south durban basin multi-point plan case study report - NILU

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Book 12
SOUTH DURBAN BASIN MULTI-POINT PLAN CASE STUDY REPORT
Air Quality Act Implementation: Air Quality Management Planning

TABLE OF CONTENTS
PREFACE ............................................................................................................... 03
EXECUTIVE SUMMARY .................................................................................... 04
LIST OF ABBREVIATIONS ................................................................................ 05
1.THE SOUTH DURBAN CASE STUDY: INTRODUCTION ......................... 06
2. AN OVERVIEW OF SOUTH DURBAN ......................................................... 07
2.1. Geographical Setting ......................................................................................... 07
2.2. Meteorological Overview ................................................................................. 08
3. MULTI-POINT PLAN “THE STORY” .......................................................... 09
3.1. Historical background .............................................................................. 09
3.2. Motivation and development of the Multi-point Plan .............................. 10
3.3. Fundamentals of the Multi-Point Plan ...................................................... 12
3.4. Participants ............................................................................................... 12
3.5. Legislative and Regulatory Context and Funding .................................... 13
4. MPP PROGRESS ON COMPONENTS .......................................................... 14
4.1. Health risk assessment and epidemiological study .................................. 14
4.2. Phasing out of dirty fuels .......................................................................... 15
4.3. Establishment of an Air Quality Management System (AQMS) ............. 16
4.4. Controlling chemical and fugitive emissions ........................................... 17
4.5. Strengthening the inspectorate ................................................................. 18
4.6. Development of a local legal framework ................................................. 18
4.7. Reviewing of standards for priority pollutants ......................................... 19
4.8. Reviewing standards for vehicle emissions .............................................. 20
4.9. Development of an Air Quality Management Plan .................................. 20
5. STATUS OF AIR QUALITY IN SOUTH DURBAN ...................................... 21
5.1. Sources ..................................................................................................... 21
5.2. Summary of outputs from the monitoring system .................................... 21
5.3. Emission reduction strategies ................................................................... 24
6. AWARDS ............................................................................................................. 23
7. STAKEHOLDER OPINIONS .......................................................................... 24
7.1. Summary of government, industry and NGO responses .......................... 24
7.2. Results from snap survey in Merewent .................................................... 28
8. SUMMARY ........................................................................................................ 30
8.1. Key milestones of the Multi-point Plan .................................................... 30
8.2. Lessons learnt ........................................................................................... 30
8.3. Has it worked? .......................................................................................... 30
8.4. Recommendations .................................................................................... 31
8.5. Fundamentals of a successful plan ........................................................... 31
References ....................................................................................................... 32
ACKNOWLEDGEMENTS .................................................................................. 32
APPENDIX 1: STAKEHOLDERS INTERVIEWED ........................................ 33
PG / 02
SOUTH DURBAN BASIN MULTI-POINT PLAN:
CASE STUDY REPORT
Output A2: DEAT AQA Implementation:
Air Quality Management Planning
Authors: Lisa Guastella*, Svein Knudsen^
October 2007
*Zanokuhle Environmental Services (ZES)
P.O. Box 37945, Overport, 4067
Tel: +27 31 2022860/1, Fax: +27 86 6552061
E-mail: lisa@zes.co.za
^ Norwegian Institute for Air Research (NILU)
P.O. Box 100, NO-2027 Kjeller, Norway

SOUTH DURBAN BASIN MULTI-POINT PLAN
CASE STUDY REPORT
PREFACE
The National Environmental Management: Air Quality Act, Act No. 39 of 2004,
hereafter referred to as AQA, came into effect in September 2005. One of the
requirements of the AQA in terms of sections 15 to 17 is that Air Quality Management
Plans (AQMPs) must be developed and implemented by national, provincial and local
government. To this end, the national Department of Environmental Affairs and Tourism
(DEAT) has embarked on a project for the effi cient and effective implementation of
AQMPs in terms of the AQA. The overall objective of this project is to ensure that air
quality management planning and reporting is effi ciently and effectively implemented
by all relevant spheres of government through, in part, support and leadership from the
national department. The main output of this project will be an Air Quality Management
Planning Implementation Manual, but in order to achieve this, a critical review of all
current governmental air quality management planning processes and products and other
initiatives in the country is necessary. Findings of this review process will be applied to
the formulation of the Air Quality Management Planning Implementation Manual.
To this end, nine available Air Quality Management Plans (AQMPs) from various
District, Metropolitan and Local Municipalities have been reviewed, as follows:
• City of Johannesburg
• City of Cape Town
• Ekurhuleni Metropolitan Municipality (EMM)
• Mangaung local Municipality
• Rustenburg local Municipality
• Tshwane Metropolitan Municipality
• eThekwini Municipality
• Vaal Triangle Air-shed Priority Area
• Capricorn District Municipality
An additional part of this review process is to examine the case study of the South
Durban Basin Multi-point Plan (SDB MPP). The Multi-point Plan was devised to
address air pollution problems in the South Durban Basin area, which falls within the
eThekwini Municipality. The MPP has resulted in the development of a sophisticated
local air quality monitoring system, information from which is being used to develop a
comprehensive AQMP. Emission reduction interventions are already resulting in some
positive air quality impacts, e.g. decreased ambient SO2 concentrations, decrease in
number of SO2 guideline exceedances. Experiences from this project will be invaluable
in testing and informing the development of the required Air Quality Management
Planning Implementation Manual.
This document, therefore, forms one of the outputs for the DEAT AQMP
Implementation project. The purpose is two-fold: (i) to provide a reference document
for other AQMP Implementation project outputs and (ii) to be used as an inspirational
example for other municipalities to follow. The intention is to focus on the use of good
information and problem identifi cation as the basis for air quality management planning.
It is hoped that the approach to the problem, how the plan was implemented and lessons
learned will be able to be used by other authorities as a learning tool to apply to their
own pollution problems.
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 03

EXECUTIVE SUMMARY
INTRODUCTION
The South Durban Basin (SDB) is an area approximately 4 km wide
and 24 km long, extending from the Durban Central Business District
(CBD) southward to Umbogintwini. It contains a mixture of industrial
(including heavy industry, chemical storage facilities, sewage works
and a number of smaller industries) and residential areas in close
proximity to each other. This was allowed to develop as a result
of poor planning practices. The SDB is also a focal point of major
transport routes, including highways, a harbour and an international
airport. Topographical and meteorological complexities result in poor
horizontal and vertical dispersion of pollutants, particularly during
winter periods.
Communities in the SDB started to express concern about
deteriorating air quality as far back as the 1960’s, and efforts
intensified in the 1980’s and 1990’s as air quality deteriorated even
further. Persistent complaints to government about high pollution
levels, odours, chemical leaks, flares, visible emissions and health
complaints ultimately led to a national response to the problem. The
(then) Minister of Environmental Affairs & Tourism, Mr Mohammed
“Valli” Moosa, decided that “the peculiarities and worrying levels
of pollution in the South Durban area warranted a singular and coordinated
approach from government” Various issues of concern
were debated between representatives of government, industry and
community and a way forward to addressing the pollution “hot
spot” problem was formulated. Subsequent to that the South Durban
“Multi-point Plan” was officially announced by Minister Moosa on 27
November 2000.
Fundamentals of the Multi-point Plan (MPP)
The aim of the MPP is to:
• Provide an improved decision making structure for air pollution
management at local government level.
• Reduce air pollution to meet health based air quality standards.
• Improve the quality of life for the local community.
The key components of the MPP were listed as follows:
• A health risk assessment.
• An epidemiological study.
• Phasing out programme for dirty fuels.
• Establishment of an Air Quality Management System (AQMS).
• Controlling chemical and fugitive emissions.
• Strengthening the inspectorate (auditing and permitting system).
• Development of a local legal framework.
• Reviewing of standards for priority pollutants.
• Reviewing standards for vehicle emissions.
The implementing agency is the eThekwini (Durban) Municipality.
The total budget was R29.8 million, with an additional R4 million p.a.
for running the monitoring programme, which is part of the AQMS.
Funding was obtained from NORAD and channeled through DEAT,
with the remainder of funds sourced from the other two spheres of
government and industry
PG /04
Key achievements of the MPP
• An improved air quality monitoring network with integrated
data transfer and storage was installed, with data and
reports published on the internet.
• An updated emission inventory.
• Sampling for other pollutants such as BTEX (Benzene, Toluene,
Ethyl-benzene, Xylene) and a hydrogen sulphide (H 2S) survey in
the Merebank area.
• Improved scheduled trade permitting (STP) system and emission
reductions as a result (40% reduction in SO2), with industry
encouraged to use best practice technology.
• Awareness created and has prompted industry to take action,
where they may not have done before.
• Reductions in terms of annual average SO2 concentrations since
1999.
• Health risk and epidemiological study completed June in
2006. Results indicated higher air pollution concentrations were
associated with reduced lung function in children with asthma.
Children attending school in south Durban had an increased risk
of persistent asthma compared to those in the north, while adults
residing in the south had a higher incidence of hayfever
than their northern counterparts.
• Multi-stakeholder involvement: Government, community and
industry are given the opportunity to constructively work
together towards a common goal.
• Capacity building and knowledge transfer.
• Political commitment from three spheres of government to solve
the pollution problem.
Problem areas/outstanding issues
Results of interviews conducted with a cross section of
representatives from government, industry and community,
selected on the basis of their historic and current involvement in
the MPP, highlighted the following issues:
• The focus has been on industrial SO2, which is a good
starting point, but there is a need to address other pollutants.
No improvement has been noted in terms of visible pollution
(i.e. brown haze and poor visibility on bad dispersion days),
measured particulate matter and oxides of nitrogen. The
eThekwini Municipality is addressing this through the current
Air Quality Management Plan (AQMP).
• The focus has been on the large companies, which has yielded
results in terms of emission reductions, but there now needs to
be a shift to smaller companies. This has been recognised and the
current AQMP will address this issue.
• Fines for non-compliance with respect to emission permits
are insufficient and need to be relative to the degree of non-
compliance and gross turnover of the company.
• There are no noticeable odour reductions and no indication of
improvements in Volatile Organic Carbons (VOC’s) and other
chemicals, despite activities to reduce VOC emissions.
• Vehicular traffic impacts need to be addressed. There is a
need for an integrated transport plan which includes pollution

minimization aims as well as affordable, fl exible and effi cient
means to move people. This is also being addressed through the
AQMP. The country’s rail service needs to be improved to reduce
the load.
• Although the core scientifi c fi ndings of the Health Study have
been accepted, the inclusion of peer review comments is
still being debated by industry. Links between industrial
pollution and cancer and leukaemia were not investigated
and would need to be part of a separate study, which is reportedly
underway.
• There is a need to improve communication with the community
in terms that people can understand. People need an
understanding of how the MPP has improved their lives.
Fundamentals of a successful plan
Experience from the Multi-point Plan has shown that the following
are critical to the success of an air quality management plan:
• Awareness of the problem.
• Scientifi cally valid data to back up complaints and prove there is
a problem.
LIST OF
ABBREVIATIONS
APPA ............ Atmospheric Pollution Prevention Act
(Act 45 of 1965)
AQA ............. Air Quality Act (see NEMAQA)
AQM ............ Air Quality Management
AQMP .......... Air Quality Management Plan
AQMS .......... Air Quality Management System
BTEX ........... Benzene, Toluene, ethyl-benzene, Xylene
CAPCO ........ Chief Air Pollution Control Offi cer
CFC’s ........... Chlorofl uorocarbons
H 2S ............... Hyrdrogen Sulphide
CH4 .............. Methane
CO ................ Carbon monoxide
CO2 .............. Carbon dioxide
CSIR ............. Council for Scientifi c and Industrial Research
DAEA ........... Department of Agriculture and Environmental
...................... Affairs (KZN)
DEAT ........... Department of Environmental Affairs and Tourism
DME ............. Department of Minerals and Energy
DWAF .......... Department of Water Affairs and Forestry
EM................ eThekwini Municipality
EMP ............. Environment Management Plan
EPA ............... Environmental Protection Agency (see USEPA)
HFO ............. Heavy fuel oils
IGCC ............ Inter-Governmental Co-ordinating Committee
KZN ............. KwaZulu-Natal
LSF ............... Low Smoke Fuels
MPP .............. Multi-Point Plan
MRA ............. Merebank Residents Association
m/s ................ metres per second
NEMAQA .... National Environmental Management Air Quality
...................... Act, 2004
• Political will to tackle the problem.
• Action plan on how to address the problem.
• Finances need to be available.
• Commitment to do the things agreed upon.
• Trust between stakeholders.
• Dialogue, education and awareness.
• Feedback and follow-up to stakeholders and community.
• Need to have a central person to drive it
(i.e. dedicated project manager).
• It’s hard work. You need suitably trained, committed and
enthusiastic staff, otherwise the project will lose momentum.
• Change will not happen overnight, be patient, but persistent.
The MPP has achieved much since its inception and continues to
play a role in reducing pollution levels in South Durban, however
there remain a number of outstanding issues, many of which will be
addressed in the eThekwini Municipality Air Quality Management
Plan (AQMP). The MPP has a lifespan of its own and has provided
the platform for the AQMP, which will indicate the way forward.
NGO ............. Non-Governmental Organisation
NORAD ....... Norwegian Agency for Development Cooperation
NOx .............. Oxides of nitrogen
NO ................ Nitric oxide
NO2 .............. Nitrogen dioxide
N2O .............. Nitrous oxide
O3 ................. Ozone
Pb ................. Lead
PM10 ............. Particulate matter with an aerodynamic diameter of
< 10 microns
PM2.5 ............ Particulate matter with an aerodynamic diameter of
< 2.5 microns
ppb................ Parts per billion
ppm .............. Parts per million
SANAS ........ South African National Accreditation Services
SANS ........... South African National Standards
SBM ............. Single Buoy Mooring
SCF .............. Stakeholders Consultative Forum
SDB .............. South Durban Basin
SDBIGCC .... South Durban Basin Inter-Governmental
Co-ordinating Committee
SDBSCF ....... South Durban Basin Stakeholders Consultative
Forum
SO2 ............... Sulphur dioxide
STP ............... Scheduled Trade Permit
tpa ................. Tons per annum
tpd ................ Tons per day
TRS .............. Total reduced sulphurs
TSP ............... Total Suspended Particulates
UKZN .......... University of KwaZulu-Natal
USEPA ......... United States Environmental Protection Agency
VOCs ........... Volatile Organic Compounds
WHO ............ World Health Organisation
μg/m3 ........... Micrograms per cubic meter
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 05

1. THE SOUTH DURBAN
CASE STUDY:
INTRODUCTION
The South Durban Basin (SDB) is a melting pot of heavy industry in
close proximity to residential areas. This is a result of poor planning
and ad-hoc industrial development, with little consideration for the
cumulative effects of air pollution and its associated health effects
on the surrounding communities. Exacerbating the problem is
the convergence of major traffic routes and geographical factors
(meteorology, complex topography) which predispose the area to poor
pollution dispersion potential, particularly during winter.
The area is considered to be the economic hub of KwaZulu-Natal
(KZN), contributing some 8% of the GDP (Chetty, 2005), with key
industries including two oil refineries, a paper and pulp plant, sugar
refinery, chemical industries, the busiest port in Africa, an airport and
various medium to smaller industry, all within an area of some 100
km2. However, the basin is also the home to some 200 000 people.
The siting of communities on the doorstep of industry is a legacy
of poor apartheid planning practices dating back to the late 1950’s,
1960’s and 1970’s, when it was considered advantageous to locate
working class communities close to the workplace. It is not surprising
that this situation has resulted in conflict between industry and
Figure 1: View of southern portion of Engen refinery from residential of
Austerville, with suburb of Merewent in background and on the right.
PG / 06
communities, who wish to claim their constitutional right as protected
by section 24 of the Constitution of the Republic of South Africa Act
No 108 of 1996 (Constitution), which guarantees a clean and healthy
environment.
For some time the South Durban Basin was recognised as a pollution
“hot-spot”. Pressure from community leaders ultimately led to the
announcement by the former Minister of Environmental Affairs, Mr
Valli Moosa, of the South Durban Basin Multi-point Plan (SDBMPP)
in November 2000. The plan included various measures to improve
understanding of the state of air pollution in the area and to improve
the air quality. This document takes you through the development and
outputs of the SDBMPP, as a case study of air quality management in
a pollution “hot spot”.
The geographic setting and meteorological factors that contribute to
elevated air pollution concentrations in South Durban are described,
followed by a background to the motivation for the Multi-point
Plan. The outputs of the Multi-point Plan (MPP) and achievement of
goals is assessed, with some detail given to the Health Study and the
air quality monitoring network. The status of air quality before and
after implementation of the MPP is discussed and an overview of air
quality management in South Durban is presented. Lastly, stakeholder
opinions of the MPP are provided to give an insight into whether
there is a perception that the MPP is working or not, followed by a
summary of findings.

2. AN OVERVIEW OF
SOUTH DURBAN
2.1. GEOGRAPHICAL SETTING
The South Durban Basin (SDB) is an approximate 4 km wide area
on the eastern seaboard of South Africa, extending south from the
Durban Central Business District (CBD) for 24 km to Umbogintwini.
It includes the CBD and Port of Durban, which is the busiest in Africa
and the main point of entry for containers into South Africa (Fig. 2).
The “basin” is bordered on its seaward side by ancient sand dunes
parallel to the coast, attaining a height of some 70 to 110m, and on
the landward side by a ridge of hills 100 to 150 m high, which are the
start of rising topography extending inland.
Industrial development in the area started in the mid-1950’s, with
most industry located on the fl at areas comprising the remnants of
the Umlazi, Isipingo and Umbogintwini fl ood plains within the SDB.
Development progressed in a haphazard way, with little consideration
Figure 2: The South Durban Basin
Figure 3: View of South Durban from Wentworth, showing from left
Engen refi nery, in the centre Sapref refi nery, and to the right Mondi.
for the pollution load into the atmosphere and the combined effects
of air pollution. Some 600 industries are reportedly located in South
Durban, including two of the countries largest refi neries, viz. Sapref
owned jointly by Shell and BP, and Engen owned by Petronas;
a paper pulp plant (Mondi), sugar refi nery (Tongaat-Hulett), a
sewage treatment works, a cluster of chemicals industries, major
petrochemical and chemical storage facilities, textile manufacturing,
metal smelting, oil refi ning, breweries, paint industry, motor industry,
etc. Many of the smaller industries emit pollutants at low height. The
Single Buoy Mooring (SBM) some 1 km offshore of the Bluff is the
main point of entry for crude oil into the country.
The oil refi neries, paper producer and sugar refi nery are responsible
for 80% of the SO2 pollution load (eThekwini Health and Norwegian
Institute for Air Research, 2007). The contribution of ever-increasing
vehicular traffi c, exacerbated by a dysfunctional rail service, and
shipping to pollution levels cannot be ignored. The SDB is the focal
point of many of the city’s major transport routes, e.g. the north-
south N2 (which connects to the N3 inland) and M4 highways,
South Coast Rd, and the east-west M7 (Edwin Swales Dr, which also
connects to the N3), and it is home to an international airport. The
airport has been a limiting factor in permissible stack heights. The
recent confi rmation of the airport move to a site at La Mercy north of
Durban will result in some changes to the SDB.
There are some 200 000 people living in the suburbs of the Bluff
(including Bayhead and Island View), Clairwood, Jacobs, Mobeni,
Wentworth, Merebank, Merewent, Prospecton, Isipingo, and
Lamontville, extending to Athlone Park and Amanzimtoti in the
south. Some of the non-white population lived in the area before the
arrival of industry, with some trading as market gardeners, while
others were settled into small retirement homes in the Merewent area.
These communities still remember the forests separating their houses
from what was later to become the Engen refi nery. However, many
were later (forcibly) settled in suburbs bordering the industrial areas
as a result of past racial discriminatory policies by the (then) ruling
government, with the backing of the Group Areas Act of 1950. This
policy placed communities on the doorstep of industry so that the
workforce was close to the workplace.
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 07

Figure 4: View from Wentworth westwards over the Jacobs to Mobeni industrial areas
2.2. METEOROLOGICAL OVERVIEW
Winds in the Durban basin blow most frequently from the southsouth-west
to south-west and north-north-east to north-east in roughly
equal proportions (Fig. 5). The north-north-east to north-easterly
winds are associated with high atmospheric pressure and fine weather
and the south-south-west to south-westerly winds are associated
with the passage of coastal low pressure systems and cold fronts and
therefore inclement weather. The direction of predominant winds
parallel to the coast and the topography results in channeling of
pollutants within the basin.
Wind speeds are generally higher during the daytime and northeasterly
wind flow is enhanced by seabreezes, particularly during
summer. This means that dispersion conditions are generally better
during daytime than night time. Wind speeds are also generally higher
during the spring months of September to November and lower
during autumn to winter (April to June). High levels of pollutants
are generally connected to low wind speed conditions in winter at
nighttime and early morning. This is because of poor vertical mixing
and low horizontal transport out of the source area.
Dispersion conditions deteriorate when there is a temperature
inversion. A temperature inversion refers to an increase in air
temperature with height (as opposed to a normal decrease as one
goes higher). Inversions are more frequent overnight during calm
weather periods in winter and are generally strongest in the morning
hours. The inversion acts as a “lid”, trapping the pollutants close to
the ground, preventing upward movement of air. Combined with
low wind speeds, increased ground level pollution concentrations can
result. During calms air flow is often reversible, which can result in
recirculation of pollutants within the area. Pollution levels can also
increase through the transport of pollutants from inland areas down to
the coast by north-westerly land breezes at night during winter.
PG / 08
Dispersion conditions are improved during the summer months
due to less stable air conditions, higher wind speeds and increased
rainfall, which effectively ventilates the area and mixes the pollution
to acceptable levels. Annual rainfall is on average 1 009 mm, with
most falling in summer. Rainfall removes dust and gasses from the
atmosphere. Humidity levels are high in summer, frequently reaching
over 100%, while lower levels are recorded during winter, with a
minimum of 20%. The higher relative humidity during summer also
means that chemical transformations which require water vapour
(e.g. conversion of SO2 to sulphate aerosols) are performed more
efficiently and therefore airborne pollutants are removed more
rapidly than during drier conditions in winter. Air temperature ranges
from daily averages of 16.6oC in winter to 24.6oC in summer, with
extreme ranges of
3 to 40oC.
Figure 5: Wind rose for Wentworth, Durban,
1999-2003, based on hourly average winds (m/s).

3. MULTI-POINT PLAN
“THE STORY”
3.1. HISTORICAL BACKGROUND
Industrial development in the SDB from the mid-1950’s onwards
contributed to increased air pollution concentrations in South Durban,
peaking in the late 1980’s to early 1990’s. Surrounding communities
began to voice their concern about rising pollution levels and their
associated health effects. In addition, poor operating practices by
industry and lagging reactive legislation put the community at risk as a
result of industrial accidents and inadequate emergency plans.
Sulphur dioxide (SO2) is a recognised indicator pollutant as it is
associated with industrial fuel burning.Elevated SO2 concentrations
are known to cause respiratory problems. The Council for Scientifi c
and Industrial Research (CSIR) initiated a country-wide system for
measuring SO2 (by means of bubbler instruments) and smoke (using a
soiling index) during the 1960’s. In Durban smoke and SO2 data were
recorded by the former Durban Municipality at various stations as
48 to 72 hourly averages and initial indications showed the SDB was
indeed an area of concern (Bissett, 1995).
A number of initiatives were undertaken to address the air pollution
problem dating back to the 1960’s, focusing mainly on SO2. A South
Durban SO2 Liaison Committee was established by industry, local
authorities and national authorities in the 1960’s (Butler & Hallowes,
2002). By the early 1980’s this became the Wentworth/Merebank
Figure 6: A community surrounded by industry
Sulphur Dioxide Committee (Wiley, et al, 1996) and membership was
later expanded to those industries emitting more than two tons of SO2
per day.
Community Mobilisation
South Durban has one of the longest histories of community
mobilizing against urban industrial pollution in South Africa (Wiley, et
al, 1996). The Merebank Residents Association (MRA), which formed
in 1964, was one of the fi rst organisations in South Africa to take on
urban environmental issues raising concerns about industrial expansion
and increasing pollution levels in the area. Later the South Durban
Environmental Forum (SDEF) formed, which was the precursor to
the South Durban Community Environmental Alliance (SDCEA), an
environmental justice organisation which formed in 1996, comprising
14 affi liate organisations, among these the MRA, Bluff Ratepayers
Association and Wentworth Development Forum. The environmental
justice organisation, groundWork, which formed in 1999, has also
been an active campaigner for previously disadvantaged communities
against pollution in the SDB and has received international recognition
for its efforts. As a result of these initiatives community awareness
increased and pressure was put on surrounding industry to clean up
their act. Industry recognised the need for public awareness and liaison
and to this end the African Explosives and Chemical Industries (AECI)
in Umbogintwini established the fi rst Community Awareness and
Environmental Response (CAER) Committee in SA in 1993, followed
by Engen in 1995. The Sapref Community Liaison Forum was only
established at a later stage, in 2004, and Tongaat-Hulett Community
Liaison Forum in 2006.
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 09

The South Durban SO2 Steering Committee
The need for more accurate and continuous SO2 and meteorological
data collection in South Durban was identified and to this end the
South Durban Sulphur Dioxide Management System Steering
Committee was formed in 1994. The Committee included
representatives from industry, local authorities, national authorities
and the local community, with the community being represented by
SDCEA. The industry representatives on the Committee comprised
those emitting more than one ton SO2 per day and membership fees
were levied according to the amount of SO2 emitted (the polluter pays
principle). These fees were used to fund a monitoring network and
reporting system and a Section 21 company was formed to manage the
funds, assets and the management process.
The function of the Steering Committee was to monitor ambient
SO2 concentrations, together with meteorological data, to facilitate
management strategies for industrial pollution control in the South
Durban region. Sulphur dioxide was used as the indicator pollutant,
with the premise that the other pollutants of concern were usually
emitted in similar ratios. A monitoring network of four stations was
established at Wentworth, Southern Sewage Works, AECI and Athlone
Park. Reporting was done on a daily, weekly, monthly and annual
basis and quality assured SO2 data was available from 1 July 1996.
Dispersion modeling and analysis of pollution incident case studies
were accomplished through use of the Hawk model, which predicted
3.2. MOTIVATION AND DEVELOPMENT
OF THE MULTI-POINT PLAN
The Multi-point Plan came about after relentless efforts by air
pollution-affected communities to improve their living environment.
There were numerous complaints about odours, chemical leaks, flares,
visible emissions and health complaints from the SDB community.
Ambient SO2 concentrations in the SDB were also among the highest
in South Africa. A series of newspaper articles by Tony Carnie of
“The Mercury” highlighted the possible links to higher incidences
of cancer and respiratory disease in the area. Further, according to
Wiley (1996), a study by Dr B Kistnasamy in 1994 had indicated that
PG / 10
SO2 concentrations and source apportionment based on topography,
real-time meteorological data and an updated SO2 emission inventory.
The Committee also applied stricter guidelines than those listed in the
Air Pollution Prevention Act (1965); which were more closely aligned
to the World Health Organisation (WHO) guidelines at the time (refer
Table 1). The South Durban monitoring system experienced various
name changes since inception, ultimately being named the eThekwini
Air Quality Management Association, although the functions and
personnel remained essentially the same. The name change came
about as a result of the ultimate recognition that there were pollutants
other than SO2 in the SDB that were of concern, and as a result, ozone
and NOx analysers were added to the array of instruments at the
Wentworth station.
The location of some monitors changed over time and a mobile station
was acquired to measure SO2 in areas where concern was expressed
about pollution levels. This ultimately led to the establishment by the
eThekwini Municipality of a monitoring station at Settlers School in
October 2000, following frequent complaints about health problems
related to air pollution. This station was the first in the SDB to monitor
CO, TRS and PM10 continuously, in addition to SO2, NO2, NOx,
and NO. The eThekwini Air Quality Management Association was
terminated at the end of 2003, when the eThekwini Municipality
implemented a new and expanded monitoring network, in terms of the
South Durban Basin Multi-Point Plan.
Table 1: South Durban Steering Committee guidelines for atmospheric SO2
as compared to APPA (1965) and WHO guidelines (ppb).
children from a school in Merebank experienced approximately three
times more respiratory illnesses than children from a comparable
community in Chatsworth.
Although some improvements had been noted in the number of SO2
guideline exceedances with the conversion by some companies from
heavy fuel oil (HFO) to electricity and gas for energy during the late
1990’s and early 2000’s, there was still an unacceptable number of
exceedances of the SO2 guidelines measured at the Southern Works,
Settlers School, and Wentworth monitoring stations. Added to this
was the influence of ever-increasing vehicular traffic. At the same
time, it was also recognised that the SDB was an important economic

centre, and that proper planning was needed for industry and
communities to co-exist.
It was not only the communities, however, that put pressure on
government, the City Health department also recognised the
problem and made representation. Things came to a head after
a visit by former South African president, Mr Nelson Mandela,
and former Deputy Minister of Environment, Mr Bantu Holomisa
to Durban was intercepted by the community and attention was
drawn to the problem. A report by Dr Timothy Fasheun of the
provincial DAEA was submitted to the former provincial Minister
of Environment, Mr Narend Singh, who then forwarded it to
the former Minister of Environmental Affairs & Tourism Mr
Mohammed “Valli” Moosa. It was decided that “the peculiarities
and worrying levels of pollution in the south Durban area warranted
a singular and co-ordinated approach from government” (Valli
Moosa). A Task Team, involving three spheres of government, viz.
national, provincial and local government, (Table 2) was set up
during May 2000 to address the problem and develop proposals
with an action plan, including timeframes. This heralded a fi rst for
the regulators, bringing together all three spheres of government
to resolve a common issue. The various issues of concern were
debated between representatives of government, industry and
community and a way forward to addressing the problem was
conceived. Subsequent to that “Multi-point Plan” was formulated to
address the air pollution problem in South Durban.
The plan was fi nalised on 24 September 2000 and presented to
a forum of industry, Non-Governmental Organisations (NGO’s)
and government, after which it was tabled before Cabinet and
approved during October 2000. The Multi-point Plan was offi cially
announced by Minister Moosa at a workshop between government
and key stakeholders on 27 November 2000. Key government
representatives present included the Deputy Minister of DEAT,
Ms Rejoice Mabudafhasi; Minister of Trade and Industry, Mr
Alec Erwin; MEC, Mr Narend Singh; and Durban Mayor, Mr
Obed Mlaba. The MPP was recognised as “a sign of government’s
determination and commitment and will set a precedent to be
followed in the rest of the country” (Mr Mohammed “Valli”
Moosa). The MPP acknowledged the historical context, the
importance of continued economic development and the need
to address critical health issues (Naidoo, et. al, 2007). “Unlike
environmental governance during the apartheid era which was
characterized by ineffective regulatory policies, top down decision
making and high levels of industrial pollution, the Multi-point
Plan was founded in a democracy with strong provisions for
environmental protection and promoting the health and well-being
of people as enshrined in the Constitution and in the national
environmental policy framework.” (Message of support: Ms Rejoice
Mabudhafasi, deputy minister DEAT).
“The peculiarities and worrying levels of pollution in the south
Durban area warranted a singular and co-ordinated approach
from government” (Minister Mohammed “Valli” Moosa)
Table 2: Government departments involved in the MPP.
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 11

3.3. FUNDAMENTALS
OF THE MULTI-POINT PLAN
The objective of the MPP Air Quality Management System is: “To
manage the pollutant “carrying capacity” of the atmosphere in
the South Durban Basin to a level that is conducive to the health
and well-being of the people living there” (SDBMPP Information
Newsletter No.1, Oct 2002). The lead agent for implementation is the
eThekwini Municipality.
3.3.1 Goals
The aim of the Multi-point Plan is:
• To provide an improved and integrated decision making
framework for air pollution management at local
government level
• To move towards a reduction in air pollution to meet health based
air quality standards
• To achieve an improved quality of life for the local
community
3.3.2. Key components
The key components of the MPP were discussed at length and
experienced some change during deliberation, with the following key
components ultimately decided upon:
• A health risk assessment
• An epidemiological study
• Phasing out programme for dirty fuels
• Establishment of an Air Quality Management System
• Controlling chemical and fugitive emissions
• Strengthening the inspectorate auditing and permitting system)
• Development of a local legal framework
• Reviewing of standards for priority pollutants
• Reviewing standards for vehicle emissions
The health risk assessment and epidemiological study were combined
into one component and vehicle emission standards were added to
the list at a later stage. It was agreed that the implementation of much
of the MPP would best be achieved through a structured Air Quality
Management Plan (AQMP), which is a requirement for municipalities
in terms of the NEMAQA, thus much of the above forms part of the
eThekwini Municipality AQMP process, which has been ongoing
since 2005.
3.3.3 Benefits
Anticipated benefits of the MPP were listed as follows:
• Reduction of air pollution levels to an acceptable standard
• Promotion of business competitiveness in the SDB
• Demonstrate the effectiveness of multi-stakeholder co-operation in
managing complex air pollution problems
• Contribution to the overall improvement of the City of Durban,
its people and visitors
• Serve as an example in helping to resolve similar air pollution
problems in other parts of the country
The latter point has been applied in the formulation of this document,
which showcases the SDB and MPP as a case study.
3.3.4 Strategic
importance of the MPP
Strategic factors identified by the Programme Manager are as follows:
PG / 12
• Outcomes will contribute to and inform the development of a
National Air Quality Management Programme
• Represents a new approach to Air Quality Management in South
Africa
• A paradigm shift from source based emission command-and-
control to integrated ambient air
quality management
• Meaningful framework to put cleaner production into operation
and achieve sustainable development
3.4. PARTICIPANTS
A critical component in the implementation of the MPP has been
multi-stakeholder involvement. “The MPP represents a significant
departure from the planning and implementation processes of the
past, one of the key features being the facilitation of multi-stakeholder
co-operation, thus ensuring that the concerns of all interest groups
are appropriately raised, heard and dealt with” (Newsletter No.2,
July 2003). Each element of the MPP has been based on transparent
planning to ensure industry and community are democratically
involved in the process. This is essential to the challenging task of
managing sustainable industrial development in the SDB, while at the
same time endeavouring to improve air quality. Thus, government,
community and industry are given the opportunity to constructively
work together towards a common goal.
Two different panels were established to meet every two months to
monitor and discuss progress of the Multi-point Plan. These are:
1. South Durban Basin Inter-governmental Coordinating
Committee (SDBIGCC) – this consists of representatives
from the three spheres of government, viz. the implementing
authority (local government), provincial and national government.
The departments listed under Chapter 3.2, Table 2 are all
represented on the IGCC.
2. South Durban Basin Stakeholders Consultative Forum
(SDBSCF) – this includes representatives from the implementing
authority (local government), community (SDCEA), labour,
industry and business.
Figure 7: Mr Desmond D’Sa of SDCEA, who
has been a campaigner for the community
throughout the Multi-point Plan process.

Meeting sessions facilitate feedback on the MPP and stakeholders
are given the opportunity to voice any concerns or criticism of the
process, with the overall aim to improve the outcomes of the MPP.
Committed participants of the MPP include:
• Local, provincial and national role players
• Decision makers
• NGO’s representing local communities
• Scientifi c community
• Polluters
• Public
• Politicians
3.5. LEGISLATIVE AND REGULATORY
CONTEXT AND FUNDING
Government has recognised the fact that the South African
constitution stipulates that people have a right to a clean and healthy
environment. The Multi-point Plan was addressed in Cabinet
Memorandum 34/2000 and submitted on 25 October 2000. It was
endorsed by the Cabinet Committee for the Economic Sector on 1
and 8 November 2000. The endorsement and support for the MPP by
National government was a fi rst in respect of addressing a problem
of this nature. At the SDBIGCC Meeting on 8 February 2001 it
was decided to table the MPP as a Memorandum of Agreement, to
be signed by all government parties involved. This Memorandum
committed the relevant government departments to a programme of
action and funding to reduce air pollution to acceptable levels in the
Information sharing
Information has been disseminated as follows:
• The Programme Manager has actively met with community
and industry stakeholders to promote the plan and ensure
stakeholder involvement and participation.
• Various workshops and seminars have been conducted.
• Press releases, including the eThekwini Municipality eZingazi
and Metro Beat magazine, South Coast Sun.
• Series of SDBMPP Newsletters published by eThekwini
Municipality.
• eThekwini Municipality website: http://www.durban.gov.za
and air quality data and reports available on
http://www2.nilu.no/airquality
View westward from the southern Bluff across houses of Merewent in the
foreground to Mondi and southern extent of the Southern Sewage Works.
“The experience of the Multi-point Plan has shown that only a
multi-stakeholder approach underpinned by good science and
policy will bring about meaningful change.”
(Cllr Nomvusa Shabala, opening address: Seminar on AQMP for
eThekwini Municipality, May 2007).
SDB. The responsibilities of each government department were laid
out and a business plan was compiled to see the project through.
A total projected budget of R23.5 million was initially estimated,
with a 50% contribution from industry, and the balance to come from
government and sourced funding. This was later increased to R29.8
million, with R10 million to be funded by industry, based on the
polluter pays principle (i.e. in proportion to the volume of priority
pollutants emitted), and R17.7 million from the three spheres of
government, the balance to be from sourced funding. Norwegian
Agency for Development Cooperation (NORAD) funding was
obtained and channeled through DEAT. In addition, the eThekwini
Municipality budget for monitoring activities is R4 million per annum
(Chetty, 2004).
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 13

4. MPP PROGRESS
ON COMPONENTS
The MPP has become a leader in the approach to air pollution
management through the achievement of the components as follows:
4.1. HEALTH RISK ASSESSMENT
AND EPIDEMIOLOGICAL STUDY
The components of the health risk assessment and epidemiological
study were closely integrated and it was decided to combine them.
A tender of R7 million was awarded to the UKZN Centre for
Occupational Health and Hygiene and University of Michigan on 28
May 2003*, with funding obtained from the eThekwini Municipality,
KZN Provincial Department of Health and National Department of
Environmental Affairs and Tourism. The two main objectives of the
study were:
1. Epidemiological study – to scientifically determine whether people
in the SDB were exposed to levels of pollution that is adverse
to their health and well being. This was achieved by determining
the health status of residents, with specific reference to respiratory
health and chronic diseases, and to determine the relationship
between pollution, health and quality of life within the South
Durban communities, particularly among susceptible populations.
PG / 14
2. Health Risk Assessment (HRA) – to use data generated by the
Air Quality Management System to describe the range of ambient
exposure and to determine which population groups were more
vulnerable by undertaking exposure studies to assess the potential
risks to their health.
* The study was conducted from May 2004 to February 2005 and results were
published in February 2007. Principal authors were Professors R Naidoo, N
Gqaleni, S Baterman and T Robins, supported by a research team of a further
20 participants from the UKZN Centre for Occupational Health and Hygiene,
University of Michigan Department of Environmental Health Services, Durban
Institute of Technology (DIT) Department of Environmental Health Sciences and
the National Institute for Occupational Health.
4.1.1 Study approach
The official Health Study was preceded by a health study at Settlers
School conducted in 2002, which indicated a 52% occurrence
of asthma in children at the school, with 26% persistent cases
(Seetharam & Jeena, 2002). This exceeds the average of 14 to 16%
in Europe and was cause for concern. The focus of the Health Study
was on respiratory health, as methodologies for determining the
relationship between respiratory outcomes and air pollution are well
established and validated and there tends to be a higher incidence of
respiratory diseases in low to middle class communities. Ambient
and indoor exposure monitoring was conducted in comparable
communities in the north and south of Durban and comparison was
made to air quality monitoring data and meteorological data from
Settler’s School children, Lakhimpur Rd, Merewent.

the MPP monitoring sites and meteorological data measured at the
Durban International Airport.
Key research questions were:
• How often do primary school students members have respiratory
health problems?
• Do outdoor air pollutants affect the lung function of the students?
• Do those students with asthma suffer more from air pollution?
• How often do primary school students report other doctor-
diagnosed illnesses or symptoms of such illnesses?
Participants were selected from
• Four schools in south Durban: Assegai (Wentworth/Austerville),
Nizam (Merebank), Dirkie Uys (Bluff) and Entuthukweni
(Lamontwille), and
• Three schools in north Durban: Briardale (Newlands West),
Ferndale (Newlands East) and Ngazana (KwaMashu).
Each child underwent baseline assessments, genetic profi ling and
allergen testing and interviews were conducted with the child, the
child’s caregiver, head of the household and adult interviews. A total
of 423 pupils were assessed, divided up into:
• All pupils from one or two Grade 4 classes (342 pupils)
• Persistent asthmatics from Grade 3 to 5 classes (81 pupils)
The study consisted of four intensive 3-week phases where air
pollutant exposures were monitored either continuously or integrated
over 24-hour periods, with simultaneous bihourly assessment of
students while at school. The four study periods were scheduled
to ensure seasonal variability was accounted for. The bi-hourly
assessments consisted of lung function tests, including peak
expiratory fl ow and forced expiratory volume in one second using
digital handheld peak fl ow meters. A symptom and activity log was
also completed for the preceding one and-a-half hour period.
Further elements of the study included indoor pollution
measurements at 140 homes drawn from 7 communities and
biological monitoring of lead and manganese in blood drawn from
400 children. The indoor home environment was assessed by a walk-
through inspection and monitoring.
4.1.2 Findings
A summary of key fi ndings of the health and epidemiological study is
detailed below:
• Moderate ambient concentrations of NO2, NO, PM10 and SO2
were strongly and signifi cantly associated with reduced
lung function among children with persistent asthma.
• A modest increase in air pollution adversely affected pulmonary
function of sensitive subpopulations.
• Attending primary school in South Durban as compared to
schools in the north of the city was signifi cantly associated with
an increased risk for persistent asthma
and for marked airway hyper-reactivity.
• Asthma is by far the most common chronic disease reported
amongst children in the study. Asthma prevalence or prevalence
markers are at the high end of the range internationally,
particularly for the population in the south.
• The prevalence of respiratory ill-health at Settlers School was
much higher than at the South Durban schools sampled in
the health study. Intensive interventions and control strategies
should be applied, e.g. emission reductions at nearby industrial
sources, shelter indoors in appropriately fi ltered environment.
• Adults residing in south Durban were signifi cantly associated
with hayfever, and marginally associated with chronic bronchitis,
wheezing, shortness of breath, and hypertension.
• Assessment of residential and school environments showed
that indoor combustion sources, in particular paraffi n stoves,
create excessive levels of CO, PM and VOCs, and the potential
for serious adverse health effects.
The study fi ndings provided evidence that current levels of air
pollutants are causing acute adverse effects among susceptible
children who constitute a signifi cant fraction of all exposed children.
The fi ndings suggest that industrial pollution is having a negative
impact on the respiratory health of these schoolchildren.
The Health Study was completed in July 2006 and was subject to a
peer review process. A fi nal report was produced in February 2007,
but the inclusion of the peer review comments to the main report are
still being debated by industry, although the core scientifi c fi ndings
have been accepted. The Health Study concentrated on the links
to respiratory health. The Health Study could not show whether
industrial pollution causes leukaemia and cancer and did not address
the incidence of leukaemia and cancer in South Durban, although
substantial levels of several carcinogens were found in the ambient
air and the estimated lifetime cancer risk at three sites sampled was
well above guideline levels. It was recommended that measures to
reduce emissions of carcinogens appeared warranted and recognised
that a separate study including cancer registries and large comparative
databases was required. This study is reportedly currently underway
(S Chetty, pers. comm.).
4.2. Phasing out of dirty fuels
The combustion of dirty and high sulphur fuels results in the emission
of high volumes of particulates and SO2, along with NOx, un-burnt
hydrocarbons, particulates and CO. Low grade coal is abundant
and cheaply available in South Africa. Use of cleaner fuels, such as
methane gas, low sulphur fossil fuels, and bio-fuels and the adoption
of newer, cleaner production methods and technology will contribute
to a reduction in ambient pollution levels. It was recognised that
consultation with relevant industry was required in order to achieve
this objective and in order to do this, the dirty fuel users fi rst need
to be identifi ed and then technology options discussed and socio-
economic benefi ts evaluated.
Process steps to phase out dirty fuels have been listed by the
Programme Manager as:
• Consultation phase - information gathering, who is using dirty
fuels in SDB?
• Assess pollution potential
• What measures will reduce pollution?
• Prioriatisation of measures
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 15

• Identification of alternative technologies
• Identification of incentive programmes
• Government to provide information package
• Industry to develop Programme of Action with milestones
• Government to examine plans and approve/disapprove
• Implementation to be overseen by IGCC
• AQMS to measure effectiveness
The time frame for the phasing out of dirty fuels is not clear and it
requires more focus. There is a need to measure impacts of dirty fuels.
This initiative falls under the current responsibility of the Department
of Minerals and Energy (DME) and is being addressed at a national
level.
4.3. ESTABLISHMENT OF AN AIR
QUALITY MANAGEMENT SYSTEM (AQMS)
An Air Quality Management System is required for understanding
and estimating the contributions to the different sources to air
quality. The AQMS connects emissions through dispersion to air
quality and measurements of air quality to exposure and effects.
An AQMS typically requires an air quality monitoring network,
including meteorological monitoring, emission inventories, dispersion
modeling, exposure modeling and assessment of health effects.
4.3.1 Functions of the AQMS
• Measured and modeled data is used to pinpoint sources and link
pollution to the emitter. It shows the linkages between
emissions and ambient concentrations and indicates which
sources are contributing and
the extent to which these sources are making an impact.
• The AQMS can be used as a planning tool to manage air quality.
• The AQMS can be used to predict the effects of new
developments on ambient air quality, i.e., the cumulative impact.
It can be used to determine if the receiving environment can
assimilate the extra load, or if changes are needed (stricter limits
for all, or just the new entries) to accommodate the development.
• Using measured and modeled data the AQMS can be used to
analyse pollutant trends over time and monitor whether
interventions to reduce air pollution are effective or not.
• The AQMS provides the necessary background information
required for the eThekwini Air Quality Management Plan.
4.3.2 The monitoring system
An expanded air monitoring network was proposed to provide air
quality information to support decision-making. The main objective
of the network is to provide a quantitative measure of air quality,
measure compliance with air quality standards and provide a means of
verification and input for dispersion models (eThekwini Health Dept,
2004). This has been the most significant output of the MPP. To this
end a R9 million contract was awarded. The network was set up by
consultants in 2003, who worked closely with the Municipality and
industry to assist in capacity building and technology transfer. The
Municipality assumed complete control of the monitoring system by
PG / 16
October 2004 and running costs are budgeted at R4 million p.a. The
monitoring system consists of the following:
• The establishment of 14 monitoring stations (Fig. 8)
representative of different areas within the SDB for
measurement of continuous air pollutant and meteorological
data. Pollutant monitoring was expanded from the original
emphasis on SO2 to include NOx, NO and NO2, PM10, O3,
CO and TRS. The historic bubbler network was maintained
for trend reviews and to get a better geographical overview.
• Instrumentation at each monitoring station is subject to standard
quality control procedures, e.g. maintenance and calibration, data
verification. Data is quality checked at the technical and logical
level.
• Continuous data, recorded as 5-minute averages, is collected
and stored at each station and transmitted via diginet links
to a base station in the eThekwini Health Department. Selected
data is available in real-time on the internet. Computer software
allows for calculation of 10-minute, hourly and daily averages for
comparison to the various guideline values.
• Weekly reports are compiled by eThekwini Health staff and
distributed to stakeholders, and all data and reports are available
on a website. Annual reports are also compiled in-house and
made available to stakeholders.
• The data is stored and linked to a GIS based air quality
management tool called the AirQUIS (Air Quality Information
System). The system contains modules for measurements of air
quality and meteorology and models for calculating windfields,
concentrations and exposure. The system includes industrial,
mobile sources as well as area sources. The model is capable of
modeling historic and current scenarios, the effects of changes, as
well as forecasting.
• Emissions of SO2 are well mapped in the SDB and mainly
connected to the large industries. There are, however, small
and medium sized industries that are emitting and which are not
included in the inventory. The model is evaluated for SO2.
and can be used for the evaluation of impacts from SO2 sources.
• Work on establishing a NOx emission inventory has begun,
but needs refining. Emissions of NOx are related to traffic and
industry.
• Emissions of VOC’s are connected to the refineries, storage of
VOC and use in transport. The VOC emissions are partly
mapped, but further work is still required.
• VOC monitoring: Benzene monitoring in priority areas was
added to the AQMS and is covered in Chapter 4.4.
• An H 2S survey was undertaken in the Merebank area in 2004 to
determine odour sources.

Figure 8: Location of MPP air quality monitoring
stations (supplied by eThekwini Municipality)
4.4. CONTROLLING CHEMICAL
AND FUGITIVE EMISSIONS
The aims were to investigate the status of volatile emissions, to
improve the measurement of fugitive emissions and to develop
guidelines for reducing emissions. To this end it was fi rst necessary
to identify the spatial distribution of VOC concentrations in the form
of benzene, ethyl benzene, toluene and xylene (BTEX). The key
elements of this strategy, as listed in the eThekwini Municipality
AQMP (2007), involved:
• Identifi cation of key source contributors to VOC emissions
• The specifi c focus on VOCs was limited to benzene, toluene,
Figure 10: Results of BTEX Screening Study, Total BTEX concentration,
August 2003 (after Shongwe, 2007)
Figure 9: MPP air quality monitoring station at City Hall
ethyl benzene and xylene (BTEX) as these compounds are priority
toxics and have established guideline values
• Establishing areas where concentrations are likely to be high
• Undertaking of a VOC screening study
• Identifi cation of major VOC sources in the South Durban Area
• Planning for a BTEX passive sampling study
• Deployment of regular BTEX sampling programme
• Capacity building and information exchange
• Special modifi cations to the permitting process
Vapour recovery systems have been installed by Island View
operators (e.g. Total and Shell) to control VOC emissions, while both
refi neries report large reductions in VOC emissions.
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 17

Benzene monitoring:
A BTEX monitoring programme was initiated. The time resolution of
the data is weekly averages, therefore the sources of benzene are not
easily identified (owing to wind variations within a weekly period).
The health effects of benzene are chronic or long term, therefore
the long term average is used to quantify the problem. No level of
exposure of benzene is safe but target limits have been put forward by
the WHO. Measurements in the SDB show that the annual averages
of benzene for 2004 and 2005 were below the WHO guideline of
10 μg/m 3 at all monitoring sites, although most sites were above the
WHO target of 5 μg/m 3 for the year 2010. Highest concentrations
were recorded at the Settlers School station and the eThekwini
Municipality plans to add a continuous BTEX analyser to the station
by the end of 2007.
4.5. STRENGTHENING THE INSPECTORATE
The aim was to improve co-operation between the City Health
Department and DEAT so that the enforcement of air quality
legislation and guidelines would be strengthened. Providing
enforcement means:
• Providing the legal framework with possibilities for prosecution
(refer 4.6)
• Providing guidelines for good air quality (refer 5.7)
• Providing local-national goals with time limits
• Providing guidance for new emissions
This has been achieved through the improvement of the auditing
PG / 18
and permitting system for scheduled trade permits (STP’s). NORAD
funding was obtained and collaboration was established with
NILU. A great amount of work has been put into this aspect and
the inspectorate department has been strengthened. An improved
IT system has also been implemented. The permitting approach is
working well, so much so that the eThekwini permitting system
is the strongest in the country. Emission standards are set and are
subject to continuous improvement, and the use of best available
technology and cleaner production methods has been encouraged.
An Environmental Management System (EMS) and action plans are
requested from industry. There has been a reduction in emissions due
to the permitting system. STP’s are issued for five-year periods, with
a number of reporting requirements, e.g. annual stack monitoring
and in-line stack monitors at some industry, which has improved the
quantification of emissions, annual reporting and compliance. This
work has also provided information on new emissions, e.g. BTEX,
H 2S.
4.6. DEVELOPMENT OF A
LOCAL LEGAL FRAMEWORK
Section 11 (2) of the AQA allows for the establishment of stricter air
quality standards for the municipality or any part of the municipality.
At this stage the existing ambient air quality guidelines for the criteria
pollutants SO2, NO2, Pb, O3, CO, benzene and particulates, as per
Schedule 2 of the AQA are adopted and will be enforced. Industry
scheduled trade permits were extended to the eThekwini Municipality
in October 2005. In terms of the Atmospheric Pollution Prevention
Act No.45 of 1965 provision was made under Sections 18 and 20
Close proximity of Mondi to houses at Merewent west.

for local smoke control regulations and smoke control zones,
respectively, which includes regulations on fuel burning appliances.
While atmospheric pollution by fumes emitted from vehicles
was not regarded as a priority in the past, it is being reconsidered
and by-laws are in the process of being updated. The CSIR was
requested by the eThekwini Municipality to investigate national and
international best practices in air pollution management to be used
for the development of local by-laws for air pollution management.
4.7. REVIEWING OF STANDARDS
FOR PRIORITY POLLUTANTS
On a national level this falls under the current responsibility of
Table 3: Limit values for criteria pollutants (SANS 1929).
Table 4: Target values (SANS 1929).
DEAT. New South African standards for criteria pollutants SO2,
NO2, Pb, O3, CO, benzene and particulates are based on WHO
guidelines. These standards are currently being revised. In terms of
the Air Quality Act, however, stricter targets or standards may be
applied within a Municipality if deemed necessary. If an exceedence
occurs, all sources need to be addressed to bring ambient air quality
levels to within guidelines or standards.
The limit values for priority pollutants released by DEAT for
comment in June 2006 are displayed in Table 3. Target values for
PM10, O3 and Pb as set out in SANS 1929 (2005) are shown
in Table 4.
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 19

4.8. REVIEWING STANDARDS
FOR VEHICLE EMISSIONS
It is not only industry that contributes to air pollution, but also
vehicle emissions, in particular poorly maintained diesel vehicles. A
combination of increased container traffic through Durban harbour
and failure of the national railway system to deliver an efficient
service has contributed to a sharp increase in heavy duty truck traffic
in the SDB. Increased population has also led to increased vehicular
traffic, whether bus, mini-bus or car. Many of the vehicles are old
and/or poorly maintained. On a national level, standards have been
set to reduce lead and sulphur content of petrol, and a national
strategy for controlling tail pipe emissions is to be adopted to conform
to European standards over a 10-year period. Lead in petrol was
phased out at the beginning of 2006. One of the goals of the MPP was
to set vehicle tail pipe emissions standards. A system of controlling
tail pipe emissions, such as the diesel vehicle emission testing in Cape
Town, needs to be introduced into the by-laws and adopted. On a
national scale, the proportion of cars fitted with catalytic converters
needs to be increased and emission standards that are visible,
realistic, measurable and enforceable need to be set. The reviewing
of standards for vehicle emissions is a national responsibility, falling
under DEAT, and progress is currently underway.
4.9. DEVELOPMENT OF AN AIR
QUALITY MANAGEMENT PLAN
The need for an AQMP was recognised by the MPP and it is further
a requirement of Sections 15 to 17 of the AQA. This process is
being undertaken in parallel with the MPP by the eThekwini Health
Department and NILU, with input from stakeholders. Funding for the
development of the AQMP was obtained from NORAD, the Danish
International Development Agency (Danida) Urban Environmental
Management (UEM) Programme and the eThekwini Municipality.
The implementation of the MPP over the last five years has been used
as the institutional and technical platform to enable all the essential
process steps for the AQMP to be documented and undertaken. “The
AQMP is a guiding document and the master plan is a prescription for
action which must get implemented to bring about a change in the air
quality status. The outcome of the AQMP will be incorporated into
the IDP such that it has the political and financial endorsement for
implementation” (AQMP for eThekwini Municipality, 2007).
The process of engaging stakeholders began in November 2005 after
which a framework AQMP was compiled. A series of seminars and
workshops were held with stakeholders during the week of 7th to
10th May 2007 to discuss the AQMP and a draft AQMP has been
compiled. The AQMP is to be treated as a live document and will be
reviewed every five years.
Phase 1: The following thematic issues were selected for
incorporation into the AQMP, based on results of the AQMS, health
studies and public complaints.
• Solve the SO2 problem in the SDB
• Quantify and understand the BTEX and VOC problem
• Characterise the sources contributing towards PM10
• Establish the point and non-point sources contributing towards
odour nuisance
• Determine the pollution impact of flaring from refineries
• Establish the pollution impact from the Jacobs industrial complex
• Establish the extent of indoor air pollution in informal settlements
PG / 20
using fossil fuels (paraffin, wood and coal)
• Traffic emissions were included as an eighth theme following
concerns raised at the workshop in May 2007
Phase 2 is intended to generate an elaborate plan, with source
apportionment, development of control options, cost benefit analysis
and prioritised actions. Phase 3 is to integrate the AQMP into an
action Plan. Through a system of target setting, measurements and
reporting, it is intended to drive down pollution levels within the
framework of an environmental management system and continuous
improvement approach (eThekwini AQMP, 2007).
View of Engen from houses at Austerville.

5. STATUS OF AIR
QUALITY IN
SOUTH DURBAN
5.1. SOURCES
The following sources are the major contributors to atmospheric
pollution in the South Durban basin:
• Industry
• Transport
• Domestic fuel burning
• Biomass burning, including sugar cane, plantation management,
fi re breaks, uncontrolled fi res (which often coincide with poor
air dispersion in winter months)
• Pollutants transported via regional air movements (e.g. from the
interior of the country).
5.2. SUMMARY OF OUTPUTS
FROM THE MONITORING SYSTEM
• The monitoring system has resulted in improved knowledge
for a wider range of pollutants, e.g. in addition to an improved
spatial distribution of SO2, there is now information on
other criteria pollutants. Key fi ndings are that:
1. The major sources of NO2 pollution in South Durban are
traffi c and industry.
2. The annual guideline value for NO2 of 21.0 ppb has been
exceeded at the Warwick and Ganges stations for all years
(2004 to 2006) and at the City Hall station for 2004. These
stations are all representative of vehicular traffi c. Exceedances
of the one-hour NO2 guideline of 106 ppb have fl uctuated from
40 in 2004, to 13 in 2005 to 84 in 2006.
3. PM10 concentrations are a function of local and background
infl uences, with the main local infl uences being traffi c and
industry, and background infl uences being regional biomass
burning, dust and salt.
4. Annual average PM10 concentrations at all stations were
below the annual limit value of 40 μg/m 3 during 2006, however
the limit was exceeded at the Ganges station during 2004 and
2005. The Ganges station is indicative of suburban traffi c, being
located near the southern freeway. Exceedances of the daily
average limit of 75 μg/m 3 have been recorded at all fi ve stations
where PM10 is monitored, with 123 for 2004, 81 for 2005 and
74 for 2006, indicating an overall reduction over the past three
years (Table 5).
5. Southern Waste Water Treatment Works and Mondi were the
major sources of TRS in Merebank.
Table 5: PM10 annual averages and exceedances for 2004 to 2006
(after eThekwini Air Quality Monitoring Network Annual Reports: 2005 and 2006)
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 21

• The bubbler ne�
WHO and DEAT SO2 annual guideline (Fig. 11). The downward trend in annual average SO2 concentrations demonstrates the historical levels
and the improvement since SO2 emission reductions were implemented by major industry starting from the late 1990’s.
Figure 11: Trends in annual average SO2 from eThekwini bubbler stations
• The hot spot stations in terms of SO2 are Southern Works, Wentworth and Settlers, located in the vicinity of the refineries and Mondi. Longterm
comparisons of SO2 annual averages and exceedances are also possible with continuous data from the old network for these stations. This
can be used to gauge whether interventions are improving air quality in terms of measured concentrations. A general decrease in annual average
SO2 (refer Fig. 12) is observable. However, while annual average SO2 is currently below the annual guideline (19 ppb) at all measurement
stations (Figs 11 & 12), there are still guideline exceedances over the shorter term (Figs 13 & 14).
PG / 22
Figure 12: Trends in annual average SO2 from continuous monitoring stations
Note that the Southern Works station has moved to three different locations within the complex, SSW1: 1997-Apr 1998, SSW2:
Apr 1998-Dec 2003, SSW3: 2004-present. The average for 1998 is calculated on a proportional average.

Figure 13: Exceedances of the 24-hour SO2 guideline (48 ppb), 1997-2006.
Figure 14: Exceedances of the 10-minute average SO2 guideline (191 ppb), 2002-2006.
The Southern Works Station is positioned to determine maximum
ground level concentrations and worst case emissions from Sapref
and Mondi. Exceedances of the SO2 guideline are therefore
expected at this site due its close proximity to the industry and
the fact that it is directly downwind from the industry during
predominant SSW to south-westerly winds. The Settlers School
Station is positioned to the south-west of the Engen refi nery and
was intended to determine maximum ground level concentrations
when NNE to north-easterly winds prevail. The station is also
north-east of Sapref and Mondi, and the Southern Sewage Works.
The Wentworth station is situated north-east of Engen and west
of the Jacobs industrial area at an elevation of 78 m, and tends
to measure elevated SO2 concentrations during poor dispersion
conditions in winter.
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 23

5.3. EMISSION REDUCTION STRATEGIES
A reported overall 40% reduction in SO 2 emissions has been achieved
(Chetty, 2005). Various strategies such as fuel switching and control
technologies have been instituted in order to reduce air pollution.
Among these are:
PG / 24
• Installation of a R60 million SO2 scrubber at Mondi has reduced
their SO2 emissions by 50% and removed particulate matter
from the coal combusted flue gas stream. This has been a major
step forward in reducing SO2 exceedances at Southern Works. In
addition, low sulphur HFO is used in the oil fired standby boilers.
However, attention needs to be given to reducing downtime on
the scrubber and use of a reliable backup or switch to gas instead
of coal. Bag filters have reduced emissions of particulate matter.
• Replacement of high sulphur heavy fuel oil with gas at both
refineries.
• The Engen Environmental Improvement Programme, an
agreement between Engen and SDCEA started in 1998,
and has resulted in a 65% reduction in SO2 emissions
(permit was reduced from 72 tpd to 25 tpd), 70%
reduction in particulate matter emissions and major reductions in
VOC emissions, NOx emissions and flaring. An abatement plan
for reducing the exceedances at the Settlers station has been
submitted, but the effects of the different abatements still need to
be quantified.
• Sapref had a programme for a number of reduction measured over
time and these had in fact started before the MPP, e.g. the SCOT
unit. The Sapref SO2 emissions permit was reduced from 50 tpd
up to 2003 to 20 tpd from 2004 onwards, however actual
emissions have reduced from 52 tpd in 1995 to 11 tpd in 2006,
representing a 79% reduction. Monitoring has
shown that everyday operations do not result in 10-minute average
SO2 exceedances. However, NOx emissions have increased by
48% since 2000, from 863 tpa to 1300 tpa in 2006. Low
NOx burners are specified for new installations. VOC emissions
from the plant have decreased by 47% since 1999
(www.sapref.com/initiatives).
• Conversion of many small to medium industries from coal fired
boilers to electricity, Sasol gas or electrode boilers or use of low
sulphur coal and heavy furnace oil (HFO).
• H 2S reductions from Southern Sewage Waste Water Treatment
Works and Mondi
• Initiatives to reduce VOC emissions have been undertaken by
industry such as the refineries and Island View, e.g., double seals
on floating roof tanks.
• Tongaat-Hulett had used coal with no SO2 emission abatement
technology. Improvements started in 2000 through the use
of lower sulphur coal (1.2%), which reduced SO2
emissions by 20%. A change in management has since given
environmental issues priority. A R4 million upgrade of the boilers
was undertaken in 2005 and improved scrubbers have
been installed to remove SO2 and particulate matter from the coal
combusted flue gas stream. SO2 emissions have reduced from 7
tons/day to 2-3 tons/day. Full implementation is anticipated to be
achieved in the year 2008/9 (Chetty, 2006).
• The remaining challenge is to target the small to medium users of
coal and heavy fuel oil, particularly in the Jacobs-Mobeni
area to reduce emissions. This could result in setting a tighter fuel
standard for sulphur content, flue gas desulphurization or some
other measure.
6. AWARDS
The Multi-point Plan has received a number of achievement awards,
among these
• First prize in the Most Improved Category of the Mail &
Guardian’s Greening the Future Awards for the achievement in
multi-stakeholder relations.
• First prize for the most sustainable environmental health project
in SA, conferred on the eThekwini Health Department at the 8th
World Congress on Environmental Health, Durban 2004.
• Best teamwork in the eThekwini Municipality’s City Stars
Competition was awarded to the core team working on the air
quality management system for their teamwork, leadership
and passion.
• International air quality experts from Europe and USA have
given recognition of the state-of-the-art monitoring, data
acquisition and reporting capabilities of the AQMS.
7. STAKEHOLDER
OPINIONS
Interviews were conducted with a cross-section of stakeholders
that have been involved in the Multi-point Plan so that different
impressions of the MPP could be assessed. To this end, interviews
were conducted with representatives from National, Provincial and
Local Government, industry and representative non-governmental
organisations (NGO’s). A list of participants is contained in Appendix
1. In addition, it was decided to conduct a small snap survey among
Merewent residents to gauge the general community (those not
necessarily affiliated to any organisations) awareness and their opinion
of the MPP.
7.1. SUMMARY OF GOVERNMENT,
INDUSTRY AND NGO RESPONSES
7.1.1 Has there been an improvement in
air quality since implementation
of the MPP?
All respondents felt that there had been general improvement in terms

of SO2, however the following issues were raised:
• Emission reductions in some of the larger industries had already
begun prior to implementation of the MPP. Improvements have
happened in spite of the MPP, not because of it.
Big reductions associated with the large emitters have also come
post MPP (Y2000 onwards) and reductions are ongoing.
• The focus has been on industrial SO2 – what about other sources
and other gases and chemicals which may be more toxic or have
greater health effects? There is a need to monitor dioxins.
• The focus has been on big industry, which is a good starting point
and improvements have been made, however there is a need to
shift to other industry. This has been recognised and the current
AQMP will focus on smaller industry.
• Visible pollution is still the same because issues such as biomass
burning and regional infl uences have not been addressed. Tyre
burning remains an issue. The eThekwini Municipality is
engaging on the matter through the AQMP.
• There are no noticeable odour reductions and no indication of
improvements in VOC’s and other chemicals (despite attempts to
reduce VOC emissions).
• There has been an increase in vehicle traffi c and diesel emissions.
Vehicular traffi c impacts have not been suffi ciently addressed.
This is also being addressed through the AQMP.
• Reporting in terms of annual average trends is not always a true
refl ection of what is actually taking place. 10-minute SO2,
hourly and daily trends are, however, available in the weekly
reports, but require interpretation.
7.1.2 Are the authorities
committed to improving air quality?
Most respondents thought in general there was commitment,
especially local commitment. Issues raised include:
• While there may be individual commitment, this may sometimes
be compromised within an organisation.
• Roles and responsibilities of different spheres of government are
not always clear there is sometimes overlap and there are gaps at
Provincial level.
• There is not enough capacitated staff, and there is a need for
skills and the right attitude.
• There is still reluctance from senior political leaders to unsettle
investors and Government considers development as more
important than pollution issues.
• There is the perception that authorities are committed as long
as corrective measures apply to industry, however if they have to
apply corrective action themselves there is a lack of commitment,
e.g. sewage works and addressing vehicle emissions.
works and addressing vehicle emissions.
Sapref flare stacks.
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 25

7.1.3 Is industry committed
to improving air quality?
The results shown in Figure 15 not surprisingly show that
industry’s perception of their performance differs from the other
main stakeholder groups, with representatives from major industry
believing that they are showing commitment, whilst the opinion of
government and NGO’s is not as strongly in favour. Overall, over
50% of respondents felt that industry was showing some commitment
(Fig. 16). However, there was general consensus that the focus
thus far has been on larger industry, while smaller industries have
been ignored and are carrying on as business as usual; it’s a matter
of what they can get away with. However, the cumulative impacts
PG / 26
Figure 15: Response rating of different stakeholder groups
to whether industry is committed to improving air quality.
of a large number of smaller industry can outweigh the impacts of
larger industry. Big industry has been driven more by international
pressure than local authority pressure, and has the resources to
implement improved measures. There was general consensus among
representatives from government and community that industry will
only make improvements if pushed to and will not invest wilfully,
the environment is usually only considered last. Even when there is
commitment, it needs to be transferred into action, and it’s a long road
to solutions (Chetty, pers. comm.). Change will not happen overnight.
Improvements are often tied in with upgrades to increase production,
i.e. are financially driven, and according to their own timeframes and
economic imperatives.
View from Wentworth reservoir westward to Jacobs and Mobeni east.

Figure 16: Overall stakeholder opinion of whether
industry is committed to improving air quality in
South Durban
“Having the data has
meant so much”
(Dixon Lowe, Sapref)
7.1.4 Is there transparency
with regard to access to information?
While sectors from the government and industry felt that there was
suffi cient transparency with regard to access to information, the NGO’s
felt that this was not always the case (Fig. 17), and it depended on what
detail of information was required. Problem areas include the following:
• There is no response from City Health if monitoring results queried.
• Community representatives felt that website results are insuffi cient
to inform, and there is a need for more interpretation at
community level.
• Information under the old SO2 committee was more available, and
there was monthly interpretation of data, which is lacking under the
present system
• Data quality control checks arouse suspicion.
Figure 17: Response rating of different stakeholder groups to whether
there is transparent access to information.
7.1.5 Is there suffi cient
feedback of information?
It was generally felt that the data monitoring system was running
well and “Having the data has meant so much” (Dixon Lowe,
Sapref, pers. comm.). But some felt there could be more mileage
gained from the data. While there is feedback to government,
industry and NGO’s through the Inter Governmental Co-
ordinating Committee (IGCC) and Stakeholders Consultative
Forum (SCF) meetings, there is a lack of feedback to the
community at large. Initially there was feedback of information,
• Dispersion modelling has still not been effectively and effi ciently
implemented.
• The Chemical Industry is still hiding behind the National Keypoints
Act No. 102 of 1980.
but there have been no quarterly feedback meetings over the
past two years. There is a need for more accessible venues to
give feedback to the community and NGO’s would like to see
other staff (apart from the programme manager) coming into the
area and interacting with the community, to explain what they
are doing and progress made. There has been a series of multi
stakeholder engagements as part of the AQMP development
process, the most recent of which has been May 2007, during
which a number of presentations were made on the various air
quality initiatives being undertaken by the Municipality.
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 27

7.1.6 Other issues raised
from the interviews
• The model is not yet an accessible hands-on tool available to
PG / 28
Municipality staff that need to act on air pollution complaints,
and to industry. Although it can ultimately be accessed, it is not
available readily.
• Authorities are still looking at point sources and monitoring
station results, but there is no data or modeling where the
community is. The placement of monitoring stations also needs
to be reviewed (i.e. investigate residential areas). There is a need
for another monitoring station, possibly at Nizam school.
• The Health Study was not conclusive, and incomplete because
it did not include peer review. Possible links to cancer
and leukaemia were not included (refer Section 4.1.2).
• Fines for non-compliance with respect to permits are insufficient
in relation to gross turnover, and need to be relative to the
degree of non-compliance. It is better to provide incentives for
improvement and rather invest to solve problems.
• The implementing authority should be introducing more students
and links to academics – there is a need to integrate with
scientific literature.
• There is a need for a free clinic, open 7-days a week, to residents
seeking medical attention for air pollution-related health
Figure 18: Community awareness of the MPP and opinions
problems. This should be funded by industry, as they are causing
the problems.
7.2. RESULTS FROM SNAP
SURVEY IN MEREWENT
A snap survey was conducted in the Merewent area to gain an
indication of community awareness of the Multi-point plan and
opinions thereof. The survey was conducted on one day along
Lakhimpur Road, although some respondents also resided in nearby
roads and a total of 19 residents were interviewed ranging in age from
16 to 66. The survey was not exhaustive and was conducted with the
intent of getting an initial indication of how the affected community
feels about the air they breathe.
The results are presented in Figure 18. Of those interviewed, only
42% had heard of the Multi-point Plan, but when asked to name
any aspects of it, only 50% actually knew something about it,
which suggests more information sharing is required. Only 21% of
respondents felt that air quality had improved since 2000 and most
(68%) felt that industry wasn’t committed to improving air quality.
Complaints/emergency response
Although this was not an output of the Multi-point Plan, stakeholders
and the community were asked for their opinions on the capabilities
of the emergency response and complaints line operated by the
municipality. There was general agreement that there was a need for
additional staff training and that air pollution complaints should be
separated from emergency calls. A dedicated toll-free 24-hour line
should be set up. Concern was expressed about a lack of follow-up
and feedback to complainants.

Key comments from the community
• Smells and fl ares aren’t as bad anymore.
• Amount of asthma is increasing.
• Oil/diesel/paraffi n smells during late nights and early
mornings – this was noticed by residents closer to Engen.
Oily deposits on clothes, plants and vehicles.
• Industry has interviewed them in the past, but there has never
been any follow-up.
• What evacuation plan is there for people without vehicles?
There were concerns expressed about safety in the event of
an accident.
• Response time to air pollution complaints is too long, but
faster than the police!
• Don’t know what number to dial for air pollution complaints
(the phone numbers have changed).
• Free 24-hour clinic should be made available, sponsored by
refi neries and Mondi, as they are the polluting industries. The
clinic is currently only open 3 days a week.
• Move Engen to the vacant airport site – this will relieve
political tension between industry, community and
government.
• Concerns were voiced regarding about being bought out for
industry.
Figure 19: Resident of Lakhimpur road dwarfed by
nearby Engen emission stack.
Figure 20: Settlers’ School children in the shadow of industry
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 29

8. SUMMARY
To perform good governance of air quality it is important to initiate a
process to raise awareness in the society as such through transparent
information that quantifies levels of pollution that are present, and
defines the severeness and nature of the problem. The Multi-point
Plan is a plan to establish such a system. The plan was developed
and is run by applying a good and sound democratic process, where
stakeholders had and have influence over the steps taken.
8.1. KEY MILESTONES
OF THE MULTI-POINT PLAN
Important achievements of the MPP identified by the Programme
Manager include the following:
• Installation of an improved air quality monitoring network with
integrated data transfer and storage
• Improved ability to pin-point sources of pollution
• Improved access to information through publishing of data and
reports on the internet
• Updating of emission inventory
• A new air quality dispersion model (although there is debate
regarding the accuracy and availability of the model as compared
to the previous model)
• BTEX sampling
• H 2S survey in Merebank area
• Focus on areas of non-compliance and ability to act on data
• Setting of clear objectives in the permitting system and
strengthening of enforcement
• Implementation of emission reduction strategies
• A reported 40% SO2 emission reduction.
• Investment in people through capacity building
• Multi-stakeholder participation in action
• Inter-governmental co-operation in action
• Drafting of the AQMP and foundation for its further development
8.2. LESSONS LEARNT
“The experience of the Multi-point Plan has shown that only a multistakeholder
approach underpinned by good science and policy will
bring about meaningful change.” (Cllr Nomvusa Shabala, opening
address: Seminar on AQMP for eThekwini Municipality, May 2007).
Key success indicators for implementation of the MPP have been:
PG / 30
• The involvement of highly skilled professionals at all key issues
of the projects
• At a National level, there was the recognition that there was a
need to get something done. There has been political commitment
from all three spheres of government
• Funding was available from government and industry
• Multi-stakeholder involvement and transparent accountability
• Co-operation between interest groups
• Implementation with a high level of administrative support and
political will by the eThekwini Municipality (i.e. commitment)
• Capacity building and knowledge transfer
• Co-operation of industry in emission reduction strategies to
introduce best practice technology.
Lessons learnt
• Sharing of data and knowledge is critical.
• Difficult concepts need to be reported in an easily understood
format to ensure all stakeholders are able to get involved and
participate meaningfully.
• By including “human receptors” in the reporting network, e.g.
pollution complaints reporting, there is an added dimension
to indicate problem areas, not only sticking to the scientifically
recorded values.
• There is a need for an integrated transport plan which includes
pollution minimisation aims as well as affordable, flexible and
efficient means to move people.
• Integrated town planning is the only way to minimise the effects
of settlements and industrial development on human health.
• You can fix things locally, but there are also outside influences.
Air pollution does not respect municipal boundaries – the
fires in the Drakensberg affect the air quality in Durban, so
inter-governmental co-ordination is essential to resolving local
problems.
• It is difficult to sustain and keep momentum.
8.3. HAS IT WORKED?
The South Durban Basin should be a showcase as an area that
has been turned around through significant reduction in pollution
through multi-stakeholder co-operation (Chetty, 2006). Has this been
achieved? Has the considerable investment been worthwhile and have
interventions resulted in lower measured pollutant concentrations?
Long-term annual average SO2 concentrations measured at the
“bubbler” and continuous monitoring stations have shown an overall
decrease since introduction of the MPP in 2000. This suggests that
emission reductions, use of improved technology and phasing out of
the use of dirty fuels and have borne fruit. It must be considered that
the MPP generated a process that is ongoing. Currently it has been
taken over by the AQMP and this also will be ongoing, again with
multi-stakeholder input and government direction. However, there are
a number of other issues that require attention.
Outstanding issues
• There remain challenges in terms of short term exceedances
(10-minute and 24-hour averaging interval) for SO2 as measured
at Southern works, Settlers school and Wentworth monitoring
stations.
• Reductions have occurred in respect of a few aspects out of a
whole host of other pollutants. There has been an emphasis on
SO2 and it has been an important starting point. There now needs
to be a shift in focus to other pollutants in the SDB. More
recently benzene, NO2 and PM10 are undergoing increased
analysis.
• Data shows that PM10 has not been as responsive as SO2
concentration in terms of the emission reductions achieved.
However, PM10 sources are not only industrial; a major
contributor is the transport sector, for which interventions
are still required to reduce emissions, whilst there are also

contributions from sugar-cane burning, biomass burning,
construction and quarries.
• There are a lot of traffi c issues. Transportation systems (e.g. rail)
need to be sorted out on a national basis.
• There are gaps in the modelling and the model hasn’t really been
tested. The modelled averages are on average 75% of the
measured concentrations. The timing of the concentrations
and transport of the pollutants is good, but the level is generally
too low. This could be caused by two things: the dispersion is
too fast or the emissions are estimated poorly. It is probably
a combination of the two. The emissions are probably the
most easy to improve (AQMP, 2007).
• There has been waning attendance at the IGCC and
inconsistencies in attendance and representation. Carry-over of
items on the Agenda at the SCF means delays. The fact that
the IGCC meets before the SCF means issues raised at the SCF
are not considered by the IGCC and carry over to the next
meeting for consideration.
On the positive side:
• The South Durban MPP has provided the platform for the
development of an Air Quality Management Plan.
• The MPP prompted industry to take action, where they may not
have done before. It has created awareness and further pressure
has been put on industry through the permitting system.
• Trust has been established between community and the local
authority.
• The eThekwini Municipality has adopted a more consultative
approach to reduce emissions of those industries deemed to
be contributing to guideline exceedances, rather than strict law
enforcement.
• The monitoring system is one of the fl agships of SA; the quality
of reporting (weekly and annual) has been of an acceptable
standard.
• There has been a shift in approach to air quality management
from focusing on the problem to focusing on the resolution of
the problem using the processes in the Air Quality
Management System (Chetty, 2005).
• This approach has demonstrated qualitative and quantitative
improvements in the air quality management regime
(Chetty, 2005).
8.4. RECOMMENDATIONS
Findings from this case study have led to the following
recommendations:
• Focus should move to reducing NO2 and PM10 concentrations.
• Short-term exceedances in SO2 need to be reduced through
further emission reductions.
• Emphasis needed to detect short-term peak emissions of benzene
since exposures can infl uence long-term health.
• Need for a registry on cancer and leukaemia and a study to
determine the linkages.
• Attention needs to be given to smaller industry. Need to look in
more detail at top 100 companies.
• Need to recognise that vehicle emissions are a problem. The
number of heavy vehicles needs to be managed and there is
a need to return to an effi cient rail system.
• Need to address use of heavy fuel oils.
• Install a dedicated toll-free air quality complaints line
• Need for stricter and impartial law enforcement.
• Need for shorter term average data to be available on the internet,
at least hourly average (as opposed to daily), preferably 10-
minute data because that is the guideline for SO2 comparison,
although trends are refl ected in the weekly reports.
• Although weekly data trends are distributed, the community
would like to see more detailed data interpretation and analysis
on a monthly basis.
• Free clinic should be open 7-days a week to residents for air
pollution-related health problems.
• Need to improve communication with the community
(independently of SDCEA) in terms that people can understand.
People need an understanding of how the MPP has improved
their lives.
8.5. FUNDAMENTALS
OF A SUCCESSFUL PLAN
Findings from this case study indicate that the following are crucial to
the success of an air quality management plan to address air pollution
in a problem area:
• Awareness of problems
• Trust between the stakeholders
• Political will to tackle the problem
• Finances need to be available
• Scientifi cally reliable data to back up complaints and prove there
is a problem
• Action plan on how to address the problem
• Commitment to do the things agreed upon
• Dialogue, education and awareness
• Feedback and follow-up to stakeholders and community
• Need to have a central person to drive it (i.e. dedicated project
manager)
• It’s hard work. You need suitably trained, committed and
enthusiastic staff, otherwise the project will lose momentum
• Change will not happen overnight, be patient, but persistent.
Sugar cane burning, a regional contributor to particulate matter in Durban.
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 31

REFERENCES
Bissett, R., 1995: Annual Air Pollution Monitoring Report for
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industry and air pollution, groundWork, Pietermaritzburg,
SA, 80pp.
Chetty, S, 2004: South Durban Basin Multi-point Plan: A Winning
Strategy to Achieve Sustainable Air Quality, Weekly Mail
Supplement, May 2004.
Chetty, S, 2005: Putting an Air Quality Management Plan into
Place – A Case Study of the South Durban Basin Multi-point Plan.
Powerpoint presentation at the Sandton Convention Centre, 15-16
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Chetty, S, 2006: Phasing out use of dirty fuels and/or reducing the
emissions arising out of using such fuels: A background strategy
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(eThekwini Health Department), 2005: eThekwini Air Quality
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PG / 32
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ACKNOWLEDGEMENTS
• Mr Siva Chetty, Programme Manager of the Multi-Point
Plan, is acknowledged for the supply of background
information to the MPP, copies of power point
presentations, brochures, the Health Study and other related
information.
• All those interviewed are thanked for their co-operation and
willingness to participate.
• Judy Bell, for helpful comments on the draft report.
• All those that were interviewed (refer Appendix 1).
• Ms Davasha Appasumy of ZES for willful assistance in
conducting the spot survey in Merewent

APPENDIX 1: STAKEHOLDERS INTERVIEWED
Proximity of Engen emission stacks to houses of Treasure Beach.
South Durban Basin Multi-point Plan Case Study Report 2007 PG / 33

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