ALERT
2 400 < D
BAND
NUMBER
DUST-FALL RATE (D)
-2
-1
(mg m day ,
30-day average)
D < 600
600 < D < 1 200
COMMENT
Permissible for residential and light
commercial
Permissible for heavy commercial and
industrial
Requires investigation and remediation if two
sequential months lie in this band, or more
than three occur in a year.
Immediate action and remediation required
following the first exceedance.
Incident
report to be submitted to relevant authority.
An enterprise may submit a request to the authorities to operate within the Band 3 ACTION
band for a limited period, providing that this is essential in terms of the practical operation of
the enterprise (for example the final removal of a tailings deposit) and provided that the best
available control technology is applied for the duration. No allowance will be made for
operations that result in dustfall rates in the Band 4 ALERT.
Target, Action and Alert Thresholds for ambient dustfall are proposed as follows:
Page 8-5
LEVEL
TARGET
ACTION
RESIDENTIAL
ACTION
INDUSTRIAL
ALERT
THRESHOLD
DUST-FALL RATE (D)
(mg m-2 day-1,
30-day average)
300
600
AVERAGING
PERIOD
Annual
30 days
1 200
30 days
2 400
30 days
PERMITTED FREQUENCY OF
EXCEEDANCES
Three within any year, no two sequential
months.
Three within any year, not sequential
months.
None.
First
exceedance
requires
remediation and compulsory report to
authorities.
Dustfalls that exceed the specified levels but that can be shown to be the result of some
extreme weather or geological event shall be discounted for the purpose of enforcement and
control. Such event might typically result in excessive dustfall rates across an entire
metropolitan region, and not be localised to a particular operation. Natural seasonal
variations, such as dry windy periods will not be considered extreme events for this
definition.
8.1.3
Definition of Timeframes for Compliance with Local Objectives:
To inform the schedule for the meeting of targets it will be necessary for the City of Tshwane
to undertake the following work: (i) project future air pollution concentrations given a
'business as usual scenario', i.e. no emission reductions implemented but increased
emissions due to population growth, industrial growth, etc. taken into account; (ii) projected
air pollution concentrations given the implementation of combinations of short-, medium- and
long-term control measures; and (iii) selection of measures for implementation which are
socio-economically acceptable and technologically possible. This assessment can only be
undertaken following the establishment of the air quality management system, which
includes: the establishment of a comprehensive emissions inventory, the establishment of
the air pollution monitoring network and the acquisition and implementation of an
atmospheric dispersion model. The selection of suitable timeframes for compliance with
local guidelines will be determined during the AQMP development process for the CTMM.
Note: Should DEAT in the interim publish air quality standards with timeframes for
compliance being stipulated, CTMM will need to adopt the given timeframes as maximum
periods for compliance. Shorter timeframes could however still be set as a guide for local
compliance assessment.
8.1.3.1
Alert and Information Thresholds for Priority Pollutants
Alert and information thresholds recommended for use by the City of Tshwane are outlined
in Table 4-2. These thresholds will need to be finalised at a later date, this will involve:
•
the selection of appropriate thresholds selected for each pollutant;
•
the definition of information to be provided and the manner in which it will be provided
following the exceedance of an 'information threshold'; and
•
indication of specific action to be taken on exceedance of an 'alert threshold'
Page 8-6
The finalisation of information on alert thresholds will be undertaken once the following has
been undertaken: (i) at least one year of air pollutant concentrations recorded for the
pollutant for which the thresholds are to be set, (ii) source contributions to ambient air
pollutant concentrations established, and (iii) possible actions assessed in terms of their
socio-economic acceptability and technical feasibility. Locally-defined alert and information
thresholds will also be revised should national thresholds be issued.
Various of the recommended thresholds given in Table 3-2 are based on UK bands, such
bands represents a means of categorizing the ambient concentrations of a particular
pollutant in low, moderate, high and very high air pollution categories. The information
threshold level is set equivalent to the "high" pollution level with the alert threshold indicative
of "very high" pollution levels. The UK defines the implications of such levels as follows:
•
High pollution levels - "Significant effects may be noticed by sensitive individuals and
actions to avoid or reduce these effects may be needed (e.g. reducing exposure by
spending less time in polluted areas outdoors.) Asthmatics will find that their 'reliever'
inhaler is likely to reverse the effects on the lung."
•
'Very high' pollution levels - "The effect on sensitive individuals described for 'high' levels
of pollution may worsen."
Table 8-2:
of Tshwane
Alert and information thresholds to be investigated for use by the City
nitrogen dioxide
Averaging
Period
10-minute
average
3 consecutive
hours
1-hour average
carbon monoxide
3 consecutive
hours
8-hour average
ozone
8-hour average
Pollutant
sulphur dioxide
8.1.3.2
Information
Threshold
532 µg/m3
200 ppb
573 µg/m3
(300 ppb)
17.4 mg/m3
(15 ppm)
180 µg/m3
(90 ppb)
Alert Threshold
1064 µg/m3
400 ppb
350 µg/m3
(130 ppb)
764 µg/m3
(400 ppb)
400 µg/m3
(209 ppb)
23.2 mg/m3
(20 ppm)
360 µg/m3
(180 ppb)
Basis for
Threshold
UK 15-min bands
EC alert threshold
UK bands
EC alert threshold
UK bands
UK bands
Thresholds related to Vegetation and Ecosystems
Although it is recommended that local air quality guidelines for the City of Tshwane be based
initially on thresholds able to protect human health, the need to protect the broader
environment is accepted as is evident from the vision statement. It is recommended that in
the short-term the City of Tshwane should motivate DEAT and GDACE to identify guidelines
for vegetation suited to local ecosystem. (National and provincial authorities are mandated
to set more stringent air quality limits according to the Air Quality Act). In the interim, the
CTMM personnel will make reference to internationally defined air quality criteria given for
Page 8-7
the protection of vegetation for information purposes. Reference to certain criteria issued by
the EC, UK and US for this purpose is given in Table 4-3.
Table 8-3:
ecosystems
Pollutant
Averaging Period
sulphur dioxide
annual average
nitrogen oxides (NOx)
ozone
annual average
3 months)(d)
3 months)(d)
Threshold
(ppb/ppm)
Threshold
(µg/m3 or mg/m3)
3.7 - 11.1 ppb(a)
7.4 ppb(b)
20 ppb(c)
8 - 9 ppm(e)
10 - 30 µg/m3(a)
20 µg/m3 (b)
30 µg/m3 (c)
4 - 4.5 mg/m3(e)
3 ppm/h(f)
1.5 mg/m3(f)
(g) Represents the critical level for ecotoxic effects issued by the WHO for Europe; a range is given to account
for different sensitivities of vegetation types
(h) EC and UK limit value to protect ecosystems
(i) EU limit value specifically designed for the protection of vegetation
3
(j) AOT40 means the sum of the differences between hourly concentrations greater than 80 µg/m or 40 ppb
3
and 80 µg/m over a given period. The 3-month window to be selected according to the growing season of
the selected sensitive receptor and the climate in the specific region - if the growing season exceeds 3
months the most sensitive period should be used. Daylight hours are set at 8-20 h Central European Time
(k) EC target value given for vegetation
(l) EC long-term objective for vegetation
8.1.3.3
Proposed Procedure for Assessment of Non-Criteria Pollutants
Ambient air quality guidelines and standards are not published by countries and
organizations for all possible air pollutants to which the public may be exposed. Such
guidelines and standards are typically only set for commonly occurring air pollutants that
result in relatively widespread public exposures (e.g. particulate matter and sulphur dioxide).
In order to ensure that a sound approach is adopted in the assessment of the potential for
health impacts from non-criteria pollutants the following inhalation health risk screening
procedure will be adopted for implementation within the City of Tshwane:
(1)
Determine ambient(11) near ground(12) air pollutant concentrations through ambient air
quality monitoring and/or atmospheric dispersion modelling.
For ambient air quality monitoring use must be made of a credible monitoring device
and methodology. The detection level of the instrument must be below the level at
which health effects are known or suspected to occur. Monitoring must be
undertaken for the averaging period for which health thresholds are available (e.g.
hourly averages).
11
Ambient air is defined for the purpose of implementing this procedure as being beyond the fencelines of
specific industrial and mining operations in areas where public exposures are possible.
12
It is recommended that concentrations be established at about 1.5 m above ground level. This is typically set
as the receptor height for assessing human exposures.
Page 8-8
For atmospheric dispersion modelling use must be made of provable source and
emissions data. Emission rates may either be measured or calculated based on
mass balance equations, engineering calculations or applicable emission factors.
Site-specific meteorological and topographical data should be used in the modelling.
Attention should be paid to the guidelines for dispersion modelling outlined in SANS
1929.
(2)
Obtain inhalation-related dose-response thresholds for the air pollutant under
investigation from credible, preferably refereed sources. Recommended information
sources and types of thresholds are as follows:
Recommended
Information
Sources:
United States
Environmental
Protection Agency
Integrated Risk
Information System
(IRIS)
California
Environmental
Protection Agency –
Office of
Environmental
Health Hazard
Assessment
US federal Agency
for Toxic Substances
and Disease Registry
(ATSDR)
World Health
Organisation
Threshold Type:
Averaging Period:
Website:
Sub-chronic
inhalation reference
concentrations
Chronic inhalation
reference
concentrations
Cancer unit risk
factors
Sub-chronic – weeks to
months
www.epa.gov/iris
Chronic – 1 year average or
longer
www.epa.gov/iris
longer (Exposures over 70
year lifetime assumed)
Acute – typically 1 hour
average ranging to 8-hourly
average depending on
pollutant
longer
www.epa.gov/iris
Acute Reference
Exposure Levels
(RELs)
Chronic Reference
Exposure Levels
(RELs)
Minimal Risk Levels
(MRLs)
Guideline Values
and Tolerable
Concentrations
Cancer Unit Risks
www.oehha.ca.gov
www.oehha.ca.gov
http://www.atsdr.cdc.gov/
mrls.html
Various averaging periods,
including:
30-minutes
1-hour
24-hour
annual average
longer (Exposures over 70
year lifetime assumed)
http://www.who.int/en/
http://www.who.int/en/
(3)
Determine the major exposure pathway for the pollutant under investigation, i.e.
inhalation, ingestion or dermal contact. For pollutants for which inhalation is not the
major exposure pathway recognize that a comprehensive health risk assessment in
which multiple-exposure pathways are taken into account is needed.
(4)
For pollutants for which inhalation represents the major exposure pathway, assess
predicted and/or measured air pollutant concentrations based on applicable doseresponse thresholds. Ensure that the averaging period for such concentrations are
relevant to the exposure period for which the threshold is stipulated.
(5)
For non-carcinogenic effects, exceedances of applicable dose-response thresholds
should be taken to indicate the need for a more comprehensive quantitative health
risk assessment. In instances where pollutant concentrations are within such
thresholds, health risks may be considered unlikely to occur.
Page 8-9
(6)
8.2
For carcinogens, calculate possible maximum exposed individual (MEI) cancer risks
through the application of unit risk factors. In cases where calculated cancer risks are
greater than 1: 1 million (i.e. one person contracting cancer out of every million
exposed) consult with decision makers and affected communities to determine the
acceptability of the incremental cancer risk calculated(13). In instances where cancer
risks are considered unacceptable a comprehensive quantitative health risk
assessment is required. Such health risk assessments quantify actual exposures,
rather than assuming maximum possible exposures, and as such are less
conservative.
Actions Required and Target Dates
A synopsis of the specific actions required and timeframes for establishing various local air
quality objectives is given in the table below:
Action:
Target Date
Short-term
Adoption of local ambient air quality objectives and
On adoption of the AQMP
Revision of local ambient air quality objectives and
Immediately following the replacement
of the interim National Air Quality
Standards by the DEAT
Medium-term
Determine target timeframes for meeting local air quality
objectives
June 2007
Determination of local air quality objectives for PM2.5
(excluding timeframes for compliance)
June 2008
Definition of local alert and information thresholds
June 2008
Motivation of DEAT and GDACE for the investigation of
air quality criteria suited to the protection of local
December 2008
Adoption of local objectives for the protection of
January 2010 - Pending completion of
DEAT/GDACE investigation
13
Alternatively, a comprehensive quantitative health risk assessment can be commissioned prior to consultation
with decision makers and communities to determine, less conservatively, the extent of possible cancer risks.
Page 8-10
9
AIR QUALIY MANAGEMENT SYSTEM
An AQMP cannot be successfully implemented and revised in the absence of an effective air
quality management system. The CTMM AQMP therefore has as a focus the establishment
of a system in the short-term (first two years after approval).
Air quality goals or objectives represent an important air quality management 'tools' as
discussed in the previous section. Other essential tools in any air quality management
system are: emissions inventory, air quality and meteorological monitoring and atmospheric
dispersion modelling (Figure 5-1).
Figure 9-1: Development of an air quality management strategy through the
implementation of select air quality management tools (after WHO, 2000).
On the basis of a comprehensive emissions inventory, the application of monitoring, in
combination with modelling, facilitates the effective characterisation of spatial and temporal
variations in air pollutant concentrations. Such concentrations are evaluated based on local
guideline values to determine the need for devising emission control strategies. Dispersion
modelling is used to predict ambient air pollutant reductions possible through the
implementation of specific emission control strategies. Emission control strategies may then
be selected which are able to ensure compliance with the local guideline value, the socioeconomic acceptability and technological feasibility of such strategies having been
Page 9-1
assessed. The control measures selected need to be enforced, and if the standards are
achieved, they need continued enforcement. If the standards are not achieved after a
reasonable period of time (i.e. within the permissible timeframe to be stipulated), the
emission control measures may need to be revised.
An integrated air quality management system, which comprises components such as an
emissions inventory and air quality monitoring and modelling, forms the basis of effective air
pollution control and air quality management. The configuration of the management system
to be implemented by CTMM is illustrated in Figure 5-2. System components proposed for
implementation in the short-term are indicated by solid lines, with components to be added
at a later stage indicated by dashed lines.
Figure 9-2: Air quality management system proposed for implementation by CTMM
Components of the Basic Air Quality Management System proposed for implementation by
the CTMM within the short-term, i.e. next 1-2 years, include the following:
•
Setting of local air quality objectives (see Section 3)
•
Development of a comprehensive emissions inventory
•
Establishment of air quality and meteorological monitoring network
•
Atmospheric dispersion modeling
•
Routine reporting mechanisms and protocols - including procedures for internal
reporting and for reporting to DEAT, GDACE and the public.
•
Public liaison and consultation mechanisms
Page 9-2
Based on the outputs of the basic air quality management system, health risk assessments
and damage assessments can be undertaken and impacts costed in the medium-term
(Years 3-5). Such assessment may be undertaken in the following ways:
(i)
(ii)
(iii)
9.1
inhouse, through the selection and acquisition of suitable models and acquisition
and preparation of locally-derived input data,
inhouse, though the application of manual calculations based on locally-derived
data and international protocols, or
externally, through the appointment of consultants on a project-by-project basis.
Emissions Inventory
The first step in the development of an Air Quality Management System is the establishment
of a comprehensive, accurate and current emissions inventory. An emission inventory is an
account of air pollutant emissions and associated source configuration data from specific
sources over a specific time period. Source and emission data need to be collated for
routine, upset and accidental emissions to provide a representative account of the potential
for impacts that exist. Emission inventories represents the key elements in all programmes
aimed at air pollution management, aiding in the identification of pollutants and sources of
concern and therefore in the selection of effective air pollution abatement measures. In
addition to containing information on present emission levels from the various source
categories, an emission inventory could also indicate projected future emissions for longterm planning purposes.
The emissions inventory developed for the CTMM during the baseline assessment followed
the gross estimation approach instead of a detailed emissions inventory (Liebenberg-Enslin
& Petzer, 2005). Taking the objectives of the study into account and the timeframe for its
completion the rapid survey method was followed. This includes the use of both reference
documents and summary data for area sources in addition to infield data collection for major
sources. The CTMM should use the first level emissions inventory developed to extend and
update this inventory.
All sources of emissions, including point and non-point (fugitive) sources should be identified
for inclusion into the emissions inventory. Methodologies typically employed to determine
source strengths include:
•
Sampling or direct monitoring;
•
Emission factor application;
•
Engineering calculations; and,
•
Mass balances.
Emission factors and emission estimation methods suitable for the quantification of various
sources within the CTMM were documented in the Baseline Assessment document to
provide guidance for the establishment of an electronic emissions inventory (LiebenbergEnslin & Petzer, 2005). There are two general approaches to the establishment of an
electronic emissions inventory:
Page 9-3
•
Emission estimation using various emission models - manual integration into common
emissions inventory data base.
•
Selection of emissions inventory software - includes emission estimation algorithms for
all required sources (NB - ensure potential for changing algorithms to suit local
considerations and source types) - Recommended
The implementation of a software package comprising an emissions inventory data base, in
addition to data base facilities for other data sets (air pollution and meteorological monitoring
data, exposure data, etc.), a dispersion modelling component and a GIS-interface is
recommended. In its selection of such a package, it is recommended that CTMM consult
with DEAT and GDACE personnel and with the departments responsible for air quality
management within adjacent cities and metropolitans. CTMM should also explore existing
tools within the metro such as the EMME/2 traffic model which can calculate emission rates
for vehicles. This will ensure that software be purchase that can be seamlessly integrated
into the software used by EMM and the City of Joburg, Gauteng and National Government.
The CSIR has proposed a framework for a National Emissions Inventory to be developed as
reflected in Figure 5-3. Cognisance should be given to trends at national and provincial
levels.
National Emissions Inventory
Western
Cape
Dist 1
Dist 2
etc
Eastern
Cape
KwaZulu
Natal
Free
State
Limpopo
North
West
Mpumalanga
Gauteng
Northern
Cape
City of
CT
Point sources
Industry 1
Industry 2
Etc
Mobile sources
Light MV
Heavy MV
Etc
Domestic
sources
Area sources
Biogenic
sources
Figure 9-3: Example for a National Emissions Inventory (from Mark Zunkel, CSIR,
IQPC Conference, 15 & 16 February 2005, Sandton Convention Centre)
9.2
Ambient Air Quality and Meteorological Monitoring
The second step in the development of an AQM System is the development of an ambient
air quality and meteorological monitoring network to provide consistent and reliable
information on the status of air quality at designated sites.
In the design of a monitoring network for CTMM the following aspects were considered:
Page 9-4
•
monitoring objectives defined
•
data quality objectives defined
•
priority pollutants selected
•
suitable numbers of stations determined for each pollutant
•
locations of stations selected and justified
•
stations classified
•
suitable monitoring methods established
•
averaging periods for data reporting determined
•
sampling durations defined
•
suitable mechanisms and protocols for data transfer and storage identified
Other factors taken into account in the establishment of the network included the existing
initiative of CTMM to expand the existing monitoring network, the cost of the network and
practical requirements for the establishment of a station at a specific site (e.g. security,
power supply, representiveness of site).
9.2.1
Monitoring Objectives
Monitoring networks are established with various objectives in mind, i.e. to determine
seasonal and diurnal trends in air pollution, to establish compliance with ambient air quality
standards, to determine impacts on human health and/or the environment etc. These
objectives directly influence the design of the monitoring network, determining the preferred
locations, the type of monitoring equipment, pollutants to be included, and the frequency
intervals of monitoring.
One of the main findings of the baseline assessment conducted as part of the Air Quality
Management Plan for CTMM was the lack of comprehensive ambient air quality data for the
region. The lack in information was found to be both on the spatial extent and on the types
of pollutants measured.
In this light, the following air quality monitoring objectives have been adopted by CTMM:
•
to determine compliance with air quality guidelines and standards
•
to assess exposure of people, addressing both the highest levels and the levels in
other areas where the general population is exposed
•
make adequate information available to the public
•
provide objective inputs to air quality management, transportation and land use
planning
•
tracking progress made by pollution control measure implementation
•
source contribution determination (e.g. receptor modelling)
•
spatial and temporal trend analysis
•
to be used to validate dispersion modelling
The following were explicitly excluded from the objectives of monitoring during the shortterm:
Page 9-5
•
assessment of exposure of vegetation and ecosystems
•
quantification and assessment of indoor air quality
•
stack monitoring
•
monitoring of near ground pollution in areas where maximum pollution concentrations
do not coincide with exposure
•
quantification of 'air toxins', dustfall and oderiferous pollutants is typically localised
and traceable to a specific source. (The need for such monitoring will be determined
on a needs assessment basis with the source likely to be held responsible for the
costs incurred.)
9.2.2
Parameters to be Monitored
Based on the main pollutants of concern identified during the baseline assessment and the
lack of background concentration information, it was decided to focus on priority pollutants in
the short-term. The pollutants recommended to be monitored, include:
•
PM10
•
PM2.5
•
NO2 (NOx, NO)
•
SO2
•
CO
•
O3
•
Lead
•
Benzene
It is further intended that CTMM re-instate the smoke and SO2 sampling campaign at the
nine locations previously monitored. These monitoring methods are fairly inexpensive and
will support long-term trend analysis and the characterization of spatial variations in air
pollutant concentrations.
Dustfall monitoring was excluded for the reason given previously, i.e. dustfall impacts are
typically localised and traceable to a specific source with the source responsible for these
impacts likely to be held responsible for the costs incurred. PM2.5 monitoring is deemed
necessary due to the health implications of finer particulate fractions and due to the need to
inform the setting of a local guideline for PM2.5 in the short- to medium-term.
Meteorological parameters that are required to be monitored include, as a minimum, wind
speed and direction, ambient temperature, sigma-theta, relative humidity and rainfall.
Page 9-6
9.2.3
9.2.3.1
CTMM Monitoring Network Proposed for Initiation – Short-term
Locations of Monitoring Stations
Site selection for the proposed monitoring stations was based on various factors such as
source locations in relation to sensitive receptor areas (i.e. residential areas, hospitals,
schools etc.), population density (specifically in informal settlements), topography (such as
the moot area), and the dispersion potential of the region (predominant wind fields). In
addition, use was made of the dispersion simulation results as conducted during the
baseline assessment. It should be noted that the dispersion simulations did not account for
all source emissions within the CTMM, but only those included in the first level emissions
inventory developed. The sources taken into account included domestic fuel burning,
vehicle tailpipe emissions, and main industrial sources and power generation (scheduled
processes). Background combustion sources were also considered and were taken from the
NEDLAC Dirty Fuels study. This study was conducted as part of a DEAT initiative in 2003 to
determine the potential socio-economic impact of measures to reduce air pollution from
combustion. Source and emissions data were collected for fuel burning activities within all
sectors (transport, industrial, domestic, agriculture) for various conurbations throughout
South Africa, including the Gauteng and Highveld region. These simulation results allowed
for an indication of cumulative impacts due to trans-boundary pollution.
The locations of existing and proposed monitoring stations are presented in Figure 5-3.
Table 5-1 lists the locations of the existing monitoring stations, the proposed re-instated
monitoring stations and the proposed new monitoring stations. It should be noted that the
locations are not necessarily permanent and will be moved to record at all the main impacted
areas within the CTMM.
Table 9-1: Proposed CTMM air quality and meteorological monitoring sites
Site Name
Site Type
Site Classification
Measured
Rosslyn
Stationary (existing
GDACE-sponsored
station)
& Ozone
Pretoria West
Semi-stationary
(existing CTMM Topas)
– close to residential
areas
PM10, Wind speed,
direction, sigma-theta
Mamelodi
Moot – western
section
Centurion –
central
Centurion –
proposed for
commissioning by
March 2006)
proposed for
commissioning by
March 2007)
proposed for
commissioning by
March 2007)
Mobile station (new
Residential –
household fuel
burning
Residential –
proximity to industry
Residential –
possible impacts from
industrial sources to
the north
Residential/Commerc
wind
& Ozone
sigma-theta
& Ozone
sigma-theta
& Ozone
sigma-theta
PM10, PM2.5, SO2, NO, NO2,
Page 9-7
Site Name
Highveld near
N1/N14
intersection
Pretoria East –
near
N1/N4
intersection
Site Type
commissioning by
March 2006)
Mobile station (new
commissioning by
March 2006)
Centurion –
Elardus Park
Mobile station (new
commissioning by
March 2006)
Centurion –
Rooihuiskraal/
The Reeds
Mobile station (new
commissioning by
March 2006)
Temba
Mabopane/
Ga-Rankuwa
Pretoria West
Pretoria North
– Akasia
Pretoria CBD
Lyttelton
Rooihuiskraal
Sunderland
Ridge
Erasmuskloof
Myburgh Street
Atteridgeville
Mamelodi
CSIR
Mobile station (new
commissioning by
March 2006)
Mobile station (new
commissioning by
March 2006)
Mobile station (new
commissioning by
March 2006)
Mobile station (new
commissioning by
March 2006)
Mobile station (new
commissioning
by
March 2006)
Smoke and SO2
sampling - Previously
funded by DEAT with
monitoring undertaken
by Local Authorities
(Environmental Health
Depts) – ceased in
2001 (proposed to recommission)
Site Classification
ial - vehicle
emissions
Residential - vehicle
emissions
boundary pollution
from EMM & potential
pollution transfer from
CTMM
boundary pollution
from City of Joburg &
potential pollution
transfer from CTMM
Measured
sigma-theta
PM10, PM2.5, SO2, NO, NO2,
sigma-theta
PM10, PM2.5, SO2, NO, NO2,
sigma-theta
PM10, PM2.5, SO2, NO, NO2,
sigma-theta
Residential
Residential
PM10, SO2, NO, NO2,
& Ozone
Wind speed, wind
sigma-theta
PM10, SO2, NO, NO2,
& Ozone
Wind speed, wind
sigma-theta
PM10, SO2, NO, NO2,
& Ozone
Wind speed, wind
sigma-theta
PM10, SO2, NO, NO2,
& Ozone
Wind speed, wind
sigma-theta
PM10, SO2, NO, NO2,
& Ozone
Wind speed, wind
sigma-theta
Smoke & SO2
Smoke & SO2
Residential
Smoke & SO2
Residential
Residential
Residential –
household fuel
burning
Residential –
household fuel
burning
Residential /
Commercial
Smoke & SO2
Smoke & SO2
Residential –
household fuel
burning
Residential –
household fuel
burning
Residential –
proximity to Pretoria
West Industrial
Residential –
proximity to Rosslyn
Commercial /
Business – reference
point
NOx, CO
direction,
NOx, CO
direction,
NOx, CO
direction,
NOx, CO
direction,
NOx, CO
direction,
Smoke & SO2
Smoke & SO2
Smoke & SO2
Page 9-8
Site Name
Site Type
Sammy Marks
building
SANS limit values
Frequency of exceedance
Measured
Site Classification
CBD
Smoke & SO2
Exisitng monitoring stations
Proposed permanent monitoring stations
Proposed mobile monitoring stations
Figure 9-4: Proposed locations of permanent and mobile monitoring stations,
including existing stations.
9.2.3.2
Monitoring and Data Processing and Reporting Protocols
Data quality objectives, data processing and reporting protocols and monitoring methods
must be established. It is intended that the data quality objectives be made equivalent to
those outlined in Annex C of SANS 1929 and that the reference methods in Annex D of
SANS 1929 be taken into account in the purchase of new instruments. These protocols are
Page 9-9
the same as was recommended for the City of Joburg and EMM. It is important that the
CTMMs monitoring and data processing protocols be in line with the ones being
implemented by the two neighbouring metros to ensure data sharing and reporting to
Provincial Government.
In determining data transfer, validation and storage protocols reference is made to the
standards published by South African National Accreditation Services (SANAS), viz.:
•
The ISO/IEC Guide 25 for calibrating laboratories (also contained in the code of practice
SABS 0259-1990).
•
ISO 17025 requirements for the operation of testing laboratories and the ISO 9000 series
for manufacturers to demonstrate the quality of operations.
•
NLA supplementary requirements for the accreditation of continuous ambient air
pollution monitoring station (which are additional to those specified in the ISO/IEC Guide
25).
For the smoke and sulphur dioxide monitoring stations reference should be made to the
CSIR method for the determination of smoke and sulphur dioxide (CSIR Special Report,
SMOG 3, Methods recommended for the measurement of air pollution in South Africa,
Determination of Smoke and Soot (fine suspended matter), 1974; CSIR Special Report
SMOG 5, Methods recommended for the measurement of air pollution in South Africa,
Determination of Sulphur Dioxide, 1971).
Sampling durations will be continuous, where applicable. Preference will be given to data
transfer methods which allows for near real-time, continuous and reliable data transfer
wherever possible. Potential methods include: telemetry, continuous download via satellite
and transfer via radio link. In defining data storage procedures attention will be paid to
SANAS accreditation requirements include the following: (i) raw data to be kept, (ii) data to
be kept for minimum of 3 years, and (iii) all manipulations of data must be recorded.
It is pertinent that the software used is open-ended to allow for the interaction with any
database. The CSIR was recently (mid-2005) appointed by DEAT to develop the framework
for a National Air Quality database. This database is intended to house all emissions data
and ambient air quality data for the entire country. The idea is that each municipality and
province would be able to download ambient air quality data automatically into the central
database where data will be validated. This data can then be accessed at any time with
built-in tools for data manipulation and analysis.
9.3
Atmospheric Dispersion Modelling
Atmospheric dispersion modelling forms an integral component of air quality management
and planning. Dispersion models calculate ambient air concentrations primarily as functions
of source configurations, emission strengths, terrain features, and meteorological
characteristics.
Dispersion modelling is typically used to determine compliance with ambient air quality
standards, assist in health and environmental risk assessment, provide information for
Page 9-10
monitoring network design and to assess source contributions to air quality concentrations.
Very important for local authorities is the use of dispersion models to assist with land-sue
planning, specifically for future planning scenarios and “what if” investigations. It can also be
used to delineate of buffer zones around existing emissions sources or areas where no
additional sources should be allowed. It is often said that air quality monitoring provides
"snap-shots", whereas air quality modelling helps to provide the whole picture. In Europe
and elsewhere, there is a distinct trend towards the replacement of extensive and costly air
quality monitoring networks by on-line dispersion modelling coupled with key monitoring
sites for model calibration and validation.
Careful consideration should be taken in the selection of a suitable dispersion model for the
purpose at hand. Based on the responsibilities of CTMM in the management of air quality,
criteria to be met by the dispersion model to be implemented must include the following:
•
urban-scale dispersion model;
•
comprising a combined Eularian/Lagrangian model combining modules for area, line
and point sources;
•
as minimum, first order chemical transformation (ozone formation);
•
Microsoft Windows based;
•
compatibility with local LAN;
•
compatibility with emissions inventory software (if system not integrated with
emissions estimation and inventory component);
•
GIS-based; and,
•
Strong data base tools.
The most widely-used commercially available packages suited to the application include:
•
Norwegian AirQUIS (currently favoured for application in Durban, GIS-based)
•
UK ADMS Urban (potential for local support in longer term through WSP; GIS-based with
extensive interactive interface; purchased by City of Joburg)
•
Swedish Air Quality Management Model (GIS-based, combines Operational Street
Pollution Model with AERMOD; copy in use in Rustenburg by Anglo Platinum)
•
European AirBase
The selection of a suitable dispersion model (or package comprising dispersion modelling,
air quality and meteorological data base and emissions inventory components) will be done
in consultation with DEAT and GDACE personnel and with the departments responsible for
air quality management within adjacent metros and cities. Again the importance of utilising a
compatible model than the ones used by the neighbouring municipalities need to be
stressed.
9.4
Reporting Protocol
An important aspect of the Air Quality Act is the involvement of the public in decision making
processes. It is therefore pertinent to make information regarding air quality within CTMM
Page 9-11
available to the public, stakeholders and I&APs. This necessitates a reporting protocol to
ensure a standardised methodology and reporting format.
CTMM is committed to the implementation of a comprehensive reporting protocol including
the following:
•
All monitoring information reporting to a central data base including: air quality and
meteorological data (automatic transfer or other depending on station), source and
emissions data, diesel vehicle test results, soiling index monitoring results (etc.).
•
The air quality management database (comprising air pollution monitoring data,
meteorological monitoring data and source and emissions data) will be archived on a
monthly basis. Three copies will be made: (i) one to be retained by the Air Quality
Management function, (ii) one to be sent to the DEAT for archive, and (iii) one copy to be
sent to GDACE for archive. Once the National Air Quality Database14 has been
developed, this function should hopefully be automated with web access to the
database.
•
Source and emissions data and air pollution and meteorological monitoring results to be
made available to DEAT and GDACE on request in an electronic format compatible with
their inhouse data bases. Again, with the development of a National Air Quality
Database this obligation would be included.
•
Air quality and meteorological monitoring data to be made available (in raw data format)
to technikons and universities on request for use in academic projects.
•
Routine and special reports to be generated by CTMM will be determined in the shortterm. Possible reporting requirements to be considered are outlined in Table 4-2.
•
Results from the ambient and meteorological monitoring network to be published on the
City of Tshwane website on at least a monthly basis. This should allow for the indication
of areas where non-compliance was experienced (see Table 4-2).
14
The CSIR is currently in the process of developing the framework for a National Air Quality
Database on behalf on DEAT. This database is aimed to host all source and emissions data, and
ambient air quality data recorded within each municipality and province, allowing easy access and
manipulation of data from any sphere of government. It is our understanding that the processed
information be published on a website for the public to access.
Page 9-12
Table 9-2: Frequency and content of reports to be considered by CTMM in the short-term
(next two years) in defining its medium- and long-term reporting commitments and targets.
Frequency
Content
Non-compliance
reporting on a daily
basis (only report when
exceedances occur)
Pollutant exceedances
Site location at which exceedance was
measured
Threshold exceeded (national standard,
local guideline, local alert threshold)
Magnitude of exceedance (area)
Reason for exceedance (if known)
Action to be taken (where appropriate)
Daily (routine report)
Monthly (routine report)
Report on previous day's pollution levels
including:
Air quality index calculated per station
Identification of specific pollutant(s)
responsible for high index values
For non-compliance days - inclusion of
brief information on the reasons for the
episode (if known)
Daily average pollution concentrations
recorded at each station
Maximum hourly pollution concentrations
recorded at each station
Report on previous day's pollution levels
including:
Air quality index calculated per station
Identification of specific pollutant(s)
responsible for high index values
For non-compliance days - inclusion of
brief information on the reasons for the
episode (if known)
Air quality monitoring results
Quarterly
report)
(routine
Results
testing
Quarterly
report)
(routine
Results from complaints register
Daily (routine report)
from
diesel
vehicle
emission
Departments to which
Reports should be
circulated
CTMM departments of landuse planning, Environmental
Health
&
Environmental
Management
DEAT
GDACE
Environment & Tourism
Health & Social Development
Website(15)
CTMM Intranet
Local newspapers
DEAT
DACE
DEAT
DACE
Environmental Health
15
Reference will be made on the website to national air quality standards and local air quality guidelines and alert
thresholds to inform people's review of the measured air pollution levels.
Page 9-13
Frequency
Annual (routine report)
Content
Synopsis of:
air quality monitoring data for year
diesel vehicle emission testing
emission estimates
Identification of sources, pollutants and
areas of concern
Departments to which
Reports should be
circulated
Council
DEAT
DACE
Website
Evaluation of progress made with regard
to control measure implementation (extent
to which controls implemented, emission
reductions
achieved,
air
quality
improvements realised)
9.5
Public Consultation Approach
The public consultation approach proposed for implementation by CTMM is as follows:
9.5.1
Aims and Objectives:
•
Inform I&APs of the monitoring pollution levels within CTMM on a regular basis.
•
Allow I&APs an opportunity to comment on the progress of the AQMP.
•
Allow I&APs an opportunity to voice their concerns with regard to pollution issues.
9.5.2
Media/methods to be considered for use:
•
Internally maintained complaints register
•
Air pollution “hotline”
•
Newspapers
•
Website
•
Radio advertisements
•
Public meetings (get Ward Councillors to take ownership of information distribution
such as Air Quality issues)
9.5.3
Designation of an Air Quality Information Liaison Officer
Based on the current structure within the CTMM regarding capacity for AQM planning, the
feasibility of a designating air quality information liaison officer to be considered by the
CTMM is not regarded a priority in the short-term. The current complaints register (as
discussed below) should rather be optimised to ensure that the Air Quality Officer
automatically is informed of the complaint and what action is required.
Page 9-14
The appointment of an Air Quality Information Liaison Officer should be investigated in for
the medium- to long-term. It is understood that such an officer would be designated to
undertake the following duties (can be an existing liaison officer with other duties):
•
inventory air quality related complaints received via a designated 'hot-line' for the
Metro
•
coordinate responses to air quality related complaints received - both those received
directly and those received by the Service District Regions
•
collate and disseminate information to newspapers and radio stations
•
ensure that information is routinely reported for display on the website
•
organise and facilitate public meetings
•
assist in the design and implementation of awareness raising campaigns
9.5.4
Complaints Register
The Environmental Management Division has developed an electronic complaints register
for all environmental concerns. The register allows for the capturing of the following
information:
•
date of complaint received,
•
the region and suburb,
•
what type of complaint (viz. air pollution),
•
the duration of the incident the complaint is for; and,
•
the type of report that should be generated.
The Environmental complaints register automatically allocates a reference number and
allows for the indication whether action have been taken, either inspection, notice to be
served, legal action, or complaint resolved. It is intended that this register should be
automated to inform the Air Quality officer via email regarding a complaint and what action is
required. The air quality officer should then reply stating what action has been taken, when
it was taken and if the matter has been resolved.
A formal written response should be sent out in response to all air pollution related complaint
received by each region. This letter will acknowledge that the complaint has been received,
and where applicable, indicate what measures were taken. Statistics from the complaints
register (e.g. number and types of complaints, % of complaints addressed, etc.) will be
collated and reported on a quarterly basis.
9.5.5
Reporting Air Quality Information
Air quality information will be made available in local newspapers and on the CTMM website.
The frequency and format of such information will be determined in the short-term.
Page 9-15
9.5.6
Public Meetings
Public meetings will be held every 6 months at a venue central to the majority I&APs. These
meeting should be coordinated with other information dissemination events organised by
other divisions within the CTMM. The second consideration will be that of availability of safe
and secure parking for attendants and the proximity of public transport routes given that
many I&AP may not have private transport. Some I&APs will only be able to attend during
working hours, and others only after working hours, therefore, it is recommended that two
meeting be held on the same day. The first being during working hours and the second
being in the evening, allowing I&APs enough opportunity to get the venue after work.
The format of the meetings will be as follows:
•
Introduction and welcome
•
Presentation of issues that will be raised at the meeting (I&APs should be allowed an
opportunity to nominate topics for discussion prior to the meeting, either by fax, post
or e-mail. Only written correspondence is allowed to ensure that no misunderstanding
of the issues is recorded)
•
Presentation of:
•
monitoring results
•
progress against key performance indicators
•
progress made with air quality management plan implementation
•
proposed developments for the following six months
•
Question relating to the presentation only.
•
Discussion of topic listed for discussion.
•
General.
•
Set date for next meeting.
•
Closure.
Meetings will be advertised at least four weeks in advance to allow I&APs an opportunity to
submit topics for discussion and to arrange transport if need be. Advertising of the public
meeting is likely to be in the form of:
•
Invitations sent out to all I&APs identified during the current study and additional
I&APs who have registered since the study was completed.
•
Advertising in the local press.
•
Advertising on the radio.
•
Advertisements put up at community centres, libraries and possible churches.
9.6
Air Quality Management System Development - Actions Required
A synopsis of the specific actions required and timeframes for establishing and operating the
air quality management systems outlined in previous subsections is given in the table below:
Page 9-16
Action:
Target Date:
Short-term
Consolidation of an ambient air quality and meteorological
monitoring network, including: the three new stationary stations and
the nine mobile stations, and automated data transfer and firstorder validation
Consult with industries required to fund ambient air quality
monitoring and integration of data from such monitoring into
CTMM’s air quality data base
Update and integrate the electronic, centrally-accessible complaints
register
Evaluation and costing of passive diffusive monitoring and
biomonitoring campaigns
Update of source and emissions data for all major sources (ongoing)
Define and implement a schedule for routine reporting
Extend ambient air quality and meteorological monitoring network
to include 2 additional stations. Possible stations and sites include:
(i) stationary site in Western Moot; and (ii) stationary site in
Centurion.
Arrange, advertise and conduct 6-monthly public meetings
Purchase and install Emissions Inventory and Air Dispersion
Modeling software
Medium-term
Investigate the feasibility of designating an air pollution hotline and
air quality information and liaison officer duties
Collation of source and emissions data for all major sources (ongoing) and initial population of Emissions Inventory software
Population of the Air Dispersion Modeling software and simulation
of ambient air pollutant concentrations across the Metro
June 2006
On-going
July 2006
December 2006
December 2006
March 2007
March 2007
July 2007
December 2007
December 2008
December 2008
July 2008
Page 9-17
10 SOURCE QUANTIFICATION AND EMISSIONS REDUCTION MEASURES
The main aim in developing an Air Quality Management System is to identify and implement
emission reduction measures to improve air quality over a given period of time. Thus, it is
important to ensure that the main sources of ambient air pollution impacting on the receiving
environment are targeted and that emission reduction measures or strategies proposed are
indeed feasible and cost effective.
The protocol proposed in the development of emission reduction strategies are as follows:
1.
Identify main pollutants of concern
2.
Identification of main sources of emissions for each pollutant
a. Rank sources of emissions based on emission contributions
i. Take into account the quantity of emissions
ii. Take into account the frequency of emission releases (temporal
patterns in extent of emissions)
iii. Take into account the height of emissions releases (i.e. ground level,
medium and high elevated sources)
b. Rank sources of emissions based on likelihood of human health exposures
and impacts on the receiving environment
3.
Identification of air pollution reduction strategies
a. List and describe possible emission reduction strategies for a specific source
and pollutant
b. Implementation procedure for each strategy. This should include the
following:
i. Source description, current “uncontrolled” emission rate and target
control efficiency to be reached
ii. Identify the person/s responsible for the implementation of the
emissions reduction measures
iii. Description of emission reduction method
iv. Procedures of how it need to be implemented
v. Procedures on how to track the emission reduction progress
c. Quantification of reduction of ambient concentrations as a result of
implementation of each strategy through use of dispersion model analysis
d. Cost-benefit analysis of controlling each source with each strategy. Costbenefit analyses should include the consideration of:
i. source characteristics (i.e. percentage contribution, height of
emission, and exposure index) - to select the sources to be controlled
ii. reduction of ambient concentrations as a result of implementation of
each strategy - identify most effective strategies for ambient pollution
abatement
Page 10-1
iii. technical feasibility of each strategy
iv. socio-economic impacts of each strategy - determine the feasibility of
strategies within the socio-economic context
Emissions reduction strategies should be based on sound information for the quantitative
assessment for priority settings and resource allocation. The baseline assessment
conducted for the CTMM was done to identify all main sources of pollution within the metro
and to determine the main areas of impact associated with these sources and specific
pollutants. This study can be seen as a first attempt to determine the status quo of the
metro and were limited due to various gaps in information used. At present, the CTMM does
not have an effective Air Quality Management System in place and aim to establish this
within the short-term (1 to 2 years). This will overcome several of the limitations as noted
below:
•
The baseline assessment conducted as part of the AQMP development attempted a first
level emissions inventory for the CTMM. Subsequently, not all sources of emissions and
all pollutants of concern were identified and quantified. This hinders the justification of
certain emissions reduction measures to be implemented and the progress made by
these measures.
•
Ambient air quality data within the CTMM was sparse, with information obtained from
one monitoring station over a short and incoherent period of time. In order to overcome
this limitation use was made of various monitoring campaigns conducted within the
CTMM over the past few years to achieve a better understanding of the spatial extent of
pollution levels.
•
Due to the limited monitored data available, use was made of a dispersion model to
indicate the main areas of impact mainly from criteria pollutants. Use was made of
information from the Nedlac Dirty Fuels study (FRIDGE) and included all main
combustion sources (i.e. power stations, industrial sources, boilers, vehicle emissions
and domestic fuel burning) within the greater Gauteng and Mpumalanga region. This
study did however exclude the northern parts of CTMM.
•
The rigorous assessment of the technical feasibility and socio-economic viability of
emission reduction measures was beyond the scope of this study. Close attention was
however made to previously conducted national and international studies on the
feasibility of measures recommended.
In the interim source-specific actions to be undertaken by CTMM will include the
quantification of all potentially significant sources and emission reduction measures for major
sources already identified (see Section 5). It is intended that priority over the short-term be
given to the reduction of emissions of priority pollutants from key sources with the aim of
reducing exposures in highly impacted areas, even though a comprehensive AQM system is
not yet in place. With source quantification and AQM system implementation to be
undertaken in the short-term, facilitating the identification of other pollutants and sources
requiring control in the medium- to long-terms.
The main sources of emissions identified for emissions reduction consideration over the
short- and medium-terms were based on the following:
Page 10-2
•
Source ranking based on emissions (emission rates as quantified during the baseline
assessment were used)
•
Source ranking based on potential impacts (consideration was given to the height of
release; i.e. low-, medium- and high level releases, and the potential impacts in high
population density areas)
The three main sources of emissions within the CTMM mainly based on the potential for
health risks were identified to be:
•
domestic fuel burning;
•
vehicle emissions; and
•
power generation.
Other industrial sources and fuel burning appliances were also included for emission
reduction considerations. In addition attention was given to waste disposal facilities,
biomass burning and other smaller sources of emissions.
10.1
Domestic Fuel Burning
Under the Atmospheric Pollution and Prevention Act (Act 45 of 1965), local authorities were
responsible for the regulation of emissions from domestic fuel combustion under the powers
conferred by the Minister of the DEAT. According to the AQA, Air Quality Management
Plans must address the effects of emissions from the use of fossil fuels in residential
applications. Emission reduction strategies for domestic fuel burning are most likely one of
the biggest challenges facing national, provincial and local government.
10.1.1 National and Provincial Government Interventions
The Department of Minerals and Energy (DME) has published the Energy Efficiency
Strategy of the Republic of South Africa in March 2005. This strategy aims to make energy
affordable to all and to minimize the effects energy usage has on the environment and
human health. The target set out in this strategy for the residential sector is a reduction of
10% in energy demand by 2015, implying an annual reduction of 1% over the next 10 years.
It recognizes that much of the energy usage in the residential sector is in the form of
biomass burning, specifically in rural areas. Even so, the approach mainly focuses on
energy efficiency in higher income areas and setting standards for energy efficient housing
also to be applied to state-subsidised housing. Savings can be brought about by
incorporating energy efficiency measures (thermal insulation) in new housing, mainly
through education and awareness campaigns and standards for housing and appliance
labeling. Even though the Energy Strategy does not directly address the problem of
domestic fuel burning devises, it does make provision in Phase 1 for research into fossil- and
biomass-using appliances, setting of fuel standards and the development of awareness
raising programmes.
The DME also developed a strategy on Integrated Clean Household Energy that was
adopted by the Minister in 2003. The Integrated Clean Household Energy Strategy refers to
methods classifiable as refining, replacing and reducing and included the following methods:
Page 10-3
•
REFINE combustion & appliances
•
Top-down ignition method “Basa Njengo Magogo”
•
Stove maintenance programme
•
Replacement of mbawula/old conventional stoves
•
REPLACE coal with:
– Electricity
– Low-Smoke Fuels (LSF)
– Alternative fuels – gas, paraffin, methanol, etc
– Renewable energy e.g. solar
•
Reduce energy requirements of dwelling
•
Solar passive designs - new homes
•
Insulation - existing homes
Facing the challenges of changing habitual fire-making methods in low-income residential
areas where the main drive is on day-to-day survival, the DME recognises that applying
strategies resulting in additional costs are not feasible. Thus the most obvious approach is
the promotion of the “Basa Njengo Magogo” method in the short- to medium-term. “Basa
Njengo Magogo”, which translates to mean ‘the way in which the old lady lights a fire’, is a
method of ignition involving a top down approach to fuel loading in mbawulas and stoves.
DME conducted a pilot study in Orange Farm during the winter of 2003, with the following
main findings:
•
76% of households reported less smoke in their homes;
•
67% reported less smoke in the streets after one month of using this method; and,
•
99% of the households reported a saving of R26 per week by using this method in
comparison to the conventional method (bottom-up fire).
To substantiate these qualitative findings, the DME appointed the CSIR in 2004 to conduct
an experiment to determine the reduction in particulate emissions associated with the Basa
Njengo Magogo method. The main finding of this study was that inhalable particulate matter
(PM10) reduced by approximately 80% due to the top-down fire making approach of the
Basa Njengo Magogo method. It was also found that this method would result in a fuel
consumption reduction of approximately 20%.
National rollout of the Basa Njengo Magogo (BNM) technology will occur over the next 12
years (2003-2015). The DME sponsored a BNM project in the EMM settlement of Tembisa.
This project was to run from September 2004 to October/November 2005. The project
targeted 20 000 households (Scorgie & Watson, 2005).
Although housing insulation was initially under investigation it is currently considered by the
DME to be too costly for implementation at brownfield sites. Alternatives being investigated
in terms of stove maintenance and replacement included low-cost options of using
appropriate chimney lengths to local stove manufacturing. These alternatives are however
also considered costly for brownfield sites.
Interventions comprising coal replacement that are supported by DME include electrification
and the development of a low-smoke fuel. On-going electrification of households is
Page 10-4
supported. A National Standard for Low Smoke Solid Household Fuels is being compiled by
the DME and a pilot facility proposed for the testing of such fuels. It is however expected
that the development and introduction of a LSF to the household sector will take at least
another five years (personal communication, Tony Surridge, DME, 28 July 2004).
The Department of Housing is currently undertaking research to support the possible
compilation of a policy on integrating energy efficiency measures into housing
developments. Research previously funded by the DME is being sourced by this department
to assist with the development of this policy.
The low-cost and no-cost energy efficient housing measures published by the International
Institute for Energy Conservation (IIEC) are being implemented in certain provinces on a
project-by-project basis. Measures which are currently being implemented within local cities
include:
•
smokeless mbawulas (City of Johannesburg)
•
top-down ignition method
•
air quality monitoring for awareness raising purposes
•
energy efficient housing projects (on case study basis)
10.1.2 Proposed Emission Reduction Strategies
It is considered crucial that national, provincial and local initiatives aimed at reducing
implementation by CTMM will therefore reflect the priorities of national departments such at
DME and the Department of Housing. The main strategies over the short-term and mediumterm are outlined in Table 5-1.
It is considered crucial that national, provincial and local initiatives aimed at reducing
implementation by CTMM will therefore reflect the priorities of national departments such at
DME and the Department of Housing. The main strategies over the short-term and mediumterm are outlined in Table 6-1.
Table 10-1: Emissions reduction strategies for Domestic Fuel Burning to be
implemented by CTMM over the short-and medium term.
Strategy
CTMM negotiate with the DME and DEAT to sponsor a similar
project for Mamelodi and Marabastad as the Tembisa Basa
Njengo Magogo (BNM) project. CTMM personnel will have to
be involved in the project and will require training from DME in
the BNM method of ignition
Involve the public and other organization in the education of the
BNM method. The National Zoo has indicated their willingness
to train school groups on the use of the BNM as part of their
Responsible
parties
Initiation
(duration)
CTMM EHPs
DME
July 2006
(18 months)
CTMM, DMS,
DEAT &
Industries
July 2006
(18 months)
Page 10-5
Strategy
education programme. Nissan SA recommended that a DVD
be made on the BNM method to be distributed to all industries
as part of staff training and education programmes.
Considering the integration of energy efficiency measures in
new low-cost housing areas. This should include solar passive
designs, better insulation (specifically under tin roofs etc) and
research into alternative building materials (such as certain
inert waste materials that can be used)
CTMM to implement the Basa Njengo Magogo project in
Soshanguve and Atteridgeville
CTMM should continue the surveys of households initiated buy
the State of Energy study in order to track progress made by
the BNM Projects within the areas where it was launched. This
in turn should be reflected in the revised Air Quality
Management Plan and State of Energy report
Update emissions quantification and impacts predictions
(dispersion model) with new information on domestic fuel
burning.
CTMM to setup an urban air quality dispersion model to
simulate pollution concentrations associated with domestic fuel
burning emissions.
CTMM to facilitate the investigation and identification of suitable
alternatives to household fuel burning to look at low-smoke
fuels, renewable energy, energy demand management etc.)
Responsible
parties
Initiation
(duration)
CTMM Housing
Division
March 2006
(on-going)
CTMM EHPs
January 2008 –
(12 months per
settlement)
CTMM Air
Quality Section
CTMM EHPs
DME
July 2008
(6 months)
CTMM Air
Quality Section
January 2009
(on-going)
CTMM Air
Quality Section
January 2009
(on-going)
CTMM Air
Quality Section
January 2009
(on-going)
The energy efficiency measures intended for implementation in the short- and medium-terms
are in line with the DME Energy Efficiency Strategy (March 2005) and the National Energy
Regulator’s Regulatory Policy on Energy Efficiency and Demand Side Management
(EEDSM) for South African Electricity Industry (May 2004). The DME policy provides
specific targets for reducing energy demand by 2014 within given demand sectors, with an
overall target of 12% reduction in consumption. The identification of renewable energy
alternatives is in line with the White Paper on the Promoting of Renewable Energy and
Clean Energy Development, Part One, Promotion of Renewable Energy, Department of
Minerals and Energy, Pretoria, August 2002.
10.2
Road Transportation
Part of the Atmospheric Pollution Prevention Act (APPA) No.45 of 1965 makes provision for
the control of air pollution by fumes emitted by vehicles. Regulations concerning the control
of noxious or offensive gases emitted by diesel driven vehicles were published in the
government gazette on the 20th of September 1974. These regulations prescribed the
procedure, known as the free acceleration test, of performing an opacity test using a BPHartridge meter.
The Environmental Health Division of CTMM developed a policy for diesel vehicle
monitoring. Each of the eight Chief Environmental Health Practitioners is responsible for the
diesel vehicle monitoring in their respective regions. Monitoring is expected to be done
according to approved work procedure for at least 2 days per year per region. Legal action
should be taken against the owner of a vehicle exceeding the prescribed limits in an area.
Page 10-6
The Chief: Air Quality Management in the Environmental Health Programmes sub-section is
responsible for the maintenance and calibration of all equipment. After discussions with
some of these Environmental Health Practitioners, it was clear that the 2 days per year are
not sufficient to monitor emissions from vehicles.
10.2.1 National and Provincial Government Strategies
The Joint Implementation Strategy for the Control of Exhaust Emissions from Road-going
Vehicles in South Africa was published in the Government Gazette of 12 December 2003 to
be a strategy of DEAT in collaboration with DME. The main measures recommended as
part of this final draft are as follows:
•
stipulation of Euro technologies for new petrol-driven vehicles (Euro 1 by 2004, Euro
2 by 2008, Euro 4 by 2012);
•
stipulation of ECE technologies for new diesel-driven vehicles (within the 2006 to
2012 period)
•
reduction in the sulphur content of unleaded petrol to 500 ppm from 2004 and to 50
ppm from 2010
•
restriction of the benzene content in petrol to 1% and aromatic content to 35% from
2010
•
prohibition of the addition of lead from 2006 and the addition of manganese to
unleaded petrol from 2006 and in lead replacement petrol from 2008
•
reduction in the sulphur content of diesel to 500 ppm from 2006 and making available
of a second diesel grade with a maximum sulphur content of 50 ppm on a voluntary
and selective basis. Diesel with a maximum sulphur content of 50 ppm to be made
nationally available by 2010
In the event that the above measures are implemented within the next ten years substantial
changes in the nature and extent of vehicle emissions would be anticipated.
National approaches to legislative control have internationally included:
•
vehicle technology changes;
•
emission limits;
•
enforced implementation of tailpipe control equipment;
•
accelerated retirement of vehicles (may also be implemented through market
incentives of disincentives);
•
changes in fuel composition and properties; and
•
introduction of inspection and maintenance programmes.
The stipulation of vehicle technology changes and fuel composition changes are evident in
the DEAT/DME Draft Strategy outlined above. The impending Air Quality Act also makes
provision for the Minister or Provincial MECs to declare vehicles or a certain category of
vehicles as a ‘controlled emitter’ with emission limits and related monitoring requirements set
for such emitters. Furthermore the impending Act makes provision for the declaration of a
substances or a mixture of substances as a ‘controlled fuel’ with the potential for standards
to be established for the use, manufacture, sale, composition (etc.) of that fuel. Alternatively
Page 10-7
the manufacture, sale or use of the controlled fuel could be prohibited. These clauses within
the impending Air Quality Act readily facilitate the regulation of liquid and solid fuels by
national and provincial governments.
In addition to legislative controls, various countries are implementing transportation
management measures to reduce vehicle emissions. Such measures are typically
implemented at a local government level and include:
•
Transportation alternatives to single-occupancy vehicles, e.g. encouraging carpooling;
promotion of energy efficient and easily accessible public transport; construction and
dedication of bus or high-occupancy-vehicle (HOV) lanes in congested areas;
encouragement and funding of bicycle projects; employer-based travel reduction
programmes.
•
Transportation management and planning, e.g. traffic calming measures; traffic light
synchronization; parking management; congestion charging schemes.
•
Land use development and urban design measures; e.g. design of compact cities;
shifting of growth to the urban core by realigning housing and transportation subsidy
systems.
The Gautrain Rapid Rail Link, which is one of ten Spatial Development Initiatives of the
Gauteng Provincial Government, was announced in February 2000 and is in line with the
aims of the National Land Transportation Act of 2000. The rail will link the City of Tshwane
with Midrand, Joburg, Ekurhuleni and Rhodesfield (Kempton Park). From a CTMM
perspective, this project is expected to reduce the use of private vehicles, particularly single
occupancy vehicles travelling on the congested N1 highway and R21 main road. The
proposed pricing of tickets makes it unlikely that the Gautrain will draw passengers from
existing public transportation systems such as taxis.
The projection of buffer zones or set back distances from roadways for specific land uses
represents a measure implementable in the short-term. It should be noted that this measure
is aimed at reducing the potential for impact of vehicle emissions rather than the restriction
of emissions. In air quality impact assessment studies being undertaken for proposed
regional and national roadways, buffer zones in excess of the servitude normally designated
for such roadways have been recommended. Such set back distances were based primarily
on the predicted NOx, CO and diesel particulate air concentration levels.
Collaboration between local, provincial and national government is required to secure the
effective regulation of vehicle emissions. National government is primarily responsible for
legislative controls with transportation management measures most frequently being
implemented by provincial and local government. Transportation management measures
and emission testing strategies by local authorities are likely to be more successful if
implemented uniformly across neighbouring cities and metros. Thus one of the main
commitments from CTMM must be to form a close relationship between the City of Joburg
and EMM, and the Gauteng provincial departments in developing an Integrated Transport
Plan (ITP).
Page 10-8
Critical to the success of the implementation of any emission reduction strategies within
CTMM is the relationship between various departments within the metro. Transport planning
will directly influence the strategies as laid out in the Air Quality Management Plan and visa
versa. These strategies are also influenced by decisions in land-sue planning and housing
divisions. This is already evident in the poor planning strategies within the western parts of
Centurion where the development of numerous cluster complexes along with insufficient
road networks result in the increasing congestion of traffic during peak morning and
afternoon hours. This directly influences the air quality through enhanced tailpipe emissions
of particulate matter and increased re-entrainment of dust on roadways. Unless this
relationship is recognised and channels of communication established between local and
regional agencies responsible for land use planning, air quality management and
transportation planning, air quality management in unlikely to succeed
Local governmental departments tasked with air quality management in the UK have found
that the successful management of vehicle emission can only be achieved by means of the
integration of air quality considerations into Local Transport Plans (LTPs) (Woodfield et al.,
2004). Similar experiences are documented for the US and various Asian and European
countries. It is therefore recommendable that the Environment and Tourism Department aim
to use existing transportation planning processes for the achievement of vehicle emission
reductions.
Emission reduction strategies proposed over the short- and medium-terms are provided in
Table 6-2.
Table 10-2: Emissions reduction strategies for Transportation to be implemented by
CTMM over the short-and medium term.
Proposed Strategy
Responsible
parties
Initiation
(duration)
CTMM to establish an Inter-departmental Transport Liaison Group
January 2006
CTMM
(ITLG) between the Environmental Health, Environmental
(6 months to
divisions
Management, Transport, Housing and Land-use planning divisions.
establish,
Coordinated
This group must meet every month to establish information sharing
thereafter onby Air Quality
systems and subsequently the implementation of short-term
going)
Section
measures. The Integrated Transport Plan should be used as basis
and must be updated continuously.
It is recommended that the Inter-departmental Transport liaison
Group contact the same Groups within EMM and Joburg to learn
form their experience and to establish an inter-municipal
CTMM ITLG
June 2006
relationship for future planning purposes and to standardise
GDACE
(on-going)
procedures within the Gauteng Province. GDACE can be
contacted to coordinate these meetings which should take place
quarterly.
Current diesel vehicle testing procedures to be standardised and
CTMM
expanded to be conducted once a month, with a target number of
Transport
January 2006
vehicles to be tested. The CTMM fleets should be tested first. The
Division &
(on-going)
results should be reported to the Transport division who needs to
ITLG
report to the ITLG. Get the corporation of the Metro Police to
support the diesel vehicle testing
CTMM to design a more comprehensive and effective vehicle
CTMM
January 2007
emission testing programme for implementation in the medium-term
Transport
(12 months)
in consultation with the City of Joburg and EMM and the Gauteng
Division
Page 10-9
Proposed Strategy
province (1). This may include a feasibility assessment to conduct
vehicle emission testing at the licensing facility as part of vehicle
license renewal. The funds from fines can be used for research into
cleaner technology.
Reporting of monitored data from the mobile stations located near
main highway intersections (see Section 5) to the Transport
Division and Inter-departmental Transport Liaison Group to inform
transport planning and highlight air quality issues.
Determine how the transport model currently used by the CTMM
Transport Division (EMME/2) can be utilized to better inform
transportation emissions calculation and how this can be used by
the Air Quality Management Section. Establish the capacity within
the Transport division required to update this model annually with
relevant traffic count data. Determine how Metro police can be used
to assist in gathering this type of information.
Research should be encouraged on cleaner transportation
technologies through liaising with the Transportation Planning
project manager on the Clean Transport Technology Project via the
ITLG. CTMM will also have to liaise with GDACE to integrate
findings from their cleaner technologies initiative and to avoid
duplication.
Implementation of diesel and vehicle emissions testing procedures
developed during the short-term.
Implementations of the customized EMME/2 traffic model for
providing emissions data for the Air Quality Section if proofed to be
feasible.
Implement systems to update vehicle count data annually as
determined during the short-term
Responsible
parties
Initiation
(duration)
CTMM
Air Quality
Transport
ITLG
April 2006
(on-going)
CTMM
Air Quality
Transport
ITLG
April 2006
(on-going)
CTMM ITLG
GDACE
June 2006
(on-going)
CTMM ITLG
January 2008
(36 months)
CTMM Air
Quality
Section
CTMM
Transport
Division
January 2009
(every 3 years)
January 2008
(annually)
CTMM to liaise and encourage the Airforce to conduct an emissions
CTMM Air
inventory and impact assessment for all their airports within CTMM.
January 2008
Quality
(on-going)
The data should be incorporated into the CTMM emissions
Section
database.
CTMM to liaise with Transnet and private rail companies on
CTMM Air
quantification of emissions emanating from railroad, especially
January 2008
Quality
(on-going)
within the Capital Park area. The data should be incorporated into
Section
the CTMM emissions database.
CTMM Air
January 2009
Quality
(on-going)
Section
Dispersion modeling results to be communicated to the Transport
CTMM Air
January 2009
Division to assist in transport strategy development and
Quality
(on-going)
implementation
Section
Based on information received from various tools the aim should be
to increase on-and off- ramps onto highways from congested roads,
identify development of alternative routes, bicycle lanes to be
CTMM
introduced, Bus lanes to be increased (encourage private bus
January 2008
Transport
companies to bus services on main routes using bus lanes thus no
(on-going)
Division
traffic congestion & will encourage people using own transport to
use this service). Encourage these to use CNG and/or LPG driven
busses.
Notes: (1) This will not be required if DEAT establishes new regulations pertaining to vehicle
emissions testing within the next 2 years under the Air Quality Act of 2004.
Page 10-10
10.3
Industrial Sources
For the purpose of this document industrial sources include all scheduled and nonscheduled processes, and energy generation activities within the CTMM.
According the Air Quality Act 2004 16 local authorities will be charged with implementing the
atmospheric emissions licensing system of all listed activities as defined by National
Government. Listed activities are defined as activities resulting in atmospheric emissions
which may have a significant detrimental effect on the environment and health. All sections
pertaining to this responsibility were however excluded from the current implementation of
the act. Subsequently the requirements for scheduled processes as stipulated under the
APPA still prevail. This implies that all industries undertaking scheduled processes in terms
of the APPA are controlled by CAPCO through Best Practicable Means (BPM) using permits.
Scheduled processes referred to in APPA, are processes that are expected to emit a
significant quantity of pollutants and include large combustion sources, smelting, electricity
generation and inherently dusty industries. Listed activities under the AQA are expected to
include current Scheduled Processes with the possibility of additional sources added to the
list.
A limitation of the permitting approach under APPA is that insufficient attention was paid to
the potential of cumulative impacts from industrial sources located within close proximity of
each other. This has resulted in instances where unacceptable ground level concentrations
occurred even though industries were within compliance of their permit stipulations. Under
the AQA the focus has shifted to the receiving environment approach with the development
of emissions reduction strategies to ensure compliance with ambient air quality objectives.
Non-scheduled processes such as small-scale non-domestic fuel burning appliances (e.g.
boilers capable of burning fuel at a rate of <10 tons per hour) are currently controlled by local
authorities in terms of Part III of the APPA. Under the AQA the Minister or MEC may declare
an activity(s) or appliance a controlled emitter with relating permissible emission standards.
The minister or MEC may also declare a substance(s) which is used as fuel in a combustion
process a controlled fuel with relating standards for use, manufacturing and allowable
concentrations for that fuel.
10.3.1 Scheduled Processes
Scheduled processes within the CTMM have been listed and discussed in the Background
Information Document (Liebenberg-Enslin & Petzer, 2005). A total of 103 permits have been
issued for scheduled processes in the CTMM, including power generation activities. The
emissions inventory was taken from the National Emissions Inventory for 1995 and was
updated where information was available. Two power stations are owned and managed by
the CTMM.
16
The National Environmental Management: Air Quality Act 2004 (Act No. 39 of 2004) commenced
with on the 11th of September 2005 with the exclusion of sections 21, 22, 36 to 49, 51(1)(e), 51(1)(f),
51(3), 60and 61. It was published in the Government Gazette on the 9th of September 2005.
Page 10-11
Very little information was available on control technology implemented by these scheduled
and non-scheduled processes. The following industries have control equipment in place or
are currently undertaking measured to reduce emissions:
•
PPC Hercules, one of the prominent industries within CTMM, has an electrostatic
precipitator on the conditioning tower to reduce particulate emissions from the two
cement kilns. Particulate emission rates from the stacks are measured and reported
on a regular basis to verify the control efficiency of the equipment.
•
The Coke & Chemicals division of Mittal Steel Pretoria plans to upgrade their existing
Gas Purification Plant to reduce H2S and ammonia emissions. The off-gas from the
Coke Oven Gas Plant is utilised in other areas of the works which will also positively
influence emissions reduction from these sources.
This will most likely be
implemented within 2 to 5 years (medium-term).
•
SABRIX, a clay manufacturer in the western “Moot” area, implement fulltime water
tankers to reduce fugitive dust emissions from the internal road surfaces.
•
Both Pretoria West and Rooiwal Power Stations have control equipment in place to
minimise particulate emissions. Pretoria West currently operates centrifugal grit
arrestors to reduce particulate emissions. No stack monitoring has been conducted to
verify the control efficiency of the control equipment. Bag filters are in use at Rooiwal
Power Station and isokenetic tests at one of the boilers conducted in 2003 confirmed
99.9% control efficiency.
10.3.2 Non-Scheduled Processes
Various smaller industrial and commercial operations are currently operational within the
CTMM. This would include activities such as spray painting, sand blasting, dry cleaning,
small boiler operations and incineration process, materials handling etc.
Since the municipality is responsible for the control of small boiler operations (<10 ton per
hour), information for these sources was obtained. A total of 281 fuel burning appliance
certificates have been issues by the CTMM to date. No information was available on the
actual amount of fuel used, the frequency and duration of operation, and control equipment
in place at each of these locations. Coal-fired boilers were identified as the most significant
industrial sources grouping during the FRIDGE study. It was estimated that this source
group accounted for 4% of the RHA and mortality cases.
No information was available on other smaller industries within the CTMM and hence most
of these operations are not monitored. This was a limitation identified during the baseline
assessment conducted as part of the AQMP development process and will be addressed in
the short- and medium-term.
Recommended strategies for scheduled and non-scheduled processes are provided in Table
6-3.
Page 10-12
Table 10-3: Recommended emission reduction strategies for scheduled and nonscheduled processes within the CTMM.
Responsible
parties
Proposed Strategy
Initiation
(duration)
Short-term measures
Update of current CTMM emissions inventory
•
Scheduled processes need to provide permit certificates
and have to demonstrate compliance with permit conditions.
•
Non-scheduled processes need to provide process
descriptions and any available emissions information.
•
CTMM must identify industries and commercial/institutional
concerns undertaking combustion processes to compile
emissions inventories and report source and emissions data
to the Metro. CTMM will have to compile questionnaires to
be sent out to these industries.
Review current emission reduction strategies reported to ensure it
is in line with best available international practice
•
CTMM to encourage industries to investigate
implement best available control technology
and
•
Power Stations to investigate and implement feasible
desulphurisation options. Use coal with lower sulphur and
ash content.
Develop relationships with National and Provincial Government,
and related CTMM departments (i.e Environmental Management &
Environmental Health).
•
•
Until the relevant sections of the AQA pertaining to
emission licences have commenced, CAPCO need to
inform CTMM of any new scheduled process developments
within CTMM or any changes to existing permits.
Town planning division needs to inform the Air Quality
section of any new industrial development zones and/or
applications.
CTMM Air
quality section
Environmental
Health
January 2006
(12 months)
January 2006
(12 months)
DEAT
CAPCO
January 2006
(24 months)
CTMM Air
quality section
January 2006
(24 months)
CTMM Air
quality section
DEAT
CAPCO
January 2006
(24 months)
GDACE
•
All EIA information pertaining to industrial development
must be obtained from GDACE.
CTMM must update the existing database on fuel burning
appliances to include:
•
location of appliance
•
company name and contact details
•
type of appliance
•
type of fuel in use
•
sulphur and ash content of fuel (where appropriate)
•
quantity of fuel used
•
scheduling of operation (continuous, intermittent - two hours
per day, etc.)
•
control measures in place and control efficiency of these
measures
•
stack parameters (height, inner stack diameter, gas exit
temperature, and gas exit velocity or volumetric flow)
CTMM Air
quality section
& OHPs
January 2006
(24 months)
Page 10-13
Proposed Strategy
• stack monitoring data (where available)
Any new fuel burning appliances must be reported to the metro
Based on the outcome of the DEAT emissions licence review
(2)
project , review permits based on updated emissions inventory
and information on control equipment
Set specifications on combustion efficiency applicable to all new
coal fired boilers in collaboration with the project initiated by DME
(3)
. The project looks at fuel switching, abatement technology
implementation, and improvements in energy efficiency.
Liaise with Eskom on demand side management measures
applicable to the commercial and industrial sectors. Electricity
generated by Pretoria West power station can be replaced by
residential gas usage.
Investigate the potential for introducing alternative tariff structures
for the purpose of encouraging on-site co-generation and the
introduction of renewable energy. Waste gas streams from
industries to be utilised as energy source – possible incentives.
Investigation of the potential for introducing market incentives and
disincentives for the purpose of encouraging emission reduction by
industrial and power generation processes. Examples include:
•
Iron & Steel manufacturing: waste gas recovery and use &improve fugitive dust emissions;
•
Cement manufacturers: minimising fuel usage by
preheating and precalcination (to the extend possible given
the existing kiln system configuration) & heat recover from
waste gas
•
Initiation
(duration)
CTMM Air
quality section
DEAT
January 2008
(36 months &
on-going)
CTMM Air
quality section
January 2008
(36 months &
on-going)
DME
CTMM Air
quality section
DME &
Eskom
January 2008
(36 months &
on-going)
CTMM Air
quality section
Eskom
January 2008
(36 months &
on-going)
CTMM Air
quality section
Environmental
Management
Environmental
Health
January 2008
(36 months &
on-going)
Clay brick manufacturers: fuel switching from coal to gas
This process will be enhances by forming a relationship between
the main industrial role-players in the metro and CTMM
CTMM should investigate the feasibility of decommissioning the
Pretoria West power station and replace it with gas reticulation
network
CTMM to update emissions inventory to include emission reduction
due to measures implemented during the short-term.
CTMM should develop a system to liaise with DEAT and Gauteng
government to ensure CTMM are up to date with any new
developments on the control of industrial and commercial sources.
The proposed National Air Quality database should be investigated
to ensure information generated by CTMM can be incorporated
into this database and information from this database can be used.
Notes:
Responsible
parties
CTMM Air
quality section
Environmental
Management
CTMM Air
Quality
Section
January 2008
(36 months &
on-going)
January 2009
(on-going)
(1)
Criteria to be used by CTMM to determine which operations are required to undertake
emissions inventories are provided in Appendix.
(2)
DEAT has called for tenders for the Atmospheric Licensing Project which aims to capture
all existing Registration certicicates and the review thereof.
Page 10-14
Possible emission reduction measures to be implemented include:
•
Iron & Steel manufacturing
emissions
•
Cement manufacturers
- minimising fuel usage by preheating and
precalcination (to the extend possible given the existing kiln system configuration) heat recover from waste gas
•
Clay brick manufacturers
10.4
- waste gas recovery and use &- improve fugitive dust
- fuel switching from coal to gas
Waste and Disposal Treatment
Medical waste incineration is controlled by the Department of Health. Incineration also
represents a 'Scheduled Process' in terms of the second schedule of the Atmospheric
Pollution and Prevention Act, Act 45 of 1965 and as such requires a permit to operate from
the DEAT. GDACE is also involved in the inventorying of incinerator operations and in
undertaken inspections on the medical waste incinerators operating within CTMM. In terms
of Air Quality Act, incineration will be declared a ‘listed activity’ with District Municipalities
and Metropolitan Municipalities being made responsible for the issuing, review and revision
of such licenses. These sources falls under the previous section on industrial sources.
CTMM currently operates 9 general waste disposal sites. The Rosslyn landfill site, which is
a privately owned site, has been proposed to be upgraded to a hazardous waste facility but
no approvals for this has yet been given. Typical problems associated with landfill
operations in South Africa which are associated with atmospheric emission potentials
include: fires, inadequate daily cover practices, acceptance of hazardous waste types by
general landfill operations.
Section 20 of the Environment Conservation Act, 1989 (Act 73 of 1989) stipulates that no
person may dispose of waste unless under the authority of a permit issued by the Minister of
Water Affairs and Forestry. Waste disposal sites are regulated by the Department of Water
Affairs and Forestry (DWAF) by means of the Minimum Requirements for the Waste
Disposal by Landfill (Second Series, 1998). Depending on the landfill classification and size
landfill requirements may include:
•
Various types of landfill lining and capping systems
•
Operational controls, e.g. daily cover of work surface with cover material
•
Gas monitoring and management systems
•
Restrictions on ambient methane concentrations
DWAF and GDACE have started to initiate coordinated programmes to address such noncompliance issues. The evaluation checklist used by both DWAF and GDACE personnel for
site inspection purposes are both based on the Minimum Requirements.
Page 10-15
In future responsibility for permitting landfill sites will be transferred from DWAF to DEAT.
With the AQA it is likely that local government will take more responsibility for the regulation
of landfill operations in future. (Waste management is a core mandate of local government
according to Schedules 4b and 5b of the Constitution.) It is also notable that the DWAF is
currently in the process of revising its Minimum Requirements document and that the
revision is expected to deal more holistically with the management of atmospheric emissions
and impacts of landfill operations.
The National Strategy on Waste Management, which advocates a tiered approach to waste
management with waste prevention, treatment and recycling being prioritized, also needs to
be taken into account in the identification of emission reduction measures.
The Environmental Health Division of CTMM has drafted a Waste Minimisation Strategy in
June 2005 with the main objective to minimise waste within the CTMM. The aim is to
encourage the reduction, re-use, and recycling of waste by educating residents to be
environmentally responsible and involving other stakeholders (Aphane & Nkosana, 2005).
Recommended strategies for waste facilities are provided in Table 6-4.
Table 10-4: Recommended emission reduction strategies for waste disposal facilities
within the CTMM.
Proposed Strategy
Short-term measures
CTMM to require all waste disposal facilities to meet DWAF
minimum requirements.
Large general sites not meeting the DWAF requirements should
provide CTMM with a speciated substance emissions inventory
based on surface gas network sampling, dispersion modelling
results showing predicted impacts together with a health risk
screening assessment and odour assessment. CTMM should
require a quantitative health risk to be undertaken should the
reported results indicate the potential for health risks.
Finalisation and implementation of the Waste Minimisation
Strategy.
The Environmental Health Division should report
quarterly on the progress on the implementation of the strategy
and provide information on the quantities and waste streams to
each facility.
CTMM should provide residential bins for segregation of domestic
waste (i.e. glass and other).
Responsible
parties
Initiation
(duration)
CTMM
Environmental
Health
CTMM
Environmental
Health
January 2006
(12 months)
CTMM
Environmental
Health
January 2006
(24 months)
CTMM
Environmental
Health
January 2007
(on-going)
Page 10-16
Responsible
parties
Initiation
(duration)
CTMM
Environmental
Health
Air Quality
Section
January 2006
(12 months)
CTMM
Environmental
Health
January 2007
(12 months)
Proposed Strategy
Sewage and wastewater treatment facilities to compile emissions
inventories, commission ambient air quality monitoring, undertake
impact and risk screening studies.
Undertake health risk
assessments should the findings of he screenings studies indicate
a potential for such a risk. This should be reported to the CTMM
annually.
treatment works.
The Waste Minimisation Strategy proposes education of the public
and including stakeholders. This can be done in collaboration with
other environmental awareness campaigns. CTMM could publish
tips on waste recycling and reduction on its website and on
billboards to inform and educated the public.
Determine additional waste segregation and recycling strategies
applicable for implementation within CTMM.
CTMM
Environmental
Health
January 2008
(36 months &
CTMM Air
quality section
DEAT
CTMM Air
quality section
PPC
CTMM Air
Quality
Section
CTMM Air
Quality
Section
January 2008
(36 months &
on-going)
January 2008
(36 months &
on-going)
Investigate alternative waste treatment and disposal options. The
cement industry can be approach to investigate the feasibility of
hazardous waste incineration at cement kilns.
pollution concentrations associated with waste disposal facilities
and wastewater and sewage treatment works.
treatment works.
10.5
on-going)
January 2009
(on-going)
January 2009
(on-going)
Mining Activities
There are a total of 27 mines in operation within the CTMM, excluding various smaller sand
quarries not listed. These mining operations are almost exclusively quarries operated by
means of opencast or surface mining techniques which are notorious for the generation of
dust.
Previously under the Atmospheric Pollution Prevention Act, the Chief Air Pollution Control
Officer (CAPCO) of the DEAT was responsible for the control of dust from industry and
waste dumps. Dust control from mine dumps was the result of consultation between the
Government Mining Engineer and CAPCO. The control of dust was undertaken using best
practicable means through notice in writing. Powers for dust control have selectively been
delegated to local authorities within designated dust control zones.
Under the National Environmental Management: Air Quality Act of 2004 it stipulates that all
sources should be addressed as part of the Air Quality Management plan. This includes
point- and non-point sources. Section 32, Chapter 4 of the AQA states that the Minister or
Page 10-17
MEC may prescribe measures for the control of dust in specified places or areas, steps that
must be taken to prevent nuisance by dust; or other measures aimed at the control of dust.
In Section 33 reference is made to the ceasing of mining operations where a mine has to
notify the Minister 5 years prior to closure, clearly stating plans for rehabilitation and
prevention of pollution of the atmosphere by dust after those operations have stopped.
In terms of Section 28 of the National Environmental Management Act of 1998 significant or
potentially significant environmental impact must be “investigated, evaluated and assessed”
and further “every person who, causes, has caused or may cause significant pollution must
take reasonable measures to prevent that from occurring, continuing to occur, continuing or
recurring”. In terms of Section 28 the CTMM may request mining companies with potentially
significant impact to air quality to firstly assess and monitor their impact and secondly to take
reasonable measures to prevent significant impact on air quality.
A summary of air quality relevant aspects of the Minerals & Petroleum Resources
Development Act of 2004 is set out below. Salient points applicable to air quality
management include certain of the requirements that mines have to meet in order to ensure
the conversion of “old order” mineral rights to “new order” mineral rights.
•
Status of mining authorisations and EMPR approvals
•
•
Standard of EMPR and commitment of rehabilitation objectives
•
•
The EMPR should define environmental and rehabilitation objectives, i.e.
commitments with respect to operational control and rehabilitation objectives and
standards.
EMPR Compliance to commitments and requirements of the DME approved EMPRs.
•
•
All operating mines and quarries need an Environmental Management Programme
Report (EMPR) detailing a programme which the mine commits to undertake to
manage its impact on the environment including air quality. This is mandatory for
all mines.
A formal assessment and report on the status of compliance to EMPR
commitments in terms of operational control, rehabilitation objectives and
standards is required to convert mineral rights.
Determination of the financial quantum as required by the Mineral and Petroleum
Resources Development Act of 2004
•
The financial quantum is defined as the costs based on the approved EMPR and
closure plan and shall include a detailed itemisation of all actual costs required for:
•
premature closure regarding to the rehabilitation of the surface of the area,
the prevention & management of pollution to the atmosphere, and the
prevention & management of pollution of water & soil.
•
decommissioning and final closure of the operation; and,
•
post-closure management of residual and latent environmental impacts.
Recommended strategies for other sources are provided in Table 6-5.
Page 10-18
Table 10-5: Recommended emission reduction strategies for mining operations within
the CTMM.
Proposed Strategy
Short-term measures
CTMM must require representation on the inter-departmental
committee tasked with the regulation of mining activities
Require mining companies to provide CTMM with emissions
inventories for their operations, including mineral processing plants.
All mines in close proximity to residential areas to implement dust
fallout monitoring networks. Results must be reported monthly to the
mine management and 6-monthly to the CTMM.
All opencast mines to compile and implement comprehensive dust
management plans as part of their EMPRs and report this to CTMM.
Responsible
parties
CTMM t
DWAF, DME
& GDACE
CTMM Air
Quality
Environmental
Management
CTMM Air
Quality
Environmental
Management
CTMM Air
Quality
Environmental
Management
Initiation
(duration)
July 2006
(on-going)
January
2007
(12 months)
January
2007
(12 months)
January
2007
(12 months)
CTMM request that DME ensure all mines:
•
have approved EMPRs,
•
can demonstrate compliance with EMPR commitments and
National ambient air quality standards
•
have determined the financial quantum and provide for the
prevention & management of air pollution
CTMM
Environmental
Management
DME &
GDACE
July 2008
(on-going)
•
fines for mines not complying with the EMPR requirements
All mines closing must comply with their closure commitments,
specifically with dust management plans and rehabilitation objectives
pollution concentrations associated with fugitive dust from mining
facilities
CTMM to update emissions inventory with monitored and estimated
emissions from mining sites. Also to include implemented mitigation
measures and associated reductions
10.6
CTMM
Environmental
Management
DME &
GDACE
CTMM Air
Quality
Section
CTMM Air
Quality
Section
July 2008
(on-going)
January
2009
(on-going)
January
2009
(on-going)
Other Sources
Other sources that rose concern mainly form the public within CTMM include:
•
Veld fires;
•
Tyre burning;
•
Agricultural emissions (such as wind blown dust from open areas);
•
Vehicle entrainment on unpaved roads, and,
Page 10-19
•
Railway transport.
Recommended strategies for other sources are provided in Table 6-6.
Table 10-6: Recommended emission reduction strategies for other sources within the
CTMM.
Proposed Strategy
Short-term measures
Identify and quantify emissions from other sources, i.e. vehicle
entrainment of unpaved roads, agricultural activities (i.e. land
tilling), veld fires, tyre burning, and railway emissions.
Establish routine data retrieval mechanisms for the purpose of
updating the emissions inventory (e.g. Fire Departments - request
data be kept on locations of veld fires and extent of areas burned).
Rendering plants treating waste from abattoirs should provide an
inventory of waste received and treatment methodologies.
Emissions should be quantified for the facilities and provided to
CTMM to be incorporated into the emissions database.
Control the burning of grass by municipal worker's and contractors
along highways and elsewhere.
Support national legislation aimed at controlling copper wire
burning for the purpose of wire stripping
Responsible
parties
CTMM Air
Quality
Section
CTMM Air
Quality
Section
CTMM Air
Quality
Section
CTMM Air
Quality
Section
CTMM Air
Quality
Section
Initiation
(duration)
July 2006
January 2007
January 2007
July 2006
July 2006
Investigate the use of by-law implementation for the purpose of:
•
Tyre burning,
•
controlling trackout from construction sites,
•
stipulating the need for dustfall monitoring and reporting of
results during large-scale construction and demolition
projects
Expand and enhance the Environmental Health one-Stop Service
and electronic complaints register to feed into Management
Information System. Ensure action procedures for incidences of
tyre burning and uncontrolled veld fires
Establish a Communication Plan to underpin the AQMP. This
should include strategies for disseminating relevant Air Quality
Related information to the public. Make use of private and
commercial sectors in distributing information (i.e. National Zoo’s
Education Plan, Industry Staff Training Programmes, Media,
Billboards, etc.)
Identification of emission reduction measures for other sources
predicted on the basis of the quantitative emissions inventory and
in-house atmospheric dispersion modelling or external studies to
be significant in terms of health risks or nuisance impacts.
CTMM Air
Quality
Section
July 2006
CTMM Air
Quality
Section
OHP
July 2006
CTMM Air
Quality
Section
July 2006
CTMM Air
Quality
Section
July 2006
Page 10-20
11 RESEARCH INITIATIVES
In order to ensure the effective implementation of the Air Quality Management Plan various
research efforts will need to be undertaken internally by CTMM (Table 6-.1). The finalisation
of permissible timeframes for compliance with local air quality objectives will, for example,
require that the current pollutant concentrations and contributing sources to such
concentrations be assessed and the feasible implementation periods for abatement
measures identified. The scheduling of such research efforts will frequently be dependent
on the timeframe for putting in place certain air quality management tools (e.g. monitoring,
modelling). These timeframes were outlined in Sections 3 and 4.
Table 11-1: Research initiatives recommended for implementation in the short- and
medium-term
Research Required
Purpose
Assess the problems and challenges faced by
the City of Joburg and EMM in the
implementation of their AQMPs
CTMM should learn from the
experience from the
neighbouring metros to fast
track their AQMP
implementation
Determine whether the
existing traffic model could be
used to estimate vehicle
emissions based on locally
developed emission factors
Even though CTMM cab
request emission inventories
to be developed by industrial
sources and mines, CTMM
will have to quantify emissions
from remaining sources inhouse
Responsible
Schedule
CTMM Air
Quality Section
Jan 2006 –
June 2006
CTMM Air
Quality &
Traffic Division
July 2006 –
June 2007
CTMM Air
Quality
July 2006 –
June 2007
CTMM Air
Quality &
Environmental
Health
July 2006 –
June 2007
CTMM Air
Quality &
Environmental
Health
July 2006 –
June 2007
CTMM Air
Quality
University of
Pretoria
July 2006 –
June 2008
Short-term
Assess the existing emissions quantification
tools within the CTMM (viz. EMME2 traffic
model) and how useful this is for application
within the Air Quality Division
Determine what emissions quantification
methods and tools are available for use by
CTMM taking into consideration the specific
sources that will have to be quantified by the
municipality (i.e. waste disposal facilities,
domestic fuel burning etc.) and ensure the
potential for changing algorithms to suit local
considerations and source types.
Assess and cost suitable passive diffusive and
biomonitoring methods to determine the
potential for their implementation within
Tshwane for the purpose of informing air
quality management
Assess the ability of the current/and proposed
software (Opsis system) utilized by CTMM
monitoring stations to (i) integrate with other
databases such as MS Access or MS Excell,
(ii) how this can be established automatically,
and (iii) how it compare to other
municipality/provincial systems
Liaise closely with the University of Pretoria on
the development of a tree-dimensional
diagnostic Winfield model.
Determine whether passive
diffusive and/or biomonitoring
should be conducted within
CTMM – and if so select
suitable programmes for such
monitoring
CTMM must determine how to
seamlessly integrate all air
quality related data (including
monitoring) into one database
to be used by various
divisions within CTMM,
provincial and national
government
This model will be useful to fill
in the gasps where no
emeteorlogical data has been
recorded (i.e. northern part of
CTMM). It can also be used
for real-time dispersion
modeling and forecasting
Page 11-1
Research Required
Assessment of (i) current air pollutant
concentrations, (ii) contributing sources, (iii)
feasible implementation periods for select
abatement measures, and (iv) nationally set
permissible compliance timeframes (if
available)
Assess the most suitable placement for the
additional 2 stationary monitoring stations
based on updated emissions data, results
from proposed monitoring network (March
2006) and air pollution complaints received.
Annual literature survey on international best
practice in Air Quality Management and the
new focus areas
Purpose
Stipulation of permissible
timeframes for ensuring
compliance with local air
quality objectives and national
air quality standards
The most suitable placement
of the 2 additional stationary
monitoring stations can be
guided by the results from the
“soon to be implemented”
monitoring network.
Since an AQM System is
dynamic CTMM should stay in
abreast with international
trends
Responsible
Schedule
CTMM Air
Quality Section
July 2006 –
June 2007
CTMM Air
Quality
Nov 2006 –
March 2007
CTMM Air
Quality
July 2006 –
on-going
CTMM Air
Quality
July 2006 –
June 2007
CTMM Air
Quality
July 2006 –
June 2007
CTMM Air
Quality
July 2006 –
June 2007
CTMM Air
Quality
Jan 2007 –
Dec 2007
CTMM Air
Quality
On-going
starting July
2006
External
consultants
(possibly via
GDACE or
DEAT)
July 2007 –
Jun 2008
CTMM SEED
person & Air
Quality
On-going
starting Nov
2005
Medium-term
Selection of suitable information and alert
thresholds taking into account (i) measured air
pollutant concentrations, (ii) international air
quality criteria, (iii) the socio-economic and
technical feasibility of attaching specific
reporting, investigation and mitigation
requirements to such thresholds.
Identify suitable local PM2.5 guidelines and
related compliance timeframes taking into
account: (i) local PM2.5 concentrations, (ii)
source contributions, (iii) feasible
implementation periods for select abatement
measures, and (iv) internationally and
nationally set PM2.5 standards and
compliance timeframes (if available)
Source data collation and emission
quantification through emission factor
application and/or emission modelling and/or
acquisition of emission measurements
undertaken by sources – this could be a
Master’s degree for a post-graduate student
Undertaking atmospheric dispersion
modelling, with model validation based on
monitored results, for the purpose of
identifying non-compliance areas in terms of
both local air quality guidelines and national
standards
Annual literature survey on major sources
(focusing on the most current information on
pollutant types, emission estimation
techniques, controls, etc.)
Identification of suitable dose-response
thresholds for local vegetation types
CTMM is involved in the EnerKey project
which is a medium- to long term intervention
(1)
.
Finalisation of a set of
information and alert air
quality thresholds and
associate information
reporting, investigation and
mitigation requirements
Stipulation of suitable local
PM2.5 guidelines and
permissible compliance
timeframes
Collation of first
comprehensive emissions
inventory for CTMM
Determination of noncompliance zones within
CTMM
(1) Informing the maintenance
and further development of
the emissions inventory
(2) Reporting of results of
surveys on vehicular pollution
to Transportation Planning
Identification of local air
quality guidelines able to
protect vegetation
This project could be very
useful in building design
alternatives such as better
insulation of low-cost housing,
use of solar panels for energy
supply etc
Page 11-2
Research Required
CTMM to form close relationships with the
University of Pretoria, UNISA and
Tshwane University of Technology.
Notes:
Purpose
Responsible
Schedule
Utilise post-graduate studies
for specific requirements on
emissions inventories or
research initiatives. Be
informed of any relevant
research to benefit the CTMM
Air Quality Management
practices.
CTMM Air
Quality
On-going
starting Nov
2005
(1)
The University of Johannesburg and the University of Stuttgart has formed the EnerKey project which aims at to
promote the sustainable transformation of the urban region of greater Johannesburg by initiating adapted and integrated energy
projects as a key factor for sustainability. A workshop was recently held in Johannesburg (3 & 4 November 2005) to determine
the main areas of research. The City of Tshwane, the City of Joburg and Ekurhuleni are partners in this research project.
Page 11-3
12 CAPACITY BUILDING
CTMM should develop the capacity and tools to fulfil the requirements of Air Quality
Management over the medium- and long-term. This will ensure efficient and cost-effective
service delivery with respect to air quality management and planning. These capacities and
tools typically include: human resources (staff availability, expertise, experience), facilities,
source and ambient monitoring equipment, emission calculation methodologies, hardware,
software (etc.).
The resources and tools required are informed by national regulatory requirements (available
in draft form), international good practice and the current availability and local resources and
competence. Requirements given recent draft national regulations and current international
good practice are compared with existing resource availability in Table 7-1 and the resultant
implications of such requirements noted.
ACTION:
Staff training programmes will be developed and additional staff acquired
(where necessary) to provide the human resources necessary for effective air
quality management, including AQMP implementation, review and revision.
The DEAT is in the process of defining capacity building requirements and
training programmes for provincial and local authorities.
CTMM will
communicate its specific training requirements to DEAT and will determine
DEAT's anticipated timeframe for the provision of such support.
In the interim CTMM has identified the need for training on air quality management within the
Environmental Health Division. First level training will be provided internally during which
individuals will be identified to receive more in-depth training with the purpose of future
functions to be fulfilled within the metro. In addition, as part of the tender specifications of
the monitoring equipment suppliers training will be given in the short-term on the monitoring
equipment operation, calibration, data retrieval and data interpretation and validation. This
will ensure that CTMM personnel will manage and operate these monitoring stations within
the medium- to long term.
Page 12-1
Table 12-1: Resource implications for the City of Tshwane given national requirements and international practice with regard to
principle air quality management functions and existing local resource availability
Functions
Setting of local
ambient
air
quality standards
17
National Requirements(17)
- Provision is made for an effects Setting of multiple levels of
based approach, viz. impact standards for ambient air quality is
management
through
ambient common place in Europe & the
standards
USA.
Ambient standards which
- Provision is made for the define satisfactory air quality to
designation of specific standards for ensure human health and welfare,
defined geographical areas
the protection of the natural and
- National standards are to be build environment, and finally the
established by DEAT.
prevention of significant decline in
- Provision is made for the setting of the quality of air are used. Such
more
stringent
standards
by standards provide the objectives for
provincial governments.
air quality management. Multiple
- No provision is made for the levels of standards provide the
setting of standards by local basis
for
both
‘continued
authorities. (It is however accepted improvements’ in air quality and for
that local authorities may determine long-term planning in air quality
local air quality objectives for the management. Although maximum
purposes
of
air
quality levels of ambient concentrations are
management.)
set at a national level, more
stringent ambient standards are
implemented
by
metropolitan
authorities.
Local air quality objectives have
been established during the AQMP
development process.
No clear
capacity
however
exists
for
establishing permissible compliance
timeframes, for revising such
objectives or for extending criteria to
include information and alert
thresholds and objectives for the
protection of ecosystems.
Additional expertise required in the
field of air quality standards and
dose-response
relationship
evaluation
&
local
standard
development
As informed by Air Quality Act. Cognisance should be taken of the possible adoption of the SANS limit values to replace the current outdated standards.
Page 12-2
Functions
Setting of
emission
standards
local
(17)
Provision is made for the setting of National emission limits for various
emission
standards
for
the criteria pollutants are issued by
standardisation of controls on national governments with more
'Controlled
Emitters'
and stringent local standards being
widespread sources (e.g. industrial permitted in certain instances for
processes,
vehicle
emissions, selected source categories
household and commercial fuel
combustion)
(Specific reference is not currently
made to the development of more
stringent local emission standards.
Provision is, however, made for
passing by-laws within which this is
possible.)
No clear capacity exists for the
drafting
of
local
emissions
standards for gaseous criteria and
toxic emissions (e.g. mercury) for
specific source categories (e.g.
vehicles, industries, domestic fuel
burning appliances)
If required, receptor information
could be gathered (including
permissible and existing levels of a
pollutant), and backward dispersion
modelling undertaken for the entire
CTMM to determine suitable local
emission limits for a source
category.
Meso-scale dispersion
modelling capabilities will however
need to be developed within CTMM
to facilitate this.
Page 12-3
Functions
Emissions
inventory
development
maintenance
&
(17)
- Reference made to maintenance - Emissions inventory development
of emissions inventory for on-going as a comprehensive, accurate and
data
transfer
and
reporting current account of air pollutant
purposes
emissions from all sources
- Although specific sources to be - Inclusion of all source and
inventoried not explicitly stated, emissions data required for input to
such sources are implied through emission
calculations
and
their inclusion in the AQM Planning dispersion modelling (e.g. stack
section (sources include: industry; heights, gas exit velocities &
residential fuel burning; transport temperatures,
area
source
related emissions including motor dimensions), etc.
vehicles, trains, aircraft, boats and - Inclusion of temporally-resolved
ships; hazardous and offensive emissions
data
(e.g.
hourly
sources of emission; sources of emissions data, or total annual
noise; waste disposal and treatment emissions with diurnal and seasonal
related emissions; fugitive dust trends in emissions indicated)
sources
related
to
mining,
construction, demolition, agriculture
& vehicle entrainment; noise
emissions)
- Inventory of greenhouse gas and
ozone
depleting
substance
emissions required
- Standardization of emissions
inventory data bases nationally,
provincially & locally implicit in
requirements
First level emissions inventory was
developed for CTMM as part of the
baseline characterisation study
including the main sources of
emissions. This inventory need to
be revised and updated to include
smaller sources and all fugitive
sources.
Preparation
of
the
first
comprehensive emission inventory
would require several person-years
of effort and considerable cost. A
dedicated post would be required to
update the inventory in order to
keep it comprehensive, accurate
and current. Special projects may
be needed to be initiated at various
intervals
for
complex/special
sources (e.g. vehicle emissions,
wild fires, toxic emissions from
landfills).
Page 12-4
Functions
Air
quality
monitoring
(17)
- Monitoring to be carried out by - Trend towards on-line, real-time
relevant
local/provincial monitoring used in Europe and the
governments in accordance with US for:
methodologies and requirements to (a) compliance demonstration
be formulated by the DEAT and (b) dispersion model validation &
published by the SABS
calibration
- Data from air quality monitoring (c) early warnings during pollution
instrumentation to be stored in a episodes
format compatible with national (d) quantification of actual air quality
guidelines & forwarded in electronic improvements of emission reduction
form to the DEAT for inclusion in a strategies
national air quality data base
Metropolitan
authorities
- Calibration of air quality monitoring responsible for:
instrumentation according to the (a) planning and coordination of
specifications of a recognised ambient monitoring networks
certification body
(b) collection & collation of data
- Monitoring to make use of existing (c) information reporting
national expertise. Training to be (d) annual network reviews
undertaken to ensure continuity
The existing monitoring network for
CTMM comprises of 2 permanent
monitoring stations.
Air quality
monitoring is currently being
conducted by Environmental Health
personnel. Such stations do not
report data in real-time nor is air
quality monitoring data currently
consolidated in a single database.
CTMM will need to review the
contract with the contractors in the
short-term
pending:
(i)
the
publication by the SABS of national
monitoring and data manipulation
requirements, (ii) discussions with
lab and network accreditation
bodies (e.g. SANAS), and (iii)
possible decisions to extend
national air quality standards to
other pollutants. This will apply in
the medium-and long-term to CTMM
staff who will be responsible for the
operation and management of these
stations.
CTMM proposed with the expansion
of the monitoring network to include
3 additional permanent stations and
9 mobile stations, to be managed
and operated by contractors. These
contractors must train CTMM
technicians to be able to operate
these stations in the medium-to
long-term
Page 12-5
Functions
Source control
(17)
- Responsibility for administering the Trend
towards
periodic
license application process for permit/license review for industrial
‘listed activities’ to be undertaken by sources to account for (i) cumulative
local government.
impacts in developed areas, (ii)
- Local authorities also to be integration
of
continuous
responsible for vehicle emissions, improvement
principles
by
household fuel burning, dust industries
emissions from mining and possibly - Trend towards use of accredited
also landfill gas emission impact environmental management system
regulation
development for the purpose of
- General reference is made to the compliance
demonstration
by
potential application of voluntary various sources
agreements,
penalties
and - Encouragement of economic
incentives
(i.e.
economic incentives (positive and negative)
instruments, pollution charges)
above pure source-based controls
(e.g. emission limits)
- Limited expertise and experience
exists with regard to the control of
fuel-burning appliances
- 'Scheduled Processes' are not
currently
controlled
by
local
government
- The current capacity for the
investigation and development of
alternative types of source control
(e.g. economic incentives, voluntary
agreements) is limited
- The capacity for the periodic
review of source permits/licenses to
ensure continued compliance and
facilitate continuous improvement
depends on the outcome of the
DEAT permit review project.
CTMM will need to develop
experience with regard to other
sources not traditionally controlled
(e.g. landfills, fugitive dust sources)
- Capacity would need to be
developed for the management of
'listed activities' by way of
atmospheric emissions licenses.
DEAT indicated the facilitating of
training for local authorities.
Page 12-6
Functions
Emissions
monitoring
(17)
- Emissions monitoring to be carried Trend
towards
continuous
out by the holder of the emission monitoring by industry and regular
license in the case of industry
extensive data transfer to authorities
- No specific reference made to (e.g. 'data graveyards' in Germany)
emission monitoring of other
sources to date. It is however likely
that local authorities will continue to
be responsible for vehicle emission
monitoring – alternatively this could
become a requirement of testing
stations.
CTMM currently makes provision for
emissions monitoring of diesel
powered vehicles twice annually.
No other emissions monitoring is
currently being undertaken.
It has been recommended that
CTMM’s current diesel vehicle
emission testing programme be
extended to be more frequent with
an additional number of vehicles
being tested per month. This will
require changes in the method
employed and additional person
hours.
The addition of local government
responsibilities
for
intermittent
source monitoring of non-traditional
sources (e.g. wild fire emissions) or
other sources by national authorities
will similarly have implications in
terms of monitoring equipment and
personnel. It is, however, possible
that such monitoring would be
undertaken as part of specialised
field campaigns, i.e. outsourced
special projects)
Page 12-7
Functions
Information
management
reporting
Atmospheric
dispersion
modelling
&
(17)
- National requirements to be - Trend toward standardization of
established
to
facilitate emissions and air quality data bases
standardization of emissions and air and
information
reporting
quality data storage, manipulation, mechanism not only within but also
transfer and information reporting
across countries (e.g. Airbase used
- Reporting of greenhouse gas and by EC countries)
ozone
depleting
substance
emissions required
- DEAT has contracted the CSIR to
develop a framework for a National
Air Quality Database which intends
to house all source and emissions
data from every municipality and
monitoring data
No direct
regard.
requirements
in
this
- Distinct trend towards the
replacement of extensive and costly
air quality monitoring networks by
on-line
dispersion
modelling
coupled with key monitoring sites for
model calibration and validation
(particularly in Europe).
- In Europe, regional models
coupling street- and urban-scale
(gridded) models with regional
Gaussian Plume models (e.g.
AERMOD) within a GIS data base
management framework are being
applied
Comprehensive
electronic
emissions and air quality data bases
have not been established to date
nor provision made for the
integration of such data based
within a GIS framework
- Emissions and air quality data will
need to be consolidated within a
single data base the structure of
which
will
be
influence
by
national/provincial
criteria
(i.e
National Air Quality Database)
- Given the need for data base
integration, emission and air quality
monitoring
data
collation
&
management should preferably be
done at a centralised level within
CTMM
- To facilitate the effective
communication of information to the
general public it is advisable that an
air quality information liaison officer
be designated
- No capacity currently exists to
support
regional
atmospheric
- Internal capacity (expertise,
software, hardware) will need to be
established for dispersion modelling
applications
Page 12-8
Functions
Human health &
environmental
risk assessment
Cost-benefit
analysis
Air
Quality
Management
Plan development
& implementation
(17)
- No direct requirements in this A tiered approach to the ranking of
emission reduction strategies is
regard.
Initially, rankings are
- Ambient air quality standards favoured.
adopted by the Air Quality Act to be based on (i) total emission
used in health risk screening (i.e. reductions, (ii) ambient air quality
improvements to be achieved, (iii)
compliance assessment)
human and environmental risk and
- No direct requirements in this damage reductions, and finally (iv)
benefit maximization which takes
regard.
external costs and benefits into
account.
Due to time- and
expertise- required by the latter two
ranking criteria, such ranking not
widely implemented and is usually
undertaken on
an intermittent
(special project) basis
Provision made for the development - Air Quality Management Plans are
and implementation of Air Quality developed, regularly reviewed and
Management
Plans
by
local revised by metropolitan air quality
authorities (integrated into their authorities (specifically within 'hot
Integrated Development Plans)
spots' which are declared as 'local
air quality management zones e.g.
UK; or within non-compliance areas,
e.g. State Implementation Plans,
US)
- A public hearing process / public
participation process is usually
implemented as part of the plan
development process
assess human health and/or
environmental risk potentials arising
due to air pollutant concentrations
- Internal capacity will need to be
established if the impact of air
pollution
on
human
health,
vegetation and the built environment
to be assessed
undertake cost-benefit analysis of
emission
reduction
measures.
(Information required for the costing
of externalities, e.g. hospitalisations,
are not routinely available in South
Africa to readily facilitate such
studies)
Given the absence of local expertise
and the lack of data to support
comprehensive CBA studies, it is
envisaged that such analysis will be
restricted to qualitative and semiquantitative
evaluations.
Alternatively
CBA
could
be
outsourced on a project-by-project
basis.
- Air quality management plan
drafting requires strong policy and
planning skills.
Technical expertise is required for
the effective characterisation of
source-receptor relationships that
provides the basis for emission
strategy evaluation.
The
Tshwane
Integrated
Environmental
Policy
(TIEP)
provides a framework for the
development and revision of the Air
Quality
Management
Plan.
However, capacity does not exist to
fulfil this function within the CTMM.
Page 12-9
12.1
Proposed Structure of CTMM Air Quality Unit
The implementation, coordination and management of the AQMP role out would require
specific functions and capabilities within the municipal structure. During the development of
an AQMP for CTMM, an Energy Strategy was developed and concerted affords were made
to ensure synergy between the two. Thus, with the level of integration required between
Sustainable Energy and Climate Change Management and Air Quality Management, it is
recommended that the two units be implemented as a single unit from the start.
The focus of this section is on the functions required for the implementation of the AQMP for
CTMM. The links and relations with the Sustainable Energy and Climate Change
Management will be indicated with the detail provided in Section 5 of the Energy Strategy.
It is considered pertinent that an Air Quality Section be developed to fulfill the core task of
the AQMP implementation, management and revision within CTMM. Provided the tasks at
hand required, capacity building should not only include the expansion of existing staff
expertise but also identifying and recruiting additional people to fulfill the function. Based on
the existing structure within the CTMM, three optional models are proposed. Figure 8-1
provides the structure as is currently in place in the City of Cape Town and that is in the
process of being implemented in the City of Joburg.
Figure 12-1: Proposed structure of the Air Quality Section at CTMM.
The three options proposed for CTMM include the following:
•
•
•
Page 12-10
The most preferred Option for CTMM will depend on the Municipal Systems Act Section 78
(S78) process (review of internal and external service delivery mechanisms).
12.1.1 Option 1: Agency outside of CTMM
Figure 8-2 provides an example of the proposed CTMM Air Quality and Sustainable Energy
Agency. The main purpose of an Agency is to be established as a Municipal Entity outside
the organisational structure of the CTMM. It will assume the form of a private company, a
service utility or a multijurisdictional service utility. Appendix C provides the model and
description of the Agency as was provided in the CTMM Energy Strategy.
The functions of the proposed positions are discussed herewith. The associated costs are
provided for each of the three models under Section 8-3.
• Chief Executive Officer (CEO)
This person will be the link between the Board of Directors and shareholders. This person
would assume all responsibility for the business and operations of the Agency.
Equivalent CTMM level:
Strategic Executive.
Tasks:
- Management of agency
- Setup and manage communication links with various departments and divisions, flow
of information between the division and regions
- Coordination of SE/CC/AQM activities between CTMM and DEAT, DME and
GDACE.
- Responsible for fund raising
- Responsible for public sector management
- Report to Council
• Chief Operational Officer (COO)
This person should not be the Air Pollution Control Officer, but rather someone that can
oversee the integration of multidisciplinary technical information. This person should
preferably have scientific/engineering background with technical and management
experience.
General Manager.
Tasks:
- Management of AQO and specialists - ensure the division fulfil it s obligations as set
out in the Air Quality Act
- liaise with Provincial and national government on related projects and information
sharing
- responsible for the implementation and revision of the air Quality Management Plan
- co-ordination of emissions and air quality reporting co-ordination of rafting and
implementation of local by-laws.
Page 12-11
MUNICIPAL
MANAGER
Climate Change Division/Unit Head
Office of the
Municipal Manager
Chief Finacial
Officer
Chief Operation Officer
Secretarial/
Support Staff
Climate
Change
Specialists
Air Quality Officer
Senior
Technician
Sustanable
Energy
Specialists
Air Quality Public
Liaison Officer
Senior Scientist
Technician
Atmospheric
Scientist
AQ
Practisioner
Technician
Atmospheric
Scientist
AQ
Practisioner
Knowledge
Management
Figure 12-2: Proposed structure for an Air Quality Management, Energy and Climate Change Agency.
Page 12-12
• Air Quality Officer (AQO)
This person should have specialised technical skills with specific relevance to industry (on all
the aspects of air quality management, i.e. emissions inventory, modelling, monitoring,
control technology etc.)
Manager
Tasks
The AQO is responsible for coordinating matters pertaining to air quality management in the
municipality. The AQO does not have to be a specialist air quality manager but must ensure
that such specialists are available to ensure that air quality governance is carried out
efficiently and effectively. The AQO should however have knowledge of air quality
management.
-
Responsible for air quality management in the municipality
Middle to senior level manager
Person who has broad knowledge and understanding of air quality relate issues and
air quality management
Have to represent and negotiate municipality positions in meetings with other AQO’s
Must have sufficient authority to make decisions on day-to-day air quality issues
Coordinate and standardise air quality functions undertaken across regions (Air
Pollution Practitioners)
Review of provisional emissions licenses and atmospheric emissions licenses, and
subsequently may request atmospheric impact reports
May establish programmes for public recognition of significant achievements in the
area of pollution prevention
Manage central database comprising statistics and legal action taken by regions
• Air Quality Practitioners (AQP)
This person should have technical skills
EHPs (preferably one representative per region).
Tasks
- Collect information from all pollution sources (permits, air pollution prevention plans,
impact assessments, emissions inventories, stack and ambient monitoring data
undertaken by industries etc.)
- Assist in rolling out the emissions reduction strategies (i.e. inspect industries, control
of non-domestic fuel burning, assist in role-out of Basa Njengo Magogo, etc.)
- Public awareness raising on air quality issues
- Response to complaints (action taken) and recording and reporting to a central
electronic complaints register
- Vehicle testing – provide information to APCO
Page 12-13
-
Report to APCO
• Senior Technician
This person should have both management and technical skills.
Deputy Manager
Tasks
-
supervise technicians
manage lab
coordinate external calibrations
administration of accreditation document
validate and analyse data from monitoring stations
report to Air Pollution Control Officer and Division Manager
• Technicians
This person should have technical skills pertaining to the maintenance of monitoring
equipment
EHP’s
Tasks
-
site visits an instrument checks
span and zero checks
instrument maintenance
responsible for data collation (if via telecom and software, responsible for this)
report to Senior technical
• Senior Atmospheric Scientist
This person should have both management and specialised technical skills.
Deputy Manager
Tasks
-
-
manage atmospheric scientists
oversee emissions inventory development
oversee dispersion modelling
oversee database management and GIS functions
assist with Air Quality Management Plan development and implementation
responsible for the integration of information – emissions inventory, dispersion
modelling, ambient monitoring and GIS (assessment of human health risk and
environmental impacts and damage related to measured/predicted air pollution
concentrations) the part in brackets could be outsourced.
responsible for emission reduction strategies development (rankling of sources and
reduction opportunities) in collaboration with the Air Pollution Control Officer
evaluate EIA’s, EMPRs and air quality assessments
Page 12-14
• Atmospheric Scientists
This person should have technical skills in emissions inventory development, dispersion
modelling, database management and GIS (persons per task could also be appointed)
Chief Officers
Tasks
- develop and maintain an on-going comprehensive emissions inventory (identification
and quantification of all sources) - report to common AQ database
- rankling of sources and reduction opportunities based on emissions inventory
- integration of emissions inventory and air quality & meteorological monitored data
into common database,
- dispersion modelling (simulation of ground level concentrations) for compliance
assessment
- evaluate dispersion modelling results based on ambient monitored data
- review ambient monitoring station locations based on dispersion simulations
- rank sources based on ambient concentrations and determine reduction measures
required for compliance
- report to Air Pollution Control Officer and Division Manager
• Air Quality Information Officer
This person should have data management and communication skills
Chief Officer
Tasks
- Inventory air quality related complaints receive via “one stop service”
- Coordinate responses to air quality related complaints received – directly and those
received by regional APPs
- Collate and disseminate information to newspapers and radio stations
- Ensure information is routinely reported for display on website
- Organise and facilitate public meetings
- Assist in the design and implementation of awareness raising campaigns
- Report to APCO
12.1.2 Option 2: Internal Air Quality Management Division or Core Group
The option of the Internal Core Group will have a similar structure as the Agency. The only
difference is that the head of the Division (Chief Operating Officer) will report to the Office of
the Municipal Manager.
Figure 8-3 provides an example of the proposed Internal Management Division. The main
purpose of an Agency is to be established as a Municipal Entity outside the organisational
structure of the CTMM. It will be a similar structure than the Agency with the exception that
it is established internally within the Strategic Centre. Appendix C provides the model and
description of the Core Group as was provided in the CTMM Energy Strategy.
Page 12-15
• Unit/Division Head (UH)
This person should not be the Air Pollution Control Officer, but rather someone that can
oversee the integration of multidisciplinary technical information. This person should
preferably have scientific/engineering background with technical and management
experience.
General Manager.
Tasks:
- Management of AQO and specialists - ensure the division fulfil it s obligations as set
out in the Air Quality Act
- liaise with Provincial and national government on related projects and information
sharing
- responsible for the implementation and revision of the air Quality Management Plan
- co-ordination of emissions and air quality reporting co-ordination of rafting and
implementation of local by-laws
- Report to Council
This person should have specialised technical skills with specific relevance to industry (on all
the aspects of air quality management, i.e. emissions inventory, modelling, monitoring,
control technology etc.)
Manager
Tasks
The AQO is responsible for coordinating matters pertaining to air quality management in the
municipality. The AQO does not have to be a specialist air quality manager but must ensure
that such specialists are available to ensure that air quality governance is carried out
efficiently and effectively. The AQO should however have knowledge of air quality
management.
-
Responsible for air quality management in the municipality
Middle to senior level manager
Person who has broad knowledge and understanding of air quality relate issues and
air quality management
Have to represent and negotiate municipality positions in meetings with other AQO’s
Must have sufficient authority to make decisions on day-to-day air quality issues
Coordinate and standardise air quality functions undertaken across regions (Air
Pollution Practitioners)
Review of provisional emissions licenses and atmospheric emissions licenses, and
subsequently may request atmospheric impact reports
May establish programmes for public recognition of significant achievements in the
area of pollution prevention
Manage central database comprising statistics and legal action taken by regions
Page 12-16
MUNICIPAL
MANAGER
Climate Change Division/Unit
Head
Office of the
Municipal Manager
Chief Financial
Officer
Secretarial/
Support Staff
Unit Head
Climate
Change
Specialists
Air Quality Officer
Senior
Technician
Sustainable
Energy
Specialists
Air Quality Public
Liaison Officer
Senior Scientist
Technician
Atmospheric
Scientist
AQ
Practisioner
Technician
Atmospheric
Scientist
AQ
Practisioner
Knowledge
Managemen
t
Figure 12-3: Proposed structure for an Air Quality Management, Energy and Climate Change Core Group.
Page 12-17
-
• Air Quality Practitioners (APP)
Tasks
- Report to APCO
Deputy Manager
Tasks
-
manage lab
• Technicians
equipment
EHP’s
Tasks
-
Deputy Manager
Page 12-18
Tasks
-
-
Chief Officers
Tasks
assessment
• Air quality Information Officer
Chief Officer
Tasks
- Report to APCO
Page 12-19
12.1.3 Option 3: High level Strategic Coordination.
The third structure proposed for CTMM is that only the core functions as stipulated in the Air
Quality Act be accommodated within the CTMM structure with the outsourcing of all other
functions to contractors and consultants.
Crucial functions that need to be implemented in the Energy, Climate Change and Air
Quality Unit include:
• Chief Operation Officer (COO)
This person should be heading the entire division and don’t have to be restricted to air
quality alone. This function should rather be to integrate all air quality related information
and make the links between air quality, energy and climate change.
This position is a requirement of the National Environmental Management: Air Quality Act of
2004. If the APP functions are allocated to the existing EHP’s there should be a clear line of
reporting to the APCO since he/she will have to rely strongly on this information to fulfil
his/her legal obligation. Careful consideration should be given to this since the EHPs might
fall into different divisions. In addition, the EHPs might not be able to absorb the additional
workload implicated by air quality management.
• Senior Scientist
If all other functions are outsourced, this person would be the main supporting person to the
APCO. He/she would be responsible for collating all data from the contractors and
consultants an oversee the database management and provide sensible information to the
CAPCO
Functions that can be outsourced include the following:
-
Coordinate and standardise functions undertaken across regions (Air Pollution
Practitioners)
Maintain central database comprising statistics and legal action taken by regions
• Air Pollution Practitioners (APP)
Page 12-20
Tasks
- Report to APCO
Deputy Manager
Tasks
-
manage lab
• Technicians
equipment
EHP’s
Tasks
-
Deputy Manager
Tasks
-
-
Page 12-21
-
Chief Officers
Tasks
assessment
• Air quality Information Officer
Chief Officer
Tasks
- Report to APCO
• Senior Technician and Technicians
It is recommended that the Senior Technician function together with the technicians be
outsourced to a single contractor. It is also recommended that the contractor reports directly
to the Senior Scientist. All functions as stipulated for Senior Technicians and Technicians
(see Section 8.1.1.) should form the terms of reference for the contractor.
This supporting function to the Senior Scientist could be outsourced to a consultancy. The
Consultancy could provide the services in one of two ways, namely by providing a dedicated
person to sit at the municipality one day a week, or to complete certain tasks and deliver the
product to the municipality. It is recommended that the consultancy develop an emission
inventory database for the municipality and populate the dispersion model as is the tasks
stipulated under Section 8.1.1.
Page 12-22
• Air Pollution Practitioners (APP)
The air pollution practitioners are an optional function that can be fulfilled by the EHPs.
Again, caution should be taken to ensure that the EHPs can absorb these additional tasks.
3. Air quality Information Officer
This function could be handled by the Environmental Management division with an Air
Quality sub-function.
12.1.4 General Requirements
Irrespective of which of the three proposed models are chosen, it is imperative that the
following structures be in place over the short-term:
18
•
CTMM Council to understand the necessity of a specialised Air Quality Management
section/unit and approve it. This can be any of the three proposed models.
•
The two crucial positions over the short-term is the appointment of a Senior
Atmospheric Scientist and an Air Quality Officer. This is necessary so to ensure the
relevant training in the interim to ensure the ability to fulfil the required functions as set
out in the AQMP.
•
The Senior Atmospheric Scientist and Air Quality Officer will be responsible within the
short-term for the execution of all identified tasks to be initiated and implemented.
Thus, in the interim very little distinction will be made between the responsibilities of
the Senior Atmospheric Scientist and Air Quality Officer. It is expected that the
atmospheric licensing functions will only become the responsibility of the local
authorities within two years18.
•
The DEAT is in the process of defining capacity building requirements and training
programmes for provincial and local authorities. CTMM will communicate its specific
training requirements to DEAT and will determine DEAT's anticipated timeframe for
the provision of such support.
•
In the short-term it is recommended that the Contractors appointed to implement and
manage the ambient monitoring stations, train the EHPs on the maintenance and data
capturing methods. This will ensure that this function become in-house expertise over
the medium- and long term.
•
It will be crucial that the persons responsible for the AQMP implementation within the
short-term form good relationships with all relevant divisions within the CTMM (viz.
Environmental Health, Environmental Management, Traffic Divisions, Housing and
City Planning).
The cooperation from these divisions will be crucial in the
implementation of the AQMP.
•
Dispersion modelling software should be purchased within the short-term. The
emissions inventory should be updated and emissions database should be
established. All monitoring data must be downloaded onto a base-station and stored
in a central database. It is important that provision be made for a back-up system at
CTMM.
This is dependant on the outcome of the Atmospheric Licensing project to commence in the
beginning of 2006 and run for a period of 18 months.
Page 12-23
•
Integration of existing complaints register to automatically inform the Air Quality
Officer of incidences reported and what action should be taken.
Capacity to be incorporated over the medium-term:
•
During this phase the Air Quality Officer should be responsible for reviewing and
issuing atmospheric licences to all listed activities within the CTMM. Given the
requirement that all sources of air pollution should have been identified during the
short-term and that all industries should have supplied the CTMM with emissions
inventories, the task of the Air Quality Officer should be lightened.
•
The emissions inventory should be updated annually to account for an accurate and
current reflection of the air pollution sources within CTMM. The urban airshed
dispersion model should be set-up and operational at this stage with the capability to
run future scenarios. This information will be used by the Air Quality Officer to review
and issue emissions licences.
•
During this phase it is advised that a Section Head be appointed in the case of
Option1 or Option 3. This person should be responsible for the management of the
Air Quality Section and to ensure that the AQMP be implemented and revised. The
Head of the AQM section will also be responsible to ensure that the communication
systems operate smoothly and inter-departmental information sharing continue. This
person will also be the link to provincial and national departments to ensure data
sharing and involvement in all air quality management projects initiated by province
and national governments.
•
Depending on the atomisation of the complaints register and how well air quality
issues are capture and responded to, an air quality public liaison officer could be
appointed to fulfil this function within the Air Quality Section. It will remain important
that the complaints register for air pollution issues continue to be incorporated into the
general complaints register.
Page 12-24
12.2
Budget Requirements
Budget requirements are outlined in Tables 8-2, 8-3 and 8-4, reflecting the three proposed
models. It should be noted that this is based on ballpark figures over an annual average.
The estimated salary structures are based on the former Greater Pretoria Metropolitan
Council scale. These salary structures are however only ballpark estimates and should be
researched and refined by the Hyman Resource Divisions.
•
•
•
Table 12-2: Option 1 - Agency outside of CTMM (1)
Function
Position
Strategic Executive
R500 000 – R600 000
Chief Operational Officer
General Manager
R400 000 – R500 000
Air Quality Officer
Manager
R350 000 – R400 000
Deputy Manager
R241 212 – R312 996
Senior Technician
Deputy Manager
R241 212 – R312 996
Chief Officer
R330 096 – R456 432
EHPs (C2-2-D1)
R248 232 – R311 568
Technicians
EHPs (C2-2-D1)
R248 232 – R311 568
SUB-TOTAL
R2 558 984 – R3 205 560
ADMS Urban
R 280 000 – R300 000
R 20 000
Emission Models
R 20 000
Computers
(Quantity - 8)
R 64 000
SUB-TOTAL
R384 000 – R404 000
Other Functions
TOTAL COST
Notes:
(1)
(3)
R 400 000 – R 1 million
R3 342 984 – R4 609 560
It is likely that the Agency would have similar salary scales and would require the same number of
people and positions to fulfil the task at hand.
(2)
(3)
license, 1 x GIS license, and 20 000 households.
Page 12-25
Table 12-3: Option 2 - Internal Air Quality Management Division or Core Group
Function
Position
Unit/Division Head
General Manager position
R400 000 – R600 000
Air Quality Officer
Manager
R350 000 – R400 000
Deputy Manager
R241 212 – R312 996
Senior Technician
Deputy Manager
R241 212 – R312 996
Chief Officer
R330 096 – R456 432
EHPs (C2-2-D1)
R248 232 – R311 568
Technicians
EHPs (C2-2-D1)
R248 232 – R311 568
SUB-TOTAL
R2 058 984 – R2 705 560
ADMS Urban
R 280 000 – R300 000
R 20 000
Emission Models
R 20 000
Computers
(Quantity – 8)
R 64000
SUB-TOTAL
R384 000 – R404 000
Other Functions
TOTAL COST (2)
Notes:
(1)
R 400 000 – R 1 million
R2 842 984 – R4 109 560
(2)
license, 1 x GIS license, and 20 000 households on lower range.
Page 12-26
Table 12-4: Option 3 High level Strategic Coordination
Function
Position
Unit/Division Head
General Manager
R400 000 – R600 000
Air Pollution Control Officer
Manager
R350 000 – R400 000
Deputy Manager
R241 212 – R312 996
SUB-TOTAL
R991 212 – R1 312 996
Outsourced Functions
Technical Section
Contractors for all monitoring &
maintenance functions
Consultants to compile emissions
inventory, populate and run
SUB-TOTAL
R300 000
R200 000 - R300 000 (1)
R500 000– R600 000
ADMS Urban
R 280 000 – R300 000
R 20 000
Emission Models
R 20 000
Computers
(Quantity – 4)
R 32 000
SUB-TOTAL
R352 000 – R372 000
Other Functions
TOTAL COST
Notes:
(2)
R 400 000 – R 1 million
R2 243 212 – R3 284 996
(1)
Upper range is for the first year to set everything up and the lower range is from the second year
onwards mainly for maintenance and upkeep.
(2)
1 x ADMS license (even though the dispersion modelling function is outsourced, ADMS is
only sold to cities), 1 x GIS license, 4 x PCs and 20 000 households.
Page 12-27
13 AQMP APPROVAL AND REVIEW PROCESS
13.1
AQMP Approval
The following process was followed in the drafting of the Tshwane AQMP:
•
Establishment of the following structures to provide guidance to the AQMP development
project team:
-
Technical Working Groups (TWGs) - established to review the technical merit
and feasibility of the plan during the development phase. TWG members
included representatives from CTMM Departments responsible for transport,
housing, urban planning, environmental health and environmental management.
In addition GDACE personnel (provincial government) and DEAT (national
government) were presented along with Academics from the University of
Pretoria and Tshwane University of Technology. Various experts within the
private sector was also part of the TWG..
-
Air Quality Stakeholder Group (AQSG) - comprising interested and affected
parties including parties affected by air pollution and those whom may be
impacted by interventions aimed at reducing the impacts of air pollution, e.g.
business, industry, NGOs, CBOs and labour.
•
Compilation of Discussion Documents and a Draft Air Quality Management Plan for
distribution to and workshopping with the Technical Working Groups and the Air Quality
Stakeholder Group (August to November 2005).
•
Integration of all comments received from the TWGs, AQSG and CTMM and compilation
of the Draft Final Plan (4 November 2005).
•
Presentation of the Draft Final AQMP at a Public Workshop (1 December 2005) and
placement of copies of the Draft-Final Plan in public places for review.
•
Integration of all comments received from the TWGs, AQSG, EMM and the public and
compilation of the Final AQMP (21 December 2004).
AQMP approval is however dependent not only on stakeholder and general public
acceptance but also on review and authorisation by provincial and possibly by national
governments. The guidelines for how AQMP approvals will take place have not yet been
established by either. It is however anticipated that such guidelines will be issued within the
next two years. It is intended that the AQMP be approved and implemented by CTMM in the
interim with the Plan being revised and submitted to the necessary national and/or provincial
authorities for approval once the necessary guidelines are in place.
Page 13-1
13.2
AQMP Review
Once approved by CTMM in consultation with DEAT and GDACE, the AQMP and the
functional and operational framework within which the plan is implemented will be reviewed
regularly to ensure its continuing suitability, adequacy and effectiveness. The aim of the
review is primarily to address the possible need for changes to functional and operational
structures, AQM systems, management objectives (etc.) in light of poor performances,
changing circumstances and the commitment to continual improvement.
In the coming year(s) the Air Quality Management Plan will be reviewed based on:
• final stipulations within the National Air Quality Management Act
•
national regulations pertaining to revised ambient air quality standards
•
national regulations pertaining to ambient air quality monitoring for compliance
assessment purposes
•
national regulations pertaining to emission standards
•
national regulations for source monitoring methods suited to assessing compliance
with emission standards
•
proposed guidance reports to be issued on: (i) air quality assessments, (ii) the use of
indirect methods for air quality characterisation (e.g. modelling), and (iii) air quality
management plan development and implementation.
•
new DEAT and GDACE criteria pertaining to air quality management and air pollution
control
Progress made in AQMP implementation will be reported on annually. Based on the
examples of other municipalities it is anticipated that the AQMP for CTMM will only be
launched towards mid 2006. The initiation of the AQMP was therefore taken to be June 2006
for planning purposes. The AQMP will initially be revised in two years (i.e. June 2008),
following which it will be revised every 5 years unless otherwise required by DEAT or
GDACE. The draft revised AQMP will be submitted to the DEAT and GDACE for approval
and made available to the public for comment prior to finalisation.
Page 13-2
14 REFERENCES
Africon (2005). Tshwane State of Energy Report. Report compiled on behalf of the City of
Tshwane Metropolitan Municipality, Report No. Final Draft, 26 October 2005.
CEPA/FPAC Working Group (1998). National Ambient Air Quality Objectives for Particulate
Matter. Part 1: Science Assessment Document, A Report by the Canadian Environmental
Protection Agency (CEPA) Federal-Provincial Advisory Committee (FPAC)on Air Quality
Objectives and Guidelines.
Cosijn C. (1995). Elevated Absolutely Stable Layers: A Climatology for South Africa,
Unpublished MSc. Proposal submitted to the Department of Geography and Environmental
Studies, University of the Witwatersrand, Johannesburg.
Diab R.D. (1975). Stability and Mixing Layer Characteristics over Southern Africa,
Unpublished MSc Thesis, University of Natal, Durban, 203 pp.
Diab, R. (1995) Local Agenda 21: State of the Air Environment in the Greater Durban
Metropolitan Area, Proc NACA Annual Conf, 22-24 November 1995.
DME (2000). Guideline for the Compilation of a Mandatory Code of Practice on Mine
Residue Deposits, Mine Health and Safety Inspectorate, South African Department of
Minerals and Energy, DME 16/3/2/5-A1, 30 November 2000 (effective date: 31 May 2001).
ERI (2001). Preliminary Energy Outlook for South Africa, Energy Research Institute,
University of Cape Town, 10 October 2001.
Liebenberg-Enslin H and Petzer G (2005). Background Information Document – Air Quality
Baseline Assessment for the City of Tshwane Metropolitan Municipality. Report compiled on
behalf of the City of Tshwane Metropolitan Municipality, Report No. APP/05/CTMM-01 rev1,
June 2005.
SABS (1998). South African Standards: Code of Practice, Mine Residue, South African
Bureau of Standards, SABS 0286:1998.
SANS 69:2004. South African National Standard - Framework for setting & implementing
national ambient air quality standards, Standards South Africa, Pretoria.
SANS 1929:2004. South African National Standard - Ambient Air Quality - Limits for
common pollutants, Standards South Africa, Pretoria.
Scorgie Y, Annegarn HJ and Burger L (2003). Review of International Air Quality Guidelines
and Standards for the Purpose of Informing South African Air Quality Standards, Report
compiled on behalf of the Technical Committee on National Air Quality Standards - Working
Group I, 5 March 2003.
Scorgie Y, Watson R and Fischer T (2005). Air Quality Management Plan for the Ekurguleni
Metropolitan Municipality, Report compiled on behalf of Ekurhuleni Metropolitan Municipality,
Report No. APP/04/EMM-02c, 25 January 2005.
Page 14-1
Scorgie Y, Paterson G, Burger LW, Annegarn HJ and Kneen M (2004). Study to Examine
the Potential Socio-Economic Impact of Measures to Reduce Air Pollution from Combustion,
Task 4a Supplementary Report: Quantification of Health Risks and Associated Costs
Associated with Fuel Burning Source Groups, Report compiled on behalf of the Trade and
Industry Chamber.
Terblanche P, Nel M E, Opperman L and Nyikos H (1993). Exposure to Air Pollution from
Transitional Household Fuels in a South African Population, Journal of Exposure Analysis
and Environmental Epidemiology, 3(1), 15-22
Terblanche P (1996). Impacts of Removing Air Pollution: Health Aspects, Report compiled
on behalf of Department of Minerals and Energy, Report No. ES 9411, May 1996.
von Horen C (1996). The Cost of Power: Externalities in South Africa's Energy Sector,
Energy & Development Research Centre, University of Cape Town.
WHO (2000). Air Quality Guidelines, World Health Organisation, Geneva.
Page 14-2
APPENDIX A
MEMBERS OF THE TECHNICAL WORKING GROUP
Project Manager - CTMM
Chief HO: Air Quality
Juan Mostert
Management- Environmental
Health
Technical Project Manager - Airshed
Hanlie LiebenbergAirshed Planning Professionals
Enslins
(Pty) Ltd
CTMM Departmental Representatives
Jerry Motsamai
Joseph
NS Mutswari
Johan Human
Gopaul Rangasamy
Isaac Magagula
M de Wet
CT Meyer
P Nel
Rina Nel
Manager: Environmental Health
SEED Advisor
Chief EHP: Region 5
Chief EHP: Region 3
Chief EHP
Chief EHP
Deputy Manager: South
Chief Noise Control Officer
Chief EHP: Inspection Services
[email protected]
[email protected]
[email protected]
[email protected]
[email protected]
[email protected]
[email protected]
[email protected]
[email protected]
[email protected]
[email protected]
[email protected]
Academic Institutions
Hannes Rautenbach
University of Pretoria
Tshwane University of
Koos Engelbrecht
Technology
National and Provincial Departments
[email protected]
Nadine Koning
Shirley Moroka
[email protected]
[email protected]
GDACE
DEAT
[email protected]
Industry and Commercial Sector
Jaco Joubert
Joe Prinsloo
Nic van der Merwe
PPC Hercules
Mittal Steel Pretoria
Mittal Steel Pretoria
[email protected]
[email protected]
[email protected]
Consultant – State of Energy Study
Lungi Mbanga
Linsey Dyer
Analyst: Africon
Africon
[email protected]
[email protected]
Page A-1
APPENDIX B
AIR QUALITY STAKEHOLDER GROUP MEETING – ATTENDANCE LIST
Tuesday, 28 June 2005, Sammy marks Auditorium, Pretoria
Page B-1
APPENDIX C
COMPARISON OF POSSIBLE UNIT GOVERNANCE MODELS (from CTMM Energy Strategy, 2005)
Model
Option1:Agency
Description
□ Established outside CTMM organisational
□
□
□
□
□
□
□
□
□
Option 2: Core
Group
□
□
□
structure as a Municipal Entity, assuming the
form of a private company, a service utility or
a multijurisdictional service utility
CTMM would be sole shareholder if a private
company is formed
Board would include representatives from
DEAT, DME and NDoT
Would report to the Office of the Municipal
Manager (OMM), within the Strategic Centre.
Would be funded by the municipality and
possibly by external sources.
Would have authority through the OMM to
catalyse, drive, and coordinate SE/CC/AQM
activities within CTMM Delivery Core
High level, multidisciplinary expertise required
to lead and staff the Agency
May access resources such as technicians
and equipment from the Delivery Core
Mechanisms for interaction between Agency
and Delivery Core would be clearly defined
Air Quality Officer sits in the OMM, and
delegates Air Quality Management functions
to the Agency
Like external Agency, but established
internally within the Strategic Centre
Would report to the OMM.
Would be funded by the municipality and
Advantages
□ Would not add to CTMM’s existing staff
Disadvantages
□ May be perceived as “too far”
complement
□ May have preferential access to external
□
□
□
□
□
□
□
□
□
funding due to ringfenced status and
perceived independence
Would have the capacity to raise funding
Would be able to dedicate resources to
SE/CC/AQM
Would have a strong integrating capability
Would be able to access innovative
Knowledge Management solutions
More flexible and shorter decision-making
cycle
Of all models, provides the most scope for
establishing and operating to KPIs.
Assumption of a legal personality would
support sustainability of the function
Assumption of a legal personality would also
support air quality enforcement
Could fulfil an ombudsman role
□ Perception of greater administrative and
political control in comparison to Agency
□ Would have better access to external funding
than High Level Strategic Coordination
□
□
□
□
□
from CTMM inner workings to
achieve certain operational
objectives
Implementation may take
longer than for the other
options.
Cost of compliance with
companies-related legislation
may be high (applies only in
the case of a private
company).
Required expertise may be
expensive
Interaction between Agency
and Delivery Core may take on
an “us and them” quality
MSA S78 process may be
time-consuming
□ Requirement to recruit new
staff, resulting in Increased
salary burden on Council, in
conflict with current CTMM
Page C-1
Model
□
□
□
□
Description
possibly by external sources for special
projects
Would have authority through the OMM to
catalyse, drive, and coordinate SE/CC/AQM
activities within CTMM Delivery Core
High level, multidisciplinary expertise required
to lead and staff the Core Group
May access resources such as technicians
and equipment from the Delivery Core
Air Quality Officer sits in the OMM, and
delegates Air Quality Management functions
to the Core Group
Advantages
Disadvantages
policy
□ Would be able to dedicate resources to
SE/CC/AQM
□ Would have a strong integrating capability
□ In comparison to the Strategic Coordination
option, would better support air quality
enforcement
□ Possibility of resources being
□
□
□
□
Option 3: High
Level Strategic
Coordination
□ Consists of key individuals reporting on
□ CTMM could build on an existing functional
□
common objectives through a committee
structure, similar to the current Sustainable
Energy Tshwane (SET) Committee
□ Driven by a key individual from an interested
department, most likely Social Development
□ Would be funded by the municipality and
possibly by external sources for special
projects, such as the provision of a SEED
Advisor
□ Would facilitate access to funding for special
projects to be implemented in line
departments
structure
□ Would not add to CTMM’s staff complement
or salary burden
□
□
□
□
diluted for other functions –
end result may be further
human resources recruitment
requirement
Because of AQA requirements
having the force of law, SE/CC
functions may become
subordinate to air quality
functions
expensive
Decision-making bound by
CTMM decision-making cycle
MSA S78 process may be
time-consuming
Resources would not be
dedicated solely to
SE/CC/AQM
Because of AQA requirements
having the force of law, SE/CC
functions may become
subordinate to air quality
functions
Decision-making bound by
CTMM decision-making cycle
expensive
Would be difficult to drive
Knowledge Management
Page C-2

air quality management plan for the city of tshwane

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