2014 national air quality officer's annual report on air quality management

135 Pages·2015·2.52 MB·English

2014 NATIONAL AIR QUALITY OFFICER’S REPORT ON AIR QUALITY MANAGEMENT IN THE REPUBLIC OF SOUTH AFRICA

2014 NATIONAL AIR QUALITY OFFICER’S ANNUAL
REPORT ON AIR QUALITY MANAGEMENT

March 2015
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2014 NATIONAL AIR QUALITY OFFICER’S REPORT ON AIR QUALITY MANAGEMENT IN THE REPUBLIC OF SOUTH AFRICA

TABLE OF CONTENTS

LIST OF FIGURES ................................................................................................................. 5
1. INTRODUCTION ........................................................................................................... 6
1.1 BACKGROUND ...................................................................................................... 6
1.2 PURPOSE OF THE REPORT ................................................................................ 6
1.3 SCOPE OF THE REPORT ..................................................................................... 7
2. The National Air Quality Officer’s Prologue ................................................................. 7
2.1 SUMMARY PROGRESS REPORTS ...................................................................... 7
2.1.1 The National Report ......................................................................................... 7
2.1.2 Provincial Reports ............................................................................................ 9
2.2. CHALLENGES ...................................................................................................... 37
2.3 THE 2014 SUMMARY NATIONAL STATE OF THE AIR REPORT ....................... 37
2.3.1 NAQI Derivation from Annual Averages of PM and SO .............................. 39
10 2
2.3.2 NAQI Reporting Phases: Current and from 2015 .......................................... 41
3. PROGRESS IN RESPECT OF THE 2012 NATIONAL FRAMEWORK INDICATORS
42
3.1 PROBLEM IDENTIFICATION AND PRIORITISATION ......................................... 44
3.1.1 Ambient pollutants ......................................................................................... 44
3.1.2 Pollutant point-sources .................................................................................. 44
3.1.3 National hotspots ........................................................................................... 44
3.1.4 Provincial hotspots ......................................................................................... 61
3.1.5 Municipal hotspots ......................................................................................... 61
3.1.6 Minor, but widespread point-sources ............................................................. 65
3.1.7 Potentially polluting fuels ............................................................................... 65
3.2 STRATEGY DEVELOPMENT ............................................................................... 65
3.2.1 National hotspots ........................................................................................... 65
3.2.2 Provincial hotspots ......................................................................................... 65
3.2.3 Municipal plans .............................................................................................. 66
3.2.4 Air pollution in dense, low-income communities ............................................. 66
3.2.5 Intergrated strategy for the control of vehicle emissions ................................. 66
3.3 STANDARD-SETTING ......................................................................................... 67
3.3.1 New pollutants requiring ambient standards .................................................. 67
3.3.2 Total ambient standards ................................................................................ 67
3.3.3 Emission standards - point-sources ............................................................... 67
3.3.4 Emission standards - minor, but widespread point-sources ............................ 68
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2014 NATIONAL AIR QUALITY OFFICER’S REPORT ON AIR QUALITY MANAGEMENT IN THE REPUBLIC OF SOUTH AFRICA

3.3.5 Fuel standards ............................................................................................... 68
3.4 AWARENESS-RAISING ....................................................................................... 68
3.4.1 Publications ................................................................................................... 68
3.5 AIR QUALITY IMPACT MANAGEMENT ............................................................... 68
3.5.1 National hotspots ........................................................................................... 68
3.5.2 Provincial hotspots ......................................................................................... 69
3.5.3 Cleaner Production ........................................................................................ 69
3.5.4 Atmospheric Impact Report ............................................................................ 69
3.6 ATMOSPHERIC EMISSION LICENSING ............................................................. 69
3.6.1 Licensing manual ........................................................................................... 69
3.6.2 Services fees ................................................................................................. 70
3.6.3 National Licensing Authorities’support programme ........................................ 70
3.7 COMPLIANCE MONITORING .............................................................................. 70
3.7.1 Government monitoring network .................................................................... 70
3.7.2 EMIs .............................................................................................................. 70
3.7.3 Emission monitoring ....................................................................................... 71
3.7.4 Compliance monitoring inspections ................................................................ 71
3.8 ENFORCEMENT .................................................................................................. 71
3.8.1 EMIs .............................................................................................................. 71
3.8.2 By-laws .......................................................................................................... 72
3.8.3 Enforcement actions ...................................................................................... 72
3.9 INFORMATION MANAGEMENT .......................................................................... 72
3.9.1 The SAAQIS .................................................................................................. 72
3.10 INTERGOVERNMENTAL COORDINATION AND COOPERATION ..................... 73
3.10.1 Annual Air Quality Governance Lekgotla ...................................................... 73
3.10.2 The Annual Air Quality Governance Lekgotla ............................................... 73
3.10.3 National –Provincial Working Group II ........................................................ 74
3.10.4 Provincial-municipal Air Quality Officer’s Forums .......................................... 74
APPENDIX A: ATMOSPHERIC EMISSION LICENSING STATUS IN THE COUNTRY ...... 75
APPENDIX B: GOVERNMENT AIR QUALITY MANAGEMENT PLANS STATUS .............. 95
APPENDIX C: DEPARTMENTAL AIR QUALITY PUBLICATIONS ...................................... 97
APPENDIX D: GOVERNMENT OWNED AMBIENT AIR QUALITY MONITORING
STATIONS .......................................................................................................................... 98
APPENDIX E: ENVIRONMENTAL MANAGEMENT INSPECTORS .................................. 104
APPENDIX F: CRIMINAL AND ADMINISTRATIVE ENFORNCEMENT TAKEN BY DEA . 117

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2014 NATIONAL AIR QUALITY OFFICER’S REPORT ON AIR QUALITY MANAGEMENT IN THE REPUBLIC OF SOUTH AFRICA

LIST OF TABLES
Table 1: The areas and type of sampling conducted in KZN ................................................................................ 17
Table 2: Site locations for both Dust Bucket and Passive sampling conducted in KZN ........................................ 17
Table 3: Sampling locations in KZN ...................................................................................................................... 18
Table 4: Inventory of identifiable sources by Municipality in Limpopo ................................................................... 23
Table 5: Summary if AEL status in Limpopo ......................................................................................................... 24
Table 6: Enforcement actions in Mpumalanga ...................................................................................................... 26
Table 7: Passive Air Sampling Project in North West Province ............................................................................ 28
Table 8: Summary rating in respect of progress against the 2012 National Framework indicator targets ............ 42
Table 9: Summary of government interventions in the Priority Areas ................................................................... 45
Table 10: Summary of industries interventions in the Highveld Priority Area ........................................................ 46
Table 11: Summary of industries interventions in the Vaal Triangle Airshed Priority Area ................................... 48
Table 12: Key milestones for the Vaal Triangle Airshed Priority Area ................................................................... 53
Table 13: Key milestones for the Highveld Priority Area ....................................................................................... 58
Table 14: Key milestones for the Waterberg-Bojanala Priority Area ..................................................................... 59
Table 15: 2007 National Framework Table 24 review results ............................................................................... 63
Table 16: Atmospheric Emission Licensing status in the Eastern Cape ............................................................... 75
Table 17: Atmospheric Emission Licensing status in Gauteng Province............................................................... 76
Table 18: Atmospheric Emission Licensing status in Kwazulu - Natal Province ................................................... 83
Table 19: Atmospheric Emission Licensing status in Limpopo Province............................................................... 87
Table 20: Atmospheric Emission Licensing status in Northern Cape Province ..................................................... 89
Table 21: Atmospheric Emission Licensing status in North West ......................................................................... 89
Table 22: Atmospheric Emission Licensing status in Western Cape Province ..................................................... 90
Table 23: Government Air Quality Management Plans in place ............................................................................ 95
Table 24: Departmental air quality publications .................................................................................................... 97
Table 25: Government owned Ambient Air Quality Monitoring Stations................................................................ 98
Table 26: Environmental Management Inspectors (EMIs) .................................................................................. 104
Table 27: Criminal and administrative enforcement actions taken by the national department relating to
atmospheric emissions or other AQA offences ..................................................................................... 117
Table 28: Administrative enforcement actions taken by the national department relating to atmospheric emissions
or other AQA offences .......................................................................................................................... 119
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2014 NATIONAL AIR QUALITY OFFICER’S REPORT ON AIR QUALITY MANAGEMENT IN THE REPUBLIC OF SOUTH AFRICA

LIST OF FIGURES
Figure 1: Air Quality Passive Sampling Sites in North West Province .................................................................. 29
Figure 2: The national average of station annual SO averages from 1994 to 2013 (blue solid dots). The bar for
2
each year represents the 90th and 10th percentile of averages. The open dots present the median
averages. ................................................................................................................................................ 38
Figure 3: The national average of station annual PM averages from 1994 to 2013 (blue solid dots). The bar for
10
each year represents the 90th and 10th percentile of averages. The open dots present the median
averages. ................................................................................................................................................ 39
Figure 4: The National Air Quality Indicator of South Africa from 1994 to 2013. ................................................... 40
Figure 5: Map of sampling station locations. ......................................................................................................... 62

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2014 NATIONAL AIR QUALITY OFFICER’S REPORT ON AIR QUALITY MANAGEMENT IN THE REPUBLIC OF SOUTH AFRICA

1. INTRODUCTION
1.1 BACKGROUND
As required by the 2012 National Framework for Air Quality Management in Republic of South Africa, the
National Air Quality Officer must report on an annual basis on the progress relating to the implementation of the
National Framework. The report is known as the National Air Quality Officer’s Annual Report. A set of indicators
to be included in the National Air Quality Officer’s Annual Report are provided in Appendix 2 of the 2012 National
Framework. These indicators have three basic functions, namely, to simplify, quantify and communicate key
information about both the quality of air in South Africa and the efficacy of the air quality management process
itself.
The assessment indicators are regarded as being -
 Scientifically sound;
 Easy to understand and explain;
 Able to develop and illustrate trends over time and differences between geographical areas;
 Sensitive to the change that they are intended to measure;
 Measurable and capable of being updated regularly;
 Based on readily available data and information.
In accordance with the National Framework, this report provides an assessment of the indicators and additional
information relating to the implementation of the National Framework. The initial draft of this report was
presented by the National Air Quality Officer at the 2014 Annual Air Quality Governance Lekgotla which was held
from 6 – 7 October 2014 at the Gateway Hotel in Umhlanga, KwaZulu-Natal with the final report published by
March 2015.
According to the National Framework, this report includes:
 Progress with respect to implementation of the National Framework;
 A list of priority issues collated by air quality officers at a national, provincial and regional level;
 An identification of recommendations that are required to improve the indicator output;
 Recommendations for the development of new indicators or the amendment of existing indicators; and
 A commentary by the national department on the recommendations and proposals, and taking
appropriate action on these recommendations over the subsequent 12 months.
1.2 PURPOSE OF THE REPORT
The National Air Quality Officer’s Annual Report is meant to provide all stakeholders with information relating to
progress in the implementation of the National Environmental Management: Air Quality Act (Act No. 39 of 2004)
(hereinafter “the AQA”) and its National Framework and, most importantly, the efficacy of this implementation
with specific reference to the objectives of the AQA, namely -
 Protecting the environment by providing reasonable measures for the protection and enhancement of
the quality of air in the Republic;
 Protecting the environment by providing reasonable measures for the prevention of air pollution and
ecological degradation;
 Securing ecologically sustainable development while promoting justifiable economic and social
development;
 Generally giving effect to section 24(b) of the Constitution in order to enhance the quality of ambient air
for the sake of securing an environment that is not harmful to the health and wellbeing of people.
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2014 NATIONAL AIR QUALITY OFFICER’S REPORT ON AIR QUALITY MANAGEMENT IN THE REPUBLIC OF SOUTH AFRICA

1.3 SCOPE OF THE REPORT
In line with Paragraph 5.2.3.3 of the 2012 National Framework, all municipal Air Quality Officers, are required to
submit a Municipal Air Quality Officer’s Annual Report to the provincial Air Quality Officer at least one month prior
to the Annual National Air Quality Governance Lekgotla. The provincial Air Quality Officers then use these
reports to inform the compilation of a Provincial Air Quality Officer’s Annual Report that is to be submitted to the
National Air Quality Officer at least two weeks prior to the Air Quality Governance Lekgotla. The National Air
Quality Officer has to then compile the National Air Quality Officer’s Annual Report for presentation at the
Lekgotla for ratification and submission for publication.
Therefore, the development of this report has relied on contributions from all Air Quality Officers and reports from
other contributing projects.
2. THE NATIONAL AIR QUALITY OFFICER’S PROLOGUE
The year 2014, marks ten years since the promulgation of the National Environmental Management: Air Quality
Act (39) of 2004 “AQA”. Since then, all spheres of government have been implementing several programmes in
order to improve the quality of air and protect the right of all in South African to air that is not harmful to their
health and wellbeing. There has been massive improvement in the governance structures of air quality
management although without challenges. The challenges includes lack of technical capacity, lack of funding to
undertake functions, stranded ambient air quality monitoring stations, Atmospheric Emission Licensing
application/processing fee. However, the Department together with the provinces through their Working Group II
engagements have developed plans and means to address such challenges. The air quality management
training schedule, the Atmopsheric Emission Licensing Support Programme, the Air Quality Management
Planning Support Programme have been developed and way under implementation with positive outcomes. This
will enable the government to devep the individual skills in all spheres of government to perform their air quality
management functions efficiently and effectively.
In addition, Department together with all affected provinces and municipalties were developing or ammending the
technical or regulatory tools as per the AQA. Some of the tools that were developed or amended included, The
National Atmospheric Emission Inventory System (NAEIS) currently being finalised. The National Framework for
Air Quality Management, which was established in 2007 as contemplated in Section 7 of the AQA, was reviewed,
and the 2012 National Framework was published. The S21 of the AQA, Listed Activities and associated Minimum
Emission Standards was also amended. The development of the Air Quality Management Plans (AQMPs) is
progressing well with all metros having completed their AQMPs. The ambient air quality monitoring networks is
growing and expanding across the country, to date there is 102 government owned stations of which 84 are
reporting their data to SAAQIS. This will enable the government to monitor and report of the state of year
annually to all interested and affected parties.
The government is committed on its mandate for air that is not harfull to helath and well-being. This is evident
through various interventions that the government is currently implementing. Section 2 of this document
highlights, achievements by the National Department, Provinces, and Municipalities.
2.1 SUMMARY PROGRESS REPORTS
2.1.1 The National Report
At the national level, the department’s air quality section, i.e. the Chief Directorate: Air Quality Management was
able to deliver the following outputs during 2014 calender year:
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2014 NATIONAL AIR QUALITY OFFICER’S REPORT ON AIR QUALITY MANAGEMENT IN THE REPUBLIC OF SOUTH AFRICA

 The department’s six monitoring stations in the Vaal Triangle Air-shed Priority Area (VTAPA) were fully
operational during this reporting period. These stations are currently operated by the South African
Weather Service (SAWS) as part of the department-SAWS agreement on air quality information; the
stations are reporting the data to the South African Air Quality Information System (SAAQIS),
www.saaqis.org.za;
 The department’s five monitoring stations in the Highveld Priority Area (HPA) were fully operational in
2014 and reporting data to SAAQIS;
 The Waterberg-Bojanala Priority Area (WBPA) Ambient Air Quality Monitoring Network fully operational
and reporting data to the SAAQIS;
 Further data-sharing agreements were signed and there are now 84 government owned Ambient Air
Quality Monitoring Stations providing data to the SAAQIS; in total there are 107 stations reporting data
to SAAQIS;
 The National Air Quality Indicator (NAQI) was updated, and presented with the 2014 State of Air Report
at the Air Quality Governance Lekgotla and is published in this report;
 The National Norms & Standard for Ambient Air Quality Monitoring have been developed and will be
finalised in 2015;
 The development of the National Atmospheric Emission Inventory System (NAEIS) has been finalised
with about 800 facilities registered in the system. The DEA conducted training with authorities and
affected industry. To date, consultations with Clay & Bricks Manufacturing Sector, Nelson Mandela Bay
Industry representatives, Pulp & Paper Sector and industries within Gauteng Province were conducted;
 The NAEIS reporting regulations were published on 18 July 2014 for public comments (Gazette No.
37830, Notice No.2014 of July 2014) and are now being finalised for final promulgation;
 The NAEIS data management policy under development;
 The System for National Atmospheric Emission License application portal initiated;
 National Air Quality Survey – Table 24 Ground-truthing project concluded and the report is included in
this document;
 Two Priority Area Air Quality Management Plans (AQMPs) under implementation (VTAPA and HPA)
and progress included in this report;
 The threat Assessment Report and the AQMP for the WBPA has been completed and will be published
for public comments once approved;
 Air Quality Awareness and Capacity Building Program under implementation; with vehicle emission
awareness campaign conducted in Gauteng, workshops for the community based organisations; and
the air quality stakeholder engagement held in Durban South Basin;
 Air Quality Improvement Program under implementation. Training on Dust regulations has been
developed and conducted in various provinces. To date training was conducted in HPA, Limpopo,
Mpumalanga, Gauteng, Free State, Northern Cape, Durban, North West;
 Implementation of Support Program on Atmospheric Emission License (AEL) to Local Authorities is
ongoing with support provided to Gauteng, Mpumalanga, Free State, Western Cape, and Northern
Cape. Stack monitoring training workshops conducted for officials within the the HPA and VTAPA;
 The AQMP support programme ongoing;
 The DEA conducted training with DMR officials on various air quality issues including AEL, dust
regulations, dust management plans, etc. The trainings was conducted in Northern Cape, Kwazulu-
Natal and Gauteng regions;
 The 2014 Air Quality Governance Lekgotla and Multi-stakeholder workshop successfully hosted from 6-
8 October 2014 in Umhlanga, KwaZulu-Natal;
 The VTAPA Health Study under development, and data analysis for Human Health Risk Assessment is
complete and the report is available;
 The Business case looking at the resources required for Authorities to efficiently perform AQM functions
is under development;
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 Draft notice for Section 23, Small Scale Charcoal Plants Declaration as Controlled Emitters was
finalised and will be published for comments in early 2015.
2.1.2 Provincial Reports
The Eastern Cape’s Department of Economic Development, Environmental Affairs and Tourism (DEDEAT)
compiled a report on behalf of the Eastern Cape Province on the progress that has been made with regard to Air
Quality Management in its jurisdiction inclusive of its respective municipalities for 2014 – .
In terms of general air quality information management, systems and monitoring, the Eastern Cape Province
reported that –
 The Buffalo City Metropolitan Municipality has two fixed ambient monitoring stations which monitor
sulphur dioxide (SO ), nitrogen dioxide (NO ), particulate matter smaller than 10 µg per cubic meter
2 2
(PM ), carbon monoxide (CO) and ozone (O ). There were no exceedences of pollutants that are being
10 3
monitored at stations during 2014. Consultations underway to prepare these stations to report to
SAAQIS;
 The service providers appointed by Buffallo City Metropolitan Municipality completed the project to
develop a quality assurance system for the air monitoring stations. The aim of the system is to ensure
the validity of data generated at the stations and to ensure the stations operate in compliance with
SANAS TR 07-03 Supplementary Requirements for the Accreditation of Continuous Ambient Air Quality
Monitoring;
 The Nelson Mandela Bay Metropolitan Municipality has five stations which monitor sulphur dioxide
(SO ), nitrogen dioxide (NO ), particulate matter smaller than 10 µg per cubic meter (PM ), carbon
2 2 10
monoxide (CO) and ozone (O ). Due to technical issues, the stations have not been operational and
3
consequently no report is being generated in this regard. However all stations will be overhauled and
calibrated during Jan/Feb 2015. Hence, all stations should be fully functional shortly;
 The Air Quality Officer (AQO) of Nelson Mandela Bay Municipality has resigned and currently air quality
staff are acting in the AQO position until this matter is finalized;
 The Amatole District Municipality conducted a passive sampling campaign for four months in
Butterworth and Sutterheim. The campaign monitored SO ; NO and PM . The results of the Campaign
2 2 10
indicate that there is no problem for the SO ; NO pollutants. However the PM results indicate a
2 2 10
number of exceedences of the PM , 24 hour standard of 120µg/ m3 which exceed the allowance.
10
In terms of Air Quality Management Plans and Strategies, the Eastern Cape Province reported that –
 The Provincial AQMP has been adopted by the provincial management;
 The Buffalo City Metropolitan Municipality developed an AQMP which was adopted by Council in 2012.
The implementation of the plan is on-going and included the designation by Council of the Chief
Environmental Health Practitioner as the municipality’s designated AQO. Projects undertaken since the
plan was adopted include the development of emission inventory for the municipality as well as the
development of quality assurance system for the ambient air monitoring station;
 The Nelson Mandela Bay Metropolitan Municipality’s AQMP is currently under review;
 Amatole District Municipality has adopted their AQMP and is currently under implementation. A passive
monitoring program has been conducted in Stutterheim and Butterworth in order to determine whether
there is an air quality monitoring need;
 Joe Gqabi District Municipality is developing their AQMP with the assistance of both the Provincial and
National support;
 Chris Hani District Municipality is developing their AQMP. In terms of the plan the District Municipality
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2014 NATIONAL AIR QUALITY OFFICER’S REPORT ON AIR QUALITY MANAGEMENT IN THE REPUBLIC OF SOUTH AFRICA

has completed the development of their status quo assessment;
 The OR Tambo, Alfred Nzo and Sarah Baartman District Municipalities have indicated that they are
intending to commence with the development of their AQMPs during 2015. Sarah Baartman District
Municipality has indicated that the development of the plan will be included in the Council’s Intergrated
Development Plan (IDP).
 In terms of air quality by-laws, regulations, norms and standards, the Eastern Cape Province reported
that–
 Buffalo City Metropolitan Municipality has a Health Nuisance By-Law which covers both Air Quality and
Noise Matters;
 The Nelson Mandela Bay Metropolitan Municipality Air Quality By-Law has been reviewed and in the
process of being amended;
 Amatole District Municipality has an Air Quality By-Law which is being implemented;
 No other District Municipalities have any By-laws.
 In terms of Public Awareness and Campaigns, the Eastern Cape Province reported that –
 The Province is implementing an Anti-Waste burning campaign targeting all the waste sites within the
province. Currently Chris Hani and OR Tambo Regions have been visited where the anti-waste burning
message was communicated. The balance of the Districts will be concluded in 2014;
 A presentation was delivered to portfolio councillors on air quality and community members were
advised on air quality as part of the Environmental Health Departments environmental awareness
programme;
 The Nelson Mandela Bay Metropolitan Municipality Air Quality Forum meets on a quaterly basis and
disseminates the latest developments with regards to Air Quality Management and Legislation and is
well attended by Atmospheric Emission License holders.
 In terms of Atmospheric Emission Licensing (AEL’s), the Eastern Cape Province reported that –
More information on AEL in appendix A
In terms of Compliance and Law enforcement, the Eastern Cape Province reported that –
 The DEDEAT had conducted ten compliance inspections and no enforcement activities had been
undertaken;
 One official from Buffalo City Metropolitan Municipality has been trained as an Environmental
Management Inspector (EMI). The official authorisation as an EMI is being vetted by legal advisors.
 The Buffalo City Metropolitan Municipality conducted 110 compliance inspections, dealt with 35
complaints and served 16 notices on different individuals;
 Four Nelson Mandela Bay Metropolitan Municipality officials had been trained as EMI’s. One official had
been appointed and three appointments as EMI’s have been effected. A Service Level Agreement
(SLA) has been entered into between the Municipality and DEDEAT in terms of the designation of
EMI’s;
 Nelson Mandela Bay Metropolitan Municipality have conducted 38 compliance inspections and received
8 air quality complaints. No enforcement actions have been taken.
 In terms of specific air quality improvement campaigns and projects, the Eastern Cape Province
reported that -
 None during this reporting period.
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