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STRATEGIC ENVIRONMENTAL

ASSESSMENT (SEA) OF THE

PORT OF SALDANHA

2017 REVISION

March 2018

2013 CSIR Report reviewed and updated for

Transnet National Ports Authority

by SLR Consulting (South Africa) (Pty) Ltd

SLR Project No.: 720.20023.00005

Report No.: 1

SLR Consulting South Africa (Pty) Ltd Page 1

Strategic Environmental Assessment for the Port of Saldanha March 2018

DOCUMENT INFORMATION

Title Strategic Environmental Assessment (SEA) of the Port of Saldanha: 2017 Revision: 2013 CSIR Report reviewed and updated

Client Transnet National Ports Authority

Date last printed 2018/03/23 03:32:00 PM

Date last saved 2018/03/20 05:28:00 PM

Comments Report is a revision of a 2013 CSIR Report with Publication Number: CSIR/CAS/EMS/ER/2013/0009/B

Originally compiled by:

CSIR

PO Box 320, Stellenbosch, 7599, South Africa

Tel: 021 888 2583, Fax: 021 888 2693

Keywords Port of Saldanha, Strategic Environmental Assessment, Impact Assessment Report, revision

Project Number 720.20023.00005

Report Number 1

Status Final

Issue Date March 2018

CONSULTANT CONTACT DETAILS

Company SLR Consulting (South Africa) (Pty) Ltd

Project Manager Eloise Costandius

Project Manager e-mail [email protected]

Author Eloise Costandius and Peter Tarr

Reviewer Fuad Fredericks

Branch Cape Town

Postal address PO Box 10148

Caledon Square

7905

Physical address Unit 39 Roeland Square

30 Drury Lane

Cape Town

8001

Fax 021 461 1120

Phone 021 461 1118

This report revision has been prepared by an SLR Group company with all reasonable skill, care and

diligence, taking into account the manpower and resources devoted to it by agreement with the client.

Information reported herein is based on the interpretation of data collected, which has been accepted in

good faith as being accurate and valid.

No warranties or guarantees are expressed or should be inferred by any third parties.

This report may not be relied upon by other parties without written consent from SLR.

SLR disclaims any responsibility to the Client and others in respect of any matters outside the agreed

scope of the work.

SLR Consulting South Africa (Pty) Ltd Page i


TABLE OF CONTENTS

CHAPTER 1: INTRODUCTION _____________________________________ 1

1.1 PURPOSE OF THE STRATEGIC ENVIRONMENTAL ASSESSMENT (SEA), REVIEW AND UPDATE 1

1.2 TERMS OF REFERENCE 1 1.3 STRUCTURE OF THE REPORT 2 1.4 PROJECT TEAM AND INFORMATION SOURCES 2

CHAPTER 2: PORT OF SALDANHA: CURRENT AND PLANNED OPERATIONS AND DEVELOPMENTS ___________________________ 6

2.1 TNPA SUSTAINABILITY VISION 6 2.2 NATIONAL PORTS AUTHORITY PORT DEVELOPMENT FRAMEWORK

PLAN 2016 7

2.2.1 Current layout 10 2.2.2 Short term layout 13 2.2.3 Medium term layout 15 2.2.4 Long-term layout 16

2.3 POLICY AND PLANNING CONTEXT 17

2.3.1 Strategic Integrated Projects 17 2.3.2 Operation Phakisa 18

2.4 LEGAL CONTEXT 18

2.4.1 National Ports Act (Act 12 of 2005) 19 2.4.2 National Environmental Management Act (NEMA)(Act 107 of 1998) 19 2.4.3 Draft Saldanha Bay Integrated Development Plan (IDP) 2017 to 2022 19 2.4.4 Draft Saldanha Bay Spatial Development Framework (SDF) 2017 20 2.4.5 Draft Greater Saldanha Region Spatial Implementation Framework (2016) 21 2.4.6 Greater Saldanha Environmental Management Framework (EMF) 2017 21

CHAPTER 3: BIO-PHYSICAL, SOCIAL & ECONOMIC DESCRIPTION ____ 23

3.1 INTRODUCTION 23 3.2 CLIMATE 23 3.3 MARINE ENVIRONMENT 25

3.3.1 Regional Biogeography 25 3.3.2 Coastline configuration 26 3.3.3 Wave regime 27 3.3.4 Marine water quality 28 3.3.5 Nutrients in Sediment 30 3.3.6 Hydrocarbons in Sediment 31

3.3.6.1 Poly-aromatic hydrocarbons 31 3.3.6.2 Total Petroleum Hydrocarbons 32

3.3.7 Marine & coastal ecosystems 32 3.3.7.1 Intertidal Habitat 32 3.3.7.2 Benthic macrofauna 33 3.3.7.3 Alien Invasive Species 36 3.3.7.4 Fish 37 3.3.7.5 Birds and Marine Mammals 38

3.4 TERRESTRIAL ENVIRONMENT 39

3.4.1 Topography and Geology 39 3.4.2 Rainfall, fresh water supply & regional hydro- and geohydrology 40 3.4.3 Flora & fauna 42 3.4.4 Protected areas 44

3.5 SOCIO-ECONOMIC ENVIRONMENT 46

3.5.1 Demographics 46

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3.5.2 Employment and Economy 46 3.5.3 Marine aquaculture and important fisheries 47 3.5.4 Tourism & recreation 50 3.5.5 Large industry located in the study area 50 3.5.6 Heritage 54

CHAPTER 4: GENERAL APPROACH TO THE SEA AS APPLIED IN THIS STUDY 58

4.1 NEED FOR SEA 58 4.2 GENERAL SEA PRACTICE AND APPROACH ADOPTED FOR THIS SEA 59

4.2.1 General SEA practice 59 4.2.2 Approach to SEA adopted for the Port of Saldanha and its review and

update 62

CHAPTER 5: PORT OF SALDANHA: SES DEFINITION & RESILIENCE IMPLICATIONS _____________________________________________ 67

5.1 SOCIO-ECOLOGICAL SYSTEM DEFINITION AND RESILIENCE CHARACTERISTICS 67

5.2 SYSTEM FEEDBACK LOOPS 70

CHAPTER 6: OPPORTUNITIES, CONSTRAINTS & STRATEGIC MANAGEMENT ACTIONS (SMAS) _____________________________ 77

6.1 ASSESSMENT MATRIX 77 6.2 ENVIRONMENTAL THEME 78

6.2.1 Air quality 78 6.2.2 Natural vegetation 82 6.2.3 Marine water quality 84

6.3 ECONOMIC & ENGINEERING THEME 101

6.3.1 Economics 101 6.3.2 Civil & transport engineering 107

6.4 Social theme 112

6.4.1 Social changes 112

CHAPTER 7: CONCLUSION AND RECOMMENDATIONS _____________ 115

CHAPTER 8: REFERENCES ____________________________________ 119

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TABLES

Table 1.1 TNPA Terms of reference for the original SEA of the Port of Saldanha and current revision 1 Table 1.2 Original SEA and SEA revision project teams 2

Table 2.1 Existing TNPA terminal infrastructure in the Port of Saldanha. 8

Table 2.2 New and planned TNPA infrastructure within the port of Saldanha 9

Table 2.3 Other notable projects within the port precinct and in close proximity to the port 9

Table 2.3 Potentially applicable legislation 22 Table 3.1 Total petroleum hydrocarbon in sediment samples collected over the period 2011-2017 from three

sites in Small Bay. Values in red indicate exceptionally high total petroleum hydrocarbon levels 32

Table 3.2 Fish species recorded during beach seine-net surveys in Small Bay, Saldanha in 1994, 2005 and

2007-2017 (Anchor, 2017) 37

Table 3.3 Details of aquaculture operators and the products farmed in Saldanha Bay (Anchor, 2017) 46

Table 3.4 Underlying geological formations of the Saldanha Bay area and their palaeontological sensitivity 53

Table 3.5 Summary of known shipwrecks in Saldanha Bay (adapted from SRK, 2017) 54

Table 4.1 Methodology for the compilation of the original Port of Saldanha SEA and subsequent update 60 Table 5.1 Port of Saldanha SES linking relationships (see Figure 5.1) 73 Table 7.1 Overall rating of proposed port development in the Port of Saldanha 115

FIGURES

Figure 2.1 Diagram showing the evolution of the PDFP from 2006 to its current format in 2016 7

Figure 2.2 Demand forecast for the Port of Saldanha (2016 to 2046) 8

Figure 2.3 Port of Saldanha limits as per Government Gazette No. 32873 of 22 January 2010 10

Figure 2.4 Location of current port infrastructure 12

Figure 2.5 Port of Saldanha (Current layout) 13

Figure 2.6 Port of Saldanha (Short-term layout) 14

Figure 2.7 Port of Saldanha (Medium-term layout) 16

Figure 2.8 Port of Saldanha (Long-term layout) 17

Figure 3.1 Prevailing wind directions and strenghts in Saldanha Bay from March 2014 to February 2015 24

Figure 3.2 Marine ecoregions and ecozones in the South African marine environment (Sink et al., 2012) 25

Figure 3.3 Saldanha Bay configuration 26

Figure 3.4 Predicted wave field in Saldanha Bay showing wave height and direction after the construction

of the causeway and the iron-ore Terminal (WSP Africa Coastal Engineers, 2010) 27

Figure 3.5 Cadmium (left) and copper (right) levels measured in Saldanha Bay and the Langebaan

Lagoon in 2017 (Anchor, 2017) 29

Figure 3.6 Concentrations of cadmium, copper, lead and nickel in mg/kg recorded at three sites in Saldanha

Bay between 2008 and 2015. Red dotted lines indicate Effects Range Low values for sediments 30

Figure 3.7 Total organic carbon (left) and total organic nitrogen (right) in Saldanha Bay in 2017 (Anchor, 2017) 31

Figure 3.8 Percentage cover of the seven functional groups surveyed by Anchor in 2015. Data were

averaged across the whole shore. Sites are organised from very sheltered to exposed 34

Figure 3.9 Trends in the biomass and abundance (g/m2) of benthic macrofauna in Small Bay as shown

by taxonomic and functional groups 35

Figure 3.10 Variation in the diversity of the benthic macrofauna in Saldanha Bay based on 2017 data.

H'=0 indicates low diversity, while H'=3.32 indicates high diversity (Anchor, 2017) 36

Figure 3.11 Average abundance of fish recorded from seine net surveys conducted in surf zone habitats within

Saldanha Bay-Langebaan Lagoon (Andhor, 2017) 38

Figure 3.12 Water demand trajectories for the West Coast District Municipality and allocations from the Berg River

and Langebaan aquifer (Greencape, 2015) 41

Figure 3.13 Google Earth Image showing the latest Critical Biodiversity Areas (green) within and surrounding

the port land (SANBI, 2017). The proposed expanded port area, including the SBIDZ area is outline

in yellow and additional mapped high sensitivity areas are indicated in red 42

Figure 3.14 Protected areas in the Saldanha Bay area (bgis.sanbi.org, 2017) 44

Figure 3.15 Map shwoing the location of current and proposed new expanded marine aquaculture areas as

part of the proposed DAFF ADZ project. The farming methodology is also indicated (SRK

Consulting, 2017) 48

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Figure 3.16 Google Earth Image showing the extent of the industrial corridor (white outline) as envisaged

in the 2011 Saldanha Bay SDF. The latest CBA areas that overlap with the corridor are indicated

in red and green 51

Figure 3.17 Geology in the Saldanha Bay area (adapted from Visser & Schoch, 1972 by Pether, 2014).

The location if the SBIDZ area is indicated in red 52

Figure 3.18 Location of known shipwrecks in and near Saldanha Bay in relation to proposed ADZ areas

(SRK, 2017) 55

Figure 4.1 Main elements of a graphical causal loop diagram: SES variables, linking relationships and polarity 643

Figure 5.1 Port of Saldanha SES represented in a Causal Loop Diagram 687

Figure 5.2 Adaptive Cycle with key descriptors of Potential; Connectedness and Resilience. 698

Figure 5.3 Positive Feedback Loop 1 71

Figure 5.4 Positive Feedback Loop 2 72

Figure 5.5 Negative Feedback Loop 1 73

ACRONYMS

AEL Atmospheric Emissions Licence

ADZ Aquaculture Development Zone

CBA Critical Biodiversity Area

CD Chart Datum

CLD Causal Loop Diagram

CSIR Council for Scientific and Industrial Research

DAFF Department of Agriculture Forestry and Fisheries

DEA Department of Environmental Affairs

DEA&DP Department of Environmental Affairs and Development Planning

EIA Environmental Impact Assessment

EMF Environmental Management Framework

EMP Environmental Management Programme

ESA Ecological Support Area

GMQ General Maintenance Quay

IDP Integrated Development Plan

IDZ Industrial Development Zone

IGTT Intergovernmental Task Team

IOT Iron Ore Terminal

IUCN International Union for Conservation of Nature

LNG Liquid Natural Gas

LPG Liquid Petroleum Gas

MBM multi-buoy mooring

MPA Marine Protected Area

MPT Multi-purpose Terminal

MTPA million tons per annum

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NEMA National Environmental Management Act

OSSB Offshore Supply Base

PDFP Port Development Framework Plan

PICC Presidential Infrastructure Co-ordinating Commission

RO Reverse Osmosis

SANBI South African National Biodiversity Institute

SBIDZ-LC Saldanha Bay IDZ (SOC) Licencing Company

SDF Spatial Development Framework

SEA Strategic Environmental Assessment

SES Social-ecological System

SFF Strategic Fuel Fund

SIP Strategic Integrated Projects

SMAs Strategic Management Actions

TCP Transnet Capital Projects

TNPA Transnet National Ports Authority

TOC Total Organic Carbon

TON Total Organic Nitrogen

TPT Transnet Port Terminals

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CHAPTER 1: INTRODUCTION

1.1 PURPOSE OF THE STRATEGIC ENVIRONMENTAL ASSESSMENT (SEA), REVIEW AND UPDATE

Extensive planning and construction programmes require strategic investigation in order to positively

contribute to sustainable development. The purpose of the original Strategic Environmental Assessment

(SEA) compiled by the Council for Scientific and Industrial Research (CSIR) in 2013 was to, as a first

step, investigate the strategic implications of implementing Transnet National Ports Authority’s (TNPA’s)

Port Development Framework Plan (PDFP) as it related to the expansion of the Port of Saldanha at the

time. Its purpose was also to propose Strategic Management Actions (SMAs) to guide port development

on a sustainable trajectory, thereby ensuring that environmental and social considerations inform, and are

integrated into, strategic decision-making in support of environmentally and socially sound and

sustainable development.

The purpose of the 2017 review and update is to confirm the continued applicability of the SEA and

suitability of the SMAs in line with the new project proposals and changes in project timelines included in

TNPA’s updated PDFP 2016.

1.2 TERMS OF REFERENCE

TNPA commissioned SLR Consulting (South Africa) (Pty) Ltd (SLR) to review and update the 2013 SEA

compiled by the CSIR for their long term (40+ year) expansion plan for the Port of Saldanha (Table 1.1).

This review and update process is in compliance with the statutory requirement for SEA of South African

port developments and operations (National Ports Act; Act 12 of 2005) and as advised in the Integrated

Environmental Management Information Series #10 (DEA 2004) regarding SEA. It is also aligned with the

institutional policies of TNPA.

The original SEA was based on the PDFP 2013. The PDFP is updated annually, based on changes in

the market and surrounding Saldanha Bay area. The future planned expansion of the Port of Saldanha

will be guided by the latest 2016 PDFP. As the PDFP and surrounding industrial and municipal

developments change and expand, so the SEA must be updated in order to stay relevant.

Table 1.1 TNPA Terms of reference for the original SEA of the Port of Saldanha and current revision.

TNPA TERMS OF REFERENCE

1. Development of a vision for the sustainable development and operations of the Port of Saldanha.

2. Identify key stakeholders/interested and affected parties for involvement in the SEA process.

3. Identify significant strategic issues and consolidation of known issues (as contained in the Port of Saldanha’s Long-Term Development Framework Plan).

4. Determine the compatibility of the Port’s Aspects & Impacts Register with identified strategic issues as well as the Long-term Development Framework Plan.

5. Address the causes of significant environmental impacts identified in the Port’s Aspects & Impacts register.

6. Identify and incorporate all legislation, plans, policies, programs that are required in order to inform the SEA.

7. Identify opportunities and constraints posed by the social, bio-physical and economic environment to achieve sustainability objectives, which must be stated.

8. Align the updated SEA with the current port development framework, and any other proposed plans for the port and greater Saldanha Bay area, to allow for streamlining of subsequent EIAs for individual TNPA projects, through the identification of, for example, limits of acceptable change.



9. Investigate and determine the potential environmental impact of commodities in the port’s natural hinterland that are currently or are planned to be explored, which can be handled /exported via the port.

10. Evaluate and highlight “fatal flaws” that will prohibit certain developments and the handling of a particular commodity in the port or precinct of the port.

11. Update the SEA with the latest baseline biophysical and socio-economic conditions of the surrounding environment.

12. Engage and make presentations to the Port of Saldanha EXCO, any other relevant personnel, key stakeholders and the public at large.

13. Engage with all relevant authorities including but not limited to the Saldanha Bay Local Municipality, Department of Environment Affairs and Development Planning (DEA&DP), etc.

14. Provide recommendations in line with planned development and applicable legislation.

1.3 STRUCTURE OF THE REPORT

The SEA report is broadly structured around two major themes: firstly, the Port of Saldanha’s current

context and proposed development within the enabling environment of the Saldanha Bay Municipal

boundaries; followed by a discussion of the SEA and review and update methodology, its key findings

and the related implications for sustainable port development.

Chapter 2 introduces the reader to the details of the PDFP as it relates to the Port of Saldanha and also

explains TNPA’s sustainability vision. The bio-physical, social and economic environment in which the

Port of Saldanha is located is discussed in Chapter 3, with the discussion placing particular emphasis on

implications for port development and operations. Chapter 4 explains the methodology employed in the

SEA and the review and update, and introduces the reader to key theory and concepts required to

understand and interpret the findings of the study. The latter findings are presented in Chapter 5. The

SMAs that are proposed, based on the outcome of the SEA review and update, are presented in Chapter

6; they are intended as a practical guide (for uptake in management planning and execution) for planned

port development activities and operations. Finally, a set of concluding remarks is presented in Chapter 7.

1.4 PROJECT TEAM AND INFORMATION SOURCES

The original SEA document was compiled by an experienced SEA team from the CSIR with input from an

independent specialist team with knowledge of the Saldanha Bay area. The revision team includes a

SEA specialist from the Southern African Institute for Environmental Assessment (SAIEA), with SLR

having considerable experience working in the Saldanha Bay area and within the Port of Saldanha.

Details of the project teams are presented in Table 1.2 below.

Table 1.2 Original SEA and SEA revision project teams.

Specialist study Specialist and their affiliation(s)

Comment on the selection of the specialists

Strategic

implications:

Terrestrial

ecosystems

Nick Helme (Nick Helme

Botanical Surveys)

Nick Helme is a specialist botanical consultant, specialising in the

diverse flora of the south-western Cape. He has been involved in

over 750 botanical assessments for proposed development sites

(golf courses, housing estates, quarries; roads; borrow pits;

pipelines, power lines; power stations; mines) throughout the

Western and parts of the Northern Cape in Strandveld, Lowland

Fynbos, Mountain Fynbos, and Renosterveld localities as far

afield as Plettenberg Bay, Knysna, Mossel Bay, Agulhas, Bot

River, Hermanus, Stellenbosch, Hopefield, Piketberg, Saldanha,

Lamberts Bay, Ceres, Clanwilliam, and Nieuwoudtville.



Strategic

implications:

Archaeology

Jonathan Kaplan (Agency

for Cultural Resource

Management)

Jonathan Kaplan has taken part in numerous archaeological

impact assessments, specializing in Stone Age, rock art and

herder studies. He has undertaken baseline studies on large

projects, including the Lesotho Highlands Water Project (a World

Bank project), Maguga Dam (Swaziland), Namibia/Botswana

Water Transfer Project, Sasol/ACO Gas Pipeline (South Africa),

Corridor Sands (Mozambique) and numerous utility projects for

Eskom, as well as coastal and catchment management surveys,

research projects and undertaken excavations of numerous rock

shelters and coastal shell middens.

Strategic

implications:

Palaeontology

John Pether (Private

consultant)

John is a recognized authority in the field of coastal-plain and

continental-shelf palaeoenvironments and is consulted by

exploration and mining companies, by the Council for

Geoscience, the Geological Survey of Namibia and by

colleagues/students in academia pursuing coastal-plain/shelf

projects. At present, an important involvement is in

palaeontological impact assessments (PIAs) and mitigation

projects in terms of the National Heritage Resources Act 25

(1999). The location of CTIA falls within an environment (ancient

coastal dune system) in which he has specialist knowledge.

Strategic

implications:

Atmospheric

receiving

environment

Dr. Mark Zunckel

(uMoya-NILU (Pty) Ltd )

Mark Zunckel is the Managing Director of uMoya-NILU Consulting

(Pty) Limited. He has a PhD from the University of the

Witwatersrand and is a meteorologist by profession with 13 years

of operational meteorology and research experience at the South

African Weather Service before he joined and led the air research

pollution group at CSIR. There he developed his career further

through many small and large research and consultancy projects

over a 15 year period, including work in a number of southern

African countries and in South America. These included air

quality specialist studies for industrial developments, the Dynamic

Air Pollution Prediction System, leading the consultancy team in

the development of the National Framework for Air Quality

Management. With uMoya-NILU he led ground-breaking projects

that include development of the air quality management plan

(AQMP) for the Western Cape, the development of the AQMP for

the Highveld Priority Area and the first AQMP review project for

the City of Johannesburg. Mark is a registered as a Professional

Natural Scientist with the South African Council for Natural

Scientific Professional (SACNSP, Reg. No.: 400449/04).

Strategic

implications:

Marine

ecosystems

Pat Morant (CSIR) Pat Morant has an M.Sc in Environmental Science and more than

26 years’ experience in coastal environmental management and

environmental impact assessment on the west coast of South

Africa, with strong experience in EIAs in the marine and coastal

environment. For example, in Namibia he has been closely

involved in several EIAs and EMPs for marine diamond mining, oil

and gas developments, and coastal and port developments. Pat

also has a sound knowledge of the BCLME Project and has been

involved in several environmental assessment contracts along the

African West Coast.

Strategic

implications:

Marine water

quality

Dr Susan Taljaard (CSIR) Dr Susan Taljaard is a principal researcher with more than 20

years’ experience in marine and estuarine water quality research

and management. She specializes in the design and application

of coastal and estuarine management plans and best practice

guides. Recently she assisted the Department of Environmental

Affairs with the development of the National program of action to

protect the marine environment from land-based activities and

assisted them with the revision of South Africa’s water quality

guidelines for coastal marine waters (focusing on recreational

use). Susan has also worked on related project as part on

regional programs such as the Benguela Large Marine

Ecosystems (BCLME) and Western Indian Ocean Land-based

Activities (WIO-Lab) programs. She is also actively involved in

applied research on the biogeochemical characteristics and



processes in coastal systems, specifically estuaries, and their

responses to global change pressures. Susan recently (2011)

completed her PhD studies at the University of Stellenbosch. Her

dissertation entitled An implementation model for integrated

coastal management in South Africa – from legislation to practice,

proposed an implementation model for integrated coastal

management (ICM) within the South African context and included

a review of relevant marine legislation.

Strategic

implications:

Marine water

quality (sediment)

Roy van Ballegooyen

(CSIR)

M.Sc. Physical Oceanography. He has 24 years’ experience in

undertaking both academic and applied research and contract

work whilst in the employment of maritime research institutes

(CSIR, Institute for Maritime Technology and the University of

Cape Town).

Strategic

implications:

Port’s economic

catchment

Dr Hugo van Zyl

(Independent Economic

Researchers)

Dr. Hugo van Zyl has extensive experience in economic impact

assessments and has completed approximately 50 economic

impacts assessments and specialist studies including for

infrastructure projects. Dr Van Zyl is also the lead author of the

Western Cape Provincial Government guidelines on economic

specialist inputs into EIAs (Van Zyl et al., 2005). These guidelines

have been accepted at a national level and are applied

throughout the country.

Strategic

implications:

Bulk services and

infrastructure

Bertie Philips (Kantey &

Templer Consulting

Engineers)

Bertie has over 25 years’ experience in conducting traffic planning

and traffic impact assessment. Bertie Phillips worked in the New

York City, Manhattan office of Urbitran Associates as a project

manager responsible for traffic impact studies and public

transport planning. He was seconded to the Port Authority of

NY&NJ for several large projects including Annual traffic counts at

Newark Airport; license plate Origin- Destination studies at

Kennedy Airport and investigation into congestion at the

Manhattan entrance to the Holland Tunnel. He was also

responsible for a NY DOT pilot study to evaluate the High

Occupancy Vehicle Lane on the Long Island Expressway.

Project leadership Dr Mike Burns (CSIR) Mike has played a foundational role incorporating novel concepts

such as social-ecological systems modelling and resilience

analysis in the projects he has been involved in relating to the

resources sector and strategic infrastructure. Much of his

professional focus has been on Central and West Africa’s oil and

gas sector. In this latter regard, he has played an important role in

building CSIR’s relationship with the African Oil and Gas sector

and supporting its contribution to sustainable development. Under

Mike’s leadership, CSIR has undertaken more than fifty (50) EIAs

for seismic, exploration drilling, production and product

conveyance and storage in more than 10 African states. Mike

also led many other environmental initiatives that have informed

developments within the oil and gas and energy sector, including,

for example, environmental due diligence studies, geotechnical

investigations and environmental performance monitoring.

Project

management

Rudolph du Toit (CSIR) Rudolph studied as a planner and chose to apply his trade in the

environmental management field. He has planned and managed

several Environmental Impact Assessments (EIA) in South Africa

and gained international environmental management experience

in the oil and gas sector of west Africa (Cameroon and Gabon).

Rudolph is currently involved in a CSIR applied science initiative

to operationalize social-ecological systems modelling and

resilience analysis as an established environmental management

tool.

SEA Revision

Team

Dr Peter Tarr (SAIEA) Peter is the founder and the Executive Director of the SAIEA, a

consulting NGO operating throughout Africa. He has led teams

undertaking large and complex SEAs in various countries over

the past 10 years. He has worked mostly in Africa, but also in

South America and Asia. Peter has a PhD in Environmental

Management and Planning from Aberdeen University, Scotland.



As part of the 2017 SEA revision, key issues and descriptions of the current affected environment

surrounding the Port of Saldanha have been revised to also include more recent specialist investigations

undertaken for TNPA and other Environmental Impact Assessment (EIA) processes in the area. These

more recent reports are referenced where relevant and include the following:

• State of the Bay Report 2017 (Anchor)

• Pre-feasibility Studies for Berth 205 and Mossgas Jetty, including geotechnical studies (ARUP,

2014 and 2016)

• General Maintenance Quay Basic Assessment (SRK, 2013)

• Oil and Gas Offshore Service Complex at the Saldanha Bay Industrial Development Zone (IDZ)

(CCA, 2015)

• Draft Environmental Management Framework for the Saldanha Bay area (Gibb, 2017)

• Physical, Marine Ecology and Air Quality assessments for new oil and gas repair marine

infrastructure undertaken as part of the TNPA Project Phakisa Screening Study (SLR, 2016)

SEA Revision

Team

Eloise Costandius (SLR) Eloise has worked as an Environmental Assessment Practitioner

since 2005 and holds an MSc in Ecological Assessment from the

University of Stellenbosch. Eloise has been involved in six EIA

processes within the Saldanha Bay area since 2010 and through

these projects have gained valuable experience in the

management of assessment processes within the Saldanha Bay

planning environment.

SEA Revision

Team

Fuad Fredericks (SLR) Fuad is a Director of SLR and is responsible for SLR’s Linear

Infrastructure sector in Africa. He holds an MSc in Botany from

the University of the Western Cape and has been involved in

environmental consulting since 1999. He has been responsible

for management and quality control of environmental

assessments dealing with a number of highly complex and

controversial projects and recently provided a review role for the

environmental monitoring of the General Maintenance Quay

upgrade project in the Port of Saldanha, as well as for the

Environmental Screening Study for TNPA’s proposed oil and gas

marine infrastructure within the port.



CHAPTER 2: PORT OF SALDANHA: CURRENT AND PLANNED

OPERATIONS AND DEVELOPMENTS

2.1 TNPA SUSTAINABILITY VISION

The sustainability vision for the Port of Saldanha was developed by the port management team. This

vision is of particular importance to the SEA as it provides the foundation to the strategic direction and

values that guide the port’s current operations and future development. The Port of Saldanha

sustainability vision is as follows:

“The Port of Saldanha acts as a catalyst to grow the economy in an environmentally responsible manner, through sustainable development,

innovation, cooperative governance and engagement with the community, protecting sensitive ecosystems and natural and cultural

heritage”.

This vision is embodied within Transnet’s Sustainability Framework with its nine adopted Sustainable

Developmental Outcome (SDO) themes. The nine themes are: Employment, Skills development,

Industrial capability building, Investment leveraged, Regional integration, Transformation, Health and

safety, Community development and Environmental stewardship. TNPA’s sustainability performance is

measured against these nine SDOs. The diagram below depicts the objectives which have been

identified to meet the sustainability outcomes.

Economic outcomes

• Increased capacity and efficiencies for freight

logistics and improved connectivity on the

continent.

• Reliable and efficient rail, port and pipeline

services.

• Measurable direct, indirect or induced

employment.

• Increased technical skills and improved productivity.

• Increased competitiveness, capacity and

capability of local suppliers.

• Ease of entry for private investment and

operations in the ports and rail industry.

• A financially stable business, able to raise

and service debt, reinvests revenues and

pursues agreements.

Social outcomes

• Good governance, accountability and

transparency.

• Zero tolerance of fraud and corruption.

• Health and safety of workforce and

surrounding communities.

• Improved quality of life for workforce and

surrounding communities.

• Increased representation of black and female

employees and people with disabilities.

• Broad-based black economic empowerment.

• Corporate social investment.

• Proactive stakeholders.

Environmental outcomes

• Modal shift from road to rail, lowering carbon

emissions.

• Improved energy efficiency.

• Improved water use efficiency.

• Improved waste management.

• Climate change adaptation.

• Improved land use management.

• Incident management.

• Improved protection and restoration of

natural habitats.



2.2 NATIONAL PORTS AUTHORITY PORT DEVELOPMENT FRAMEWORK PLAN 2016

The focus of this SEA review and update is the assessment of the strategic environmental implications

and sustainability considerations of the Port of Saldanha PDFP 2016. The main objective of the PDFP is

to provide a high-level overview of the development opportunities for the Port of Saldanha. The evolution

of the PDFP from its 2006 format to the latest 2016 revision is summarised in Figure 2.1.

The following planning principles informed the PDFP:

• Develop a complementary ports system with a regional grouping of old and new ports to provide a

rational range of facilities to meet local and hinterland demand, and avoid duplication of investment;

• Optimise capital investment across the ports system to ensure capacity meets demand, and to meet

the requirements of Transnet, the National Ports Act, and South Africa;

• Integrate and align port and rail capacity planning;

• Ensure a sustainable response to environmental opportunities and constraints;

• Align with the planning initiatives of stakeholders, including local, provincial and national government,

industry and other key role-players;

• Utilise available port space for berths, freight handling and back-of-port logistics to maximise freight

capacity; and

• Improve infrastructural and operational efficiencies and reduce transport and logistics costs.

Port and Rail Corridor

development plans

National Infrastructure Plan

Transnet Infrastructure Plan

Port Development Framework Plan

Port and rail infrastructure status quo analysis on eastern, central and western freight corridors Five-year freight demand No capital plan

First integrated port, rail and pipeline development plan Rail plan based on scientific 30-year demand analysis First five-years based purely on Transnet Corporate Plan Approved by Cabinet

Desktop-published update Further refinement of freight demand model Port fleet and rolling-stock plan added Intensive stakeholder engagements with infrastructural response Integrated environmental planning identified as critical Property and sustainability modules added

Greater integration with Corporate Plan New focus on Transnet’s developmental role Fully integrated long term port, rail, pipeline and property plans Added sustainability chapter and energy forecast Integrated planning, Africa and natural gas chapters added National Beneficiation Scenario added

Re-organisation of chapters Improved chapters: - Gas - Africa - Pipelines

Sustainability specific to infrastructure capacity development plans Systems approach for capacity planning

Fully integrated long-term port, rail, pipeline, property, sustainability, human resources, energy and systems plans, fully supportive of Transnet’s key role in a developmental State

Figure 2.1 Diagram showing the evolution of the PDFP from 2006 to its current format in 2016.



Demand forecast for the Port of Saldanha has guided the various aspects of port expansion proposed in

the PDFP 2016 (Figure 2.2). Saldanha’s freight volumes are currently dominated by iron ore export

through the Iron Ore Terminal (IOT). The forecasts for iron ore export show growth from current volumes

of 58 million tons per annum (MTPA) to more than 73 MTPA over a 30-year period. Liquid bulk demand is

forecast to grow from 3.9 to 6.4 MTPA over the same period. The forecast for break bulk and dry bulk

cargoes through the Multi-purpose Terminal (MPT) is expected to be stable and relatively low (2-3%) over

the 30-year period. No container or vehicle cargo volumes are forecast in the 30-year planning period,

with current manganese exports to cease soon when the activity is moved to the Port of Ngqura. The

proposed start-up capacity for manganese exports at Ngqura is 16 MTPA.

Figure 2.2 Demand forecast for the Port of Saldanha (2016 to 2046)

The main existing terminal infrastructure in the Port of Saldanha is listed in Table 2.1 below. The cargo

types, terminal and berthing details are provided. Major new and planned infrastructure within the port

limits is listed in Table 2.2, with the related costs and implementation timeframes provided.

Table 2.1 Existing TNPA terminal infrastructure in the Port of Saldanha.

EXISTING INFRASTRUCTURE

Cargo type Terminal Berths Usable berths

Terminal capacity

Berth length

Berth draft

Iron ore Iron ore 101, 102 2 60 000 000 1 260 m 23 m

Break bulk Multi-purpose 201, 202,

203, 204 4 7 000 000 874 m 13 m to 15.5 m

Liquid bulk Liquid bulk 103 1 25 000 000 360 m 23 m



Table 2.2 New and planned TNPA infrastructure within the Port of Saldanha.

NEW AND PLANNED INFRASTRUCTURE

Cargo type Project Timeframe Project cost

Dry bulk Iron ore expansion to 80 MTPA Medium term R3 403 m

Break bulk MPT expansion (Berth 200) Medium term To be confirmed

Liquid bulk LPG terminal Completed R1 200 m

Liquid bulk LNG terminal Medium term To be Confirmed

TNPA other Offshore Supply Base (OSSB) Short term R 155 m

Ship repair Jetty at Mossgas Quay (to 500 m) Medium term R5 620 m

Rig repair Berth 205 adjacent to MPT Medium term R 3 046 m

TNPA other Strategic land acquisition (230 ha) Short term R42 m

Liquid bulk Energy precinct with tank farm (300 ha) Medium term R900 m

The Port cannot develop in seclusion, therefore other developments proposed by large industry,

government (local, provincial and national) and private developers in the broader Saldanha area were

taken into consideration in the context of the study. Notable projects planned by other parties within and

in close proximity to the port are listed in Table 2.3.

Table 2.3 Other notable projects within the port precinct and in close proximity to the port.

INFRASTRUCTURE PLANNED BY OTHERS IN THE VICINITY OF THE PORT

Project Proponent Location Timeframe Project status

Saldanha Bay IDZ

- 124 ha Back-of Port Precinct

general services area

- 35 ha light and heavy

fabrication site

- 35 ha logistics support area

SBIDZ-LC

Adjacent to port

land

Port land

Port land

Short term

Short term

Short term

Services

completed

Design phase

Design phase

Establishment of an Aquaculture

Development Zone DAFF

Within offshore

port limits Short term

Approvals

received

Commercial crude oil blending and

storage terminal MOGS

Outside of port

land Short term

Approvals

received

Gas to Power Plant for Arcelor Mittal

International Power

Consortium South

Africa

Outside of port

land Short term

Approvals

received

Maintenance and upgrade of the

Saldanha Bay and Pepper Bay

Harbours (Small Harbours)

Department of Public

Works

Within and

adjacent to

offshore port

limits

Short term Application

pending

Saldanha Bay Waterfront development Saldanha Bay

Municipality

Adjacent to

offshore port

limits

Short term Planning phase



2.2.1 Current layout 1

Port limits

The Port of Saldanha is the largest and deepest natural port in the southern hemisphere and is situated

60 nautical miles north-west of Cape Town. The port currently covers a land and sea surface area of

over 19 300 ha within a circumference of 91 km and water depths of around 24 m.

The current gazetted port limits are indicated in Figure 2.3.

Figure 2.3 Port of Saldanha limits as per Government Gazette No. 32873 of 22 January 2010.

Waterside

The port is characterised by the causeway which extends approximately three kilometres into the bay.

There are two dry bulk berths (101 and 102), that are capable of handling up to CSVs (Cape Size

Vessels), and a liquid bulk berth (103), capable of handling VLCCs (Very Large Crude Carriers). The

MPT terminal on the Small Bay side of the causeway has four berths (201-204). Berth depths at the MPT

range from -12 to -14m chart datum (CD), whilst the bulk iron ore and oil terminal berths are -23 m CD

deep. The General Maintenance Quay (GMQ), now referred to as the OSSB, was upgraded during 2016

and now consists of a 280 m berth at a water depth of -6.5m CD. The Small Craft Harbour Basin is on the

town side of the bay, adjacent to the fishing harbour and naval base. The average number of vessel calls

for a typical calendar year is 500 vessels. The largest number of calls relate to the iron ore export sector.

1 Sections 2.2.1 to 2.2.4 were sourced from the TNPA PDFP 2016.

TNPA SEA 2017



Sunrise Energy is currently operating a new LPG terminal from a multi-buoy mooring (MBM) system in

Big Bay. The MBM is connected to the onshore terminal via a pipeline, approximately 700 m inland from

the iron ore stockpile area. The terminal became fully operational during 2017. Phase 1 of the terminal

includes storage capacity of 5 500 million tonnes (MT), allowing for the importation of up to 17 500 MT of

LPG per month. The facility has an ultimate storage capacity of 16 500 MT with a throughput capacity of

52 000 MT/month or 624 000 MTPA.

Landside

On the landside, the port limits encompass an area of 538 ha. Dry bulk operations occupy 73 ha, break

bulk 20 ha and ship repair activities 22 ha. A large portion of port land is undeveloped and zoned as

either open space or for other TNPA usage. This comprises 420 ha of the total area and provides a basis

for future port expansions and terminal development. Approximately 166 ha of the port land south of

MR559 were officially designated as part of the Saldanha Bay IDZ by the Minister of Trade and Industry

in the Government Gazette 36988 on 31 October 2013. The Saldanha Bay IDZ Licencing Company

(SBIDZ-LC) currently holds an Environmental Authorisation for the development and operation of an

offshore oil and gas service complex on port land within the IDZ area. During 2016, an Offshore Supply

Base Terminal, which would link into IDZ operations, was constructed by combining the GMQ and Rock

Quay to create a single facility. The OSSB operations will also incorporate a 20 ha landside area of the

Saldanha Bay IDZ northwest of the GMQ. TNPA envisions having a terminal operator appointed by the

start of the 2018/2019 financial year. The 20 ha landside area would include fuel bunkering facilities,

fabrication and lubrication yards and various storage and laydown areas.

Inland transport

The port is linked to the hinterland by the Sishen – Saldanha rail corridor, giving access to the Northern

Cape iron ore mines. The construction of a third iron ore tippler facility to the east of the rail line entering

the iron ore terminal is currently underway. There is a non-core rail line to Cape Town that connects with

the Cape-Gauteng corridor, enabling connectivity to the hinterland.

The Western Cape Government: Department of Transport and Public Works received authorisation in

May 2015 for a new road link and dedicated freight route between the R27 and R45. Construction of this

route has commenced and will ultimately link with the N7, which provides access to the national road

network.

Liquid fuel pipelines connect the port to the off-site Strategic Fuel Fund (SFF) storage facilities which is

connected to the Cape Town refinery.

The location of current infrastructure is depicted graphically in Figures 2.4 and 2.5.



Figure 2.4 Location of current port infrastructure.

TNPA SEA 2017



Figure 2.5 Port of Saldanha (Current layout). Key:

Current Layout

1. Iron ore export terminal with stockpiles and two berths, endpoint of the Sishen – Saldanha heavy haul rail corridor

2. Offshore supply base at the expanded General Maintenance Quay

3. Multi-purpose terminal

4. Liquid bulk berth at end of jetty

5. Saldanha Bay IDZ

6. Mossgas site fabrication yard and quay

7. Small craft harbour

8. LPG multi-boy mooring system floating berth (Sunrise Energy)

2.2.2 Short term layout

Short term plans for the port include strategic land acquisition to ensure improvements to the port access

corridor and ensuring that the future growth of the port is not restricted on the landside. The specific land

parcel identified for acquisition in the short term includes land occupied by the Sunrise Energy onshore

gas receiving and storage facility. The reconfiguration of the eastern side of the liquid bulk terminal at the

end of the jetty to provide for an additional berth is also considered. Construction of internal portside

infrastructure for the offshore oil and gas service complex within the IDZ area is set to commence in

2018. This would service a fabrication yard and bunkering facilities as part of the OSSB. The

development of a Port Commercial Precinct surrounding TNPA’s Bayvue offices is also planned. With the

planned land acquisition, the Port footprint is projected to increase from the current size of 975 ha to

1 020 ha (see Figure 2.6).

7

7

5

6

1

2 3

7

8

4



Figure 2.6 Port of Saldanha (Short-term layout). Key:

Short-term (7 year) layout

1. TNPA land acquisition

2. IDZ portside infrastructure linked to the OSSB

3. Port Commercial Precinct

4. Extension of liquid bulk terminal

Other notable projects planned in close proximity to port land and infrastructure in the short term include

the following:

• The establishment of an Aquaculture Development Zone (ADZ) by the Department of Agriculture,

Forestry and Fisheries (DAFF) in areas of Small Bay, Big Bay and Outer Bay (see Section 3.5.3);

• The commercial Oiltanking MOGS Saldanha (OTMS) crude oil blending and storage terminal

immediately to the east of the SFF facility, approximately 4 km east of the Port. The terminal will

consist of twelve 1.1 million-barrel in-ground concrete storage tanks, with the first eight tanks to be

commissioned in the third quarter of 2018 (see Section 3.5.5);

• A 1 507 megawatt (MW) Combined Cycle Gas Turbine (CCGT) power plant to service

ArcelorMittal’s Saldanha Steel facility. The project will require LNG as its main fuel supply and will

consume about 76 million gigajoules of natural gas per year and will be constructed approximately

5 km northeast of the Port, within 1 km east of the ArcelorMittal Steelworks (see Section 3.5.5);

• Maintenance and upgrade of the Saldanha Bay and Pepper Bay Small Harbours as part of the

Department of Public Works’ Small Harbours Upgrade Project; and

• The Saldanha Bay Waterfront development at the northern end of Saldanha Bay with the aim to

enhance the entire Main Road from the end of the main beach at the Hoedjiesbaai Hotel, above the

rocky coastline and around Hoedjiespunt, to the Pepper Bay and Saldanha Bay Yacht Club area.

1

2

3

4



The proposed development would include a dedicated Saldanha Bay Waterfront activity zone of

water extending about 200 m offshore from the shoreline for the full width of the Waterfront

Precinct. This project would tie in with the overall vision of integrating the Port of Saldanha with the

greater Saldanha Bay community to the socio-economic benefit of the region as a whole. The first

phase of the project would entail the redevelopment of the old Shell service station into a mixed

use area to be open for business during the second half of 2018.

2.2.3 Medium term layout

Medium-term plans for the port will include strategic land acquisitions (to ensure that the future growth of

the port is not restricted on the landside), improvements to the port access corridor, and a strong focus on

servicing the offshore oil and gas industry with the addition of major marine infrastructure. The medium-

term development plans strongly reflect Operation Phakisa’s strategic goals and initiatives (see

Section 2.3). Medium-term plans to provide ship and rig repair berths are also in line with improving and

expanding current vessel repair facilities in South Africa. The aim is to establish purpose-built oil and gas

infrastructure to serve Africa’s offshore oil and gas industry. A ship and rig repair facility would be

constructed on the waterside of the 35 ha IDZ leased area and a dedicated rig repair berth, Berth 205,

would be located at a preferred position immediately to the south of the Multi-Purpose Terminal.

A major energy cluster is being considered which could result in a liquid bulk basin in Big Bay, with

bunker and LPG berths adjacent to the iron ore stockpile area. Depending on whether new cargoes are

identified, there are plans to extend the Multi-Purpose Terminal. The current Ore Line Expansion Project

is considering expanding export capacity on the corridor and through the port to enable handling of

82 MTPA of iron ore. This will require additional iron ore stockpiles and an additional berth, with

associated rail capacity expansions. With the planned land acquisition, the Port footprint is projected to

increase to 1 241 ha in the medium term (see Figure 2.7).



Figure 2.7 Port of Saldanha (Medium-term layout).

Key:

Medium-term (30 year layout)

1. Land acquisition

2. Iron Ore Terminal Expansion: Phase 2 (3rd Berth)

3. Additional Break Bulk Berth and Quayside Terminal

4. Dedicated rig repair Berth 205

5. Ship and rig repair facility

6. Further development of the IDZ oil and gas offshore service complex

7. Liquid Bulk receiving facility and pipeline

2.2.4 Long-term layout

The long term plan shows the anticipated increased port limits, and a greatly expanded waterside

infrastructure. This includes further development in the liquid bulk basin, an expanded MPT, extension of

the OSSB berth for other use and an established ship build capacity. Expansion of the road and rail

access to the port is also included. The second phase of the Liquid Bulk facilities are also indicated with

a land-based storage and re-gas facility, gas transmission lines and a distribution hub (see Figure 2.8).

1

7

6

5

3 4 2



Figure 2.8 Port of Saldanha (Long-term layout)

2.3 POLICY AND PLANNING CONTEXT

2.3.1 Strategic Integrated Projects

The South African Government adopted a National Infrastructure Plan in 2012 that intends to transform

the economic landscape while simultaneously creating significant numbers of new jobs, strengthening the

delivery of basic services, and supporting the integration of African economies. A commission, the

Presidential Infrastructure Co‐ordinating Commission (PICC), was established to integrate and co‐

ordinate the long‐term infrastructure build. The PICC has identified infrastructure gaps, population

movement and economic performance within a special framework and have developed eighteen Strategic

Integrated Projects (SIPs) to address the country’s needs, as well as a more comprehensive

‘Infrastructure Book’ of 645 projects.

The draft Infrastructure Development Bill, 2013 (Government Gazette No. 36143) provides for, inter alia,

the identification and implementation of SIPs which are of significant economic or social importance. A

project qualifies as a SIP if:

(a) It comprises of one or more installation, structure, facility, system, service or process relating to any

matter specified in Schedule 1 of the Bill;

(b) It complies with any of the following criteria:

(i) It would be of significant economic or social importance to South Africa;

(ii) it would contribute substantially to any national strategy or policy relating to infrastructure

development; or

(iii) it is above a certain monetary value determined by the PICC.



(c) The PICC has included the project in the National Infrastructure Plan and has designated the

project as a SIP.

SIP 5 relates to the integrated development of the Saldanha-Northern Cape Development Corridor to

ensure that the linked regions become an integrated value-adding entity, rather than simply a transit

corridor for iron-ore export from the Sishen iron-ore mines in the Northern Cape. For the Saldanha Bay

area, this entails expansion of rail and port infrastructure, construction of industrial capacity in the back of

port areas (including the IDZ), strengthening maritime support capacity to create economic opportunities

from the gas and oil activities along the African West Coast and the expansion of iron ore mining

production (LTPF, 2016). Over the next 30 years, related projects in the Saldanha area include the

Export Iron Ore Expansion Programme (rail and port), the Saldanha Bay to Atlantis Natural Gas Pipeline

project, and other Port of Saldanha expansion projects (oil and gas service infrastructure).

2.3.2 Operation Phakisa

In September 2014, the Presidency launched Operation Phakisa, a national initiative which aims to

unlock the economic potential of South Africa’s oceans. The following four new growth areas were

identified as key priorities for growing the ocean economy:

• Marine transport and manufacturing;

• Offshore oil and gas;

• Fisheries and aquaculture; and

• Marine protection services.

As part of this overarching initiative, the Port of Saldanha has been identified by National Government for

the establishment of an offshore oil and gas complex providing support and services to oil and gas

exploration off the West African coast. Based on various pre-feasibility investigations, TNPA identified

two marine infrastructure components for development within the Port of Saldanha. These include the

addition of a dedicated facility for rig repairs (referred to as Berth 205) as well as a 500 m long jetty in the

vicinity of the existing Mossgas Quay. These projects have been nationally recognised as having

strategic value for the country. An OSSB terminal has been constructed at the GMQ area and will be the

first component of the infrastructure development plan under the Operation Phakisa initiative. The marine

components would tie into the onshore Saldanha Bay IDZ development covering the back of port area as

well as the industrial area to the north of Main Road 559.

As part of the fisheries and aquaculture growth area, Saldanha has also been identified for the

establishment of new aquaculture projects and the expansion of existing projects. In this regard, DAFF is

proposing to establish ADZ areas within the Port limits. The production methods identified as most viable

for farming in the Saldanha Bay ADZ areas include the following:

• Longlines for bivalve culture (mussels, oysters and seaweed);

• Rafts for bivalve culture (mussels and seaweed);

• Cages for finfish production (indigenous and exotic fish species); and

• Barrel culture for abalone.

2.4 LEGAL CONTEXT

This section provides a broad summary of the key pieces of legislation applicable to operations in the Port

of Saldanha and the planning of new developments within the port limits. Reference is also made to local

and regional plans and frameworks to be considered by TNPA in its future project planning in order to

align with other proposed developments in the surrounding greater Saldanha Bay area. Other potentially



applicable legislation is listed in Table 2.3. Individual project-level assessments of applicable legislation

would be required at the planning stages for specific projects in order to provide a more accurate

interpretation of the regulatory environment and to ensure that all applicable permits, licences and

authorisation are applied for.

2.4.1 National Ports Act (Act 12 of 2005)

The mainstay of the South African ports regulatory framework is the National Ports Act (Act 12 of 2005)

which creates a comprehensive institutional, operational and regulatory framework for port development

and management. All development within the Port of Saldanha will be subject to the regulation of the

National Ports Act.

The objectives of this Act are to-

a) promote the development of an effective and productive South African ports industry that is

capable of contributing to the economic growth and development of our country;

b) establish appropriate institutional arrangements to support the governance of ports;

c) promote and improve efficiency and performance in the management and operation of ports;

d) enhance transparency in the management of ports;

e) strengthen the State’s capacity to-

(i) separate operations from the landlord function within ports;

(ii) encourage employee participation, in order to motivate management and

(iii) facilitate the development of technology, information systems and managerial expertise

through private sector involvement and participation; and

f) promote the development of an integrated regional production and distribution system in support

of government’s policies.

2.4.2 National Environmental Management Act (NEMA)(Act 107 of 1998)

Section 2 of NEMA sets out a range of environmental principles that are to be applied by all organs of

state when taking decisions that significantly affect the environment. Included amongst the key principles

is that all development must be socially, economically and environmentally sustainable. It also states that

environmental management must place people and their needs at the forefront of its concern, and serve

their physical, psychological, developmental, cultural and social interests equitably. NEMA also provides

for the participation of Interested and Affected Parties (I&APs) and stipulates that decisions must take into

account the interests, needs and values of all I&APs.

Chapter 5 of NEMA outlines the general objectives and implementation of Integrated Environmental

Management, which provides a framework for the integration of environmental issues into the planning,

design, decision-making and implementation of plans and development proposals. Section 24 of the Act

provides a framework for granting of environmental authorisations. In order to give effect to the general

objectives of Integrated Environmental Management, the potential impacts of certain listed activities on

the environment must be considered, investigated, assessed and reported on to the competent authority.

Any proposed port expansion activities will either trigger the NEMA Regulations for an EIA process or, at

the very least, its objectives and principles will need to be considered as a guide to development within

the constraints of what the environment can permit on a sustainable basis.

2.4.3 Draft Saldanha Bay Integrated Development Plan (IDP) 2017 to 2022

Though not an Act, the Saldanha Bay Integrated Development Plan (IDP) represents the primary local-

level strategic planning tool with which proposed port expansions would need to align. The IDP provides



the framework to guide the Saldanha Bay Municipality’s planning and budgeting over the course of a set

legislative time frame. The fourth generation document that is currently in draft format applies to the 2017

to 2022 financial years. Integrated development planning as an instrument lies at the centre of

developmental local government in South Africa and represents the driving force for making municipalities

more strategic, inclusive, responsive and performance-driven in character (Saldanha Bay IDP, 2017). As

such, the IDP is the strategic planning instrument which guides and informs all planning, budgeting and

development in the Saldanha Bay municipal area.

According to the latest IDP, the strategic intent of the municipality over the next few years is to enhance

municipal service delivery and growth and development offerings driven by their new vision: S.M.A.R.T

Future Through Excellence. SMART is an acronym for the following aspects that would guide the

municipality’s objectives:

• Superior service – The rendering of service which exceed normal expectation;

• Mandate – The effective and efficient execution of the municipal mandate;

• Achievable – The setting of objectives which are realistically achievable;

• Responsive – The setting of objectives that respond to the needs of the public; and

• Team – The promotion of a consolidated approach to address the challenges.

The aim of the vision is to enable a future of prosperity for all through effective objectives promoting

service excellence and is a vision that TNPA should aim to align with.

Some of the key objectives of the IDP include the following:

• To diversify the economic base of the municipality through industrialisation, de-regulation,

investment facilitation and tourism development, whilst at the same time nurturing traditional

economic sectors;

• To facilitate an integrated transport system;

• To provide and maintain superior decentralised consumer services (water, sanitation, roads,

stormwater, waste management and electricity);

• To develop socially integrated, safe and healthy communities;

• To maintain and expand basic infrastructure for economic development and growth;

• To be an innovative municipality through technology, best practices and a caring culture;

• To be a transparent, responsive and sustainable decentralised administration;

• To ensure an effective communication system with clients and the public;

• To embrace a nurturing culture amongst team members in order to gain trust from the

community; and

• To ensure compliance as prescribed by relevant legislation.

TNPA should seek to align its operations and future development plans with these municipal objectives.

2.4.4 Draft Saldanha Bay Spatial Development Framework (SDF) 2017

The Saldanha Bay Spatial Development Framework (SDF) is one of the Sectoral Plans contained in the

Saldanha Bay IDP (2012 to 2017). An SDF is considered as an indicative plan intended to show desired

patterns of land use, directions for future growth, the alignment of urban edges and other special

development areas (SDF, 2017). The updating of municipal SDF documents are currently being

undertaken in line with the new system described in the Spatial Planning and Land Use Management Act

(No. 16 of 2013; SPLUMA) and the Municipal Systems Act (No. 32 of 2000). The Municipal Systems Act

explains the purpose of an SDF as the provision of general direction to inform decision-making on an

ongoing basis, with the aim of creating integrated, sustainable and habitable regions, cities, towns and

residential areas (WSP, 2013). The impact of SDFs is limited to providing policy to guide and inform land

development and management, while a Land Use Management System (LUMS), similar to a town



planning or zoning scheme, has a binding effect on the development rights attributed to land and confer

real rights on properties (SDF, 2017). LUMS may be amended from time to time to take into account

changing circumstances with regards to the socio-economic or natural environments. These

amendments may include rezonings, subdivisions and/or removal of title deed restrictions, which would

be guided by the SDF. In terms of the Port of Saldanha, the SDF should be consulted for any planned

expansion activities in the back of port area, or on land being acquired by TNPA for port expansion

purposes. The SDF is currently in the process of being updated and will be published in 2018. A draft

version of the document was made available during the SEA revision process. The new SDF would need

to be considered by TNPA when planning future development proposals, especially where it relates to

bulk service requirements.

2.4.5 Draft Greater Saldanha Region Spatial Implementation Framework (2016)

The draft Greater Saldanha Region Spatial Implementation Framework recognises the Saldanha area as

being the most significant area of spatial development potential within the West Coast district. This

recognition relates to the large number of potential development projects in the area, some of which are

listed in this chapter of the SEA. It also relates to its location as having tourism development potential.

The area is also identified as the area having the strongest functional linkages to the Greater Cape Metro

region and thus most open to the movement of people, goods and trade at a scale most likely to have a

material development impact (IDP, 2017).

2.4.6 Greater Saldanha Environmental Management Framework (EMF) 2017 Draft

The draft Department of Environmental Affairs (DEA) guideline on EMFs (2005) states that an EMF

provides an applicant with an “early indication of the areas in which it would be potentially appropriate to

undertake an activity” and thus also identifies areas where development should ideally be avoided or

where specific sensitive environmental attributes are to be considered. An EMF is also intended to assist

the competent environmental authority to determine whether there are any activities within the

geographical area that may not commence without environmental authorisation in light of the

environmental attributes or any activities within a geographical area that may be excluded from obtaining

environmental authorisation.

The objectives of the EMF is thus to facilitate the pursuit of a sustainable development path in the

geographical area, to provide a comprehensive and integrated information base on the environmental

attributes of an area through detailed information maps and serving as a decision-support tool for

environmental authorities, local authorities (informing SDFs) and applicants.

The vision of the draft EMF is for natural and cultural resources to be protected and managed to sustain

livelihoods, economic activity and the wellbeing of people.

Key Pressures

The EMF identifies the following key pressures currently experienced in the Greater Saldanha area:

• The availability of water resources;

• Coastal development and related impacts from erosion and stormwater discharged to the sea;

• Disturbance and degradation of terrestrial and aquatic ecosystems;

• Marine pollution and pollution risks linked to:

o Port activities (e.g. shipping, oil spills, desalination brine discharge, ship repair, ballast

water discharge, increased dredging, increased stormwater discharge);

o Organic nutrient overloading due to fish processing plants and marine aquaculture.

• Degradation of coastal and marine ecosystems linked to dredging;



• Climate change impacts (i.e. sea level rise, erosion, increased storm surges)

• Air quality;

• Poverty and unemployment levels;

• Inadequate infrastructure; and

• Loss of settlement character and identity.

A number of these key pressures relate to current and proposed future Port activities.

Conflict Areas

The EMF includes a Conflict Areas dataset that identifies conflicts between land use objectives, i.e.

conservation vs. development. Within the Greater Saldanha area, three types of Conflict Areas have

been identified:

• Conflict 1: conflicts between biodiversity and urban development plans;

• Conflict 2: conflicts between biodiversity and industrial development plans; and

• Conflict 3: conflicts between natural resources and agricultural areas.

Conflict 2 areas have been identified where intact natural vegetation and mapped Critical Biodiversity

Areas (CBAs) and Ecological Support Areas (ESAs) have been identified within Port land and in areas

proposed for new land acquisition as part of port expansion (see Section 3.4.3). TNPA would need to

take cognisance of the currently identified conflict areas and of the negotiations that would need to be

entered into with the relevant parties before any final decisions are taken on development proposals. In

order for conflicts to be resolved, trade-offs may need to take place with certain stakeholders, which may

include the consideration of biodiversity offset areas. For Conflict 2 areas, CapeNature, DEA&DP and the

investors, developer and applicable stakeholders would need to be consulted. TNPA would need to

abide by the findings of the final EMF document once it is gazetted and follow the procedures for

resolving conflicts.

Table 2.3 Potentially applicable legislation

1. Western Cape Provincial SDF

2. West Coast District Municipality SDF

3. The National Water Act (No. 36 of 1998)

4. Marine Living Resources Act, Act 18 of 1998

5. National Environmental Management: Air Quality Management Act, Act 39 of 2004

6. National Environmental Management: Biodiversity Act, Act 10 of 2004

7. National Environmental Management: Integrated Coastal Management Act, Act 24 of 2008

8. National Environmental Management: Protected Areas Act, Act 57 of 2003

9. National Environmental Management: Protected Areas Amendment Act, Act 15 of 2009

10. National Environmental Management: Waste Act, Act 59 of 2008

11. National Heritage Resources Act, Act 25 of 1999

12. Physical Planning Act, Act 125 of 1991

13. Western Cape Environmental Implementation Plan – November 2002

14. Western Cape Planning and Development Act, Act 7 of 1999



CHAPTER 3: BIOPHYSICAL AND SOCIO-ECONOMIC DESCRIPTION

3.1 INTRODUCTION

The town of Saldanha Bay is located approximately 150 km north of Cape Town and falls within the

jurisdiction of the Saldanha Bay Local Municipality and West Coast District Municipality. This chapter

provides a summary description of the biophysical and socio-economic environment in which the Port of

Saldanha is situated.

3.2 CLIMATE

The Saldanha area has a semi-arid Mediterranean climate, with hot dry summers and cool to cold wet

winters. The area receives on average about 278 mm of rain per year, mainly during winter, with the

lowest rainfall in February and the highest in July. The Western Cape has experienced below average

winter rainfall seasons over the last three years, leading to drought conditions and drastic municipal water

restrictions. The Saldanha Bay municipal area has been one of the regions most hard hit by these

drought conditions, with the municipality having proposed emergency responses to the water shortage

(see Section 3.4.2).

With regards to temperatures, maximum temperatures in the Saldanha Bay area range between 20 and

30°C and minimum temperatures range between 5 and 15°C through the year with the warmest months

being January and February and coldest, July and August.

The prevailing wind direction is mainly from the south in summer and from the north and south-west

during winter. Winds in the study area have a seasonal variability, reflecting the changes in synoptic

weather patterns prevailing at different times of the year (CSIR, 2015). During summer months from

November to February, prevailing south-southwest (SSW) winds cause regional scale upwelling along the

coast (Weeks et al. 1991a&b, Monteiro and Largier 1999). In the winter from May to August, winds are

gentle and blow predominantly from the north-northeast (NNE) (CSIR, 2015) (see Figure 3.1). This is

attributed to increases in the passage of cold fronts. The southerly components however remain strong,

with an increase in occurrence during spring. Distribution patterns for spring and autumn are similar. The

wind speed typically reaches a maximum in the late afternoon, reducing at night; calms generally prevail

in the mornings (CSIR, 2015).

The predominantly southerly character of the wind regime causes entrained iron ore dust to move inland

(north-north west, north and north-north east) and settle in neighborhoods of Saldanha Bay and

Vredenburg; causing a pinkish discoloration of buildings, infrastructure and vegetation. This not only

poses a health risk, but affects property prices and amenity value negatively and may also discourage

potential investors from establishing operations within the adjacent IDZ area.

The local wind regime, through its influence on the upwelling of coastal waters, has a very positive

influence in terms of human access to valuable ecosystem goods and services. Longshore and south-

easterly winds, under the influence of Coriolis force, causes surface water along the west coast of South

Africa to move offshore. This water is replaced by cold, nutrient-rich water upwelled from depths of up to

300 m. Nutrients like nitrates and phosphates are brought to the surface in this manner and provide a

food source for phytoplankton which sustains a complex trophic system. This makes the west coast one

of the richest fishing grounds in the world and also attracts large colonies of birds and seals (Branch and

Branch 1981). The areas that experience the most intense upwelling activity in the southern Benguela



system are off Cape Columbine and the Cape Peninsula (35 km north of Saldanha Bay and 100 km south

of Saldanha Bay respectively) (Anchor, 2016).

Figure 3.1 Prevailing wind directions and strengths in Saldanha Bay from March 2014 to February 2015

(Source: CSIR, 2015).

The United Nations 2008 Conference on Trade and Development identifies three key climate change

factors likely to impact port operations and infrastructure: Rising temperatures (e.g. triggering changes in

maritime trade patterns, for example through impacts on global agriculture), rising sea levels (e.g.

potentially triggering flooding and inundation, resulting in increased construction and maintenance costs

of port infrastructure) and extreme weather conditions (e.g. manifesting as tropical cyclones, strong

winds, etc., resulting in increased risk to vessel navigation and mooring safety in ports, damage to port

infrastructure and operational delays).

The following elements of port infrastructure, operations and port-associated littoral environments might

be impacted by climate change: breakwater structures, port entrance channel, navigation within port

limits, ship manoeuvring inside port, moored ship and cargo/container handling, cargo/container storage

and the integrity of littoral environments adjacent to ports. For each of these vulnerable elements, the

potential impacts attributable to a range of climate change ‘drivers’ will need to be understood, and

correlated adaptation measures devised.

Based on an investigation into the possibility of an increase in sea level due to climate change, it has

been postulated that an increase of up to 1.44 mm per annum may be expected along the west coast of

South Africa (Mather, 2011). In the feasibility process for the new proposed oil and gas marine



infrastructure within the Port of Saldanha (ARUP, 2014), provision has been made for 140 mm sea level

rise in the preliminary design of the proposed Berth 205 addition project.

3.3 MARINE ENVIRONMENT

3.3.1 Regional Biogeography

Saldanha Bay is situated in the southern Benguela ecoregion, one of four inshore bioregions spanning

the coast of South Africa (Sink et al., 2012). This bioregion extends from Cape Agulhas northwards into

Namibia (Figure 3.2). At a finer spatial scale, the Saldanha-Langebaan Lagoon system falls within the

South-Western Cape (SWC) inshore ecozone that stretches from Cape Point to Cape Columbine. The

SWC inshore ecozone is a transition zone between the cooler Namaqua, and warmer Agulhas inshore

ecozones, and shares components of the biota from both neighbouring ecozones. For most groups,

marine species diversity decreases from east to west, whilst biomass increases. Langebaan Lagoon is a

large tidal lagoon, which is unique in South Africa (Sink et al., 2012). Although ground water input

contributes towards the Lagoon sharing some characteristics with estuaries, the nutrient rich waters

create a unique, productive and sheltered habitat that provides potential refuge for marine species

(Anchor, 2016).

Figure 3.2 Marine ecoregions and ecozones in the South African marine environment (Sink et al., 2012).

Due to the variety of seabirds found on the islands surrounding Langebaan Lagoon, the 2011 National

Biodiversity Assessment (NBA) included the wider aquatic area surrounding Schaapen, Jutten, Malgas

and Meeu Islands within the Langebaan Lagoon Marine Protected Area (MPA). The offshore islands in

Saldanha Bay are designated as important bird areas (IBAs) for IUCN Red Data Listed seabirds and the

entire Lagoon habitat is rated as ‘vulnerable’ (IUCN, 2013).

The marine environment surrounding the Port of Saldanha can be divided into three areas, namely Outer

Bay, Saldanha Bay and the Langebaan Lagoon (see Figure 3.3). Saldanha Bay is further divided into



Small Bay and Big Bay by the Iron Ore Jetty which was constructed in 1975 and protrudes into the bay in

a southwesterly direction. Langebaan Lagoon is located to the south of Schaapen Island.

Figure 3.3 Saldanha Bay configuration.

3.3.2 Coastline configuration

The littoral zone in Small Bay is largely transformed by man-made structures (small craft harbour, fish

processing plants and industry) with a sandy beach section extending from the town of Saldanha Bay

eastward towards the Iron Ore Jetty. The coastline along Small Bay is relatively stable and is not

obviously vulnerable in terms of threats linked to beach erosion. Of much greater significance is the Big

Bay coastline. This littoral zone is approximately 5.5km long, with its northern and southern limits at the

Reclamation Dam and Lynch Point respectively (Figure 3.3). The beach, comprising the shoreline, is

generally narrow and for part of its length is backed by a relict dunefield with a steep calcrete cliff along

the central section of the back beach (CSIR, 2008). A significant feature of this section of coastline is a

wide accreted beach adjacent to the Reclamation Dam and an area of eroded beach immediately north of

Lynch Point.



3.3.3 Wave regime

Prior to the construction of the IOT, waves entering the Bay arrived at the shore of Big Bay largely

unimpeded and the entire shore was classified as exposed (Flemming, 1977). Construction of the IOT

provided some protection from waves along the northern shore of Big Bay resulting in sheltered and

semi-sheltered areas (Figure 3.4). Saldanha Bay provides natural shelter from waves coming from the

north and north-west and, as a result, the waves affecting most of Small Bay are from the south-west

(ARUP, 2014). The narrow entrance to the Bay between Marcus Island and Elands Point provides

reasonable protection to current and proposed new Port infrastructure. The Port is, however, affected by

long period waves (CSIR, 2013) and waves of a much shorter period may be generated locally within the

wider Bay.

Figure 3.4 Predicted wave field in Saldanha Bay showing wave height and direction after the construction of the causeway and the iron-ore Terminal (Source: WSP Africa Coastal Engineers, 2010).

The southern half of the coastline faces southwest and is exposed to offshore waves entering Saldanha

Bay, whereas the section closer to the Reclamation Dam experiences a slight reduction in wave exposure

due to the diffraction and refraction of wave energy around Marcus Island and the sheltering effect of the

Iron Ore Terminal (CSIR, 2008). This results in varying nearshore wave energy. Observation concerning

predicted waves (from offshore) is the shore-normal angle of approach of waves on the shoreline. Given

this angle of approach, a small volume of longshore sediment transport would be expected (CSIR, 2008).

In addition to swell waves the beach is also exposed to locally generated wind-waves. Strong southerly

winds, predominating from spring to autumn, blow from Schaapen Island, resulting in wave heights of

approximately 0.4 m to 1 m. Such wind-waves with an oblique attack on the shoreline tend to drive a

north-bound longshore flow; combined with the stirring effect of such waves on bed sediments, north-

bound littoral sediment transport is the result (CSIR, 2008). This north-bound transport is clearly evident

in the accreted beach developing at the Reclamation Dam, with a tendency for beach erosion to occur



towards Lynch Point. Estimated average net longshore transport of sediment within the littoral zone along

this section of coastline is approximately 8500 m3/year to the north. This is made up of gross transports of

about 10 000 m3/year to the north and about 1500 m

3/year to the south; i.e. net transport towards the

north of approximately 8 500 m3/year.

The following longshore transport components can be identified:

� Waves originating offshore are responsible for 10% of the net sediment transport;

� Local wind-waves (generated within Saldanha Bay) are responsible for about 50% of the net

sediment transport;

� Local wind-generated flow (superimposed on the stirring effect of waves) is responsible for about

40% of the net sediment transport (CSIR, 2008).

3.3.4 Marine water quality

According to the 2017 State of the Bay report, there is clear evidence of altered current strengths,

circulation patterns and wave energy within Saldanha Bay affecting marine water quality. This can be

ascribed to the construction of the iron ore terminal and causeway which is also contributing to the

deterioration in water quality, particularly in Small Bay. The water entering Small Bay appears to remain

within the more confined bay for longer periods than was historically the case, with the greater Saldanha

bay area having a reduced flushing capacity. There is also an enhanced clockwise circulation and

increased current strength flowing alongside unnatural obstacles such as the iron ore terminal. The wave

exposure patterns in Small Bay and Big Bay have also been altered as a result of the development and

expansion of Port facilities. The extent of sheltered and semi-sheltered areas has increased particularly

in Small Bay, but also in Big Bay (Anchor, 2017).

Due to healthier circulation and flushing, Big Bay exhibits superior water quality in comparison with Small

Bay (ZAA, 2016). Regular monitoring of microbial indicators as part of the State of the Bay reporting has

shown a considerable drop in the faecal coliform levels within the Greater Saldanha Bay area. Elevated

heavy/trace metal levels (i.e. lead, cadmium and zinc) in the inshore areas are, however, still of concern

and may remain of concern as Port facilities expand and related trace metal sources increase.

An investigation addressing trace metal contamination within the Port of Saldanha found that Small Bay

had been subjected to a greater extent of organic and trace metal contamination compared to Big Bay

and Langebaan Lagoon (Anchor, 2015). This is attributable to the poor circulation and flushing in Small

Bay in combination with organic and trace metal contamination by the surrounding industries and

activities. Within Small Bay, sediments from sites located alongside the MPT and in the vicinity of the

yacht club revealed elevated Cadmium concentrations that exceeded Effects Range Low (ERL –

concentration at which toxicity may be observed in sensitive species) limits. The enrichment values for

these sites have been very high since the 1980s, indicating significant long-term contamination.

Cadmium is a trace metal used in electroplating, in pigment for paints, in dyes and in photographical

processing. Likely sources of Cadmium in the marine environment include emissions from industrial

combustion processes, metallurgical industries, motor vehicle emissions and waste streams such as

storm water drains (OSPAR, 2010). As Cadmium is prone to bioaccumulation and becomes toxic at

elevated concentrations, its effect on the marine environment and on human consumers can be

significant (OSPAR, 2010). Although high concentrations of Cadmium and lead above the guideline limit

for human consumption have been recorded frequently in naturally occurring nearshore mussels, these

levels were found to be much lower and mostly within the guidelines for human consumption in the

mussels farmed away from the shore within Small Bay (Anchor, 2015; Pisces, 2017). Although Cadmium

may be naturally elevated at sites along the west coast due to high Cadmium concentrations in terrestrial

sediments, the spatial pattern in Saldanha Bay indicates that elevated values are likely a result of

activities related to shipping and boating (see Figure 3.5).



Similarly, elevated copper concentrations have been recorded along the IOT and near the yacht club

(Anchor, 2017). This suggests that there may be a source of copper pollution affecting most of the Small

Bay region. Copper is used as a biocide in antifouling products as it is very effective for killing marine

organisms that attach themselves to the surfaces of boats and ships. Anti-fouling paints release Copper

into the sea and can make a significant contribution to Copper concentrations in the marine environment

(Clark, 1986). The areas with elevated normalized Copper values also correspond with those with high

levels of boat traffic. It is thus likely that anti-fouling paints used on boats may have been contributing

Copper to the system. The Copper concentration at the Yacht Club Basin in Saldanha Bay exceeded the

ERL guideline and the extremely high enrichment factor indicated an anthropogenic pollution source

(Anchor, 2017) (see Figure 3.5). TNPA does not currently allow the removal and reapplication of anti-

fouling paints within the Port of Saldanha without the appropriate measures in place to contain any

residue. All removed paint residue and marine organisms are to be captured and disposed of onshore.

Figure 3.5 Cadmium (Cd; left) and copper (Cu; right) levels measured in Saldanha Bay and the Langebaan Lagoon in 2017 (Anchor, 2017).

A considerable increase in the concentration of cadmium was detected in the surficial sediments in Small

Bay between 2010 and 2014 at the GMQ, the MPT and the IOT (see Figure 3.6). Values were highest at

the MPT, exceeding the ERL values and indicating likely toxicity to marine life. The 2017 monitoring

campaign, however, showed these levels dropping below the ERL value at the MPT (Anchor, 2017).

Copper and nickel have not exceeded the ERL at any of these sites since 2008. Lead, however,

exceeded the ERL levels in 2008, 2009, 2011 and 2013 at the MPT, but remained below the ERL levels

since then (Anchor, 2017). Overall, contamination levels were lower at the IOT and the GMQ in

comparison to the channel opposite the MPT.



Figure 3.6: Concentrations of cadmium, copper, lead and nickel in mg/kg recorded at three sites in Saldanha Bay between 2008 and 2015. Red dotted lines indicate Effects Range Low (ERL) values for sediments.

3.3.5 Nutrients in Sediment

The introduction of organic matter/nutrients from marine and terrestrial origins provides an essential food

source for benthic macrofaunal communities and contributes to the ecological health of the system as a

whole. Nutrient levels in the marine environment are monitored through the Total Organic Carbon (TOC)

and Total Organic Nitrogen (TON) parameters. The accumulation of organic matter in sediments do not

necessarily directly impact on the environmental, however, excessive levels can have deleterious effects

through bacterial breakdown, which can reduce the amount of dissolved oxygen available in the water

column. In these cases, toxic hydrogen sulphide (H2S), which is recognised by black, foul smelling

sediment, may result (Anchor, 2017).

Spatial variation in the amount of TOC and TON recorded in the sediments in Saldanha Bay and

Langebaan Lagoon in 2017 are presented in Figure 3.7. Concentrations were generally highest at the

Yacht Club Basin and along the IOT. TOC and TON accumulates in the same areas as mud as most

organic particulate matter is of a similar particle size range and density to that of mud particles (size <60

µm) and settle out of the water column together with the mud. Thus it is expected that the distribution of

organics mirrors the distribution of muddy sediments in the Bay. The most likely sources of organic

matter in Small Bay are from phytoplankton production at sea and the associated detritus that forms from

the decay thereof, changes in water circulation patterns associated with harbour development, organic

deposition from effluent discharged into Small Bay (i.e. sewage effluent and fish farm waste) and

mariculture operations in the area (Jackson and McGibbon, 1991; ARUP, 2016). Historical data have

shown that the level of organic matter typically increases immediately following a dredging event and

declines in subsequent years. This suggests that the re-suspension of organic matter from deeper

sediments and the subsequent settling of this matter is a primary contributor to organic matter in surface

sediments in the Bay (Anchor, 2015).



Figure 3.7: Total organic carbon (left) and total organic nitrogen (right) in Saldanha Bay in 2017 (Anchor,

2017).

The ratio between TOC and TON is also important as it provides an indication of the source of organic

matter present in sediments (Anchor, 2017). Elevated carbon to nitrogen ratios (C:N) could be an

indication of organic matter originating from onshore sources, e.g. water enriched with processed sewage

in the vicinity of the Bok River. It could also be an indication of denitrification in areas where oxygen

levels have been depleted and nitrates are present. The C:N ratio is thus an indicator of system health.

3.3.6 Hydrocarbons in Sediment

3.3.6.1 Poly-aromatic hydrocarbons

Poly-aromatic hydrocarbons (PAHs) (also known as polynuclear or polycyclic-aromatic hydrocarbons) are

present in significant amounts in fossil fuels (i.e. natural crude oil and coal deposits), tar and various

edible oils. They are also formed through the incomplete combustion of carbon-containing fuels such as

wood, fat and fossil fuels. PAHs are one of the most wide-spread organic pollutants and they are of

particular concern as some of the compounds have been identified as carcinogenic for humans (Nikolaou

et al., 2009). PAHs are introduced to the marine environment by anthropogenic (e.g. combustion of fuels)

and natural means (e.g. oil welling up or products of biosynthesis). PAHs in the environment are found

primarily in soil, sediment and oily substances as they are lipophilic and are less prone to evaporation.

The highest values of PAHs recorded in the marine environment have been in areas with intense vessel

traffic and oil treatment (Nikolaou et al., 2009).

Total PAH concentrations in marine sediment samples from Saldanha Bay collected in 2017 were low

across all the sampling sites.



3.3.6.2 Total Petroleum Hydrocarbons

In 2011 all Total Petroleum Hydrocarbon (TPH) concentrations were below the detection limit of

20 mg/kg but slight increases in TPH levels were recorded at all sites in 2012 and 2013 (Table 3.1). TPH

levels at the MPT decreased in 2014 (130 to 19 mg/kg), however, an extreme increase was experienced

at the IOT (28 to 14 649 mg/kg). This is of major concern as such levels are considered to be toxic

(Nikolaou et al., 2009). The site of contamination is in close proximity to bulk-shipping berths and

associated mooring activities, thus it could be related to a pollution incident associated with shipping

activities. No formal pollution incidents that could explain such an increase were, however, recorded at

the IOT during 2014. Since 2015, TPH concentrations have been below the detection limit of 38 mg/kg

and have remained at this level at all sampling sites to date (Anchor, 2017).

Table 3.1: Total petroleum hydrocarbon (mg/kg) in sediment samples collected over the period 2011-2017 from three sites in Small Bay. Values in red indicate exceptionally high total petroleum hydrocarbon levels (Source: Anchor, 2017).

2011 2012 2013 2014 2015 2016 2017

MPT north (SB14) <20 34 130 19 <38 <38 <38

MPT south (SB15) <20 35 NO DATA 53 <38 <38 <38

IOT (SB16) <20 24 28 14 649 <38 <38 <38

3.3.7 Marine & coastal ecosystems

The Saldanha Bay – Cape Columbine coastline falls within the Namaqua biogeographic province. Marine

habitats on the open coast of the Cape Columbine peninsula, comprise primarily:

• Sandy intertidal and subtidal substrata,

• Intertidal rocky shores and subtidal reefs, and

• The water body.

The biological communities in these habitats are described briefly below. This section draws from the

baseline marine environment description provided by Anchor Environmental (2016). Additional habitats

within the Saldanha Bay-Langebaan Lagoon system include:

• Unvegetated sand flats;

• Macrophyte and seagrass beds, and

• Salt marshes.

Saldanha Bay and Langebaan Lagoon are considered to be one of the “biodiversity hot spots” in South

Africa (Day, 1959). A declared MPA incorporates sites in and around the Bay, while Langebaan Lagoon

and much of the surrounding land falls within the West Coast National Park. Langebaan Lagoon is

registered under two international conventions: the Ramsar Convention on Wetlands of International

Importance and the Bonn Convention on the Conservation of Migratory Species of Wild Animals.

3.3.7.1 Intertidal Habitat

Sandy shores within Saldanha Bay are predominantly exposed to high degrees of wave action and tend

to support a lower diversity and biomass of organisms than the sheltered shores within Langebaan

Lagoon. The Lagoon is dominated by intertidal mud- and sand-flats but also supports saltmarsh habitat

(Summers, 1977). Although the system is entirely marine, estuarine species such as the common



sandprawn (Callianassa kraussi) and the estuarine mudprawn (Upogebia africana) occur. Beds of the

sea grass (Zostra capensis) are distributed intermittently over the sand flats, and provide habitat for the

rare limpet Siphonaria compressa (Angel et al., 2006).

Intertidal rocky shores support fauna and flora typical of the cold west coast. Exposed and semi-exposed

rocky shores tend to be dominated by filter feeders (Anchor, 2015, Robinson et al., 2007), while algae are

more prolific on sheltered shores. At least 28 alien and 42 invasive marine species occur along the West

Coast of South Africa, of which 25 have been confirmed in the Saldanha Bay and/or Langebaan Lagoon

systems (Griffiths et al., 1992, Laird and Griffiths, 2008, Mead et al., 2011, de Greef et al., 2013). The

most prolific of these are the Mediterranean mussel Mytilus galloprovincialis and the barnacle Balanus

glandula, the abundance of which is limited by the long stretches of sandy beach and reduced wave

action in the Lagoon. Both these species have dramatic effects on community structure, and dominate

entire zones within the intertidal. Since 2014, the presence of the barnacle Perforatus perforates

(Anchor, 2017), the Japanese skeleton shrimp Caprella mutica (Peters & Robinson, 2017), and the

European porcelain crab Porcellana platycheles (Anchor, 2017) have also been confirmed in the

Saldanha Bay/Langebaan area.

Rocky shores sampled during the 2015 ‘State of the Bay’ survey included Dive School and Jetty within

Small Bay, IOT and Lynch Point within Big Bay, North Bay and Marcus Island at the mouth of Saldanha

Bay, and Schaapen Island East and West in Langebaan Lagoon (Anchor, 2015). In total, fifty-two

species were recorded at the two Small Bay rocky shore sites sampled in 2015. Of these, 33% were

grazers, 17% predators, 21% filter feeders, 6% encrusting algae, 6% ephemeral algae and 17%

corticated algae. These species are typical of semi-exposed rocky shores along the West Coast (Anchor,

2015).

Both rocky shore sites in Small Bay are considered to be very sheltered and considerable amounts of

sand and gravel accumulate amongst the boulders. The two sites surveyed in Small Bay had the lowest

overall percentage cover of biota of all eight sites assessed (see Figure 3.8). Grazers dominated at the

Dive School, while encrusting algae dominated at the Jetty.

The sites depicted in Figure 3.8 are arranged from ‘very sheltered’ to ‘exposed’, clearly illustrating that

filter feeders are more abundant at sites that experience higher degrees of wave exposure. The species

assemblages of the eight rocky shore sites differed largely due to the prevailing wave exposure (Anchor,

2015). Very sheltered shores had low biotic cover consisting primarily of grazers, while sheltered shores

were dominated by seaweeds and encrusting corallines.

3.3.7.2 Benthic macrofauna

Subtidally, the nutrient rich waters of the Saldanha Bay-Langebaan Lagoon system support an abundant

and diverse benthic macrofaunal (e.g. brittlestars, sea cucumbers and prawns) community on soft

sediment habitats. Macrofauna living within benthic substrata play an important role in the reworking of

sediments. These organisms assist in promoting the exchange of oxygen and nutrients within the

substrate by enhancing sediment porosity. Macrofaunal communities also provide an important food

source for numerous fish, bird and invertebrate species. Biological indicators, such as species

abundance, biomass and diversity, provide a direct measure of the state of the ecosystem in space and

time. Benthic macrofauna are the biotic component most frequently monitored to detect changes in the

health of a marine environment as they are short-lived and their community composition responds rapidly

to environmental change (Warwick, 1993). They also tend to be directly affected by pollution, are easy to

sample quantitatively (Warwick, 1993), and are scientifically well-studied compared to other sediment-

dwelling components.



Organic matter is one of the most universal pollutants affecting marine life and it can lead to significant

changes in community composition and abundance. Community responses include decreased growth

rates, disappearance of species due to anoxia, and changes in community composition. A reduction in

the number of species found in a habitat, or even the complete disappearance of all benthic organisms,

may result from repeat hypoxia caused by low levels of dissolved oxygen (Warwick, 1993). Within a

harbour environment, the community composition of benthic macrofauna is likely to be impacted by

increased levels of contaminants such as trace metals and hydrocarbons within the sediments.

Anthropogenic physical disturbance (e.g. dredging) may also affect benthic macrofauna and is likely to

result in the proliferation of opportunistic pioneer species.

Figure 3.8: Percentage cover of the seven functional groups surveyed by Anchor in 2015. Data were averaged across the whole shore. Sites are organised from very sheltered to exposed (Source: Anchor, 2015).

Studies conducted by Anchor in 2004 and 2008-2017 provide recent and comparable data on the benthic

macrofaunal community composition, abundance and biomass throughout the Saldanha-Langebaan

system. Approximately 80 macrofaunal species are regularly found within the system, with infaunal

abundance in Small Bay averaging around 1 500 individuals/m2 and infaunal biomass around 900 g/m

2

(see Figure 3.9). Average biomass within Langebaan Lagoon was found to be lower at around

450 g/m2. Monitoring of benthic macrofaunal communities over time has revealed a relatively stable

situation in most parts of Saldanha Bay and Langebaan Lagoon with the exception of 2008, when a

dramatic shift in benthic community composition occurred at all sites. Extensive dredging activities

undertaken during 2007 and early 2008 appear to have had bay-wide impacts on the macrobenthic

community structure, resulting in a temporary loss of less tolerant species and a shift in community

composition to one dominated by more tolerant species (Anchor, 2015). This shift involved a decrease in

the abundance and biomass of filter feeders and an increase in shorter lived, opportunistic detritivores.

Filter feeding species are typically more sensitive to changes in water quality than detritivores or

scavengers and account for much of the variation in overall abundance and biomass in Saldanha Bay

(see Figure 3.9).



The community composition in Small Bay was found to be more similar to that of Big Bay than to

Langebaan Lagoon. The hardier filter feeders such as Upogebia capensis were abundant in both Big Bay

and Small Bay, but the more sensitive filter feeders such as the amphipods Ampelisca spinimana and A.

anomala, the mollusc Macoma odinaria and the polychaete Sabellides luderitzi were notably more

abundant in Big Bay than Small Bay. Similarly, the sea pen Virgularia schultzei, widely regarded as a

sensitive species, is now found only in Big Bay (Anchor, 2017). This species was reportedly very

abundant in Saldanha Bay prior to the development of port infrastructure and fish factories, but is now

completely absent from Small Bay and is rare in Big Bay (Anchor, 2017).

Figure 3.9: Trends in the biomass and abundance (g/m2) of benthic macrofauna in Small Bay as shown by

taxonomic and functional groups.

Variations in species diversity (represented by the Shannon Weiner Index, H’) for Saldanha Bay, and

Langebaan Lagoon in 2017 are presented in Figure 3.10 (Anchor, 2017). Diversity was highest in

Langebaan Lagoon, intermediate in Big Bay and lowest around the IOT. Poor diversity is most likely

attributable to the higher levels of disturbance, mainly dredging, and a high proportion of mud in the

sediment. High levels of disturbance associated with pollution (e.g. high nutrient input from terrestrial

sources) can allow a small number of opportunistic, short-lived species to colonise the affected area and

prevent a more diverse community comprising longer living species from becoming established.



Figure 3.10: Variation in the diversity of the benthic macrofauna in Saldanha Bay based on 2017 data. H’ = 0 indicates low diversity, while H’ = 3.32 indicates high diversity (Anchor, 2017).

3.3.7.3 Alien Invasive Species

Alien species are plants, animals and microorganisms that are transported beyond their natural range and

become established in a new area. They are sometimes called exotic, introduced, non-native or non-

indigenous species but are not necessarily invasive. Invasive species are introduced species that have a

tendency to spread to a degree believed to cause damage to the environment, to the economy or to

human health. At least 92 marine alien species have been recorded from South African waters, 70 of

which are thought to occur along the west coast of South Africa, and 28 of which have been confirmed in

Saldanha Bay and/or Langebaan Lagoon (Anchor, 2015). An additional 39 species are currently

regarded as cryptogenic, which means they are of unknown origin but are likely introduced to South

Africa. Of these, five species have already been identified in Saldanha Bay.

Most of the introduced species in South Africa have been found in sheltered areas such as harbours, and

are believed to have been introduced through shipping activities, for example ballast water discharge or

hull fouling. As ballast water tends to be loaded in sheltered harbours, the species that are transported

originate from these habitats and have trouble adapting to South Africa’s exposed coast. This might

explain the low number of introduced species that have established along the coast (Griffiths et al., 2008)

in comparison to the high number found in sheltered bays or harbours.

Invasive species include the Mediterranean mussel (Mytilus galloprovincialis), the European green crab

(Carcinus maenas) (Griffiths et al., 1992), the acorn barnacle Balanus glandula (Laird & Griffiths, 2008),

and the Pacific South American mussel (Semimytilus algosus) (de Greef et al., 2013). Data from the

State of the Bay surveys suggest that Mytilus occurs mainly on exposed rocky shores in Saldanha Bay

(i.e. North Bay, IOT, Marcus Island and Lynch Point) and is present in low numbers at the more sheltered

sites (Dive School, Jetty and Schaapen Island East and West). Populations grew fairly rapidly in the

period 2005 until 2012/2013 at most exposed sites, after which populations stabilized. This mussel is by

far the most dominant faunal species on the rocky shore, and covers 100% of the available space across

substantial portions of the shore at some sites. It reaches its highest densities low on the shore, in areas

exposed to high wave action.



Surveys in Saldanha Bay have not turned up any live specimens of the European green crab to date, but

a single dead specimen was picked up by Robinson et al. (2004) in Small Bay at the Small Craft Harbour.

Due to a lack of specimens, it is unlikely that there is an extant population in Saldanha Bay at present.

Abundance of the acorn barnacle was very high when it was first detected in 2010 but has been declining

since. From 2011 to 2017, abundance at the IOT decreased by two thirds. The Pacific South American

mussel is usually present only on wave exposed shores, although in Saldanha Bay it has been observed

on the ropes at mussel farms.

3.3.7.4 Fish

Due to the sheltered nature of Saldanha Bay and the abundance of nutrients as a result of upwelling, the

area is an important nursery ground for a variety of fish species. There is considerable life history and

tagging evidence that populations of key fishery species, namely hound sharks, white stumpnose,

steentjies and elf, are resident within the Saldanha Bay-Langebaan system and comprise semi-isolated,

largely self-recruiting populations (Kerwath et al., 2009, Tunley et al., 2009, Attwood et al., 2010, Hedger

et al., 2010, da Silva et al., 2013). The shallow surf zone areas around the periphery of Saldanha Bay

are especially important, thus designated areas within the Langebaan Lagoon are closed to fishing.

Monitoring of fish populations in Saldanha Bay was initiated by means of experimental seine-netting in

1986. Surveys undertaken in 2011 recorded good recruitment of harders (Liza richardsonii), white

stumpnose (Rhabdosargus globiceps), gobies (Caffrogobius sp.) and silversides (Atherina breviceps) in

Big Bay (Anchor, 2012). In Small Bay, however, where commercially important species such as white

stumpnose have traditionally been most abundant, there were clear signs of decline (Anchor, 2012a).

Sampling of fish in the surf-zone habitats of Small Bay were conducted during April 1994, October 2005

and annually during April over the period 2007-2015 for the State of the Bay monitoring (Anchor, 2015).

Four sites spread around Small Bay were regularly sampled and are listed in a clockwise direction from

the Marcus Island causeway: Small Craft Harbour, Hoedjiesbaai, Campsite and Bluewater Bay. The 33

fish species landed in the 115 hauls in Small Bay during these surveys are recorded in Table 3.2 (Clark,

1997, Hutchings & Lamberth, 2002, Anchor, 2017).

Table 3.2: Fish species recorded during beach seine-net surveys in Small Bay, Saldanha in 1994, 2005 and 2007-2017 (Anchor, 2017).

Species Common name Species Common name

Amblyrhychotes honkenii* Evil eye blassop Gilchristella aestuaria Estuarine round herring

Argyrozona argyrozona Silverfish Gonorhynchus gonorhynchus Beaked sand eel

Atherina breviceps Silverside Haploblepherus pictus Dark shy Shark

Caffrogobius sp. Goby Heteromycteris capensis Cape sole

Callorhinchus capensis* St Joseph Lithognathus mormyrus Sand steenbras

Cancelloxus longior Snake eel Liza richardsonii Harder

Cheilidonichthys capensis Gurnard Mustelus mustelus Smoothhound shark

Chorisochismus sp? Suckerfish sp. Myliobatis aquila Eagle ray

Clinus latipennis False bay klipvis Parablennius cornutus Blenny

Clinus sp. larvae Klipvis larvae Pomatomus saltatrix Elf

Clinus superciliosus Super klipvis Poroderma africana Striped catshark

Clinus robustus Robust Klipvis Psammogobius knysnaensis Knysna sand gobi



Clinus venustris Bluntnose klipvis Raja clavata Thornback skate

Clinus heterodon West coast Klipvis Rhabdosargus globiceps White stumpnose

Cynoglossus capensis Tongue fish Rhinobatos blockii Bluntnose guitar fish

Dasyatis chrysonota Blue Stingray Spondyliosoma emarginatum Steentjie

Diplodus capensis Black tail Syngnathus temminckii Pipe fish

Etrumeus terres Red eye sardine Trachurus trachurus Horse mackerel

* Species newly recorded during 2017 survey

Small Bay provides habitat for the highest proportion of resident species, whilst a larger proportion of the

Big Bay and Langebaan Lagoon ichthyofauna occur sporadically in these areas. Although fish density in

Big Bay is generally lower than that recorded in Small Bay and Langebaan Lagoon (see Figure 3.11), Big

Bay constitutes nursery habitat for the two most important fish species (elf and white stumpnose) within

the system.

Overall, the catches made during the 2012 survey were the lowest on record for all three areas and

remained lower than any of the earlier surveys in both Small Bay and Big Bay, but was higher than

average in Langebaan Lagoon. From 2014 to 2017, the overall abundance of fish compared favourably

with earlier surveys (see Figure 3.11). The concerning trend in white stumpnose and blacktail abundance

over the 2012 to 2015 period in Small Bay appeared to have reversed with the third highest white

stumpnose abundance and second highest blacktail abundance recorded in the 2016 Small Bay samples.

Unfortunately blacktail juveniles were, for only the second time in the sampling history, entirely absent

from Small Bay catches in 2017 and white stumpnose abundance was slightly down from that recorded

during 2016 (Anchor, 2017). Blacktail are relatively long-lived species attaining 20 years of age, thus the

adult population within Saldanha Bay should persist to spawn in future years if natural variability was the

cause (Mann & Dunlop, 2013).

Figure 3.11: Average abundance of fish recorded from seine net surveys conducted in surf zone habitats within Saldanha Bay- Langebaan Lagoon (Anchor, 2017).

3.3.7.5 Birds and Marine Mammals

Saldanha Bay, Langebaan Lagoon and the associated islands provide important shelter, feeding and

breeding habitat for at least 53 species of seabirds, 11 of which are known to breed on the islands of

Malgas, Marcus, Jutten, Schaapen and Vondeling (Anchor, 2015). These islands support important



breeding colonies of African penguin (Spheniscus demersus), Cape gannet (Morus capensis), Cape

cormorants (Phalacrocorax capensis), bank cormorants (Phalacrocorax neglectus), white-breasted

cormorants (Phalacrocorax carbo lucidus), crowned cormorants (Phalacrocorax africanus), kelp gulls

(Larus dominicanus), Hartlaub’s gulls (Larus hartlaubii) and swift terns (Sterna bergii) (Anchor, 2006).

The African penguin, Hartlaub’s gull, Cape bank cormorant and Crowned cormorant are endemic to the

Benguela region. The rocky shore environment supports the endemic African black oystercatcher

(Haematopus moquini), a population which is successfully recovering from low numbers; while the tidal

flats of the Lagoon support large numbers of migrant waders during the summer months (Summers,

1977). The IUCN lists African penguins, Cape cormorants, and Bank cormorants as “endangered”

species; oyster catchers and crowned cormorants as “near threatened”; and Cape gannets as

“vulnerable” (IUCN, 2013). The majority of these species are piscivorous and depend largely on a

healthy population of fish for sustenance.

Populations of two cormorant species, namely Bank cormorants and Cape cormorants, that utilise islands

within the Saldanha Bay region for shelter and breeding, have decreased since early to mid-1990. In the

past this has been attributed to the construction of the causeway linking Marcus Island to the mainland,

and to increased human disturbance. However, given that the populations of several other seabirds that

breed on these islands have not decreased over this period, it appears that declines in local availability of

their principal prey species (rock lobster and sardines), as well as egg and chick predation by pelicans

and gulls may be the principal drivers.

The Cape gannet population on Malgas Island has also undergone severe decline due mainly to

predation by Cape fur seals and more recently by Great white pelicans. Predation by the seals was

responsible for a 25% reduction in the size of the colony at Malgas Island, between 2001 and 2006.

Management measures have been put in place, through selective culling of seals, which has improved

conditions for the gannets at Malgas Island. The African penguin populations are also under

considerable pressure, partially due to causes unrelated to conditions on the island such as the eastward

shift of the sardines, one of their main prey species. However, because populations are so depressed,

conditions at the islands in Saldanha have now become an additional factor in driving current population

decreases.

The Cape fur seal is a regular visitor in both the inner and outer bays during all months of the year. Five

whale species have been recorded within Saldanha Bay and along the adjacent coast: Orca, Humpback,

Southern Right, Minke and Bryde's whales. Dusky and Heaviside's dolphins have been recorded in Outer

Bay as well as along the open coast.

3.4 TERRESTRIAL ENVIRONMENT

3.4.1 Topography and Geology

The topography of the area consists of gently undulating coastal plains with low hills. The highest points

in the area include Malgaskop (173 m) to the west, Karringberg (175 m) to the east and the Postberg

(193 m) in the south. There are also several low hills and outcrops of granite boulders in the surrounding

areas.

The bedrock in the Saldanha/Langebaan region consists of Malmesbury Group shales that have largely

been eroded to below sea level along the coast. The Malmesbury shales are intruded by the crystalline

Cape Granites that are exposed as hills on the Vredenburg Peninsula (Pether, 2014).



The Port of Saldanha is situated on the outer edge of the broad, near-flat plain of the Saldanha

Embayment. Beneath a thin cover of sand, the whole area is underlain by calcareous aeolianites (old

dune sands) and calcretes (surface limestones) of the Langebaan Formation (Visser & Schoch, 1973).

The fossil dunes are evident in the coastal landscape as low ridges, hills and mounds (Pether, 2014).

The coastal plain contains surface deposits of calcareous and quartzous sands which support the

Saldanha Limestone Strandveld vegetation type. The Quaternary deposits of the Langebaan formation

consisting of calcrete capped dune sand cover support the Saldanha Flats Strandveld or Langebaan

Dune Strandveld vegetation types. The calcrete and limestone deposits are grey to cream medium

grained and contain shell fragments. The underlying sand is cohesionless, quartzitic and of aeolian origin.

Several extractive mining activities are established in the municipal area. These include, amongst others,

mining of construction materials such as lime scales and sand mining.

3.4.2 Rainfall, fresh water supply & regional hydro- and geohydrology

The West Coast is a water scarce area with rainfall averaging between 260 and 280 mm per annum

(DEA&DP, 2016). Potable water supply for the West Coast District Municipality (WCDM) is obtained from

both surface (Berg River) and groundwater sources (Langebaan Road Aquifer). Water from the Berg

River to the north, the Salt River to the east and the Elandsfontein Aquifer System to the south recharges

the Langebaan Road Aquifer; while the Berg River is fed by winter flows and releases from the

Misverstand, Voëlvlei and Berg River dams. The Misverstand Scheme currently supplies bulk water from

the Misverstand Dam via the Withoogte Water Treatment Works to the towns of Velddrif and

Dwarskersbos in the Berg River Municipality and to Hopefield, Langebaan, Saldanha Bay, Vredenburg,

Paternoster, St Helena Bay and Stompneusbaai in the Saldanha Bay Municipality.

Demand for water increased significantly in recent times due to industrial development, particularly the

further development of the Port of Saldanha and associated infrastructure. According to the West Coast

District Municipality’s 2016/2017 Annual Report, the water demand from the Misverstand Dam as part of

the Withoogte system for 2018 (assuming a 3.5% growth rate) would be at 21.482 million m3/a with a

shortfall of 4.042 million m3/a. Additional required allocation up to 2033 is indicated as approximately

17.2 million m3/a (WCDM Annual Report, 2016/2017). The pressure on water supply is further

exacerbated by the low winter rainfall experienced during the last few years, leading to the worst drought

in a decade in the Western Cape and Saldanha Bay Municipal area.

Clearly, further port expansion activities might be greatly influenced by the availability of potable water

supply and a strategy for augmenting this supply through mitigation and/or additional water sources will

need to be considered by TNPA in consultation with the Saldanha Bay Municipality.

A 2014-2015 study by Greencape stated that in response to a water availability constraint, one of the first

solutions to consider would be to reduce demand through improving water efficiency. A preliminary

investigation into the potential for a “Water Exchange Network” in which waters of different qualities are

cascaded (used and passed on) between major industrial users was completed for Saldanha Bay which

suggested that freshwater intake could be reduced by up to 15% and effluent reduced by up to 76% (SIF

Status Quo, 2016).

Since the implementation of strict water restrictions in 2017, municipal water use has already dropped

from 37 mega litres per day (ML/Day) to the current (2018) 28 ML/Day. Of this total, large industry in the

Saldanha Bay area (including ArcelorMittal, Tronox, Duferco, large fish factories and TNPA) currently

utilise 11 ML/Day (pers. comm., Mr Gavin Williams – Saldanha Bay Municipality). Current water projects

to meet growing water demand and to ensure that the Saldanha Bay Municipality does not reach a point



where municipal water provision is completely disrupted (Day Zero), include the following short-term

projects for completion by the end of April 2018 and an additional 27.3 ML/Day into the system:

• New boreholes for groundwater abstraction from the Langebaan Road Aquifer;

• Lowering the minimum level to which water can be abstracted from the Misverstand Dam;

• New boreholes for groundwater abstraction in the Hopefield area;

• Usage of treated effluent at ArcelorMittal; and

• Small desalination plants at two fish factories (Sea Harvest - 1.7 ML/Day; Lucky Star - 0.8 ML/Day).

Medium term projects to ensure water resilience should another below average winter rainfall be

experienced in 2018, include the following:

• Small desalination plant at Shelley Point; and

• Sourcing water from the Elandsfontein Aquifer.

These medium term projects are set for completion by the end of November 2018 and would add an

additional 41.9 ML/Day to the system. In addition, the municipality has established a water resilience

advisory committee consisting of specialists and municipal officials in order to drive the long term water

resilience plan for the municipal area. Long term plans will include the development of further larger

scale desalination plants, one of which has already received environmental authorisation.

Prior to the above proposed water projects, Greencape in 2015 projected water demand and supply for

the WCDM for different development growth scenarios, taking planned large infrastructure and industrial

projects into account. These projections are presented in Figure 3.12 below. The green scenarios

assume that industry would start investing in efficient water use solutions by treating process water and

using treated effluent onsite, thereby reducing the potable water demand (Greencape, 2015). In this

regard, ArcelorMittal has since already started using treated effluent from the WWTW in their Saldanha

Steel operations.



Figure 3.12 Water demand trajectories for the West Coast District Municipality and allocations from the

Berg River and Langebaan aquifer (Greencape, 2015).

3.4.3 Flora & fauna

Saldanha Bay is included within the Fynbos biome of the Cape Floristic Region (CFR). The CFR is one

of the world’s six floristic regions, and is the only one confined to a single country. It is also by far the

smallest floristic region, occupying only 0.1% of the world’s land surface; however, it includes an

estimated 9 500 plant species – almost half of all the plant species in South Africa. In 2004, the United

Nations Educational, Scientific and Cultural Organisation (UNESCO) declared the CFR as a world

heritage site. At least 70% of all the species occur only in the Western Cape region. Many species have

very small distribution ranges (these are known as narrow endemics). Most of the lowland habitats of the

CFR are under pressure from agriculture, urbanisation and invasion by alien plant species. Many of the

range-restricted species are, therefore, also under severe threat of extinction, as their habitat is reduced

to small ecologically non-viable fragments (DEA&DP, 2011).

The latest data from the Red Data Book listing process recently undertaken for South Africa indicate that

67% of the rare or threatened plant species in the country occur only in the south-western Cape, and

these total over 1 800 species (CSIR, 2012). It should thus be clear that the south Western Cape is a

major national and global conservation priority. Developments in the area thus need to take this into

account.



The map below (Figure 3.13) indicates the latest Critical Biodiversity Areas (CBAs) (SANBI, 2017) in the

vicinity of the Port as well as the proposed boundary of the long term port expansion (yellow line) as

indicated in the PDFP 2016. CBAs are regarded as essential areas for the achievement of regional

conservation targets, and are designed to ensure minimum land take for maximum result (CSIR, 2012).

High sensitivity areas mapped by vegetation specialists Nick Helme (2013) and Dave McDonald (2017)

are also shown in red.

Figure 3.13 Google Earth Image showing the latest Critical Biodiversity Areas (green) within and

surrounding the port land (SANBI, 2017). The proposed expanded port area, including the

SBIDZ area is outlined in yellow and additional mapped high sensitivity areas are indicated in

red.

Vegetation types recorded within and surrounding the Port land include Langebaan Dune Strandveld,

Saldanha Limestone Strandveld, Saldanha Flats Strandveld and a small area of Cape Seashore

Vegetation. Saldanha Flats Strandveld is classified as a Vulnerable ecosystem in terms of Section 52 of

the National Environmental Management: Biodiversity Act (No. 10 of 2004). A 2014 CapeNature status

update document (Pence, 2014), however, increased the threat status of this vegetation type to

Endangered. The 2004 Act rating currently takes priority until the threat status is formally updated.

Saldanha Limestone Strandveld is classifed as Least Threatened.

The study area is part of the greater West Coast region, and lies within the Saldanha peninsula bioregion.

This bioregion has a fairly distinct flora, and a particularly high number of locally and regionally endemic

plant species, as well as plant Species of Conservation Concern (SCC) (CSIR, 2012).

In terms of terrestrial fauna species, as with most Karoo and Fynbos veld types, the West Coast

Strandveld and Sandplain Fynbos are not particularly noted for either their high vertebrate densities or

large species diversity. The location of the Port land is such that terrestrial fauna has to a large extent

been affected by industrial development and historic agricultural activities with related habitat

fragmentation. The remaining areas of natural vegetation do still, however, provide suitable habitat and

some ecological function for a number of terrestrial species, mainly birds and small mammals. The Port



area is, however, not expected to constitute important habitat for terrestrial species of conservation

concern. Fifty-five mammal species may occur within the larger Saldanha area (Friedmann & Daly,

2004). These include:

• Smaller antelope species like the steenbok, grysbok and duiker;

• Small carnivores like genets, civets, jackals and bat eared foxes; and

• Dassie as well as a variety of rodent species, including striped field mice and mole-rats

(CSIR, 2011).

Only two species potentially occurring in the greater Saldanha area are, however, classified as

threatened red data species, namely Grant’s Golden Mole (Eremitalpa granti), which is listed as

Vulnerable and the White-tailed Rat (Mystromys albicaudatus) which is listed as Endangered (Friedmann

& Daly, 2004). These two species are not expected to occur in significant numbers on the site (CCA,

2015).

One hundred and sixty (160) bird species have been recorded in the vicinity of the Port as part of the

South African Bird Atlas Project 2 (launched in 2007 and set to run indefinitely). Five of these are listed

as Red Data Species, with Ludwig’s Bustard classified as Endangered and the Blue Crane, Black Harrier,

Secretary Bird and Southern Black Korhaan classified as Vulnerable. The West Coast National Park to

the south of the Port has been declared as an Important Bird Area and includes the Langebaan Lagoon.

Over 250 bird species have been recorded in the park. The lagoon is the most important wetland for

waders in South Africa (CSIR, 2011). It regularly accounts for 10% of South Africa’s coastal wader

numbers, one of the highest densities of waders worldwide, and more than 34 500 waders, of which 93%

are Palearctic migrants. In some years, the wader numbers can increase from 4 000 in winter to 50 000 in

summer. In winter, the lagoon regularly supports more than 10 500 birds of which 4 500 are Greater

Flamingos (CSIR, 2011).

Forty-one reptile species have been recorded in the three quarter degree grid cells surrounding Saldanha

Bay, Langebaan and Vredenburg (Bates et al., 2014). These include 24 lizard species, 15 snake species

and two tortoise species. Of these, the Cape sand snake (Psammophis leightoni) and Cape dwarf

chameleon (Bradypodion pumilum) are classified as Vulnerable and two burrowing skinks (Gronovi’s

dwarf burrowing skink and Kasner’s dwarf burrowing skink) are classified as Near Threatened. These

species are known to occur in sandy soils along the West Coast.

Six frog species have been recorded in the vicinity of Saldanha (Minter et al., 2004). Of these only the

Cape Caco (Cacosternum capense) is deemed to be of conservation concern, rated as Near Threatened

(Measy, 2011).

No Red Data butterfly species have been recorded in the vicinity of the Port. The closest Red Data

species, the Atlantic Skollie (Thestor dicksoni malagas, Vulnerable) is known to occur at Kreef Bay along

the Langebaan Peninsula, approximately 10 km south of the Port (Mecenero et al., 2013).

3.4.4 Protected areas

The Langebaan Lagoon was designated as a Ramsar site under Convention on Wetlands of International

Importance especially as Waterfowl Habitat. The Ramsar site includes the Schaapen, Marcus, Malgas

and Jutten islands, Langebaan Lagoon and a section of Atlantic coastline. The Langebaan Lagoon is

also included within the boundaries of the West Coast National Park (Figure 3.14). The park was

proclaimed in August 1985 and covers a total area of about 30 000 ha. The conservation area within

Langebaan Lagoon covers about 5 600 ha (15 km x 5 km). Also included in this National Park are

Schaapen, Malgas, Jutten and Marcus islands. Within the park, different zones have been proclaimed



which specifies the type of recreational activities that would be allowed (South African National Parks –

Pamphlet on the West Coast National Park).

Formal protected areas managed by CapeNature include an area within the military base, the SAS

Saldanha and Vondeling Island. Private nature reserves in the larger Saldanha Bay area include the

Swartriet Private Nature Reserve north of Jacobsbaai and the Elandsfontein and Hopefield Private Nature

Reserves bordering the West Coast National Park to the east.

Figure 3.14 Protected areas in the Saldanha Bay area (bgis.sanbi.org, 2017).

In addition, the below areas have formally been declared as MPAs under the Marine Living Resources

Act 18 of 1998 (Government Gazette, Regulations Gazette No. 21948, No. R. 1429, 29 December 2000):

• Langebaan Lagoon MPA, bounded by the high-water mark and, as a northern boundary, a line

running from Leentjiesklip No. 2, (33°03.707’S; 18°02.462’E), towards Salamander Point

(33°04.323’S; 17°59.795’E), until it meets the seaward boundary of the South African National

Defence Force area, as demarcated by yellow buoys (Chart SAN SC 2), and then along this

boundary to the yellow buoy east of Meeu Island (33°05.166’S; 18°00.809’E), and then along a

straight line to Perlemoen Point on the western shore of Langebaan Lagoon (33°05.590’S,

18°00.211’E);

• Sixteen Mile Beach MPA, bounded by a line beginning at the high-water mark in Plankiesbaai

(33°07.106’S; 17°58.377’E), and then running south eastwards along the high-water mark to Rooipan

se Klippe near Yzerfontein (33°20.006’S; 18°09.595’E), and then due westwards to longitude

18°08.095’E and then along a north-west line to the intersection of latitude 33°07.107’S and longitude

17°55.96’E and then to the point of beginning;

• Malgas Island MPA, the area below the high-water mark between latitudes 33°02.806’S and

33°03.506’S and longitudes 17°55.261’E and 17°55.862’E;



• Jutten Island MPA, the area below the high-water mark between latitudes 33°04.706’S and

33°05.306’S and longitudes 17°56.961’E and 17°57.861’E; and

• Marcus Island MPA, the area below the high-water mark between latitudes 33°02.507’S and

33°02.806’S and longitudes 17°57.861’E and 17°58.361’E.

3.5 SOCIO-ECONOMIC ENVIRONMENT

3.5.1 Demographics

At the time of the last comprehensive census (i.e. 2011) the population of the Saldanha Bay Municipality

was 99 193, with the individual towns having populations as follows: Saldanha – 28 135, Vredenburg –

38 382, Langebaan – 8 294 and Jacobsbaai – 416 (www.statssa.gov.za).

More recently, the 2016 Community Survey (StatsSA, 2016) estimated that the Saldanha Bay

Municipality had the second largest population in the West Coast District with an estimated total of

111 315 people for the year 2017. This implies that Saldanha Bay’s population increased by an annual

average rate of 3.24% from 2011 to 2017. The 2016 Community Survey did not generate reliable

statistics for individual towns within the Saldanha Bay Municipality.

The forecasts of the Western Cape Department of Social Development is that this total will gradually

increase across the Saldanha Bay Municipality’s 5-year IDP planning cycle and is expected to reach

122 265 by 2023. This equates to an approximate 9.8% growth from the 2017 base estimate (IDP, 2017).

In 2017, Saldanha Bay Municipality’s population and gender breakdown are estimated at a relatively even

split between males (55 285 = 49.7%) and females (56 030 = 50.3%), with the majority (69.5%) of the

population being between the ages of 25 and 64, a large working age population (SDF, 2017).

3.5.2 Employment and Economy

Based on the 2011 Census figures, the Saldanha Bay Municipality had an unemployment rate of

approximately 15.2%, when considering the labour force between the ages of 15 and 65. Unemployment

had increased by a minor 0.84% from the 2001 Census figures. Saldanha Bay town itself experienced a

drop in unemployment from 22.8% to 15.95% between 2001 and 2011.

The primary economic sector within the Saldanha Bay Municipality is the agriculture, forestry and fishing

sector which comprised R887.21 million (or 15%) of the municipality’s GDP in 2015. The sector

experienced a growth rate of 4.49% per annum over the period 2010 to 2015 (IDP, 2017) and employed

31.77% of the area’s workforce.

According to the 2017 draft SDF document, the primary sector in 2015 contributed 12.4% to the Gross

Domestic Product (GDP) of the area, compared to 21.4% of the district municipality. The secondary

sector contributed 27.3% to the GDP, compared to 26.4% in the district; while the tertiary sector

contributed 60.4% to the Saldanha Bay GDP, compared to 52.1% in the district municipality. This

indicates that the secondary and tertiary sectors are stronger in the Saldanha Bay compared to the

district municipality. This could be attributed to the strong presence of manufacturing and tertiary

activities such as Saldanha Steel, Namakwa Sands, the Port of Saldanha and the Saldanha Bay IDZ

activities (SDF, 2017).

In 2015, the manufacturing sector (20.7%); the finance, insurance, real estate and business services

sector (17.9%); the wholesale and retail trade, catering and accommodation sector (16.1%); and the

agriculture, forestry and fishing sector (12.2%) contributed most to the Saldanha Bay GDP (SDF, 2017).



The tourism sector is also considered a key sector in the local and regional area, making a highly

significant contribution to employment creation. This might be reflected in the transport, business

services, retail, catering and accommodation sectors. These are considered part of the tertiary

commercial services sector, which showed substantial growth from 2005 to 2015, comprising the largest

sector in the region in 2015 (R2.404 billion or 41.0% of the municipal GDP).

It must be noted that with the continuing rise in population numbers, the number of job opportunities have

not significantly increased in the Saldanha Bay area. This has resulted in 90% of households in

Saldanha Bay falling in the low income category and the majority of inhabitants being unable or barely

able to meet their basic needs (IDP, 2017).

3.5.3 Marine aquaculture and important fisheries

The Saldanha Bay area, the only natural sheltered embayment in South Africa, is regarded as a major

area for marine aquaculture, or mariculture. A combined sea space of 430 ha is currently available for

aquaculture production in Outer Bay, Big Bay and Small Bay, of which 316.5 ha have been leased to 14

individual mariculture operators. About 70% of these concessions, mostly located in Small Bay, are

utilised for active farming of mussels, oysters and finfish (Anchor, 2017). Details of current right holders

are presented in Table 3.3.

Table 3.3 Details of aquaculture operators and the products farmed in Saldanha Bay (Anchor, 2017).

Products

Company

Mu

ssel

s

Oys

ters

Ab

alo

ne

Sca

llop

s

Red

Bai

t

Sea

wee

d

Fin

fish

Area and Location

Blue Ocean Mussel (previously trading as Blue Bay Aquafarm (Pty)

X X 52.1 ha (SB)

Blue Sapphire Pearls CC X X X X 10 ha (SB)

Imbaza Mussels (Pty) Ltd (previously trading as Masiza Mussel Farm (Pty) Ltd)

X X X 30 ha (SB)

Saldanha Bay Oyster Company (previously trading as Striker Fishing CC)

X X X 25 ha (BB)

West Coast Aquaculture (Pty) Ltd X X X 5 ha (SB), 10 ha (BB)

West Coast Oyster Growers CC X X 10 ha (BB), 15 ha (SB)

West Coast Seaweeds (Pty) Ltd X X 10 ha (SB)

African Olive Trading 232 (Pty) Ltd X 30 ha (SB) Port of

Saldanha

Aqua Foods SA (Pty) Ltd X X Port of Saldanha 10 ha

(BB), 10 ha (SB)

Southern Atlantic Sea Farms (Pty) Ltd. X Port of Saldanha 15 ha

(Outer Bay – North)

Salmar Trading (Pty) Ltd. X 10 ha (BB), 5 ha (SB)

Molapong Aquaculture (Pty) Ltd. X 1 ha (Outer Bay –

South), 4.1 ha (BB)

Chapman’s Aquaculture (Pty) Ltd X North Bay

Requa Enterprises X 15 ha (BB)



As previously mentioned, DAFF is proposing to establish a sea-based Aquaculture Development Zone

(ADZ) within the Saldanha Bay area, as part of the Operational Phakisa initiative. Two separate

Environmental Authorisations for the ADZ and the Southern Cross Salmon Farm within the ADZ were

issued by DEA on 8 January 2018. The ADZ project would entail the establishment of five ADZ precincts

for a total area of 1 872 ha, including the currently allocated mariculture areas. The proposed ADZ areas

are indicated in Figure 3.15 and would comprise the following:

• Small Bay: existing farmed and already allocated mariculture concession areas within the

confines of Small Bay (i.e. mussels and oyster rafts);

• Big Bay North: to the north of the Mykonos entrance channel;

• Big Bay South: to the south of the Mykonos entrance channel, with two alternative layouts;

• Outer Bay North: to the north of the Port entrance channel near Malgas Island; and

• Outer Bay South: to the south of the Port entrance channel near Jutten Island.

New species considered for farming include indigenous shellfish species (abalone, scallop), indigenous

finfish species (white stumpnose, silver kob, yellow tail), alien finfish species (Atlantic, Coho and

King/Chinook salmon, rainbow trout, brown trout) and seaweed. Cages are considered for the finfish

production, while longlines and rafts are considered for the bivalve (mussels, oysters, scallops) culture

and abalone barrels.

The approved ADZ project does not cover any land-based processing facilities that might require

environmental authorisation. Obtaining authorisation would be the responsibility of individual operators.

There are currently no specific details available of where such onshore facilities would be located, but

these may be required in close proximity to current onshore Port facilities.

Traditional net fishing takes place in the Saldanha/Langebaan area, currently targeting mullet. Large

shore angling, as well as recreational and commercial boat line-fisheries target white stumpnose, white

steenbras, silver kob, elf, steentjie, yellowtail and smooth hound shark (Anchor, 2017). The two most

important fisheries species in the Saldanha/Langebaan area are white stumpnose, caught by commercial

and recreational line fishers, and mullets (‘harders’), commercially harvested by approximately 16 gill net

permit holders. The commercial gill net fishery has shown a notable decline in the average size of

mullets landed in both Saldanha and Langebaan between 1999 and 2012, a possible sign of overfishing.


Figure 3.15: Map showing the location of current and proposed new expanded marine aquaculture areas as part of the proposed DAFF ADZ project.

The farming methodology is also indicated (SRK Consulting, 2017).



3.5.4 Tourism & recreation

The Draft 2017 SDF for the Saldanha Bay Municipality (SDF, 2017) provides information on tourist

attractions and trends between 2013 and 2016. The Spring flower season is the region’s biggest tourist

attraction with further peaks in visits being recorded over Christmas/New Year and Easter weekend. The

West Coast National Park is one of the region’s most prominent eco-attractions, with over 127 859

visitors recorded between January and July 2016. Other unique local tourist attractions are the West

Coast Fossil Park at Langebaanweg and Club Mykonos. According to Wesgro, the Cape West Coast

visitor trends for July to September 2016 showed that the top three activities in the region by international

visitors included scenic drives (40.5%), flowers (11.4%) and beaches (11.3%), while the top three

activities by domestic visitors were scenic drives (37.3%), culture/heritage (16.7%) and flowers (11.9%).

In addition to the wild flowers and unique fossils, tourist attractions in the Saldanha Bay Municipal area

are primarily orientated towards environmental assets such as the Berg River, the sea, whales,

mountains and protected fauna and flora species. The marine assets are particularly important and

support aesthetic as well as recreational activities, including swimming, fishing, boating, wind surfing, kite

boarding, kayaking and birding.

As mentioned in Section 3.5.2, the tourism economy is a prominent economic sector within the Saldanha

Bay Area, showing substantial growth as part of the tertiary commercial sector between 2005 and 2015.

The economy of the scenic coastal towns of Saldanha Bay, Paternoster, St. Helena Bay and Langebaan

rely heavily on year-round tourism.

A new Tourism Strategy for the Saldanha Bay Tourism Organisation (SBTO) was published in 2017. It

has as its vision that the West Coast Peninsula will be in the top three preferred tourism destinations in

the Western Cape by 2025. The mission of the SBTO is to attract more first time visitors to the West

Coast Peninsula, to attract more return visitors and to encourage visitors to stay longer and spend more

by unpacking the attributes and unique character of each town and improving the distribution of visitors

within the region. One of the key priorities for achieving the above mission is the implementation of a

modern marketing strategy, focusing on social media and an active online community.

Projects identified for prioritisation in the 2017 Tourism Strategy include the following:

• Upgrade and improved management of the Saldanha Cultural Village;

• Alignment of tourism opportunities at the West Coast Fossil Park with the new strategic tourism

plan;

• Development of the Saldanha Bay Waterfront into a recreational hub and tourism destination with

a distinct local character; and

• Use of the Langebaan informal trading area as a recycling spot, food court and area to sell local

produce.

3.5.5 Large industry located in the study area

Information on some of the key large industries located within the Saldanha Bay Municipal area is

summarised below.

ArcelorMittal

The ArcelorMittal Saldanha Works is a largely export-focused steel mill which was commissioned in

1998. It produces approximately 1.2 million tonnes of high-quality ultra-thin hot rolled coil (UTHRC)

per annum. This is an ISO 9002 and ISO 14001 certified plant and is the only mill in the world to

combine the Corex/Midrex process into a continuous chain. This technique replaces the need for



coke ovens and blast furnaces, making the plant a world leader in emissions control

(www.arcelormittal.com).

Even through the recent instability in the iron ore and steel markets, ArcelorMittal’s Saldanha facility

is the one steel plant that is currently still profitable due to increased efficiencies and some global

economic recovery. The plant is even rated as one of ArcelorMittal’s most productive plants

worldwide. Due to uncertainties with regards to the rising costs of electricity and reliable supply,

ArcelorMittal proposed the development of a gas-fired power station in order to support its Saldanha

facility. The plant would supply the power needs of the plant with approximately 160MW of base load

energy, peaking at up to 250MW. Excess electricity could be made available to industries within the

Saldanha Bay IDZ and/or surrounding municipalities. The plant is designed as a 1 507MW (net

capacity) Combined Cycle Gas Turbine (CCGT) power plant. Environmental Authorisation for the

project was issued in 2017, but its final implementation is dependent on when an LNG import terminal

will be developed in the Saldanha Bay area.

AfriSam Cement

AfriSam (South Africa) (Pty) plans to construct a cement plant and associated infrastructure in the

Saldanha Bay region and to re-enter the cement market in the Western Cape. The proposed project

includes the establishment of limestone and clay quarries and a transport corridor to transfer the raw

material from the quarries to the proposed cement plant. The plant will have a capacity of 600 000 TPA,

enabling a final maximum production of approximately 1.2 million TPA of cement.

Saldanha Bay IDZ

As previously mentioned, development of the Saldanha Bay IDZ commenced in 2016 with a first phase in

the back of port area. The objective of the IDZ is to become a competitive and highly efficient, leading

investor-responsive site for oil and gas and marine repair activities within the African continent. The

vision of the Saldanha Bay IDZ is to create and sustain economic development and facilitate job creation

by way of industrial investment and efficient development in the Saldanha Bay region.

One of the unique selling points of the IDZ is that it will eventually be a Free Port with a Customs Control

Area (CCA). This means that no VAT or duties would be charged on goods that are landed at the facility,

processed within the facility and again exported from the facility (thus goods that are not taken inland

from the CCA). Together with dedicated quayside access, this would ensure seamless transfers from sea

to land and back as well as short turnaround times.

It will have a sector-specific focus for attracting oilfield and marine services investors and its location is in

proximity of an already sophisticated engineering base, including companies already servicing the

industry.

In partnership with TNPA, the required marine infrastructure in the form of a 500 m jetty and floating dry

dock and a dedicated rig repair berth would be developed in support of the IDZ operations in the medium

term.

Site clearing, levelling and construction of bulk services infrastructure and roads are to commence on

Port land in 2018. The first phase of construction on Port land would be in the Bayvue Precinct, to the

east of the Bayvue entrance and would facilitate the establishment of the OSSB Terminal operator. The

bridge across MR559 connecting the back of port area to the Bayvue Precinct was finalised in 2017 (see

Plate 1).



Plate 1: Completed bridge across MR559, linking the back of port land to the Bayvue Precinct.

LPG projects

In addition to the Sunrise Energy Project mentioned in Section 2.2.1, Avedia Energy operates another

LPG handling and distribution facility in the back of Port area, inland of the Sunrise Energy facility. The

first phase of the facility became operational in August 2017, with six truck loading gantries being

supplied by LPG from eight 250 MT mounded tanks (bullets) (see Plate 2). The current storage capacity

is 2 000 MT, capable of supplying 6 500 tonnes of product per month. The project is economically viable

serving on the Western Cape market, but their long-term strategy is to supply all major provinces using a

rail/road connection from Saldanha Bay.

Plate 2: Enclosed storage bullets and pipe infrastructure at the Avedia Energy facility.

Oiltanking MOGS Saldanha

Oiltanking MOGS Saldanha (OTMS) is a new R 2 billion crude oil storage and blending facility located

adjacent to the SFF facility, approximately 4 km east of the Port. The facility is being developed as a

partnership between MOGS Oil & Gas and Oiltanking GmbH, a leading global supplier of storage

solutions for oils, petroleum products, chemicals, biofuels and gases. Construction of the facility has

commenced and the first phase is set to be completed during the third quarter of 2018 and the full



commercially flexible facility will eventually consist of twelve 1.1 million-barrel in-ground concrete tanks. It

would include blending and mixing facilities capable of producing homogenous crude oil blends.

Due to its capacity, location and existing infrastructure, the Port of Saldanha has the potential to develop

into a major international crude oil storage, blending and transhipment centre. OTMS aims to use the

existing liquid bulk terminal and pipeline infrastructure (www.mogs.co.za).

Industrial corridor

In the 2011 Municipal SDF, a future industrial corridor was delineated, stretching from the Port of

Saldanha in a northeasterly direction towards the R27 (see Figure 3.16). This corridor includes the Port,

existing industrial developments and new proposed developments on privately-owned land. Notable

existing industries and businesses in the corridor include VDM Transport, Duferco Steel Processing Plant,

Afrisam, ArcelorMittal, Tronox, Sunrise Energy and Avedia Energy. The Langeberg Industrial Park

development is proposed on farm land between Tronox and the R27. Industries proposing to establish on

the Langeberg properties include Frontier Rare Earth Separation Plant, Chlor-Alkali Production Facility

and various storage facilities.

As seen in Figure 3.16, various CBA areas and a CBA corridor cut across the proposed industrial

corridor. The 2011 SDF and Draft EMF (2017) documents have taken this into account and

recommended that, as far as possible, development be restricted to outside of sensitive area.

Figure 3.16 Google Earth image showing the extent of the industrial corridor (white outline) as envisaged in the 2011 Saldanha Bay SDF. The latest CBA areas that overlap with the corridor are indicated in red and green.

Elandsfontein Phosphate Mine

The second biggest known phosphate resource in South Africa, the Elandsfontein phosphate deposit, is

located on the farm Elandsfontein 349, approximately 10 km east of Langebaan. Kropz, previously

known as Elandsfontein Exploration and Mining (Pty) Ltd received authorisation for the establishment of a

phosphate mine at the site in 2015. Mine infrastructure is currently in place, but further commissioning of

the mine was halted in 2017 due to a delay in the issuing of a water use licence, together with process



plant efficiency challenges and weak phosphate prices. The decision was taken to place the plant on

care and maintenance in September 2017. The Elandsfontein mining company, Kropz SA, has, however,

reported that it is planning to finalise a revised plant design and raise capital to bring the project back on

stream during 2018.

While the mine is located some distance from any Port facilities or property, it is underlain by the

Elandsfontein Aquifer System which drains into the Langebaan Lagoon. Potential impacts on

groundwater entering the lagoon system is thus to be considered cumulatively with any impacts related to

Port activities. The 2017 State of Saldanha Bay and Langebaan Lagoon study includes a baseline

description of the Langebaan Lagoon conditions where the Elandsfontein Aquifer discharges and will be

monitoring against these baseline conditions going forward, in order to identify any changes in the system

that may be caused by the Elandsfontein mining operations and discharges into the groundwater system.

3.5.6 Heritage

Palaeontological significance

The fossil potential in the subsurface of the Saldanha Bay area is related to the underlying formations.

The formations present in the study area are indicated in Figure 3.17 and summarized in Table 3.4, with a

brief indication of their palaeontological sensitivity (CSIR, 2012).

Figure 3.17: Geology in the Saldanha Bay area (adapted from Visser & Schoch, 1972 by Pether, 2014). The

location of the SBIDZ area is indicated in red.



Table 3.4: Underlying geological formations of the Saldanha Bay area and their palaeontological sensitivity.

Formation Age and description Sensitivity

WITZAND – Q5 Holocene and recently active dune

fields and cordons <~12 ka.

Mainly archaeological sites.

SPRINGFONTYN –

QI & Q2

Quaternary to Holocene, mainly

quartzose dune and sandsheet

deposits, interbedded palaeosols,

basal fluvial deposits <~2 Ma.

Fossil bones very sparse, local

to high significance. Basal

fluvial deposits locally – high

significance.

VELDDRIF – VD Quaternary raised beaches &

estuarine deposits, <~1.2 Ma. Sea-

levels below ~15 m asl.

Shell fossils common, local

significance. Fossil bones very

sparse, high significance.

LANGEBAAN – LB Late Pliocene to Late Quaternary

aeolianites <~3 Ma to ~60 ka.

Fossil bones mod. Common,

local to high significance.

PROSPECT HILL –

PH

Late Miocene aeolianite 12-9 Ma? Fossils very sparse – high

significance.

As the formations underlying parts of the study area are known for containing fossils, monitoring of

bulk earthworks are required for any new developments within and surrounding Port land.

Archaeology and Cultural Heritage

Since the mid-1990s, numerous Archaeological Impact Assessments (AIAs) have been conducted in

Saldanha Bay, north of the port terminal (Kaplan, 1994; 1996; 1997a; 2006a; 2007a & 2010), where

archaeological remains assigned to the Early (ESA) and Middle Stone Age (MSA) have mostly been

documented. Later Stone Age (LSA) sites have also been recorded along, and near to, the coast south of

the town (Kaplan, 1997b; 1998; 2006b; 2007b & 1993) where the remains typically comprise dispersed

scatters of shellfish, a few stone artefacts, ostrich eggshell and pottery. None of these sites have been

dated, however. A 19th century veewagterhuis (shepherd’s hut) was also excavated by Kaplan (1996b) at

the site of Saldanha Steel.

There are shell middens (shellfish processing sites) with stone artefacts dating to the MSA in Saldanha

Bay. The evidence from Sea Harvest and Hoedjiespunt, for example, has provided some of the earliest

evidence we have in the world for the human exploitation of coastal resources, more than 100 000 years

ago. Beside evidence of well-preserved bone, ostrich eggshell, ochre and stone implements, the Sea

Harvest and Hoedjiespunt sediments also contain evidence of early modern humans about 125 000 years

ago (Berger & Parkington, 1995).

Bateman (1946) documented LSA middens in the vicinity of the Saldanha military base, as well as a few

MSA occurrences, and Kaplan (2012) documented LSA middens at the site of the proposed new

Saldanha Bay military sick bay, as well as along the shoreline inside the base (Kaplan, 2013). Rudner

(1968) recorded a cave with shell midden deposits at Noordbaaikop inside the military base.

Archaeological excavations at the sick bay site revealed substantial sub-surface LSA deposits, including

shellfish, large volumes of marine fauna, stone artefacts, and ostrich eggshell (Smith, 2013). A sample of

bone taken from the excavation was dated to 2 500 years BP, while the presence of pottery also indicates

that the site was visited after 2 000 years ago.

It is the more recent salvage excavations and recovery of six LSA Khoisan skeletons from the Diaz Street

Midden (Orton, 2009; Dewar, 2010), more than 2km inland from the shoreline, that has focused attention

on the important LSA industry in Saldanha Bay. More than 4 000 stone artifacts were recovered from the

small excavation (the site of the new Saldanha Bay Police Station), where sadly a large portion of the



archaeological deposits had already been destroyed during construction work. While all of the recent

upper deposits (probably dating to the last 2 000 - 3 000 years) were destroyed during initial earthworks,

some of the underlying deposits were still intact by the time the archaeologists were notified, when the

first of the burials were uncovered. These deposits were later dated to between 5 000 and

6 000 years ago, and comprised thousands of stone artifacts (including many retouched tools such as

scrapers and backed artifacts). Ostrich eggshell (OES) beads, decorated fragments of OES and some

worked bone were also found, as well as subsistence remains including shellfish, crayfish and marine

fauna.

Further south at Kraalbaai along the shores of the Langebaan Lagoon, lies the location of a significant

historic find known as Eve’s Footprints. This site of historical significance was found in 1995 and consists

of a set of fossilized footprints thought to be those of an early human, dated to approximately 117 000

years ago (Roberts & Berger, 1997).

Shipwrecks

Maritime activities have taken place in the Saldanha Bay area for more than 400 years, with activities

related to fishing, sealing and whaling being well documented near Marcus Island/Outer Bay and at

Salamander point (David & van Sittert, 2006). Whaling stations were active in Saldanha Bay between

1909 and 1967. The Donkergat whaling station and factory was established near the tip of the peninsula

in 1909 with a further station set up at Salamander Bay shortly after (www.sawestcoast.com). Due to the

extensive maritime activities, numerous shipwrecks have been documented along the coast. As part of a

recent heritage impact assessment for the proposed establishment of the Saldanha ADZ, the location of

known shipwrecks in relation to proposed ADZ areas were indicated by the African Centre for Heritage

Activities (SRK, 2017). These known sites are indicated in Figure 3.18 and further details of shipwrecks

in the vicinity of Port infrastructure are provided in Table 3.5.

Table 3.5: Summary of known shipwrecks in Saldanha Bay (adapted from SRK, 2017).

Vessel Name Date Information

Kildalkey 1937 This steamship was built during World War I and later converted into a

tanker for use in the sealing trade. While transporting whale oil, she hit the

rocks known as the Seven Blinders during a heavy fog. The wreck may

have been removed in 1974.

Karatara 1921 This vessel was built for the sealing trade, but caught fire while in Table Bay.

It was eventually scuttled at the whaling station in Saldanha Bay as part of

the jetty.

H.C. Richards 1893 Built in 1963, this 806 ton Norwegian barque struck a rock off Aliwal Shoal.

After filling with water she was run aground near the Illovo River and later

towed to Durban. After being towed to Cape Town, she was condemned and

eventually scuttled in Salamander Bay to form a jetty.

Middelburg 1781 This Dutch East-India 1 150 ton vessel was built in 1775 for the Zeeland

Yard. While homeward bound with a cargo of porcelain, tea, silk, aniseed

and tin, her crew set her alight in order to avoid capture by the British. She

eventually sank near Hoedjies Point. The wreck has been worked on by

various salvors over the years.

Cleopatra 1968 A 75 ton fishing vessel which caught alight and burned at her slip in

Saldanha Bay

Ovambo Coast 1958 This South African 217 ton vessel was built in 1939 and wrecked on Marcus

Island during heavy fog. She was carrying a cargo of fish oil bound for Cape

Town.

Petronella Alida 1738 This Dutch East-India 550 ton vessel was broken up at Saldanha Bay and it

is unlikely that any remnants of the vessel remain.



Figure 3.18: Location of known shipwrecks in and near Saldanha Bay in relation to proposed ADZ areas (SRK, 2017)



CHAPTER 4: GENERAL APPROACH TO THE SEA, REVIEW AND UPDATE

AS APPLIED IN THIS STUDY

4.1 NEED FOR SEA

SEA emerged in the 1990s as an approach specifically targeted at Policies, Plans and Programmes

(PPPs). Since then, the practice of SEA has spread across the world and at least 40 countries now have

systems and frameworks in place (including South Africa).

Box 4.1: The purpose of SEA

In summary, the purpose of SEA is to ensure that environmental and social considerations inform and are

integrated into strategic decision-making in support of environmentally and socially sound and sustainable

development. In particular, the SEA process assists authorities responsible for PPPs, as well as

decision-makers, to take into account:

• Key environmental and social trends, potentials and constraints that may affect or may be

affected by the PPPs.

• Environmental and social objectives and indicators that are relevant to the PPPs.

• Likely significant environmental and social effects of proposed options and the implementation of

the PPPs.

• Measures to avoid, reduce or mitigate adverse effects and to enhance positive effects.

• Views and information from relevant authorities and the public.

Although focused mainly on PPPs, SEA can be applied to legislation, lending, a particular geographical

area (e.g. greater Saldanha), a particular sector (e.g. spatial planning, transport, agriculture, forestry,

fisheries, energy, waste/water management, tourism) or to a specific issue (e.g. climate change,

biodiversity).

SEA is flexible in structure and adaptable to specific decision-making processes and their socio-economic

and political contexts. SEA enhances environmental and social awareness, integrates environmental and

social considerations into decision making – fostering sustainability, facilitates coordinated action across

development sectors, and contributes to the attainment of environmentally sound, integrated, and

balanced development.

SEA further strengthens strategic decision-making as it evaluates and integrates considerations of

environmental and social factors and their inter-linkages with economic considerations. SEA is based on

the following key principles of sustainability:

• early proactive consideration of the environmental and social effects of strategic actions;

• broad institutional and public engagement;



• analysis and integration of qualitative and quantitative information within a dynamic, interactive

framework;

• early warning of potential cumulative effects and large-scale changes; and

• identification of best practicable options that can be articulated from the policy level to the individual

project level.

South Africa has rich experience in the theory and practice of SEA (Retief et al., 2007). The first

Guideline for SEA in South Africa was published in 2000 by the national Department of Environmental

Affairs (DEAT, 2000) and updated in 2007. The national planning context for SEAs is set by the country’s

National Development Plan (2012) that provides the over-arching blueprint for accelerating sustainable

socio-economic development. As noted previously, this plan is supported by the government’s SIPs, of

which the Saldanha-Northern Cape Development Corridor is one.

There are numerous potential benefits arising from the use of SEA, the nature of which may depend on

how SEA is applied, its outcomes and its interactions with the decision-making process. For the Port of

Saldanha, the SEA process will be used to:

• Determine the future form of development in a way that promotes sustainability, through the

integration of sustainability considerations into the formulation, assessment and implementation of

PPPs;

• Help to identify, and address, potential areas of conflict or inconsistency between PPPs early on in

their formulation;

• Explore the opportunities for, and constraints to development posed by the broader receiving

environment, thus narrowing down consideration of projects to only those that could be sustained

by the environment;

• Consider cumulative effects and relatively large-scale environmental change (e.g. at regional level);

• Assist in defining and maintaining a chosen level of environmental quality;

• Enable stakeholder engagement (the public, non-governmental organisations, government

departments and other institutions) at a strategic level in the planning process; and

• Complement and strengthen EIAs at the project level by identifying prior information needs and

potential impacts, addressing strategic issues and concerns that may relate to project justification,

and streamlining the project review process.

The National Ports Act (Act 12 of 2005) requires pro-active integration of environmental impacts into

planning processes, and dictates that such planning must strive to achieve a reasonable balance

between the protection of the natural and social environment and the development and maintenance of

ports (to which, SEA provides direction).

4.2 GENERAL SEA PRACTICE AND APPROACH ADOPTED FOR THE SEA, REVIEW AND UPDATE

4.2.1 General SEA practice

In general, three types of SEA methodology can be applied, namely: integrated, EIA-based and

sustainability framework models.



The integrated model is best suited for integrating the SEA process into existing policy formulation and

planning processes (e.g. Spatial Development Plans). The EIA-based model on the other hand is usually

linked to the assessment of “end-of pipe” impacts and is generally reactive in nature. The sustainability

framework model has a strategic application whereby a vision and a set of sustainability indicators pro-

actively guides future planning processes. The Terms of Reference provided by TNPA for the compilation

of the original SEA clearly favoured a sustainability framework methodology for the SEA.

Although the sustainability framework methodology was applied by the CSIR in order to develop the SEA

for the Port of Saldanha, a novel approach was employed as methodological foundation. This approach,

which responds to limitations identified, for example, in State of Environment reporting in SEA (Box 4.1),

has been applied to great effect inter alia in the review of the SEA for the Port of East London (CSIR,

2012). The approach adopted for this SEA abandoned the separate consideration of key components of

the environment (social, ecological, economic), which is traditionally adopted for SEA (e.g. marine water

quality issues considered separately from issues pertaining to the port’s economic contribution,

considered separately from terrestrial ecosystem issues, etc.). A more effective social-ecological systems

approach is adopted, through which not only the strategic implications of social, economic and ecological

system components are accounted for, but also the systemic relationships that link these components. A

summary of the original methodology and review/update process tasks is provided in Table 4.1 below.

The consultants engaged to review the 2013 SEA report, examined the causal loop diagrams developed

by the CSIR, and found them to be adequate for the update analysis, and still valid. Thus, there was no

need for updating them in light of any changes that have occurred since 2013. More emphasis was,

however, placed on the proposed oil rig and ship repair project proposals for which feasibility studies

were undertaken since completion of the previous SEA report. Based on changes in the biophysical and

socio-economic environments of the Port of Saldanha and surrounding municipal area since 2013, the

sustainability indicators for some of the system components were amended (see Chapters 6 and 7).

Table 4.1 Methodology for the compilation of the original Port of Saldanha SEA and subsequent review/update.

METHODOLOGY FOR THE PORT OF SALDANHA SEA

Activity Description of activities and aims

1. Strategic workshop/s

involving TNPA and

the CSIR team

members

• Crafting of a vision for the sustainable development and operations of the

Port of Saldanha

• Consolidation of known strategic issues (e.g. as contained in the Port of

Saldanha’s latest Long-Term Development Framework Plan) and

clarification on known significant environmental impacts identified in the

Ports’ Aspects & Impacts register.

2. Identification of and

engagement with key

stakeholders

• Engaging with disciplinary experts in the SEA process, stakeholders with

local knowledge and various authorities and interest groups.

• Identification of key stakeholders by using existing EIA databases for the

Saldanha Bay area and updating the database throughout the SEA

process.

• Presentations to the Port of Saldanha EXCO and other relevant

personnel.

• Engagement with relevant authorities and identified stakeholders.

3. Prepare depictions of

the social-ecological

system, of which the

Port of Saldanha is

• Compilation of a series of graphical causal loop diagrams depicting the

social-ecological system of which the Port of Saldanha is part (also

accounting for different future scenarios).

• This systems perspective was used to identify potential fatal flaws



part. Depict variations

in system

configuration to

account for alternative

future scenarios for

the port. The

depictions comprised

graphical causal loop

diagrams.

through insight gained of system variables and relationship – some of

which may be re-enforcing or diminishing feedbacks.

• The systems diagram was made available to the SEA team and

specialists to identify opportunities, constraints and potential fatal flaws

relating to the different key variables and relationships.

4. Determine

opportunities &

constraints and

potential fatal flaws on

the basis of what is

revealed through the

social-ecological

system depictions; e.g.

on the basis of positive

and negative system

feedback loops

• Identification of opportunities and constraints posed by the social, bio-

physical and economic environment to achieve the port’s stated vision

(through various sustainability objectives).

• Investigation of the potential environmental impact of different

commodities handled by the port, originating from, or feeding into, its

economic hinterland/catchment.

• Identification and evaluation of potential “fatal flaws” that might prohibit

certain developments and operations (e.g. the handling of a particular

commodity through the port).

• Addressing the systemic causes of significant environmental impacts

identified in the Ports’ Aspects & Impacts register.

5. Integration and

interpretation of

findings

• Building on the social-ecological system analysis, integrate the various

specialist contributions in the form of an SEA report.

• Aiming at compatibility, ensure alignment between the SEA and the Port

Development Framework and master plan (also other significant plans

such as the 2018 SDF for Saldanha Bay).

• Revision of the Port’s Aspects & Impacts Register in the light of what is

revealed and produced through the SEA process.

• Ensuring that the SEA provides an easily interpreted foundation for any

EIAs that may subsequently be commissioned for port developments.

2017 Review and update of the 2013 SEA

6. Initiation of review • Initiation meeting with TNPA and confirmation of revision process.

• Collation of updated information sources on the baseline conditions within

and surrounding the Port of Saldanha.

• Review of the latest LTPF (2016) for the Port of Saldanha and

consideration of new key project components within the port limits.

• Review of original SEA methodology to confirm relevance within the 2017

context.

7. Strategic Workshop

with key identified

stakeholders

• Initial engagement workshop with key stakeholders (14 March 2017),

including members of the Intergovernmental Task Team for the Greater

Saldanha Bay area. Attendees included representatives from local,

provincial and national government, large industry, public and private

sector and NGOs.

• The aim of the initial engagement was to identify any constraints or

conflict with the latest PDFP for the Port of Saldanha and to inform the

scope of the SEA.

• Updating of SEA report to include a larger planning domain,

encompassing surrounding largescale government and public and private

sector projects

8. Compilation of

updated SEA report

• Compilation of the updated SEA report by incorporating the latest PDFP

information and current baseline conditions within and surrounding the

Port of Saldanha.

9. Finalising of SEA

review/update process

• The updated SEA document is to be reviewed by TNPA, finalised and

thereafter distributed for public and authority information.



and follow-up

Stakeholder

Engagement

• The main findings of the SEA update process will be presented to key

stakeholders at a focus group meeting.

10. Future preparation of a

series of systemically

linked strategic

environmental

management plans,

relevant to key areas

of port development

and operations

• A future aim of the SEA process would be to prepare a series of Strategic

Environmental Assessment Management Plans, to guide development

proposals and track environmental performance in line with the strategic

direction provided by the SEA and in conformance with applicable

legislation.

4.2.2 Approach to SEA adopted for the Port of Saldanha and its review and update

The Port of Saldanha is clearly embedded in a social-ecological system (or multiple systems defined, for

example, at different scales) in which ecological, economic and social components are integrally linked.

The functioning of the human spheres of such systems (i.e. individuals, groups and institutions; also, port

developments and operations) imposes effects on the ecological spheres which, if they retain the capacity

to do so, provide the human spheres with essential environmental goods and services (e.g. marine water

quality capable of supporting mariculture, clean air, etc.).

Conceptualising a social-ecological system requires the following to be defined: key social, economic and

ecological system elements/variables; the linking relationships between these elements (e.g. flows of

ecosystem services and other resources); and, the feedback effects that either reinforce or diminish

capacities within the system. It also requires account to be taken of critical exchanges across the

boundaries of the defined system, as it connects with other systems, including those that function at

different scales (e.g. the port’s connections with the town of Saldanha Bay, the Western Cape Province,

water catchments and water supply schemes, etc.).

Complexity arises as a result of the interactions between social-ecological system components, as these

create the emergent properties of such systems. Emergent properties are those that cannot be described

in terms of the separate components of the system but arise, rather, due to interactions between system

components. To approach an understanding of a complex system (acknowledging that some system

aspects may always be beyond grasp), the focus must, therefore, be on context-relevant system

interactions and not (at least primarily) on individual system components (Cilliers, 2008).

Systems dynamics modelling can be useful in describing cause-effect relationships between social-

ecological system components and in quantifying some of these relationships. This approach was used

as the core methodology for preparing the SEA for the Port of Saldanha (Table 1.3). It was used, in the

first instance, to conceptualise the system as a means to reveal strategic issues about which the SEA is

developed; i.e. the bulk of the bulleted items listed in the Terms of Reference (Section 1.1).

In order to conceptualise the social-ecological system to which the Port of Saldanha contributes and is

part, a causal loop diagram was constructed to aid understanding of the social-ecological system on

which the SEA focuses in order to: reveal significant strategic issues; determine the systemic relationship

between these issues and the issues comprising the port’s Aspects and Impact Register; the causes of

significant environmental impacts identified in the port’s Aspects and Impacts Register; systemically

defined opportunities for the development and operations of the port at a strategic level; etc.

The social-ecological system, as conceptualised for this SEA, has a spatial and temporal character. In

the original 2013 SEA the actual spatial boundary was considered to be the TNPA property boundary,

with selected cross boundary relationships primarily with the marine environment and local municipality.

In consultation with key stakeholders, the SEA revision team, however, opted to take a slightly wider view



of the “immediate TNPA zone of influence”, with a “soft” rather than hard boundary. Whilst this poses

practical challenges both in the review/update of the SEA and its implementation, it was deemed

appropriate to “look over the fence” as there is no doubt that TNPA has direct, indirect and cumulative

impacts well beyond its property boundary – some negative, others positive. The timeframe of the

depicted and considered SES stretches from the short-term (7 years) to long-term (30+ years) phases of

the proposed port development expansion strategy.

Methods of perceiving and depicting systems provide tools for an improved understanding of systems and

their management, particularly for complex situations, as in the case of Port of Saldanha and its enabling

function relating to sustainable industrial (and other) development in a resource-constrained situation

(e.g. marine water quality close to its maximum assimilative capacity, scarcity of freshwater resources for

development, constraints in electricity supply, changing trade and shipping patterns in response to global

change (climate, economic, political, etc.).

System dynamics diagrams present relationships that are difficult to describe verbally. This is because

normal language presents interrelations within systems as linear cause-and-effect chains. However,

system depictions can reveal circular chains of cause (e.g. ‘a’) >effect (e.g. ‘b’) >cause (e.g. ‘x’ + ‘y’ + ‘a’),

etc., which, in combination, result in self-regulation of whole systems. The example of a graphical causal

loop diagram presented in Figure 4.1 is illustrative (only a small portion of the model is shown) of what

was developed as the foundation for the SEA of the Port of Saldanha. The complete model is described

in detail in a later section of this report.

In a causal loop diagram, the influence of one variable on another is described as causality. When an

element of a system indirectly influences itself, the portion of the system involved is called a feedback loop

or a causal loop. Arrows representing system relationships are used to indicate directions of causal

influence, and signs (+ or -) adjacent to the arrows indicate the polarity of these relationships (Figure 4.1).

A plus (+) sign implies that a change in the variable at the tail of the arrow will cause a change in the

variable at the head of the arrow in the same direction (re-enforcing effect); a minus (-) sign implies that a

change in the variable at the tail of the arrow will cause a change in the variable at the head of the arrow

in the opposite direction (diminishing effect). It must be noted that the polarities (+ or -) assigned to linking

relationships do not have any normative significance (e.g. plus (+) does not necessarily imply

good/desirable; minus (-) does not necessarily imply bad/undesirable); they merely indicate either the re-

enforcing (+) or diminishing (-) influence of the relationships on the variables they connect to.

There are two types of effects that arise through feedback loops. A positive feedback loop reinforces

change, often at an ever-increasing rate. In some situations a rate of change may, during the early stages

of influence on a particular system relationship, appear to be minor (i.e. the cause of change and the

change itself may seem insignificant). However, as the change becomes magnified through repeating, re-

enforcing effects, the system implications thereof can rapidly assume significant proportions. Negative, or

balancing, feedback loops impose regulating or stabilizing system effects, which in a normative sense can

be either desirable or undesirable (e.g. an undesirable effect could be the resistance a feedback imposes

in terms of enabling desirable system change).

Specialists and key stakeholders were engaged in order to construct the SES of which the Port of

Saldanha is part. Stakeholders included representatives of the various port authorities (TNPA, Transnet

Capital Projects [TCP], Transnet Port Terminals [TPT]), local government and interest groups and

specialists in areas that are critical for the definition of the social-ecological system at issue (e.g.

specialists in the fields of marine and terrestrial ecology, archaeology, economics, heritage, marine water

quality, bulk services and infrastructure provision).



Figure 4.1 Main elements of a graphical causal loop diagram: SES variables, linking relationships and polarity



The process of model-building was also informed by a stakeholder engagement process that extended

beyond TNPA and specialist involvement.2 Two stakeholder engagement meetings were held during the

original SEA process. The main issue emerging from the stakeholder engagement meetings held during

the 2013 SEA, was for the SEA process to deliver a Strategic Master Plan (SMP) to guide all development

in the Saldanha Bay area. At the time, this expectation was regarded as beyond the scope of the SEA.

However, the essential message was acknowledged to be relevant: that planning undertaken by TNPA

must be as holistic as possible. To date, such a SMP has not been developed.

The need for an SEA for the greater Saldanha Area was also raised at the strategic workshop held on 14

March 2017. Given the expansion and diversification plans by TNPA and other proponents, the need for a

SMP is even greater now than before. However, the SMP cannot be the responsibility of TNPA alone.

Whilst TNPA may be the dominant partner, other proponents (e.g. Saldanha Bay Municipality, mariculture

industry, SBIDZ, large industrial projects, mining) should all join forces to contribute towards compiling

and implementing the SMP. Thus, the revision of the 2013 SEA is also regarded as being the catalyst for

initiating a “multi-stakeholder SMP for the greater Saldanha area”. DEA&DP has already embarked on a

process of compiling a Regional Spatial Implementation Framework for the Greater Saldanha Bay area,

with an SEA for the area to follow. Together, these processes would likely result in a similar document to

the SMP for assisting in the strategic approach to planning of developments in the larger Saldanha Bay

area, including the Port of Saldanha.

Other concerns and antagonisms raised during the 2013 and 2017 processes include the following:

• Air quality: the perceived ongoing poor management of fugitive iron ore dust emissions from the

TPT operations continues to be a concern. The effect this could have on surrounding

communities, tourism, companies establishing operations within the IDZ area and industry in

general was raised as a concern.

• Manganese export: limited volumes of manganese are currently being exported from the MPT.

This is a temporary activity and will soon be moved to Nquru. Concerns were raised regarding the

potential impact of heavy metal contamination from manganese dust on the aquaculture industry

and public health.

• Lead export: concerns were raised regarding water quality and public health from lead

contamination within Small Bay and in emissions to air. It was recommended that storage

facilities need to be improved and that export should take place in closed containers.

• Aquaculture: concerns were raised regarding the proposed establishment of an ADZ in the

Saldanha Bay area and its potential negative impact on tourism and ecosystem integrity. These

concerns relate to the potential eutrophication from cage farming of fin fish and increased

sedimentation from cleaning of shells. It was proposed that smaller fish farms should be

considered in the most suitable locations. Concerns were also raised that the industry could

potentially be dominated by foreign operators. Opportunities for synergy between tourism and

aquaculture (e.g. marketing locally farmed seafood at restaurants) and industry and aquaculture

(i.e. aquaculture to serve as a “check” on industry to ensure impacts on water quality are limited)

were proposed.

• Transport: concerns were raised regarding the potential impact of increased heavy vehicle traffic

on public health and tourism, through road user frustration and noise.

• Mining: concerns were raised regarding the increase in establishment of mining activities in the

Saldanha Bay area (including sand mining and quarries) and its potential impact on biodiversity

and, subsequently, tourism. It was proposed that the new Greater Saldanha Bay EMF identify no-

go areas in order to prevent/limit mining activities in sensitive areas.

2 The public consultation process applicable to this SEA process is not subject to the NEMA public participation requirements, nor is

it subject to the participatory requirements as stipulated in Government Notice R 982.



• Town expansion: concerns were raised regarding the potential pressure to be placed on bulk

services by further town expansion in the area. These concerns relate specifically to volumes of

treated effluent and potentially contaminated stormwater being discharged to the sea and

affecting environmental and human health. It was proposed that infrastructure be improved and

better and more innovative technology considered.

• Skills development and employment: during the 2013 process it was noted that TNPA is partly

responsible for the steady transformation of the Saldanha area from a fishing-determined

economy to one that is largely industrial in character. The need for re-skilling and

education/training aimed at enabling employment in the industrial sector was identified. With the

commencement of the Saldanha Bay IDZ project, the SBIDZ-LC initiated the iThemba Skills

Programme funded by merSETA and the Department of Trade and Industry (DTI) to train 674

candidates in foundational welding, fabrication, rigging, electrical, bricklaying, plumbing and

carpentering skills. This training is aimed at learners residing in the Saldanha Bay municipal area.

Almost every contribution to the SEA deliverable contained within the 2013 SEA and the 2017

review/update is grounded in, extracted out of, or interpreted from the social-ecological systems

perspective gained through the systems approach described above. The existence of revealed feedback

effects has, for example, assisted the identification of potential systemic fatal flaws that might prohibit or

limit certain developments and the handling of particular commodities in the port. It also reveals the

systemic causes of potentially significant environmental impacts. From this basis, management

guidelines were prepared by referencing foundational principles through which system functioning can be

influenced most effectively at key points (variables, relationships) within the social-ecological system, of

which the port is part. The main aim of this approach is to enhance sustainability (or at least the port’s

contribution in this regard) through both a progressive approach to planning and acknowledgement of the

need for adaptive management (e.g. to deal with situations that are difficult to anticipate).



CHAPTER 5: PORT OF SALDANHA: SES DEFINITION & RESILIENCE

IMPLICATIONS

5.1 SOCIO-ECOLOGICAL SYSTEM DEFINITION AND RESILIENCE CHARACTERISTICS

The graphical causal loop diagram (CLD) constructed for this SEA to depict key social-ecological system

(SES) elements and linking relationships is presented in Figure 5.1. The figure depicts the social-

ecological system, of which the Port of Saldanha is part, with the main planned port expansions included;

i.e. it does not reflect only the current situation.

Although there are myriad elements and relationships that could be depicted for the SES on which this

assessment is focused, those that have been selected for analysis are deemed to be most significant in

terms of their influence on system resilience and, thereby, on system sustainability, also considering other

notable development proposals in the surrounding area. Only a limited number of characteristics of a

complex system can be taken into account in any description thereof, which implies that knowledge

gained by such description will always be relative to the perspective from which it is made. The

subjectivity involved in the study team’s selection of certain system relationships, to the exclusion of

others is, therefore, acknowledged – although the breadth of expertise employed in the process is

considered to avoid analytical restrictions that such subjectivity could impose.

As mentioned previously, in reviewing and updating the SES elements, a broader study area extending

beyond the port boundary was considered in order to give due consideration to systemic relationships like

the port’s influences on marine water quality and air quality within the greater Saldanha Bay area.

The SES is shown in Figure 5.1 to comprise 63 variables. A proportion of these variables are directly

associated with the port whilst others either influence or are influenced by the port to varying degrees. A

total of 112 linking relationships directly and indirectly connect the identified system variables, providing

its dynamic and functional definition. To aid the discussion of the system relationships that follows, the

relationships are numbered in Figure 5.1 from #1 to #112. For ease of reference, the linking relationships

are also listed and briefly described in Table 5.1 (See end of Chapter 5).

Although the causal loop diagram in Figure 5.1 allows reasonably clear insight to be gained into what key

system variables and relationships comprise the SES of which the Port of Saldanha is part, the challenge

is to establish how certain of these system characteristics should inform, at a strategic level, port

planning, development and management actions in the short-, medium- and long-term. Put differently,

understanding is required as to how the key ecological, social and economic system variables and

relationships place constraints on and present opportunities for the port’s current operations and future

development and operations.



Figure 5.1 Port of Saldanha SES represented in a Causal Loop Diagram

-

Expansionof bulkliquid

capacityMarine water

quality

Oil spills

Mariculture

Marineecosystems

Ramsarsite

NationalPark

1

2

3

4

5

6

7

8

9

10

+-

+

Desal intake

+

Fishprocessing

intakes +

12

11

Dredging+

-

13

14

15

16

17

Stormwaterload+

-

18

19

Proposedport layout

Circulation

-

-

small-scaleFishing

+

Tourism+

Recreation

+

Expansion ofdry storage:

iron orehandling

20

21

22

23

24

25

26

27

28

29

30

Airquality

-

Humanhealth and

safety

+

Propertyvalues

Noise

Economicinfrastructure

facilitatingeconomic

opportunities (IDZ),sishen

+

Roadinfrastructure

adequacy

Electricitydemand(Eskom)

Risk offire and

explosion

41

31

32

33

34

35

36

37

38

39

40

+

+

Port desalplant

Desalbrine

discharge

50

-

Development ofroad infrastructure

++

Traffic andtransportation

+

-

Shippingtraffic

Railinfrastructure

adequacy

-

Development ofrail

infrastructure

+

+

-

Bulk watersupply

adequacy

-

Development ofwater supply

infrastructure,e.g. desal

+

-

+

Terrestrialecosystems

-

Heritage:archaeology

andpaeleontology

-

Dust

+

-

+

-

Demand forsocial servicesand municipalinfrastructureand Housing+

Inmigration:influx of job

seekers

+Social

cohesion

-

42

43

44

Economic spinoffsfrom expenditure:jobs, commerce,

services+

-

Delivery andcapacity to delivermunicipal services

-

Portsustainability

+

-

52

53

54

56

55

46

47

48

49

51

45

Landavailability:

commercial andresidential

+

Shoreline change

+

-

-

-

Sedimentquality

+Cost of managing

dredging-

-

Electricitysupply

+

Amenity,sense ofplace,

Aesthetics -

+

-

Shiprepair

+

Human capacityto operate

expanded port

Ballastwater

++

57

+

58

60

59

+

+

61Invasives +

62

-

63

-

+

+

64

+

65+

66

-

67

+68

+

70

71

73

72

+

+

+

+

Environment

Economy

Society

Climatechange

Increasestormevents

Sea level rise

Reducedrainfall

oceantemperature

increse

Portinfrastructure

Bulk watersupply

infrastructure

Eutriphication

GHGs

Fish factory outlet

74

75

76

77

78

80

81

82

83

84

85

86

87

88

89

91

90

92

93

94

95

96

+

+

+

+

+

+

-

-

-

-

-

+

+

+

-

+

+

+

+

+

+

97

+

98

+

99

+

100

+

101

102

++

Publicopposition to

TNPA

103

+104

-

105

106

-

-

107

+

108

+

109

+

110

-

111

+

112

-

Proposeddevelopment

Goal

Key variables

79

+



The ultimate contribution of the SEA for the Port of Saldanha is to direct planning, development

and operations towards building desirable resilience of the SES of which it is part. Resilience has

previously been defined as the capacity of a system to absorb disturbance, including major

shocks, and re-organise whilst undergoing change so as to still retain the same function, structure

and identity. It relates to the ability of systems to tolerate change/disturbance without transforming

into different states (although it must be recognised that transformation within some systems may

also be desirable). Some defining characteristics of system resilience include:

• The amount of change a system can experience and still retain its structure, function and

overall identity (the latitude for change that it possesses, before there is system

transformation or collapse);

• The degree to which a system is capable of self-organizing (autonomous adaptation in

response to external influences); and

• The ability to build and increase capacity for adaptation, through potential accumulated within

the system and, related to this, through system connectedness.

Resilience theory suggests that system resilience is, inter alia, a function of its potential (Figure

5.2). System potential may be understood, in one sense, as the ‘capital’ accumulated within a

system (in different forms: social, infrastructure, financial, etc.). It is also a function of latitude,

which is a system’s ability to shift in response to change, whilst not transforming into an

alternative state. Both system potential and latitude are functions of a system’s internal

connectedness. Generally, a high level of connectedness between system variables allows for

greater capacity for internal response to exogenous factors (factors tending to effect changes in

system state); related potential allows for an increased number of options for system response to

adapt and/or to build resilience. By implication, the system variables comprising the SES (of

which the Port of Saldanha is part) that are most connected to other variables will tend to have the

greatest determining effect on system resilience; i.e. connectedness can serve as a proxy for

resilience.

Figure 5.2 Adaptive Cycle with key descriptors of Potential; Connectedness and Resilience.



The variables with the greatest connectedness in the economic, social and environmental spheres

comprising the SES of which the Port of Saldanha is part can be identified by accounting for the number

of relationships connecting to and emanating from each system sphere’s contributing variables. By

following this approach (i.e. based on their connectedness) the following key system variables within the

economic, social and environmental SES spheres can contribute most to system potential and resilience:

• Economic Sphere:

The Port of Saldanha, represented by the following variables:

o Expansion of liquid bulk storage (11 relationship connections);

o Development of water supply infrastructure (7);

o Expansion of dry storage: iron ore handling (7);

o Oil and rig (ship) repair (7); and

o Development of rail infrastructure (4)

• Environmental Sphere:

The marine and onshore environment, represented by the following variables:

o Marine water quality (15 connections – by far the greatest number of connections;

i.e. fundamental to SES resilience); and

o Air quality (6 connections)

• Social Sphere:

Social services & infrastructure, represented by the following variables;

o In-migration, influx of job seekers (6 connections);

o Public opposition to TNPA (6 connections);

o Delivery and capacity to deliver municipal services (6 connections);

o Demand for social services and municipal infrastructure and housing (4 connections); and

o Human capacity to operate an expanded port (4 connections)

Insofar as system resilience needs to be promoted, it is important to know which priority system variables

need to be managed for resilience (i.e. what needs to be resilient), and what it should be resilient against

(i.e. the focus must also be on system relationships that can determine resilience). In the language of

sustainability, this translates into asking what should be sustained and how? When considering the key

system variables listed above, it is clear that the following system states (i.e. function, structure, identity

and feedbacks) are desirable to TNPA and the Saldanha Bay community, and therefore must remain

resilient:

1. Fit for human habitation: The local SES must allow human habitation in terms of environmental

quality/services, bulk infrastructure/services and social cohesion.

2. Economic viability: Economic growth, the existing diversity and level of economic activity must be

maintained.

3. Social license to operate: On-going approval or broad acceptance of the port must be maintained

(approval = favourable regard / acceptance = tolerance).

Changes to the local SES that cause any of the above system states to be compromised will result in

reduced overall system resilience.

5.2 SYSTEM FEEDBACK LOOPS

Feedback loops are systemic relationships emanating from a given variable which ultimately impacts on

itself, progressively amplifying or buffering systemic changes. Positive feedback normally amplifies

systemic changes; i.e. moving the system away from an equilibrium or status quo state and increasing its

instability. On the other hand, negative feedback tends to dampen systemic change and maintains

stability in the system (either desirable or undesirable).



In order to understand feedback loop structure, it is useful to briefly discuss positive and negative

connections. Firstly, positive and negative does not denote a normative value (i.e. “good” or “bad”

changes), but rather a functional value. A positive connection (indicated by the”+” symbol in the

CLD) is one in which change in a given variable causes the same functional change in a second

variable; this can either be an increase or decrease in the function of the subsequent variable.

Put differently, change in two connected variables is in the same “direction”. A negative

connection (indicated by the “-“symbol in the CLD) is one in which change in a given variables

results in an opposite functional change in a second variable.

The Port of Saldanha SES contains at least 58 feedback loops3 of various levels of importance.

Because of the potentially masked influence of feedback loops on overall system functioning and,

therefore, system resilience, attention needs to be focussed on the variables and linking

relationships that create the most important of these loops. This SEA cannot devote attention to

all of the identified feedback loops; accordingly, one of the most highly connected SES variables

(marine water quality) is discussed below in order to explain the feedback loops system (Figure

5.3). This rationale is based on the conclusions that: the most highly connected variable within

the SES is most critical to the resilience of the system, feedback effects involving this variable are

likely to be highly determining, and the variable’s latitude for adaptation to change must not be

exceeded to the extent that it could trigger the SES to transform into a different system state.

Figure 5.3 Positive Feedback Loop 1

Positive Feedback Loop 1 (Figure 5.3): This amplifying feedback emanates from the SES key

variable marine water quality through relationships #7 (Port desalination intake) and #81 (Port

desalination plant). Marine water quality is critical in preventing desalination intake blockages and

extending the lifetime of desalination membranes. The feedback returns to marine water quality

via relationships #32 (Development of water supply infrastructure) and #2 (Desalination brine

discharge). These return relationships could materialise as a result of port expansion and drought

3 The identified feedback loops (58) are only those applicable to the key system variables.



conditions, necessitating development of water supply infrastructure in the study area (via

additional desalination projects), as well as the resultant brine discharge (waste product of the

desalination process) which impacts on marine water quality.

The feedback loop indicates that port expansion will require additional fresh-water supply for

potable uses and dust suppression. This will most likely materialise through desalination

technology. Desalination requires good marine water quality. However, desalination can

compromise marine water quality through brine discharge. Accordingly, expansion of the fresh-

water supply infrastructure, although essential to system resilience, might be self-limiting. This

feedback loop will tend to destabilise the Port of Saldanha SES; i.e. focused management is

required to monitor and mitigate its impact (see Chapter 6 for proposed management actions).

Positive Feedback Loop 2 (Figure 5.4): An amplifying feedback originates from marine water

quality through relationship 32 (Development of water supply infrastructure) and returns via

relationships #79 (Climate change), #83 (Reduced rainfall) and #82 (Ocean temperature increase)

to marine water quality through relationship #2 (Desalination brine discharge). This feedback

exists due to the need to develop fresh-water supply infrastructure as a result of planned port

expansion and drought conditions. These expansions could, in some measure, accelerate climate

change through the generation of greenhouse gasses (GHGs), which in turn is expected to result

in reduced rainfall which will increase demand for additional sources of fresh-water supply.

As in Positive Feedback Loop 1, increased use of desalination technology may compromise

marine water quality. Increased ocean temperature may result in increased desalination

operating costs and reduced efficiency due to an expected increase in algal blooms causing

intake blockages and membrane contamination. Consequently, the planned expansion of the Port

of Saldanha, if based on increased consumption of fossil fuel, might be self-limiting (see Chapter

6 for proposed management actions).

Figure 5.4 Positive Feedback Loop 2

Negative Feedback Loop 1 (Figure 5.5): A stabilising feedback originates from Public opposition

to TNPA via relationship #110 (Port sustainability) and relationship #111 (Delivery and capacity to

deliver municipal services) and returns to Public opposition to TNPA via relationship #105.



This feedback loop, though appearing simple, is of significant importance to TNPA. The feedback

loop is potentially stabilising; accordingly, it has a reducing effect on change within the system and

will potentially control public opposition to TNPA as long as the sustainability of the port is

maintained. Sustainability must here be interpreted in its broadest context; i.e. not only

sustainable in terms of TNPA’s operations, but also in terms of the needs of the local Saldanha

Bay community. It is therefore imperative that TNPA actively engages with the Saldanha Bay

Local Municipality, the West Coast District Municipality and members of the community through

appropriate forums to ensure the long-term sustainability of the port. In this regard, bodies similar

to the IGTT are important forums. Unlike amplifying feedback loops, a stabilising loop provides a

measure of control to TNPA and should be utilised to maximum effect. An open and consultative

process as part of any project planning can play an important role in a stabilising loop.

Figure 5.5 Negative Feedback Loop 1

Table 5.1 Port of Saldanha SES linking relationships (see Figure 5.1)

Relationship

No (as per

Causal Loop

Diagram).

Nature of relationship

1. Establishment of bulk liquid storage, new oil and gas service infrastructure and shipping

traffic will increase the risk of occurrence of oil spills

2. (i) Oil spills,

(ii) Desalination brine discharge, and

(iii) Oil rig and ship repair,

Will reduce marine water quality

3. Marine water quality supports mariculture

4. Marine water quality supports marine ecosystems

5. Marine water quality supports the Ramsar site designation

6. Marine water quality is critical to the functioning of aspects of the West Coast National



Park

7. Marine water quality facilitates proper desalination intake functioning

8. Marine water quality facilitates the effective functioning of fish processing activities (via

water intakes)

9. Establishment of a bulk liquid storage are and new marine oil and gas servicing

infrastructure will increase demand/need for dredging

10. Increased dredging can compromise marine water quality through increased turbidity,

the release of metals, etc. making these potentially bio-available

11. Establishment of bulk liquid storage will increase the stormwater load due to an increase

in impervious surfaces

12. Increased stormwater load will reduce marine water quality as all potentially

contaminated stormwater drains into Saldanha Bay

13. The proposed port layout will influence marine water circulation.

14. Poor marine water circulation and ballast water discharge reduces marine water quality

15. Marine water quality supports small-scale fishing

16. Marine water quality supports tourism

17. New bulk liquid storage and increase shipping traffic will reduce local air quality due to

an increase in released BTEX compounds

18. Decreased air quality adds to the risk to human health and safety

19. Oil rig and ship repairs increase noise levels

20. (i) Establishment of bulk liquid storage,

(ii) Expansion of dry storage (Iron ore handling), and

(iii) Oil rig and ship repair

Will produce economic spinoffs from related expenditure, jobs, commerce and services

21. Road infrastructure adequacy will facilitate the establishment of liquid bulk storage

22. Establishment of bulk liquid storage will necessitate the development of road

infrastructure

23. Development of new road infrastructure improves the adequacy of road infrastructure at

Saldanha

24. Development of road infrastructure will increase volumes of traffic and transportation

25. Increased traffic volumes will result in increased GHGs and will reduced air quality

26. Development of new rail infrastructure will improve the adequacy of rail infrastructure at

Saldanha

27. The adequacy of rail infrastructure will facilitate the expansion of dry storage

28. Expansion of dry storage will necessitate the development of rail infrastructure

29. Development of rail infrastructure at the port has the potential to reduce air quality

30. The adequacy of bulk water supply will facilitate expansion of dry storage

31. Development of new water supply infrastructure will improve the adequacy of water

supply infrastructure at Saldanha

32. Development of water supply infrastructure reduces marine water quality (due to

desalination effluent discharge) and good marine water quality facilitates the

development of water supply infrastructure through a feedback effect

33. (i) New bulk liquid storage,

(ii) Development of rail infrastructure,

(iii) Development of road infrastructure and

(iv) Oil rig and ship repair

Have the potential to reduce the extent and functioning of local terrestrial ecosystems

and might threaten heritage resources

34. Expansion of dry bulk storage (iron ore) will increase dust pollution

35. Increased dust levels will reduce local air quality

36. Quality of terrestrial ecosystems positively influences tourism



37. Elevated levels of dust negatively impacts on terrestrial ecosystems

38. (i) Expansion of bulk liquid storage,

(ii) development of water supply infrastructure,

(iii) oil rig and ship repair,

(iv) development of dry storage, and

(v) economic spinoffs

Will increase in-migration (influx) of job seekers and demand for social services,

municipal infrastructure and housing

39. In-migration of job seekers reduces social cohesion

40. Social cohesion places a demand on social services, municipal infrastructure and

housing

41. Demand for social services, municipal infrastructure and housing reduces capacity to

deliver municipal services

42. Delivery and capacity to deliver municipal services enhances port sustainability

43. In-migration of job seekers negatively impacts on terrestrial ecosystems

44. In-migration of jobs eekers and human capacity to operate expanded port increases

demand for social services, municipal infrastructure and housing

45. Proposed port layout can influence shoreline change

46. Shoreline change will negative impact on recreation

47. Shoreline change will negatively influence property values

48. Proper marine water circulation positively influences marine sediment quality

49. Uncontaminated marine sediment reduces the costs of managing dredging

50. Reduced cost of managing dredging adds to Port sustainability

51. Expansion of dry storage will increase noise levels

52. Noise reduces amenity, sense of place and aesthetics

53. Air quality, amenity and sense of place, and marine water quality add to local property

values

54. Elevated noise levels will negatively impact on human health and safety

55. Establishment of bulk liquid storage, expansion of dry storage and oil rig and ship repair

will increase electricity demand from Eskom

56. Increased electricity demand from Eskom will negatively impact local electricity supply

57. Sufficient electricity supply adds to port sustainability

58. NO VARIABLE

59. Human capacity to operate expanded port makes the port sustainable

60. Shipping traffic will result in increased volumes of ballast water discharge and

introduction of alien marine biota

61. Increased ballast water discharge may lead to increased invasives in the area

62. Increased invasives will negatively impact on marine ecosystems

63. Shipping traffic increases the demand for human capacity to operate the expanded port

64. (i) Mariculture,

(ii) Small-scale fishing,

(iii) Tourism, and

(iv) Shipping traffic

Generate economic spinoffs from related expenditure, jobs, commerce and services

65. Land availability for commercial and residential development will add to port

sustainability

66. Port desalination plant will add to elevated dust levels

67. Proper functioning of desalination water intake will improve functioning of port

desalination plant

68. Port desalination plant will increase desalination-related brine discharge

69. NO VARIABLE



70. Increased risk of fire and explosion reduces human health and safety

71. Expansion of bulk liquid storage will increase the risk of fire and explosion

72. Proper functioning of the desalination intake is necessary for the development of water

supply infrastructure

73. Development of desalination water supply infrastructure results in brine discharge

74. Establishment of any new bulk liquid fuel storage will increase the amount of GHGs

released into the atmosphere

75. Expansion of dry storage will increase the amount of GHGs release into the atmosphere

76. Increased levels of traffic and transport will increase levels of GHGs

77. Fish factory outlet of process water will increase risk of eutrophication

78. Eutrophication reduces marine water quality

79. GHGs accelerate climate change

80. Marine water quality facilitates proper functioning of bulk water supply (via planned

municipal desalination plant)

81. Good marine water quality improves functioning of port desalination plant

82. Ocean temperature increase results in eutrophication

83. Climate change results in reduced rainfall

84. Port infrastructure integrity is required for port sustainability

85. Climate change will cause sea level rise

86. Climate change will cause increased storm events

87. Climate change will cause ocean temperature increase

88. Development of water infrastructure will add to port sustainability

89. Increased storm events reduce longevity of port infrastructure

90. Sea level rise reduces longevity of port infrastructure

91. Reduced rainfall reduces longevity of port infrastructure

92. Reduced rainfall increases demand for development of water supply infrastructure

93. Optimal functioning bulk water supply infrastructure adds to port sustainability

94. Reduced rainfall will negatively impact on efficiency of bulk water supply

95. Optimal functioning of the port desalination plant adds to port sustainability

96. Reduced rainfall will impact on the functioning of the desalination intake

97. Increased storm events will increase shoreline change

98. Delivery and capacity to deliver municipal services enables the availability of human

capacity to operate expanded port

99. Electricity supply enables the delivery and capacity to deliver municipal services

100. In-migration of job seekers increases the demand for electricity supply from Eskom

101. Ramsar status supports tourism

102. The West Coast National Park supports tourism

103. In-migration of jobseekers increases public opposition towards TNPA

104. Social cohesion reduces public opposition towards TNPA

105. Delivery and capacity to deliver municipal services reduces public opposition towards

TNPA

106. Amenity, sense of place and aesthetics reduces public opposition towards TNPA

107. Noise increases public opposition towards TNPA

108. Bulk water supply adequacy will impact on the expansion of bulk liquid storage

109. Expansion of dry storage will require additional dredging

110. Public opposition towards TNPA reduces port sustainability

111. Port sustainability enables delivery and capacity to deliver municipal services

112. Land availability for commercial and residential development will negatively impact on

terrestrial ecosystems



CHAPTER 6: OPPORTUNITIES, CONSTRAINTS & STRATEGIC

MANAGEMENT ACTIONS (SMAs)

In the presentation of Opportunities, Constraints and Strategic Management Actions (SMAs) that follows,

the organising structure that is used focuses on concrete social, environmental and economic themes.

These themes are related to the key system variables identified in Chapter 5.

In each instance the numbered relationship (as per the CLD presented in Chapter 5) is stated verbatim

followed by key opportunities, constraints and associated management actions relevant to the

relationships. Before this is presented, the assessment matrix used to assess the potential impact on

relative key SES variables is first introduced and described.

It must be noted that as part of the SEA review/update process, sustainability ratings for two of the below

listed environmental theme system variables (i.e. air quality and natural vegetation) were lowered from

the 2013 assessment. The lowering of the sustainability ratings relate to changes in the biophysical

environment and growing developmental pressures in the area surrounding the Port of Saldanha since

2013. Reasons for the changes in the sustainability ratings are set out under Sections 6.2.1 and 6.2.2

below.

6.1 ASSESSMENT MATRIX

Retief (2008) criticizes SEA practice for failing to actually “assess” potential strategic impacts even though

the function of an SEA is to act as an assessment instrument – albeit in a planning rather than EIA

(project level) context.

Given this absence of assessment practice in mainstream SEAs and given the TNPA Terms of Reference

which requires the assessment of “limits of acceptable change” to inform future EIAs; it was decided to

assess key impacts using an assessment matrix. The key difference between this assessment matrix and

those found in EIA practice is its focus on the level of systemic latitude available to accommodate

additional change, rather than the significance of a given impact on the receiving environment.

Accordingly, the assessment matrix has an inverse rating system, with HIGH indicating high levels of

latitude available (i.e. comparable to a low impact significance rating in an EIA rating system) and LOW

indicating limited or no latitude available (i.e. comparable to a high impact significance rating in an EIA

rating system). The assessment matrix is graphically presented below.

Assessment rating

Interpretation

VERY HIGH The SES has extensive latitude to accommodate change (impact). Such change would

typically be novel developments introduced into the SES.

HIGH The SES has sufficient latitude to accommodate change. Such change would typically

be either novel developments introduced into the SES, or relatively limited expansion of

existing activities already present in the SES.

MEDIUM The SES has latitude to accommodate change. Care should however be taken with

introducing such change as the SES is nearing its capacity to accommodate further

change and, as a result, could assume a LOW or VERY LOW rating. Such change would

generally be novel additions or expansions of activities already present within the SES.



LOW The SES has very little latitude to accommodate change. Changes should be

approached with caution or avoided altogether as the SES could shift into an

(undesirable) alternate state should further pressure be placed on it. Such change would

generally be associated with either novel additions or extensions or expansions of

activities already present within the SES.

VERY LOW The SES has no latitude to accommodate change. Changes should be approached with

extreme caution or preferably be avoided altogether as the SES could easily shift into an

(undesirable) alternate state. Such change would generally be associated with either

novel additions and extensions or expansions of activities already present within the

SES.

It should be noted that these assessment ratings attempt to capture complex systemic relationships

through a single, rather simplistic assessment score. As a result, accuracy in prediction cannot be

guaranteed; i.e. the SES in question, as a result of its complexity, might respond to change in a non-

linear, unexpected way. Assessment ratings should be used as a guide only, not a statement of fact.

6.2 ENVIRONMENTAL THEME

The environmental theme addresses biophysical aspects applicable to the key system variables. These

aspects are (i) Air quality, (ii) Natural vegetation and (iii) Marine water quality.

6.2.1 Air quality

Overall rating: LOW

Discussion: There is limited latitude available to accommodate air quality changes

attributable to current and planned TNPA and associated projects.

According to the air quality assessment (Airshed, 2016) undertaken as part

of the screening study for the TNPA’s proposed new marine oil and gas

infrastructure, dispersion modelling for inhalable particulate matter

concentrations (PM2.5 and PM10) in the vicinity of the Port showed that,

without the appropriate mitigation measures, the 24-hour National Ambient

Air Quality Standards (NAAQS) could be exceeded at the TNPA Saldanha

Port monitoring station. Simulated annual average PM10 concentrations

would also exceed the NAAQS of 40 µg/m3 at the Port monitoring station.

Although the simulations did not show exceeded levels beyond the Port

boundaries, developments that will cause additional air quality impacts

should still be approached with caution due to the existing and expected

negative response from Saldanha Bay/Vredenburg residents. High levels of

frustration are already present throughout the study area as a result of

fugitive iron ore emissions (the so-called “pink dust”). Accordingly, the

systemic latitude in this instance does not refer to biophysical constraints,

but rather to social and, potentially, economic system components which

might be exceeding absorptive limits. In addition, manganese exports are

set to continue in the short term from the MPT and TPT is currently in the

process of applying for an Atmospheric Emissions Licence (AEL) to allow

for the temporary storage and handling of manganese. Manganese

exports from the MPT commenced in 2013 and has increased by more

than a third each year, totalling approximately 3 million tonnes in the 2017

financial year, comprising around 60% of the total dry bulk exported from

the MPT. This is a product for which negative responses have already

been received from local residents due to the perceived health risks of

storing and handling manganese within the Port without the required AEL

and related compliance monitoring. This led to the compilation of a draft



The following SES relationships, associated opportunities and constraints and subsequent management

actions are applicable to local air quality:

Relationship # 17: New bulk liquid fuel storage, increased shipping traffic and oil and gas

servicing operations will reduce local air quality.

Opportunity: The envisaged expansion of existing infrastructure and implementing new projects provides

TNPA with an opportunity to advance its sustainability objective of the port vision by ensuring best

available technologies (BAT) are applied in the design and operation of the relevant projects. To enable

TNPA to realise the environmental responsibility objective of the port vision, it must ensure that ship

operations adhere to the requirements of Annex VI of the MARPOL Convention for the reduction of air

pollution from ships. Abrasive blasting, surface painting and ship emissions are unlikely to result in

exceedances of the NAAQS for particulates or health-effect screening levels of Volatile Organic

Compounds (VOCs) if emission controls are in place (Airshed, 2016). Some of these are listed under the

management actions below.

Management actions:

� BAT to be implemented in all relevant aspects of the design of the bulk fuel storage and oil and gas

servicing facilities, including tank design, vapour and paint recovery units and VOC destruction.

� BAT to be implemented in all aspects of maintenance and operations of the bulk fuel storage and oil

and gas servicing facilities, including fabric filters on abrasive blasting activities and the use of low

VOC paints as far as practically possible.

� Adoption of the requirements of the MARPOL Convention into port operations.

Constraint: The import, storage and distribution of fuel products does not fall exclusively under the

control of TNPA and might restrict the degree of investment in best available technologies to control

emissions from storage and handling. The fuel used by ships is also not under the direct control of

TNPA and the possibility exists for ships to use dirty fuels in the port limits.

Management actions:

� TNPA must play an active role in the engineering design of the bulk liquid fuel storage and oil and

gas servicing facilities at the port to ensure that BAT principles are implemented.

� TNPA must play an active role in the design of maintenance and operational plans for the bulk liquid

fuel storage and oil and gas servicing facilities to ensure that BAT principles are implemented

� Enforcement of the requirements of the MARPOL Convention on all vessels entering and operating

in the port

Relationship # 18: Decreased air quality adds to the risk to human health and safety

Opportunity: The need to control emissions of air pollutants from activities in and around the port

provides an opportunity for the realisation of the environmental responsibility objective of the port vision

by ensuring legal requirements are satisfied.

WCDM guideline document for the storing and handling of ore.

Based on the persisting iron ore dust issues within the Saldanha Bay area,

the additional manganese export operations and other largescale industrial

emitters in the surrounding area, the overall sustainability rating was

reduced from Medium to Low as part of the SEA review/update process.



Management actions:

� Ensure adherence by tenants to all legal requirements in terms of AELs, minimum emission

standards, dust control and ambient monitoring.

� Ensure all port tenants implement fugitive dust management plans.

Constraint: The control of emissions from activities in the port is not directly under the control of TNPA,

but with port tenants; this might limit the extent of management and control that might be implemented.

Management actions:

� Establish contractual arrangements with tenants to include emission reduction plans and dust control

measures.

� Establish a management forum to ensure consistent implementation of emission control activities.

Relationship # 25: Increased traffic volumes will result in increased greenhouse gas emissions

and reduced air quality

Opportunity: The expected increase in traffic in the port area and surrounds provides TNPA with an

opportunity to advance its sustainability objective of the port vision by applying measures to control

vehicle movement, optimise travel arrangements, regularly maintain vehicles and train staff in efficient

driving techniques.

Management action:

� Institute traffic control measures at the port aimed at reducing emissions from vehicles such as

access control, speed restrictions and traffic calming.

Constraint: The control of vehicle movement inhibits normal activities at the port and may constrain

operations and throughput.

Management actions:

� Explore alternatives to vehicles for in-port transportation needs, such as conveyors, electric powered

front-end loaders and cranes.

� Use Low Sulphur Diesel (LSD) for all on-site for port vehicles.

� Assist TPT in implementing the planned shuttle service for employees and permitting system limiting

port vehicle access to operational requirements only.

Relationship # 29: The development of rail infrastructure at the port will reduce air quality

Opportunity: The expected increase in rail traffic in the port area and surrounds provides TNPA with an

opportunity to advance the sustainability objective of the port vision by engaging with Transnet Freight

Rail (TFR) and assisting in applying measures to effectively manage locomotive use and to promote

efficient rail movement.

Management actions:

� Although TNPA does not have direct authority over TFR, it still has an oversight role to play and

should monitor the following TFR responsibilities:

o Implementation of service plans for locomotives to ensure they operate in accordance with

manufacturer specifications.

o Use of Low Sulphur Diesel (LSD) to fuel locomotives

� When assessing impacts of new infrastructure, consider cumulative impacts from increased rail

infrastructure.



Constraint: Restriction on locomotive movement inhibits normal activities at the port and may constrain

operations and throughput. TNPA has no direct control over TFR infrastructure and operations.

Management actions:

� Ensure that the interface agreement between TNPA and TFR is met in terms of the requirements of

the railway safety regulator (RSR).

� As part of its oversight role, TNPA should monitor the following TFR responsibilities:

o Ensuring that locomotives operate optimally in order to limit emissions.

o Ensuring that LSD fuel is available in sufficient quantities (bunkering) at the port.

Relationship # 34: Expansion of dry bulk storage will increase dust pollution

Opportunity: Controlling dust pollution from an increase in bulk storage and export provides an

opportunity for the realisation of the sustainability objective of the port, as well as the objectives for

environmental responsibility and protection of community heritage.

Management actions:

� Ensure BAT applies at all aspects of bulk product handling and storage facilities.

� Ensure implementation of fugitive dust management plans for all planned expansions and existing

operations.

� Establish a forum, or make use of existing structures, to facilitate discussion and feedback between

TNPA and property owners/rate payers regarding air quality measurements, BAT and dust

management plan implementation.

� Manganese and other potentially hazardous ores and concentrates (not covered under an AEL),

must be transported, stored and handled in line with the relevant WCDM guideline document. This

includes storage within an enclosed building on a hard, impervious surface graded and drained to a

sump. Loading and offloading of material must be undertaken inside enclosed storage facilities or

offloaded into containers or onto trucks for direct transportation in the enclosed storage facility. No

storage of hazardous materials (e.g. manganese and zinc) is to be undertaken in open air stockpiles

without an AEL.

� Dust fallout monitoring is to be conducted at storage and handling locations, along transport

corridors and within residential areas in close proximity to the transport corridors.

Constraint: The control of emissions from facilities at the bulk storage terminal is not directly under the

control of TNPA, but rather with the tenants/terminal operators, which restricts the degree of management

and control by TNPA.

Management actions:


measures.


Relationship # 35: Increased dust levels will reduce local air quality

Opportunity: The need to control dust from new and planned bulk fuel and liquid gas storage facilities

provides an opportunity for realising the port’s objectives for environmental responsibility and protection of

community heritage.

Management actions:

� BAT is considered in aspects of the design of the bulk fuel and liquid gas storage facilities, including

tank design, vapour recovery units, VOC destruction.



� BAT is considered in all aspects of maintenance and operations of the bulk fuel and liquid gas

storage facility.

� Establish a forum, or make use of existing structures, to facilitate discussion and feedback between

TNPA and property owners/rate payers regarding air quality measurements, BAT and dust

management plan implementation.

Constraint: The control of emissions from activities at the bulk storage terminal is not directly under the

control of TNPA, but with rather with the tenants, which restricts their degree of management and control.

Management actions:


measures.

� Establish management forum to ensure consistent implementation of emission control activities.

Relationship #74: Establishment of any new bulk liquid fuel storage will increase the amount of

greenhouse gases released into the atmosphere

Opportunity: The need to control emissions of GHGs from potential flaring at any new bulk liquid storage

facility, by ensuring the application of best available technologies in the design and operation of the

storage tanks and fuel handling equipment, will enable the realisation of the environmental responsibility

objective of the port.

Management actions:

� BAT is considered in aspects of the design of the of the bulk fuel storage facility, including tank

design, vapour recovery units and VOC destruction.

� BAT is considered in all aspects of maintenance and operations of the bulk fuel storage facility.

Constraint: The handling, storage and distribution of fuel products does not fall exclusively under the

control of TNPA and might restrict the degree of investment in best available technologies to control

emissions of GHGs from storage and handling.

Management actions:


measures.


6.2.2 Natural vegetation

Overall rating: MEDIUM

Discussion: There is shrinking latitude available to accommodate more loss of natural

vegetation as a result of developments proposed in the port area and

surrounds. TNPA should note the presence of Critical Biodiversity Areas

(CBAs) within the property currently under its ownership as well as the

properties it intends to procure as part of its expansion strategy. Although

some CBAs can be avoided at the expenses of other terrestrial vegetation

types within the SES which do not have a determining influence on

systemic identity, structure and function (i.e. aspects of SES resilience),

these opportunities are decreasing, especially when considering the latest

draft revision of the Saldanha Bay EMF. The majority of the port land

behind and surrounding the iron ore terminal has been identified as a

conflict area in the draft EMF. Such areas would require negotiations with

the DEA&DP and CapeNature if any further development is to take place.




actions are applicable to natural vegetation:

Relationship # 33: Increased terrestrial development, in the form of (inter alia) planned bulk liquid

storage, expansion of rail infrastructure, expansion of road infrastructure and development of

expanded ship repair and oil and gas facilities will reduce the quality, extent and connectivity of

the current vegetation and associated threatened plant species.

Opportunity: Expansion of the above infrastructure could be planned around and aid in formalising

essential conservation areas; i.e. careful planning, including impact avoidance, mitigation, rehabilitation,

restoration and securing of biodiversity offsets could reduce negative impacts and possibly advance

conservation aims as well as benefit the human environment.

Management actions:

� Existing CBAs need to be taken into account when planning development, and should be avoided;

they should be managed as formal conservation areas. There must be rehabilitation of certain key

ecological corridors.

� Scope exists for the implementation of biodiversity offsets for certain CBAs, and expert botanical

opinion should thus be obtained at the planning stage in line with the 2017 National Biodiversity

Offset Policy and the strategic biodiversity offset study for the greater Saldanha Bay area (once

completed).

Constraint: Expansion of the above infrastructure may be constrained by the presence of threatened

vegetation types and plant species, and by the need to plan around these areas.

Management actions:

� Existing CBAs need to be taken into account when planning development, and should be avoided. If

this is not possible, biodiversity offsets would need to be identified and formalised in line with the

biodiversity offset policy and guidelines.

� Expert botanical input should be obtained at the planning stage so that key conservation areas are

identified, and not eliminated through development.

Relationship # 43: Increased worker housing requirements, as a result of inmigration to the area,

will reduce the quality, extent and connectivity of the current vegetation and associated

threatened plant species.

Such negotiations could lead to the requirement for biodiversity offsets,

should no other options be available for avoidance. Due to the presence of

sensitive vegetation types such as Saldanha Flats Strandveld on and

surrounding port land, it might not be that easy to secure like-for-like

biodiversity offset areas and negotiations would be required with

surrounding large developers and property owners. A strategic biodiversity

offset study for the greater Saldanha Bay area was commissioned by

DEA&DP in 2017. This study aims to identify sensitive areas that would

require biodiversity offsets prior to any development taking place, providing

guidance on the ratio of land to be offset as well as identifying available

land where offset areas could be secured. Due to the continuing

developmental pressures surrounding the Port of Saldanha, the presence

of remaining threatened vegetation types on port land and land identified

for port expansion, and the challenge of securing suitable biodiversity

offsets in future, the overall sustainability rating was reduced from High to

Medium as part of the SEA review/update process.



Opportunity: Expansion of any new required housing component needs to be planned around and aid in

formalising important conservation areas; i.e. careful planning could advance conservation aims and

benefit the human environment.

Management actions:

� Existing CBAs need to be taken into account when planning development, and should be avoided if

possible, and should ideally be managed as formal conservation areas, with funding from local

developments. Rehabilitation of certain key ecological corridors could also be funded by local

developments.

� TNPA are to come to an agreement with CapeNature on the accuracy of the latest CBA mapped

areas within and surrounding Port land.

� Scope exists for implementation of biodiversity offsets for, and expert botanical opinion should thus

be obtained at the planning stage in line with the biodiversity offset policy and guidelines.

� Engage with the Saldanha Municipality regarding potential future housing requirements linked to

large development projects and ensure alignment with the SDF.

Constraint: Expansion of the above infrastructure may be constrained by the presence of threatened

vegetation types and plant species, and by the need to plan around these areas.

Management actions:

� Existing Critical Biodiversity Areas (CBAs) need to be taken into account when planning

development, and should be avoided if possible. If not possible, additional suitable, replacement

conservation areas will need to be identified and formalised.

� Expert botanical input should be obtained at the planning stage so that key conservation areas are

identified, and not permanently lost to development.

6.2.3 Marine water quality


actions are applicable to natural vegetation:

Overall rating: LOW

Discussion: The SES has very little latitude available to accommodate further

anthropogenic change to marine water quality. This system variable is

highly connected and can easily reach a point where it could unexpectedly

trigger ripple-effect change in system state (into an undesirable state). Any

change to this system variable must be approached with extreme caution.

Activities that could cause changes in marine water quality include, the

expansion of marine infrastructure (i.e. bulk liquid storage, rig repair

facilities), increased shipping traffic, oil spills, ship repair activities, brine

discharge from desalination plants, increased dredging activities due to

infrastructure expansion, ballast water discharge, increased stormwater

discharge and poor water circulation and related eutrophication. These

activities must also be considered together with the new proposed

expanded mariculture operations as part of DAFF’s recently approved ADZ

project.

Based on the results of the latest State of the Bay Report (2017) there have

been improvements in some of the water quality indicators (e.g. sediment

quality and macrofauna abundance and composition) which are deemed to

be encouraging with regards to restoring the health of the bay in future.



Relationship # 1: Establishment of bulk liquid storage, new oil and gas service infrastructure and

shipping traffic will increase the risk of occurrence of oil spills

Opportunity: The broad opportunity is the benefits accrued from the increased capacity to handle

shipping and the development opportunities related to the offshore supply base at the GMQ, the SBIDZ

and industries of the region.

Management actions:

� Adhere to relevant legal requirements to reduce the risks. The pertinent legislation in this regard

includes:

o National legislation controlling pollution from ships, e.g. International Convention for Prevention of

Pollution from Ships Act (No. 2 of 1986) (MARPOL Act), South Africa Maritime Safety Authority

Act (No. 5 of 1998) (SAMSA Act), Marine Pollution: Control and Civil Liability Act (No. 6 of 1981),

and possibly National Ports Act (No. 12 of 2005)

� Ensure appropriate oil spill contingency planning and spill response capability and readiness are in

place.

� Ensure that development occurs within context(s) agreed upon in EMF, SEA, and other relevant

environmental planning initiatives.

� Ensure that all new marine operations are undertaken in line with an approved Operational EMP.

Constraint: Inadequate capacity to implement and enforce legislation or lack of adequately trained staff.

Inadequate context upon which to base investment/development decisions. Also, a possible lack of

capacity to ensure that such context is used to make future development decisions.

Management actions:

� Address capacity and appropriate training of staff in the planning phase of the proposed port

expansion to avoid reactive and piecemeal training and recruitment.

� Ensure sufficient alignment with the operational responses and services of an established 24-hour oil

pollution response service provider in order to facilitate timeous clean-up in the event of any oil spills

within the Port.

� Ensure that investors/operators have the necessary Operational EMP and oil spill contingency plans

in place before new developments commence. These must be in line with the EMF and SEA

requirements.

Relationship # 2: (i) Oil spills, (ii) desalination brine discharge, and (iii) oil rig and ship repair will

reduce marine water quality

Opportunity: Desalination guarantees water availability for mitigation measures (dampening of iron-ore

dust) for industrial purposes and potable water in a water stressed municipal area. Increased water

supplies will reduce development constraints in the region and could minimise impacts of water

abstraction from (e.g.) the Berg River on surrounding ecosystems and other activities in the region.

However, this must be achieved within the guidelines set by applicable legislation and authorisations.

The development of innovative solutions for ship and rig repair operations (e.g. containment of hull fouling

organisms and anti-fouling paint residue, and containment of paint overspray).

Management actions:


include:






and possibly National Ports Act (No. 12 of 2005). National legislation controlling effluent

discharges to the coastal environment (Integrated Coastal Management Act (No 24 of 2008))

� Ensure appropriate contingency planning, particularly those relating to potential oil spills. The oil spill

contingency plan for the region and specifically for Saldanha Bay needs to be current and relevant.

� Pro-active engagement by TNPA in decision-making around further desalination opportunities (and

constraints) and waste management activities with surrounding industries and the municipality.

Engagement with mariculture industry should it be indicated that any of port activities will disrupt

mariculture and/or affect its commercial viability.

� Development of an adequate knowledge base to inform potential impact assessments, e.g. the 2015

specialist screening assessments for new marine infrastructure. Such pro-active research could

enhance the understanding of ecosystem function to the level necessary to make the requisite

impact assessments with a high degree of confidence and avoid the unnecessary invocation of the

Precautionary Principle (that may have associated with it significant opportunity costs in terms of

forgone or restricted development opportunities).

� High pressure blasting of vessel hulls to clear hull fouling is currently not permitted in the port and it

is crucial that these substances do not enter the marine environment. Blasting and painting activities

are to be undertaken in a dry dock area with all spilled substances being captured and removed for

spoiling onshore.

Constraint: Inadequate capacity to implement and enforce legislation, or staff is not trained adequately.

Potential lack of co-operation with other role-players in the region when making strategic and operational

decisions on these types of developments. This could lead to piecemeal, uncoordinated development that

has unnecessarily high impacts on the marine environment. TNPA also does not have control over vessel

cleaning operations and vessel maintenance at the yacht clubs and small harbour areas within Small Bay

managed by the Department of Public Works.

Management actions:


expansions to avoid reactive and piecemeal training and recruitment.

� Rectify potentially deficient guidelines for assessing and licencing brine discharges.

� Engagement in forums discussing/debating future development in the region, e.g. the IGTT.

� Maintenance of credibility of TNPA in such forums by ensuring compliance with the requirements of

the Environmental Authorisations of previous development approvals in the region, especially those

related to monitoring activities and the implementation of appropriate mitigation measures.

� Ensure that ongoing monitoring of brine discharges from the TNPA RO plant is undertaken in line

with the Environmental Authorisation and that results form part of the annual State of the Bay

reporting process.

� Engage with small harbour operators and competent authorities regarding the containment of hull

fouling organisms and paints used in small vessel maintenance.

Relationship # 3: Marine water quality supports mariculture

Opportunity: Saldanha Bay provides a sheltered environment where natural water quality is mostly

suitable for mariculture activities. Few such sheltered regions exist nationally. Mariculture is also

considered to be a significant source of employment opportunities and potentially important activity

supporting food security. The proposed ADZ areas within and surrounding the port area will also lead to

further expansion of mariculture activities in line with Operation Phakisa. DAFF considered future port

expansion plans in its assessment of potential ADZ areas.



Management actions:

� Pro-active engagement by TNPA with mariculture industry and DAFF when considering port

development. Early engagement with mariculture industry should it be indicated that any of the

proposed port development activities will disrupt mariculture and/or affect its commercial viability.

� Development of an adequate knowledge base to inform potential impact assessments, e.g. the 2015

specialist screening assessments for the proposed ship and rig repair facilities. Such pro-active

research could enhance the understanding of ecosystem function to the level necessary to make the

requisite impact assessments with a high degree of confidence and avoid the unnecessary

invocation of the Precautionary Principle (that may have associated with it significant opportunity

costs in terms of forgone or restricted development opportunities).

� Updating of the 2015 investigation into hydrodynamics and water quality in the Port of Saldanha

(ZAA, 2015) in order to determine the potential impact of fine suspended materials and dumping of

dredged materials in the marine environment on mariculture activities within Small Bay.

Constraint: Inadequate knowledge of the implications of port development on mariculture activities in the

bay as well as an inadequate knowledge of potential limitations that the mariculture industry may pose on

itself in the absence of port development (e.g. raft density, accumulation of mariculture wastes, limitations

on the area available for mariculture activities based on risks posed by winds, waves and currents on

mariculture infrastructure and/or operational down-time. There appears to be a growing conflict between

the mariculture and tourism industries, which would need to be resolved. Also, inadequate capacity

(number of staff) and or staff not trained adequately to implement and enforce legislation.

Management actions:

� Ongoing engagement with DAFF to gain a full understanding of proposed ADZ mariculture activities

in the bay. This would require that there is a full understanding of the capacity of the bay to support

mariculture activities, in the absence of further port development.

� Consider in detail the potential constraints/conflicts associated with proposed port development

(particularly in Big Bay) and existing/proposed future mariculture activities. Undertake further

detailed assessments of the potential impact of suspended fine sediments and heavy metals and

dumping of dredged material in the marine environment on the water quality required for viable

mariculture operations in and surrounding the Port.



Relationship # 4: Marine water quality supports marine ecosystems; Relationship # 5: Marine

water quality maintains the Ramsar site designation & Relationship # 6: Marine water quality

positively impacts on the West Coast National Park

Opportunity: Langebaan Lagoon supports a marine ecosystem within a Ramsar site. If these

ecosystems (and associated water quality) are protected it provides important ecotourism revenue for the

area. Compliance with South African National legislation controlling pollution from ships and effluent

discharges is essential.

Management actions:

� Adhere to relevant legal requirements to reduce the risks of pollution from ships and effluent

discharges. The pertinent legislation in this regard include:




and possibly National Ports Act (No. 12 of 2005). National legislation controlling effluent

discharges to the coastal environment (Integrated Coastal Management Act (No 24 of 2008))



� Adhere to acceptable marine water levels of salinity, temperature, pH, dissolved oxygen, nutrients

and toxic substances that do not detrimentally affect marine biota. Acceptable levels for the

Saldanha Bay area have been derived from the South African Water Quality Guidelines for Coastal

Marine Waters (1995, a,b,c and DEA, 2012), as well as Guidelines for the Benguela Current Large

Marine Ecosystem (Taljaard 2006).

� The cumulative effects of the proposed new ADZ areas on water quality in the Saldanha Bay area

and Langebaan Lagoon must be considered when assessing the impacts of future port expansions

on marine water quality.

Constraint: Inadequate capacity to implement and enforce legislation or staff that is not adequately

trained. Insufficient knowledge of natural ecosystem function and inadequate specification of locally

relevant water and sediment quality guidelines to ensure protection of natural ecosystems might also act

as constraints.

Management actions:

� Development of an adequate knowledge base (including a predictive capability) to fully understand

local ecosystem functioning and to inform potential impact assessments when development is being

considered, e.g. building on the 2015 specialist screening assessments for new marine

infrastructure. Such pro-active research could enhance the understanding of ecosystem function to

the level necessary to make the requisite impact assessments with a high degree of confidence and

avoid the unnecessary invocation of the Precautionary Principle (that may have associated with it

significant opportunity costs in terms of forgone or restricted development opportunities).

Specifically, locally relevant water and sediment quality guidelines need to be developed (i.e. beyond

those already suggested by van Ballegooyen et al., (2005, 2007, 2008 and 2012).



Relationship # 7: Marine water quality facilitates proper desalination intake functioning

(Desalination requires intake of marine water of acceptable quality. Acceptable quality for desalination

intake entails low levels of suspended solid or particulate concentrations, as well as low levels of toxic

chemicals and microbiological contaminants. High suspended /particulate concentrations result in

clogging of filters and high concentrations of toxic chemicals and microbiological contaminants increases

treatment costs prior to use. Of particular concern is the presence of grease and oils in the intake waters

as these can easily damage the membranes in the Reverse Osmosis (RO) plant)

Opportunity: Desalination guarantees water availability for mitigation measures (damping of iron-ore

dust) even under drought conditions and water availability for industrial purposes and potable water

supplies in a water stressed municipal area. Increased water supplies will also reduce development

constraints in the region and could minimise impacts of water abstraction on surrounding ecosystem and

other activities in the region (e.g. Berg River). Compliance with pollution control legislation is imperative to

prevent spills or pollution close to RO intake and subsequent contamination.

Management actions:



Engagement with DAFF and mariculture industry should it be indicated that any of these activities

will disrupt mariculture activities and/or affect their commercial viability.

� Ensure that contingency plans and appropriate early warning measures are in place. Early warning

measures are important, as the RO intake is located close to sites where oil spills from shipping

vessels could occur. With an early warning system in place, the RO plant could be shut down in time

to protect the membranes from damage.



Constraint: Present and future port activities and potentially mariculture activities could compromise the

intake water quality in Saldanha Bay. The greatest constraints are likely to be associated with the release

of grease and oils into the marine environment (particularly unexpected oil spills) that could damage RO

plant membranes. Inadequate capacity to implement and enforce legislation or adequately trained staff

might also be a constraint.

Management actions:

� No particular management actions are proposed other than to be cognizant of the constraints that

port development and associated shipping will place on the location of intakes for desalination

plants. It is unlikely that this will be considered as major constraints in future port development

unless it relates to existing facilities.



Relationship # 8: Marine water quality facilitates the effective functioning of fish processing

activities via water intakes (Intake water for fish processing requires marine water of acceptable quality.

Acceptable quality for fish processing intake entails low levels of suspended solid or particulate

concentrations, as well as low levels of toxic chemicals and microbiological contaminants. High

suspended /particulate concentrations result in clogging of filters and high concentrations of toxic

chemicals and microbiological contaminants increases treatment costs prior to use)

Opportunity: Fish processing facilities and other mariculture operations that depend on acceptable

marine water quality may serve as avenues to monitor water quality by all industries linked to the marine

environment.

Management actions:

� Participating in joint marine water quality monitoring initiatives (e.g. Saldanha Bay Water Quality

Forum Trust initiative) together with all other industries linked to the marine environment.

Constraint: Inadequate capacity to implement and enforce legislation or staff is not trained adequately,

resulting in non-compliance with South African National legislation regulating pollution.

Management actions:


include:




Draft Ballast Water Management Bill (2013) and possibly National Ports Act (No. 12 of 2005).

o National legislation controlling effluent discharges to the coastal environment, including the

Integrated Coastal Management Act (No 24 of 2008).

� All onshore stormwater management must comply with TNPA’s Stormwater Management Plan which

requires that all stormwater is to be collected onshore for infiltration and evaporation in detention

ponds of sufficient capacity to retain a 1:50 year rain event and no direct discharge to sea is allowed.



Relationship # 9: Establishment of a bulk liquid storage area and new marine oil and gas servicing

infrastructure will increase demand/need for dredging (Nature of impact: Associated with all

proposed developments of marine infrastructure is the requirements for capital dredging and maintenance

dredging. Fortunately in Saldanha Bay the need for maintenance dredging is limited. This is certainly true

for the approach channel and the berths located in Small Bay; however, should expansion occur into Big



Bay the maintenance dredging requirements (although likely to remain modest) could increase. Capital

dredging is a ”once-off” activity for such developments and results in impacts that are typically short to

medium term. For example, poor sediment quality associated with capital dredging activities typically

recovers within 3 to 5 years (Monteiro and Eglington, 2004; van Ballegooyen et al., 2008). A potential

mechanism for longer-term impacts is considered to exist (i.e. long-term detrimental changes to Zostera

beds near the mouth of Langebaan Lagoon); however, presently inadequate evidence exists to confirm

such impacts (van Ballegooyen et al., 2008). A detailed assessment of potential dredging impacts is

given in Relationship #10 below. The risks to the natural marine environment (particularly the Lagoon)

and associated ecosystem components connected with capital dredging in Big Bay greatly exceed those

associated with dredging activities in Small Bay. However, dredging in Small Bay is likely to have the

greatest effect on mariculture activities undertaken within Small Bay).

Opportunity: The establishment of bulk liquid storage facilities and new marine oil and gas servicing

infrastructure will greatly enhance the port’s ability to cope with emerging needs of industry. This is

clearly of socio-economic importance to the region. Whilst each new development is likely to require at

least some capital dredging, through careful planning and design, it is possible to minimise the impacts

associated with such dredging.

Management actions:

� It is important to plan each development appropriately and timeously, in so doing ensure that

potential impacts of dredging can be minimised. This will also allow for all options to be considered

both with respect to their engineering/commercial and environmental viability. Such activities would

include the selection of potential dredge spoil disposal options early in the detailed design stage and

the commissioning of appropriate additional geotechnical and sediment quality studies to be able to

assess the characteristics of the material to be dredged.

� Appropriate measures should be taken to ensure sufficiently robust assessment and mitigation of

potential dredging impacts (see Relationship #10 below). In this regard there needs to be compliance

with the 1972 London Convention and subsequent 1996 Protocol as South Africa is signatory to both

of these agreements.

Constraint: Should there be inadequate environmental screening of potential dredging impacts and

potential development options, delays associated with environmental objections are likely to occur.

Management actions:

� TNPA should commission an update of the 2016 screening study by ZAA into the potential impacts

resulting from all planned dredging operations. The study should be updated once details of where

dredged material is to be spoilt and should include the presence of fine calcrete dust in the updated

turbidity plume dispersion model. This should be undertaken very early in the detailed design of the

proposed new marine infrastructure.

� Include a stakeholder engagement component in all future environmental screening exercises in

order to clearly identify all potential concerns related to dredging and new development options at an

early stage of the planning process.

Relationship # 10: Increased dredging events will reduce marine water quality (If dredging activities

are not designed, managed and controlled appropriately, they can result in deterioration in marine water

quality in terms of increased turbidity and suspended solid concentrations, and the release of toxic

substances (e.g. associated with the dredge material). Investigations into the environmental impacts of

dredging and reclamation activities (van Ballegooyen et al., 2008; Anchor, 2016) identified and assessed

a number of potentially deleterious environmental impacts on components of the Saldanha Bay –

Langebaan Lagoon ecosystem.



For dredging activities in Big Bay van Ballegooyen et al. identified and assessed the following potential

impacts:

� the modification to macrophyte productivity due to reductions in underwater light levels (i.e. only

Zostera near the mouth of and in Langebaan Lagoon) resulting in long-term impacts of medium

significance;

� effects on juvenile fish nursery areas due to increased turbidity and TSS concentrations (i.e. the

nursery areas are rendered unsuitable for juvenile fish by elevated TSS affecting recruitment)

resulting in long-term impacts of medium significance;

� sub-lethal effects on benthos due to increased TSS concentrations resulting in medium term impacts

of medium significance; and

� lethal effects on benthos due to increased TSS concentrations resulting in medium-term impacts of

medium significance.

To the extent that these potential impacts could be considered to be of significance, they were considered

to constitute medium or long-term effects. Potential toxicity effects associated with the re-mobilisation of

contaminants in the sediments being dredged were not considered significant due to the low levels of

contamination in the sediments that were proposed to be dredged in Big Bay and the nature of the

dredging and re-mobilisation of contaminants.

For dredging activities within and at the entrance to Small Bay along the IOT, Anchor (2016) identified the

following potential impacts:

� increased turbidity and TSS concentrations during and immediately following dredging events could

impact on marine biota and mariculture activities if the TSS threshold of 20 mg/L is exceeded,

resulting in local, medium to long term impacts of low (along the causeway) to medium (along

Bayvue precinct) significance;

� smothering of subtidal bottom-dwelling organisms due to settlement of suspended sediments,

resulting in local, medium to long term impacts of very low (along the causeway) to medium (along

the Bayvue precinct) significance;

� mobilization of trace metal contaminants in sediment, resulting in local, medium term impacts of low

(along the causeway) to very low (along the Bayvue precinct) significance;

� mobilization of nutrients in sediment, resulting in local, short term impacts of very low significance;

and

� reduction in dissolved oxygen concentrations through disturbance of organic matter in anoxic

sediments, resulting in local, short term impacts of very low significance.

The above assessment is based on the assumption that the following mitigation measures would be

implemented by TNPA during future dredge events:

� Undertaking continuous visual and electronic real-time monitoring of turbidity levels during dredge

operations. If TSS values approach threshold levels of more than 20 mg/l in surface waters at the

edge of the dredge footprint, dredging must be halted until levels drop below the threshold;

� Minimising the duration of dredging operations as far as possible;

� Suspending dredging activities during periods of strong winds to prevent the sediment plume from

spreading to sensitive areas;

� It was also recommended to utilize a dredge hopper with a fully automated overflow system, a

suction dredge and silt curtains.

A dredge plume dispersion modelling exercise undertaken by ZAA as part of the initial screening

assessment for new marine infrastructure in 2016 indicated that it is not expected that any sediments

from dredging activities within Small Bay would reach the Langebaan Lagoon.



Opportunity: All substantial dredging activities will be associated with the development of major

infrastructure in the bay, all of which will greatly enhance the port’s ability to cope with emerging needs of

industry. This is clearly of socio-economic importance to the region. Whilst each new development is

likely to require at least some capital dredging, through careful planning and design, it is possible to

minimise the impacts associated with such dredging. National legislation controlling pollution from

dredging (Integrated Coastal Management Act (No 24 of 2008)) has to be complied with. Future

largescale dredging campaigns would be required for the planned medium term developments of Berth

205 and the rig and ship repair jetty alongside the SBIDZ.

Management actions:

� It is important to plan each development appropriately and timeously, and in so doing ensure that

potential impacts of dredging can be minimised. This will also allow for all options to be considered

both with respect to their engineering/commercial and environmental viability. Such activities would

include the selection of potential dredge spoil disposal or reuse options early in the detailed design

stage and the commissioning of appropriate additional geotechnical and sediment quality studies to

be able to accurately assess the characteristics of the material to be dredged.

� Appropriate measures should be taken to ensure sufficiently robust assessment and mitigation of

potential dredging impacts once decisions on the dredge spoil sites have been made. In this regard

there needs to be compliance with the 1972 London Convention and subsequent 1996 Protocol, as

South Africa is signatory to both of these agreements.


local ecosystem functioning and to inform potential impact assessments when development is being

considered, e.g. building on the 2016 specialist screening assessments for new marine

infrastructure. It is currently anticipated that dredge spoil will be reused onshore. In the unlikely

event that offshore dredge spoil sites are required, the hydrodynamics and water quality study (ZAA,

2016) update must consider these sites in the updated model. This study update would also

contribute to developing a better understanding of existing change within the Saldanha Bay –

Langebaan Lagoon system and the drivers of such change. Specific studies could also be

undertaken to better characterise water and sediment quality guidelines of relevance to existing and

proposed future activities in the bay (e.g. mariculture activities).

Constraint: Should there be inadequate environmental screening/assessment of potential dredging

impacts and potential development options, delays associated with environmental objections are likely to

occur.

Management action:

� Undertake appropriate studies to comprehensively assess the options and associated dredging and

dredge disposal or reuse activities with respect to their engineering/commercial and environmental

viability. Such studies need to be documented and professionally reviewed if they are to be

considered adequate.

Relationship # 12: Increased stormwater load will reduce marine water quality (If hardened areas

along the coast increase (e.g. through port infrastructure), direct stormwater runoff into the Saldanha Bay

area will increase, unless the runoff is diverted to detention ponds. As a result any contaminants in the

stormwater will enter the marine environment. The contaminants in stormwater depends on its origin, but

contaminated stormwater from port areas typically contain high suspended loads, organic matter (which

can affect oxygen concentrations) and toxic substances (e.g. metals and hydrocarbons)

Opportunity: Explicit consideration of stormwater run-off and potential mitigation measures when

proposing future port developments will help to diminish stormwater run-off as a potential development

constraint. National legislation controlling pollution from effluent discharges (Integrated Coastal

Management Act (No 24 of 2008)) has to be complied with.



Management actions:

� Early environmental screening of options where stormwater issues are explicitly considered.

� Ensuring appropriate environmental design of proposed developments that manage/mitigate

stormwater issues.

� Ensuring compliance with TNPA’s policy of no direct discharge of stormwater to sea for all future

developments within the Port.

Constraint: If stormwater management systems for proposed future port developments are not

adequately designed and implemented, the issue may be considered to be of environmental significance

and may delay environmental approval of the proposed developments with the related financial as well as

other opportunity costs.

Management actions:

� As above

Relationship # 14: Poor marine water circulation and ballast water discharge reduces marine

water quality (Man-made structures in the marine environment can alter water circulation patterns,

creating areas of weak circulation. Areas of weak circulation act as depositional zones; particles tend to

deposit in these areas and any toxic substances attached to such particles therefore also accumulate.

Areas of weak circulation are also characterised by long water residence times. Where areas experience

increased algal growth (e.g. attributable to the latter), subsequent decomposition can result in hypoxia or

anoxia (i.e. waters are not replaced fast enough to replace oxygen in the water column). [Ballast water

contains marine organisms or contaminants that originate from the area where it was taken from. As a

result the inappropriate release or treatment of ballast water can reduce water quality of the receiving

water or result in the introduction of foreign organisms (algae, marine animals) that can become a

nuisance as their natural predators may be absent.]

Opportunity: Improved ballast water management within the port would mitigate against the

inappropriate release of contaminants and foreign organisms.

Management actions:

� Implement TNPA’s Ballast Water Management Procedure, including ensuring that the Marine Safety

Specialist and Pollution Control Officers critically review all requests received from vessels for de-

ballasting and perform the necessary checks onboard all these vessels.

Constraints: The current state of circulation in the bay is significantly affected by past projects.

Management actions:

� Consider the implementation of artificial flushing mechanisms if found to be required in areas where

weak circulation becomes problematic. Typical mechanisms used include tidal gates or culverts

through structures such as breakwaters, causeways and jetties.

� Compliance with National legislation controlling pollution from ships, e.g. International Convention for

Prevention of Pollution from Ships Act (No. 2 of 1986) (MARPOL Act), Draft Ballast Water

Management Bill (2013) and possibly National Ports Act (No. 12 of 2005).

� Routine water quality assessment in line with activities by the Water Quality Forum Trust to facilitate

early detection and mitigation of pollution and poor water circulation.

Relationship # 32: Development of water supply infrastructure reduces marine water quality (due

to desalination) and good marine water quality facilitates the development of water supply

infrastructure through a feedback effect (Desalination (i.e. water supply infrastructure) produces a

brine effluent often containing biocides. If this effluent is disposed of inappropriately it can result in a



marked increase in water salinity and the introduction of toxic biocides. Other impacts associated with

brine discharges include possible increases in turbidity and changes in nutrient dynamics near the

seabed, with temperature changes associated with the brines. In turn, the intake for desalination plants

require water of an acceptable quality. Acceptable quality for desalination intake entails low suspended

solid or particulate concentrations, as well as low levels of toxic chemicals and microbiological

contaminants. High suspended/particulate concentrations result in clogging of filters whilst high

concentrations of toxic chemicals and microbiological contaminants increase treatment costs prior to use.

Of particular concern is the presence of grease and oils in the intake waters as these can easily damage

the membranes in the RO plant.)

Opportunity: Guaranteed water availability for mitigation measures (dampening of iron-ore dust) even

under drought conditions as well as water availability for industrial purposes and potable water supplies.

Increased water supplies will reduce development constraints in the region and could minimise impacts of

water abstraction on surrounding ecosystems and other activities in the region (e.g. Berg River system).

Management actions:



Engagement with mariculture industry should it be indicated that any of these activities will disrupt

mariculture activities and/or affect their commercial viability.


Prevention of Pollution from Ships Act (No. 2 of 1986) (MARPOL Act), South Africa Maritime Safety

Authority Act (No. 5 of 1998) (SAMSA Act), Marine Pollution: Control and Civil Liability Act (No. 6 of

1981), and possibly National Ports Act (No. 12 of 2005). As well as National legislation controlling

pollution from effluent discharges to the marine environment (Integrated Coastal Management Act

(No 24 of 2008)).

� Ensure that contingency plans and appropriate early warning measures are in place. The early

warning measures are important if the intake is located close to locations were such spills could

occur, as the RO plant could in principles be shut-down to protect the membranes if sufficient.

� A shutdown of the RO plant should also be implemented during dredging activities in the vicinity of

the MPT.

Constraint: Present and future port activities and potentially mariculture activities could compromise the

intake water quality in Saldanha Bay. The greatest constraints are likely to be associated with the release

of grease and oils into the marine environment (particularly unexpected oil spills) that will damage RO

plant membranes. Chronic oil releases (even in small quantities will preclude the siting of such intakes in

the bay, while the risks of unexpected oil spills (a rare occurrence) will need to be assessed to determine

the likely vulnerability of desalination intakes to such events.

Management action:

� No particular management actions are proposed other than to be cognizant of the constraints that

port development and associated shipping will place on the location of intakes for any further

desalination plants and the functioning of the current RO plant. It is unlikely that this will be

considered as a major constraint in future port development.

Relationship # 60: Shipping traffic will cause increased volumes of ballast water discharge and

introduction of alien marine biota (If shipping traffic increases it could lead to higher volumes of ballast

water entering the Port. Ballast water contains marine organisms or contaminants that originate from the

area where it was taken from. The inappropriate release or treatment of ballast water can alter the water

quality of the receiving water or introduce foreign organisms (algae or marine animals) that can become a

nuisance as their natural predators may be absent. Alien biota can also be brought into the area through

biofouling organisms on hulls of ships and rigs. It should be noted here that mariculture also poses



potential risks of introducing alien species. Dredging activities also constitute a potential (but typically very

small) risk of the introduction of alien species if dredge hoppers, etc. are not appropriately cleaned prior to

the commencement of dredging operations.)

Opportunity: The old Oyster dam to the east of the IOT provides a significantly warmer environment than

the rest of the bay and has the potential to harbour alien species. The proposed bulk handling

expansions to the east of the IOT will result in the in-fill of what remains of the old Oyster dam and thus

eliminate this area.

Management actions:

� Limit the volumes of ballast water to be allowed for release to the absolute minimum required for

safe navigation and berthing within the port.

� Implement TNPA’s Ballast Water Management Procedure.

� In consultation with specialists and industry, develop innovative solutions for the containment of

fouling organisms during ship and rig repair operations.

� Ship hull, propeller and associated vessel cleaning should be undertaken in dry dock and all hull

fouling organisms and ballast sediment collected for either incineration or disposal at a registered

landfill site.

� All ballast sediment from onboard ballast water treatment plants must be placed into temporary

waste disposal containers supplied by a certified waste collector.

� Ensure all dredge operators are aware of and implement TNPA’s guidelines for dredging within the

Port in order to reduce the risk of alien organisms remaining in the dredge hoppers.

Constraint: Inadequate capacity to implement and enforce legislation or staff is not trained adequately.

Management actions:


Prevention of Pollution from Ships Act (No. 2 of 1986) (MARPOL Act), South Africa Maritime Safety

Authority Act (No. 5 of 1998) (SAMSA Act), Marine Pollution: Control and Civil Liability Act (No. 6 of

1981), Draft Ballast Water Management Bill (2013) and possibly National Ports Act (No. 12 of 2005).

Relationship # 78: Eutrophication reduces marine water quality (When eutrophication (excessive

algal growth) occurs, it can cause aesthetic impacts. High algal biomass also markedly increases

suspended solid concentrations. During algal die-off the degradation of the biological matter can result in

significant reduction of dissolved oxygen in the water column, even causing hypoxic (low oxygen) or

anoxic (no oxygen) conditions to develop. Eutrophication is typically caused by high (excessive) nutrient

inputs. Specifically the input of nutrients into the shallow waters may affect the Gracileria harvesting due

to the occurrence of Ulva blooms (Monteiro et al., 1997))

Opportunity: Excessive nutrient inputs into the bay can be the result of stormwater inflows, flows from

waste water treatment works (WWTW), fish factory discharges and mariculture wastes. The inherent

benefits associated with these inflows to the bay are related to the use of the assimilative capacity of the

bay. The use of this assimilative capacity allows for a reduced investment in waste management and /or

allows for activities like fish factory processing and WWTW return flows which would otherwise require

more onerous and costly mitigation. However, as noted elsewhere, the absorptive ability of the marine

environment may now be approaching its threshold and additional discharges, from whatever source,

should be avoided.

Management actions:

� The input of nutrients needs to be managed within the ecosystem threshold limits for the bay (e.g.

Monteiro and Kemp, 2004). These are system thresholds that are not necessarily informed by

existing South African Water Quality Guidelines (DWAF, 1995).



� Compliance with National legislation controlling pollution from effluent discharges, including nutrient

enrichment (Integrated Coastal Management Act (No 24 of 2008)).

Constraint: The nutrient inputs from the above sources if not sufficiently regulated could lead to

eutrophication effects and the exacerbation of low dissolved oxygen effects in the bottom waters that

could affect not only the natural ecosystem but also mariculture operations. Low dissolved oxygen

concentrations in the bottom waters also exacerbate the accumulation of trace metals in the sediments.

TNPA does not have control over discharges from the WWTW and fish factories.

Management actions:

� The input of nutrients needs to be managed within the ecosystem threshold limits for the bay (e.g.

Monteiro and Kemp, 2004). These are system thresholds that are not necessarily informed by

existing South African Water Quality Guidelines (DWAF, 1995).

Relationship # 79: GHGs accelerate climate change (Port development is intended to provide the

means to handle increased shipping. Increased shipping will result in an increase in GHG emissions.

However, depending on the vessels used (new technology), although there may be an overall increase in

GHG emissions, this could represent a relative decrease in GHG emissions if measured in terms of GHG

units per tonnage of cargo transported.)

Refer to Box 6.1 for further discussion on potential climate change impacts on port operations.

Opportunity: Port development that provides the means of handling increased shipping and all of the

socio-economic benefits thereof.

Management action:

� Encourage the use of the Port by responsible ship owners that are concerned about GHG

emissions and have programmes in place to reduce GHG emissions.

Constraint: There may be objections to the increased shipping and the associated increase in GHGs.

However cognisance should be taken of the fact that there will be an increased need for shipping. The

development of the Port will allow the region to benefit from such activities without having a significant

impact on the global emission of GHGs as, if the increased shipping occurs, the increase in GHGs will be

inevitable (i.e. not attributable to the specific port developments in Saldanha Bay).

Management action:

� As above.

Box 6.1 Potential Climate Change Impacts on Port Operations

Amongst the myriad manifestations of climate change that might occur, the following drivers are considered

most significant for South African ports, including the Port of Saldanha: Climate change-induced effects on short-

and long-period wave regimes (3 – 25 s and > 25 s respectively), wind and ocean current regimes, sea level rise,

changes in sediment transport dynamics and changing rainfall patterns (e.g. influencing visibility during pilotage

and other port operations).

In terms of breakwaters, the effect of short period waves could have major impacts on/over the lifetime of these

structures. In particular, breakwater design criteria and maintenance programs will need to be revisited for all

ports. In this regard, predictions will need to be made for expected regime change in wave heights and direction

and the related influencing effects of changing frequency and duration of storms.



Changing wind regime (specifically stronger winds) will contribute to potential increases in storm surges

experienced within ports and by port structures. The South African east and south-east coasts are particularly

vulnerable, for example, to wind effects associated with a potentially increased frequency and intensity of

cyclones.

The International Panel on Climate Change (Fourth Assessment Report; IPCC, 2007) predicts that the rise of

global average sea level by 2100 will be in a range from 0.18 to 0.59 m depending on which green-house gas

emissions scenario manifests. The mean value of the IPCC prediction for sea level rise is, therefore, about 0.4

m, by 2100. The probability of accelerated sea level rise (potentially up to several metres) due to catastrophic

failure of large ice-shelves was, until recently, considered unlikely to happen this century. However, events in

Greenland and Antarctica have led to several re-evaluations of this scenario. Drawing from these evaluations a

much wider range of sea level rise, in the order of 0.5 to 2 m, has been speculated for 2100.

Sea level rise will need to be accounted for in the design of South African port structures in response to the risk

of overtopping of breakwaters during wave attack, and increased levels of wave energy reaching inner basin port

structures. In this regard, depth-limited waves may be larger, with implications for the design, construction and

maintenance of affected structures.

Changes in sediment transport dynamics, influenced by changes in littoral currents, may result in changes in

bathymetry (scouring or deposition effects) next to or near affected breakwaters.

Port entrance channels may be exposed to the effects of changes in the regimes of short period waves, possibly

with higher levels of wave energy penetrating into the channels. This will have associated effects on the motion

of vessels navigating within channel environments. Changes in regimes of long period waves are expected to

manifest in the form of these waves detaching from groups of short period waves and travelling as free-bound

waves down port entrance channels, where conditions allow this. Additionally, a possible response of SLR, will

be the penetration and propagation of greater wave energy into and through port entrance channels, with

associated implications for port design and operations.

Currently, little can be predicted about potential changes in ocean currents (at scales that can inform port design

and operations); however, should these be significant within port limit environments, it may be necessary that

wider approach and port entrance channels are established to provide for safe port entry and departure of ships.

Changes in sediment transport dynamics, influenced by waves and littoral transport systems (i.e. along- and on-

offshore littoral sediment transport; also fluvial sediment deposition processes), can be expected to manifest as

changes in channel depths, potentially requiring attention to sand trap designs and a revision of established

maintenance dredging programs.

Changes in wind regime will also need to be accounted for in pilotage and tug operations within port entrance

channels. In this latter regard, potentially most significant will be the effects of cyclones on shipping activity within

the entrance channels of ports situated on the east and south-east coasts of South Africa. In terms of changes in

rainfall regimes (frequency, duration, intensity), an effect of this could be diminished visibility, which could

compromise safe port operations (ship navigation within port entrance channels and other port environments).

Vessel motion during navigation and anchorage within general port limits could be affected by short and long

period wave regimes that become established under conditions of changed climate. For example, excessive

vessel motions might be experienced periodically, safe anchoring of vessels waiting to enter ports may be

compromised, and storm waves could result in anchor lifting/dragging. Resonance of waves penetrating ports

may also affect vessel stability in advance of and following de-berthing. As previously stated, SLR could allow

more wave energy to penetrate port environments in entrance channel precincts.

Ship manoeuvring inside ports will be affected more by changes in long period wave regimes than the regimes

of short period waves (although the former are a product of the latter). Probably of more significance will be

changes in wind regimes, which may impact upon moored vessels and vessels that are in the process of

mooring. This will require adaptation of mooring designs and approaches to pilotage and tug operations.

SLR may require cope and quay levels to be raised and for the design of bollards for moored vessels and,

possibly, fixed tenders to be revised. More wave energy could penetrate port entrance channel and turning basin

environments as a result of sea level rise, requiring account to be taken of this during vessel manoeuvring in

port.

The efficiency of cargo handling operations could be compromised as a result of delays imposed by excess

motions of moored ships due to effects associated with changed long period wave regimes; i.e. account may

need to be taken of higher percentages of operational downtime. Similar effects could manifest as a result of

changed wind regimes and associated delays in crane and RTG operations. High intensity rainfall or increases in

general storminess (e.g. flooding of quays and back-of-port environments) would have similar effects on

compromised efficiency of cargo and container handling operations.

Exposed to the continuum of effects of climate change on general handling of cargo and storage (e.g.



stockpiling) cargo could be affected by changed wind regimes. This might require more secure (stronger, more

effectively enclosed) storage structures to be provided and for greater investment to be made, for example, in

dust and fugitive product control systems. In the case of the Port of Saldanha, the current issue of fugitive dust

associated with the Iron Ore Terminal could be compounded. As for handling operations, high intensity rainfall or

storm events that could pose potential risk of flooding in back-of-port environments, would need to be managed.

Littoral environments adjacent to ports, particularly in relation to breakwater structures and altered bathymetry

within approach and port entrance channels, will also be exposed to impacts associated with existing, and

adaptations to, port infrastructure in response to climate change. Erosion of shorelines adjacent to breakwaters

and changes in the dynamics of spending beaches (e.g. erosion) could result from the interaction between wave

regime and the hard port structures. Modified shorelines could alter/increase the energy of reflected long period

waves, with consequences for affected bio-physical environments [e.g. shoreline erosion, changed porosity of

beach sediments (coarser grain sizes) with habitat implications for invertebrate infauna]. Impacts such as these

could be re-inforced by changes in aeolian sediment transport dynamics affected by climate change, with bio-

physical implications attributable to beach/dune nourishment/starvation and the stability of soft shorelines.

Obvious consequences of sea level rise for littoral environments adjacent to ports include potential erosion (also,

accretion) of shorelines, as they achieve new environment-controlled equilibrium states, with the associated

requirement for new development set-back limits to be imposed.

As strategic planning is initiated, for port adaptation to the above drivers of climate change, cognizance will need

to be taken of the fact that inertia exists within the earth’s climate system. This implies that the need for

adaptation to avoid or mitigate climate change impacts on port structures and operations is unlikely to manifest in

a linear way. Few adaptations may appear necessary initially; however, non-linear change may give rise to

impacts for which responses may prove difficult to effect within a compressed program of urgent adaptation.

Planning for early adaptation interventions, before crisis conditions arise, is therefore essential.

In this regard, the preliminary engineering design process and pre-feasibility studies for the new oil and gas

marine infrastructure (i.e. Berth 205 and rig repair jetty) considered the predicted sea level rise for the Saldanha

area and made provision for it in their preliminary design proposals. The latest investigation into coastal

development setback lines by Royal HaskoningDHV (2014) included sections of Port land in the vicinity of the

IOT as being located within a General Risk area for future sea level rise and storm surges, while only most of the

Port land falls outside of a proposed 1:100 year coastal floodline (EMF, 2017).

Relationship # 82: Ocean temperature increase results in eutrophication (One of the environmental

parameters that influence primary production is temperature. For algal growth to occur there should be

sufficient light, enough inorganic nutrients and the correct temperature. When temperature increases, it

may disturb the natural balance, in which case it could lead to excessive algal growth (i.e.

eutrophication).)

Opportunity: Potential temperature increases could result in greater primary production in the water of

the bay that in turn could increase the carrying capacity of the bay for mariculture activities.

Management action:


local ecosystem functioning (including a predictive capability) and the effects that potential

temperature changes could have on the bay (e.g. changes in range distributions, changes in

vulnerability to the establishment of alien species, etc.).

Constraint: While the carrying capacity for the bay could be increased for mariculture, increased primary

production (and mariculture activities) could exacerbate the low dissolved oxygen conditions already

occurring in the bay.

Management action:

� Ensure that future developments within the bay take into account the likely effects of temperature

changes in the bay. This should be done during the planning phase of proposed port development

and expansion.



Relationship # 85: Climate change will cause sea level rise (Under present climate change scenarios,

a sea level rise between 0.5m and 2.0m (with a most likely scenario of 1m) is anticipated by 2100. These

changes will affect ecosystem habitats, possible sediment movements and will also have shoreline

impacts (typically erosion). These effects will occur no matter what the proposed future port

developments may be. What is however important is to what extent any future developments will

exacerbate the existing anticipated effects of sea level rise.)

Opportunity: Knowing the extent of likely sea level rise, it is possible to incorporate such effects and the

consequences thereof (as described above) in the design of future developments in the bay, as has

already been considered in the preliminary design process for Berth 205 and the rig repair jetty.

Management action:

� Consider the latest studies regarding predicted changes in the marine and coastal environments

associated with sea level rise both in the absence of further development and under a range of future

development scenarios. Of particular concern in this regard are potential shoreline changes and

impacts on coastal infrastructure. This will avoid the need to unnecessarily invoke the Precautionary

Principle in the face of uncertainty that is likely to have associated with it possible significant

opportunity costs in terms of developments not pursued.

� Follow a conservative approach in modelling the likely changes in current and wave action within

Small and Big Bay in relation to proposed new marine infrastructure, in order to sufficiently make

provision for predicted sea level rise.

Constraint: Sea level rise effects may limit some of the future developments under consideration. A

particular concern is likely to be the effects of sea level rise on shoreline change and how this may be

exacerbated by some of the future developments under consideration.

Management action:

� Adequate consideration of sea level rise effects when planning future developments. This should be

done during the planning phase of proposed new port developments and future longer term

planning.

Relationship # 86: Climate change will cause increased storm events (Global climate change

scenarios suggest that there is likely to be an increase in storminess. This is likely to have a direct impact

on mariculture activities (damage to rafts, increases in down-time, etc.) as well as an indirect impact on

shoreline stability/change.)

Opportunity: Knowing the extent of the likely increase in storminess, it is possible to incorporate such

effects and the consequences thereof (as described above) in the design of future developments in the

bay. For example, increased storminess could result in increased damage to mariculture facilities,

increased risk of shipping accidents, related oil spills, etc.

Management action:

� Undertake the requisite studies to predict likely changes in the marine and coastal environments

associated with sea level rise both in the absence of further development and under a range of future

development scenarios. Of particular concern in this regard are potential shoreline changes and

impacts on coastal infrastructure. This will avoid the need to unnecessarily invoke the Precautionary

Principle in the face of uncertainty that is likely to have associated with it possible significant

opportunity costs in terms of development not pursued.

Constraint: The effects of increased storminess may limit some of the future developments under

consideration. A particularly concern is likely to be the effects of increased storminess on the locations



and viability of mariculture activities and potential shoreline change effects (where the predicted increase

in storminess will exacerbate any deleterious effects on shorelines associated with sea level rise.

Management action:

� Adequate consideration of the effects of increased storminess when planning future developments.

This should be done during the planning phase of proposed port development and planning.

Relationship # 87: Climate change will cause ocean temperature increase (One of the environmental

parameters that influence primary production is temperature. For algal growth to occur there should be

sufficient light, enough inorganic nutrients and the correct temperature. When temperature increases, it

may disturb the natural balance in which case it could lead to excessive algal growth (i.e. eutrophication).

Changes in seawater temperature are also likely to causes shift in biogeographic distributions that may

have ecosystem effects.)

Opportunity: Potential temperature increases could result in greater primary production in the water of

the bay that in turn could increase the carrying capacity of the bay for mariculture activities. However it

should be noted that increased primary production (and mariculture activities) could exacerbate the low

dissolved oxygen conditions already occurring in the bay. Similarly changes in biogeographic

distributions of species are likely to occur which may have both beneficial and deleterious effects.

Management action:


local ecosystem functioning (including a predictive capability) and the effects that potential

temperature changes could have on the bay (e.g. changes in ranges distributions, changes in

vulnerability to the establishment of alien species, etc.).

Constraint: While, potential temperature increases could result in greater primary production in the water

of the bay (that in turn could increase the carrying capacity of the bay for mariculture activities), it should

be noted that increased primary production (and mariculture activities) could exacerbate the low dissolved

oxygen conditions already occurring in the bay. Shifts in biogeographic distributions have the potential to

impact significantly on mariculture operations.

Management action:

� Ensure that future developments within the bay take into account the likely effects of temperature

changes in the bay. This should be done during the planning phase of proposed port development

and planning.

Relationship # 109: Expansion of dry storage will require additional dredging

Opportunity: The expansion of the dry storage and associated shipping facilities will have a significantly

positive effect on socio-economics in the region. As noted in Relationship #60, proposed expansion of

dry storage facilities and expansion of bulk handling (iron-ore) export facilities will result in the in-fill of

what remains of the old Oyster dam that comprises a significantly warmer environment than the rest of

the bay and has the potential to harbour alien species.

Management action:

� None identified

Constraint: Should there be inadequate environmental screening of potential dredging impacts and

potential development options, delays associated with environmental objections are likely to occur.



Management action:

� Undertake appropriate studies to comprehensively assess the development options and associated

dredging and dredge disposal activities with respect to their engineering/commercial and

environmental viability. Such studies need to be documented and professionally reviewed if they are

to be considered adequate.

6.3 ECONOMIC & ENGINEERING THEME

This theme addresses the port expansion activities proposed by TNPA, while also considering noted new

development proposals by others in the vicinity of the Port. These aspects are (i) Development of water

supply infrastructure, (ii) Expansion of dry storage (iron ore handling), (iii) Ship repair, (iv) Marine water

quality and (v) Expansion of liquid bulk storage. Furthermore, the associated civil and transport

engineering aspects, acting in support of the proposed port expansions are also discussed in this section.

6.3.1 Economics


actions are applicable to economics:

Relationship # 3 and #64: Marine water quality supports mariculture, tourism and its associated

economic spin-offs

Opportunity: Maintenance of adequate marine water quality and operating space will enable the

realisation of the sustainable development and community benefits objectives of the port by ensuring that

mariculture and tourism can continue thereby providing socio-economic benefits. An additional

opportunity is improved collaboration between TNPA and other key stakeholders.

Management action:

� Implement the specific SMAs including water quality guidelines recommended in the marine water

quality specialist input. Note that these contain standard/generic elements as well as elements

specific to Saldanha Bay. With direct relevance to mariculture, one element of these guidelines is

related to assessing changes in phytoplankton growth that is a food source for the mussels.

Overall rating: HIGH

Discussion: Sufficient systemic latitude is available to accommodate additional changes to

the local economy as suggested in the PDFP 2016. However, the unintended

consequences of such development must be understood and avoided where

possible, or mitigated where unavoidable. The following key risks should be

noted:

• Risks to the mariculture, small-scale fishing, and tourism and recreation

sectors from decreased water quality. In this regard the longer term

potential of mariculture to co-exist with an expanding port, as well as

with tourism, is a source for concern.

• Risks to nearby residential area (including property values) from

decreased air quality, decreased water quality and increased noise.

• The potential for the in-migration associated with the expansion projects

to strain the municipality’s ability to deliver services to existing residents

as well as newcomers to the area.



� Ensure open communication channels and regular engagement with the mariculture industry to

ensure that concerns or emergencies are dealt with speedily an according to an agreed process.

� Ensure that comprehensive and independently verified monitoring is done of the influence of the

port’s activities to assist with management and with resolving any disputes regarding responsibility

for decreased water quality and its consequences in the Bay. This would be particularly important

given the complex nature of dispute situations and the tendency for the parties involved to engage in

strategic/’gaming’ behaviour which is made easier by a lack of hard data.

� Ensure that TNPA insurance (and that of visiting ships if possible) is comprehensive and includes

adequate cover for damages due to spills or other accidents that includes damages to mariculture

operations.

Constraint: Maintenance of adequate marine water quality does not fall exclusively under the control of

TNPA. The failures of the TNPA and others (eg the municipality, industries, others with an influence on

marine water quality) could therefore (1) strain co-operative governance, (2) influence relationships with

the community and (3) increase the risk of restrictions being placed on port development as a ‘blanket

measure’ in order to keep water quality at acceptable levels.

Management actions:

� Actively and constructively engage in collective management forums including the Saldanha Bay

Water Quality Trust and the Saldanha Bay Forum.

� Actively and constructively engage in the building of specific relationships with key institutions and

groups with an interest in water quality management including the Saldanha Bay Municipality and

other key large polluters.

� Make data on water quality publicly available and publicise achievements or improvement measures

where relevant. This will help with clarifying the situation thereby countering speculation among

community members.

Relationship # 3 & #64: Marine water quality supports small-scale fishing and its associated

economic spin-offs

Opportunity: Maintenance of adequate marine water quality will facilitate the sustainable development

and community benefits objectives of the port by ensuring that small-scale fishing can continue, thereby

providing socio-economic benefits.

Management actions:

� Implement the specific SMAs related to marine water quality, including the 1995 Marine Water

Quality Guidelines for Coastal Waters (DWAF, 1995) and any updates to these guidelines that may

be developed specific to the Saldanha Bay area.

� Ensure open communication channels and regular engagement with the fishing industry to ensure

that concerns or emergencies are dealt with speedily and according to an agreed process.



for decreased water quality and its consequences in the Bay. This would be particularly important

given the complex nature of dispute situations that might arise. In this regard, ensure ongoing liaison

and cooperation with the annual State of the Bay monitoring and reporting process managed by the

Saldanha Bay Water Quality Forum Trust.

� Ensure that TNPA’s insurance (and that of visiting ships, if possible) is comprehensive and includes

adequate cover for damages due to spills or other accidents that includes damage to fishing

operations and mariculture facilities.


TNPA. The failures of the TNPA and others (e.g. the municipality, industries, others with an influence on






Management actions:


Water Quality Forum Trust, the IGTT and any other industrial and business forums that may be

established in future.


groups with an interest in water quality management, including the Saldanha Bay Municipality and

other key large polluters.


where relevant. This would help with clarifying the situation, thereby countering speculation among

community members. This includes reporting any notable incidents such as oil or other hydrocarbon

spills and reporting on the containment and remedying of such an incident.

Relationship # 3, #101, #102 and #64: Marine water quality supports tourism and recreation and its

associated economic spin-offs

Opportunity: Maintenance of adequate marine water quality will enable the realisation of the sustainable

development and community development objectives of the port by ensuring that tourism and recreation

can continue thereby providing socio-economic benefits.

Management action:

� Implement the specific SMAs recommended in the marine water quality section.

� Ensure open communication channels and periodic engagement with the tourism and recreation

stakeholders such as the Saldanha Bay Tourism Organisation (SBTO) and municipality in order to

ensure that they are aware of future plans for the port and TNPA is in turn kept informed of any new

tourism proposals in close proximity to the Port facilities and/or sea area falling under the jurisdiction

of TNPA (e.g. new Saldanha Bay waterfront project).

Constraint: Failure to maintain adequate marine water quality will harm the sustainable development

objective of the port vision by damaging mariculture and resulting in the loss of the socio-economic

benefits associated with it.

Management actions:

� Implement the specific SMAs recommended in the marine water quality section.

� Ensure open communication channels and regular engagement with the mariculture industry to

ensure that concerns or emergencies are dealt with speedily and according to an agreed process.



for decreased water quality in the Bay. In this regard, ensure ongoing liaison and cooperation with

the annual State of the Bay monitoring and reporting process managed by the Saldanha Bay Water

Quality Forum Trust.








Management actions:


Water Quality Forum Trust, the IGTT and any other industrial and business forums that may be

established in future.


groups with an interest in water quality management including the Saldanha Bay Municipality and

other key large polluters such as the fishing industry.


where relevant. This includes reporting any notable incidents such as oil or other hydrocarbon spills

and reporting on the containment and remedy of such an incident. This will help with clarifying the

situation, thereby countering speculation among community members.

Relationship # 20: Port expansion projects will produce economic spin-offs from expenditure,

jobs and increased commercial activity

Opportunity: Expansion project investments will enable the realisation of the sustainable development,

job creation, community benefit, local supplier development and broad-based black economic

empowerment objectives of the port by providing direct jobs, incomes at the port along with wider

economic spin-offs associated with increased commercial activity that the projects would

support/catalyse.

Management actions:

� Set targets for how much local labour should be used, taking into account the availability of existing

skills and people that are willing to undergo training. Opportunities for the training of workers from

local communities should be maximized.

� Local sub-contractors should be used where possible and construction contractors from outside the

local area that tender for work should also be required to meet targets for how many locals are given

employment. This will support the local supplier industry development objective of the port in

particular.

� Favour labour-intensive methods and options, where possible.

� Explore ways to enhance local community benefits with a focus on mechanisms such as community

projects that are needed and, ideally, are officially recognised as such by the municipality (e.g.

projects that appear in the IDP).

Constraint: Expectations among locals regarding jobs and contracting/supplier opportunities are

generally high. Competition for jobs in the economy is also intense, particularly for lower skilled workers.

This means that TNPA will have to be particularly careful in how it handles the process of recruitment of

new workers and how training is integrated into this process. If it is not well handled and seen to be

unfair, local people may resent TNPA, despite the jobs that the TNPA projects provide. This would be

counter to the community benefits and proactive stakeholder engagement objectives of the port.

Management actions:

• Ensure open communication channels and regular engagement with the local community to ensure

that they are adequately informed regarding project progress and opportunities. From a local

business perspective, at a minimum this should include engagement and participation in the

Saldanha Bay IDZ Business Forum (which includes the following other organisations in its

membership: BBBEE Forum, Cape Chamber of Commerce, Saldanha Bay Black Business Woman's

Association, Saldanha Bay Tourism Organisation, SBIDZ-LC, Weskus Sakekamer, West Coast

Business Development Centre, Women in Construction).

• Ensure that there is as much clarity as possible among communities regarding the magnitude and

type of direct job and contract opportunities that are on offer. If anything, be conservative in outlining

opportunities and carefully avoid overstating them.



• Avoid communicating indirect and induced job opportunity estimates with stakeholders. These

opportunities are notoriously difficult to estimate accurately and, given the high estimates that are

commonly arrived at, have the potential to be particularly misleading to job-seekers with high

expectations (most current ‘multiplier’ models used for the estimation of indirect and induced jobs are

prone to often significant over-estimation especially at a local level where these models are least

applicable).

Relationship # 38, #41, #42, and #44: Port expansion projects and their associated economic spin-

offs will increase in-migration of new workers and job seekers thereby boosting demand for

services

Opportunity: Municipality rises to the challenge of in-migration in collaboration with TNPA and provides

services adequately, thereby strengthening Saldanha with positive spin-offs for sustainable development

and community benefits objectives of the port.

Management action:

• Engage with the municipality in order to facilitate any new developments and opportunities.

Constraint: In-migration is relatively uncontrolled and results in very high demand for services to which

the municipality is not able to adequately respond and which diverts municipal resources away from

providing services to existing residents/customers. This would compromise the sustainable development

and community benefits objectives of the port.

Management actions:

� Provide the municipality with projections of jobs to be filled by locals and by those from outside the

area per income level as early as possible in the planning process and update these estimates when

they change.

� Allocate the role of liaison with municipal planners to an appropriately senior staff member and

ensure that liaising with the municipality and keeping them informed is one of the staff member’s key

performance indicators.

� Be prepared to be responsive to municipal needs and requests that may arise from time to time.

Constraint: At any given time, in-migration is likely to be associated with TNPA projects in combination

with other major projects in the area which TNPA has no control over. The municipality could

nevertheless assign the majority of the blame on TNPA for strain placed on it due to in-migration resulting

in strained relationships between TNPA and the municipality, thereby negatively affecting cooperative

governance objectives. Proactive stakeholder engagement is therefore key.

Management actions:

� Actively and constructively engage in municipal planning processes and forums. At a minimum this

should include active engagement and the provision of accurate information to the municipal IDP and

associated SDF processes.

� Ensure that the municipality is kept informed of challenges as well as progress being made by TNPA

in addressing issues of interest to the municipality.

Relationship # 53: Air and water quality, amenity and sense of place adds to local property values

Opportunity: Additional mitigation and compensation measures for air quality impacts in particular need

not be especially costly and would result in improved relations with neighbouring communities.

Management action:

� Ensure that TNPA performs its oversight role with regards to TPT’s compliance with its issued AEL.



Opportunity: The expansion projects would result in increased economic activity and opportunities in

Saldanha (relationship #20) which should have positive impacts on property values linked to increased

demand for housing in the wider area.

Management action:

� None identified

Constraint: Air quality, noise and water quality impacts create risks to residential property values and

therefore also damage community benefits and relations. Some of these risks are relatively unique,

especially in the case of iron ore dust and, arguably, are not adequately dealt with by existing standards.

This implies that TNPA should focus on the principles behind the standards rather than their strict legal

application.

Management actions:

� Implement the specific SMAs recommended for air quality, marine water quality and noise impacts.

� In addition to limiting dust in its own precinct, TNPA should fulfil an oversight role in monitoring TPT’s

compliance with its AEL. Tasks to be undertaken by TPT include the following:

o The implementation of a system for the compensation for iron ore dust damage. This system

should:

� Be a fair and absolutely clear system, including regular collaboration with affected parties.

� Identify clear trigger points when compensation is justifiable, appropriate and required.

� Ensure that the mutually agreed to compensation system (i.e. financial provision for re-

painting of houses) is regularly discussed with affected parties in order to ensure its continued

acceptability.

� Establish a clear process or system through which compensatory mechanisms can be

delivered.

� Establish clear timelines within which actions must be taken by TPT and stick to these

timelines.

� Ensure that clear responsibility for the delivery of actions is linked to the appropriate position

within TPT’s structures and that the person in the position has key performance indicators

associated with the delivery of actions.

o Ensure open communication channels and regular engagement with the communities nearby to

ensure that concerns or emergencies are dealt with speedily and according to an agreed process.

The Blue Water Bay Property Owners Association and Red Dust Action Group would, at a

minimum, be relevant here.



for decreased water quality, air quality or noise.

Constraint: Maintenance of adequate environmental quality does not fall exclusively under the control of


environmental quality) could therefore (1) strain co-operative governance, (2) influence relationships with



Management actions:


Water Quality Forum Trust, the Air Quality Working Group Forum, the IGTT and any other industrial

and business forums that may be established in future.


groups with an interest in air quality, water quality and noise management.



� Make data on environmental quality publicly available and publicise achievements or improvement

measures where relevant. This will help with clarifying the situation thereby countering speculation

among community members.

6.3.2 Civil & transport engineering


actions are applicable to civil and transport engineering:

Relationship #11 and #89: Establishment of bulk liquid storage will increase stormwater load due

to increase in impervious surfaces; increased storm events reduces longevity of port

infrastructure.

Opportunity: The stormwater could be captured and then quality improved, thereby allowing it to be

reused for grey water purposes or to supplement manufacturing processes. The stormwater once

captured could be used as a feature in a water-body or for irrigation purposes.

Management actions:

� Ensure that proposed new port infrastructure is considered in the Stormwater Master Plan for the

port.

� Ensure that TNPA’s policy of no direct discharge of stormwater to sea is implemented in all new port

infrastructure planning and upgrade existing stormwater infrastructure in order to ensure compliance

with this policy. This also applies to all tenants within the Port.

� The Supplier Development Plan (SDP) and specific land-uses applicable to port expansion need to

be finalised in order to accurately determine water storage and water uses.

Constraint: The potential for water pollution in the harbour as a direct result of runoff. Any increased

runoff volumes will result in a localised increase in water temperature in the bay which will have an impact

on marine life.

Management action:

� Pollution and temperature increases need to be addressed by means of sustainable urban drainage

systems and ensuring no direct discharge to sea.

Relationship #30 and #31: Bulk water supply adequacy will facilitate expansion of dry bulk

storage; such development (of new water supply infrastructure) will improve the adequacy of

water supply to the port and Saldanha Bay community.

Opportunity: The bulk water supply scheme planned for port expansions could provide an alternative

source of potable water to the Saldanha Bay Municipality.

Overall rating: VERY HIGH

Discussion: Extensive systemic latitude is available to accommodate change to the local

engineering environment coupled to port expansions as proposed in the PDFP

2016. If implemented correctly, additional engineering (bulk service

infrastructure) could improve the resilience of the SES by reducing vulnerability to

exogenous shocks and changes (e.g. Eskom-related power outages and lack of

potable water supply during drought conditions). However, the unintended

consequences of such development must be understood and avoided where

possible, or mitigated where unavoidable.



Management actions:

� Evaluate the existing infrastructure in order to consider any potential expansion opportunities.

� Identify alternative water sources.

� Obtain usage licenses from Department of Water and Sanitation and Saldanha Municipality.

Constraint: Should water not be readily available, any further largescale developments would be unable

to proceed until licenses have been obtained and new infrastructure and/or upgrades to infrastructure are

undertaken.

Management action:

� Engage with the Department of Water and Sanitation and Saldanha Bay Municipal Engineering

Services Department as early as possible to mitigate this risk.

Relationship #55, #99 and #100: Establishment of bulk liquid storage, expansion of dry storage

and oil rig and ship repair facilities will increase electricity demand from Eskom. This additional

electricity supply enables the delivery and capacity to deliver municipal services. However, in-migration of

job seekers will cause an increased demand for electricity supply from Eskom.

Opportunity: Alternative energy could be considered by means of solar panels and wind generators

thereby creating a more sustainable port expansion. Surplus electricity generated by alternative means

could be fed back into the Eskom Grid.

Management actions:

� Identify the most suitable methods of generating alternative energy given the site and energy

constraints4.

� Obtain necessary approvals and agreements with Eskom for the transfer of energy back into the

grid5.

Constraint: Eskom may not have sufficient capacity to accommodate renewable energy sources and the

renewable energy sources will require environmental approvals.

Management actions:

� Conduct a high-level determination of energy requirements resulting from port expansions.

� Engage with Eskom to determine spare electrical capacity in the port/ Saldanha Bay area. This

should be done as early as possible.

� Commission the necessary EIA processes to obtain Environmental Authorisations as early as

possible to avoid electricity supply constraints.

Relationships #32, #72, #73 and #80: Development of water supply infrastructure reduces marine

water quality (due to desalination) and good marine water quality facilitates the development of

water supply infrastructure (feedback). Proper functioning of desalination intakes is necessary for

the development of water supply infrastructure. However, development of water supply

infrastructure (RO plants) results in desalination brine discharge which negatively affects marine

water quality.

Opportunity: Desalination can create an alternative water supply for the greater Saldanha Bay

Municipality.

4 Wind and solar energy can, to a limited extent, provide alternative energy but would be severely constrained given the close

proximity of the port to residential areas (i.e. visual and noise buffer zones would limit the amount of turbines/panels). Wave energy appears to hold more promise for energy generation, given the morphology of Saldanha Bay.

5 At present, feedback of electricity into the Eskom grid is not allowed. However, this is an administrative barrier which could, in future, be eliminated.



Management actions:

� A thorough investigation needs to be performed into the viability and sustainability of expanding

desalination technology in the port. This should be completed as early as possible as potable water

supply is a significant limiting factor in terms of port expansion.

� Engagement with the Department of Water and Sanitation regarding further desalination options, as

well as other water management alternatives, is required as early as possible.

Constraint: Desalination is costly to implement and maintain and requires energy input from Eskom or

alternative energy sources. Disposal of brine into the environment also needs to be properly managed

and Environmental Authorisation for a desalination plant will be required.

Management actions:

� The cost of producing water for the proposed port expansion needs to be accurately determined in

terms of the total cost to TNPA. A detailed study in this regards should be commissioned as early as

possible.

� The process of obtaining Environmental Authorisation/s for desalination plant/s should be informed

by the aforementioned study and should be integrated into the planning phase of the proposed port

expansions.

Relationship #84: Port infrastructure integrity is required for port sustainability.

Relationship #88: Development of water infrastructure will add to port sustainability.

Relationship #90: Sea level rise reduces longevity of port infrastructure.

Relationship #92: Reduced rainfall increases demand for development of water supply

infrastructure.

Opportunity: The upgrading of municipal infrastructure may create spare capacity for the port upgrade,

thereby having a positive impact on the surrounding environment and services such as Water, Sewer,

Stormwater, Electrical and Roads in the area. Recent upgrades to municipal infrastructure include the

upgrading of the waste water treatment works and Besaansklip reservoir.

Management action:

� Engage with municipal engineers at the Saldanha Bay Municipality and Eskom in order to determine

the available spare capacity and condition of existing infrastructure.

Constraint: Environmental approvals will be required for any upgrade to infrastructure in the area. The

upgrade of municipal infrastructure can add significant costs to the project.

Management action:

� Early identification of service requirements is essential to the success of the port expansion. Without

adequate infrastructure in place it will be difficult to create a sustainable port expansion.

Relationship #21: Road infrastructure adequacy will facilitate the establishment of the liquid bulk

storage.

Relationship #22: Establishment of bulk liquid storage will necessitate the development of road

infrastructure.

Relationship #23: Development of new road infrastructure improves the adequacy of road

infrastructure. (The road infrastructure adequacy or supply as it is generally termed refers to the length

and breadth of surfaced of gravel roads in terms of number of lanes per direction and kilometres of

extent. The establishment of bulk liquid storage (and other projects) will lead to an increase in road

based freight haulage. The increase in road freight may or may not necessitate the development of new

road infrastructure. Should new road infrastructure be required to provide the necessary capacity for the

road freight then such infrastructure will by default improve the road network to the study area.)



Opportunity: If the existing and planned road infrastructure proves to be adequate to facilitate the

establishment of the liquid bulk storage, the resultant cost to the state will be reduced with the planned

liquid bulk storage facility. The logistics of the transfer from the liquid bulk storage to road infrastructure

needs to be studied in detail in order to evaluate the traffic impacts and the future road infrastructure

requirements. Adequacy of the road infrastructure will facilitate the sustainability objective of the port

vision by reinforcing the strategic importance of the Port of Saldanha and thereby attracting commerce.

The DTPW projects of extending the R79 link to the R45, future planned upgrade of the R79 for use as a

dedicated freight route and extension of MR559 to the Saldanha-Vredenburg road will significantly

improve freight access to and from the Port.

Management actions:

� Liaise with DTPW and the Saldanha Bay Municipality regarding the adequacy of planned road

infrastructure upgrades in terms of planned port expansion as early as possible.

� Determine the anticipated maximum transfer from liquid bulk storage to road in terms of tonnage of

liquid bulk.

Constraint: The extent of the existing and planned road infrastructure as per the transport and traffic

plans of the Saldanha Bay SDF will need to be studied in order to make an informed decision on the

availability of road infrastructure. The key roads are South African National Roads Agency Limited

(SANRAL) and DTPW and interagency cooperation is required in order to evaluate the adequacy of the

road infrastructure fully. Adequacy of the road infrastructure does not fall exclusively under the control of

TNPA and might restrict port development in terms of the carrying capacity of the adjacent road network.

Congestion could constrain the port activity to some degree although this outcome is unlikely, given the

low background traffic volumes on the network in the Saldanha Bay study area.

Management actions:

� Engage with DTPW and Saldanha Bay Local Municipality on the road infrastructure by keeping them

informed of planned expansion of the Port of Saldanha.

� Determine whether bulk service levies will be applicable to the project in terms of roads

infrastructure.

Relationship #24: Development of road infrastructure will increase volumes of traffic and

transportation. (The development of road infrastructure in the form of additional road capacity, new

linkages, improved signage and intersection upgrading will undoubtedly lead to increases in traffic

volumes on the network which is a direct result of increased capacity for bulk storage (relationship #22).

The development of road infrastructure attributable to the Port of Saldanha expansion will create latent

demand for traffic and consequently with the expansion of bulk storage, the traffic in and out of the port

will increase. The SBIDZ, port expansions and related increase in freight traffic has already been

considered in future plans for the provincial and local road network surrounding the port. Future road

upgrades in the vicinity that have already received environmental authorisation and/or are in the process

of being constructed include the extension of MR559, extension of the R79 to the R45 and upgrading of

the R79 to a dedicated freight route with related intersection upgrades to grade-separated interchanges.)

Opportunity: The opportunity is to identify the extent of road upgrading required as a result of the

planned developments and to plan judiciously to meet the future needs of the port. The emphasis should

be on the entrances and exits to the port and the aim should be to minimise congestion around these

access and egress points.

Management actions:

� Prepare a detailed travel demand forecast and modal split for the expansion of the port.



� Determine if the anticipated traffic on the network can be accommodated by existing road and rail

infrastructure.

� Determine if the increase in workforce at the port can be accommodated on the existing public

transport network and that adequate parking provision is made for private vehicle usage.

Constraint: The constraints are that the development of road infrastructure is outside the core

competency of the Port of Saldanha and Transnet. The road-based traffic and transportation network is in

the public domain and the cooperation and approval of DTPW and Saldanha Municipality is required for

any upgrading arising from the project outside of the port. Such upgrading will only be required if the

existing infrastructure proves to be inadequate.

Management action:

• Engage with the road authorities regarding the planned expansion of the port and provide anticipated

traffic volumes to the officials concerned so that they may plan accordingly.

Relationship #26: Development of new rail infrastructure will improve the adequacy of rail

infrastructure for dealing with current and planned operations.

Relationship #27: The adequacy of rail infrastructure will facilitate the expansion of dry storage.

Relationship #28: Expansion of dry storage will necessitate the development of rail infrastructure.

(The rail infrastructure consists of track, sidings, signals and rolling stock and any new rail infrastructure

will have a significantly positive impact on the handling of bulk goods inbound and outbound. The

adequacy of the rail infrastructure, considered to be the backbone of the transportation system, will in

some way influence the extent of the port expansion. Dry goods (bulk) in particular are transported by rail

and may or may not necessitate the expansion of the rail infrastructure.)

Opportunity: The opportunity is to identify the extent of rail upgrading required as a result of the project

and to plan judiciously to meet the future needs of the port. The emphasis should be on the railway

sidings and goods receipts facilities within the Port of Saldanha to enhance bulk goods and materials

handling.

Management action:

� Engage with Transnet Freight Rail (TFR) planning office as soon as possible to alert management to

the possibility of any changes to the rail infrastructure, particularly the sidings on the Port of

Saldanha goods receipts and dispatch areas.

Constraint: The constraint is that rail infrastructure is very difficult to implement, with long time horizons

and it is unlikely that any new infrastructure will materialise with the exception of the possible dualling of

the Sishen – Saldanha railway line. This is a much needed piece of infrastructure for transfer of bulk

goods from the Northern Cape to the Port of Saldanha.

Management action:

� Take timeous action in order to ensure that any required changes to the rail infrastructure are

appropriately planned for.



6.4 SOCIAL THEME

This theme addresses the social impacts resulting from the proposed port expansion. These aspects are:

(i) Inmigration (influx) of job seekers, (ii) Reduction of social cohesion, (iii) Increased demand for social

services, municipal infrastructure and housing, and (iv) Increased public opposition against TNPA.

6.4.1 Social changes

The following SES relationships, associated opportunities and constraints and related management

actions are applicable to social changes:

Relationship #38: The proposed port development will increase in-migration (influx) of job seekers

Opportunity: The in-migration of job seekers could increase the skills-base available in the area and the

potential exists for these skills to contribute towards growing the local economy.

Management actions:

� As part of a Corporate Social Responsibility Program, provide training that will enable the

development of portable skills that will benefit, not only the Port, but also broader economic

development, in the Saldanha Municipal Area in the future. Such training should be available to both

temporary workers during construction, as well as permanent employees post-construction.

� Formulate and implement a skills development plan, as well as a mentorship, bursary and internship

plan. In this regard, opportunities exist for partnering with the SBIDZ-LC’s as part of their skills

training initiatives.

Constraint: The in-migration of job seekers (if in excess of labour requirements) is likely to exacerbate

the existing competition for jobs in the Saldanha Municipal Area, increasing poverty levels. This is in an

area where unemployment levels are already a concern and in which high levels of in-migration already

exist (SDF, 2017).

Management actions:

� To reduce unrealistic employment expectations and to manage any potential influx of job seekers,

develop and implement an influx management strategy that includes clear communication to all

stakeholders on the nature – and number of –skills required during- and following construction. This

should include the recruitment policy and the job categories needed.

� Use local skills as far as possible, employing people that currently reside in the area. Require that all

sub-contractors follow a similar policy, including this requirement in their contracts.

� Implement a training program that enables local community members to develop some of the skills

required.

Overall rating: LOW to MEDIUM

Discussion: Systemic latitude is available to accommodate changes to the local social

environment as a result of port expansions proposed in the PDFP 2016.

However, care should be taken when triggering changes to the social component

of the SES as aspects thereof are close to reaching a point of saturation. Limited

latitude is primarily attributable to existing frustrations with TNPA which might,

given additional change, cause hostility towards TNPA operations. Furthermore,

unintended consequences of social changes must be understood and avoided

where possible, or mitigated where unavoidable.



Relationship #39: The in-migration of job seekers will reduce social cohesion

Opportunity: (Please note: Social cohesion is generally viewed as positive. This linkage is therefore

phrased as a constraint).

Constraint: An in-migration of job seekers could negatively affect social cohesion as a result of new

attitudes, beliefs and behaviours being introduced. In addition, the resultant increase in the demand for

services, which has not necessarily been planned for by the local authorities, can lead to the emergence

and/or expansion of informal settlements and further service delivery backlogs. Such backlogs have, in

the past, contributed to an increase in frustration, tension and protests (Wits, 2010).

Management actions:

� Employ local skills and/or train individuals residing in the area to develop these skills, as far as

possible.



stakeholders on the nature – and number – of skills required during and following construction. This


Relationship #44: In-migration of job seekers and human capacity to operate the expanded port

increases the demand for social services, municipal infrastructure and housing

Opportunity: If an increase in the demand for services, infrastructure and housing is met, this could

contribute towards growing the local economy.

Management actions:

� Engage with the local authority around the expected increase in service, infrastructure and housing

demand, with the aim of informing municipal planning and budgeting.

� Determine the potential housing needs of the workforce, during and after construction. Formulate

and implement an accommodation strategy that accommodates both temporary and permanent

workers (e.g. arranging for temporary accommodation in guest houses, constructing temporary

accommodation on site, providing housing subsidies, providing information and other assistance

regarding coastal developments that are already approved and that have not yet been fully occupied,

among others).

Constraint: If an increase in the demand for services, infrastructure and housing is not met, this could

contribute to expanding informal settlements and unending backlogs. It is important to note, for example,

that currently (according to Saldanha Bay Municipality, 2017):

� Additional solid waste facilities may be required for the SBIDZ and implementation of the West Coast

Industrial Plan;

� Although the capacity of the Saldanha Bay WWTW was recently increased, it may not be sufficient to

handle any further largescale developments in future;

� Public health services are over-extended;

� Future development is limited by water scarcity;

� A housing backlog exists with a Department of Housing waiting list of around 8 900 in 2017;

� Projected population growth in the municipal area will lead to housing requirements (in all sectors of

the market) of up to around 21 500 by 2021.

Management actions:

� Determine the potential housing needs of the workforce, during and after construction. Formulate

and implement an accommodation strategy that accommodates both temporary and permanent



workers (e.g. arranging for temporary accommodation in guest houses, constructing temporary

accommodation on site, providing housing subsidies, providing information and other assistance

regarding coastal developments that are already approved and that have not yet been fully occupied,

among others).

� Engage with the local authority around the expected increase in service, infrastructure and housing

demand to inform municipal planning and budgeting.

� Use local skills as far as possible, employing people that currently reside in the area. Require that all

sub-contractors follow a similar policy, including this requirement in their contracts.



stakeholders on the nature – and number of –skills required during- and post - construction. This


� Implement a training program that enables local community members to develop some of the skills

required. In this regard, opportunities exist for partnering with the SBIDZ-LC’s as part of their skills

training initiatives.

� As part of a Corporate Social Responsibility Program, invest in the currently over-extended public

health services.

� Develop and implement a strategy regarding waste and water management, which is informed by,

for example:

o An investigation into the potential re-use and recycling of waste products;

o Discussions with the municipality regarding the most appropriate landfill site to use, given the

current capacity shortages at the Vredenburg and Langebaan sites;

o An investigation into the potential for pre-treatment of effluent and water re-use; and

o An investigation into various options for water recycling.

Relationship #103: In-migration of job seekers increases public opposition towards TNPA

Constraint: If an in-migration of job seekers results in, for example, increased unemployment, an

increased demand for services that cannot be met and/or a loss in social cohesion, this could increase

public opposition towards TNPA.

Management actions:

� See management actions listed under relationship # 38; #39 and #44 above.



CHAPTER 7: CONCLUSION AND RECOMMENDATIONS

Based on the findings of the review and update of the SEA, key conclusions and recommendations are

drawn in this section. Main items of concern are highlighted and changes to the previous assessment are

indicated, as appropriate.

The overall sustainability rating of port expansions as proposed in the PDFP 2016 is presented in Table

7.1 below. The sustainability ratings signify the amount of systemic latitude available to accommodate

change. Ratings are indicated for each SES variable assessed in Chapter 6, with changes from the 2013

assessment indicated.

Table 7.1 Overall rating of proposed port development in the Port of Saldanha.

SES variable Sustainability Rating (i.e. amount of systemic latitude available to

accommodate change)

Updated 2017 rating Original 2013 rating

Air quality LOW (lowered latitude) MEDIUM

Natural vegetation MEDIUM (lowered latitude) HIGH

Marine water quality LOW LOW

Economics HIGH HIGH

Engineering (transport and civils)

VERY HIGH VERY HIGH

Social change MEDIUM TO LOW MEDIUM TO LOW

Overall sustainability of proposed port expansions

MEDIUM MEDIUM TO HIGH

It is concluded that the SES can at best, only maintain medium levels of resilience with the

implementation of the proposed port developments and operations, together with other sector

developments; i.e. the systemic latitude available to ensure that the SES’ core structure, function and

identity can be maintained is becoming more limited. This can be ascribed to the lowering of the

sustainability ratings for air quality and natural vegetation, together with continued pressures on marine

water quality (as evident from the findings of the 2017 State of the Bay Report).

The following must, however, be considered in light of the SEA review and update.

Marine Water Quality

There is increasing concern over the capacity of Marine water quality (system variable) to absorb

additional changes. This concern results not only from the water quality and coastal process implications

inherent to extensive port development projects (i.e. dredging events), but also due to the physical

footprint of proposed expansions in and around the port and its potential subsequent impact on

mariculture and tourism. This is even more pertinent after the recent approval of a formalised ADZ at

Saldanha Bay. Should the long-term viability of mariculture in the Saldanha Bay area be threatened by

planned port expansions; the resilience of the entire SES (of which the port forms part) must be

considered as vulnerable. Any negative impacts on the mariculture and tourism industries and related job

losses would result in a change in the systemic conditions which currently makes the SES state desirable

to the local Saldanha Bay community; i.e. it would result in a loss of economic activity.

This economic activity cannot merely be replaced by employment and/or local expenditure resulting from

planned port expansions as the “historic knowledge”, or dominant skillset of the demographic employed in



the mariculture industry, tends towards fishing and its related industries. Job losses in the mariculture

industry can, in theory, be replaced with employment in port or SBIDZ construction and operational

activities; however, such jobs may not be suitable to the skillset of the dominant demographic profile of

workers involved in the primary sector, which includes mariculture. Wesgro (2011) supports this

assessment, indicating that port expansion and IDZ activities may result in relatively few jobs for local

community members due to a lack of suitable skills and training in the Saldanha Bay area. Recent

training initiatives launched by the SBIDZ may, however, address this concern. The Saldanha Bay IDP

(2017) indicates that severe job losses were experienced during the recession between 2005 and 2010

and that the majority of these losses were experienced in the primary agriculture, forestry and fisheries

sectors. These sectors mostly employ semi-skilled and low-skilled labour which comprises the majority of

the workforce in the Saldanha Bay area. Although the primary sector showed growth in the post-

recessionary period between 2010 and 2015, this growth has not been sufficient to recover all the jobs

lost prior to and during the recession. In practice, jobs created by port expansions will, in all likelihood,

offer employment to locals not involved in mariculture or, more realistically, to job seekers from outside

the Saldanha Bay area.

It is important to note the potential secondary systemic effects which might result from job losses in the

mariculture and tourism industries. Such job losses are likely to exacerbate opposition to TNPA (system

variable), resulting in increased changes in the social environment and subsequent reduced systemic

latitude to accommodate more tension. Therefore social change as a system variable, being already rated

as having low to medium capacity, might be pushed beyond its adaptive capacity and trigger system

change into an undesirable state; i.e. making the entire SES vulnerable. This might seriously constrain or

eliminate TNPAs social license to operate.

It is suggested that TNPA invests in early and open communication with the mariculture and tourism

industries in order to: (i) Discuss the potential impacts of port expansion on mariculture and tourism

activities; (ii) Discuss and develop reskilling and employment programmes; and (iii) Develop reasonable

compensation packages where applicable. The changing nature of the study area, from one

characterised by a fishing community to one that is defined by an industrial port, as a result of TNPA

activities, must also be acknowledged. The change can be partially off-set by maximal employment of

local suitably qualified and experienced job seekers. A local training facility in partnership with the SBIDZ

focussing on port-related skills can serve a dual purpose of training up employable local residents, as well

as reskilling those currently employed in the fishing industry.

Air Quality

Saldanha Bay and Vredenburg residents continue to express particular frustration regarding existing

fugitive iron ore dust and its defacing effect on property, leading to the recent establishment of the Red

Dust Action Group and the matter receiving both local and national media attention. Concerns have also

been raised regarding continued manganese exports from the port and its potential impacts on air quality.

Given the planned expansion of dry bulk storage, new liquid bulk storage and oil and gas service

infrastructure, the potential related deterioration in air quality and its accompanying nuisance factors are

likely to increase dramatically if sufficient mitigation measures are not implemented. The resultant

impacts from port expansion will be both economic and social in nature as affected property prices may

continue to devalue, while associated social discontent increases. Based on the continued iron ore dust

issues, further concerns about manganese exports and air quality impacts from other large industries in

the area (e.g. ArcelorMittal) the sustainability rating for this variable was dropped from Medium to Low as

part of the SEA review/update process. Subsequently, air quality has the capacity to render the entire

SES vulnerable.

Although TNPA is not directly responsible for the iron ore dust problems, it is the landlord in the Port and

has to fulfil its oversight role by ensuring that TPT complies with the specifications of its AEL and its



commitments to compensate property owners for damages caused. It is recommended that TNPA

invests in BAT to control current and anticipated air emissions. TNPA must also comply with existing air

quality targets and ensure proper implementation of existing air emissions monitoring programs. The

results of these programs must be communicated to the local community via existing structures.

Furthermore, effort should be invested in developing an open and transparent relationship with the local

community regarding air quality issues. From interactions with the public, it appears that there is distrust

in TNPA and TPT’s ability and/or commitment to effectively monitor and mitigate emissions resulting from

port expansion activities. The negative perception among local residents might also in part be attributed

to a feeling of powerlessness as they have no direct input into the current monitoring program. TNPA

should consider involving existing forums, like the Saldanha Bay Water Quality Forum Trust and Red

Dust Action Group, in the actual monitoring of air quality, either directly, or in an auditing capacity.

Natural Vegetation

With the recent (2017) update of the CBA mapping in the Western Cape, a number of sensitive areas

have been identified in and surrounding port land, including areas proposed for further land acquisition.

In line with the latest draft EMF document, these areas are viewed as conflict areas which fall within

important economic development zones, but also contain areas of sensitive vegetation types required to

meet conservation targets. Coupled with other proposed largescale developments in the surrounding

area and upgrading of road infrastructure, it leaves little latitude for further loss of natural vegetation and

the sustainability rating was thus dropped from High to Medium as part of the SEA review/update

process. TNPA is to consult with CapeNature and DEA&DP regarding the implications of the latest CBA

maps and how to effectively resolve conflicts with future development proposals before the EMF for the

Greater Saldanha Bay area is finalised and gazetted, in order to ensure mutually acceptable alignment

between conservation targets and economic development.

The caveats discussed above, though originating in the natural environment, imply effects and limitations

in the social and economic environments. Accordingly, attention is drawn to Negative Feedback Loop 1

(page 73, Figure 5.5), which indicates that opposition towards TNPA (social discontent and associated

economic impacts) will be reduced, or controlled, by the Port of Saldanha being broadly sustainable (i.e.

sustainable for both TNPA and local Saldanha Bay/ Vredenburg residents). The negative nature of this

feedback loop implies that TNPA can control the level of opposition encountered from local residents, and

by implication maintain its social license to operate, by considering residents’ livelihoods, property and

quality of life as integral to port sustainability.

Potable Water Supply

Potable water supply remains the single-most important limitation identified in this study, even more so

due to the low rainfall conditions experienced since the SEA was first compiled. Further port expansions

and the SBIDZ development will not only require additional water supply for construction and operational

activities, but also to service the increased population likely to result from economic growth in the study

area.

Although not currently formally considered by TNPA, additional or expanded desalination technology may

be required in future, should drought conditions persist and municipal supply be placed under further

stress. Desalination is, however, both expensive and energy consumptive and its associated cost

implications must be considered as a potential threat to the resilience of the SES. If water can only be

supplied at a very high cost, or if it cannot be supplied in sufficient quantities, the adaptive capacity of the

system will clearly be exceeded and the entire SES may change into an undesirable condition from the

perspective of both TNPA and the local community. Apart from the financial implications of desalination,

the environmental constraints must also be considered. The energy intensive nature of desalination could



necessitate greater dependence on fossil fuel, thus producing GHGs which, in the long-term, will

exacerbate water shortage in the study area (see Positive Feedback Loop 2, page 72, Figure 5.4).

If further desalination projects are pursued, potential brine discharge to the marine environment would be

of concern. As indicated in Positive Feedback Loop 1 (page 57, Figure 5.3), brine discharged into the

marine environment will ultimately reduce marine water quality and in so doing, also increase the cost of

desalination. Apart from potential further desalination projects by TNPA to supply future port expansion

activities, WCDM and Saldanha Bay Municipality are also proposing desalination plants for bulk service

provision (the WCDM already holds an Environmental Authorisation for a municipal desalination plant and

further small-scale plants are being proposed by the Saldanha Bay Municipality and industry in the area).

Accordingly, the potential for multiple brine discharge sources into the littoral zone at Saldanha Bay

should be considered as highly probable. The resultant cumulative impact on marine water quality is likely

to exacerbate change in the marine environment as well as the cost of producing potable water in the

study area.

The positive or amplifying nature of Feedback Loop 1 suggests that TNPA has little or no control over the

expected high cost of fresh water supply and potential for deteriorating marine water quality, apart from

not expanding the port at all. Accordingly, it is reasonable to accept that the provision of fresh water

remains a clear and present threat to the SES, especially during the current drought conditions and even

if desalination technology is implemented. It is therefore recommended that TNPA quantify the water-use

needs and related costs (based on desalination technology and other alternative sources) of port

expansion activities and its associated influx of people into the study area, as well as projections of

expected cost increases over the 40 year port expansion time-frame. These cost estimates must be

completed and the implications thereof fully understood before any port expansion activities are

undertaken.

It is recommended that TNPA consider including the management actions listed in this report in future

strategic construction and operational EMP documents for the Port of Saldanha. Such strategic EMP

documents can be made available to future TNPA tenants for incorporation into project-specific EMP

documents. This would ensure that all future projects align with TNPAs overarching sustainability vision.



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